Report from the Commission to the European Parliament and the Council on the first evaluation of the Europass initiative
Date: 2008-07-04
Institutions: European Commission
Subjects: EU initiative, administrative transparency, apprenticeship, job mobility, professional qualifications, project evaluation, vocational training

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 4.7.2008 
COM(2008) 427 final 

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT 
AND THE COUNCIL 

on the first evaluation of the Europass initiative 

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TABLE OF CONTENTS 

SUMMARY ............................................................................................................................... 3 

1. 

2. 

3. 

3.1. 

3.2. 

3.3. 

Introduction .................................................................................................................. 4 

Background to the external evaluation......................................................................... 4 

The external evaluation ................................................................................................ 5 

The terms of the evaluation.......................................................................................... 5 

Methodology ................................................................................................................ 5 

The evaluation findings................................................................................................ 5 

3.3.1.  Relevance, coherence and consistency ........................................................................ 5 

3.3.2.  Effectiveness ................................................................................................................ 6 

3.3.3.  Efficiency ..................................................................................................................... 7 

4. 

5. 

5.1. 

5.2. 

Summary of main recommendations of the external evaluation.................................. 7 

The Commission's conclusions for follow-up action................................................... 8 

Strengths and weaknesses ............................................................................................ 8 

Follow up action........................................................................................................... 9 

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REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT 
AND THE COUNCIL 

on the first evaluation of the Europass initiative 

SUMMARY 

This report is based on an external evaluation. It presents the evaluator’s main findings and 
recommendations as well as the Commission’s conclusions and intended follow-up. 

The evaluation concludes that the Europass initiative is achieving its objectives as a mobility 
tool for citizens and is relevant to their needs, helping them to make their competences and 
qualifications  easier  to  understand  and  more  acceptable  in  both  learning  contexts  and  the 
labour  market.  The  implementation  of  Europass  is  good  value  for  money.  Its  cost-effective 
implementation  tools  –  the  network  of  National  Europass  Centres  (NECs)  and  the  internet 
portal  managed  by  Cedefop1  –  are  appreciated  by  stakeholders  and  largely  satisfy  users,  as 
explicitly confirmed through a specific survey. 

This  is  confirmed  by  the  growing  numbers  of  visitors  to  the  Europass  portal  (in  average 
12 000  daily  visits  in  2007)  and  active  users  of  its  services,  with  2  million  Europass  CVs 
having been  created online by  September 2007. However, the evaluation points out that  the 
low-qualified are a small share of this large number of users. Also, some of the Europass tools 
have been less successful. The use of the Europass Mobility is increasing, but remains below 
its  potential,  while  the  Europass  Diploma  Supplement  and  the  Europass  Certificate 
Supplement are not adequately integrated in the framework. 

The  high  level  of  user  satisfaction,  the  growing  demand  and  the  shortcomings  identified, 
taken  together,  provide  a  sound  basis  for  the  identification  of  ways  to  exploit  better  the 
potential  of  the  Europass  initiative.  The  evaluation  makes  specific  recommendations  to 
strengthen the initiative’s overall logic, better address occupational mobility, build upon the 
successful  CV  tool,  widen  take-up,  enhance  effectiveness  and  improve  the  management 
information system. 

Based on the evaluation’s findings, the Commission concludes that the strength and success 
of Europass, in particular of the Europass CV tool and its guidance instruments, is linked to 
the  effective  use  of  a  learning  outcomes  approach.  Indeed,  the  shortcomings  identified 
concern those Europass tools that are less based on learning outcomes. 

To  follow  up  the  evaluation,  and  improve  the  support  that  Europass  provides  for  citizens' 
mobility, the Commission plans therefore to strengthen this dimension, particularly linked to 
the implementation of the European Qualifications Framework (EQF)2. The Commission will 
expand  the  Europass  CV  into  a  more  comprehensive  instrument,  supported  by  new  self-
assessment  tools addressing skills acquired through  all forms of  learning.  This will be  done 

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http://europass.cedefop.europa.eu 
Recommendation of the European Parliament and of the Council of 23 April 2008 on the establishment 
of the European Qualifications Framework for lifelong learning, OJ C 111, 6.5.2008, p. 1. 

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with  the  support  of  Cedefop  and  the  National  Europass  Centres  and  in  cooperation  with 
guidance, employment and youth services. Through such cooperation, a better response to the 
needs  of  young  people,  as  well  as  the  low-qualified,  will  also  be  pursued.  In  addition,  the 
Europass Mobility will, by 2010, be systematically issued to all citizens who have undertaken 
mobility actions under the Lifelong Learning Programme, as is the case for Youthpass for the 
Youth in Action programme, and will be further promoted through other actions. Finally, in 
cooperation with all relevant parties, the Commission will ensure stronger coordination of the 
management of the Europass Diploma Supplement and the Europass Certificate Supplement 
and will examine how they can be developed to take into account better the learning outcomes 
of  their  holders.  All  these  elements  will  also  be  brought  to  the  attention  of  the  High  Level 
Forum on Mobility, in order for them to take account of the evaluation results when preparing 
their final report. 

1. 

INTRODUCTION 

This  report  is  presented  under  the  terms  of  Article  15  of  Decision  2241/2004/EC  of  the 
European  Parliament  and  of  the  Council  of  15  December  20043
  (hereafter  “the  Decision”), 
which established Europass. 

It summarises the main conclusions and recommendations of the first external evaluation of 
Europass  and  puts  forward  the  Commission’s  conclusions  for  follow-up.  The  external 
evaluation  can  be  obtained,  in  English,  with  a  summary  also  in  French  or  German,  via  the 
following link: http://ec.europa.eu/dgs/education_culture/evalreports/index_en.htm. 

2. 

BACKGROUND TO THE EXTERNAL EVALUATION 

Europass was established as a coordinated portfolio of documents, to help citizens make their 
competences  and  qualifications  better  understood  throughout  Europe  and  therefore  facilitate 
their  mobility.  Europass  brought  together  five  documents  developed  at  European  level  and 
covering the qualifications and competences of a citizen from a lifelong learning perspective. 
Two Europass documents are completed by citizens themselves, namely through an assisted 
online  tool  made  available  in  the  Europass  portal:  the  Europass  CV,  with  which  citizens 
present  themselves,  using  a  format  that  highlights  what  they  know  and  can  do,  and  the 
Europass language passport, where citizens self-assess their linguistic skills using a reference 
framework  developed  by  the  Council  of  Europe.  The  three  other  documents  are  issued  to 
citizens  when  they  have  completed  specific  learning  experiences:  the  Europass  Mobility 
describes skills acquired in a mobility experience, while the Europass Certificate Supplement 
explains  vocational  qualifications  in  terms  of  competences  and  the  Europass  Diploma 
Supplement (developed jointly with the Council of Europe and Unesco) accompanies higher 
education  diplomas,  detailing  the  achievements  of  their  holders.  While  two  documents  are 
based on self-assessment and three are issued by competent organisations, all share to some 
extent a pragmatic focus on competences and learning outcomes. The Europass framework is 
open to development: the Decision defines the criteria to be satisfied by any further document 
as well as the formal procedure for inclusion in the framework. Participating countries include 
the Member States of the European Union, Iceland, Liechtenstein and Norway. 

3 

Decision 2241/2004/EC of the European Parliament and the Council of 15 December 2004 on a single 
Community framework for the transparency of qualifications and competences (Europass), OJ L 390, 
31.12.2004, p. 6. 

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The  Europass  initiative  is  implemented  through  the  network  of  National  Europass  Centres 
(NECs),  coordinated  by  the  Commission,  and  the  Europass  portal  developed,  hosted  and 
managed by Cedefop on behalf of the Commission (http://europass.cedefop.europa.eu). 

3. 

THE EXTERNAL EVALUATION 

3.1. 

The terms of the evaluation 

In  accordance  with  its  framework  contract  with  the  Commission4,  Ecotec  Research  and 
Consulting Ltd was invited to carry out the evaluation. This evaluation covers the period from 
January 2005 to August/September 2007): two and a half years of operation of the Europass 
portal and two full years of implementation at national level. 

3.2.  Methodology 

The  methodology  included  analysis  of  documentation  (activity  reports,  Europass  portal 
statistics, meeting reports, notes), a survey of users of the Europass portal (1 442 respondents 
from 30 countries, cf. 2.3.2.1 below), targeted surveys (with 93 responses) of staff of NECs, 
representatives of national authorities, social partners, stakeholders and Bologna experts, and 
a total of 47 in-depth interviews in a sample of five countries. Information was obtained from 
the  Commission,  Cedefop  and  the  Council  of  Europe  (co-owner  of  the  Europass  Language 
Passport and Diploma Supplement). 

3.3. 

The evaluation findings 

On a general note, the evaluation finds that the Europass initiative is relevant and provides an 
effective  service  to  citizens  moving  for  lifelong  learning  or  in  the  labour  market.  Its 
implementation tools are cost-efficient and highly appreciated by users. The potential of the 
initiative could however be more fully exploited, for which purpose the evaluation presents a 
number of recommendations. 

3.3.1.  Relevance, coherence and consistency 

Citizens need an instrument that makes competences and qualifications easier to understand 
throughout  Europe,  supporting  their  mobility.  Both  users  and  stakeholders  find  that  the 
Europass  framework  does  help  individuals  to  communicate  more  clearly  their  skills  and 
competences  and  can  help  employers  and  staff  of  education  and  training  providers  to  better 
assess  applications  for  both  lifelong  learning  and  occupational  vacancies.  Europass  is 
currently  considered  particularly  relevant  for  educational  and  international  mobility,  but  its 
relevance  for  occupational  mobility  could,  however,  be  increased,  for  example  through 
improved versions of the tools. 

Europass  is  complementary  to  educational  and  qualification  approaches  based  on  learning 
outcomes,  particularly  the  European  Qualifications  Framework  (EQF),  as  well  as  to 
transparency tools for specific target-groups, such as Youthpass, which was developed for use 

4 

Following an open tender, a framework contract has been agreed with Ecotec Research and Consulting 
Ltd  concerning  the  evaluation  of  activities  in  the  fields  of  Directorate  General  for  Education  and 
Culture. 

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within  the  Youth  in  Action  programme5.  Risks  of  overlap  with  such  initiatives  are  minimal 
and  easily  controlled  through  coordinated  management.  The  complementarity  with  current 
education  and  training  programmes  is  also  clear,  though  there  is  room  for  further 
enhancement. 

3.3.2.  Effectiveness 

The main Europass implementation tools are the National Europass Centres and the Europass 
internet portal. NECs have been operational in all countries since mid-2005 (January 2007 for 
Bulgaria and Romania). They have a strong network dimension and their work is considered 
satisfactory.  NECs  cooperate  to  varying  degrees  with  other  bodies,  in  particular  the 
Euroguidance  centres.  The  activity  reports  by  NECs,  which  are  the  main  source  of 
information  on  the  implementation  of  Europass,  have  in  general  a  good  level  of  detail,  but 
might be improved through the use of more specific indicators. 

The  Europass  portal  –  designed,  developed  and  managed  by  Cedefop  –  has  proven  very 
successful in terms of visits, use, and users' satisfaction. Available in 26 languages in all its 
parts,  the  portal  was  visited  over  8  million  times  by  September  2007,  with  daily  averages 
growing from 4 000 to 12 000. Many users went beyond browsing the site by creating CV and 
language  passports  online  (over  2 million)  and  by  downloading  templates,  examples  or 
guidelines (6.5 million). Over 90% of the 1442 respondents to the survey found the Europass 
portal very clear (41%) or clear enough. Almost half the respondents were in employment and 
16% were unemployed, while 25% were higher education students. Two thirds of users were 
between 20 and 35 years old and 25% were older. 

The  Europass  portal  has  to  a  large  extent  contributed  to  greater  awareness  of  transparency 
tools  supporting  mobility.  Specific  communication  activities  also  contributed  to  this, 
including  the  European  and  national  launch  conferences  in  2005  and  the  frequent  events 
organised by NECs. While promotion already is a major activity of NECs, priority has to be 
given to intensified dissemination of the framework to learners and employers. Survey results 
suggest that the most successful channels to make people aware of Europass are the internet 
(43%), educational institutions (17%) and word of mouth (15%). Interviews suggest that the 
CV, the Diploma Supplement and the Language Passport are the best known documents. 

The Europass initiative has  increased  the  overall  use  of  transparency instruments to support 
mobility  in  Europe.  However,  its  impact  on  the  use  of  the  Certificate  Supplement  and  the 
Diploma Supplement seems to be more limited (although data on the actual dissemination and 
use of these instruments is as yet insufficient). 

More  than  2  million  Europass  CVs  were  created  online  between  February  2005  and 
September 2007, with a clear upward trend. The user survey confirmed the relevance of the 
Europass CV, with over 90% of users ranking the CV very useful (68%) or useful. Almost as 
many users found the online tool and the guidance instruments to be specifically helpful. The 
CV tool clearly deserves further development action, with reference to both the template and 
its  guidance  tools  in  cooperation  with  employers  and  guidance  experts.  The  Europass 
Language Passport was also appreciated by almost two thirds of respondents, though because 
of its specialised nature it is much less used than the CV (about 70 000 against 2 million). 

5 

Decision  No  1719/2006/EC  of  the  European  Parliament  and  of  the  Council  of  15  November  2006 
establishing the Youth in Action programme for the period 2007 to 2013, OJ L 327, 24.11.2006, p. 30. 

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Compared to its predecessor (the Europass Training 2000-2004)6, the Europass Mobility has 
reached a wider audience (38 000 citizens received a Europass Mobility in 2006, compared to 
an  annual  average  of  25 000  recipients  of  Europass  Training).  However,  this  remains  far 
below  the  number  of  mobile  learners,  more  of  which  could  be  reached  by  associating 
additional delivery bodies to the NECs. 

The Diploma Supplement and the Certificate Supplement have not been a priority for NECs 
so  far.  The  Diploma  Supplement,  in  particular,  should  be  much  more  integrated  into  the 
Europass  framework,  and  developments  of  its  template  should  take  more  into  account  the 
learning outcomes approach. 

Based  on  the  survey,  40%  of  users  who  had  tried  to  change  job  or  location  consider  that 
Europass  was  helpful.  This  indicates  that  Europass  does  indeed  support  mobility.  However, 
the  survey  indicated  that  Europass  had  been  more  often  beneficial  among  people  in 
employment and students (46%) than among the unemployed (36%). It should be noted that 
users  of  the  Europass  tended  to  be  highly  educated:  more  than  60%  had  a  higher  education 
diploma. This suggests the need for targeted improvements. Stakeholders, while agreeing that 
Europass is effective, suggested that its impact could be increased by enhanced cooperation 
with  employers  and  recruitment  agencies.  Intensified  cooperation  with  employment  and 
guidance services could increase the impact among the unemployed and the low skilled. 

Data  shows  that  the  Europass  portal  is  also  used  and  appreciated  by  people  who  are  not 
actively  considering  mobility,  which  suggests  that  the  initiative  has  a  wider  potential  as  a 
general information and guidance tool. 

3.3.3.  Efficiency 

Europass  is  a  low  cost  initiative  that  provides  a  concrete  service  with  a  good  level  of 
efficiency.  The  total  cost  (from  national,  Commission  and  Cedefop  budgets)  for  the  period 
covered  is  about  €  11.5  million  against  we ll  above  2  million  documents  (CV,  Language 
Passport and Europass Mobility, for which data are sure). Therefore, the evaluation concludes 
that,  with  a  cost  per  document  of  roughly  €  5  and  the  high  level  of  user  satisfaction,  the 
implementation of Europass provides good value for money. 

4. 

SUMMARY OF MAIN RECOMMENDATIONS OF THE EXTERNAL EVALUATION 

The  evaluation’s  main  recommendations  to  improve  the  relevance  and  effectiveness  of 
Europass are summarised as follows: 

•  Europass  is  already  particularly  relevant  for  learners'  mobility  and  development  action  is 
job  mobility 

now  needed  on  occupational  mobility,  namely 
(recommendations 1 and 21). 

international 

•  The  Europass  CV  is  highly  valued  and  should  be  developed  further,  by  improving  its 
template  and  offering  a  shorter  version,  in  consultation  with  employers,  recruitment 
agencies and guidance centres (recommendations 7, 8, 9). 

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Council Decision 1999/51/EC of 21 December 1998 on the promotion of European pathways in work-
linked training, including apprenticeship, OJ L 17, 22.1.1999, p. 45. 

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•  Promotion  at  national  level  should  be  intensified  through  cooperation  with  guidance 

centres and businesses (recommendation 10). 

•  More examples and guidelines on the use of all Europass documents should be provided on 

the portal (recommendation 11). 

•  The Europass Diploma Supplement should be developed further to take learning outcomes 

better into account (recommendation 13). 

•  Complementarity  of  Europass  with  the  education  and  training  programmes  should  be 

intensified (recommendation 5). 

•  Cooperation with other transparency developments should be ensured (recommendation 6). 

5. 

THE COMMISSION'S CONCLUSIONS FOR FOLLOW-UP ACTION 

The Commission welcomes the first external evaluation of Europass. Its findings suggest that 
implementation  in  the  first  years  of  operation  was  broadly  successful,  cost-effective  and 
focused  on  the  right  priorities.  Its  recommendations  give  valuable  indications  as  to  the  way 
forward, building upon the positive features of the initiative and addressing its shortcomings. 

5.1. 

Strengths and weaknesses 

In order to facilitate their mobility, Europass helps citizens describe what they know and can 
do. Europass was thus  the  first  European  initiative to put in practice the shift to assessment 
based on learning outcomes rather than learning inputs such as the duration of learning and 
the level of entry. 

The  learning  outcomes  approach  is  now  the  cornerstone  of  the  recently  adopted  European 
Qualifications  Framework  for  lifelong  learning  (EQF).  Learning  outcomes  have  been 
integrated in the European credit transfer and accumulation system (ECTS) and will be a 
key element of the forthcoming European credit transfer system for vocational education 
and  training  (ECVET)7.  These  initiatives  are  not  isolated:  along  with  Europass  they  are 
complementary elements of a coordinated European strategy, which contributes to the Lisbon 
goals  by  making  it  easier  for  citizens  to  value  their  learning  and  move  freely  within  the 
European lifelong learning area and labour market. These learning outcomes-based initiatives 
are also informing and supporting the process of modernisation of national education, training 
and  qualifications  systems  throughout  Europe.  As  the  evaluation  indicates,  Europass  works 
better where it is strongly oriented to learning outcomes, while shortcomings mostly concern 
the elements where this dimension is weaker. 

The shift to learning outcomes is particularly critical for the identification and validation of 
non-formal  or  informal  learning  taking  place  outside  formal  education  and  training 
institutions  and  systems.  Specific  developments  of  Europass  can  further  help  make  citizens 
more  aware  of  these  (frequently  hidden)  learning  outcomes  acquired  within  non-formal  and 
informal settings, for example through youth activities or volunteer work. 

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Proposal for a Recommendation of the European Parliament and of the Council on the establishment of 
the European credit system for vocational education and training (ECVET) [COM(2008) 180 final]. 

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The  success  of  the  Europass  portal  and  the  CV  tool  is  based  on  a  variety  of  factors:  the 
quality  of  the  website  developed  by  Cedefop,  the  promotional  efforts  by  NECs,  and  the 
relevance of these instruments to the needs of citizens. This success needs to be built upon by 
responding better to the growing  demands of users and the needs of employers. The survey 
shows that the CV tool is appreciated not only as a support for mobility but also as a tool for 
better awareness of one's skills, in pursue of self-development. To better address the need of 
all users, the CV tool needs to develop into a more comprehensive instrument supported by 
new  tools  for  the  self-assessment  of  learning  outcomes,  meeting  the  needs  of  all  potential 
users, such as the low-qualified, the unemployed, volunteers and young people in general. 

The  Europass  Mobility  is  certainly  far  from  being  used  to  its  full  potential  as  a  tool  to 
increase the quality and the visibility of mobility. The geometric growth from 2005 to 2006 
indicates  that  the  efforts  of  NECs  are  paying  off,  but  to  this  date  many  beneficiaries  of 
national  or  European  mobility  actions  –  for  example,  through  the  Lifelong  Learning 
Programme – do not receive any record of their experience. 

While being a clear part of the Europass framework, the Europass Diploma Supplement and 
the  Europass  Certificate  Supplement  are  established  and  issued  by  national  institutions 
other than the NECs. In these first years of implementation, the limited resources available for 
Europass  have  been  concentrated  on  the  elements  directly  managed  by  the  NECs  or  made 
available at European level. However, further integration of the Diploma Supplement and the 
Certificate  Supplement  into  the  Europass  framework  should  become  a  priority,  requiring 
stronger European coordination and their active promotion as Europass tools at the national 
level. The further development of both tools should also be examined in line with European 
and national policy objectives. For example, the learning outcomes approach is only partially 
applied  in  the  Certificate  Supplement,  which  is  not  an  individual  document,  and  in  the 
Diploma  Supplement,  which  is  still  largely  based  on  formal  educational  inputs.  A  better 
reflection  of  individual  learning  outcomes  in  both  cases  would  provide  citizens  with  more 
effective documents.  

5.2. 

Follow up action 

The  Commission,  in  consultation  with  the  Lifelong  Learning  Programme  Committee,  the 
European  network  of  NECs,  the  Advisory  Committee  on  Vocational  Training  and  the  High 
Level Forum on Mobility, and in accordance with available resources, plans to:  

•  cooperate further with guidance, employment and youth services to make Europass more 
useful for and better known to the low-qualified and the unemployed, now inadequately 
represented among the users of the Europass portal and the Europass CV (cf. point on the 
CV below);  

•  develop, with the support of Cedefop, a fully fledged Europass CV and self assessment 

service, including: 

–  a  more  flexible  Europass  CV,  with  options  targeting  different  user  groups,  such  as 
inexperienced  young  people,  the  low-qualified,  mid-career  professionals  or  professional 
researchers,  also  drawing  on  existing  resources  addressing  such.  A  shorter  and  lighter 
version of the CV will also be developed. Compatibility with the CV databases of national 
employment  services  and  recruitment  agencies  will  be  further  pursued,  following  the 
forthcoming  compatibility  with  the  CV  service  of  EURES  (European  Employment 
Services), the European Job Mobility portal; 

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–  self assessment tools to allow people go deeper in identifying and describing their learning 
outcomes  in  terms  of  knowledge,  skills  and  competences.  These  will  include  developing 
further the existing Europass Language Passport, in cooperation the Council of Europe, 
and  developing  new  self-assessment  tools  focusing  on  personal  skills,  namely  those 
acquired through non formal and informal learning, and also on ICT skills; 

–  appropriate  tutorials,  guidelines  and  examples,  to  be  developed  in  cooperation  with  the 
NECs,  the  Euroguidance  network,  the  youth  and  employment  services,  and  the  social 
partners; 

•  generalise by 2010 the use of Europass Mobility under the Lifelong Learning Programme 
so that it is systematically issued to all citizens who have completed mobility actions under 
any of the individual Erasmus, Comenius, Grundtvig and Leonardo da Vinci programmes, 
as is the case for Youthpass in the Youth in Action programme, and promote its use within 
the Marie Curie programme. This will be undertaken in consultation with and require the 
support of the programme national agencies and the NECs; 

•  through the NECs, and in cooperation with the guidance, youth and employment services, 
promote  further  the  use  of  Europass  Mobility  in  mobility  actions  established  at  the 
national or regional level, including as a standard part of higher education exchanges and 
in relation to the mobility of apprentices, as well as within youth and volunteer activities; 

•  encourage  the  coordinated  management,  promotion  and  integration  within  the  Europass 
framework of the Europass Diploma Supplement in cooperation with the relevant actors 
at  the  European  level  (Council  of  Europe,  Unesco-Cepes,  Bologna  process  secretariat, 
ENIC-NARIC networks, university and students' associations) and at the national level (the 
NECs,  programme  national  agencies,  higher  education  institutions,  Bologna  experts, 
ENIC-NARIC  centres,  stakeholders  associations).  The  further  development  of  the 
Europass Diploma Supplement will be examined, in cooperation with the relevant actors, 
in order to record better its holder's learning outcomes; 

•  encourage  the  coordinated  management,  promotion  and  development  of  the  Europass 
Certificate Supplement at the European and national levels, in cooperation with Cedefop, 
the Social Partners and other relevant stakeholders. This will take into account the relevant 
developments  within  the  Copenhagen  process,  for  instance  in  relation  to  occupational 
profiles,  the  European  credit  transfer  system  for  vocational  education  and  training 
(ECVET), as well as the shift towards learning outcomes; 

•  ensure that, by 2012, the templates of all relevant Europass documents include a reference 

to the European Qualifications Framework for lifelong learning. 

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