2008 joint progress report of the Council and the Commission on the implementation of the ‘Education and Training 2010’ work programme — ‘Delivering lifelong learning for knowledge, creativity and innovation’

(2008/C 86/01)

1.   INTRODUCTION

Education and training are crucial to economic and social change. The flexibility and security needed to achieve more and better jobs depend on ensuring that all citizens acquire key competences and update their skills throughout their lives (1). Lifelong learning supports creativity and innovation and enables full economic and social participation.

That is why the Council set itself ambitious objectives in the Education and Training 2010 work programme. In turn, these support the achievement of the Lisbon guidelines for jobs and growth. These objectives can only be achieved by sustained long term effort. Inevitably, progress will be uneven. It is to identify achievements and to direct effort to areas that are proving more difficult that the Council and the Commission prepare a joint report every second year.

This contribution to the 3rd Joint Report (2) points to significant progress and challenges in education and training reforms. The following areas will need particular effort:

2.   PROGRESS HAS BEEN MADE IN A NUMBER OF AREAS

Europe has registered progress in a number of areas. This does not mean that progress is uniform or that efforts can be relaxed. The pace of reform remains a major challenge. But in the following areas most countries have put reforms in place or are in the process of doing so.

2.1.   Lifelong learning strategies and qualifications systems

Explicit lifelong learning strategies (4), which set out national policy priorities and how different sectors relate to each other, were developed by the majority of countries (5).

Most of these incorporate a comprehensive vision of lifelong learning, covering all types and levels of education and training. Some, however, focus on formal education and training systems or on developing specific stages of the lifelong learning continuum.

There are signs that the evidence base of education and training policies is being strengthened (6). This is necessary for the overall coherence of systems and for an optimal allocation of resources. The priority given to the promotion of flexible learning pathways and transition between different parts of the system in some countries also strengthens coherence.

Qualifications frameworks and validation of non-formal and informal learning

National qualifications frameworks, which are linked to the establishment of the European Qualifications Framework for lifelong learning (7), are being developed in most countries (5). With them is coming a new focus on learning outcomes.

Systems for the validation of non-formal and informal learning are also coming into place, albeit more slowly (5). The challenge is now to move from experiment to full application in national qualifications systems, including improving access to higher education and access to education and training qualifications for low-skilled and older or unemployed workers.

In Portugal, a nationwide network of Centres for the Recognition, Validation and Certification of Competences (RVCC) was established in 2000. Currently nearly 250 000 adults are going through the validation process. The centres provide assessment and validation of competences for specific qualifications. The certification process includes an examination by an external jury and complementary training, if necessary.

2.2.   Pre-primary education

The importance of pre-primary education is increasingly recognised throughout Europe. Its capacity to contribute to both efficiency and equity is reflected in the development of new approaches and policies. Revision of teaching content (8), capacity building of teachers (9), extension of compulsory schooling to parts of the pre-primary level (10), quality assessments (11) and increasing investment, for example through increased numbers of staff in pre-primary schools (12), each find their place.

Successful pilot projects and schemes have been run in a number of countries. The challenge is now to move beyond pilot actions to generalised implementation, supported by investment, in particular in qualified staff.

Between 2000 and 2005 participation of 4-year-olds in education increased in EU-27 by about 3 percentage points to over 85 % (13).

2.3.   Higher education: a clear place in the Lisbon agenda

The modernisation of higher education is crucial to the knowledge triangle and to the Lisbon strategy. The issues of governance, funding and attractiveness have received increased attention at the European and national levels. These complement the Bologna reforms.

Solid progress has been registered in increasing university autonomy. This includes greater financial autonomy and new accountability mechanisms. New forms of stakeholder involvement are being tested, mostly as regards management of higher education institutions, but also in relation to curriculum development (14) or the definition of learning outcomes (15).

A compendium on best practice on the modernisation of universities is being developed by the higher education cluster, for policy makers and the wider public.

2.4.   Education and training in the broader EU policy context

The large majority of Member States attach great importance to education, training and skills development in their Lisbon National Reform Programmes 2005-2008. This reflects their important contribution to implementing the integrated guidelines for growth and jobs.

Broad progress has been achieved in linking operational programmes under the structural funds to the priorities of the Education and Training 2010 work programme. This has been particularly evident in addressing the agreed indicator and benchmark areas.

Good progress has also been made in developing European reference tools to support reforms. During 2006 and 2007, the European Parliament and Council adopted recommendations in the areas of key competences, quality of mobility, quality assurance in higher education, and has now agreed on the European Qualifications Framework.

In general, the Commission and the Member States have also made substantial progress in implementing the actions announced in the Languages Action Plan 2004-2006 (16).

3.   AREAS WHERE PROGRESS REMAINS INSUFFICIENT

3.1.   Implementation of lifelong learning

Implementation is still the greatest challenge for lifelong learning strategies. It needs strong institutional commitment, coordination and partnership with all relevant stakeholders. Sustained effort can translate intentions into policies, which, in turn, deliver results. Appropriate dissemination arrangements and improved investment are vital. A lot remains to be done.

Positive trends in public spending on education between 2000 and 2003 seem to have come to a halt in 2004.

Total public expenditure on education as a percentage of GDP increased in the EU between 2000 (4,7 %) and 2003 (5,2 %), but then decreased to 5,1 % in 2004. Levels of expenditure continue to show huge variations between countries (between 3,3 % of GDP in Romania and 8,5 % in Denmark). Private expenditure on educational institutions as a percentage of GDP has increased slightly since 2000 but progress slowed down in 2004 (13).

While EU benchmark areas have found some reflection in national targets, not all countries have set such targets (5).

3.2.   Basic skills for all

Early school leavers, upper secondary attainment and key competences continue to be major problem areas. There has not been enough progress since 2000 to reach the EU benchmarks by 2010. In some countries performance has actually worsened between 2000 and 2006. Several countries still had very high levels of early school leavers, above 20 %, in 2006. Results for low achievers in reading have deteriorated instead of improving.

Europe has far too many young people leaving education without the skills they need to participate in the knowledge society and to move smoothly into employment (17). They face the risk of social exclusion. Further, they are effectively shut out of lifelong learning early in their lives.

Early school leavers: every sixth young person (15,3 %) aged 18 to 24 in EU-27 still leaves school with no more than lower secondary education and does not participate in any kind of education or training after this. Progress must be faster to attain the EU benchmark of 10 % by 2010.

In the case of upper secondary attainment, there has been slow but steady progress. It has picked up slightly in recent years, but is not sufficient to achieve the 2010 objective (at least 85 % of 22-year-olds to complete at least upper secondary education).

While the EU benchmark is to reduce by 20 % the percentage of low-achieving 15-years olds in reading literacy in the EU by 2010 when compared to 2000, this share has actually increased between 2000 and 2006 (13).

Migrants and disadvantaged groups with different cultural backgrounds perform less well in the benchmark areas in most countries (18). They need particular attention. Their integration in pre-primary education would improve language learning and increase their prospects for successful schooling.

Initiatives on early school leaving and socio-economic disadvantage need to be complemented. Extra-curricular activities (such as in culture or sports), local partnerships, better involvement of parents, addressing parents' learning needs, and improving well-being at school for both learners and teachers would help.

3.3.   Teacher education and training

No other in-school aspect influences student performance more than the quality of teacher education (19).

Teachers and trainers are challenged by a growing heterogeneity of classes, a demand for new competences, and the need to pay close attention to individual learning needs. Increasing school autonomy brings further tasks.

Large cohorts of older teachers will have to be replaced in the near future. The profession must be made more attractive.

However, current systems of teacher education and training often fail to give teachers the training they need. This is particularly so for continuing teacher training and professional development. In-service training for teachers is compulsory in eleven Member States.

3.4.   Higher education: excellence, partnership and funding

Countries are paying more attention to strengthening the role of universities in research and innovation and university-business partnerships are becoming more common. However, many countries still have much to do in this respect (20).

Measures to achieve excellence in higher education institutions should focus on education, research and knowledge transfer alike. Currently, teaching is addressed less often. The proposed European Institute of Technology and Innovation (21) will inspire change in education and research institutions by becoming a reference model for integrating education, research and innovation.

In Germany, the federal and State governments have launched an initiative for excellence that provides an extra EUR 1,9 billion between 2006-2011 to boost top level research at universities selected on a competitive basis. The initiative includes three action lines: graduate schools; clusters to link university research, extra-university research and enterprises; and comprehensive strategies for top research universities.

Increasing investment, including from private sources, remains a challenge. At the same time, equitable access to a large diversity of study and research programmes must be ensured. Several governments have instruments to stimulate private investments such as tax incentives (22), public-private partnership or sponsoring schemes (23), and some have introduced or increased tuition or registration fees (24).

Public spending on tertiary education institutions in the EU, including education and research, was 1,1 % of GDP for EU-27 in 2004. This varied between 0,6 % in Malta and 2,5 % in Denmark. However, total spending remains far below the level in the United States. This is mainly because the level of private funding in the United States is more than seven times higher. Expenditure per tertiary student in the USA was more than twice the EU average (25).

While progress has been made in increasing the autonomy and accountability of universities, little evidence is available on the support provided to university staff and managers to handle this challenge.

3.5.   Adult participation in lifelong learning

Adult participation in lifelong learning is no longer on track to achieve the EU benchmark. Greater efforts are still required to raise skill levels in the population and to achieve flexibility and security across the labour market.

Progress towards the EU benchmark (12,5 %) was broadly on track until 2005 (26). In 2006, however, an average of 9,6 % of Europeans aged 25-64 were participating in education and training activities, which is slightly less than in 2005. The overall figure hides an important imbalance: adults with a high level of education are more than six times as likely to participate in lifelong learning as the low skilled.

Low participation in lifelong learning of older workers and the low-skilled is a particular problem where participation rates are already low for the overall population (27). Further, there is a particular concentration of low skills among migrants. Demographic and labour market trends will lead to increased demand for high skills and fewer opportunities for the low-skilled. More attention will have to be given to training these groups.

3.6.   Attractiveness, quality and relevance of vocational education and training (VET)

Further work must be done to improve the quality and attractiveness of VET. This is a key priority of the Copenhagen process (28).

Some countries have established advanced and comprehensive quality assurance systems (29), while others are still in a development phase (30).

The greater use of approaches based on learning outcomes in training programmes and qualifications is increasing the relevance of VET to the labour market. Renewed emphasis on apprenticeship, collaboration between schools and businesses, and work-based learning is a further plus. However, little progress can be reported on forecasting skills and qualification needs.

VET sometimes suffers from being poorly integrated with the rest of the education system. It can contribute to retaining potential drop-outs in education and training where earlier levels of school provide the key competences needed to enter VET. Although certain Member States (31) have made lifelong guidance a major political priority, particular attention still needs to be paid to strengthening guidance for adults. Further progress must also be made in reducing obstacles to progression between VET and further or higher education.

3.7.   Transnational mobility

There is good progress on the implementation and use of Europass (32). Nevertheless, transnational mobility of learners is still mainly enabled by EU programmes. Most national measures concern higher education. Mobility in the field of VET is particularly difficult.

Mobility is compulsory in the University of Luxembourg. All students in a Bachelors programme must spend part of their studies abroad.

4.   THE WAY FORWARD

4.1.   Implementing lifelong learning to achieve efficiency and equity

Important gaps in the coherence and comprehensiveness of lifelong learning strategies remain. Implementation is now the challenge. In many cases, this has just started. The credibility of the strategies depends on linking them to policy measures. It depends on the capacity of the authorities to target resources. It depends on their capacity to mobilise national institutions and stakeholders at all levels, through learning partnerships.

Improving the knowledge base

Knowledge of the economic and social impact of education and training policies must be strengthened (33). Concern for both efficiency and equity should underpin the development of the European and national research-base on the policy and practice of education and training.

Peer learning and exchanges of experiences between policy-makers and stakeholders is an important source of know-how and should be supported. Monitoring of the development and implementation of lifelong learning strategies should continue, leading to an assessment of progress in the 2010 Joint Report.

Sustainable funding

The level, efficiency and sustainability of funding remain critical. Many countries are experimenting with new instruments and with incentives for private investment. This includes targeting individuals, households and employers. These efforts must be strengthened.

Raising skills levels

Increased investment in early education produces the highest returns to both efficiency and equity (34). The early acquisition of key competences is an effective means to establish the basis for further learning, increasing equity of outcomes and overall skills levels. Transition to the labour market will be made easier, skills shortages avoided.

There is a continuing demand for engineers and science graduates. Increasing recruitment to scientific and technical studies must therefore remain a point of attention.

However, the image, status and attractiveness of VET needs to be strengthened. To facilitate entry into initial VET, mobility and return to the educational system, flexible and modular structures should be developed. Integrated lifelong guidance systems should be available to all citizens. Particular attention is required in relation to adult learning.

Addressing socio-economic disadvantage

Education and training can contribute to overcoming socio-economic disadvantage. But it may also perpetuate it. Inequity in education and training brings huge costs. These are often hidden, but are no less real. Ensuring equity of access, participation, treatment and outcomes must therefore remain a priority.

Using the potential of migrants

The increasing diversity of European societies creates additional challenges for education and training provision. Migrant performance levels, participation and attainment rates are typically lower than average. Although factors such as socio-economic background and language go some way to explain this, there is evidence that education and training policies and systems are not meeting these challenges and themselves may be contributing to the problem (35). This situation requires particular attention, in order to foster the economic and social inclusion of migrants as well as intercultural dialogue.

High quality teaching

Teachers need better professional preparation and continuing development. This will improve education and training outcomes. Involving teachers and trainers in innovation and reform is also very important. The Commission has set out the challenges (36). It is also carrying out a public consultation on schools (37). The work programme offers a suitable context for addressing the challenges.

4.2.   Innovation and creativity: education as a key element of the knowledge triangle

Education is fundamental to the knowledge triangle, and so to boosting jobs and growth. Universities are at the heart of the triangle. Centres of excellence which focus on teaching, research and knowledge transfer are vital. Much more needs to be done to enable higher education and business to work in partnership.

Research and innovation need a broad skills base in the population. Excellence and the key competences, particularly those relating to entrepreneurship, creativity and learning-to-learn, must be developed in all systems and levels of education and training. Both schools and VET have a major contribution to make to facilitating innovation. High-quality VET, for example, can contribute to innovation at the workplace.

4.3.   Improved governance: making best use of the results of Education & Training 2010

The work programme is showing results at the European and the national level. The development of European reference tools and the work of the clusters and peer learning activities inform and support countries' reforms. Education and training challenges and the development of human resources figure prominently in the Lisbon National Reform Programmes of most Member States. The effectiveness of the open method of coordination in education and training, its impact and political ownership can still be strengthened. Particular attention at both the national and European levels should be given to:

To ensure that the agreed priorities of the Education and Training 2010 work programme are fully reflected in national policy making, the specific actions identified in the 2006 Joint Report should be pursued.

Mechanisms for the implementation of the Education and Training 2010 work programme, and lifelong learning strategies, should be in place. Close coordination is needed with those responsible for broader socio-economic policy, in particular Lisbon reforms and national strategies on social inclusion.

National targets and indicators should be further developed. They should take into account European objectives and benchmarks. Policy and practice should be informed by the use of knowledge and evaluation. The common principles, guidelines and recommendations agreed at the European level offer reference points for the design of national reforms.

4.4.   Preparing for post-2010

The Education and Training 2010 work programme provides practical support for Member States' education and training reforms. Significant progress has been achieved since the programme was launched in 2002. Yet education and training reforms need time to bear fruit. Major challenges persist, new challenges have emerged. This work, including cooperation in the framework of the Bologna and Copenhagen processes, needs to be continued and indeed made more effective. Reflections on an updated strategic framework for European cooperation in education and training should therefore start now. Given the crucial role of education and training to the Strategy for Jobs and Growth, this must be closely associated with the future development of the Lisbon process.

(1)  Commission Communication ‘Towards Common Principles of Flexicurity: more and better jobs trough flexibility and security.’ COM(2007) 359.

(2)  The report is based primarily on an analysis of national reports and of performance against a set of indicators and benchmarks. See Annex 2 and SEC(2007) 1284 ‘Progress towards the Lisbon objectives in education and training. Indicators and benchmarks 2007.’ It also draws on the results of the open method of coordination in the area of education and training, notably the use of EU reference tools, and peer learning supporting Member State reforms and on similar exchanges undertaken as part of the Copenhagen and Bologna processes. For the 1st Joint Report see Council document 6905/04 EDUC 43; for the 2nd OJ C 79, 1.4.2006, p. 1.

(3)  Commission Communication ‘Efficiency and Equity in European education and training system’, COM(2006) 481.

(4)  The Council agreed that Member States should have coherent and comprehensive lifelong learning strategies in place by 2006 (Council resolution on lifelong learning of June 2002, 2004 Joint Report and 2005 Spring European Council).

(5)  See Annex 1.

(6)  Flanders, Germany, Estonia, Greece, Hungary, United Kingdom. Bulgaria, Cyprus, Spain, Ireland, Turkey present it as a condition for their strategies. See also SEC(2007) 1098 ‘Towards more knowledge-based policy and practice in education and training’.

(7)  COM (2006) 479.

(8)  Germany, Denmark, Greece.

(9)  Czech Republic.

(10)  Cyprus, Denmark, Greece, Poland.

(11)  Spain, Lithuania, Croatia, Norway.

(12)  Austria, Flanders, Cyprus, Germany, Denmark, Greece, Spain, Hungary, Malta, Netherlands, Poland, Sweden, Slovakia, United Kingdom, Croatia, Iceland, Norway.

(13)  See Annex 2.

(14)  Cyprus.

(15)  Bulgaria, Luxembourg, Sweden, Turkey.

(16)  Commission Working Document ‘Report on the implementation of the Action Plan “Promoting language learning and linguistic diversity 2004-2006”’, COM(2007) 554 final/2.

(17)  Commission Communication ‘Promoting young people's full participation in education, employment and society’, COM(2007) 498.

(18)  SEC(2007) 1284, p. 50, 75.

(19)  Commission Communication ‘Improving the Quality of Teacher Education’, COM(2007) 392.

(20)  Good practices can be found in the Nordic countries and the United Kingdom.

(21)  COM(2006) 604 final/2.

(22)  Spain, Sweden, Slovenia, Slovakia, Turkey.

(23)  Austria, France, Hungary, Ireland, Luxembourg, Latvia, United Kingdom.

(24)  Austria, Germany, Ireland, Netherlands, Slovenia, United Kingdom, Croatia.

(25)  SEC(2007) 1284, p. 67.

(26)  Progress was broadly on track, however, only as a result of changes in survey methodologies in several countries, which overstated progress. See Annex 2.

(27)  SEC(2007) 1284, p. 81.

(28)  Conclusions of the Council on the future priorities for enhanced European cooperation on Vocational Education and Training. Council document 14474/06 of 30 October 2006.

(29)  Austria, Germany, Denmark, Finland, Ireland, Sweden, Norway.

(30)  Bulgaria, Czech Republic, Spain, France, Luxembourg, Malta, Slovenia.

(31)  France, Italy.

(32)  Decision No 2241/2004/EC of the European Parliament and of the Council of 15 December 2004 (OJ L 390, 31.12.2004, p. 6).

(33)  See SEC(2007) 1098.

(34)  COM(2006) 481, p. 5.

(35)  SEC(2007) 1284, p. 51.

(36)  Commission Communication ‘Improving the Quality of Teacher Education’, COM(2007) 392.

(37)  ‘Schools for the 21st century’, SEC(2007) 1009.