Council Resolution on a new European agenda for adult learning 2021-2030

(2021/C 504/02)

THE COUNCIL OF THE EUROPEAN UNION,

WHEREAS:

It is crucial to address the future positively by working on the basis of adult learning needs and having in place formal, non-formal and informal learning opportunities capable of providing all the necessary knowledge, skills and competences to create an inclusive, sustainable, socially just and more resilient Europe. As we navigate ever more complex and frequent transitions (particularly the digital and green transitions), and address current and future challenges (such as climate change, demography, technology, health, etc.), adult learning, as an important part of lifelong learning, can contribute to making economies and societies stronger and more resilient. It is also important to provide the necessary conditions for people to be agents of change through the choices they make.

RECALLING THAT:

1. At the 2017 Gothenburg Social Summit for Fair Jobs and Growth, the EU leaders jointly proclaimed the European Pillar of Social Rights, establishing the right to quality and inclusive education and training and lifelong learning for all as its first principle, and, as its fourth principle, the right to receive support for job search, training and re-qualification, as well as the right to transfer social protection and training entitlements during professional transitions,

2. The European Council conclusions of 14 December 2017 (1) singled out education as key to building inclusive and cohesive societies and to sustaining European competitiveness; education and training were thus put at the heart of the European political agenda for the first time,

3. In the EU Strategic Agenda 2019-2024 EU leaders agreed to step up investments in people’s skills and education,

4. The EU leaders met at the Porto Social Summit on 7 May 2021 to deepen the implementation of the European Pillar of Social Rights by putting education and skills at the centre of political action,

5. In the June 2021 European Council conclusions EU leaders welcomed the EU headline targets on jobs, skills and poverty reduction set out in the European Pillar of Social Rights Action Plan, in line with the Porto Declaration, including the EU-level target of at least 60 % of adults participating in learning every year by 2030,

6. The relevant background documents, as set out in Annex III to this Resolution, should be taken into account.

AND TAKING NOTE OF:

7. The renewed European agenda for adult learning (EAAL), which was adopted by the Council of the European Union in 2011 in order to continue, complement and consolidate work in the field of adult learning under the four strategic objectives identified by the Council in the ‘ET2020’ strategic framework,

8. The Council Recommendation on Upskilling Pathways: New Opportunities for Adults (2016), which underlines the specific needs of adults, particularly among low-qualified, unemployed and vulnerable groups, who require additional attention and support to improve their basic skills and enable progress,

9. The Report ‘Achievements under the Renewed European Agenda for Adult Learning’ (2019), which takes stock of achievements in the period 2011-2018. It also identifies emerging topics and priorities that could be taken into account in the post-2020 period, including continued work on governance, supply and take-up, flexibility and access as well as quality assurance,

10. The European Skills Agenda for sustainable competitiveness, social fairness and resilience (2020) proposes, among others, Action 8 ‘Skills for Life’, which envisages work by the Commission and Member States on new priorities for the European Agenda for Adult Learning with the aim towards building comprehensive, quality and inclusive adult learning systems,

11. The Council Recommendation on vocational education and training (VET) for sustainable competitiveness, social fairness and resilience (2020) and the Osnabrück Declaration on vocational education and training (2020) call for the further development of VET as an attractive and high-quality pathway for jobs and life, and raise and foster awareness among adults that learning is a lifelong endeavour,

12. The Council Resolution on a strategic framework for European cooperation in education and training towards the European Education Area and beyond envisages European cooperation in education and training for the period up to 2030 (2021–2030), to be conducted in an inclusive, holistic and lifelong learning perspective, and further states that lifelong learning includes all forms and levels of education and training from early childhood education and care to adult learning, including vocational education and training (VET) and higher education.

CONSIDERS THAT:

13. Member States of the European Union have diverse models of adult learning, depending on their national, regional and local needs, circumstances, policies, strategies and traditions. Reports show that due to the COVID-19 pandemic adjustments of adult learning and learning environments have further diversified adult learning practices throughout Europe (2),

14. The Education and Training Monitor 2020 (3) reports that participation in adult learning is low, with an EU average of only 10.8 % of adults (women: 11.9 %, men: 9.8 %) aged 25-64 participating in adult learning in the last four weeks preceding the 2019 survey. Furthermore, Eurostat 2020 data show that participation in adult learning is lower than before the COVID-19 pandemic, with an EU average of only 9.2 % of adults (women: 10.0 %, men: 8.3 %) aged 25-64 participating in adult learning in the last four weeks preceding the survey,

15. The Eurydice report ‘Adult education and training in Europe: Building inclusive pathways to skills and qualifications’ (2021) shows that around one in five adults in the EU have not completed upper secondary education and that a substantial proportion of adults in Europe is affected by low levels of literacy, numeracy and/or digital skills. Countries also vary in terms of adult participation in education and training; however, a common feature is that most learning activities in which adults take part have a non-formal character.

RECOGNISES THAT:

16. A new learning culture should emphasise the relevance of basic skills for all and of continuously acquiring relevant knowledge, skills and competences, at all levels within formal, non-formal and informal learning contexts, throughout one’s life. Individuals with a developed lifelong learning mindset are better equipped to adapt to new circumstances and to develop skills they need for jobs as well as for full participation in society and personal development,

17. Adult learning has a special place within the strategic priority of the Strategic framework for European cooperation towards the European Education Area – ‘Making lifelong learning and mobility a reality for all’, which is now more urgently needed than ever, due to the challenges of recovery from the COVID-19 crisis and the need for resilience, changing labour market needs, skills mismatch, the green and digital transitions and the persistently large proportion of adults in Europe with low basic knowledge, skills and competences,

18. The fragmentation of adult learning between sectors, policy areas and legal frameworks needs to be addressed. There is a need for dialogue between all parties to ensure that there is a shared vision for strengthened adult learning provision, where the social dimension of adult learning, as well as employability, are considered. Since individuals, employers and the state benefit from adult learning, the responsibility and contribution of each party should be recognised,

19. It is of the utmost importance to foster greater awareness among employers that adult learning contributes to the quality of work processes and outcomes, as well as to the quality of workers’ engagement with their work. Adult learning can contribute to productivity, competitiveness, social inclusion, gender equality, creativity, innovation and entrepreneurship. It is an important factor in incentivising employers to take a more active role in supporting upskilling and reskilling and in enhancing the employability and labour market transitions of their employees on an ongoing basis. It is therefore important that a learning culture is created in all workplaces, that learning opportunities are planned and organised in the workplace, and should be promoted and supported by all stakeholders,

20. However, adult learning needs to go beyond the development of work-related skills. It is also important to foster greater awareness among the general population about the importance and benefits of participation in lifelong learning. Adult learning should be interlinked with all types and levels of education and training, including higher education, through flexible formal, non-formal and informal pathways,

21. Adult learning has the power to enhance life and work opportunities for adults, regardless of their socio-demographic and personal circumstances. Individual responsibility for career development should be considered as part of professional lifelong guidance and support. In addition, adult learning can contribute to active citizenship and community learning. It also supports personal, social and professional development and fulfilment, health and wellbeing, in accordance with the individual’s current and future needs, talents and aspirations. Adult learning plays a crucial part in responding to current and future challenges and opportunities in life and at work, leading to sustainable communities,

22. The impacts of the demographic change, as well as the green and digital transitions, require new approaches to facilitate the participation of adults, including those not inclined to attend learning activities and the 65+ age group, in adult learning in order to support their full integration and participation in society.

UNDERLINES THAT:

23. Adult learning needs a holistic approach including inter-sectoral and multi-stakeholder collaboration, and effective coordination at European, national, regional and local levels, respecting the diverse models of adult learning in the European Union and fully respecting the specific competences of the different policy levels.

ACCORDINGLY, AGREES THAT:

24. In the period up to and including 2030, the overall objective of the new European agenda for adult learning 2021-2030 (NEAAL 2030) will be to increase and improve the provision, promotion and take-up of formal, non-formal and informal learning opportunities for all,

25. The NEAAL 2030’s main priority areas ensure continuity of the work and further development of adult learning, as outlined below and detailed in Annex I hereto: — governance, — supply and take-up of lifelong learning opportunities, — accessibility and flexibility, — quality, equity, inclusion and success in adult learning, — the green and digital transitions.

FURTHER AGREES, HAVING REGARD TO THE PRINCIPLE OF SUBSIDARITY AND THE NATIONAL CIRCUMSTANCES OF THE MEMBER STATES, ON THE FOLLOWING IMPLEMENTATION INSTRUMENTS:

26. Open method of coordination (OMC): In the period up to 2030, the Member States and the Commission will work closely together to take stock of the work done at technical level, evaluating the process and its outcomes by means of OMC and by taking ownership of the process within their respective area of competence, at national, regional or European level. This should be done in consultation with the Working Group on Adult Learning set up as part of the Strategic framework for European cooperation in education and training towards the European Education Area and beyond (2021-2030) and the adult learning national coordinators’ network.

27. Mutual learning: Mutual learning is a key element of the NEAAL 2030 as it provides the opportunity to identify and learn from good practices in different Member States. Mutual learning, with the involvement of relevant stakeholders, will be carried out by such means as peer learning activities, peer counselling and exchanges of best policies and practices, conferences, seminars, high-level forums and expert groups, as well as through studies and analysis, networks (including web-based) and other forms of dissemination and through clear visibility of the outcomes.

28. Effective governance: The NEAAL 2030 is an integral part of the Strategic framework for European cooperation in education and training towards the European Education Area and beyond (2021-2030).

29. Monitoring of the process: The periodic monitoring of progress towards the EU-level targets (4) through EU-level indicators (detailed in Annex II hereto) applied in the systematic collection and analysis of internationally comparable data provides an essential contribution to evidence-based policy-making without creating any additional burdens for Member States. Annual monitoring will take place through the Education and Training Monitor and the European Semester process (through the revised Social Scoreboard), tracking progress towards achieving all agreed EU-level targets in the field of adult learning. Monitoring and evaluation of EU-level targets and indicators should be done in cooperation with the Standing Group on Indicators and Benchmarks (SGIB) and reviewed in 2023.

30. Knowledge building and evidence-based adult learning policy: It is necessary to further develop in-depth data analysis and research, where possible, at international, European and national level through a range of tools, and taking advantage of the work of Eurostat, Eurydice, CEDEFOP, the European Training Foundation - ETF, Eurofound, OECD and other organisations. The analysis should also include monitoring of vulnerable groups of adults and data on investment in education and training, if possible also at the level of employers and local communities, among others. The transformation of jobs and the enormous up- and re-skilling efforts require reliable and targeted skills intelligence to map future labour market skills needs. This will support adults in their lifelong career development and facilitate both labour-market and societal transitions.

31. Cooperation with international organisations: It is important to enhance the cooperation with organisations such as the OECD (in particular by making use of the results of the Programme for the International Assessment of Adult Competences (PIAAC)), the UN (in particular UNESCO and ILO) and the Council of Europe, and also within relevant regional or worldwide initiatives.

32. Funding: Adult learning is funded through a range of different instruments fed by a variety of sources. Adult learning should, preferably and where appropriate, and in line with the principle of subsidiarity, rely on continuous and regular funding rather than on subsidies related to projects or programmes. Financing approaches based on shared responsibility of public and private stakeholders can help increase and intensify resources.

INVITES THE MEMBER STATES, HAVING REGARD TO THE PRINCIPLE OF SUBSIDARITY AND IN ACCORDANCE WITH NATIONAL CIRCUMSTANCES, TO:

33. Focus their efforts over the period 2021–2030 on the priority areas described in Annex I, thereby also contributing to the implementation of the Strategic framework for European cooperation in education and training towards the European Education Area and beyond (2021-2030), where relevant, and in accordance with their national, regional and local contexts, circumstances and legislation,

34. Enhance effective liaison between the relevant ministries as well as with stakeholders, such as social partners, businesses, non-governmental organisations and civil society organisations with a view to improving coherence between policies on adult learning and broader socio-economic policies. This whole-of-government and multi-stakeholder approach can be further strengthened by effective national, regional and local coordination that would link policy and practice,

35. Support adult learning with lifelong guidance and career development by building partnerships at all levels. In line with quality assurance principles, this guidance should be linked to outreach activities, validation and awareness raising, thus contributing to the implementation of the Council Recommendation on Upskilling Pathways. This will ensure that all adults have the opportunity to develop their basic skills and key competences based on their needs and attain the skill level necessary in today’s society and labour market,

36. In implementing the Council Recommendation on the validation of non-formal and informal learning, make progress in ensuring that validation opportunities are available to all adults, thus also ensuring second-chance opportunities, and possibly leading to full or partial qualifications,

37. Support expanding adult learning at the secondary and tertiary levels, both general and vocational through flexible learning pathways, for example evening classes, part-time education, distance and blended learning, and allow adult learners (a) to gain qualifications at EQF level 4 and above; and (b) to complete short courses allowing the updating, broadening and deepening of competences,

38. Raise the occupational status of and support the professionalisation of adult educators and trainers (5) and improve their initial and continuous education and training and professional development, including by supporting the use of innovative approaches (such as blended, online, distance, hybrid, etc.) and resources (ICT infrastructure and equipment),

39. Support, where appropriate, high-quality and inclusion-driven digitalisation of the education, training and learning processes at an organisational and individual level. In addition, assist, educate and train adult learners to use digital tools more widely and effectively while taking into account the digital divide and the digital gender gap,

40. Strive to develop simple, flexible and broad mechanisms for companies and individuals to raise awareness and foster a change in mindset among individuals and society, based on the lifelong learning concept that emphasises the need to acquire knowledge, skills and competences on an ongoing basis,

41. Facilitate lifelong learning to promote the participation of adults in learning through a variety of different instruments such as EPALE - the Electronic Platform for Adult Learning in Europe (e.g. supporting adult learning professionals, including adult educators and trainers, guidance and support staff, researchers and academics, and policymakers),

42. Promote the learning mobility of adult learners and adult learning staff as well as cooperation across borders, including through the Erasmus+ programme, EU cohesion policy funds and other instruments, where appropriate,

43. Make further efforts to remove existing obstacles and barriers to all types of learning, including issues related to mobility, accessibility, gender inequalities, guidance, outreach, student services and recognition of prior learning as part of learning outcomes,

44. Further develop quality assurance mechanisms by e.g. promoting internal and external quality assurance, with regard to programmes, processes, implementing organisations, adult educators and trainers, and counselling activities, and by developing data collection, for example by using information gathered through graduate tracking.

INVITES THE COMMISSION, IN LINE WITH ITS COMPETENCES AND HAVING REGARD TO THE PRINCIPLE OF SUBSIDIARITY, TO:

45. Support the Member States in implementing the NEAAL 2030 and its priority areas as described in Annex I, as well as in their possible development of holistic, whole-of-government national skills strategies,

46. Ensure the complementarity and coherence of EU policy initiatives undertaken in accordance with the NEAAL 2030,

47. Liaise closely with Member States, in order to ensure that a flexible and efficient governance structure is in place as outlined in the Council Resolution on a strategic framework for European cooperation in education and training towards the European Education Area and beyond (2021–2030), in particular involving the Working Group on Adult Learning, the network of adult learning national coordinators, peer learning activities and other networking activities,

48. Support the adult learning national coordinators by funding their work to facilitate cooperation among Member States and with the Commission in implementing the NEAAL 2030,

49. Strengthen knowledge about adult learning in Europe by conducting studies and research relevant for analysing adult learning issues, including through Eurydice, CEDEFOP, and ETF and in cooperation with other relevant networks and institutions, by making full use of their information and research capacities, without creating additional burdens for Member States. Attention should also be paid to the 65+ age group by developing comparative evidence and data on their participation in adult learning,

50. Pursue and intensify cooperation with relevant international organisations such as the OECD, the UN (in particular UNESCO and ILO) and the Council of Europe, as well as with relevant regional or worldwide initiatives, for example in the Western Balkans, Eastern Partnership, etc.,

51. Ensure the funds available at European level to support the implementation of the NEAAL 2030 through relevant EU programmes, funds and instruments, such as Erasmus+, the European Social Fund Plus (ESF+), the European Globalisation Adjustment Fund for Displaced Workers, the Recovery and Resilience Facility, the Just Transition Fund, InvestEU, the Technical Support Instrument, etc.,

52. Present and regularly update the Council on a systematic overview and roadmap of ongoing and planned policies, cooperation tools, funding instruments, initiatives and targeted calls at Union level, such as Upskilling Pathways, Erasmus+, and the European Semester, which contribute to the achievement of the NEAAL 2030,

53. Report on the implementation of the NEAAL 2030 as part of the Strategic framework for European cooperation in education and training (2021-2030), drawing on the work of the adult learning national coordinators, the Working Group on Adult Learning, studies and research experts,

54. Enable further development and implementation of the EPALE, which supports and strengthens the adult learning professionals through exchanges amongst colleagues, blog posts, forums, networking and providing high-quality, accurate and relevant information on all aspects of adult learning,

55. Support Member States, including through funding, in their regular involvement in research cycles in order to obtain comparable data on their progress in the field of adult skills (OECD Survey of Adult Skills [PIAAC], Adult Education Survey and Labour Force Survey).

(1) EUCO 19/1/17 REV 1.

(2) See for example the following publications: Adult Learning and COVID-19: challenges and opportunities (ET2020 Working Group on Adult Learning, 2020), Adult learning and education and COVID-19 (UNESCO Institute for Lifelong Learning, 2020) and Adult Learning and COVID-19: How much informal and non-formal learning are workers missing? (OECD, 2021).

(3) Education and Training Monitor 2020. Teaching and learning in a digital age, SWD (2020) 234 final. Data source: Eurostat, EU Labour Force Survey (a change of methodology is foreseen in 2022).

(4) The objectives are defined as EU average values to be achieved collectively by Member States. When reporting on progress towards achieving these objectives, including where relevant in the context of the European Semester, the Commission should take into account specificities of different national systems and circumstances. Member States should make full use of Union funding opportunities in line with their national circumstances, priorities and challenges. The objectives do not pre-empt decisions on how Union funding instruments under the Multiannual Financial Framework 2021-2027 and the NextGenerationEU are implemented.

(5) For the purposes of this Resolution, a teacher is a person who is acknowledged as having the status of a teacher (or equivalent) according to national legislation and practice, while a trainer is anyone who fulfils one or more activities linked to the (theoretical or practical) training function, either in an institution for education or training or at the workplace. They encompass teachers in general education and higher education, teachers and trainers in initial and continuing VET, as well as early childhood education and care professionals and adult educators, in line with the Council conclusions on European teachers and trainers for the future (OJ C 193, 9.6.2020, p. 11).