Proposal for a COUNCIL RECOMMENDATION on a European Framework for Quality and Effective Apprenticeships
Date: 2017-10-05
Institutions: Directorate-General for Employment, Social Affairs and Inclusion, European Commission
Subjects: apprenticeship, cooperation in the field of education, integration into employment, job access, professional qualifications, school-working life relations, traineeship, vocational education, young person, youth employment

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   EUROPEAN COMMISSION  Brussels, 5.10.2017  COM(2017) 563 final 2017/0244 (NLE)   Proposal for a COUNCIL RECOMMENDATION on a European Framework for Quality and Effective Apprenticeships  {SWD(2017) 322 final}  
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

The  proposal  for  a  European  Framework  for  Quality  and  Effective  Apprenticeships 
contributes to the EU's priority on jobs, growth and investment. It follows up to the 2016 New 
Skills  Agenda  for  Europe  and  its  ambition  to  improve  the  quality  and  relevance  of  skills 
formation  and  the  2016  Communication  on  Investing  in  Europe’s  Youth,  calling  for  a 
renewed  effort  to  support  young  people  acquire  the  knowledge,  skills  and  experiences  that 
will prepare them for their first job, pursue a successful professional career and become active 
citizens.  

Apprenticeships  are  a  particularly  effective  form  of  work-based  learning  in  vocational 
education and training that eases the transition from education and training into work. They 
provide the skills that employers need, and enhance the competitiveness and productivity of 
companies  and  workplaces.  While  most  apprentices  are  young  learners,  apprenticeships  are 
also  increasingly  offered  to  older  workers  to  gain  a  qualification  that  increases  their 
employability and opportunities for career development.  

Due  to  their  proven  effectiveness  in  easing  people's  access  to  the  labour  market,  and 
improving their career chances, apprenticeships are a policy priority in the EU, while youth 
unemployment  (16.9%  in  July  2017)  in  the  EU  remains  more  than  double  the  overall 
unemployment rate (7.7% in July 2017).  

Evidence  from  Cedefop  and  the  European  Semester process  show  that most  Member  States 
are  pursuing  significant  apprenticeship  reforms,  and  there  is  a  strong  push  to  boost 
apprenticeship supply.  

The positive effects of apprenticeships on labour market conditions and youth employability 
depend  on  their  quality.  Apprenticeship  schemes  are  widespread,  but  organised  very 
differently, across the EU. The OECD has emphasised that high-quality standards are needed 
to avoid that apprenticeships are geared towards low-skilled jobs. Even a small proportion of 
low-quality offers can damage their overall reputation.1  

This Recommendation builds on the latest evidence in the area, and provides orientation on 
how to put in place apprenticeship schemes that work and deliver results for both apprentices 
and employers. 

Moreover, the mutual trust generated by commonly agreed criteria can have a positive impact 
on the mobility of apprentices. 

This  Recommendation  complements  the  Union  initiatives  facilitating  young  people's 
transition to employment, notably the Council Recommendation on a Quality Framework for 
Traineeships. 

The  overall  objective  is  to  increase  the  employability  and  personal  development  of 
apprentices and to contribute to the development of a highly skilled and qualified workforce, 
responsive to labour market needs. 

The  specific  objective  is  to  provide  a  coherent  framework  for  apprenticeships  based  on  a 
common  understanding  of  what  defines  quality  and  effectiveness,  taking  into  account  the 
diversity of vocational education and training (VET) systems in Member States.  

1 

OECD (2017), Striking the right balance - Costs and benefits of apprenticeship 

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It will support apprenticeship reforms in Member States, in order to underpin the quality and 
effectiveness of apprenticeships.  

• 

Scope of the proposal 

The Recommendation encourages Member States to apply a comprehensive and coherent set 
of criteria for quality and effective apprenticeships. For the purpose of this Recommendation 
apprenticeships are understood as follows: 

formal  vocational  education  and  training  schemes  that  combine  substantial  work-based 
learning  in  companies  and  other  workplaces  with  learning  based  in  education  or  training 
institutions,  that  lead  to  nationally  recognised  qualifications.  These  are  characterised  by  a 
contractual  relationship  between  the  apprentice,  the  employer  and/or  the  vocational 
education and training institution, with the apprentice being paid or compensated for her/his 
work.  

This definition is broad enough to cover the various forms of apprenticeship schemes existing 
across  Member  States  and  has  been  developed  and  used  in  the  context  of  the  European 
Alliance for Apprenticeships. 

The political context  

• 
Through  the  Rome  Declaration2  of  25  March  2017  the  European  leaders  pledged  to  work 
towards a "Union where young people receive the best education and training and can study 
and find jobs across the continent". Quality and effective apprenticeships are an essential part 
of  this  pledge  as  they  provide  young  people  with  skills  that  provide  access  to  the  labour 
market.  
The European Pillar of Social Rights3, presented on 26 April 2017, sets out 20 key principles 
and rights to support fair and well-functioning labour markets and welfare systems. These are 
structured  around  three  categories,  all  of  which  are  relevant  for  providing  quality  and 
effective  apprenticeships:  1)  equal  opportunities  and  access  to  the  labour  market;  2)  fair 
working conditions; 3) social protection and inclusion. The first principle is that everyone has 
the right to quality and inclusive education, training and life-long learning in order to maintain 
and  acquire  skills  that  enable  them  to  participate  fully  in  society  and  successfully  manage 
transitions in the labour market.  

Apprenticeships on the political agenda  

• 
In June 2016, the New Skills Agenda for Europe4 underlined that business and social partners 
should  be  involved  in  designing  and  delivering  work-based  VET  and  apprenticeships.  The 
Commission declared its intention to support opportunities for more work-based learning, to 
develop  a  set  of  support  services  for  knowledge  sharing,  networking  and  cooperation  on 
apprenticeships,  and  to  support  social  partners'  in  taking  forward  their  joint  work  with  a 
possible  Quality  Framework  for  Apprenticeships.  This  commitment  was  confirmed  in  the 
December  2016  Communication  on  Investing  in  Europe's  Youth  outlining  the  intention  to 
present  an  initiative  to  advance  the  quality,  supply,  attractiveness  and  inclusiveness  of 
apprenticeships.5  

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http://www.consilium.europa.eu/en/press/press-releases/2017/03/25-rome-declaration/  
COM (2017) 250 final and C (2017) 2600 final 
COM (2016) 381 final 
COM(2016) 940 final 

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The  New  Skills  Agenda  built  on  past  initiatives  like  the  European  Alliance  for 
Apprenticeships  (EAfA)  that  was  launched  in  2013  with  the  aim  to  strengthen  the  quality, 
supply  and  image  of  apprenticeships,  and  (more  recently)  the  mobility  of  apprentices.  27 
Member  States6  have  joined  the  EAfA  by  making  national  commitments,  and  over  200 
pledges  have  been  made  by  companies,  social  partners,  vocational  education  and  training 
providers  and  other  stakeholders.  Over  700,000  apprenticeships,  traineeships  and  first  jobs 
offers have been mobilised through these pledges.  
The  Council  Recommendation  of  22  April  2013  on  establishing  a  Youth  Guarantee7 
recommends  that  Member  States  ensure  that  all  young  people  under  the  age  of  25  years 
receive  a  good-quality  offer  of  employment,  continued  education,  an  apprenticeship  or  a 
traineeship within four months of becoming unemployed or leaving formal education. By late 
2016, approximately 390,000 apprenticeships had been offered under the Youth Guarantee.  

The  European  Court  of  Auditors  has  called  for  the  establishment  of  quality  attributes  for 
apprenticeships  to  be  supported  from  the  Union  budget8,  and  the  European  Parliament9  has 
called  for  measures  to  ensure  that  quality  standards  are  introduced  for  apprenticeships.  A 
recent  study  from  the  Parliament  addresses  the need  to  clarify  the  issues  of  an  employment 
contract and remuneration in apprenticeships10.  

In  2015,  European  governments  and  social  partners  agreed  on  the  Riga  conclusions  for 
medium-term deliverables (2015-2020) in vocational education and training. One priority is to 
"Promote  work-based  learning  in  all  its  forms,  with  special  attention  to  apprenticeships,  by 
involving social partners, companies, chambers and VET providers, as well as by stimulating 
innovation and entrepreneurship." 

As of May 2018, Member States will publish vacancies for apprenticeships based on a work 
contract  in  EURES11.  Improved  transparency  will  make  it  easier  to  match  candidates  with 
offers  available  in  other  countries.  It  will  also  encourage  cooperation  on  apprenticeship 
mobility provided by Erasmus+ and beyond. 

• 

Existing work on quality and effectiveness 

Under the umbrella of the EAfA, important efforts have been made to strengthen evidence on 
the  issues  of  quality  and  effectiveness  of  apprenticeships.  On  15  October  2013,  Member 
States  adopted  a  Council  Declaration  on  the  European  Alliance  for  Apprenticeships.  It 
outlined  common  guiding  principles 
the  effectiveness  and  attractiveness  of 
apprenticeships, to be encouraged and followed where appropriate and according to national 
circumstances.  

for 

Within  the  Strategic  Framework  -  Education  and  Training  (ET2020)  a  Working  Group  on 
Vocational  education  and  training  (2014-2015)  comprising  representatives  from  Member 
States,  social  partners  and  VET  providers  developed  20  guiding  principles  for  high-
performance apprenticeships and work-based learning, focussing on four topics: 1) National 

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All the EU Member States apart from the United Kingdom. Also, all 5 Candidate countries and 3 EFTA 
countries (Iceland, Norway, Switzerland) have made national commitments.  
JO, 2013/C 120/01 
European  Court  of  Auditors,  Special  report  no  3/2015:  EU  Youth  Guarantee:  first  steps  taken  but 
implementation risks ahead 
European  Parliament,  Report  on  Erasmus+  and  other  tools  to  foster  mobility  in  VET  –  a  lifelong 
learning approach, (2015/2257(INI)) 
European  Parliament,  Skills  development  and  employment:  Apprenticeships, 
volunteering, Study for the Employment and Social Affairs Committee, 2017 
Regulation (EU) 2016/589 

internships  and 

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governance and social partners' involvement; 2) Support for companies, in particular SMEs, 
offering apprenticeships; 3) Attractiveness of apprenticeships and improved career guidance; 
4) Quality assurance in work-based learning.  

With  financial  support  from  the  Commission,  the  cross-industry  European  social  partners 
worked on the quality (ETUC) and cost-effectiveness (led by BusinessEurope on behalf of the 
EU cross-industry employers' organisations) of apprenticeships. They agreed in June 2016 on 
the joint statement Towards a Shared Vision of Apprenticeships.  

Initiated  by  ETUC  and  BusinessEurope,  the  tripartite  Advisory  Committee  on  Vocational 
Training (ACVT) - bringing together governmental and social partner representatives from all 
Member States - adopted in December 2016 an Opinion on A Shared Vision for Quality and 
Effective  Apprenticeships  and  Work-based  Learning  that  lists  16  elements  to  be  considered 
when setting up apprenticeships schemes. 

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

To  the  extent  that  apprenticeships  are  underpinned  by  a  work  contract,  apprentices  are  by 
default  both  VET  learners  and  workers.  Therefore,  the  legal  basis  for  this  initiative  lies  in 
Articles 153, 166 and 292 TFEU.  

According  to  Article  166  TFEU,  the  Union  shall  implement  a  vocational  training  policy 
which shall support and supplement the action of the Member States, while fully respecting 
the  responsibility  of  the  Member  States  for  the  content  and  organisation  of  vocational 
training. 

According  to  Article  153  TFEU,  the  Union  shall  support  and  complement  Member  States' 
activities in the field of, inter alia, working conditions, social security and social protection of 
workers (apprentices with a work contract are considered as workers), and also the integration 
of persons excluded from the labour market and the combating of social exclusion.  

According  to  Article  292  TFEU,  the  Council  can  adopt  recommendations  on  the  basis  of  a 
Commission proposal in the areas of EU competence. 

• 

Subsidiarity (for non-exclusive competence)  

In its work towards the development of quality education and training and the implementation 
of  a  vocational training policy,  the EU  is  responsible  for  encouraging co-operation  between 
Member States,  supporting and supplementing  their  action where  necessary. In this context, 
establishing  a  common  understanding  of  what  constitutes  quality  and  effective 
apprenticeships  across  the  European  Union  is  a  task  that  can  only  be  addressed  at  the 
European level.  

A  European  Framework  for  Quality  and  Effective  Apprenticeships  will  support  and 
supplement national action in this area in line with Articles 166 TFEU and 153 TFEU. This 
initiative  applies  the  subsidiarity  principle,  by  fully  taking  into  account  that  education  and 
training  systems,  as  well  as  functioning  of  the  labour  market  and  working  conditions,  are  a 
national  competence.  The  initiative  fully  respects  the  diversity  of  national  apprenticeship 
systems,  while  proposing  a  set  of  common  criteria  to  underpin  those  different  schemes, 
ensuring  benefits  for  both  the  learner  and  the  companies  providing  apprenticeship 
opportunities. 

The  initiative  will  improve  the  transparency  and  mutual  understanding  of  apprenticeship 
systems and in particular the quality and effectiveness of apprenticeships across the EU. This 

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may  also  have  a  positive  impact  on  cross  border  mobility  of  apprenticeship  graduates  as  a 
coordinated  approach  at  EU  level  would  ensure  synergies  and  cooperation,  maximising 
positive spill-overs. 

Moreover,  offering  guidelines  at  EU  level  contributes  to  creating  a  shared  understanding  of 
how  the  quality  of  apprenticeships  can  be  improved.  This  may  also  help  Member  States  in 
their  use  of  the  European  Structural  and  Investment  Funds,  in  particular  of  the  European 
Social  Fund,  and  when  implementing  the  Youth  Employment  Initiative,  addressing 
unemployment, and in particular youth unemployment and inactivity. 

• 

Proportionality 

The actions proposed under the Recommendation are proportional to the pursued objectives. 
The proposal for a Council Recommendation will support the reform processes launched by 
individual countries  on apprenticeships,  and  will  complement  Member States'  efforts  in  this 
area  in  the  context  of  the  European  Semester  framework  of  Economic  Governance.  The 
proposed  action  respects  Member  States’  practices  and  the  diversity  of  systems.  It 
accommodates  for  a  differentiated  approach  reflecting  Member  States'  different  economic, 
financial  and  social  situations  and  the  diverse  labour  market  conditions.  Using  existing 
monitoring  mechanisms  under  the  European  Semester  will  ensure  that  no  additional 
administrative burden will be created. 

• 

Choice of the instrument 

The  proposed  instrument  is  a  proposal  for  a  Council  Recommendation,  which  respects  the 
principles of subsidiarity and proportionality. It builds on the existing body of European law 
and  is  in  line  with  the  type  of  instruments  available  for  European  action  in  the  areas  of 
education and training and employment. As a legal instrument, it signals the commitment of 
Member  States  to  the  measures  laid  down  in  this  Recommendation  and  provides  a  strong 
political basis for cooperation at European level in this area, while fully respecting Member 
States competence in the field of education and training and social policies.  

3. 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

 

Ex-post evaluations/fitness checks of existing legislation 

Not applicable.  

 

Stakeholder consultations 

The  Recommendation  reflects  discussions  and  consultations  with  relevant  stakeholders, 
including  social  partners,  business,  intermediary  bodies  such  as  chambers  of  industry, 
commerce  and  crafts,  professional  and  sectorial  organisations,  education  and  training 
providers,  youth,  student  and  parent  organisations,  as  well  as  local,  regional  and  national 
authorities.  

In  order  to  ensure  an  even  deeper  and  broader  involvement  of  European  cross-industry  and 
sectoral social partners, and the chambers of commerce and industry, hearings were organised 
on  30  March  and  7  June  2017.  The  consulted  stakeholders  underlined  that  the  proposal 
should: 

 

build  on  the  ACVT  Opinion,  and  particularly  its  annex  on  Elements  on 
apprenticeships and the partnership approach;  

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 

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 

provide  a  clear  scope,  while  acknowledging  the  variety  of  Member  States'  systems 
to  provide  a  commonly  agreed  definition  of 
and 
apprenticeships and its distinction from other forms of work-based learning;  

the  difficulty 

therefore 

reflect the need for both quality and effectiveness of apprenticeships, in line with the 
Joint Statement of the European social partners and the ACVT Opinion;  

include  mobility  as  an  element  of,  but  not  a  prerequisite  for,  quality  and  effective 
apprenticeships.  

Discussions were held in the meeting of the Advisory Committee on Vocational Training on 
20  April  2017.  In  addition  to  the  points  already  mentioned,  the  ACVT  advised  the 
Commission to:  

 

 

provide clarity on exactly what the proposal covers, i.e. whether for apprenticeships 
in a strict sense or also covering other forms of work-based learning;  

make it clear how the proposal links to other relevant platforms and initiatives, such 
as  the  European  Alliance  for  Apprenticeships,  European  Quality  Assurance 
Reference  Framework  for  Vocational  Education  and  Training  (EQAVET)  and  The 
European job mobility portal EURES;  

Some governmental members of the ACVT were concerned about the potential wide scope of 
the framework when it comes to quality criteria and governance issues.  

The Commission underlined that although the proposal would build on the ACVT Opinion, to 
which government representatives and European social partners had already agreed, it would 
not  bind  the  Member  States  in  the  Council.  It  also  stressed  its  intention  to  propose  a 
framework that is clear, relevant and makes a difference for Member States and stakeholders.  

There  have  also  been  consultations  with  the  Director  Generals  of  Vocational  Training, 
European VET provider associations and stakeholders involved in the European Alliance for 
Apprenticeships.  

 

Impact assessment 

Given the complementary  approach of the proposed  activities to  Member States’ initiatives, 
the  voluntary  nature  of  the  proposed  activities  and  the  scope  of  the  impacts  expected,  the 
extent to  which  impacts  can  be  clearly identified  ex  ante  is  limited  and  therefore an  impact 
assessment  was  not  carried  out.  The  proposal  was  developed  on  the  basis  of  evidence 
collected  in  studies,  through  consultations  of  key  stakeholders,  and  the  dedicated  work  of 
European social partners and the ACVT.  

 

Regulatory fitness and simplification 

Not applicable. 

4. 

BUDGETARY IMPLICATIONS 

The  large  variations  in  apprenticeship  systems  and  the  flexibility  in  implementing  this 
Recommendation  make  it  difficult  to  estimate  national  budgetary  implications.  While  there 
may be start-up costs, higher quality and effectiveness in apprenticeships should in the long 
run lead to budgetary gains at national and/or regional level, at company or employer level, 
and for vocational education and training providers. Public budgets may benefit from higher 
employability  and  reduced  spending  on  unemployment,  while  companies  may  benefit  from 
improved productivity and competitiveness.  

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The  Staff  Working  Document  accompanying  this  proposal  outlines  three  areas  where  the 
Council Recommendation may have cost implications:  

 

Compliance 

There may be costs related to the compliance with the Recommendation, such as costs related 
to  pay  or  compensation,  financial  subsidies  or  incentives,  and  provision  of  trainers  and 
mentors for pedagogical support. Depending on the set-up, such costs will be shared between 
public budgets and employers providing training. Funding may for example be supplied over 
a national budget or through specific levies, taxes or voluntary contributions.  

 

Administration 

The set-up and implementation of quality measures  may involve administrative costs which 
are either one-off (or set-up) costs or ongoing (or repeated) costs. Although the Framework is 
established at the European level, there may be administrative costs at the national or regional 
level.  

 

Implementation 

There are likely to be certain costs related to the implementation and follow-up of criteria for 
quality  and  effective  apprenticeships.  Depending  on  how  the  roles  and  responsibilities  are 
organised,  such  costs  may  fall  on  public  authorities,  intermediary  bodies  or  education  and 
training providers.  

Improving  the  quality  and  effectiveness  of  apprenticeships  should  lead  to  higher  levels  of 
skills,  employability,  and  productivity.  The  OECD  has  found 
that  well-designed 
apprenticeship schemes can be a worthwhile investment both for employers and apprentices, 
facilitate the transition of young people from school to work, and support competitiveness and 
economic growth.  

The  Recommendation  does  not  require  additional  EU  budget  or  staff  resources  for  the 
Commission. 

5. 

OTHER ELEMENTS 

 

Implementation  plans  and  monitoring,  evaluation  and  reporting 
arrangements  

At the national level, the proposal for a Council Recommendation invites the Member States 
to  promote  the  active  involvement  of  social  partners  in  the  design,  governance  and 
implementation  of  apprenticeship  schemes,  in  line  with  national  industrial  relations  systems 
and  education  and  training  practices.  Member  States  should  also  include  the  relevant 
measures in their National Reform Programmes under the European Semester, and take this 
Framework into account when making use of Union funding and instruments. 

The Commission is invited to  monitor  the application of the framework with the support of 
the ACVT, building on existing reporting arrangements within the European Semester, and to 
report back to the Council within three years.  

 

Explanatory documents (for directives) 

Not applicable. 

 

Detailed explanation of the specific provisions of the proposal 

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Recommendations to Member States  

Taking into account the diversity of national structures and systems, the framework will offer 
a  set  of  criteria  to  cater  for  quality  and  effective  apprenticeships,  while  allowing  different 
elements of these criteria to be prioritised in each Member State depending on the specificities 
and different needs of the national apprenticeship schemes. This flexibility is essential, given 
the large variations in national systems and the various potential policy solutions which can 
be applied at the national level.  

The  Recommendation  distinguishes  between  two  sets  of  criteria:  one  on  the  necessary 
learning  and  working  conditions  in  apprenticeship  schemes,  and  one  on  the  framework 
conditions for apprenticeships at system level.  

Criteria for learning and working conditions 

To  ensure  the  quality  and  effectiveness  of  apprenticeship  schemes,  the  Recommendation 
covers the following seven criteria for learning and working conditions: 

(1)  Written  contract;  (2)  Learning  outcomes;  (3)  Pedagogical  support;  (4)  Workplace 
component; (5) Pay and/or compensation; (6) Social protection; (7) Work, health and safety 
conditions. 

Criteria for framework conditions 

The Recommendation also covers the following seven criteria for framework conditions that 
have  to  be  in  place  to  support  the  set  up  and  functioning  of  quality  and  effective 
apprenticeships: 

(8)  Regulatory  framework;  (9)  Involvement  of  social  partners;  (10)  Support  for  companies; 
(11)  Flexible  pathways  and  mobility;  (12)  Career  guidance  and  awareness  raising;  (13) 
Transparency; (14) Quality assurance and graduate tracking. 

Further explanations on each of the criteria are provided in the accompanying Staff Working 
Document. 

Follow up at EU level 

The  Recommendation  includes  provisions  on  developing  a  set  of  support  services  for 
knowledge  sharing,  networking  and  mutual  learning  to  assist  Member  States  and  relevant 
stakeholders  to  implement  apprenticeship  schemes  in  line  with  this  Framework.  This  is  a 
follow  up  to  the  Commission  Communication  "Investing  in  Europe's  Youth"  which 
announced  the  set  up  of  demand  driven  apprenticeships  support  service,  building  on  the 
successful  public  employment  services  benchlearning  model  and  supporting  countries  to 
introduce or reform apprenticeship systems. 

It also proposes further work on awareness raising and to support the implementation of this 
framework through relevant EU funding. 

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2017/0244 (NLE) 

Proposal for a 

COUNCIL RECOMMENDATION 

on a European Framework for 
Quality and Effective Apprenticeships 

THE COUNCIL OF THE EUROPEAN UNION, 

Having regard to the Treaty on the Functioning of the European Union, and in particular 

Articles 153, 166 and 292 thereof, 

Having regard to the proposal from the European Commission 

Whereas: 

(1) 

Quality and effective apprenticeships that lead to a combination of job related skills, 
work  based  experience  and  learning,  and  key  competences  facilitate  young  people's 
entry  in  the  labour  market,  as  well  as  adults’  career  progression  and  transition  into 
employment. 

(2)  Well-designed  apprenticeship  schemes  benefit  both  employers  and  learners.  High 
quality  standards  avoid  that  apprenticeships  are  geared  towards  low-skilled  jobs  and 
poor  training  that  damage  their  reputation.  Good  quality  apprenticeships  also 
contribute to social inclusion by integrating disadvantaged learners and people with a 
migrant background into the labour market. 

(3) 

(4) 

Quality  and  effective  apprenticeships  are  established  through  structured  partnerships 
relevant  stakeholders,  particularly  social  partners,  businesses, 
involving  all 
intermediary bodies such as chambers of industry, commerce and crafts, professional 
and  sectorial  organisations,  vocational  education  and  training  providers,  youth  and 
parent organisations, as well as local, regional and national authorities. Since 2013, the 
Commission  in  cooperation  with  Member  States  and  relevant  stakeholders  promotes 
the  supply,  quality  and  image  of  apprenticeship  through  the  European  Alliance  for 
Apprenticeships,  which  has  so  far  mobilised  more  than  700 000  offers  for 
apprenticeships,  traineeships  or  first  jobs  offers.  Business  led  initiatives  like  the 
European  Pact  for  Youth  have  mobilised  more  offers  and  helped  promote  business-
education partnerships across the Union.  

The  European  cross-industry  social  partners  have  collected  evidence  building  on 
quality and cost-effectiveness of apprenticeships through their parallel work and their 
Joint Statement Towards a Shared Vision of Apprenticeships from June 2016 that was 
the  basis  for 
the  opinion  on  A  Shared  Vision  for  Quality  and  Effective 
Apprenticeships  and  Work-based  Learning  adopted  on  2  December  2016  by  the 
Advisory Committee on Vocational Training (ACVT). 

EN 

10 

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(5) 

(6) 

(7) 

(8) 

(9) 

The European Qualifications Framework (EQF) first  established in 2008 and revised 
in  201712,  improves  the  transparency,  comparability  and  portability  of  citizens' 
qualifications, including apprentices.  

The  Council  Recommendation  of  18  June  2009  on  a  European  Quality  Assurance 
Reference  Framework  for  Vocational  Education  and  Training  (EQAVET)13 
established  a  reference  instrument  to  help  Member  States  promote  and  monitor 
continuous improvement of their vocational education and training systems.  

Through  the 2012 European Quality Charter on Internships and Apprenticeships, the 
European Youth Forum urged the European countries, European institutions and social 
partners to establish or reinforce legal quality frameworks for apprenticeships. 
The Council Recommendation of 22 April 2013 on establishing a Youth Guarantee14 
recommends  that  Member  States  ensure  that  all  young  people  under  the  age  of  25 
years  receive  a  good-quality  offer  of  employment,  continued  education,  an 
apprenticeship  or  a  traineeship  within  four  months  of  becoming  unemployed  or 
leaving formal education. 

The  European  social  partners,  the  European  Commission  and  the  Council  of  the 
European  Union  engaged  to  contribute  to  the  supply,  quality  and  attractiveness  of 
apprenticeships  in  a  Joint  Declaration  establishing  the  European  Alliance  for 
Apprenticeships on 2 July 2013.  

(10)  The  Council  Declaration  on  the  European  Alliance  for  Apprenticeships  from  15 
October 2013 noted that the effectiveness and attractiveness of apprenticeship should 
be encouraged by their adherence to several common guiding principles. 

(11)  The Council Recommendation on a Quality Framework for Traineeships15 adopted on 
10  March  2014  established  a  number  of  principles  to  improve  the  quality  of 
traineeships outside formal education and training. 

(12)  The  Riga  Conclusions  of  22  June  2015,  endorsed  by  the  Ministers  in  charge  of 
vocational  education  and  training,  made  work-based  learning  in  all  its  forms,  with 
special  attention  to  apprenticeships,  and  developing  quality  assurance  mechanisms, 
two of the five European priorities for the period 2015-2020. 

(13)  The  Education  and  Training  2020  Working  Group  on  Vocational  Education  and 
Training  developed  20  guiding  principles  on  high-performance  apprenticeships  and 
work-based learning during its mandate 2014-2015. 

(14) 

In its report on Erasmus+ and other tools to foster mobility in vocational education and 
training  –  a  lifelong  learning  approach  of  4  March  2016,  the  European  Parliament 
called for measures to ensure quality standards for apprenticeships.  

(15)  Regulation (EU) 2016/589 of the European Parliament and of the Council16 stipulates 
that apprenticeships based on an employment contract can be advertised on EURES - 
The European job mobility portal as of May 2018.  

12 
13 
14 
15 
16 

OJ C 189/15 
OJ C 155, 8.7.2009, p.1 
OJ C 120, 26.4.2013, p 1 
OJ C 88, 27.3.2014, p.1 
OJ L 107, 22.4.2016, p. 1 

EN 

11 

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(16) 

In  its  Communication  of  10  June  2016  on  A  New  Skills  Agenda  for  Europe  the 
Commission stressed its support to social partners to take forward the results of their 
joint projects, for example establishing a quality framework for apprenticeships. 

(17)  The  Commission  Communication  Investing  in  Europe’s  Youth  from  7  December 
201617,  called  for  a  renewed  effort  to  support  young  people  to  get  the  best  possible 
start  in  life  by  investing  in  their  knowledge,  skills  and  experiences,  helping  them  to 
find or train for their first job. The aim was to help young people seize opportunities, 
integrate well into society, become active citizens and pursue a successful professional 
through  a  quality  framework  outlining  key  principles  for 
career, 
apprenticeship schemes. 

including 

(18)  The Rome Declaration of 25 March 2017 includes the pledge to work towards a Union 
where  young  people  receive  the  best  education  and  training  and  can  study  and  find 
jobs across the continent. 

(19)  The  European  Pillar  of  Social  Rights  from  26  April  2017  sets  out  a  number  of 
principles  to  support  fair  and  well-functioning  labour  markets  and  welfare  systems, 
including  the  right  to  quality  and  inclusive  education  and  training,  to  ensure  skills 
relevant  for  the  labour  market  and  for  participation  in  society.  It  sets  out  the 
Commission's ambition to propose a Council Recommendation which will define the 
key  elements  that  should  be  in  place  to  enable  people  to  acquire  relevant  skills  and 
qualifications through high quality apprenticeships programmes. 

(20)  The  Commission  proposal  for  a  Council  Recommendation  on  graduate  tracking 
adopted  on  30  May  2017  aims  to  improve  the  availability  of  qualitative  and 
quantitative  information  about  what  graduates,  including  apprentices,  do  after  they 
complete their education and training.  

(21)  The  European  Structural  and  Investment  Funds  (2014-2020),  namely  the  European 
Social Fund (ESF) and the European Regional Development Fund (ERDF), as well as 
Erasmus+,  the  Union  programme  for  the  Competitiveness  of  Enterprises  and  Small 
and Medium-sized Enterprises (COSME), the Union Programme for Employment and 
Social Innovation (EaSI), and the Youth Employment Initiative (YEI), provide support 
for apprenticeships.  

(22)  Recently,  the  European  Parliament  and  stakeholders  called  on  the  Commission  to 
boost long term mobility of apprentices across the EU, providing young people with 
the  opportunity  to  develop  both  job  specific  skills  and  key  competences.  The 
Commission  responded  by  introducing  in  the  Erasmus+  programme  a  new  activity 
called Erasmus Pro which specifically supports longer work placements abroad. 

(23) 

In  its  reports  on  the  Youth  Guarantee  from  2015  and  2017,  the  European  Court  of 
Auditors recommends that the Commission develop quality criteria for apprenticeships 
and other offers supported under this initiative.  

(24)  A  common  understanding  among  Member  States  of  quality  and  effective 
apprenticeships supports their efforts to reform and modernise apprenticeship systems 
that  provide  an  excellent  learning  and  career  pathway.  A  common  understanding 
contributes  to  increasing  mutual  trust  and  thus  facilitates  cross-border  mobility  of 
apprentices. 

17 

COM(2016) 940 final 

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12 

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(25)  The  overall  objective  of  this  Recommendation  is  to  increase  the  employability  and 
personal development of apprentices and to contribute to the development of a highly 
skilled and qualified workforce, responsive to labour market needs. 

(26)  The specific objective is to provide a coherent framework for apprenticeships based on 
a  common  understanding  of  what  defines  quality  and  effectiveness,  taking  into 
account the diversity of vocational education and training (VET) systems in Member 
States.  

(27)  For  the  purposes  of  this  Recommendation,  apprenticeships  are  understood  as  formal 
vocational  education  and  training  schemes  that  combine  substantial  work-based 
learning  in  companies  and  other  workplaces  with  learning  based  in  education  or 
training  institutions  that  lead  to  nationally  recognised  qualifications.  These  are 
characterised  by  a  contractual  relationship  between  the  apprentice,  the  employer 
and/or the vocational education and training institution, with the apprentice being paid 
or compensated for her/his work.  

(28)  This  Recommendation  does  not  prevent  Member  States  from  maintaining  or 
the  ones 

for  apprenticeships 

than 

establishing  more  advanced  provisions 
recommended here.  

HAS ADOPTED THIS RECOMMENDATION,  

Member States should, in accordance with national legislation and in close cooperation with 
stakeholders,  ensure that  apprenticeship  schemes  are  responsive  to  labour  market  needs  and 
provide  benefits  to  both  learners  and  employers,  by  building  on  the  criteria  for  quality  and 
effective apprenticeships set out below.  

Criteria for learning and working conditions 

Written contract 

1. 

Before  the  start  of  the  apprenticeship  a  written  contract  between  the  employer,  the 
apprentice and the vocational training institution should be concluded, defining each 
party's rights and obligations related to training and work. 

Learning outcomes  

2. 

A set of comprehensive learning outcomes should be defined by the employers and 
vocational training institutions ensuring a balance between specific job-related skills 
and key competences supporting both the personal development and lifelong career 
opportunities of the apprentices with a view to adapt to changing career patterns.  

Pedagogical support 

3. 

In-company  trainers  should  be  designated  and  tasked  to  cooperate  closely  with 
vocational  education  and  training  providers  and  teachers  to  provide  guidance  to 
apprentices  and  to  ensure  mutual  and  regular  feed-back.  Teachers,  trainers  and 
mentors should be supported to update their skills and competences in order to train 
apprentices according to the latest teaching and training methods and labour market 
needs. 

Workplace component 

4. 

A  substantial  part  of  the  learning  experience,  meaning  at  least  half  of  the 
apprenticeship  duration,  should  be  carried  out  in  a  workplace.  This  should  include 
opportunities to undertake part of such placements abroad. 

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Pay and/or compensation  

5. 

Apprentices should receive pay and/or compensation, in line with national or sectoral 
requirements  or  collective  agreements  where  they  exist,  and  taking  into  account 
cost-sharing arrangements between employers, apprentices and public authorities. 

Social protection  

6. 

Apprentices should be entitled to social protection, including necessary insurance in 
line with national legislation.  

Work, health and safety conditions 

7. 

The  host  workplace  should  comply  with  relevant  rules  and  regulations  on  working 
conditions, in particular health and safety legislation. 

Criteria for framework conditions  

Regulatory framework 

8. 

A clear and consistent regulatory framework should be in place based on a fair and 
equitable  partnership  approach,  including  a  structured  and  transparent  dialogue 
among  all  relevant  stakeholders.  This  may  include  accreditation  procedures  for 
companies and workplaces that offer apprenticeships. 

Involvement of social partners 

9. 

Social  partners,  including  at  sectoral  level,  should  be  involved  in  the  design, 
governance  and  implementation  of  apprenticeship  schemes,  in  line  with  national 
industrial relations systems and education and training practices.  

Support for companies 

10. 

Financial  and/or  non-financial  support  should  be  provided,  particularly  for  small, 
medium-sized  and  micro-companies,  based  on  cost-sharing  arrangements  between 
employers, apprentices and public authorities, enabling cost-effective apprenticeships 
for companies.  

Flexible pathways and mobility  

11. 

Entry  requirements  for  apprenticeships  should  take  into  account  relevant  informal 
and  non-formal  learning.  Apprenticeships  should  lead  to  a  nationally  recognised 
the  European  Qualifications 
qualification 
Framework18,  and  should  allow  access  to  other  learning  opportunities,  including  at 
higher education and training levels, and career pathways. Transnational mobility of 
apprentices should be a component of apprenticeship qualifications. 

in  accordance  with 

referenced 

Career guidance and awareness raising 

12. 

Career  guidance,  mentoring  and  learner  support  should  be  provided  during  the 
apprenticeship to ensure successful outcomes and reduce drop-outs. Apprenticeships 
should be promoted through awareness-raising activities.  

Transparency  

13. 

The transparency of, and access to apprenticeship offers within and between Member 
States should be ensured with the support of public and private employment services, 
and by using Union tools such as EURES when appropriate.  

18 

OJ C 189/15 

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14 

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Quality assurance and graduate tracking 

14. 

Quality assurance approaches should be in place in coherence with European Quality 
Assurance  Reference  Framework 
for  Vocational  Education  and  Training 
(EQAVET)19,  including  a  valid  and  reliable  assessment  of  the  learning  outcomes. 
The  tracking  of  employment  and  career  progression  of  the  apprentices  should  be 
ensured. 

Implementation at national level 

In order to implement this Recommendation, Member States should: 

15. 

16. 

17. 

Promote  the  active  involvement  of  social  partners  in  the  design,  governance  and 
implementation  of  apprenticeship  schemes,  in  line  with  national  industrial  relations 
systems and education and training practices;  

Include  the  relevant  implementing  measures  in  the  National  Reform  Programmes 
under the European Semester; 

Take  into  account  this  framework  when  making  use  of  European  Union  funds  and 
instruments supporting apprenticeships.  

The  Commission  should  provide  the  necessary  support,  including  through  the  following 
actions: 

Support services 

18. 

Developing a set of support services for knowledge sharing, networking and mutual 
implement 
learning 
apprenticeship schemes in line with this Framework; 

to  assist  Member  States  and  relevant  stakeholders 

to 

Awareness-raising 

19. 

Promoting  the  excellence  and  attractiveness  of  apprenticeships  through  awareness 
raising campaigns such as the European Vocational Skills Week;  

Funding 

20. 

Supporting  the  implementation  of  this  Recommendation  through  relevant  Union 
funding, in accordance with the relevant legal basis; 

Follow-up 

21. 

22. 

Monitoring  the  implementation  of  this  Recommendation  with  the  support  of  the 
tripartite  Advisory  Committee  on  Vocational  Training,  building  on  reporting 
arrangements within the European Semester;  

Reporting to the Council on the implementation of the Framework within three years 
from the date of its adoption.  

Done at Brussels, 

For the Council 
The President 

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OJ C 155, 8.7.2009, p.1 

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