The European Qualifications Framework (EQF) for lifelong learning has been characterized as a policy instrument with a number of contested ideas, raising questions about the process through which such instruments are developed at European level. The introduction of the EQF is in this article examined through variations of neo-institutional theory: historical contingency perspective, rational perspective, normative perspective and a process of chance. The EQF is examined as a case, using documents and expert interviews as empirical sources. The article highlights the complex interplay between various historical processes that enabled the introduction of the EQF and how problems and solutions can drive the process forward in a dialectic manner. Furthermore, while the impact of the EQF on national level remains to be seen at this point, the analysis uncovers increased space for introducing new instruments on EU level.