Proposal for a Recommendation of the European Parliament and of the Council on the establishment of a European quality assurance reference framework for vocational education and training [SEC(2008) 440] [SEC(2008) 441]
Date: 2008-04-09
Institutions: European Commission
Subjects: cooperation in the field of education, education policy, teaching quality, vocational education, vocational training

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 9.4.2008 
COM(2008) 179 final 

2008/0069 (COD) 

Proposal for a 

RECOMMENDATION OF THE EUROPEAN PARLIAMENT AND OF THE 
COUNCIL 

on the establishment of a European Quality Assurance Reference Framework for 
Vocational Education and Training 

[SEC(2008) 440] 
[SEC(2008) 441] 

(presented by the Commission) 

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EXPLANATORY MEMORANDUM 

1) 

CONTEXT OF THE PROPOSAL 

Grounds for and objectives of the proposal 

The objective of the proposed Recommendation is to establish a European Quality Assurance 
Reference Framework (hereinafter referred to as "the Framework") as a reference instrument 
to help Member States to promote and monitor continuous improvement of their Vocational 
Education  and  Training  (VET)  systems,  based  on  common  European  references.  The 
Framework should contribute to quality improvement in VET and to building mutual trust in 
national VET systems within a genuine borderless lifelong learning area. 

Vocational  Education  and  Training  (VET)  is  an  important  element  of  the  EU's  drive  to 
become  more  competitive  and  socially  cohesive,  as  outlined  in  the  Lisbon  strategy.  The 
creation  of  a  knowledge-based  society  underpinning  that  strategy  needs  to  be  based  on 
investment  in,  and  improvement  of,  the  quality  of  human  resources.  More  effective  use  of 
resources and a future-oriented design of VET involving new approaches to learning, both in 
schools and at work, are essential ingredients. 

This breadth of purpose is reflected in the way VET is organised across the EU – national and 
regional programmes respond to different standards and lead to many different qualifications. 
This  diversity  means  that  there  is  huge  scope  for  mutual  learning  and  for  an  EU-wide 
reflection about future organisation. And it also means that Europe requires common points of 
reference  to  ensure  transparency,  consistency  and  portability  between  the  many  streams  of 
development across Europe. All of this should happen without infringing the Member States' 
autonomy in the governance of VET systems. 

The target set by the Barcelona European Council in 2002 of making Europe's education and 
training systems a world quality reference by 2010 put the issue of how to build and ensure 
quality  of  VET  systems  at  the  centre  of  the  Education  and  Training  policy  agenda.  The 
Council Resolution1 and the Declaration2 of the European Ministers of Vocational Education 
and Training on the Promotion of Enhanced European Cooperation in VET, which launched 
the Copenhagen process, provided important pointers towards the Barcelona target. 

Subsequent  European  cooperation  has  enabled  the  exchange  of  experience,  mutual  learning 
and consensus-building. This paved the way for common principles, guidelines and tools for 
quality  development  which  led  to  the  establishment  of  a  Common  Quality  Assurance 
Framework  for  VET  (CQAF)  in  2003.  The  CQAF  approach  was  endorsed  by  the  Council3, 
which  invited  both  Member  States  and  the  Commission  to  promote  it  through  practical 
initiatives involving the relevant stakeholders, on a voluntary basis. 

Compatible  with  most  existing  systems,  the  CQAF  provided  for  common  principles  and  a 
reference  point  that  made  it  possible  to  promote  a  number  of  initiatives  at  European  and 
national levels4. However, the quality criteria, indicative descriptors and indicators supporting 

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19 December 2002 (OJ 2003/C 13/02) 
Adopted in Copenhagen on 29 and 30 November 2002 
Council Conclusions on Quality Assurance in Vocational Education and Training, 18 May 2004 
For further details, please see http://communities.trainingvillage.gr/quality 

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implementation of the CQAF are insufficiently explicit and make the instrument difficult to 
generalise. 

A number of countries have underlined the need to strengthen the status of the CQAF. In any 
event,  the  need  for  further  development  of  the  CQAF  was  recognised  at  the  time  of  its 
endorsement by the Council in 2004. Finally, the Helsinki Communiqué of 2006, reviewing 
the  priorities  of  the  Copenhagen  Process,  underlined  the  need  to  progress  from  the  CQAF 
towards a culture of quality improvement.  

The  proposed  Recommendation  builds  on  experience  gained  through  the  use  of  CQAF  and 
responds to requests made by Member States.  

Education and training systems must be flexible enough to respond to a wide range of needs, 
while  maintaining  overall  coherence  across  different  levels  of  implementation.  The 
effectiveness  and  efficiency  of  training  provision  in  meeting  such  needs  must  be  regularly 
evaluated, monitored and improved, on the basis of evidence.  

Quality  assurance5  is  a  means  to  achieve  this.  It  should  be  seen  as  an  instrument  for 
continuous  improvement  of  VET,  based  on  a  quality  cycle  establishing  the  appropriate 
interrelation  between  planning,  implementation,  evaluation/assessment  and  review  of  VET. 
Quality assurance implies a systematic approach to quality, with an explicit focus on the roles 
of actors at different levels and the way they relate to each other. It should also include ways 
in which the performance of VET can be monitored, and use measurement to support review 
and improvement of VET at system and provider levels. 

This approach to quality assurance is reflected in the general principles for quality assurance 
in education and training contained in Annex 3 to the Recommendation on the establishment 
of the EQF.  

Existing provisions in the area of the proposal 

Momentum  has  been  created  as  a  result  of the  Council  Resolution  and  Declaration  of  2002 
(the  "Copenhagen  process"),  followed  by  the  Council  conclusions  of  May  2004,  and  the 
Helsinki Communiqué in 2006. In addition to underlining the need to build upon the CQAF, 
the Communiqué called for wider participation in ENQAVET (European Network on Quality 
Assurance  in  Vocational  Education  and  Training)6.  The  ENQAVET  was  established  to 
facilitate  exchange  of  experience,  mutual  learning  and  consensus-building,  and  support,  test 
and  further  develop  the  CQAF.  In  a  number  of  countries,  the  ENQAVET  is  supported  by 
Quality Assurance National Reference Points (QANRPs)7.  

Quality assurance has been developed in other related fields which have an impact on VET. In 
higher education, the Bergen ministerial meeting of 2005 and the Recommendation on further 

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For the purposes of the Recommendation, definitions which apply are based on Cedefop's Glossary on Quality in Training (working paper, November 2003) 
http://communities.trainingvillage.gr/quality 
ENQAVET  was  established  in  October  2005  by  the  European  Commission  following  the  favourable  opinion  of  the  Advisory  Committee  for  Vocational 

Training.  Its  members  have  been  designated  by  Member  States,  candidate  countries,  EFTA-EEA  countries  and  the  European  Social  Partners’  organisations, 

according to an explicit procedure 

In  most  participating  countries,  ENQAVET  relies  on  national  quality  assurance  reference  points  that  were  established  to  provide  active  support  to  the 

implementation of the Network’s work programme and raise awareness/keep relevant stakeholders informed of the Network’s activities. Such reference points 
are based on/bring together existing relevant bodies at the national level and liaise with and involve a wide range of relevant stakeholders 

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European  cooperation  in  quality  assurance  in  higher  education8  provided  standards  and 
guidelines  for  quality  assurance.  The  Recommendation  on  the  European  Quality  Charter  for 
Mobility9  introduced  quality  assurance  concepts  in  developing  and  implementing  actions  in 
support of mobility. 

Thus, recent years have seen a degree of attention being given, at both EU and national levels, 
to the promotion of quality in VET. The Framework should be a means of giving new impetus 
to  the  continuous  improvement  of  quality  management  practices  and,  ultimately,  of  VET 
systems.  

The Framework fully respects the competence of the Member States. It seeks to stimulate: 

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the  creation  of  more  developed  and  consistent  quality  assurance  and 
improvement systems across countries; 

increased  transparency  of  quality  assurance  and  improvement  systems  and 
approaches in VET, to improve mutual trust and facilitate mobility; 

co-operation  and  mutual  learning,  to  foster  stakeholder  involvement  in  a 
culture of quality improvement and accountability at all levels. 

The  Framework  forms  part  of  a  series  of  measures  designed  to  support  continuous 
improvement  in  the  quality  and  governance  of  VET  systems.  These  include  the  European 
Qualifications Framework for lifelong learning (EQF)10, the European Credit System for VET 
(ECVET)11, and the common European principles for the identification and validation of non-
formal and informal learning12. 

Use  of  the  Framework  will  be  voluntary.  Its  main  users  will  be  public  authorities  and  the 
bodies charged with quality assurance and improvement.  

Consistency with other policies and objectives of the Union 

The  Framework  will  contribute  to  achieving  the  European  Employment  Strategy's  goal  of 
more effective investment in human capital. In particular, it will contribute to improving the 
quality and efficiency of investment in human capital through better education and skills, in 
line with the Employment Policy Guidelines (2005-2008)13 and in particular Guideline No 24.  

In a similar way, the Communication on Cohesion Policy14 draws attention to the importance 
of  reinforcing  investment  in  human  capital  through  better  education  and  skills,  and  of 

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Recommendation of the European Parliament and of the Council of 15 February 2006 on further European cooperation in quality assurance in higher education, 
2006/143/EC, OJ L 64/60 of 4.3.2006. 
Recommendation  of  the  European  Parliament  and  of  the  Council  of  18  December  2006  on  transnational  mobility  within  the  Community  for  education  and 
training purposes: European Quality Charter for Mobility, OJ L 394/5, 30.12.2006, (2006/961/EC) 
Proposal for a Recommendation of the European Parliament and of the Council on the establishment of the European Qualifications Framework for lifelong 
learning, COM(2006) 479 final, Brussels, 5.9.2006 
Commission staff working document. 'European Credit System for Vocational Education and Training; a system for the transfer, accumulation and recognition 
of learning outcomes in Europe'; SEC (2006) 1431 - 31 October 2006 
Conclusions of the Council and of the Representatives of the Governments of the Member States, meeting within the Council, on common European principles 
for the identification and validation of non-formal and informal learning, 9175/04 EDUC 101 SOC 220 18 May 2004 
Council Decision of 12 July 2005 on Guidelines for the employment policies of the Member States (2005/600/EC), OJ L 205/21, 6.8.2005 
Communication  from  the  Commission,  Cohesion  Policy  in  Support  of  Growth  and  Jobs:  Community  Strategic  Guidelines  2007-2013,  COM  (2005)  0299, 
5.7.2005 

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reforming education and training systems using common European references and principles. 
It  invites  Member  States  to  use  the  resources  under  the  Convergence  objective  to  improve, 
among other things, the quality and effectiveness of education and training provision. 

2) 

CONSULTATION OF INTERESTED PARTIES AND IMPACT ASSESSMENT 

Consultation of interested parties 

Consultation methods, main sectors targeted and general profile of respondents 

The proposal results from work carried out in cooperation with a wide range of bodies with 
specific  competencies  in  quality  development  in  VET.  This  cooperation  took  place  in  the 
European  Forum  on  Quality  in  VET  (2001-2002),  the  Technical  Working  Group  on  VET 
(2003-2004) and, since 2005, through ENQAVET.  

ENQAVET brings together a variety of institutions from 25 of the countries participating in 
the Education & Training 2010 Work Programme, and the European social partners. Further, 
it draws in the views of a still wider group of interested bodies which participate in specific 
activities of ENQAVET's work programme, and of the QANRPs, which bring together a wide 
range of stakeholders at national level. The Commission also consulted the Director General 
for  VET  (DGVT)  and  the  Advisory  Committee  for  Vocational  Training  (ACVT),  which 
includes representatives of governments, trade unions and employers' organisations from each 
Member State. The ACVT gave a favourable opinion on the Commission's draft proposal at 
its meeting of 14-15 June 2007. 

Summary of responses and how they have been taken into account 

This consultation confirmed broad support for the Framework. 

Particular  emphasis  was  laid  on  arrangements  for  implementation  and  the  need  to  keep  the 
reference  criteria  and  descriptors  as  simple  as  possible.  There  was  also  support  for  quality 
indicators  and  for  inviting  ENQAVET  to  carry  out  further  work,  in  cooperation  with  the 
Standing Group on Indicators and Benchmarks. 

Collection and use of expertise 

Scientific/expertise domains concerned 

Cedefop15  has  provided  strong  technical  and  scientific  support  while  the  ETF16  liaised 
particularly with candidate countries. 

Methodology used 

The  Framework  builds  on  the  CQAF,  which  was  developed  through  consensus,  taking  into 
consideration the different national approaches to improving quality, and in particular through 
identified cases of good practice. In particular, it proved possible to identify common issues 
underpinning  quality  assurance  in  most  countries,  and  to  develop  a  reference  set  of  quality 
indicators. 

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European Centre for the Development of Vocational Training 
European Training Foundation 

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Over 200 indicators were identified and analysed. The list was narrowed down by prioritising 
those  that  could  support  quality  assurance  at  both  system  and  provider  levels  and  that  had 
potential for use in cross-country comparison and mutual learning. Account was also taken of 
the  need  to  link  quality  improvement  in  VET  to  broader  European  objectives  such  as 
increasing  employability,  improving  the  matching  between  training  supply  and  users'  needs 
and  promoting  better  access  to  lifelong  learning.  Practical  experience  from  European  and 
national  projects,  particularly  peer-learning,  allowed  better  definition  of  the  indicators  at 
provider  and  systems  level.  Further  tools  that  have  been  developed  can  facilitate  the 
Framework's  implementation.  The  European  Guide  to  self-assessment17  is  intended  to  help 
VET  providers  improve  the  quality  of  training  provision.  A  European  Peer  Review  Manual 
for  initial  VET  was  also  developed,  through  a  project  under  the  Leonardo  da  Vinci 
Programme18. The manual is being further tested in a new Leonardo project19. 

The CQAF principles and criteria were kept at a relatively general level, in order to make it 
possible to develop and refine them for a specific context. A number of European countries 
have already developed a national framework for quality assurance on the basis of the CQAF. 
A  few  studies  and  practical  projects  have  helped  to  further  develop  the  CQAF.  These  are 
referred to in Cedefop's Virtual Community (http://communities.trainingvillage.gr). 

Main organisations/experts consulted; Summary of advice received and used; Means used to 
make the expert advice publicly available 

See above (consultation methods …) 

Impact assessment 

The objective of the Impact assessment is to analyse the various ways of ensuring take up of 
the  Framework  and  the  most  suitable  option  in  terms  of  a  choice  of  an  appropriate  legal 
instrument.  The  IA  report  has  been  submitted  to  the  Impact  Assessment  Board  (IAB)  and 
takes account of the recommendations of the IAB on the different legal options. 

There is a consensus, shown in repeated Council conclusions and in the Copenhagen process, 
in favour of modernisation and improvement of VET. Continued exchanges since 2003 have 
underlined the value of developing quality assurance for VET across the EU. The role of any 
EU instrument should, in line with the principle of subsidiarity, be to promote, facilitate and 
support  action  at  the  level  of  the  Member  States.  The  first  question  for  impact  assessment 
relates  to  the  choice  of  instrument  for  doing  this.  Five  options  have  been  taken  into 
consideration. 

1. 

No instrument at European level would mean continuing on the basis of such CQAF 
principles as currently exist. However, the experience so far suggests that the present 
framework has had limited impact in terms of stimulating Member States to promote 
its  use.  The  current  status  of  the  framework  makes  it  difficult  for  participating 
countries to make consistent use of the system and to reap the benefits of peer review 

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"An European Guide on Self-assessment for VET providers", Cedefop, September 2003 
"European  Peer  Review  Manual  for  initial  VET",  Gutknecht-Gmeiner,  Maria;  Lassnigg,  Lorenz;  Stöger,  Eduard;  de  Ridder,  Willem;  Strahm,  Peter;  Strahm, 
Elisabeth; Koski, Leena; Stalker, Bill; Hollstein, Rick; Alluli, Giorgio; Kristensen, Ole Bech (Vienna, June 2007) 
"Peer  Review  Extended"  (EAC/32/06/13m  LE-78CQAF),  www.peer-review-education.net  ;  "Peer  Review  Extended"  (EAC/32/06/13m  LE-78CQAF), 

www.peer-review-education.net 

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2. 

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4. 

5. 

and  mutual  learning.  A  number  of  countries have already pointed to the need for a 
stronger instrument in support of applying the EQF reference to the CQAF. 

A  Communication  from  the  Commission  setting  out  its  ideas  on  QA.  However, 
neither  the  Member  States  nor  the  European  Parliament  would  be  involved  in  its 
adoption  and  it  would  not  generate  the  political  commitment  needed  to  give 
credibility to the Framework and to ensure implementation at the national level. 

A  Commission  Recommendation  would  be  a  statement  of  Commission  views,  but 
neither  the  Member  States  nor  the  European  Parliament  would  be  involved  in  its 
formulation  and  it  would  not  generate  the  political  commitment  needed  to  ensure 
implementation  at  the  national  level,  which  is  crucial  to  successful  European 
cooperation in this area. Use of a Commission Recommendation would carry the risk 
of being seen as a development which runs counter to subsidiarity. 

A  Recommendation  of  the  European  Parliament  and  of  the  Council,  under  Articles 
149 and 150 of the Treaty would be a strong political signal of the intention of the 
institutions to build upon the Council Conclusions of 2004 to develop VET systems 
and  provision  and  thereby  to  facilitate  mobility  throughout  Europe.  This  option 
appears to correspond to the expectations from the Member States, the social partners 
and  other  stakeholders,  to  foster  quality  improvement  of  VET  systems,  through 
European  co-operation  and  will  keep  the  voluntary  character  of  the  instrument. 
Moreover,  using  a  Recommendation  in  this  field  would  be  consistent  with  other 
similar initiatives such as EQF. 

A Decision of the European Parliament and of the Council, under Articles 149 and 
150  of  the  Treaty  would  require  adoption  of  principles  and  obligations  whereby 
Member  States  relate  their  quality  systems  to  the  Framework.  This  would  also 
require adoption of harmonised quality benchmarks and standards at European level 
and  de  facto  obligations  for  Member  States  to  apply  the  standards.  There  is  an 
overwhelming consensus among the stakeholders that use of the Framework should 
be entirely voluntary. 

3) 

LEGAL ELEMENTS OF THE PROPOSAL 

Summary of the proposed action 

The  proposed  Recommendation  establishes  the  Framework  to  help  Member  States  promote 
and monitor quality improvement of VET systems. Its application is voluntary. 

It is recommended that Member States promote the use of the Framework to foster continuous 
improvement of the quality of VET, and that they further develop it. It is also recommended 
to  use  the  Framework  to  promote  inclusive  cooperation  and  mutual  learning  through 
ENQAVET, to strengthen and further develop Quality Assurance National Reference Points, 
and monitor the implementation of the Framework with a view to conducting a review of the 
Recommendation, if appropriate, five years after its adoption. 

It  is  the  Commission's  intention  to  support  Member  States  in  carrying  out  the  above  tasks, 
namely  through  the  Lifelong  Learning  Programme  and  by  monitoring  progress  in 
implementing  the  Framework,  in  the  context  of  the  Education  &  Training  2010  Work 
Programme. 

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Legal basis 

Article 149 which states that "the Community shall contribute to the development of quality 
education"  and  Article  150  which  explicitly  states  that  the  "Community  action  shall  aim  to 
(…) improve initial and continuing vocational training (…)". 

Subsidiarity principle 

The proposal complies with the subsidiarity principle as the proposal does not fall under the 
exclusive competence of the Community. 

The  main  function  of  the  Framework  is  to  provide  agreed  cross-country  references  that  can 
help  Member  States  and  stakeholders  to  document,  develop,  monitor,  evaluate  and  improve 
the effectiveness of their VET provision and quality management practices. It also provides a 
basis and common language for reporting at national and European levels. This in turn will 
increase  transparency  and  consistency  of  policy  and  practical  developments  between  and 
across countries, thereby improving VET in the European Union. It cannot be achieved by the 
Member States individually.  

Community action will better achieve the objectives of the proposal for the following reasons: 

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The challenges related to transparency and consistency of policy and practical 
developments as regards quality assurance in VET across countries are shared 
by all Member States; they cannot be solved at national or sectoral level alone; 

If  all  27  Member  States  were  to  negotiate  bilateral  agreements  on  the  matter 
covered by this Recommendation with all other Member States separately and 
in an uncoordinated way, this would result in an extremely complex and non-
transparent overall structure at the European level; 

The  proposal  provides  a  shared  framework  with  common  quality  criteria, 
indicative  descriptors  and  indicators  to  support  consistent  development  of 
quality  in  VET  between  countries  and  facilitate  cross-country  cooperation. 
These functions cannot be provided by action at the national level. 

Proportionality principle 

The proposal complies with the proportionality principle because it does not replace or define 
national  quality  assurance  systems  and/or  approaches,  and  leaves  the  implementation  of  the 
Recommendation to the Member States. 

Choice of instrument 

Recommendation of the European Parliament and of the Council. 

4) 

BUDGETARY IMPLICATION 

Member States:  

The Framework is not intended to replace existing systems, nor does it require the creation of 
new  structures,  and  existing  reporting  systems  will  be  used,  minimising  the  administrative 

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burden. It builds on existing experience and cases of best practice in Member States and other 
participating countries. 

EU budget:  

There  will  be  no  cost  impact  on  the  EU  budget  as  the  Lifelong  Learning  Programme  – 
Leonardo  da  Vinci  –  includes  specific  provision  to  support  focused  initiatives  in  this  area. 
Only monitoring costs are to be considered. 

5) 

ADDITIONAL INFORMATION 

Review/revision/sunset clause 

The proposal includes a review clause. 

European Economic Area 

European Economic Area countries have participated voluntarily in the European cooperation 
process  launched  at  Copenhagen  in  2002,  and  have  been  fully  associated  with  the 
development  of  the  Framework.  The  proposed  Recommendation  is  therefore  likely  to  be 
relevant to them.  

Detailed explanation of the proposal 

The  primary  users  of  the  European  Quality  Assurance  Reference  Framework  will  be 
national/regional authorities and public and private bodies in charge of quality assurance and 
improvement,  including  at  provider  level.  Nevertheless,  quality  improvement  of  VET 
provision  is  crucial  for  meeting  customers'  needs:  the  Framework  is  therefore  of  particular 
relevance to the final users of the system. 

The  Framework  provides  also  for  enhanced  cooperation  and  greater  mutual  trust  between 
national  stakeholders  and  international  sectoral  organisations  involved  in  education  and 
training. Its successful implementation requires, however, that national education and training 
authorities  and  other  public  and  private  stakeholders  commit  to  it  on  a  voluntary  basis. 
Particular  attention  must  be  paid  to  the  development  -  through  testing,  experimentation  and 
direct cooperation - of support and guidance material. 

The European Network on Quality Assurance in VET has a key role to play in this process, as 
its  members  are  formally  designated  by  Member  States,  candidate  countries,  EFTA-EEA 
countries  and  the  European  Social  Partners’  organisations.  Furthermore,  the  implementation 
of  the  European  Quality  Assurance  Reference  Framework  should  be  facilitated  at  European 
level  by  the  Commission  and  by  agencies  like  Cedefop  and  the  European  Training 
Foundation. 

The Framework comprises: 

– 

 a  quality  assurance  and  improvement  cycle  of  planning,  implementation, 
evaluation/assessment  and  review  of  VET,  supported  by  common  quality 
criteria (annex 1 to the proposal), indicative descriptors and indicators (annex 2 
to the proposal); 

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– 

 monitoring  processes,  including  a  combination  of  internal  and  external 
evaluation mechanisms, to be defined by Member States as appropriate in order 
to identify: (i) the strength of systems, processes and procedures; (ii) areas for 
improvement. 

– 

 the use of measuring tools to provide evidence of effectiveness. 

The  Framework  sets  out  a  systematic  approach  to  quality,  including  outlining  the  roles  of 
actors  at  different  levels  and  ways  in  which  the  performance  of  VET  can  be  monitored.  It 
provides  a  measurement  tool  to  support  review  and  improvement  of  VET  at  system  and 
provider levels. It is based on the quality continuous process that links : (i) setting of policy 
goals/objectives  and  planning; 
the 
(ii)  definition  of 
implementation of means and actions planned to achieve the goals and objectives; (iii) design 
of the mechanisms for evaluation of programme provision against goals and objectives, and 
the  assessment  of  achievements/outcomes  at  individual,  provider  and  system  levels;  (iv) 
review,  based  on  a  combination  of  internal  and  external  evaluation  results,  processing  of 
feedback and organisation of procedures for change. 

the  principles  underpinning 

Monitoring  involves  a  combination  of  internal  and  external  evaluation  mechanisms,  to  be 
identified  by  Member  States  as  appropriate.  The  combination  of  these  two  strands  will 
provide  ongoing  verifiable  and  authenticated  feedback  on  progress  towards  reaching  the 
policy goals, as a result of activities and actions introduced or planned. The Framework gives 
particular consideration to systematic self-assessment, as a bottom-up process to improve the 
quality of training provision. 

Measurement  should  provide  evidence  on  whether  policies/activities/actions  have  been 
achieved or need further improvement. It thereby contributes to improving the governance of 
systems. 

While focusing attention on the outcomes of VET and learning and the relationship between 
the VET systems, lifelong learning, the labour market, employment and the economy, the set 
of indicators is organised as a coherent chain which reflects the objectives, inputs, processes, 
and  the  results  of  training.  It  consists  of  two  general  indicators,  four  mutually  reinforcing 
indicators  which  deliver  information  on  outputs  and  outcomes  of  training  against  policy 
priorities.  This  is  complemented  by  two  context  indicators  providing  for  relevant  context 
information  to  enable  the  assessment  of  achievements,  and  two  descriptors  providing 
additional qualitative information on factors determining the quality of VET. Apart from the 
descriptors, all the indicators are based on quantified data and consequently they can support 
the evaluation of achievements against the defined objectives. 

EN 

10 

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2008/0069 (COD) 

Proposal for a 

RECOMMENDATION OF THE EUROPEAN PARLIAMENT AND OF THE 
COUNCIL 

on the establishment of a European Quality Assurance Reference Framework for 
Vocational Education and Training 

(Text with EEA relevance) 

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 Commission20, 

Having regard to the opinion of the European Economic and Social Committee21, 

Having regard to the opinion of the Committee of the Regions22, 

Acting in accordance with the procedure laid down in Article 251 of the Treaty23, 

Whereas: 

(1) 

(2) 

(3) 

The  transition  to  a  knowledge-based  economy  (Lisbon  European  Council  2000) 
requires  modernisation  and  continuous  improvement  of  vocational  education  and 
training  (VET)  systems  in  response  to  rapid  change  in  the  economy  and  society,  so 
that they can help increase employability and social inclusion and improve access to 
lifelong learning for all. 

The Barcelona European Council in 2002 set the target of making Europe’s education 
and training systems a world quality reference by 2010. 

The  Lisbon  Integrated  Guidelines  for  Growth  and  Jobs  2005-08  call  upon  Member 
States  to  develop  affordable,  accessible  lifelong  learning  systems  responsive  to  the 
changing  needs  of  the  knowledge-based  economy  and  society.  Adaptation  and 
capacity-building  of  education  and  training  systems  is  necessary  to  improve  their 
labour  market  relevance.  The  objectives  set  in  education  and  training  policy  should 
therefore  increasingly  complement  those  of  economic  and  labour  market  policy  in 
order to combine social cohesion and competitiveness. 

20 
21 
22 
23 

OJ C , , p. . 
OJ C , , p. . 
OJ C , , p. . 
OJ C , , p. . 

EN 

11 

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(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

24 
25 

26 

27 
28 

Following  the  Council  Resolution24  on  the  Promotion  of  Enhanced  European 
Cooperation  in  VET  (‘The  Copenhagen  process’),  and  as  an  outcome  of  subsequent 
cooperative  work  between  the  Commission,  the  Member  States,  social  partners,  the 
EEA  –  EFTA  and  the  candidate  countries  on  the  Quality  Assurance  priority,  a 
Common  Quality  Assurance  Framework  (hereinafter  "CQAF")  has  been  developed, 
taking account of existing experience and 'good practice' in the different participating 
countries. 

According  to  the  joint  interim  report  of  the  Council  and  the  Commission  to  the 
European  Council,  on  the  Education  and  Training  2010  Work  Programme  (2004)25, 
"the  CQAF  for  VET"  (as  part  of  the  follow-up  to  the  Copenhagen  process)  and  the 
"development  of  an  agreed  set  of  standards,  procedures  and  guidelines  for  quality 
assurance"26  (in  conjunction  with  the  Bologna  process  and  as  part  of  the  work 
programme  on  the  objectives  of  education  and  training  systems)  should  be  top 
priorities for Europe". 

The  Education  Council  in  May  200427  endorsed  the  CQAF  approach  and  invited 
Member States and the Commission, within their respective competencies, to promote 
it on a voluntary basis, together with relevant stakeholders. 

The  establishment  of  the  European  Network  on  Quality  Assurance  in  Vocational 
Education  and  Training  (hereinafter  "ENQA-VET")28  provides  a  European  platform 
that  allows  for  appropriate  follow-up  to  the  Council  Conclusions  of  2004  and  the 
Helsinki Communiqué, and facilitates sustainable cooperation across countries. 

In  2006,  the  Helsinki  Communiqué  underlined  the  need  to  further  develop  and 
implement common European tools specifically aimed at VET, by (…) drawing on the 
principles underlying a CQAF, as referred to in the May 2004 Council Conclusions on 
quality  assurance  in  VET,  in  order  to  promote  a  culture  of  quality  improvement  and 
wider participation in the ENQA-VET network. 

This  Recommendation  establishes  a  European  Quality  Assurance  Reference 
Framework  (hereinafter "the  Framework") as  a reference  instrument to help Member 
States  to  promote  and  monitor  continuous  improvement  of  their  VET  systems  based 
on  common  European  references,  which  builds  on  and  further  develops  the  CQAF. 
The  Framework  should  contribute  to  quality  improvement  in  VET  and  to  increased 
transparency  and  consistency  of  VET  policy  developments  between  Member  States, 
thereby  promoting  mutual  trust,  mobility  of  workers  and  learners,  and  lifelong 
learning. 

19 December 2002 (OJ 2003/C 13/02). 
"Education  &  Training  2010":  the  success  of  the  Lisbon  strategy  hinges  on  urgent  reforms  -  Joint 
Interim  Report  of  the  Council  and  the  Commission  on  the  implementation  of  the  detailed  work 
programme on the follow-up of the objectives of education and training systems in Europe, 26 February 
2004. 
"Realising  the  European  Higher  Education  Area".  Communiqué  from  the  Conference  of  Ministers 
responsible for higher education, Berlin, 19 September 2003. 
Council Conclusions on Quality Assurance in Vocational Education and Training, 28 May 2004. 
The European Network on Quality Assurance in VET was established in October 2005 by the European 
Commission following the favourable opinion of the Advisory Committee for Vocational Training. Its 
members have been designated by Member States, candidate countries, EFTA-EEA countries and the 
European Social Partners’ organisations, according to an explicit procedure. 

EN 

12 

   EN 

 
                                                 
(10)  The  Framework  should  comprise  a  quality  assurance  and  improvement  cycle  of 
planning,  implementation,  evaluation/assessment  and  review  of  VET,  supported  by 
common  quality  criteria,  indicative  descriptors  and  indicators.  The  monitoring 
processes,  including  a  combination  of  internal  and  external  evaluation  mechanisms, 
have to be defined by Member States as appropriate in order to identify the strength of 
systems, processes and procedures and areas for improvement. The Framework should 
include the use of measuring tools to provide evidence of effectiveness. 

(11)  The Framework should be applied at both VET system and provider levels. It provides 
a  systemic  approach  to  quality,  covering  and  inter-relating  the  relevant  levels  and 
actors  and  it  should  give  strong  emphasis  to  monitoring  and  improving  quality, 
combining  internal  and  external  evaluation,  review  and  processes  for  improvement, 
supported by measurement. The Framework should be a basis for further development 
through cooperation at European, national, regional and local levels. 

(12) 

In  providing  for  concrete  means  to  support  an  evaluation  and  quality-improvement 
culture  at  all  levels,  this  Recommendation  contributes  to  the  use  of  evidence-based 
policy and practice, as a basis for more efficient and equitable policies, in accordance 
with  the  2006  Council  Conclusions  on  efficiency  and  equity  in  European  education 
and training systems29. 

(13)  This  Recommendation  should  take  into  account  the  common  "Principles  for  Quality 
Assurance  in  Education  and  Training"  that  are  included  in  Annex  3  to  the 
Recommendation of the European Parliament and of the Council on the establishment 
of  the  European  Qualifications  Framework  for  lifelong  learning  (hereinafter  EQF)30. 
The  Framework  should  therefore  support  the  implementation  of  the  EQF.  It  should 
also support the implementation of other European instruments, such as the European 
Credit System for VET (hereinafter ECVET)31, and the Common European Principles 
for the identification and validation of non-formal and informal learning32. 

(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  facilitating  further  cooperation  between  them  to  increase  transparency  of 
VET and to promote mobility and lifelong learning. 

(15)  This Recommendation conforms to the principle of proportionality referred to in that 
Article because it does not replace or define national quality assurance systems. The 
Framework  does  not  prescribe  a  particular  quality  system  or  approach,  but  provides 
common principles, quality criteria, indicative descriptors and indicators that may help 
to assess and improve existing systems and provision. 

29 

30 
31 

32 

European  Council  23-24  March  2006,  Presidency  Conclusions;  Communication  and  Council 
Conclusions  on  'Efficiency  and  equity  in  European  education  and  training  systems'  COM  (2006)  481 
and OJ 2006/C 298/03. 
OJ C , , p.  
Commission staff working document. 'European Credit System for Vocational Education and Training; 
a system for the transfer, accumulation and recognition of learning outcomes in Europe'; SEC (2006) 
1431 - 31 October 2006. 
Conclusions  of  the  Council  and  of  the  Representatives  of  the  Governments  of  the  Member  States, 
meeting  within  the  Council,  on  common  European  principles  for  the  identification  and  validation  of 
non-formal and informal learning, 9175/04 EDUC 101 SOC 220 18 May 2004. 

EN 

13 

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HEREBY RECOMMEND THAT MEMBER STATES: 

1. 

2. 

3. 

4. 

use  and  further  develop  the  European  Quality  Assurance  Reference  Framework, 
quality criteria, indicative descriptors and reference indicators as set out in Annexes 
1 and 2, to further improve, reform and develop their VET systems, support lifelong 
learning  strategies  and  the  implementation  of  the  EQF  and  promote  a  culture  of 
quality improvement at all levels; 

devise  a  national  approach  for  implementing  the  European  Quality  Assurance 
Reference Framework not later than 2010, involving the social partners and all other 
relevant  stakeholders  in  accordance  with  national  legislation  and  practice.  This 
should  include  the  identification  of  a  number  of  common  indicators  to  assess  and 
monitor progress and to support review; 

participate actively in the ENQA-VET as a basis for further development of common 
principles,  reference  criteria  and  indicators,  guidelines  and  tools  for  quality 
improvement in VET at national, regional and local levels, as appropriate; 

designate  a  Quality  Assurance  National  Reference  Point  (hereinafter  QANRP)  for 
VET  that  brings  together  existing  relevant  bodies  and  involves  the  social  partners 
and all stakeholders concerned at national and regional levels, in order to ensure the 
follow-up  of  initiatives  and  efficient  dissemination  of  information.  The  reference 
points should: 

– 

– 

– 

keep  a  wide  range  of  stakeholders  informed  about  the  European  Network's 
activities; 

provide active support to the implementation of the European Network's Work 
Programme; 

take  concrete  initiatives  to  promote  further  development  of  the  European 
Quality Assurance Reference Framework in the national context. 

5. 

undertake  a  review  of  the  implementation  process  every  three  years.  The  national 
reviews will contribute to a European review to be organised by the Commission. 

ENDORSE THE COMMISSION’S INTENTION TO: 

1. 

2. 

3. 

support  Member  States  in  carrying  out  the  above  tasks,  in  particular  by  facilitating 
cooperation  and  mutual  learning,  testing  and  developing  guidance  material,  and 
providing information on quality developments in VET across EU countries; 

develop  the  role  of  ENQAVET  in  contributing  to  policy  development  in  this  area 
through concrete proposals and initiatives; 

monitor the action taken by the Member States in response to this Recommendation 
and report, three years after its adoption, to the European Parliament and the Council 
on  the  experience  gained  and  implications  for  the  future,  including,  if  necessary,  a 
review of this Recommendation.  

EN 

14 

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Done at Brussels,  

For the European Parliament 
The President 

For the Council 
The President 

EN 

15 

   EN 

 
 
ANNEX 1 
THE EUROPEAN QUALITY ASSURANCE REFERENCE FRAMEWORK: QUALITY CRITERIA AND INDICATIVE DESCRIPTORS33 
This annex provides common quality criteria and indicative descriptors to support Member States, as appropriate, when implementing the Framework34. 

Quality Criteria 

Indicative descriptors at system level 

Indicative descriptors at VET provider level  

reflects 

Planning 
a 
strategic vision shared by 
the  relevant  stakeholders 
and 
explicit 
goals/objectives,  actions 
and indicators. 

includes 

Goals/objectives  of  VET  are  described  for  the  medium 
and long terms, and linked to European goals 

European, national and regional VET policy goals/objectives 
are reflected in the local targets set by the VET providers 

The  relevant  stakeholders  participate  in  setting  VET 
goals and objectives at the different levels 

Targets  are  established  and  monitored  through  specific 
indicators (success criteria) 

Mechanisms  and  procedures  have  been  established  to 
identify training needs 

An  information  policy  is  devised  to  ensure  optimum 
disclosure  of  quality 
to 
national/regional data protection requirements 

results/outcomes  subject 

Standards  and  guidelines  for  recognition,  validation  and 
certification  of  competences  of  individuals  have  been 
defined 

Explicit goals/objectives and targets are set and monitored 

Ongoing consultation with relevant stakeholders takes place 
to identify specific local/individual needs 

Responsibilities  in  quality  management  and  development 
have been explicitly allocated 

There is an early involvement of staff in planning, including 
with regard to quality development  

Providers  plan  cooperative  initiatives  with  other  VET 
providers  

The  relevant  stakeholders  participate  in  the  process  of 
analysing local needs 

Providers have an explicit and transparent learner charter in 
place and a quality system is put in place 

33 

34 

EN 

For  the  purposes  of  the  Recommendation,  definitions  which  apply  are  based  on  Cedefop's  Glossary  on  Quality  in  Training  (working  paper,  November  2003) 
http://communities.trainingvillage.gr/quality. 
A further specific set of quality indicators is detailed in Annex 2. 

16 

EN 

 
  
                                                 
plans 
Implementation 
in 
are 
devised 
consultation 
with 
stakeholders  and  include 
explicit principles  

Implementation plans are established in cooperation with 
social  partners,  VET  providers  and  other  relevant 
stakeholders at the different levels 

Resources are appropriately internally aligned/assigned with 
a  view  to  achieving  the  targets  set  in  the  implementation 
plans 

the 
Implementation  plans 
resources required, the capacity of the users and the tools 
and guidelines needed for support 

include  consideration  of 

Relevant  and  inclusive  partnerships  are  explicitly  supported 
to implement the actions planned 

Guidelines  and  standards  have  been  devised 
implementation at different levels 

The  strategic  plan  for  staff  competence  development 
specifies the need for training for teachers and trainers 

for 

Staff  undertake  regular  training  and  develop  cooperation 
with  relevant  external  stakeholders  to  support  capacity 
to  enhance 
building  and  quality 
performance 

improvement,  and 

Implementation  plans  include  specific  support  towards 
the training of teachers and trainers 

VET  providers'  responsibilities  in  the  implementation 
process are explicitly described and made transparent 

A  national  and/or  regional  quality  assurance  framework 
is  devised  and  includes  guidelines  and  quality  standards 
at provider level to promote continuous improvement and 
self-regulation  

EN 

17 

EN 

 
  
Evaluation  of  outcomes 
and 
is 
processes 
regularly carried out and 
supported 
by 
measurement 

A  methodology  for  evaluation  is  devised,  covering 
internal and external evaluation 

Stakeholder 
evaluation process is agreed and clearly described 

involvement 

the  monitoring  and 

in 

The  national/regional  standards  and  processes  for 
improving  and  assuring  quality  are  relevant  and 
proportionate to the needs of the sector  

Systems  are  subject  to  self-evaluation  and  external 
review 

Early warning systems are implemented 

Performance indicators are applied 

Relevant,  regular  and  coherent  data  collection  takes 
place, in order to measure success and identify areas for 
improvement. Appropriate data collection methodologies 
are devised, e.g. questionnaires and indicators/metrics  

Self-assessment/self-evaluation  is  periodically  carried  out 
under national and regional regulations/frameworks or at the 
initiative of VET providers 

and 

and 
Evaluation 
results/outcomes  of  education  including  the  assessment  of 
client satisfaction as well as staff performance 

processes 

review 

covers 

Evaluation  and  review  includes  adequate  and  effective 
mechanisms  to  involve  internal  and  external  stakeholders, 
such  as  managers,  teachers,  students,  parents,  employers, 
social partners and local authorities 

Benchmarking  and  comparative  indicators  are  used  for 
mutual learning and performance improvement 

EN 

18 

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Review 

Procedures, mechanisms and instruments for undertaking 
reviews are defined at all levels 

Learners'  feedback  on  their  learning  environment  and 
experience is gathered and used to inform further actions  

Processes are continuously reviewed and action plans for 
change devised. Systems are constantly being developed 

Information  on  the  outcomes  of  the  review  is  widely  and 
publicly available  

Benchmarking to  support mutual  learning between VET 
providers is encouraged and supported 

Procedures  on  feedback  and  review  are  part  of  a  strategic 
learning process in the organisation 

Information  on  the  outcomes  of  evaluation  is  made 
publicly available 

Results/outcomes  of  the  evaluation  process  are  discussed 
with  relevant  stakeholders  and  appropriate  action  plans  are 
put in place 

EN 

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ANNEX 2 

A REFERENCE SET OF QUALITY INDICATORS FOR VET 

This  annex  provides  a  comprehensive  set  of  indicators  to  support  the  evaluation,  monitoring  and 
quality improvement of VET systems and/or providers. The set of indicators will be further developed 
through European cooperation on a bilateral and/or multilateral basis, building on European data and 
national registers. 

Indicator 

Type of 
Indicator  

Policy Rationale  

Applicable to 

Overarching Indicators for Quality Assurance 

Context/Input 
indicator 

Input/Process 
indicator 

No 1 

Relevance of quality 
assurance systems for 
VET providers: 

a) share of providers 
applying internal quality 
assurance systems defined 
by law/at own initiative 

b) share of accredited VET 
providers 

No 2 

Investment in training of 
teachers and trainers: 

a) share of teachers and 
trainers participating in 
further training 

b) amount of funds invested 

IVT35 
CVT36 

IVT 

CVT 

Promote a quality 
improvement culture at 
VET-provider level 

Increase the 
transparency of quality 
of training 

Improve mutual trust on 
training provision 

Promote ownership of 
teachers and trainers in 
the process of quality 
development in VET 

Improve the 
responsiveness of VET 
to evolving demand of 
labour market  

Increase individual 
learning capacity 
building 

Improve learner's 
achievement 

35 
36 

Initial Vocational Training. 
Continuing Vocational Training. 

EN 

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Indicator 

Type of 
Indicator 

Policy Rationale 

Applicable to 

Indicators supporting quality objectives for VET policies 

No 3 

Participation  rate  in  VET 
programmes: 

Number of participants in 
VET programmes, 
according to  

the type of programme and 
the individual criteria37  

No 4 

Completion rate in VET 
programmes: 

Number of successfully 
completed/abandoned VET 
programmes, according to 
the type of programme and 
the individual criteria. 

Input/Process
/Output 
indicator 

Obtain basic information 
at system and provider 
levels on the 
attractiveness of VET 

Target support to 
increase access to VET, 
including socially 
disadvantaged groups 

IVT38 

CVT 

LLL (Lifelong 
learning): 
percentage of 
population 
admitted to formal 
VET programmes 

Process/ 
Output/ 
Outcome 
Indicator 

Obtain basic information 
on educational 
achievements and the 
quality of training 
processes 

IVT 

CVT (when 
relevant) 

Calculate drop-out rates 
compared to 
participation rate 

Support successful 
completion as one of the 
main objectives for 
quality in VET 

Support adapted training 
provision, including for 
socially disadvantaged 
groups 

37 

38 

Besides  basic information  on  gender  and  age, other  social  criteria  might  be  applied,  e.g.  early  school 
leavers,  highest  educational  achievement,  migrant,  ethnic  minority,  handicapped  persons,  length  of 
unemployment, etc. 
A period of 6 weeks of training is needed before a student is counted as a participant. 

EN 

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Indicator 

No 5 

Type of 
Indicator 

Outcome 
indicator 

Policy Rationale 

Applicable to 

Support employability 

Improve responsiveness 
of VET to the changing 
demands in the labour 
market 

IVT (including 
information on 
destination of 
dropouts) 

CVT 

Support adapted training 
provision, including 
socially disadvantaged 
groups 

Outcome 
Indicator 

(mix of 
qualitative 
and 
quantitative 
data) 

Increase employability  

IVT 

CVT  

Improve responsiveness 
of VET to changing 
demands in the labour 
market 

Support adapted training 
provision, including 
socially disadvantaged 
groups 

Placement rate in VET 
programmes: 

a) destination of VET 
learners in 6-12-36 months 
after completion of training, 
according to the type of 
programme and the 
individual criteria; 

b) share of employed 
learners in 6-12-36 months 
after completion of training, 
according to the type of 
programme and the 
individual criteria. 

No 6 

Utilisation of acquired 
skills at the workplace: 

a) information on 
occupation obtained by 
individuals after completion 
of training, according to 
type of training and 
individual criteria 

b) satisfaction rate of 
individuals and employers 
with acquired 
skills/competences  

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Indicator 

Type of 
Indicator  

Policy Rationale  

Applicable to 

Context information 

No 7 

Unemployment rate39 
according to individual 
criteria 

Context 
indicator 

Background information 
for policy decision-
making at VET-system 
level 

IVT 

CVT 

No 8 

Context 
indicator 

Prevalence of vulnerable 
groups: 

a) percentage of participants 
in VET classified as 
disadvantaged groups (in a 
defined region or catchment 
area) according to age and 
gender;  

b) success rate of 
disadvantaged groups 
according to age and gender 

Background information 
for policy decision-
making at VET-system 
level 

IVT  

CVT  

Support access to VET 
for socially 
disadvantaged groups 

Support adapted training 
provision for socially 
disadvantaged groups 

39 

Definition according to ILO and OECD: individuals 15-74 without work, actively seeking employment 
and ready to start work. 

EN 

23 

   EN 

 
 
 
 
 
 
 
 
 
 
                                                 
Type of 
Indicator 

Context/Input 
indicator 

(qualitative 
information) 

Policy Rationale 

Applicable to 

Improve responsiveness 
of VET to changing 
demands in the labour 
market  

IVT  

CVT  

Support employability  

Process 
indicator 

(qualitative 
information) 

Promote access to VET, 
including socially 
disadvantaged groups 

IVT  

CVT 

Support adapted training 
provision  

Indicator 

No 9 

Mechanisms to identify 
training needs in the 
labour market: 

a)  Information  on  mechanisms 
set  up  to  identify  changing 
demands at different levels; 

b) evidence of their usefulness. 

No 10 

Schemes used to promote 
better access to VET:  

a) Information on existing 
schemes at different levels; 

b) evidence of their 
usefulness. 

EN 

24 

   EN