Recommendation of the European Parliament and of the Council of 23 April 2008 on the establishment of the European Qualifications Framework for lifelong learning (Text with EEA relevance)
Date: 2008-04-23
Institutions: Council of the European Union, European Parliament
Subjects: continuing vocational training, cooperation in the field of education, education policy, recognition of vocational training qualifications

6.5.2008

EN

Official Journal of the European Union

C 111/1

I

(Resolutions, recommendations and opinions)

RECOMMENDATIONS

EUROPEAN PARLIAMENT

COUNCIL

RECOMMENDATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

of 23 April 2008

on the establishment of the European Qualifications Framework for lifelong learning

(Text with EEA relevance)

(2008/C 111/01)

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE
EUROPEAN UNION,

(2)

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

Having regard to the proposal from the Commission,

Having regard to the opinion of the European Economic and
Social Committee (1),

The Lisbon European Council
in 2000 concluded that
increased transparency of qualifications should be one of
the main components necessary to adapt education and
training systems in the Community to the demands of
the Barcelona
the knowledge
European Council in 2002 called for closer cooperation
in the university sector and improvement of transparency
and recognition methods in the area of vocational educa-
tion and training.

Furthermore,

society.

Having regard to the opinion of
Regions (2),

the Committee of

the

(3)

Acting in accordance with the procedure
Article 251 of the Treaty (3),

laid down in

Whereas:

The Council Resolution of 27 June 2002 on lifelong
learning (4) invited the Commission, in close cooperation
with the Council and Member States, to develop a frame-
work for the recognition of qualifications for both educa-
tion and training, building on the achievements of the
Bologna process and promoting similar action in the area
of vocational training.

(1)

employment

competitiveness,

The development and recognition of citizens' knowledge,
skills and competence are crucial for the development of
individuals,
and social
cohesion in the Community. Such development and
recognition should facilitate transnational mobility for
workers and learners and contribute to meeting the
requirements of supply and demand in the European
labour market. Access to and participation in lifelong
learning for all, including disadvantaged people, and the
use of qualifications should therefore be promoted and
improved at national and Community level.

(1) OJ C 175, 27.7.2007, p. 74.
(2) OJ C 146, 30.6.2007, p. 77.
(3) Opinion of the European Parliament of 24 October 2007 (not yet
published in the Official Journal) and Council Decision of 14 February
2008.

(4)

(5)

The joint reports of the Council and the Commission on
the implementation of the ‘Education and Training 2010’
work programme, adopted in 2004 and 2006, stressed
the need to develop a European Qualifications Frame-
work.

the Council and the representatives of

In the context of the Copenhagen process, the conclu-
sions of
the
governments of the Member States, meeting within the
Council of 15 November 2004 on the future priorities of
enhanced European cooperation in vocational education

(4) OJ C 163, 9.7.2002, p. 1.

C 111/2

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Official Journal of the European Union

6.5.2008

(6)

(7)

(8)

(9)

(10)

(11)

and training gave priority to the development of an open
and flexible European Qualifications Framework, founded
on transparency and mutual trust, which should stand as
covering both education and
a common reference
training.

The validation of non-formal and informal
learning
outcomes should be promoted in accordance with the
Council conclusions on common European principles for
the identification and validation of non-formal and
informal learning of 28 May 2004.

The Brussels European Councils of March 2005 and
March 2006 underlined the importance of adopting a
European Qualifications Framework.

This Recommendation takes
into account Decision
No 2241/2004/EC of the European Parliament and of
the Council of 15 December 2004 on a single Com-
munity framework for the transparency of qualifications
and competences (Europass) (1) and Recommendation
2006/962/EC of
the
Council of 18 December 2006 on key competences for
lifelong learning (2).

the European Parliament and of

This Recommendation is compatible with the framework
for
the European Higher Education Area and cycle
descriptors agreed by the ministers responsible for higher
education in 45 European countries at their meeting in
Bergen on 19 and 20 May 2005 within the framework
of the Bologna process.

of

the

2006/143/EC

The Council conclusions on quality assurance in voca-
tional education and training of 23 and 24 May 2004,
Recommendation
European
Parliament and of the Council of 15 February 2006 on
further European cooperation in quality assurance in
higher education (3) and the standards and guidelines for
quality assurance in the European Higher Education Area
agreed by the ministers responsible for higher education
at their meeting in Bergen contain common principles
for quality assurance which should underpin the imple-
mentation of the European Qualifications Framework.

the European Parliament and of

This Recommendation is without prejudice to Directive
the
2005/36/EC of
Council of 7 September 2005 on the recognition of
professional qualifications (4), which confers rights and
obligations on both the relevant national authority and
the migrant. Reference to the European Qualifications
Framework levels on qualifications should not affect
access to the labour market where professional qualifica-
tions have been recognised in accordance with Directive
2005/36/EC.

(12)

The objective of
this Recommendation is to create a
common reference framework which should serve as a

(1) OJ L 390, 31.12.2004, p. 6.
(2) OJ L 394, 30.12.2006, p. 10.
(3) OJ L 64, 4.3.2006, p. 60.
(4) OJ L 255, 30.9.2005, p. 22. Directive as amended by Council Directive

2006/100/EC (OJ L 363, 20.12.2006, p. 141).

translation device between different qualifications systems
and their levels, whether for general and higher education
or
for vocational education and training. This will
improve the transparency, comparability and portability
of citizens' qualifications issued in accordance with the
practice in the different Member States. Each level of
qualification should, in principle, be attainable by way of
a variety of educational and career paths. The European
Qualifications Framework should, moreover, enable inter-
national sectoral organisations to relate their qualifica-
tions systems to a common European reference point
and thus show the relationship between international
sectoral qualifications and national qualifications systems.
This Recommendation therefore contributes to the wider
objectives of promoting lifelong learning and increasing
the employability, mobility and social
integration of
workers and learners. Transparent quality assurance prin-
ciples and information exchange will support its imple-
mentation, by helping to build mutual trust.

This Recommendation should contribute to modernising
education and training systems, the interrelationship of
education, training and employment and building bridges
learning,
between formal, non-formal and informal
leading also to the validation of
learning outcomes
acquired through experience.

This Recommendation does not
replace or define
national qualifications systems and/or qualifications. The
European Qualifications Framework does not describe
specific qualifications or an individual's competences and
particular qualifications
should be referenced to the
appropriate European Qualifications Framework level by
way of the relevant national qualifications systems.

(13)

(14)

(15) Given its non-binding nature,

this Recommendation
conforms to the principle of subsidiarity by supporting
and supplementing Member States' activities by facili-
tating further cooperation between them to increase
transparency and to promote mobility and lifelong
learning. It should be implemented in accordance with
national legislation and practice.

(16)

Since the objective of this Recommendation, namely the
creation of a common reference framework serving as a
translation device between different qualifications systems
and their levels, cannot be sufficiently achieved by the
Member States and can therefore, by reason of the scale
and effects of the action envisaged, be better achieved at
Community level, the Community may adopt measures,
in accordance with the principle of subsidiarity as set out
in Article 5 of the Treaty. In accordance with the prin-
ciple of proportionality as set out in that Article, this
Recommendation does not go beyond what is necessary
in order to achieve that objective,

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Official Journal of the European Union

C 111/3

HEREBY RECOMMEND THAT MEMBER STATES:

1. use the European Qualifications Framework as a reference
tool to compare the qualification levels of the different quali-
fications systems and to promote both lifelong learning and
equal opportunities in the knowledge-based society, as well
as the further integration of the European labour market,
while respecting the rich diversity of national education
systems;

2. relate their national qualifications systems to the European
Qualifications Framework by 2010, in particular by referen-
cing, in a transparent manner, their qualification levels to the
levels set out in Annex II, and, where appropriate, by devel-
oping national qualifications frameworks in accordance with
national legislation and practice;

3. adopt measures, as appropriate, so that, by 2012, all new
qualification certificates, diplomas and ‘Europass’ documents
issued by the competent authorities contain a clear reference,
by way of national qualifications systems, to the appropriate
European Qualifications Framework level;

4. use an approach based on learning outcomes when defining
and describing qualifications, and promote the validation of
non-formal and informal
learning in accordance with the
common European principles agreed in the Council conclu-
sions of 28 May 2004, paying particular attention to those
citizens most likely to be subject to unemployment or inse-
cure forms of employment, for whom such an approach
could help increase participation in lifelong learning and
access to the labour market;

5. promote and apply the principles of quality assurance in
education and training set out in Annex III when relating
higher education and vocational education and training
qualifications within national qualifications systems to the
European Qualifications Framework;

6. designate national coordination points linked to the particu-
lar structures and requirements of the Member States,
in
order to support and,
in conjunction with other relevant
national authorities, guide the relationship between national
qualifications
and the European Qualifications
Framework with a view to promoting the quality and trans-
parency of that relationship.

systems

The tasks of
include:

those national coordination points should

(a) referencing levels of qualifications within national qualifi-
cations systems to the European Qualifications Frame-
work levels described in Annex II;

(b) ensuring that a transparent methodology is used to refer-
ence national qualifications levels to the European Quali-
fications Framework in order to facilitate comparisons
between them on the one hand, and ensuring that the
resulting decisions are published on the other;

(c) providing access to information and guidance to stake-
holders on how national qualifications relate to the
European Qualifications Framework through national
qualifications systems;

(d) promoting the participation of all relevant stakeholders
including,
legislation and
in accordance with national
practice, higher education and vocational education and
training institutions, social partners, sectors and experts
on the comparison and use of qualifications at
the
European level.

ENDORSE THE COMMISSION'S INTENTION TO:

1. support Member States in carrying out the above tasks and
international sectoral organisations in using the reference
levels and principles of the European Qualifications Frame-
in particular by
work as set out in this Recommendation,
facilitating cooperation, exchanging good practice and testing
— inter alia through voluntary peer review and pilot projects
under Community programmes, by launching information
and consultation exercises with social dialogue committees
— and developing support and guidance material;

2. establish, by 23 April 2009, a European Qualifications
Framework advisory group, composed of representatives of
Member States and involving the European social partners
responsible for
and other
providing overall coherence and promoting transparency of
the process of relating qualifications systems to the European
Qualifications Framework;

stakeholders, as appropriate,

3. assess and evaluate, in cooperation with the Member States
and after consulting the stakeholders concerned, the action
taken in response to this Recommendation,
including the
remit and duration of the advisory group, and, by 23 April
2013, report to the European Parliament and to the Council
on the experience gained and implications for the future,
including, if necessary, the possible review and revision of
this Recommendation;

4. promote close links between the European Qualifications
Framework and existing or future European systems for
credit transfer and accumulation in higher education and
vocational education and training, in order to improve citi-
zens' mobility and facilitate the recognition of
learning
outcomes.

Done at Strasbourg, 23 April 2008.

For the European Parliament

The President

H.-G. PÖTTERING

For the Council

The President

J. LANARČIČ

C 111/4

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Official Journal of the European Union

6.5.2008

ANNEX I

Definitions

For the purposes of the Recommendation, the definitions which apply are the following:

(a) ‘qualification’ means a formal outcome of an assessment and validation process which is obtained when a competent

body determines that an individual has achieved learning outcomes to given standards;

(b) ‘national qualifications system’ means all aspects of a Member State's activity related to the recognition of learning
and other mechanisms that link education and training to the labour market and civil society. This includes the devel-
opment and implementation of institutional arrangements and processes relating to quality assurance, assessment and
the award of qualifications. A national qualifications system may be composed of several subsystems and may include
a national qualifications framework;

(c) ‘national qualifications framework’ means an instrument for the classification of qualifications according to a set of
criteria for specified levels of learning achieved, which aims to integrate and coordinate national qualifications subsys-
tems and improve the transparency, access, progression and quality of qualifications in relation to the labour market
and civil society;

(d) ‘sector’ means a grouping of professional activities on the basis of their main economic function, product, service or

technology;

(e) ‘international sectoral organisation’ means an association of national organisations, including, for example, employers

and professional bodies, which represents the interests of national sectors;

(f) ‘learning outcomes’ means statements of what a learner knows, understands and is able to do on completion of a

learning process, which are defined in terms of knowledge, skills and competence;

(g) ‘knowledge’ means the outcome of the assimilation of information through learning. Knowledge is the body of facts,
principles, theories and practices that is related to a field of work or study. In the context of the European Qualifica-
tions Framework, knowledge is described as theoretical and/or factual;

(h) ‘skills’ means the ability to apply knowledge and use know-how to complete tasks and solve problems. In the context
of the European Qualifications Framework, skills are described as cognitive (involving the use of logical, intuitive and
creative thinking) or practical (involving manual dexterity and the use of methods, materials, tools and instruments);

(i) ‘competence’ means the proven ability to use knowledge, skills and personal, social and/or methodological abilities, in
work or study situations and in professional and personal development. In the context of the European Qualifications
Framework, competence is described in terms of responsibility and autonomy.

ANNEX II

Descriptors defining levels in the European Qualifications Framework (EQF)

Each of the 8 levels is defined by a set of descriptors indicating the learning outcomes relevant to qualifications at that level in any system of qualifications

.

.

6
5
2
0
0
8

Knowledge

Skills

Competence

In the context of EQF, knowledge is described as
theoretical and/or factual

In the context of EQF, skills are described as
intuitive
cognitive (involving the use of
and creative thinking) and practical
(involving
manual dexterity and the use of methods, mate-
rials, tools and instruments)

logical,

In the context of EQF, competence is described in
terms of responsibility and autonomy

Level 1
The learning outcomes relevant to Level 1 are

basic general knowledge

basic skills required to carry out simple tasks

work or study under direct supervision in a struc-
tured context

Level 2
The learning outcomes relevant to Level 2 are

basic factual knowledge of a field of work or study

basic cognitive and practical skills required to use
relevant information in order to carry out tasks
and to solve routine problems using simple rules
and tools

work or
autonomy

study under

supervision with some

Level 3
The learning outcomes relevant to Level 3 are

knowledge of
general concepts, in a field of work or study

facts, principles, processes and

a range of cognitive and practical skills required to
accomplish tasks and solve problems by selecting
and applying basic methods, tools, materials and
information

take responsibility for completion of tasks in work
or study
adapt own behaviour to circumstances in solving
problems

Level 4
The learning outcomes relevant to Level 4 are

factual
contexts within a field of work or study

and theoretical knowledge

in broad

a range of cognitive and practical skills required to
generate solutions to specific problems in a field
of work or study

Level 5 (*)
The learning outcomes relevant to Level 5 are

comprehensive, specialised, factual and theoretical
knowledge within a field of work or study and an
awareness of the boundaries of that knowledge

a comprehensive range of cognitive and practical
skills required to develop creative solutions to
abstract problems

exercise self-management within the guidelines of
work or study contexts that are usually predictable,
but are subject to change
supervise the routine work of others, taking some
responsibility for the evaluation and improvement
of work or study activities

exercise management and supervision in contexts of
work or study activities where there is unpredictable
change
review and develop performance of self and others

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5

Level 6 (**)
The learning outcomes relevant to Level 6 are

advanced knowledge of a field of work or study,
involving a critical understanding of theories and
principles

advanced skills, demonstrating mastery and inno-
vation, required to solve complex and unpredict-
able problems in a specialised field of work or
study

Level 7 (***)
The learning outcomes relevant to Level 7 are

Level 8 (****)
The learning outcomes relevant to Level 8 are

highly specialised knowledge, some of which is at
the forefront of knowledge in a field of work or
study, as the basis for original thinking and/or
research
critical awareness of knowledge issues in a field
and at the interface between different fields

knowledge at the most advanced frontier of a field
of work or study and at the interface between
fields

required in
specialised problem-solving skills
research and/or innovation in order to develop
new knowledge and procedures and to integrate
knowledge from different fields

including

the most advanced and specialised skills and tech-
niques,
evaluation,
synthesis
required to solve critical problems in research
and/or innovation and to extend and redefine
existing knowledge or professional practice

and

manage complex technical or professional activities
taking responsibility for decision-
or projects,
making in unpredictable work or study contexts
take responsibility for managing professional devel-
opment of individuals and groups

manage and transform work or study contexts that
are complex, unpredictable and require new stra-
tegic approaches
take responsibility for contributing to professional
knowledge and practice and/or for reviewing the
strategic performance of teams

authority,

substantial

demonstrate
innovation,
autonomy, scholarly and professional integrity and
sustained commitment to the development of new
ideas or processes at the forefront of work or study
contexts including research

Compatibility with the Framework for Qualifications of the European Higher Education Area
The Framework for Qualifications of the European Higher Education Area provides descriptors for cycles.
Each cycle descriptor offers a generic statement of typical expectations of achievements and abilities associated with qualifications that represent the end of that cycle.
(*)
(**)

The descriptor for the higher education short cycle (within or linked to the first cycle), developed by the Joint Quality Initiative as part of the Bologna process, corresponds to the learning outcomes for EQF level 5.
The descriptor for the first cycle in the Framework for Qualifications of the European Higher Education Area agreed by the ministers responsible for higher education at their meeting in Bergen in May 2005 in the framework of the
Bologna process corresponds to the learning outcomes for EQF level 6.

(***) The descriptor for the second cycle in the Framework for Qualifications of the European Higher Education Area agreed by the ministers responsible for higher education at their meeting in Bergen in May 2005 in the framework of the

Bologna process corresponds to the learning outcomes for EQF level 7.

(****) The descriptor for the third cycle in the Framework for Qualifications of the European Higher Education Area agreed by the ministers responsible for higher education at their meeting in Bergen in May 2005 in the framework of the

Bologna process corresponds to the learning outcomes for EQF level 8.

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1
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6
5
2
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8

6.5.2008

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Official Journal of the European Union

C 111/7

ANNEX III

Common Principles for Quality Assurance in Higher Education and Vocational Education and Training in the
context of the European Qualifications Framework

When implementing the European Qualifications Framework, quality assurance — which is necessary to ensure account-
ability and the improvement of higher education and vocational education and training — should be carried out in
accordance with the following principles:

— quality assurance policies and procedures should underpin all levels of the European Qualifications Framework,

— quality assurance should be an integral part of the internal management of education and training institutions,

— quality assurance should include regular evaluation of institutions, their programmes or their quality assurance

systems by external monitoring bodies or agencies,

— external monitoring bodies or agencies carrying out quality assurance should be subject to regular review,

— quality assurance should include context, input, process and output dimensions, while giving emphasis to outputs and

learning outcomes,

— quality assurance systems should include the following elements:

— clear and measurable objectives and standards, guidelines for implementation, including stakeholder involvement,

— appropriate resources,

— consistent evaluation methods, associating self-assessment and external review,

— feedback mechanisms and procedures for improvement,

— widely accessible evaluation results,

— quality assurance initiatives at international, national and regional level should be coordinated in order to ensure over-

view, coherence, synergy and system-wide analysis,

— quality assurance should be a cooperative process across education and training levels and systems, involving all rele-

vant stakeholders, within Member States and across the Community,

— quality assurance orientations at Community level may provide reference points for evaluations and peer learning.