Proposal for a COUNCIL RECOMMENDATION on the validation of non-formal and informal learning
Date: 2012-09-05
Institutions: European Commission
Subjects: access to education, apprenticeship, continuing education, cooperation in the field of education, job mobility, learning technique, professional qualifications, unemployment

EUROPEAN COMMISSION 

Brussels, 5.9.2012  
COM(2012) 485 final 

2012/0234 (NLE) 

Proposal for a 

COUNCIL RECOMMENDATION 

on the validation of non-formal and informal learning 

{SWD(2012) 252 final} 
{SWD(2012) 253 final} 

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EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

The importance of creating new learning opportunities 

Today's  learning  opportunities  are  limitless,  borderless  and  instantaneous.  Individuals  learn 
and  acquire  new  skills  and  competences  not  only  in  the  traditional  setting  of  the  classroom 
(formal  learning)  but  more  and  more  outside  it.  Important  learning  takes  place  at  work, 
through  participation  in  civil  society  organisations  or  in  the  virtual  space  provided  by  the 
internet  and  mobile  devices,  individually  or  with  peers.  Increasingly  often,  companies  offer 
their workers training opportunities to upgrade their skills through organised, but non-formal, 
learning.  Informal  learning  is  also  becoming  increasingly  important  in  a  global  and 
interconnected world where technology allows individuals to learn in a plethora of different 
ways through for example open educational resources and at a distance. 

Engaging and empowering all learners with learning experiences is essential in order to cope 
with rapid economic and technological changes, more frequent job transitions throughout an 
individuals'  lifetime  and  pushing  individuals  to  acquire  higher  and  more  relevant  skills  to 
increase employability, productivity and economic growth.  

In  today's  situation  of  rising  unemployment  -  particularly  acute  among  young  people  -  and 
lack of economic growth, making use of new learning opportunities outside the formal system 
and of the skills acquired through these is urgent: Europe needs to develop the right mix of 
skills and achieve  a better  match between skills and jobs to  help boost  competitiveness and 
prosperity.  

In  such  context,  education  and  qualification  systems  need  to  give  an  opportunity  to  all 
citizens1 to make visible what they have learnt outside school and to use it for their career or 
further  learning.  This  can  be  achieved  by  a  process  of  validation  of  learning  outcomes 
acquired  through  non-formal  and  informal  learning;  in  this  process  an  authorised  body 
confirms  that  an  individual  has  acquired  learning  outcomes  (knowledge,  skills  and 
competences) measured against a relevant standard.  

Non-formal and informal learning in the Europe 2020 Strategy 

Validation of non-formal and informal learning experiences in the EU Member States makes 
an  essential  contribution  to  EU's  ambition  to  achieving  smart,  sustainable  and  inclusive 
growth  set  by  the  Europe  2020  Strategy.  Its  impact  can  be  significant  in  the  labour  market 
functioning: validation mechanisms allow for more transparency on the skills available in the 
workforce  and  facilitate  a  better  match  between  skills  and  labour  demand,  promote  better 
transferability of skills between companies and sectors and facilitate mobility on the European 
labour  market.  By  easing  occupational  and  geographical  mobility  and  allowing  for  a  better 
skills  match,  validation  can  have  an  important  impact  in  addressing  skills  shortages  in 
growing sectors and support economic recovery,  

In  times  of  an  ageing  population  and  shrinking  workforce,  validation  of  informal  and  non-
formal learning experiences can also help Europe bring those furthest away from the labour 

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This includes EU citizens and all third country nationals legally resident in the European Union.  

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market closer to new learning and work opportunities and tap into all human capital to combat 
unemployment, boost productivity and competitiveness. In particular, validation can support 
young  unemployed  looking  for  their  first  job  or  with  very  little  professional  experience  to 
demonstrate and create a market value for their skills and competences acquired in different 
contexts. 

From  an  individual  perspective,  validation  brings  prospects  of  enhanced  employability, 
increased  wages  and  career  moves,  easier  transferability  of  skills  across  countries,  second 
chances for those who have dropped out from school prematurely, improved access to formal 
education and training, greater motivation to learn and increased self-confidence.  

Altogether  the  validation  of  non-formal  and  informal  learning  experiences  also  contribute 
towards  the  achievement  of  the  Europe  2020  headline  targets  for  early  school  leaving,  the 
proportion of 30-34 year olds having completed tertiary or equivalent education, the overall 
employment  rate  and  poverty  and  social  exclusion,  a  process  that  is  followed  up  during  the 
European Semester.  

Building on Europe's policy agenda 

Validation of non-formal and informal learning has been part of the European policy agenda 
since 2001 when the Commission defined lifelong learning as all learning activity undertaken 
throughout  life,  with  the  aim  of  improving  knowledge,  skills  and  competences  within  a 
personal,  civic,  social  and/or  employment-related  perspective.  Since  the  Copenhagen 
Declaration on enhanced European cooperation in vocational education and training a series 
of  initiatives  have  been  taken  to  develop  European  tools  and  instruments  in  the  area  of 
lifelong learning:  

– 

– 

– 

– 

In 2004 Common European principles on validation were adopted in the form of 
Council Conclusions. 

In 2004 the Europass framework was established, including the Europass CV and a 
portfolio  of  documents  which  citizens  can  use  to  better  communicate  and  present 
their  qualifications  and  competences 
for 
documenting  learning  outcomes  concern  the  Youthpass  for  the  Youth  in  Action 
Programme  and  sectoral  skills  and  qualification  passports  developed  under  the 
European sectoral social dialogue. 

throughout  Europe.  Other 

tools 

A  major  landmark  towards  the  validation  of  non-formal  and  informal  learning  was 
the  adoption  in  2008  by  the  European  Parliament  and  the  Council  of  the 
Recommendation  on  the  European  Qualifications  Framework  (EQF)  for  lifelong 
learning. The EQF is a reference framework of qualification levels defined through 
learning  outcomes.  It  has  resulted  in  an  ongoing  process  under  which  all  Member 
States  are  setting  up  their  National  Qualification  Framework  and  reference  their 
qualifications 
this  process 
qualifications will become more comparable and easier to understand for employers, 
educational establishments, workers and learners. 

the  European  qualification 

levels.  Through 

to 

In  2009  the  Commission  and  Cedefop  published  European  guidelines  for 
validating  non-formal  and  informal  learning  which  provides  policy-makers  and 
practitioners with technical advice on validation. These focus on different validation 
perspectives  (e.g.  individual,  organisational,  national,  European).  The  guidelines 
form a practical tool to be applied on a voluntary basis. 

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– 

Alongside  the  other  tools  credit  systems  based  on  learning  outcomes  facilitate  the 
validation  of  non-formal  and  informal  learning.  For  higher  education  this  concerns 
the  European  Credit  Transfer  and  Accumulation  System  (ECTS),  which  was 
developed under the Bologna process to facilitate mobility between higher education 
institutions.  For  vocational  education  and  training  this  concerns  the  European 
Credit System for Vocational Education and Training (ECVET). 

In  addition  the  Lifelong  Learning  Programme  has,  since  2007,  financed  a  number  of  pilot 
projects  which  have  enabled  the  development  of  validation  processes  and  tools  in  specific 
sectors or contexts, particularly in vocational education and training and adult education. The 
European Social Fund has been used in some countries to develop validation systems. 

Despite  the  existence  of  these  European  policies,  progress  in  validation  has  been  uneven, 
irregular and slow throughout Europe.  

According  to  the  latest  update  of  the  European  Inventory  of  2010  on  the  validation  of  non-
formal and informal learning only four EU Member States have a highly developed validation 
system  while  a  further  seven  have  either  a  national  system  in  its  initial  phase  or  a  well-
established, but partial, system of validation in one or more sectors.  

The need for action now 

This means that the majority of EU Member States do not have a comprehensive validation 
system.  The  countries  with  a  well-developed  system  have  a  mainstreamed  approach  to 
validation  within  their  lifelong-learning  system  (e.g.  legally  anchored),  an  infrastructure 
supportive of validation, strong involvement of stakeholders (in particular social partners) and 
validation that is affordable for applicants. Some countries have recently taken initiatives on 
validation  as  part  of  the  development  of  a  National  Qualification  Framework.  In  other 
countries,  limited  developments  have  taken  place,  reflecting  a  lack  of  national  strategies,  a 
lack of knowledge on how to carry out validation in practice and - in some cases – a lack of 
trust in validation on the part of individuals and employers as well as cultural and attitudinal 
barriers.  

The  uneven  availability  of  national  validation  policies  and  practices,  as  well  as  existing 
disparities between Member States, reduces the comparability and transparency of validation 
systems.  They  make  it  difficult  for  citizens  to  combine  learning  outcomes  acquired  in 
different settings, on different levels and in different countries. They create obstacles for the 
transnational  mobility  of  learners  and  workers  just  when  such  mobility  is  needed  to  create 
more economic growth. 

Given the urgent need to increase mobility of labour reducing shortages of skilled workforce, 
as well as for a better valuing of skills and competences acquired outside formal systems, the 
Commission  has,  in  the  Europe  2020  flagships  "An  agenda  for  New  skills  and  Jobs"2  and 
"Youth  on  the  Move"3  and  its  recent  initiatives  on  the  Single  Market  Act4  and  the 
Employment  Package5,  announced  this  proposal  for  a  Council  Recommendation  on  the 

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4 
5 

COM(2010) 682 final.  
COM(2010) 477 final. 
COM(2011) 206 final. 
COM (2012) 173 final. 

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validation of non-formal and informal learning as a contribution at EU level to accelerate the 
reform agenda. 

EU action on validation, aiming at cooperation and coordination across Member States, can 
facilitate  mobility  of  workers  and  learners  through  a  better  mutual  recognition  of  non-
formally  and  informally  acquired  skills.  By  introducing  more  cooperation  and  stronger 
coordination between Member States, the transparency of validation systems will increase and 
the  mutual  trust  of  Member  States  in  each  other's  validation  systems  will  be  enhanced. 
Especially Member States with low trust levels and weak traditions in validating non-formal 
and informal learning can benefit from this. Mutual trust cannot be achieved as effectively by 
Member States alone without action at EU level. 
Specific  monitoring  for  the  implementation  of  the  Council  Recommendation  is  part  of  the 
legal  aspects  of  this  proposal.  The  Commission  will  also  follow  the  overall  progress  on 
validation of informal and non-formal learning across Member States within the framework of 
overall  structural  reforms  for  education  and  training  monitored  through  the  European 
Semester and the "Education and Training 2020" open method of coordination. 

2. 

RESULTS OF CONSULTATIONS WITH THE INTERESTED PARTIES AND 
IMPACT ASSESSMENTS 

Consultation 

Consultation has taken the following forms: 

– 

– 

– 

– 

An open consultation, through an online survey conducted between December 2010 
and  February  2011.  Invitations  to  participate  in  the  online  survey  and  to  submit  a 
position  paper  were  sent  to  members  of  the  most  relevant  groups  and  other 
stakeholders in the areas of education and training, employment, youth and sport6. 

Discussion  at  meetings  of  policy  bodies,  in  particular  the  European  Qualifications 
Framework Advisory Group;  

Specialist meetings and peer-learning activities organised by the Learning Outcomes 
Group operating under the EQF Advisory Group; 

Peer-learning  activities  in  the  fields  of  higher  education,  vocational  education  and 
training and adult learning. 

The social partners, both employers and trade-union representatives, have been consulted as 
members of the EQF Advisory Group and through their participation in several peer-learning 
activities.  

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Permanent Representations to the EU, the Education Committee, European Qualifications Framework 
Advisory  Group,  Recognition  of  Learning  Outcomes  Group,  Lifelong  Learning  Stakeholder  Forum, 
Advisory  Committee  for  Vocational  Education  and  Training,  European  Credit  System  for  Vocational 
Education  and  Training  User  Group,  Adult  Learning  Working  Group,  Modernisation  of  Higher 
Education Working Group, Bologna Follow-up Group, Europass and Euroguidance centres, European 
Lifelong  Guidance  Policy  network,  Youthpass  Advisory  Board,  National  Academic  Recognition 
Information Centres network, Higher Education Recognition of Prior Learning Network, Expert Group 
on the Mobility of Young Volunteers. 

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The  above  online  survey  resulted  in  469  responses  to  the  closed  and  open  questions, 
complemented  by  24  position  papers.  Responses  were  fairly  evenly  balanced  between 
individuals (53%) and organisations (47%).  

The  results  showed  a  lack  of  overall  coherence  in  the  approaches  towards  validation  within 
and  between  Member  States,  as  well  as  a  large  number  of  constraints  on  the  effective 
implementation of validation in practice. Responses showed overwhelming consensus on the 
importance  of  making  the  skills  gained  through  life  and  work  experience  visible.  They 
showed  broad  support  for  a  European  initiative  in  order  to  enhance  validation  policy  and 
practice in the EU Member States. 

The  consultation  of  the  EQF  Advisory  Group  and  the  various  peer-learning  activities  also 
generated positive support for a European initiative on the validation.  

Impact Assessment 

The impact assessment compared three options for European action in the field of validation 
of  non-formal  and  informal  learning,  namely  (1)  the  baseline  scenario  consisting  of  the 
current  situation  and  its  expected  evolution  without  further  EU  action,  (2)  a  Council 
Recommendation  on  the  implementation  of  validation  of  non-formal  and  informal  learning 
and  (3)  setting  up  a  new  process  based  on  a  new  open  method  of  coordination  devoted  to 
validation so as to develop of a European quality charter on validation. 

The  social,  economic  and  other  impacts  of  the  three  options  considered  were  examined  in 
qualitative terms based on likely impacts, as there are no hard data available.  

Option 2, a Council Recommendation focusing on the implementation of validation, proved to 
be the most effective and efficient option, generating the largest positive economic and social 
impacts.  It  is  the  option  most  consistent  with  EU  policy  objectives.  Under  a  Council 
Recommendation,  Member  States  make  a  formal  commitment  to  action.  It  is  the  most 
powerful available instrument within the area of soft law. Past experience, in particular with 
the  EQF,  has  shown  that  it  has  the  ability  to  generate  peer  pressure  for  action  by  Member 
States.  

Concerning  Option  1  (baseline  scenario)  the  impact  assessment  revealed  that  the  current 
situation  of  validation  is  expected  to  change  only  slowly  in  the  absence  of  further  action, 
implying  that  the  limited  availability  and  use  of  validation  of  non-formal  and  informal 
learning  experiences,  as  well  as  the  lack  of  a  harmonised  approach  on  validation  across 
Europe, would persist.  

Option 3 (a new OMC) would be expected to lead to improvements compared to the baseline 
scenario  regarding  impact  effectiveness,  efficiency  and  coherence  with  wider  EU  policy 
objectives. However, setting up a new OMC would create additional structures and additional 
reporting mechanisms, increasing the administrative burden and costs for the Member States. 
Moreover  it  would  not  provide  sufficient  guarantees  of  the  adoption  of  validation  measures 
within a reasonable timeframe, since its success would rely exclusively on the OMC method.  

The impact assessment also revealed the following advantages of a Council Recommendation 
focusing on implementation, when compared to the other two options: 

– 

It  will  fill  the  validation  gap  which  currently  exists  within  the  available  European 
tools  and  instruments,  such  as  the  EQF,  Europass  and  credit  systems.  It  will  in 
particular remedy a shortcoming of the European Qualifications Framework, which 

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provides  for  the  promotion  of  validation  of  non-formal  and  informal  learning,  but 
gives no further guidance on its implementation;  

It  proposes  concrete  practical  measures  for  the  implementation  of  validation  in  the 
Member States; 

A  Council  Recommendation,  as  a  legal  instrument,  signals  the  commitment  of 
Member States to the measures set out, most of which will require implementation at 
national level and adaptation to the national context;  

involves 

explicitly 

It 
stakeholders 
youth/voluntary  organisations,  education  and 
development of validation systems; 

relevant 

(labour-market 

training 

institutions) 

stakeholders, 
the 
in 

Member  States  will  continue  to  cooperate  within  existing  OMC  structures,  in 
particular the EQF Advisory Group, representing a simpler implementation structure 
than foreseen under Option 3;  

It  will  form  a  new  and  stronger  political  basis  for  cooperation  in  the  field  of 
validation of non-formal and informal learning. 

– 

– 

– 

– 

– 

3. 

LEGAL ELEMENTS OF THE PROPOSAL 

Summary of the proposed actions 

The  proposed  actions  include  practical  recommendations  to  Member  States  to  provide  by 
2015  every  citizen  with  the  opportunity  to  have  his/her  skills  acquired  outside  formal 
education and training systems validated and to use this validation for working and learning 
purposes  throughout  Europe.  On  a  more  concrete  level,  these  actions  entail  the  following 
recommendations to Member States: 

– 

– 

– 

To  ensure  that  by  2015  national  systems  for  the  validation  of  non-formal  and 
informal  learning  have  been  established  providing  the  opportunity  to  all  citizens  to 
have their knowledge, skills and competences validated, irrespective of the contexts 
where the learning took place. This validation provides the basis on which the award 
of  a  full  or  partial  qualification  takes  place,  with  no  prejudice  to  other  applicable 
Union  law,  in  particular  Directive  2005/36/EC  on  the  recognition  of  professional 
qualifications;  

National systems of validation of non-formal and informal learning should focus on 
the following four aspects of validation: the identification of learning outcomes, their 
their 
documentation, 
certification; 

their  assessment  against  agreed  standards  and  finally 

In  the  form  appropriate  to  each  national  context,  to  ensure  that  information  on 
validation  opportunities  is  widely  available  (in  particular  to  disadvantaged  groups), 
that access to validation is affordable for citizens who wish to undertake a validation 
procedure, that appropriate guidance and counselling is available and affordable for 
citizens  who  wish  to  undertake  a  validation  procedure  and  that  transparent  quality-
assurance mechanisms are established and applied to the validation system in relation 

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– 

– 

– 

– 

– 

to both the assessment (methodologies and tools, qualified assessors) and its results 
(agreed standards);  

Provide  individuals  with  the  opportunity  to  undergo  an  audit  of  their  skills  and 
competences  within  three  months  of  an  identified  need  such  as  the  perspective  of 
unemployment  or  insecure  forms  of  employment.  For  this  purpose  the  use  of  the 
current and future Europass tools to facilitate the identification and documentation of 
learning  outcomes  should  be  promoted.  The  links  between  validation  arrangements 
and credit systems such as ECTS and ECVET should be strengthened; 

Involve  social  partners  and  other  relevant  stakeholders,  namely  employer 
organisations,  trade  unions,  chambers  of  commerce,  industry  and  skilled  crafts, 
national entities involved in the process of recognition of professional qualifications, 
employment  services,  youth  organisations,  youth  workers,  education  and  training 
providers as well as civil society organisations in the development of the validation 
mechanisms and in documenting the learning outcomes acquired through non-formal 
and informal learning;  

promote partnerships and other initiatives to facilitate the documentation of learning 
outcomes developed within SMEs and other small organisations; 

Provide incentives to employers, youth organisations and civil society organisations 
to promote and facilitate the identification and documentation of learning outcomes 
acquired at work or in voluntary activities; 

Provide incentives to education and training providers to facilitate access to formal 
education  and  training  and  to  grant  exemptions  on  the  basis  of  learning  outcomes 
acquired  in  non-formal  and  informal  settings  and  ensure  co-ordination  between 
education,  training,  employment  and  youth  implementation  services  as  well  as 
between relevant policies. 

The EQF Advisory Group will be the main body overseeing the actions proposed under this 
recommendation.  The  proposed  measures  also  foresee  reporting  on  the  follow-up  of  the 
actions  in  the  Joint  Commission  and  Council  Report  published  under  the  Education  and 
Training  2020  Strategy.  Finally,  the  annual  Cedefop  report  on  the  development  of  National 
Qualification Frameworks in Europe will assess progress in establishing national systems for 
the validation of non-formal and informal learning. 

The proposed actions call on the Commission to: 1) regularly update the European Guidelines 
for  validating  non-formal  and  informal  learning;  2)  facilitate  effective  peer-learning  and 
exchange of experience and good practice allowing the least developed countries in validation 
to  benefit  from  the  experiences  in  the  most  developed  countries;  3)  in  cooperation  with  the 
Member States, ensure that the European programmes for education, training, and youth and 
the European Structural Funds support the follow-up of this Recommendation and 4) assess 
and  evaluate,  in  cooperation  with  the  Member  States  and  after  consulting  stakeholders,  the 
follow-up of the proposed actions.  

Legal basis 

Articles  165  and  166  of  the  Treaty  on  the  functioning  of  the  European  Union  foresee  the 
Union  to  contribute  to  the  development  of  quality  education  and  to  implement  a  vocational 
training  policy  by  encouraging  co-operation  between  Member  States,  where  necessary 

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supporting  and  supplementing  their  action,  while  fully  respecting  the  responsibility  of  the 
Member  States  for  the  content  of  teaching  and  the  organisation  of  education  systems  and 
vocational training. 

The current initiative recommends common lines of action to be implemented at the level of 
the  Member  States  with  some  European  support.  It  will  propose  actions  that  will  need 
implementation  at  EU  and  Member  State  level.  The  EU  level  will  provide  coordination 
including in particular coordination with the relevant European instruments and support, for 
instance  by  organising  peer-learning  activities.  Member  States  will  remain  entirely 
responsible  for  the  design,  development  and  implementation  of  their  arrangements  (laws, 
regulations, collective agreements) for the validation of non-formally and informally acquired 
learning  outcomes.  Action  at  the  two  levels  is  complementary  and  the  prerogatives  of 
Member States are safeguarded. 

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2012/0234 (NLE) 

Proposal for a 

COUNCIL RECOMMENDATION 

on the validation of non-formal and informal learning 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Articles 165 and 166 thereof, 

Having regard to the proposal from the European Commission, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

Validation  of  learning  outcomes  (knowledge,  skills  and  competences)  acquired 
through  non-formal  and  informal  learning,  including  through  open  educational 
resources,  is  essential  for  citizens'  access  to  the  labour-  market  and  to  lifelong-
learning.  

At  a  time  when  the  European  Union  is  confronted  with  a  serious  economic  crisis 
causing  a  surge  in  unemployment,  validation  of  all  relevant  knowledge,  skills  and 
competences, no matter how they have been acquired, is more relevant than ever for 
the functioning of the labour market and for enhancing competitiveness and economic 
growth. . 

Employer  organisations,  individual  employers,  trade  unions,  chambers  of  industry, 
commerce and skilled crafts, national entities involved in the process of recognition of 
professional qualifications, employment services, youth organisations, youth workers, 
education  and  training  providers  as  well  as  civil  society  organisations  are  key 
stakeholders  in  the  supply  of  non-formal  and  informal  learning  opportunities  and  in 
any validation processes thereafter.  

The Europe 2020 Strategy for smart, sustainable and inclusive growth 20107 calls for 
the  development  of  skills  and  competences  for  achieving  economic  growth  and 
employment;  the  Flagship  initiatives  thereof8  emphasise  the  need  for  more  flexible 
learning  pathways  that  can  facilitate  transitions  between  the  phases  of  work  and 
learning  and  that  should  also  allow  for  the  validation  of  non-formal  and  informal 
learning. 

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8 

COM(2010) 2020 final. 
Youth on the Move, COM(2010) 477 final, The Agenda for new Skills and Jobs, COM(2010) 682 final. 

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(5) 

(6) 

(7) 

(8) 

(9) 

The  Council  Conclusions  of  12  May  2009  on  a  strategic  framework  for  European 
cooperation  in  education  and  training  (ET  2020)9  noted  that  lifelong-learning  should 
be designed to cover learning in all contexts whether formal, non-formal or informal. 

The 'EU Strategy for Youth – Investing and Empowering; a renewed open method of 
coordination to address youth challenges and opportunities' of  200910 calls  for  better 
recognition  of  skills  acquired  through  non-formal  education  for  young  people;  it 
stressed the need for full use to be made of the range of tools established at EU level 
for the validation of skills and the recognition of qualifications. It was endorsed by the 
Council  Resolution  of  27  November  2009  on  a  renewed  framework  for  European 
cooperation in the youth field (2010-2018)11. 

In  the  Bruges  Communiqué  of  December  201012,  the  European  Ministers  for 
Vocational  Education  and  Training,  the  European  Social  Partners  and  the  European 
Commission declared that participating countries should start to develop, no later than 
2015,  national  procedures  for  the  recognition  and  validation  of  non-formal  and 
informal learning, supported as appropriate by National Qualifications Frameworks. 

The  Council  Conclusions  on  the  modernisation  of  higher  education  of  28  and  29 
November  2011  called  upon  Member  States  to  develop  clear  routes  into  higher 
education  from  vocational  and  other  types  of  education,  as  well  as  mechanisms  for 
recognising  prior  learning  and  experience  gained  outside  formal  education  and 
training,  especially  by  tackling  challenges  related  to  the  implementation  and  use  of 
national qualification frameworks linked to the European Qualification Framework13. 

The  Council  Resolution  of  20  December  2011  on  a  renewed  European  agenda  for 
adult learning defined as one of its priority areas for the period 2012-14 the putting in 
place of fully functional systems for validating non-formal and informal learning and 
promoting their use by adults of all ages and at all qualification levels, as well as by 
enterprises and other organisations14.  

(10)  The  Commission  underlined  in  the  Single  Market  Act15  that  increased  mobility  of 
skilled labour will make the European economy become more competitive and in the 
Employment  package  of  17th  April  201216  the  need  to  improve  the  cooperation 
between the world of work and the world of training. 

(11)  The  Council  Resolution  on  the  promotion  of  enhanced  European  cooperation  in 
vocational  education  and  training  of  12  November  200217  and  the  Copenhagen 

9 
10 
11 
12 
13 
14 
15 
16 
17 

OJ C 119, 28.5.2009, p.2. 
COM(2009) 200 final. 
OJ C 311, 19.12.2009, p.1. 
http://ec.europa.eu/education/lifelong-learning-policy/doc/vocational/bruges_en.pdf. 
OJ C 372, of 20.12.2011, p.36. 
OJ C 372, of 20.12.2011, p.1. 
COM(2011) 206 final. 
COM (2012) 173 final. 
OJ C 13, 18.1.2003 

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Declaration  of  30  November  200218  requested  the  development  of  a  set  of  common 
principles regarding the validation of non-formal and informal learning. 

(12)  The  Council  Conclusions  of  18  May  2004  adopted  common  European  principles  on 

the validation of non-formal and informal learning19. 

(13)  A  European  Inventory  on  the  validation  of  non-formal  and  informal  learning 
containing  up-to-date  information  on  current  validation  practices  in  European 
countries  has  been  regularly  published  since  200420  and  European  Guidelines  for 
validating non-formal and informal learning were published in 200921.  

(14)  The  Recommendation  of  the  European  Parliament  and  the  Council  on  the 
establishment  of  the  European  Qualifications  Framework  for  lifelong-learning  of  23 
April  200822  stated  that  all  qualifications  should  be  attainable  through  formal,  non-
formal  and  informal  learning;  it  also  invited  Member  States  to  relate  their  national 
qualifications levels to the European Qualifications Framework and where appropriate, 
to develop National Qualifications Frameworks which promote the validation of non-
formal and informal learning. 

(15)  The  Decision  of  the  European  Parliament  and  the  Council  of  15  December  200423 
established  Europass,  a  European  portfolio  which  citizens  can  use  to  better 
communicate,  record  and  present  their  competences  and  qualifications  throughout 
Europe. 

(16)  The  European  Credit  Transfer  and  Accumulation  System  (ECTS)  established  under 
the  Bologna  process  awards  credits  for  formal  learning  based  on  learning  outcomes 
and student workload, and also facilitates the award by higher-education institutions of 
credits based on learning outcomes for non-formal and informal learning experiences.  

(17)  The Recommendation of the European Parliament and of the Council of 18 June 2009 
established  a  European  Credit  System  for  Vocational  Education  and  Training 
(ECVET)24,  to  be  used  for  the  transfer,  recognition  and  accumulation  of  individuals′ 
learning  outcomes  achieved  in  formal  and,  where  appropriate,  non-formal  and 
informal contexts. 

(18)  Consultations in the form of an online survey25, discussions in relevant policy bodies 
as  well  as  a  variety  of  peer-learning  activities  with  the  participation  of  the  social 
partners,  showed  overwhelming  consensus  on  the  importance  of  making  visible  the 
skills  gained  through  life  and  work  experience  and  showed  broad  support  for  a 

18 

19 
20 

21 
22 
23 
24 
25 

Declaration  of  the  European  Ministers  of  Vocational  Education  and  Training,  and  the  European 
Commission,  convened  in  Copenhagen  on  29  and  30  November  2002,  on  enhanced  European 
cooperation in vocational education and training, http://ec.europa.eu/education/pdf/doc125_en.pdf. 
http://ec.europa.eu/education/lifelong-learning-policy/doc/informal/validation2004_en.pdf. 
http://www.cedefop.europa.eu/EN/about-cedefop/projects/validation-of-non-formal-and-informal-
learning/index.aspx. 
Cedefop, 2009, http://www.cedefop.europa.eu/EN/Files/4054_en.pdf. 
OJ C 111, 6.5.2008, p.1. 
OJ L 390, 31.12.2004, p.6. 
OJ C 155, 8.7.2009, p. 11. 
http://ec.europa.eu/dgs/education_culture/consult/vnfil/report_en.pdf. 

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European  initiative  to  enhance  validation  policy  and  practice  in  the  EU  Member 
States, 

HAS ADOPTED THIS RECOMMENDATION: 

1. 

Member  States  should,  with  a  view  to  offering  to  all  citizens26  the  opportunity  to 
prove what they have learned outside school and to use it for their career and further 
learning: 

(1)  Ensure,  by  2015,  that  a  national  system  of  validation  of  non-formal  and 
informal learning27 is established providing the opportunity for citizens to  

i) 

ii) 

have  their  skills,  knowledge  and  competences  acquired  through  non-
formal  and  informal  learning,  including  via  open  educational  resources, 
validated, and  

obtain a full or partial qualification on the basis of validated non-formal 
and informal learning experiences, with no prejudice to other applicable 
Union  law,  in  particular  Directive  2005/36/EC28  on  the  recognition  of 
professional qualifications;  

(2)  Ensure  that  the  national  system  of  validation  of  non-formal  and  informal 

learning includes the following elements:  

– 

– 

– 

– 

Support  to  citizens  in  the  identification  of  their  learning  outcomes 
acquired through non-formal and informal learning; 

Assistance  to  citizens  in  documenting  their  learning  outcomes  acquired 
through non-formal and informal learning; 

Assessment  of  an  individual's  learning  outcomes  acquired  through  non-
formal and informal learning; 

Certification  of  the  results  of  the  assessment  of  learning  outcomes 
acquired  through  non-formal  and  informal  learning  in  the  form  of  a 
qualification,  as  credits  leading  to  a  qualification  or  as  otherwise 
appropriate. 

It should be ensured that every citizen can take advantage of any of the 
aforementioned opportunities separately or in combination, according to 
their needs. 

(3)  Ensure that national systems of validation of non-formal and informal learning, 
while  taking  into  consideration  national,  regional  and/or  local  as  well  as 
sectoral needs, respect the following principles: 

26 
27 
28 

EU citizens as well as third country national legally resident in the Union.  
Terms as defined in Annex I. 
OJ L 255, 30.9.2005, p.22. 

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– 

– 

– 

– 

– 

– 

– 

– 

– 

– 

– 

The  validation  system  is  a  coherent  and  integral  part  of  the  national 
the  European 
qualifications 
Qualifications Framework; 

framework  developed 

line  with 

in 

Information on validation opportunities is widely available to individuals 
and organisations; 

Disadvantaged groups, including those citizens most likely to be subject 
to  unemployment  or  insecure  forms  of  employment,  are  specifically 
targeted by the validation system as it can increase their participation in 
lifelong learning and their access to the labour market; 

Individuals,  in  situations  of  unemployment  or  insecure  forms  of 
employment,  are  provided  with  the  opportunity  to  undergo  an  audit  of 
their skills and competences within three months of an identified need;  

Access  to  validation  is  affordable  for  citizens  who  wish  to  undertake  a 
validation procedure; 

Appropriate  guidance  and  counselling  is  available  and  affordable  for 
individuals who wish to undertake a validation procedure;  

Transparent quality assurance measures are in place that support reliable, 
valid and credible assessment methodologies and tools;  

Development  of  the  professional  competence  of  staff  involved  in  the 
validation process across all relevant sectors is ensured; 

The qualifications obtained by means of the validation of non-formal and 
informal learning experiences respect agreed standards that are the same 
or  equivalent  to  the  standards  of  qualifications  obtained  through  formal 
education programmes; 

The  use  of  the  current  and  future  tools  of  the  Europass  framework  to 
facilitate the documentation of learning outcomes is promoted; 

Synergies  exists  between  validation  arrangements  and  credit  systems 
applicable  in  the  formal  education  and  training  system,  e.g.  ECTS  and 
ECVET;  

in 

(4)  Ensure  the  involvement  of  relevant  stakeholders  such  as  employers,  trade 
unions,  chambers  of  industry,  commerce  and  skilled  crafts,  national  entities 
the  process  of  recognition  of  professional  qualifications, 
involved 
employment  services,  youth  organisations,  youth  workers,  education  and 
training providers as well as civil society organisations, in the development and 
implementation of the components and mechanisms referred to in points 2 and 
3, together with providing incentives: 

– 

to  employers,  youth  organisations  and  civil  society  organisations  to 
promote  and  facilitate  the  identification  and  documentation  of  learning 
outcomes acquired at work or in voluntary activities, using relevant tools 
(in particular the tools developed under the Europass framework);  

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– 

to  education  and  training  providers  to  facilitate  access  to  formal 
education and training on the basis of learning outcomes acquired in non-
formal  and  informal  settings  and,  if  appropriate,  award  exemptions 
and/or credits for relevant learning outcomes acquired in non-formal and 
informal settings; 

(5)  Ensure  coordination  between  education,  training,  employment  and  youth 

implementation services as well as between relevant policies. 

2. 

Member States and the Commission should take the following measures: 

(1)  Ensure  the  follow  up  of  this  Recommendation  by  the  EQF  Advisory  Group29 
and  ensure  the  involvement  in  subsequent  EQF  Advisory  Group  activities,  of 
relevant youth organisations and representatives of the voluntary sector; 

(2)  Report on the progress made following the adoption of this Recommendation 
in  the  next  Joint  Report  by  the  Commission  and  the  Council  published  under 
the Education and Training 2020 Strategy in 2015 and in the subsequent Joint 
Reports;  

(3)  Support the implementation of this Recommendation by using the expertise of 
Union Agencies, in particular Cedefop, through reporting on the establishment 
of the national system of validation of non-formal and informal learning in the 
annual  report  on  the  development  of  National  Qualification  Frameworks  and 
through  supporting  the  Commission  in  regularly  updating  the  European 
Inventory on validation of non-formal and informal learning. 

3. 

The Commission should: 

(1)  Support Member States and stakeholders by:  

– 

– 

Facilitating  effective  peer-learning  and  exchange  of  experiences  and 
good practices; 

Regularly  updating  the  European  Guidelines  for  validating  non-formal 
and informal learning summarised in Annex II; 

(2)  Further  develop  instruments  under  the  Europass  Framework  which  facilitate 
the  transparency  and  recognition  across  the  Union  of  validated  learning 
outcomes acquired through non-formal and informal learning experiences;  

(3)  Ensure that in cooperation with the Member States, the Lifelong-Learning and 
Youth  in  Action  Programmes,  the  future  European  programme  for  education, 
training,  youth  and  sports  and  the  European  Structural  Funds  support  the 
implementation of this Recommendation; 

(4)  Assess  and  evaluate,  in  cooperation  with  the  Member  States  and  after 
consulting  the  stakeholders  concerned,  the  action  taken  in  response  to  this 

29 

Set up by the 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 111/1, of 6.5.2012, 
p.1. 

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Recommendation, and report to the Council by 31 July 2017on the experience 
gained  and  implications  for  the  future,  including  if  necessary  the  possible 
review and revision of this Recommendation.  

Done at Brussels,  

For the Council 
The President 

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ANNEX I  
DEFINITIONS 

For the purposes of this recommendation, the following definitions shall apply: 

(a) 

(b) 

(c) 

(d) 

(e) 

(f) 

(g) 

Formal learning takes place in an organised and structured environment, specifically 
dedicated to learning, and typically leads to the award of a qualification, usually in 
the form of a certificate or a diploma. This includes the systems of general education, 
initial vocational training and higher education. 

Non-formal learning concerns learning that takes place through planned activities (in 
terms of learning objectives, learning time) where some form of learning support is 
present  (e.g.  student-teacher  relationships).  It  may  cover  programmes  to  impart 
work-skills, adult literacy and basic education for early school leavers. Very common 
cases of non-formal learning include in-company training, through which companies 
update and improve the skills of their workers such as ICT skills, structured online 
learning (e.g. by making use of open educational resources), and courses organised 
by  civil  society  organisations  for  their  members,  their  target  group  or  the  general 
public.  

Informal learning is learning resulting from daily activities related to work, family or 
leisure.  It  is  not  organised  or  structured  in  terms  of  objectives,  time  or  learning 
support.  Informal  learning  may  be  unintentional  from  the  learner’s  perspective. 
Examples  of  learning  outcomes  acquired  through  informal  learning  are  skills 
acquired through life and work experiences. Examples are project management skills 
or  ICT  skills  acquired  at  work;  languages  learned  and  intercultural  skills  acquired 
during  a  stay  in  another  country;  ICT  skills  acquired  outside  work,  skills  acquired 
through volunteering, cultural activities, sports, youth work and through activities at 
home (e.g. taking care of a child).  

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.  

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 competences.  

A national qualification framework is a coherent and comprehensive description of 
qualification levels based on learning outcomes.  

Validation is a process of confirmation by an authorised body that an individual has 
acquired learning outcomes measured against a relevant standard. It consists of four 
distinct  phases:  (1)  identification  through  dialogue  of  particular  experiences  of  an 
individual, (2) documentation – to make visible the individual's experiences – (3) a 
formal assessment of these experiences and (4) recognition leading to a certification 
for example a partial or full qualification. 

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ANNEX II: 
 Summary of the guidelines for validating non-formal and informal learning 

Effective practice: the European Perspective 

The  practice  of  validating  informal  and  non-formal  learning  should  be  compatible  with  the 
main elements in the 2004 European principles for the validation of non-formal and informal 
learning,  the  European  principles  for  quality  assurance  of  education  and  training,  and  the 
recommendation for a European quality assurance reference framework for VET.  

European  cooperation  in  validation  should  be  further  developed,  in  particular  by  regularly 
updating  and  improving  these  guidelines  and  the  European  inventory  on  validation  of  non-
formal and informal learning.  

European  level  tools  and  frameworks  (European  qualifications  framework,  Europass, 
European  credit  systems,  etc.)  could  be  used  to  promote  validation  and  to  improve 
comparability  and  transparency  of  the  outcomes  of  validation  processes  and  so  build  trust 
across national boundaries. 

Effective practice: the national perspective 

Validation  of  non-formal  and  informal  learning  should  be  seen  as  an  integral  part  of  the 
national qualifications system. 

The formative approach to assessment is important as it draws attention to the ‘identification’ 
of knowledge, skills and wider competences, a crucial part lifelong learning. 

Summative validation needs to have a clearly defined and unambiguous link to the standards 
used in the national qualifications system (or framework). 

The  entitlement  to  validation  could  be  considered  in  cases  where  non-formal  and  informal 
learning is seen as a normal route to a qualification, parallel to formal education and training. 

The  development  of  national  qualifications  frameworks  could  be  used  as  an  opportunity  to 
integrate validation systematically into qualifications systems. 

The introduction of validation as an integral part of a national qualifications framework could 
be linked to the need to improve access to, progression within and transfer of qualifications. 

The  sustainability  and  coherence  of  national  systems  of  validation  should  be  supported  by 
regular cost-benefit analysis. 

Effective practice: the organisational perspective 

Formal education, enterprises, adult education providers and voluntary organisations are key 
stakeholders in providing opportunities to validate non-formal and informal learning. 

Validating non-formal and informal learning poses challenges to formal education in terms of 
the  range  of  learning  that  can  be  validated  and  how  this  process  can  be  integrated  into  the 
formal curriculum and its assessment. 

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There are major advantages for enterprises in setting up systems to document the knowledge, 
skills and competences of employees. Enterprises need to balance their legitimate interests as 
employers with the legitimate interests of individual employees. 

The adult education sector is a major contributor to non-formal and informal learning and its 
further  development  should  be  supported  by  systematic  development  of  formative  and 
summative validation. 

The third (or voluntary) sector offers a wide range of personalised learning opportunities that 
are highly valued in other settings. Validation should be used to make visible and value the 
outcomes of this learning, as well as assist their transfer to other settings. 

The functions of the different bodies  involved in validation require  coordination through  an 
institutional framework. 

The  institutional  route  to  validation  and  certification  should  not  lead  to  certificates  that  are 
seen as of different status on the basis of the route taken to achieve them. 

Effective practice: the individual 

The centre of the validation process is the individual. The activities of other agencies involved 
in validation should be considered in the light of their impact on the individual. 

Everyone should have access to validation and the emphasis on motivation to engage in the 
process is particularly important. 

The  multiple  stage  process  of  validation  offers  individuals  many  opportunities  for  deciding 
about  the  future  direction  of  their  validation.  Decision-making  should  be  supported  by 
information, advice and guidance. 

Effective practice: validation process structure 

The  three  processes  of  orientation,  assessment  and  external  audit  can  be  used  to  evaluate 
existing validation procedures and support the development of new validation procedures. 

Effective practice: the methods 

Methods of validating non-formal and informal learning are essentially the same tools that are 
used in assessing formal learning. 

When  used  for  validation,  tools  have  to  be  adopted,  combined  and  applied  in  a  way  which 
reflects the individual specificity and non-standardised character of non-formal and informal 
learning. 

Tools for assessment of learning need to be fit-for-purpose. 

Effective practice: validation practitioners 

Effective  operation  of  validation  processes  depends  fundamentally  on  professional  input  by 
counsellors, assessors and validation process administrators. The preparation and continuous 
training of these people is critically important. 

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Networking  that  enables  experience  sharing  and  the  full  functioning  of  a  community  of 
practice should be a part of a development programme for practitioners. 

Interaction  between  practitioners  in  a  single  validation  process  is  likely  to  lead  to  more 
efficient and effective practices that support individuals seeking validation.  

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