The European qualifications framework : supporting learning, work and cross-border mobility : 10th anniversary.
Date: 2019-09-10
Institutions: Directorate-General for Employment, Social Affairs and Inclusion
Subjects: European Union, bilateral relations, continuing vocational training, cooperation in the field of education, cross-border cooperation, education policy, job mobility, learning, professional qualifications, recognition of vocational training qualifications, vocational training

The European  
Qualifications  
Framework:
supporting learning, work and  
cross-border mobility

10th Anniversary

Social Europe

Manuscript completed in February 2018
1st edition

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Print       ISBN 978-92-79-80383-3       doi:10.2767/750617

KE-01-18-213-EN-C

PDF        ISBN 978-92-79-80382-6       doi:10.2767/385613

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The European  
Qualifications  
Framework:
supporting learning, work and 
cross-border mobility

Contents

Foreword 

Introduction 

The EQF: what is it and how does it work? 

Descriptors defining levels in the EQF 

How can the EQF be used and who benefits from the EQF? 

What impact has the EQF had so far? 

A look to the future 

Acronyms 

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     30   

4

T H E   E U R O P E A N   Q U A L I F I C A T I O N S   F R A M E W O R K : 

Foreword

“In our modern world, people need opportunities to 

build  their  skills  and  put  them  to  use  as  they  move 
between jobs, types of work, and further training. The 
European  Qualifications  Framework  is  a  cornerstone 
of  our  cooperation  on  making  people’s  skills  and 
qualifications more easily understood and recognised 
when they move either at home or abroad for work or 
study. Thanks to the EQF, employers can more easily 
compare  foreign  qualifications  to  national  ones  and 
better understand the skills profiles of candidates. The 
EQF  helps  people  put  their  talent  to  use,  smoothing 
the  path  to  further  learning  and  supporting  a  better 

Marianne Thyssen
European Commissioner for Employment, Social Affairs, Skills and Labour Mobility

skills match in the labour market.”

5

Introduction

In  our  modern  world,  people  need  a  higher  and  broader  set  of  skills  to  work, 
communicate, access information, products and services, and take part in social 
and civic activities.

A proper understanding and valuing of skills and qualifications is fundamental in order to 
achieve a better match between the supply of skills and the needs of the labour market. 
A  shared  European  framework  can  support  the  understanding  and  valuing  of  skills 
and qualifications. It can also help individuals to acquire and update skills throughout 
their life as they move between different types and levels of education, and between 
education and employment, within and across countries.

Qualifications express what people know, understand and are able to do. They can take 
different forms such as a (university) diploma or (skills crafts) certificate. Transparency 
about what people actually learned in order to obtain a qualification (‘learning outcomes’) 
is key to ensuring that individuals, employers and education and training providers give 
the appropriate economic, social and academic value to qualifications.

The European Qualifications Framework for lifelong learning (EQF) aims to improve the 
transparency, comparability and portability of people’s qualifications. The EQF was set 
up in 2008 as a common reference framework of qualifications, expressed as learning 
outcomes  at  increasing  levels  of  proficiency.  The  framework  serves  as  a  translation 
device between different qualifications systems and their levels. It is intended to benefit 
learners, workers, job-seekers, employers, trade unions, education and training providers, 
qualification recognition bodies, government authorities and international organisations. 

The EQF Recommendation was revised in 20171 in order to adapt it to the reality of today 
and be ready for the challenges of tomorrow. Its revision has kept the core objectives 
agreed  a  decade  ago  to  create  transparency  and  mutual  trust  in  the  landscape  of 
qualifications in Europe. The revision was one of the 10 key actions of the New Skills 
Agenda for Europe, which aims to improve the quality and relevance of training, make 
skills  more  visible,  and  improve  skills  intelligence.2  As  its  name  suggests,  the  EQF  is 
also one of the frameworks to help deliver on the principles of the European Pillar of 
Social Rights.3 The very first of the Pillar’s 20 principles is that everyone has the right to 
quality and inclusive education, training and lifelong learning in order to maintain and 
acquire skills that enable them to participate fully in society and successfully manage 
transitions in the labour market. 

1 
2 
3 

http://eur-lex.europa.eu/legal-content/EN/TXT/?uri=uriserv:OJ.C_.2017.189.01.0015.01.ENG&toc=OJ:C:2017:189:FULL
http://ec.europa.eu/social/main.jsp?catId=1223
http://ec.europa.eu/social/pillar

SUPPORTING LEARNING, WORK AND CROSS-BORDER MOBILITY6

T H E   E U R O P E A N   Q U A L I F I C A T I O N S   F R A M E W O R K : 

The EQF: what is it and  
how does it work?

7

What is a qualification?

The EQF defines a qualification as ‘the formal outcome of an assessment and validation 
process  obtained  when  a  competent  body  determines  that  an  individual  has  achieved 
learning outcomes to given standards’. 

Why are qualifications important?

Qualifications serve a variety of purposes. They signal to employers what their holders 
are expected to know, do and understand (‘learning outcomes’). They may be needed to 
access  certain  professions.  They  help  education  and  training  authorities  and  providers 
to determine the level and content of learning acquired by an individual. They are also 
important for an individual as an expression of personal achievement. Qualifications play 
an important role in raising employability, easing mobility and improving access to further 
education.

Qualifications  usually  take  the  form  of  certificates  and  diplomas  awarded  following 
education,  training,  learning  and  (sometimes)  work.  The  content  and  the  level  of 
qualifications  that  are  part  of  a  quality  assured  framework  are  trusted  sources  of 
information. They act as a form of currency that individuals can use for employment or 
further learning purposes.

Making qualifications more transparent and comparable across countries

European education and training systems are diverse and reflect national traditions. The 
differences between them make it difficult to assess what someone with a qualification 
from  another  country  knows,  understands  and  is  capable  of  doing  in  learning  or  work 
contexts. The value of a qualification awarded in one country is therefore not necessarily 
understood  in  others,  which  can  hamper  ‘trust’  in  the  quality  and  content  of  such 
qualifications. The same goes for qualifications awarded outside of formal education and 
training  systems,  and  by  international  bodies  and  organisations.  This  lack  of  trust  can 
impact  professional  development,  access  to  employment  opportunities  and  access  to 
further learning, creating barriers to mobility in the EU, within and across borders.

The  EQF  is  a  common  reference  framework  that  allows  qualifications  from  different 
countries  to  be  compared  easily.  This  is  achieved  by  supporting  the  use  of  learning 
outcomes for each qualification, in order to make them more transparent and easier to 
understand. In this way, the EQF supports the cross-border mobility of learners and workers, 
and promotes lifelong learning and professional development across Europe. 

SUPPORTING LEARNING, WORK AND CROSS-BORDER MOBILITY8

What is a qualifications framework?

A  qualifications  framework  classifies  qualifications  according  to  a  set  of  criteria  for 
specified levels of learning achieved. It aims to integrate and coordinate qualifications, as 
well as improve the transparency, accessibility and quality of qualifications in relation to 
the labour market, the education and training system, and civil society.

Qualifications  frameworks  support  lifelong  learning  (i.e.  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.  This  definition  covers  the 
full range of formal, non-formal and informal learning. 

EQF: learning outcomes as a main principle

Qualifications have traditionally provided information about the duration of learning and 
the  institution  or  location  where  the  learning  has  taken  place.  Information  on  what  to 
expect from the holder of the qualification, in terms of knowledge, skills and competences, 
has been less common and transparent. 

The EQF, and all National Qualifications Frameworks (NQFs) that have been referenced to 
it, follow a learning outcomes approach. This means that both the content and the level 
of a qualification reflects what holders are expected to know, understand and be able to 
do (learning outcomes). 

The shift to learning outcomes increases the transparency of a qualification and enhances 
its comparability between countries and within countries (e.g. between different types of 
qualifications at the same level, or different levels of qualifications of the same type). 
Through its focus on learning outcomes, the EQF can help citizens to find their way in an 
increasingly diverse and complex qualifications landscape. 

A learning outcomes approach further supports a better match between the skills needs 
of  the  labour  market  and  education  and  training  provision,  while  also  facilitating  the 
validation of learning acquired in different settings. By focusing on what a learner knows, 
can do and can understand, learning outcomes help to open up qualifications to a wider 
variety of learning pathways and experiences.

The common reference framework of level descriptors is the core of 
the EQF 

The  EQF  is  defined  by  eight  learning  outcomes-based  levels.  Accompanying  level 
descriptors  show  how  expectations  of  knowledge,  skills,  autonomy  and  responsibility 
increase  as  learners  progress  from  level  1  to  level  8.  These  levels,  along  with  the 
descriptors, function as a translation grid and make it possible to compare qualifications 
from different countries and institutions. 

THE EUROPEAN QUALIFICATIONS FRAMEWORK: 9

Learning outcome descriptors

The EQF learning outcome descriptors (see page 17) reflect two dimensions: the levels and 
the learning domains.

The  ‘level’  dimension  captures  how  the  complexity  of  the  learning  outcomes  increases 
along with the qualification levels. For example, the level of autonomy expected of the 
holder of a level 2 qualification is much less than the expectations of a level 7 qualification 
holder. 

The ‘learning domains’ dimension distinguishes between ‘knowledge’, ‘skills’ and ‘autonomy 
and responsibility’, allowing different types of qualifications to be classified at the same 
level. For example, qualifications with the same overall learning outcomes level can be of 
a more academic, vocational or professional orientation.  

The EQF is designed to cover all types and levels of qualifications including those from 
higher education, Vocational Education and Training (VET) and general education, as well 
as qualifications awarded by the private sector or international organisations.

Boundaries of the EQF

Within the context of the EU, policies and actions in relation to skills and qualifications 
(except  for  those  giving  access  to  regulated  professions)  are  based  on  Articles  165 
(education) and 166 (vocational training) of the Treaty on the Functioning of the EU. Both 
articles make it clear that EU action relates to encouraging cooperation between Member 
States and, if necessary, supporting and supplementing their action, while fully respecting 
their education and training systems, and cultural and linguistic diversity.

The EQF is not:

 ■ a  framework  to  harmonise  qualifications  or  qualifications  standards  between  EU 
Member States (but it may lead to the development of similar qualifications between 
two or more countries);

 ■ introducing automatic recognition of qualifications between EU Member States (but it 

may make recognition easier through the increased transparency that it brings);

 ■ a framework focused on the classification of individual competences through its learning 
outcomes-based descriptors (but the EQF may inspire and facilitate the assessment and 
validation of, for example, skills acquired through work and life experiences). 

SUPPORTING LEARNING, WORK AND CROSS-BORDER MOBILITY10

How does EQF referencing work in practice?

The EQF Recommendation invites Member States to reference their NQFs or systems to 
the EQF, in order to establish a clear and transparent relationship between their national 
qualification levels and the eight EQF levels.

Given that the EQF is first and foremost a translation tool, qualifications are not directly 
included in the EQF. They are instead included in the NQFs, where their level and value 
abroad can be understood with reference to the eight EQF levels. This translation becomes 
visible  to  citizens  as  EQF  levels  are  increasingly  added  to  national  certificates  and 
diplomas, and included in the NQFs.  

Each country wanting to relate its national qualifications levels to the EQF has to prepare 
a detailed referencing report that follows the 10 EQF referencing criteria agreed in Annex 
III to the revised EQF Recommendation.

The referencing criteria should ensure that NQFs are referenced to the EQF in a coherent 
and  transparent  way.  The  criteria  also  help  with  the  structuring  of  referencing  reports, 
which should include input and written statements from national quality assurance bodies 
and international experts.

THE EUROPEAN QUALIFICATIONS FRAMEWORK: S U P P O R T I N G   L E A R N I N G ,   W O R K   A N D   C R O S S - B O R D E R   M O B I L I T Y

11

EQF referencing criteria

1.  The responsibilities and/or legal competence of all relevant national bodies involved 
in the referencing process are clearly determined and published by the competent 
authorities.

2.  There is a clear and demonstrable link between the qualifications levels in the NQF 

or systems and the level descriptors of the EQF.

3.  The NQFs or systems and their qualifications are based on the principle and objective 
of  learning  outcomes,  and  are  related  to  arrangements  for  the  validation  of  non-
formal and informal learning and, where appropriate, to credit systems.

4.  The procedures for inclusion of qualifications in the NQF, or for describing the place of 

qualifications in the national qualification system, are transparent.

5.  The national quality assurance system(s) for education and training refer(s) to the 
NQFs  or  systems  and  are  consistent  with  the  principles  on  quality  assurance  as 
specified in Annex IV to the EQF Recommendation.

6.  The referencing process shall include a stated agreement from the relevant quality 
assurance bodies that the referencing report is consistent with the relevant national 
quality assurance arrangements, provisions and practice.

7.  The referencing process shall involve international experts and the referencing reports 
shall contain the written statements of at least two international experts from two 
different countries on the referencing process.

8.  The competent authority or authorities shall certify the referencing of the NQFs or 
systems with the EQF. One comprehensive report, setting out the referencing and the 
evidence supporting it, shall be published by the competent authorities, including the 
EQF National Coordination Points, and shall address each of the criteria separately. 
The same report can be used for self-certification to the Qualifications Framework of 
the European Higher Education Area, in accordance with the self-certification criteria 
of the latter.

9.  Within six months of having referenced or updated the referencing report, Member 
States  and  other  participating  countries  shall  publish  the  referencing  report  and 
provide  relevant  information  for  comparison  purposes  on  the  relevant  European 
portal.

10.  Further to the referencing process, all newly issued documents related to qualifications 
that are part of the NQF or systems (e.g. certificates, diplomas, certificate/diploma 
supplements)  and/or  qualification  registers  issued  by  the  competent  authorities 
should  contain  a  clear  reference,  by  way  of  NQFs  or  systems,  to  the  appropriate  
EQF level.

12

The role of the EQF Advisory Group

The  EQF  Advisory  Group  was  set  up  in  2008  to  ensure  overall  coherence  and  promote 
transparency and trust in the process of referencing. Its role was confirmed by the 2017 
Recommendation. 

The group is chaired by the European Commission and composed of national representatives 
(two per Member State and for each of the other 11 participating countries), labour market 
actors, education and training and civil society representatives, as well as the Council of 
Europe. It is supported by the expertise of the European Centre for the Development of 
Vocational Training (Cedefop) and the European Training Foundation (ETF). 

The  group  discusses  each  referencing  report  in  detail  and  provides  feedback  to  the 
presenting  countries.  The  presentation  and  discussion  of  the  reports  is  intended  to 
improve understanding of NQFs and systems between countries participating in the EQF 
implementation. The aim of this process is to arrive at a realistic understanding of NQFs 
and their link to the EQF, as well as qualifications included in the NQF and quality assurance 
mechanisms. In this peer review process, EQF members play the role of ‘critical friends’ 
and help colleagues from other countries to present their systems and qualifications in a 
transparent way. 

A country has referenced to the EQF once the EQF Advisory Group considers its referencing 
report  to  be  sufficiently  transparent  and  respect  all  10  EQF  referencing  criteria.  If  the 
Advisory  Group  does  not  find  the  report  and  the  explanations  given  satisfactory,  the 
country will be asked to provide clarifications or to submit a revised report during another 
EQF Advisory Group meeting.

As  the  central  forum  for  discussion  between  the  Commission,  Member  States  and 
stakeholders on EQF implementation, the EQF Advisory Group plays an important role in 
building trust between the countries involved in the EQF. Trust is further developed through 
peer learning activities with a specific thematic focus. 

THE EUROPEAN QUALIFICATIONS FRAMEWORK: 13

The revision of the EQF Recommendation in May 2017

The establishment of the EQF kicked off the process of making qualifications in Europe 
more easily comparable. In 2017, the EQF Recommendation – reflecting strong support 
from all Member States – was revised to include new elements that will help the framework 
to adapt to the challenges of today and the future. These new elements included:

 ■ an  invitation  to  Member  States  to  keep  the  referencing  of  their  NQFs  to  the  EQF  

up-to-date;

 ■ revised quality assurance principles focused on qualifications;

 ■ information  exchanges  and  consultation  between  Member  States  in  order  to  ensure 
consistency of the levels allocated to international qualifications included in their NQFs;

 ■ the possibility of developing and applying criteria and procedures to enable third country 

qualifications frameworks to be compared with the EQF;

 ■ recommendations regarding improved communication about the EQF. 

Furthermore,  existing  practices  were  made  more  transparent  by  their  inclusion  in  the 
Recommendation (e.g. the EQF referencing criteria). 

Updating EQF referencing

EQF referencing reports represent a ‘snap shot’ in time and will eventually become outdated 
as NQFs and systems evolve. This is why the revised EQF Recommendation invites Member 
States to review and update their referencing report when relevant.  Information included 
in the referencing reports should be accurate and transparent, as this directly influences 
the extent to which the NQF is trusted. In this way, the translation of national qualification 
levels into EQF levels will remain relevant and in line with national qualification systems. 
This also determines to what extent the EQF is able to facilitate the comparability and 
portability of qualifications. 

The  referencing  of  NQFs  to  the  EQF,  and  the  comparability  available  through  this, 
also  influences  the  review  and  renewal  of  national  qualifications.  The  process  of  peer 
learning that takes place at EU level can show any changes in the education, training and 
qualifications system that may benefit learners.

SUPPORTING LEARNING, WORK AND CROSS-BORDER MOBILITY14

Publication of referencing reports 

Countries that have referenced to the EQF are invited to make the results of the process 
publicly  available  within  six  months,  both  at  national  and  European  level.  At  European 
level, this is currently done through the Learning Opportunities and Qualifications portal. 

The countries can also share the information on their national qualifications databases 
or  registers  by  linking  them  to  the  Learning  Opportunities  and  Qualifications  portal  or 
publish  their  qualifications  on  the  European  Skills,  Competences,  Qualifications  and 
Occupations (ESCO) portal. Data on qualifications must include the EQF (and NQF) level, 
and information about learning outcomes. The published information makes qualifications 
readily accessible to individuals, employers, education and training providers, recognition 
bodies and so on. 

EQF levels on certificates, supplements and in qualifications registers

Once  referenced  to  the  EQF,  countries  are  invited  to  add  a  clear  reference  to  the 
appropriate EQF level to all qualification documents issued by the competent authorities 
(e.g. certificates, diplomas, supplements), and/or qualification registers. Being shown on 
certificates and diplomas helps make the EQF (and the NQF) visible for individuals and 
employers. 

EQF quality assurance principles

Trust in the quality and level of qualifications with an EQF level is essential in order to 
support  mobility  across  sectoral  and  geographical  borders,  making  quality  assurance 
essential. The 2017 Recommendation reinforced the quality assurance principles of the 
EQF, which are expressed in the following ways:

 ■ Member States should ensure that qualifications with an EQF level are in accordance 
with the common principles for quality assurance set out in Annex IV, without prejudice 
to national quality assurance principles that apply to national qualifications.

 ■ EQF referencing criteria 5 and 6 concern quality assurance. Criterion 5 demands that the 
national quality assurance system(s) for education and training refer(s) to the NQFs or 
systems and are consistent with the principles on quality assurance as specified in Annex 
IV to the Recommendation. Criterion 6 states that the referencing process shall include a 
stated agreement from the relevant quality assurance bodies that the referencing report 
is consistent with the relevant national quality assurance arrangements, provisions and 
practice.

 ■ Annex  IV  to  the  EQF  Recommendation  contains  10  quality  assurance  principles  for 
qualifications that are part of NQFs or systems referenced to the EQF. They state that all 
qualifications with an EQF level should be quality assured to enhance trust in their quality 
and level. The principles are compatible with the two existing European frameworks for 
quality assurance: the European Standards and Guidelines (ESG) framework for higher 
education  and  the  European  Quality  Assurance  in  Vocational  Education  and  Training 
(EQAVET) framework for VET.

THE EUROPEAN QUALIFICATIONS FRAMEWORK: 15

Quality assurance principles for qualifications with an EQF level

In accordance with national circumstances, and taking into account sectoral differences, 
quality assurance of qualifications with an EQF level should:

 ■ address the design of qualifications as well as the application of the learning outcomes 

approach; 

 ■ ensure  valid  and  reliable  assessment  according  to  agreed  and  transparent  learning 

outcomes-based standards, and address the process of certification;

 ■ consist of feedback mechanisms and procedures for continuous improvement;

 ■ involve all relevant stakeholders at all stages of the process;

 ■ be composed of consistent evaluation methods, self-assessment and external review;

 ■ be an integral part of the internal management, including sub-contracted activities, of 

bodies issuing qualifications with an EQF level;

 ■ be based on clear and measurable objectives, standards and guidelines;

 ■ be supported by appropriate resources;

 ■ include a regular review of existing external monitoring bodies or agencies carrying out 

quality assurance; 

 ■ include evaluation results that can be accessed electronically.

SUPPORTING LEARNING, WORK AND CROSS-BORDER MOBILITY16

The EQF and credit systems

By  using  the  learning  outcomes  approach,  the  EQF  and  NQFs  should  better  support 
individuals when they are moving (i) between various levels of education and training, (ii) 
within and between sectors of education and training, (iii) between education and training 
and the labour market, and (iv) within and across borders. 

Under the revised Recommendation, EU Member States agreed that if NQFs contain or are 
linked with credit systems, these need to be taken forward in a coordinated way in order 
to  support  transitions  and  facilitate  progression.  Seven  principles  have  therefore  been 
developed that are compatible with existing transparency tools for credit systems such as 
the European Credit Transfer and Accumulation System (ECTS) in higher education and the 
European Credit system for Vocational Education and Training (ECVET) in VET.

The EQF and the Qualifications Framework of the European Higher 
Education Area

The  EQF  is  compatible  with  the  Qualifications  Framework  for  the  European  Higher 
Education Area and its cycle descriptors. The framework was agreed by education ministers 
of the intergovernmental Bologna Process in 2005. With the exception of Kosovo,4 all EQF 
countries take part in the Bologna process. The short cycle (that can be linked to, or within, 
the first cycle), the first, second and third cycles of the framework correspond to EQF levels 
5-8 respectively.

The majority of countries that have referenced to the EQF have prepared a single report 
that  also  includes  self-certification  to  the  Qualifications  Framework  of  the  European 
Higher Education Area.

4 

This designation is without prejudice to position on status, and is in line with UNSC 1244 and the ICJ Opinion on the Kosovo
declaration of independence.

THE EUROPEAN QUALIFICATIONS FRAMEWORK:  
S U P P O R T I N G   L E A R N I N G ,   W O R K   A N D   C R O S S - B O R D E R   M O B I L I T Y

17

Descriptors defining 
levels in the EQF

18

          Knowledge

      Skills

        Responsibility and autonomy

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

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

In  the  context  of  the  EQF,  responsibility  and  autonomy  is  described  as  the  ability  of  the 

learner to apply knowledge and skills autonomously and with responsibility.

Level 1

Basic general knowledge.

Basic skills required to carry out simple tasks.

Work or study under direct supervision in a structured context.

Level 2

Basic factual knowledge of a field of work 
or study.

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

Work or study under supervision with some autonomy.

Level 3

Knowledge of facts, principles, processes and 
general concepts in a field of work or study.

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

Take responsibility for completion of tasks in work or study. 

Adapt own behaviour to circumstances in solving problems.

Level 4

Factual and theoretical knowledge in broad 
contexts within a field of work or study.

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

Exercise self-management within the guidelines of work or study contexts that are usually 

predictable, but are subject to change. 

Supervise  the  routine  work  of  others,  taking  some  responsibility  for  the  evaluation  and 

improvement of work or study activities.

Level 5

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

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

unpredictable change.

Review and develop performance of self and others.

Exercise management and supervision in contexts of work or study activities where there is 

Level 6

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

Advanced skills, demonstrating mastery and innovation, 
required to solve complex and unpredictable problems 
in a specialised field of work or study.

Manage  complex  technical  or  professional  activities  or  projects,  taking  responsibility  for 

decision-making in unpredictable work or study contexts.

Take responsibility for managing professional development of individuals and groups.

Level 7

Highly specialised knowledge, some of which is 
at the forefront of knowledge, in a field of work 
or study, as the basis for original thinking and/
or research.

Critical awareness of knowledge issues in a field 
and at the interface between different fields.

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

Manage and transform work or study contexts that are complex, unpredictable and require 

new strategic approaches.

Take  responsibility  for  contributing  to  professional  knowledge  and  practice,  and/or  for 

reviewing the strategic performance of teams.

Level 1

Level 2

Level 3

Level 4

Level 5

Level 6

Level 7

Level 8

Knowledge at the most advanced frontier of 
a field of work or study, and at the interface 
between fields.

The  most  advanced  and  specialised  skills  and 
techniques, 
including  synthesis  and  evaluation, 
required  to  solve  critical  problems  in  research  and/
or  innovation,  and  to  extend  and  redefine  existing 
knowledge or professional practice.

Demonstrate substantial authority, innovation, autonomy, scholarly and professional integrity 

and sustained commitment to the development of new ideas or processes at the forefront 

Level 8

of work or study contexts, including research.

THE EUROPEAN QUALIFICATIONS FRAMEWORK: 19

          Knowledge

      Skills

        Responsibility and autonomy

In  the  context  of  the  EQF,  knowledge  is 

(involving  the  use  of  logical,  intuitive  and  creative 

described as theoretical and/or factual.

thinking) and practical (involving manual dexterity and 

In  the  context  of  the  EQF,  responsibility  and  autonomy  is  described  as  the  ability  of  the 
learner to apply knowledge and skills autonomously and with responsibility.

In the context of EQF, skills are described as cognitive 

the use of methods, materials, tools and instruments).

Level 1

Basic general knowledge.

Basic skills required to carry out simple tasks.

Work or study under direct supervision in a structured context.

Basic factual knowledge of a field of work 

Level 2

or study.

Basic  cognitive  and  practical  skills  required  to  use 

solve routine problems using simple rules and tools.

relevant  information  in  order  to  carry  out  tasks  and 

Work or study under supervision with some autonomy.

Level 3

Knowledge of facts, principles, processes and 

general concepts in a field of work or study.

A  range  of  cognitive  and  practical  skills  required  to 

accomplish tasks and solve problems by selecting and 

applying basic methods, tools, materials and information.

Take responsibility for completion of tasks in work or study. 

Adapt own behaviour to circumstances in solving problems.

Level 4

Factual and theoretical knowledge in broad 

contexts within a field of work or study.

A  range  of  cognitive  and  practical  skills  required  to 

generate solutions to specific problems in  a field of 

work or study.

Exercise self-management within the guidelines of work or study contexts that are usually 
predictable, but are subject to change. 

Supervise  the  routine  work  of  others,  taking  some  responsibility  for  the  evaluation  and 
improvement of work or study activities.

Level 5

Comprehensive,  specialised,  factual  and 

theoretical  knowledge  within  a  field  of 

work  or  study,  and  an  awareness  of  the 

boundaries of that knowledge.

problems.

A  comprehensive  range  of  cognitive  and  practical 

skills required to develop creative solutions to abstract 

Exercise management and supervision in contexts of work or study activities where there is 
unpredictable change.

Review and develop performance of self and others.

Advanced  knowledge  of  a  field  of  work  or 

Advanced skills, demonstrating mastery and innovation, 

Level 6

study,  involving  a  critical  understanding  of 

required to solve complex and unpredictable problems 

theories and principles.

in a specialised field of work or study.

Manage  complex  technical  or  professional  activities  or  projects,  taking  responsibility  for 
decision-making in unpredictable work or study contexts.

Take responsibility for managing professional development of individuals and groups.

Highly specialised knowledge, some of which is 

at the forefront of knowledge, in a field of work 

or study, as the basis for original thinking and/

Level 7

or research.

Critical awareness of knowledge issues in a field 

and at the interface between different fields.

Specialised problem-solving skills required in research 

and/or innovation in order to develop new knowledge 

and  procedures,  and  to  integrate  knowledge  from 

different fields.

Manage and transform work or study contexts that are complex, unpredictable and require 
new strategic approaches.

Take  responsibility  for  contributing  to  professional  knowledge  and  practice,  and/or  for 
reviewing the strategic performance of teams.

Level 1

Level 2

Level 3

Level 4

Level 5

Level 6

Level 7

Knowledge at the most advanced frontier of 

techniques, 

including  synthesis  and  evaluation, 

Level 8

a field of work or study, and at the interface 

required  to  solve  critical  problems  in  research  and/

The  most  advanced  and  specialised  skills  and 

between fields.

or  innovation,  and  to  extend  and  redefine  existing 

knowledge or professional practice.

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

Level 8

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20

T H E   E U R O P E A N   Q U A L I F I C A T I O N S   F R A M E W O R K : 

How can the EQF be used and 
who benefits from the EQF?

THE EUROPEAN QUALIFICATIONS FRAMEWORK: 21

The EQF was created for a number of purposes. While its key purpose is to help individual 
citizens  pursue  their  learning  and  employment  careers,  the  framework  also  supports 
stakeholders  in  education,  training  and  employment  to  improve  policies  and  practices. 
As  a  comprehensive  and  inclusive  reference  framework  for  qualifications,  addressing 
all types and levels, the EQF has many users, varying from individuals, employers, trade 
unions, education and training providers, qualification recognition bodies to government 
authorities and international organisations.

Some experienced and expected benefits for different target audiences are summarised 
below.

The EQF supports careers in the labour market

Qualifications give access to jobs and provide the basis on which careers are built. Getting 
a  job,  or  moving  between  jobs,  requires  qualifications  to  be  understood,  fairly  judged 
and correctly valued by employers and other labour market stakeholders. The ability of 
a qualification to signal what its holder knows, understands and is able to do is therefore 
essential.

The use of learning outcomes to describe qualifications – and the inclusion of European 
and  national  qualifications  levels  on  them  –  makes  it  easier  for  employers  to  interpret 
applicants’ qualifications. 

The EQF also enables employers to better assess qualifications from other countries and 
institutions not known to them. They can better understand the level of each candidate, 
compare  their  qualifications  with  national  qualifications,  understand  the  relevance  of 
those qualifications and see how the learning outcomes match the needs of the company 
or sector.

Through the EQF, employers can treat Europe as one single qualification area. This reduces 
the  barriers  to  labour  mobility,  supports  a  better  use  of  existing  knowledge,  skills  and 
competence, and improves the match between labour demand and supply. 

The  EQF  promotes  a  common  language  between  education  and 
training and the labour market

By promoting the shift to learning outcomes, the EQF can also facilitate dialogue on the 
needs  of  the  labour  market  and  the  provisions  of  the  education  and  training  systems. 
Structured dialogue using learning outcomes as a common language helps to strengthen 
the relevance and increase the attractiveness of qualifications. 

SUPPORTING LEARNING, WORK AND CROSS-BORDER MOBILITY22

The  EQF  and  NQFs  as  a  map  helping  learners  make  decisions  on 
further education and training

The EQF, being closely linked to NQFs in 39 European countries,5 provides a comprehensive 
map  of  all  types  and  levels  of  qualifications  in  Europe.  Increasingly  accessible  through 
national  qualification  databases,  learners  can  use  the  frameworks  to  identify  the  level 
of a particular qualification and how it is related to other qualifications. As a map linking 
together different NQFs, the EQF is relevant to different groups of learners and provides an 
easily accessible overview of qualifications and qualifications pathways. Individuals who 
seek further education or training can use the frameworks as an entry point to information 
on relevant courses and programmes.

The EQF and NQFs are a facilitator of lifelong learning

Opening  up  qualifications  to  a  wider  variety  of  learning  experiences,  for  example  from 
work and leisure time, is essential for promoting lifelong learning. The learning outcomes 
approach makes it possible to take into account experiences from outside formal education.

Validating non-formal and informal learning in Europe

Most European countries have now set up arrangements for the validation of non-formal 
and  informal  learning.  These  arrangements  make  it  possible  for  learners  to  have  their 
prior  learning  identified,  assessed  and,  if  meeting  agreed  requirements  and  standards, 
recognised as a partial or full qualification. This is important for citizens as duplicate work 
is avoided, and diverse and rich learning experiences are taken into account.6

Flexible  learning  pathways  are  important  preconditions  for  facilitating  lifelong  learning. 
Credit transfer and accumulation arrangements form part of this approach. The EQF and its 
learning outcomes approach supports credit transfer and accumulation and can, together 
with validation of non-formal and informal learning, directly facilitate lifelong learning. 

5 
6 

http://www.cedefop.europa.eu/en/events-and-projects/projects/national-qualifications-framework-nqf
http://www.cedefop.europa.eu/en/events-and-projects/projects/validation-non-formal-and-informal-learning

THE EUROPEAN QUALIFICATIONS FRAMEWORK: 23

Qualifications with an EQF level are a trusted currency  

Because  education  and  training  systems  differ  between  countries,  it  can  be  difficult  to 
appreciate the value and relevance of foreign qualifications. As a  result, there is a  risk 
that qualifications are not fairly judged and assessed. The same problem can arise when 
combining qualifications from different education and training sectors and institutions.

The EQF levels are now increasingly being included in national certificates and diplomas 
across Europe, making it possible to see how a particular qualification relates to others in 
a wider European context. The systematic and long-term cooperation between countries 
through the EQF and NQFs, which act as gate-keepers of quality assured qualifications, 
ensure that these levels can be trusted across Europe. As a result, citizens can more easily 
distinguish between qualifications that can be trusted or those that cannot, or are ‘fake’. 
This way the EQF also serves as a type of ‘consumer protection’. 

The EQF makes the recognition of qualifications easier

The EQF facilitates recognition of qualifications by promoting the use of learning outcomes, 
allowing holders and receivers of qualifications to directly assess the content, level and 
profile of the qualification in question.

The  EQF  works  together  with  other  European  and  international  instruments  supporting 
the recognition of qualifications. While these instruments either focus on regulated and/or 
academic qualifications, the EQF supports the recognition of learning for all qualifications.

European and international instruments supporting the recognition 
of qualifications

 ■ Directive 2005/36/EC addresses the recognition of professional qualifications in the EU, 
enabling  professionals to move across borders and practise their occupation or provide 
services abroad;7

 ■ The  Lisbon  recognition  convention8  is  an  international  agreement  administered 
by  UNESCO  and  the  Council  of  Europe  that  allows  for  the  recognition  of  academic 
qualifications in Europe and beyond;

 ■ The  ENIC/NARIC  network9  is  a  network  of  national  centres  set  up  to  directly  support 

institutions and citizens with the recognition of academic qualifications.

7 
8 
9 

https://ec.europa.eu/growth/single-market/services/free-movement-professionals/qualifications-recognition_en
https://rm.coe.int/168007f2c7
http://www.enic-naric.net/

SUPPORTING LEARNING, WORK AND CROSS-BORDER MOBILITY24

The EQF supports other EU transparency tools

The  European  Commission,  in  close  cooperation  with  Member  States,  has  launched  a 
number of tools supporting the modernisation of European education and training systems 
over the last decade. Focusing on the need for increased transparency and comparability 
of skills and qualifications, these tools support the geographical and lifelong learning of 
citizens. The learning outcomes perspective can be seen as the ‘glue’ binding these tools 
together, respecting the diversity of national solutions but at the same time allowing them 
to work together.

Many of these tools address citizens directly, as is the case for Europass and the credit 
systems for higher education (ECTS) and VET (ECVET). While Europass supports individuals 
in their learning and careers, the credit systems facilitate flexible learning pathways and 
lifelong learning. 

Another  group  of  tools  support  the  work  of  national  authorities  and  institutions,  and 
indirectly  addresses  the  needs  of  individual  citizens.  This  applies  to  a  range  of  career 
guidance and validation of learning initiatives, where European initiatives are an incentive 
for  setting  up  national  arrangements  and  sharing  practices.  The  tools  supporting 
cooperation  on  quality  assurance  in  higher  education  (ESG)  and  VET  (EQAVET)  aim  to 
increase trust and transparency between countries. Furthermore, with the introduction of 
the ESCO classification, the Commission has put a terminology in place that supports a 
focus on learning outcomes and the strengthening of dialogue between stakeholders in 
education and training and the labour market.

THE EUROPEAN QUALIFICATIONS FRAMEWORK: S U P P O R T I N G   L E A R N I N G ,   W O R K   A N D   C R O S S - B O R D E R   M O B I L I T Y

25

What impact has the 
EQF had so far?

26

Overview

Since 2008, 39 countries have been engaging with the EQF. In addition to 28 EU Member 
States,  this  figure  includes  11  non-Member  States  (Albania,  Bosnia  and  Herzegovina, 
Iceland,  Kosovo,10  Liechtenstein,  Montenegro,  Norway,  Serbia, 
North  Macedonia, 
Switzerland and Turkey). 

Currently,  35  countries  (27  EU  Member  States  and  8  non-Member  States)  have 
referenced their  NQFs  or  systems  to  the  EQF.  This  means  that  a  clear  link  has  been 
established  between  national  and  European  levels.  Most  referencing  reports  have  also 
been published on the Learning Opportunities and Qualifications in Europe portal.11

To reach full implementation and to raise awareness among the general public, countries 
should take actions so that their qualifications contain a clear reference to the appropriate 
EQF level. European levels should appear on qualification documents and in qualification 
databases  or  registers  to  make  qualifications  more  transparent  and  comparable.  The 
visibility of EQF levels is a key element of the success of the EQF implementation.

Currently, 23 countries referenced to the EQF display EQF levels on certificates, diplomas 
or  Europass  supplements,  while  17  countries  display  EQF  levels  in  qualifications 
databases or registers. A number of countries are now working to connect their databases 
to the Learning Opportunities and qualifications in Europe portal. They can also link their 
qualifications to the ESCO portal.12

Development of NQFs and the shift to learning outcomes

The EQF has had a major impact on the development of NQFs in Europe. Currently, 43 
NQFs  have  been  established,  while  only  3  existed  before  the  adoption  of  the  first  EQF 
Recommendation in 2008. 

Most countries have introduced eight-level frameworks, though some have less or more 
(e.g. the French framework has 5 levels, the Irish 10 and the Scottish 12). A number of 
countries also use sub-levels, which is seen as important in order to meet the interests of 
certain stakeholders and sometimes accommodate legacy awards.  

While the early stages of the EQF were mainly focused on putting NQFs in place in order to 
reference these to the EQF, the current activities of many NQFs concentrate on allocating 
levels to individual qualifications and reviewing qualifications. Through the development 
of national frameworks, the EQF has therefore contributed to the improved transparency 
of national qualifications systems.

10 

11 
12 

This designation is without prejudice to position on status, and is in line with UNSC 1244 and the ICJ Opinion on the Kosovo 
declaration of independence.
https://ec.europa.eu/ploteus/
http://ec.europa.eu/esco

THE EUROPEAN QUALIFICATIONS FRAMEWORK: 27

Dialogue between stakeholders

Another impact has been the involvement of, and dialogue between, education/training and 
employment stakeholders and different actors within the education/training area. Inspired 
by the EQF, nearly all referenced NQFs are comprehensive frameworks that include a broad 
spectrum of qualifications. As a result, permanent dialogue structures have been set up in 
several countries that include public authorities, higher education, VET, social partners and 
civil organisations. 

NQFs and higher VET

EQF  implementation  and  this  dialogue  have  resulted  in  a  higher  level  of  parity  between 
VET  and  higher  education  in  some  countries.  EQF  descriptors  are  neutral  with  regards  to 
academic and professional training, and do not prescribe on what level different types of 
qualifications should be placed. The implementation of the EQF shows that vocationally- 
and professionally-oriented qualifications can also be referenced to levels 5-8 (for example, 
the German and Austrian master craftsman qualification are referenced to level 6, while the 
Swiss NQF is explicitly designed to support this principle).  

Linking qualifications frameworks and the validation of non-formal 
and informal learning

The  2012  Recommendation  on  the  validation  of  non-formal  and  informal  learning  saw 
the link to NQFs as important for the further implementation of validation arrangements 
across Europe. The 2016 update of the European inventory on validation13 confirmed that 
countries  now  give  high  priority  to  linking  frameworks  and  validation  arrangements.  EQF 
and NQFs, through their focus on learning outcomes, act as a reference point for identifying, 
documenting,  assessing  and  recognising  learning  acquired  in  non-formal  and  informal 
settings.

Qualifications awarded outside formal education and training

Most  European  NQFs  cover  qualifications  offered  within  formal  education  and  training 
(e.g. VET, higher education and general education). These qualifications are regulated and 
awarded by national authorities. However, there is a growing trend among countries to open 
up their frameworks to include qualifications awarded in continuing and further education 
and training, which are often awarded outside the formal national qualification system.

Worldwide impact

The  EQF  and  its  level  descriptors  have  been  a  source  of  inspiration  for  the  development 
of qualifications frameworks worldwide. Currently more than 150 NQFs are in existence or 
under development.14 A positive side effect of the EQF being relatively well-known outside 
Europe has been that qualification recognition bodies more easily understand qualifications, 
which facilitates their recognition.

13 
14 

http://www.cedefop.europa.eu/en/events-and-projects/projects/validation-non-formal-and-informal-learning/european-inventory
https://publications.europa.eu/en/publication-detail/-/publication/406d3baf-deef-11e7-9749-01aa75ed71a1/language-en

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28

T H E   E U R O P E A N   Q U A L I F I C A T I O N S   F R A M E W O R K : 

A look to the future

THE EUROPEAN QUALIFICATIONS FRAMEWORK: 29

The revision of the EQF Recommendation in May 2017 gave the EQF process a new impetus. 
The  Recommendation  invites  Member  States  to  review  and  update  their  referencing 
to the EQF when relevant, which helps to ensure that the information underpinning the 
referencing is accurate, transparent and reflects any relevant changes at national level. At 
the same time, the core of the EQF process, namely referencing NQFs and their levels to 
the EQF, remains in place. 

The revised Recommendation marks an important step in the coming of age of the EQF. 
While the early stages of the EQF were mainly focused on referencing NQFs to the common 
reference framework, the process is now characterised by the inclusion of qualifications 
in  frameworks.  All  framework  qualifications  referenced  to  the  EQF  should  respect  the 
common quality assurance principles of Annex IV to the Recommendation. 

In the context of the EQF, setting up procedures to give levels to international qualifications 
included in national frameworks will be a new field of work in which information exchange 
and consultation between Member States will be crucial for consistency. 

The  revised  Recommendation  also  opens  up  possible  cooperation  with  third  countries 
in  order  to  enable  comparison  of  their  (national  or  regional)  qualifications  frameworks 
with the EQF. Such cooperation could strengthen the comparability of European and third 
country qualifications, and facilitate mobility of both EU and non-EU citizens.

In the near future, further work will also be done on the description, use and application 
of learning outcomes to increase transparency and the understanding and comparability 
of qualifications. 

Communication will be improved in order to better reach out to employers, education and 
training  providers,  learners,  workers  and  other  stakeholders  and  inform  them  about  the 
EQF’s and NQFs’ benefits. In order to show the added value of the EQF and stimulate its 
use, the revised Recommendation continues to emphasise the importance of displaying 
the appropriate EQF levels on qualifications. 

Finally, the EQF is also equipped to deal with future developments in learning and work. 
To adapt to today’s digital world, the EQF levels can also be displayed on qualifications 
databases.  Moreover,  a  common  set  of  data  fields  for  the  electronic  publication  of 
information on qualifications with an EQF level is included in the revised Recommendation. 
This will help all involved to keep pace with new ways of sharing and linking information 
for the benefit of learners, workers, job-seekers and employers. Work on European portals 
in order to make sure information on qualifications is accessible and published will also 
continue, adapting to the needs of tomorrow’s reality. 

SUPPORTING LEARNING, WORK AND CROSS-BORDER MOBILITY30

Acronyms

European Centre for the Development of Vocational Training

Cedefop

European Credit system for Vocational Education and Training

ECVET

European Credit Transfer and Accumulation System

European Qualifications Framework for lifelong learning

ECTS

EQF

European Quality Assurance in Vocational Education and Training

EQAVET

European Skills, Competences, Qualifications and Occupations

ESCO

European Standards and Guidelines for quality assurance in the 
European Higher Education Area

European Training Foundation

European Union

National Qualifications Framework(s)

Vocational Education and Training

ESG

ETF

EU

NQF(s)

VET

THE EUROPEAN QUALIFICATIONS FRAMEWORK: 31

Getting in touch with the EU

In person

All over the European Union there are hundreds of Europe Direct Information Centres.  

You can find the address of the centre nearest you at: http://europa.eu/contact

On the phone or by e-mail
Europe Direct is a service that answers your questions about the European Union.  

You can contact this service:

– by freephone: 00 800 6 7 8 9 10 11 (certain operators may charge for these calls),

– at the following standard number: +32 22999696 or 

– by email via: https://europa.eu/european-union/contact_en

Finding information about the EU

Online
Information about the European Union in all the official languages of the EU is available on the Europa website at: 

https://europa.eu/european-union/index_en

EU Publications
You can download or order free and priced EU publications at: https://publications.europa.eu/en/publications. Multiple 

copies of free publications may be obtained by contacting Europe Direct or your local information centre (see https://

europa.eu/european-union/contact_en).

EU law and related documents
For access to legal information from the EU, including all EU law since 1952 in all the official language versions, go 

to EUR-Lex at: http://eur-lex.europa.eu

Open data from the EU
The EU Open Data Portal (http://data.europa.eu/euodp/en) provides access to datasets from the EU. Data can be 

downloaded and reused for free, both for commercial and non-commercial purposes.

SUPPORTING LEARNING, WORK AND CROSS-BORDER MOBILITYK
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The European Qualifications Framework for lifelong learning (EQF) aims to improve the 
transparency, comparability and portability of people’s qualifications. This brochure has 
been published to mark the 10th anniversary of the EQF and provides an overview of 
the framework in general, how it can be used and who benefits. It also highlights the 
achievements of the EQF over the last 10 years and takes a look into the future. 

You can download our publications or subscribe for free at 
ec.europa.eu/social/publications

If you would like to receive regular updates about the Directorate-General for Employment, 
Social  Affairs  and  Inclusion  sign  up  to  receive  the  free  social  europe  e-newsletter  at 
ec.europa.eu/social/e-newsletter

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