Guide for developing strategic learning programmes in support of implementation of EU policies and programmes : the learning as a strategy guide.
Date: 2025-05-27
Institutions: Joint Research Centre
Subjects: EU Member State, EU policy, EU programme, learning, policymaking, user guide

ISSN 1831-9424 

Guide for developing strategic learning 
programmes in support of implementation 
of EU policies and programmes 

The Learning as a Strategy Guide 

Elias Carrillo, L., Topp, L., Hearn, P., Ganescu, E. 

2025 

EUR 40244 

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GUIDE FOR DEVELOPING STRATEGIC LEARNING INITIATIVES IN SUPPORT 
OF IMPLEMENTATION OF EU POLICIES AND PROGRAMMES: 
The ‘learning as a strategy’ guide 

Authors: 
Leticia Elias Carrillo 
Lene Topp 
Paul Hearn 
Eleonora Ganescu 

EU Academy 

The  EU  Academy  is  an  EU-owned  online  hub  containing  first-hand  knowledge,  high  quality 
educational  resources  and  valuable  insights,  directly  produced  by  the  EU  institutions,  for 
individuals whose work is related to its sphere of action. The aim is to facilitate their easy and 
smooth understanding and successful implementation of EU policies in a wide array of fields. 
The mission of the EU Academy is to provide a modern and engaging learning environment 
that can foster and improve the quality of the application of knowledge on EU-matters in a 
simple, smart and inspirational way. 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Contents 

Abstract ...........................................................................................................................................................................................3 

Acknowledgements ....................................................................................................................................................................4 

Executive summary....................................................................................................................................................................5 

Policy context..........................................................................................................................................................................5 

Key conclusions .....................................................................................................................................................................5 

Main findings ..........................................................................................................................................................................5 

Related and future Joint Research Centre work..................................................................................................... 7 

Quick guide..............................................................................................................................................................................7 

1.  Introduction .............................................................................................................................................................................8 

1.1.  About this document.................................................................................................................................................8 

1.2.  Creating a learning strategy to support EU implementation: an overview of the guide............ 8 

1.3.  Who is the guide for? ................................................................................................................................................9 

1.4.  How to use the guide? ........................................................................................................................................... 10 

1.5.  Why is it relevant to think strategically about learning? ....................................................................... 11 

2.  Principles ............................................................................................................................................................................... 14 

3.  Phase 1. Identify ................................................................................................................................................................ 16 

3.1.  Activity 1.1. Creating a vision statement for the learning initiative ................................................. 18 

3.2.  Activity 1.2. Mapping the broader context and considering policy diplomacy ............................. 20 

3.3.  Activity 1.3. Identifying the competences..................................................................................................... 23 

3.4.  Activity 1.4. Completing the stakeholder and competence canvas................................................... 27 

3.5.  Activity 1.5. Compiling a competence framework .................................................................................... 30 

4.  Phase 2: Analyse................................................................................................................................................................ 34 

4.1.  Activity 2.1. Mapping implementing authorities ........................................................................................ 36 

4.2.  Activity 2.2. Mapping impacted stakeholders ............................................................................................. 37 

4.3.  Activity 2.3. Identifying potential multipliers .............................................................................................. 42 

4.4.  Activity 2.4. Analysing training needs............................................................................................................. 44 

5.  Phase 3: Resource............................................................................................................................................................. 49 

5.1.  Activity 3.1. Identifying the resources to build a learning initiative ................................................. 51 

5.2.  Activity 3.2. Establishing strategic and operational partnerships...................................................... 54 

6.  Phase 4: Design.................................................................................................................................................................. 57 

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6.1.  Activity 4.1. Defining the learning outcomes and learners................................................................... 59 

6.2.  Activity 4.2. Preparing for and running a pilot............................................................................................ 63 

7.  Phase 5: Deliver.................................................................................................................................................................. 68 

7.1.  Activity 5.1. Conducting a final review before delivery .......................................................................... 70 

7.2.  Activity 5.2. Monitoring the delivery................................................................................................................ 75 

8.  Phase 6: Evaluate.............................................................................................................................................................. 78 

8.1.  Activity 6.1. Reviewing learning inputs .......................................................................................................... 80 

8.2.  Activity 6.2. Reviewing outputs and outcomes........................................................................................... 82 

8.3.  Activity 6.3. Conducting an overall evaluation of the learning initiative ........................................ 86 

9.  Conclusions........................................................................................................................................................................... 93 

References................................................................................................................................................................................... 94 

List of abbreviations and definitions............................................................................................................................... 95 

List of boxes ............................................................................................................................................................................... 97 

List of figures............................................................................................................................................................................. 98 

List of tables ............................................................................................................................................................................100 

Annexes ......................................................................................................................................................................................101 

2 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Abstract 

Better  implementation  of  EU  policies  and  programmes  could  save  EU  taxpayers  and  businesses 
billions  of  euros  every  year.  Insufficient  administrative  capacity  can  lead  to  problems  in 
implementation,  especially  when  necessary  competences  –  knowledge,  skills  and  attitudes  –  are 
inadequate or insufficient among implementation authorities in EU Member States. Strategic learning 
initiatives targeted at implementing authorities that consider their local contexts and learning needs 
can be an effective way of addressing the persisting implementation challenges, contribute to positive 
outcomes and desirable social change. The learning as a strategy (LaaS) guide is developed for EU 
policy and programme officers. It provides a step-by-step guide, embedding learning at the heart of 
policy design and delivery. 

3 

 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
Acknowledgements 

We are grateful to Victoria Kovacs, Magdalena Kleim, Heike Ottorbein, Christian-Yves Krappitz, Florian 
Hauser and Wojciech Potulski, for their insights and invaluable feedback on our ideas and report. Their 
positive  and  challenging  observations  enriched  our  approach  to  strategic  learning  and  capacity 
building in the EU institutions and Member States to support implementation. We thank Anastasia 
Deligkiaouri and an anonymous referee for reviewing the report in detail and providing constructive 
comments. We are also grateful to David Mair and Georg Kotschy for their support to this work. 

We  acknowledge  the  use  of  GPT@JRC,  an  artificial  intelligence  tool  provided  by  the  European 
Commission – JRC, to assist with text editing. The image of the cover page was generated by artificial 
intelligence. 

4 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
     
 
   
 
 
 
 
  
 
 
 
 
Executive summary 

Policy context 

EU  interventions  will  deliver  its  full  benefits  only  if  the  policy  is  implemented  and  applied 
appropriately, as stated in the EU’s better regulation. Implementation is a key focus area of the 2024-
2029 political guidelines of the European Commission. To create value for citizens, businesses and 
other  stakeholders,  well-intentioned  policies  are  not  sufficient;  they  must  also  be  implemented 
successfully  by  EU  Member  State  authorities  at  the  national,  regional  or  local  level.  Better 
implementation of EU policies and programmes could save EU taxpayers and businesses billions of 
euro every year. 

The learning as a strategy (LaaS) guide, targeted at EU policy officers and programme managers, 
provides guidelines for developing learning initiatives in support of implementation of EU policies and 
programmes.  It  is  designed  to  embed  learning  at  the  heart  of  policy  design  and  delivery, thereby 
increase the value created for citizens, businesses and other stakeholders from EU interventions. 

Key conclusions 

Embedding learning in EU policy design and delivery has the potential to help Member States save 
valuable resources, by improving their administrative performance through enhanced competences 
for implementing EU  policies and programmes.  In  fact,  studies  show that  problems  with effective 
implementation  persists,  and  that  EU  Member  States  could  save  EUR  64.2  billion  annually  by 
improving their administrative performance ( 1). 

The  learning  as  a  strategy  guide  consists  of  six  phases  to  embed  learning  in  policy  design  and 
implementation,  leading  to  better  implementation  of  EU  policies  and  programmes,  which  in  turn 
creates more value of EU citizens and businesses. 

Ultimately, when citizens and stakeholders do not experience the intended benefits and outcomes of 
EU  policies  and  programmes,  this  reflects  negatively  on  the  EU,  which  is  exactly  why  a  strategic 
learning approach in support of policy implementation is even more important. 

Main findings 

The LaaS guide, with its six phases, can be deployed as a whole, in a step-by-step approach, or policy 
and  programme  officers  with  specific  needs  can  dive  into  individual  phases  or  activities  to 
complement their learning initiative. 

Table 1 below outlines the six phases and expected outputs of each phase. 

(1) 

Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and 
the Committee of the Regions – Enhancing the European administrative space (ComPAct), COM(2023) 667 final of 25 October 
2023, https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52023DC0667. 

5 

 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
Table 1. The six phases and outputs of the Learning as a strategy guide 

s
e
s
a
h
P

Vision statement 
for the learning 
initiative 

List of 
implementing 
authorities for the 
policy or 
programme 

List of resources 
needed for the 
learning initiative 

Learning initiative 
finalised 

Training delivery 
plan 

Inventory of 
learning inputs 

Policy context 
map, including the 
policy diplomacy 
dimension 

List of impacted 
stakeholders 

Set up of 
partnerships to 
support the 
learning initiative 

Pilot run of the 
learning initiative 

Learning initiative 
delivered and 
monitored 

Assessment of 
training outputs 
and learning 
outcomes 

Overall 
assessment of the 
learning initiative 

s
t
u
p
t
u
O

List of generic and 
specific 
competences 
required by 
implementing 
authorities for the 
successful 
implementation of 
the policy or 
programme 

List of potential 
multipliers 
identified 

Stakeholder and 
competence 
canvas 

Identification of 
learning gaps 
for 
implementing 
authorities 

Validated 
competence 
framework 

Source: Created by the authors. 

6 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Related and future Joint Research Centre work 

Starting out with a research project on Learning as a strategy for better EU policy understanding and 
implementation in the digital era, the backbone of this guide, the EU Academy continues to explore 
how  learning  embedded  at  the  heart  of  policy  design  and  delivery  can  support  effective 
implementation of EU policies and programmes. As an immediate next step, a condensed, interactive 
version  of  this  guide  will  be  available  on  the  EU  Academy  platform  later  in  2025.  To  access  the 
interactive guide, please follow this link (2). 

Quick guide 

Inadequate and insufficient competences among implementing authorities for implementation of EU 
policies and programmes leads to loss of billions of euros every year in the EU Member States. By 
thinking strategically about learning, the competence shortfall among implementing authorities can 
be overcome. 

The learning as a strategy guide brings together, in one place, a comprehensive step-by-step guide 
for developing learning strategies that support implementation of EU policies and programmes. The 
guide encourages EU policy and programme officers to think strategically about the capacity building 
required at the Member State level for the policy or programme to achieve its objectives. 

(2) 

The EU Academy (https://academy.europa.eu/) is an EU-owned online hub that contains first-hand knowledge and high 
quality educational resources, directly produced by the EU institutions, agencies and bodies for individuals to facilitate 
their understanding and the implementation of EU policies or programmes. 

7 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
 
 
 
  
1.  Introduction 

1.1.  About this document 

This document is  a guide  to develop  learning  initiatives to  support EU policy implementation( 3).  It 
provides guidelines for developing a learning strategy. 

A condensed, interactive version of this guide will be available on the EU Academy platform towards 
the end of 2025. To access the guide, please follow this link (4). 

The  guide  was  developed  by  the  EU  Academy  business,  strategy  and  research  team.  The  ideas 
contained in this document are the authors’ views and do not constitute official policy of the European 
Institutions. 

If you would like to provide feedback on this document, find out more, or contribute to the underlying 
work, you can send an email to: eu-academy-info@ec.europa.eu (5). 

1.2.  Creating a learning strategy to support EU implementation: an overview 

of the guide 

The ‘learning as a strategy’ (LaaS) guide includes six phases to create a learning initiative (See Table 
2). They help embed a learning strategy within an EU policy or programme design, development and 
implementation cycle. Each phase includes activities. The content is briefly outlined below and further 
described in the following sections. 

(3) 

(4) 

(5) 

Various ideas presented in this guide are based on an earlier publication. For more information, please see Hearn, P., Elias, L., and 
Ganescu, E., “’Learning as a strategy’ for better EU policy understanding and implementation in the Digital Era”, Digital Society, Vol. 
2, No. 13, 2023, https://doi.org/10.1007/s44206-023-00037-3. 
The  EU  Academy  (https://academy.europa.eu/)  is  an  EU-owned  online  hub  that  contains  first-hand  knowledge  and  high  quality 
educational resources, directly produced by the EU institutions, agencies and bodies for individuals to facilitate their understanding 
and the implementation of EU policies or programmes. 
This is an evolving document. A revised version is expected to be published in 3-5 years, considering the experiences and feedback 
of EU staff from using the LaaS guide, as well as general developments in the field of learning and development. 

8 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
Table 2. The six phases, and related activities, of the Learning as a strategy guide 

s
e
s
a
h
P

s
e
i
t
i
v
i
t
c
A

Creating a vision 
statement for the 
learning initiative 

Mapping 
implementing 
authorities 

Identifying the 
resources to build 
a learning 
initiative 

Defining the 
learning outcomes 
and learners 

Conducting a final 
review before 
delivery 

Reviewing 
learning inputs 

Mapping the 
broader context 
and considering 
policy diplomacy 

Mapping impacted 
stakeholders 

Establishing 
strategic and 
operational 
partnerships 

Preparing for and 
running a pilot 

Monitoring the 
delivery 

Reviewing outputs 
and outcomes 

Conducting an 
overall evaluation 
of the learning 
initiative 

Identifying the 
competences 

Identifying 
potential 
multipliers 

Completing the 
stakeholder and 
competence 
canvas 

2.4 Analysing 
training needs 

Compiling a 
competence 
framework 

Source: Created by the authors. 

The guide also includes a horizontal dimension: we encourage users to reflect on the experiences and 
lessons  learned  from  each  phase  and  consider  the  most  important  lessons  in  the  policy  cycle  to 
improve EU policy or programme implementation. 

Finally, in each phase, main outputs are expected, which are summarised in the Annex (see Resource 
4. Checklist of the outputs of the LaaS Guide). 

1.3.  Who is the guide for? 

The LaaS guide brings together in one place a comprehensive set of resources on how to develop 
learning strategies. It was created for policy officers and programme managers working within the 

9 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
EU institutions who are responsible for — or interested in — providing training in support of EU policy 
or programme delivery to implementing authorities and/or impacted or concerned stakeholders in the 
EU Member States (6).  It encourages EU staff to think strategically about learning. 

The guide aims to help EU staff develop a learning strategy that supports the implementation of EU 
policies and programmes. The objectives are as follows: 

—  To  support  the  EU  institutions’  efforts  to  deliver  high-quality  legislation,  in  line  with  the  EU’s 
‘better regulation’ policy. For instance, the European Commission (EC) ‘has committed to design, 
deliver and support the implementation of high-quality policies’ ( 7). 

—  To contribute  to  achieving  the  European  Commission’s 2024-2029 political  priorities,  in  which 

implementation plays a central role. 

—  To support implementing authorities, at the national, regional or local level, with the necessary 

competences for effective implementation. 

Indirectly, the LaaS guide also aims to: 

—  contribute to strengthening EU policy understanding among impacted or concerned stakeholders, 
supporting policy diplomacy efforts to show the potential impact a given policy or programme 
can have. 

—  help  Member  States  save  valuable  resources,  by  improving  their  administrative  performance 

through enhanced competences for implementing of EU policies and programmes ( 8). 

1.4.  How to use the guide? 

The LaaS guide can be deployed as a whole, in a step-by-step approach, starting with Phase 1 and 
finishing  with  Phase  6.  Often  the  output  from  each  phase  supports  the  development  of  the 
subsequent phases. 

Alternatively,  users with specific needs  can dive into  individual phases  or  activities to  supplement 
their learning initiatives. 

6  The EU institutions provide ad hoc face-to-face and online training to implementing authorities to support EU policy implementation. The 
number of trainings have increased over time. For example, see the EU Academy platform (academy.europa.eu), which contains a range of 
learning resources produced by EU staff to facilitate implementation. The platform is available to host additional learning initiatives and 
materials,  and  offers  support  services  to  EU  staff  to  develop  learning  strategies.  For  questions,  please  email  eu-academy-
info@ec.europa.eu. 
7  European Commission, ‘Better regulation toolbox’, 20 July 2023, https://commission.europa.eu/law/law-making-process/better-
regulation/better-regulation-guidelines-and-toolbox_en, p. 8. 
8  See, for instance, the communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions – Enhancing the European Administrative Space (ComPAct), COM(2023) 667 final of 
25 October 2023, https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52023DC0667. 

10 

 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
We suggest identifying which phases or tasks can be completed internally and which may require 
outsourcing  to  external  contractors.  Generally,  it  is  most  relevant  to  involve  policy  officers  or 
programme managers in those phases and tasks that are more strategic in nature, such as: 

—  Creating a vision statement for the learning initiative (Phase 1 – Identify); 

—  Listing the competences for successful implementation (Phase 1 – Identify); 

—  Setting up of strategic partnerships (Phase 3 – Resource); 

—  Finalising the learning initiative (Phase 4 – Design); 

—  Assessing the training impact on implementation and lessons learned (Phase 6 – Evaluate). 

Consider  outsourcing  tasks  that  require  more  resources  to  external  contractors.  This  is  especially 
recommended if developing a learning initiative is a one-off activity for your unit/directorate. If you 
plan to use a contractor, it is recommended to get in touch with the Learning & Development Unit of 
the Directorate-General for Human Resources and Security, to verify if you can use any of the current 
framework contracts for learning and development activities. 

1.5.  Why is it relevant to think strategically about learning? 

According to the EU’s better regulation guidelines, ‘EU intervention will deliver its full benefits only if 
the  policy  is  implemented  and  applied  appropriately’  (9).  Implementation  is  a  central  stage  in  the 
policy  cycle.  To  create  value  for  citizens  and  stakeholders,  it  is  not  enough  that  policies  are  well 
intentioned,  they  must  also  be  well  implemented.  Inadequate  implementation  and  understanding 
often results in  policy goals not  being achieved  and  valuable resources  being wasted. Ultimately, 
when citizens and stakeholders do not experience the intended benefits and outcomes, this reflects 
negatively  on  the  EU,  which  is  exactly  why  a  strategic  learning  approach  in  support  of  policy 
implementation is even more important. 

Implementation is a key topic in the 2024-2029 political priorities of the European Commission. For 
instance,  the  new  plan  for  Europe’s  sustainable  prosperity  and  competitiveness  involves  holding 
discussions with stakeholders on ‘how best to align implementation with realities on the ground’ (10). 
To  support  implementing  authorities  in  Member  States,  learning  initiatives  that  understand  the 
existing  learning  context  and  gaps  on  the  ground  can  be  an  effective  way  to  ensure  successful 
implementation of EU policies or programmes. 

Studies show that problems in effective implementation persist. The lack of adequate competences 
for implementation is part of the problem. By providing training to implementing authorities, we can 
build capacity and overcome competence shortfalls. In fact, the Member States could save EUR 64.2 

(9) 
(10) 

Commission staff working document – Better regulation guidelines, SWD(2021) 305 final of 3 November 2021, Brussels, p. 11. 
von der Leyen, U., ‘Europe’s choice – Political guidelines for the next European Commission 2024–2029’, 18 July 2024, 
https://commission.europa.eu/document/download/e6cd4328-673c-4e7a-8683-
f63ffb2cf648_en?filename=Political%20Guidelines%202024-2029_EN.pdf, p. 7. 

11 

 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
   
 
 
 
   
 
 
 
 
 
 
   
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
   
 
 
 
 
 
billion annually by improving their administrative performance (11). Education is a valuable investment 
that can lead to better implementation and have long-term benefits. 

The LaaS guide, designed to support policy officers and programme managers in the EU institutions, 
invites them to take a more holistic view of learning. This approach considers diverse aspects. 

—  The LaaS guide recommends how to address the different learning needs of implementing 
authorities. For instance, Member States’ policy officials may need to develop particular skills to 
incorporate  EU  legislation  into  national  law,  and  stakeholders  affected  by  the  policy  or 
programme implementation, such as business owners, may need to acquire certain knowledge to 
make sense of these laws in the context of their work. 

—  The guide offers a proactive rather than reactive approach to thinking about learning, embedding 
learning strategies as an integral part of policy or programme preparation, not as an 
afterthought. 

—  This  calls  for  being  visionary  and  considering  learning  an  investment  to  support 

implementation in the long run, rather than a one-time injection of resources. 

—  The LaaS guide argues that EU actors can use learning for better implementation as a soft 
tool to promote better understanding, making EU policies/programmes easier to grasp, more 
transparent and more accessible to the world, and thereby promoting in the best possible way 
what we do in the EU and why it is important. 

In a world 
increasingly 
dominated by 
digitalisation, 
learning can be 
especially 
relevant 
because: 

By mixing different environments – in person, online or hybrid – learning 
activities can be delivered in a cost-effective and environmentally 
friendly way. 

Digital technologies facilitate skills acquisition, information flow, 
collaboration and exchange of knowledge, providing new opportunities 
for interconnection and the sharing of values globally. 

Learning platforms enable learners to develop new competences at any 
time and from any location. 

(11) 

Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and 
the Committee of the Regions – Enhancing the European administrative space (ComPAct), COM(2023) 667 final of 25 October 
2023, https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52023DC0667. 

12 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
  
 
  
By not thinking and investing strategically in building capacity for better implementation, we miss the 
opportunity to achieve the full impact of the policy or programme. This has tangible costs, but also 
intangible consequences, such as missing out on benefits like improved policy design and enhanced 
recognition for the work the EU does. Educational activities that focus on improving understanding of 
the rationale for  a policy or  programme  intervention  can  also  serve  to  combat  misinformation  or 
disinformation and to promote EU policies and values. 

Providing learning interventions at the point of implementation for policies or programmes is crucial, 
as it allows for strategic knowledge exchange between the EU institutions, Member States, regions, 
and other stakeholders. Thinking strategically about learning increases the likelihood of EU policies or 
programmes being well known, well understood, and well implemented. It is a strategically valuable 
complement  to  the  better  regulation  approach  and  can  be  seen  as  a  constructive  response  to 
insufficient administrative capacity, legal complexity and disinformation, as well as a lever to promote 
EU policies or programmes and the image of the EU in the world. 

Box 1. Learning as a soft instrument 

Learning is a soft instrument to empower and encourage stakeholders to think and act. 

13 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
2.  Principles 

The LaaS guide is based on four principles: open by default, community-driven, designed for reuse 
and learner-focused (12). They are described in Figure 1. 

Figure 1. The four principles LaaS is based upon 

Open by default 

Community-driven 

Learning initiatives to improve or facilitate 
policy or programme implementation are often 
designed for a narrow audience, for example, 
public administrators. Facilitated by digital 
platforms, this option should be opened where 
possible to all stakeholders involved in 
implementation – legal or practical – and to 
other interested actors. 

A learning environment with an ingrained 
sense of community should be promoted. The 
community should encourage collaboration 
and sharing of resources, experience, 
successes and challenges. Engagement and 
networking can be facilitated by digital 
channels. 

Why is this important? 






Effective policy or programme implementation 
requires many actors, such as Member States, 
NGOs, businesses and the public, to play their 
part (13). 
The public should be included as recipients as 
policy outcomes, rights and obligations gener-
ally affect them. They can also be a source for 
the European Commission (EC) to identify po-
tential legal infringements. 
By working in an open way, it is easier to 
‘spread the word’ globally on what the EU is 
implementing, enabling society to become 
more aware of and better educated about EU 
laws. 

Why is this important? 


A community-driven approach can help in 
developing a level playing field of knowledge 
and skills; and cultivating a positive attitude 
of trust and cooperation towards high-qual-
ity implementation. 
Communities allow stakeholders to work to-
gether to build capacities and bridges, while 
giving and receiving feedback. 
Communities allow their members to work 
together to identify problems in implementa-
tion and to try to find ways to address them 
jointly. 





 Working openly brings more transparency to 

the EU Institutions’ work and helps to increase 
public trust. 

(12) 

(13) 

The principles are based on Hearn, P., Elias, L. and Ganescu, E., ‘“Learning as a strategy” for better EU policy understanding and 
implementation in the digital era’, Digital Society, Vol. 2, No 13, 2023, https://doi.org/10.1007/s44206-023-00037-3. 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and 
the Committee of the Regions – Enforcing EU law for a Europe that delivers, COM(2022) 518 final of 13 October 2022, https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=celex:52022DC0518. 

14 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
   
 
 
  
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
Designed for reuse 

Learner-focused 

learning 

in  support  of 

Existing  learning  assets  should  be  repurposed 
and  new  materials  designed  in  a  way  that 
facilitates reuse.  EU  institutions’  assets should 
be  accessible  internally  and  externally  and 
ideally  organised  for  easy  consultation  and 
potential reuse. 
The  EU  institutions,  Member  States  and  other 
actors already have diverse learning assets and 
tools 
for  policy 
implementation. Therefore, one should seek first 
what already exists. 
Reuse is facilitated by existing practices, such as 
‘better  regulation’  toolbox.  For 
in  the  EU 
instance, 
the  context  of  digital-ready 
policymaking, the reuse of data and the sourcing 
of reusable data are encouraged before starting 
data collection (14). 
Why is this important? 


Learning investment costs can be reduced in 
the long run. 
Reuse can free up capacity and space for 
stakeholders to attend to other issues. 

in 



 Designing for reuse helps with budgetary plan-



ning. 
A focus on reuse invites actors to reflect first, 
before wasting precious resources. 

The value of any learning initiative resides in 
its  uptake  by  its  learners  and  relevance  to 
them.  It  is  therefore  imperative  to  design  a 
learning intervention with the learner’s needs 
in mind. 
Learners have different needs. Some may be 
more advanced than others, and their interests 
and ways of learning may differ. 
Learners’  needs  may  differ  also  due  to 
external  factors.  Expertise  and  resources 
needed  to  deliver  learning  initiatives  may  be 
available  in  some  parts  of  the  system  – 
whether in EU institutions or Member States – 
but scarce in others, and some implementation 
contexts may be less mature than others. 

Why is this important? 


For learning initiatives to be effective, it is 
important for the implementing body to con-
sider that not all learners are the same and 
that learning gaps may exist between them. 
 Differences in learner needs may necessitate 
different designs and delivery methods of 
training. 
Learners may already possess certain com-
petences in given areas, and good learning 
interventions build on these. 



 Well-focused training will be more success-

ful. 

Source: Created by the authors. 

(14) 

See  ‘Tool 28’  in:  European  Commission,  ‘Better  regulation  toolbox’,  20 July  2023,  https://commission.europa.eu/law/law-making-
process/better-regulation/better-regulation-guidelines-and-toolbox_en, p. 230. 

15 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
3.  Phase 1. Identify 

What is this phase about? 

In this phase, you will identify the competences required for the successful implementation of EU 
policies or programmes at the national, regional and local levels. 

You need to think about learning for implementation as early as the planning stage (15). It is equally 
important to think about the broader context where policies or programmes will land and to show 
their  potential  and  underlying  principles  –  also  known  as  policy  diplomacy.  This  phase  also  helps 
reflect on and embed this thinking. 

Box 2. Bear in mind: competences are a combination of knowledge, skills and attitudes 

Bear in mind: 

Competences are a combination of knowledge, skills and attitudes (KSAs). 

All three elements are important. 

Why is this relevant? 

—  When designing a policy or programme, thinking about the KSAs that professionals will need for 
policy  or  programme  implementation  can  strengthen  the  European  Commission’s  ‘smart 
enforcement’ approach, whereby implementation issues are considered during the policy design 
phase to prevent ‘breaches of EU law from the outset’ ( 16). 

—  Thinking about competences for implementation during policy or programme development can 
help to reflect upon and anticipate potential Member State capacity problems, and in turn, define 
a tailor-made learning strategy to support capacity building for implementation (17). 

(15) 

(16) 

(17) 

Currently, the Commission organises educational activities, such as workshops, for implementing authorities to facilitate and 
promote implementation ‘on an ad hoc basis’ (see the ‘Better regulation toolbox’, Tool 38 ‘Compliance promotion and verification 
tools’). But this practice is predominantly used for selected legislation or programmes, and once they are in place. 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and 
the Committee of the Regions – Enforcing EU law for a Europe that delivers, COM(2022) 518 final of 13 October 2022, https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=celex:52022DC0518, p. 10. 
This approach is similar to that of the better regulation guide, where one must start with good planning to have sound 
policymaking and to allow time for reflecting on a given initiative. See Commission staff working document – Better regulation 
guidelines, SWD(2021) 305 final of 3 November 2021, Brussels, p. 8. 

16 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
—  Incorporating a policy diplomacy dimension into training from the outset helps demonstrate the 
potential of an EU policy or programme, and enhances the buy-in by a wide number of impacted 
stakeholders in the EU and globally. 

—  Identifying  competences  for  implementation  enables  you to  reflect  upon how  to best support 
implementing  authorities  with  a  learning  initiative  to  develop  such  competences,  ultimately 
facilitating reaching the policy or programme goal(s). 

What are the activities? 

1.1 Creating a vision statement for the learning initiative 

1.2 Mapping the broader context and considering policy diplomacy 

1.3 Identifying the competences 

1.4 Completing the stakeholder and competence canvas 

1.5 Compiling a competence framework 

What are the objectives? 

—  To embed thinking about learning for implementation early in the policy or programme design 

process (supported by Activities 1.1 and 1.2). 

—  To  identify  the  competences  required  for  successful  policy  or  programme  implementation 

(supported by Activities 1.3 and 1.4). 

—  To compile a competence framework based on the identified competences (supported by Activity 

1.5). 

17 

 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
3.1.  Activity 1.1. Creating a vision statement for the learning initiative 

This vision statement will help you identify where you want to go with your learning initiative and 
maintain focus on the end goal, as outlined in the policy or programme your training is supporting. 

It also encourages you to embed learning for successful implementation of your policy/programme 
early on, one of the objectives of this phase. 

It is helpful to imagine what the future will look like when: 

—  the policy or programme has been successfully implemented on the ground; 

—  it has been well accepted by stakeholders; and 

—  the learning initiative has made a significant contribution to successful implementation of the 

policy or programme. 

To proceed, follow the indications below (Figure 2 and Figure 3). 

Figure 2. Considerations for creating a vision statement for your learning initiative 

A.  Consider the ideal future with successful implementation 

First, think about these questions: 
- What is the challenge you are trying to solve? 
- What would successful implementation look like? 
-
-

How have all implementing authorities and concerned stakeholders been onboarded? 

Have the diverse policy or programme maturity levels and implementation contexts in the dif-
ferent Member States been considered? 

B.  Consider the role of learning in successful implementation 

Then, think about the following: 
- What is the role of learning in achieving this success? 
- What competences may be required for successful implementation by Member State authori-

ties? 
C.  Write the vision statement for your learning initiative 
Based on your reflections in (A) and (B) above, write your vision statement. 
-
-
-

Keep the statement clear, simple and short – one paragraph is enough. 

‘Imagine when we achieve (A) with the support of (B).’ 

You can use this template: 

Source: Created by the authors. 

It is important to involve your manager or administrative hierarchy in the development of the vision 
statement for the learning initiative. Ideally, you may want to organise a dedicated working session 
for this, involving key staff (management included). 

18 

 
 
 
 
 
 
 
 
 
 
  
 
  
 
 
   
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
  
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
  
Box 3. The vision statement is a guiding star for your learning initiative. 

The vision statement is the guiding star for your learning initiative. 

Therefore, make sure it gets the visibility it deserves. For instance, you can put it up on your wall, refer to it 
in key documents, and inform and remind colleagues, implementing authorities, impacted stakeholders, 
external contractors, learners and others about it. 

Figure 3. Creating a vision statement for your learning initiative 

A. 
Ideal future with 
successful 
implementation 

B. 
Role of learning in 
successful 
implementation 

C. 
Vision statement for 
your learning 
initiative 

Source: Created by the authors. 

19 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
3.2.  Activity 1.2. Mapping the broader context and considering policy 

diplomacy 

EU  policies  and  programmes  need  to  be  adapted  to  the  specific  socio-political,  economic  and 
cultural contexts where they will be implemented. 

Successful implementation requires a broad perspective. There may be more actors with a stake in 
your project than you first thought there were, as well as with different attitudes towards your policy 
or programme. 

Reflecting on the policy diplomacy dimension can help you recognise the broader picture. You can use 
the PRUV model outlined below in Figure 4. 

Box 4. Bear in mind: policy diplomacy 

Bear in mind: 

Policy diplomacy is the process of showing the potential of a given policy or programme and its 
underlying principles 

Think about: 

—  How easily or with what difficulty will the policy or programme be accepted at the local or national 
level? There may already be various types of resistance that differ from one Member State to 
another. 

—  Is this a priority in all regions or countries? 

—  Is the EU approach different from that at the national level? 

—  Would  a  focus  on  building  broader  understanding  in,  for  example,  candidate  countries, 

neighbourhood countries or other countries be helpful? 

—  Who are the diverse range of stakeholders affected by or needing to work with a new policy or 

programme, or needing to change to an existing one? 

—  What competences do they need to work with the policy or programme? 

20 

 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
  
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
Figure 4. PRUV Model (Perception, Rationale, Understanding, Values) 

How can a perception of the 
policy or programme be built 
to combat disinformation and 
build momentum for 

Why is this policy or programme 
necessary, why now, and why 
should an implementing authority 
care about it and comply with it? 

What principles and EU values 
embedded in the policy or 
programme can be highlighted? 

How can an adequate 
understanding of the 
policy or programme be 
achieved by all concerned? 

Source: Created by the authors. 

Visualise a policy diplomacy dimension, reflecting on the four aspects of the perception, rationale, 
understanding and values (PRUV) model, as seen in Figure 4. 

The overall goal is to facilitate a smooth landing for the policy or programme. This can be achieved 
by thinking well in advance – at the design stage — about the need to tackle any resistance that the 
policy or programme may encounter on the ground. 

With the challenge of disinformation growing globally, it may not be sufficient to think only about 
what competences are required to achieve a successful implementation. It may be helpful to create 
a broader understanding of the policy or programme, including outside the EU. 

In  an educational context,  relying  on  argumentation derived  from  scientific  evidence and  the  best 
available data can help to get buy-in from implementing authorities and concerned stakeholders for 
the policy or programme. 

Box 5. Revisit your vision statement 

After finishing this activity, go back to the vision statement you created for your learning initiative and 
review it, so you can make it even more strategic if necessary. 

21 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
3.2.1.  Your notes (Activities 1.1 and 1.2) 

As mentioned in the beginning of Section 3, Activities 1.1 and 1.2 support the following objective: to 
embed thinking about learning for implementation early in the policy of programme design process. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

The information may be useful in LaaS Phase 6 (Evaluation), when, as part of the final activity of the 
guide, you will reflect on the experiences gained and lessons learned from developing each phase in 
your learning strategy. 

22 

 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
3.3.  Activity 1.3. Identifying the competences 

It is essential to keep in mind that competences are a combination of knowledge, skills and 
attitudes (KSAs), as illustrated in Figure 5. 

Figure 5. Competences: knowledge, skills and attitudes 

Knowledge: Facts and figures, concepts, ideas and theories already 
established that support the understanding of an area or subject. 

Competences 

Skills: Ability and capacity to carry out the processes and use the 
existing knowledge to achieve results. 

Attitudes: Disposition and mindsets to act or react to ideas, persons 
or situations. 

Source: Created by the authors. 

Generally,  there  are  two  types  of  competences:  generic  and  specific,  as  seen  in  Figure  6.  An 
appropriate  combination  and  application  of  these  can  increase  the  likelihood  of  adequate 
implementation. 

23 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Figure 6. Generic and specific competences 

Generic competences 
refer to KSAs that cut 
across different policy or 
programme areas. 

Generic 
competences 

Policy or 
programme-
specific 
competences 

Policy or programme-
specific competences 
refer to knowledge, 
skills and attitudes 
within a specific policy 
or programme area. 

Examples of generic competences: 

Examples of specific competences: 

‘clear writing’ 
‘identifying and framing problems’ 

‘taxpayer compliance’ 
‘international tax affairs’ 

For further examples, see the Innovative Policymaking 
Competence Framework  JRC Publications Repository -
Competences for Policymaking (europa.eu) 

For further examples, see the EU taxation 
competency framework, TaxCompEU 
(europa.eu) 

Source: Created by the authors. 

First, think about the generic competences necessary for a successful implementation of your policy 
or programme. These competences will largely be common across the Member States, and due to 
their often cross-cutting nature, they will have been developed and deployed by directorate-generals 
and services of the EU institutions and other international organisations, such as the Organisation for 
Economic  Co-operation  and  Development  (OECD)  and  United  Nations  Educational,  Scientific  and 
Cultural Organization (UNESCO). Therefore, it is unlikely that you will need to start from scratch. Since 
the Commission encourages colleagues to streamline and align competence frameworks, do make 
sure to reuse existing ones as much as possible. To proceed, see Figure 7: 

Figure 7. Identifying generic competences 

Review the pool of generic competences listed in Resource 1 
(in the Annex). These competences stem from existing 
competence frameworks developed by the European Commission. 

Identifying generic 
competences 

For further references and sources on generic competences, 
see Resource 2 (in the Annex) where necessary. 

Select the generic competences most relevant for the 
implementation of your policy or programme, considering 
national differences. 

Input your answers in the canvas in Activity 1.4 
(in box “C”). 

Source: Created by the authors. 

24 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
All competences that make it to the final list should be monitored during implementation and included 
in the learning initiative. Therefore, only keep the essential ones, the ‘must have’ competences for 
implementing authorities. Aiming for simplicity will make it easier to track the process: the fewer the 
competences, the easier they will be to manage. 

Box 6. Bear in mind: generic competences 

Remember to adopt a broad perspective (see Activity 1.2). 

Moreover, it may be easier to identify the generic competences in a collective brainstorm with colleagues. 

In addition, determine the specific competences required to implement the programme or policy. 

To proceed, see Figure 8: 

Figure 

8. 

Identifying specific competences 

Reflect on the required competences for implementing authorities 
and concerned stakeholders (for example, legal, economic, 
technological and/or any other specific area of competence needed). 

To get you started, reflect upon the guiding questions in Figure 
9. 

Where necessary, do some further research to inform and 
shape your reflection. 

Input your answers in the canvas in Activity 1.4 
(in boxes “B” and “D”). 

Source: Created by the authors. 

Box 7. Bear in mind: specific competences 

As you did for the generic competences, it may be easier to identify specific competences in a collective 
brainstorm with colleagues. 

25 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Figure 9. Guiding questions for identifying specific competences 

Is there a legal framework the implementing 
authorities should know or be aware of? 
Is there an economic model the implementing 
authorities should know or be aware of? 
Is there any technological 
innovation/system/software the implementing 
authorities should manage? 

Is knowledge on any specific legislation required? 
Is knowledge and/or experience of any legal, 
economic or social instruments required? 

Is any prior experience in any specific area required? 

What other specific knowledge do the implementing 
authorities require? 
What other specific skills do the implementing 
authorities require? 
What other specific attitudes do the implementing 
authorities require? 

Legal 

Economic 

Technological 

Specific competences 

Source: Created by the authors. 

Bear  in  mind  that  all  competences  that  make  it  to  the  final  list  should  be  monitored  during 
implementation and included in the learning initiative. Therefore, only keep the essential ones, the 
‘must have’ competences for implementing authorities. Aiming for simplicity will make it easier to 
track the process: the fewer the competences, the easier they will be to manage. 

26 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
3.4.  Activity 1.4. Completing the stakeholder and competence canvas 

Fill in the canvas (see Figure 10) using information gathered in the previous activities. The indexes 
in boxes A and B are explained at the end of this activity. 

Figure 10. Stakeholder and competence canvas 

A - POLICY OR PROGRAMME GOALS 

Which goals does the policy or programme pur-
sue? 

B - IMPLEMENTING AUTHORITIES AND 
CONCERNED STAKEHOLDERS 

Who are the actors directly or indirectly in-
volved in implementing the policy or pro-
gramme? 

Maturity of the policy or 
programme 

Preparedness index 

Mis/disinformation 

Disparity index 

‘Receptivity of policy or 
programme’ 

D - IMPLEMENTING AUTHORITIES AND 
CONCERNED STAKEHOLDERS 

Which specific KSAs should implementing au-
thorities possess to successfully implement the 
policy or programme? 
1. 
2. 
3. 
4. 
5. 
6. 
7. 

C - GENERIC COMPETENCES REQUIRED 

Which generic KSAs should implementing 
authorities possess to successfully imple-
ment the policy or programme? 
1. 
2. 
3. 
4. 
5. 
6. 
7. 

Source: Created by the authors. 

27 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Maturity of policy or programme 
index 

Is  the  policy  or  programme  brand  new,  or  is it a 
small adjustment to a policy or programme imple-
mented some time ago? Is it new to some Member 
States? If so, indicate which. 

Mis/disinformation index 

Has  the  area  that  the  policy  or  programme  im-
pacts  been  the  subject  of  a  mis-/disinformation 
campaign? 

‘Receptivity to policy or 
programme’ index 

What would you consider to be the overall recep-
tivity  or  positivity  with  which  the  policy  or  pro-
gramme will be received? 

Preparedness index 

How prepared are implementing authorities from 
a KSAs perspective, for receiving and implement-
ing the policy or programme? 

Disparity index 

Are  there  differences  or  disparities  in  prepared-
ness across Member States and regions? If so, in-
dicate which Member States and regions are best 
and least prepared. 

This  is  a  non-exhaustive  canvas.  Are  there  any  other  specific  parameters  or  aspects  relevant  to 
consider  for  your  policy  or  programme?  If  the  answer  is  yes,  extend  the  canvas  to  include  more 
aspects. 

28 

 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
3.4.1.  Your Notes (Activities 1.3 and 1.4) 

As mentioned in the beginning of Section 3, Activities 1.3 and 1.4 support the following objective: to 
identify competences required for successful implementation. 

Write  down  any  relevant  aspects  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

The information may be useful in LaaS Phase 6 (Evaluation), when as part of the final activity of the 
guide, you will relet on the experiences gained and lessons learned from developing each phase in 
your learning strategy. 

29 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
3.5.  Activity 1.5. Compiling a competence framework 

Competences  are  defined  and  structured  in  a  so-called  competence  framework  that  includes 
proficiency levels. 

To ensure the long-term sustainability of competence development, it is essential to embed it within 
the organisation, rather than relying solely on individual efforts. Therefore, it is important to look at 
competence development as a collective effort for the institution rather than an individual effort. 

The Annex provides examples of competence frameworks developed by the European Commission, 
which can be accessed via links in Resource 3. 

Compiling a competence framework: 

 provides a complete picture of the collective set of competences that implementing authorities 
are required to have for successful implementation, including variations  between the  Member 
States; 

 assesses implementing stakeholders – or learners – against established standards, and identifies 

related competence gaps and learning needs; 

 informs curriculum development to better prepare implementing stakeholders to tackle capacity-

building obstacles or uncertainties through a learning initiative. 

To proceed, refer to the list of generic and specific competencies required to implement the policy or 
programme (see Activities 1.3 and 1.4) and start a group reflection with one or more colleagues on 
which level of proficiency is required for each one of them for a successful implementation. 

The number of  proficiency  levels in competence frameworks  varies.  In  this  guide we present four 
levels, ranging from foundational (level 1) to expert (level 4), as you can see in Figure 11 ( 18) 
Each level indicates a required level of proficiency for successful implementation: 

18 For simplicity or other reasons, you can consider fewer proficiency levels where this may be more appropriate for the 
implementation of your policy or programme. 

30 

 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 At the foundational level, the contribution to implement the policy or programme is created with 

external support or guidance. 

 At the intermediate level, the contribution is provided with increasing autonomy. 

 At the advance level, responsibility to transform ideas into action has been developed. 

 At  the  expert  level,  the  learners  master  the  competence  and  their  contribution  to  the 

implementation of the policy or programme has a considerable impact. 

For example, you may require an advanced level of competence in clear writing for implementing 
authorities  and  general  awareness  (or  foundational  level)  about  the  EU  water  framework 
directive. 

Figure 11. Competence proficiency levels 

Expert (Masters a competence and is able to 
mentor or teach it to others) 

Advanced (Is experienced and is able to apply a 
competence on a daily basis) 

Intermediate (Is trained and able to apply a 
competence in certain cases) 

Foundational (Has general awareness of a 
competence) 

Source: Created by the authors. 

All  generic  and  specific  competences are  consolidated  into  your  framework  with  the  name  and 
definition of  each  competence,  as  well  as  an  operationalisation  of  the  proficiency  levels in  a 
matrix. 

Competence 

Definition 
(of the competence) 

Proficiency 
(levels & definition) 

The example in Table 3 shows a filled-in competence in a matrix (19). 

(19)  For an example of a whole matrix of actual competence frameworks created by the Commission and links to access 

them, see Resource 3 in the Annex 

31 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
  
 
  
 
 
Table 3. Example of competence matrix 

Competence 

Definition 

Proficiency level 

Taxpayer 
compliance 

Ensuring taxpayer 
(both physical and 
legal persons) 
compliance with the 
legal requirements 
of the tax 
regulations. 
Encouraging 
maximum 
compliance with 
fiscal obligations, 
with a focus on 
voluntary 
compliance. 

Expert 

Advanced 

Intermediate 

Understanding of how a competence 
task interlinks with domain 
responsibilities and administrational 
processes 
Experienced in both domain tasks (what 
needs to be done) and 
responsibilities/processes (how things 
work). 
Adequate understanding of competence 
tasks and domain responsibilities. 

Foundational 

Awareness of basic domain 
responsibilities and processes. 

Source: EU Tax Competency Framework 

Getting validation of your complete matrix or draft competence framework will help you to: 

 ensure that competences are covered appropriately; 

 promote buy-in to both the learning initiative and the policy or programme itself; 

 address,  early  on,  resistance  to  change  or  organisational  obstacles  that  may  hinder 

implementation; 

 make  the  implementation  process  easier  to  understand  and  comply  with,  particularly 
regarding knowing the required generic and specific KSAs for implementing authorities. 

To validate your matrix, it’s essential to gather feedback from, for example, implementing authorities, 
subject matter experts, and learning & development experts. 

You can do this through questionnaires, (interactive) discussions online, workshop and other avenues. 

Once  you  have  revised  your  complete  matrix  based  on  the  feedback,  you  will  have  a  validated 
competence framework as your final product! 

3.5.1.  Your Notes (Activity 1.5) 

As mentioned in the beginning of Section 3, Activity 1.5 supports the following objective: to compile 
a competence framework. 

Write  down  any  relevant  aspects  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

32 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The information may be useful in LaaS Phase 6 (Evaluation), when as part of the final activity of the 
guide, you will relet on the experiences gained and lessons learned from developing each phase in 
your learning initiative. 

33 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
4.  Phase 2: Analyse 

What is this phase about? 

In this phase, you will analyse and understand the existing learning landscape. 

You  will  recognise  the  different  stakeholders  around  your  policy  or  programme,  and  their  current 
competence level, as well as their learning gaps and contexts. 

Box 8. Bear in mind: implementing authority, concerned stakeholders, and multipliers 

Bear in mind: 

An Implementing authority is any Member State authority, at the national, regional or local level, directly 
involved in the implementation of a policy or programme. In rare cases, the implementation authority may 
be a third sector organisation or a private company 

Impacted or concerned stakeholders are the broad range of actors concerned or impacted by the EU 
policy or programme, such as businesses, citizens and stakeholders. 

Multipliers are people or organisations that will help spread the word about what you do. 

You can build on the knowledge gathered on implementing authorities and impacted stakeholders in 
Phase 1. This can facilitate, for instance, going deeper into who they are and what their competence 
levels are. 

Why is this relevant? 

—  Implementing a policy or programme requires the involvement of diverse actors at different 
levels – from the EU and national levels to local and global levels – and thus it is important 
to be aware of the complete picture of who should be considered and targeted in the learning 
strategy. 

—  From a policy diplomacy view, this analysis provides insights into impacted stakeholders who 
may be in favour of or against the implementation of the policy, and their potential influence 
on hindering or supporting the implementation process. 

—  By  analysing  the  local  context  and  learning  gaps  of  implementing  authorities  in  Member 
States,  you  gain  a  deeper  understanding  of  their  reality,  enabling  you  to  design  a  better 
aligned and learner-centred training initiative. 

 This analysis can be helpful for getting buy-in from the implementing authorities and con-
cerned stakeholders on the ground, particularly if they feel they have been considered and 
included. At the same time, this can minimise potential resistance to change and facilitate 

34 

 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
policy implementation. It is important to bear in mind that involving stakeholders ‘ensures 
transparency and legitimacy of the policy development process and contributes to a more 
successful policy implementation’ (20). 

 Recognizing multipliers can facilitate the dissemination of your learning initiative and/or its 

key messages. 

What are the activities? 

2.1 Mapping implementing authorities 

2.2 Mapping impacted stakeholders 

2.3 Identifying potential multipliers 

2.4 Analysing training needs 

What are the objectives? 

—  To  identify  implementing authorities,  impacted  stakeholders  and multipliers  (supported by 

Activities 2.1 – 2.3). 

—  To  understand  the  learning  context  and  gaps  for  implementing  authorities  on  the  ground 

(supported by Activity 2.4). 

(20) 

See ‘Tool 52 – Consultation strategy’ in: European Commission, ‘Better regulation toolbox’, 20 July 2023, 
https://commission.europa.eu/law/law-making-process/better-regulation/better-regulation-guidelines-and-toolbox_en, p. 460. 

35 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
4.1.  Activity 2.1. Mapping implementing authorities 

Map the designated authorities responsible for the implementation of your policy or programme for 
each Member State. Complete the following points described in Figure 12: 

Figure 12. Mapping implementing authorities 

Gather your team or a group of sparring partners. 

Define what is meant by 'implementing authority' in the 
context of learning for the implementation of your policy or 
programme. 

Identify the designated implementing authorities at national, 
regional or local level in each Member State. 

Finally, make a list of all Member States. 

Source: Created by the authors. 

List of 
implementing 
authorities 

You will end up with a complete list of the main targeted learners who will benefit from your learning 
initiative. 

36 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
4.2.  Activity 2.2. Mapping impacted stakeholders 

You may already have interacted with or reflected on concerned stakeholders through various better 
regulation principles and tools that require the inclusion of stakeholders’ input beginning from policy 
initiation  ( 21). 
In  particular,  Tool  52  (‘Consultation  strategy’)  from  the  ‘Better  regulation  toolbox’ 
includes a Section called ‘Stakeholder mapping’ that has three relevant parts: 

1) the ‘key elements’ to be considered when conducting a stakeholder mapping, such as, classifying 
stakeholder groups according to their level of interest, influence and expertise on the initiative that is 
the subject of the consultation, and avoiding limiting mapping to only the most obvious stakeholders; 

2) the ‘Identification of stakeholder groups’, which provides an overview of the main stakeholder 
categories  (as  identified  by  the  Commission  services),  such  as,  citizens;  social  partners;  NGOs; 
organisations  representing  regional  and  local  authorities;  and  national  and  international  public 
authorities; 

3) the ‘six tests for stakeholder identification’, comprised of six questions and sub-questions, 
which are outlined in Table 4. 

(21) 

To  mention  some  examples  from  the  ‘Better  regulation  toolbox’:  in  Tool 1  (‘Principles,  procedures  and  exceptions’)  a  key 
dimension of better regulation is to be ‘open to stakeholders’ views’ to ensure their participation throughout the policy cycle (p. 9); in Tool 11 
(‘Format of the impact assessment report’), one must ‘describe who would be affected (e.g. businesses, citizens, workers, consumers, public 
administrations,  regions,  third  country  actors …)  and  how’  (p. 73);  in  Tool 13  (‘How  to  analyse  problems’),  it  is  required  to  ‘identify  the 
relevant stakeholders’ both affected by the problem and causing it (p. 91); in Tool 52 (‘Consultation strategy’), a ‘stakeholder mapping’ 
must be conducted (p. 463); in Tool 54 (‘Analysing data and informing policymaking’), weeks after the end of a stakeholder consultation, a 
‘factual summary report’ on the input received from stakeholders must be published on the EU web portal ‘Have your say’ to get an overview 
of who replied by stakeholder type and their views and concerns in the context of a policy initiative under preparation, an evaluation or a 
fitness check (p. 469). 

37 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Table 4. Six tests for stakeholder identification 

Test 1. 
Who is 
directly 
impacted? 

Test 2. 
Who is 
indirectly 
impacted? 

Test 3. 
Who is 
potentially 
impacted? 

Test 4. 
Whose help is 
needed to make 
it work? 

Test 5. 
Who knows 
about the 
subject? 

Test 6. 
Who will show 
an interest in 
the subject? 

Whose 
daily/weekly 
lives will change 
because of this 
policy? 

Who cannot 
easily take 
steps to avoid 
being affected 
by this policy? 

Who will have 
to change their 
behaviour 
because of this 
policy? 

Whose daily 
lives will change 
because others 
have been 
directly 
impacted by the 
policy? 

Who will gain or 
lose because of 
changes 
resulting from 
this policy? 

In particular 
circumstances, 
who will have a 
different 
experience as a 
result of this 
decision? 

Are there 
individuals or 
groups who will 
have to adjust 
their behaviour 
if specific 
conditions 
apply? 

Are there vital 
individuals or 
groups in the 
delivery chain? 

Who will have the 
ability to obstruct 
implementation 
unless co-
operating? 

Who understands 
the likely impact 
of this decision 
on other 
stakeholders? 

Who has studied the  Are there 
subject and 
published views on 
it? 

organisations, 
authorities, bodies, 
or individuals who 
think they have an 
interest? 

Has anyone been 
campaigning about 
the issue? 

Is there anyone 
publishing or 
broadcasting views 
on this subject? 

Who has detailed 
know-how and 
expertise that those 
implementing the 
policy should also 
understand? 

Are there individuals 
or groups that will 
be perceived as 
knowledgeable on 
the subject? 

Source: Created by the authors, based on the Better regulation toolbox (p. 464-465). 

Keep this information in mind. You will be using to identify the impacted stakeholders (see below). 

Identify the impacted stakeholders. 

To identify the impacted stakeholders, complete the following points indicated in Figure 13: 

38 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
  
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Figure 13. Team process for stakeholder identification 

Gather your team or a group of sparring 

Define what is meant by 'impacted or concerned stakeholder' 
in the context of learning for the implementation of your policy 
or programme 

Identify the impacted or concerned stakeholders for each MS. 
To help you identify this, see the ‘six tests for stakeholder 
identification’ and the Section on ‘Stakeholder Mapping’ in the 
‘Better regulation toolbox’ (Tool 52), mentioned above 

Have each team member make a rapid list of all impacted 
stakeholders they can think of in three minutes. Then, 
working in pairs, have team members compare their lists, 
adding new stakeholders and removing repetitions. 

Finally, convene the whole team again to compile a final list 
of all stakeholders in all Member States. 

Source: Created by the authors. 

List of impacted 
stakeholders 

Prioritise the identified impacted stakeholders. 

Based on the full list of impacted stakeholders, map the stakeholders in each Member State, and 
potentially other countries concerned  by  the  implementation  of  the policy or programme, such as 
candidate countries or neighbourhood countries. 

Do this against a stakeholder matrix, as shown in Figure 14. Allocate the stakeholders to the relevant 
quadrants  of  the  matrix,  according  to  their  influence  on  the  implementation  of  your  policy  or 
programme (vertical axis) or their interest in it (horizontal axis). You may end up with a matrix for 
each Member State authority or a group of Member State authorities with similar features. 

39 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
)
n
o
i
t
a
t
n
e
m
e
p
m

l

i

n
o
(

e
c
n
e
u
l
f
n

i

f
o

l

e
v
e
L

Figure 14. Stakeholder prioritisation matrix 

Influential observers 
or opponents 

Key players 

h
g
i
H

Engage with evidence 

Cooperate closely 

Stakeholders 1, 2, etc. 

Stakeholders 3, 4, etc. 

Spectators 

Supporters 

w
o
L

Share principles and 
values 

Keep informed 

Stakeholders 5, 6, etc. 

Stakeholders 7, 8, etc. 

Low 

High 

Level of interest (in implementation) 

Source: Created by the authors. 

Develop an awareness-raising plan. 
Reflect on ways to engage with the impacted stakeholders through a plan that entails awareness-
raising activities. 

When developing the plan, there are several points to keep in mind: 

 The implementing authorities are the primary target group and will benefit from your learning 

initiative. 

 It is important to have a plan for impacted stakeholders that covers activities to minimize 

potential resistance to policy change, and to smooth implementation. 

40 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
  
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Generally, impacted stakeholders mapped in quadrant B in the stakeholder matrix should be 
prioritised. However, consider offering awareness-raising activities to other groups as well. 

 To help develop awareness-raising activities, you can recall Activity 1.2 and the PRUV frame-

work considered there. 

 The plan should be flexible and open to revisions based on stakeholder feedback or changing 

circumstances in your training or the implementation of your policy or programme. 

41 

 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
4.3.  Activity 2.3. Identifying potential multipliers 

By  recognizing  the  broader  network  of  influencers  who  can  facilitate  and/or  promote  the 
implementation of your policy, you can build a stronger diplomatic effort and amplify your message 
through your learning strategy. To identify potential multipliers, proceed as indicated in Figure 15. 

Multipliers will support your message and results and share them with their network. They 
can include a wide range of actors, such as key learners, training institutes, influential individuals, 
and authoritative organisations. These multipliers often have a considerable following, especially on 
social media. 

Targeting multipliers with learning resources can help you reach larger audiences who may have a 
vested interest in the policy or programme. By  engaging with these influencers,  you can facilitate 
further broadcast of your key messages and amplify your impact. 

Figure 15. Identifying potential multipliers 

Take the Stakeholder Matrix you developed (Activity 2.2). 

Check the quadrants in the matrix again, especially A and D. This 
time, do it with an eye to finding potential multipliers. 

Make a selection of stakeholders which could be part of broader 
network helpful for successful policy or programme implementation 
and the associated learning initiative. To help your thinking, consider 
the tips mentioned below at the end of this activity. 

Compile a list of the policy or programme's network of broader 
influencers. 

Source: Created by the authors. 

42 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Network of broader 
influencer 

Tips 

Getting the right multipliers for your learning initiative is important, but consider that 
such multipliers should be able to reach your potential learners. 

Multipliers could be of any type (e.g. economic, social, legal, political, etc.). 

To promote policy or programme understanding and a policy diplomacy dimension, you 
may want to include additional secondary audiences not considered previously in the 
stakeholder matrix. 

4.3.1.  Your Notes (Activities 2.1 – 2.3) 

As mentioned in the beginning of Section 4, Activities 2.1 - 2.3 support the following objective: to 
identify implementing authorities, impacted stakeholders and multipliers. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

The information may be useful in LaaS Phase 6 (Evaluation), when, as part of the final activity of the 
guide, you will reflect on the experiences gained and lessons learned from developing each phase in 
your learning strategy. 

43 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
   
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
4.4.  Activity 2.4. Analysing training needs 

In this activity you will conduct a training needs analysis (TNA) and reflect on its indirect findings. 

A TNA helps identify gaps between the current level of competences – or KSAs – and the required 
level. 

This helps to  define  and  prioritise  needs,  and  to  design  and develop  the  learning  initiative.  It also 
provides input for defining indicators to use later to evaluate the training. 

Do a TNA, following the flow diagram in Figure 16. 

Figure 16. Training Needs Analysis 

Where do you 
need to be? 

Where are you 
now? 

How do you get to 
where you want to be? 

1. Determine the 
required competences 
for succesful 
implementation 

2. Map existing 
competences and 
identify learning gaps 

3. Assess training 
options and build a 
training plan 

Source: Created by the authors. 

First, to determine the desired level of performance, think about this question: what competences 
should implementing authorities have to successfully implement the policy or programme? 

You can use the competence framework created in Phase 1 (Activity 1.5) as a benchmark to determine 
the desired level of performance. To do this, consider the following questions: 

 What are the specific goals that the policy is designed to achieve? 

 What are the specific EU goals that the policy aims to achieve in its implementation? 

 What further policy diplomacy goals does the policy aim to achieve? 

44 

 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 What must learners be able to do when they complete your training? 

 What KSAs do implementers and other stakeholders need to support the policy implementa-

tion goals? 

Additionally, it is essential to consider which existing implementation challenges can be addressed 
through training, as this will help identify the KSA gaps that need to be addressed. 

Secondly,  to  identify  the  current  situation  and  current  gaps,  think  about  the  following:  what 
competences do the implementing authorities already have? 

To  find  this  out,  gather  information  about  the  present  state  of  affairs  in  terms  of  learning  and 
competences. Also take into account the political and legal contexts of the Member State – you may 
have considered this to an extent when mapping the broader context in Activity 1.2, so you may build 
on that. 

Identifying the situation will help confirm that a learning initiative is an adequate solution and help 
inform the delivery approach. To gather information, consider the following sources and methods: 

 surveys and questionnaires. 

 interviews with key actors and top or middle managers. 

 existing documents, such as evaluations, impact assessments, and policy or programme doc-

uments from the EU institutions or authoritative organisations. 

 existing assessment tools such as the Joint Research Centre’s Smart4Policy tool 

 The European Commission’s Country Knowledge portal 

 The ‘Have your say’ EU web portal. 

45 

 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
  
 
  
 
 
  
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
Table 5 includes a list of questions to consider when looking for information. 

Table 5. List of questions to understand the current state of affairs 

Policy or pro-
gramme and pol-
icy or programme 
landscape 

Which  goals  does  the 
policy  or  programme 
pursue? 

What 
is  the  political 
context  of  the  Member 
State  where  the  policy 
or  programme  will  be 
implemented? 

What are the core insti-
tutional/organisational 
goals  or  values  of  the 
implementing  authori-
ties on the ground? 

What  is  the  legal  con-
text  of  the  Member 
State? 

Are these goals or val-
ues compatible with the 
policy  or  programme 
goals? 

Are these contexts rele-
vant to consider at the 
national  level  only,  or 
are  there  also  regional 
or  local  particularities 
to consider? 

the 

What  motivates  or  dis-
courages 
menting  authorities  re-
garding  the  policy  or  delivery of the learning initiative? 
programme? 

imple- Which drivers and obstacles are currently present 
that may potentially affect the development and 

How  much  time  is  ap-
What  are  the  current  What  KSA  gaps  will  be  propriate  and/or realis-
tic  for  the  target  audi-
the most difficult to ad-
KSA levels of the target 
ence to spend on train-
dress? 
audience? 
ing? 
How  have  existing  or 
How  will  the  training  previous  training  inter-
ventions,  if  any, 
improve  policy  or  pro-
im-
pacted  implementation 
gramme 
implementa-
perfor-
authorities’ 
tion and impact? 
mance? 

Why  is  training  neces-
sary? 

Member State 
general context 

Societal imple-
mentation envi-
ronment 

Institutional im-
plementation en-
vironment 

Training specific 
parameters 

Which  kinds  of  training 
resources  are  already 
available that can be re-
purposed  for  use  with 
the  target  audiences? 
(for  further  details,  see 
Phase 3 – Resource.) 

What kind of pedagogi-
cal methods do the tar-
get  audience  best  re-
spond to? 

How  should 
best 
be 
When and where? 

training 
delivered? 

Who is best placed to deliver training? 

Source: Created by the authors. 

After determining the current level of performance, compare this situation with the desired level 
to  determine  the  learning  gap,  while  deepening  your  understanding  of  the  KSA  challenges  and 
confirming that training is an adequate solution to address these challenges. 

Thirdly,  to  assess  training  options  and  to  build  a  training  plan,  think  about  this  question:  how 
implementing authorities get to where they should be? 

46 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
To  assess  training  options  and  build  a  training  plan,  use  the  information  gathered  and  KSA  gaps 
identified to design an effective approach. Consider the following questions: 

• How many learners will be trained? 

• What are the possible ways to deliver and assess the training solutions available? 

• Are the objectives best achieved through a combination of synchronous and asynchronous training 
methods? 

• How can the training plan be tailored to address the critical competence gaps identified?" 

Box 9. Bear in mind: implementation styles and learning needs differ between Member States 

Bear in mind: 

Implementation styles and learning needs are not homogenous among Member States, and possibly also not 
between  regions  in  a  member  state.  Expect  huge  variations.  Therefore,  prioritise  identifying  gaps  and 
developing training solutions relevant to the local context. Build a training plan based on observed gaps and 
ensure that the training plan is aligned with the goals established in Phase 1 (Identify). 

Finally, as you have completed the TNA and you are aware that insufficient capacity building in key 
areas often hinders  effective  policy  or programme  implementation, do also reflect on  the indirect 
findings of the TNA as other obstacles in implementation may also exist. 

We recommend revisiting the TNA to identify additional implementation problems and gain a more 
comprehensive understanding of the implementation context. This will enable you to provide more 
effective support to implementing authorities. 

After the TNA is ready, take a moment to reflect on whether the data gathered, and results point to 
problematic aspects in other important areas. 

Reflect upon the following questions. 

Figure 17. Reflect on results from TNA 

Besides KSAs, are there other 
factors significantly or potentially 
hindering successful 
implementation of your policy or 
programme? 

Should any of these detected 
problems be considered during 
the implementation of your 
policy or programme? 

Should any of these detected 
problems be considered during 
the preparation of your policy 
or programme?  

Could any of these problems 
have an significant impact on 
the design or development of 
your learning initiative?  

Source: Created by the authors. 

If the answer to any of these questions is yes, keep your findings in mind when developing the learning 
strategy in Phase 4 (Design). 

47 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
4.4.1.  Your Notes (Activity 2.4) 

As mentioned in the beginning of Section 4, Activity 2.4 support the following objective: to understand 
the learning context and gaps for implementing authorities on the ground. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

The information may be useful in LaaS Phase 6 (Evaluation), when, as part of the final activity of the 
guide, you will reflect on the experiences gained and lessons learned from developing each phase in 
your learning strategy. 

48 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
  
 
 
 
 
5.  Phase 3: Resource 

What is this phase about? 

In this phase you will focus on estimating the resources (monetary, technical and human) required 
to create a learning initiative to support implementation ( 22). You will also set up partnerships that 
can support the efforts. 

Why is this relevant? 

—  As resources are often limited in organisations, including EU institutions and Member State 

authorities, it is essential to map what is required for a successful learning initiative. 

—  It raises awareness upfront on resource gaps and opportunities for developing trainings, as 
well as developing an inventory of learning resources available ‘out there’ (e.g. learning ac-
tivities or programmes that already exist at Member State level that you may not have been 
aware of). 

—  It promotes re-use and/or repurposing of existing resources to build learning initiatives more 
easily and efficiently. As a result, it frees up resources to work on training materials that need 
to be developed from scratch. 

—  Partnering  with  individuals  or  organizations  can  further  support  your  learning  initiative  in 

multiple ways: 

o  Partnerships give you access to additional resources that you may need for producing 
your training, such as knowledge, expertise, learning materials, network channels, new 
technology and online/offline infrastructure. 

o  Partnerships can help with creating a learning initiative faster and more efficiently, 
and can bring a fresh perspective, creativity and new ideas to the table to develop an 
attractive learning initiative. 

o  At the operational level, partnerships can help with the delivery of the learning initi-
ative through the networks of the partner(s), and with strategic to access policy or 
programme beneficiaries  or stakeholders  that  may  otherwise be difficult  to  reach, 
while increasing the exposure and expanding the policy diplomacy dimension. 

o  Partnerships can also provide an opportunity for mutual learning and knowledge shar-

ing. 

22  Note that the developmental aspects of the learning initiative are covered in Phases 4 (Design), 5 (Deliver) and 6 (Evaluate). For 

instance, Phase 4 includes the development of training materials that will be part of the training. 

49 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
What are the activities? 

3.1 Identifying the resources to build a learning initiative 

3.2 Establishing strategic and operational partnerships 

What are the objectives? 

—  To map resources to build a learning initiative on policy or programme implementation (sup-

ported by Activity 3.1). 

—  To establish strategic and operational alliances to support the learning initiative (supported 

by Activity 3.2). 

50 

 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
5.1.  Activity 3.1. Identifying the resources to build a learning initiative 

First, identify the resources that are already available to you. Then, determine what additional 
resources are required to create an effective learning initiative. Follow the diagram in Figure 17 
and the guidelines in Table 6. 

Figure 18. Identifying resources for your learning initiative 

First: 
Look for what is 
already there 

a.  Outline the goals of the learning initiative 
b.  Categorize the resources needed 
Take stock of existing resources 
c. 

Then: 
Assess existing 
resources &  select 
what is still needed 

a.  Assess what may be reused or repurposed for your learning initiative 
b.  Make a distinction between existing resources and those that must be produced 
c. 
d.  Keep in mind that resource plan may evolve over time 

Select and prioritise what needs to be done 

Source: Created by the authors. 

Table 6. Identify and assess resources for your learning initiative 

First: 
begin by identifying existing resources 

Then: 
assess existing resources and select what you may 
additionally require 

a.  Outline the goals of the learning initi-

a.  Assess what can be reused or repur-

ative. 

You don’t need to define specific goals at this 
stage. You will define these in the following 
Phase 4 (Design). 
For now, it is important to have at least a 
good overview of what you want your 
learning initiative to achieve, and what topics 
in general may need to be covered. 

posed for your learning initiative and 
its goals. 

Use your list of learning resources. You can 
evaluate various elements, such as the quality 
of resources, their relevance to achieving the 
learning outcomes, the currency of the 
materials, accessibility and cost. Identify any 
resources gaps. 

51 

 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
To help you with outlining the goals, you can 
revisit the activities and outputs in Phases 1 
(Identify) and 2 (Analyse), in search of 
relevant information. 

b.  Distinguish between existing resources 

and those that must be produced. 
This helps manage capacity more efficiently. 

c.  Select and prioritise what needs to be 

done. 

Do not plan to repurpose or create all of the 
resources identified in points a and b above. 
Instead, select and prioritise resources based 
on factors such as the impact of a lack of a 
given resource on the learning initiative, or the 
costs associated with developing a new 
resource. 
Create a tentative resource plan outlining how 
to proceed, including what; when; and how. 

d.  Keep in mind that the resource plan is 

not set in stone. 

Resource mapping is an iterative process that 
may require adaptation in response to changes 
in learners' needs or the availability of new 
materials or learning software. 

b. Categorise the resources you predict 
you will need for your learning initia-
tive. 

You can group the resources needed based on 
relevant resource categories. For instance: 
- content/curriculum, 
- online and offline training materials, 
- budget/funding, 
- equipment/technology, 
- facilities, 
- partners/human resources. 
Consider all the resources that might be 
relevant and select those that best apply to 
your learning initiative and strategy. The 
categorisation will give you an indication of 
where to look for existing and additional 
resources. 

c. Take stock of existing resources. 

Search for existing resources within the 
European Commission and other EU 
institutions that support your programme 
goals (as outlined above under point a). 
Then, research what is available in the 
Member States, including organisations that 
provide training. Consider resources at the 
European, national and local levels. Include all 
relevant resources in a list of learning 
resources. 

Source: Created by the authors. 

52 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
  
  
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
  
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
5.1.1.  Your notes (Activity 3.1) 

As mentioned  in  the beginning of  Section  5,  Activity  3.1  supports  the  following objective:  to map 
resources to build a learning initiative on policy or programme implementation. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

The information may be useful in LaaS Phase 6 (Evaluation), when, as part of the final activity of the 
guide, you will reflect on the experiences gained and lessons learned from developing each phase in 
your learning strategy. 

53 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
5.2.  Activity 3.2. Establishing strategic and operational partnerships 

A strategic partnership is a collaborative relationship between two or more parties (e.g. organisations, 
individuals or businesses) that agree to work together to achieve mutual benefits and complement 
each  other’s  strengths,  capabilities  and  resources.  By  doing  so,  they  create  value  and  achieve 
outcomes that might be extremely challenging, if not impossible, to accomplish individually. 

This  type  of  partnership  is  particularly  useful  when  organisations  want  to  leverage  each  other's 
expertise and resources to achieve common goals. In addition to strategic partnerships, operational 
partnerships can also be established, depending on the needs and purposes of the collaboration. 

The overarching steps to set up both strategic and operational partnerships are similar. By following 
the steps illustrated in Figure 18, effective partnerships can be established that drive mutual benefits 
and support their goals. 

It  is  highly  recommended  to  revisit  the  information  and  knowledge  previously  gathered  on 
implementing  authorities,  impacted  stakeholders  and  multipliers  (Activities  2.1-2.3)  and  resource 
mapping (Activity 3.1). 

54 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Goals 

Partners 

Benefits 

Agreement 
terms 

Atmosphere 

Monitor 

Figure 19. Process for setting up strategic partnerships 

Define the specific goal(s) you want to achieve with a partnership. 
For instance, do you want to get access to new or existing knowledge or technology to design your 
learning initiative, or get easier access on the ground to deliver your training? 
Reflect: why would you need a partner, in the first place? 

Identify potential partners that may align with your goals and organisational values, and may 
complement your resources or expertise to boost your learning strategy. 
Make a list of pros and cons of each potential partner, evaluate the alternatives, and select partner(s). 
For this, you do not need to start from scratch; you can consult the information and knowledge you 
gathered previously, for instance, in Phase 2 (Activities 2.1  2.3) and Activity 3.1 

-

Estimate mutual benefit(s) of a partnership. 
For instance, think about how the partnership can be advantageous to both parties, or how value creation 
can go beyond what each party could get if it would act alone. 
Note that it does not need to be an exactly equal benefit for each partner, but there must be a benefit 
that is good enough for each partner to establish a partnership and stay in it. 

Contact the potential partner(s) to establish cooperation and agree on terms for collaboration, e.g. 
objectives, responsibilities, etc. 
-
For a list of topics often covered in an agreement, see the "Checklist for Agreement topics . It is non 
exhaustive. You can adapt it to your specific needs, by including more topics or leaving some out. 
You may also consider asking colleagues working on financial and legal matters to share examples or 
templates of existing partnership agreements, such as Service Level Agreements (SLAs). 

"

• 
• 

• 

• 

• 
• 

• 
• 

• 

• 

• 

• 

•  When you contact a potential partner, it can be useful to let them know the Vision Statement you have for 
your learning initiative (produced in Activity 1.1), which indicates how the future will look when your policy 
or programme has been successfully implemented, and how your learning initiative will contribute to 
getting there. This may facilitate the alignment of support and benefits from the strategic partnership. 

• 
• 

• 
• 

• 

Promote a partnership in which trust and open and clear communication among parties are at the core. 
Establish effective channels for exchanging information, updates and (negative and positive) feedback. 

Monitor and evaluate the progress and shared values of the partnership over its duration. 
For instance, assess the development of the intended goals and mutual benefit(s), the collaborative 
aspects and the challenges encountered. 
You may also adjust the agreement in case important changes or events happen that may affect the 
original partnership s terms. 

’

Source: Created by the authors. 

Bear in  mind that  collaborations that  promote learning from the  experience  of  Member  States in 
policy/programme implementation can better inform and advance the learning strategy. This can also 
facilitate a better landing for a policy or programme on the ground. 

Strategic  partnerships  can  be  crucial  for  integrating  your  learning  initiative  into  the  professional 
develop programme received by your targeted learners. 

55 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
   
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
 
 
  
 
 
 
  
 
 
 
 
 
 
 
Checklist for agreement topics 

  Names of the partners 
  Objectives of the partnership 
  Duration of the agreement 
  Scope of features (e.g. resources or services) covered in the partnership 

and, where appropriate, excluded from it 

  Specific roles and responsibilities of each partner 
  Performance levels or indicators to be monitored and evaluated during the 

partnership 

  Specifications on privacy or confidentiality 
  Penalties for agreement breaches 
  Signatures of the partners 

If you want to know more on the topic, including partnership tools and tips, EU Learn offers a course 
on ‘Strategic partnerships’ through LinkedIn Learning. The course is available here: EU Learn - Strategic 
Partnerships  (Note:  while  the  course  is  orientated  towards  businesses,  its  general  principles  and 
strategies can be adapted to a learning context). 

Your notes (Activity 3.2) 

As mentioned in the beginning of Section 5, Activity 3.2 supports the following objective: to establish 
strategic and operational alliances to support the learning initiative. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

The information may be useful in LaaS Phase 6 (Evaluation), when, as part of the final activity of the 
guide, you will reflect on the experiences gained and lessons learned from developing each phase in 
your learning strategy. 

56 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
6.  Phase 4: Design 

What is this phase about? 

In this phase, you will define the learning outcomes for your learning initiative. You will also design 
and develop  learning  assets and  training materials  necessary for your training.  All  in  all,  you  will 
define, adapt and finalise a fit-for-purpose learning initiative to support the implementation of your 
policy or programme. 

When  designing  your  learning  initiative, bear  in  mind the plan  for awareness-raising  activities for 
impacted stakeholders developed in Activity 2.2. 

It is recommended that you work together with one or more training providers or partners ( 23). 

To  create a learning  initiative,  it is useful  to consider the following  five components  illustrated in 
Figure 19: 

Figure 20. Five components of your learning imitative 

Learning 
outcomes 

Learners 

Content 

Assets 

Pilot 

Source: Created by the authors. 

Why is this relevant? 

—  A fit-for-purpose learning initiative is essential for ensuring effective training that contributes 

to successful implementation. 

—  A fit-for-purpose learning initiative can help you anticipate potential implementation chal-
lenges. For instance, creating learning activities to train officials in Member States to act in a 

(23) 

Bear in mind that the EU Academy (https://academy.europa.eu/) offers services to help with the design and development of strategic 
learning  initiatives  in  support  of  policy  or  programme  implementation.  For  questions,  you  can  send  an  email  to  eu-academy-
info@ec.europa.eu. 

57 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
timely  and  specific  manner,  or  using  real-world  examples  of  best  practices,  can  facilitate 
smoother implementation. 

—  If the purpose of the learning initiative is unclear or misaligned with the learner, it is unlikely 
to lead to the acquisition of the necessary competences/KSAs for a good understanding and 
successful implementation of the policy or programme. A poorly constructed programme can 
even lead to complexity and misunderstandings. 

—  Having clear learning outcomes and defined learners helps your learning initiative stay fo-
cused and be aligned to the learners’ needs, as well as to the goals of your policy or pro-
gramme. 

—  A well-designed training initiative, also supported by relevant content, assets and a pilot, is 
more effective and can contribute to making better sense of your policy or programme. 

What are the activities? 

4.1 Defining the learning outcomes and learners 

4.2 Preparing for and running a pilot 

What are the objectives? 

—  To define a fit-for-purpose learning initiative (supported by Activity 4.1) 

—  To develop, adapt and finalise the learning initiative (supported by Activity 4.2) 

58 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
    
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
6.1.  Activity 4.1. Defining the learning outcomes and learners 

A fit-for-purpose learning initiative is one that is well-suited to fulfilling the learning requirements 
and  expectations  and  achieving  the  learning  goals  necessary  to  provide  solid  support  for  the 
implementation of its corresponding policy or programme. To achieve this, it is essential to establish 
clear learning outcomes that are centred on the learner's needs and goals. 

This activity helps you define these learning outcomes, ensuring that your training is effective and 
learner-centred.  To  do  this,  use  the  outputs  from  previous  activities,  particularly  the  competence 
framework from Activity 1.5 and the learning outcomes outlined in Activity 3.1. 

We will focus on two major components of your learning initiative (See Figure 20): 

Figure 21. Components of your learning initiative: ‘learning outcomes’ and ‘learners’ 

Learning 
outcomes 

Learners 

Source: Created by the authors. 

a.  Define the learning outcomes that your initiative will pursue 

 Component 1 - learning outcomes 









A learning outcome relates to what a learner should know, understand and be able to do after 
completion of the training. Think about what specific KSAs you want the participants to gain, 
and how the capacity of the participants to implement or understand the policy or programme 
will be improved. 
You may want to distinguish between learning objectives of the overall learning initiative and 
those of individual course modules. You can also set learning objectives for sessions or ac-
tivities within a module. However, it is recommended to keep it simple and define the learning 
outcomes of the whole programme and its modules.  
To shape and specify the learning outcomes, make sure to align them with the vision for the 
learning initiative (Activity 1.1), the competency framework (Activity 1.5), the learning gaps 
identified in the TNA (Activity 2.4) and the high-level learning outcomes previously outlined 
(Activity 3.1). 
To formulate a learning outcome, use the following: ‘At the end of this learning initiative/mod-
ule, the participant will be able to [action verb + accompaniment]’. For example: 

o 

‘At the end this module, participants will be able to recall the objectives of the EU 
water framework directive’. 

59 

 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
o 

‘At the end of this learning initiative, participants will be able to design local initia-
tives that conform with and support the implementation of the EU nature restoration 
regulation’. 

b.  Use Bloom’s taxonomy 

Figure 22. Bloom’s taxonomy 



Evaluation / Create 

Synthesis / Evaluate 

The examples of learning

 outcomes above are based on Bloom’s
taxonomy. This taxonomy is widely used by learning and development pro-
 outcomes. 

fessionals to create learning

 The choice of action verbs (e.g. 

‘recall’ and ‘design’, in the examples
  the  level  of  learning  the  participants need  to

above)  depends  on

achieve, as explained below. 

Analysis / Analyse 



Application / Apply 

Comprehension / 
Understand 

Knowledge / 
Remember 

pyramid  to  the 

higher): knowledge

Bloom’s taxonomy has six levels of learning.

 As seen in the 
left  (Figure  21),  these  are  (from  lower  to
 (or ‘remember’); comprehension (or ‘un-
; application (or ‘apply’); analysis (or ‘analyse’); 
(or ‘evaluate’) and evaluation (or ‘create’) (24). 

derstand’)

synthesis 



The 
course 

higher  the  level,  the  more  challenging  the 
is,  and  the  higher  a  learner  moves  up  the 
progression  pyramid,  the  more expert a 

learning 

learner becomes in a given subject. 

Source: Created by the authors. 







It may not be necessary for the purpose of your policy or programme implementation to reach 
the top of the pyramid. Therefore, it is important to assess the level needed for the purpose 
set and to design the learning initiative to ensure that this level is achieved. First, think about 
the desired final level, then define the learning outcome as such. Do not forget about the 
starting point, that is, where the learners are before the training. You can start your training 
from that level and then move onwards. 
It may be useful to create one learning outcome per module per level until you reach the 
desired level in the pyramid. 

It is not necessary to always move linearly upwards. You can also jump levels up or down, if 
this better fits the participants and the learning process on a given topic. Bear in mind that 
learning is often non-linear. Bloom’s taxonomy implies to an extent a process happening from 
a lower level to a higher level of learning. While this conception is adequate for the purposes 

(24) 

Two terms are included at each level because the original version of the taxonomy, published in the 1950s, uses the terms 
indicated first (e.g. ‘knowledge’, ‘comprehension’), while the revised version, published in the 2000s, includes the terms indicated in 
brackets (e.g. ‘remember’, ‘understand’). We include both sets of terms to provide a complete picture of the taxonomy. 

60 

 
 
 
 
 
 
 
 
 
 
 
 
                                                                      
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
    
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
of simplifying and understanding the learning processes, we should consider that the pro-
cesses may occur not necessarily sequentially but simultaneously. 

Each level of learning in the taxonomy entails different action verbs. For example, for 
achieving the first level, ‘knowledge’, you need to ‘repeat’ or ‘recall’, but for the third level, 
‘application’, you need to ‘demonstrate’ or ‘practice’. 

o  For different action verbs for each level in the taxonomy, see ‘Bloom’s taxonomy of 

measurable verbs’. 

Be sure to choose an appropriate action verb from the level in the taxonomy you want to 
target. You will use this verb to create the learning outcomes. 

The level of learning also affects the type of assessment. You can also find matching assess-
ment types and verbs for each level in the taxonomy in the link above. 

To find out more about Bloom’s taxonomy and how to use it, you can watch this short video: 
Bloom’s taxonomy explained. 









c.  Set clear learning outcomes 



 Having clear learning outcomes will help both you and the learners. It will help you to develop 
content and assets on, for instance, learning activities that target the desired level. And it will 
help learners to understand what exactly they will learn once they finish the learning initiative 
or a given module. 
Ensure that each learning outcome is formulated using the ‘SMART’ approach: each learning 
outcome is specific, measurable, achievable, realistic, and time-bound. 
Identify indicators to assess whether the learning outcomes have been achieved. 
Finally, make sure that the learning outcomes align with the overall goals of your policy or 
programme. 




a.  Understand the learners and their needs 

 Component 2 - learners 



Learners are the individuals directly targeted by the learning initiative, such as policy officers 
at implementing authorities in Member States. 

 Make sure to consider the following: 

o  Consider  the  implementing  authorities  your  learning  initiative  wants  to  target  (as 

identified in Activity 2.1). 

o  Consider the results of the TNA (Activity 2.4) and the related indirect findings (you 
can use these results to help you to decide on an appropriate training that can be 
adapted to the learning style(s) of your learners). 

o  Remember that the participants in your learning initiative will be adult learners, who 
often bring to the training prior experiences and practical knowledge. Acknowledge 
this and other contextual factors that may also be relevant to the design of the other 
components of your learning initiative, such as its learning outcomes (Component 1). 

b.  Consider the broader picture 

 While the focus is on the learner with direct policy or programme implementation responsi-

bility, do not forget the impacted stakeholders (Activity 2.2). 

61 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
    
 
   
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
  


This audience can comprise people or organisations that are not involved directly in imple-
mentation, but who may (or may not) nevertheless  have a vested  interest in what the EU 
does. Creating awareness-raising activities for this wider group (Activity 2.2) can help improve 
understanding of the policy or programme. In addition, focusing on the EU values and princi-
ples underlying a particular policy or programme choice can support adoption both within and 
outside the EU. 

Think about the following questions: 

-

-

-

How  is  the  broader  policy diplomacy dimension considered  in  the design  of  the policy?  (See 
Activity 1.2.) 
How can this dimension be integrated in the learning initiative for implementing authorities and 
in the awareness-raising materials targeted at the impacted stakeholders? (Activities 2.1 and 
2.2.) 
How can a learning activity focused on the policy diplomacy contribute to successful implemen-
tation? (Activities 1.1 and 1.2.) 

c.  Create learner-centric learning 







Finally, make sure that your training initiative aligns with the learner: create a learner-focused 
learning initiative. Tailor your training accordingly. 
Training initiatives centred on learners are often interactive. Interactive methods can include 
role play, case studies, on-the-job training, simulations and games/gamification, among oth-
ers. 
By contrast, training focused on  the trainer  often  use methods  such as presentations and 
lectures. 

6.1.1.  Your Notes (Activity 4.1) 

As mentioned in the beginning of Section 6, Activity 4.1 supports the following objective: to define 
learning outcomes and learners. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

The information may be useful in LaaS Phase 6 (Evaluation), when, as part of the final activity of the 
guide, you will reflect on the experiences gained and lessons learned from developing each phase in 
your learning strategy. 

62 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
6.2.  Activity 4.2. Preparing for and running a pilot 

In Activity 4.1, you defined two components of your training: the learning goals (or learning outcomes) 
and the target audience (or learners). 

Activity 4.2 now focuses on the content, assets and pilot delivery of your training. This helps you move 
forward with developing and finalising your learning initiative, building on the components you have 
already established. 

We will focus on components 3, 4 and 5 of the learning initiative, as illustrated in Figure 
22. 

Figure 23. Components of your learning initiative, ‘content’, ‘assets’ and ‘pilot’ 

Learning 
outcomes 

Learners 

Content 

Assets 

Pilot 

Source: Created by the authors. 

As we do so, be sure to keep in mind Components 1 and 2, discussed in Activity 4.1. 

A checklist is provided for each component. For ease of use when going through the checklist, each 
component has boxes that indicate relevant aspects to consider. You can address and tick all boxes, 
but note that some may not be applicable to the implementation of your specific policy or programme. 

 Component 3 - content 

Define the content of your learning initiative. Content in this context covers the type of training, 
methods of learning, modality of training, learning activities, assessment, and feedback channels. 

 Make sure to integrate the findings from work done in previous activities. 

o  For instance, the TNA (Activity 2.4) can provide insights on the appropriate type of 
training (e.g. micro-learning or longer module courses), and help select the activities 
and type of assessments (e.g. quizzes or scenario-based assessments), taking into 
consideration the variety of learning styles and prior knowledge of the targeted learn-
ers. 

 Define the methods of learning (e.g.  role play,  case  study, simulations, discussion  groups, 
scenario-based learning or real-life scenarios) and the modality of the training (e.g. online, 
face to face, hybrid, synchronous, asynchronous, self-paced, or instructor-led). 

 Include socialisation activities that can give learners the opportunity to interact, network, co-
operate, and learn from  each other. Foster a community-driven learning initiative that en-
courages participants to share experiences, successes and challenges. 

63 

 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Think out of the box: include activities using approaches that go beyond the usual ones. For 
instance, including content on success stories is important, but it may be highly insightful to 
integrate a ’learning-from-failure’ approach, by which the participant can be placed in sce-
narios and activities where they can learn from useful mistakes ( 25). 

 Include dynamic, inspiring, and practical activities that encourage and motivate the learners 
not only to initiate and complete your programme; but also to apply what they have learned 
in their daily work afterwards. 

 Create a curriculum plan that gives a clear overview of the content configuration (e.g. mod-
ules) and duration. Make sure to establish a realistic timeline for the entire programme and 
include deadlines and milestones for different modules or phases. While  doing so, bear in 
mind that time is often a scarce resource for any learner, so keep the plan simple and feasible. 

 Include an effective feedback channel and ensure that it is a two-way process: 

1)  to give feedback to the learners, so that they are aware of what they have done well 

and how they may improve their performance; 

2)  to receive feedback from the learners about your learning initiative and potential ar-

eas for improvement. 

 Set general parameters or key performance indicators (KPIs) indicating how you plan to meas-
ure the success of your training (you will later specify the parameters in Phase 6 – Evaluate). 
You  can follow the ‘Kirkpatrick  model’, commonly  used to  evaluate  the effectiveness  of a 
learning initiative, which is based on four criteria: 

1)  reaction (measures how well participants react to the training); 
2)  learning (measures to what extent participants acquired the intended KSA); 
3)  behaviour (measures how well participants apply in practice what they learned); and 
4)  results (measures to what extent the targeted outcomes occur because of the train-

ing) (26). 

 It  is  highly  recommended  to  include  content  that  shows  a  clear  connection  with  the  EU’s 
political priorities in place at the time of developing the learning initiative or, at least, with EU 
values more generally. This will support promoting a policy diplomacy dimension. 

 Finally, make sure the content (Component 3) aligns with both the learning outcomes (Com-
ponent 1) and the learners (Component 2). In other words, the content should allow the par-
ticipants to achieve the expected specific objectives of your learning initiative. 

 Component 4 - assets 

Develop the assets required for your learning initiative to be implemented. The term asset 
refers to the resources, learning and training materials, tools and/or technology that your learning 
initiative will include or use. 

 An example from previous work that may be helpful can be found in Activity 3.1, where you 
made a tentative plan that considered resources required for your learning initiative and de-
cided whether to repurpose them or create them from scratch, including the development of 
training materials. 

(25) 

For information on learning from failure see, for instance, Edmondson, A. C., ‘Strategies for learning from failure’, Harvard Business 
Review website, April 2011, accessed 11 March 2025, https://hbr.org/2011/04/strategies-for-learning-from-failure. 

(26)  .  .  For  more  information  on  the  levels  of  the  model  and  case  studies  of  implementation,  see  Kirkpatrick,  D. L.  and  Kirkpatrick,  J. D., 

Evaluating Training Programs: The four levels, 3rd edition, Berrett-Koehler Publishers, San Francisco, 2006. 

64 

 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
     
 
 
 
 
 
   
 
  
 
 
 
 
 
 
 
   
 
 
 
   
 
 
 
 
 
 
 
 
  
 
  
 
 
  
 
 
  
 
 
     
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 Be efficient and relevant: avoid assets that lead to  unrelated or unnecessary repetition of 

content. 

 Think about potential participants with disabilities (e.g. visual or hearing  impairments) and 
thus include assets with features that can enable their learning experience too (e.g. for digital 
assets you may want to include colour-blind-friendly schemes, texts that can be read by a 
screen reader or transcriptions). 

 Use a professional, friendly and encouraging tone. Try to avoid jargon. Use technical language 
only when you are sure that the targeted audience is familiar with it. Always try to be concise 
and clear in the message you want to convey. 

 When using acronyms in the learning material, make sure they are written in full the first 

time they are introduced. Use gender-inclusive language. 

 Be mindful of the variations and differences between the public administration systems and 
models, for instance in decentralised versus centralised public administration systems. Avoid 
imposing a particular view through tone, style or language. Rather, create assets that respect 
the diversity among Member States and implementing authorities. 

 Be aware: different terms can mean different things in different contexts and countries. More-
over, differences between the translated and the source texts may increase the possibility of 
misunderstanding. Therefore, to avoid misunderstandings, it is crucial to have clear definitions 
of central terms used in your learning materials, and to double-check them when translations 
are done. 

 Be aware that cultural differences may affect how assets are perceived. Avoid including fea-
tures that encourage stereotypes or discrimination of any type based on, for instance, gender, 
religion, age or economic status. 

 When using training materials created by someone else, do not forget to give them credit and 
refer to the original source. If you use photos of or information about people, ensure that you 
have their consent.  

 Be mindful about privacy issues: follow the obligations stipulated in the EU’s general data 
information  at 

(GDPR).  See  the  GDPR  checklist  for  more 

protection  regulation 
https://gdpr.eu/checklist/ 

 Consider if the training will be (only) online and/or in person (see Component 3 on the modal-
ity of training) and develop the assets, including training materials, accordingly. For an exam-
ple of how to ensure the usability of material for online courses, see the source in the follow-
ing link: https://inside.lanecc.edu/sites/default/files/fpd/htusabilityonline.pdf. 

 Consider digital assets that allow learners to save the work completed, exit, resume and finish 
a learning session any time they want (instead of assets requiring learners to do and finalise 
everything in one go, because this may be unrealistic and impractical for the participant). 
 Ensure that technology to develop your assets is available. Carefully choose technology that 
supports the learning objectives. At the same time, bear in mind that the technology selected 
in the design phase must also be available when the moment comes to deliver your learning 
initiative in Phase 5 (Deliver). Thus, reflect early on potential delivery challenges, such as gaps 
in technological competences or accessibility of the target audience on the ground. 

 Ensure that the digital hosting of your training works with an adequate learning management 
system  (LMS).  For  information  on  what  a  LMS  is  and  its  use,  see  this  short  video 
https://www.youtube.com/watch?v=ezbJwaLmOeM. For example, Moodle is a well-known LMS. 
It is recommended to check the functionality of the Learning Analytics of the LMS, as such 
analytics allows for measuring, collecting and reporting data on learners’ progress and be-
haviour. This source of information can be useful in the further development of your learning 
strategy, such as in Phase 6 (Evaluate). At the same time, make sure your learning initiative 

65 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
    
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
is hosted on a user-friendly platform, such as the EU Academy (https://academy.europa.eu/), 
which is available for channelling training and learning initiatives produced by the EU institu-
tions in support of implementation of EU policies and programmes (27). 

 Do not take using social media for granted. Consider first whether this resource is necessary 

for your learning initiative and, if so, for what particular purposes. 

 If you use artificial intelligence (AI) tools to support the development of your assets or any 
other component of your learning initiative, you can check internal guidelines related to the 
topic,  such  as  the  ‘Guidelines  for  staff  on  the  use  of  online  available  generative  artificial 
intelligence tools’  and the ‘Artificial intelligence in the European Commission (AI@EC) com-
munication’, which includes actions to ensure lawful, safe and trustworthy use of AI in Euro-
pean Commission work, as well as all AI courses available on the EU Learn platform. 

 Be mindful of the benefits of working together with others to facilitate access to and devel-
opment of assets. For instance, recall and invoke any established strategic partnership (see 
Activity  3.2), and  consider  co-creation with  Commission services (i.e. intra-service training) 
and/or Member States. 

 Logically organise the learning initiative assets together with the content (see Component 3) 
and build them up gradually in such a way that the participants can smoothly achieve the 
expected learning outcomes. 

 Finally, ensure that there is clear alignment among learning outcomes (Component 1), learn-

ers (Component 2), content (Component 3) and assets (Component 4). 

 Component 5 - pilot 

Run a pilot to gain invaluable insights on how your learning initiative works in practice 
and adjust as needed. 

To achieve this, consider the following points: 

 Ensure that the training  and learning activities are  reviewed as a whole and  validated  by 
external stakeholders, and ideally by several potential learners (end users of your learning 
initiative). 

 Organise a pilot to gather feedback from participants on the designed assets, activities, and 
overall set-up. Ask learners whether they found the programme useful for improving the KSAs 
needed to implement the policy or programme effectively. You can also ask instructors and 
instructional designers involved in the development of your programme for their input. 
 Use the feedback to improve the learning initiative, ensuring it is clear, relevant and engaging. 
 Adjust the learning initiative where necessary. 
 Finally, confirm that: 

1)  the training aligns with the desired learning outcomes; and 

(27) 

For questions, you can send an email to eu-academy-info@ec.europa.eu. 

66 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
  
 
  
 
 
 
 
 
 
2)  the training enables learners to obtain the required competences to implement your 
policy  or programme successfully and achieve its  goals  (as  outlined in  your vision 
statement for the learning initiative in Activity 1.1). 

6.2.1.  You Notes (Activity 4.2) 

As mentioned in the beginning of Section 6, Activity 4.2 supports the following objective: adapt and 
finalise the learning initiative. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

The information may be useful in LaaS Phase 6 (Evaluation), when, as part of the final activity of the 
guide, you will reflect on the experiences gained and lessons learned from developing each phase in 
your learning strategy. 

67 

 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
7.  Phase 5: Deliver 

What is this phase about? 

Previously, in Phase 4 (Design), you created your learning initiative. Now in Phase 5 you will implement 
it (28). 

This is the moment when you can see the results of all the preparatory work. It is the first time that 
the  targeted  learners  will  formally  engage  with  your  learning  initiative,  assimilate  its  learning 
activities, and acquire the required competences. 

Therefore, this phase involves the beginning of the learning process for the learner. 

However, for you, the learning process probably started in Phase 1 of your learning strategy, when 
you created a vision statement for your learning initiative (Activity 1.1), and continues throughout the 
development of your strategy. 

Experiencing this process involves, for instance, gaining insights from the activities and reflecting on 
their outputs. These insights have helped you to make more informed decisions when designing your 
learning strategy in support of the implementation of your policy or programme. Keep these lessons 
learned in mind for Phase 6 (Evaluate) in Activity 6.3. 

This phase marks the final preparation before the training is delivered. 

Why is this relevant? 

—  This phase ensures that the learning  initiative will reach  the targeted learners  and assure 

their participation in the training. 

—  This phase ensures your learning initiative runs smoothly in practice and allows you to adjust 

as needed if something is not working as expected. 

—  This phase helps promote and achieve the  desired learning  goals  in  support of  successful 

implementation of your policy or programme. 

(28) 

A pertinent remark on terminology used in the description in this phase: the term ‘implementation’ refers to the delivery of your 
learning  initiative  and  thus  its  implementation  (not to  the  implementation  of  your  policy  or  programme),  unless  otherwise 
indicated. 

68 

 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
   
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
What are the activities? 

5.1 Conducting a final review before delivery 

5.2 Monitoring the delivery 

What are the objectives? 

—  To establish a training delivery plan (supported by Activity 5.1). 
—  To deliver the learning initiative (supported by Activity 5.2). 

69 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
7.1.  Activity 5.1. Conducting a final review before delivery 

This is the part where the readiness of the training initiative to ‘go live’ is assessed. It can be assessed 
in terms of 6 elements, as illustrated in Figure 23: 

Figure 24. Training delivery plan 

F. 
Stakeholder 
engagement 

A. 
Learners 

Training 
delivery 
plan 

B. 
Instructors 

E. 
Communication 

C. 
Content 

D. 
Technology 

Source: Created by the authors. 

Each of these elements is described below. 

Things to consider when implementing a learning initiative may vary depending on different features. 
For example, the role of the trainer. The role is different in a self-paced programme and an instructor-
led programme. In a self-paced programme, the learners acquire the knowledge autonomously with 
little or no help from an instructor. By contrast, in an instructor-led programme, the trainer supports 
and facilitates the learners’ absorption of KSAs. 

70 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Box 10. Bear in mind: learning objectives and targeted learners 

Bear in mind: 

Do not lose focus of what you want to achieve with your learning initiative, that is, the learning objectives 
(Activity 4.1) 

Be mindful of the targeted learners (Activity 4.1) and content (Activity 4.2). 

A. 
Learners 

Adequate learner preparation is important, especially in self-paced programmes. 
This is the moment to ensure that the participants are ready for the forthcom-
ing learning process and programme. 

Think about the following: do the learners have the knowledge and skills required to  initiate the 
programme? Do the learners know the learning initiative objectives? Are they aware of their value 
for policy or programme implementation? Are the learners familiar with any background tools or 
software used during the programme? Do the learners have easy access to any and all technology 
required to follow the programme? Do the learners know how to enrol in the programme and is it 
easy to do so? Do the learners know that the programme exists, in the first place? Do the learners 
know how they will be evaluated? 

If the answer to any of these questions is ‘no’ or ‘not sure’, you may want to make some adaptations. 
For instance, if it turns out that the learners do not know how to enrol, you may want to create a 
set of instructions to register. If they do not know how to use a given software, you may want to 
include an extra feature in your learning initiative that explains it or refers the participants to an 
existing guideline from which they can easily learn. 

Ideally, modifications should be made well before the programme is opened to the learners. The 
idea is to ensure learners’ participation and avoid unnecessary misunderstandings that may nega-
tively affect the reputation and impact of the learning initiative, as well as the learners’ satisfaction. 

B. 
Instructors 

It is important that trainers are well prepared when a learning initiative is instruc-
tor-led. Some instructors may have been part of the design or development of 
the programme, so they may be familiar with it. In any case, it is important to 
make sure that the trainers have a comprehensive understanding of the pro-
gramme and its goals. In this regard, planning to ensure readiness is key, espe-
cially if the learning initiatives include a ‘train-the-trainer’ component, which re-

quires additional preparation time. 

71 

 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
Think  about  the  following:  do  the  instructors  know  the  learning  outcomes  of  the  programme  or 
modules?  Are  the  instructors  familiar  with  the  learning  activities?  What  are  the  minimum 
requirements or KSAs that the trainers should have to deliver the programme according to the criteria 
set in Phase 4 (Design)? Do the instructors fulfil these requirements? Do the instructors know how 
learner  progress  will  be  evaluated?  Do  the  instructors  have  the  competences  to  evaluate  the 
performance of the learners? 

If the answer  to any question  is  ‘no’  or ‘not sure’, you may  want  to make some  adaptations.  For 
instance, if an instructor is not sufficiently competent in one sub-area, you may want to create a set 
of guidelines highlighting certain key topics or arrange ad hoc sessions with subject matter experts 
to answer specific questions from the instructor before and/or during the course implementation. 

Modifications should ideally be made well before the first planned session facilitated by the instructor, 
to give the trainer sufficient time to get to know, review or even become competent in each topic and 
thus be able to deliver the programme, while supporting the learners. 

C. 
Content 

Conduct a final quality check of your learning initiative: e.g. check for typos, tech-
nical errors and content consistency. Is the training  duration or content too 
much or too long or too difficult? Will it be feasible for the average targeted 
learner to finish your programme? Make necessary adjustments while ensur-
ing the training narrative remains coherent. 

Ensure that there is a form of certificate or other award – ideally, microcreden-
tials – that certifies the learners’ performance and is given to them after successful completion of 
the programme. 

Ensure that KPIs are in place to measure the training intervention and that they are aligned with the 
learning outcomes of the programme. 

Ensure that all technical features and channels required or used for the programme 

are available and running without any issues. 

D. 
Technology 

Ensure that there is a learner-support mechanism in place. Depending on the 
characteristics and needs of your learning initiative, you may want to set a 
more educational type of support (e.g. provided by the instructor) or a more 
technical type of support (e.g. provided by a help desk or chatbot).  

72 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
  
 
 
   
 
 
 
 
   
 
 
  
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Establish the way you will advertise your course. 

E. 
Communication 

Think about how to promote it to targeted learners. How can you attract their 
attention? How will they know that the training will be available to them? 
How can you attract the target audience? When is the best moment to for-
mally launch the training? For example, can you connect it to or promote it 
through an EU event on the same or a related topic in the policy or programme? 

Bear in mind that a well-promoted learning initiative is crucial to achieving the learning initiative’s 
objectives and avoiding resource waste. If you are going to invest in training, better to make sure to 
make the most out of the investment. 

Draw up a list of events, in chronological order, that are key for the delivery of the programme. For 
instance, should there be an official launch? If so, when? Will there be a communication campaign? If 
so, when should it be ready? 

F. 
Stakeholder 
engagement 

You will have identified the learners you are directly targeting with the training 
— the implementing authorities of your policy or programme — but do not 
overlook or forget to engage with impacted stakeholders (see Activities 2.1 
and 2.2). For instance, consider the broader audience to promote a policy 
diplomacy dimension of the learning initiative (see Activity 1.2). Also think 
about multipliers (see Activity 2.3) who may potentially help to spread the 
word and raise awareness about the learning initiative. Activate the strategic partnerships as 
well (see Activity 3.2) and work within them.   

Define roles and responsibilities of internal and external individuals or organisations involved in the 
implementation of the learning initiative. For instance, where will your programme be hosted online 
and who is responsible for it? If you are working with a training provider, what are division of tasks 
and responsibility between you and them? 

Filling in Table 7 can help you prioritise the work and develop a training delivery plan. 

73 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Table 7. Status of elements of your learning initiative 

Status of 
readiness 

If not ready yet, 
what is required for it to be ready? 

(Yes or no) 

When should this be done? 

Readiness (of) 

A.  Learners 

B. 

Instructors 

C.  Content 

D.  Technology 

E.  Communication 

F.  Stakeholder en-
gagement 

7.1.1.  Your Notes (Activity 5.1) 

Source: Created by the authors. 

As mentioned in the beginning of Section 7, Activity 5.1 supports the following objective: to establish 
a training delivery plan. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

The information may be useful in LaaS Phase 6 (Evaluation), when, as part of the final activity of the 
guide, you will reflect on the experiences gained and lessons learned from developing each phase in 
your learning strategy. 

74 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
7.2.  Activity 5.2. Monitoring the delivery 

This activity is an extended version of the training delivery plan prepared in Activity 5.1. 

Both activities in Phase 5 share the same objective:  ensuring the adequate implementation of the 
training.  But,  while  Activity  5.1  focuses  on  the  learning  initiative  before  its  delivery,  Activity  5.2 
centres on the initiative during its delivery. 

In the table below, you will find a list of suggested features to monitor over the course of your 
learning initiative. It is not exhaustive. It can be useful as an inspiration to create a list of features 
relevant for your specific learning initiative. 

Ensure the following features. 

Table 8. Features to monitor during the learning initiative 

Ensure that there is an open classroom atmosphere. Encourage learners to share their thoughts and ideas. 

o  For instance, at least at the beginning of the programme, ask the learners about their expectations 
for the  learning initiative. You can also check how your programme could facilitate their everyday 
work with the implementation of your policy or programme. 

The learning initiative should be learner-centred in its implementation. Additionally, it should build a sense 
of community among participants, promoting both learner engagement with the course material and in-
teractions between learners. 

o  For example, keep an eye on the group dynamics during implementation of the course. 

Ensure that exchange of information and socialisation are taking place. Additionally, ensure that partici-
pants are discussing and reflecting on ways they are putting their KSAs into practice during the training, 
as well as how they will continue doing so after completing the training. 

o  For instance, promote existing communication mechanisms or channels, such as interactive digital 
forums, to encourage participants to stay in touch during and after the completion of the learning 
initiative – this can facilitate a safe learning environment, while stimulating the successful implemen-
tation of the policy or programme. 

Ensure that the type of learning activities and assessment are adequate for the learners to achieve the 
desired learning outcomes. 

o  For instance, do the activities allow learners to reach the goals of your training? Do the activities or 
topics equip them to successfully implement the policy or programme? Is the development of learners’ 
competences  visible  through  the  type  of  assessment?  What  indicators  will  suggest  whether  your 
learning initiative is successful? Conversely, what indicators would suggest that it is not meeting the 
learners’ expectations?  

75 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Ensure that participants’ feedback channels, such as email communication or surveys, are in place, so that 
participants can share their level of satisfaction and opinion about the programme, including complaints. 

o  For example, you may want to set up more dynamic or ad hoc feedback mechanisms, such as mid-
term focus groups. In any case, remember that many participants may be experts in the content area 
of the policy or programme, so ensure that the existing channel(s) also allows them to share their 
experiences  in  their  Member  States and  get  more  insights  among  participants  on  implementation 
challenges across the EU. 

Ensure that instructor feedback is given in a timely manner and appropriately to the participants. 

o  For example, such feedback should enable the learners to incorporate it in time into their learning 

process, reflect on what they are doing well, and know what they need to improve. 

Ensure that the existing learner assistance mechanisms are reaching the intended objectives and audi-
ences. 

o  For instance, ask the learners if they feel supported when they have questions or are uncertain about 

how to progress in their learning journey. 

Ensure that learners’ progress is followed regularly. 

o  For instance, it is considered good practice to at least hold a mid-term review, to get a sense of how 
the training is performing against your stated KPIs. For example, are participation, progress, and com-
pletion rates as originally expected? If not, what can explain this? 

Ensure that you are making good use of the strategic partnerships (see Activity 3.2) to get support during 
the delivery of your training. 

o  For instance, if you set up a partnership with a subject matter expert, ask them for their availability 
to answer highly specialised and technical questions from learners or instructors. If learning delivery 
is decentralised through organisations in the Member States, make sure you are benefitting from the 
learning and feedback acquired from these experiences. 

Ensure that technology is working as it should be. If not, provide alternative solutions, especially for par-
ticipants with technological challenges. 

o  For example, for areas with slow connections or low bandwidth, alternatives can include shortened 
learning activities, providing a version that summarises key takeaways or making an offline version 
of key online activities available. 

Ensure that  all  desirable  opportunities are  taken  to promote a  broader  understanding  of  the  policy  or 
programme, its potential and underlying principles (see Activity 1.2). Consider the scope of your training 
and whether it is reaching the targeted learners. 

o  For instance, ask learners feedback questions about their level of resistance or receptiveness to the 
policy or programme. Consider how disinformation is being discussed and treated in the classroom. 

Source: Created by the authors. 

Filling in Table 9 helps you monitor and revise the training - and reward yourself for the successes 
as well! So, do not only focus on negative aspects, also look at what is going well. Give space and 
time to identify the positive aspects of the learning initiative and celebrate them with the team! 

76 

 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
  
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
Table 9. Monitoring and revision of your learning initiative 

Feature monitored 

Calibration needed: 
yes/no and why 

If yes, what point needs 
to be modified and when? 

If not, what positive 
features are appreciated by 
the participants? 

Source: Created by the authors. 

7.2.1.  Your Notes (Activity 5.2) 

As mentioned in the beginning of Section 7, Activity 5.2 supports the following objective: to deliver 
the learning initiative. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

The information may be useful in LaaS Phase 6 (Evaluation), when, as part of the final activity of the 
guide, you will reflect on the experiences gained and lessons learned from developing each phase in 
your learning strategy. 

77 

 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
8.  Phase 6: Evaluate 

What is this phase about? 

In  this  phase,  you  will  review  the  general  resources  and  inputs  used  in  your  learning  initiative. 
Additionally, you will identify and evaluate training outputs, learning outcomes and the overall results 
of your training. 

This and the previous phase deal with the delivery of your training, but at different times. Phase 6 
looks at the learning initiative after delivery. By contrast, Phase 5 focuses on the learning initiative 
before and during delivery. 

Evaluation is fundamental as per the ‘Better regulation toolbox’. In your case, this phase serves to 
assess  whether  the  learning  objectives  have  been  met,  the  learning  process  addressed  the 
competence needs originally identified; and, more broadly, the training’s relevance and effectiveness 
for supporting policy or programme implementation. 

It  also  helps  to  promote  evidence-informed  decisions  stemming  from  the  experiences  and  data 
collected through the development of the learning initiative and strategy. 

Box 11. Bear in mind: evaluation is a continuous process 

Bear in mind: 

Evaluating a learning initiative should be a continuous process to maintain its relevance and effectiveness. 

Why is this relevant? 

—  Evaluation clarifies the fundamental aspects required, or invested, to run the learning initia-

tive. 

—  Evaluation helps establish a baseline for assessing whether the investment was proportionate 

to, for instance, the impact of the learning initiative. 

—  This phase assesses the adequacy of training choices in relation to learner preferences and 

needs and identifies areas for improvement. 

—  This phase reflects on the effectiveness of training as a tool to improve policy or programme 

implementation, compared with sanctions for non-compliance. 

—  This phase evaluates how capacity building supports the EU's better regulation agenda, in-

cluding policy formulation and implementation. 

78 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
—  Evaluation integrates the lessons learned during the implementation of the learning strategy 
into the policy cycle, ensuring that insights from implementation inform policy development 
(29). 

What are the activities? 

6.1 Reviewing learning inputs 

6.2 Reviewing outputs and outcomes 

6.3 Conducting an overall evaluation of the learning initiative 

What are the objectives? 

—  To summarise the learning inputs (supported by Activity 6.1). 
—  To evaluate the training outputs and learning outcomes (supported by Activity 6.2). 
—  To measure the impact of the learning initiative, supported by Activity 6.3. 

(29) 

See the ‘Better regulation toolbox’, Tool 1 on ‘Principles, procedures and exceptions’. 

79 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
8.1.  Activity 6.1. Reviewing learning inputs 

Your learning initiative required a collection of materials and resources to run effectively. This activity 
helps you identify which of these inputs were critical, and what categories they fall under. You can 
start this activity immediately after the learning initiative has been delivered, as it focuses on the 
inputs required for its implementation. You can follow the flowchart in the figure below. 

Figure 25. Review learning inputs 

Refresh your mind 

No need to start from scratch. In Phase 3 (Resource) you identified 
existing and non-existing resources considered necessary for 
creating your learning initiative. In Phase 4 (Design) you developed 
the actual assets for the learning initiative. 

By now, your programme has been finalised and delivered. 
Therefore, this is ‘the moment of truth’ where you can 
evaluate what was used and what was not. 

Use the following 
questions as inspiration 
to guide your reflections: 

What learning 
took place? 

In what format? 

With what 
investment? 

For what purpose? 

Guiding questions 

Categories 

Identify at least the 3 following 
categories of elements to look at, 
and the scale/indicators to 
measure them (e.g. size, number): 

Content (e.g. format, 
materials, objectives, 
sessions created) 

Human support (e.g. EU 
staff, individuals, 
organisations outside the 
EU involved) 

Facilities (e.g. physical or 
digital facilities used, 
including technology and 
software). 

For each category above, identify at least the following 2 
aspects, and the scale to measure them (e.g. amount, FTE): 

Budget (e.g. money 

Time (e.g. time spent) 

Aspects 

Include in one single document the information you gathered 
on ‘categories’ and ‘aspects’. 

Keep the inventory as part of your documentation for your 
evaluation. It will be useful in Activity 6.3. 

Inventory 

Once the information has been compiled, highlight the areas 
you consider were essential for achieving the goals of your 
training. Indicate why. 

This exercise will help to distinguish the relevance/priority of 
your inputs. 

Critical areas 

Source: Created by the authors. 

80 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
Your Notes (Activity 6.1) 

As mentioned in the beginning of Section 8, Activity 6.1 supports the following objective: to summarise 
the learning inputs. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

81 

 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
8.2.  Activity 6.2. Reviewing outputs and outcomes 

This activity focuses on evaluating the effectiveness of your learning initiative. It provides a structured 
approach to identifying important outputs, assessing competence development, reflecting on learning 
gaps narrowed, and measuring learning outcomes. 

Box 12. Bear in mind: training outputs versus learning outcomes 

Bear in mind: 

Training outputs are the activities generated from the training or learning initiative (e.g. the number of 
people who successfully completed the training or the number of modules completed), which are expected 
to eventually lead to certain training outcomes. 

Learning outcomes are statements of what a learner knows, understands and is able to do after 
completion of a learning initiative. 

 Assess the outputs of the training 

The figure below includes some examples of what you can evaluate – some features may not be 
applicable/relevant, depending on the specific characteristics of the learning initiative (e.g. self-paced, 
micro learning or in person). 

Figure 26. Assessing outputs of the training 

Number of 
modules 
created 

Number of 
sessions 
organised 

Number of 
learners 
enrolled 

Attendance 
rate per 
module 

Average time 
learners 
engage with 

Learning 
initiative 
completion 

Average time 
to completion 

Drop-off 
rate 

Pass rate 

Learner 
assessment 
average score 

Learner 
satisfaction 
average score 

Source: Created by the authors. 

82 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Information on many of these aspects can generally be gathered via learning analytics, if your learn-
ing initiative is hosted online using a Learning Management System (LMS) ( 30).  You can build on your 
knowledge from Activity 4.2. 

In addition to quantitative measures, you can also take a qualitative approach to assess different 
aspects of your learning initiative. For instance, regarding learner satisfaction, you may want to gather 
learners' opinions via surveys with open-ended questions, such as ‘What did you like the most about 
the training?’, ‘What part(s) did you find particularly useful and why?’, ‘What aspect(s) do you think 
should be improved and why?’. 

To gather this information, you can run a survey immediately after training completion. 

 Assess the extent to which the participants developed their knowledge, skills and 

attitudes (KSA), that is, their overall competences. 

Figure 27. Assessment of KSAs 

Reflect on the questions in the pie chart on the 
left to define the scope of the evaluation. 

Consult the data gathered during the develop-
ment of your learning strategy. 

Draw on the information collected in Activity 
4.1, where you formulated learning outcomes 
using an ‘ ‘action verb + accompaniment’ 
method. Use this as a basis for evaluating the 
extent to which the participants reached the 
expected competence level or, in other words, 
to what degree the learners were able to ac-
complish the intended learning outcomes. 

Additionally, you can use participants’ assess-
ments as an input for the evaluation. 

In terms of timing, you can conduct this evalu-
ation immediately after training completion 
(and, if possible, before the training as well to 
be able to make a before-after comparison). 

Which KSAs did 
participants 
improve? 

What intended 
KSA were 
acquired by 
participants? 

What positive 
perceptions 
were created? 

What learning 
outcomes were 
achieved? 

What learning 
gaps were 
removed or 
narrowed? 

Source: Created by the authors. 

(30) 

For information on LMS analytics, see Famure, L., ‘Using LMS analytics to gain learning culture insight’, eLearning Industry 

website, 17 February 2025, accessed 11 March 2025, https://elearningindustry.com/using-lms-analytics-to-gain-learning-culture-insight. 

83 

 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Review the learning outcomes and identify which ones should be modified or im-

proved. 

The evaluation results provide valuable inputs on what worked well and what did not. Based on these 
findings, determine what needs to be improved before the next iteration. Make modifications espe-
cially where expectations were not met or where desired outcomes can be more easily achieved using 
a different method. 

Ways to improve learning outcomes may include: 

o  clarifying the formulation of a given learning outcome by simplifying the wording or re-

phrasing it; 

o  modifying  a  given  learning  outcome  level  by  targeting  a  higher  or  lower  level  within 
Bloom’s taxonomy (the previously mentioned framework for categorising learning objec-
tives seen in Activity 4.1); 
reducing the number Learning Outcomes by removing or merging some of them. 

o 

Filling in the table below helps you keeping track of feedback. 

Table 10. Tracking feedback 

Learning outcome 
reviewed 

Does the reviewed 
learning outcome need 
improvement? Yes/No 

If yes, 

Why? 

How 

When? 

Learning 
improved 

Source: Created by the authors. 

84 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
8.2.1.  Your Notes (Activity 6.2) 

As mentioned in the beginning of Section 8, Activity 6.2 supports the following objective: to evaluate 
the training outputs and leaning outcomes. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

85 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
8.3.  Activity 6.3. Conducting an overall evaluation of the learning initiative 

Activity 6.2 focused on evaluating the impact of your training on the learning process. 

This Activity now goes beyond the classroom, assessing the impact of your learning initiative on policy 
or programme implementation. 

 Consider different levels of evaluation. 

For a comprehensive evaluation, it is essential to consider various aspects and levels. A framework 
for this is the Kirkpatrick model, which is widely used by learning and development professionals to 
evaluate training  (31).  It can give valuable insights  into assessing  your  learning  initiative and help 
identify areas for improvement. 
The Kirkpatrick model proposes four levels or criteria to evaluate the results of a learning initiative, 
from level 1 to level 4: reaction, learning, behaviour, and results (32). 

For this activity, you will use an extended model that includes two additional levels: level 5 on return 
on investment (ROI) analysis and level 6 on cost-benefit analysis (CBA). These levels are illustrated 
in  the  figure  below.  The  last  two  levels  can  be  very  resource-demanding;  thus,  we  recommend 
assessing in each case whether it is sensible to spend the resources of the EU institutions on this 
analysis. 

While  ROI  analysis  includes  the  most  tangible  gains  or  benefits  in  terms  of  money,  CBA  is  more 
comprehensive. CBA  also considers  the quantification of intangible,  implicit  and  indirect  costs and 
benefits ( 33). 

As you prepare to use the extended Kirkpatrick model, recall that you were briefly introduced to the 
original model in Phase 4 (Activity 4.2, Component 3), where you set general parameters or indicators 
for a successful training according to the criteria of this model. In this activity, you will further develop 
your evaluation by specifying indicators, investment details, and broader benefits. 

The figure below shows six levels in the evaluation pyramid and how to address each level. 

(31) 

(32) 

(33) 

The Kirkpatrick model is one of the most widely used frameworks for training evaluation, largely because it provides a relatively 
simple and pragmatic system with a structured approach for practitioners to assess training. Other models have followed based 
on the Kirkpatrick model (e.g. the organisational elements model and the context, input, reaction, outcome approach), as well as 
on different approaches (e.g. evaluative enquiry or the balanced scorecard). For a comparison of the Kirkpatrick model with other 
models, see Tamkin, P., Yarnall, J. and Kerrin, M., Kirkpatrick and Beyond: A review of models of training evaluation, Report 392, 
Institute for Employment Studies, Brighton, 2002. 
For more information on the levels of the model and case studies of implementation, see Kirkpatrick, D. L. and Kirkpatrick J. D., 
Evaluating Training Programs: The four levels, 3rd edition, Berrett-Koehler Publishers, San Francisco, 2006. 
For further information on cost–benefit analysis, including types of costs and types of benefits, see the ‘Better regulation toolbox’, 
Tool 56. 

86 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Consider the following: 

Start at the  bottom  of  the  pyramid by  evaluating level 1  (reaction)  and  then  move  up  to level 2 
(learning), and so forth. 

You can build up the results for evaluation in such a way that (some of) the findings at a lower level 
can be used at a subsequent higher level. 

87 

 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
Figure 28. The six-level evaluation pyramid 

Level 

Questions 
What questions 
can guide you? 

Goal 
What do you 
want to 

Techniques 
What means or 
tools can be 

Timing 
When can the 
evaluation be 

6 

CBA 

5 

ROI 

Results 

4 

3 

Behaviour 

2 

Learning 

Is policy or programme
implementation better, 
faster and smoother 
after your training?
What are the benefits 
on the ground? Are
these more than the 
costs incurred? 

The impact on the
ground in terms of 
the benefits brought 
there. 

Cost-benefit analysis
(are the benefits
higher than the costs? 

It can vary according 
to the timing of 
previous levels. 

Was the investment 
made in the training 
worth it? 
What is the monetary 
value of the results (level 
4), and is this more than 
the investment/costs?
Are the gains more than 
the costs? 

The return obtained 
for the costs made 
(in other words, the 
extent to which the 
money spent on the
training translated
into gains). 

Analysis of gain and 
costs (i.e. when the 
results are monetarized, 
how do they compare 
with the costs? 
ROI is positive when the 
results are higher than 
the costs. 

It can vary according to 
the timing of previous 
levels. 

To what extent did 
the intended 
outcomes 
materialise (as a 
result of the 
training)? 

How much impact had 
the training on the 
participants’
performance 
implementing your
policy or programme? 

To what extent did 
participants apply 
in practice what 
they learned? 

To what extent did 
participants’
behaviour change 
from the one they had
before the training? 
Are they more 
efficient or effective? 

To what extent did 
participants acquire 
the intended KSA? 

To what extent 
participants increased 
or improved their 
KSA? 

The overall success 
of the training (but 
be clear what 
features and 
indicators will be 
exactly measured). 

Surveys, interviews 
with ex-participants /
alumni. 

It can vary between 
1 and 3 quarters, or 
more time as 
necessary to confirm 
(or discard) a change. 

The extent to which 
the behaviour of the 
participants evolved 
after the programme 
and how much is 
then used in 
practice/on the job. 

Surveys, interviews 
with ex-participants /
alumni. 

It can vary between 
1 and 3 quarters, or 
more time as 
necessary to confirm 
(or discard) a change. 

The extent to which 
participants developed 
the intended 
knowledge, skills and 
attitudes. 

Participants’ 
assessments. 

Immediately (and
often also before the 
training for
comparative
purposes). 

”

 “

Participants
’
quantitative and 
qualitative feedback
(e.g. number of  likes  to 
the training, course 
evaluation 
questionnaires,
interviews); learning
analytics on the training 
(e.g. attendance,
completion). 

Immediately. 

1 

Reaction 

How well did 
participants react 
to the training? 

How much did they 
enjoy it? Did they find
it relevant, useful or 
easy to apply? How
satisfied were they? 

The way participants
felt about the training
and liked it (e.g. 
programme
objectives, materials, 
content, instructor s 
knowledge). 

’

Source: Created by the authors. 

88 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
        
 
 
           
 
 
          
 
 
 
        
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
In addition to using data from a lower level in the evaluation pyramid, you can use data previously 
gathered while developing your learning strategy. For example, the following activities and exercises 
could yield useful data. 

—  The findings on training outputs in Activity 6.2 can be useful for evaluating level 1 (reaction). 
—  The results  from learners’  competence  development  from  Activity  6.2  are relevant  for level 2 

(learning). 

—  The TNA from Activity 2.4 can serve as a useful benchmark for evaluating level 3 (behaviour). 
—  The findings from Activity 6.1 can help evaluate, for example, level 5 (ROI). 
—  When working on level 6 (CBA), consider the vision statement from Activity 1.1. 

In the evaluation process, consider feedback or information not only from participants who completed 
the course, but also from those who did not finish it (after a reasonable completion time frame). This 
may tell you something about whether their non-completion was related to the quality of your pro-
gramme resistance to your policy or programme, or something else. 

 Assess policy diplomacy. 

Consider the policy diplomacy dimension of your learning initiative. For instance, estimate the impact 
of your learning intervention on the perception and adoption of your policy or programme. You can 
consider the extent to which it had a positive and/or negative effect. 

This can be done by including evaluation questions on any of the four aspects of the PRUV model, as 
conceived in Activity 1.2: perception, rationale, understanding, and values. 

 Evaluate overall effectiveness. 

Assess the overall effectiveness of your learning initiative in achieving the learning outcomes. Analyse 
the data collected from different stages of the programme and evaluate the success of the training 
in achieving its goals. 

—  When  evaluating  the  overall  effectiveness  of  your  learning  initiative,  you  can  think  about  the 

following questions: 

—  Can I consider my learning initiative successful? Why or why not? 
—  What were the most effective activities? 
—  Was the policy or programme implemented consistently across communities or sectors? 
—  What external factors influenced the implementation? 
—  Was the policy or programme implemented as intended? 
—  Were implementation challenges reduced? 

 Revise the learning initiative and incorporate contemporary learning trends. 

Establish what areas of your training need to be revised. Specify the areas that need revision and the 
tasks to be done, by whom, and when. Consider any budgetary implications and include a timeline for 
releasing the revised version of the modules and the entire learning initiative. 

89 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Consider contemporary learning trends when revising your learning initative. Take a quick scan of new 
trends, such as innovative pedagogical or technological developments, and evaluate their relevance 
to your programme. Consider incorporating these trends to help achieve the learning outcomes. 

 Communicate relevant improvements made to stakeholders. 

Share with your team, learners and other relevant stakeholders a summary of the key findings of the 
evaluation and how your learning initiative has been adapted and improved. 

This is a way not only to inform stakeholders about what was done, but also to increase trust in the 
learning intervention and to get more participants in  the training and supporters of your policy or 
programme. 

 Finally, reflect on the experiences gained and lessons learned from developing each 
phase in your learning strategy. 

Lessons learned are statements of what should or should not be done, supported by sufficient evi-
dence ( 34). 

By reflecting on the experiences gained and lessons learned, you can identify best practices and areas 
of improvement. 

Prepare a summary of key lessons learned during the development of your training, as designed in 
Phase 4 and delivered in Phase 5. Also include lessons drawn during your learning strategy journey, 
which was initiated in Phase 1, by thinking about learning for policy implementation early in the policy 
cycle. 

You can reflect upon the following aspects indicated in the figure below. 

(34) 

For examples of descriptions of lessons learned and further information, see, for instance, Macfarlan, A., ‘Lessons learnt’, Better 
Evaluation website, undated, accessed 11 March 2025, https://www.betterevaluation.org/methods-approaches/methods/lessons-
learnt. 

90 

 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Figure 29. Reflection on lessons learned 

What did you learn about the needs of the implementing authorities on the ground? 

What did you learn about impacted stakeholders in the Member States?  Where applicable, what did you learn 
from non-Member State authorities? 

What are the top three positive aspects implementing authorities (in Member States and, where applicable, in non-
Member States) learned from your training? 

What are the top three features or areas where the learning initiative contribute to improvements in the 
implementation of your policy or programme? 

What were common barriers to successful implementation of your learning initiative? 

Were there any (negative or positive) unintended consequences of your learning initiative? 

If you had the necessary resources to invest, what would you do differently next time, considering all the 
information gathered and lessons learned since you started developing your learning strategy? 

What would you do the same next time? 

Source: Created by the authors. 

To support your thinking, you can use the findings of the main outputs produced in each phase and 
the relevant notes you have developed while carrying out the activities.  Ideally, include at least one 
lesson learned from each phase. 

You can use the flowchart in the figure below to guide your thinking through the different phases in 
the LaaS guide. 

Figure 30. Lessons learned from each phase 

Key 
lesson(s) 
learned 

Key 
lesson(s) 
learned 

Key 
lesson(s) 
learned 

Key 
lesson(s) 
learned 

Key 
lesson(s) 
learned 

Key 
lesson(s) 
learned 

Source: Created by the authors. 

91 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
 
 
 
 
 
 
    
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Integrate the most strategic lessons learned into the policy cycle to improve policy im-
plementation. 

8.3.1.  Your Notes (Activity 6.3) 

As mentioned in the beginning of Section 8, Activity 6.3 supports the following objective: to measure 
the impact of the learning initiative. 

Write  down  any  relevant  aspect  you  notice(d)  while  carrying  out  the  activities  in  support  of  this 
objective. 

Congratulations. You made it!!! 
This is the end of 
your learning strategy. 

92 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
  
 
9.  Conclusions 

This report presents a step-by-step guide for embedding learning at the heart of policy design and 
delivery, contributing to better EU policy design and implementation in the digital era. 

Implementation is a central stage in the policy cycle and a key focus area in the political guidelines 
of  the  2024-2029  European  Commission.  Meanwhile,  studies  show  that  problems  with  effective 
implementation of EU policies persist and that Member States could save EUR 64.2 billion annually 
by improving their administrative performance. 35  The lack of adequate or insufficient competences 
for implementation among implementing authorities at national, regional or local level is part of the 
problem.  By  providing  training  to  implementing  authorities,  we  can  build  capacity  and  overcome 
competence shortfalls. 

Accompanying policy and programme officers to think strategically about how learning can support 
the EU  and its  Member  States,  the  Learning as a strategy (LaaS) guide will contribute  to positive 
outcomes  of  EU  interventions  and  desirable  social  change.  The  guide  stresses  it  is  about  being 
visionary,  considering  learning as  an  investment  to support  implementation in  the long  run  rather 
than a one-time injection of resources. It is about helping Member States saving valuable resources, 
by  improving  their  administrative  performance  through  capacity  building.  And  it  is  about  using 
learning as soft tool to promote better EU policy understanding and implementation, creating value 
for citizens, businesses and stakeholders. 

The Learning as a strategy guide brings together, in one place, a comprehensive step-by-step guide 
for developing learning strategies in support of implementation of EU policies and programmes. The 
LaaS  guide,  with  its  six  phases,  see  figure  below,  can  be  deployed  as  a  whole,  in  a  step-by-step 
approach, or partially to address specific outstanding issues in an existing learning initiative. 

Figure 31. The six phases of the Learning as a strategy guide 

Source: Created by the authors. 

Ultimately,  if  citizens,  businesses  and  stakeholder  do  not  experience  the  intended  benefits  and 
outcomes  of EU  interventions, this reflects  negatively on the  EU, which  is exactly  why  a strategic 
learning approach in support of policy implementation is even more important. 

35  Communication from the Commission to the European Parliament, the Council, the European Economic and Social Com 
mittee and the Committee of the Regions – Enhancing the European Administrative Space (ComPAct), COM(2023) 
667 final, 25.10.2023 

93 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
References 

Edmondson, A. C., ‘Strategies for learning from failure’, Harvard Business Review website, April 2011, 
accessed 11 March 2025, https://hbr.org/2011/04/strategies-for-learning-from-failure 

European Commission (2023), ‘Communication from the Commission to the European Parliament, the 
Council,  the  European  Economic and Social  Committee and the Committee of  the  Regions – 
Enhancing the European administrative space (ComPAct), COM(2023) 667 final of 25 October 
2023’, https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52023DC0667. 

European Commission, ‘Better regulation toolbox’, 20 July 2023, 

https://commission.europa.eu/law/law-making-process/better-regulation/better-regulation-
guidelines-and-toolbox_en. 

European  Commission,  ‘Communication  from  the  Commission  to  the  European  Parliament,  the 
Council,  the European Economic and Social  Committee and the Committee of  the  Regions – 
Enforcing  EU  law  for  a  Europe  that  delivers,  COM(2022) 518  final  of  13 October  2022’, 
https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex:52022DC0518. 

European Commission, ‘Commission staff working document – Better regulation guidelines, 

SWD(2021) 305 final of 3 November 2021’, 
https://data.consilium.europa.eu/doc/document/ST-14004-2021-INIT/en/pdf. 

Famure,  L.,  ‘Using  LMS  analytics  to  gain  learning  culture  insight’,  eLearning  Industry  website, 
17 February  2025,  accessed  11 March  2025,  https://elearningindustry.com/using-lms-
analytics-to-gain-learning-culture-insight. 

Hearn, P., Elias, L., and Ganescu, E., ’Learning as a strategy’ for better EU policy understanding and 
the  Digital  Era’,  Digital  Society,  Vol.  2,  No.  13,  2023, 

implementation 
https://doi.org/10.1007/s44206-023-00037-3. 

in 

Kirkpatrick,  D. L.  and  Kirkpatrick,  J. D.,  Evaluating  Training  Programs:  The  four  levels,  3rd  edition, 

Berrett-Koehler Publishers, San Francisco, 2006. 

Macfarlan,  A.,  ‘Lessons  learnt’,  Better  Evaluation  website,  undated,  accessed  11 March  2025, 

https://www.betterevaluation.org/methods-approaches/methods/lessons-learnt. 

Tamkin, P., Yarnall, J. and Kerrin, M., Kirkpatrick and Beyond: A review of models of training evaluation, 

Report 392, Institute for Employment Studies, Brighton, 2002 

von der Leyen, U., ‘Europe’s choice – Political guidelines for the next European Commission 2024– 
2029’,  18 July  2024,  https://commission.europa.eu/document/download/e6cd4328-673c-
4e7a-8683-f63ffb2cf648_en?filename=Political%20Guidelines%202024-2029_EN.pdf. 

94 

 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
   
 
 
 
 
 
   
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
List of abbreviations and definitions 

Term 

Definition 

Attitude 

Capacity 

Disposition and mindset to act or react to ideas, persons or situations. 

Ability  to  perform  based  on  sufficient  resources,  from  financial  to 
knowledge and expertise. 

Capacity building 

Process of developing and strengthening the competences and resources 
that individuals and organisations need to perform in each area through 
training. 

Competence 

Combination of knowledge, skills and attitudes. 

Impacted or 
concerned 
stakeholders 

Implementing 
authority 

Knowledge 

Learner 

Learning 

The  broad  range  of  actors  affected  or  concerned  by  the  EU  policy  or 
citizens,  non-governmental 
programme, 
the 
organisations 
implementing authorities. 

such  as  businesses, 
(NGOs)  or  public  authorities,  but  excluding 

Organisational entity responsible for implementing a given EU policy or 
programme.  The  terms  ‘implementing  authority’  and  ‘Member  State 
authority’ are used interchangeably, only when it is already clear that the 
reference is to Member State authorities involved in implementation 

Combination of the facts, figures, concepts, ideas and theories that are 
already established and support the understanding of a certain area or 
subject. 

Someone  who  is  learning  a  given  subject.  The  terms  ‘learner’  and 
‘participant’ are used interchangeably. 

Systematic  acquisition  and  development  of  knowledge,  skills  and 
attitudes 
targeted  educational  activities  and  practical 
experience, to facilitate the capability to act. 

through 

Learning outcome 

Statements  of  what  a  learner  knows,  understands  and  can  do  after 
completion of a learning initiative. 

Learning initiative 

Planned  arrangement  of  activities  and  tasks  to  acquire  or  develop 
specific competences for achieving certain learning outcomes. The terms 
‘learning initiative’ and ‘training’ are used interchangeably. 

95 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Learning strategy 

Set  of  systematic  and  strategic  steps  and  actions  for  achieving  a 
successful learning initiative. 

Member State 
authority 

Organisational entity responsible for implementing a given EU policy or 
programme.  The  terms  ‘Member  State  authority’  and  ‘implementing 
authority’ are used interchangeably, only when it is already clear that the 
reference is to Member State authorities involved in implementation. 

Participant 

Policy 

Someone who is taking part in a learning initiative or training. The terms 
‘participant’ and ‘learner’ are used interchangeably. 

Overall  guidelines  and  rules,  setting  a  course  of  action  to  achieve  a 
certain goal. 

Policy diplomacy 

Process of showing the potential of a given policy or programme and its 
underlying principles. 

Programme  (in  the 
context of a policy) 

Specific set of activities or initiatives that contribute to the delivery of a 
policy and translate it into action. 

Skills 

Training 

Ability  and  capacity  to  carry  out  the  processes  and  use  the  existing 
knowledge to achieve results. 

Planned sets of activities for organisations and individuals to acquire or 
develop  specific  competences  to  achieve  a  given  goal.  The  terms 
‘training’ and ‘learning initiative’ are used interchangeably. 

Training 
plan 

delivery 

Outline  of  the  actions  required  to  successfully  launch  the  learning 
initiative or training. 

Training outcome 

The result of the training or learning initiative in terms of the value added 
or impact created after completing it (e.g. improvement of a given aspect 
or achievement of the learning outcomes). 

Training output 

Activities generated from the training or learning initiative (e.g. number 
of  people  successfully  completing  the  training,  number  of  modules 
completed  or  training  feedback  score),  which  are  expected  to  lead  to 
specific training outcomes. 

96 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
List of boxes 

Box 1. Learning as a soft instrument............................................................................................................................ 13 

Box 2. Bear in mind: competences are a combination of knowledge, skills and attitudes ................... 16 

Box 3. The vision statement is a guiding star for your learning initiative. ................................................... 19 

Box 4. Bear in mind: policy diplomacy........................................................................................................................... 20 

Box 5. Revisit your vision statement.............................................................................................................................. 21 

Box 6. Bear in mind: generic competences ................................................................................................................. 25 

Box 7. Bear in mind: specific competences................................................................................................................. 25 

Box 8. Bear in mind: implementing authority, concerned stakeholders, and multipliers ....................... 34 

Box 9. Bear in mind: implementation styles and learning needs differ between Member States .... 47 

Box 10. Bear in mind: learning objectives and targeted learners..................................................................... 71 

Box 11. Bear in mind: evaluation is a continuous process .................................................................................. 78 

Box 12. Bear in mind: training outputs versus learning outcomes.................................................................. 82 

97 

 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
List of figures 

Figure 1. The four principles LaaS is based upon..................................................................................................... 14 

Figure 2. Considerations for creating a vision statement for your learning initiative ............................. 18 

Figure 3. Creating a vision statement for your learning initiative.................................................................... 19 

Figure 4. PRUV Model (Perception, Rationale, Understanding, Values)........................................................... 21 

Figure 5. Competences: knowledge, skills and attitudes....................................................................................... 23 

Figure 6. Generic and specific competences............................................................................................................... 24 

Figure 7. Identifying generic competences.................................................................................................................. 24 

Figure 8. Identifying specific competences................................................................................................................. 25 

Figure 9. Guiding questions for identifying specific competences ................................................................... 26 

Figure 10. Stakeholder and competence canvas...................................................................................................... 27 

Figure 11. Competence proficiency levels................................................................................................................... 31 

Figure 12. Mapping implementing authorities........................................................................................................... 36 

Figure 13. Team process for stakeholder identification ....................................................................................... 39 

Figure 14. Stakeholder prioritisation matrix............................................................................................................... 40 

Figure 15. Identifying potential multipliers................................................................................................................. 42 

Figure 16. Training Needs Analysis ................................................................................................................................ 44 

Figure 17. Reflect on results from TNA ........................................................................................................................ 47 

Figure 18. Identifying resources for your learning initiative............................................................................... 51 

Figure 19. Process for setting up strategic partnerships...................................................................................... 55 

Figure 20. Five components of your learning imitative......................................................................................... 57 

Figure 21. Components of your learning initiative: ‘learning outcomes’ and ‘learners’.......................... 59 

Figure 22. Bloom’s taxonomy............................................................................................................................................ 60 

Figure 23. Components of your learning initiative, ‘content’, ‘assets’ and ‘pilot’ ...................................... 63 

Figure 24. Training delivery plan...................................................................................................................................... 70 

Figure 25. Review learning inputs................................................................................................................................... 80 

Figure 26. Assessing outputs of the training............................................................................................................. 82 

Figure 27. Assessment of KSAs ....................................................................................................................................... 83 

Figure 28. The six-level evaluation pyramid .............................................................................................................. 88 

98 

 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Figure 29. Reflection on lessons learned ..................................................................................................................... 91 

Figure 30. Lessons learned from each phase............................................................................................................ 91 

Figure 31. The six phases of the Learning as a strategy guide......................................................................... 93 

99 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
List of tables 

Table 1. The six phases and outputs of the Learning as a strategy guide...................................................... 6 

Table 2. The six phases, and related activities, of the Learning as a strategy guide ................................. 9 

Table 3. Example of competence matrix ...................................................................................................................... 32 

Table 4. Six tests for stakeholder identification........................................................................................................ 38 

Table 5. List of questions to understand the current state of affairs............................................................. 46 

Table 6. Identify and assess resources for your learning initiative.................................................................. 51 

Table 7. Status of elements of your learning initiative ......................................................................................... 74 

Table 8. Features to monitor during the learning initiative ................................................................................. 75 

Table 9. Monitoring and revision of your learning initiative ................................................................................ 77 

Table 10. Tracking feedback.............................................................................................................................................. 84 

100 

 
 
 
  
 
 
   
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Annexes 

Resource 1. Pool of generic competences 

Resource 2. Additional references of generic competences 

Resource 3. Pool of European Commission competence frameworks 

Resource 4. Checklist of outputs of the LaaS Guide 

101 

 
 
  
 
 
 
 
 
 
 
 
  
 
 
Resource 1. Competence frameworks, competences and clusters36 

Innovative Policymaking 

Science for Policy 

EntreComp 

LifeComp 

DigComp 

DigCompEdu 

DigCompConsumers 

GreenComp 

Competences: 36 

27 

15 

9 

21 

22 

14 

12 

Identifying & framing 
policy problems 

Designing & evaluating 
strategy and policy 

Evidence needs 

Spotting opportunities 

Self-regulation 

Policy relationships & networks 

Creativity 

Flexibility 

Browsing, searching and 
filtering data, information and 
digital content 
Evaluating data, information 
and digital content 

Professional 
collaboration 

Organisational 
communication 

Browsing, searching and filtering 
information on goods and services 

Valuing sustainability 

Evaluating and comparing 
information on goods and services 
Recognising and evaluating 
commercial communication and 
advertisement 

Supporting fairness 

Promoting nature 

Managing digital identity and profile 
in the digital market place 

Systems thinking 

Considering responsible and 
sustainable consumption in digital 
markets 
Interacting in the digital marketplace 
to buy and sell 

Critical thinking 

Problem framing 

Futures literacy 

Adaptability 

Exploratory thinking 

Negotiating 

Monitoring & evaluation of 
impact 

Vision 

Wellbeing 

Managing data, information and 
digital content 

Reflective practice 

Drafting briefings & 
speeches 

Knowledge brokering 

Valuing ideas 

Empathy 

Interacting through digital 
technologies 

Digital CPD (continuos 
professional 
development) 

Policy advice 

Working with values 

Ethical and sustainable 
thinking 

Communication 

Sharing information and content 
through digital technologies 

Selecting 

Creative thinking 

Political sensitivity 

Self-awareness & self-
efficacy 

Collaboration 

Engaging in citizenship through 
digital technologies 

Creating & modifying 

System thinking 

Drafting briefings 

Motivation & 
perseverance 

Growth mindset 

Collaborating through digital 
technologies 

Managing, protecting, 
sharing 

Participating in collaborative 
economy platforms 

Critical thinking 

Writing for policymakers 

Mobilising resources 

Critical thinking 

Netiquette 

Teaching 

Learning & unlearning 

Communities of practice 

Financial & economic 
literacy 

Managing learning 

Managing digital identity 

Guidance 

Managing payments and finances 
through digital means 

Understanding copyrights, licences 
and contracts of digital goods and 
services 

Managing transformations 

Communication mindset 

Mobilising others 

Developing digital content 

Collaborative Learning 

Managing personal data and privacy 

Political agency 

Scientific & data literacy 

Clear writing 

Taking the initiative 

Integrating and re-elaborating 
digital content 

Self-regulated learning 

Protecting health and safety 

Collective action 

Identifying evidence needs 

Speaking with impact 

Planning & management 

Copyright and licences 

Assessment strategies 

Sharing information with other 
consumers in the digital marketplace 

Individual initiative 

Connecting to experts 

Storytelling & visual literacy 

Coping with uncertainty, 
ambiguity & risk 

Programming 

Analysing evidence 

Gathering evidence 

Dealing with mis and 
disinformation 

Working with others 

Protecting devices 

Feedback & planning 

Assessing evidence 

Interacting with different media 

Learning through 
experience 

Protecting personal data and 
privacy 

Accessibility & 
Inclusion 

Asserting consumer rights in the 
digital marketplace 

Identifying digital consumer 
competence gaps and limits 

Working with data and 
models 

Communicating scientific 
uncertainty 

Protecting health and well-being 

Anticipatory mindset 

Engagement mindset 

Solving technical problems 

Differentiation & 
personalisation 

Actively engaging 
learners 

Identifying needs and 
technological responses 

Information & media 
literacy 

Creatively using digital 
technologies 

Communication 

Identifying ditical competence 
gaps 

Content creation 

Responsible use 

Problem solving 

Scanning for change 

Understanding change 

Influencing change 

Engagement mindset 

Planning & designing 
citizen engagement 

Conducting citizen 
engagement 

Planning & designing 
stakeholder consultation 

Conducting stakeholder 
consultation 

Planning & designing citizen 
engagement 

Implementing citizen 
engagement 

Planning & designing 
stakeholder consultation 

Implementing stakeholder 
consultation 

Collaborative mindset 

Group dynamics 

Empathy & emotion 

Intercultural sensitivity 

Collaborative mindset 

System thinking 

Collaborative processes 

Convening & facilitating 

Convening & facilitating 

Empathy & emotions 

Communities of practice & 
networks 

(36)  The table was compiled based on existing European Commission competence frameworks (the titles indicated in the first line). For 
links to these  competence frameworks, see  Resource 3 (in the Annex). As can be  seen  in the table, the total number of competences 
(indicated in the purple cells) in these frameworks varies from 9 (LifeComp) to 36 (Innovative Policymaking). The competences are grouped 
in clusters (numbered in the green cells), which vary from three clusters (EntreComp) to seven clusters (Innovative Policymaking). In each 
competence framework  column, the features with similar colours below and above the rows or clusters belong together –  for example, 
regarding the ‘Innovative Policymaking’ competence framework, the five competences marked in yellow are included in the ‘Collaborate’ 
cluster, also marked in yellow; the six competences marked in dark blue are included in the ‘Communicate’ cluster, also marked in dark 
blue; and so on). 

102 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
  
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Communication mindset 

Clear writing 

Speaking with impact 

Storytelling & visual 
literacy 

Dealing with mis and 
disinformation 

Interacting with media 

Clusters: 7 

5 

3 

3 

5 

6 

3 

4 

Advise the political level 

Understanding policy 

Ideas & Opportunities 

Personal 

Information and data literacy 

Professional 
Engagement 

Pre-purchase 

Innovate 

Participate in policymaking 

Resources 

Social 

Communication and 
collaboration 

Digital Resources 

Purchase 

Work with evidence 

Communicate 

Into action 

Learning to learn 

Digital Content Creation 

Teaching and Learning 

Post-purchase 

Be futures literate 

Engage with citizens and 
stakeholders 

Engage with citizens & 
stakeholders 

Collaborate 

Collaborate 

Communicate 

Safety 

Assessment 

Problem solving 

Empowering Learners 

Facilitating Learner’s 
Digital Competence 

Embodying 
sustainability values, 
including 
competences 
Embracing 
complexity in 
sustainability 

Envisioning 
sustainable futures 

Acting for 
sustainability 

103 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
   
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Resource 2. Further references for generic competences 

Organisation 

Title 

Link 

Joint Research Centre 

Sustainability 
Competences 

European Skills, 
Competences, 
Qualifications and 
Occupations (ESCO) 

Skills and 
competences 

https://publications.jrc.ec.europa.eu/repository/handle/JRC123624 

https://esco.ec.europa.eu/en/classification/skill_main 

European Training 
Foundation (ETF) 

Skilling for the 
Green Transition 

https://www.etf.europa.eu/sites/default/files/2022-
11/Edited%20green%20transition%20policy%20brief_EN.pdf 

Organisation for 
Economic Co-operation 
and Development 
(OECD) 

Core 
Competency 
Framework 

https://www.oecd.org/careers/competency_framework_en.pdf 

United Nations 
Educational, Scientific 
and Cultural 
Organisation (UNESCO) 
and International Centre 
for Technical and 
Vocational Education 
and Training (UNEVOC) 

TVETipedia 
glossary 

https://unevoc.unesco.org/home/TVETipedia+Glossary 

European Centre for the 
Development of 
Vocational Training 
(CEDEFOP) 

Terminology on 
transversal skills 
and 
competences 

MSWG 14-04 Report of the expert group on transversal skills and 
competences.pdf 

104 

 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Resource 3. European Commission competence frameworks 

Competence Framework 

Link 

Innovative policymaking 
competence framework 

‘Science for policy’ 
Competence Framework 

EntreComp (European 
entrepreneurship competence 
framework) 

LifeComp (European 
framework for ‘personal, social 
and learning to learn’ key 
competence 

DigComp 2.2 (digital 
competence framework for 
citizens) 

DigCompEdu (European 
framework for the digital 
competence of educators) 

DigCompConsumers (digital 
competence framework for 
consumers) 

GreenComp (European 
sustainability competence 
framework) 

TaxCompEU (EU taxation 
competency framework) 

CustCompEU (EU customs 
competency framework) 

ResearchComp (European 
competence framework for 
researchers) 

https://publications.jrc.ec.europa.eu/repository/handle/JRC129623 

https://publications.jrc.ec.europa.eu/repository/handle/JRC129623 

https://op.europa.eu/en/publication-detail/-/publication/31e2ee8a-d8fa-11e9-
9c4e-01aa75ed71a1/language-en 

https://publications.jrc.ec.europa.eu/repository/handle/JRC120911 

https://publications.jrc.ec.europa.eu/repository/handle/JRC128415 

https://publications.jrc.ec.europa.eu/repository/handle/JRC107466 

https://publications.jrc.ec.europa.eu/repository/bitstream/JRC103155/lfna28133e 
nn.pdf 

https://publications.jrc.ec.europa.eu/repository/handle/JRC128040 

https://taxation-customs.ec.europa.eu/taxation/eu-training/taxcompeu-eu-
competency-framework-taxation_en 

https://taxation-customs.ec.europa.eu/taxation/eu-training/custcompeu-eu-
customs-competency-framework_en 

https://research-and-innovation.ec.europa.eu/system/files/2023-
04/ec_rtd_research-competence-presentation.pdf 

105 

 
 
  
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
  
 
 
 
  
 
 
  
 
 
  
 
 
  
 
 
 
  
 
 
 
Resource 4. Checklist of the outputs of the LaaS Guide 

Phase 

1. 

Identify 

2.  Analyse 

3.  Resource 

4.  Design 

5.  Deliver 

6.  Evaluate 

Outputs 

  Vision statement for the learning initiative 
  Policy context map, including the policy diplomacy dimension 
  List of generic and specific competences required by implementing 

authorities for the successful implementation of the policy or pro-
gramme 

  Stakeholder and competence canvas 
  Validated competence framework 

  List of implementing authorities for the policy or programme 
  List of impacted stakeholders 
  List of potential multipliers 
 

Identification of learning gaps for implementing authorities 

  List of resources needed for the learning initiative 
  Set up of partnerships to support the learning initiative 

  Learning initiative finalised 
  Pilot run of learning initiative 

  Training delivery plan 
  Learning initiative delivered and monitored 

Inventory of learning inputs 

 
  Assessment of training outputs and learning outcomes 
  Overall assessment of the learning initiative 

106 

 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
  
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
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