Proposal for a Recommendation of the European Parliament and of the Council on key competences for lifelong learning
Date: 2005-11-10
Institutions: European Commission
Subjects: EU programme, continuing vocational training, economic development, education, globalisation, social policy

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 10.11.2005 
COM(2005)548 final 

2005/0221(COD) 

Proposal for a 

RECOMMENDATION OF THE EUROPEAN PARLIAMENT AND OF 
THE COUNCIL 

on key competences for lifelong learning 

. 

(presented by the Commission) 

EN 

   EN 

 
 
 
 
EXPLANATORY MEMORANDUM 

1. CONTEXT OF THE PROPOSAL 

•  Grounds for and objectives of the proposal 

The  Lisbon  European  Council  in  March  2000  recognised  that  Europe  faces  challenges  in 
adapting to globalisation and the shift to knowledge-based economies. It stressed that "Every 
citizen  must  be  equipped  with  the  skills  needed  to  live  and  work  in  this  new  information 
society" and that "a European framework should define the new basic skills1 to be provided 
through lifelong learning: IT skills, foreign languages, technological culture, entrepreneurship 
and social skills". The recognition that people are Europe's most important asset for growth 
and  employment  was  clear  in  2000,  and  has  been  regularly  restated,  most  recently  in  the 
relaunched  Lisbon  Strategy  and  at  the  European  Council  of  March  2005,  which  called  for 
increased investment in education and skills. 

The  mandate  was  reiterated  and  developed  in  the  "Education  and  Training  2010"  work 
programme (ET2010) adopted by the Barcelona Council in March 2002, which also called for 
further  action  to  "improve  the  mastery  of  basic  skills"  and  to  strengthen  the  European 
dimension  in  education.  This  work  was  to  focus  on  identifying  the  basic  skills  and  how, 
together  with  traditional  skills,  they  can  be  better  integrated  in  the  curricula,  learned,  and 
maintained through life. Basic skills should be genuinely available for everyone, including for 
those with special needs, school drop-outs and adult learners. Validation of basic skills should 
be promoted to support further learning and employability. The Commission Communication 
on  lifelong  learning  (2001)  and  the  subsequent  Council  Resolution  (June  2002)  further 
stressed the need to provide lifelong learning opportunities for all, particularly to acquire and 
update basic skills. 

Based on this political mandate, a Working Group on basic skills, established in 2001 in the 
context of Education and Training 2010 work programme, has developed a framework of key 
competences2  needed 
in  a  knowledge  society  and  prepared  with  a  number  of 
recommendations on ensuring that all citizens can acquire them3. 

The  2004  Joint  Interim  report  of  the  Council  and  the  Commission  on  the  progress  of  the 
Education  and  Training  2010  work  programme4  made  the  case  for  common  European 
references  and  principles  to  support  national  policies,  facilitate  and  encourage  reform,  and 
gave priority to the key competences framework. 

The  Recommendation  proposed  here  therefore  presents  a  European  reference  tool  for  key 
competences  and  suggests  how  access  to  these  competences  can  be  ensured  for  all  citizens 
through lifelong learning. 

1 

2 

3 

4 

‘Basic skills’ is generally taken to refer to literacy and numeracy; the Lisbon Council called for adding 
the new skills needed in a knowledge society such as ICT and entrepreneurship. 
The Working Group preferred the term ‘competence’ that refers to a combination of knowledge, skills 
and attitudes and ‘key competence’ to define competences necessary for all. It thus includes basic skills, 
but goes beyond them.  
Working group on Basic skills, progress reports 2003, 2004: 
http://europa.eu.int/comm/education/policies/2010/objectives_en.html#basic 
Joint Interim Report, Council document 6905/04 of March 2004. 

EN 

2 

   EN 

 
                                                 
More concretely, its objectives are to: 

1) 

2) 

3) 

4) 

Identify  and  define  the  key  competences  necessary  for  personal  fulfilment, 
social cohesion and employability in a knowledge society. 

Support Member States' work on ensuring that by the end of initial education 
and training young people have developed the key competences to a level that 
equips them for adult life, and that adults are able to develop and update them 
throughout their lives.  

Provide  a  European  level  reference  tool,  the  annexed  Key  Competences  for 
Lifelong Learning - a European Reference Framework5 for policy makers, 
education  providers,  employers,  and  learners  themselves  to  facilitate  national 
and European level effort towards commonly agreed objectives. 

Provide  a  framework  for  further  action  at  Community  level  both  within  the 
Education  and  Training  2010  work  programme  and  within  the  Community 
Education and Training Programmes. 

•  The demand for competences in a knowledge society 

In  accordance  with  international  studies,  'competence'  is  defined  here  as  a  combination  of 
knowledge,  skills  and  attitudes  appropriate  to  a  particular  situation.  'Key  competences'  are 
those that support personal fulfilment, social inclusion, active citizenship and employment. 

The development of the knowledge society is raising demand for the key competences in the 
personal,  public  and  professional  spheres.  The  way  in  which  people  access  information  and 
services  is  changing,  as  are  the  structure  and  make-up  of  societies.  There  is  increasing 
concern about social cohesion and developing democratic citizenship; this requires people to 
be informed, concerned and active. The knowledge, skills and attitudes that everyone needs 
are changing as a result. 

The  growing  internationalisation  of  economies  affects  the  world  of  work,  with  rapid  and 
frequent  change,  the  introduction  of  new  technologies  and  new  approaches  to  organising 
companies. Employees need both to update specific job-related skills and to acquire generic 
competences that enable them to adapt to change. The knowledge, skills and attitudes of the 
workforce  are  a  major  factor  in  innovation,  productivity  and  competitiveness  and  they 
contribute to the motivation, job-satisfaction of workers and the quality of work. 

However, the High Level Group on the Lisbon Strategy made it clear in November 2004 that 
"far from enough is being done in Europe to equip people with the tools they need to adapt to 
an  evolving  labour  market,  and  this  applies  to  high-  and  low-skilled  positions."  It  has  been 
estimated that almost a third of the European labour force (80 million people) is low skilled. 
Further, a 2004 Cedefop report suggested that by 2010 only 15 % of newly created jobs will 
be for people with basic schooling, whereas 50% will require highly skilled workers. 

5 

The annex of the Recommendation, the ‘Key Competences for Lifelong Learning – A European 
Framework’ is a revised version of the key competences framework developed by the Working Group 
on basic skills. 

EN 

3 

   EN 

 
                                                 
International  surveys  such  as  IALS  (the  International  Adult  Literacy  Survey)  show  that  in 
many  European  countries  a  considerable  share  of  the  adult  population  does  not  have  the 
reading  and  writing  skills  necessary  to  function  in  society,  and  early  school  leavers  are 
particularly at risk. Although rates of illiteracy in Europe appear relatively low, no society is 
immune to this phenomenon and there are a number of minorities among whom illiteracy is a 
major problem. The 2005 data on European reference levels (‘benchmarks’), adopted by the 
Council  in  May  20036,  show  no  progress  since  2000  in  reducing  the  percentage  of  low 
achievers in reading literacy at age 15, or in raising the completion rate for upper-secondary 
education. Progress towards achieving other reference levels is also too low: at current rates 
early  school  leaving  would  drop  to  14%  by  2010  while  the  reference  level  is  10%.  Adult 
participation  in  education  and  training  is  growing  only  by  0.1-0.2  percentage  points  a  year 
which will not lead to achieving the reference level of 12.5% by 2010. Moreover, data show 
that  low  skilled  people  are  less  likely  to  participate  in  further  training,  making  it  harder  to 
support those who need it most. 

•  Current provisions on key competences 

At European level, the Community programmes such as Leonardo da Vinci and the Grundtvig 
action  within  Socrates  programme  provide  support  for  projects  tackling  the  lack  of  basic 
skills. 

Since  the  adoption  of  the  Education  and  Training  2010  work  programme,  several  working 
groups  have  focussed  on  specific  subject  areas  such  as  ICT  or  broader  themes  (e.g.;  social 
inclusion  and  active  citizenship)  to  which  the  work  on  key  competences  has  provided  a 
context by collecting all essential competences into a single framework. This work has also 
included  collecting  and  disseminating  good  policy  practice,  including  on  developing 
transversal  competences  within  compulsory  education,  ensuring  access  to  key  competences 
for disadvantaged learners and developing coherent provision of key competences for adults. 

The work on key competences is closely linked to other developments in improving European 
education and training systems such as the ongoing work on the development of a European 
Qualifications Framework, and initiatives seeking to strengthen transparency and recognition 
of  qualifications  and  competences  (such  as  principles  of  validation  of  non-formal  and 
informal learning and credit transfer systems). The work on Common European Principles for 
Teacher  Competences  and  Qualifications  is  also  related  as  it  seeks  to  address  the  changing 
role of schools in developing competences of young people. 

At Member State level, there is substantial activity in the reform of initial education curricula, 
reflecting a shift of focus from imparting knowledge to developing transferable competences 
that equip young people for adult life and further learning. This requires different approaches 
in organising learning, and new competences from teachers. Consequently, there is a debate 
on  what  competences  each  young  person  should  develop  and  how  schools  would  be  best 
supported  through  developing  e.g.  their  governance  and  evaluation.  The  social  aspects  of 
learning  have  also  been  given  a  more  important  role:  educational  disadvantage  is  often  a 
combination of personal, social, cultural and economic circumstances and needs to be tackled 
in collaboration with other sectors. Schools are seeking ways of engaging families and local 

6 

Progress Towards the Lisbon Objectives in Education and Training; Commission Staff Working Paper, 
report 2005, page 20. http://europa.eu.int/comm/education/policies/2010/doc/progressreport05.pdf 

EN 

4 

   EN 

 
                                                 
communities not only to support young people’s learning but to promote lifelong learning in 
the whole community. 

Many countries have begun basic skills programmes, for example on literacy, numeracy and 
ICT for adults, often through NGOs. However, a number of countries are not yet in a position 
that would allow all citizens to learn and update their basic skills, and while many recognise 
the  need  to  provide  adult  learners  with  broader  competences,  there  has  not  been  a  common 
understanding of what they are, and provision is still far from consistent. 

The good policy practice examples from Member States show that provision for adults should 
focus  on  clearly  defined  national,  regional  and/or  local  priorities.  It  should  lead  to 
infrastructures  that  recognise  and  meet  the  differing  needs  of  adults,  with  qualified 
teachers/trainers, measures to ensure access by incentives, guidance and counselling support. 
Learners'  particular  situations  should  be  recognised:  their  prior  experiences,  learning  needs 
and aspirations should be taken into account, as well as broader issues that link to social and 
employment policies, and require the engagement of all partners. 

Despite many good examples of good practice, the provision for key competences is seldom 
adapted to meet the learning needs of citizens at all ages. In this context, this proposal brings 
considerable  added  value  by  providing  a  reference  tool  identifying  those  key  competences 
considered necessary for all, and supporting Member States in their endeavours to ensure that 
the provision of key competences is fully integrated into their lifelong learning strategies and 
infrastructures. 

•  Consistency with other policies and objectives of the Union 

The proposal contributes to the Lisbon goals of growth, employment and social cohesion: 

– 

– 

– 

– 

– 

7 

8 
9 

The  Integrated  guidelines  for  Member  States’  employment  policies7  recognise  the 
importance  of  competences  for  employment  (especially  for  vulnerable  groups)  and 
for  adapting  to  change.  This  should  be  an  important  element  of  Member  States 
National Reform Programmes in implementing the Integrated Guidelines. 

Social policy emphasises the role of education and training as a route out of poverty 
and/or a key factor for social cohesion. 

The  Youth  Pact8  calls  for  ensuring  that  knowledge  matches  the  needs  of  a 
knowledge-based  economy  and,  to  this  end,  encouraging  the  development  of  a 
common set of core skills. 

The  Entrepreneurship  Action  Plan9  recognises  the  essential  role  of  education; 
entrepreneurship is one of the key competences. 

The ‘Key Competences for Lifelong Learning – A European Reference Framework’ 
includes knowledge, skills and attitudes that lead people to be more involved in both 
sustainable development and democratic citizenship. 

Council Decision of 12 July 2005 on Guidelines for the employment policies of the Member States.  
OJ L 205 of 6.8.2005, p. 21. 
The European Youth Pact, http://ue.eu.int/ueDocs/cms_Data/docs/pressData/en/ec/84335.pdf 
http://europa.eu.int/comm/enterprise/entrepreneurship/promoting_entrepreneurship/doc/com_70_en.pdf 

EN 

5 

   EN 

 
                                                 
2. CONSULTATION OF INTERESTED PARTIES AND IMPACT ASSESSMENT 

The  basis  of  this  proposal  has  been  the  ‘European  Framework  of  Key  Competences’, 
developed  by  a  Working  Group  made  up  of  experts  from  Member  States,  EFTA/EEA 
countries,  candidate  countries  (from  January  2003)  and  European  associations.  Expertise  in 
the group included policy-makers, practitioners and academic researchers, covering both adult 
and compulsory education and European level stakeholders. 

The work has been debated in a range of conferences and seminars organised by stakeholders 
or international organisations. Ministers of Education discussed the 'European dimension' of 
key  competences  at  their  informal  meeting  in  Rotterdam  in  July  2004  and  encouraged  the 
Commission to continue working on this initiative. 

A  focus  group  of  5  experts  (from  Universities  and  government  agencies  on  school 
development)  was  convened  in  spring  2005,  to  refine  the  framework  on  the  basis  of  their 
expertise  and  the  feedback  gathered  from  debates  in  conferences  and  other  sources  and  to 
discuss its implementation. 

The Advisory Committee on Vocational Training was consulted in September/October 2005. 

•  Collection and use of expertise 

A consultant  was engaged  to  survey  related international  work. Specific  themes  such as the 
European  dimension  of  the  framework,  provision  for  less  advantaged  learners,  and 
entrepreneurship  were  prepared  in  smaller  groups  and  approved  by  the  larger  working 
group10. 

The  consultation  and  expertise  provided,  confirmed  the  need  for  an  initiative  at  European 
level, and indicated that the proposed approach was in line with current trends and would be 
welcomed. 

•  Impact assessment 

This proposal will support the development of Member States' lifelong learning strategies and 
education and training systems. It will facilitate curricular reforms and debates around them 
and  give  impetus  to  the  creation  of  a  coherent  adult  education  and  training  provision.  This 
will have a positive impact on individuals' personal, social and professional lives, and - at a 
broader  level  -  on  the  Lisbon  goals  for  social  cohesion  and  economic  competitiveness  and 
growth.  It  should  have  most  impact  on  disadvantaged  groups  who  often  do  not  acquire  key 
competences at present.  

3. LEGAL ELEMENTS OF THE PROPOSAL 

•  Summary of the proposed action 

The  proposed  recommendation  defines  the  key  competences  needed  by  all  citizens  in 
knowledge-based economies and societies. It acknowledges that implementation decisions are 
best  taken  at  national,  regional  and/or  local  level.  It  calls  for  Member  States  to  ensure  the 
acquisition of key competences by all by the end of initial education and training and, in the 

10 

Working group on key competences, progress report 2004. 

EN 

6 

   EN 

 
                                                 
light  of  the  European  reference  levels,  encourages  them  to  tackle  educational  disadvantage. 
As  for  adults,  the  Recommendation  calls  for  comprehensive  infrastructures  to  be  created 
together with all relevant partners. 

The proposal invites the Commission to support reforms at national level through: 

– 

– 

– 

– 

peer  learning,  exchange  of  good  practice  and  reporting  on  progress  in  ET2010 
biennial reports;  

support  for  relevant  projects  through  the  Community  Education  and  Training 
Programmes;  

promoting  a  common  understanding  of  key  competences  and  their  links  to 
employment and social policies; 

promoting partnerships with social partners and other relevant organisations. 

•  Legal basis 

According to the article149 of the Treaty the Community shall contribute to the development 
of quality education by encouraging cooperation between Member States and, if necessary, by 
supporting  and  complementing  their  action,  while  fully  respecting  the  responsibility  of  the 
Member States for the content of teaching and the organisation of education systems and their 
cultural  and  linguistic  diversity.  The  proposed  Recommendation  aims  to  support  Member 
States  efforts  to  develop  their  initial  education  and  training  systems  as  well  as  their  adult 
education  and  training  provision  by  providing  a  reference  tool  on  key  competences,  and  to 
encourage  them  to  continue  cooperation  within  the  Education  and  Training  2010  work 
programme. In conformity with the paragraph 2 of the Article, the proposed Recommendation 
aims at developing exchanges of information and experience on common issues related to key 
competences provision through lifelong learning. 

Article  150  of  the  Treaty  states  that  Community  action  shall  support  and  supplement  the 
action of the Member States and, in particular, as stated in paragraph 2 of the Article, improve 
initial  vocational  training,  facilitate  vocational  integration  and  reintegration  as  well  as  to 
develop  exchanges  of  information  and  experience  on  common  issues.  The  objective  of  the 
proposed recommendation is to improve all these aspects of vocational education and training 
as  it  provides  a  reference  tool  of  key  competences  that  facilitates  Member  States  efforts  to 
adapt  their  vocational  education  and  training  systems  to  meet  the  changes  in  labour  market 
and society in general. 

•  Subsidiarity and proportionality principles 

The  proposed  recommendation  contributes  to  the  quality  of  education  and  training  by 
facilitating  the  work  in  which  Member  States  have  committed  themselves  within  the 
Education  and  Training  2010  work  programme  and  by  the  adoption  of  European  reference 
levels in the Council in May 2003. It encourages and supports national reforms and learning 
from  good  practice  from  other  countries  in  order  to  help  Member  States  to  create  a 
comprehensive  and  coherent  provision  of  key  competences as part of their lifelong learning 
strategies.  Therefore,  this  proposal  conforms  to  the  principle  of  subsidiarity.  The 
Recommendation  establishes  a  European  reference  framework  on  key  competences  to  be 
acquired by all citizens, and creates and enhances the political commitment for reforms that 

EN 

7 

   EN 

 
cannot  be  achieved  by  using  only  e.g.  the  Community  education  and  training  programmes. 
However,  it  leaves  the  implementation  of  it  entirely  to  Member  States,  and  is  therefore  in 
conformity with the proportionality principle.  

4. BUDGETARY IMPLICATION 

The proposal has no implication for the Community budget. 

EN 

8 

   EN 

 
2005/0221(COD) 

Proposal for a 

RECOMMENDATION OF THE EUROPEAN PARLIAMENT AND OF 
THE COUNCIL 

on key competences for lifelong learning 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having regard to the Treaty establishing the European Community, and in particular Article 
149 (4), and Article 150 (4) thereof, 

Having regard to the proposal from the Commission11, 

Having regard to the opinion of the European Economic and Social Committee12, 

Having regard to the opinion of the Committee of the Regions13, 

Acting in accordance with the procedure laid down in Article 251 of the Treaty14, 

Whereas: 

(1) 

(2) 

The  Lisbon  European  Council  in  2000  concluded  that  a  European  framework  should 
define the new basic skills as a key measure in Europe’s response to globalisation and 
the  shift  to  knowledge-based  economies,  and  emphasised  that  people  are  Europe’s 
main asset. Since then, these conclusions have been regularly restated including by the 
European Councils of March 2003 and of March 2005, and in the re-launched Lisbon 
Strategy which was approved in 2005 

The  European  Councils  of  Stockholm  in  2001  and  Barcelona  in  2002  endorsed  the 
concrete  future  objectives  of  European  education  and  training  systems  and  a  work-
programme  (the  Education  and  Training  2010  work  programme)  to  achieve  them  by 
2010.  These  objectives  include  developing  skills  for  the  knowledge  society  and 
specific objectives for promoting language learning, developing the spirit of enterprise 
and the overall need to enhance the European dimension in education. 

(3) 

The  Communication  of  the  Commission  on  lifelong  learning15  and  the  subsequent 
Council  Resolution  of  27  June  2002  on  lifelong  learning16  identified  “the  new  basic 
skills” as a priority, and stressed that lifelong learning must cover the preschool age to 

11 
12 
13 
14 
15 
16 

OJ C […], […], p. […]. 
OJ C […], […], p. […]. 
OJ C […], […], p. […]. 
OJ C […], […], p. […]. 
COM(2001) 678 final. 
OJ C 163, 9.7.2002, p. 1. 

EN 

9 

   EN 

 
                                                 
(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

that  of  post-retirement.  The  Youth  Pact  which  is  annexed  to  the  conclusions  of  the 
Brussels  European  Council  of  March  2005  stressed  the  need  to  encourage  the 
development of a common set of core skills. 

In the context of improving the Community’s employment performance, the European 
Councils  of  March  2003  and  December  2003  stressed  the  need  to  develop  lifelong 
learning with a particular focus on active and preventive measures for the unemployed 
and  inactive  persons.  This  built  on  the  report  of  the  Employment  Taskforce,  which 
emphasised  the  need  for  people  to  be  able  to  adapt  to  change,  the  importance  of 
integrating people into the labour market, and the key role of lifelong learning. 

The report of the Council on the broader role of education adopted in November 2004 
stressed  that  education  contributes  to  preserving  and  renewing  the  common  cultural 
background in society and is particularly important at a time when all Member States 
are  challenged  by  the  question  of  how  to  deal  with  increasing  social  and  cultural 
diversity. Moreover, enabling people to enter and stay in working life is an important 
part of the role of education in strengthening social cohesion. 

Five  European  reference  levels  (‘benchmarks’)  were  adopted  by  the  Council  in  May 
2003, demonstrating commitment to a measurable improvement in European average 
performance.  Reference  levels  relating  to  reading  literacy,  early  school  leaving, 
completion  of  upper  secondary  education  and  participation  of  adults  in  lifelong 
learning are closely linked to the development of key competences. 

The  Report  adopted  by  the  Commission  in  2005  on  progress  towards  the  Lisbon 
objectives  in  education  and  training17  showed  that  there  had  been  no  progress  in 
reducing the percentage of low achievers in reading literacy at age 15 or in raising the 
completion rate for upper-secondary education. Some progress was visible in reducing 
early school leaving, but at current rates the 2010 European reference levels adopted 
by  the  May  2003  Council  will  not  be  achieved.  Participation  of  adults  in  learning  is 
not  growing  fast  enough  to  reach  the  2010  reference  level  and  data  shows  that  low-
skilled people are less likely to participate in further training. 

The  Framework  of  Actions  for  the  Lifelong  Development  of  Competences  and 
Qualifications,  adopted  by  the  European  social  partners  in  March  2002,  stresses  the 
need  of  business  to  adapt  their  structures  more  and  more  quickly  in  order  to  remain 
competitive.  Team-work,  flattening  of  hierarchies,  devolved  responsibilities  and 
greater need for multi-tasking are leading to the growth of learning organisations. In 
this  context,  the  ability  of  organisations  to  identify  competences,  to  mobilise  and 
recognise  them  and  to  encourage  their  development  for  all  employees  represent  the 
basis for new competitive strategies. 

The  Maastricht  Study  on  Vocational  Education  and  Training  indicates  a  significant 
gap between the levels of education required by new jobs, and the levels of education 
achieved by the European workforce. More than one third of the European workforce 
(80  million  persons)  is  low-skilled  whilst  it  has  been  estimated  that  by  2010  almost 
50% of new jobs will require tertiary level qualifications, just under 40% will require 

17 

SEC(2005)419. 

EN 

10 

   EN 

 
                                                 
upper secondary schooling, and only about 15% will be suitable for those with basic 
schooling. 

(10)  The  need  to  equip  young  people  with  necessary  key  competences  and  improving 
educational  attainment  levels  is  an  integral  part  of  the  Integrated  Guidelines  for 
Growth  and  Jobs  2005-2008,  approved  by  the  June  2005  European  Council.  In 
particular,  the  Employment  Guidelines  call  for  adapting  the  education  and  training 
systems in response to new competence requirements through better identification of 
occupational  needs  and  key  competences  as  part  of  Member  States  reform 
programmes. 

(11)  The report of the High Level Group on the Lisbon Strategy in 2004 made it clear that 
far from enough is being done in Europe to equip people with the tools they need to 
adapt  to  an  evolving  labour  market,  and  that  this  applies  to  high-  and  low-skilled 
positions, and to both manufacturing and services. 

(12)  The  Joint  Council/Commission  Report  on  the  Education  and  Training  2010  work 
programme,  adopted  in  2004,  reinforced  the  need  to  ensure  that  all  citizens  are 
equipped with the competences they need as part of Member States’ lifelong learning 
strategies. To encourage and facilitate reform, the report suggests the development of 
common  European  references  and  principles  and  gives  priority  to  the  Key 
Competences Framework. 

(13)  The objective of this Recommendation is to contribute to the development of quality 
education  by  supporting  and  supplementing  Member  States’  actions  in  ensuring  that 
their  initial  education  and  training  systems  offer  all  young  people  the  means  to 
develop key competences to a level that equips them for further learning and adult life 
and that adults are able to develop and update their key competences through coherent 
and  comprehensive  lifelong  learning  provision.  It  provides  a  common  European 
reference  framework  on  key  competences  for  policy  makers,  education  and  training 
providers,  employers  and  learners  themselves,  to  facilitate  national  reforms  and 
exchange of information between the Member States and the Commission within the 
‘Education  and  Training  2010’  work  programme,  aiming  to  achieve  the  agreed 
European  reference  levels.  Furthermore,  the  Recommendation  supports  other  related 
policies such as employment and social policies and other policies affecting youth. 

(14)  This recommendation conforms to the principle of subsidiarity referred to in Article 5 
of  the  Treaty  insofar  as  its  objective  is  to  support  and  supplement  Member  States 
action  by  establishing  a  common  reference  point  that  encourages  and  facilitates 
national reforms and further cooperation with Member States. This Recommendation 
conforms  to  the  principle  of  proportionality  referred  to  in  that  Article  because  it,  by 
leaving  the  implementation  of  the  recommendation  to  Member  States,  does  not  go 
beyond what is necessary to achieve the objectives pursued. 

HEREBY RECOMMEND THAT MEMBER STATES: 

1. 

Ensure  that  initial  education  and  training  offers  all  young  people  the  means  to 
develop  the  key  competences  to  a  level  that  equips  them  for  adult  life,  and  which 
forms a basis for further learning and working life; 

EN 

11 

   EN 

 
2. 

3. 

4. 

5. 

6. 

Ensure  that  appropriate  provision  is  made  for  those  young  people  who,  due  to 
educational  disadvantages  caused  by  personal,  social,  cultural  or  economic 
circumstances, need particular support to fulfil their educational potential; 

Ensure  that  adults  are  able  to  develop  and  update  the  key  competences  throughout 
their lives, and that there is a particular focus on target groups identified as priorities 
in the national, regional and/or local contexts; 

Ensure that appropriate infrastructure for continuing education and training of adults 
is in place including teachers and trainers, measures to ensure access, and support for 
learners that recognises the differing needs of adults; 

Ensure the coherence of adult education and training provision for individual citizens 
via close links to employment and social policies and other policies affecting young 
people and collaboration with social partners and other stakeholders; 

Use the “Key Competences for Lifelong Learning – A European Framework” in the 
Annex as a reference tool in developing the provision of key competences for all as 
part of their lifelong learning strategies. 

TAKE NOTE OF THE COMMISSION’S INTENTION TO: 

1. 

2. 

3. 

4. 

Contribute to Member States’ efforts to develop their education and training systems 
and to implement this Recommendation, including by using the ‘Key Competences 
for  Lifelong  Learning  –  A  European  Reference  Framework’  as  a  reference  to 
facilitate  peer  learning  and  the  exchange  of  good  practices  and  to  follow  up 
developments  and  report  on  progress  through  the  biennial  progress  reports  on  the 
Education and Training 2010 work programme; 

Use  the  ‘Key  Competences  for  Lifelong  Learning  –  A  European  Reference 
Framework’ as a reference in implementing the Community Education and Training 
programmes and ensure that they promote the acquisition of the key competences; 

Promote the wider use of the ‘Key Competences for Lifelong Learning – A European 
Reference  Framework’  in  related  Community  policies,  and  particularly  in  the 
implementation  of  employment,  youth  and  social  policy,  and  develop  further  links 
with social partners and other organisations working in those fields; 

Review  the  impact  of  the  ‘Key  Competences  for  Lifelong  Learning  –  A  European 
Reference  Framework’  within  the  framework  of  the  Education  and  Training  2010 
work programme and report, four years after the adoption of this Recommendation to 
the  European  Parliament  and  to  the  Council  on  the  experience  gained  and 
implications for the future. 

Done at Brussels, 

For the European Parliament 
The President 

For the Council 
The President 

EN 

12 

   EN 

 
  
  
 
 
ANNEX 

Key Competences for Lifelong Learning 
- A European Reference Framework  

Introduction 

This Framework sets out the eight key competences:  

1. 

2. 

3. 

4. 

5. 

6. 

7. 

8. 

Communication in the mother tongue; 

Communication in the foreign languages; 

Mathematical competence and basic competences in science and technology; 

Digital competence; 

Learning to learn; 

Interpersonal, intercultural and social competences and civic competence; 

Entrepreneurship; and 

Cultural expression.   

Competences are defined here as a combination of knowledge, skills and attitudes appropriate 
to the context. Key competences are those which all individuals need for personal fulfilment 
and  development,  active  citizenship,  social  inclusion  and  employment.  By  the  end  of  initial 
education and training young people should have developed the key competences to a level 
that equips them for adult life, and they should be further developed, maintained and updated 
as part of lifelong learning.  

Many of the competences overlap and interlock: aspects essential to one domain will support 
competence  in  another.  Competence  in  the  fundamental  basic  skills  of  language,  literacy, 
numeracy and ICT is an essential foundation for learning, and learning to learn supports all 
learning activities. There are a number of themes that are applied throughout the Framework: 
critical  thinking,  creativity,  initiative  taking,  problem  solving,  risk  assessment,  decision 
taking, and managing feelings constructively play a role in all eight key competences.  

Key Competences 

1. Communication in the mother tongue18 

Definition:  Communication  in  the  mother  tongue  is  the  ability  to  express  and  interpret 
thoughts,  feelings  and  facts  in  both  oral  and  written  form  (listening,  speaking,  reading  and 
writing), and to interact linguistically in an appropriate way in the full range of societal and 
cultural contexts — education and training, work, home and leisure. 

18 

It is recognised that the mother tongue may not in all cases be an official language of the Member State, 
and that ability to communicate in an official language is a pre-condition for ensuring full participation 
of the individual in society. Measures to address such cases are a matter for individual Member States 
according to their specific needs and circumstances.  

EN 

13 

   EN 

 
 
                                                 
Essential knowledge, skills and attitudes related to this competence 

Communication  in  the  mother  tongue  requires  an  individual  to  have  knowledge  of  basic 
vocabulary, functional grammar and the functions of language. It includes an awareness of the 
main types of verbal interaction, a range of literary and non-literary texts, the main features of 
different styles and registers of language, and the variability of language and communication 
in different contexts. 

Individuals  should  have  the  skills  to  communicate  in  oral  and  written  forms  in  a  variety  of 
communicative  situations  and  to  monitor  and  adapt  their  own  communication  to  the 
requirements  of  the  situation.  Competence  also  includes  the  abilities  to  write  and  read 
different  types  of  texts,  search,  collect  and  process  information,  use  aids,  formulate  and 
express one’s own arguments in a convincing way appropriate to the context. 

A  positive  attitude  towards  communication  in  the  mother  tongue  involves  a  disposition  to 
critical and constructive dialogue, an appreciation  of aesthetic qualities and a willingness to 
strive for them, and an interest in interaction with others. 

2. Communication in foreign languages 

Definition: Communication in foreign languages broadly shares the main skill dimensions of 
communication  in  the  mother  tongue:  it  is  based  on  the  ability  to  understand,  express  and 
interpret  thoughts,  feelings  and  facts  in  both  oral  and  written  form  (listening,  speaking, 
reading  and  writing)  in  an  appropriate  range  of  societal  contexts  —  work,  home,  leisure, 
education  and  training  —  according  to  one’s  wants  or  needs.  Communication  in  foreign 
languages  also  calls  for  skills  such  as  mediation  and  intercultural  understanding.  An 
individual’s  level  of  proficiency  will  vary  between  the  four  dimensions,  different  languages 
and according to their background, environment and needs/interests. 

Essential knowledge, skills and attitudes related to this competence 

Competence  in  additional  or  foreign  languages  requires  knowledge  of  vocabulary  and 
functional grammar and an awareness of the main types of verbal interaction and registers of 
language.  Knowledge  of  societal  conventions,  and  the  cultural  aspect  and  variability  of 
languages is important. 

Essential skills  consist  of  the  ability  to  understand  spoken  messages,  to  initiate,  sustain  and 
conclude conversations and to read and understand texts appropriate to the individual’s needs. 
Individuals should also be able to use aids appropriately, and learn languages also informally 
as part of lifelong learning. 

A  positive  attitude  involves  the  appreciation  of  cultural  differences  and  diversity,  and  an 
interest and curiosity in languages and intercultural communication. 

EN 

14 

   EN 

 
3. Mathematical competence and basic competences in science and technology 

Definition: 

A.  Mathematical  competence  is  the  ability  to  use  addition,  subtraction,  multiplication, 
division  and  ratios  in  mental  and  written  computation  to  solve  a  range  of  problems  in 
everyday  situations.  The  emphasis  is  on  process  and  activity,  as  well  as  knowledge. 
Mathematical competence involves - to different degrees - the ability and willingness to use 
mathematical  modes  of  thought  (logical  and  spatial  thinking)  and  presentation  (formulas, 
models, constructs, graphs/charts). 

B. Scientific competence refers to the ability and willingness to use the body of knowledge 
and methodology employed to explain the natural world, in order to identify questions and to 
draw evidence-based conclusions. Competence in technology is viewed as the application of 
that knowledge and methodology in response to perceived human wants or needs. Both areas 
of  this  competence  involve  an  understanding  of  the  changes  caused  by  human  activity  and 
responsibility as an individual citizen. 

Essential knowledge, skills and attitudes related to the competence 

A. Necessary knowledge in mathematics includes a sound knowledge of numbers, measures 
and  structures,  basic  operations  and  basic  mathematical  presentations,  an  understanding  of 
mathematical  terms  and  concepts,  and  of  the  questions  to  which  mathematics  can  offer 
answers. 

An individual should have the skills to apply basic mathematical principles and processes in 
everyday  contexts  at  home  and  work,  and  to  follow  and  assess  chains  of  arguments.  They 
should be able to reason mathematically, understand mathematical proof and communicate in 
mathematical language, and to use appropriate aids. 

A positive attitude in mathematics is based on the respect of truth and willingness to look for 
reasons and to assess their validity. 

B. For science and technology, the essential knowledge comprises the basic principles of the 
natural  world,  fundamental  scientific  concepts,  principles,  and  methods,  technology  and 
technological  products  and  processes.  Individuals  should  have  an  understanding  of  the 
advances, limitations and risks of scientific theories, applications and technology in societies 
at large (in relation to decision-making, values, moral questions, culture etc), both in specific 
areas  of  science  such  as  medicine,  and  also  an  understanding  of  the  impact  of  science  and 
technology on the natural world. 

Skills include the ability to use and manipulate technological tools and machines as well as 
scientific  data  to  achieve  a  goal  or  to  reach  a  decision  or  conclusion,  based  on  evidence. 
Individuals  should  also  be  able  to  recognise  the  essential  features  of  scientific  inquiry  and 
have the ability to communicate the conclusions and reasoning that led to them. 

Competence includes an attitude of critical appreciation and curiosity, an interest in ethical 
issues  and  respect  for  both  safety  and  sustainability  -  in  particular  as  regards  scientific  and 
technological progress in relation to oneself, family, community and global issues. 

EN 

15 

   EN 

 
4. Digital competence 

Definition: Digital competence involves the confident and critical use of Information Society 
Technology  (IST)  for  work,  leisure  and  communication.  It  is  underpinned  by  basic  skills  in 
ICT:  the  use  of  computers  to  retrieve,  assess,  store,  produce,  present  and  exchange 
information, and to communicate and participate in collaborative networks via the Internet. 

Essential knowledge, skills and attitudes related to the competence 

Digital  competence  requires  a  sound  understanding  and  knowledge  of  the  nature,  role  and 
opportunities of IST in everyday contexts: in personal and social life as well as at work. This 
includes  main  computer  applications  such  as  word  processing,  spreadsheets,  databases, 
information  storage  and  management,  and  an  understanding  of  the  opportunities  of  Internet 
and  communication  via  electronic  media  (e-mail,  network  tools)  for  leisure,  information 
sharing  and  collaborative  networking,  learning  and  research.  Individuals  should  also 
understand how IST can support creativity and innovation, and be aware of issues around the 
validity and reliability of information available and the ethical principles of in the interactive 
use of IST. 

Skills  needed  include:  the  ability  to  search,  collect  and  process  information  and  use  it  in  a 
critical  and  systematic  way,  assessing  relevance  and  distinguishing  real  from  virtual  while 
recognising  the  links.  Individuals  should  have  skills  to  use  tools  to  produce,  present  and 
understand  complex  information  and  the  ability  to  access,  search  and  use  internet-based 
services;  they  should  also  be  able  use  IST  to  support  critical  thinking,  creativity,  and 
innovation. 

Use  of  IST  requires  a  critical  and  reflective  attitude  towards  available  information  and  a 
responsible use of the interactive media; an interest in engaging in communities and networks 
for cultural, social and/or professional purposes also supports competence. 

5. Learning to learn 

Definition:  ‘Learning  to  learn’  is  the  ability  to  pursue  and  persist  in  learning.  Individuals 
should  be  able  to  organise  their  own  learning,  including  through  effective  management  of 
time  and  information,  both  individually  and  in  groups.  Competence  includes  awareness  of 
one’s learning process and needs, identifying available opportunities, and the ability to handle 
obstacles  in  order  to  learn  successfully.  It  means  gaining,  processing  and  assimilating  new 
knowledge  and  skills  as  well  as  seeking  and  making  use  of  guidance.  Learning  to  learn 
engages  learners  to  build  on  prior  learning  and  life  experiences  in  order  to  use  and  apply 
knowledge and skills in a variety of contexts – at home, at work, in education and training. 
Motivation and confidence are crucial to an individual’s competence. 

Essential knowledge, skills and attitudes related to the competence 

Where learning is directed towards particular work or career goals, an individual should have 
knowledge  of  the  competences,  knowledge,  skills  and  qualifications  required.  In  all  cases, 
learning  to  learn  requires  an  individual  to  know  and  understand  their  preferred  learning 
strategies,  the  strengths  and  weaknesses  of  their  skills  and  qualifications,  and  to  be  able  to 
search the education and training opportunities and guidance/support available to them. 

EN 

16 

   EN 

 
Learning to learn skills require firstly the acquisition of the fundamental basic skills such as 
literacy,  numeracy  and  ICT  that  are  necessary  for  further  learning.  Building  on  this,  an 
individual  should  be  able  to  access,  gain,  process  and  assimilate  new  knowledge  and  skills. 
This  requires  effective  management  of  one’s  learning,  career  and  work  patterns,  and  in 
particular  the  ability  to  persevere  with  learning,  to  concentrate  on  extended  periods  and  to 
reflect critically on the purposes and aims of learning. Individuals should be able to dedicate 
time  to  learning  autonomously  and  with  self-discipline,  but  also  to  work  collaboratively  as 
part of the learning process, draw the benefits from a heterogeneous group, and to share what 
they  have  learnt.  They  should  be  able  to  evaluate  their  own  work,  and  to  seek  advice, 
information and support when appropriate. 

A positive attitude includes the motivation and confidence to pursue and succeed at learning 
throughout one’s life. A problem-solving attitude supports both learning and an individual’s 
ability to handle obstacles and change. The desire to apply prior learning and life experiences 
and the curiosity to look for opportunities to learn and apply learning in a variety of life-wide 
contexts are essential elements of a positive attitude. 

….. 

6. Interpersonal, intercultural and social competences, civic competence 

Definition:  These  competences  cover  all  forms  of  behaviour  that  equip  individuals  to 
participate in an effective and constructive way in social and working life, and particularly in 
increasingly  diverse  societies,  and  to  resolve  conflict  where  necessary.  Civic  competence 
equips individuals to fully participate in civic life, based on knowledge of social and political 
concepts and structures and a commitment to active and democratic participation. 

Essential knowledge, skills and attitudes related to the competence 

A.  Personal  and  social  well-being  requires  an  understanding  of  how  individuals  can  ensure 
optimum physical and mental health, including as a resource for oneself and one’s family, and 
knowledge of how a healthy lifestyle can contribute to this. For successful interpersonal and 
social participation it is essential to understand the codes of conduct and manners generally 
accepted  in  different  societies  and  environments  (e.g.  at  work),  and  to  be  aware  of  basic 
concepts  relating  to  individuals,  groups,  work  organisations,  gender  equality,  society  and 
culture.  Understanding  the  multi-cultural  and  socio-economic  dimensions  of  European 
societies and how national cultural identity interacts with the European identity is essential. 

Skills  to  communicate  constructively  in  different  environments,  express  and  understand 
different viewpoints negotiate with the ability to create confidence, and feel empathy are the 
core of this competence. Individuals should be able to cope with stress and frustration and to 
express  it  in  a  constructive  way  and  should  also  distinguish  between  the  personal  and 
professional spheres. 

As  regards  attitudes,  the  competence  is  based  on  collaboration,  assertiveness  and  integrity. 
intercultural 
Individuals  should  have  an 
communication,  value  diversity  and  respect  others,  and  be  prepared  both  to  overcome 
prejudices and to compromise. 

in  socio-economic  development, 

interest 

B. Civic competence is based on knowledge of the concepts of democracy, citizenship, and 
civil  rights,  including  how  they  are  expressed  in  the  Charter  of  Fundamental  Rights  of  the 

EN 

17 

   EN 

 
European Union and international declarations and applied by various institutions at the local, 
regional, national, European and international levels. Knowledge of main events, trends and 
agents of change in national, European and world history and present, with a specific view on 
European diversity is essential, as is knowledge of the aims, values and policies of social and 
political movements. 

Skills  relate  to  the  ability  to  engage  effectively  with  others  in  the  public  domain,  display 
solidarity  and  interest  in  solving  problems  affecting  the  local  and  wider  community.  It 
in 
involves 
community/neighbourhood  activities  as  well  as  decision-making  at  all  levels  from  local  to 
national and European level, in particular by voting. 

participation 

constructive 

reflection 

creative 

critical 

and 

and 

Full  respect  for  human  rights  including  equality  as  a  basis  for  democracy,  appreciation  and 
understanding of differences between value systems of different religious or ethnic groups lay 
the foundations for a positive attitude. It comprises also the display of a sense of belonging to 
one’s  locality,  country,  EU  and  Europe  in  general  and  (one’s  part  of)  the  world  and  the 
willingness  to  participate  in  democratic  decision  making  at  all  levels.  Constructive 
participation  also  involves  civic  activities,  support  for  social  diversity  and  cohesion  and 
sustainable development, and a readiness to respect the values and privacy of others. 

7. Entrepreneurship 

Definition:  Entrepreneurship  refers  to  an  individual’s  ability  to  turn  ideas  into  action.  It 
includes  creativity,  innovation  and  risk  taking,  as  well  as  the  ability  to  plan  and  manage 
projects in order to achieve objectives. This supports everyone in day to day life at home and 
in  society,  employees  in  being  aware  of  the  context  of  their  work  and  being  able  to  seize 
opportunities,  and  is  a  foundation  for  more  specific  skills  and  knowledge  needed  by 
entrepreneurs establishing social or commercial activity. 

Essential knowledge, skills and attitudes related to the competence 

Necessary  knowledge  includes  available  opportunities  for  personal,  professional  and/or 
business activities, including ‘bigger picture’ issues that provide the context in which people 
live  and  work,  such  as  a  broad  understanding  of  the  workings  of  the  economy,  and  the 
opportunities  and  challenges  facing an  employer  or  organisation.  Individuals  should  also  be 
aware of the ethical position of enterprises, and how they can be a force for good for example 
through fair trade or through social enterprise. 

Skills relate to proactive project management (involving skills such as planning, organising, 
managing,  leadership  and  delegation,  analysing,  communicating,  de-briefing  and  evaluating 
and recording), and the ability to work both as an individual and collaboratively in teams. The 
judgement  to  identify  one’s  strengths  and  weaknesses,  and  to  assess  and  take  risks  as  and 
when warranted is essential. 

An  entrepreneurial  attitude  is  characterised  by  initiative,  pro-activity,  independence  and 
innovation  in  personal  and  social  life,  as  much  as  at  work.  It  also  includes  motivation  and 
determination to meet objectives, whether personal goals or aims held in common with others, 
and/or at work. 

EN 

18 

   EN 

 
8. Cultural expression 

Definition:  Appreciation  of  the  importance  of  the  creative  expression  of  ideas,  experiences 
and emotions in a range of media, including music, performing arts, literature, and the visual 
arts. 

Essential knowledge, skills and attitudes related to the competence 

Cultural  knowledge  includes  a  basic  knowledge  of  major  cultural  works,  including  popular 
contemporary  culture  as  an  important  part  of  human  history  in  the  contexts  of  national  and 
European  cultural  heritage  and  their  place  in  the  world.  It  is  essential  to  understand  the 
cultural  and  linguistic  diversity  of  Europe  (and  European  countries),  the  need  to  preserve  it 
and  to  understand  the  evolution  of  popular  taste  and  the  importance  of  aesthetic  factors  in 
daily life. 

Skills  relate  to  both  appreciation  and  expression:  self-expression  through  the  variety  of  the 
media with individuals’ innate capacities and appreciation and enjoyment of works of art and 
performances. Skills include also the ability to relate one’s own creative and expressive points 
of  views  to  the  opinions  of  others  and  to  identify  and  realise  economic  opportunities  in 
cultural activity. 

A  strong  sense  of  identity  is  the  basis  for  respect  and  open  attitude  to  diversity  of  cultural 
expression. A positive attitude also covers creativity, and the willingness to cultivate aesthetic 
capacity through artistic self-expression and interest in cultural life. 

EN 

19 

   EN