Terms of Reference: Determination of the Cost of RPL Assessment in Kenya

1. Background and Context of Recognition of Prior Learning & Certification

Kenya’s socio-economic growth largely depends upon the effectiveness and quality of the country’s Human Resources Development (HRD) system. The Vision 2030 and the Big 4 Agenda places great emphasis on the link between education and training and the labour market to develop relevant and skilled workforce. These efforts notwithstanding, the country still faces a severe shortage of quality and relevantly skilled workforce. This is due to the miss-match between skills produced and labour market needs. However demographic trends indicate the existence of many unrecognized skilled persons who acquired competencies through informal and non- formal means but cannot be employed.

The Kenya National Qualifications Authority (KNQA) is established under the Kenya National Qualifications Framework Act No. 22 of 2014. The mandate of the Authority is to establish and maintain the Kenya National Qualifications Framework (KNQF). This inter alia involves; to establish standards for recognizing qualifications obtained within and outside Kenya; develop a system of competence, lifelong learning, and attainment of national qualifications; align qualifications obtained in Kenya with global benchmarks to promote national and trans-national mobility of workers; strengthen the national quality assurance systems for national qualifications; and facilitate mobility and progression within education and training. The Authority has identified Recognition of Prior Learning (RPL) as a critical component in helping achieve its mandate and has developed a roadmap for implementing RPL in the country.

Recognition of Prior Learning (RPL) is a process used to identify, assess and certify an RPL candidate’s knowledge, skills and competencies acquired in non-formal or informal learning, such as work or life experiences, against prescribed standards or learning outcomes. Currently, Countries are recognizing that learning is continuous i.e. from cradle to grave and does not take place in the classroom alone but in sector wide and sector deep both in formal, informal, non- formal settings.

The RPL is a response to the challenge facing the discouraged and disadvantaged learners including the marginalized who cannot access the formal education and training pathway despite having acquired competencies through informal and non- formal ways. RPL is founded on two basic principles: what a person knows and can do is more important than where and how s/he acquired competence, and no one should spend time, energy and resources to learn what they already know and can do.

RPL will promote a responsive and equitable education and training system that facilitates access, mobility, self-esteem, progression and fair chances to the disadvantaged, discouraged, the traditionally marginalized learners and refugees to acquire a formal qualification that matches their prior knowledge and skills. This is achieved through promotion of access to education, credit transfer or harmonization both at national and foreign levels, recognition of experiential learning and upgrading of skills or qualifications. This thereby contributes to improving their employability, mobility, lifelong learning, social inclusion and self-esteem.

Despite the numerous advantages of RPL as alluded to above, many countries struggle to implement large scale RPL programme. One of the often barrier to this is funding. Many countries either underestimate or simply do not think through and determine the funding commitment needed to ensure a sustainable robust RPL system. The reality is , depending on the stage and capacities of RPL in a country, initial financial investment is needed in setting up the system, developing tools and building capacity. Thus, the cost of RPL depends on the methodology a country adopts, the level and type of qualification and the extent of the support needed by candidates. It also depends on the availability of pre-existing competency standards and assessment tools in the country, and what, if any, institutions are responsible for RPL. The costs will be lower if existing institutions share the responsibility of RPL. Most countries do follow this approach, but some have underestimated the cost implications and the complexity, and thus faced constraints in implementing and expanding RPL.

In Kenya, Partners have developed and approved A Recognition of Prior Learning (RPL) Policy its implementation guidelines. The country now is in the process of planning for roll out of RPL. The current costing for assessment in Kenya purely focuses on the assessment / exams and certification in the formal education and training system. However, RPL assessment and processes introduces a several more components such as counselling, facilitation, evidence gathering as well as (for e.g. portfolio) which attract an additional cost in comparison to the traditional assessment costing. This calls for deliberate undertaking to systematically determine costing and cost sharing arrangement the RPL process cost. It is also important to note that the different qualification levels and types call for different inputs, processes, methods including number and type of personnel involved in the assessment, thus calling for a differentiated unit cost approach to RPL assessment to ensure all the components are costed effectively.

Equally important to this process is to ensure participation and contribution of the key stakeholders on the costing factor to ensure buy-in on the agreed RPL assessment costing as well as the implication on revenue sharing. This therefore calls for engagement of an expert in financing models to help arrive at the RPL assessment costing taking into consideration the different qualifications, levels and revenue sharing among the key stakeholders.

2. RPL Support under “PROSPECTS” Partnership

The PROSPECTS partnership is a collaboration of the ILO, UNICEF, UNHCR, IFC and the World Bank, with support from the Ministry of Foreign Affairs (MFA) of the Netherlands, which aims to complement humanitarian assistance with a development approach focusing on the nexuses between education (including skills development and training), protection and employment. This is significant given the displacement trends with UNHCR projecting that Kenya is likely to continue to be amongst the top refugee hosting countries in Africa.

Under the partnership, the ILO intends to increase the number of refugees and host communities’ members with quality education and skills training and help transform the way governments and other stakeholders including the private sector, respond to forced displacement. The ILO interventions will serve to make refugees and members of the host communities more attractive in the labour market, by ensuring that they have skills that are in demand, and that these skills are recognised and certified. By so doing, the project will mitigate their plight during years of exile and best prepare them for their return through socio-economic inclusion and strengthen the resilience of host communities through inclusive socio-economic development.

To respond to its interventions, the programme puts a lot of focus in strengthening government institutions and Authorities at National and County level for sustainability of its interventions and primarily to ensure inclusion of refugees in government planning, strategies and policy frameworks.

3. Objectives of the Consultancy

The main purpose of the consultancy is to determine the unit cost of RPL assessment in Kenya.

The specific objectives of this assignment include.

(a) Assess the current assessment cost in the formal certification and different systems of costs determinations

(b) To determine the cost centers and elements in RPL Assessment process based on the RPL Policy Framework and the Implementation Guidelines suggesting:

i. The cost outlook needed at the initial years of establish RPL system to cover development of standards, assessment tools, capacity building etc.
ii. the unit cost of RPL assessment process for both full and partial qualifications. – taking into consideration the greed RPL process and various means of evidence required once the system is fully established

(c) To recommend the unit cost of RPL assessment in different qualifications levels and types

(d) Recommend a cost sharing framework between the stakeholders (Government, (KNQA, QAI, Regulators and Assessment centers) employers, RPL candidates)

(e) Recommends viable sources of funding for RPL in Kenya drawing some examples from other countries including for Vulnerable groups such as refugees.

(f) Develop cost determining matrix that practitioners and implementers may use or adapt

(g) Propose viable approaches and means that can possibly be used to save cost in RPL process

(h) Propose the cost-sharing between different stakeholders may take place to finance the RPL.

4. Scope of Works and Tasks

Under the general guidance of the Director General of KNQA and the ILO Chief Technical Advisor the consultant will aim to:

(a) Carry out a survey to determine the RPL Assessment cost centres – direct and indirect costs

(b) Develop or recommend a computing matrix for the unit cost of assessing one RPL applicant in different qualifications and levels.

(c) Provide a final report indicating the computing matrix to be used in future for determining the unit cost of assessment to develop a database.

(d) Induct the end users on the application of the Unit cost of assessment and the revenue sharing formula.

(e) Make presentation of the findings to KNQA and the Steering committee

(f) Facilitate a validation session by tripartite stakeholders for comments and finalization of the report.

(g) Study best practices on costing and financing of RPL from 3 countries (one from Africa (e.g., South Africa), one developed country having a well-established RPL system (Australia or a country from Europe), and one country from Asia (e.g. India or Bangladesh) an suggest suitable practice for Kenya.

(h) Recommend modalities for stakeholder engagement on determined costs.

Deliverables

(a) An inception report within 3 days of commencement

(b) draft survey tool to be used for data collection within 1 week on commencement

(c) A detailed draft report of findings from the survey submitted to the QAIs ensuring the below details are well captured

i) RPL Unit cost of assessment

ii) RPL revenue sharing strategy

iii) RPL costing formula for future use

(d) Facilitate a stakeholder’s workshop to discuss the draft report of findings

(e) A draft final report indicating matrix for computing the unit cost of Assessment and in the formulation of cost database;

(f) Facilitate a stakeholder’s workshop to discuss the draft final report for comments
Submission of a final report;

i) Provide three (3) hard and a soft copies of the draft report.

ii) Finalize the draft report based on discussions with the client and Recommendations of the stakeholder’s workshop and

iii) Provide (3) Revised hard and a soft copies of the final report

(g)Please note that the client will:

i) Avail to the Consultant the necessary information and guidance within its powers for the purpose of the task

ii) Introduce the Consultant to the QAIs and other relevant organizations during the period of the assignment

iii) Participate in the validation workshop

5. Consultancy Duration (Indicative work programme)

The assignment is expected to take thirty (30) working days and is expected to be carried out in January and February 2022, as per the time allocation in the work schedule as follows:

Activity / Timeframe (Days)

Inception Meeting – 1 day

Preparation/ Desk Analysis – 5 days

Consultations – 7 days

Draft costing report – 4 days

Validation Meeting – 1 day

Revised and Finalised Policy – 4 days

Development of stakeholder engagement plan – 4 days

TOTAL – 30 days

6. Payment Schedule

Upon completion of tasks set out in section 4 of these TOR, to the satisfaction of the KNQA and the ILO and no later than 28^th February 2022;

a) 30% of the agreed fee upon signing of the contract and approval of inception report

b) 70% of the agreed fee after satisfactory submission of:

• Final RPL unit cost
• RPL revenue sharing strategy
• RPL costing formula

7. Candidate Profile

The selected candidate will have

a) Bachelor’s degree in accounting, finance, statistics, economics or another related field and CPA(K).

b) 10 years prior experience in cost accounting and economics.

c) A master’s degree will be an added advantage.

d) The candidate should preferably have expert level analytical and costing modelling skills, strategic thinking and interviewing capabilities.