Europaudvalget 2021
KOM (2021) 0770
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EUROPEAN
COMMISSION
Brussels, 10.12.2021
SWD(2021) 367 final
COMMISSION STAFF WORKING DOCUMENT
Accompanying the document
Proposal for a Council Recommendation
on a European approach to micro-credentials for lifelong learning and employability
{COM(2021) 770 final}
EN
EN
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Contents
Introduction
................................................................................................................................................. 3
1.
State of play
......................................................................................................................................... 4
1.1.
1.2.
Increasing Demand for flexible learning opportunities
........................................................... 4
Main drivers of demand
............................................................................................................. 9
Lifelong Learning and personal development
.................................................................. 9
The right skills for better employability in the EU labour market
.............................. 12
Green transitions
............................................................................................................... 15
Digital transitions
.............................................................................................................. 15
Micro-credentials in higher education
............................................................................ 17
Micro-credentials in Vocational Education and Training (VET)
................................. 25
Private providers
............................................................................................................... 28
1.2.1.
1.2.2.
1.2.3.
1.2.4.
1.3.
1.3.1.
1.3.2.
1.3.3.
1.4.
2.
2.1.
2.2.
2.3.
2.4.
3.
3.1.
3.2.
Overview of current provision of micro-credentials
.............................................................. 15
Potential benefits of Micro-credentials
................................................................................... 31
Lack of definition
...................................................................................................................... 37
Lack of trust
.............................................................................................................................. 42
Lack of transparency
................................................................................................................ 42
Lack of uptake
........................................................................................................................... 44
Outline of the consultation strategy
........................................................................................ 45
Analysis of results across different consultation activities
.................................................... 46
Consultation Strategy and Activities
............................................................................... 46
Roadmap
............................................................................................................................ 46
Open Public Consultation
................................................................................................ 46
Targeted stakeholder events
............................................................................................ 47
Reach of the Stakeholder Consultation Strategy
........................................................... 47
Open Public Consultation and targeted stakeholder consultation events
................... 48
Problem Definition
............................................................................................................................ 36
Available feedback from target and open consultations on the envisaged measures
................. 45
3.2.1.
3.2.2.
3.2.3.
3.2.4.
3.2.5.
3.3.
3.4.
4.
3.3.1.
Findings
...................................................................................................................................... 48
Conclusions
................................................................................................................................ 60
Objectives of the proposal
................................................................................................................ 60
1
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5.
6.
7.
EU added value
................................................................................................................................. 62
What instruments are available?
..................................................................................................... 63
Rationale for key elements of the proposal
..................................................................................... 65
7.1.
A common and transparent definition
.................................................................................... 65
7.2. EU standard for micro-credentials – a defined list of critical elements to describe micro-
credentials
.............................................................................................................................................. 66
7.3.
EU Principles for design and issuance of micro-credentials
................................................. 67
Quality
................................................................................................................................ 68
Transparency
..................................................................................................................... 71
Relevance
........................................................................................................................... 74
Valid assessment
................................................................................................................ 74
Learning pathways
............................................................................................................ 75
Recognition
........................................................................................................................ 79
Portable
.............................................................................................................................. 80
Learner centred
................................................................................................................. 82
Authentic
............................................................................................................................ 82
Information and guidance
................................................................................................ 83
7.3.1.
7.3.2.
7.3.3.
7.3.4.
7.3.5.
7.3.6.
7.3.7.
7.3.8.
7.3.9.
7.3.10.
7.4.
Provisions in the proposal
........................................................................................................ 84
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Introduction
In the Commission political guidelines, Commission President Ursula von der Leyen states her intention
“to bring down barriers to learning and improve access to quality education”, underlining the relevance of
inclusion and quality in lifelong learning as proclaimed in the European Pillar of Social Rights.
Subsequently, the European Skills Agenda, adopted on 1 July 2020, announced among its 12 flagship
actions a new initiative on a European approach to micro-credentials, with the aim to support the quality,
transparency and take-up of micro-credentials across the EU, in order to encourage people to upskill and
reskill in a fast and effective way, in line with needs of the labour market and a fast-changing society.
Equally, the Commission Communication on achieving the European Education Area by 2025, adopted on
30 September 2020, announced that the Commission would work towards the development of a European
Approach to micro-credentials, to help widen learning opportunities and strengthen the role of higher
education and vocational education and training institutions in lifelong learning by providing more flexible
and modular learning opportunities.
As a follow-up to these actions, the 2021 Commission Work Programme
1
commits to proposing a European
approach to micro-credentials under the headline ambition “Promoting our European way of life”.
Accordingly, the European Commission is putting forward a proposal for a Council Recommendation on
Micro-credentials for lifelong learning and employability to adopt a common definition and approach to
quality, transparency, and uptake of micro-credentials, by building on existing tools, as far as possible.
The proposal aims to:
Enable individuals to acquire the knowledge, skills and competences they need to thrive in an
evolving labour market and society, to benefit fully from a socially fair recovery and just transitions
to the green and digital economy;
Support the preparedness of providers of micro-credentials to enhance the transparency and the
flexibility of the learning offer in order to empower individuals to forge personalised learning and
career pathways;
Foster inclusiveness and equal opportunities, contributing to the achievement of resilience, social
fairness and prosperity for all, in a context of demographic change and throughout all economic
cycles.
To achieve these objectives, the proposal establishes a European approach recommending to Member
States to:
Apply a common EU definition, standards and key principles for design and issuance of micro-
credentials;
Develop the eco-system for micro-credentials, and;
1
https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52020DC0690
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Deliver on the potential micro-credentials to support employability and lifelong learning.
This staff working document provides evidence and additional background information to the Proposal for
a Council Recommendation on Micro-credentials for lifelong learning and employability.
Chapter 2
looks at the drivers behind micro-credentials and offers an overview of the state of
play as well as examples of existing practices.
Chapter 3
provides evidence for the need for Council a Recommendation and highlight the value
of an EU-level action.
Chapter 4
summarises the main findings of the consultation process.
Chapter 5
presents the general, specific and operational objectives of the proposal linked with
the problematic issues identified earlier. It also contains a short explanation of necessity and
added value of an EU action.
Chapter 6
presents the conclusions for a European approach and how it would improve the
situation and support the objectives presented in Chapter 5.
1. State of play
Note:
The subject of this Commission proposal is micro-credentials, meaning the record of the learning
outcomes that a learner has acquired following a small volume of learning. The proposal does not focus on
the course or learning experience itself that may lead to the micro-credential (although the course, providers
and other aspects of the learning experience may be an important factor in the quality assurance mechanisms
for the issuance of the micro-credential).
1.1. Increasing Demand for flexible learning opportunities
The phenomenon of micro-credentials is not a new one. Small, usually short in duration courses leading to
different types of awards or credentials, are already dominant in many education and training sectors,
professions and labour market systems e.g. in diving instruction, IT certification, and in continuing
professional development for health workers. The advance of technology, changes to the nature of work and
new ways of learning (supported by the emergence of platforms and online learning) have repositioned the
central learner’s role as they “build their own learning pathways”.
Since the start of the COVID-19 crisis however, there has been an unprecedented surge in demand for
online learning, including for short, tailored courses
2
. Personalised learning, micro-learning and high-
velocity training are amongst the key global education trends identified by Euromonitor. Interest in micro-
2
Cedefop, 2020. Coronavirus boosts interest in online learning. Available at:
https://www.cedefop.europa.eu/en/news-and-press/news/coronavirus-boosts-interest-online-learning
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credentials has exploded. An analysis of Google Trends by Brown et al (2021)
3
reveals that the term 'micro-
credentials' first appeared in Google search results in 2013 and there has been steady and continuous growth
in the number of online searches for the term since then.
Figure 1
shows that the highest point in the trend
data for the term "micro-credentials" was reached in May 2021. This demand for small and shorter learning
options and their recognition is set to continue within the context of the recovery from the COVID-19
crisis.
Figure 1: Growth of micro-credentials evidenced by Google search traffic
Providers and delivery modes of micro-credentials are multiplying, they may be offered by a range of
organisations, not all of which are traditional providers of training and education. Micro-credential
providers include schools, higher education institutions, vocational education and training (VET) providers
and private education and training providers. Providers also include specialised learning platforms,
collaborative initiatives that focus on particular professions and occupations, and a growing number of
companies and professional associations that design their own competency-based offerings. Finally, public
and non-profit bodies such as charities, government departments and international organisations may offer
micro-credentials related to their missions.
Higher education institutions have been active for quite some time in providing lifelong learning
opportunities, or units smaller than full degrees, such as courses, modules, diplomas, parts of degrees, in-
service training, etc
4
. VET programmes have similarly shifted to become more flexible and learner centred,
through face-to-face, digital and blended learning, flexible and modular pathways. Continuing vocational
3
Brown, M., Nic Giolla Mhichíl, M., Beirne, E., & Mac Lochlainn, C. (2021). The global micro-credential
landscape: Charting a new credential ecology for lifelong learning. Journal for Learning Development, 8 (2), 228-
254.
4
MICROBOL. (2021). Micro-credentials linked to the Bologna Key Commitments: Recommendations from the
MICROBOL project for the European Commission’s proposal for a Council recommendation on micro-credentials
for lifelong learning and employability. Available at
https://eua.eu/resources/publications/940:micro-credentials-
linked-to-the-bologna-key-commitments.html
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training is by its nature closely aligned to shifts and demands in the labour market and makes use of micro-
credentials to support individual up-skilling or reskilling needs
5
.
Task and competence-oriented certificates linked to shorter learning experiences, already play an important
role in many parts of the labour market (offered by sectors, private companies, international organisations
and public bodies)
6
. For instance, certificates and small training bundles in technical skills such as welding,
computer networking, or accounting are in high demand in the US
7
).
Figure 2
shows the top 5 most
requested certificates and certifications.
Figure 2: Top 5 US Job requests for
Certificates and Certifications
Major corporate actors have been described as disruptive forces, challenging the status quo of traditional
education and training models through short courses credentialed by corporate actors themselves to support
both entry level and career advancement
8
. Examples include Google which recognises these courses as the
equivalent of a full bachelor’s degree for recruitment selection purposes
9
; and EY and IBM which have
both adopted recruitment strategies that give people a foot in the door based on non-traditional education,
and soft or transversal skills
10
. These organisations also continue to partner with other stakeholders, for
instance, Google recently launched career certification in IT aligned pathways for job seekers, in areas of
5
6
Cedefop, ongoing study
on micro-credentials role in facilitating learning for employment
Cedefop (2021). Microcredentials: are they here, 2nd March. Available from
https://www.cedefop.europa.eu/en/news-and-press/news/microcredentials-are-they-here-stay
7
Markow, W., Restuccia, D., Taska, B., & Bittle, S. (2017). The Narrow Ladder: The Value of Industry
Certifications in the Job Market. Report: BurningGlass Technologies. Available at
https://www.burning-
glass.com/wp-content/uploads/BurningGlass_certifications_2017.pdf
8
Fain,P., (2019) Employers as Educators, InsideHigherEd,
9
Bariso, J. (2020). Google has a plan to disrupt the college degree. Inc, 19 August.
https://www.inc.com/justin-
bariso/google-plan-disrupt-college-degree-university-higher-education-certificate-project-management-data-
analyst.html
10
Oliver, B. (2019). Making micro-credentials work for learners, employers and providers. Deakin University.
Available at
https://dteach.deakin.edu.au/wp-content/uploads/sites/103/2019/08/Making-micro-credentials-work-
Oliver-Deakin-2019-full-report.pdf
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high unemployment in Ireland in partnership with a local Education and Training Board and with an
international MOOC platform
11
.
These patterns reflect a global trend. For instance, in Australia, a recent media piece on micro-credentials
claims micro-credentials are “huge and hiding in plain sight”
12
and reports that in 2019 there were 2.6m
people enrolled in non-qualification “training bundles”, primarily to meet regulatory requirements in
workplace safety, emergency preparedness, and authority to operate. This figure is confirmed in a detailed
analysis of micro-credentials in Vocational Education and Training (VET) in Australia where it is reported
that this sector is largely a ‘private’ market with over 90% of these short training bundles funded on a fee-
for-service basis
13
.
The growth in demand and uptake of Massive Online Open Courses (MOOCs) is one of the most notable
trends to consider in the context of micro-credentials and the biggest indication of the dramatic growth in
learner engagement with short, online courses. By the end of 2020, more than 180 million learners had
enrolled in over 16,000 Massive Online Open Courses (MOOCs) throughout the world, with around 1200
micro-credentials
14
.
Figure 3: Growth of MOOCs in 2020
O’Dea, B. (2021) Google Ireland will offer 1,000 scholarships for Dublin jobseekers, Silicon Republic, Available
at
https://www.siliconrepublic.com/careers/google-ireland-dublin-jobseekers
12
Campus Morning Mail (2021, June 4). Micro-credentials: huge and hiding in plain sight. Available at:
https://campusmorningmail.com.au/news/micro-credentials-huge-and-hiding-in-plain-sight/
13
Palmer, B. (2021). An analysis of ‘micro-credentials’ in VET. NCVER Research Report, Adelaide, Australia.
Available at
https://www.ncver.edu.au/__data/assets/pdf_file/0041/9666257/An-analysis-of-micro-credentials-in-
VET.pdf
14
Shah, D. (2020a). By the numbers: MOOCs in 2020. Available at:
https://www.classcentral.com/report/mooc-
stats-2020/
11
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In June 2020, there were almost 50 million visits to the major platforms around the
world
18
. ClassCentral has also reported that the numbers of sessions on the major MOOC platforms during
March and April 2020 were up 50% to 400% on previous years
15
.
MOOC platforms are considered an important global player in the development of micro-credentials
16
. The
global online degree and micro-credential market is predicted to grow exponentially over the next few
years, with an estimated value of US $118 billion by 2025.
The learning platform market is booming and
the number of course providers is growing rapidly, from companies such as edX, 2U, Coursera and Credly
to new players LinkedIn, Google, and PwC. There is also growing use of online learning platforms by
public authorities (e.g France Universitaire Numérique
17
in France, EduOpen
18
in Italy) and specific
institutions, created through collaboration between institutions and/or sectors or established by private
providers for profit or non-profit purposes. Characterised as flexible, open, self-paced, highly interactive,
interdisciplinary and cost-reducing, MOOCs are being considered by many diverse actors within
education
17
, training and industry. It should be noted that not all MOOCs lead to certification; MOOC
providers often offer an option to purchase or apply for a certification to recognise completion of the
MOOC.
Figure 4: Predicted growth in the global market for micro-credentials
This development of myriad online platforms has created a new dimension to not just online learning but
learning more broadly. Micro-credentials offered on online platforms have inherent perceived advantages,
in comparison with traditional models of education and training offers. Learners are usually able to choose
15
Shah, D. (2020b). How different MOOC providers are responding to the pandemic. Available at:
https://www.classcentral.com/report/mooc-providers-response-to-the-pandemic/
16
MICROBOL. (2020) Micro-credentials linked to the Bologna Key Commitments. Desk Research Report.
17
https://www.fun-mooc.fr/fr/
18
http://learn.eduopen.org/
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from and compare a wide range of opportunities and view feedback of other learners who have completed
the programme. Such platforms can also offer the ability to ‘stack’ and combine micro-credentials to earn
larger credentials over time.
Education and training institutions that do offer micro-credentials through online learning platforms are
encouraged to demonstrate their comparative advantage by increasing the accessibility and relevance of the
learning experience including links with traditional education and training programmes (e.g. by offering
credit) and demonstrating collaboration with the industry on micro-credential development
19
. Credit
recognition is increasingly used for micro-credentials completed online and offers the learner a tangible
recognition of the learning experience as well as a way to pursue studies towards a qualification.
The rapid growth in online learning platforms poses questions about the shift to online learning, resources
required at national level to respond to the shift and also the dominance of providers located outside of
Europe.
1.2. Main drivers of demand
This section presents an overview of the multiple influences and drivers which are stimulating the demand
for micro-credentials and which have seen education and training organisations, social and labour market
organisations seek to response to these demands.
1.2.1. Lifelong Learning and personal development
Initial education and training plays a formative role in personal development but the demands and reality of
life mean that personal development is a necessary process throughout life. Personal development enables
personal fulfilment and growth throughout life. Personal development is necessary to cope with the demands
and transitions in a fast-changing society, to make choices and take decisions, and to set goals and realise
ambitions.
Lifelong learning is an enabler of personal development. People can be inspired and motivated to learn and
develop skills in topics not directly relevant to their career in which they have a personal interest including
hobbies, volunteering, and working in their community.
OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education
Policy Perspectives, No. 39, OECD Publishing, Paris,
https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en
19
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Learner Perspective
Micro-credentials are at the service of the individual’s learning and professional development. A learner-
centred approach has the potential to support people throughout their lives and engage them as owners
and active agents in their learning and career pathways.
Learners are not a single homogeneous group and it is important to acknowledge this diversity of learners
in any approach to micro-credentials. Micro-credentials can support an array of learning pathways and
contexts including different employment status (stable, full-time employment, part-time, freelance, etc.),
levels of education and training, personal development needs and challenges faced by specific groups
(such disabilities, age, social and economic background, digital literacy etc).
The typical motivation of learners depends on personal situation as well as issues such as costs,
availability of financial support from employers, the quality of the provider, recognition of the micro-
credential by employers as well as the perceived quality of the micro-credential by industry.
Research
shows
20
that those without the knowledge or cultural capital to navigate the market are likely
to invest in training that is not actually valued by employers. On the other hand, more privileged
individuals are able to tailor their credentials exactly to employer needs and maximise the benefits. This
is borne out in
research
21
which highlights that those most effectively engaging in micro-credentialing
already have degrees and good jobs and are essentially stacking micro-credentials onto existing
educational and social privileges. In addition, evidence shows that digital learning tends to favour
individuals who possess complex multi-literacy skills and have experience of self-regulated learning.
However, some industry-led micro-credentialing initiatives have been successful at attracting non-
traditional learners (e.g Google IT Support Professional Certificate).
Figure 5: Who is the learner?
Source: Pichette, J., Brumwell, S., Rizk, J., & Han, S. (2021). Making Sense of Microcredentials.
20
Death of Human Capital?: Its Failed Promise and How to Renew It in an Age of Disruption - Oxford Scholarship
(universitypressscholarship.com)
21
the-short-term-credentials-landscape.pdf (luminafoundation.org)
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Available research shows that graduate learners, in particular, tend to use micro-credentials to explore or
upskill in topics not directly related to their original field of study. In practice however, learning for personal
development may not be easily accessible or a priority for people. One the key obstacles preventing
individuals to participate in new learning opportunities is the lack of time due to professional and personal
activities. Micro-credentials have the potential to boost access and participation in lifelong learning by
bringing more flexibility to the learning pathways and personalised learning thanks to their, usually short
duration, modular approach and portability of credits. This is likely to attract a larger and more diverse
number of learners, such as adult learners and offer opportunities to support their personal development or
test new fields they would not have the time to dedicate to in the context of a tradition education or training
experiences. Learning for personal development can also support development of transversal skills
(creativity, critical thinking, complex information processing) which continue to grow in importance.
Micro-credentials can play an important role in the developing transversal skills as expressed for
example by the ECIU University alliance: “A distinctive feature of ECIU University’s micro-modules is
our commitment to Challenge-based Learning (CBL) in order to support the development of creative and
resilient European citizens with an entrepreneurial mindset, critical thinking and agility”
22
. These ‘uniquely
human’ skills are more essential than ever and can be used for increasingly diverse job roles as well as to
ensure personal fulfilment and growth.
MICROBOL project – identification of drivers
MICROBOL
(Micro-credentials linked to the Bologna key commitments)
23
is a two-year project is
co-funded by Erasmus+ KA3 Support to Policy reform, and, more specifically “Support to the
implementation of European Higher Education Area (EHEA) reforms".
The project supports ministries and stakeholders in exploring, within the Bologna Process, whether and
how the existing Bologna tools can be used and/or need to be adapted to be applicable to micro-
credentials.
MICROBOL’s focus on lifelong learning for micro-credentials includes a wide variety of drivers and
suggestions
24
which align with drivers from the literature, including:
providing access to education and training to diverse learner groups at a variety of points of an
individual's learning journey;
22
Brown, M., Nic Giolla Mhichíl, M., Mac Lochlainn, C., Pirkkalainen, H., & Wessels, O. (2021). Paving the Road
for the Micro-credentials Movement: ECIU University White Paper on Micro-Credentials. European Consortium of
Innovative Universities (ECIU). Available at
https://assets-global.website-
files.com/551e54eb6a58b73c12c54a18/600e9e7dff949351b6937d73_ECIU_micro-credentials-paper.pdf
23
https://microcredentials.eu/
24
MICROBOL. (2021). Micro-credentials linked to the Bologna Key Commitments: Recommendations from the
MICROBOL project for the European Commission’s proposal for a Council recommendation on micro-credentials
for lifelong learning and employability. Available at
https://eua.eu/resources/publications/940:micro-credentials-
linked-to-the-bologna-key-commitments.html
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ensuring collaboration with stakeholders outside and across training and education to ensure the
relevance of micro-credentials;
exploring micro-credentials in terms of the Recognition of Prior Learning and the evidencing of
learning i.e. knowledge, skills and competences and;
translating and transferring knowledge and findings from research into learning for diverse
learners but also within the context of lifelong learning.
1.2.2. The right skills for better employability in the EU labour market
COVID-19
and the automation of jobs are identified as the components of an economic “double
disruption”, by the World Economic Forum, suggesting that 50% of all employees will need reskilling by
2025
25
. The pandemic has catalysed governments across the globe to take action to address unemployment,
reskilling and the upskilling of workers impacted by the pandemic
26
. In the short-term, up to 59 million
jobs in Europe are at risk due to COVID-19
27
. Large-scale upskilling and reskilling efforts can help to
minimise the impact of job losses. New and evolving work opportunities and practices are creating
an urgent need for re-skilling among workers
with micro-credentials identified as a possible means of
supporting this upskilling at scale.
Prior to the pandemic, new and emerging technologies have been reshaping millions of jobs. Increasingly
rapid advances in technology and the labour market require an adaptable workforce to be familiar with
state-of-the-art knowledge, and to possess the knowledge, skills and competences needed to make full use
of technological and non-technological know-how. Employees need ‘just-in-time’ skills development that
is immediately applicable. This trend is likely to accelerate with the economic crisis triggered by the
COVID-19 pandemic. As skill demands continue to change, individuals will continually need to re-train,
reskill or redeploy to avoid redundancy, social and economic displacement in their local communities and
to avail of new labour opportunities
28
. McKinsey Global Institute’s
7
claim that by 2030, 75 million to 375
million workers (3% to 14% of the global workforce) will need to switch occupational categories or “around
85% of the jobs that today’s learners will be doing in 2030 haven’t been invented yet”
29
.
The difficulties encountered by people in finding a job in line with their qualifications, demonstrate a
misalignment between demand and supply of skills and qualifications, with a large number of individuals
25
World Economic Forum (2020) The Future of Jobs report
https://www.weforum.org/reports/the-future-of-jobs-
report-2020
26
Nic Giolla Mhichíl, M., Brown, M., Beirne, E. & Mac Lochlainn, C. (2020). A micro-credential roadmap:
Currency, cohesion and consistency. Dublin City University. Dublin. Available at
https://www.skillnetireland.ie/publication/a-micro-credential-roadmap-currency-cohesion-and-consistency/
27
McKinsey Globale Institute (2020), Charting the path to the next normal
28
World Economic Forum (2020) The Future of Jobs report
https://www.weforum.org/reports/the-future-of-jobs-
report-2020
29
Institute for the Future (IFTF) (2017), The Next Era of Human|Machine Partnerships, p.14
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graduating in subjects for which there is little demand or for which there is an excess of supply relative to
demand. The Eurograduate pilot survey shows that higher education graduates who are employed in a
mismatched job earn significantly (13%-18%) less than graduates who find a matching position. Personal
satisfaction of graduates who cannot find a job matching their level of qualification is similar to those who
are unemployed. Almost one out of four VET graduates work in occupations that do not match their field
of study
30
. In terms of job opportunities, the share of VET graduates employed in high-skill jobs has gone
down slightly on average across countries in spite of significant growth of overall employment in high-skill
occupations
31
.
Regarding micro-credentials, a European Training Foundation (ETF) survey
32
of education, training and
labour market stakeholders from non-EU countries (primarily ETF members) found that the main
motivation identified for the issue and uptake of micro-credentials is to address a specific work need and
to recognise learning outcomes achieved outside formal education. This link with employability is also
demonstrated in the results of the public consultation presented below.
Employer Perspective
While there has been limited research, the available literature indicates that awareness and experience
with micro-credentials are low
33
among employers. Even though employer recognition is expected to
increase rapidly, this lack of awareness also means that micro-credentials have yet to meet their full
potential as a tool for supporting learning in the workplace. The need to raise awareness among
employers and consult with professional bodies in the development of micro-credentials was highlighted
in the Joint ETUC–ETUCE (2020) position statement on micro-credentials
34
.
Employers are actively entering the alternative credentials market
35
to increase their influence on
education and supply of labour, and essentially to improve labour productivity. In the case of formal
education programmes, employers’ participation in education and training can be limited – they may
give advice to the government or education and training institutions or may co-develop some
programmes. However, in the case of alternative credential programmes, they can choose learning
methods and outcomes more freely and train individuals in the way they wish.
30
OECD (2020), OECD Employment Outlook 2020: Worker Security and the COVID-19 Crisis, OECD Publishing,
Paris, https://doi.org/10.1787/1686c758-en.
31
ibid
32
33
The survey was open until 7 July 2021 at https://ec.europa.eu/eusurvey/runner/ETFMicrocredentialSurvey2021
Brown, M., Nic Giolla Mhichíl, M., Beirne, E., & Mac Lochlainn, C. (2021). The global micro-credential
landscape: Charting a new credential ecology for lifelong learning. Journal for Learning Development
34
Available at:
https://www.csee-etuce.org/en/resources/statements/3908-joint-etuc-etuce-position-on-micro-
credentials-in-vet-and-tertiary-education-june-2020
35
Kato, S., Galán-Muros, V., & Weko, T. (2020). The emergence of alternative credentials. OECD Education
Working Papers, No. 216, OECD Publishing, Paris. Available from
https://doi.org/10.1787/b741f39e-en
13
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Preliminary findings from the Cedefop’s ongoing study
on micro-credentials role in facilitating learning
for employment
shows that employer organisations in the following sectors are most active in making
use of micro-credentials: information and communication (31%), accommodation and food service
activities (22%), human health and social work activities (22%) and manufacturing (22%). Least
represented sectors are agriculture, forestry and fishing (3%) and public administration and defence (3%).
Employers do not seem to view alternative credentials as substitutes for formal education qualifications;
rather, they appear to see them as complementary
36
. Although different views exist on the labour market
relevance of degrees, a degree appears to still work as a signal of one’s skills and knowledge. Micro-
credentials need not just be considered for recruitment purposes of course; they can be a key tool in
supporting staff development and encouraging lifelong learning. Employer engagement with lifelong
learning does vary however. The OECD (2021) Skills Outlook Report
37
notes that the number of
employees in an organisation determines the likelihood of being disengaged in lifelong learning (see
Figure 6). Micro and small employers with fewer staff appear to have higher levels of disengagement.
Figure 6: Employer characteristics related to worker disengagement from lifelong learning
Cedefop’s ongoing study
on micro-credentials role in facilitating learning for employment
found that
employers do see potential benefits of micro-credentials including: improving employee motivation;
improving retention of employees; building a culture of CPD; supporting speedier responses to the needs
of employers; flexibility for upskilling and reskilling and delivering content that is more relevant to
labour market needs. Importantly, there are barriers to delivering on this potential in reality (see Problem
Definition below). The study findings also reiterated that, for recruitment purposes it seems that most
employers still seem to regard a traditional degree as a signal of skills and suitability for employment
38
.
36
Kato, S., Galán-Muros, V., & Weko, T. (2020). The emergence of alternative credentials. OECD Education
Working Papers, No. 216, OECD Publishing, Paris. Available from
https://doi.org/10.1787/b741f39e-en
37
OECD (2021),
OECD Skills Outlook 2021: Learning for Life,
OECD Publishing,
Paris,
https://doi.org/10.1787/0ae365b4-en.
38
Kato, S., Galán-Muros, V., & Weko, T. (2020). The emergence of alternative credentials. OECD Education
Working Papers, No. 216, OECD Publishing, Paris. Available from
https://doi.org/10.1787/b741f39e-en
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1.2.3. Green transitions
The transition towards a low-carbon economy is expected to create more than 1 million new jobs in the EU
by 2030, and more than 2 million by 2050
39
Job creation will occur mainly in sector such as construction,
renewable energy production, sustainable transport, waste management, business services and sustainable
finance. However, the transition will also lead to job losses, in particular in fossil fuel extraction and
processing. Across the economy, task profiles and skill requirements will change fundamentally (e.g. in car
manufacturing). Across the board, there is increasing demand for professionals who build and master green
technologies, develop green products, services and business models, create innovative nature-based
solutions and help minimise the environmental footprint of activities.
1.2.4. Digital transitions
Achieving a human-centric digital transition calls for a step-change in digital skills. Already now,
Europeans need digital skills in life and at work: in some job categories, more than 90% of jobs require
specific types of digital skills
40
. Around 40% of new jobs were created in digitally intensive sectors between
2005 and 2016
41
. However, the rapidly growing demand for digital experts cannot be met. For example,
there is a gap of 291,000 professionals in cybersecurity. The COVID-19 pandemic and resulting
containment measures were a stark reminder that Europe’s workforce - and more widely the whole
population - need to rapidly increase their level of digital skills. This was particularly visible in the
education and training sector, for students, teachers and trainers alike.
More broadly, digitalisation creates opportunities and challenges when considering the potential of micro-
credentials. Digitalisation has made the advent of online platforms, learning and MOOCs possible as well
as opened up new opportunities regarding recognition, authentication, interoperability and exchange of
information on skills and qualifications through standardised & technical formats for both new and
traditional credentials and skills etc. Equally, digitalisation can heighten issues of social
inclusion/exclusion, diversity challenges, and risk proliferating and expanding current inequalities across
all levels of societies and within economies. Accordingly, it is essential that any approach to micro-
credentials leverages the potential of digitalisation to empower people and support inclusion just as much
as it can enable innovation and delivery of learning leading to micro-credentials.
1.3. Overview of current provision of micro-credentials
39
Employment and Social Developments in Europe (ESDE) 2019 - Sustainable growth for all: choices for the future
of social Europe”.
40
ICT for work: Digital Skills in the Workplace: study carried out for the European Commission by Ecorys and
Danish Technology Institute, 2017
41
ICT for work: Digital Skills in the Workplace: study carried out for the European Commission by Ecorys and
Danish Technology Institute, 2017
15
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Micro-credentials are provided by a variety of organisations, in the public and private sectors, active in area
of education, training, employability, and lifelong learning. Companies, professional associations,
government departments and international organisations are increasingly using micro-credentials while
some countries such as Ireland and Malta have included micro-credentials within their national education
and training system subject to government accreditation and registration
42
.
Figure 7
provides an overview of the main categories of micro-credential providers and delivery channels.
Each of these providers and channels have particular advantages and disadvantages in terms of utility and
articulation of their offerings and their offer’s accessibility to a wide range of learners. In addition, the
increasing collaboration between providers from different sectors and technological development is
blurring the lines between different provider types and delivery channels. As noted by the OECD (2021)
43
,
these developments are overturning the traditional one-to-many relationship between education providers
and learners, and creating a new provider ecosystem that contains a continuum of connections between
individual providers and learners.
44
Figure 7. Micro-credential provider ecosystem and delivery channels (OECD 2021)
42
New Zealand Qualification Authority (2020), Micro-credentials,
https://www.nzqa.govt.nz/providers-
partners/approval-accreditation-and-registration/micro-credentials/.
43
OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education
Policy Perspectives, No. 39, OECD Publishing, Paris,
https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-enhttps://www.oecd-ilibrary.org/education/micro-credential-innovations-
in-higher-education_f14ef041-en
44
OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education
Policy Perspectives, No. 39, OECD Publishing, Paris,
https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-enhttps://www.oecd-ilibrary.org/education/micro-credential-innovations-
in-higher-education_f14ef041-en
16
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1.3.1. Micro-credentials in higher education
Micro-credentials play different roles within higher education systems, depending on their specific context,
structure, traditions and wider factors such as the demand for skills in the wider economy and the existence
of other forms of education and training.
Higher education institutions are increasingly expressing an interest in micro-credentials. One of the main
reasons is their will to increase their visibility and reputation
45
. Other major reasons, notably associated
with MOOCs is the potential cost savings associated with reusable material, limited need for facilities and
increased number of students. Micro-credentials also allow for small-scale experimentation of new
pedagogies and technologies, improvement of the overall quality of the offering and potential to generate
to generate additional revenues. The public mission of higher education institutions also places them on the
front line to make of micro-credentials a tool for inclusion and to have a positive impact on participation of
disadvantaged groups in lifelong learning.
At the same time, there is evidence from around the globe that some institutions and university consortia
are embracing micro-credentials as a way to redesign the traditional curriculum to prepare more work-ready
students and graduates. Micro-credentials can have a role to play in supporting more flexible and tailored
learning pathways in order to respond to the criticisms of the still-dominant, campus-focused program
models: long and relatively inflexible programs; inadequate recognition of prior learning; slow or limited
innovation in pedagogy; insufficient student supports for career-readiness; weak alignment to labour market
needs; and a limited commitment to online and digital-enabled learning. There is also a growing expectation
that learners will require regular upskilling through their lives, with more mobile career pathways, and as
tasks associated with particular roles evolve in response to the integration of technology.
Future development of micro-credentials is likely to require comprehensive articulation of the specific
function and status of education programmes leading to micro-credentials within the wider set of higher
education programmes and qualifications, if they are to achieve wide acceptance among learners and
employers. There is also a lack of widespread agreement on how the micro-credentials themselves should
be situated with respect to existing qualifications. The international classification of educational
qualifications (ISCED) defines a qualification as an award leading to the completion of an entire education
programme at a specific level of education, or completion of a stage of a wider education programme. Thus,
micro-credentials based on stand-alone education programmes not sufficient for level completion and not
clearly linked to a wider educational programme currently have no defined place in the ISCED
qualifications classification
46
.
Kato, S., V. Galán-Muros and T. Weko (2020), “The emergence of alternative credentials”, OECD Education
Working Papers, No. 216, OECD Publishing, Paris,
https://dx.doi.org/10.1787/b741f39e-en.
46
OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education
Policy Perspectives, No. 39, OECD Publishing, Paris,
https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en
45
17
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To illustrate the diversity of micro-credential programmes offered in European higher education
institutions, the OECD (2021) published the below table that presents programmes that fit the characteristics
of micro-credentials currently offered in some higher education institutions.
Courses within programmes typically have the following
characteristics….
Statements
of study
credits in
common
currency
Programme type
Stackable
Nationally-
recognised
certification
Professional
orientation
Educational
orientation
Example
programmes from
the sample set
Individual
courses and
modules from
larger
programmes
Yes
No
No
Yes
Yes
Free-standing
courses
(University
of Stockholm),
Single-module
courses
(Munster
Technological
University),
Master's
degree modules
(Baden-
Wuerttemberg
Cooperative State
University)
Extension curricula
(University of
Vienna),
Complementary
Certificates
(University of
Geneva),
UCL
Extend
(University
of London)
Specialisation
Diploma
(University
of Seville),
Specialisation
Courses
(University
of Porto),
Professional
Diploma
(University
College Dublin)
Extension and
complementary
courses for
existing students
(may also be
offered
externally)
No
No
Yes
Yes
Yes
Specialisations
for the
acquisition of
specific
knowledge
and/or skills
No
No
Yes
No
Yes
18
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Continuing
professional
development and
training courses
No
No
Yes
No
Yes
Permanent training
Diploma
(Complutense
University),
Professional
continuous training
(University of
Helsinki),
Specialised training
(Budapest
University of
Technology and
Economics)
Continuous
education
(National
and Kapodistrian
University of
Athens),
Lifelong
learning
programme-hobby
(Charles University
Prague)
Continuing
education and
lifelong learning
courses
No
No
No
Yes
No
Massive Open
Online Courses
(MOOCs) and
asynchronous
learning
programs
No
No
No
Yes
No
MOOCs (Utrecht
University),
Self-
learning (Selbstlern)
University of Hagen
"Own-brand"
degrees and
diplomas
No
No
Yes
Yes
Yes
Cerficate
universitaire
(Lille
University),
Higher
University Course
(University of
Barcelona)
Postgraduate
certificate
(University of
Birmingham),
Postgraduados
(Lisbon Polytechnic
Institiute)
Postgraduate
sub-degree
programmes
Yes
Yes
Yes
Yes
Yes
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Figure 8: OECD
47
research on a sample of 84 European higher education institutions.
Source: OECD (2021), Micro-credential innovations in higher education: Who, What and Why?
While a good part of micro-credential programmes across Europe make use of the European Credits
Transfer System (ECTS) to express the associated study load of the courses, thus allowing common
understanding of how much study and workload was required of the learner to achieve the credential, the
amount of ECTS is not standardised and can vary a lot between institutions but also within the institutions
themselves. The OECD provides here below a useful comparison of identified micro-credential
programmes and their associated number of ECTS. The individual courses on offer ranged from 1 ECTS
to 60 ECTS (with 60 ECTS being the equivalent of one year of full-time study).
Figure 9. Range of ECTS credits for courses within micro-credential programmes across European
higher education systems. The size of the bubble indicates the relative number of programmes with
each ECTS range
Source: OECD research on a sample of 84 European higher education institutions
48
Institutions in a number of European countries offer a structured pathway towards stacking short
postgraduate qualifications, with similar ECTS range for each qualification. These qualifications are not
always labelled as being micro-credentials within national systems but they have the key characteristics of
OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education
Policy Perspectives, No. 39, OECD Publishing, Paris,
https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en
48
OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education
Policy Perspectives, No. 39, OECD Publishing, Paris,
https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en
47
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micro-credentials, being short in duration, targeted to a specific topic, and often more flexible in delivery
than longer programmes.
An example of these practices can be found in the
Flemish Community of Belgium
where universities
offer a range of postgraduate certificates and postgraduate diploma programmes (typically requiring 30
ECTS and 60 ECTS of study respectively). These programmes may be stacked from certificate to diploma
to masters.
In the Nordic countries in Europe, higher education institutions share the characteristic to offer a range of
different initiatives that can support flexible pathways from single short courses to certifications and higher
qualifications. Such educational programmes are often offered by an open university section within higher
education institutions to a wider range of learners, with the possibility to stack the credits earned into larger
qualifications. These practices form part of a wider framework or tradition in the country. Some of the
examples can be found below as described by the OECD (2021)
49
.
Caste Study 1: Examples of stackable undergraduate-level short programmes in the Nordic
countries
In Finland’s
Metropolia University of Applied Sciences, the open university of applied sciences section
offers students the opportunity to register for individual courses, generally about 5 ECTS in length, or
combine the study units into a Path, allowing them to earn 15-30 credits from modules typically offered
in the first year of a bachelor’s degree. Open Path students follow the same learning material as students
enrolled in the complete bachelor’s programme, commonly attending the same classes and sitting the same
assessments.
In Sweden,
universities may offer a range of “free-standing” courses and programmes. These programmes
form part of the continuing education system. Typical study loads for free-standing courses might range
between 7.5 and 30 ECTS. Courses are open to learners with a range of motivations, and may provided on
a more flexible basis than traditional higher education. For example, in the University of Gothenburg
freestanding courses are given continuously during the academic year, in a variety of subjects and levels.
Lessons may be in the evening or day-time and can be distance-courses or on-campus. Free-standing
courses may be stacked into a degree, if certain conditions are met with regard to complementarity of
courses. Credits from courses taken in other Swedish higher education institutions may be transferred to
the University of Gothenburg and included in the degree application once the requisite number of credits
is reached.
In Norway,
the University of Oslo (along with other institutions) offers a “one’-year programme”
(aarsenhet) of 60 ECTS at the undergraduate level. Students in one-year programmes may study in order
OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education
Policy Perspectives, No. 39, OECD Publishing, Paris,
https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en
49
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to decide whether they like the field of study before committing to a full bachelor’s degree, or in order to
deepen their knowledge in their field of work, specialise or retrain. In some fields of study, the one-year
program alone can provide a foundation of knowledge for applying for entry-level jobs. Otherwise, the
program can be used to gain advanced entry to a bachelor’s degree program in a related subject, or can be
counted towards a professional specialisation or qualification.
Source: OECD (2021), Micro-credential innovations in higher education: Who, What and Why?,
These practices are not limited to the Nordic countries and are spreading in other countries as shown by the
example of the
Micro-credentials at Dublin City University.
Dublin City University (DCU), launched its
first stackable and credit-bearing micro-credential. Before this, DCU had to introduce the concept of micro-
credentials into its academic regulations and quality assurance processes.
Case study 2: Micro-credentials at Dublin City University (DCU)
DCU Business School introduced a short online course called the FinTech – Financial Innovation Micro-
credential. It is a 12-week online programme worth 5 ECTS credits at postgraduate level from Dublin
City University. The course explores the interaction between finance and technology and its impact on
the financial services industry.
To qualify for direct entry into this course, learners need to fulfil one or more of the following criteria:
-
Have several years of experience in financial services or a related sector.
-
Have completed relevant, accredited Continuing Professional Development learning.
-
Hold a Level 8 (undergraduate) Honours Degree (2:1) or higher in business, finance, or a related
discipline under the Irish national framework.
DCU made a strategic move to begin with micro-credentials at postgraduate level. Postgraduate-level
courses leading to micro-credentials have the potential to reach learners who are unable to study full-
time in class due to personal reasons (e.g. career or family).
After the launch of the Common Micro-credential Framework (CMF), Dublin City University entered
into a global strategic partnership with FutureLearn to provide its first micro-credential. FutureLearn is
a digital education platform founded in December 2012 and jointly owned by The Open University and
SEEK Ltd. It is a massive open online course (MOOC) learning platform. All of its online micro-
credentials are designed to upskill learners for work in rapidly growing industries, without the time and
cost commitment of a full degree. Each micro-credential includes a formal online assessment and meets
the standards set by the CMF. By using FutureLearn, higher education institutions gain greater flexibility,
because courses can start at any point in time and can attract a global student body.
In 2018, DCU started using Digitary, a leading platform for certifying, sharing and verifying academic
credentials. The university uses an online document sharing service called Digitary Core, through which
22
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students and alumni can access their Diploma Supplement and share academic records with employers
and other education providers. Digitary Core guarantees security and is password-protected. The Digitary
platform also serves as a useful tool for certifying and issuing micro-credentials, replacing paper
documents with digitally signed electronic documents and replacing manual processes with automated
ones. The platform enables records to be verified instantly with full learner consent, thus maintaining
regulatory compliance and eliminating the hassle of manual verification, and making certificates both
secure and less costly.
European university alliances act as test beds for innovation in the European higher education area. They
lead and pave the way for other higher education institutions to follow. Among them, many plan to develop
micro-credentials on a larger scale in order to offer increased innovation in higher education, flexible
learning pathways and technology enhanced learning, as well as more inclusive curricula and pedagogies.
Case study 3: Some micro-credentials solutions implemented under the European Universities
Initiative:
European Consortium of Innovative Universities (ECIU)
ECIU strongly supports the movement supporting micro-credentials. ECIU published white papers in
2020 and 2021 on micro-credentials, setting out their ongoing work on micro-credential development
and their future strategy. ECIU’s micro-credentials relate as a core component in their objective to
provide personalised, challenge-based learning that harnesses innovative digital technologies. These
offerings are underpinned by a Learner Transformation Framework that articulates how we are seeking
to develop life-long learners capable of shaping a better future for all. ECIU members have also
developed more than 100 micro-modules on topics related to the achievement of the SDGs, available to
learners enrolled in their partner universities.
ECIU is actively contributing to the development of a range of digital credentials and to ensuring new
ways how learners can collect the proofs of their learning outcomes and newly acquired skills in a digital
competence passport. ECIU is collaborating with Europass to jointly develop a proof-of-concept for the
competence passport that will be validated in large-scale field trials organized by ECIU.
Young Universities for the Future of Europe (YUFE)
YUFE seeks to provide personalised academic curricula that will form the backbone of an equitable,
diverse and effective education system that recognises and optimally fosters individual talents. In this
context, YUFE will provide students with unique opportunities to be trained in an inclusive research-
and work-based learning ecosystem, leading to interdisciplinary and intersectoral knowledge and skills.
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In line with its goals,
YUFE aims to develop an approach to micro-credentials.
The main objective
of introducing micro-credentials is to promote inclusiveness and expand the benefits of higher education
beyond the ‘usual suspects’. YUFE will build
a catalogue detailing what member organisations are
already doing.
This catalogue will help to gain a sense of the various contexts, to gather good practices,
and to understand the existing frameworks. This knowledge will allow YUFE to consider these existing
frameworks for its own practice.
European University for Well-Being (EUniWell)
The
EUniWell
initiative is currently developing micro-credential programmes, with the aim of starting
offering pilot programmes in the academic year 2021/22. The programmes will focus on well-being, and
seven member institutions will collaborate in the development and delivery of these programmes. The
programmes were developed after each member of the EuniWell network reviewed their offering to see
how they could contribute to the EuniWell micro-credential programmes, and then subsequently mapped
their offering and discussed the structure and content of the programmes.
European Civic University (CIVIS)
Similarly, the
CIVIS
initiative plans to offer micro-credential programmes on several topics, including
climate change and socio-cultural heritage. Teachers across nine member higher education institutions
are invited to submit a micro-credential programme proposal in these areas. Micro-credential
programmes can be developed at both undergraduate and graduate levels, and the size of the programmes
are expected to be around 5-15 ECTS. Cooperation among the member institutions is required for the
approval of the programme proposals, for example, the involvement of lecturers from each institution.
In both examples – EuniWell and the European Civic University - micro-credentials will be awarded
from the alliance itself, rather than from the individual institution.
EuroTeQ Engineering University (EuroTeQ)
The
EuroTeQ Engineering University
is developing micro-credentials and individual study paths for
learners that will lead to either a EuroTeQ honours degree, or a “EuroTeQ professional” qualification for
learners undertaking professional training and development.
Among other initiatives: the European Universities Transforming to an Open Inclusive Academy for
2050 (EUTOPIA) and the Challenge-Driven, Accessible, Research-based and Mobile model for the co-
creation of a European University aligned with the European Values, the European Green Deal and the
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Sustainable Development Goals (SDGs) (CHARM-EU), the
Una Europa alliance are
currently
discussing or building joint development of micro-credential programmes.
1.3.2. Micro-credentials in Vocational Education and Training (VET)
The emerging picture on the use of micro-credentials in Vocational Education and Training (VET) is
disparate and varying as VET systems themselves. Nevertheless, there is widening use of short courses
leading to awards (that may not necessarily use the term ‘micro-credentials’) by VET providers.
Based on the feedback received during a dedicated webinar with members of the Advisory Committee on
Vocational Training organised on 20 January 2021, micro-credentials seem to have the biggest potential in
upskilling and reskilling of adults. In the context of quickly changing and emerging skills needs and the
need for upskilling and reskilling, micro-credentials can be an effective tools to supplement initial VET
qualifications. Members advised that micro-credentials should not replace initial vocational qualifications.
There are however some promising avenues for linking them to initial VET such by increasing flexibility /
modularising VET and providing solutions for specific contexts, such as optional parts of initial VET
curricula, continuing vocational education and training (C-VET), additional learning opportunities for
learners with special needs or those who dropped out from VET, pathways to facilitate permeability
between VET and higher education and learning opportunities for continuous professional development of
teachers and trainers in VET.
Internationally, there has been notable research on the interest in micro-credentials in the Australian VET
system
50
which found that micro-credentials are used primarily for regulation and skills maintenance, in
areas such as workplace safety, emergency preparedness and authority to operate. These micro-credentials
were largely provided by the ‘private’ market (more than 93% of subjects were funded on a fee-for-service
basis — with relatively little government intervention). In these cases, employers or the individual is
prepared to pay for the training due to a regulatory requirement and this that the training has a recognised
value.
The examples listed below are taken from Cedefop’s ongoing study
on micro-credentials role in
facilitating learning for employment:
Case Study 4: Micro-credentials in VET
1.
Denmark
Short vocational training programmes in Denmark (arbejdsmarkeduddannelser – ‘AMU’) is a flexible
system which aims at meeting current changes and skills needs for mainly for low skilled and skilled
workers on the labour market on the labour market. The programmes are available to everyone who are
50
An analysis of ‘micro-credentials’ in VET, An-analysis-of-micro-credentials-in-VET.pdf (ncver.edu.au)
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residents or hold a job in Denmark. However, they mainly target unskilled and skilled workers in
employments. In general, there are three main types of programmes directed at: specific job/sector related
competences, e.g. crafts, technical insight and knowledge of materials; general competences, e.g. ICT,
job relevant languages; personal competences, e.g. social communication, organization and management.
AMU micro-credentials are developed based on tripartite cooperation. The certification is always based
on assessment. The AMU trainings are included in the Danish Qualifications Framework (level 2-5), and
some of them are recognised as part of formal vocational qualifications. The AMU-certificate can be
awarded to the individual based on validation.
2.
Iceland
Micro-credentials are used at RAFMENNT Electrical VET Centre RAFMENNT which is a vocational,
educational and training (VET) centre for electricians, electronic technicians in all industries and sectors
and technicians in the fields of telecommunication, information technology, audio-visual, broadcasting
and the creative industries in Iceland. The centre offers courses for skilled electricians and electronic
technicians who have completed their education, either their trade education and/or their trade master
education as well as for Telecom, AV, IT, Broadcast and CI technicians. RAFMENNT is also currently
developing a health and safety micro-skills programme for the Creative Industries
3. Norway
Tripartite industry programmes for skills development (bransjeprogram) are developed as part of the
Norwegian Skills Programme. The central government and the social partners work together to increase
participation in skills development within selected industries. Ten industry programmes are currently in
place which give skilled workers an opportunity for upskilling while in full employment. Most courses
are also accessible for furloughed and unemployed workers during the pandemic. Courses are meant to
address skills gaps identified by the partners. The courses are offered by providers of initial vocational
education, vocational colleges, higher education institutions and others. Some of them result in formal
credits, e.g. higher VET credits.
Shorter programmes in higher VET: A recent amendment to the Norwegian Act relating to
tertiary vocational education allows for shorter programmes at vocational colleges. All
programmes and courses will have to be accredited through the usual process, managed by the
Norwegian Agency for Quality Assurance in Education. Shorter programmes will be able
respond to industry needs for upskilling, while making further education more accessible for
skilled workers.
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4. France
In France, micro-credentials are discussed in the context of the transformation of the VET system.
Although definitions might be lacking, it can be said that the French qualifications structure has embarked
on a route that largely accommodates the micro-credential model. Firstly, the philosophy of the reform
encourages the development of short training activities/courses that are easily accessible to
learners/professionals. The development of skills or qualification portfolios (e-portfolio) initiatives
represent tools that would encourage the introduction of micro-credentials. Therefore, there is a potential
for micro-credentials to be integrated into this general framework. Secondly, micro-credentials are
aligned with the digitalisation movement that is gaining momentum within the French VET system.
OpenClassrooms is a French-based online education platform that offers education-to-employment
programs and career coaching services for students worldwide. Learners accumulate certificates towards
a degree in IT and business topics which are recognised by the French State. Courses are conducted fully
online, through a mix of video resources, online reading, real-life projects and individual mentoring
sessions. They also have Career Paths, which include weekly, one-on-one mentoring sessions with
dedicated professionals from relevant fields who support programme participants throughout their
studies.
5. Germany
In Germany, there is an ongoing discussion about modularisation and certified training supplements in
German VET. The BIBB (Federal Institute for Vocational Education and Training) was commissioned
by the BMBF (the Federal Ministry of Education and Research) to offer technical and administrative
support for research and development studies and projects with regard to modularisation in German VET.
Many of those projects built and offered online platforms with digital learning modules. The BIBB, in
cooperation with social partners, IHKs (Association of German Chambers of Industry and Commerce),
training providers and VET researchers, developed training modules for more than 30 professions
(Germany case study, 2021).
6. Netherlands
The Edubadges platform is the digital certificates platform for the Dutch education community.
edubadges enable organisations to award students or workers with evidence of knowledge and skills they
have acquired. An edubadge is an electronic certificate that provides detailed information on the content
of the learning outcomes achieved. It is issued electronically within a secure and trusted SURF platform.
Students collect edubadges in their edubadges backpack and can share an edubadge with employers or
other educational institutions. Even though the initial experimentation with edubadges took place in the
higher education sector, the funding was also allocated for testing edubadges in vocational education and
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training sector. Micro-credentials are piloted in four VET schools. Two schools (Albeda and mbo
Rijnland) issue edubadges to students who did additional work on 21st century skills that were not part
of the formal curriculum. It concerned skills such as collaboration and entrepreneurial behaviour. This
piloting is in line with a national movement to accredit 21st century skills (in the framework of the
KOMPAS21 initiative). In another VET institution, Deltion, they rewarded teachers with micro-
credentials for their efforts to work with ICT in their education and especially during COVID-19 times.
7. Lithuania
Vilnius Vocational Training Centre of Technologies (VTMC) is a vocational training institution that has
concentrated its efforts and is actively modernizing practical training opportunities through
modularisation in order to prepare the most demanded engineering, IT and computer, business and
financial, and visual technology specialists for the national and international market. To achieve this
goal, the centre actively cooperates with business, developing the form of apprenticeship training,
developing IT specialist training initiatives. VTMC is licensed to provide 49 formal vocational education
programs in secondary education, continuing vocational education (adult education) and of course initial
vocational education. Currently, training is provided in three departments of the Center: Energy and
Mechatronics, Transport and Business, Information and Visual Technology. More than 700 students
study in these departments every year and they are taught by 54 vocational teachers and 22 subject
teachers.
8. Finland
Two Finnish Schools of Professional Teacher Education together with VET provider Omnia
joined forces to create a competence-based professional development programme (PDP) that
would support teachers in building working life ICT skills and knowledge. The co-created
Learning Online PDP is a gamified, open badge-based course.
1.3.3. Private providers
Private companies are investing in learning and training offers, from a number of perspectives, whether as
employers to support upskilling and reskilling of staff or as providers of micro-credentials to compete in
and respond to demand. The most recently available data from Eurostat showed that in 2015, 70,5 % of
companies provided C-VET to their employees. Close to 60% of these training companies assessed the
outcomes of C-VET activities (e.g. through certification after written or practical test, satisfaction survey
among participants, assessment of participants’ behaviour or performance in relation to training objectives,
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assessment/measurement of the impact of training on performance within the organisation). However, less
than a third of the training companies (30,5 % in 2015) used certification after written or practical test. Data
also show that the vast majority of job-related non-formal education and training activities are sponsored
by employers: in 2016 the rate of adults in the EU28 participating in non-formal job-related activities
sponsored by the employer was 32%, while in the same year the participation rate in non-formal job-related
activities not sponsored by employers was 3.9%
51
. The breakdown of providers of non-formal education
and training for adults according to the hours spent by participants clearly reflects the short and targeted
nature of non-formal training offered by employers.
Technology companies are very active in this field thanks to their experience with offering certified
trainings for technicians of their own technologies and have continued to develop their own training and
certification ecosystems and emerged as alternatives to traditional education and training.
Case Study 5: Private providers of micro-credentials
1.
Ernst & Young’s (EY) inhouse apprenticeship programme is among the successful initiatives in
the UK.
They have a micro-credential style targeted skills development programme leading to greater
workplace performance. They advertise their Business Academy programme as an alternative route to
a university degree. It provides on-the job experience along with business skills sessions, work
shadowing and networking
2.
Capgemini Nederland
is a global company specialised in digital transformation, consulting, and IT
services. They provide learning experience both to internal (e.g. employees) and external (e.g. clients)
audiences. Capgemini recently launched a new internal digital learning hub called ‘NEXT’, designed
to support the upskilling needs of its employees around the world. Capgemini has partnerships with
global brands such as Google, Harvard Spark, Pluralsight, ServiceNow, MuleSoft, Adobe, Azure, and
TED.
3. The
Innovations for Apprenticeship Foundation (FIPA),
was initiated by private companies in
France in October 2016 to develop and test innovations relating to apprenticeships. The 17 member
companies, including EDF, Enedis, Engie, GRDF, Total, Orano, SNCF, Thales, Veolia, Orange, BNP
Paribas, Airfrance, Societe Generale, Saint-Gobain, the Adecco Group among others, together
represent 47,000 work-study students. The apprentices programme serves as alternative vocational
training offered by private companies which focuses on professional reorientation, development of
digital skills and promotion of employees during their career (FIPA, 2021).
4. As part of its ‘Engage 2025’ strategy,
Orange, the French multinational telecommunications
company plans to invest over €1.5 billion to train 100% of its employees in key digital and soft skills
by 2025. One of its major skills training initiatives include Orange Campus, an online school offering
51
Eurostat, EU Adult Education Survey, online data table: [trng_aes_122]
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courses on topics such as data/AI, cybersecurity, management and soft skills. Courses are built along
the company's business line expertise and digital platforms and designed with major partners. They
provide both basic and advanced modules resulting in specialised expertise and leading to certification
or diplomas. With the goal of addressing the digital skills gap in Europe and building a pool of talented
workforce, Orange Campus also trains external audiences. To this end, the company has partnered
with Microsoft AI school, along with Simplon and the Grande Ecole du Numérique to deliver work
related skills training.
5.
Ireland: Recognition of micro-credentials in Industry
SkillNet Ireland, the Irish agency that supports businesses through enterprise-led workforce
development, published a Roadmap on Micro-Credentials in 2020. The publication highlighted that
micro-credentials provide a unique mechanism to recognise and develop work-based learning. The
roadmap also signalled the position of business and business support agencies as key actors in the
Micro-Credential eco-system and supporting industry-focused applied learning.
The roadmap also emphasises the importance of a multi-stakeholder approach with engagement
from national agencies, industry, education and training providers, and employer and skill
development networks.
The roadmap outlines mechanisms to engage on micro-credentials in work-based learning across
sectors including:
awareness building and collaboration amongst stakeholders, including establishing a national
steering group with a broad range of stakeholders and working to build understanding of the
potential of micro-credentials
capability and competency mapping within organisations, which involves mapping of current
continuous professional developed (CPD) provision within Skillnet organisations to help
recognise where Micro-Credentials might support a more agile, flexible and stackable
approach to training and professional development.
the funding and piloting of scalable and rapid models of validation and assessment of work-
based learning in key sectors, based on of co-design, co-development and co-delivery of
micro-credentials.
6.
Micro-credential initiatives by Google.
In 2020, Google announced that it would remove the
requirement for job applicants to have higher education degrees, and launched a range of professional
training qualifications that it would treat as equivalent to a degree in its recruitment processes for
certain roles. These “Google Career Certificates” are accessible through a Coursera subscription, take
approximately six months to complete and are in areas of high employer demand, such as IT Support,
Project Management, Data Analytics and UX Design.
The career certificates are provided on a not-for-profit basis, and scholarships are available to support
access for disadvantaged students. Over half of those pursuing the Google IT Support Professional
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Certificate do not have a degree. Students are also able to access free resources for career coaching
and mock interviews while studying, and following graduation they will be included in a special
candidate pool that is visible to the consortium of employers participating in the initiative with Google.
Following the 2020 launch of Google Career Certificates in the United States, the program was
launched in the United Kingdom in May 2021, as a joint initiative with the Department of Work and
Pensions.
Google also offers a number of other micro-credentials related to its education software tools and
technologies, such as Google Workspace for Education. Its range of teacher training micro-credentials
allow teachers using the software to become certified Google for Education Trainers, Innovators or
Coaches, on completion of a number of training modules.
Source: OECD 2021 innovations in Micro-Credential Development – Who, What and Where?
52
1.4. Potential benefits of Micro-credentials
One of the stated objectives of the European approach to micro-credentials is to deliver on the potential of
micro-credentials to support employability and lifelong learning. Lifelong learning refers to ‘all learning
activity undertaken throughout life, with the aim of improving knowledge, skills/competences and/or
qualifications for personal, social and/or professional reasons’
53
. Employability refers to ‘a combination of
factors (such as job-specific skills and soft skills) which enable individuals to progress towards or enter into
employment, stay in employment and progress during their careers’
54
.
Within these broad areas, micro-credentials can support the diversification and tailoring of learning
opportunities to support individual learning pathways, they can be used to widen access to education and
training to a more diverse range of learners, they can support employability and careers, as well as facilitate
recognition and understanding of skills developed in non-formal and informal settings, and stimulate
inclusivity in a manner that is both sustainable and equitable across Europe.
These benefits and others are highlighted in the table below:
OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education
Policy Perspectives, No. 39, OECD Publishing, Paris,
https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en
53
Taken from Cedefop Glossary: https://www.cedefop.europa.eu/en/events-and-projects/projects/validation-non-
formal-and-informal-learning/european-inventory/european-inventory-glossary#L
54
Taken from Cedefop Skills Panorama Glossary: https://skillspanorama.cedefop.europa.eu/en/glossary/e
52
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Figure 10: Overview of Stakeholder Benefits
Source : (2021). The global micro-credential landscape: Charting a new credential ecology for lifelong
learning.
55
Participation in lifelong learning is associated with positive social outcomes, such as improved
health, enhanced social inclusion
39
thus contributing to the well-being of society. An effective culture of
lifelong learning can only be achieved by making learning more attractive and more accessible and the
cross-section of stakeholders and actors involved in learning and employment have a role to play in
developing this culture.
Micro-credentials can enable flexible, personalised, relevant and on-demand learning that complements and
supplements traditional education and training and equips people with the knowledge, skills and
competences to adapt to life and work in an evolving society. Micro-credentials have the potential to
increase personalised learning opportunities for all. Micro-credentials are at the service of the full
educational and professional development of individuals. Micro-credentials can be designed to expose
learners of all ages to an area of study or employment and be used to demonstrate their commitment to
learning and growing in a field. They can help widen learning opportunities; strengthen the role of higher
education and VET institutions; and engage employers, social partners and non-formal learning providers,
in promoting lifelong learning through more flexible and modular learning opportunities.
An ETF survey
56
of education, training and labour market stakeholders from non-EU countries (primarily
ETF members) identified the following benefits of micro-credentials:
55
Brown, M., Nic Giolla Mhichíl, M., Beirne, E., & Mac Lochlainn, C. (2021). The global micro-credential
landscape: Charting a new credential ecology for lifelong learning. Journal for Learning Development, 8 (2), 228-
254.
56
The survey was open until 7 July 2021 at https://ec.europa.eu/eusurvey/runner/ETFMicrocredentialSurvey2021
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Micro-credentials have immediate relevance to the labour market demand
(linked to specific skills/
competences; address a specific work need; responsive to changes in the labour market; enable
quick access to work; bridge the gap between formal education qualifications and specific industry
or workplace requirements);
Micro-credentials support individual learning
(focused on specific learner needs; learners can
progress at their own pace; an easy way to accumulating learning in small pieces; stackable towards
a qualification; facilitating access to formal education);
Micro-credentials have standalone value
(MC is a meaningful part of a qualification or a
complementary/ supplementary award that can have a meaning at the labour market; adding value
to formal education qualification);
Micro-credentials facilitate recognition of individual’s skills, knowledge and competences
(facilitating formalization and portability of individual’s skills and competences; improving the
visibility of lifelong learning; facilitate recognition of learning achievements acquired outside
formal education; allow to represent mastery/ more advanced skill level; digital visibility);
Micro-credentials facilitate the design of flexible training
(less efforts to design; allow to learn on
demand as and when one needs);
Micro-credentials are cost and time saving
(short duration of learning; affordable for those paying
for themselves).
Flexibility
Learning leading to micro-credentials offer flexible options that fit into an active life that can be
accommodated, and indeed supported, within working life and can help to overcome contextual barriers and
socio-demographic factors that influence learners’ decisions to undertake and successfully complete
learning (e.g. costs, family obligations, geographic location, differences in learning cultures, labour market
conditions, and language). According to the 4 stakeholder group surveys, conducted as part of Cedefop’s
ongoing study
on micro-credentials role in facilitating learning for employment,
respondents representing
employers (73%) identified flexibility as the most important benefit of micro-credentials being more suited
for upskilling and reskilling of employees. Respondents representing employees indicated the relevance of
their content to the labour market needs (48.5%) and the fast response to the needs of employers (42.4%) as
most important.
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Inclusion
Micro-credentials can also be used as part of targeted measures to support inclusion and accessibility to
education and training to a wider range of learners, including vulnerable groups (such as people with
disabilities, low-qualified/skilled persons, minorities, people with migrant background and people with
fewer opportunities because of their geographical location and/or their social-economically disadvantaged
situation). Relevant, accessible and well-designed offers of micro-credentials could offer those usually
excluded from traditional learning pathway into education and training, the labour market and society to
grow in it.
Micro-credentials could be used to support improved access for learners who do have the resources or time
to commit to a full time education and training. Micro-credentials can also be used as part of targeted
measures to tackle gender stereotypes and other forms of discrimination, to ease transition from secondary
to tertiary education, and offer training opportunities to new types of learners The Rome Ministerial
communiqué adopted in November 2020 by the 49 European Higher Education Area (EHEA) countries,
identified micro-credentials as a conduit for “creating a supportive environment…that enables higher
education institutions to tailor education provision to the needs of different types of learners (lifelong
learners, part-time learners, learners from under-represented and disadvantaged groups) and to build a
culture for equity and inclusion”
57
.
The Commission action does not claim or represent micro-credentials as an alternative or single solution to
issues of inclusiveness, lifelong learning or employability. There is a risk that micro-credentials may
perpetuate and even deepen existing inequities of access to upskilling and reskilling if they are not integrated
in a holistic, inclusive way across education, training and labour market systems. Evidence from the OECD
shows that micro-credentials do not yet serve a tool to improve representation in traditional higher
education
58
:
“One of the main challenges of existing higher education micro-credentials is that
they are taken up in greater numbers by learners who have already achieved higher
education, have greater financial resources and access to better support systems. In
Europe, evidence suggests that short non-degree learning programmes offered by
higher education institutions are rarely targeted at supporting increased participation
in higher education, with the notable exception of the Nordic countries. Yet, well-
designed micro-credential policies have considerable potential to lead to more
equitable higher education participation, and could support improved outcomes for
learners.”
57
58
EHEA (2020), Rome Ministerial Communiqué, European Higher Education Area (EHEA).
Shapiro Futures, H., Andersen, T., & Nedergaard Larsen, K. (2020). A European approach to micro-credentials:
Background paper for the first meeting of the consultation group on micro-credentials. Policy Paper, European
Commission. Available at
https://ec.europa.eu/education/sites/default/files/document-library-docs/european-
approach-micro-credentials-higher-education-consultation-group-output-annex-1.pdf
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Micro-credentials should be used to complement and enhance associated policies and actions
support lifelong learning and employability so that leaners from all groups of society can access their
benefits. Micro-credentials should be seen as complementary, and indeed supplemental, to existing
education, training as well as being valid and valuable stand-alone units of learning themselves. Traditional
credentials remain a cornerstone for learning and employability however they can be complemented and
supplemented by micro-credentials enabling lifelong learning. Micro-credentials also need an environment
that guarantees their proper understanding and recognition so that they can produce their desired effects.
Case study 6: micro-credentials to support refugees’ access to higher education
Kiron Open Higher Education (Kiron) is a Germany-based non-profit edtech organization promoting
the use of digital solutions in higher education to enable free access to higher education and
successful learning for refugees worldwide.
Integrating refugees into higher education systems has emerged as a new challenge. Kiron, a non-
profit edtech organisation founded in 2015, promotes the use of digital solutions in higher education to
enable access to higher education and successful learning for refugees worldwide. In order to
overcome the barriers refugees face, they can start studying with Kiron regardless of their asylum
status, mobility restrictions, their knowledge of the language in their host country or high tuition fees of
universities by participating in a free online study program based on Massive Open Online Courses
(MOOCs). After providing a document that proves a refugee or asylum seeker status, they can register
and start their studies on Kiron’s learning platform Kiron Campus. Students enrol in one of five study
tracks or benefit from preparatory courses to refresh their basic skills, and receive support through a range
of additional services with the ultimate aim to transfer to a regular offline study program at one of Kiron’s
partner universities with Kiron credits recognised. Students can receive a maximum of 60 ECTS credits
(equivalent to a workload of one full-time study year) in case they enrol in Kiron’s partner universities.
The extent to which institutions will offer micro-credentials depends on the available sources of funding to
invest in their development. Governments can further support the development and uptake of micro-
credential programmes by providing targeted funding to institutions and learners and providing financial
incentives to employers.
Case study 7: Strategic funding in Ireland dedicated to the development of micro-credentials and
the Multi-Campus Micro-Credentials
The Irish Ministry for Further and Higher Education, Research, Innovation and Science has announced
in October 2020 the award of over €30 million in free and subsidised higher education places under the
Jobs Stimulus package to help get people back to work, upskill workers and build economic confidence
while continuing to manage the impact of COVID-19. The funding will support the provision of 11,597
places on short, modular courses together with an additional 2,555 postgraduate places.
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The 2,555 postgraduate places are on 207 existing courses in 23 public and private higher education
institutions. The places are available on courses in a wide range of skills areas, including Data Analytics,
Environmental Sciences, Engineering, Tourism and Hospitality, ICT & Health and welfare including
Medical Technology.
Modular courses are short and focused and offered in a flexible manner, allowing people to gain
important skills without taking a considerable period away from the labour market.
Each module is stand-alone so that participants can gain skills and put them into practice immediately in
the workplace, but modules are also accredited in such a way as to provide building blocks to a full
qualification should the student so wish.
These 538 modular courses across a broad range of subjects in 32 higher education institutions, represent
a new route into lifelong learning, and provide upskilling and reskilling opportunities for those who need
it, while ensuring that they remain close to the labour market.
Ireland is also providing strategic funding dedicated to the development of a national approach to micro-
credentials including the MC2 initiative, among other institutional micro-credentialing initiatives funded
through the Irish Government's Human Capital Initiative:
In 2020, the IUA was awarded a five years grant of €12.3 million from the Human Capital Initiative
(HCI) to establish a Multi-Campus Micro-Credentials (MC2) system. The MC2 project involves a
consortium of 7 Irish Universities led by Irish Universities Association (IUA) and has 4 key deliverable
strands:
Strand 1: Development of a National Framework for micro-credentials.
Strand 2: Creation of a dynamic and sustainable model of enterprise engagement for micro-credentials.
Strand 3: Design and development of a digital Discovery Platform for accredited micro-credentials,
linked to a digital credentialing solution. The on-line portal will drive awareness of, and support learner
access to micro-credentials and stacked micro-credential pathways.
Strand 4: Agilely developed and flexibly delivered suite of micro-credentials across the partner
universities.
2.
Problem Definition
The overview of provision of micro-credentials described in the preceding section portrays a rapidly
growing, diverse landscape of providers and approaches. There are many open questions and the general
acceptance and use of micro-credentials is not yet established which limits their potential to support flexible
learning and career pathways. Currently, there is an absence of transparent standards for quality and no
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common definition for micro-credentials which creates uncertainty about the value, quality, recognition,
transparency and portability of micro-credentials. This section elaborates these issues and highlights the
real need for shared meaning and mechanisms to promote trust in micro-credentials.
2.1. Lack of definition
Despite increasing global interest in micro-credentials, the
lack of a shared definition is currently perceived
as the most substantial barrier to further development and uptake of micro-credentials
59
.
The status of micro-credentials is unclear in many countries as they are positioned as being alternative or
supplementary to traditional qualifications such as degrees and the term is poorly understood amongst
educators, employers and the public. There is no global consensus on the use or meaning of the term ‘micro-
credential’ (Brown, et al., 2021) partly because the field is still rapidly evolving and subject to constant
change as new initiatives and priorities emerge. As noted by the OECD
60
:
Despite an increasing volume of these new credentials, great uncertainty persists. Definitions and
taxonomies to structure these new credentials have not been widely agreed. The extent of their offer
remains uncertain, evidence of their impacts is scant, and the response of governments to these new
offerings has not been systematically documented.
(Kato, Galán-Muros & Weko, 2020, p.7)
The fact that there is no established shared or common definition for micro-credentials is a critical issue for
the positioning of micro-credentials including their design, implementation and perceived value by learners
and stakeholders.
59
Shapiro Futures, H., Andersen, T., & Nedergaard Larsen, K. (2020). A European approach to micro-credentials:
Background paper for the first meeting of the consultation group on micro-credentials. Policy Paper, European
Commission. Available at
https://ec.europa.eu/education/sites/default/files/document-library-docs/european-
approach-micro-credentials-higher-education-consultation-group-output-annex-1.pdf
60
Kato, S., Galán-Muros, V., & Weko, T. (2020). The emergence of alternative credentials. OECD Education
Working Papers, No. 216, OECD Publishing, Paris. Available from
https://doi.org/10.1787/b741f39e-en
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Figure 11: Types of Educational Credentials.
61
Several other labels and descriptors are commonly used in the literature instead of (or interchangeably) with
the term micro-credential (e.g., digital badges, open badges, online certificates, alternative credentials,
nano-degrees, micro-masters, modular qualifications). The conflation in some publications between the
concept of a micro-credential and an open digital badge adds to this confusion and gave rise to
methodological challenges in the research design.
Particular conceptual issues arise in differentiating and understanding the relationship between micro-
credentials and traditional qualifications. Formal qualifications, such as degrees and diplomas issued by
higher education institutions or VET institutions, have been a key feature of the credentials landscape for
centuries. Such qualifications are sometimes referred to in the literature as macro-credentials. These
qualifications are issued securely by an accredited institution, and traditionally on paper, parchment or
digital formats. They are obtained over extended periods of time following the successful completion of a
course or programme, usually by aggregating grades and ratings obtained in response to assessment tasks
in components with different names (such as courses, units or subjects)
62
.
61
Camilleri, A., & Rampelt, F. (2018). Concept Paper on Quality Assurance of Credentials. Project deliverable,
OEPass project (ERASMUS+). Available at
https://oepass.eu/wp-content/uploads/sites/22/2019/03/OEPass_O1A1-
report_v5.pdf
62
Oliver, B. (2016). Better 21C Credentials: Evaluating the promise, perils and disruptive potential of digital
credentials. Research Report, Deakin University. Available at
https://www.deakinco.com/media-centre/white-
papers/better-21c-credentials-from-deakin-universitys-professor-beverley-oliver
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Figure 12: Micro-credentials, What-Why
Source : OECD (2021), Micro-credential innovations in higher education: Who, What and Why?
63
Internationally, the definition of micro-credentials varies significantly depending on who is using the term
and in what context. Nevertheless, while definitions may diverge, common factors can be found such as
being smaller in volume, more targeted and more flexible than traditional credentials as seen in the sample
of definitions included below:
Source
Definition
Micro-credentials verify, validate, and attest that specific skills and/or
competencies have been achieved. They differ from traditional degrees and
certificates in that they are generally offered in shorter or more flexible
timespans and tend to be more narrowly focused.
A micro-credential certifies achievement of a coherent set of skills and
knowledge; and is specified by a statement of purpose, learning outcomes, and
strong evidence of need by industry, employers, iwi and/or the community. They
are smaller than a qualification and focus on skill development opportunities not
currently catered for in the regulated tertiary education system.
A micro-credential is a small volume of learning certified by a credential.
State University of
New York
New Zealand
Qualifications
Authority
EUA
OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education
Policy Perspectives, No. 39, OECD Publishing, Paris,
https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en
63
39
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MicroHE
Consortium
The International
Council for Open
and Distance
Education
Digital promise
Sub-unit of a credential or credentials that could accumulate into a larger
credential or be part of a portfolio. Examples are: Verified Certificates, Digital
Badges, MicroMasters, and Nanodegrees
A credential issued for a relatively small learning project that consists of several
modules in a given subject
Micro-credentials provide competency-based recognition for the skills educators
learn in both formal and informal settings.”
Micro-credentials are a form of micro-certification earned by proving
competence in one specific skill at a time, via a portfolio of evidence, created
through classroom practice.
Bloomboard
A micro–credential is a sector-endorsed short course that provides the recipient
with specialist skills.
Figure 13: selected definitions of micro-credentials
64
Source: OECD (2021), Micro-credential innovations in higher education: Who, What and Why?
QS
Further common characteristics are captured in the graphic below:
OECD (2021), “Micro-credential innovations in higher education: Who, What and Why?”, OECD Education
Policy Perspectives, No. 39, OECD Publishing, Paris,
https://www.oecd-ilibrary.org/education/micro-credential-
innovations-in-higher-education_f14ef041-en
64
40
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Figure 14: In brief: Micro-credentials now
Source: Oliver, B. (2019) Making micro-credentials work: for learners, employers and providers, Deakin
University
65
In the face of this reality, clarifying what is meant by a micro-credential is critical.
Importantly, many of
these so-called alternative or supplementary credentials which might meet the definition of a micro-
65
Oliver, B. (2019). Making micro-credentials work for learners, employers and providers. Deakin University.
Available from
https://dteach.deakin.edu.au/wp-content/uploads/sites/103/2019/08/Making-micro-credentials-work-
Oliver-Deakin-2019-full-report.pdf
41
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credential can serve different purposes, are awarded by different types of organisations, are based on
different standards or professional frameworks, and come under different quality assurance processes. The
variation and open questions on the definition of micro-credentials within these different contexts mirrors
and contributes to the current challenges and barriers to the further development and adoption of micro-
credentials, including a lack of trust, lack of transparency and lack of uptake as elaborated in the following
sections.
2.2. Lack of trust
Despite the growing number of diverse alternative credentials, and enthusiasm among learners and
stakeholders, the lack of common understanding leads to a general lack of trust in micro-credentials and
the associated learning outcomes. There are increasing concerns about micro-credentials due to the lack of
a commonly agreed definition (discussed above in 3.1) and employers, learners and education and training
institutions alike lack information and certainty on the reliability, quality and authenticity of micro-
credentials emerging from diverse providers. Preliminary findings from the ongoing Cedefop study
on
micro-credentials role in facilitating learning for employment
found a high percentage of distrust in micro-
credentials among national authorities, VET providers, employer and employee organisations due to the
fact that micro-credentials are a new, unknown form of credential and there is uncertainty of the added
value, recognition and use of micro-credentials.
A key consideration for the European approach to micro-credentials is to identify the policy measures and
actions necessary to help individuals, education and training providers, employers and policy-makers to
trust micro-credentials. The establishment of standards is key to facilitating individuals, education and
training providers, employers and policy-makers to understand the value of micro-credentials and their
contribution to lifelong learning, mobility and employability in a European labour market context.
Ensuring employers’ trust in the value of micro-credentials is a key policy challenge. Their potential for
supporting end-users needs to be further explored, as does the extent to which they are prominent in
vocational education and training (VET) and work-based learning. Cedefop’s ongoing study
on micro-
credentials role in facilitating learning for employment
found that employers most trust micro-credentials
that lead to nationally recognised qualifications (87,5%). Nevertheless, the same study found that despite
the perceived lack of trust in micro-credentials, organisations representing employees somewhat agree
(50%) that employees in their sectors would benefit from a wider uptake of micro-credentials for training
and continuous professional development.
2.3. Lack of transparency
The diversity of formats and providers of micro-credentials limits the ability of learners, employers and
education and training institutions to engage with and understand micro-credentials. There are no
commonly used approaches, reference tools or guidance available to understand the nature and content of
micro-credential and the possibility to share and authenticate micro-credentials easily.
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There is no single or shared approach to describing key elements including the learning achievements, the
workload to earn the micro-credential, the status of the awarding body, the form of assessment, or the type
of quality under pinning the micro-credential. This situation immediately limits the possibility to recognise
and understand micro-credentials in an effective and efficient way; and the portability, validation and
stacking of micro-credentials between and within countries, education and training sectors, and on the
labour market is seriously inhibited. This situation will deter employers, education and training institutions
and other recipients of micro-credentials from accepting and processing micro-credentials due to the
perceived extra workload required to understand the micro-credentials. As such, micro-credentials are not
yet standardised to be a currency in the labour market or education and training systems. Consequently,
learners will not be motivated or incentivised to complete micro-credentials (see Lack of Uptake below in
3.4). Some publications have advocated for the creation of National Qualification Frameworks
66
or the
accommodation of micro-credentials within the same
67
however there are differing views as to whether
including micro-credentials in NQFs and qualifications systems is compatible with the need to ensure the
flexibility and responsiveness of micro-credentials.
A further important consideration for transparency of micro-credentials is a perceived lack of digital
solutions for issuing, storing, sharing and authentication micro-credentials in a secure way. Technological
solutions are key to enabling the portability and potential to ‘stack’ micro-credentials. There are numerous
established and emerging technological solutions including Blockchain, electronic wallets, open badges
and digital credential systems which can be potentially leveraged to support portability of micro-credentials.
These systems are already being explored within education, training and labour market systems, including
for traditional qualifications. There are numerous open questions on the feasibility and use of technology
and also an inherent risk that if Member States, providers and other stakeholders begin to use differing
technological solutions and technical standards this will in fact limit the portability and easy exchange of
information on micro-credentials (an issue which already exists in the case of traditional qualifications).
A further issue is that micro-credentials are not identified in data collection at EU or other levels, including
educational attainment surveys, labour force or other surveys meaning there is currently limited data on the
impact and economic and social benefits of micro-credentials. Future analysis of learner impact needs to
consider both the individual and longer-term societal benefits of micro-credentials but of course this
dependent on there being a coherent, shared understanding of micro-credentials that can be incorporated
within data collection, skills intelligence analysis and research.
As micro-credentials become more prolific and widespread, there will be a need to collect better
information, in a standard format will enable better research and analysis. Ensuring that information about
micro-credentials is transparent and informative will build trust among learners and employers and facilitate
the uptake of micro-credentials.
66
Usher, A. (2021). Micro-credentials in Ontario. Higher Education Strategy Associates. 28th April. Available from
https://higheredstrategy.com/micro-credentials-in-ontario/
67
Nic Giolla Mhichíl, M., Brown, M., Beirne, E. & Mac Lochlainn, C. (2020). A micro-credential roadmap:
Currency, cohesion and consistency. Dublin City University. Dublin. Available at
https://www.skillnetireland.ie/publication/a-micro-credential-roadmap-currency-cohesion-and-consistency/
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2.4.
Lack of uptake
The combined effect of the issues described above regarding definition, trust and transparency mean that
while there has been notable, enthusiastic interest in micro-credentials there is not yet wide and inclusive
acceptance, awareness and uptake of micro-credentials by learners
68
. There are uncertainties about the value
and benefits of micro-credentials for their personal and professional lives and learners need to be better
informed about the availability and nature of micro-credentials. Learners are not likely to sign up for new
and relatively unknown credential unless they can reasonably expect a return on investment in the form of
higher pay, greater job mobility, etc. But if employers don't understand a new credential, they won't reward
it. The lack of understanding by employers of the value of micro-credentials may therefore discourage
learners from taking up micro-credentials. The European approach to micro-credentials should work to
address this awareness gap and deliver on the full potential of micro-credentials to meet the needs of people.
Future uptake of micro-credentials will also be dependent on availability of information and guidance on
micro-credentials and their outcomes. Information and guidance on identifying and selecting micro-
credentials, including information on possible outcomes, will need to be incorporated within lifelong
guidance services that help people with their career and learning choices. This should include university
career centres, public employment services (PES), private employment services, social services and other
guidance services for employment, self-employment, education and training, and coaching to meet the
needs of widest possible learner groups, including from the most vulnerable groups.
The recently published OECD report
Micro-credential innovations in higher education: Who, What and
Why?
exposes that “In most countries, learners do not yet have a trusted source of public information that
permits them to compare systematically the key features of micro-credentials offered by higher education
institutions (or, indeed, other providers)”. The publication cites examples in the United States of a voluntary
and foundation-supported initiative, called Credential Engine, has sought to build a credential registry “to
house information about all credentials, a common description language to enable credential comparability,
and a platform to support customized applications to search and retrieve information about credentials”
69
and an initiative in Australia to create a one-stop-shop online marketplace for micro-credentials to provide
a nationally consistent platform to help students compare among micro-credentials using common criteria
such as course outcomes, duration, mode of delivery and credit point value.
The same OECD report reflects on aspects of information that could potentially be of use to learners, when
making decisions on choosing micro-credentials, as well as stakeholders. It may not be feasible to
systematically gather information about labour market outcomes associated with the acquisition of micro-
credentials but other means of assessing the value of the micro-credential such as a public rating system
(from verified learners) could provide worthwhile information to people considering options. Learners may
be best placed to report on their perceived value and experiences with using the micro-credential in the
labour market or for further education.
68
Kato, S., Galán-Muros, V., & Weko, T. (2020). The emergence of alternative credentials. OECD Education
Working Papers, No. 216, OECD Publishing, Paris. Available from
https://doi.org/10.1787/b741f39e-en.
69
Credential Engine (2021), Credential Engine Schemas Handbook,
https://credreg.net/ctdl/handbook
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Information on micro-credentials must be presented in a more dynamic form than traditional catalogues of
learning, which might only be updated in line with academic cycles, to support learners looking to plan
their career and next steps. High-quality public information portals on micro-credentials will need effective
and efficient ways of collecting and aggregating data from providers.
3. Available feedback from target and open consultations on the envisaged measures
This chapter presents an outline of the consultation strategy and a synopsis of key findings from the Open
Public Consultation (OPC) and targeted stakeholder events that took place in the context of the wider
Stakeholder Consultation Strategy.
3.1. Outline of the consultation strategy
The European Commission’s Consultation Strategy consisted of three main activities: collection of
feedback on the Roadmap, followed by an Open public Consultation and a number of targeted stakeholder
events involving all important stakeholder groups.
From 19 February to 19 March 2021, the European Commission collected feedback on its Roadmap. The
Roadmap aimed to inform citizens and stakeholders about the Commission's ongoing work on micro-
credentials, in order to receive their feedback and participation in future consultation activities. The
Roadmap described the issue, objectives to be met, why EU action is needed, and the main features of the
Consultation Strategy. Citizens and stakeholders were invited to provide views on the Commission's
understanding of the problem and possible solutions, and also to contribute any relevant information they
may have. Feedback was collected via the European Commission’s dedicated website.
A 12-week Open Public Consultation on micro-credentials was launched on 20 April 2021, through which
stakeholders and the general public were consulted on the scope of the proposed European approach to
micro-credentials initiative and were able to provide feedback using an interactive survey questionnaire.
This questionnaire was made available on the Have Your Say portal of the European commission.
Responses were collected until the formal closing date on 13 July 2021. In total, 508 respondents completed
the survey, and 92 additional documents were uploaded.
After collecting initial feedback from experts in the field, targeted consultations events were conducted
from the second half of 2020 to summer of 2021 to ensure the participation of all interested stakeholders
and citizens. In addition to gathering perspectives on the scope of the proposed European approach to micro-
credentials, the OPC and targeted stakeholder events sought to inform and gather the views of Member
States (MS), the public and other stakeholders on the working definition of micro-credentials and set of
core elements of European standards around the main building blocks of the initiative.
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3.2. Analysis of results across different consultation activities
The European Commission started consultations in 2020 in order to gather stakeholders’ views on a
European approach to micro-credentials. The consultations carried out so far in 2020 and 2021 aimed at
achieving a working definition of micro-credentials and a set of core elements of European standards around
the main building blocks of the initiative, mainly: quality assurance, recognition, the possibility to combine
(or stack) micro-credentials, links to national qualifications frameworks, storage and portability.
This chapter presents a synopsis of key findings from feedback provided on the Commission’s Roadmap,
Open Public Consultation (OPC) and targeted stakeholder events that took place in the context of the wider
Stakeholder Consultation Strategy. The stakeholder feedback referenced in this report will contribute to the
drafting of the proposal for a Council Recommendation on micro-credentials.
3.2.1. Consultation Strategy and Activities
The European Commission’s Consultation Strategy consisted of three main activities: collection of
feedback on the Roadmap, followed by an OPC and a number of targeted stakeholder events involving all
important stakeholder groups. Below we present a summary of each activity, their objectives, methodology
and any deviations from the initial plans and / or timeline.
3.2.2. Roadmap
From 19 February to 19 March 2021, the European Commission collected feedback on its Roadmap. The
Roadmap aimed to inform citizens and stakeholders about the Commission's ongoing work on micro-
credentials, in order to receive their feedback and encourage participation in future consultation activities.
The Roadmap described the issue, objectives to be met, why EU action is needed, and the main features of
the Consultation Strategy. Citizens and stakeholders were invited to provide views on the Commission's
understanding of the problem and possible solutions, and also to contribute any relevant information they
may have. Feedback was collected via the European Commission’s dedicated website.
3.2.3. Open Public Consultation
The European Commission initiated the 12-week OPC on micro-credentials on 20 April 2021, through
which stakeholders and the general public were consulted on the scope of the proposed European approach
to micro-credentials initiative and were able to provide feedback using an interactive survey questionnaire.
This questionnaire was made available on the
Have Your Say
portal of the European commission.
Responses were collected until the formal closing date on 13 July 2021. In total, 508 respondents completed
the survey, and 92 additional documents were uploaded.
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3.2.4. Targeted stakeholder events
After collecting initial feedback from experts in the field, targeted consultations events were conducted
from the second half of 2020 to summer of 2021 to ensure the participation of all interested stakeholders
and citizens. In addition to gathering perspectives on the scope of the proposed European approach to micro-
credentials, the OPC and targeted stakeholder events sought to inform and gather the views of Member
States (MS), the public and other stakeholders aiming to achieve a working definition of micro-credentials
and a set of core elements of European standards around the main building blocks of the initiative.
3.2.5. Reach of the Stakeholder Consultation Strategy
Overall, a wide range of stakeholders were reached and consulted through the three consultation activities
described above. Table 1 below provides an illustration of the stakeholder landscape, indicating the groups
reached by each consultation channel. Overall, all intended stakeholder categories were reached through at
least one of the consultation channels.
Intended audiences for Stakeholder Consultation Strategy
National Qualification Authorities, qualification
assurance agencies, and qualification recognition
bodies
Social partners
Organisations representing regional, local and
municipal authorities
Chambers of Commerce, Industry and Craft
Education and training providers
Public employment services
International organisations
Industry/business
Governments
Consultation
activity
Roadmap
47
Citizens/general public
NGOs
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Open Public
Consultation
Targeted
stakeholder
events
Table 1. Stakeholder landscape
The Stakeholder Consultation Strategy also managed to achieve a significant geographical reach, engaging
with stakeholders from across the EU and beyond. Respondents to the Roadmap originated from 12
countries in Europe, with over a third hailing from Belgium. The OPC respondents represented 43 countries
in total, including all Member States except Luxembourg. Italy was the most common country of origin of
OPC respondents followed by Belgium, Hungary and Spain. Respondents from third countries mainly
originated from the United Kingdom.
3.3. Findings
This section provides a synopsis of the findings from feedback provided on the OPC and the targeted
stakeholder events.
3.3.1. Open Public Consultation and targeted stakeholder consultation events
Based on survey responses and position papers submitted through the OPC and the feedback from the
targeted stakeholder events, as a whole the relevant stakeholders welcomed the European Commission’s
efforts on micro-credentials. Some concerns were expressed about potential disruption in national education
systems.
3.3.1.1.
Views on the working definition of micro-credentials proposed by the
European Commission
Working Definition:
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A micro-credential is a proof of the learning outcomes that a learner has acquired
following a short learning experience. These learning outcomes have been assessed
against transparent standards.
The proof is contained in a certified document that lists the name of the holder, the
achieved learning outcomes, the assessment method, the awarding body and, where
applicable, the qualifications framework level and the credits gained. Micro-
credentials are owned by the learner, can be shared, are portable and may be
combined into larger credentials or qualifications. They are underpinned by quality
assurance following agreed standards.
In general, the working definition of micro-credentials was welcomed by all stakeholders, many of whom
highlighted its important role in providing clarity on micro-credentials and related concepts and paving the
way for a harmonised European approach. According to the OPC respondents
70
the essential elements of
the working definition on micro-credentials were:
“focus on learning outcomes”;
“assessment of learning outcomes against transparent standards”;
“proof of learning contained in a certified document” ; and
“underpinning by quality assurance”.
Details on the views on the working definition across all stakeholder groups in the OPC are presented in
the tables below. The first summarises the percentage of respondents per stakeholder category who
considered a certain element of the working definition as “essential”, whereas the second shows combined
responses stating an element should be considered “essential” or “recommended” for the EU working
definition on micro-credentials. The colour scale highlights the stakeholder groups which were the most
numerous in blue and in red those who were the least numerous to consider this element as essential or
recommended, based on the responses to the OPC.
NGOs
Academic Business
Element
of
the All
Public
(including
Trade
/ research (company /
working definition
respondents
authorities consumer and unions
institutions association)
environmental)
70
Only respondents to the OPC in their professional capacity (188, any other categories than those who replied to
the OPC in their personal capacity as EU or non-EU citizen, learner, staff of education and training organisations in
personal capacity, worker, job-seeker) were asked to feedback on the elements of the working definition of the
European Commission.
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Focus on learning
outcomes
Assessment of
learning outcomes
against transparent
standards
Proof of learning
contained in a
certified document
Underpinning by
quality assurance
Portability across
Europe
Credits or other
expression of
workload
Possibility to
combine micro-
credentials into
larger credentials or
qualifications
Focus on the short
learning experience
Inclusion in a
qualifications
framework
82%
79%
73%
76%
88%
96%
80%
85%
70%
80%
74%
96%
73%
79%
48%
80%
74%
87%
69%
68%
53%
64%
74%
91%
47%
62%
38%
28%
74%
13%
45%
53%
30%
60%
50%
30%
41%
53%
30%
40%
43%
30%
32%
35%
30%
48%
36%
9%
30%
38%
28%
16%
38%
4%
N: All respondents=188; Academia=34; Business=40; Public authorities=25; NGOs=42; Trade
union=23
Table 2. Percentage of OPC respondents who considered a given element “ESSENTIAL” in the
context of the working definition, per stakeholder group
50
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NGOs
Academic Business
Element
of
the All
Public
(including
Trade
/ research (company /
working definition
respondents
authorities consumer and unions
institutions association)
environmental)
Focus on learning
outcomes
Assessment of
learning outcomes
against transparent
standards
Proof of learning
contained in a
certified document
Underpinning by
quality assurance
Portability across
Europe
Credits or other
expression of
workload
Possibility to
combine micro-
credentials into
larger credentials or
qualifications
Focus on the short
learning experience
Inclusion in a
qualifications
framework
98%
100%
93%
100%
100%
100%
96%
100%
95%
92%
95%
100%
91%
94%
80%
96%
93%
96%
97%
100%
90%
96%
100%
100%
82%
94%
78%
76%
98%
39%
78%
88%
58%
92%
93%
52%
79%
85%
68%
92%
88%
48%
82%
88%
88%
92%
95%
26%
69%
85%
55%
56%
83%
30%
N: All respondents=188; Academia=34; Business=40; Public authorities=25; NGOs=42; Trade
union=23
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Table 3. Percentage of OPC respondents who considered a given element “ESSENTIAL” or
“RECOMMENDED” in the context of the working definition, per stakeholder group
The level of flexibility in the definition was subject to more discussion. While Member States, universities
and employers preferred keeping the definition flexible to leave room for experimentation, other
stakeholders such as the European Qualifications Framework Advisory Group (EQF AG) disagreed calling
for as little room for interpretation as possible.
Though stakeholders have called for different inclusions to the definition, a common observation has been
propositions for alternatives to the term ‘short’ used in the definition to describe the scope micro-
credentials. Alternative suggestions included ‘small’ from government bodies and education bodies, while
national agencies suggested the word ‘micro’. Governments also emphasised that the definition should not
restrict the scope of micro-credentials to higher education (HE) and so stated that the notion of duration and
theoretical workload should be removed.
Most stakeholders agreed on the importance of quality assurance as one of the key elements of the definition
to aid the clarification and scope of micro-credentials. However, while employers, employees, Member
States, academic bodies and NGOs called for this inclusion, the commercial industry were less supportive
as only half considered underpinning micro-credentials by quality assurance as an essential element of the
definition. This is unsurprising however as findings show that each stakeholder group valued different
aspects as important elements for the definition, as shown in the table above which provides a visual
representation of the variances in views between stakeholder groups.
3.3.1.2.
Views on the standard elements
The standard elements proposed by the European Commission were well received by the majority of OPC
respondents, who considered each standard as either essential or recommended, as shown in the table below.
Standard element
Identification of the holder of the micro-credential
Title of the micro-credential
Date of issuing
Awarding body
Learning outcomes
Quality assurance of the credential
52
Essential
458
441
392
389
344
316
Recommended
41
58
95
100
127
159
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Country/Region of the issuer
Level (and cycle, if applicable) of the learning experience
Notional workload needed to achieve the learning outcomes
Quality assurance of the learning content
Supervision and identity verification during assessment
Type of assessment
Integration and stackability options
Grade achieved
263
262
250
250
203
195
176
165
171
186
188
178
178
186
220
169
Form of participation in the learning activity
131
200
Table 4. Number of OPC respondents who considered a given element “ESSENTIAL” in the context
of EU standard options to characterise micro-credentials, n=508
A detailed overview of the stakeholder groups’ opinions on the elements which should be included in EU
standard options to characterise micro-credentials under a European approach is presented in table below,
based on the OPC responses. The colour scale highlights the stakeholder groups which considered each
element as an essential feature of micro-credentials in the context of a European approach (in blue) and
those who were the least numerous to consider this element as essential, based on the responses to the OPC.
NGOs (including
environmental)
86%
93%
79%
76%
76%
/
Academic/resear
ch institution
All respondents
Public authorities
Element of the micro-credential
Identification of the holder of the
micro-credential
90%
Title of the micro-credential
Date of issuing
Awarding body
Learning outcomes
87%
77%
77%
68%
90%
83%
75%
73%
58%
53
94%
88%
79%
85%
74%
88%
88%
83%
80%
73%
92%
100%
88%
84%
92%
100%
100%
96%
87%
83%
Trade unions
Business
(company
association)
EU citizens
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NGOs (including
environmental)
67%
50%
52%
60%
57%
36%
43%
26%
26%
31%
/
Academic/resear
ch institution
All respondents
Public authorities
Element of the micro-credential
Quality assurance
credential
of
the
62%
52%
61%
40%
65%
59%
50%
68%
100%
80%
91%
83%
Country/Region of the issuer
Level (and cycle, if applicable)
of the learning experience
52%
Notional workload needed to
achieve the learning outcomes
49%
Quality assurance of the learning
content
49%
Supervision
and
identity
verification during assessment
40%
Type of assessment
Integration
options
and
stackability
35%
32%
38%
49%
59%
25%
52%
74%
47%
62%
33%
52%
65%
52%
35%
45%
56%
91%
48%
32%
44%
47%
33%
45%
20%
28%
83%
83%
33%
31%
38%
29%
20%
23%
24%
24%
65%
65%
Grade achieved
Form of participation in the
learning activity
26%
22%
24%
25%
12%
65%
N: All respondents=508; EU citizens replying in personal capacity= 168;Academia=34;
Business=40; Public authorities=25; NGOs=42; Trade union=23
Table 5. Percentage of OPC respondents who considered a given element “ESSENTIAL” in the
context of EU standard options to characterise micro-credentials, per stakeholder group
The OPC respondents provided a few suggestions for additional standard elements of micro-credentials
which could be included in a European approach. As a form of added verifiability, several recommended
introducing a validity period of a micro-credential, a European online repository for issued certificates,
unique code to validate the issuer, blockchain verification, and external control body that would supervise
micro-credentials on a European level. Concerning the clarity and transparentness, others suggested
54
Trade unions
Business
(company
association)
EU citizens
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2498423_0056.png
including a short description of a context in which a micro-credential was awarded, specifically what a
learner had to do to earn that competence or another evidence of learning or achievement.
Views on EU-level actions and measures
All views on this topic were shared during the OPC. The majority of respondents expressed very similar
views in relation to the role of the EU in facilitating the uptake of micro-credentials, as shown in the figure
overleaf. Ensuring harmonisation of micro-credentials at EU-level was considered the primary role of the
EU, especially ensuring their recognition and providing a clear definition. It should be noted that including
information on workload was seen as the least important task for the EU.
Additional actions suggested by respondents included:
The use of existing technological tools to prevent reinventing the wheel – reference was made to
platforms such as Badgecraft.eu and the Open Badge initiative.
Providing various financial subsidies to promote the use of micro-credentials; providing funding to
support the co-construction of micro-credentials with industry, professional bodies, NGOs and
stakeholders; as well as seed funding for pilot projects and ongoing funding for the costs of
maintaining systems and records for learners.
Encouraging the involvement of private sector and employers and considering the needs of said
actors; and considering what the market wants (demand pull) while relaxing what HEI and VET
providers want to deliver (supply push).
Targeted dissemination and awareness raising on micro-credentials for potential beneficiaries. This
would involve providing clear information and signposting to all citizens about the opportunities
available. This was considered paramount by those respondents.
Very important
Rather not important
Ensure recognition of MCs
Develop clear definition
EU standard for certificate contents
Set Europe-wide quality standards
Ensure transferability of MCs in education and
training
0%
20%
61%
61%
60%
40%
60%
Rather important
Not important
77%
77%
29%
27%
30%
80%
100%
15%
18%
Figure 15. EU-level actions and measures which facilitate the take-up of micro-credentials, top 5
options (n=508)
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2498423_0057.png
3.3.1.3.
Views on micro-credentials’ link to labour market and
employability
All consulted stakeholder categories highlighted the ability of micro-credentials to address current and
future labour market needs, through the up- and reskilling of adults in response to the green and digital
transition. In the OPC, business associations strongly advised that micro-credentials should be designed
with labour market needs in mind, to ensure they are able to narrow the skills gaps. The French government
argued for the explicit exclusion of regulated professions from a potential European approach to micro-
credentials. Private companies identified specific sectors that would benefit from increased human
resources due to labour shortage, which included the social services sector and agricultural sector. The Joint
ETCU–ETUCE (2020) position statement on micro-credentials
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statement expressed serious concerns that
micro-credentials may be harmful to acquiring and recognising full qualifications. In many respects, the
position paper supports a European-wide approach to micro-credentials where they are complementary to
full qualifications, quality assured and accredited in accordance with the European Qualifications
Framework (EQF) and national qualification frameworks
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. However, the paper emphasised the importance
of engagement with employers and employees and also noted that current employment contracts usually
only recognise and reward employees who attain formal macro credentials (such as full degrees).
Social Partners Hearing
A dedicated Social Partners hearing on micro-credentials was held on 15 April 2021. Partners stressed
the potential usefulness of micro-credentials for upskilling and reskilling people, the importance of social
partners’ involvement in their development and of respecting national systems and practices. They also
highlighted that micro-credentials should complement and not replace formal qualifications and the
importance of quality assurance.
Workers stated that micro-credentials should be linked to paid training leave and that special attention
should be paid to inclusiveness (reaching out to low-skilled people), equal access and work-life balance.
They asked for social partners’ involvement in the regulation of private courses to avoid the risk of
frauds.
Employers asked to avoid over-formalisation that would reduce flexibility, which is a key feature of
micro-credentials, and to leave providers the choice of whether or not to adopt the EU standards. They
also asked for a link with Europass.
3.3.1.4.
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Views on education and training systems
Available at:
https://www.csee-etuce.org/en/resources/statements/3908-joint-etuc-etuce-position-on-micro-
credentials-in-vet-and-tertiary-education-june-2020
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Brown, M., Nic Giolla Mhichíl, M., Beirne, E., & Mac Lochlainn, C. (2021). The global micro-credential
landscape: Charting a new credential ecology for lifelong learning. Journal for Learning Development
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Generally, there was consensus among stakeholders that micro-credentials should not replace education
and training but should be complimentary. From views shared during the Consultation, it was evident that
micro-credentials were seen by some stakeholders to be a threat to the reputation and value ascribed to
formal education and qualifications, hence the desire for clear separation between the two.Some business
sectors called for restricting certain professions to formal qualifications only and ensuring the inability to
build qualifications through a collection of micro-credentials. Some employers were more relaxed in their
approach but still called for a clear differentiation between micro-credentials, HE and VET, to ensure micro-
credentials did not disrupt existing systems. These views highlight the fact that there is ambiguity as to how
to incorporate micro-credentials into the existing education ecosystem and their relationship to traditional
degrees. VET providers called for a separation between formal education and micro-credentials to ensure
that they are not treated as a short-term solution to systematic failures perpetuating inequality.
In addition to differentiation and distinction, balance may also be needed as proposed during the targeted
consultations by the European Qualifications Framework Advisory Group (EQF AG). They highlighted the
need for balance between micro-credentials and formal education and training, recognising the role they
both play in the education system, with micro-credentials offering different curricula from formal
education. A further addition to this view is the argument by Members of the European Parliament (MEPs)
that though micro-credentials should not replace formal qualifications, they should be compatible with it to
avoid further segmentation of education and training.
3.3.1.5.
Views on barriers to lifelong learning and inclusiveness
It is argued that micro-credentials may have the potential to increase inclusiveness through better access to
education, and could address some of the barriers for adults who seek learning after finishing formal
education and training to upgrade their knowledge, skills and competences in a rapidly changing society
and labour market. The great majority of the OPC respondents (70%) viewed “lack of time” as the main
reason why the participation of adults in training is low, followed by the “lack of support from employers”
and the “uncertainty about whether training will be recognised by any employer” (all around 40%).
Overall, findings across all the consultation channels indicate that micro-credentials bear both opportunities
and risks regarding inclusiveness that need to be navigated. Generally, stakeholders identified the ability of
micro-credentials to widen pathways and access to education and employment for disadvantaged and
underrepresented groups such as migrants and refugees, people living with disabilities, low-wage workers,
and older populations especially in light of the COVID-19 pandemic. However, caution was raised with the
pursuit for inclusivity through micro-credentials. In addition, stakeholders argued the need for separation
between boosting innovation and filling skills gaps in the work field, and the goal of realising more inclusive
education, as they do not necessarily require the same conditions. Nonetheless, the importance of addressing
inequality was flagged by International Organisations such as UNESCO. Trade unions further buttressed
the need to prioritise access and inclusion especially in relation to monetary cost as more private profit-
oriented companies were becoming micro-credentials providers. In line with this, some trade unions have
called the free provision of micro-credentials at Higher Education Institutes (HEIs) for both students and
external learners. Another useful consideration was also flagged by the EESC who noted that besides cost,
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motivation to attend micro-credentials needed to be addressed to ensure inclusivity. They encouraged the
use of outreach activities at local and regional level.
3.3.1.6.
Views on recognition and portability
All stakeholder categories noted the value in the recognition and portability of micro-credentials and
ensuring their quality using transparent standards. A majority of OPC survey respondents viewed
recognition as one of the most important characteristics of a high-quality micro-credential, either by
employers (81%), education and training organisations (74%) or national authorities (72%). However, there
was division among all stakeholder groups on how this should be achieved.
Recognition: Quality assurance (QA)
Across all stakeholder categories and consultation activities, QA was identified as essential in the setting
up of European standards and establishment of trust in micro-credentials. However, there were differing
views on whether pre-existing QA tools should be used, or new ones should be developed, and how these
tools should be applied.
While some National authorities expressed their preference for QA for micro-credentials using pre-existing
tools such as European Standards and Guidelines (ESG) and quality agencies listed in European Quality
Assurance Register (EQAR) for HE. National authorities argued against mandatory embedding micro-
credentials into the existing National Quality Framework (NQF) /European Quality Frameworks (EQF).
Though, some within the commercial industry were in alignment with these governments, all commercial
stakeholders agreed that ultimately each provider should decide the extent to which it applies European
standards under the micro-credentials initiative. Such flexibility may be needed as although some HE
stakeholders agreed with the use of NQF and EQF frameworks to QA micro-credentials, arguing that it
aided classification and reduced the administrative burdens on HEIs, others argued that these frameworks
may be too limiting.
National authorities and commercial industry agreed with the prioritisation of micro-credentials’ flexibility,
warning against excessively burdensome processes. In alignment with this perspective, during the targeted
consultations, employers also warned against over-formalising the process. However, the need to combine
speed and flexibility in the QA process was noted by business associations. In terms of how flexibility could
be ensured, academic institutions argued that the key was the adoption of a decentralised approach to quality
assurance and governance, which would also reduce the burden on institutions. In agreement with this view,
most civil society groups and some academic institutions stated that there were benefits to specific sectors
developing their own quality systems. While civil society groups generally called for those working closest
with beneficiaries to be involved in the development of QA guidelines some voices from the same
stakeholder group called for QA to lie with an independent body that could ensure standardisation across
micro-credentials.
Some HE professionals and regulators such as ENIC-NARIC emphasised the importance of ensuring
transparency, as more private micro-credentials providers enter the market. On this basis, they advised on
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the application of the Bologna process to micro-credentials as a transparency and QA tool
.
According to
the Bologna process, the responsibility of QA lies with education providers. However, some business
providers called for a slightly hybrid approach, encouraging cooperation between HEIs who could offer a
QA system and private providers who could offer practical experience. This idea of cooperation between
HEIs and commercial providers echoes the ideas shared in Section 3.2.2 on employability.
Recognition: Trusted providers
Another potential solution to ensuring QA in micro-credentials was certifying quality by focusing on the
providers of micro-credentials as opposed to the programmes themselves. International organisations such
as OECD and business associations were supporters of this approach, specifically OECD who suggested
using a combination of traditional QA and community/platform-based (“trip advisor”-style) QA to ensure
that even small private MC providers are quality-checked. Some members of the academic sector agreed
with this alternative QA focus, however, their proposed method was the development of a European register
of trusted issuers and mutual recognition as they found that even in academia, trust in micro-credentials
was still an issue. Further progressing this idea, project groups such as Microbol recommended during the
targeted consultations that being listed in the register should become a de-facto ‘label’ of adherence to the
ESG and the European framework for micro-credentials. In their view, the Database of the European
Quality Assurance Register (DEQAR) could be used while at national and regional level, existing registers
might be extended, or specific ones could be created. An alternative view was held by MS, who argued that
rather than focusing on providers, QA should focus on learning outcomes and aligning itself with the pre-
existing EQF tool which specifies courses’ learning outcomes across eight levels.
As a final note for this section, a key concern raised was the fact that recognition of micro-credentials may
be affected as some NQFs do not permit the inclusion of non-formal qualifications. The Commission was
encouraged to explicitly name and recognise non-formal education and its significance.
Portability
The value of portability for micro-credentials was also acknowledged among all the stakeholders across all
consultation activities, though there was division on the medium that should be used. Both Europass and
Digital Badges were considered as adequate tools by the stakeholders. It should be noted that regardless of
the portability medium chosen, progressive digitalisation would be required, and this was noted by
stakeholders. Less popular alternative options proposed included the Entrepreneurial Skills Pass (ESP) for
micro-credentials. However, though digital badges for micro-credentials were clearly popular, some
education bodies did not agree with this approach out of concerns that there both would be conflated. They
argued that micro-credentials should be clearly distinguished from badges as their functions are different,
and validation of learning outcomes should only be used in cases where a formal credential is absent or
does not provide enough reliable evidence on the learning outcomes.
Transferability was also a big theme in the portability discussion. Generally, there was agreement that
micro-credentials should be transferrable, across different sectors which could also involve stackability,
adding an international dimension to an individual’s portfolio. Government representatives, academic
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institutions and student unions, saw the linking of micro-credentials to existing quality frameworks as
essential in order to ensure their stackability into fully-fledged programmes.
3.4. Conclusions
This chapter has provided a synopsis of the key findings from the Stakeholder Consultation Strategy’s
activities organised by the Commission on its upcoming non-legislative initiative on micro-credentials,
which will define a European approach on micro-credentials. Overall, across all stakeholder categories
there is significant support for the development of a European approach on micro-credentials and the
establishment of common defined standards underlying this approach. However, as expected given the
diversity of the stakeholders and potential beneficiaries concerned by the topic, there are competing
interests and perspectives in relation to a variety of aspects of a European initiative on micro-credentials
i.e. the working definition, quality assurance and flexibility, and the role of micro-credentials. Nonetheless,
though concerns and reservations have been flagged by the various stakeholders involved in the process,
useful suggestions and perspectives were captured, which informed the process and its success.
4. Objectives of the proposal
The Commission proposal for a Council Recommendation on micro-credentials for lifelong learning and
employability aims to:
Enable individuals to acquire the knowledge, skills and competences they need to thrive in the
evolving labour market and society, to benefit fully from a socially fair recovery and the just
transitions to the green and digital economy;
Support the preparedness of providers of micro-credentials to enhance the transparency and
flexibility of the learning offer in order to empower individuals to forge personalised learning and
career pathways;
Foster inclusiveness and equal opportunities, and contribute to the achievement of resilience, social
fairness and prosperity for all, in a context of demographic change and throughout all economic
cycles.
To achieve these objectives, the proposal establishes a European approach recommending to Member
States to:
Apply a common EU definition, standard elements to describe micro-credentials, and key
principles for design and issuance of micro-credentials;
Develop the eco-system for micro-credentials, and;
Deliver on the potential micro-credentials to support lifelong learning and employability.
Section 7.2 below describes how these building blocks will support the development and use of micro-
credentials in a coherent way among the Member States, stakeholders, and the different providers (from
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education and training institutions to private companies) across different sectors and fields. This will
facilitate the quality, transparency, recognition, relevance, assessment, stackability, portability, role of
learners, authenticity and role of information and guidance within the European Education Area and labour
markets. It will thus contribute to a lifelong learning culture and increase the employability of people.
In general, the Commission proposal for a Council Recommendation on micro-credentials for lifelong
learning and employability will contribute to implementing Principle 1 of the European Pillar of Social
Rights by widening learning opportunities for all and facilitating more flexible learning pathways
throughout life and Principle 4 supporting the right to timely and tailor-made assistance to improve
employment or self-employment prospects, including the right to receive support for training and re-
qualification.
Micro-credentials can be used within education, training, lifelong learning and employability ecosystems
to support upskilling and reskilling. The proposal does not suggest that micro-credentials should replace
traditional qualifications or substitute existing national processes to organise education and training or
employment or labour markets, including any support processes for vulnerable groups.
The combined functional elements and proposed recommendations address key aspects of micro-
credentials including: quality, transparency, recognition, relevance, assessment, stackability, portability,
role of learners, authenticity and role of information and guidance.
The proposal aims to support the ongoing work by Member States, stakeholders and diverse groups of
providers across the EU on micro-credentials. The proposal offers key resources and guidance for those
providers, and those interested in exploring micro-credentials, to support the quality, transparency and
uptake of micro-credentials. The proposal does not aim at establishing new administrative processes or
obligations nor aim at establishing new governance mechanisms, but rather to build on and adapt where
necessary the existing provisions (e.g. in terms of quality assurance and recognition processes) at national
and institutional levels.
The proposal offers a common basis for Member States, and stakeholders and the Commission to develop
and use micro-credentials in a consistent and coherent way that delivers on their potential to support lifelong
learning and employability, while still respecting and building on the diverse contexts and systems in which
they operate.
Implementation will be underpinned through existing EU tools that support the needs of individuals and
organisations, including Europass and the European Digital Credentials for Learning to support portability
and authenticity of micro-credentials; and the European Student Card initiative which will allow students
to share the outcomes of micro-credentials electronically and in a secure way with other education and
training institutions.
Finally, EU funding programmes and instruments will contribute to facilitating the uptake of short learning
experiences leading to micro-credentials.
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5. EU added value
The global micro-credential landscape is currently disconnected across national and sectoral boundaries.
More clarity is expected to arise as governments, higher education and vocational institutions, non-formal
providers and industry partners work together to harness new shared models. It is important that a common
approach is adopted, thus avoiding multiple interpretations of what micro-credentials are and differing
approaches in how micro-credentials relate to National Qualification Frameworks (NQFs), national
qualification systems, training systems, labour market systems and current certificates and diplomas.
Valuable lessons can be drawn from the positioning of micro-credentials in other countries and regions with
federal structures. For example, Australia has yet to incorporate micro-credentials in the Australian
Qualification Framework (AQF) but by not doing so it is potentially perpetuating a barrier to a more
coherent and consistent approach likely to help better establish the status and currency of such credentials.
While Canada is very active in the area of micro-credentials, the federated approach to higher education
and absence of a National Qualification Framework and funding is no doubt contributing to what appears
to be relatively fragmented growth.
The positioning of micro-credentials in Europe is unique. The Commission proposal can leverage
achievements in co-operation and development of tools such as the European Qualifications Framework
(EQF), the European Credit Transfer System (ECTS), and Europass to support the transparency and
understanding of other forms of learning such as micro-credentials. Europe is already in the process of
forging a more connected approach to micro-credentials, as evidenced by the development of the Common
Micro-credential Framework (CMF) for MOOCs and the collaborative nature of several early pilot
initiatives by higher education institutions and Member States (e.g., Surf in the Netherlands
73
, MC2 in
Ireland, and the ECIU University as a transnational collaborative project). The work in 2020 of the
European Commission’s Higher Education Consultation Group on Micro-credentials to develop a common
definition and European-wide approach to the area is unprecedented elsewhere in the world. A European
approach to micro-credentials might become a global reference for micro-credentials and result in an
increased attractiveness for the offer developed in Europe (as a result of more certainty on the quality and
recognition aspects) and increase the reputation of the European Education Area, including towards third-
country learners, authorities, providers and other stakeholders. The proposal can further strengthen
comparison and recognition of micro-credentials and qualifications between EU and non-EU countries.
Supported by ETF, a European approach to micro-credentials could reach out to third countries, in particular
to Neighbourhood countries, encouraging increased cooperation in education and training.
“There are many drivers underlying the Micro-Credentialing movement... To have true value, a Micro-
Credential must be, above all else, clearly-understood, and serve as a recognised representation of valued
qualities, progress and skills, for both employers, and employees”
74
.
73
74
https://www.surf.nl/en
Nic Giolla Mhichíl, M., Brown, M., Beirne, E. & Mac Lochlainn, C. (2020). A micro-credential roadmap:
Currency, cohesion and consistency. Dublin City University. Dublin. Available at
https://www.skillnetireland.ie/publication/a-micro-credential-roadmap-currency-cohesion-and-consistency/
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The European approach to micro-credentials provides a frame for understanding micro-credentials and a
launching pad for delivering on their potential. The European approach to micro-credentials will allow
providers to offer courses leading to micro-credentials on a larger scale that are trusted, comparable and
recognised as a valuable learning achievement throughout Europe. Micro-credentials can become a known,
valued tool for learning: learners will be motivated and reassured to enrol in courses leading to micro-
credentials knowing that employers and education and training institutions will recognise and provide
opportunities to learners based on these opportunities. The established building blocks (definition, standard
elements, and principles) provide a basis for providers in different sectors to confidently develop and use
micro-credentials. A diversified approach, with different formats and approaches in different sectors and
countries will only intensify the uncertainties and fragmented approach to micro-credentials and limit their
potential to be scaled-up and to support up-skilling and re-skilling.
6. What instruments are available?
The development of micro-credentials can build on existing EU and European Higher Education Area
(EHEA) transparency and quality assurance tools. These are key for the recognition of micro-credentials
within and across borders:
-
the transparency of qualifications (European Qualifications Framework and the Qualifications
Framework of the European Higher Education Area)
75 76
;
quality assurance in higher education (Standards and Guidelines for Quality Assurance in the
European Higher Education Area) and in VET (EQAVET)
77 78
;
credits for achieved learning (European Credit Transfer and Accumulation System);
recognition (Lisbon Recognition Convention and the Diploma Supplement, as well as the Council
Recommendation on promoting automatic mutual recognition of higher education and upper
secondary education and training qualifications and the outcomes of learning periods abroad
79 80
81
;
-
-
-
75
European Commission, 2017. Council recommendation of 22 May 2017 on the European Qualifications
Framework for lifelong learning and repealing the recommendation of the European Parliament and of the Council
of 23 April 2008 on the establishment of the European Qualifications Framework.
76
EHEA, 2005. The Framework of Qualifications for the European Higher Education Area.
77
ENQA, 2012. Standards and Guidelines for Quality Assurance in the European Higher Education Area (ESG).
78
European Commission, 2020e. Proposal for a Council Recommendation on vocational education and training
(VET) for sustainable competitiveness, social fairness and resilience
79
The Council of Europe, 1997. Convention on the Recognition of Qualifications concerning Higher Education in
the European Region.
80
European Commission, 1999. The Diploma supplement.
81
European Commission, 2018. Council Recommendation of 26 November 2018 on promoting automatic mutual
recognition of higher education and upper secondary education and training qualifications and the outcomes of
learning periods abroad.
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-
-
recognition of prior learning and validation of non-formal and informal learning
82
;
lifelong learning, career management and digitalisation (Europass)
83
.
These tools and processes can enable micro-credentials to be issued based on quality-assured learning, and
that micro-credentials can be issued to the learner following an assessment of learning outcomes. Micro-
credentials may be for credit or not for credit, and they may be stacked.
In addition to national tools and infrastructure, the European Digital Credentials for Learning can support
the issuing, sharing and storage of all forms of learning achievements in a digital format, including micro-
credentials, and will link to the European Student Card Initiative
84
.
Enhancement of lifelong learning is also at the core of the strategy for many of the Erasmus+ European
Universities alliances. The 41 alliances, involving more than 284 higher education institutions across all
parts of Europe, aim at creating European inter-university campuses. They will offer both joint (physical,
virtual, blended) courses and common teaching units integrated in the curricula of all the member
universities. The development of micro-credentials is a strategic means to enhance partnerships with the
surrounding ecosystems. Such initiatives can provide learners of all ages with the opportunity to obtain
micro-credentials, awarded after the completion of short courses or modules. The European Universities
alliances such as the European Consortium of Innovative Universities (ECIU) and Young Universities of
the Future Europe (YUFE), aim at developing micro-credentials at a larger scale so that they can offer more
flexible learning pathways, technology-enhanced learning, and more inclusive curricula and pedagogy, both
for students and professionals. These networks can act as test beds and pave the way for other higher
education institutions to follow.
As such there are tools that can be used to build a European approach ensuring a shared understanding, as
well as a transparent and common definition of what micro-credentials are, in order to promote trust in
micro-credentials across countries and educational and economic sectors. It is important that a common
approach is sought at this point, thus avoiding multiple interpretations of what micro-credentials are and
establishing how micro-credentials relate to NQFs, national qualification systems and current certificates
and diplomas. This is where the EU can add the most value.
82
European Commission, 2012. Council Recommendation of 20 December 2012 on the validation of non-formal
and informal learning
83
European Commission, 2018. Decision (EU) 2018/246 of the European Parliament and of the Council of 18 April
on a common framework for the provision of better services for skills and qualifications (Europass) and repealing
decisions of 2241/2004/EC
84
EVERIS, 2018. Europass Framework for Digitally Signed Credentials,
https://ec.europa.eu/futurium/en/system/fles/ged/europass_background-info_framework-digitally-signed-
credentials.pdf
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7. Rationale for key elements of the proposal
7.1. A common and transparent definition
A shared and transparent definition of micro-credentials is key to further development and uptake of micro-
credentials as a trusted skills currency. In order to be truly shared, a definition must be valid across sectors
of education and the world of work, and it must mirror the societal mission of education and training
institutions, including higher, VET and non-formal providers as well as employers and labour market actors.
The definition was formulated to encompass key characteristics for the uptake of micro-credentials, which
include quality assurance, referencing to qualifications frameworks and the use of credits (where
applicable) and measures to ensure portability and stackability.
The definition submitted to consultation was generally supported by a large majority of the stakeholders,
each of its elements being considered by a majority of respondents as an ‘essential’ or ‘recommended’
element for the definition (see 4.3.2.1 above).
Working definition submitted to consultation
A micro-credential is a proof of the learning outcomes that a learner has acquired following a short
learning experience. These learning outcomes have been assessed against transparent standards.
The proof is contained in a certified document that lists the name of the holder, the achieved learning
outcomes, the assessment method, the awarding body and, where applicable, the qualifications
framework level and the credits gained. Micro-credentials are owned by the learner, can be shared, are
portable and may be combined into larger credentials or qualifications. They are under pinned by quality
assurance following agreed standards.
However, it appeared during the consultation process that certain elements would benefit from being
clarified or redefined in order to ensure better mutual understanding.
The extent of learning outcomes is not correlated with a standardised duration of training but varies from
one individual to another. This is why it is suggested to free the definition from the notion of duration with
a description of micro-credentials as
a small volume of learning
instead as of a short learning experience.
Clarification about the transparent standards referenced in the definition appeared to be necessary as some
stakeholders asked where to find them. It was therefore preferred to refer to “clearly defined standards” that
are also referred to at the end of the definition as “agreed standards in the relevant sector or area of activity”
when it comes to quality assurance. The latter reference to ‘relevant sector or area activity’ acknowledges
the diversity of quality assurance processes across sectors.
A sentence was also added to clarify the purpose of micro-credentials “Courses leading to micro-credentials
are designed to provide the learner with specific knowledge, skills, competences that respond to societal,
personal, cultural or labour market needs.”
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Taking into account the support expressed for all the elements of the definition and the need for clarification
and adjustments,
the final proposed definition is as follow:
‘Micro-credential’ means the record of the learning outcomes that a learner has acquired following a
small volume of learning. These learning outcomes have been assessed against transparent and clearly
defined standards. Courses leading to micro-credentials are designed to provide the learner with specific
knowledge, skills, competences that respond to societal, personal, cultural or labour market needs.
Micro-credentials are owned by the learner, can be shared, are portable and may be standalone or
combined into larger credentials. They are underpinned by quality assurance following agreed standards
in the relevant sector or area of activity.
7.2. EU standard for micro-credentials – a defined list of critical elements to describe
micro-credentials
The basis for trust in micro-credentials, similar to qualifications leading to a degree, is transparency in terms
of what they represent. This includes information about the learning outcomes achieved and how they were
assessed and quality assured. Micro-credentials, and the certificates delivered upon completion should, be
clearly identified as such and thus differentiated from a full degree.
There is currently no standardised way of describing micro-credentials
85
. The variability of information
makes it difficult for learners, employers, education and training institutions, quality assurance agencies
and employers to understand the value and content of micro-credentials and to compare them. The result is
a lack of trust and recognition of micro-credentials, whether for further learning purposes or in a labour
market context. No matter what type of institution issues micro-credentials, transparency of learning
outcomes is crucial for a good understanding of the micro-credential.
86
This is why a key recommendation is to adopt a common list of critical information elements that any
micro-credential must provide. This list of critical information elements would constitute a EU standard on
micro-credentials.
Mandatory elements:
Identification of the learner
Title of the micro-credential
Country/Region of the issuer
Awarding body
Date of issuing
85
European Commission. (2020). Final report: A European approach to micro-credentials. Output of the Micro-
credentials Higher Education Consultation Group.
https://ec.europa.eu/education/sites/default/files/document-
library-docs/european-approach-micro-credentials-higher-education-consultation-group-output-final-report.pdf
86
European Commission. (2020). Final report: A European approach to micro-credentials. Output of the Micro-
credentials Higher Education Consultation Group.
https://ec.europa.eu/education/sites/default/files/document-
library-docs/european-approach-micro-credentials-higher-education-consultation-group-output-final-report.pdf
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Optional elements,
where relevant (non-
exhaustive list)
Learning outcomes
Notional workload needed to achieve the learning outcomes (in ECTS
credits, wherever possible)
Level (and cycle, if applicable) of the learning experience leading to the
micro-credential (EQF, QF-EHEA), if applicable
Type of assessment
Form of participation in the learning activity
Type of quality assurance used to underpin the micro-credential
Prerequisites needed to enrol in the learning activity
Supervision and identity verification during assessment (unsupervised with
no identity verification, supervised with no identity verification, supervised
online or onsite with identity verification)
Grade achieved
Integration/stackability options (standalone, independent micro-credential /
integrated, stackable towards another credential)
Further information
Some stakeholders stressed the need to include an additional category corresponding to the duration of
validity of the micro-credential. Although this element may correspond to a real need in certain sectors,
certifications of learning outcomes are rarely linked to a notion of duration of validity in the education
sector. Such information can nevertheless be included in the ‘further information’ optional element if
deemed necessary.
The proposed standard elements will be included in an EU data model that specifies a common format for
describing micro-credentials. The data model will be available as an open standard to be used by providers
of micro-credentials and will support interoperability and easier exchange of data on micro-credentials.
The Data Model for Micro-credentials will be managed as per the Europass Decision, in particular Article
6 (1)(b); 6(1)(d); and 6(2)(b), which calls on the Commission to develop, test and update open standards.
Data models, used as open standards, are free to use, transparent and built based on consensus. The
Commission will develop the model in consultation with Member States and stakeholders, in line with user
needs and technological advancements, as well as changes in labour markets and in the provision of
education and training and must support consistency of information and demonstrates clear added-value.
See also the section on Portability.
7.3. EU Principles for design and issuance of micro-credentials
The below principles specify the nature of micro-credentials and offer guidance to Member States, public
authorities and providers on the design and issuance of micro-credentials and systems for micro-credentials.
The principles are universal and may be applied in any area or sector.
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7.3.1. Quality
Micro-credentials are subject to internal and external quality assurance by the system producing them
(e.g. the education, training or labour market context in which the micro-credential is developed and
delivered). Quality assurance processes must be fit-for-purpose, be clearly documented and accessible
and meet the needs and expectations of learners and stakeholders.
Providers:
External quality assurance is based primarily on the assessment of providers (rather than
individual courses) and the effectiveness of their internal quality assurance procedures.
Providers should make sure that internal quality assurance covers all the following elements:
the overall quality of the micro-credential itself, based on the standards referred to below
the quality of the course, where applicable, leading to the micro-credential
learners’ feedback on the learning experience leading to the micro-credential; and
peers feedback, including other providers and stakeholders, on the learning experience leading
to the micro-credential
Standards: External quality assurance is conducted in line with:
Annex IV of the European qualifications framework Recommendation, where applicable;
the Standards and Guidelines for Quality Assurance in the European Higher Education
Area, where applicable;
the European quality assurance reference framework (the EQAVET Framework) in the
field of vocational education and training, where applicable;
other quality assurance instruments, including registries and labels, to build public trust
in micro-credentials, where applicable.
The quality of micro-credentials is key to establishing trust in micro-credentials, for the learners that earn
a micro-credentials and the employers, education and training institutions and others that may seek to
understand and recognise micro-credentials. Accordingly, the principle of quality and quality assurance is
at the heart of the European approach to micro-credentials. Importantly, the approach does not seek to
harmonise quality assurance or establish one single quality assurance for micro-credentials. This would not
be feasible or appropriate; micro-credentials can potentially be used across all sectors of society and while
quality assurance is essential, the type of quality assurance must be fit-for-purpose and meet the needs,
contexts and expectations of learners and stakeholders in each context.
Quality assurance of micro-credentials should be implemented in line with the established practices and
needs of the relevant education, training, labour market or other sector. As Member States, stakeholders
and institutions begin to explore the use of micro-credentials it may become necessary to adapt existing
processes to ensure the responsiveness and flexibility of micro-credentials. To support this the Commission
has developed a set of
Principles for the Design and Issuance of Micro-credentials
which can be applied
in each setting.
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In the higher education sector, transparency and trust are ensured by quality assurance
processes. In line with the Standards and Guidelines for Quality Assurance in the European
Higher Education Area (ESG)
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, all courses offered by higher education institutions must
undergo internal quality assurance by the institution in question. In addition, either each
course or the higher education institution itself is required to undergo periodic external
quality assurance (e.g. accreditation, audit, review). The ESG generally covers quality
assurance of micro-credentials issued by higher education institutions
88
. Thus external
quality assurance should be conducted in accordance with the ESG in the European Higher
Education Area, where applicable.
Annex IV of the EQF recommendation lists quality principles for qualifications from all
sectors, which should be respected for micro-credentials.
For the purposes of Vocational Education and Training (VET), the Recommendation states
that the European Quality Assurance Reference Framework for Vocational Education and
Training (EQAVET) should be used for the VET sector, where applicable.
The European Quality Assurance Reference Framework (the EQAVET Framework) is used in national
quality assurance systems, for both initial and continuing vocational education and training. For those
Member States that wish to explore the potential of micro-credentials as part of continuing VET systems
they may use and adapt the EQAVET Framework. The Framework covers vocational education and training
in all learning environments (such as school-based provision and work-based learning) and all learning
types (digital, face-to-face or blended), delivered by both public and private providers, and is underpinned
by a set of indicative descriptors and common reference indicators for quality assurance in vocational
education and training applied both at system and provider level, according to national context. For more
information on the Framework see Annex II of the Council Recommendation of 24 November 2020 on
vocational education and training (VET) for sustainable competitiveness, social fairness and resilience.
The proposal also acknowledges that other quality assurance instruments may be used across the diverse
sectors in which micro-credentials can be used and states ‘Other quality assurance instruments developed
for the purposes of internal or external quality assurance of micro-credentials should also be used where
applicable. Examples of such instruments include ISO 21001 which is a management standard for
organisations providing educational products and services meeting the needs and requirements of learners
and other customers and, ISO 29993 which specifies requirements for learning services outside formal
education, including all types of life-long learning (e.g. vocational training and in-company training, either
outsourced or in-house) and the EFQM Excellence model’ from the European Foundation for Quality
Management (EFQM), a management framework that supports organisations in managing change and
improving performance.
87
88
Standards and Guidelines for Quality Assurance in the European Higher Education Area (ESG)
Tück, C., 2019. Quality assuring micro-credential a learner centered approach,
https://microcredentials.eu/digital-
credentials-masterclass/
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The level at which quality assurance takes place is of key importance. In the higher education sector, it is
key to distinguish between programme-based accreditation/external quality assurance and institution-based
accreditation/external quality assurance. Different countries follow different systems – some countries have
quality assurance systems focused on institutions, while others have quality assurance systems focused on
the quality of programmes. In some higher education systems, institutional accreditation or audit standards
already explicitly refer to micro-credentials or similar offerings; in other systems, these are only implicitly
addressed or not at all. In systems where separate external quality assurance takes place at programme level,
accreditation mechanisms for non-degree programmes like MOOCs, short programmes, lifelong learning
programmes or different ways of delivery (blended learning, online leaning etc.) are, in general, not yet
adopted by quality assurance agencies. Very few quality assurance agencies provide specific accreditation
or certification processes for non-degree programmes.
89
Those national approaches to external quality assurance, which are based on programme accreditation, may
not be sufficiently responsive to emerging needs. Moreover, the administrative burden of assessing one
course as if it were a programme on its own proves challenging i.e. programme accreditation is not scalable
to micro-credentials. National or agency regulations may therefore need to be reviewed in order to fully
cover micro-credentials within existing quality assurance systems.
Trust in the provider of the credential is a crucial element for trusting the credential itself. This is the reason
why external quality assurance of micro-credentials should be encouraged to be based on the assessment of
providers (especially in cases where the provider is a higher education institution or a VET organisation),
rather than based on the individual course, and/or other criteria depending on national arrangements.
Providers should make sure that internal quality assurance covers cover the quality of the micro-credential
itself, based on the above standards, and the quality of the course, where applicable, leading to the micro-
credential. It should also cover the feedback of the learners and the peers on the micro-credential.
An idea put forward during the consultations suggested considering the establishment of a register of trusted
providers at a European level, which have in place a documented process for external quality assurance.
This approach, if universally adopted for all types of providers, would present the risk of being too
restrictive. The European approach to micro-credentials does not seek to harmonise quality assurance or
establish one single quality assurance for micro-credentials. This would not be feasible or appropriate;
micro-credentials can potentially be used across all sectors of society and while quality is essential, the type
of quality mechanisms used must be fit-for-purpose and meet the needs, contexts and expectations of
learners and stakeholders in each context.
Instead, the approach recommends that any providers of micro-credentials should ensure that quality
processes are in place for their micro-credentials and that they are clearly documented and communicated
to learners and stakeholders.
89
European Commission. (2020a). Final report: A European approach to micro-credentials. Output of the Micro-
credentials Higher Education Consultation Group.
https://ec.europa.eu/education/sites/default/files/document-
library-docs/european-approach-micro-credentials-higher-education-consultation-group-output-final-report.pdf
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Higher education institutions (HEIs) that are externally quality assured in line with the ESG should be
regarded as
trusted providers
of micro-credentials. The DEQAR CONNECT project
90
aims to ensure that
these are listed in the Database for Quality Assurance Results (DEQAR) and promote the digital exchange
of information on quality assurance. For other types of providers, another source of inspiration could be a
Europass accreditation database of trusted issuers
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. This topic should be further explored with national
authorities in charge of qualifications and/or qualifications frameworks and other stakeholders.
The existing criteria and measures for quality assurance could be reviewed in order to take appropriate
account of digitalisation in teaching and learning, and to ensure security and transparency for all learner
groups.
Regarding blended and online learning, it is important that quality assurance of online learning activities,
which are credit-bearing, is extended to cover the virtual learning environment, the pedagogical quality of
online provision and the availability of online student support, which are often criticised as lacking when
considering online learning
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.
7.3.2. Transparency
Micro-credentials are measurable, comparable and understandable with clear information on learning
outcomes, workload, content, level, and the learning offer, as relevant.
Workload
Higher education institutions should use the European Credit Transfer and Accumulation
System (ECTS) and comply with the principles in Annex V to the EQF
Recommendation, wherever possible, to demonstrate the notional workload needed to
achieve the learning outcomes of the micro-credential.
Providers that do not use the ECTS may use other systems or types of information that
can effectively describe learning outcomes and workload, in compliance with the
principles in Annex V to the EQF Recommendation.
Qualifications framework/systems
Micro-credentials may be included in national qualifications frameworks/systems, where
relevant and in line with national priorities and decisions. National qualifications frameworks/
90
91
https://www.eqar.eu/deqar-connect/
Camilleri, A., 2018b. Quality of Credentials in Open Education: Pathways and technologies for recognition,
transparency and portability, Portability of Exchange, transparency and recognition aspects.
92
Orr, D., Pupinis, M. & Kirdulyte, G., 2020. Towards a European approach for micro-credentials: a study of
practices and commonalities in ofering micro-credentials in European higher education, s.l.: European Commission,
NESET
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systems are referenced to the European qualifications framework and, for higher education
qualifications, self-certified to the qualifications framework of the European Higher Education
Area, which can further support the transparency, and trust in, micro-credentials.
Information on the offer of micro-credentials
Systems for micro-credentials should provide transparent and clear information, to underpin guidance
systems for learners, in line with national practices and stakeholders needs:
Information on providers of micro-credentials should be published in registers, or incorporated
into existing registers. Higher-education providers (and other relevant providers) should be
included, where possible, in the Database of External Quality Assurance Results (DEQAR),
based on quality assurance in line with the Standards and Guidelines for Quality Assurance in
the European Higher Education Area (ESG);
Information on learning opportunities leading to micro-credentials should be accessible and
easily exchanged through relevant platforms, including Europass.
One of the principles of the proposed European approach is to include micro-credentials, where relevant,
in national qualifications frameworks and provide the opportunity for non-formal education and training
providers to have their provision accredited.
From the perspective of higher education the consultation exercise showed that there is a broad consensus
among stakeholders from academic/research institutions that micro-credentials should be included in the
existing qualification frameworks like EQF/NQFs and ECTS.
The European Credit Transfer and Accumulation System (ECTS) is a recognised mechanism to make the
learning outcomes and the estimated workload of a course visible and stackable. The mechanism is widely
used in Europe (by 49 countries within the European Higher Education Area). It has proven to be a suitable
mechanism for micro-credentials, as it is based on learning outcomes and makes learning measurable and
visible as part of a transparent recognition process. Using ECTS credits as a measure of the volume of
micro-credentials is a basic element that allow micro-credentials to be stackable in a transparent way and
based on learning outcomes and the workload. This also facilitates the national and international recognition
of short courses as independent modules or potentially as part of a full qualification. For this purpose, the
2015 ECTS Users’ Guide
93
already provides indications on the use of credits for stand-alone modules, but
the guide could be complemented by more details on this specific use.
ECTS is currently primarily used within the field of higher education, but its use could be expanded to other
sectors, where applicable. Other systems or types of information may also be used which can effectively
describe learning outcomes and workload, while respecting the principles of Annex V of the EQF
Recommendation
94
.
93
94
European Commission, 2015. ECTS Users Guide
https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex:32017H0615(01)
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Two different qualifications frameworks coexist at the European level, with a different purpose: the
European Qualifications Framework (EQF) for Lifelong learning as revised in 2017, and the Overarching
Framework of Qualifications of the European Higher Education Area (QF-EHEA)
95
. These two frameworks
are entirely compatible with each other and have provided a translation tool to make national qualifications
easier to understand and compare
96
and thus enable the creation of the conditions for mutual trust.
The European Qualifications Framework for Lifelong Learning (EQF) is a reference framework for all
levels and types of qualifications. It is a key tool to support the understanding and comparison of all types
of learning, including micro-credentials. The EQF is based on 8 levels of descriptors for learning outcomes
(formulated as knowledge, skills and responsibility & autonomy) which can be applied to the design and
awarding of smaller units of learning just as it is used for larger qualifications. Member States can include
micro-credentials in their national qualification frameworks, and as such these micro-credentials can
already be related to an EQF level.
The EQF already provides a basis for the inclusion of micro-credentials if Member States wish to include
these in their national qualification frameworks
97
. Furthermore, the EQF is comprehensive in terms of
provision as it is based on outcomes of learning. Qualification frameworks can bring a better understanding
and transparent comparison of learning outcomes. They are also a prerequisite for the transparent uptake
and accumulation of micro-credits into larger credits
98
. Over time, qualifications frameworks have
evolved
99
. Internationally, the inclusion of micro-credentials in national qualifications frameworks is still
at an early stage. The international trends show that different approaches and processes have occurred,
which mirror differences in national education systems and illustrate the need to enable some form of
referencing of micro-credentials within the overall education and training provision.
Therefore, and based on the consultations outcomes and the evidence gathered, the European Commission
proposes that Member States include micro-credentials, where relevant, in national qualifications
frameworks/systems.
Information
The European Commission will seek to enhance the role of Europass as the EU framework for supporting
communication of information on skills and qualifications. The platform is visited 50K per day, and 2
95
Bologna Working Group, 2005. Framework for Qualifications of the European Higher Education Area, s.l.:
European Commission.
European Commission, 2012b. The European Qualification Framework for Lifelong Learning, Luxembourg:
Publications Office of the European Union: Commission.
96
Young, M. & Allais, S. M., 2013. Implementing National Qualifications Frameworks Across Five Continents.
London: Taylor & Francis.
97
European Commission. (2020a). Final report: A European approach to micro-credentials. Output of the Micro-
credentials Higher Education Consultation Group.
https://ec.europa.eu/education/sites/default/files/document-
library-docs/european-approach-micro-credentials-higher-education-consultation-group-output-final-report.pdf
98
MicroHE Consortium, 2019,P.33. Challenges and Opportunities of Micro-Credentials in Europe. Briefng Paper on
the Award, Recognition, Portability and Accreditation of Micro-Credentials. version 6.0,
https://microcredentials.eu/
99
Chakroun, B. & Keevy, J., 2018,P.7. Digital Credentialing, implications for recognition of learning, Paris
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million persons having created a Europass account since its launch in July 2020 to manage their learning
and career. Europass can evolve to act as a hub of information and services on micro-credentials.
Learning opportunities (courses) leading to micro-credentials can be published by Member States on the
Europass platform (eg through national registers of micro-credentials that could be part of broader NQF
registers). Courses leading to qualifications are already published on the platform.
Learners can already use the Europass e-Portfolio to receive suggestions on learning opportunities based
on the information on their skills profile and interests; in the future, this functionality could extend to
include suggestions of micro-credentials relevant to the user’s needs.
7.3.3. Relevance
Micro-credentials should be designed as distinct, targeted learning achievements and learning
opportunities leading to them are updated as necessary, to meet identified learning needs.
Collaboration between education and training organisations, employers, social partners, other providers
and users of micro-credentials is encouraged to increase the relevance of the micro-credentials for the
labour market.
The common characteristics of the majority of micro-credentials are that they are expected to be answer to
specific learning needs, most of the time relevant for the labour market, and may recognise the development
of wider transversal skills. The latter characteristic indicates that engagement between education and
training institutions, employers and other providers is crucial to ensuring that micro-credentials are well-
designed, relevant and valued by the learners, the employers and all other stakeholders.
Micro-credentials can be a strategic means to enhance partnerships between education and training
institutions with their surrounding ecosystems and ensure the responsiveness of micro-credentials.
Partnerships with labour market actors, including social partners and companies themselves are key to the
development of micro-credentials. Co-created micro-credential programmes can reduce investment
requirements and risks for individual institutions and ensure dialogue occurs around needs and priorities.
Partnerships can be also be a way for education and training institutions to reduce constraints regarding a
lack of specific expertise in a field, reflect both the latest research and professional best practices while
improving the uptake and promotion of micro-credentials.
7.3.4. Valid assessment
Micro-credential learning outcomes are assessed against transparent standards.
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The assessment methods and criteria should be constructed to measure the achievement of the required
learning outcomes at the appropriate level.
The basis for trust in micro-credentials, similar to qualifications leading to a degree, is transparency in terms
of what they represent. This includes information about the learning outcomes achieved and how they were
assessed and quality assured. Micro-credentials should be awarded based on transparent
assessment/examination methods that promote the validation of real competences. Assessment of learning
outcomes against transparent standards was considered as an essential element of a definition of micro-
credentials by 80% of respondents to the OPC (see 4.3.2.1).
7.3.5. Learning pathways
Micro-credentials are designed to support flexible learning pathways, including the possibility to ‘stack’,
validate and recognise micro-credentials from across different systems.
Stackability
Micro-credentials are designed to be modular so that other micro-credentials may be added to create
larger credentials. Decisions to ‘stack’ or combine credentials lie with the receiving organisation (e.g.
education and training institutions, employers, etc.) in line with their practices and should support the
goals and needs of the learner.
Validation of non-formal and informal learning
Obtaining micro-credentials is possible following assessment of learning outcomes, obtained either
through a specific course leading to a micro-credential, or on the basis of assessment of learning
outcomes resulting from non-formal and informal learning.
Stackability refers to the idea that micro-credentials can be accumulated over time and combined to create
larger credentials. Stackability is multi-faceted and may occur in different ways, in order to meet differing
needs. Stackability is enabled and made easier where common elements are used to describe the micro-
credential – including a common format for describing micro-credentials which may be issued by different
providers and transparent, measurable ways to describe the learning and workload involved so that a
decision on stackability can be made,
Stackability may be part of the design of a micro-credental or sequences of micro-credentials allowing
learners to choose from and build a particular set of skills over time and help that individual move along a
career pathway. Stackability may also be considered by receiving authorities (e.g. providers, employers or
recognition authorities) depending on their approach to recognition and stackability towards other
credentials. Stackability is not about combing micro-credentials to create a qualification. This can occur in
some cases, in line with the decision of the relevant awarding body (in practice earning and then stacking
micro-credentials to a full qualification could take an unfeasibly long time); the purpose of stackability is
to construct flexible routes to acquire and develop bundles of skills for specific purposes.
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The Council Recommendation of 20 December 2012 invites Member States to have validation
arrangements in place which enable individuals to have knowledge, skills and competences which have
been acquired through non-formal and informal learning validated, and to obtain a full qualification, or,
where applicable, part qualification, on the basis of validated non-formal and informal learning experiences
This principle could be extended so that validation of skills acquired through experience (work or life) and
through structured learning (non-formal or formal) could be a pathway to obtain a micro-credential, if an
assessment confirms that an individual has acquired learning outcomes complying with the standards of the
micro-credential.
Work on the implementation of the Validation Recommendation is an ongoing process. The latest data from
the latest European Inventory on the validation of non-formal and informal learning shows that there are
now possibilities for validation in at least one broad area (education and training, labour market, third
sector) in all 36 countries under study, most commonly in the education and training area with all countries
have validation arrangements in place in at least one subsector of education and training, except Croatia.
Education and Training sub-sector
Existing validation arrangements in the sector
Adult
23
CVET
30
General
16
Higher
28
IVET
29
Figure 16:
Number of countries with validation arrangements by sub-sector
An important consideration for the purposes of micro-credentials is the possible outputs of validation. The
table below shows possible outcomes of validation per country which can include modules and non-formal
awards. Micro-credentials could serve as a valuable potential outcome of validation processes as they can
by their very nature recognise the outcomes of differing types and volumes of learning. In around 70% of
the cases in which validation arrangements are in place in education and training, it is possible to obtain a
qualification (or a partial qualification) in education and training and in the instances in which labour market
initiatives exist. A similar number exist in terms of exemption in different ways (granting modules, credits
or other type of exemptions). This is an encouraging picture for micro-credentials, as the validation systems
seemed, in most cases ready for accepting reduced parts of qualifications.
There are varying practices and barriers to wider scaling up of validation of non-formal and informal
learning, including the resources required and standardising the validation of learning outcomes based
processes. However, micro-credentials could offer a common focus for the output of validation that are
measurable, easily understood and can motivate learners by giving value and visibility to the learning
achievements.
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A) Award of full formal qualification (22)
Austria, Belgium-Flanders, Bulgaria, Denmark, Finland, France, Germany, Ireland, Italy,
Latvia, Lithuania, Luxembourg, Netherlands, Norway, Poland, Portugal, Romania,
Slovenia, Spain, Sweden, Switzerland, United Kingdom (England Northern Ireland)
B) Award of part of a formal qualification C) Award of other non-formal
(27)
qualification/ certificate (15)
Austria, Belgium-Flanders, Bulgaria, Czech
Republic, Denmark, Estonia, Finland,
France, Germany, Iceland, Ireland, Italy,
Latvia,
Liechtenstein,
Luxembourg,
Netherlands, Norway, Poland, Portugal,
Romania, Slovenia, Spain, Sweden,
Switzerland, United Kingdom (England
Northern Ireland), United Kingdom
(Scotland) United Kingdom (Wales)
D) Award of credit points (25)
Austria,
Belgium-Flanders,
Denmark,
Estonia, Finland, Germany, Hungary,
Iceland, Ireland, Italy, Latvia, Liechtenstein,
Lithuania, Malta, Netherlands, Norway,
Poland, Portugal, Slovenia, Spain, Sweden,
Switzerland, United Kingdom (England
Northern Ireland), United Kingdom
(Scotland) United Kingdom (Wales)
F) Exemptions from part of course (25)
Austria, Belgium-Wallonia, Cyprus, Czech
Republic, Finland, Germany, Greece,
Iceland, Ireland, Netherlands, Poland,
Slovenia,
Spain,
United
Kingdom
(Scotland), United Kingdom (Wales)
E) Award of modules (22)
Austria,
Belgium-Flanders,
Belgium-
Wallonia, Denmark, Estonia, Finland,
Ireland, Italy, Latvia, Liechtenstein,
Luxembourg, Malta, Netherlands, Norway,
Poland, Romania,
Slovenia,
Spain,
Switzerland, United Kingdom (England
Northern Ireland), United Kingdom
(Scotland) United Kingdom (Wales)
G) Access to formal programmes (e.g.
programmes in formal education) (27)
Austria,
Belgium-Flanders,
Belgium-
Wallonia, Bulgaria, Denmark, Estonia,
Finland, Germany, Hungary, Iceland,
Ireland, Latvia, Liechtenstein, Lithuania,
Luxembourg, Malta, Netherlands, Norway,
Poland, Romania, Slovenia, Spain, Sweden,
Switzerland, United Kingdom (England
Northern Ireland), United Kingdom
(Scotland) United Kingdom (Wales)
Austria,
Belgium-Flanders,
Belgium-
Wallonia, Czech Republic, Denmark,
Estonia, Finland, Hungary, Iceland, Ireland,
Latvia, Liechtenstein, Luxembourg, Malta,
Netherlands, Norway, Poland, Portugal,
Romania, Slovenia, Sweden, Switzerland,
United Kingdom (England Northern
Ireland), United Kingdom (Scotland) United
Kingdom (Wales)
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H) Training specification (i.e. to map
I) Access to the labour market (e.g. a
what training needs to be completed in
qualification that is compulsory to exercise a
order to achieve a (full) qualification) (18)
certain job) (9)
Austria,
Belgium-Wallonia,
Czech Belgium-Wallonia,
Czech
Republic,
Republic, Denmark, Finland, Iceland, Finland, Ireland, Netherlands, Poland,
Ireland, Latvia, Liechtenstein, Netherlands, Slovakia, Sweden, United Kingdom (Wales)
Norway, Poland, Slovenia, Spain, Sweden,
Switzerland, United Kingdom (England
Northern Ireland), United Kingdom (Wales)
Figure 17: The outputs of validation by country; Source: 2018 European Inventory. Note: The table
relates to the education and training area only.
The EQF AG currently organises it work on validation around four broad thematic areas:
Validation in national skills strategies;
Making validation a reality for individuals;
Developing high quality validation methodologies;
Exploring complementary routes to certification;
The topic of micro-credentials has not been addressed in detail within the EQF Advisory Group however
Note EQF AG 56-5 on the topic of complementary routes to certification highlights the increasing diversity
of certification modes on offer, including the the awarding of micro-credentials by a widening range of
companies and institutions and that increased attention needs to be given to the ways in which individuals
can combine, connect and accumulate qualifications, certificates and other types of credentials over a
lifetime.
Another perspective to consider is that as the offer and uptake of micro-credentials increases, the current
time and resource-intensive procedures for recognition of prior learning and experience m not be able to
satisfy the increased demand. Moreover, the funding context of these procedures differs widely in the
Member States, and is regarded as a resource- and time-intensive process. Procedures for the recognition
of prior learning and experience would need to be adapted for the purpose to satisfy a substantially increased
demand. Recognition processes underpinned by digital means could here play a facilitation role.
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7.3.6. Recognition
Recognition has a clear signalling value of learning outcomes for smaller modules of learning and paves
the way for a wider offer of such learning experiences in a comparable way across the EU.
Micro-credentials are recognised for academic or employment purposes based on standard recognition
procedures used in recognising foreign qualifications and learning periods abroad, when dealing with
micro-credentials issued by formal education providers.
Recognition of micro-credentials should be encouraged and based on standard recognition procedures when
issued by formal education providers. The challenges concerning recognition of micro-credentials are not
different from the general challenges in recognition. Consistent terminology in describing learning
outcomes will help make such an assessment.
The EU Council Recommendation on promoting automatic mutual recognition of higher education and
upper secondary education, training qualifications and the outcomes of learning periods abroad calls for
automatic mutual recognition for the purpose of further learning without having to go through a separate
recognition procedure, under certain circumstances, both at the level of full qualifications and at the level
of periods of study
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.
The Lisbon Recognition Convention, ratified by 26 EU Member States, refers to degrees, diplomas or
certificates issued by competent authorities, based on the successful completion of a higher education
programme. These degrees, diplomas or certificates shall be recognised for the purpose of access to higher
education studies, academic titles or in certain cases to the labour market, unless substantial difference can
be shown. Periods of study completed shall be recognised towards the completion of a higher education
degree, unless substantial difference can be shown.
In academic recognition procedures, the key actors, depending on the situation in Members States, are
ENIC/NARIC centres, ministries and higher education institutions. The Lisbon Recognition Convention
applies to their processes. Standard recognition procedures that are used for the recognition of foreign
qualifications and learning periods abroad can be used as a starting point when dealing with micro-
credentials issued by formal education providers.
As the offer and uptake of micro-credentials increases, the current time and resource-intensive procedures
for their current recognition would not be able to meet the increased demand. In Higher education, the result
of a complex recognition procedure could be that learners are hesitant to seek recognition of micro-
credentials that they acquired outside their formal full degrees. Experience shows that learners seeking
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European Commission, 2018. Council Recommendation of 26 November 2018 on promoting automatic mutual
recognition of higher education and upper secondary education and training qualifications and the outcomes of
learning periods abroad. Available at:
https://eur-lex.europa.eu/legal-
content/EN/TXT/?qid=1568891859235&uri=CELEX:32018H1210(01)
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exemption from certain parts of a curriculum based on claiming recognition of studies outside of the
curricula may face challenges
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.
Recognition of micro-credentials by employers, education and training organisations and national
authorities were considered as the most important aspects of high-quality micro-credentials with
respectively 81%, 74% and 72% of respondent considering it as ‘very important’:
Figure 18: Most important aspects of high-quality micro-credentials. Open public consultation
7.3.7. Portable
Micro-credentials are owned by the credential-holder (the learner) and may be stored and shared easily
by the credential-holder, including through secure digital wallets (e.g Europass), in line with the General
Data Protection Regulation. The infrastructure for storing data is based on open standards and data
models, This ensures interoperability and seamless exchange of data, and allows for smooth checks of
data authenticity.
Micro-credentials should enable flexible learning pathways and accommodate the goals and resources of
the learner. In order to do so, micro-credentials should be ‘stackable’ meaning that they can be accumulated
and grouped over time, building into a larger credential.
Stackability of the micro-credential supports both its inclusion into flexible learning pathways and
accommodates the goals and resources of the learner.
Europass provides a basis for stacking credentials accumulated over time and from different institutions. It
is built on a single data model, which can describe all forms of learning outcomes including micro-
credentials .
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MicroHE Consortium, 2019. Challenges and Opportunities of Micro-Credentials in Europe. Briefing Paper on the
Award, Recognition, Portability and Accreditation of Micro-Credentials. version 6.0,
https://microcredentials.eu/
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Micro-credentials are issued in various formats (on paper or in a digital form, stored locally or using a cloud
solution). It is clear that learners should own their own credential data, rather than the issuing institution.
In line with the General Data Protection Regulation (GDPR), it is up to the learner to decide with whom
they wish to share their data.
When considering how to enable easy storage, sharing and portability of micro-credentials, a digital format
appears to be essential. This does not imply that the learning experience is digitally based but that the
certificate is issued in a digital format. Such a format would be beneficial for the learners but also the
providers and the employers by facilitating their portability and recognition.
The data owned by the learner could be stored in a digital wallet in order to collect them in one place and
share them easily whether it is for education and training purpose or job transitions. Collecting micro-
credentials in a digital wallet implies an infrastructure for storing data.
Storing and sharing of data should be based on open standards and data models to support interoperability
and seamless exchange of data, and allows for smooth verification of data authenticity. The Europass
framework, including the Europass Learning Model and Digital Credentials infrastructure can support these
goals.
The European approach to micro-credentials will establish a common format for describing micro-
credentials that will key to supporting the portability micro-credentials.
The Commission can make use of existing EU tools, in particular the Europass framework, to support
implementation and use of this common format. Europass is operated as a framework, meaning it supports
openness, interoperability and easier exchange of data.
The key element in enabling this is the Europass Learning Model which is a single format to describe all
types of learning achievements (certificates of attendance, examination results, degrees and diplomas,
diploma supplements, professional certifications, employer recommendations etc). This data model has a
very broad coverage and can be used for the purposes of micro-credentials with very few adaptations and
serve as an ‘open standard’ that specifies a common format for describing micro-credentials. Using a single
data model will support portability and easier exchange of data on micro-credentials (e.g. sharing of micro-
credentials between IT systems of education and training systems) within and between Member States.
Within Member States the data model can be used in local IT systems for designing and issuing micro-
credentials but by adhering to the Europass model the data on the micro-credential can be easily shared and
understood.
Secondly, the Europass Digital Credential Infrastructure can already be used to issue, store (in the ‘Europass
Wallet’) and share authentic, tamper-proof digital micro-credentials. Learners and organisations can access
these services directly via the Europass platform. Organisations such as education and training providers
can reuse components of the infrastructure to build a ‘wallet’ for their graduates in their student portal and
issue micro-credentials directly to students wallets, while still adhering to the Europass format.
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With this solution in place, learners, employers, education and training providers and other authorised
bodies have a simple and trustworthy way of receiving, storing, sharing and verifying the validity and
authenticity of digital micro-credentials.
Importantly, learners, providers and stakeholders will not be restricted to using Europass services sch as
the ‘Europass Wallet’. Other digital solutions and platforms for the digital storage, sharing and exchange
of micro-credentials, (as well as accessing information and enrolling in courses leading to micro-
credentials) are available however the interoperability and easy exchange of information on micro-
credentials will only be possible with consistent and widespread use of the Europass Learning Model.
7.3.8. Learner centred
Micro-credentials are designed to meet the needs of the target group of learners. Learners are involved
in the internal and external quality assurance processes and their feedback is taken into account as part
of the continuous improvement of the micro-credential.
At the heart of micro-credentials are learners – individuals in search of a first experience of higher education
or in pursuit of updating and enhancing their knowledge, skills and competences after a period in or out of
the workforce. When designing a micro-credential, learners should be involved and the needs of the target
group of learners need to be considered.
Furthermore, learners should be involved in the quality assurance processes, while acknowledging that the
engagement of the non-traditional learners in the quality assurance processes could be more complex and
potentially even more so in the case of stand-alone micro-credentials.
Learners should be involved in the quality assurance processes and the feedback of alumni should be
taken into account as part of the continuous improvement plan of the micro-credential.
7.3.9. Authentic
Micro-credentials contain sufficient information to check the identity of the credential-holder (learner),
the legal identity of the issuer, the date and location of issuance of the micro-credential.
Micro-credentials must contain enough information to verify when, where and by whom it was issued, trace
and reproduce the conditions under which it was issued. This is key to to establishing trust in the micro-
credential, and in micro-credentials in general. Education and training institutions, employers, and other
recipients of micro-credentials require that at minimum they can establish details of the authenticity of the
micro-credential before considering the learning outcome and other details,. Learners naturally will be more
assured, motivated and protected if their micro-credentials can be easily authenticated.
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The European Commission launched the Europass Digital Credentials Infrastructure in 2020 which offers
free tools for institutions across the EU to issue credentials as well as diplomas and certificates at all levels,
in a tamper-proof, digital format with automatic verification of authenticity. The infrastructure will allow
organisations to issue qualifications, apprenticeships or certificates in an efficient and secure, trustworthy
and fraud-resistant digital infrastructure and importantly can be adapted for the purposes for micro-
credentials. Europass Digital Credentials support instant verification; recipients can automatically verify
information such as the identity of the awarding body or the quality assurance of a qualification.
Europass Digital Credentials are signed with an e-Seal, meaning they enjoy a legal presumption of
authenticity across the EU as well as equivalence to paper-based credentials containing the same
information.
Figure 19: Diploma in Europass Digital Credentials
7.3.10. Information and guidance
Information and advice on micro-credentials should be incorporated in lifelong learning guidance
services and should reach the broadest possible learner groups, in an inclusive way, supporting education,
training and career choices.
Career guidance helps people of all ages to manage their careers and their educational, training and
occupational choices. Effective career guidance is underpinned by the skills assessment of the individual.
There are guidance services available at different levels: guidance provided by the employer, and local and
national employment offices. University career centres, Public Employment Services (PES) and other
guidance services (employment, career, education and training, coaching) can help to reach the widest
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possible learner groups, in an inclusive way, underpinning lifelong learning as a public good based on
European values.
Incorporating information and guidance on micro-credentials with lifelong guidance services would enable
learners to fully benefit from more personalised lifelong learning pathways and make informed decisions
about their educational journey.
7.4. Provisions in the proposal
The recommendation proposes guidance and action that can be pursued by Member States in order to
address the main objectives of the initiative, to enhance the quality, transparency and take-up of small
learning experiences leading to micro-credentials that are issued by providers. The proposal outlines a set
of recommendations to Member States to support the effective implementation of the Council
Recommendation, in line with national priorities and circumstances, and invites the Commission to support
Member States and stakeholders, in particular by facilitating co-operation and developing practical
guidance and tools to support development and use of micro-credentials. It sets out the European
Commission’s commitment to complement and support Member State actions in this area.
§ 1-2 recommends that Member States adopt a European approach to micro-credentials to: (i) widen
learning opportunities for people; support the preparedness of providers of micro-credentials; and (iii) foster
inclusiveness and equal opportunities. Micro-credentials will also help reach the target of 60% of all adults
participating in training every year as set out in the European Pillar of Social Rights action plan and as
welcomed by EU leaders.
§ 3-4 makes clear that the scope of the proposal is to set up a common European approach to providing
micro-credentials. This common approach will involve a definition of micro-credentials and guidance for
how to design, issue and describe micro-credentials.
§ 5 includes definitions for the purpose of the recommendation.
§ 6 recommends that Member States adopt ‘Union standard’ elements to describe a micro-credential and
Union principles for the design and issuance of micro-credentials as set out in Annexes I and II.
§ 7-10 sets out actions to develop ‘ecosystems for micro-credentials’ within the evolving education and
training systems, labour markets and society.
§ 11-15 makes recommendations on the uses of micro-credentials within education and training systems,
skills policies, and employment and active labour market policies that can serve the needs of a wide range
of learners, workers, job seekers and others so they can benefit fully from both a socially fair recovery from
COVID-19 and the just transitions to the green and digital economy.
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In addition, the proposal suggests promoting the use of micro-credentials to help certain target groups to
re-enter the labour market, notably minimum income recipients, the long-term unemployed; and the low-
qualified. It also suggests promoting the use of micro-credentials for self-employed and platform workers
who may not be able to access traditional education and training, but who need targeted support to advance
in their careers. Micro-credentials can also be used to recognise the outcomes of mandatory or required
training for certain jobs and professions e.g. first aid, manual handling, and operating machinery for specific
jobs and professions.
§ 16-19 welcomes the Commission’s intention to support the development and use of micro-credentials by:
(i) developing or adapting EU tools and services; (ii) supporting cooperation between Member States and
stakeholders; (iii) developing the Europass platform; and (iv) supporting further research on the uptake of
the European approach to micro-credentials.
Implementation will be underpinned through existing EU tools that support the needs of individuals and
organisations, including Europass and the Europass digital credentials for learning to support the portability
and authenticity of micro-credentials. Implementation will also be underpinned through the European
student card initiative which will allow students to share the outcomes of micro-credentials electronically
and securely with other education and training institutions. Finally, EU funding programmes and
instruments will help to facilitate the uptake of short learning experiences leading to micro-credentials.
§ 20-22 sets the reporting mechanisms for implementing the recommendation.
The accompanying staff working document describes a wide range of recent research evidence together
with European stakeholder opinions and experiences to support the proposed recommendation. The staff
working document also provides examples of existing policies and projects in this rapidly developing field.
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