Brussels, 19 February 2014
EQF Advisory Group, 26-27 February 2014, Birmingham
Note AG23-8
Revised proposal for exploring the role of the EQF in cooperating with third
countries
At the 22nd meeting of the EQF Advisory Group on 16-17 December 2013, the
Commission presented its first proposal for a systematic approach to using the EQF in
cooperation with third countries. Following the meeting discussion, the members of EQF
Advisory Group were invited to provide written responses on three main questions by 31
January 2013:

What should be the mandate of the EQF Advisory Group in developing a systematic
approach to using the EQF in the context of cooperation with third countries?

What immediate answer should the Commission give to the countries who formally
expressed their interest in the EQF?

What concrete comments do you have on the Commission’s proposal for a
developing systematic approach to use the EQF in cooperation with third countries?
Six members of the EQF Advisory Group (CZ, FR, IE, LU, SK, UK) provided feedback
to the above questions and to using the EQF in cooperation with third countries in
general terms.
This note presents a revised proposal for exploring the role of the EQF in cooperating
with third countries, taking into account the written comments received. The EQF
Advisory Group is invited to discuss the proposals made.
Growing interest in the EQF
Since the development of the EQF and the adoption of the EQF recommendation 1, there
has been an increasing interest towards the EQF as a transparency tool for qualifications
1
See also note AG1-5, AG6-9
AG23-8
across systems and borders and as an instrument for regional cooperation. Many
countries and regions have taken inspiration from the EQF developments for reforms of
education and training systems, or are interested to link to the EQF for various reasons.
This interest is further increasing with the acknowledgement of the high political
commitment to the EQF across Europe and the progress in linking European national
qualifications systems to the EQF. According to the latest survey carried out jointly by
Cedefop, the European Training Foundation and UNESCO, more than 140 countries are
developing or implementing national qualifications worldwide and many regions have
entered into dialogue to establish regional qualifications cooperation with the intention of
making qualifications more transparent in the region, but also to better communicate with
other regions. These developments are seen by many countries in UNESCO as an
opportunity to foster global dialogue on the transparency of qualifications as signalled by
the conclusions of the 2012 UNESCO conference on technical VET in Shanghai.2
Global developments in the area of qualifications also draw attention towards the EQF.
In June 2013, in the framework of the Lisbon Recognition Convention (LRC), 50
countries (28 EU Member States, candidate countries, NO, LI, CH, 11 European
countries participating only in the Bologna process and AUS, CA, NZ, ISR, USA)
adopted a recommendation on the use of qualifications frameworks in the recognition of
qualifications in or access to higher education3. This recommendation explicitly refers to
the EQF. The EQF level to which a national qualification level is related gives an
indication of the level of knowledge, skills and competences acquired, which implies that
the EQF may become a reference tool between the 50 countries of the LRC, in particular
in the context of the recognition of foreign qualifications to access higher education from
other education and training sub-sectors.
Recent discussions in the context of EU cooperation with third countries also refer to the
EQF as a tool for external cooperation. In July 2013, the European Commission adopted
a Communication "European higher education in the world", which emphasizes that the
EQF – together with other tools - has an important role in increasing the transparency
and quality of European higher education and making it more attractive.
Linking international qualifications – whether these are based on international standards
defined by international agreements or awarded by multinational companies - to national
qualifications frameworks in Europe and relating these to the EQF requires European
level coordination, but will also have an international dimension beyond the 36 countries
in the EQF.
In the context of policy dialogue in education and training between the EU and third
countries, cooperation between the EQF and national qualifications frameworks have
been on the agenda of policy exchanges with Australia, Hong Kong and New Zealand in
the last few years. For example, the annual policy dialogue with Australia in 2010
focused on the exchange of information on the Australian Qualifications Framework
(AQF) and the implementation of the EQF. In the policy dialogue, the parties agreed to
2
http://unesdoc.unesco.org/images/0021/002176/217683e.pdf
3
http://www.enic-naric.net/documents/DGIIEDUHE_2012_14_Rev09_FINAL__LRC_Supplementary_Text_on_the_Use_of_QFs_ENGLISH.pdf
2
carry out a joint study which gathered data on the mobility of learners and workers
between the EU and Australia and examined if, and how, qualifications frameworks can
serve as instruments for pursuing closer international cooperation in the field of
qualifications’ transparency and recognition and in particular how the AQF might relate
to the EQF and to European NQFs and how this might affect mobility. The study was
finalised in October 2011 and presented to the EQF Advisory Board in early 2012.
Next to the policy dialogue, an international peer learning seminar on qualifications
framework took place in 2010 with the participation of EQF Advisory Group members
and third countries from around the world. ETF organised further international
conferences on qualifications frameworks in 2011 and 2013.
The three countries mentioned above are the first to formally approach the EU and seek
for cooperation between the EQF and their national qualifications frameworks. All three
have well-established national qualifications frameworks and participate in regional
cooperation projects on qualifications. Exchange of experiences and cooperation would
be beneficial for all parties in better understanding the dynamics of qualifications
frameworks in a global context.
Benefiting from increased transparency of qualifications promoted by the EQF
The overall purpose of the establishment of the EQF is to make European qualifications
systems and their qualifications more transparent and to ensure that learners and workers
benefit from an increased trust towards their qualifications in Europe and beyond.
Currently, however, the legal basis of the EQF implementation, the EQF
Recommendation4, does not make explicit reference to the use of the EQF in cooperation
with third countries. This could call for a revision of the EQF recommendation.
In order to take forward the cooperation with interested countries and provide advice to a
proposal for a potential revision of the legal basis, the Commission proposes that the
EQF Advisory Group should engage in exchange of views with third countries, as well as
prepare and test approaches that could be applied if the legal basis is reviewed. Such a
preparatory phase would without any formal obligations for either party. However, it
would be beneficial as the EQF Advisory Group would have concrete experience to
advice decision makers about the concepts and expectations from a possible revision of
the legal basis. Furthermore, interest and trust in the EQF could also be maintained
through continued exchanges with the countries concerned. If Member States agree on
the revision of the legal basis and parties wish so. more formal engagements could be
launched.
*****
4
2008/C 111/01
3
Follow-up by the EQF Advisory Group – need for a systematic approach
These three formal initiatives provide an important opportunity to the EQF Advisory
Group to start technical work that could prepare a systematic approach to using the EQF
in the context of cooperation with third country qualifications frameworks and test
solutions. This systematic approach could build on two elements:
1. European criteria for cooperation between the EQF and third country or regional
qualifications frameworks;
2. an exploratory process leading to cooperation.
The two elements are described below in order to identify the actions that can be carried
out within the current EQF recommendation and those which could be carried out if a
revision of the recommendation takes place.
1) European criteria for cooperation between the EQF and third country or
regional qualifications frameworks
The EQF serves as a common European reference tool for qualifications. For third
countries, the EQF and the national referencing reports can provide a first entry point to
better understand the different qualifications systems in Europe and to compare them to
their own systems.
Some EU countries, for example, Ireland, Malta and the UK, have already identified how
their national qualifications frameworks compare with some third country qualifications
frameworks or regional frameworks, and it is expected that the use of qualifications
frameworks for the comparison and recognition of qualifications will increase. Bilateral
agreements are in place, but coordinated efforts at the European level would aid the
coherent implementation of the EQF.
This can be done by identifying how third country national qualifications frameworks (or
regional frameworks, as relevant) compare to the EQF. For this purpose, a set of explicit
criteria and procedures is needed, which will aim to ensure that the countries
participating in the EQF and the EQF Advisory Group follow a coherent and consistent
approach to cooperation with all interested third countries; and that such cooperation is
transparent and is trusted by all parties.
The EQF referencing criteria could be the basis for such criteria and arrangements with
third countries. Accompanying guidance on the use of the criteria may also be envisaged.
Work to be carried within the current mandate of the EQF Advisory Group
Under the current legal basis and in preparation for a potential revision, the EQF
Advisory Group could reflect on the appropriateness of the referencing criteria to guide
cooperation with third countries and identify the relationship between the EQF and third
country NQFs. Any necessary adaptations could be produced so that draft explicit criteria
and procedures for cooperation with third countries could be available for testing in early
2015. Such work should be carried out in light of the following questions:
4

What is required from the EQF to be trusted by third countries and regions? What
conditions does the EQF need to meet?

What is required from third countries’ qualifications systems to be trusted? What
conditions need to be met as basis for identifying the relationship between the
EQF and third country frameworks?

What procedures are needed for identifying the relationship between the EQF and
third country national qualifications levels?

What documentation needs to be prepared by the parties involved?

What is the role of the different partners involved?

What are the possible implications of linking a regional framework (the EQF)
with third country national qualifications frameworks
o i) at national level for ET2020 countries;
o
ii) at European level – for the EQF AG, the Commission and its services;
o iii) in third countries (AUS, HK, NZ, etc.)?
Work after a potential revision of the legal basis
If the Commission and Member States decide that EQF recommendation should be
revised to allow, among others, for the further development of the external dimensions of
the EQF, the criteria and procedures could be finalised and possibly be reflected in the
legal basis. Further implementation details could be discussed in the EQF AG, depending
on its possible future mandate in this area.
2) An exploratory process leading to formal cooperation
Work to be carried within the current mandate of the EQF Advisory Group
In parallel to discussing its draft criteria and procedures for cooperation with third
countries, the EQF Advisory Group could also start an exchange of views with the three
countries that have formally showed interest in the EQF. These exchanges should explore
the third country's motivations for cooperation, facilitate a better understanding of their
respective qualifications framework (e.g. is it based on learning outcomes? Is it quality
assured? Are stakeholders involved and support the frameworks? etc.) and to explain the
concepts of the EQF. It could test the possible ways of identifying the "read through"
between qualifications frameworks and explore the implications.
This exploratory process could include the following activities and steps (the process
may be adapted to the specific third country case):
5
A) A feasibility study on the role and potential of using qualifications frameworks
to facilitate the understanding, comparison and recognition of qualifications
Before any formal engagement in a cooperation process using qualifications frameworks,
all parties would benefit from better understanding the scale and nature of mobility that
concerns qualifications between Europe and the third country; the role of the national
qualifications framework of the third country and of its external dimensions; policy
cooperation between the EU and the third country, as well as individual ET2020
countries and the third country concerned in the field of education and training; the role
of qualifications and qualifications frameworks in mobility policy; what works well and
what the obstacles to the recognition of qualifications are; similarities and differences in
QFs and how possible linkage could be realised.
For this purpose, the Commission could carry out a joint study with each interested third
country. As mentioned previously, an EU-Australia was completed in 2011. Similar
studies could be launched with Hong Kong and New Zealand in 2014.
B) Analysis of the results of the feasibility studies in the EQF Advisory Group
The EQF Advisory Group could discuss the results of each study with the third country
concerned and establish an exchange of views to agree on the opportunity and benefits of
further cooperation. Such discussions could also provide useful input into the
development of the European criteria for relating third country qualifications frameworks
to the EQF (see point 1).
C) Technical work on identifying the relationship between the third country
qualifications framework and the EQF
Based on the feasibility studies and analysis, if the EQF Advisory Group and the third
country agree to pursue cooperation, technical work could take place to identify the
relationship between the EQF and the third country qualification framework. This
technical work could be carried out by EU and third country experts. European
representatives would be nominated by the EQF Advisory Group.
The technical work would not entail formal political engagement from either party.
Nevertheless, it would provide input to possible future formal cooperation agreements if
it is decided to revise the legal basis. In this expert work, the criteria developed under
point 1, and accepted by both parties, could be used to explain the relationship between
the EQF and the third country NQF.
The technical work and the resulting report would be discussed in the EQF Advisory
Group and in the relevant authority of the third country.
Work after a potential revision of the legal basis
D) Formal memorandum of understanding/cooperation agreement
If the legal basis of the EQF is revised, the framework of formal cooperation would be
determined. For example, European countries or the EU (depending on the mandate
given in in the legal basis) could sign a memorandum of understanding or cooperation
6
agreement on the use of the EQF and the third country NQF to support the comparison
and recognition of qualifications, in particular for learning purposes.
Roadmap
This sub-chapter makes a proposal for a roadmap leading to establishing a systematic
European approach to using the EQF in the context of cooperation with third countries.
The aim of the roadmap is to present a possible schedule for the various activities and to
show what could be done under the current legal context and in preparation for the new
recommendation and what could be carried out only if the legal basis is revised, and
depending on the mandate given. The approximate date of the possible adoption of a
revised EQF recommendation which is mentioned in the note is hypothetical. It does not
commit either the Commission, or the countries in the EQF.
Work to be carried within the current mandate of the EQF Advisory Group
A) European criteria and procedures for identifying the relationship between third
countries' qualifications frameworks and the EQF
o Development of draft European criteria – Q2 2014– Q2 2015
o Testing of criteria and procedures for identifying the relationship between third
country qualifications frameworks and the EQF – Q3 2015-Q2 2016
B) Piloting exercise/exploratory process with Australia, Hong Kong, New Zealand
o Presentation of and discussion with AUS, HK, NZ in the EQF Advisory Group Q1-Q3 2014
o Analysis of the results of the AUS feasibility study in the EQF Advisory Group –
Q1-Q2 2014
o Technical work on identifying the relationship between the EQF and AUS
qualifications framework – Q2-Q4 2014
o Feasibility study on the role and potential of using qualifications frameworks to
facilitate the understanding, comparison and recognition of qualifications with NZ
and HK – Q2 – Q4 2014
o Analysis of the results of the HK, NZ feasibility studies in the EQF Advisory
Group – Q1-Q2 2015
o Technical work on identifying the relationship between the EQF and NZ and HK
qualifications framework – Q3 2015 – Q1 2016
Work during and after the potential revision of the legal basis
A) Commission proposal for the revision of the EQF Recommendation taking into
account the EQF AG discussion and the piloting – Q1 2016
7
B) Adoption of criteria and procedures for identifying the relationship between the EQF
and third country qualifications frameworks by the EQF Advisory Group– Q3 2016
C) Formal memorandum of understanding/cooperation agreement – Q4 2016
This roadmap is visually presented in a table in annex.
8
Annex to AG23-7 Overview roadmap
Activities
under the
revised legal
basis
Activities under the current legal basis
Elements of the two
systematic approach
European criteria for
identifying the
relationship between
third countries'
qualifications
frameworks and the
EQF
Exploratory process
Actions
Q1
2014
Q2
2014
AUS
AUS
Q3
2014
Q4
2014
Q1
2015
Q2
2015
HK,
NZ
HK,
NZ
Q3
2015
Q4
2015
Q1
2016
Q2 2016
Q3
2016
Q4
2016
Development of proposal for a
draft criteria for identifying the
relationship
between
third
countries'
qualifications
frameworks and the EQF
Testing
of
criteria
and
procedures for identifying the
relationship
between
third
countries'
qualifications
frameworks and the EQF
Finalisation and agreement of
the criteria and procedures
Presentation of and discussion
with AUS, HK, NZ in the EQF
Advisory Group
Feasibility study on the role and
potential of using qualifications
frameworks to facilitate the
understanding, comparison and
recognition of qualifications,
with Hong Kong and New
Zealand
A similar EU-Australia was
already carried out in 2011
Analysis of the results of the
feasibility studies of Hong Kong
and New Zealand in the EQF
Advisory Group; Discussion of
developments since the 2011
AG23-8
EU-Australia
Australia
study
with
Technical work with Australia,
Hong Kong and New Zealand
EQF recommendation
revision
AUS
AUS
AUS
HK,
NZ
Commission proposal for the
revision
of
the
EQF
recommendation
Adoption of revised EQF
recommendation
Formal
memorandum
of
understanding/cooperation
agreement
10
HK,
NZ
HK,
NZ