The process of developing Ukraine’s National Qualification System as a whole, and the National Qualifications Framework in particular, began in 2003 when Ukraine applied to join the Bologna Process. In 2004-2005, the Tempus programme formulated Methodological guidelines for implementing the European Credit Transfer and Accumulation System (ECTAS) in Ukrainian higher education institutions (HEIs). As a result, HEIs have developed course catalogues that specify learning outcomes for each discipline. Since 2009, ECTAS has been mandatory for all HEIs without exception.

  In 2010-2011, extensive discussions took place regarding the development of the Ukrainian National Qualifications Framework (NQF), which was intended to be similar to the European Qualifications Framework (EQF). The framework was designed to cover all levels of education and training, with a focus on lifelong learning. In 2011, the government approved the initial version of the Ukrainian NQF. The final version was adopted in June 2020, and an implementation plan was subsequently approved.

After the Revolution of Dignity in 2014, the EU-Ukraine Association Agreement (Угода про асоціацію між Україною, з однієї сторони, та Європейським Союзом, Європейським співтовариством з атомної енергії і їхніми державами-членами, з іншої сторони) was signed, which strengthened the political and economic ties between Ukraine and the EU. The Agreement and its roadmap, the Association Agenda, commit both parties to support the development of a functional NQF based on European practices. The Association Agreement came into force in 2017, and since then, the EU has become Ukraine's most significant trading partner. 

In 2014, Ukraine implemented the Law on Higher Education (закон України ‘Про вищу освіту’), which established the main features of the European Higher Education Area. These features include the autonomy of educational institutions, four levels of higher education, the abolition of Soviet-era degrees (e.g., Specialist and Junior Specialist diplomas), and the introduction of Doctor of Philosophy/Doctor of Arts degrees. Additionally, a new system of quality assurance in higher education was put into practice, based on the European Standards and Guidelines (ESG). The National Agency for Higher Education Quality Assurance (NAQA) was established in 2015. Its main task is to conduct external quality assurance with the participation of stakeholder representatives.

Since 2019, Ukraine has fully implemented a modern system of external quality assurance for higher education based on ESG. Currently, all higher education programmes should follow a competency-based approach. The development of a new list of specialties has been aligned with international standards. The previous specialties, including outdated ones, have been integrated into this list based on common learning outcomes. In 2013, new state standards for vocational education and training (VET) were introduced for specific working professions. However, the entire system only transitioned to competency-based standards in 2021, following the adoption and implementation of the State Standard for VET and the Methodological Guidelines for the Development of VET Standards.

Following the adoption of the Law on Education (закон України ‘Про освіту’) in 2017, the New Ukrainian School initiative launched the transition to 12-year education and introduced a competency-based approach. This approach reduced the number of subjects and emphasised key competencies.

At the end of 2018, the National Qualifications Agency (NQA) was established as the institution responsible for supporting the NQF in Ukraine. This involves harmonising it with similar international documents and providing information support for the NQS, etc. 

The implementation of these and many other reforms has progressed significantly. In particular, the Law on Education regulates educational and professional qualifications. Educational qualifications validate the outcomes of formal education, while professional qualifications validate outcomes in specific types of labour or professional activities. Professional qualifications are based on professional standards.

Since 2018, the development of relevant educational and academic professional programmes has been based on professional standards using a competency-based approach. As of the beginning of 2024, there are over 320 modern professional standards established, with ongoing development.

Ukraine has been operating its first qualification centers since 2022. These centers award professional qualifications, particularly by confirming the results of non-formal and informal education. By the beginning of 2024, there were almost 50 such independent institutions in Ukraine.

The latest version of the NQF of Ukraine aligns completely with the content of the European Qualifications Framework (EQF), including the number of levels, structure, and content of descriptors.

The Law on Education, in particular Article 10, categorises qualifications in Ukraine into different types, including:

• general secondary education,

• vocational and training (including postgraduate) and professional non-tertiary education,

• higher education.

General education covers the 1–4 levels of the NQF, the following educational certificates are issued: 

• certificate of basic secondary education for persons with special educational needs,

• certificate of basic secondary education,

• certificate of complete general secondary education.

VET qualifications correspond to levels 2–5 of the NQF. These qualifications include diplomas for skilled workers and certificates of awarding (upgrading) of a working qualification. At level 5, a diploma of professional non-tertiary education or a professional Junior Bachelor’s degree (formerly a Junior Specialist) is also available. 

Qualifications for the first (initial) level of VET are grouped at level 2 of the NQF. These qualifications involve obtaining a certificate of awarding (upgrading) of a working qualification, as well as a certificate of basic secondary education if required. Qualifications for the second (basic) level of VET are included in level 3 of the NQF. In addition to a skilled worker’s diploma and/or a certificate of awarding (upgrading) of a working qualification, these qualifications require a certificate of complete general secondary education (for all school students with a certificate of basic secondary education). Qualifications for the third level of VET are grouped at level 4 of the NQF. These qualifications include the skilled worker’s diploma and/or a certificate of awarding (upgrading) of a working qualification. In some cases, a certificate of complete general secondary education may also be awarded to school students who have a certificate of basic secondary education. However, general secondary education is not currently included in the NQF in Ukraine. Therefore, the distribution of general secondary education qualifications by NQF levels 2–4 provided above is only indicative.

Currently, VET qualifications are not classified at the NQF level 5. This level was previously referred to as Junior Specialist and was used for training in professional colleges until 2021. However, the new version of the Law on Higher Education has reclassified this qualification level as higher education and defined it as Junior Bachelor.

Higher education qualifications include:

• Level 5 – Junior Bachelor's degree

• Level 6 – Bachelor's degree

• Level 7 – Master's degree

• Level 8 – Doctor of Philosophy, Doctor of Arts.

Identification of qualification levels

The levels of qualifications follow a hierarchical order determined by the core competences of the qualifications and the criteria defining each level. These qualifications include:  

• Knowledge: information that a person comprehends and assimilates, serving as the foundation for conscious and purposeful activity. Knowledge includes both empirical (facts and ideas) and theoretical (conceptual and methodological) aspects.

• Skills: the ability to apply knowledge to perform tasks and solve problems. Skills are divided into cognitive (logical, intuitive, and creative thinking) and practical (manual dexterity, use of practical methods (techniques), materials, tools, and instruments) categories.

• Communication: interaction between people to transmit information, coordinate actions, and engage in joint activities.

• Responsibility and autonomy: the ability to apply knowledge and skills in an autonomous and responsible manner. 

The structure of each qualification level aligns with tasks of similar complexity, autonomy, and variety. These qualifications are divided into two types: professional qualifications, which prepare individuals for future employment, and educational qualifications, which enable further academic pursuits.

Attaining qualification levels

The Ukrainian NQF consists of 8 levels (see Figure).

Levels 1–4. Qualifications at levels I–IV are obtained by completing vocational education and training and/or general educational programmes and/or individual learning and/or professional practice.

Level 5. Qualifications at level V are obtained by completing vocational education and training programmes for individuals who already have a professional qualification and some work experience. They may also be awarded after completing short-cycle training programmes and/or through professional practice and/or individual learning. 

Level 6. Qualifications at level VI are obtained by completing first-cycle training, vocational training programmes, and/or through professional experience and/or individual learning.   

Level 7. Qualifications at level VII are obtained by completing second-cycle integrated learning or vocational training programmes and/or through professional experience and/or individual learning.

Level 8. Qualifications at level VIII are obtained by completing third-cycle training programmes and/or through professional experience and/or individual learning.

Figure. Levels of the Ukrainian National Qualifications Framework

*In Ukraine, non-tertiary education is the equivalent of professional pre-higher education (Level V)

 

Descriptors defining the qualification levels

 

Level	Knowledge	Skills	Communication	Responsibility and autonomy
1	Basic general knowledge, understanding of the simplest concepts about oneself and the environment, the basics of safe behaviour	Basic skills needed to perform simple tasks	Integration into the groups that make up the immediate social environment    The appropriate response to simple written and oral communications	Work or study under direct guidance or supervision in a structured context    Limited responsibility for one’s actions    Formulation of elementary judgments
2	Basic empirical knowledge and understanding of key (general) processes in the field of education and/or work	Use of relevant information to perform simple tasks and solve everyday problems in typical situations using simple rules, instructions, and tools    Assessment of results of one’s own activities in accordance with the established criteria, use of reasoning to substantiate one’s own opinions and conclusions	Interaction in a team to perform tasks    Production of detailed oral and written communications	Work and/or study under the guidance or supervision with some autonomy    Individual responsibility for the results of performing tasks during study and/or work
3	Knowledge of facts, principles, processes, and general concepts in the field of education and/or professional activity	Performing typical tasks and solving problems by selecting and applying basic methods, tools, materials, and information    Assessment of results of performed tasks in accordance with pre-known criteria	Ability to work efficiently in a team    Perception of criticism, advice, and guidance    Production of detailed oral and written communications, in particular in professional activities	Responsibility for performing tasks while working or studying    Adapting one’s behaviour to external circumstances while performing tasks or solving problems
4	Empirical and theoretical knowledge in broad contexts and understanding of principles, methods, processes in the field of education and/or professional activity	Performing complex specific tasks, finding or making decisions on specific problems in professional activity or education    Planning one’s own work and organising, monitoring, evaluating, and adjusting the work of others in a limited context	Mentoring, sharing experience    Production of complex detailed oral and written communications, in particular in professional activities or education	Self-organisation according to rules that exist in work or study contexts and are usually predictable but may change    Supervising the daily work of others, limited responsibility for evaluating and improving the performance of their work or study
5	Comprehensive specialised empirical and theoretical knowledge in the field of education and/or professional activity, awareness of the limits of this knowledge	A wide range of cognitive and practical skills needed to solve complex problems in specific areas of professional activity and/or education    Finding creative solutions or answers to clearly defined specific and abstract problems based on data identification and application    Planning, analysis, control, and evaluation of one’s own work and the work of others in a specific context	Interaction with colleagues, managers, and clients on issues related to understanding, skills, and activities in the professional and/or educational field    Conveying to a wide range of people (colleagues, managers, clients) one’s own understanding, knowledge, judgments, experience, in particular in the field of professional activity	Organisation and supervision (management) in the context of professional activity or education in conditions of unpredictable changes    Improving the results of one’s own activities and the work of others    The ability to continue learning with some degree of autonomy
6	Conceptual scientific and practical knowledge, critical understanding of theories, principles, methods, and concepts in the field of professional activity and/or education	In-depth cognitive and practical skills, mastery, and innovation at the level required to solve complex specific tasks and practical problems in the field of professional activity or education	Bringing to specialists and non-specialists information, ideas, problems, solutions, one’s own experience and arguments    Data collection, interpretation, and application    Communication on professional issues, including in a foreign language, orally and in writing	Management of complex technical or professional activities or projects    Ability to take responsibility for producing and making decisions in unpredictable work and/or learning contexts   Formation of judgments that take into account social, scientific, and ethical aspects    Organisation and management of professional development of individuals and groups    Ability to continue learning with a significant degree of autonomy
7	Specific conceptual knowledge, which includes modern scientific achievements in the field of professional activity or knowledge and is the basis for original thinking and research, critical understanding of problems in the field and across the fields of knowledge	Specialised problem-solving skills required for research and/or innovation in order to develop new knowledge and procedures    Ability to integrate knowledge and solve complex problems in broad or multidisciplinary contexts    Ability to solve problems in new or unfamiliar environments with availability of incomplete or limited information, taking into account aspects of social and ethical responsibility	Clear and unambiguous communication of one’s own knowledge, conclusions, and arguments to specialists and non-specialists, in particular to persons who study	Managing work or learning processes that are complex, unpredictable, and require new strategic approaches    Responsibility for contributing to professional knowledge and practice and/or evaluating the performance of teams    Ability to continue learning with a high degree of autonomy
8	Conceptual and methodological knowledge in the field or across the fields of knowledge or professional activity	Specialised skills and techniques needed to solve significant problems in the field of professional activity, science, and/or innovation, expansion and reassessment of existing knowledge and professional practice  Initiating, planning, implementing, and adjusting a consistent process of sound research with due academic integrity  Critical analysis, evaluation, and synthesis of new and complex ideas	Free communication on issues related to the field of scientific and expert knowledge, with colleagues, the wider scientific community, society as a whole    Use of academic Ukrainian and foreign languages in professional activities and research	Demonstration of significant authority, innovation, high degree of independence, academic and professional integrity, constant commitment to the development of new ideas or processes in the advanced contexts of professional and scientific activities  Ability to continuous self-development and self-improvement

 

Challenges in developing and implementing the NQF

The NQF is a policy instrument that guides education, professional training, and lifelong learning policies towards a NQS based on learning outcomes and competences. However, the recent changes have not yet been implemented across the entire NQF and are still not fully accessible to users.

To achieve meaningful results, the reforms need to involve a wider range of stakeholders and institutions. These include teachers, HEI staff, trainers, assessors, methodologists, quality assurance experts, and career counsellors, including those from the State Employment Service of Ukraine.

These efforts will require capacity building, experimentation, and guidance, especially if the reforms coincide with greater autonomy for education providers. The NQF should cover education standards and all available qualifications in the country, both professional and educational. The introduction of new qualifications can facilitate the transition to modular curricula and innovative educational formats that emphasise active learning.

Furthermore, there is a particular need to develop professional qualifications that support adult learning and extend educational opportunities beyond formal education. Analysts and policy makers should thoroughly assess the use of professional and educational qualifications in Ukraine to promote lifelong learning. This involves exploring pathways from professional to educational qualifications and considering the potential of partial qualifications to facilitate learning experiences that support horizontal or vertical progression.

Although non-formal and informal learning outcomes are not widely recognised in Ukraine, their value is significant. It is therefore important that education providers and employers pay more attention to partial qualifications, as they can serve as the foundation for lifelong learning and individual learning pathways, particularly during war and post-war periods. In order to achieve this, it is necessary to consider the role of micro-credentials in the NQF and the NQF register. 

The integration of counselling and career guidance, as well as lifelong learning opportunities, with the NQS is essential. It is important to ensure compatibility of the National Qualifications Register database with other databases, including the Unified State Electronic Database on Education and international databases. This integration will enable stakeholders to take full advantage of the new systems (see National Framework Qualifications – Ukraine). 

 

 Comparison of the Ukrainian NQF and the EQF

According to the established regulations, Ukraine has prepared a Self-certification report on Compliance of the National Qualifications Framework Criteria and Procedures with the Qualifications Framework for the European Higher Education Area, which was approved by the Board of the Ministry of Education and Science of Ukraine on 2 December 2021. In January 2023, the Comparison report of the European Qualifications Framework and the Ukrainian National Qualifications Framework was published. This document was prepared for the European Commission by the participants in the Comparison exercise, with the support of the European Training Foundation (ETF).

The Report made recommendations for strengthening the Ukrainian NQF reinforcing the link to the EQF, in particular:

• The link between level descriptors and the learning outcomes of qualifications can be further strengthened in VET, general education and existing professional qualifications.

• Mentioning NQF levels in relation to qualifications is the most tangible information for end-users and employers. Ukrainian higher education qualifications are clearly referenced in the NQF, but this is missing in other types of qualifications.

• Qualifications in VET could benefit from certificate supplements and applying the principles for shorter descriptions of learning outcomes.

• Validation of non-formal and informal learning outcomes in Ukraine is extending to other types of qualifications within the NQF structure. Establishing close cooperation between EQF countries and Ukraine in the field of validating non-formal and informal learning can foster productive and effective exchanges on implementing validation systems and supporting new developments, such as the use of micro-credentials.

• The quality assurance system for VET qualifications and general education is established, but its connection to the NQF needs to be clearly defined.

• In Ukraine, the register of qualifications is not fully operational, yet; it still needs to be filled with additional information on qualifications.

• The use of the NQF to support career guidance could be further developed.

The next steps, including the Joint Plan, have been identified as follows:

• The EU and Ukraine will collaborate in the dissemination of the findings of the Comparison report. The European Commission, Ukrainian authorities (e.g., Ministry of Education and Science, National Qualifications Agency, Ukrainian ENIC Centre, NAQA), EU Member States, the ENIC-NARIC network, ETF, and Cedefop will actively promote these results. Their efforts will aim to enhance the transparency and comparability of qualifications between Ukraine and the EQF. This will also facilitate the mutual recognition of qualifications.

• Ukraine assumes its responsibilities as a candidate country with support of the EU. After receiving a candidate status in June 2022, Ukraine has joined the EQF Advisory Group. This membership means that Ukraine will be fully involved in EQF implementation activities, including participation in EQF Advisory Group project groups, EQF Peer Learning Activities and receiving EU funding under Erasmus+ for EQF National Coordination Point activities. In addition, Ukraine can start preparing to relate its NQF to the EQF. The EQF Recommendation is closely linked to the Council Recommendation of 20 December 2012 on the validation of non-formal and informal learning, which encourages the establishment of arrangements for the validation of non-formal and informal learning outcomes. Other relevant EU Council Recommendations with which Ukraine can now engage include those on micro-qualifications, vocational education and training, and existing mechanisms in adult education. In the context of EU enlargement, Ukraine has also been invited to join the Europass Advisory Group and the Advisory Committee on Vocational Training. The Commission and relevant EU agencies, such as the ETF, will assist Ukraine in fulfilling its responsibilities.

• The EU and Ukraine will develop and implement a Joint Action Plan. This plan, to be agreed in the near future, will address a number of recommendations related to reinforcing the links between the Ukrainian NQF and the EQF.

In 2024, Ukraine is expected to align its NQF with the EQF according to European regulations. To achieve this, an Interagency Working Group has already been established, and an annual Action Plan for the alignment of the NQF with the EQF has been approved.

 

Useful links

Cabinet of Ministers of Ukraine (Кабінет Міністрів України), 2011: Resolution on Approval of the National Qualifications Framework (Постанова про затвердження Національної рамки кваліфікацій) [last accessed 01/09/2024]

Cabinet of Ministers of Ukraine (Кабінет Міністрів України), 2021: Resolution on Approval of the State Standard  for Vocational Education and Training (Постанова про затвердження Державного стандарту професійної (професійно-технічної) освіти) [last accessed 01/09/2024]

Comparison of NQF Level Descriptors and EHEA QF Cycle Descriptors 

Ministry of Education and Science of Ukraine (Міністерство освіти і науки України), 2010: Letter on the Methodological Recommendations for the Implementation of the European Credit Transfer and Accumulation System and its Key Documents in Higher Education Institutions (Лист про методичні рекомендації щодо запровадження Європейської кредитно-трансферної системи та її ключових документів у вищих навчальних закладах) [last accessed 01/09/2024]

Ministry of Education and Science of Ukraine (Міністерство освіти і науки України), 2021: Order on Approval of the Methodological Recommendations for the Development of Vocational Education and Training Standards Based on the Competence Approach (Наказ про затвердження Методичних рекомендацій щодо розроблення стандартів професійної (професійно-технічної) освіти за компетентнісним підходом) [last accessed 01/09/2024]

National Qualifications Agency (Національне агенство кваліфікацій): Information about Professional Standards (Відомості про професійні стандарти) [last accessed 01/09/2024]

National Qualifications Agency (Національне агенство кваліфікацій): Information about Qualification Centres (Відомості про кваліфікаційні центри) [last accessed 01/09/2024]

Unified State Electronic Database on Education (Єдина державна електронна база з питань освіти) [last accessed 01/09/2024]