COMMISSION STAFF WORKING DOCUMENT Accompanying the document Proposal for a Council Recommendation on a European approach to micro-credentials for lifelong learning and employability
Date: 2021-12-10
Institutions: Directorate-General for Education, Youth, Sport and Culture, European Commission
Subjects: EU employment policy, access to education, continuing education, educational system, higher education, labour market, non-formal education, professional qualifications, updating of skills

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 10.12.2021  SWD(2021) 367 final  COMMISSION STAFF WORKING DOCUMENT   Accompanying the document Proposal for a Council Recommendation on a European approach to micro-credentials for lifelong learning and employability {COM(2021) 770 final}  
 
 
Contents 

Introduction ................................................................................................................................................. 3 

1.  State of play ......................................................................................................................................... 4 

1.1. 

Increasing Demand for flexible learning opportunities ........................................................... 4 

1.2.  Main drivers of demand ............................................................................................................. 9 

1.2.1. 

Lifelong Learning and personal development .................................................................. 9 

1.2.2. 

The right skills for better employability in the EU labour market .............................. 12 

1.2.3.  Green transitions ............................................................................................................... 15 

1.2.4. 

Digital transitions .............................................................................................................. 15 

1.3.  Overview of current provision of micro-credentials .............................................................. 15 

1.3.1.  Micro-credentials in higher education ............................................................................ 17 

1.3.2.  Micro-credentials in Vocational Education and Training (VET) ................................. 25 

1.3.3. 

Private providers ............................................................................................................... 28 

1.4. 

Potential benefits of Micro-credentials ................................................................................... 31 

2.  Problem Definition ............................................................................................................................ 36 

2.1.  Lack of definition ...................................................................................................................... 37 

2.2.  Lack of trust .............................................................................................................................. 42 

2.3.  Lack of transparency ................................................................................................................ 42 

2.4.  Lack of uptake ........................................................................................................................... 44 

3.  Available feedback from target and open consultations on the envisaged measures ................. 45 

3.1.  Outline of the consultation strategy ........................................................................................ 45 

3.2.  Analysis of results across different consultation activities .................................................... 46 

3.2.1. 

Consultation Strategy and Activities ............................................................................... 46 

3.2.2. 

Roadmap ............................................................................................................................ 46 

3.2.3.  Open Public Consultation ................................................................................................ 46 

3.2.4. 

Targeted stakeholder events ............................................................................................ 47 

3.2.5. 

Reach of the Stakeholder Consultation Strategy ........................................................... 47 

3.3. 

Findings ...................................................................................................................................... 48 

3.3.1.  Open Public Consultation and targeted stakeholder consultation events ................... 48 

3.4.  Conclusions ................................................................................................................................ 60 

4.  Objectives of the proposal ................................................................................................................ 60 

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5.  EU added value ................................................................................................................................. 62 

6.  What instruments are available? ..................................................................................................... 63 

7.  Rationale for key elements of the proposal ..................................................................................... 65 

7.1.  A common and transparent definition .................................................................................... 65 

7.2.  EU standard for micro-credentials – a defined list of critical elements to describe micro-
credentials .............................................................................................................................................. 66 

7.3.  EU Principles for design and issuance of micro-credentials ................................................. 67 

7.3.1.  Quality ................................................................................................................................ 68 

7.3.2. 

Transparency ..................................................................................................................... 71 

7.3.3. 

Relevance ........................................................................................................................... 74 

7.3.4. 

Valid assessment ................................................................................................................ 74 

7.3.5. 

Learning pathways ............................................................................................................ 75 

7.3.6. 

Recognition ........................................................................................................................ 79 

7.3.7. 

Portable .............................................................................................................................. 80 

7.3.8. 

Learner centred ................................................................................................................. 82 

7.3.9. 

Authentic ............................................................................................................................ 82 

7.3.10. 

Information and guidance ................................................................................................ 83 

7.4. 

Provisions in the proposal ........................................................................................................ 84 

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Introduction 

In the Commission political guidelines, Commission President Ursula von der Leyen states her intention 
“to bring down barriers to learning and improve access to quality education”, underlining the relevance of 
inclusion and quality in lifelong learning as proclaimed in the European Pillar of Social Rights.  

Subsequently,  the  European  Skills  Agenda,  adopted  on  1  July  2020,  announced  among  its  12  flagship 
actions a new initiative on a European approach to micro-credentials, with the aim to support the quality, 
transparency and take-up of micro-credentials across the EU, in order to encourage people to upskill and 
reskill in a fast and effective way, in line with needs of the labour market and a fast-changing society. 

Equally, the Commission Communication on achieving the European Education Area by 2025, adopted on 
30 September 2020, announced that the Commission would work towards the development of a European 
Approach  to  micro-credentials,  to  help  widen  learning  opportunities  and  strengthen  the  role  of  higher 
education and vocational education and training institutions in lifelong learning by providing more flexible 
and modular learning opportunities.  

As a follow-up to these actions, the 2021 Commission Work Programme1 commits to proposing a European 
approach  to  micro-credentials  under  the  headline  ambition  “Promoting  our  European  way  of  life”. 
Accordingly, the European Commission is putting forward a proposal for a Council Recommendation on 
Micro-credentials for lifelong learning and employability to adopt a common definition and approach to 
quality, transparency, and uptake of micro-credentials, by building on existing tools, as far as possible. 

The proposal aims to:  

  Enable  individuals  to  acquire  the  knowledge,  skills  and  competences  they  need  to  thrive  in  an 
evolving labour market and society, to benefit fully from a socially fair recovery and just transitions 
to the green and digital economy; 

  Support the preparedness of providers of micro-credentials to enhance  the transparency and the 
flexibility of the learning offer in order to empower individuals to forge personalised learning and 
career pathways; 

  Foster inclusiveness and equal opportunities, contributing to the achievement of resilience, social 
fairness and prosperity for all, in a context of demographic change and throughout all economic 
cycles.  

To achieve these objectives, the proposal establishes a European approach recommending to Member 
States to:  

  Apply a common EU definition, standards and key principles for design and issuance of micro-

credentials; 

  Develop the eco-system for micro-credentials, and; 

1 https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52020DC0690  

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  Deliver on the potential micro-credentials to support employability and lifelong learning.  

This staff working document provides evidence and additional background information to the Proposal for 
a Council Recommendation on Micro-credentials for lifelong learning and employability. 

  Chapter 2 looks at the drivers behind micro-credentials and offers an overview of the state of 

play as well as examples of existing practices. 

  Chapter 3 provides evidence for the need for Council a Recommendation and highlight the value 

of an EU-level action. 

  Chapter 4 summarises the main findings of the consultation process. 
  Chapter 5 presents the general, specific and operational objectives of the proposal linked with 
the problematic issues identified earlier. It also contains a short explanation of necessity and 
added value of an EU action. 

  Chapter 6 presents the conclusions for a European approach and how it would improve the 

situation and support the objectives presented in Chapter 5. 

1.  State of play 

Note: The subject of this Commission proposal is micro-credentials, meaning the record of the learning 
outcomes that a learner has acquired following a small volume of learning. The proposal does not focus on 
the course or learning experience itself that may lead to the micro-credential (although the course, providers 
and other aspects of the learning experience may be an important factor in the quality assurance mechanisms 
for the issuance of the micro-credential). 

1.1. Increasing Demand for flexible learning opportunities 

The phenomenon of micro-credentials is not a new one. Small, usually short in duration courses leading to 
different  types  of  awards  or  credentials,  are  already  dominant  in  many  education  and  training  sectors, 
professions  and  labour  market  systems  e.g. in diving  instruction,  IT  certification,  and  in  continuing 
professional development for health workers. The advance of technology, changes to the nature of work and 
new ways of learning (supported by the emergence of platforms and online learning) have repositioned the 
central learner’s role as they “build their own learning pathways”. 

Since the start  of the  COVID-19  crisis  however, there  has  been  an  unprecedented  surge in  demand  for 
online  learning,  including  for  short,  tailored  courses2. Personalised  learning,  micro-learning  and  high-
velocity training are amongst the key global education trends identified by Euromonitor. Interest in micro-

2 Cedefop, 2020. Coronavirus boosts interest in online learning. Available at: 
https://www.cedefop.europa.eu/en/news-and-press/news/coronavirus-boosts-interest-online-learning  

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credentials has exploded. An analysis of Google Trends by Brown et al (2021)3 reveals that the term 'micro-
credentials' first appeared in Google search results in 2013 and there has been steady and continuous growth 
in the number of online searches for the term since then. Figure 1 shows that the highest point in the trend 
data for the term "micro-credentials" was reached in May 2021. This demand for small and shorter learning 
options  and  their  recognition  is set  to  continue  within  the  context of  the recovery  from  the  COVID-19 
crisis.  

 Figure 1: Growth of micro-credentials evidenced by Google search traffic  

Providers  and  delivery  modes  of  micro-credentials  are  multiplying,  they  may  be  offered  by  a  range  of 
organisations,  not  all  of  which  are  traditional  providers  of  training  and  education.  Micro-credential 
providers include schools, higher education institutions, vocational education and training (VET) providers 
and  private  education  and  training  providers.  Providers  also  include  specialised  learning  platforms, 
collaborative  initiatives  that  focus  on  particular  professions  and occupations,  and  a  growing  number  of 
companies and professional associations that design their own competency-based offerings. Finally, public 
and non-profit bodies such as charities, government departments and international organisations may offer 
micro-credentials related to their missions. 

Higher  education  institutions  have  been  active  for  quite  some  time  in  providing  lifelong  learning 
opportunities, or units smaller than full degrees, such as courses, modules, diplomas, parts of degrees, in-
service training, etc4. VET programmes have similarly shifted to become more flexible and learner centred, 
through face-to-face, digital and blended learning, flexible and modular pathways. Continuing vocational 

3 Brown, M., Nic Giolla Mhichíl, M., Beirne, E., & Mac Lochlainn, C. (2021). The global micro-credential 
landscape: Charting a new credential ecology for lifelong learning. Journal for Learning Development, 8 (2), 228-
254. 
4 MICROBOL. (2021). Micro-credentials linked to the Bologna Key Commitments: Recommendations from the 
MICROBOL project for the European Commission’s proposal for a Council recommendation on micro-credentials  
for lifelong learning and employability. Available at https://eua.eu/resources/publications/940:micro-credentials-
linked-to-the-bologna-key-commitments.html  

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training is by its nature closely aligned to shifts and demands in the labour market and makes use of micro-
credentials to support individual up-skilling or reskilling needs5.  

Task and competence-oriented certificates linked to shorter learning experiences, already play an important 
role in many parts of the labour market (offered by sectors, private companies, international organisations 
and public bodies)6.  For instance, certificates and small training bundles in technical skills such as welding, 
computer  networking,  or  accounting  are  in  high  demand  in  the  US7).  Figure  2  shows  the  top  5  most 
requested certificates and certifications. 

Figure 2: Top 5 US Job requests for Certificates and Certifications 

Major corporate actors have been described as disruptive forces, challenging the status quo of traditional 
education and training models through short courses credentialed by corporate actors themselves to support 
both entry level and career advancement8. Examples include Google which recognises these courses as the 
equivalent of a full bachelor’s degree for recruitment selection  purposes9; and EY and IBM which have 
both adopted recruitment strategies that give people a foot in the door based on non-traditional education, 
and soft or transversal skills10. These organisations also continue to partner with other stakeholders, for 
instance, Google recently launched career certification in IT aligned pathways for job seekers, in areas of 

5 Cedefop, ongoing study on micro-credentials role in facilitating learning for employment 
6 Cedefop (2021). Microcredentials: are they here, 2nd March. Available from 
https://www.cedefop.europa.eu/en/news-and-press/news/microcredentials-are-they-here-stay  
7 Markow, W., Restuccia, D., Taska, B., & Bittle, S. (2017). The Narrow Ladder: The Value of Industry 
Certifications in the Job Market. Report: BurningGlass Technologies. Available at https://www.burning-
glass.com/wp-content/uploads/BurningGlass_certifications_2017.pdf  
8 Fain,P., (2019) Employers as Educators, InsideHigherEd,  
9 Bariso, J. (2020). Google has a plan to disrupt the college degree. Inc, 19 August. https://www.inc.com/justin-
bariso/google-plan-disrupt-college-degree-university-higher-education-certificate-project-management-data-
analyst.html  
10 Oliver, B. (2019).  Making micro-credentials work for learners, employers and providers. Deakin University. 
Available at https://dteach.deakin.edu.au/wp-content/uploads/sites/103/2019/08/Making-micro-credentials-work-
Oliver-Deakin-2019-full-report.pdf  

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high  unemployment  in  Ireland  in  partnership  with  a  local  Education  and  Training  Board  and  with  an 
international MOOC platform11.  

These patterns reflect a global trend. For instance, in Australia, a recent media piece on micro-credentials 
claims micro-credentials are “huge and hiding in plain sight”12 and reports that in 2019 there were 2.6m 
people  enrolled  in  non-qualification  “training  bundles”,  primarily  to  meet  regulatory  requirements  in 
workplace safety, emergency preparedness, and authority to operate. This figure is confirmed in a detailed 
analysis of micro-credentials in Vocational Education and Training (VET) in Australia where it is reported 
that this sector is largely a ‘private’ market with over 90% of these short training bundles funded on a fee-
for-service basis13.   

The growth in demand and uptake of Massive Online Open Courses (MOOCs) is one of the most notable 
trends to consider in the context of micro-credentials and the biggest indication of the dramatic growth in 
learner engagement with short, online courses. By the end of 2020, more than 180 million learners had 
enrolled in over 16,000 Massive Online Open Courses (MOOCs) throughout the world, with around 1200 
micro-credentials14.  

Figure 3: Growth of MOOCs in 2020  

11 O’Dea, B. (2021) Google Ireland will offer 1,000 scholarships for Dublin jobseekers, Silicon Republic, Available 
at https://www.siliconrepublic.com/careers/google-ireland-dublin-jobseekers  
12 Campus Morning Mail (2021, June 4). Micro-credentials: huge and hiding in plain sight. Available at: 
https://campusmorningmail.com.au/news/micro-credentials-huge-and-hiding-in-plain-sight/  
13 Palmer, B. (2021). An analysis of ‘micro-credentials’ in VET. NCVER Research Report, Adelaide, Australia. 
Available at https://www.ncver.edu.au/__data/assets/pdf_file/0041/9666257/An-analysis-of-micro-credentials-in-
VET.pdf  
14 Shah, D. (2020a). By the numbers: MOOCs in 2020. Available at: https://www.classcentral.com/report/mooc-
stats-2020/  

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there  were  almost  50  million  visits 

the 
In  June  2020, 
world18. ClassCentral has also reported that the numbers of sessions on the major MOOC platforms during 
March and April 2020 were up 50% to 400% on previous years15.  

the  major  platforms  around 

to 

MOOC platforms are considered an important global player in the development of micro-credentials16. The 
global  online  degree  and  micro-credential  market  is  predicted  to  grow  exponentially  over  the  next  few 
years, with an estimated value of US $118 billion by 2025. The learning platform market is booming and 
the number of course providers is growing rapidly, from companies such as edX, 2U, Coursera and Credly 
to new players LinkedIn, Google, and PwC.  There is also growing use of online learning platforms by 
public  authorities  (e.g  France  Universitaire  Numérique17  in  France,  EduOpen18  in  Italy)  and  specific 
institutions,  created  through  collaboration  between  institutions  and/or  sectors  or  established  by  private 
providers for profit or non-profit purposes.  Characterised as flexible, open, self-paced, highly interactive, 
interdisciplinary  and  cost-reducing,  MOOCs  are  being  considered  by  many  diverse  actors  within 
education17,  training  and  industry.  It  should  be  noted  that  not  all  MOOCs  lead  to  certification;  MOOC 
providers  often  offer  an  option  to  purchase  or  apply  for  a  certification  to  recognise  completion  of  the 
MOOC.  

Figure 4: Predicted growth in the global market for micro-credentials  

This development of myriad online platforms has created a new dimension to not just online learning but 
learning more broadly.  Micro-credentials offered on online platforms have inherent perceived advantages, 
in comparison with traditional models of education and training offers. Learners are usually able to choose 

15 Shah, D. (2020b). How different MOOC providers are responding to the pandemic. Available at: 
https://www.classcentral.com/report/mooc-providers-response-to-the-pandemic/  
16 MICROBOL. (2020) Micro-credentials linked to the Bologna Key Commitments. Desk Research Report. 
17 https://www.fun-mooc.fr/fr/  
18 http://learn.eduopen.org/  

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from and compare a wide range of opportunities and view feedback of other learners who have completed 
the programme. Such platforms can also offer the ability to ‘stack’ and combine micro-credentials to earn 
larger credentials over time.  

Education and training institutions that do offer micro-credentials through online learning platforms are 
encouraged to demonstrate their comparative advantage by increasing the accessibility and relevance of the 
learning experience including links with traditional education and training programmes (e.g. by offering 
credit)  and  demonstrating  collaboration  with  the  industry  on  micro-credential  development19.  Credit 
recognition is increasingly used for micro-credentials completed online and offers the learner  a tangible 
recognition of the learning experience as well as a way to pursue studies towards a qualification. 

The rapid growth in online learning platforms poses questions about the shift to online learning, resources 
required at national level to respond to the shift and also the dominance of providers located outside of 
Europe. 

1.2. Main drivers of demand 

This section presents an overview of the multiple influences and drivers which are stimulating the demand 
for micro-credentials and which have seen education and training organisations, social and labour market 
organisations seek to response to these demands.  

1.2.1.  Lifelong Learning and personal development 

Initial education and training plays a formative role in personal development but the demands and reality of 
life mean that personal development is a necessary process throughout life. Personal development enables 
personal fulfilment and growth throughout life. Personal development is necessary to cope with the demands 
and transitions in a fast-changing society, to make choices and take decisions, and to set goals and realise 
ambitions.  

Lifelong learning is an enabler of personal development.  People can be inspired and motivated to learn and 
develop skills in topics not directly relevant to their career in which they have a personal interest including 
hobbies, volunteering, and working in their community. 

19 OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education 
Policy Perspectives, No. 39, OECD Publishing, Paris, https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en  

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Learner Perspective 

Micro-credentials are at the service of the individual’s learning and professional development. A learner-
centred approach has the potential to support people throughout their lives and engage them as owners 
and active agents in their learning and career pathways.  

Learners are not a single homogeneous group and it is important to acknowledge this diversity of learners 
in any approach to micro-credentials. Micro-credentials can support an array of learning pathways and 
contexts including different employment status (stable, full-time employment, part-time, freelance, etc.), 
levels of education and training, personal development needs and challenges faced by specific groups 
(such disabilities, age, social and economic background, digital literacy etc).  

The  typical  motivation  of  learners  depends  on  personal  situation  as  well  as  issues  such  as  costs, 
availability of financial support from employers, the quality of the provider, recognition of the micro-
credential  by  employers  as  well  as  the  perceived  quality  of  the  micro-credential  by  industry. 
Research shows20 that those without the knowledge or cultural capital to navigate the market are likely 
to  invest  in  training  that  is  not  actually  valued  by  employers.  On  the  other  hand,  more  privileged 
individuals are able to tailor their credentials exactly to employer needs and maximise the benefits. This 
is borne out in research21 which highlights that those most effectively engaging in micro-credentialing 
already  have  degrees  and  good  jobs  and  are  essentially  stacking  micro-credentials  onto  existing 
educational  and  social  privileges.  In  addition,  evidence  shows  that  digital  learning  tends  to  favour 
individuals who possess complex multi-literacy skills and have experience of self-regulated learning. 
However,  some  industry-led  micro-credentialing  initiatives  have  been  successful  at  attracting  non-
traditional learners (e.g Google IT Support Professional Certificate). 

Figure 5: Who is the learner?  
Source: Pichette, J., Brumwell, S., Rizk, J., & Han, S. (2021). Making Sense of Microcredentials. 

20 Death of Human Capital?: Its Failed Promise and How to Renew It in an Age of Disruption - Oxford Scholarship 
(universitypressscholarship.com) 
21 the-short-term-credentials-landscape.pdf (luminafoundation.org) 

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Available research shows that graduate learners, in particular, tend to use micro-credentials to explore or 
upskill in topics not directly related to their original field of study. In practice however, learning for personal 
development  may  not  be  easily  accessible  or  a  priority  for  people.  One  the  key  obstacles  preventing 
individuals to participate in new learning opportunities is the lack of time due to professional and personal 
activities.  Micro-credentials  have  the  potential  to  boost  access  and  participation  in  lifelong  learning  by 
bringing more flexibility to the learning pathways and personalised learning thanks to their, usually short 
duration, modular approach and portability of credits. This is likely to  attract a larger and more diverse 
number of learners, such as adult learners and offer opportunities to support their personal development or 
test new fields they would not have the time to dedicate to in the context of a tradition education or training 
experiences.  Learning  for  personal  development  can  also  support  development  of  transversal  skills 
(creativity,  critical  thinking,  complex  information  processing)  which  continue  to  grow  in  importance. 
Micro-credentials  can  play  an  important  role  in  the  developing  transversal  skills  as  expressed for 
example by the ECIU University alliance: “A distinctive feature of ECIU University’s micro-modules is 
our commitment to Challenge-based Learning (CBL) in order to support the development of creative and 
resilient European citizens with an entrepreneurial mindset, critical thinking and agility”22.  These ‘uniquely 
human’ skills are more essential than ever and can be used for increasingly diverse job roles as well as to 
ensure personal fulfilment and growth. 

MICROBOL project – identification of drivers 

MICROBOL (Micro-credentials linked to the Bologna key commitments)23  is a two-year project is 
co-funded by Erasmus+ KA3 Support to Policy reform, and, more specifically “Support to the 
implementation of European Higher Education Area (EHEA) reforms".  

The project supports ministries and stakeholders in exploring, within the Bologna Process, whether and 
how the existing Bologna tools can be used and/or need to be adapted to be applicable to micro-
credentials. 

MICROBOL’s focus on lifelong learning for micro-credentials includes a wide variety of drivers and 
suggestions24 which align with drivers from the literature, including:   

  providing access to education and training to diverse learner groups at a variety of points of an 

individual's learning journey;   

22 Brown, M., Nic Giolla Mhichíl, M., Mac Lochlainn, C., Pirkkalainen, H., & Wessels, O. (2021). Paving the Road 
for the Micro-credentials Movement: ECIU University White Paper on Micro-Credentials. European Consortium of 
Innovative Universities (ECIU). Available at https://assets-global.website-
files.com/551e54eb6a58b73c12c54a18/600e9e7dff949351b6937d73_ECIU_micro-credentials-paper.pdf  
23 https://microcredentials.eu/ 
24 MICROBOL. (2021). Micro-credentials linked to the Bologna Key Commitments: Recommendations from the 
MICROBOL project for the European Commission’s proposal for a Council recommendation on micro-credentials 
for lifelong learning and employability. Available at https://eua.eu/resources/publications/940:micro-credentials-
linked-to-the-bologna-key-commitments.html  

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 

 

 

ensuring collaboration with stakeholders outside and across training and education to ensure the 
relevance of micro-credentials;   

exploring micro-credentials in terms of the Recognition of Prior Learning and the evidencing of 
learning i.e. knowledge, skills and competences and;    

translating and transferring knowledge and findings from research into learning for diverse 
learners but also within the context of lifelong learning. 

1.2.2.  The right skills for better employability in the EU labour market  

COVID-19  and  the  automation  of  jobs  are  identified  as  the  components  of  an  economic  “double 
disruption”, by the World Economic Forum, suggesting that 50% of all employees will need reskilling by 
202525. The pandemic has catalysed governments across the globe to take action to address unemployment, 
reskilling and the upskilling of workers impacted by the pandemic26.  In the short-term, up to 59 million 
jobs in  Europe  are  at  risk  due  to  COVID-1927.  Large-scale upskilling  and  reskilling  efforts  can  help  to 
minimise  the  impact  of  job  losses.  New  and  evolving  work  opportunities  and  practices are creating 
an urgent need for re-skilling among workers with micro-credentials identified as a possible means of 
supporting this upskilling at scale.  

Prior to the pandemic, new and emerging technologies have been reshaping millions of jobs. Increasingly 
rapid  advances in  technology  and  the  labour  market  require an  adaptable workforce  to  be  familiar  with 
state-of-the-art knowledge, and to possess the knowledge, skills and competences needed to make full use 
of technological and non-technological know-how. Employees need ‘just-in-time’ skills development that 
is  immediately  applicable.  This  trend  is  likely  to  accelerate  with  the  economic  crisis  triggered  by  the 
COVID-19 pandemic. As skill demands continue to change, individuals will continually need to re-train, 
reskill or redeploy to avoid redundancy, social and economic displacement in their local communities and 
to avail of new labour opportunities28. McKinsey Global Institute’s7 claim that by 2030, 75 million to 375 
million workers (3% to 14% of the global workforce) will need to switch occupational categories or “around 
85% of the jobs that today’s learners will be doing in 2030 haven’t been invented yet”29.  

The  difficulties  encountered  by  people  in  finding  a  job  in  line  with  their  qualifications,  demonstrate  a 
misalignment between demand and supply of skills and qualifications, with a large number of individuals 

25 World Economic Forum (2020) The Future of Jobs report https://www.weforum.org/reports/the-future-of-jobs-
report-2020  
26 Nic Giolla Mhichíl, M., Brown, M., Beirne, E. & Mac Lochlainn, C. (2020). A micro-credential roadmap: 
Currency, cohesion and consistency. Dublin City University. Dublin. Available at 
https://www.skillnetireland.ie/publication/a-micro-credential-roadmap-currency-cohesion-and-consistency/  
27 McKinsey Globale Institute (2020), Charting the path to the next normal 
28 World Economic Forum (2020) The Future of Jobs report https://www.weforum.org/reports/the-future-of-jobs-
report-2020  
29 Institute for the Future (IFTF) (2017), The Next Era of Human|Machine Partnerships, p.14 

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graduating in subjects for which there is little demand or for which there is an excess of supply relative to 
demand.  The  Eurograduate  pilot  survey  shows  that  higher  education  graduates  who  are  employed  in  a 
mismatched job earn significantly (13%-18%) less than graduates who find a matching position. Personal 
satisfaction of graduates who cannot find a job matching their level of qualification is similar to those who 
are unemployed. Almost one out of four VET graduates work in occupations that do not match their field 
of study30. In terms of job opportunities, the share of VET graduates employed in high-skill jobs has gone 
down slightly on average across countries in spite of significant growth of overall employment in high-skill 
occupations31. 

Regarding micro-credentials, a European Training Foundation (ETF) survey32 of education, training and 
labour  market  stakeholders  from  non-EU  countries  (primarily  ETF  members)  found  that  the  main 
motivation identified for the issue and uptake of micro-credentials is to address a specific work need and 
to recognise learning outcomes achieved outside formal education.  This link with employability is also 
demonstrated in the results of the public consultation presented below.  

Employer Perspective 

While there has been limited research, the available literature indicates that awareness and experience 
with micro-credentials are low33 among employers. Even though employer recognition is expected to 
increase  rapidly,  this  lack  of  awareness  also  means that  micro-credentials  have  yet  to  meet  their  full 
potential  as  a  tool  for  supporting  learning  in  the  workplace.  The  need  to  raise  awareness  among 
employers and consult with professional bodies in the development of micro-credentials was highlighted 
in the Joint ETUC–ETUCE (2020) position statement on micro-credentials34. 

Employers  are  actively  entering  the  alternative  credentials  market35  to  increase  their  influence  on 
education and supply of labour, and essentially to improve labour productivity. In the case of formal 
education programmes, employers’ participation in education and training can be limited  – they may 
give  advice  to  the  government  or  education  and  training  institutions  or  may  co-develop  some 
programmes.  However,  in  the  case  of  alternative  credential  programmes,  they  can  choose  learning 
methods and outcomes more freely and train individuals in the way they wish.  

30 OECD (2020), OECD Employment Outlook 2020: Worker Security and the COVID-19 Crisis, OECD Publishing, 
Paris, https://doi.org/10.1787/1686c758-en. 
31 ibid 
32 The survey was open until 7 July 2021 at https://ec.europa.eu/eusurvey/runner/ETFMicrocredentialSurvey2021 
33 Brown, M., Nic Giolla Mhichíl, M., Beirne, E., & Mac Lochlainn, C. (2021). The global micro-credential 
landscape: Charting a new credential ecology for lifelong learning. Journal for Learning Development 
34 Available at: https://www.csee-etuce.org/en/resources/statements/3908-joint-etuc-etuce-position-on-micro-
credentials-in-vet-and-tertiary-education-june-2020  
35 Kato, S., Galán-Muros, V., & Weko, T. (2020). The emergence of alternative credentials. OECD Education 
Working Papers, No. 216, OECD Publishing, Paris. Available from https://doi.org/10.1787/b741f39e-en 

13 

 
 
 
                                                           
Preliminary findings from the Cedefop’s ongoing study on micro-credentials role in facilitating learning 
for employment shows that employer organisations in the following sectors are most active in making 
use  of  micro-credentials:  information  and  communication  (31%),  accommodation  and  food  service 
activities  (22%),  human  health  and  social  work  activities  (22%)  and  manufacturing  (22%).  Least 
represented sectors are agriculture, forestry and fishing (3%) and public administration and defence (3%).  

Employers do not seem to view alternative credentials as substitutes for formal education qualifications; 
rather, they appear to see them as complementary36. Although different views exist on the labour market 
relevance of degrees, a degree appears to still work as a signal of one’s skills and knowledge. Micro-
credentials need not just be considered for recruitment purposes of course; they can be a key tool in 
supporting  staff  development  and  encouraging  lifelong  learning.  Employer  engagement  with  lifelong 
learning  does  vary  however.  The  OECD  (2021)  Skills  Outlook  Report37  notes  that  the  number  of 
employees in an organisation determines the likelihood of being disengaged in lifelong learning (see 
Figure 6). Micro and small employers with fewer staff appear to have higher levels of disengagement.  

Figure 6: Employer characteristics related to worker disengagement from lifelong learning 

Cedefop’s ongoing study on micro-credentials role in facilitating learning for employment found that 
employers  do  see  potential  benefits  of  micro-credentials  including:  improving  employee  motivation; 
improving retention of employees; building a culture of CPD; supporting speedier responses to the needs 
of  employers;  flexibility  for  upskilling  and  reskilling  and  delivering  content  that  is  more  relevant  to 
labour market needs. Importantly, there are barriers to delivering on this potential in reality (see Problem 
Definition below). The study findings also reiterated that, for recruitment purposes it seems that most 
employers still seem to regard a traditional degree as a signal of skills and suitability for employment38. 

36 Kato, S., Galán-Muros, V., & Weko, T. (2020). The emergence of alternative credentials. OECD Education 
Working Papers, No. 216, OECD Publishing, Paris. Available from https://doi.org/10.1787/b741f39e-en  
37 OECD (2021), OECD Skills Outlook 2021: Learning for Life, OECD Publishing, 
Paris, https://doi.org/10.1787/0ae365b4-en. 
38 Kato, S., Galán-Muros, V., & Weko, T. (2020). The emergence of alternative credentials. OECD Education 
Working Papers, No. 216, OECD Publishing, Paris. Available from https://doi.org/10.1787/b741f39e-en  

14 

 
 
 
                                                           
1.2.3.  Green transitions 

The transition towards a low-carbon economy is expected to create more than 1 million new jobs in the EU 
by 2030, and more than 2 million by 205039 Job creation will occur mainly in sector such as construction, 
renewable energy production, sustainable transport, waste management, business services and sustainable 
finance.  However,  the  transition  will  also  lead  to  job  losses,  in  particular  in  fossil  fuel  extraction  and 
processing. Across the economy, task profiles and skill requirements will change fundamentally (e.g. in car 
manufacturing). Across the board, there is increasing demand for professionals who build and master green 
technologies,  develop  green  products,  services  and  business  models,  create  innovative  nature-based 
solutions and help minimise the environmental footprint of activities. 

1.2.4.  Digital transitions 

Achieving  a  human-centric  digital  transition  calls  for  a  step-change  in  digital  skills.  Already  now, 
Europeans need digital skills in life and at work: in some job categories, more than 90% of jobs require 
specific types of digital skills40 . Around 40% of new jobs were created in digitally intensive sectors between 
2005 and 201641. However, the rapidly growing demand for digital experts cannot be met. For example, 
there  is  a  gap  of  291,000  professionals  in  cybersecurity.  The  COVID-19  pandemic  and  resulting 
containment  measures  were  a  stark  reminder  that  Europe’s  workforce  -  and  more  widely  the  whole 
population  -  need  to  rapidly  increase  their  level  of  digital  skills.    This  was  particularly  visible  in  the 
education and training sector, for students, teachers and trainers alike. 

More broadly, digitalisation creates opportunities and challenges when considering the potential of micro-
credentials. Digitalisation has made the advent of online platforms, learning and MOOCs possible as well 
as  opened  up  new  opportunities  regarding  recognition,  authentication,  interoperability  and  exchange  of 
information  on  skills  and  qualifications  through  standardised  &  technical  formats  for  both  new  and 
traditional  credentials  and  skills  etc. Equally,  digitalisation  can  heighten 
issues  of  social 
inclusion/exclusion, diversity challenges, and risk proliferating and expanding current inequalities across 
all  levels  of  societies  and  within  economies.  Accordingly,  it  is  essential  that  any  approach  to  micro-
credentials leverages the potential of digitalisation to empower people and support inclusion just as much 
as it can enable innovation and delivery of learning leading to micro-credentials.   

1.3. Overview of current provision of micro-credentials 

39 Employment and Social Developments in Europe (ESDE) 2019 - Sustainable growth for all: choices for the future 
of social Europe”. 
40 ICT for work: Digital Skills in the Workplace: study carried out for the European Commission by Ecorys and 
Danish Technology Institute, 2017 
41 ICT for work: Digital Skills in the Workplace: study carried out for the European Commission by Ecorys and 
Danish Technology Institute, 2017 

15 

 
 
 
 
 
                                                           
Micro-credentials are provided by a variety of organisations, in the public and private sectors, active in area 
of  education,  training,  employability,  and  lifelong  learning.  Companies,  professional  associations, 
government  departments  and  international  organisations  are  increasingly  using  micro-credentials  while 
some countries such as Ireland and Malta have included micro-credentials within their national education 
and training system subject to government accreditation and registration42. 

Figure 7 provides an overview of the main categories of micro-credential providers and delivery channels. 
Each of these providers and channels have particular advantages and disadvantages in terms of utility and 
articulation of their offerings and their offer’s accessibility to a wide range of learners. In addition, the 
increasing  collaboration  between  providers  from  different  sectors  and  technological  development  is 
blurring the lines between different provider types and delivery channels. As noted by the OECD (2021)43, 
these developments are overturning the traditional one-to-many relationship between education providers 
and learners, and creating a new provider ecosystem that contains a continuum of connections between 
individual providers and learners.44 

Figure 7. Micro-credential provider ecosystem and delivery channels (OECD 2021) 

42 New Zealand Qualification Authority (2020), Micro-credentials, https://www.nzqa.govt.nz/providers-
partners/approval-accreditation-and-registration/micro-credentials/.  
43OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education 
Policy Perspectives, No. 39, OECD Publishing, Paris, https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-enhttps://www.oecd-ilibrary.org/education/micro-credential-innovations-
in-higher-education_f14ef041-en  
44   OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education 
Policy Perspectives, No. 39, OECD Publishing, Paris, https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-enhttps://www.oecd-ilibrary.org/education/micro-credential-innovations-
in-higher-education_f14ef041-en  

16 

 
 
 
 
 
 
                                                           
1.3.1.  Micro-credentials in higher education 

Micro-credentials play different roles within higher education systems, depending on their specific context, 
structure, traditions and wider factors such as the demand for skills in the wider economy and the existence 
of other forms of education and training.  

Higher education institutions are increasingly expressing an interest in micro-credentials. One of the main 
reasons is their will to increase their visibility and reputation45. Other major reasons, notably associated 
with MOOCs is the potential cost savings associated with reusable material, limited need for facilities and 
increased  number  of  students.  Micro-credentials  also  allow  for  small-scale  experimentation  of  new 
pedagogies and technologies, improvement of the overall quality of the offering and potential to generate 
to generate additional revenues. The public mission of higher education institutions also places them on the 
front line to make of micro-credentials a tool for inclusion and to have a positive impact on participation of 
disadvantaged groups in lifelong learning. 

At the same time, there is evidence from around the globe that some institutions and university consortia 
are embracing micro-credentials as a way to redesign the traditional curriculum to prepare more work-ready 
students and graduates. Micro-credentials can have a role to play in supporting more flexible and tailored 
learning  pathways  in  order  to  respond  to  the  criticisms  of  the  still-dominant,  campus-focused  program 
models: long and relatively inflexible programs; inadequate recognition of prior learning; slow or limited 
innovation in pedagogy; insufficient student supports for career-readiness; weak alignment to labour market 
needs; and a limited commitment to online and digital-enabled learning. There is also a growing expectation 
that learners will require regular upskilling through their lives, with more mobile career pathways, and as 
tasks associated with particular roles evolve in response to the integration of technology. 

Future  development  of  micro-credentials  is  likely  to  require  comprehensive  articulation  of  the  specific 
function and status of education programmes leading to micro-credentials within the wider set of higher 
education  programmes  and  qualifications,  if  they  are  to  achieve  wide  acceptance  among  learners  and 
employers. There is also a lack of widespread agreement on how the micro-credentials themselves should 
be  situated  with  respect  to  existing  qualifications.  The  international  classification  of  educational 
qualifications (ISCED) defines a qualification as an award leading to the completion of an entire education 
programme at a specific level of education, or completion of a stage of a wider education programme. Thus, 
micro-credentials based on stand-alone education programmes not sufficient for level completion and not 
clearly  linked  to  a  wider  educational  programme  currently  have  no  defined  place  in  the  ISCED 
qualifications classification46. 

45 Kato, S., V. Galán-Muros and T. Weko (2020), “The emergence of alternative credentials”, OECD Education 
Working Papers, No. 216, OECD Publishing, Paris, https://dx.doi.org/10.1787/b741f39e-en.  
46 OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education 
Policy Perspectives, No. 39, OECD Publishing, Paris, https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en  

17 

 
 
                                                           
To  illustrate  the  diversity  of  micro-credential  programmes  offered  in  European  higher  education 
institutions, the OECD (2021) published the below table that presents programmes that fit the characteristics 
of micro-credentials currently offered in some higher education institutions. 

Courses within programmes typically have the following 
characteristics…. 

Programme type  Stackable 

Nationally-
recognised 
certification 

Professional 
orientation 

Educational 
orientation 

Statements 
of study 
credits in 
common 
currency 

Example 
programmes from 
the sample set 

Individual 
courses and 
modules from 
larger 
programmes 

Extension and 
complementary 
courses for 
existing students 
(may also be 
offered 
externally) 

Specialisations 
for the 
acquisition of 
specific 
knowledge 
and/or skills 

Yes 

No 

No 

Yes 

Yes 

No 

No 

Yes 

Yes 

Yes 

No 

No 

Yes 

No 

Yes 

18 

Free-standing 
courses (University 
of Stockholm), 
Single-module 
courses (Munster 
Technological 
University), Master's 
degree modules 
(Baden-
Wuerttemberg 
Cooperative State 
University) 

Extension curricula 
(University of 
Vienna), 
Complementary 
Certificates 
(University of 
Geneva), UCL 
Extend (University 
of London) 

Specialisation 
Diploma (University 
of Seville), 
Specialisation 
Courses (University 
of Porto), 
Professional 
Diploma (University 
College Dublin) 

 
 
 
  
  
Continuing 
professional 
development and 
training courses 

Continuing 
education and 
lifelong learning 
courses 

Massive Open 
Online Courses 
(MOOCs) and 
asynchronous 
learning 
programs 

"Own-brand" 
degrees and 
diplomas 

Postgraduate 
sub-degree 
programmes 

No 

No 

Yes 

No 

Yes 

No 

No 

No 

Yes 

No 

No 

No 

No 

Yes 

No 

No 

No 

Yes 

Yes 

Yes 

Yes 

Yes 

Yes 

Yes 

Yes 

19 

Permanent training 
Diploma 
(Complutense 
University), 
Professional 
continuous training 
(University of 
Helsinki), 
Specialised training 
(Budapest 
University of 
Technology and 
Economics)  

Continuous 
education (National 
and Kapodistrian 
University of 
Athens), Lifelong 
learning 
programme-hobby 
(Charles University 
Prague) 

MOOCs (Utrecht 
University), Self-
learning (Selbstlern) 
University of Hagen 

Cerficate 
universitaire (Lille 
University), Higher 
University Course 
(University of 
Barcelona) 

Postgraduate 
certificate 
(University of 
Birmingham), 
Postgraduados 
(Lisbon Polytechnic 
Institiute) 

 
 
Figure 8: OECD47 research on a sample of 84 European higher education institutions. 
Source: OECD (2021), Micro-credential innovations in higher education: Who, What and Why? 

While  a  good  part  of  micro-credential  programmes  across  Europe  make  use  of  the  European  Credits 
Transfer  System  (ECTS)  to  express  the  associated  study  load  of  the  courses,  thus  allowing  common 
understanding of how much study and workload was required of the learner to achieve the credential, the 
amount of ECTS is not standardised and can vary a lot between institutions but also within the institutions 
themselves.  The  OECD  provides  here  below  a  useful  comparison  of  identified  micro-credential 
programmes and their associated number of ECTS. The individual courses on offer ranged from 1 ECTS 
to 60 ECTS (with 60 ECTS being the equivalent of one year of full-time study). 

Figure 9. Range of ECTS credits for courses within micro-credential programmes across European 
higher education systems. The size of the bubble indicates the relative number of programmes with 
each ECTS range 
Source: OECD research on a sample of 84 European higher education institutions48 

Institutions  in  a  number  of  European  countries  offer  a  structured  pathway  towards  stacking  short 
postgraduate qualifications, with similar ECTS range for each qualification. These qualifications are not 
always labelled as being micro-credentials within national systems but they have the key characteristics of 

47 OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education 
Policy Perspectives, No. 39, OECD Publishing, Paris, https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en  
48 OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education 
Policy Perspectives, No. 39, OECD Publishing, Paris, https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en  

20 

 
 
 
                                                           
micro-credentials, being short in duration, targeted to a specific topic, and often more flexible in delivery 
than longer programmes. 

An example of these practices can be found in the Flemish Community of Belgium where universities 
offer  a  range  of postgraduate certificates  and  postgraduate  diploma  programmes  (typically  requiring  30 
ECTS and 60 ECTS of study respectively). These programmes may be stacked from certificate to diploma 
to masters. 

In the Nordic countries in Europe, higher education institutions share the characteristic to offer a range of 
different initiatives that can support flexible pathways from single short courses to certifications and higher 
qualifications. Such educational programmes are often offered by an open university section within higher 
education institutions to a wider range of learners, with the possibility to stack the credits earned into larger 
qualifications. These practices form part of a wider framework or tradition in the country. Some of the 
examples can be found below as described by the OECD (2021)49. 

Caste Study 1: Examples of stackable undergraduate-level short programmes in the Nordic 
countries 

In Finland’s Metropolia University of Applied Sciences, the open university of applied sciences section 
offers students the opportunity to register for individual courses, generally about 5 ECTS in length, or 
combine the study units into a Path, allowing them to earn 15-30 credits from modules typically offered 
in the first year of a bachelor’s degree. Open Path students follow the same learning material as students 
enrolled in the complete bachelor’s programme, commonly attending the same classes and sitting the same 
assessments.  

In Sweden, universities may offer a range of “free-standing” courses and programmes. These programmes 
form part of the continuing education system. Typical study loads for free-standing courses might range 
between 7.5 and 30 ECTS. Courses are open to learners with a range of motivations, and may provided on 
a  more  flexible  basis  than  traditional  higher  education.  For  example,  in  the  University  of  Gothenburg 
freestanding courses are given continuously during the academic year, in a variety of subjects and levels. 
Lessons  may  be  in  the  evening  or  day-time  and  can  be  distance-courses  or  on-campus.  Free-standing 
courses may be stacked into a degree, if certain conditions are met with regard to complementarity of 
courses. Credits from courses taken in other Swedish higher education institutions may be transferred to 
the University of Gothenburg and included in the degree application once the requisite number of credits 
is reached.  

In  Norway,  the  University  of  Oslo  (along  with  other  institutions)  offers  a  “one’-year  programme” 
(aarsenhet) of 60 ECTS at the undergraduate level. Students in one-year programmes may study in order 

49 OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education 
Policy Perspectives, No. 39, OECD Publishing, Paris, https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en  

21 

 
 
 
                                                           
to decide whether they like the field of study before committing to a full bachelor’s degree, or in order to 
deepen their knowledge in their field of work, specialise or retrain. In some fields of study, the one-year 
program alone can provide a foundation of knowledge for applying for entry-level jobs. Otherwise, the 
program can be used to gain advanced entry to a bachelor’s degree program in a related subject, or can be 
counted towards a professional specialisation or qualification. 

Source: OECD (2021), Micro-credential innovations in higher education: Who, What and Why?, 

These practices are not limited to the Nordic countries and are spreading in other countries as shown by the 
example of the Micro-credentials at Dublin City University. Dublin City University (DCU), launched its 
first stackable and credit-bearing micro-credential. Before this, DCU had to introduce the concept of micro-
credentials into its academic regulations and quality assurance processes. 

Case study 2: Micro-credentials at Dublin City University (DCU) 

DCU Business School introduced a short online course called the FinTech – Financial Innovation Micro-
credential. It is a 12-week online programme worth 5 ECTS credits at postgraduate level from Dublin 
City University. The course explores the interaction between finance and technology and its impact on 
the financial services industry.  

To qualify for direct entry into this course, learners need to fulfil one or more of the following criteria:  

-  Have several years of experience in financial services or a related sector.  
-  Have completed relevant, accredited Continuing Professional Development learning.  
-  Hold a Level 8 (undergraduate) Honours Degree (2:1) or higher in business, finance, or a related 

discipline under the Irish national framework.  

DCU made a strategic move to begin with micro-credentials at postgraduate level. Postgraduate-level 
courses leading to micro-credentials have the potential to reach learners who are unable to study full-
time in class due to personal reasons (e.g. career or family).  

After the launch of the Common Micro-credential Framework (CMF), Dublin City University entered 
into a global strategic partnership with FutureLearn to provide its first micro-credential. FutureLearn is 
a digital education platform founded in December 2012 and jointly owned by The Open University and 
SEEK  Ltd.  It  is  a  massive  open  online  course  (MOOC)  learning  platform.  All  of  its  online  micro-
credentials are designed to upskill learners for work in rapidly growing industries, without the time and 
cost commitment of a full degree. Each micro-credential includes a formal online assessment and meets 
the standards set by the CMF. By using FutureLearn, higher education institutions gain greater flexibility, 
because courses can start at any point in time and can attract a global student body. 

In 2018, DCU started using Digitary, a leading platform for certifying, sharing and verifying academic 
credentials. The university uses an online document sharing service called Digitary Core, through which 

22 

 
 
 
students and alumni can access their Diploma Supplement and share academic records with employers 
and other education providers. Digitary Core guarantees security and is password-protected. The Digitary 
platform  also  serves  as  a  useful  tool  for  certifying  and  issuing  micro-credentials,  replacing  paper 
documents with digitally signed electronic documents and replacing manual processes with automated 
ones. The platform enables records to be verified instantly with full learner consent, thus maintaining 
regulatory compliance and eliminating the hassle of manual verification, and making certificates both 
secure and less costly.  

European university alliances act as test beds for innovation in the European higher education area. They 
lead and pave the way for other higher education institutions to follow. Among them, many plan to develop 
micro-credentials  on  a  larger  scale  in  order  to  offer  increased  innovation  in  higher  education,  flexible 
learning pathways and technology enhanced learning, as well as more inclusive curricula and pedagogies.  

Case  study  3:  Some  micro-credentials  solutions  implemented  under  the  European  Universities 
Initiative:  

European Consortium of Innovative Universities (ECIU) 

ECIU strongly supports the movement  supporting micro-credentials. ECIU published white papers in 
2020 and 2021 on micro-credentials, setting out their ongoing work on micro-credential development 
and  their  future  strategy.  ECIU’s  micro-credentials  relate  as  a  core  component  in  their  objective  to 
provide  personalised,  challenge-based  learning  that  harnesses  innovative  digital  technologies.  These 
offerings are underpinned by a Learner Transformation Framework that articulates how we are seeking 
to  develop  life-long  learners  capable  of  shaping  a  better  future  for  all.  ECIU  members  have  also 
developed more than 100 micro-modules on topics related to the achievement of the SDGs, available to 
learners enrolled in their partner universities. 

ECIU is actively contributing to the development of a range of digital credentials and to ensuring new 
ways how learners can collect the proofs of their learning outcomes and newly acquired skills in a digital 
competence passport. ECIU is collaborating with Europass to jointly develop a proof-of-concept for the 
competence passport that will be validated in large-scale field trials organized by ECIU. 

Young Universities for the Future of Europe (YUFE)  

YUFE seeks to provide personalised academic curricula that will form the backbone of an equitable, 
diverse and effective education system that recognises and optimally fosters individual talents. In this 
context, YUFE will provide students with unique opportunities to be trained in an inclusive research- 
and work-based learning ecosystem, leading to interdisciplinary and intersectoral knowledge and skills.  

23 

 
 
 
 
In line with its goals, YUFE aims to develop an approach to micro-credentials. The main objective 
of introducing micro-credentials is to promote inclusiveness and expand the benefits of higher education 
beyond the ‘usual suspects’. YUFE will build a catalogue detailing what member organisations are 
already doing. This catalogue will help to gain a sense of the various contexts, to gather good practices, 
and to understand the existing frameworks. This knowledge will allow YUFE to consider these existing 
frameworks for its own practice. 

European University for Well-Being (EUniWell) 

The EUniWell initiative is currently developing micro-credential programmes, with the aim of starting 
offering pilot programmes in the academic year 2021/22. The programmes will focus on well-being, and 
seven member institutions will collaborate in the development and delivery of these programmes. The 
programmes were developed after each member of the EuniWell network reviewed their offering to see 
how they could contribute to the EuniWell micro-credential programmes, and then subsequently mapped 
their offering and discussed the structure and content of the programmes. 

European Civic University (CIVIS) 

Similarly, the CIVIS initiative plans to offer micro-credential programmes on several topics, including 
climate change and socio-cultural heritage. Teachers across nine member higher education institutions 
are  invited  to  submit  a  micro-credential  programme  proposal  in  these  areas.  Micro-credential 
programmes can be developed at both undergraduate and graduate levels, and the size of the programmes 
are expected to be around 5-15 ECTS. Cooperation among the member institutions is required for the 
approval of the programme proposals, for example, the involvement of lecturers from each institution. 
In both examples – EuniWell and the European Civic University  - micro-credentials will be awarded 
from the alliance itself, rather than from the individual institution. 

EuroTeQ Engineering University (EuroTeQ) 

The EuroTeQ Engineering University is developing micro-credentials and individual study paths for 
learners that will lead to either a EuroTeQ honours degree, or a “EuroTeQ professional” qualification for 
learners undertaking professional training and development. 

Among  other  initiatives:  the  European  Universities Transforming  to  an  Open  Inclusive  Academy  for 
2050 (EUTOPIA) and the Challenge-Driven, Accessible, Research-based and Mobile model for the co-
creation of a European University aligned with the European Values, the European Green Deal and the 

24 

 
 
 
 
 
Sustainable  Development  Goals  (SDGs)  (CHARM-EU),  the  Una  Europa  alliance  are  currently 
discussing or building joint development of micro-credential programmes.  

1.3.2.  Micro-credentials in Vocational Education and Training (VET) 

The  emerging  picture  on  the  use  of  micro-credentials  in  Vocational  Education  and  Training  (VET)  is 
disparate and varying as VET systems themselves. Nevertheless, there is widening use of short courses 
leading to awards (that may not necessarily use the term ‘micro-credentials’) by VET providers.  

Based on the feedback received during a dedicated webinar with members of the Advisory Committee on 
Vocational Training organised on 20 January 2021, micro-credentials seem to have the biggest potential in 
upskilling and reskilling of adults. In the context of quickly changing and emerging skills needs and the 
need for upskilling and reskilling, micro-credentials can be an effective tools to supplement initial VET 
qualifications. Members advised that micro-credentials should not replace initial vocational qualifications.  
There are however some promising avenues for linking them to initial VET such by increasing flexibility / 
modularising  VET  and  providing  solutions  for  specific  contexts,  such  as  optional  parts  of  initial  VET 
curricula,  continuing  vocational  education  and  training  (C-VET),  additional  learning  opportunities  for 
learners  with  special  needs  or  those  who  dropped  out  from  VET,  pathways  to  facilitate  permeability 
between VET and higher education and learning opportunities for continuous professional development of 
teachers and trainers in VET. 

Internationally, there has been notable research on the interest in micro-credentials in the Australian VET 
system50 which found that micro-credentials are used primarily for regulation and skills maintenance, in 
areas such as workplace safety, emergency preparedness and authority to operate. These micro-credentials 
were largely provided by the ‘private’ market (more than 93% of subjects were funded on a fee-for-service 
basis  —  with  relatively  little  government  intervention).  In  these  cases,  employers  or  the  individual  is 
prepared to pay for the training due to a regulatory requirement and this that the training has a recognised 
value.  

The examples listed below are taken from Cedefop’s ongoing study on micro-credentials role in 
facilitating learning for employment:  

Case Study 4: Micro-credentials in VET 

1.  Denmark 

Short vocational training programmes in Denmark (arbejdsmarkeduddannelser – ‘AMU’) is a flexible 
system which aims at meeting current changes and skills needs for  mainly for low skilled and skilled 
workers on the labour market on the labour market. The programmes are available to everyone who are 

50 An analysis of ‘micro-credentials’ in VET, An-analysis-of-micro-credentials-in-VET.pdf (ncver.edu.au) 

25 

 
 
 
 
                                                           
residents  or  hold  a  job  in  Denmark.  However,  they  mainly  target  unskilled  and  skilled  workers  in 
employments. In general, there are three main types of programmes directed at: specific job/sector related 
competences, e.g. crafts, technical insight and knowledge of materials; general competences, e.g. ICT, 
job relevant languages; personal competences, e.g. social communication, organization and management. 
AMU micro-credentials are developed based on tripartite cooperation. The certification is always based 
on assessment. The AMU trainings are included in the Danish Qualifications Framework (level 2-5), and 
some of them are recognised as part of formal vocational qualifications. The AMU-certificate can be 
awarded to the individual based on validation. 

2.  Iceland 

Micro-credentials are used at RAFMENNT Electrical VET Centre RAFMENNT which is a vocational, 
educational and training (VET) centre for electricians, electronic technicians in all industries and sectors 
and technicians in the fields of telecommunication, information technology, audio-visual, broadcasting 
and the creative industries in Iceland.  The centre offers courses for skilled electricians and electronic 
technicians who have completed their education, either their trade education and/or their trade master 
education as well as for Telecom, AV, IT, Broadcast and CI technicians. RAFMENNT is also currently 
developing a health and safety micro-skills programme for the Creative Industries 

3.  Norway 

Tripartite industry programmes for skills development (bransjeprogram) are developed as part of the 
Norwegian Skills Programme. The central government and the social partners work together to increase 
participation in skills development within selected industries. Ten industry programmes are currently in 
place which give skilled workers an opportunity for upskilling while in full employment. Most courses 
are also accessible for furloughed and unemployed workers during the pandemic. Courses are meant to 
address skills gaps identified by the partners. The courses are offered by providers of initial vocational 
education, vocational colleges, higher education institutions and others. Some of them result in formal 
credits, e.g. higher VET credits.  

Shorter  programmes  in  higher  VET:  A  recent  amendment  to  the  Norwegian  Act  relating  to 
tertiary  vocational  education  allows  for  shorter  programmes  at  vocational  colleges.  All 
programmes and courses will have to be accredited through the usual process, managed by the 
Norwegian  Agency  for  Quality  Assurance  in  Education.  Shorter  programmes  will  be  able 
respond to industry needs for upskilling, while making further education more accessible for 
skilled workers.  

26 

 
 
 
 
 
 
4.  France 

In  France,  micro-credentials  are  discussed  in  the  context  of  the  transformation  of  the  VET  system. 
Although definitions might be lacking, it can be said that the French qualifications structure has embarked 
on a route that largely accommodates the micro-credential model. Firstly, the philosophy of the reform 
encourages  the  development  of  short  training  activities/courses  that  are  easily  accessible  to 
learners/professionals.  The  development  of  skills  or  qualification  portfolios  (e-portfolio)  initiatives 
represent tools that would encourage the introduction of micro-credentials. Therefore, there is a potential 
for  micro-credentials  to  be  integrated  into  this  general  framework.  Secondly,  micro-credentials  are 
aligned  with  the  digitalisation  movement  that  is  gaining  momentum  within  the  French  VET  system. 
OpenClassrooms  is  a  French-based  online  education  platform  that  offers  education-to-employment 
programs and career coaching services for students worldwide. Learners accumulate certificates towards 
a degree in IT and business topics which are recognised by the French State. Courses are conducted fully 
online,  through  a  mix  of  video  resources,  online  reading,  real-life  projects  and  individual  mentoring 
sessions.  They  also  have  Career  Paths,  which  include  weekly,  one-on-one  mentoring  sessions  with 
dedicated  professionals  from  relevant  fields  who  support  programme  participants  throughout  their 
studies. 

5.  Germany 

In Germany, there is an ongoing discussion about modularisation and certified training supplements in 
German VET. The BIBB (Federal Institute for Vocational Education and Training) was commissioned 
by the BMBF (the Federal Ministry of Education and Research) to offer technical and administrative 
support for research and development studies and projects with regard to modularisation in German VET. 
Many of those projects built and offered online platforms with digital learning modules. The BIBB, in 
cooperation with social partners, IHKs (Association of German Chambers of Industry and Commerce), 
training  providers  and  VET  researchers,  developed  training  modules  for  more  than  30  professions 
(Germany case study, 2021). 

6.  Netherlands 

The  Edubadges  platform  is  the  digital  certificates  platform  for  the  Dutch  education  community. 
edubadges enable organisations to award students or workers with evidence of knowledge and skills they 
have acquired. An edubadge is an electronic certificate that provides detailed information on the content 
of the learning outcomes achieved. It is issued electronically within a secure and trusted SURF platform. 
Students collect edubadges in their edubadges backpack and can share an edubadge with employers or 
other educational institutions. Even though the initial experimentation with edubadges took place in the 
higher education sector, the funding was also allocated for testing edubadges in vocational education and 

27 

 
 
 
 
training  sector.  Micro-credentials  are  piloted  in  four  VET  schools.  Two  schools  (Albeda  and  mbo 
Rijnland) issue edubadges to students who did additional work on 21st century skills that were not part 
of the formal curriculum. It concerned skills such as collaboration and entrepreneurial behaviour. This 
piloting  is  in  line  with  a  national  movement  to  accredit  21st  century  skills  (in  the  framework  of  the 
KOMPAS21  initiative).  In  another  VET  institution,  Deltion,  they  rewarded  teachers  with  micro-
credentials for their efforts to work with ICT in their education and especially during COVID-19 times. 

7.  Lithuania 

Vilnius Vocational Training Centre of Technologies (VTMC) is a vocational training institution that has 
concentrated  its  efforts  and  is  actively  modernizing  practical  training  opportunities  through 
modularisation  in  order  to  prepare  the  most  demanded  engineering,  IT  and  computer,  business  and 
financial, and  visual  technology  specialists for the  national  and  international  market. To  achieve  this 
goal,  the  centre  actively  cooperates  with  business,  developing  the  form  of  apprenticeship  training, 
developing IT specialist training initiatives. VTMC is licensed to provide 49 formal vocational education 
programs in secondary education, continuing vocational education (adult education) and of course initial 
vocational  education.  Currently,  training  is  provided  in  three  departments  of  the  Center:  Energy  and 
Mechatronics,  Transport  and  Business,  Information  and  Visual  Technology.  More  than  700  students 
study  in  these  departments  every  year  and  they  are  taught  by  54  vocational  teachers  and  22  subject 
teachers. 

8.  Finland 

Two  Finnish  Schools  of  Professional  Teacher  Education  together  with  VET  provider  Omnia 
joined forces  to  create a  competence-based professional  development  programme (PDP) that 
would  support  teachers  in  building  working  life  ICT  skills  and  knowledge.  The  co-created 
Learning Online PDP is a gamified, open badge-based course. 

1.3.3.  Private providers 

Private companies are investing in learning and training offers, from a number of perspectives, whether as 
employers to support upskilling and reskilling of staff or as providers of micro-credentials to compete in 
and respond to demand.  The most recently available data from Eurostat showed that in 2015, 70,5 % of 
companies provided  C-VET to their employees. Close to 60% of these training companies assessed the 
outcomes of C-VET activities (e.g. through certification after written or practical test, satisfaction survey 
among participants, assessment of participants’ behaviour or performance in relation to training objectives, 

28 

 
 
 
 
 
 
 
assessment/measurement of the impact of training on performance within the organisation). However, less 
than a third of the training companies (30,5 % in 2015) used certification after written or practical test. Data 
also show that the vast majority of job-related non-formal education and training activities are sponsored 
by  employers:  in  2016  the  rate  of  adults  in  the  EU28  participating  in  non-formal  job-related  activities 
sponsored by the employer was 32%, while in the same year the participation rate in non-formal job-related 
activities not sponsored by employers was 3.9%51. The breakdown of providers of non-formal education 
and training for adults according to the hours spent by participants clearly reflects the short and targeted 
nature of non-formal training offered by employers.  

Technology  companies  are  very  active  in  this  field  thanks  to  their  experience  with  offering  certified 
trainings for technicians of their own technologies and have continued to develop their own training and 
certification ecosystems and emerged as alternatives to traditional education and training. 

Case Study 5: Private providers of micro-credentials 

1.  Ernst & Young’s (EY) inhouse apprenticeship programme is among the successful initiatives in 
the UK. They have a micro-credential style targeted skills development programme leading to greater 
workplace performance. They advertise their Business Academy programme as an alternative route to 
a  university  degree.  It  provides  on-the  job  experience  along  with  business  skills  sessions,  work 
shadowing and networking 

2.  Capgemini Nederland is a global company specialised in digital transformation, consulting, and IT 
services. They provide learning experience both to internal (e.g. employees) and external (e.g. clients) 
audiences. Capgemini recently launched a new internal digital learning hub called ‘NEXT’, designed 
to support the upskilling needs of its employees around the world. Capgemini has partnerships with 
global brands such as Google, Harvard Spark, Pluralsight, ServiceNow, MuleSoft, Adobe, Azure, and 
TED.  

3.  The Innovations for Apprenticeship Foundation (FIPA), was initiated by private companies  in 
France in October 2016 to develop and test innovations relating to apprenticeships. The 17 member 
companies, including EDF, Enedis, Engie, GRDF, Total, Orano, SNCF, Thales, Veolia, Orange, BNP 
Paribas,  Airfrance,  Societe  Generale,  Saint-Gobain,  the  Adecco  Group  among  others,  together 
represent  47,000  work-study  students. The  apprentices  programme  serves  as  alternative  vocational 
training offered by private companies which focuses on professional reorientation, development of 
digital skills and promotion of employees during their career (FIPA, 2021). 

4.  As  part  of  its  ‘Engage  2025’  strategy,  Orange,  the  French  multinational  telecommunications 
company plans to invest over €1.5 billion to train 100% of its employees in key digital and soft skills 
by 2025. One of its major skills training initiatives include Orange Campus, an online school offering 

51 Eurostat, EU Adult Education Survey, online data table: [trng_aes_122] 

29 

 
 
 
                                                           
courses on topics such as data/AI, cybersecurity, management and soft skills. Courses are built along 
the company's business line expertise and digital platforms and designed with major partners. They 
provide both basic and advanced modules resulting in specialised expertise and leading to certification 
or diplomas. With the goal of addressing the digital skills gap in Europe and building a pool of talented 
workforce, Orange Campus also trains external audiences. To this end, the company has partnered 
with Microsoft AI school, along with Simplon and the Grande Ecole du Numérique to deliver work 
related skills training. 

5.  Ireland: Recognition of micro-credentials in Industry 

SkillNet Ireland, the Irish agency that supports businesses through enterprise-led workforce 
development, published a Roadmap on Micro-Credentials in 2020. The publication highlighted that 
micro-credentials provide a unique mechanism to recognise and develop work-based learning. The 
roadmap also signalled the position of business and business support agencies as key actors in the 
Micro-Credential eco-system and supporting industry-focused applied learning.  

The roadmap also emphasises the importance of a multi-stakeholder approach with engagement 
from national agencies, industry, education and training providers, and employer and skill 
development networks. 

The roadmap outlines mechanisms to engage on micro-credentials in work-based learning across 
sectors including:  

 

 

 

awareness building and collaboration amongst stakeholders, including establishing a national 
steering group with a broad range of stakeholders and working to build understanding of the 
potential of micro-credentials 
capability and competency mapping within organisations, which involves mapping of current 
continuous  professional  developed  (CPD)  provision  within  Skillnet  organisations  to  help 
recognise  where  Micro-Credentials  might  support  a  more  agile,  flexible  and  stackable 
approach to training and professional development.  
the funding and piloting of scalable and rapid models of validation and assessment of work-
based  learning  in  key  sectors,  based  on  of  co-design,  co-development  and  co-delivery  of 
micro-credentials. 

6.  Micro-credential  initiatives  by  Google.  In  2020,  Google  announced  that  it  would  remove  the 
requirement for job applicants to have higher education degrees, and launched a range of professional 
training  qualifications that it  would treat as equivalent  to  a  degree  in  its recruitment  processes  for 
certain roles. These “Google Career Certificates” are accessible through a Coursera subscription, take 
approximately six months to complete and are in areas of high employer demand, such as IT Support, 
Project Management, Data Analytics and UX Design. 

The career certificates are provided on a not-for-profit basis, and scholarships are available to support 
access for disadvantaged students. Over half of those pursuing the Google IT Support Professional 

30 

 
 
 
Certificate do not have a degree. Students are also able to access free resources for career coaching 
and  mock  interviews  while  studying,  and  following  graduation  they  will  be  included  in  a  special 
candidate pool that is visible to the consortium of employers participating in the initiative with Google. 

Following  the  2020  launch  of  Google  Career  Certificates  in  the  United  States,  the  program  was 
launched in the United Kingdom in May 2021, as a joint initiative with the Department of Work and 
Pensions. 

Google  also offers  a  number  of other  micro-credentials  related to its  education software tools  and 
technologies, such as Google Workspace for Education. Its range of teacher training micro-credentials 
allow teachers using the software to become certified Google for Education Trainers, Innovators or 
Coaches, on completion of a number of training modules. 

Source: OECD 2021 innovations in Micro-Credential Development – Who, What and Where?52 

1.4. Potential benefits of Micro-credentials  

One of the stated objectives of the European approach to micro-credentials is to deliver on the potential of 
micro-credentials to support employability and lifelong learning. Lifelong learning refers to ‘all learning 
activity  undertaken  throughout  life,  with  the  aim  of  improving  knowledge,  skills/competences  and/or 
qualifications for personal, social and/or professional reasons’53. Employability refers to ‘a combination of 
factors (such as job-specific skills and soft skills) which enable individuals to progress towards or enter into 
employment, stay in employment and progress during their careers’54.  

Within  these  broad  areas,  micro-credentials  can  support  the  diversification  and  tailoring  of  learning 
opportunities to support individual learning pathways, they can be used to widen access to education and 
training to a more diverse range of learners, they can support employability and careers, as well as facilitate 
recognition  and  understanding  of  skills  developed  in  non-formal  and  informal  settings,  and  stimulate 
inclusivity in a manner that is both sustainable and equitable across Europe. 

These benefits and others are highlighted in the table below:  

52 OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education 
Policy Perspectives, No. 39, OECD Publishing, Paris, https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en  
53 Taken from Cedefop Glossary: https://www.cedefop.europa.eu/en/events-and-projects/projects/validation-non-
formal-and-informal-learning/european-inventory/european-inventory-glossary#L 
54 Taken from Cedefop Skills Panorama Glossary: https://skillspanorama.cedefop.europa.eu/en/glossary/e 

31 

 
 
 
                                                           
Figure 10: Overview of Stakeholder Benefits   
Source :  (2021). The global micro-credential landscape: Charting a new credential ecology for lifelong 
learning.55 

Participation  in  lifelong  learning  is  associated  with  positive  social  outcomes,  such  as  improved 
health, enhanced social  inclusion39 thus contributing  to  the  well-being  of  society. An  effective  culture  of 
lifelong  learning  can  only  be  achieved  by  making  learning  more  attractive  and more  accessible  and the 
cross-section  of  stakeholders  and  actors  involved  in  learning  and  employment  have  a  role  to  play  in 
developing this culture.  

Micro-credentials can enable flexible, personalised, relevant and on-demand learning that complements and 
supplements  traditional  education  and  training  and  equips  people  with  the  knowledge,  skills  and 
competences  to  adapt  to  life  and  work  in  an  evolving  society.  Micro-credentials  have  the  potential  to 
increase  personalised  learning  opportunities  for  all.  Micro-credentials  are  at  the  service  of  the  full 
educational  and  professional  development  of  individuals.  Micro-credentials  can  be  designed  to  expose 
learners of all ages to an area of study or employment and be used to demonstrate their commitment to 
learning and growing in a field. They can help widen learning opportunities; strengthen the role of higher 
education and VET institutions; and engage employers, social partners and non-formal learning providers, 
in promoting lifelong learning through more flexible and modular learning opportunities.  

An ETF survey56 of education, training and labour market stakeholders from non-EU countries (primarily 
ETF members) identified the following benefits of micro-credentials: 

55 Brown, M., Nic Giolla Mhichíl, M., Beirne, E., & Mac Lochlainn, C. (2021). The global micro-credential 
landscape: Charting a new credential ecology for lifelong learning. Journal for Learning Development, 8 (2), 228-
254. 
56 The survey was open until 7 July 2021 at https://ec.europa.eu/eusurvey/runner/ETFMicrocredentialSurvey2021 

32 

 
 
 
                                                           
  Micro-credentials have immediate relevance to the labour market demand (linked to specific skills/ 
competences;  address  a  specific  work  need;  responsive  to  changes  in  the  labour  market;  enable 
quick access to work; bridge the gap between formal education qualifications and specific industry 
or workplace requirements); 

  Micro-credentials  support  individual  learning  (focused  on  specific  learner  needs;  learners  can 
progress at their own pace; an easy way to accumulating learning in small pieces; stackable towards 
a qualification; facilitating access to formal education); 

  Micro-credentials  have  standalone  value  (MC  is  a  meaningful  part  of  a  qualification  or  a 
complementary/ supplementary award that can have a meaning at the labour market; adding value 
to formal education qualification); 

  Micro-credentials  facilitate  recognition  of  individual’s  skills,  knowledge  and  competences 
(facilitating  formalization  and  portability  of  individual’s  skills  and  competences;  improving  the 
visibility  of  lifelong  learning;  facilitate  recognition  of  learning  achievements  acquired  outside 
formal education; allow to represent mastery/ more advanced skill level; digital visibility);  

  Micro-credentials facilitate the design of flexible training (less efforts to design; allow to learn on 

demand as and when one needs);  

  Micro-credentials are cost and time saving (short duration of learning; affordable for those paying 

for themselves). 

Flexibility 

Learning  leading  to  micro-credentials  offer  flexible  options  that  fit  into  an  active  life  that  can  be 
accommodated, and indeed supported, within working life and can help to overcome contextual barriers and 
socio-demographic  factors  that  influence  learners’  decisions  to  undertake  and  successfully  complete 
learning (e.g. costs, family obligations, geographic location, differences in learning cultures, labour market 
conditions, and language). According to the 4 stakeholder group surveys, conducted as part of Cedefop’s 
ongoing study on micro-credentials role in facilitating learning for employment, respondents representing 
employers (73%) identified flexibility as the most important benefit of micro-credentials being more suited 
for upskilling and reskilling of employees. Respondents representing employees indicated the relevance of 
their content to the labour market needs (48.5%) and the fast response to the needs of employers (42.4%) as 
most important. 

33 

 
 
 
 
 
 
Inclusion 

Micro-credentials can also be used as part of targeted measures to support inclusion and accessibility to 
education  and  training  to  a  wider  range  of  learners,  including  vulnerable  groups  (such  as  people  with 
disabilities,  low-qualified/skilled  persons,  minorities,  people  with  migrant  background  and  people  with 
fewer opportunities because of their geographical location and/or their social-economically disadvantaged 
situation).  Relevant,  accessible  and  well-designed  offers  of  micro-credentials  could  offer  those  usually 
excluded from traditional learning pathway into education and training, the labour market and society to 
grow in it. 

Micro-credentials could be used to support improved access for learners who do have the resources or time 
to  commit  to  a  full  time  education  and  training.  Micro-credentials  can  also  be  used  as  part  of  targeted 
measures to tackle gender stereotypes and other forms of discrimination, to ease transition from secondary 
to  tertiary  education,  and  offer  training  opportunities  to  new  types  of  learners  The  Rome  Ministerial 
communiqué adopted in November 2020 by the 49 European Higher Education Area (EHEA) countries, 
identified  micro-credentials  as  a  conduit  for  “creating  a  supportive  environment…that  enables  higher 
education  institutions  to  tailor  education  provision  to  the  needs  of  different  types  of  learners  (lifelong 
learners,  part-time  learners,  learners  from  under-represented  and  disadvantaged  groups)  and  to  build  a 
culture for equity and inclusion”57. 

The Commission action does not claim or represent micro-credentials as an alternative or single solution to 
issues  of  inclusiveness,  lifelong  learning  or  employability.  There  is  a  risk  that  micro-credentials  may 
perpetuate and even deepen existing inequities of access to upskilling and reskilling if they are not integrated 
in a holistic, inclusive way across education, training and labour market systems. Evidence from the OECD 
shows  that  micro-credentials  do  not  yet  serve  a  tool  to  improve  representation  in  traditional  higher 
education58:  

“One of the main challenges of existing higher education micro-credentials is that 
they are taken up in greater numbers by learners who have already achieved higher 
education, have greater financial resources and access to better support systems. In 
Europe, evidence suggests that short non-degree learning programmes offered by 
higher education institutions are rarely targeted at supporting increased participation 
in higher education, with the notable exception of the Nordic countries. Yet, well-
designed micro-credential policies have considerable potential to lead to more 
equitable higher education participation, and could support improved outcomes for 
learners.”  

57 EHEA (2020), Rome Ministerial Communiqué, European Higher Education Area (EHEA). 
58 Shapiro Futures, H., Andersen, T., & Nedergaard Larsen, K. (2020). A European approach to micro-credentials: 
Background paper for the first meeting of the consultation group on micro-credentials. Policy Paper, European 
Commission. Available at https://ec.europa.eu/education/sites/default/files/document-library-docs/european-
approach-micro-credentials-higher-education-consultation-group-output-annex-1.pdf  

34 

 
 
                                                           
Micro-credentials  should  be  used  to  complement  and  enhance  associated  policies  and  actions 
support lifelong  learning  and  employability so  that  leaners  from  all  groups  of  society  can  access  their 
benefits.  Micro-credentials  should  be  seen  as  complementary,  and  indeed  supplemental,  to  existing 
education, training as well as being valid and valuable stand-alone units of learning themselves. Traditional 
credentials remain a cornerstone for learning and employability however they can be complemented and 
supplemented by micro-credentials enabling lifelong learning. Micro-credentials also need an environment 
that guarantees their proper understanding and recognition so that they can produce their desired effects. 

Case study 6: micro-credentials to support refugees’ access to higher education 

Kiron  Open  Higher  Education  (Kiron) is  a  Germany-based  non-profit  edtech  organization  promoting 
the  use  of  digital  solutions  in  higher  education  to  enable  free  access  to  higher  education  and 
successful learning for refugees worldwide.  

Integrating  refugees  into  higher  education systems  has  emerged  as  a  new  challenge. Kiron,  a  non-
profit edtech organisation founded in 2015, promotes the use of digital solutions in higher education to 
enable  access  to  higher  education  and  successful  learning  for  refugees  worldwide.  In  order  to 
overcome  the  barriers  refugees  face,  they  can  start  studying  with  Kiron regardless  of  their  asylum 
status, mobility restrictions, their knowledge of the language in their host country or high tuition fees of 
universities by  participating in  a  free  online  study  program based  on  Massive  Open  Online Courses 
(MOOCs).  After  providing  a  document  that proves a refugee or asylum seeker status, they can register 
and start their studies on Kiron’s learning platform Kiron Campus. Students enrol in one of five study 
tracks or benefit from preparatory courses to refresh their basic skills, and receive support through a range 
of additional services with the ultimate aim to transfer to a regular offline study program at one of Kiron’s 
partner universities  with  Kiron  credits  recognised. Students can receive a maximum of 60 ECTS credits 
(equivalent to a workload of one full-time study year) in case they enrol in Kiron’s partner universities. 

The extent to which institutions will offer micro-credentials depends on the available sources of funding to 
invest  in  their  development.  Governments  can  further  support  the  development  and  uptake  of  micro-
credential programmes by providing targeted funding to institutions and learners and providing financial 
incentives to employers. 

Case study 7: Strategic funding in Ireland dedicated to the development of micro-credentials and 
the Multi-Campus Micro-Credentials 

The Irish Ministry for Further and Higher Education, Research, Innovation and Science has announced 
in October 2020 the award of over €30 million in free and subsidised higher education places under the 
Jobs Stimulus package to help get people back to work, upskill workers and build economic confidence 
while continuing to manage the impact of COVID-19. The funding will support the provision of 11,597 
places on short, modular courses together with an additional 2,555 postgraduate places. 

35 

 
 
 
 
The 2,555 postgraduate places are on 207 existing courses in 23 public and private higher education 
institutions. The places are available on courses in a wide range of skills areas, including Data Analytics, 
Environmental Sciences, Engineering, Tourism and Hospitality,  ICT &  Health and welfare including 
Medical Technology. 

Modular  courses  are  short  and  focused  and  offered  in  a  flexible  manner,  allowing  people  to  gain 
important skills without taking a considerable period away from the labour market. 

Each module is stand-alone so that participants can gain skills and put them into practice immediately in 
the workplace, but modules are also accredited in such a way as to provide building blocks to a full 
qualification should the student so wish. 

These 538 modular courses across a broad range of subjects in 32 higher education institutions, represent 
a new route into lifelong learning, and provide upskilling and reskilling opportunities for those who need 
it, while ensuring that they remain close to the labour market. 

Ireland is also providing strategic funding dedicated to the development of a national approach to micro-
credentials including the MC2 initiative, among other institutional micro-credentialing initiatives funded 
through the Irish Government's Human Capital Initiative: 

In 2020, the IUA was awarded a five years grant of €12.3 million from the Human Capital Initiative 
(HCI)  to  establish  a  Multi-Campus  Micro-Credentials  (MC2)  system.  The  MC2  project  involves  a 
consortium of 7 Irish Universities led by Irish Universities Association (IUA) and has 4 key deliverable 
strands: 

Strand 1: Development of a National Framework for micro-credentials. 

Strand 2: Creation of a dynamic and sustainable model of enterprise engagement for micro-credentials. 

Strand  3:  Design  and  development  of  a  digital  Discovery  Platform  for  accredited  micro-credentials, 
linked to a digital credentialing solution. The on-line portal will drive awareness of, and support learner 
access to micro-credentials and stacked micro-credential pathways. 

Strand  4:  Agilely  developed  and  flexibly  delivered  suite  of  micro-credentials  across  the  partner 
universities. 

2.   Problem Definition 

The  overview  of  provision  of  micro-credentials  described  in  the  preceding  section  portrays  a  rapidly 
growing, diverse landscape of providers and approaches. There are many open questions and the general 
acceptance and use of micro-credentials is not yet established which limits their potential to support flexible 
learning and career pathways. Currently, there is an absence of transparent standards for quality and no 

36 

 
 
 
common definition for micro-credentials which creates uncertainty about the value, quality, recognition, 
transparency and portability of micro-credentials. This section elaborates these issues and highlights the 
real need for shared meaning and mechanisms to promote trust in micro-credentials.  

2.1. Lack of definition 

Despite increasing global interest in micro-credentials, the lack of a shared definition is currently perceived 
as the most substantial barrier to further development and uptake of micro-credentials59.  

The status of micro-credentials is unclear in many countries as they are positioned as being alternative or 
supplementary  to  traditional  qualifications  such  as  degrees  and  the  term  is  poorly  understood  amongst 
educators, employers and the public. There is no global consensus on the use or meaning of the term ‘micro-
credential’ (Brown, et al., 2021) partly because the field is still rapidly evolving and subject to constant 
change as new initiatives and priorities emerge. As noted by the OECD60: 

Despite an increasing volume of these new credentials, great uncertainty persists. Definitions and 
taxonomies to structure these new credentials have not been widely agreed. The extent of their offer 
remains uncertain, evidence of their impacts is scant, and the response of governments to these new 
offerings has not been systematically documented. 

(Kato, Galán-Muros & Weko, 2020, p.7)  

The fact that there is no established shared or common definition for micro-credentials is a critical issue for 
the positioning of micro-credentials including their design, implementation and perceived value by learners 
and stakeholders. 

59 Shapiro Futures, H., Andersen, T., & Nedergaard Larsen, K. (2020). A European approach to micro-credentials: 
Background paper for the first meeting of the consultation group on micro-credentials. Policy Paper, European 
Commission. Available at https://ec.europa.eu/education/sites/default/files/document-library-docs/european-
approach-micro-credentials-higher-education-consultation-group-output-annex-1.pdf  
60 Kato, S., Galán-Muros, V., & Weko, T. (2020). The emergence of alternative credentials. OECD Education 
Working Papers, No. 216, OECD Publishing, Paris. Available from https://doi.org/10.1787/b741f39e-en  

37 

 
 
                                                           
Figure 11: Types of Educational Credentials.61 

Several other labels and descriptors are commonly used in the literature instead of (or interchangeably) with 
the  term  micro-credential  (e.g.,  digital  badges,  open  badges,  online  certificates,  alternative  credentials, 
nano-degrees,  micro-masters,  modular  qualifications).  The  conflation  in  some  publications  between  the 
concept  of  a  micro-credential  and  an  open  digital  badge  adds  to  this  confusion  and  gave  rise  to 
methodological challenges in the research design.  

Particular  conceptual  issues  arise  in  differentiating  and  understanding  the  relationship  between  micro-
credentials and traditional qualifications.  Formal qualifications, such as degrees and diplomas issued by 
higher education institutions or VET institutions, have been a key feature of the credentials landscape for 
centuries.  Such  qualifications  are  sometimes  referred  to  in  the  literature  as  macro-credentials.  These 
qualifications  are  issued  securely  by  an  accredited  institution,  and  traditionally  on  paper,  parchment  or 
digital formats. They are obtained over extended periods of time following the successful completion of a 
course or programme, usually by aggregating grades and ratings obtained in response to assessment tasks 
in components with different names (such as courses, units or subjects)62. 

61 Camilleri, A., & Rampelt, F. (2018). Concept Paper on Quality Assurance of Credentials. Project deliverable, 
OEPass project (ERASMUS+). Available at https://oepass.eu/wp-content/uploads/sites/22/2019/03/OEPass_O1A1-
report_v5.pdf  
62 Oliver, B. (2016). Better 21C Credentials: Evaluating the promise, perils and disruptive potential of digital 
credentials. Research Report, Deakin University. Available at https://www.deakinco.com/media-centre/white-
papers/better-21c-credentials-from-deakin-universitys-professor-beverley-oliver  

38 

 
 
 
                                                           
Figure 12: Micro-credentials, What-Why 
Source : OECD (2021), Micro-credential innovations in higher education: Who, What and Why?63 

Internationally, the definition of micro-credentials varies significantly depending on who is using the term 
and in what context. Nevertheless, while definitions may diverge, common factors can be found such as 
being smaller in volume, more targeted and more flexible than traditional credentials as seen in the sample 
of definitions included below:   

Source 

Definition 

State University of 
New York  

Micro-credentials  verify,  validate,  and  attest  that  specific  skills  and/or 
competencies  have  been  achieved.  They  differ  from  traditional  degrees  and 
certificates  in  that  they  are  generally  offered  in  shorter  or  more  flexible 
timespans and tend to be more narrowly focused.  

New Zealand 
Qualifications 
Authority  

A  micro-credential  certifies  achievement  of  a  coherent  set  of  skills  and 
knowledge; and is specified by a statement of purpose, learning outcomes, and 
strong evidence of need by industry, employers, iwi and/or the community. They 
are smaller than a qualification and focus on skill development opportunities not 
currently catered for in the regulated tertiary education system.  

EUA  

A micro-credential is a small volume of learning certified by a credential. 

63 OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education 
Policy Perspectives, No. 39, OECD Publishing, Paris, https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en  

39 

 
 
 
 
                                                           
MicroHE 
Consortium  

The International 
Council for Open 
and Distance 
Education  

Sub-unit  of  a  credential  or  credentials  that  could  accumulate  into  a  larger 
credential or be part of a portfolio. Examples are: Verified Certificates, Digital 
Badges, MicroMasters, and Nanodegrees 

A credential issued for a relatively small learning project that consists of several 
modules in a given subject 

Digital promise  

Micro-credentials provide competency-based recognition for the skills educators 
learn in both formal and informal settings.”  

Bloomboard  

Micro-credentials  are  a  form  of  micro-certification  earned  by  proving 
competence in one specific skill at a time, via a portfolio of evidence, created 
through classroom practice. 

QS  

A micro–credential is a sector-endorsed short course that provides the recipient 
with specialist skills. 

Figure 13: selected definitions of micro-credentials64  
Source: OECD (2021), Micro-credential innovations in higher education: Who, What and Why? 

Further common characteristics are captured in the graphic below:  

64 OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education 
Policy Perspectives, No. 39, OECD Publishing, Paris, https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en  

40 

 
 
 
                                                           
Figure 14: In brief: Micro-credentials now 
Source: Oliver, B. (2019) Making micro-credentials work: for learners, employers and providers, Deakin 
University 65 

In the face of this reality, clarifying what is meant by a micro-credential is critical. Importantly, many of 
these  so-called  alternative  or  supplementary  credentials  which  might  meet  the  definition  of  a  micro-

65 Oliver, B. (2019). Making micro-credentials work for learners, employers and providers. Deakin University. 
Available from https://dteach.deakin.edu.au/wp-content/uploads/sites/103/2019/08/Making-micro-credentials-work-
Oliver-Deakin-2019-full-report.pdf  

41 

 
 
 
                                                           
credential  can  serve  different  purposes,  are  awarded  by  different  types  of  organisations,  are  based  on 
different standards or professional frameworks, and come under different quality assurance processes. The 
variation and open questions on the definition of micro-credentials within these different contexts mirrors 
and contributes to the current challenges and barriers to the further development and adoption of micro-
credentials, including a lack of trust, lack of transparency and lack of uptake as elaborated in the following 
sections. 

2.2. Lack of trust 

Despite  the  growing  number  of  diverse  alternative  credentials,  and  enthusiasm  among  learners  and 
stakeholders, the lack of common understanding leads to a general lack of trust in micro-credentials and 
the associated learning outcomes. There are increasing concerns about micro-credentials due to the lack of 
a commonly agreed definition (discussed above in 3.1) and employers, learners and education and training 
institutions  alike  lack  information  and  certainty  on  the  reliability,  quality  and  authenticity  of  micro-
credentials  emerging  from  diverse  providers.  Preliminary  findings  from  the  ongoing  Cedefop  study  on 
micro-credentials role in facilitating learning for employment found a high percentage of distrust in micro-
credentials among national authorities, VET providers, employer and employee organisations due to the 
fact that micro-credentials are a new, unknown form of credential and there is uncertainty of the added 
value, recognition and use of micro-credentials.  

A key consideration for the European approach to micro-credentials is to identify the policy measures and 
actions necessary to help individuals, education and training providers, employers and policy-makers to 
trust  micro-credentials.  The  establishment  of  standards  is  key  to  facilitating  individuals,  education  and 
training  providers,  employers  and  policy-makers  to  understand  the  value  of  micro-credentials  and  their 
contribution to lifelong learning, mobility and employability in a European labour market context.  

Ensuring employers’ trust in the value of micro-credentials is a key policy challenge. Their potential for 
supporting  end-users  needs  to  be  further  explored,  as  does  the  extent  to  which  they  are  prominent  in 
vocational  education  and  training  (VET)  and  work-based  learning.  Cedefop’s  ongoing  study  on  micro-
credentials role in facilitating learning for employment found that employers most trust micro-credentials 
that lead to nationally recognised qualifications (87,5%). Nevertheless, the same study found that despite 
the  perceived  lack  of  trust  in  micro-credentials,  organisations  representing  employees  somewhat  agree 
(50%) that employees in their sectors would benefit from a wider uptake of micro-credentials for training 
and continuous professional development. 

2.3. Lack of transparency 

The diversity of formats and providers of micro-credentials limits the ability of learners, employers and 
education  and  training  institutions  to  engage  with  and  understand  micro-credentials.  There  are  no 
commonly used approaches, reference tools or guidance available to understand the nature and content of 
micro-credential and the possibility to share and authenticate micro-credentials easily.  

42 

 
 
 
 
There is no single or shared approach to describing key elements including the learning achievements, the 
workload to earn the micro-credential, the status of the awarding body, the form of assessment, or the type 
of quality under pinning the micro-credential. This situation immediately limits the possibility to recognise 
and  understand  micro-credentials  in  an  effective  and  efficient  way;  and  the  portability,  validation  and 
stacking  of  micro-credentials  between  and  within  countries,  education  and  training  sectors,  and  on  the 
labour market is seriously inhibited. This situation will deter employers, education and training institutions 
and  other  recipients  of  micro-credentials  from  accepting  and  processing  micro-credentials  due  to  the 
perceived extra workload required to understand the micro-credentials. As such, micro-credentials are not 
yet standardised to be a currency in the labour market or education and training systems. Consequently, 
learners will not be motivated or incentivised to complete micro-credentials (see Lack of Uptake below in 
3.4).  Some  publications  have  advocated  for  the  creation  of  National  Qualification  Frameworks66  or  the 
accommodation of micro-credentials within the same67 however there are differing  views as to whether 
including micro-credentials in NQFs and qualifications systems is compatible with the need to ensure the 
flexibility and responsiveness of micro-credentials.   

A  further  important  consideration  for  transparency  of  micro-credentials  is  a  perceived  lack  of  digital 
solutions for issuing, storing, sharing and authentication micro-credentials in a secure way. Technological 
solutions are key to enabling the portability and potential to ‘stack’ micro-credentials. There are numerous 
established  and  emerging  technological  solutions including  Blockchain,  electronic  wallets,  open  badges 
and digital credential systems which can be potentially leveraged to support portability of micro-credentials. 
These systems are already being explored within education, training and labour market systems, including 
for traditional qualifications. There are numerous open questions on the feasibility and use of technology 
and also an inherent risk that if Member States, providers and other stakeholders begin to use differing 
technological solutions and technical standards this will in fact limit the portability and easy exchange of 
information on micro-credentials (an issue which already exists in the case of traditional qualifications).   

A further issue is that micro-credentials are not identified in data collection at EU or other levels, including 
educational attainment surveys, labour force or other surveys meaning there is currently limited data on the 
impact and economic and social benefits of micro-credentials.  Future analysis of learner impact needs to 
consider  both  the  individual  and  longer-term  societal  benefits  of  micro-credentials  but  of  course  this 
dependent on there being a coherent, shared understanding of micro-credentials that can be incorporated 
within data collection, skills intelligence analysis and research. 

As  micro-credentials  become  more  prolific  and  widespread,  there  will  be  a  need  to  collect  better 
information, in a standard format will enable better research and analysis. Ensuring that information about 
micro-credentials is transparent and informative will build trust among learners and employers and facilitate 
the uptake of micro-credentials. 

66 Usher, A. (2021). Micro-credentials in Ontario. Higher Education Strategy Associates. 28th April. Available from 
https://higheredstrategy.com/micro-credentials-in-ontario/  
67 Nic Giolla Mhichíl, M., Brown, M., Beirne, E. & Mac Lochlainn, C. (2020). A micro-credential roadmap: 
Currency, cohesion and consistency. Dublin City University. Dublin. Available at 
https://www.skillnetireland.ie/publication/a-micro-credential-roadmap-currency-cohesion-and-consistency/  

43 

 
 
                                                           
2.4.  Lack of uptake  

The combined effect of the issues described above regarding definition, trust and transparency mean that 
while there has been notable, enthusiastic interest in micro-credentials there is not yet wide and inclusive 
acceptance, awareness and uptake of micro-credentials by learners68. There are uncertainties about the value 
and benefits of micro-credentials for their personal and professional lives and learners need to be better 
informed about the availability and nature of micro-credentials. Learners are not likely to sign up for new 
and relatively unknown credential unless they can reasonably expect a return on investment in the form of 
higher pay, greater job mobility, etc. But if employers don't understand a new credential, they won't reward 
it.  The  lack  of  understanding  by  employers  of  the  value  of  micro-credentials  may  therefore  discourage 
learners  from  taking  up  micro-credentials.  The  European  approach to  micro-credentials  should  work  to 
address this awareness gap and deliver on the full potential of micro-credentials to meet the needs of people. 

Future uptake of micro-credentials will also be dependent on availability of information and guidance on 
micro-credentials  and  their  outcomes.  Information  and  guidance  on  identifying  and  selecting  micro-
credentials,  including  information  on  possible  outcomes,  will  need  to  be  incorporated  within  lifelong 
guidance services that help people with their career and learning choices. This should include university 
career centres, public employment services (PES), private employment services, social services and other 
guidance  services  for  employment,  self-employment,  education  and  training,  and  coaching  to  meet  the 
needs of widest possible learner groups, including from the most vulnerable groups. 

The recently published OECD report Micro-credential innovations in higher education: Who, What and 
Why? exposes that “In most countries, learners do not yet have a trusted source of public information that 
permits them to compare systematically the key features of micro-credentials offered by higher education 
institutions (or, indeed, other providers)”. The publication cites examples in the United States of a voluntary 
and foundation-supported initiative, called Credential Engine, has sought to build a credential registry “to 
house information about all credentials, a common description language to enable credential comparability, 
and a platform to support customized applications to search and retrieve information about credentials”69 
and an initiative in Australia to create a one-stop-shop online marketplace for micro-credentials to provide 
a nationally consistent platform to help students compare among micro-credentials using common criteria 
such as course outcomes, duration, mode of delivery and credit point value.   

The same OECD report reflects on aspects of information that could potentially be of use to learners, when 
making  decisions  on  choosing  micro-credentials,  as  well  as  stakeholders.  It  may  not  be  feasible  to 
systematically gather information about labour market outcomes associated with the acquisition of micro-
credentials but other means of assessing the value of the micro-credential such as a public rating system 
(from verified learners) could provide worthwhile information to people considering options. Learners may 
be best placed to report on their perceived value and experiences with using the micro-credential in the 
labour market or for further education.  

68 Kato, S., Galán-Muros, V., & Weko, T. (2020). The emergence of alternative credentials. OECD Education 
Working Papers, No. 216, OECD Publishing, Paris. Available from https://doi.org/10.1787/b741f39e-en.  
69 Credential Engine (2021), Credential Engine Schemas Handbook, https://credreg.net/ctdl/handbook  

44 

 
 
 
                                                           
Information on micro-credentials must be presented in a more dynamic form than traditional catalogues of 
learning, which might only be updated in line with academic cycles, to support learners looking to plan 
their career and next steps. High-quality public information portals on micro-credentials will need effective 
and efficient ways of collecting and aggregating data from providers. 

3.  Available feedback from target and open consultations on the envisaged measures 

This chapter presents an outline of the consultation strategy and a synopsis of key findings from the Open 
Public  Consultation  (OPC)  and  targeted  stakeholder  events  that  took  place  in  the  context  of  the  wider 
Stakeholder Consultation Strategy. 

3.1. Outline of the consultation strategy 

The  European  Commission’s  Consultation  Strategy  consisted  of  three  main  activities:  collection  of 
feedback on the Roadmap, followed by an Open public Consultation and a number of targeted stakeholder 
events involving all important stakeholder groups.  

From 19 February to 19 March 2021, the European Commission collected feedback on its Roadmap. The 
Roadmap  aimed  to  inform  citizens  and  stakeholders  about  the  Commission's  ongoing  work  on  micro-
credentials,  in  order  to  receive  their  feedback  and  participation  in  future  consultation  activities.  The 
Roadmap described the issue, objectives to be met, why EU action is needed, and the main features of the 
Consultation  Strategy.  Citizens  and  stakeholders  were  invited  to  provide  views  on  the  Commission's 
understanding of the problem and possible solutions, and also to contribute any relevant information they 
may have. Feedback was collected via the European Commission’s dedicated website. 

A 12-week Open Public Consultation on micro-credentials was launched on 20 April 2021, through which 
stakeholders and the general public were consulted on the scope of the proposed European approach to 
micro-credentials initiative and were able to provide feedback using an interactive survey questionnaire. 
This  questionnaire  was  made  available  on  the  Have  Your  Say  portal  of  the  European  commission. 
Responses were collected until the formal closing date on 13 July 2021. In total, 508 respondents completed 
the survey, and 92 additional documents were uploaded. 

After collecting initial feedback from experts in the field, targeted consultations events were conducted 
from the second half of 2020 to summer of 2021 to ensure the participation of all interested stakeholders 
and citizens. In addition to gathering perspectives on the scope of the proposed European approach to micro-
credentials, the OPC and targeted stakeholder events sought to inform and gather the views of Member 
States (MS), the public and other stakeholders on the working definition of micro-credentials and set of 
core elements of European standards around the main building blocks of the initiative. 

45 

 
 
 
 
3.2. Analysis of results across different consultation activities 

The  European  Commission  started  consultations  in  2020  in  order  to  gather  stakeholders’  views  on  a 
European approach to micro-credentials. The consultations carried out so far in 2020 and 2021 aimed at 
achieving a working definition of micro-credentials and a set of core elements of European standards around 
the main building blocks of the initiative, mainly: quality assurance, recognition, the possibility to combine 
(or stack) micro-credentials, links to national qualifications frameworks, storage and portability. 

This chapter presents a synopsis of key findings from feedback provided on the Commission’s Roadmap, 
Open Public Consultation (OPC) and targeted stakeholder events that took place in the context of the wider 
Stakeholder Consultation Strategy. The stakeholder feedback referenced in this report will contribute to the 
drafting of the proposal for a Council Recommendation on micro-credentials. 

3.2.1.  Consultation Strategy and Activities  

The  European  Commission’s  Consultation  Strategy  consisted  of  three  main  activities:  collection  of 
feedback on the Roadmap, followed by an OPC and a number of targeted stakeholder events involving all 
important stakeholder groups. Below we present a summary of each activity, their objectives, methodology 
and any deviations from the initial plans and / or timeline. 

3.2.2.  Roadmap 

From 19 February to 19 March 2021, the European Commission collected feedback on its Roadmap. The 
Roadmap  aimed  to  inform  citizens  and  stakeholders  about  the  Commission's  ongoing  work  on  micro-
credentials, in order to receive their feedback and encourage participation in future consultation activities. 
The Roadmap described the issue, objectives to be met, why EU action is needed, and the main features of 
the Consultation Strategy. Citizens and stakeholders were invited to provide views on the Commission's 
understanding of the problem and possible solutions, and also to contribute any relevant information they 
may have. Feedback was collected via the European Commission’s dedicated website. 

3.2.3.  Open Public Consultation 

The  European  Commission  initiated  the  12-week  OPC  on  micro-credentials  on  20  April  2021,  through 
which stakeholders and the general public were consulted on the scope of the proposed European approach 
to micro-credentials initiative and were able to provide feedback using an interactive survey questionnaire. 
This  questionnaire  was  made  available  on  the  Have  Your  Say  portal  of  the  European  commission. 
Responses were collected until the formal closing date on 13 July 2021. In total, 508 respondents completed 
the survey, and 92 additional documents were uploaded. 

46 

 
 
 
 
 
 
3.2.4.  Targeted stakeholder events 

After collecting initial feedback from experts in the field, targeted consultations events were conducted 
from the second half of 2020 to summer of 2021 to ensure the participation of all interested stakeholders 
and citizens. In addition to gathering perspectives on the scope of the proposed European approach to micro-
credentials, the OPC and targeted stakeholder events sought to inform and gather the views of Member 
States (MS), the public and other stakeholders aiming to achieve a working definition of micro-credentials 
and a set of core elements of European standards around the main building blocks of the initiative. 

3.2.5.  Reach of the Stakeholder Consultation Strategy 

Overall, a wide range of stakeholders were reached and consulted through the three consultation activities 
described above. Table 1 below provides an illustration of the stakeholder landscape, indicating the groups 
reached by each consultation channel. Overall, all intended stakeholder categories were reached through at 
least one of the consultation channels. 

Intended audiences for Stakeholder Consultation Strategy 

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o
G

s
O
G
N

Consultation 
activity 

Roadmap 

 

 

 

 

 

 

 

47 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Open Public 
Consultation 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Targeted 
stakeholder 
events 

Table 1. Stakeholder landscape 

The Stakeholder Consultation Strategy also managed to achieve a significant geographical reach, engaging 
with  stakeholders  from  across  the  EU  and  beyond.  Respondents  to  the  Roadmap  originated  from  12 
countries in Europe, with over a third hailing from Belgium. The OPC respondents represented 43 countries 
in total, including all Member States except Luxembourg. Italy was the most common country of origin of 
OPC  respondents  followed  by  Belgium,  Hungary  and  Spain.  Respondents  from  third  countries  mainly 
originated from the United Kingdom.  

3.3. Findings 

This section provides a synopsis of the findings from feedback provided on the OPC and the targeted 
stakeholder events. 

3.3.1.  Open Public Consultation and targeted stakeholder consultation events 

Based  on  survey  responses  and  position  papers  submitted  through  the  OPC  and  the  feedback  from  the 
targeted stakeholder events, as a whole the relevant stakeholders welcomed the European Commission’s 
efforts on micro-credentials. Some concerns were expressed about potential disruption in national education 
systems.  

3.3.1.1.  Views on the working definition of micro-credentials proposed by the 

European Commission   

Working Definition:  

48 

 
 
 
 
 
 
 
 
 
 
A micro-credential is a proof of the learning outcomes that a learner has acquired 
following a short learning experience. These learning outcomes have been assessed 
against transparent standards. 

The proof is contained in a certified document that lists the name of the holder, the 
achieved learning outcomes, the assessment method, the awarding body and, where 
applicable, the qualifications framework level and the credits gained. Micro-
credentials are owned by the learner, can be shared, are portable and may be 
combined into larger credentials or qualifications. They are underpinned by quality 
assurance following agreed standards. 

In general, the working definition of micro-credentials was welcomed by all stakeholders, many of whom 
highlighted its important role in providing clarity on micro-credentials and related concepts and paving the 
way for a harmonised European approach. According to the OPC respondents70 the essential elements of 
the working definition on micro-credentials were:  

 

“focus on learning outcomes”;  

 

“assessment of learning outcomes against transparent standards”;  

 

“proof of learning contained in a certified document” ; and 

 

“underpinning by quality assurance”. 

Details on the views on the working definition across all stakeholder groups in the OPC are presented in 
the  tables  below.  The  first  summarises  the  percentage  of  respondents  per  stakeholder  category  who 
considered a certain element of the working definition as “essential”, whereas the second shows combined 
responses  stating  an  element  should  be  considered  “essential”  or  “recommended”  for  the  EU  working 
definition on micro-credentials. The colour scale highlights the stakeholder groups which were the most 
numerous in blue and in red those who were the least numerous to consider this element as essential or 
recommended, based on the responses to the OPC. 

Element 
working definition 

of 

the 

All 
respondents 

Academic 
/  research 
institutions 

Business 
(company  / 
association) 

Public 
authorities  

NGOs 
(including 
consumer  and 
environmental) 

Trade 
unions 

70  Only respondents to the OPC in their professional capacity (188, any other categories than those who replied to 
the OPC in their personal capacity as EU or non-EU citizen, learner, staff of education and training organisations in 
personal capacity, worker, job-seeker) were asked to feedback on the elements of the working definition of the 
European Commission. 

49 

 
 
 
                                                           
Focus on learning 
outcomes 

Assessment of 
learning outcomes 
against transparent 
standards 

Proof of learning 
contained in a 
certified document 

Underpinning by 
quality assurance 

Portability across 
Europe 

Credits or other 
expression of 
workload 

Possibility to 
combine micro-
credentials into 
larger credentials or 
qualifications 

Focus on the short 
learning experience  

Inclusion in a 
qualifications 
framework 

82% 

79% 

73% 

76% 

88% 

96% 

80% 

85% 

70% 

80% 

74% 

96% 

73% 

79% 

48% 

80% 

74% 

87% 

69% 

68% 

53% 

64% 

74% 

91% 

47% 

62% 

38% 

28% 

74% 

13% 

45% 

53% 

30% 

60% 

50% 

30% 

41% 

53% 

30% 

40% 

43% 

30% 

32% 

35% 

30% 

48% 

36% 

9% 

30% 

38% 

28% 

16% 

38% 

4% 

N:  All  respondents=188;  Academia=34;  Business=40;  Public  authorities=25;  NGOs=42;  Trade 
union=23 

Table  2.  Percentage  of  OPC  respondents  who  considered  a  given  element  “ESSENTIAL”  in  the 
context of the working definition, per stakeholder group 

50 

 
 
 
Element 
working definition 

of 

the 

Focus on learning 
outcomes 

Assessment of 
learning outcomes 
against transparent 
standards 

Proof of learning 
contained in a 
certified document 

Underpinning by 
quality assurance 

Portability across 
Europe 

Credits or other 
expression of 
workload 

Possibility to 
combine micro-
credentials into 
larger credentials or 
qualifications 

Focus on the short 
learning experience  

Inclusion in a 
qualifications 
framework 

All 
respondents 

Academic 
/  research 
institutions 

Business 
(company  / 
association) 

Public 
authorities  

NGOs 
(including 
consumer  and 
environmental) 

Trade 
unions 

98% 

100% 

93% 

100% 

100% 

100% 

96% 

100% 

95% 

92% 

95% 

100% 

91% 

94% 

80% 

96% 

93% 

96% 

97% 

100% 

90% 

96% 

100% 

100% 

82% 

94% 

78% 

76% 

98% 

39% 

78% 

88% 

58% 

92% 

93% 

52% 

79% 

85% 

68% 

92% 

88% 

48% 

82% 

88% 

88% 

92% 

95% 

26% 

69% 

85% 

55% 

56% 

83% 

30% 

N:  All  respondents=188;  Academia=34;  Business=40;  Public  authorities=25;  NGOs=42;  Trade 
union=23 

51 

 
 
Table  3.  Percentage  of  OPC  respondents  who  considered  a  given  element  “ESSENTIAL”  or 
“RECOMMENDED” in the context of the working definition, per stakeholder group  

The level of flexibility in the definition was subject to more discussion. While Member States, universities 
and  employers  preferred  keeping  the  definition  flexible  to  leave  room  for  experimentation,  other 
stakeholders such as the European Qualifications Framework Advisory Group (EQF AG) disagreed calling 
for as little room for interpretation as possible. 

Though stakeholders have called for different inclusions to the definition, a common observation has been 
propositions  for  alternatives  to  the  term  ‘short’  used  in  the  definition  to  describe  the  scope  micro-
credentials. Alternative suggestions included ‘small’ from government bodies and education bodies, while 
national agencies suggested the word ‘micro’. Governments also emphasised that the definition should not 
restrict the scope of micro-credentials to higher education (HE) and so stated that the notion of duration and 
theoretical workload should be removed. 

Most stakeholders agreed on the importance of quality assurance as one of the key elements of the definition 
to aid the clarification and scope of micro-credentials. However, while employers, employees, Member 
States, academic bodies and NGOs called for this inclusion, the commercial industry were less supportive 
as only half considered underpinning micro-credentials by quality assurance as an essential element of the 
definition.  This  is  unsurprising  however  as  findings  show  that  each  stakeholder  group  valued  different 
aspects  as  important  elements  for  the  definition,  as  shown  in  the  table  above  which  provides  a  visual 
representation of the variances in views between stakeholder groups.  

3.3.1.2. 

Views on the standard elements 

The standard elements proposed by the European Commission were well received by the majority of OPC 
respondents, who considered each standard as either essential or recommended, as shown in the table below.  

Standard element 

Essential 

Recommended 

Identification of the holder of the micro-credential 

Title of the micro-credential 

Date of issuing 

Awarding body   

Learning outcomes 

Quality assurance of the credential 

52 

458 

441 

392 

389 

344 

316 

41 

58 

95 

100 

127 

159 

 
 
 
 
263 
Country/Region of the issuer                                                                  

Level (and cycle, if applicable) of the learning experience 

262 

Notional workload needed to achieve the learning outcomes  

250 

Quality assurance of the learning content 

Supervision and identity verification during assessment 

Type of assessment 

Integration and stackability options 

Grade achieved 

Form of participation in the learning activity  

250 

203 

195 

176 

165 

131 

171 

186 

188 

178 

178 

186 

220 

169 

200 

Table 4. Number of OPC respondents who considered a given element “ESSENTIAL” in the context 
of EU standard options to characterise micro-credentials, n=508 

A detailed overview of the stakeholder groups’ opinions on the elements which should be included in EU 
standard options to characterise micro-credentials under a European approach is presented in table below, 
based on the OPC responses. The colour scale highlights the stakeholder groups which considered each 
element as an essential feature of micro-credentials in the context of a European approach (in blue) and 
those who were the least numerous to consider this element as essential, based on the responses to the OPC. 

s
t
n
e
d
n
o
p
s
e
r

l
l

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s
n
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z
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t
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r
a
e
s
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r
/
c
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d
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c
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n
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t
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s
s
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90% 

90% 

94% 

88% 

92% 

86% 

100% 

Element of the micro-credential 

Identification of the holder of the 
micro-credential 

Title of the micro-credential 

87% 

83% 

88% 

88% 

100%  93% 

100% 

Date of issuing 

77% 

75% 

79% 

83% 

88% 

79% 

96% 

Awarding body   

77% 

73% 

85% 

80% 

84% 

76% 

87% 

Learning outcomes 

68% 

58% 

74% 

73% 

92% 

76% 

83% 

53 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
s
t
n
e
d
n
o
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(

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(

s
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v
n
e

s
n
o
i
n
u
e
d
a
r
T

62% 

61% 

65% 

50% 

100%  67% 

91% 

Element of the micro-credential 

Quality 
credential 

assurance 

of 

the 

Country/Region of the issuer                                                                  

40% 

52% 

59% 

68% 

80% 

50% 

83% 

Level  (and  cycle,  if  applicable) 
of the learning experience 

Notional  workload  needed  to 
achieve the learning outcomes  

Quality assurance of the learning 
content 

Supervision 
verification during assessment 

and 

identity 

52% 

49% 

59% 

25% 

52% 

52% 

74% 

49% 

47% 

62% 

33% 

52% 

60% 

65% 

49% 

52% 

35% 

45% 

56% 

57% 

91% 

40% 

48% 

44% 

33% 

20% 

36% 

83% 

Type of assessment 

38% 

32% 

47% 

45% 

28% 

43% 

83% 

Integration 
options 

and 

stackability 

35% 

33% 

38% 

20% 

24% 

26% 

65% 

Grade achieved 

32% 

31% 

29% 

23% 

24% 

26% 

65% 

Form  of  participation  in  the 
learning activity  

26% 

22% 

24% 

25% 

12% 

31% 

65% 

N:  All  respondents=508;  EU  citizens  replying  in  personal  capacity=  168;Academia=34; 
Business=40; Public authorities=25; NGOs=42; Trade union=23 

Table  5.  Percentage  of  OPC  respondents  who  considered  a  given  element  “ESSENTIAL”  in  the 
context of EU standard options to characterise micro-credentials, per stakeholder group  

The OPC respondents provided a few suggestions for additional standard elements of micro-credentials 
which could be included in a European approach. As a form of added verifiability, several recommended 
introducing  a  validity  period  of  a  micro-credential,  a  European  online  repository  for issued certificates, 
unique code to validate the issuer, blockchain verification, and external control body that would supervise 
micro-credentials  on  a  European  level.  Concerning  the  clarity  and  transparentness,  others  suggested 

54 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
including a short description of a context in which a micro-credential was awarded, specifically what a 
learner had to do to earn that competence or another evidence of learning or achievement.  

Views on EU-level actions and measures 

All views on this topic were shared during the OPC. The majority of respondents expressed very similar 
views in relation to the role of the EU in facilitating the uptake of micro-credentials, as shown in the figure 
overleaf. Ensuring harmonisation of micro-credentials at EU-level was considered the primary role of the 
EU, especially ensuring their recognition and providing a clear definition. It should be noted that including 
information on workload was seen as the least important task for the EU. 

Additional actions suggested by respondents included: 

  The use of existing technological tools to prevent reinventing the wheel – reference was made to 

platforms such as Badgecraft.eu and the Open Badge initiative. 

  Providing various financial subsidies to promote the use of micro-credentials; providing funding to 
support  the  co-construction  of  micro-credentials  with  industry,  professional  bodies,  NGOs  and 
stakeholders;  as  well  as  seed  funding  for  pilot  projects  and  ongoing  funding  for  the  costs  of 
maintaining systems and records for learners. 

  Encouraging the involvement of private sector and employers and considering the needs of said 
actors; and considering what the market wants (demand pull) while relaxing what HEI and VET 
providers want to deliver (supply push). 

  Targeted dissemination and awareness raising on micro-credentials for potential beneficiaries. This 
would involve providing clear information and signposting to all citizens about the opportunities 
available. This was considered paramount by those respondents.  

Very important
Rather not important

Rather important
Not important

Ensure recognition of MCs

Develop clear definition

EU standard for certificate contents

Set Europe-wide quality standards

Ensure transferability of MCs in education and
training

77%

77%

61%

61%

60%

15%

18%

29%

27%

30%

Figure 15. EU-level actions and measures which facilitate the take-up of micro-credentials, top 5 
options (n=508) 

0%

20%

40%

60%

80%

100%

55 

 
 
 
3.3.1.3. 

Views  on  micro-credentials’  link  to  labour  market  and 

employability 

All  consulted  stakeholder  categories  highlighted  the  ability  of  micro-credentials  to  address  current  and 
future labour market needs, through the up- and reskilling of adults in response to the green and digital 
transition. In the OPC, business associations strongly advised that micro-credentials should be designed 
with labour market needs in mind, to ensure they are able to narrow the skills gaps. The French government 
argued for the explicit exclusion of regulated professions from a potential European approach to micro-
credentials.    Private  companies  identified  specific  sectors  that  would  benefit  from  increased  human 
resources due to labour shortage, which included the social services sector and agricultural sector. The Joint 
ETCU–ETUCE (2020) position statement on micro-credentials71 statement expressed serious concerns that 
micro-credentials may be harmful to acquiring and recognising full qualifications. In many respects, the 
position paper supports a European-wide approach to micro-credentials where they are complementary to 
full  qualifications,  quality  assured  and  accredited  in  accordance  with  the  European  Qualifications 
Framework (EQF) and national qualification frameworks72. However, the paper emphasised the importance 
of engagement with employers and employees and also noted that current employment contracts usually 
only recognise and reward employees who attain formal macro credentials (such as full degrees). 

Social Partners Hearing  

A dedicated Social Partners hearing on micro-credentials was held on 15 April 2021. Partners stressed 
the potential usefulness of micro-credentials for upskilling and reskilling people, the importance of social 
partners’ involvement in their development and of respecting national systems and practices. They also 
highlighted  that  micro-credentials  should  complement  and  not  replace  formal  qualifications  and  the 
importance of quality assurance.  

Workers stated that micro-credentials should be linked to paid training leave and that special attention 
should be paid to inclusiveness (reaching out to low-skilled people), equal access and work-life balance. 
They  asked  for  social  partners’  involvement  in  the  regulation  of  private  courses  to  avoid  the  risk  of 
frauds.  

Employers  asked  to  avoid over-formalisation that  would reduce flexibility,  which  is  a  key  feature  of 
micro-credentials, and to leave providers the choice of whether or not to adopt the EU standards. They 
also asked for a link with Europass. 

3.3.1.4. 

Views on education and training systems 

71 Available at: https://www.csee-etuce.org/en/resources/statements/3908-joint-etuc-etuce-position-on-micro-
credentials-in-vet-and-tertiary-education-june-2020  
72 Brown, M., Nic Giolla Mhichíl, M., Beirne, E., & Mac Lochlainn, C. (2021). The global micro-credential 
landscape: Charting a new credential ecology for lifelong learning. Journal for Learning Development 

56 

 
 
 
 
                                                           
Generally, there was consensus among stakeholders that micro-credentials should not replace  education 
and training but should be complimentary. From views shared during the Consultation, it was evident that 
micro-credentials were seen by some stakeholders  to be a threat to the reputation and value ascribed to 
formal education and qualifications, hence the desire for clear separation between the two.Some business 
sectors called for restricting certain professions to formal qualifications only and ensuring the inability to 
build qualifications through a collection of micro-credentials. Some employers were more relaxed in their 
approach but still called for a clear differentiation between micro-credentials, HE and VET, to ensure micro-
credentials did not disrupt existing systems. These views highlight the fact that there is ambiguity as to how 
to incorporate micro-credentials into the existing education ecosystem and their relationship to traditional 
degrees. VET providers called for a separation between formal education and micro-credentials to ensure 
that they are not treated as a short-term solution to systematic failures perpetuating inequality.  

In addition to differentiation and distinction, balance may also be needed as proposed during the targeted 
consultations by the European Qualifications Framework Advisory Group (EQF AG). They highlighted the 
need for balance between micro-credentials and formal education and training, recognising the role they 
both  play  in  the  education  system,  with  micro-credentials  offering  different  curricula  from  formal 
education. A further addition to this view is the argument by Members of the European Parliament (MEPs) 
that though micro-credentials should not replace formal qualifications, they should be compatible with it to 
avoid further segmentation of education and training. 

3.3.1.5. 

Views on barriers to lifelong learning and inclusiveness  

It is argued that micro-credentials may have the potential to increase inclusiveness through better access to 
education,  and  could  address  some  of  the  barriers  for  adults  who  seek  learning  after  finishing  formal 
education and training to upgrade their knowledge, skills and competences in a rapidly changing society 
and labour market. The great majority of the OPC respondents (70%) viewed “lack of time” as the main 
reason why the participation of adults in training is low, followed by the “lack of support from employers” 
and the “uncertainty about whether training will be recognised by any employer” (all around 40%). 

Overall, findings across all the consultation channels indicate that micro-credentials bear both opportunities 
and risks regarding inclusiveness that need to be navigated. Generally, stakeholders identified the ability of 
micro-credentials  to  widen  pathways  and  access  to  education  and  employment  for  disadvantaged  and 
underrepresented groups such as migrants and refugees, people living with disabilities, low-wage workers, 
and older populations especially in light of the COVID-19 pandemic. However, caution was raised with the 
pursuit for inclusivity through micro-credentials. In addition, stakeholders argued the need for separation 
between boosting innovation and filling skills gaps in the work field, and the goal of realising more inclusive 
education, as they do not necessarily require the same conditions. Nonetheless, the importance of addressing 
inequality was flagged by International Organisations such as UNESCO. Trade unions further buttressed 
the need to prioritise access and inclusion especially in relation to monetary cost as more private profit-
oriented companies were becoming micro-credentials providers. In line with this, some trade unions have 
called the free provision of micro-credentials at Higher Education Institutes (HEIs) for both students and 
external learners. Another useful consideration was also flagged by the EESC who noted that besides cost, 

57 

 
 
 
motivation to attend micro-credentials needed to be addressed to ensure inclusivity. They encouraged the 
use of outreach activities at local and regional level. 

3.3.1.6. 

Views on recognition and portability 

All  stakeholder  categories  noted  the  value  in  the  recognition  and  portability  of  micro-credentials  and 
ensuring  their  quality  using  transparent  standards.  A  majority  of  OPC  survey  respondents  viewed 
recognition  as  one  of  the  most  important  characteristics  of  a  high-quality  micro-credential,  either  by 
employers (81%), education and training organisations (74%) or national authorities (72%). However, there 
was division among all stakeholder groups on how this should be achieved. 

Recognition: Quality assurance (QA) 

Across all stakeholder categories and consultation activities, QA was identified as essential in the setting 
up of European standards and establishment of trust in micro-credentials. However, there were differing 
views on whether pre-existing QA tools should be used, or new ones should be developed, and how these 
tools should be applied.  

While some National authorities expressed their preference for QA for micro-credentials using pre-existing 
tools such as European Standards and Guidelines (ESG) and quality agencies listed in European Quality 
Assurance  Register  (EQAR)  for  HE.  National  authorities  argued  against  mandatory  embedding  micro-
credentials into the existing National Quality Framework (NQF) /European Quality Frameworks (EQF). 
Though, some within the commercial industry were in alignment with these governments, all commercial 
stakeholders agreed that ultimately each provider should decide the extent to which it applies European 
standards  under  the  micro-credentials  initiative.  Such  flexibility  may  be  needed  as  although  some  HE 
stakeholders agreed with the use of NQF and EQF frameworks to QA micro-credentials, arguing that it 
aided classification and reduced the administrative burdens on HEIs, others argued that these frameworks 
may be too limiting.  

National authorities and commercial industry agreed with the prioritisation of micro-credentials’ flexibility, 
warning against excessively burdensome processes. In alignment with this perspective, during the targeted 
consultations, employers also warned against over-formalising the process. However, the need to combine 
speed and flexibility in the QA process was noted by business associations. In terms of how flexibility could 
be ensured, academic institutions argued that the key was the adoption of a decentralised approach to quality 
assurance and governance, which would also reduce the burden on institutions. In agreement with this view, 
most civil society groups and some academic institutions stated that there were benefits to specific sectors 
developing their own quality systems. While civil society groups generally called for those working closest 
with  beneficiaries  to  be  involved  in  the  development  of  QA  guidelines  some  voices  from  the  same 
stakeholder group called for QA to lie with an independent body that could ensure standardisation across 
micro-credentials.  

Some  HE  professionals  and  regulators  such  as  ENIC-NARIC  emphasised  the  importance  of  ensuring 
transparency, as more private micro-credentials providers enter the market. On this basis, they advised on 

58 

 
 
 
the application of the Bologna process to micro-credentials as a transparency and QA tool.  According to 
the  Bologna  process,  the  responsibility  of  QA  lies  with  education  providers.  However,  some  business 
providers called for a slightly hybrid approach, encouraging cooperation between HEIs who could offer a 
QA system and private providers who could offer practical experience. This idea of cooperation between 
HEIs and commercial providers echoes the ideas shared in Section 3.2.2 on employability. 

Recognition: Trusted providers 

Another potential solution to ensuring QA in micro-credentials was certifying quality by focusing on the 
providers of micro-credentials as opposed to the programmes themselves. International organisations such 
as OECD and business associations were supporters of this approach, specifically OECD who suggested 
using a combination of traditional QA and community/platform-based (“trip advisor”-style) QA to ensure 
that even small private MC providers are quality-checked. Some members of the academic sector agreed 
with this alternative QA focus, however, their proposed method was the development of a European register 
of trusted issuers and mutual recognition as they found that even in academia, trust in micro-credentials 
was still an issue. Further progressing this idea, project groups such as Microbol recommended during the 
targeted consultations that being listed in the register should become a de-facto ‘label’ of adherence to the 
ESG  and  the  European  framework  for  micro-credentials.  In  their  view,  the  Database  of  the  European 
Quality Assurance Register (DEQAR) could be used while at national and regional level, existing registers 
might be extended, or specific ones could be created. An alternative view was held by MS, who argued that 
rather than focusing on providers, QA should focus on learning outcomes and aligning itself with the pre-
existing EQF tool which specifies courses’ learning outcomes across eight levels.  

As a final note for this section, a key concern raised was the fact that recognition of micro-credentials may 
be affected as some NQFs do not permit the inclusion of non-formal qualifications. The Commission was 
encouraged to explicitly name and recognise non-formal education and its significance.  

Portability 

The value of portability for micro-credentials was also acknowledged among all the stakeholders across all 
consultation activities, though there was division on the medium that should be used. Both Europass and 
Digital Badges were considered as adequate tools by the stakeholders. It should be noted that regardless of 
the  portability  medium  chosen,  progressive  digitalisation  would  be  required,  and  this  was  noted  by 
stakeholders. Less popular alternative options proposed included the Entrepreneurial Skills Pass (ESP) for 
micro-credentials.  However,  though  digital  badges  for  micro-credentials  were  clearly  popular,  some 
education bodies did not agree with this approach out of concerns that there both would be conflated.  They 
argued that micro-credentials should be clearly distinguished from badges as their functions are different, 
and validation of learning outcomes should only be used in cases where a formal credential is absent or 
does not provide enough reliable evidence on the learning outcomes.  

Transferability  was  also  a  big  theme  in  the  portability  discussion.  Generally,  there  was  agreement  that 
micro-credentials should be transferrable, across different sectors which could also involve stackability, 
adding  an  international  dimension  to  an  individual’s  portfolio.  Government  representatives,  academic 

59 

 
 
institutions  and  student  unions,  saw  the  linking  of  micro-credentials  to  existing  quality  frameworks  as 
essential in order to ensure their stackability into fully-fledged programmes. 

3.4. Conclusions 

This  chapter  has  provided  a  synopsis  of  the  key  findings  from  the  Stakeholder  Consultation  Strategy’s 
activities  organised  by  the  Commission  on  its  upcoming  non-legislative  initiative  on  micro-credentials, 
which  will  define  a  European  approach  on  micro-credentials.  Overall,  across  all  stakeholder  categories 
there  is  significant  support  for  the  development  of  a  European  approach  on  micro-credentials  and  the 
establishment  of  common  defined  standards  underlying  this  approach.  However,  as  expected  given  the 
diversity  of  the  stakeholders  and  potential  beneficiaries  concerned  by  the  topic,  there  are  competing 
interests and perspectives in relation to a variety of aspects of a European initiative on micro-credentials 
i.e. the working definition, quality assurance and flexibility, and the role of micro-credentials. Nonetheless, 
though concerns and reservations have been flagged by the various stakeholders involved in the process, 
useful suggestions and perspectives were captured, which informed the process and its success.  

4.  Objectives of the proposal 

The Commission proposal for a Council Recommendation on micro-credentials for lifelong learning and 
employability aims to:  

  Enable  individuals to  acquire the  knowledge,  skills  and  competences they  need  to  thrive in  the 
evolving  labour  market  and  society,  to  benefit  fully  from  a  socially  fair  recovery  and  the  just 
transitions to the green and digital economy; 

  Support  the  preparedness  of  providers  of  micro-credentials  to  enhance  the  transparency  and 
flexibility of the learning offer in order to empower individuals to forge personalised learning and 
career pathways; 

  Foster inclusiveness and equal opportunities, and contribute to the achievement of resilience, social 
fairness and prosperity for all, in a context of demographic change and throughout all economic 
cycles.  

To achieve these objectives, the proposal establishes a European approach recommending to Member 
States to:  

  Apply  a  common  EU  definition,  standard  elements  to  describe  micro-credentials,  and  key 

principles for design and issuance of micro-credentials; 

  Develop the eco-system for micro-credentials, and; 
  Deliver on the potential micro-credentials to support lifelong learning and employability.  

Section 7.2 below describes how these building  blocks will support the development and use of micro-
credentials in a coherent way among the Member States, stakeholders, and the different providers (from 
60 

 
 
 
 
education  and  training  institutions  to  private  companies)  across  different  sectors  and  fields.  This  will 
facilitate  the  quality,  transparency,  recognition,  relevance,  assessment,  stackability,  portability,  role  of 
learners, authenticity and role of information and guidance within the European Education Area and labour 
markets. It will thus contribute to a lifelong learning culture and increase the employability of people.  

In  general,  the  Commission  proposal  for  a  Council  Recommendation  on  micro-credentials  for  lifelong 
learning and employability will contribute to implementing Principle 1 of the European Pillar of Social 
Rights  by  widening  learning  opportunities  for  all  and  facilitating  more  flexible  learning  pathways 
throughout  life  and  Principle  4  supporting  the  right  to  timely  and  tailor-made  assistance  to  improve 
employment  or  self-employment  prospects,  including  the  right  to  receive  support  for  training  and  re-
qualification. 

Micro-credentials can be used within education, training, lifelong learning and employability ecosystems 
to support upskilling and reskilling. The proposal does not suggest that micro-credentials should replace 
traditional  qualifications  or  substitute  existing  national  processes  to  organise  education  and  training  or 
employment or labour markets, including any support processes for vulnerable groups.  

The  combined  functional  elements  and  proposed  recommendations  address  key  aspects  of  micro-
credentials  including:  quality,  transparency,  recognition,  relevance,  assessment,  stackability,  portability, 
role of learners, authenticity and role of information and guidance.  

The proposal  aims  to  support the  ongoing  work  by  Member  States, stakeholders  and  diverse  groups  of 
providers across the EU on micro-credentials. The proposal offers key resources and guidance for those 
providers,  and  those  interested  in  exploring  micro-credentials,  to  support  the  quality,  transparency  and 
uptake  of  micro-credentials. The proposal  does  not aim  at  establishing  new administrative  processes or 
obligations nor aim at establishing new governance mechanisms, but rather to build on and adapt where 
necessary the existing provisions (e.g. in terms of quality assurance and recognition processes) at national 
and institutional levels. 

The proposal offers a common basis for Member States, and stakeholders and the Commission to develop 
and use micro-credentials in a consistent and coherent way that delivers on their potential to support lifelong 
learning and employability, while still respecting and building on the diverse contexts and systems in which 
they operate. 

Implementation will be underpinned through existing EU tools that support the needs of individuals and 
organisations, including Europass and the European Digital Credentials for Learning to support portability 
and authenticity of micro-credentials; and the European Student Card initiative which will allow students 
to share the outcomes of micro-credentials electronically and in a secure way with other education and 
training institutions.  

Finally, EU funding programmes and instruments will contribute to facilitating the uptake of short learning 
experiences leading to micro-credentials. 

61 

 
 
 
5.  EU added value 

The global micro-credential landscape is currently disconnected across national and sectoral boundaries. 
More clarity is expected to arise as governments, higher education and vocational institutions, non-formal 
providers and industry partners work together to harness new shared models. It is important that a common 
approach  is  adopted,  thus  avoiding  multiple  interpretations  of  what  micro-credentials  are  and  differing 
approaches  in  how  micro-credentials  relate  to  National  Qualification  Frameworks  (NQFs),  national 
qualification systems, training systems, labour market systems and current certificates and diplomas. 

Valuable lessons can be drawn from the positioning of micro-credentials in other countries and regions with 
federal  structures.  For  example,  Australia has  yet  to  incorporate  micro-credentials  in  the  Australian 
Qualification  Framework  (AQF)  but  by  not  doing  so  it  is  potentially  perpetuating  a  barrier  to  a  more 
coherent and consistent approach likely to help better establish the status and currency of such credentials. 
While Canada is very active in the area of micro-credentials, the federated approach to higher education 
and absence of a National Qualification Framework and funding is no doubt contributing to what appears 
to be relatively fragmented growth.  

The  positioning  of  micro-credentials  in  Europe  is  unique.  The  Commission  proposal  can  leverage 
achievements in co-operation and development of tools such as the European Qualifications Framework 
(EQF),  the  European  Credit  Transfer  System  (ECTS),  and  Europass  to  support  the  transparency  and 
understanding  of other  forms  of  learning  such as  micro-credentials.  Europe  is already  in the  process  of 
forging a more connected approach to micro-credentials, as evidenced by the development of the Common 
Micro-credential  Framework  (CMF)  for  MOOCs  and  the  collaborative  nature  of  several  early  pilot 
initiatives  by  higher  education  institutions  and  Member  States  (e.g.,  Surf  in  the  Netherlands73,  MC2  in 
Ireland,  and  the  ECIU  University  as  a  transnational  collaborative  project).  The  work  in  2020  of  the 
European Commission’s Higher Education Consultation Group on Micro-credentials to develop a common 
definition and European-wide approach to the area is unprecedented elsewhere in the world. A European 
approach  to  micro-credentials  might  become  a  global  reference  for  micro-credentials  and  result  in  an 
increased attractiveness for the offer developed in Europe (as a result of more certainty on the quality and 
recognition aspects) and increase the reputation of the European Education Area, including towards third-
country  learners,  authorities,  providers  and  other  stakeholders.  The  proposal  can  further  strengthen 
comparison  and  recognition  of  micro-credentials  and  qualifications  between  EU  and  non-EU  countries. 
Supported by ETF, a European approach to micro-credentials could reach out to third countries, in particular 
to Neighbourhood countries, encouraging increased cooperation in education and training. 

“There are many drivers underlying the Micro-Credentialing movement... To have true value, a Micro-
Credential must be, above all else, clearly-understood, and serve as a recognised representation of valued 
qualities, progress and skills, for both employers, and employees”74. 

73 https://www.surf.nl/en 
74 Nic Giolla Mhichíl, M., Brown, M., Beirne, E. & Mac Lochlainn, C. (2020). A micro-credential roadmap: 
Currency, cohesion and consistency. Dublin City University. Dublin. Available at 
https://www.skillnetireland.ie/publication/a-micro-credential-roadmap-currency-cohesion-and-consistency/  

62 

 
 
                                                           
The European approach to micro-credentials provides a frame for understanding micro-credentials and a 
launching  pad  for  delivering  on  their  potential.  The  European  approach  to  micro-credentials  will  allow 
providers to offer courses leading to micro-credentials on a larger scale that are trusted, comparable and 
recognised as a valuable learning achievement throughout Europe. Micro-credentials can become a known, 
valued  tool for  learning: learners  will  be  motivated  and  reassured  to enrol in  courses  leading  to  micro-
credentials  knowing  that  employers  and  education  and  training  institutions  will  recognise  and  provide 
opportunities to learners based on these opportunities. The established building blocks (definition, standard 
elements, and principles) provide a basis for providers in different sectors to confidently develop and use 
micro-credentials.  A diversified approach, with different formats and approaches in different sectors and 
countries will only intensify the uncertainties and fragmented approach to micro-credentials and limit their 
potential to be scaled-up and to support up-skilling and re-skilling. 

6.  What instruments are available? 

The  development  of  micro-credentials  can  build  on  existing  EU  and  European  Higher  Education  Area 
(EHEA) transparency and quality assurance tools. These are key for the recognition of micro-credentials 
within and across borders: 

- 

the  transparency  of  qualifications  (European  Qualifications  Framework  and  the  Qualifications 
Framework of the European Higher Education Area)75 76; 

-  quality assurance in higher education (Standards and Guidelines for Quality Assurance in the 

European Higher Education Area) and in VET (EQAVET)77 78; 

-  credits for achieved learning (European Credit Transfer and Accumulation System); 

- 

recognition (Lisbon Recognition Convention and the Diploma Supplement, as well as the Council 
Recommendation on promoting automatic mutual recognition of higher education and upper 
secondary education and training qualifications and the outcomes of learning periods abroad79 80 
81; 

75 European Commission, 2017. Council recommendation of 22 May 2017 on the European Qualifications 
Framework for lifelong learning and repealing the recommendation of the European Parliament and of the Council 
of 23 April 2008 on the establishment of the European Qualifications Framework. 
76 EHEA, 2005. The Framework of Qualifications for the European Higher Education Area.  
77 ENQA, 2012. Standards and Guidelines for Quality Assurance in the European Higher Education Area (ESG). 
78 European Commission, 2020e. Proposal for a Council Recommendation on vocational education and training 
(VET) for sustainable competitiveness, social fairness and resilience 
79 The Council of Europe, 1997. Convention on the Recognition of Qualifications concerning Higher Education in 
the European Region. 
80 European Commission, 1999. The Diploma supplement. 
81 European Commission, 2018. Council Recommendation of 26 November 2018 on promoting automatic mutual 
recognition of higher education and upper secondary education and training qualifications and the outcomes of 
learning periods abroad.  

63 

 
 
 
                                                           
- 

recognition of prior learning and validation of non-formal and informal learning82; 

- 

lifelong learning, career management and digitalisation (Europass)83. 

These tools and processes can enable micro-credentials to be issued based on quality-assured learning, and 
that micro-credentials can be issued to the learner following an assessment of learning outcomes. Micro-
credentials may be for credit or not for credit, and they may be stacked.  

In addition to national tools and infrastructure, the European Digital Credentials for Learning can support 
the issuing, sharing and storage of all forms of learning achievements in a digital format, including micro-
credentials, and will link to the European Student Card Initiative84. 

Enhancement of lifelong learning is also at the core of the strategy for many of the Erasmus+ European 
Universities alliances. The 41 alliances, involving more than 284 higher education institutions across all 
parts of Europe, aim at creating European inter-university campuses. They will offer both joint (physical, 
virtual,  blended)  courses  and  common  teaching  units  integrated  in  the  curricula  of  all  the  member 
universities. The development of micro-credentials is a strategic means to enhance partnerships with the 
surrounding ecosystems. Such initiatives can provide learners of all ages with the opportunity to obtain 
micro-credentials, awarded after the completion of short courses or modules. The European Universities 
alliances such as the European Consortium of Innovative Universities (ECIU) and Young Universities of 
the Future Europe (YUFE), aim at developing micro-credentials at a larger scale so that they can offer more 
flexible learning pathways, technology-enhanced learning, and more inclusive curricula and pedagogy, both 
for  students  and  professionals.  These  networks  can  act  as  test  beds  and  pave  the  way  for  other  higher 
education institutions to follow. 

As such there are tools that can be used to build a European approach ensuring a shared understanding, as 
well as a transparent and common definition of what  micro-credentials are, in order to promote trust in 
micro-credentials across countries and educational and economic sectors. It is important that a common 
approach is sought at this point, thus avoiding multiple interpretations of what micro-credentials are and 
establishing how micro-credentials relate to NQFs, national qualification systems and current certificates 
and diplomas. This is where the EU can add the most value. 

82 European Commission, 2012. Council Recommendation of 20 December 2012 on the validation of non-formal 
and informal learning 
83 European Commission, 2018. Decision (EU) 2018/246 of the European Parliament and of the Council of 18 April 
on a common framework for the provision of better services for skills and qualifications (Europass) and repealing 
decisions of 2241/2004/EC 
84 EVERIS, 2018. Europass Framework for Digitally Signed Credentials, 
https://ec.europa.eu/futurium/en/system/fles/ged/europass_background-info_framework-digitally-signed-
credentials.pdf 

64 

 
 
 
                                                           
7.  Rationale for key elements of the proposal 

7.1. A common and transparent definition 

A shared and transparent definition of micro-credentials is key to further development and uptake of micro-
credentials as a trusted skills currency. In order to be truly shared, a definition must be valid across sectors 
of  education  and  the  world  of  work,  and  it  must  mirror  the  societal  mission  of  education  and  training 
institutions, including higher, VET and non-formal providers as well as employers and labour market actors. 

The definition was formulated to encompass key characteristics for the uptake of micro-credentials, which 
include  quality  assurance,  referencing  to  qualifications  frameworks  and  the  use  of  credits  (where 
applicable) and measures to ensure portability and stackability. 

The definition submitted to consultation was generally supported by a large majority of the stakeholders, 
each of its elements  being considered  by  a  majority  of  respondents as an ‘essential’  or ‘recommended’ 
element for the definition (see 4.3.2.1 above). 

Working definition submitted to consultation 

A micro-credential is a proof of the learning outcomes that a learner has acquired following a short 
learning experience. These learning outcomes have been assessed against transparent standards.  

The proof is contained in a certified document that lists the name of the holder, the achieved learning 
outcomes,  the  assessment  method,  the  awarding  body  and,  where  applicable,  the  qualifications 
framework level and the credits gained. Micro-credentials are owned by the learner, can be shared, are 
portable and may be combined into larger credentials or qualifications. They are under pinned by quality 
assurance following agreed standards. 

However,  it  appeared  during  the  consultation  process  that  certain  elements  would  benefit  from  being 
clarified or redefined in order to ensure better mutual understanding. 

The extent of learning outcomes is not correlated with a standardised duration of training but varies from 
one individual to another. This is why it is suggested to free the definition from the notion of duration with 
a description of micro-credentials as a small volume of learning instead as of a short learning experience. 

Clarification about the transparent standards referenced in the definition appeared to be necessary as some 
stakeholders asked where to find them. It was therefore preferred to refer to “clearly defined standards” that 
are also referred to at the end of the definition as “agreed standards in the relevant sector or area of activity” 
when it comes to quality assurance. The latter reference to ‘relevant sector or area activity’ acknowledges 
the diversity of quality assurance processes across sectors. 

A sentence was also added to clarify the purpose of micro-credentials “Courses leading to micro-credentials 
are designed to provide the learner with specific knowledge, skills, competences that respond to societal, 
personal, cultural or labour market needs.” 

65 

 
 
Taking into account the support expressed for all the elements of the definition and the need for clarification 
and adjustments, the final proposed definition is as follow: 

‘Micro-credential’ means the record of the learning outcomes that a learner has acquired following a 
small volume of learning. These learning outcomes have been assessed against transparent and clearly 
defined standards. Courses leading to micro-credentials are designed to provide the learner with specific 
knowledge, skills, competences that respond to societal, personal, cultural or labour market needs.  

Micro-credentials  are  owned  by  the  learner,  can  be  shared,  are  portable  and  may  be  standalone  or 
combined into larger credentials. They are underpinned by quality assurance following agreed standards 
in the relevant sector or area of activity. 

7.2. EU standard for micro-credentials – a defined list of critical elements to describe 

micro-credentials 

The basis for trust in micro-credentials, similar to qualifications leading to a degree, is transparency in terms 
of what they represent. This includes information about the learning outcomes achieved and how they were 
assessed and quality assured. Micro-credentials, and the certificates delivered upon completion should, be 
clearly identified as such and thus differentiated from a full degree. 

There is currently no standardised way of describing micro-credentials85. The variability of information 
makes it difficult for learners, employers, education and training institutions, quality assurance agencies 
and employers to understand the value and content of micro-credentials and to compare them. The result is 
a lack of trust and recognition of micro-credentials, whether for further learning purposes or in a labour 
market  context.  No  matter  what  type  of  institution  issues  micro-credentials,  transparency  of  learning 
outcomes is crucial for a good understanding of the micro-credential.86 

This is  why  a  key  recommendation is to  adopt a  common  list  of  critical information  elements  that  any 
micro-credential must provide. This list of critical information elements would constitute a EU standard on 
micro-credentials. 

Mandatory elements: 

Identification of the learner 
Title of the micro-credential 
Country/Region of the issuer                                                                  
Awarding body                           
Date of issuing 

85 European Commission. (2020). Final report: A European approach to micro-credentials. Output of the Micro-
credentials Higher Education Consultation Group. https://ec.europa.eu/education/sites/default/files/document-
library-docs/european-approach-micro-credentials-higher-education-consultation-group-output-final-report.pdf  
86 European Commission. (2020). Final report: A European approach to micro-credentials. Output of the Micro-
credentials Higher Education Consultation Group. https://ec.europa.eu/education/sites/default/files/document-
library-docs/european-approach-micro-credentials-higher-education-consultation-group-output-final-report.pdf  

66 

 
 
 
 
                                                           
Learning outcomes 
Notional workload needed to achieve the learning outcomes (in ECTS 
credits, wherever possible) 
Level (and cycle, if applicable) of the learning experience leading to the 
micro-credential (EQF, QF-EHEA), if applicable 
Type of assessment 
Form of participation in the learning activity 
Type of quality assurance used to underpin the micro-credential 
Prerequisites needed to enrol in the learning activity 
Supervision and identity verification during assessment (unsupervised with 
no identity verification, supervised with no identity verification, supervised 
online or onsite with identity verification) 
Grade achieved 
Integration/stackability options (standalone, independent micro-credential / 
integrated, stackable towards another credential) 
Further information 

Optional elements, 
where relevant (non-
exhaustive list) 

Some  stakeholders stressed  the  need  to  include  an  additional  category  corresponding  to the duration  of 
validity of the micro-credential. Although this element may correspond to a real need in certain sectors, 
certifications of learning outcomes are rarely linked to a notion of duration of validity in the education 
sector.  Such  information  can  nevertheless  be  included  in  the  ‘further  information’  optional  element  if 
deemed necessary. 
The proposed standard elements will be included in an EU data model that specifies a common format for 
describing micro-credentials. The data model will be available as an open standard to be used by providers 
of micro-credentials and will support interoperability and easier exchange of data on micro-credentials.  

The Data Model for Micro-credentials will be managed as per the Europass Decision, in particular Article 
6 (1)(b); 6(1)(d); and 6(2)(b), which calls on the Commission to develop, test and update open standards. 
Data  models,  used  as  open  standards,  are  free  to  use,  transparent  and  built  based  on  consensus.  The 
Commission will develop the model in consultation with Member States and stakeholders, in line with user 
needs  and  technological  advancements,  as  well  as  changes  in  labour  markets  and  in  the  provision  of 
education and training and must support consistency of information and demonstrates clear added-value. 
See also the section on Portability.  

7.3. EU Principles for design and issuance of micro-credentials 

The below principles specify the nature of micro-credentials and offer guidance to Member States, public 
authorities and providers on the design and issuance of micro-credentials and systems for micro-credentials. 
The principles are universal and may be applied in any area or sector.  

67 

 
 
 
 
7.3.1.  Quality 

Micro-credentials are subject to internal and external quality assurance by the system producing them 
(e.g. the education, training or labour market context in which the micro-credential is developed and 
delivered). Quality assurance processes must be fit-for-purpose, be clearly documented and accessible 
and meet the needs and expectations of learners and stakeholders.  

Providers: External quality assurance is based primarily on the assessment of providers (rather than 
individual courses) and the effectiveness of their internal quality assurance procedures. 

Providers should make sure that internal quality assurance covers all the following elements: 

the overall quality of the micro-credential itself, based on the standards referred to below 
the quality of the course, where applicable, leading to the micro-credential 
learners’ feedback on the learning experience leading to the micro-credential; and 

 
 
 
  peers feedback, including other providers and stakeholders, on the learning experience leading 

to the micro-credential 

Standards: External quality assurance is conducted in line with:  

  Annex IV of the European qualifications framework Recommendation, where applicable; 

 

 

the Standards and Guidelines for Quality Assurance in the European Higher Education 
Area, where applicable; 
the European quality assurance reference framework (the EQAVET Framework) in the 
field of vocational education and training, where applicable;  

  other quality assurance instruments, including registries and labels, to build public trust 

in micro-credentials, where applicable. 

The quality of micro-credentials is key to establishing trust in micro-credentials, for the learners that earn 
a  micro-credentials  and  the  employers,  education  and  training  institutions  and  others  that  may  seek  to 
understand and recognise micro-credentials. Accordingly, the principle of quality and quality assurance is 
at  the  heart  of  the  European  approach  to  micro-credentials.  Importantly,  the  approach  does  not  seek  to 
harmonise quality assurance or establish one single quality assurance for micro-credentials. This would not 
be feasible or appropriate; micro-credentials can potentially be used across all sectors of society and while 
quality assurance is essential, the type of quality assurance must be fit-for-purpose and meet the needs, 
contexts and expectations of learners and stakeholders in each context.  

Quality assurance of micro-credentials should be implemented in line with the established practices and 
needs of the relevant education, training, labour market or other sector. As Member States, stakeholders 
and institutions begin to explore the use of micro-credentials it may become necessary to adapt existing 
processes to ensure the responsiveness and flexibility of micro-credentials. To support this the Commission 
has developed a set of Principles for the Design and Issuance of Micro-credentials which can be applied 
in each setting.  

68 

 
 
 
 
 
 

In  the  higher  education  sector,  transparency  and  trust  are  ensured  by  quality  assurance 
processes. In line with the Standards and Guidelines for Quality Assurance in the European 
Higher Education Area (ESG)87, all courses offered by higher education institutions must 
undergo internal quality assurance by the institution in question. In addition, either each 
course  or  the  higher  education  institution  itself  is  required  to  undergo  periodic  external 
quality  assurance  (e.g.  accreditation,  audit,  review).  The  ESG  generally  covers  quality 
assurance  of  micro-credentials  issued  by  higher  education  institutions88.  Thus  external 
quality assurance should be conducted in accordance with the ESG in the European Higher 
Education Area, where applicable. 

  Annex IV of the EQF recommendation lists quality principles for qualifications from all 

sectors, which should be respected for micro-credentials. 

  For the purposes of Vocational Education and Training (VET), the Recommendation states 
that the European Quality Assurance Reference Framework for Vocational Education and 
Training (EQAVET) should be used for the VET sector, where applicable. 

The  European  Quality  Assurance  Reference  Framework  (the  EQAVET  Framework)  is  used  in  national 
quality  assurance  systems,  for  both  initial  and  continuing  vocational  education  and  training.  For  those 
Member States that wish to explore the potential of micro-credentials as part of continuing VET systems 
they may use and adapt the EQAVET Framework. The Framework covers vocational education and training 
in  all learning  environments (such as school-based  provision  and  work-based  learning)  and  all  learning 
types (digital, face-to-face or blended), delivered by both public and private providers, and is underpinned 
by  a  set  of  indicative  descriptors  and  common  reference  indicators  for  quality  assurance  in  vocational 
education and training applied both at system and provider level, according to national context. For more 
information on the Framework see Annex II of the Council Recommendation of 24 November 2020 on 
vocational education and training (VET) for sustainable competitiveness, social fairness and resilience.  

The proposal also acknowledges that other quality assurance instruments may be used across the diverse 
sectors in which micro-credentials can be used and states ‘Other quality assurance instruments developed 
for the purposes of internal or external quality assurance of micro-credentials should also be used where 
applicable.  Examples  of  such  instruments  include  ISO  21001  which  is  a  management  standard  for 
organisations providing educational products and services meeting the needs and requirements of learners 
and  other  customers  and,  ISO  29993  which  specifies  requirements  for  learning  services  outside  formal 
education, including all types of life-long learning (e.g. vocational training and in-company training, either 
outsourced  or  in-house)  and  the  EFQM  Excellence  model’  from  the  European  Foundation  for  Quality 
Management  (EFQM),  a  management  framework  that  supports  organisations  in  managing  change  and 
improving performance.  

87 Standards and Guidelines for Quality Assurance in the European Higher Education Area (ESG)  
88 Tück, C., 2019. Quality assuring micro-credential a learner centered approach, https://microcredentials.eu/digital-
credentials-masterclass/  

69 

 
 
 
                                                           
The level at which quality assurance takes place is of key importance. In the higher education sector, it is 
key to distinguish between programme-based accreditation/external quality assurance and institution-based 
accreditation/external quality assurance. Different countries follow different systems – some countries have 
quality assurance systems focused on institutions, while others have quality assurance systems focused on 
the quality of programmes. In some higher education systems, institutional accreditation or audit standards 
already explicitly refer to micro-credentials or similar offerings; in other systems, these are only implicitly 
addressed or not at all. In systems where separate external quality assurance takes place at programme level, 
accreditation mechanisms for non-degree programmes like MOOCs, short programmes, lifelong learning 
programmes or different ways of delivery (blended learning, online leaning etc.) are, in general, not yet 
adopted by quality assurance agencies. Very few quality assurance agencies provide specific accreditation 
or certification processes for non-degree programmes.89 

Those national approaches to external quality assurance, which are based on programme accreditation, may 
not be sufficiently responsive to emerging needs. Moreover, the administrative burden of assessing one 
course as if it were a programme on its own proves challenging i.e. programme accreditation is not scalable 
to micro-credentials. National or agency regulations may therefore need to be reviewed in order to fully 
cover micro-credentials within existing quality assurance systems. 

Trust in the provider of the credential is a crucial element for trusting the credential itself. This is the reason 
why external quality assurance of micro-credentials should be encouraged to be based on the assessment of 
providers (especially in cases where the provider is a higher education institution or a VET organisation), 
rather than based on the individual course, and/or other criteria depending on national arrangements. 

Providers should make sure that internal quality assurance covers cover the quality of the micro-credential 
itself, based on the above standards, and the quality of the course, where applicable, leading to the micro-
credential. It should also cover the feedback of the learners and the peers on the micro-credential. 

An idea put forward during the consultations suggested considering the establishment of a register of trusted 
providers at a European level, which have in place a documented process for external quality assurance. 
This  approach,  if  universally  adopted  for  all  types  of  providers,  would  present  the  risk  of  being  too 
restrictive. The European approach to micro-credentials does not seek to harmonise quality assurance or 
establish  one  single  quality  assurance  for  micro-credentials.  This  would  not  be  feasible  or  appropriate; 
micro-credentials can potentially be used across all sectors of society and while quality is essential, the type 
of  quality  mechanisms  used  must  be  fit-for-purpose  and  meet  the  needs,  contexts  and  expectations  of 
learners and stakeholders in each context.   

Instead,  the  approach  recommends  that  any  providers  of  micro-credentials  should  ensure  that  quality 
processes are in place for their micro-credentials and that they are clearly documented and communicated 
to learners and stakeholders. 

89 European Commission. (2020a). Final report: A European approach to micro-credentials. Output of the Micro-
credentials Higher Education Consultation Group. https://ec.europa.eu/education/sites/default/files/document-
library-docs/european-approach-micro-credentials-higher-education-consultation-group-output-final-report.pdf  

70 

 
 
                                                           
Higher  education  institutions  (HEIs)  that  are  externally  quality  assured  in  line with  the  ESG  should  be 
regarded as trusted providers of micro-credentials. The DEQAR CONNECT project90 aims to ensure that 
these are listed in the Database for Quality Assurance Results (DEQAR) and promote the digital exchange 
of information on quality assurance. For other types of providers, another source of inspiration could be a 
Europass accreditation database of trusted issuers91. This topic should be further explored with national 
authorities in charge of qualifications and/or qualifications frameworks and other stakeholders. 

The existing criteria and measures for quality assurance could be reviewed in order to take appropriate 
account of digitalisation in teaching and learning, and to ensure security and transparency for all learner 
groups. 

Regarding blended and online learning, it is important that quality assurance of online learning activities, 
which are credit-bearing, is extended to cover the virtual learning environment, the pedagogical quality of 
online provision and the availability of online student support, which are often criticised as lacking when 
considering online learning92. 

7.3.2. Transparency 

Micro-credentials are measurable, comparable and understandable with clear information on learning 
outcomes, workload, content, level, and the learning offer, as relevant.  

Workload 

  Higher education institutions should use the European Credit Transfer and Accumulation 
System  (ECTS)  and  comply  with  the  principles  in  Annex  V  to  the  EQF 
Recommendation, wherever possible, to demonstrate the notional workload needed to 
achieve the learning outcomes of the micro-credential.  

  Providers that do not use the ECTS may use other systems or types of information that 
can  effectively  describe  learning  outcomes  and  workload,  in  compliance  with  the 
principles in Annex V to the EQF Recommendation.  

Qualifications framework/systems 

  Micro-credentials may be included in national qualifications frameworks/systems, where 

relevant and in line with national priorities and decisions.  National qualifications frameworks/ 

90 https://www.eqar.eu/deqar-connect/  
91 Camilleri, A., 2018b. Quality of Credentials in Open Education: Pathways and technologies for recognition, 
transparency and portability, Portability of Exchange, transparency and recognition aspects. 
92 Orr, D., Pupinis, M. & Kirdulyte, G., 2020. Towards a European approach for micro-credentials: a study of 
practices and commonalities in ofering micro-credentials in European higher education, s.l.: European Commission, 
NESET 

71 

 
 
 
                                                           
 
 
systems are referenced to the European qualifications framework and, for higher education 
qualifications, self-certified to the qualifications framework of the European Higher Education 
Area, which can further support the transparency, and trust in, micro-credentials. 

Information on the offer of micro-credentials 

Systems for micro-credentials should provide transparent and clear information, to underpin guidance 
systems for learners, in line with national practices and stakeholders needs:  

 

 

Information on providers of micro-credentials should be published in registers, or incorporated 
into  existing  registers.  Higher-education  providers  (and  other  relevant  providers)  should  be 
included,  where  possible,  in  the  Database  of  External  Quality  Assurance  Results  (DEQAR), 
based on quality assurance in line with the Standards and Guidelines for Quality Assurance in 
the European Higher Education Area (ESG);   
Information  on  learning  opportunities  leading  to  micro-credentials  should  be  accessible  and 
easily exchanged through relevant platforms, including Europass. 

One of the principles of the proposed European approach is to include micro-credentials, where relevant, 
in national qualifications frameworks and provide the opportunity for non-formal education and training 
providers to have their provision accredited. 

From the perspective of higher education the consultation exercise showed that there is a broad consensus 
among stakeholders from academic/research institutions that micro-credentials should be included in the 
existing qualification frameworks like EQF/NQFs and ECTS. 

The European Credit Transfer and Accumulation System (ECTS) is a recognised mechanism to make the 
learning outcomes and the estimated workload of a course visible and stackable. The mechanism is widely 
used in Europe (by 49 countries within the European Higher Education Area). It has proven to be a suitable 
mechanism for micro-credentials, as it is based on learning outcomes and makes learning measurable and 
visible as part of a transparent recognition process.  Using ECTS credits as a measure of the volume of 
micro-credentials is a basic element that allow micro-credentials to be stackable in a transparent way and 
based on learning outcomes and the workload. This also facilitates the national and international recognition 
of short courses as independent modules or potentially as part of a full qualification. For this purpose, the 
2015 ECTS Users’ Guide93 already provides indications on the use of credits for stand-alone modules, but 
the guide could be complemented by more details on this specific use. 

ECTS is currently primarily used within the field of higher education, but its use could be expanded to other 
sectors, where applicable.  Other systems or types of information may also be used which can effectively 
describe  learning  outcomes  and  workload,  while  respecting  the  principles  of  Annex  V  of  the  EQF 
Recommendation94. 

93 European Commission, 2015. ECTS Users Guide 
94 https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex:32017H0615(01)  

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Two  different  qualifications  frameworks  coexist  at  the  European  level,  with  a  different  purpose:  the 
European Qualifications Framework (EQF) for Lifelong learning as revised in 2017, and the Overarching 
Framework of Qualifications of the European Higher Education Area (QF-EHEA)95. These two frameworks 
are entirely compatible with each other and have provided a translation tool to make national qualifications 
easier to understand and compare96 and thus enable the creation of the conditions for mutual trust. 

The  European  Qualifications  Framework  for  Lifelong  Learning  (EQF)  is  a  reference  framework  for  all 
levels and types of qualifications. It is a key tool to support the understanding and comparison of all types 
of learning, including micro-credentials. The EQF is based on 8 levels of descriptors for learning outcomes 
(formulated as knowledge, skills and responsibility & autonomy) which can be applied to the design and 
awarding of smaller units of learning just as it is used for larger qualifications. Member States can include 
micro-credentials  in  their  national  qualification  frameworks,  and  as  such  these  micro-credentials  can 
already be related to an EQF level.  

The EQF already provides a basis for the inclusion of micro-credentials if Member States wish to include 
these  in  their  national  qualification  frameworks97.  Furthermore,  the  EQF  is  comprehensive  in  terms  of 
provision as it is based on outcomes of learning. Qualification frameworks can bring a better understanding 
and transparent comparison of learning outcomes. They are also a prerequisite for the transparent uptake 
and  accumulation  of  micro-credits  into  larger  credits98.  Over  time,  qualifications  frameworks  have 
evolved99. Internationally, the inclusion of micro-credentials in national qualifications frameworks is still 
at  an  early  stage.  The  international  trends  show  that different approaches  and  processes  have  occurred, 
which  mirror  differences  in  national  education  systems  and  illustrate  the  need  to  enable  some  form  of 
referencing of micro-credentials within the overall education and training provision.  

Therefore, and based on the consultations outcomes and the evidence gathered, the European Commission 
proposes  that  Member  States  include  micro-credentials,  where  relevant,  in  national  qualifications 
frameworks/systems. 

Information 

The European Commission will seek to enhance the role of Europass as the EU framework for supporting 
communication  of  information  on  skills  and  qualifications.  The  platform  is  visited  50K  per  day,  and  2 

95 Bologna Working Group, 2005. Framework for Qualifications of the European Higher Education Area, s.l.: 
European Commission.  
European Commission, 2012b. The European Qualification Framework for Lifelong Learning, Luxembourg: 
Publications Office of the European Union: Commission. 
96 Young, M. & Allais, S. M., 2013. Implementing National Qualifications Frameworks Across Five Continents. 
London: Taylor & Francis. 
97 European Commission. (2020a). Final report: A European approach to micro-credentials. Output of the Micro-
credentials Higher Education Consultation Group. https://ec.europa.eu/education/sites/default/files/document-
library-docs/european-approach-micro-credentials-higher-education-consultation-group-output-final-report.pdf  
98 MicroHE Consortium, 2019,P.33. Challenges and Opportunities of Micro-Credentials in Europe. Briefng Paper on 
the Award, Recognition, Portability and Accreditation of Micro-Credentials. version 6.0, https://microcredentials.eu/  
99 Chakroun, B. & Keevy, J., 2018,P.7. Digital Credentialing, implications for recognition of learning, Paris 

73 

 
 
                                                           
million persons having created a Europass account since its launch in July 2020 to manage their learning 
and career. Europass can evolve to act as a hub of information and services on micro-credentials.   

Learning opportunities (courses) leading to micro-credentials can be published by Member States on the 
Europass platform (eg through national registers of micro-credentials that could be part of broader NQF 
registers). Courses leading to qualifications are already published on the platform.  

Learners can already use the Europass e-Portfolio to receive suggestions on learning opportunities based 
on  the  information  on  their  skills  profile  and  interests;  in  the  future,  this  functionality  could  extend  to 
include suggestions of micro-credentials relevant to the user’s needs.   

7.3.3. Relevance 

Micro-credentials  should  be  designed  as  distinct,  targeted  learning  achievements  and  learning 
opportunities leading to them are updated as necessary, to meet identified learning needs. 

Collaboration between education and training organisations, employers, social partners, other providers 
and users of micro-credentials is encouraged to increase the relevance of the micro-credentials for the 
labour market. 

The common characteristics of the majority of micro-credentials are that they are expected to be answer to 
specific learning needs, most of the time relevant for the labour market, and may recognise the development 
of  wider  transversal  skills.  The  latter  characteristic  indicates  that  engagement  between  education  and 
training institutions, employers and other providers is crucial to ensuring that micro-credentials are well-
designed, relevant and valued by the learners, the employers and all other stakeholders.  

Micro-credentials  can  be  a  strategic  means  to  enhance  partnerships  between  education  and  training 
institutions  with  their  surrounding  ecosystems  and  ensure  the  responsiveness  of  micro-credentials. 
Partnerships with labour market actors, including social partners and companies themselves are key to the 
development  of  micro-credentials.  Co-created  micro-credential  programmes  can  reduce  investment 
requirements and risks for individual institutions and ensure dialogue occurs around needs and priorities. 
Partnerships can be also be a way for education and training institutions to reduce constraints regarding a 
lack of specific expertise in a field, reflect both the latest research and professional best practices while 
improving the uptake and promotion of micro-credentials. 

7.3.4.  Valid assessment 

Micro-credential learning outcomes are assessed against transparent standards. 

74 

 
 
 
 
The assessment methods and criteria should be constructed to measure the achievement of the required 
learning outcomes at the appropriate level. 

The basis for trust in micro-credentials, similar to qualifications leading to a degree, is transparency in terms 
of what they represent. This includes information about the learning outcomes achieved and how they were 
assessed  and  quality  assured.  Micro-credentials  should  be  awarded  based  on 
transparent 
assessment/examination methods that promote the validation of real competences. Assessment of learning 
outcomes against transparent standards was considered as an essential element of a definition of micro-
credentials by 80% of respondents to the OPC (see 4.3.2.1). 

7.3.5.  Learning pathways 

Micro-credentials are designed to support flexible learning pathways, including the possibility to ‘stack’, 
validate and recognise micro-credentials from across different systems.  

Stackability 

Micro-credentials are designed to be modular so that other micro-credentials may be added to create 
larger credentials. Decisions to ‘stack’ or combine credentials lie with the receiving organisation (e.g. 
education and training institutions, employers, etc.) in line with their practices and should support the 
goals and needs of the learner. 

Validation of non-formal and informal learning 

Obtaining  micro-credentials  is  possible  following  assessment  of  learning  outcomes,  obtained  either 
through  a  specific  course  leading  to  a  micro-credential,  or  on  the  basis  of  assessment  of  learning 
outcomes resulting from non-formal and informal learning. 

Stackability refers to the idea that micro-credentials can be accumulated over time and combined to create 
larger credentials. Stackability is multi-faceted and may occur in different ways, in order to meet differing 
needs. Stackability is enabled and made easier where common elements are used to describe the micro-
credential – including a common format for describing micro-credentials which may be issued by different 
providers  and  transparent,  measurable  ways  to  describe  the  learning  and  workload  involved  so  that  a 
decision on stackability can be made, 

Stackability  may  be  part  of  the  design  of  a  micro-credental  or  sequences  of  micro-credentials  allowing 
learners to choose from and build a particular set of skills over time and help that individual move along a 
career pathway. Stackability may also be considered by receiving authorities (e.g. providers, employers or 
recognition  authorities)  depending  on  their  approach  to  recognition  and  stackability  towards  other 
credentials. Stackability is not about combing micro-credentials to create a qualification. This can occur in 
some cases, in line with the decision of the relevant awarding body (in practice earning and then stacking 
micro-credentials to a full qualification could take an unfeasibly long time); the purpose of stackability is 
to construct flexible routes to acquire and develop bundles of skills for specific purposes.  

75 

 
 
The  Council  Recommendation  of  20  December  2012  invites  Member  States  to  have  validation 
arrangements in place which enable individuals to have knowledge, skills and competences which have 
been acquired through non-formal and informal learning validated, and to obtain a full qualification, or, 
where applicable, part qualification, on the basis of validated non-formal and informal learning experiences 

This principle could be extended so that validation of skills acquired through experience (work or life) and 
through structured learning (non-formal or formal) could be a pathway to obtain a micro-credential, if an 
assessment confirms that an individual has acquired learning outcomes complying with the standards of the 
micro-credential.  

Work on the implementation of the Validation Recommendation is an ongoing process. The latest data from 
the latest European Inventory on the validation of non-formal and informal learning shows that there are 
now  possibilities  for  validation  in  at  least  one  broad  area  (education  and  training,  labour  market,  third 
sector) in all 36 countries under study, most commonly in the education and training area with all countries 
have validation arrangements in place in at least one subsector of education and training, except Croatia. 

Education and Training sub-sector 

Adult   CVET  General   Higher   IVET 

Existing validation arrangements in the sector  23 

30 

16 

28 

29 

Figure 16: Number of countries with validation arrangements by sub-sector 

An important consideration for the purposes of micro-credentials is the possible outputs of validation. The 
table below shows possible outcomes of validation per country which can include modules and non-formal 
awards.  Micro-credentials could serve as a valuable potential outcome of validation processes as they can 
by their very nature recognise the outcomes of differing types and volumes of learning. In around 70% of 
the cases in which validation arrangements are in place in education and training, it is possible to obtain a 
qualification (or a partial qualification) in education and training and in the instances in which labour market 
initiatives exist.  A similar number exist in terms of exemption in different ways (granting modules, credits 
or other type of exemptions). This is an encouraging picture for micro-credentials, as the validation systems 
seemed, in most cases ready for accepting reduced parts of qualifications.  

There  are  varying  practices  and  barriers  to  wider  scaling  up  of  validation  of  non-formal  and  informal 
learning,  including  the  resources  required  and  standardising  the  validation  of  learning  outcomes  based 
processes. However, micro-credentials could offer a common focus for the output of validation  that are 
measurable,  easily  understood  and  can  motivate  learners  by  giving  value  and  visibility  to  the  learning 
achievements.  

76 

 
 
 
 
 
 
A) Award of full formal qualification (22) 

Austria, Belgium-Flanders, Bulgaria, Denmark, Finland, France, Germany, Ireland, Italy, 
Latvia,  Lithuania,  Luxembourg,  Netherlands,  Norway,  Poland,  Portugal,  Romania, 
Slovenia, Spain, Sweden, Switzerland, United Kingdom (England Northern Ireland) 

B) Award of part of a formal qualification 
(27) 

Liechtenstein, 

Austria, Belgium-Flanders, Bulgaria, Czech 
Republic,  Denmark,  Estonia,  Finland, 
France,  Germany,  Iceland,  Ireland,  Italy, 
Latvia, 
Luxembourg, 
Netherlands,  Norway,  Poland,  Portugal, 
Romania, 
Sweden, 
Switzerland,  United  Kingdom  (England 
Northern 
Ireland),  United  Kingdom 
(Scotland) United Kingdom (Wales) 

Slovenia, 

Spain, 

C)  Award 
qualification/ certificate (15) 

other 

of 

non-formal 

Austria,  Belgium-Wallonia,  Cyprus,  Czech 
Republic,  Finland,  Germany,  Greece, 
Ireland,  Netherlands,  Poland, 
Iceland, 
Slovenia, 
Spain,  United  Kingdom 
(Scotland), United Kingdom (Wales) 

D) Award of credit points (25) 

E) Award of modules (22) 

Austria,  Belgium-Flanders,  Denmark, 
Estonia,  Finland,  Germany,  Hungary, 
Iceland, Ireland, Italy, Latvia, Liechtenstein, 
Lithuania,  Malta,  Netherlands,  Norway, 
Poland, Portugal, Slovenia, Spain, Sweden, 
Switzerland,  United  Kingdom  (England 
Ireland),  United  Kingdom 
Northern 
(Scotland) United Kingdom (Wales) 

Austria, 
Belgium-
Belgium-Flanders, 
Wallonia,  Denmark,  Estonia,  Finland, 
Ireland, 
Italy,  Latvia,  Liechtenstein, 
Luxembourg,  Malta,  Netherlands,  Norway, 
Poland,  Romania, 
Spain, 
Switzerland,  United  Kingdom  (England 
Ireland),  United  Kingdom 
Northern 
(Scotland) United Kingdom (Wales) 

Slovenia, 

F) Exemptions from part of course (25) 

G)  Access  to  formal  programmes  (e.g. 
programmes in formal education) (27) 

Austria, 
Belgium-
Belgium-Flanders, 
Wallonia,  Czech  Republic,  Denmark, 
Estonia, Finland, Hungary, Iceland, Ireland, 
Latvia,  Liechtenstein,  Luxembourg,  Malta, 
Netherlands,  Norway,  Poland,  Portugal, 
Romania,  Slovenia,  Sweden,  Switzerland, 
United  Kingdom 
(England  Northern 
Ireland), United Kingdom (Scotland) United 
Kingdom (Wales) 

Austria, 
Belgium-
Belgium-Flanders, 
Wallonia,  Bulgaria,  Denmark,  Estonia, 
Finland,  Germany,  Hungary, 
Iceland, 
Ireland,  Latvia,  Liechtenstein,  Lithuania, 
Luxembourg,  Malta,  Netherlands,  Norway, 
Poland, Romania, Slovenia, Spain, Sweden, 
Switzerland,  United  Kingdom  (England 
Northern 
Ireland),  United  Kingdom 
(Scotland) United Kingdom (Wales) 

77 

 
 
H)  Training  specification  (i.e.  to  map 
what  training  needs  to  be  completed  in 
order to achieve a (full) qualification) (18) 

I)  Access  to  the  labour  market  (e.g.  a 
qualification that is compulsory to exercise a 
certain job) (9) 

Czech 
Austria, 
Belgium-Wallonia, 
Republic,  Denmark,  Finland, 
Iceland, 
Ireland,  Latvia,  Liechtenstein,  Netherlands, 
Norway,  Poland,  Slovenia,  Spain,  Sweden, 
Switzerland,  United  Kingdom  (England 
Northern Ireland), United Kingdom (Wales) 

Republic, 
Czech 
Belgium-Wallonia, 
Finland, 
Ireland,  Netherlands,  Poland, 
Slovakia, Sweden, United Kingdom (Wales) 

Figure 17: The outputs of validation by country; Source: 2018 European Inventory. Note: The table 
relates to the education and training area only. 

The EQF AG currently organises it work on validation around four broad thematic areas: 

  Validation in national skills strategies; 
  Making validation a reality for individuals; 
  Developing high quality validation methodologies; 
  Exploring complementary routes to certification; 

The topic of micro-credentials has not been addressed in detail within the EQF Advisory Group  however 
Note EQF AG 56-5 on the topic of complementary routes to certification highlights the increasing diversity 
of certification modes on offer, including the the awarding of micro-credentials by a widening range of 
companies and institutions and that increased attention needs to be given to the ways in which individuals 
can  combine,  connect  and  accumulate  qualifications,  certificates  and  other  types  of  credentials  over  a 
lifetime. 

Another perspective to consider is that as the offer and uptake of micro-credentials increases, the current 
time and resource-intensive procedures for recognition of prior learning and experience m not be able to 
satisfy  the  increased  demand.  Moreover,  the  funding  context  of  these  procedures  differs  widely  in  the 
Member States, and is regarded as a resource- and time-intensive process. Procedures for the recognition 
of prior learning and experience would need to be adapted for the purpose to satisfy a substantially increased 
demand. Recognition processes underpinned by digital means could here play a facilitation role. 

78 

 
 
 
 
 
7.3.6.  Recognition 

Recognition has a clear signalling value of learning outcomes for smaller modules of learning and paves 
the way for a wider offer of such learning experiences in a comparable way across the EU. 

Micro-credentials are recognised for academic or employment purposes based on standard recognition 
procedures used in recognising foreign qualifications and learning  periods abroad, when dealing with 
micro-credentials issued by formal education providers. 

Recognition of micro-credentials should be encouraged and based on standard recognition procedures when 
issued by formal education providers. The challenges concerning recognition of micro-credentials are not 
different  from  the  general  challenges  in  recognition.  Consistent  terminology  in  describing  learning 
outcomes will help make such an assessment.  

The  EU  Council  Recommendation  on  promoting  automatic  mutual  recognition of  higher  education  and 
upper secondary education, training qualifications and the outcomes of learning periods abroad calls for 
automatic mutual recognition for the purpose of further learning without having to go through a separate 
recognition procedure, under certain circumstances, both at the level of full qualifications and at the level 
of periods of study100.  

The  Lisbon  Recognition  Convention,  ratified  by  26  EU  Member  States,  refers  to  degrees,  diplomas  or 
certificates  issued  by  competent  authorities,  based  on  the  successful  completion  of  a  higher  education 
programme. These degrees, diplomas or certificates shall be recognised for the purpose of access to higher 
education studies, academic titles or in certain cases to the labour market, unless substantial difference can 
be shown. Periods of study completed shall be recognised towards the completion of a higher education 
degree, unless substantial difference can be shown.  

In  academic  recognition  procedures,  the  key  actors,  depending  on  the  situation  in  Members  States,  are 
ENIC/NARIC centres, ministries and higher education institutions. The Lisbon Recognition Convention 
applies  to  their  processes.  Standard  recognition  procedures  that  are  used  for  the  recognition  of  foreign 
qualifications  and  learning  periods  abroad  can  be  used  as  a  starting  point  when  dealing  with  micro-
credentials issued by formal education providers.  

As the offer and uptake of micro-credentials increases, the current time and resource-intensive procedures 
for their current recognition would not be able to meet the increased demand. In Higher education, the result 
of  a  complex  recognition  procedure  could  be  that  learners  are  hesitant  to  seek  recognition  of  micro-
credentials  that  they  acquired  outside  their  formal  full  degrees.  Experience  shows  that  learners  seeking 

100 European Commission, 2018. Council Recommendation of 26 November 2018 on promoting automatic mutual 
recognition of higher education and upper secondary education and training qualifications and the outcomes of 
learning periods abroad. Available at: https://eur-lex.europa.eu/legal-
content/EN/TXT/?qid=1568891859235&uri=CELEX:32018H1210(01)  

79 

 
 
                                                           
exemption  from  certain  parts  of  a  curriculum  based  on  claiming  recognition  of  studies  outside  of  the 
curricula may face challenges101. 

Recognition  of  micro-credentials  by  employers,  education  and  training  organisations  and  national 
authorities  were  considered  as  the  most  important  aspects  of  high-quality  micro-credentials  with 
respectively 81%, 74% and 72% of respondent considering it as ‘very important’: 

Figure 18: Most important aspects of high-quality micro-credentials. Open public consultation 

7.3.7.  Portable 

Micro-credentials are owned by the credential-holder (the learner) and may be stored and shared easily 
by the credential-holder, including through secure digital wallets (e.g Europass), in line with the General 
Data  Protection  Regulation.  The  infrastructure  for  storing  data  is  based  on  open  standards  and  data 
models, This ensures interoperability and seamless exchange of data, and allows for smooth checks of 
data authenticity. 

Micro-credentials should enable flexible learning pathways and accommodate the goals and resources of 
the learner. In order to do so, micro-credentials should be ‘stackable’ meaning that they can be accumulated 
and grouped over time, building into a larger credential. 

Stackability  of  the  micro-credential  supports  both  its  inclusion  into  flexible  learning  pathways  and 
accommodates the goals and resources of the learner. 

Europass provides a basis for stacking credentials accumulated over time and from different institutions. It 
is  built  on  a  single  data  model,  which  can  describe  all  forms  of  learning  outcomes  including  micro-
credentials . 

101 MicroHE Consortium, 2019. Challenges and Opportunities of Micro-Credentials in Europe. Briefing Paper on the 
Award, Recognition, Portability and Accreditation of Micro-Credentials. version 6.0, https://microcredentials.eu/ 

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Micro-credentials are issued in various formats (on paper or in a digital form, stored locally or using a cloud 
solution). It is clear that learners should own their own credential data, rather than the issuing institution. 
In line with the General Data Protection Regulation (GDPR), it is up to the learner to decide with whom 
they wish to share their data. 

When considering how to enable easy storage, sharing and portability of micro-credentials, a digital format 
appears  to  be  essential.  This  does  not  imply  that  the  learning  experience  is  digitally  based  but  that  the 
certificate  is  issued  in  a  digital  format.  Such  a  format  would  be  beneficial  for the  learners  but  also  the 
providers and the employers by facilitating their portability and recognition. 

The data owned by the learner could be stored in a digital wallet in order to collect them in one place and 
share  them  easily  whether  it  is  for  education  and  training  purpose  or  job  transitions.  Collecting  micro-
credentials in a digital wallet implies an infrastructure for storing data.  

Storing and sharing of data should be based on open standards and data models to support interoperability 
and  seamless  exchange  of  data,  and  allows  for  smooth  verification  of  data  authenticity.  The  Europass 
framework, including the Europass Learning Model and Digital Credentials infrastructure can support these 
goals. 

The  European  approach  to  micro-credentials  will  establish  a  common  format  for  describing  micro-
credentials that will key to supporting the portability micro-credentials.  

The  Commission  can  make  use  of  existing  EU  tools,  in  particular  the  Europass  framework,  to  support 
implementation and use of this common format. Europass is operated as a framework, meaning it supports 
openness, interoperability and easier exchange of data.  

The key element in enabling this is the Europass Learning Model which is a single format to describe all 
types  of  learning  achievements  (certificates  of  attendance,  examination  results,  degrees  and  diplomas, 
diploma supplements, professional certifications, employer recommendations etc). This data model has a 
very broad coverage and can be used for the purposes of micro-credentials with very few adaptations and 
serve as an ‘open standard’ that specifies a common format for describing micro-credentials. Using a single 
data model will support portability and easier exchange of data on micro-credentials (e.g. sharing of micro-
credentials between IT systems of education and training systems) within and between Member States.  

Within Member States the data model can be used in local IT systems for designing and issuing micro-
credentials but by adhering to the Europass model the data on the micro-credential can be easily shared and 
understood.  

Secondly, the Europass Digital Credential Infrastructure can already be used to issue, store (in the ‘Europass 
Wallet’) and share authentic, tamper-proof digital micro-credentials. Learners and organisations can access 
these services directly via the Europass platform. Organisations such as education and training providers 
can reuse components of the infrastructure to build a ‘wallet’ for their graduates in their student portal and 
issue micro-credentials directly to students wallets, while still adhering to the Europass format.  

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With  this  solution  in  place,  learners,  employers,  education  and  training  providers  and  other  authorised 
bodies  have  a  simple  and  trustworthy  way  of  receiving,  storing,  sharing  and  verifying  the  validity  and 
authenticity of digital micro-credentials. 

Importantly, learners, providers and stakeholders will not be restricted to using Europass services sch as 
the ‘Europass Wallet’. Other digital solutions and platforms for the digital storage, sharing and exchange 
of  micro-credentials,  (as  well  as  accessing  information  and  enrolling  in  courses  leading  to  micro-
credentials)  are  available  however  the  interoperability  and  easy  exchange  of  information  on  micro-
credentials will only be possible with consistent and widespread use of the Europass Learning Model. 

7.3.8.  Learner centred 

Micro-credentials are designed to meet the needs of the target group of learners. Learners are involved 
in the internal and external quality assurance processes and their feedback is taken into account as part 
of the continuous improvement of the micro-credential. 

At the heart of micro-credentials are learners – individuals in search of a first experience of higher education 
or in pursuit of updating and enhancing their knowledge, skills and competences after a period in or out of 
the workforce. When designing a micro-credential, learners should be involved and the needs of the target 
group of learners need to be considered. 

Furthermore, learners should be involved in the quality assurance processes, while acknowledging that the 
engagement of the non-traditional learners in the quality assurance processes could be more complex and 
potentially even more so in the case of stand-alone micro-credentials. 

Learners should be involved in the quality assurance processes and the feedback of alumni should be 
taken into account as part of the continuous improvement plan of the micro-credential. 

7.3.9.  Authentic 

Micro-credentials contain sufficient information to check the identity of the credential-holder (learner), 
the legal identity of the issuer, the date and location of issuance of the micro-credential. 

Micro-credentials must contain enough information to verify when, where and by whom it was issued, trace 
and reproduce the conditions under which it was issued. This is key to to establishing trust in the micro-
credential, and in micro-credentials in general. Education and training institutions, employers, and other 
recipients of micro-credentials require that at minimum they can establish details of the authenticity of the 
micro-credential before considering the learning outcome and other details,. Learners naturally will be more 
assured, motivated and protected if their micro-credentials can be easily authenticated.  

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The European Commission launched the Europass Digital Credentials Infrastructure in 2020 which offers 
free tools for institutions across the EU to issue credentials as well as diplomas and certificates at all levels, 
in a tamper-proof, digital format with automatic verification of authenticity. The infrastructure will allow 
organisations to issue qualifications, apprenticeships or certificates in an efficient and secure, trustworthy 
and  fraud-resistant  digital  infrastructure  and  importantly  can  be  adapted  for  the  purposes  for  micro-
credentials. Europass Digital Credentials support instant verification; recipients can automatically verify 
information such as the identity of the awarding body or the quality assurance of a qualification. 

Europass  Digital  Credentials  are  signed  with  an  e-Seal,  meaning  they  enjoy  a  legal  presumption  of 
authenticity  across  the  EU  as  well  as  equivalence  to  paper-based  credentials  containing  the  same 
information. 

Figure 19: Diploma in Europass Digital Credentials 

7.3.10.  Information and guidance 

Information  and  advice  on  micro-credentials  should  be  incorporated  in  lifelong  learning  guidance 
services and should reach the broadest possible learner groups, in an inclusive way, supporting education, 
training and career choices. 

Career  guidance  helps  people  of  all  ages  to  manage  their  careers  and  their  educational,  training  and 
occupational choices. Effective career guidance is underpinned by the skills assessment of the individual. 
There are guidance services available at different levels: guidance provided by the employer, and local and 
national  employment  offices.  University  career  centres,  Public  Employment  Services  (PES)  and  other 
guidance  services  (employment,  career,  education  and  training,  coaching)  can  help  to  reach  the  widest 

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possible  learner  groups,  in  an  inclusive  way,  underpinning  lifelong  learning  as  a  public  good  based  on 
European values. 

Incorporating information and guidance on micro-credentials with lifelong guidance services would enable 
learners to fully benefit from more personalised lifelong learning pathways and make informed decisions 
about their educational journey. 

7.4. Provisions in the proposal 

The  recommendation  proposes  guidance  and  action  that  can  be  pursued  by  Member  States  in  order  to 
address  the  main  objectives  of  the  initiative,  to  enhance  the  quality,  transparency  and  take-up  of  small 
learning experiences leading to micro-credentials that are issued by providers. The proposal outlines a set 
of  recommendations  to  Member  States  to  support  the  effective  implementation  of  the  Council 
Recommendation, in line with national priorities and circumstances, and invites the Commission to support 
Member  States  and  stakeholders,  in  particular  by  facilitating  co-operation  and  developing  practical 
guidance  and  tools  to  support  development  and  use  of  micro-credentials.  It  sets  out  the  European 
Commission’s commitment to complement and support Member State actions in this area.  

§  1-2  recommends  that  Member  States  adopt  a  European  approach  to  micro-credentials  to:  (i)  widen 
learning opportunities for people; support the preparedness of providers of micro-credentials; and (iii) foster 
inclusiveness and equal opportunities. Micro-credentials will also help reach the target of 60% of all adults 
participating in training every year as set out in the European Pillar of Social Rights action plan and as 
welcomed by EU leaders. 

§ 3-4 makes clear that the scope of the proposal is to set up a common European approach to providing 
micro-credentials. This common approach will involve a definition of micro-credentials and guidance for 
how to design, issue and describe micro-credentials.  

§ 5 includes definitions for the purpose of the recommendation. 

§ 6 recommends that Member States adopt ‘Union standard’ elements to describe a micro-credential and 
Union principles for the design and issuance of micro-credentials as set out in Annexes I and II. 

§ 7-10 sets out actions to develop ‘ecosystems for micro-credentials’ within the evolving education and 
training systems, labour markets and society.  

§ 11-15 makes recommendations on the uses of micro-credentials within education and training systems, 
skills policies, and employment and active labour market policies that can serve the needs of a wide range 
of learners, workers, job seekers and others so they can benefit fully from both a socially fair recovery from 
COVID-19 and the just transitions to the green and digital economy.  

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In addition, the proposal suggests promoting the use of micro-credentials to help certain target groups to 
re-enter the labour market, notably minimum income recipients, the long-term unemployed; and the low-
qualified. It also suggests promoting the use of micro-credentials for self-employed and platform workers 
who may not be able to access traditional education and training, but who need targeted support to advance 
in their careers. Micro-credentials can also be used to recognise the outcomes of mandatory or required 
training for certain jobs and professions e.g. first aid, manual handling, and operating machinery for specific 
jobs and professions.  

§ 16-19 welcomes the Commission’s intention to support the development and use of micro-credentials by: 
(i) developing or adapting EU tools and services; (ii) supporting cooperation between Member States and 
stakeholders; (iii) developing the Europass platform; and (iv) supporting further research on the uptake of 
the European approach to micro-credentials. 

Implementation will be underpinned through existing EU tools that support the needs of individuals and 
organisations, including Europass and the Europass digital credentials for learning to support the portability 
and  authenticity  of  micro-credentials.  Implementation  will  also  be  underpinned  through  the  European 
student card initiative which will allow students to share the outcomes of micro-credentials electronically 
and  securely  with  other  education  and  training  institutions.  Finally,  EU  funding  programmes  and 
instruments will help to facilitate the uptake of short learning experiences leading to micro-credentials. 

§ 20-22 sets the reporting mechanisms for implementing the recommendation. 

The accompanying staff working document describes a wide range of recent research evidence together 
with European stakeholder opinions and experiences to support the proposed recommendation. The staff 
working document also provides examples of existing policies and projects in this rapidly developing field. 

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