National Qualifications policy research

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Why did we produce this report?

This report forms part of a wider programme of work exploring early thinking around the future reform and modularisation of National Qualifications at SCQF levels 4 and 5. It brings together evidence, historical analysis and practitioner perspectives on the development, implementation and operation of National Qualifications at these levels across different phases of Scottish education reform.

What are we trying to find out?

The report examines both current and legacy qualifications, including Standard Grade, Intermediate 1 and 2 qualifications, National 4 and National 5, to identify recurring themes, strengths and areas of challenge in qualification design and delivery. It focuses particularly on the implementation of National 4 and National 5, grading approaches, mechanisms for recognising positive achievement, presentation strategies, dual entry patterns, and progression between curriculum levels and learner pathways.

The purpose of the report is not to advocate for a particular model of qualification reform, but to support informed discussion and evidence-based decision-making. By examining how different qualification structures and assessment approaches have operated over time, the report aims to contribute to ongoing consideration of how future National Qualifications at SCQF levels 4 and 5 can best support learners, practitioners and the wider education system.

How did we gather the information?

The report uses secondary research, such as historical data, research and other sources, which are referenced throughout.

What did we learn?

  • There is a complexity involved in designing qualifications at SCQF levels 4 and 5 that successfully balance credibility, progression, inclusion, manageability and recognition of learner achievement.
  • Across successive generations of Scottish qualifications — from Standard Grade and Higher Still to National 4 and National 5 — recurring tensions can be identified between flexibility and consistency, internal and external assessment, breadth and depth of learning, and the competing demands of progression, certification and accountability.
  • There are concerns around progression from the broad general education (BGE) into the senior phase, articulation between National 4 and National 5, the impact of assessment design on learner experience, and the consequences of presentation strategies and dual entry practices for teacher workload and learner outcomes.
  • Aspects of qualification design have been valued by practitioners and learners, including opportunities for flexible progression pathways, recognition of positive achievement and differentiated approaches to assessment.
  • Qualification design cannot be considered in isolation from wider system factors. Curriculum alignment, accountability measures, assessment practices, practitioner understanding, vocational pathways and broader policy priorities all shape how qualifications are experienced in practice.

What will change because of the report?

As discussions continue regarding the future of Scottish qualifications, the historical and contemporary evidence outlined in this report provides an important basis for reflection. Consideration of both the strengths and limitations of legacy and current models will be essential in supporting the development of qualifications that are credible, inclusive and capable of supporting progression for the full range of learners.

Why did we produce this report?

This report forms part of a series of publications exploring early thinking around the reform of National Qualifications at SCQF levels 4 and 5, which includes the potential modularisation of courses.

What are we trying to find out?

The report aims to inform thinking and consider how elements of different international systems might influence the design of reformed National Qualifications. The jurisdictions covered take a modular approach to their senior-phase qualifications, have recently undergone or are in the process of reform, and have a relatively small population. Most are high performing in international educational rankings. They are Wales, New Zealand, Estonia, New South Wales (Australia) and British Columbia (Canada).

How did we gather the information?

Desk research and the development of case studies.

What did we learn?

The jurisdictions examined demonstrate a range of approaches to the design of qualifications for learners broadly equivalent to those at SCQF levels 4 and 5. While each system reflects its own national context, several common themes emerge, including greater use of internal and digital assessment, flexible approaches to progression and certification, and an enhanced focus on skills, competences and learner choice.

The study illustrates the variety of ways in which qualifications systems seek to balance consistency, flexibility, breadth and progression.

What will change because of the report?

The findings in this report will support ongoing discussion and reflection about the future design and reform of National Qualifications at SCQF levels 4 and 5 in Scotland.

Why did we produce this report?

This report has been developed in the context of a series of recent independent reviews and reports on the Scottish education system, which were developed in response to the OECD’s independent review of Scotland’s Curriculum for Excellence in 2021.

One of the recommendations from these reviews were proposals to explore more modular approaches to qualifications as part of wider qualification reform. Such proposals have prompted further discussion about how modularisation might operate in Scotland’s senior-phase qualifications system, and the implications this might have for approaches to assessment, grading and certification.

What are we trying to find out?

This report aims to explore the potential benefits and challenges of grading modules in senior-phase National Courses by examining various models, with a view to informing potential approaches to awarding that support internally- and externally assessed graded components.

How did we gather the information?

The report includes analysis of how various grading models in the senior-phase of schools in Scotland at SCQF levels 4 and 5 work, currently and historically. It also considers international models, including in Wales, New Zealand and Australia. The report does not consider vocational qualifications.

What did we learn?

The analysis highlights that, while modular and graded approaches can provide richer information about learner achievement and enhance the flexibility of certification, they also introduce significant challenges in relation to workload, standardisation, and the maintenance of consistent national standards.

Modularisation and the potential role of graded components in future qualifications is being discussed as part of the Scottish Government’s education reform programme. The evidence in this report suggests that any movement towards such a model will require careful balancing of validity, reliability, and practicability, alongside strong national support for assessment literacy, moderation, and system-wide coherence.

What will change because of the report?

The findings of this work will form part of the considerations of the qualifications reform programme, which will include input from learners, practitioners, parents/carers and representative national bodies, such as teaching unions and professional associations.

Why did we produce this report

This report has been developed following the recent reviews of Scottish qualifications and assessments, which made recommendations for exploring a modular approach to qualifications as part of a wider programme of educational reform. Modular systems used in other jurisdictions – New South Wales (Australia), British Columbia (Canada), New Zealand, Estonia, and Wales – were studied to provide additional insight.

What are we trying to find out?

The purpose of this report is to support informed discussion and evidence-based decision making on potential approaches. By examining how different systems have operated over time, the report aims to contribute to ongoing consideration of how future National Qualifications can best support learners, practitioners, and the wider education system.

How did we gather the information?

Historical data and research was used to examine the Scottish context along with other sources. The research included a literature review to provide a contextual understanding of the educational systems of the selected five jurisdictions.

What did we learn?

The evidence suggests that the success of any potential future modular approach is likely to depend on the design of the wider qualification system. Key considerations include the size and structure of modules, the balance between internal and external assessment, the clarity of standards and progression pathways, the effectiveness of quality assurance arrangements, and the extent to which digital systems can support delivery, assessment and moderation.

The Scottish and international evidence therefore provides valuable considerations for future qualification reform.

What will change because of the report?

The findings in this report will support ongoing discussion and reflection about the future design and reform of qualifications in Scotland.

In 2021, the OECD published an extensive review of Curriculum for Excellence (CfE) and a working paper on assessment in the Senior Phase by Prof. Gordon Stobart. We provided OECD with the following report to inform their reviews:

Further work, addressing issues raised by the OECD review in depth underpinned our response to Professor Muir’s review of education reform (5 KB):

Professor Muir’s subsequent report, Putting Learners at the Centre: Towards a Future Vision for Scottish Education, was published by the Scottish Government in 2022 and references the research.

This research was also shared with Professor Louise Hayward as she began her Independent Review of Qualifications and Assessment (IRQA). To further contribute towards the IRQA, We then conducted a comparative study which compares internal assessment practices in high-performing jurisdictions and considers the implications of the findings for Scotland in finding a balance between internal and external assessment.