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Appendix B – History of Professional Certification Program 

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Appendix B 

History of Professional Certification Program 

Source: 

Carryover Item 401-1 (This item originated from the Committee and first appeared on its Agenda in 2003 and has 

undergone continuing development.) The numbering change reflects harmonization in all NCWM reports. Copies 

of reports from recent years are also available on the website under interim and annual meeting archives pages. 

Background/Discussion: 

It is important that users of the Professional Certification Program understand how the pieces fit together and form a 

coherent system. To illustrate the relationships the Committee can describe the system as a triangle of 

interdependent parts (see diagram below). The standards come in the form of goals with measureable learning 

objectives. The education part involves training provided to help the candidate reach the desired level of proficiency 

for each of the learning objectives. The certification involves an assessment of proficiency that measures whether or 

not the objectives have been met. 

Certification Triangle 

The Committee has until now focused attention on the standards and the certification pieces in the triangle as 

illustrated in the following flowcharts. 
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Standard Subsystem 

Certification Subsystem 

The Committee has described this work in a number of documents. In those documents the Committee is using 

terminology consistent with current usage in the education and certification field. The following important terms 

will be used throughout the Committee’s work on the subject. 

Body of Knowledge (BOK) – refers broadly to the knowledge and skills required to function as a weights and 

measures professional. The term may refer broadly to the entire scope of knowledge and skills required within the 

profession or in a more directed manner to any selected subset for which the particular person is responsible. The 

BOK describes what you expect the weights and measures professional to achieve as opposed to how he/she will 

achieve it. To make the BOK more manageable in administration of the Professional Certification Program, it will 

be subdivided into modules in a tree-like structure moving from general knowledge and skills to more specific. 

Module – refers to a group of related subject materials within the Body of Knowledge Model (BOK). The module 

contains the articulated learning objectives for the subject area. Each module is considered a single, self-contained 

course of study. However, a broader course may span multiple modules and specific training may include only part 

of a module or parts of multiple modules. The PDC has created a standard format to create modules for the 

Professional Certification Program. The Committee has also created the Curriculum Outline and work plans to help 

manage the work activities within the program to create the many modules necessary to cover the entire profession. 
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Learning Objective – refers to the articulation of expectations of performance in measureable terms. Learning 

objectives are stated using active terms to be precise and measureable. There are two types of learning objectives, a 

terminal objective, and an enabling objective. Terminal objectives state broadly the expectation of performance. 

The enabling objectives state the specific parts or steps required to demonstrate competence. The PDC has 

developed a guide to writing the learning objectives for both terminal and enabling which include the active verbs 

associated with the cognitive levels in Bloom’s Taxonomy. In training, the instructor will typically choose learning 

activities to explore each of the enabling objectives in an attempt to reach the terminal objective. In assessment, the 

questions will typically test for competence in each of the enabling objectives to demonstrate that the terminal 

objectives have been met. 

Professional Certification – refers to verification of proficiency relative to all or part of the BOK for the profession 

as designated by the PDC for inclusion in a certification exam. The selected BOK includes all or part of specific 

modules, and it is documented in an exam description. Each of the modules, or combinations, is given a specific 

weighting in the design of the exam. After obtaining a passing score on the exam, the candidate is issued a 

certificate stating he/she has met the competency standard. 

Curriculum – refers to the list of modules that are used to document the BOK (see Appendix A). 

Bloom’s Taxonomy – refers to a classification of levels of cognitive leaning widely used in the field of education. 

The levels are knowledge, understanding, application, analysis, integration, and evaluation. The active verbs used in 

the articulation of learning objectives define the cognitive level. In training, the learning activities are matched to 

the cognitive level. In assessment, the form of the question is also matched to the cognitive level. The use of 

Bloom’s Taxonomy is described in detail in the Body of Knowledge Model document. 

The PDC has prepared program documents that are available on NCWM website. 

 The Curriculum Outline, which breaks the profession of weights and measures into component parts called 

modules. 

 The Body of Knowledge Model, which explains how to create modules to document the learning 

objectives. 

 The Modules developed thus far. 

 The Certifications developed thus far. 

Results of the Retail Motor Fuel Dispensing Systems exam indicate it will be very important as the program moves 

forward that trainers integrate the learning objectives into their materials and design courses in such a way that 

candidates will achieve the desired levels of learning. See Item 401-2 Instructor Improvement. 

2011 NCWM Interim Meeting: The Committee addressed the need to build partnerships between the states, 

National Institute of Standards and Technology (NIST), Office of Weights and Measures (OWM), and NCWM. 

Each group has roles in relation to the Certification Triangle as shown in the diagram below. 

Professional Certification Program 

Applying Certification Triangle (Triumvirate Partnership) 
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States NCWM PDC NIST 

 National Certified Workforce 

 Assessment Tools and 

Certification Triangle Applied 

 Student Meets Training 

Milestones 

 Feedback to Trainer and 

Employee 

 Value Exam Results = 

Recognition + Adult Learning 

 Develop New Training Standards 

 NCWM/NIST Regional Education 

and Training 

 Website and Administer 

Professional Certification 

Program 

 Enlist SMEs 

 Learning Objectives and 

Standards 

 Curriculum Work Plans, 

Discipline, Segments 

 Write/Verify Exam Questions 

 Exam Evaluation/Statistical 

Analysis 

 Training and Education 

 Instructor Improvement “ADDIE” 

 State Instruction Support 

 Technical Materials 

 Train the Trainer Material 

 Classroom and Field Training 

NCWM 2012 Interim Meeting: The Committee received a comment from NIST OWM that there is a need to 

provide an assessment tool to measure basic competence in fundamental subject areas such as NIST Handbook 44. 

They hope to partner with NCWM to administer those assessments using NCWM testing service. This would assure 

that participants at NIST OWM sponsored training possess basic levels of proficiency in prerequisite materials so 

that instructors can deliver the primary material rather than spend time bringing all students up to the prerequisite 

level. 

The Committee agrees and believes this fits with ongoing efforts to create a BOK and an exam to assess competence 

in mathematics for the entry level inspector. This could also be a useful tool to any jurisdiction offering training in 

these basic areas. The Committee will call these baseline competency examinations defined as: 

Baseline Competency Examination - refers to verification of proficiency relative to one of the basic modules in the 

BOK for the profession. After obtaining a passing score on the exam, the candidate is issued a certificate stating 

he/she has met the competency standard. 

The initial modules under consideration for the basic competency examinations are: 

 Module XX. Weights and Measures Core Mathematics 

 Module 4.2. NIST Handbook 44 – Introduction to Device Control 

 Module 4.3. Weighing Systems – General 

 Module 4.4. Dynamic Volume Measuring Systems – General 

The BOK document for the Core Mathematics module has been drafted and will be posted on the website and 

appears in Appendix B. 

The professional certifications currently developed (or in development) are: 

 Retail Motor Fuel Dispensing Systems (Available) 

 Package Checking Basic (Available) 

 Small Capacity Weighing Systems Class III (Available) and 

 Vehicle Tank Meters (In Development) 

The Committee reported that 18 Subject Matter Expert (SME) volunteers are working on the basic package checking 

exam and 20 SME volunteers are working on the small capacity scale Class III exam. Those exams are nearing 

completion. Invitations will be sent shortly to NCWM members to solicit SME volunteers to work on the vehicle 

tank meter exam. The Committee noted that SMEs are the backbone of the program but also that they have 

competing priorities. One consideration is the idea of doing this work using web meetings, one to brief and train 

SMEs at the start of a project, and one at the end to resolve any remaining issues with complex questions on the 

exam. The idea is to minimize the time commitment of our SME volunteers while maintaining high quality in our 

exams. 
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The PDC conducted a survey in November 2011 to evaluate priorities for future exam development, appropriate 

range of device capacities to include in the medium or large capacity scale modules, request feedback from people 

who had taken the Retail Motor Fuel Dispensing Systems Exam, appropriateness of our examinations for Registered 

Service Agents (RSA’s), and potential problems in standardizing exams on the current NCWM standards. 

The Committee received 134 responses covering 25 states, approximately 80 % weights and measures and 20 % 

industry. Based on the responses the Committee has selected the following subjects for priority development and 

will be requesting that the Board of Directors extend the Certification Coordinator’s contract for these new projects: 

 Medium Capacity Scales 

 Large Capacity Scales III and IIIL 

 Liquefied Petroleum Gas (LPG) and Anhydrous Ammonia Liquid 

 Price Verification 

Survey questions on the Retail Motor Fuel Dispensing Systems Exam indicated that the majority were somewhat or 

very satisfied with the test taking experience, that the exam questions were appropriate to the basic level inspector, 

that the questions were straight forward and clearly written, and that they were able to finish in the allotted time. 

The only problems identified seemed to be related to computer connections and loading of graphics. NCWM staff 

worked with the testing service to mitigate these issues. 

On the issue of using NCWM professional certifications for RSAs, the majority responded with interest in this area. 

The Committee worked with NCWM staff to solicit RSA volunteers to take the exam for free in order to obtain 

feedback. Volunteers who passed the exam would receive the formal certificate if they were members or if they pay 

the $75 testing fee as non-members. Four RSAs took the exam thus far and others are scheduled to take it. The 

Committee will gather additional data, evaluate the results, and report at the Annual Meeting. 

NCWM 2012 Interim Meeting: Several state officials questioned the appropriateness of charging these volunteers 

for the certificate if they are non-members. They noted that the service agents invested considerable time in taking 

the exam so that those who passed could have been rewarded with a waiver of the fee. Mr. Onwiler, NCWM 

Executive Director, reported that the exam fee structure is controlled by the Board of Directors. The exam fee is 

waived for members as a way to improve membership value. The exam has always been available to service agents, 

but this was a means of acquiring volunteers for data collection without making them pay fees as non-members. 

The Committee verified that participants were advised of the conditions when the volunteers were contacted. The 

Western Weights and Measures Association (WWMA) made a proposal in 2011 that NCWM consider a tiered 

membership that would allow for a group rate category or reduced fees for non-members presently employed in a 

weights and measures related field wishing only to take the examinations. The Committee will ask the Board of 

Directors to consider these comments. 

On the subject of the use of the current NCWM standard as the basis of all exams, the feedback from the survey 

clearly indicated that this should not be a problem for most jurisdictions. Therefore the Committee will develop all 

exams based on the current editions of NCWM standards. 

Officials had concerns about preparing their workforce for taking the Retail Motor Fuel Dispensing Systems Exam. 

As the PDC proceeds in offering other certifications, the Committee wants jurisdictions and industry to feel 

supported and confident that the training they provide for their workforce will be comprehensive and will prepare 

their people to take the certification exams without providing them with the exam questions. The Committee 

therefore recommends better communication so they understand what tools are available to help them create their 

own comprehensive training programs. The critical viewpoint is that a professional has to be prepared to perform 

the job and not just prepared to take the exam. This is the age old question of training to the learning objectives (the 

BOK) or training to the exam. The Committee strongly believes that training has to focus on the BOK and not on 

the exam questions. 

NCWM 2012 Annual Meeting: The Committee met with the Board of Directors to provide an update on progress 

and agree on priorities. The Certification Coordinator reported that two additional question banks for small capacity 

scales Class III and package checking had passed the technical review and were submitted to NCWM Headquarters. 
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He also reported that SME volunteers are now working on the vehicle tank meter exam, and that he is expecting to 

start the search for SME volunteers for the medium and large capacity scale exams shortly after the Annual Meeting. 

NCWM Executive Director Don Onwiler reported that there has been a slight glitch in the system that must be 

corrected before two new the exams can be opened for use. This involves making sure that Headquarters controls 

the individual’s access to exams. Each candidate gets access to initially take the exam and then can get a retest if 

they fail. The original process had given the candidate access to all exams using the same credentials. As soon as 

this is corrected they will broadcast the availability of the two new exams. 

The idea of accrediting the certification program was discussed. The Executive Director reported that he had been 

discussing the idea with the Institute for Credentialing Excellence (ICE) to see what parts of our program might be 

potential stumbling blocks. One area involves the SMEs who develop and vet the test questions. Our problem is that 

our SMEs are virtually all trainers within their jurisdictions and the vetting and training functions need to be 

separated. One possible avenue that we are pursuing is to restrict the access each SME has to the exam bank by only 

allowing them to review a part (~ 1/4) of the test bank. The advice also suggested that SMEs be asked to sign over 

rights to the test questions and that NCWM seek to copyright its exams. The Committee and the Coordinator will 

continue to work with the Executive Director toward the goal of meeting the accreditation standards and both the 

Coordinator and Headquarters will work on documenting procedures as a necessary step in that process. The 

Executive Director will continue to seek advice towards this long term project from ICE. 

The Executive Director provided the Committee and the Board of Directors with following statistics on the Retail 

Motor Fuel Exam. 

FY 2011 FY 2012 

Number of Individuals taking the exam 76 128 

Number of Organizations taking the exam 32 68 

Number of Exams taken 189 Note(1) Note (2) 

Number of Certificates issued 45 79 

 Further Breakout State Gov’t 

 Local Gov’t 

 Industry 

 86 

37 

5 

Note 1. In the Beta testing phase several took the exam multiple times. 

Note 2. Results unavailable yet for FY 12. 

The Committee and the Board of Directors agreed that priorities will remain on the Professional Certifications. The 

Committee will not be pursuing the competency exams. This will help focus efforts to get the exams out based on 

priorities established by the survey the Committee conducted. 

The Committee understands that the SMEs are a critical part of the certification program. The Committee wants to 

recognize the individuals that are contributing and also encourage others to volunteer on future projects (i.e., the 

medium and large capacity scale exams) that will start soon. To this end the Committee wants to express gratitude 

by giving recognition to the following who contributed to the package checking and small capacity scale Class III 

exams. 

 
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Package Checking Basic Small Capacity Scales Class III 

D'Arcy, Carlos, Florida Smith, Dan, Arkansas 

Wilson, Peter, Virginia D'Arcy, Carlos, Florida 

Gurney, Brett, Utah Wilson, Peter, Virginia 

Chesser, Tim, Arkansas Gurney, Brett, Utah 

Merritt, Kevin, Idaho Chesser, Tim, Arkansas 

Shultz, Steve, Nevada Merritt, Kevin, Idaho 

McGee, Robert, South Carolina Shultz, Steve, Nevada 

Hicks, Tyler, Oklahoma Stokes, John, South Carolina 

Johnson, Ray, New Mexico McGee, Robert, South Carolina 

Paquette, Marc, Vermont Hicks, Tyler, Oklahoma 

Tubacki, Jeff, Illinois Johnson, Ray, New Mexico 

Dillibaugh, John, Pennsylvania Paquette, Marc, Vermont 

Miller, Rachelle, Wisconsin Tubacki, Jeff, Illinois 

Feagan, Bruce, Washington Dillibaugh, John, Pennsylvania 

Butcher, Ken, NIST, OWM Miller, Rachelle, Wisconsin 

 Feagan, Bruce, Washington 

The Committee heard testimony from a number of individuals during the open hearings and appreciates the 

comments. In particular, the Committee is very pleased that states are starting to find ways to integrate our standards 

and the certifications in their programs. One state reported their efforts to mandate in regulation that Registered 

Service Agents get NCWM certification to demonstrate competence. Another is giving CEUs to county officials 

who obtain NCWM Certification. Others are using the exam results to evaluate their training efforts. One 

jurisdiction is using NCWM certifications in labor relations to demonstrate that retention and promotion decisions 

are being based on an unbiased third party assessment. The CWMA is considering whether it might be possible to 

use the NCWM exam in their reciprocal testing program for RSAs. 

One state director reported that he had his entire staff take the RMFD exam. He provided some valuable feedback 

that the Committee and the Coordinator will consider. One involved making clear which version of the Handbooks 

is being used in the exams. He also reported that candidates taking the exam wanted to learn about which questions 

they got wrong. He also wanted the Committee to look at extending the Certification Program to accredit the overall 

weights and measures program. 

The Committee understands the concern about the wrong answers, but maintaining integrity of the test precludes us 

from giving that kind of specific feedback on the exam. At the end of the exam, the candidate is provided with the 

pass/fail on each segment of the exam and the final score. The candidate is also provided with the option of 

designating the e-mail address where the results will be sent. Thus, the results could go to a supervisor or the 

director. The Committee is considering avenues to provide feedback that will help states identify potential 

weaknesses in their training programs. Again, the Committee wants to divert the focus from the test back to 

ensuring mastery of the learning objectives in the BOK. To that end, the Committee is considering providing 

general statistics on each part of the exam so that a jurisdiction/company could compare their staff’s results with the 

composite of all those who took the exam. There is a further fear that providing detailed feedback on specific 

learning objectives where exam results showed low scoring would then divert the focus from the broad objectives of 

the BOK. 
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CWMA 2012 Interim Meeting: There was general support for removing much of the content in this item and 

making it reference material on the NCWM website. There was question regarding how NCWM assesses exam 

difficulty and a suggestion to look at professional certification programs for other industries to see what the passing 

rates are and what they use to know if the exams are at the appropriate difficulty level. There were several 

suggestions to improve the exam process, including a flag button on each test question that test takers could select to 

notify that a specific question was problematic. Another was to provide a direct link at the end of the test to a 

survey site or other site for immediate feedback on the test. Another suggestion was to disclose to test takers which 

areas of NIST Handbook 44 they should study based on their results, without being told the actual questions that 

were incorrect. This would maintain the integrity of the test while providing guidance to the test taker. 

WWMA 2012 Annual Meeting: The WWMA PDC chair presented a PowerPoint presentation reviewing the 

Professional Certification Program (PCP) entitled “Using the NCWM Program” during the open hearings. One 

comment/question was received during the open hearings regarding the time limit to take an exam after an 

individual has registered and received their passcode. The Committee, in conversation with the NCWM Executive 

Director by telephone, confirmed that there is no time limit for initial log in or between taking the first and second 

exam. Furthermore, if a NCWM member fails the second exam, he or she can reapply and retest until they pass the 

exam, free of charge. The Committee discussed the draft FAQ sheet developed by Mr. Ross Andersen and 

recognized that it is a good start and is in need of further development. The Committee is willing to assist with 

enhancing and clarifying this document. The Committee discussed the exam result data compiled on the three 

exams to date. The RMFD exam has been available since 2010. The Package Checking Basic and Small Capacity 

Scales Class III have been available since August 2012. The Committee recognized the likelihood that the pass/fail 

rate on the exams to date may not reflect the difficulty of the exam since many may be taking the exams to 

familiarize themselves with the exam process, not necessarily for obtaining the certificate. The Committee 

discussed accreditation of the PCP, the benefits to both industry and regulatory individuals, and the issue created by 

crossover between persons serving as both Subject Matter Experts (SMEs) and trainers. The Committee discussed 

the difference between certification to demonstrate basic competency, accreditation, and licensing with continuing 

education requirements. The Committee believes that for the PCP to be accredited, more information is needed 

about the specific accreditation requirements so the NCWM Professional Development Committee (NCWM PDC) 

can efficiently and correctly design the Program. The Committee encouraged the WWMA audience to take one or 

more of the three exams that are available. The Committee discussed the need for volunteer SMEs, exam results 

data, and feedback on the exam taking experience, to assist the NCWM PDC in the continuous improvement of 

existing exams, and development of future exams. Feedback can be submitted to the NCWM PDC through NCWM 

via e-mail to info@ncwm.net or call (402) 434-4880. The concept of free exams or a “rollback” in pricing for a 

period of time was discussed. There may be jurisdictions, business organizations, or other entities that desire to take 

the exams, but find the cost of membership is prohibitive. The Committee believed there might need to be an initial 

incentive to encourage participation. The Committee recommends the following: 

 NCWM survey jurisdictions to find out the number of Registered Service Agents (RSA) within the 

jurisdiction, whether these jurisdictions require the RSA to pass an examination, and what fees and 

timelines are associated with these requirements; Determining the number of jurisdictions that require 

licensing and the content of their examinations, e.g. regulatory vs. technical requirements, would allow the 

NCWM PDC to evaluate the appropriateness of administering the same exams for RSA’s or development 

of separate exams particular to RSA’s. The jurisdictions using these written exams in their training 

programs could do so in conjunction with a field component to certify inspectors and RSA’s. 

 NCWM Executive Director continue research into the accreditation requirements and recommend the 

appropriate accreditation body for the PCP; Weights and measures jurisdictions and industry organizations 

that may require certification recognize the value and credibility provided through formal accreditation. 

 NCWM PDC continue its work refining the PCP FAQ Sheet. The WWMA PDC Committee is willing to 

assist with enhancing and clarifying this document; The PCP FAQ Sheet is a valuable tool for new exam 

takers. 

 NCWM PDC consider implementing a policy of offering newly introduced exams at a reduced price for a 

fixed period of time (e.g., $30 per exam for six months) providing the exam taker agree to provide feedback 
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on the exam contents and exam taking experience before receiving their certificate. NCWM needs to 

encourage the widest possible participation in the early stages of PCP development. To bring the PCP to 

full program fruition, offering incentives to exam takers may assist the NCWM in reaching its goals. 

One jurisdiction indicated that they would begin using the examinations as part of their annual performance plans 

and performance evaluations for their staff. The Committee realized that the PCP was originally designed for 

weights and measures officials, but discussed whether the exams should be modified for RSA to put more emphasis 

on proper calibrations, sealing, etc. 

 
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