This study proposed empirical indicators which can be validated and adopted in higher education institutions to evaluate quality of teaching and learning, and to serve as an evaluation criteria for human resource management and development of higher institutions in Thailand. The main purpose of this study was to develop empirical indicators of a theoretically-based multidimensional learners' evaluation in Thai higher education adopting the National Institute of Development Administration as a case study. Research method of this study was developed based on Dubin's Theory Building Model. Units, which are basic building blocks of newly developed concept, were developed qualitatively and quantitatively by triangulating data obtained from the systematic literature review, the qualitative data collection, and the Likert-scale survey. Patterson's (in Holton and Lowe, 2007) criterion was used to evaluate the conceptual framework. Questionnaire was used as a tool for data collection. Exploratory factor analysis and Cronbach's alpha analysis were used to analyse the collected data in order to develop empirical indicators.