Opinion of the Economic and Social Committee on the "Memorandum on Lifelong Learning"

(2001/C 311/09)

On 26 April 2001 the Economic and Social Committee, acting under Rule 23(3) of its Rules of Procedure, decided to draw up an own-initiative opinion on the "Memorandum on Lifelong Learning".

The Section for Employment, Social Affairs and Citizenship, which was responsible for preparing the Committee's work on the subject, adopted its opinion on 18 July 2001. The rapporteur was Mr Koryfídis and the co-rapporteurs were Mr Rodríguez García Caro and Mr Rupp.

At its 384th plenary session (meeting of 12 September 2001), the Economic and Social Committee adopted the following opinion by 99 votes, with three abstentions.

1. Introduction

1.1. This opinion addresses the issue of lifelong learning and the Commission memorandum on the subject(1), and can be seen as part of the ESC's effort to meet its obligation of conducting early consultations with the political bodies of the EU. At this stage the main aim of the opinion is to influence the framing of the Commission report based on the outcomes of the debate(2) and the action plan which will probably accompany it.

2. Memorandum

2.1. The purpose of the memorandum on lifelong learning is:

- to set out the Commission's views on lifelong learning, namely that: "Lifelong learning is no longer just one aspect of education and training; it must become the guiding principle for provision and participation across the full continuum of learning contexts";

- to link lifelong learning with a need and with a vision: the need for "a successful transition to a knowledge-based economy and society" and the vision that this will be implemented in "the coming decade" and will apply (in terms of opportunities) to "all those living in Europe, without exception";

- to endeavour to define "how" the transition to the above-mentioned knowledge-based economy and society will take place, and the role that lifelong learning will have to play in that transition;

- to "launch a European-wide debate on a comprehensive strategy for implementing lifelong learning at individual and institutional levels, and in all spheres of public and private life".

2.2. The memorandum contains six key messages and objectives to be considered and discussed in relation to implementing and developing the institution of lifelong learning. These messages make up a list of concrete issues for discussion as follows:

Key message 1: New basic skills for all

Key message 2: More investment in human resources

Key message 3: Innovation in teaching and learning

Key message 4: Valuing learning

Key message 5: Rethinking guidance and counselling

Key message 6: Bringing learning closer to home

2.3. The memorandum has two annexes, the first presenting examples of lifelong learning from Europe and the rest of the world, and the second providing a detailed analysis of the scope for developing common indicators and benchmarks on lifelong learning.

3. General comments

3.1. The memorandum on lifelong learning is particularly useful and important for the ESC and for organised civil society. It provides a tool that can help us to interpret the changes that digital technology and modern forms of economic and social activity (shifts in scale, patterns and pace; extreme mobility and competition in creating and innovating; intense pressure on individuals and society to adapt to the new information, technological and working environment) have made in people's lives. At the same time, the memorandum offers a way of exploring solutions to today's major problems faced by young and old people in Europe, the employed and unemployed, and organised European civil society as a whole.

3.1.1. In the above context, the ESC calls for lifelong learning to be promoted to the maximum and for the memorandum to be distributed as widely as possible, so that the whole venture encompasses and is understood by the whole of European society.

3.2. This is not the first time the ESC has addressed the issue of lifelong learning and the Commission memorandum on the subject.

3.2.1. The Committee has been actively involved in the framing of the memorandum in two ways:

- through taking part in the preparatory seminars and discussions organised by the Commission during the long phase of formulating its positions;

- through its more general involvement in matters relating to education and training on the basis of related opinions(3).

3.3. The ESC endorses the Commission's general approach to the whole problem (see the introduction to the memorandum). In particular the ESC agrees with:

- the observation that the European Council in Lisbon (March 2000) introduced substantial changes in the direction of European policy and action;

- the realisation that Europe's education and training systems must be adjusted to ensure successful transition to a knowledge-based economy and society(4);

- the need to develop a Europe-wide dialogue involving as many ordinary people as possible with the aim of formulating a comprehensive strategy for lifelong learning(5);

- the Commission's view that lifelong learning "... is no longer just one aspect of education and training; it must become the guiding principle for provision and participation across the full continuum of learning contexts(6)".

3.3.1. With specific reference to the aim of achieving a "comprehensive and coherent lifelong learning strategy for Europe", the ESC wishes to state the following.

3.3.1.1. It considers such a strategy to be necessary because it believes that:

- a well-planned and well-considered transition to the digital age, the information society and the learning society throughout Europe as a whole is a sine que non for its survival (as a Union and, much more importantly, as nation states)(7);

- the problems of transition are generally shared, and therefore a joint effort will make them easier to solve (even if that effort in principle consists only in generalising and applying good practice and in an open method of coordination);

- the way to achieve transition is through education.

3.3.1.2. It believes this can be achieved because:

- this is a good moment politically for the EU to develop strategic measures in education(8);

- the problems now faced by people in Europe as a result of factors such as economic globalisation provide an incentive for a political agreement to be reached and for such policies to be accepted at a social level;

- finally, the current technological situation is favourable in-so-far as many aspects of educational activity can be developed comprehensively thanks to digital technology.

3.3.1.3. The Committee believes that such a strategy is necessary and likely to solve current problems in Europe, especially those relating to:

- employment and harnessing opportunities offered by the new economy;

- familiarising the general public with digital technology;

- European integration, new forms of European governance and the general competitiveness of Europe's economy.

3.4. The ESC is aware of its role and the role of organised civil society more generally in any process of developing a comprehensive strategy of lifelong learning. It is therefore approaching the question with great sensitivity and caution. The views it has so far expressed, and its current work, respond to many questions and points raised in the memorandum.

3.4.1. The general views of the ESC on lifelong learning set out to date can be summarised as follows:

- "The existing educational systems do not offer specific timetables and age ranges which are enough to provide Europeans with what the learning society and the [new] economy require. There is therefore an urgent need for the individual to have urgent access to the benefits of education and training; this requires a new approach to the question - an approach suggested by the idea of lifelong learning and training(9)".

- Lifelong learning is defined by the following basic principles(10):

- the principle of adaptability: according to this principle, the aim of lifelong learning is to help people adapt to the constantly changing conditions of modern life and to enable each individual to acquire, update, upgrade and complete knowledge and skills;

- the principle of mobility: the possibility for people to move freely between education, training and employment throughout their lives is also a basic principle of lifelong learning; this includes the possibility for people to find ways among the various levels and forms of education of continuing their studies if and when they so wish;

- the principle of totality: under this principle, lifelong learning is not limited to adult education, but covers every stage of education and all forms of education and training.

- Lifelong learning is the key to familiarising people in Europe with the logic of the information society, new technologies and the new economy(11).

- The Committee hopes that lifelong learning will promote the necessary adjustment to the new business ethos and cultivation of new social skills(12).

- It also considers this to be the intelligent response to the new patterns, speeds and approaches imposed by the current challenges, a response through which today's pro-active Europeans can join in shaping the new global political, economic, social and technological landscape(13).

- Finally, it considers lifelong learning and areas of education relating to the information society and the new economy to be part of the European domain of education and learning, and therefore recommends that they should be promoted as part of an open method of coordination and comparative assessment(14).

3.4.2. These views of the ESC bear out the soundness of the Commission's intention to promote the institution of lifelong learning. At the same time, the Committee would respond to a number of basic questions raised in the memorandum:

- it believes "an individual right for all citizens to acquire and update skills through lifelong learning" can be defined;

- it clearly identifies the need to link and use all forms of education, by joint agreement, under the overarching institution of lifelong learning;

- it also indicates the need for cooperation in implementing lifelong learning - cooperation not just between the member states, but also between the social partners, the educational community at every level and local and regional authorities.

3.4.3. Each of the specific topics raised by the Commission for discussion in the memorandum (in relation to the six key messages) is also important for the ESC. However, during the preliminary consultation phase it will concentrate in particular on those issues about which it has already expressed an opinion and which directly affect it in one way or another(15).

3.4.3.1. In the light of the above, the ESC is particularly interested in considering certain points of the memorandum and in further clarifying certain concepts, connections and processes from its perspective.

4. Specific comments

4.1. Definitions

4.1.1. Lifelong learning: a tentative definition

4.1.1.1. The ESC understands the term "lifelong learning" to denote a systematic and active learning endeavour on the part of Europe's citizens, in response to the daily demands imposed on them and society and the need for the individual and society to achieve fulfilment (within the framework conditioning the development of an individual's and society's potential).

4.1.1.2. The survival of the individual and society requires:

- that people are able to adapt actively to constantly evolving political, economic, social, environmental, technological and scientific conditions;

- that people continuously adapt to the new tools, new patterns and new pace that each new set of circumstances imposes (whether or not they accept those circumstances);

- that people are actively and consciously involved in shaping and defining each set of circumstances and that there is democratic control of the tools, patterns and speeds that are likely to develop under those circumstances;

- improved individual access to general education and vocational training and to lifelong learning at national and European level.

4.1.2. On the basis of the above definition, lifelong learning is not simply a new form, or a new level, or one new dimension of education. Nor is it a process whose sole purpose is to ensure people's employability in Europe. Lifelong learning is a modern overall approach to educational measures which build on each other and which encompass all phases and levels of general education and vocational training throughout all stages and in all areas of life. A democratic knowledge-based society cannot be created without lifelong learning.

4.1.2.1. The Committee thinks in any case that a sound, broadly-based general education and initial vocational training forms a part of lifelong learning and also provides it with a foundation.

4.1.2.2. This being so, general education and vocational training systems should be regarded at the same time as established social institutions with fixed structures and traditions and understood as teaching and learning packages for shaping individuals and society. Together they form a familiar "educational architecture", which over time - as modern societies have developed - has come to appear to us as self-evident. The principle of lifelong learning requires new mindsets and new teaching and training arrangements. This opinion is hardly able to give detailed consideration to the questions and problems this poses, but it would point out that the principles and tenets underpinning a new suitable "educational architecture" for a knowledge-based society still have to be worked out. The Committee assumes that, as a result, a common EU dimension will become firmly embedded in EU Member States' systems of education and training.

4.2. Defining links

4.2.1. Lifelong learning and school education

4.2.1.1. The ESC believes that lifelong learning and school education must be seen as part of the same system. This means that they must be thought of as a logically uniform, i.e. comprehensive system wherever possible and that they must adopt a coherent and complementary approach. The Committee feels that the way responsibilities in the education system have been divided up to date will consequently have to be reconsidered. The State will retain primary responsibility for basic education, and the responsibility for further education and vocational training will be fairly shared - as hitherto - by various bodies - the State, the social partners and citizens. Government incentives for businesses and individuals, as mentioned in the Memorandum, and greater commitment from employers and workers to further training are, however, necessary in order to turn the concept of lifelong learning into a reality.

4.2.2. Lifelong learning and higher education

4.2.2.1. Since lifelong learning meets needs relating to production and development, the environment, and the self-fulfilment of the individual and society, it is essential that there be an open link between it and higher education. The ESC considers that this link must ultimately have the same form as the link between lifelong learning and school education, and that in the current technological context, with digital and other applications, it can be defined as follows:

- development of a stable, continuous system of communication, mutual exchange and interrelationships between institutions providing higher education and lifelong learning(16);

- development of joint projects to address specific problems affecting industry and local communities, people in the modern world and active citizens;

- opening-up higher education institutions to cater for the needs of people in their region in relation to further education, special types of training and ongoing teacher training.

4.2.3. Lifelong learning, non-formal learning and informal learning

4.2.3.1. The ESC would stress the role played hitherto by non-formal and informal education and training in the development of Europe's society and economy. Learning in the family; self-education; the basic and further training offered to employees by companies or trade unions; and education provided to the general public through printed or electronic media, the market, literature or NGOs are of incalculable value and significance. The problem with these informal types of education is that they do not usually lead to a formal certificate. The ESC considers that instruments and procedures must be developed for recognising informal forms of education and knowledge and skills obtained through work experience. These instruments and procedures must lead to the acquisition of recognised diplomas. All regulatory parties concerned, in particular the social partners, should be involved, in line with national practice.

4.2.3.2. In view of the above, the ESC supports the Commission's efforts to establish and define uniform indicators and benchmarks for lifelong learning. It therefore calls on the European Parliament, the Council and the Commission to take the required political decisions in order to establish as soon as possible an integrated European certification system for skills and qualifications.

4.2.4. Lifelong learning and organised civil society(17)

4.2.4.1. Lifelong learning concerns everybody and is intended for everybody. Organised civil society therefore has an important role to play in the development of lifelong learning.

4.2.4.2. Experience to date of involvement in lifelong learning on the part of organised civil society and the social partners in particular shows that they must play a substantial and leading role in coordinating, shaping and developing a comprehensive system of lifelong learning.

4.2.4.3. The first step that should be taken is to identify, assess and cultivate the types of informal and non-formal types of learning that have so far been developed by the social partners and NGOs. These forms of education that have now been developed should then be linked with education systems to form a single, newly structured operational basis. This basis - supported by modern digital technology - will embrace a broad range of educational activities and will meet modern social and economic needs.

4.2.4.4. In every event, the successful development of lifelong learning fundamentally depends on the extent to which organised civil society, and especially the social partners, are actively involved. Their involvement must not be limited to planning, but must include the development and operation of lifelong learning.

4.2.4.5. The ESC considers that Cedefop has an important part to play in identifying, assessing and refining types of informal and non-formal learning, and in developing lifelong learning more generally.

4.3. Defining processes

4.3.1. Lifelong learning and education providers

4.3.1.1. The ESC believes that lifelong learning as an institution can be developed in many ways that are consistent with local situations and national experience. It consequently thinks that, if adapted slightly, the idea of local multi-purpose learning centres, mentioned in the conclusions of the European Council in Lisbon, could prove to be the most appropriate system for coordinating the development of lifelong learning. A new, modern system of local multi-purpose learning and education centres operating independently of the authorities:

- can more easily be made a point of contact and synergy between the factors involved, i.e. school and university education, the social partners and organised civil society more generally, the market, and local, regional, national and European authorities;

- can be structured more easily on the basis of specific, local requirements and conditions (by making use of existing educational infrastructure, relevant local experience, any existing relevant joint action, cooperation, etc.);

- can still - because it is a new concept and thus unencumbered by prejudice and negative experience - be more readily accepted by society as a whole;

- can also conclude contracts for the development of individual lifelong learning programmes, on a transparent basis and using the local resources available for developing such services;

- finally, can more easily be staffed by fresh administrative and teaching personnel with special skills and qualifications recruited from the local and regional education system.

Obviously, the management of such an organisation must be well-balanced at local level. This means providing for smooth, but progressive, co-involvement of business and social interests with teachers and learners.

4.3.2. Lifelong learning and location of learning centres

In principle, the development of lifelong learning will be based on existing infrastructure. Specifically, this means:

- existing school buildings that are no longer in use owing to demographic changes;

- existing school buildings out of school hours;

- other public buildings offering services (cultural centres, youth centres, etc.);

- other suitable buildings provided by organisations responsible for developing specific lifelong learning programmes (business training centres, vocational training centres, music schools, foreign languages schools, etc.).

4.3.3. Lifelong learning and its provision

4.3.3.1. It follows from what has been said above that lifelong learning:

- will be shaped by the actions of the social partners, organised civil society in general, the market, organisations and groups involved in education and learning and the public authorities (especially local and regional authorities);

- will be coordinated by local multi-purpose learning and education centres;

- will be provided by these centres, or by other public or private organisations under their responsibility;

- will be based on joint action that has a specific starting-point and rationale, a specific goal, a specific content and action plan, and a specific system for evaluating the results;

- will be provided as far as possible on an individual basis, to meet people's learning needs.

4.3.4. Lifelong learning and its cost

4.3.4.1. Addressing the cost of lifelong learning provision is a complex issue, which should by no means be classified as being purely financial. Nevertheless, the overall costs must be borne by all the benefiting parties, not least the businesses which gain well trained workers for restructured labour markets, revamped working processes and new job profiles.

4.3.4.2. It is above all incumbent on the State to make sufficient public funds available at all tiers of State administration in order to safeguard high-quality systems of education throughout Europe in the long term.

4.3.4.3. Especially at local and regional levels the players representing organised civil society are asked to contribute alongside local businesses to the costs of lifelong learning - including the provision of infrastructure (premises, equipment) and human resources (expertise, network capital, time).

4.3.4.4. As regards funding, it is necessary to place special emphasis on the responsibility of the State and business. Society in general and the whole of the economy clearly benefits from raising and continually adjusting the skills level of the population in all age groups.

4.3.4.5. The Committee thinks that the likely per capita costs of lifelong learning should be determined on a scientific basis straightaway. This would provide a sound basis for an open dialogue involving the whole of society, which in turn could result in an understanding being reached on an effective and fair sharing of the overall costs in accordance with the meaning and purpose of education in each case.

4.4. Lifelong learning and the risk of exclusion

4.4.1. The ESC considers that the cost of providing lifelong learning must under no circumstances be allowed to lead to exclusion of individuals, groups or regions from the above process and its benefits. The Committee therefore trusts that the State, in conjunction with other social players, will combat and as far as possible prevent social exclusion in the field of lifelong learning, too. This objective should be actively pursued in the framework of the EU's open coordination strategy. Priority should also be given within existing EU policymaking to the integration of disadvantaged groups of people of all ages.

5. Special proposals with regard to the six key messages

5.1. Key message 1: new basic skills for all

Objective:

Guarantee universal and continuing access to learning for gaining and renewing the skills needed for sustained participation in the knowledge society

5.1.1. The introduction of compulsory schooling is justifiably regarded as one of the major socio-political achievements of modern industrial societies. In some member states a higher school leaving certificate is now regarded as a guarantee of entrance to university. The ESC explicitly calls for these citizens' rights to be revised in the light of current circumstances. This means implementing the concept of a minimum right for every individual to general education and vocational training, a right that remains valid until the skill level to be determined (in the light of social and economic developments) has been acquired. The current practice of a guaranteed right to further education and skills acquisition subject to proof of past performance should also be broadened beyond the link between a higher school leaving certificate and university study, in order to significantly improve the vertical and horizontal permeability of all education and skills acquisition systems, also within the EU.

5.1.2. The ESC thinks this should be treated as an essential precondition for effective implementation of Employment Guidelines 3, 4 and 6, requiring that specific joint proposals be worked out by the Member States and in cooperation with the European Commission with the aim of achieving a framework agreement on defining the new basic skills that everybody would need to participate actively in the knowledge society and knowledge-based economy.

5.1.2.1. In the light of the above, the proposed strategy must provide for:

- education and training in new basic skills, without overlooking the major problem of illiteracy that still exists in certain Member States;

- incentives to increase people's interest in learning, especially in the case of people with a low level of education;

- measures to provide more information on opportunities available in the sphere of learning.

5.2. Key message 2: More investment in human resources

Objective:

Visibly raise levels of investment in human resources in order to place priority on Europe's most important assets - its people

5.2.1. The ESC is aware of the complexity and diversity of current situations in the member states with respect to the level and composition of contributions for education and skills acquisition from public and private sectors and individuals. It proposes that a systematic effort be made to document and evaluate current practice in detail for the purpose of drawing up a European report under the coordinated guidance of the relevant European bodies (e.g. Cedefop, which has already done some work in the matter and on whose board the social partners are well represented) and in cooperation with other international organisations which are familiar with the issue (in particular the OECD in this case). This report which would provide cogent answers to the questions posed in the "LLL Memorandum".

5.3. Key message 3: Innovation in teaching and learning

Objective:

Develop effective teaching and learning methods and contexts for the continuum of lifelong and lifewide learning

5.3.1. The ESC absolutely agrees with the need to open up the whole education and skills acquisition system to innovative methods of teaching and learning, obviously with particular focus on the use of new technologies. Equally, however, there must be greater regard for the advantages of established practice in more non-formal learning contexts, both work- and company-related and also in education provision for young people beyond school and in organised civil society at local and regional level. The ESC proposes that a European cooperation project be set up between the 6th European Framework Programme and the relevant European bodies (especially Cedefop and Eurydice). It also proposes that a European experts' group be set up to carry out a detailed review and assessment of established and innovative teaching methods while allowing for key differences between target groups (age, sex, social position, cultural and ethnic identity, etc.). After recommendations, including recommendations on the development of qualitative benchmarks, have been weighed up and formulated by this group, the resulting report would be presented to the Council of Education Ministers. The social partners should also be adequately represented in the group of experts.

5.4. Key message 4: Valuing learning

Objective:

Significantly improve the ways in which learning participation and outcomes are understood and appreciated, particularly non-formal and informal learning

5.4.1. It is clear that the ideas generated by the memorandum's questions on evaluating learning can only be applied effectively on the basis of more intensive communication and improved dialogue between the social partners in general and those responsible for appraisal procedures and skills acquisition systems in education. The ESC is prepared to play an active part in developing a relevant strategy with the cooperation of organised interest group representatives from the sphere of general and vocational education at European level.

5.5. Key message 5: Rethinking guidance and counselling

Objective:

Ensure that everyone can easily access good quality information and advice about learning opportunities throughout Europe and throughout their lives

5.5.1. There is sufficient evidence of the need to evaluate, extend and fine-tune the whole counselling system. Another important point is the need for a new approach to vocational guidance, which must ensure lifelong access for all to these services, and must be linked to demand. The ESC welcomes the memorandum's focus on this issue, which has not always received due attention in terms of policy and action taken, despite considerable efforts at national and European level. The ESC is prepared to play its part in improving the resources of, and links between, the many current and potential providers of services (as described in relation to questions on this issue in the memorandum) by campaigning at local and regional level, and to bring to bear the specialist knowledge that the social partners undoubtedly possess on the basis of their everyday work with the general public, in particular - but not only - as employees and job-seekers.

5.6. Key message 6: Bringing learning closer to home

Objective:

Provide lifelong learning opportunities as close to learners as possible, in their own communities and supported through ICT-based facilities wherever appropriate

5.6.1. We welcome the fact that the LLL memorandum explicitly recognises the potential for European institutions such as the ESC to promote and strengthen partnerships at local and regional level. There must be many ways of improving the use of the networks and infrastructures established by the social partners and other civil society organisations in order to deploy material and human resources more effectively for the benefit of teachers and learners (and also when they change roles). The ESC will formulate further proposals and recommendations on the matter.

Brussels, 12 September 2001.

The President

of the Economic and Social Committee

Göke Frerichs

(1) SEC(2000) 1832 (Introduction).

(2) The Commission proposes to draft a report this autumn.

(3) In particular the opinion on the White Paper on Education and Training (OJ C 295, 7.10.1996, p. 25) and the Information Report on the European Dimension of Education. Note that the Commission memorandum on lifelong learning refers to the latter (footnote 2, p. 43).

(4) See points 3 and 5.

(5) Point 4.4, and the Cedefop report "An age of learning".

(6) Point 3.2 (sixth indent).

(7) See Commission White Paper on Education and Training (COM(95) 590, Introduction).

(8) OJ C 123, 25.4.2001 (point 4.2.1.2, first proposal).

(9) OJ C 295, 7.10.1996, p. 25 (point 3.2.3).

(10) Op. cit. (points 3.2.4.1, 3.2.4.2 and 3.2.4.3).

(11) OJ C 139, 11.5.2001 (point 4.4).

(12) OJ C 139, 11.5.2001 (point 3.1.2.1).

(13) OJ C 139, 11.5.2001 (point 3.1.2.1).

(14) OJ C 139, 11.5.2001 (point 4.1).

(15) The Commission's questions and the relevant positions of the ESC can be found in point 5 below.

(16) See point 4.3.1 below.

(17) There will be a more detailed analysis of the role played by organised civil society in the development of lifelong learning during the next phase of consultations, based on the Commission's final report.