Austria 2024

The NQR has reached the operational stage. In 2023, a new strategy was adopted to support its continued development, building on the provisions of the NQR Act. The primary goal of this strategy is to enhance the effectiveness and efficiency of the qualification mapping process. Additionally, it aims to improve communication regarding the benefits of NQR referencing, both for qualification providers and individuals, by emphasising the value of aligning qualifications with the framework (European Commission & Cedefop, 2024).

The NQR provides a structured approach to referencing all types of qualifications, ensuring consistency and transparency across the education and training system.

Higher education qualifications within the Bologna system - bachelor, master and doctorate degrees - are automatically referenced to the NQR through provisions in the NQR Act. All other qualifications are levelled through a formal allocation process ([15]A schematic view of the mapping process is available in Cedefop and ReferNet Austria (2020).) initiated by a submitted request. While the process itself is consistent across qualification types, the submitting body varies depending on the qualification's origin. Since 2019, dedicated procedures and structures have been established to enable the levelling of non-government-regulated qualifications, particularly those acquired through adult education, continuing training, and youth work.

The process of referencing formal qualifications in the NQR, as described in the NQR Act, begins when the relevant federal ministry or provincial government which holds responsibility for the qualification in question, initiates a request for referencing. This request must include a proposal for the qualification's NQR level, along with all necessary supporting documentation and descriptions of learning outcomes. Once submitted, the request is reviewed by the EQF NCP. This body carries out a formal and content-related examination of the proposal. As part of its evaluation, the EQF NCP may seek expert opinions from qualified professionals and always requires an official statement from the NQR Advisory Board, a group of independent experts. Following this, the EQF NCP presents the qualification and its mapping decision to the NQR Steering Group. This group, composed of representatives from ministries, educational institutions, and other stakeholders, holds the power to veto the referencing decision. A veto requires a two-thirds majority within a three-month period. If no veto is raised during that time, the qualification is officially entered into the NQR register, making its referencing public and official. Once entered, the qualification provider receives confirmation and may refer to the assigned NQR level in public communications, for informational purposes only, as referencing has no direct legal effect on professional rights or entitlements.

The same process is followed for non-formal qualifications, those not regulated by law. The only difference is that a qualification provider works with an authorised NQR service centre, which assists in preparing and submitting a referencing request to the EQF NCP, ensuring the learning outcomes are well-defined and verifiable.

Since 2020, there has been considerable progress in indicating NQR levels on qualifications. The qualification provider is entitled to use the awarded NQR level on its certificates. Most providers use this opportunity. NQR levels are often indicated on many Europass certificate supplements at levels 4 to 6. All NQR qualifications are included in the qualifications register, where their NQR and EQF levels are indicated (European Commission & Cedefop, 2024).

The NQR communication strategy is part of the annual report to the parliament on the NQR, with the most recent one published in 2023. The EQF NCP acts as the central authority for the implementation and promotion of the NQR. Its core mandate is to increase public awareness and understanding of the NQR through targeted communication measures, including events, seminars, consultations, and the distribution of brochures and promotional materials. Comprehensive information on the NQR, such as qualification assignments, the European and national frameworks, learning outcomes, and national developments, is made accessible to all stakeholders via the official NQR register website. The EQF NCP worked closely with Europass and Euroguidance to align efforts with the European Skills Agenda and the European Pillar of Social Rights Action Plan. These partnerships supported the dissemination and promotion of EU tools that facilitate mobility, lifelong learning, and employability (European Commission & Cedefop, 2024).

In 2023, the EQF NCP focused its communication efforts on promoting the recent NQR developments, particularly in light of the growing number of qualifications included - 87 in that year alone. A key priority was raising awareness of non-formal qualifications, in coordination with NQR service points and the OeAD (Austria's Agency for Education and Internationalisation). The EQF NCP also hosted the NQF Forum at the OeAD House, during which various stakeholders, including qualification providers, service centres, and Advisory Board members, engaged in discussions on the benefits, visibility, and opportunities of the NQR. Brochures and promotional materials are published regularly, while a handbook on the mapping of formal and non-formal qualifications to the NQR has also been developed ([16]The handbook provides general information on the NQR and the EQF, along with a checklist of requirements that must be met for a qualification to be levelled to the NQR. The handbook also presents the levelling and a detailed explanation of level descriptors.). Public engagement was enhanced through targeted events, training for guidance counsellors, participation in fairs, and the use of NQR levels on certificate supplements. Online visibility also improved significantly, with over 95 000 website visits, an increase of 33% from the previous year, reflecting rising public interest and awareness (European Commission & Cedefop, 2024).

More qualification providers and databases now indicate NQR levels, often linking directly to the official NQR register. This supports easier comparison of qualifications and encourages further uptake (European Commission & Cedefop, 2024).

All qualifications assigned an NQR level are published in the national qualifications register, which is available in German and partly in English. No unlevelled qualifications are included, as publishing the qualification in the register is a legal requirement for the levelling to become effective. As if 2024, the register contains 114 qualifications ([17]Doctoral and master degrees are not mapped in the register. (Source: Internal communication with the OeAD.)). The register targets experts, stakeholders, qualification providers and learners. It provides information in German and English on the field of study, the EQF level, what the learner is expected to know, understand and be able to do (as open text), the awarding body, and entry requirements. Elements such as further information on the qualification and links to qualification supplements are partially covered. Only the main learning outcomes (10 to 15) are published in the register, aiming to depict the level of the qualification concisely, depending on the chosen verbs. While some additional national databases exist, only certain ones are interconnected with the NQR register. The national data model is aligned with the European Learning Model v.3, enabling data exchange and interoperability (European Commission & Cedefop, 2022; 2024).

Awareness of the NQR/EQF in Austria has gradually improved across various stakeholder groups, though levels vary.

Among learners and students, awareness of the NQR/EQF remains moderate and is supported by indirect evidence. The visibility of the NQR has increased, as shown by the growing traffic to the EQF NCP website and the NQR register. The indication of NQR/EQF levels on qualification certificates, especially in vocational and apprenticeship pathways, has also contributed to increased awareness. While more qualification providers and public databases now reference NQR levels, the framework is still not widely relevant or recognised by the average learner. Ongoing efforts to integrate NQR references into learner-facing materials are helping to gradually build awareness in this group.

Similarly, workers and job seekers show moderate familiarity, with the NQR becoming increasingly relevant for continuing education and job applications. Among education and training providers, awareness is high due to the promotional value of NQR mapping, although administrative demands remain a limiting factor.

Labour market stakeholders present a mixed picture. Employers and trade unions demonstrate moderate awareness, with the NQR becoming more pertinent in international recruitment and qualification transparency. Trade unions are increasingly recognising the NQR as a means to enhance permeability across education sectors, supporting both workers and employers, in line with their broader role in promoting lifelong learning and continuing professional development. Employment services, on the other hand, show high awareness and actively integrate NQR data into their systems.

Awareness of the NQR/EQF among guidance and counselling practitioners in Austria is high, supported by initiatives such as a project on validating transversal skills.

Recognition authorities report high awareness due to frequent public queries, while public authorities and key actors in the NQR governance structure exhibit very high awareness through their direct involvement in the NQR Steering Group (European Commission & Cedefop, 2024).

The use of the NQR across different groups in Austria remains varied but generally moderate to high. Learners and students use the NQR at a moderate level, mainly through its presence on qualification certificates and in online tools. While not embedded in everyday decisions, the framework is increasingly used for job or visa applications abroad, notably in Australia. Workers and jobseekers also demonstrate moderate use, often leveraging the NQR when pursuing further training or international employment.

Among labour market stakeholders, employers and trade unions show moderate engagement. Employers use the NQR particularly in international recruitment and tenders, while trade unions are beginning to explore its potential to support mobility and recognition across sectors. Employment services, however, show high use, actively integrating the NQR in databases and qualification descriptions to support job matching and guidance.

Education and training providers exhibit high use of the NQR. Providers mapped to the NQR use it prominently for programme promotion, supported by the NQR register and oversight from the EQF NCP. Bodies designing or revising qualifications also show high use, especially in vocational education, where NQR descriptors are embedded in qualification standards and legislation, shaping qualification development.

Guidance and counselling practitioners have a moderate but rising level of use, supported by collaboration within the OeAD and involvement in EU-level projects. Quality assurance bodies show very low use. There is no clear link between quality assurance procedures and the NQR, with quality largely governed by national legal frameworks. Recognition authorities demonstrate high use of the NQR, especially when evaluating foreign qualifications, where the framework serves as a useful reference, even if not a formal recognition tool (European Commission & Cedefop, 2024).

No formal evaluation has taken place. However, the institutional structure and the implementation of the NQR have been monitored through working groups. The focus was on the cooperation among the NQR steering committee, NQR service points, the EQF NCP and the responsible ministries, and on how to speed up the levelling process and better communicate the framework. This has led to a better understanding of specific elements of the levelling process, more transparency and faster levelling of qualifications (European Commission & Cedefop, 2022). Regarding the monitoring of the NQR service points, several feedback meetings between the service points, the EQF NCP and the education ministry took place in 2022. The service units were also able to provide written feedback. The EQF NCP drew conclusions from the results (Cedefop & ReferNet, 2023) and is now working with the service points on measures to increase the number of qualifications levelled to the NQR, enhance visibility and ensure high quality ([18]Source: Internal communication with the OeAD.).

The NQR has contributed notably to increasing transparency and comparability of qualifications, particularly through the growing number of qualifications referenced in the NQR. This facilitates the visibility of both formal and non-formal qualifications and supports comparability at national and international levels, aided by tools such as qualification registers.

While the NQR itself is not a quality assurance instrument, it has significantly supported the use of learning outcomes in curriculum development and revision across various sectors. Formal qualifications such as those for prison officers and staff non-commissioned officers, as well as non-formal ones such as certified education managers, now increasingly reflect learning outcome-based approaches. There is limited evidence of the NQR directly enhancing employability, though the EQF is increasingly used for international mobility and comparison of foreign qualifications, despite the NQR not serving as a formal recognition or admission tool. Since 2019, efforts have been underway to systematically map non-formal qualifications to the national framework. To facilitate this process, NQR service points were established, providing guidance and support to qualification holders in preparing and submitting their mapping proposals. By integrating a broad spectrum of non-formal qualifications, the framework aims to enhance transparency and ensure that the full scope of the national education system is accurately reflected (European Commission & Cedefop, 2024).

Institutional dialogue and cooperation have been strengthened through the NQR Steering Group, which includes stakeholders from education and labour market sectors and meets regularly. The NQR has also played a supportive role in broader system reforms, notably influencing the development of Austria's law on higher vocational education and training (HBB-Gesetz).

Finally, the NQR is a useful reference tool for lifelong learning, offering learners guidance on continuing education and training opportunities by integrating qualifications from both formal and non-formal sectors (European Commission & Cedefop, 2024).