Opinion of the Committee of the Regions on the 'Communication from the Commission on "Towards a Europe of Knowledge"` (98/C 180/09)

THE COMMITTEE OF THE REGIONS,

having regard to the Commission Communication on 'Towards a Europe of knowledge` ();

having regard to the decision taken by the European Commission on 13 January 1998 under the first paragraph of Article 198c of the Treaty establishing the European Community, to consult the Committee of the Regions on the matter;

having regard to its decision on 15 January 1998 to direct Commission 6 'Education and Training` to draw up the relevant opinion;

having regard to the draft opinion (432/97 rev.) adopted by Commission 6 on 16 January 1998 (rapporteur: Mr K. Bodfish);

whereas the Treaty of Amsterdam expressed the commitment of the Member States of the European Union to 'promote the development of the highest possible level of knowledge for their peoples through a wide access to education and its continuous updating`;

whereas the COR in its Opinion on the White Paper on Education and Training Teaching and learning towards the learning society () pointed out that there is an increasing demand for lifelong learning which must be made available to all citizens and viewed that investment in knowledge and skills is of vital importance in the drive to curb unemployment, boost competitiveness and prevent social exclusion;

whereas the COR in its Opinion on the Proposal for a Decision of the European Parliament and of the Council amending Decision 819/95/EC establishing the Community action programme Socrates () stressed that investing more in education programmes will not only contribute towards strengthening economic and social cohesion in the EU but also help build a real 'Citizens' Europe` by strengthening understanding of cultural diversity and solidarity across the EU,

adopted the following opinion at its 22nd plenary session of 12 and 13 March 1998 (meeting of 13 March).

1. Introduction

1.1. 'Towards a Europe of Knowledge` sets out guidelines for future Community activities in the fields of education, training and youth for the period 2000-2006. The current Socrates and Leonardo and Youth programmes come to an end in 1999 and decisions about the new Community Programmes dealing with education, training and youth will be taken then so that the new legal texts can enter into force on 1 January 2000.

1.2. The Commission points out that the scale of the challenges faced indicates that a greater degree of integration between the fields of education, training and youth will be needed. The Communication also stresses the need to focus on a limited number of objectives: better access for European citizens to the full range of Europe's education resources, innovation in resources and wide dissemination of good practice in education.

2. General comments

2.1. The COR welcomes the Commission's commitment to a 'knowledge society` and its intentions that the knowledge society should not become a new source of social exclusion. It shares the commitment to promoting the highest level of knowledge for the people of Europe whatever their age or social circumstances. The COR notes the necessary linkage to improving economic competitiveness and supports the Amsterdam Treaty's priorities and new community initiatives to reduce long term unemployment and especially youth unemployment, however, the COR would also want to stress the view that education is a right to all European citizens and has strength and validity over and beyond vocational and economic considerations.

2.2. The COR would like the Commission to continue to build upon the philosophy and strategies developed during the European Year of Lifelong Learning in 1996 and to capitalize upon achievements won in that year. It is within that context the COR would prefer to keep the term 'lifelong learning` very much at the heart of the debate about future educational policy.

2.3. The COR believes that the growing usage of this term implies the development of a 'learning society` with a continuity of learning throughout different stages of an individual's life and embraces learning which occurs within formal institutions, as well as informally. It is a term which is genuinely comprehensive and is focused upon widening participation in learning so that each individual can reach their full potential to meet the challenges of a rapidly changing world irrespective of age, ethnicity, gender or economic circumstance. Community action should be pressing for permanent acquisition of knowledge for everyone and should be developing strategies for encouraging those vast numbers of European citizens who have not engaged in education and training for many years to do so. This agenda would be about widening participation in a learning society to those groups who are currently under-represented in taking advantage of learning opportunities. It would also imply developing a strategy for creating a demand and hunger for education and training.

2.4. The COR welcomes the values expressed in the document which embraces inclusion, active citizenship and equal opportunities. A 'learning society` would need to be based on notions of equity and accessibility so that the majority of European citizens could participate throughout their lives. Although it is recognized that an educated population is a resource in an increasingly competitive economic world, the COR would also urge that access to the 'learning society` is an important aspect for all European citizens, whether for economic, social or personal reasons. In addition, the ageing of the European population means that the Community will also need to take into account the needs of the adult and elderly population groups which will emerge in growing numbers in the future.

2.5. The COR welcomes the construction of an open and dynamic European educational area in the field of education, training and youth. It also welcomes a greater degree of integration between these fields in order to adopt a more holistic approach and thereby to maximize the impact of initiatives on a Europe-wide basis.

2.6. The COR is also enthusiastic about the encouragement the Commission is giving to greater co-operation between Member States and the support offered for their actions. Local and regional authorities would welcome making an active contribution to these endeavours.

2.7. Local and regional authorities throughout the Union have a long and continuing historical role as initiators, pioneers, providers and enablers of educational services across the whole of the education sector. In all Member States the leadership role of local/regional authorities is a proud tradition and is consequential on those bodies being the form of the government which is closest to the people. New circumstances and perspectives on the role of local and national state institutions mean that the developing function of these bodies will not necessarily replicate the patterns of the past. Nevertheless, local and regional authorities will continue to be key players and view with optimism the positive contribution they can make in partnership and collaboration with other social, economic and education partners.

3. Specific comments

3.1. Part I: Building a Europe of knowledge

3.1.1. The COR is strongly committed to the gradual construction of an open and dynamic European educational area built on the concept of lifelong learning and agrees with the Commission that knowledge acquisition is a dynamic process and requires learning opportunities at all stages of a citizen's life.

3.1.2. The COR would agree that the enhancement of citizenship should be encouraged and that the promotion of active citizenship is a major way of countering social exclusion. Initiatives which encourage participation in community life, cultural life and engagement with political processes would be welcomed.

3.1.3. Enhancement of citizenship is an essential component and local/regional authorities, which are rooted in local and regional communities, support the development of a sense of belonging to a common social and cultural area. This is, however, predicated on the strong belief that Europe's strength is inherently based upon the recognition of cultural and linguistic diversity as an expression of the richness of Europe's heritage.

3.1.4. The focus on intercultural education and physical/virtual mobility would be important in helping to develop consistent values throughout Member States offering a sense of greater solidarity to European citizens and encouraging a greater awareness of belonging to Europe. This would be a positive initiative to help limit racism, xenophobia and intolerance, thereby securing a greater social cohesion throughout Europe, as outlined in particular in the COR Opinion on Intercultural Education ().

3.1.5. The global economy, changes in work, its patterns of organizations and technological revolution places an imperative on developing employability for Europe's citizens. Employability should be a fundamental foundation for a Europe of Knowledge but employability must be time-limited and related to specific economic goals. The COR, therefore, agrees that the pedagogical basis for lifelong learning should be to promote broad-based competence to support employability and citizenship.

3.1.6. The focus on employability acknowledges the political priority attached to combating unemployment within the EU, particularly amongst youth. The promotion of key skills, team working, problem solving, management/supervisory skills are essential in both developing and maintaining employability. The emphasis on a solid broad based education including languages, entrepreneurship and an understanding of a diversity of cultures is to be welcomed. The COR would stress that the local/regional authorities are well placed to support initiatives in this area as they are often the major employers in their localities and are able to develop exemplary practices in relation to employee development schemes which make a significant contribution to lifelong learning. They would also be well placed to harness the energies of all parties in integrated programmes to tackle youth employment initiatives. Youth policies should focus on the need for programmes in areas of high unemployment and offer vocational guidance, work practice and training with particular support in the areas of key skills.

3.1.7. The COR would also view with optimism, the opportunities physical and virtual mobility offer in enhancing the possibilities for people to utilize their skills in a larger European market. This would also aid the development of social cohesion in the EU.

3.1.8. Greater integration between the fields of education, training and youth policy is extremely important. A more holistic approach will ensure a greater impact brought to bear in combating social and economic exclusion.

3.2. Limited number of objectives

3.2.1. The COR welcomes the Commission's focus on a limited number of objectives. This enables policy objectives to be better targeted and resources to be used more efficiently.

3.2.2. Increasing access for citizens of Europe is of fundamental importance to the COR and the personal financial situation, gender, ethnicity, age or cultural background of an individual should not be a constraint on fulfilling personal and social goals inherently achieved through lifelong learning. Identifying and removing barriers to participation for the disadvantaged should be central to any programme in order that privileged institutions, individuals and localities do not dominate.

3.2.3. Issues of access are fundamentally linked with general concerns about participation and social exclusion. The COR would have concerns if the current inequalities in relation to access and participation in education and training were reproduced in relation to access to European resources and the situation exacerbated with a new layer of exclusion being created. Concerns are also expressed about access through, and to, information technology. The promotion of equal opportunities in this field is crucial, particularly in relation to age, given the rapid technological advances made.

3.2.4. There is also a concern, however, that there does not appear to be a strategic framework being developed which would support the Commission's main objectives. It could be argued that 'initiatives` identified need to have a coherent policy framework providing direction. It is important for all to envisage their own contribution to the framework and to the development of a Europe of Knowledge. A strategic vision is needed to provide a bridge between the statement of objectives, the focused activities and the parties involved in making it happen. It is acknowledged that this is a difficult process given the increasing scale of the EU, however, it would be encouraging to have the Commission confirm that there is an emerging strategy to provide a framework for decision making at a more central level. An audit approach might be useful which would map current provision, identify successful initiatives and provide the Commission with a set of priorities with which to steer regional activity. Imaginative use of new technologies could support and encourage this. Survey and analysis of education and training would provide the motor by which new initiatives are driven. Coherence, consistency and a broadly agreed strategy are central to the development of a Europe of knowledge.

3.3. More focused activities

The COR supports the Commission's proposals for the six types of action outlined.

3.3.1. Physical mobility

3.3.1.1. These initiatives have been well received in the past and have been very successful. Building on the previous good practice in this area has been perceived as valuable for all concerned. There now appears to be an ever increasing interest as the positive benefits are disseminated. The COR would stress that it is imperative to continue to ensure that equity of access to programmes is actively pursued.

3.3.1.2. The COR recalls its endorsement of the proposal for a programme on the European Voluntary Service for Young People to be set up in particular welcoming the opportunities this would provide as an educational tool for young people who for cultural, social, economic or geographic reasons have difficulty in participating in existing programmes, as indicated in its Opinion on the European Voluntary Service for Young People ().

3.3.1.3. The COR supports measures taken in promoting the extension of mutual recognition arrangements and in removing existing obstacles to mobility, as indicated in its Opinion on the Green Paper on Education - Training - Research: the obstacles to transnational mobility () which are the cornerstone in the creation of an open and dynamic European educational area.

3.3.2. Virtual mobility

3.3.2.1. The 'Learning in the Information Society` action plan of 1996 indicated the priority which needs to be given to this aspect of work which was supported by the COR in its Opinion on the subject (). The COR welcomes the Commission's aim to promote universal access to new educational tools and would assert the notion that resources need to be made available to European citizens representing all age groups and social/economic circumstances if we are to realize a genuine 'learning society`.

3.3.2.2. The production and dissemination of European multimedia and audio-visual products and services is viewed positively. This would allow the establishment of international networks, support for language teaching and learning and help promote cultural awareness at all levels.

3.3.2.3. These developments would enable the education sector to build upon the infrastructure currently being developed and offer the opportunity for focused use. The COR, however, still has concerns about use of new technologies for other age groups and communities. These are the issues which need serious attention in societies developing a culture of lifelong learning. More imaginative ways of delivery will need to be found to encourage a wider participation in the development of IT skills. Measures need to be taken to develop programmes for those people currently not in formal education nor in the forms of employment which give rise to information technology training. Potentially vast numbers of European citizens are currently excluded from developing knowledge about the potential of information technology. Dangers of allowing a generation of illiteracy in IT to develop should be avoided by innovative approaches to making IT more accessible to current non-participants.

3.3.3. Cooperation networks

3.3.3.1. The COR particularly welcomes the building of co-operative networks at European level. This enables a coherence to develop which would link in effectively with the Commission's strategy and the objectives which it has set. It will also allow the development of trans-European projects to be undertaken which may yield some interesting comparative results. The networks would enable the identification of European excellence and the more rapid move towards creating genuine European expertise. The opportunities for this to be developed across Member States are exciting and contribute significantly to the 'added value` the Commission offers.

3.3.3.2. The COR would also like to stress the value of developing strategic networks at local and regional levels. This would be one initiative which would help the Commission to implement its strategic framework in order to realize its vision. The positive activities which could be undertaken at this level would be to:

- map activity;

- plan and target developments in line with the Commission's strategic framework;

- identify gaps in provision;

- undertake joint initiatives which would cross institutional boundaries;

- monitor and evaluate outcomes in relation to priorities set;

- disseminate good practice;

- report back to the trans-European networks.

3.3.3.3. The COR Opinion on 'the role of local and regional authorities in linking education and training establishments to enterprises` () emphasizes that local and regional partnerships often make a major difference in particular areas because of this co-ordinated and coherent approach. It is a view that the COR would very much like to reiterate.

3.3.3.4. The COR would assert that local and regional authorities would have a key role to play in these networks as they have a major role in providing a focus in areas for comprehensive initiatives where fragmentary approaches currently exist. It is well recognized that numbers of institutions are either often actively engaged in meeting the needs of particular groups, or focused on particular activities acting in isolation. Many European initiatives acting in the past have often been pursued in this way in geographical areas where other providers, using different sources of funding, are engaged in similar tasks. Local and regional authorities are well placed to bring coherence to bear and can attempt to wed those aims to priorities identified by the Commission.

3.3.3.5. Local and regional authorities could provide a lead in the development of consortia which could help support the realization of the Commission's objectives. It should be noted that the comprehensive consortia (including schools, Employers, Enterprises, Universities, Colleges, Careers Services and Local Authorities) are often already in existence or are emerging structures in areas where it is acknowledged that local collaboration could develop real synergies.

3.3.4. Language skills and cultural awareness

3.3.4.1. The COR is enthusiastic about the maintenance of these initiatives and the supporting role they will play in other initiatives. It is also acknowledged that these issues help promote and enhance employment mobility.

3.3.5. Pursuing innovation

3.3.5.1. The pursuance of trans-national pilot projects is welcomed, however, it also needs to be acknowledged that there may be a number of projects either already in existence or which have now expired. The COR would reiterate that where current experience exists it should be harvested, evaluated and built upon in a systematic and strategic way to avoid the wasteful use of resources.

3.3.6. Community sources of reference

3.3.6.1. The importance of continuing improvement in developing sources of reference for education, training and youth policies is recognized. The policies, databases, data and other qualitative information provide the necessary raw material for analytical work to occur. These sources will provide invaluable tools for international comparative analyses and, perhaps, for benchmarking to begin to inform targeting processes. They are all the more attractive because the resources already exist and, therefore, will incur no further costs.

3.3.6.2. The COR wishes to also underline the need to fully utilize CEDEFOP's contribution in this area, in particular in order to develop skills accreditation.

3.4. Parties involved

3.4.1. The COR would support the central idea of developing a framework of responsibilities shared between Member States and the EU, however, the importance of linking these responsibilities to a strategic framework incorporating the core objectives set by the Commission cannot be overstated.

3.4.2. The COR notes with enthusiasm that an enhancement of the role at regional and local level is to be a feature for the future. However, it notes with disappointment that explicit reference to local and regional authorities has not been mentioned here.

3.4.3. The COR wishes to draw attention to the significant role played by local and regional authorities in educational and social policy and the role taken in relation to interpreting national policy at a regional and local level. In many Member States local and regional authorities have important competences in the field of education and training and youth policy. It should be noted that this important role has been recognized by the EU in the Amsterdam Treaty which has included training alongside the existing provisions concerning education and youth as an area of obligatory consultation of the COR.

3.4.4. Local and regional authorities also have a key role to play in the delivery of educational services which provides a structure for lifelong learning through the provision of pre-school, school, youth, adult and community education services. It should also be noted that local and regional authorities are capable of developing a lifelong learning approach through all their service delivery areas i.e. housing, social services, arts and leisure. The authorities would be singularly well placed to lead development in integrated projects. They are also very close to youth-orientated activities, which are involved in developing projects supported by the Youth for Europe programme. Moreover, the COR underlines the important role of local and regional authorities in providing opportunities for promoting self-development and participation in civil society through social and cultural educational activities.

3.4.5. It can also be argued that local and regional authorities subscribe to values and principles encouraged by the Commission and therefore, there is a shared identity of interest in relation to local/regional development, growth and competitiveness, active citizenship, combating social exclusion and promoting equal opportunities. It should be stressed that these are democratic organizations who work very closely with local citizens.

3.4.6. The other key role for local and regional authorities is often as one of the major employers in their areas. They are particularly well placed to develop initiatives, share good practice regionally and provide a lead to the rest of the business sector. They occupy a unique position in relation to education, training, youth policy and employment that could place them at the heart of initiatives in developing a Europe of Knowledge. As a key partner they would be able to act as a 'broker` to lead disparate organizations to partnerships centred around imaginative training approaches, promote the implementation of schemes to facilitate access to new technologies and can create positive conditions for economic growth in their area.

3.5. Targeted international cooperation

3.5.1. The COR, as indicated in past opinions in particular on the Tempus II programme (), welcomes the gradual opening up of the Community education, training and youth programmes to the applicant countries participating in the pre-accession strategy and endorses the role of Tempus in preparing these countries to take part in the programmes. The COR reiterates the valuable contribution that increased cooperation in these fields can make in particular at local and regional level in strengthening the economic, social and democratic reform process underway in those countries.

Part II: More integrated set of arrangements

3.6. Legal instruments

3.6.1. The Commission's proposals to define a specific framework and common articles for activities in the fields of education, training and youth is welcomed as it will encourage greater consistency of achievement in working towards the Commission's main objectives.

3.7. Budgetary resources

3.7.1. The COR welcomes the approach that budgetary resources needs to be commensurate with aims, as advocated by the European Parliament. A Europe of Knowledge is setting a visionary agenda with potential for far-reaching consequences for European citizens at a defining moment in global and European development. Many of the issues addressed focus on problems which have proved to be intractable to date. It is acknowledged that education and training are the key for tackling some of these issues and meeting the challenges of the 21st century. Without effective levels of budget resource earmarked for the Community programmes the levels of intervention possible will not meet the priority objectives indicated. These are extremely ambitious and will need an adequate level of resourcing if they are to come to fruition.

3.7.2. Moreover, as indicated in previous opinions, the COR maintains that additional funding is essential in order to support the participation of the associated central and eastern European countries and Cyprus in education, training and youth programmes.

3.7.3. The COR welcomes the avoidance of duplication in relation to funding. Other funding streams have shown a lack of cohesion and overlap between projects which has proved wasteful of resources. Any attempt to avoid this will be received positively.

3.7.4. The COR would, however, seek to encourage bridges with other sources of European funding being made where there was a complementarity of activity in order to use scarce resources as effectively as possible.

3.7.5. The COR requests that attention is also paid to the imbalance in the proportion of overall funding directed towards different institutions as the larger, formal institutions may not always be best placed to pioneer the sort of imaginative initiatives required to widen participation and inhibit social exclusion. Any funding mechanism which allows a more equitable distribution of funds in relation to the effectiveness of the contribution made would be welcomed with encouragement given to the more innovatory pilot projects.

3.8. Streamlined implementation

Improved and simplified procedures

3.8.1. Any attempt to streamline processes is to be encouraged. It is widely recognized that large numbers of smaller organizations are deterred from active engagement because access to relatively small amounts of funding require complex and detailed levels of documentation and bureaucracy. Ironically, it is often just these organizations who are closest to local people who would be best placed to deliver imaginative projects which would respond to their needs. More simplified and user-friendly access to Community aid and an improved level of support given by national agencies in counselling applicants would be received positively. The decentralization of decision-making to a more local level will also aid coherence and consistency of approach with better regard to local conditions.

3.8.2. The introduction of more flexibility would be another positive feature of the changes. Multi-annual funding and phased funding would help support consistency of delivery and provide the lead in time needed for new initiatives.

3.9. Partnerships

3.9.1. The COR supports the move towards a more collaborative and consultative approach. The relationship between the three tiers outlined (political authorities; educational, social, economic and voluntary parties; and operators involved in implementation) will be crucial in ensuring success in achieving the Commission's objectives.

3.9.2. The political authorities at national, regional and local level in the Member States will be particularly important in relation to developing sustainable initiatives. Concerns have been expressed in the past that once Community aid has ceased, initiatives have often closed down because they do not fall within the priorities of national government. Community priorities and those of the Member States need to have some degree of congruence if initiatives are to become sustainable and enter mainstream activity.

3.9.3. Mechanisms for strengthening the third tier should also be encouraged as many have felt that 'grass roots` development has been sacrificed because of the disparity size and weight of partners.

3.9.4. The COR would stress that the strategic relationship between these three tiers and how this is articulated and managed by the Commission will be crucial to enabling the Commission to realize its vision for Europe.

4. Monitoring and evaluation

4.1. Although the COR could support the new arrangements set out for monitoring progress in relation to programmes being fulfilled, there is an additional issue here which links back to the desirability of the Commission providing a strategic framework for community activity. The COR would like to see arrangements introduced for the Commission to periodically monitor its own performance in relation to the strategic objectives it sets for the period 2000 to 2006 in order to constantly evaluate its effectiveness with a view to realizing its strategy.

5. Conclusions

5.1. The COR welcomes the document 'Towards a Europe of Knowledge` and views a more open and dynamic European educational area very positively. The COR is enthusiastic about building upon the considerable resources Europe possesses to enhance the lives of its citizens into the 21st century. The more integrated approach indicated by linking education, training and youth policies together go some way to address the breadth of approach necessary to tackle the issues before us. The COR would, however, like to see these policies developed within a framework of lifelong learning and aimed at creating a genuinely inclusive educational culture for all of Europe's citizens at all stages of their lives. The significant economic, social, scientific and technological changes which affect peoples' ways of living and working require the broadest possible access to learning for an increasing number of people.

5.2. The other issue the COR would like to see developed is a more strategic framework which would link the statement of objectives, the focused activities and the parties involved in making it happen. The proposal for a limited number of objectives for the programmes which correspond to the political priorities determined by the EU should lead to greater consistency and impact. Streamlined management and the simplification of procedures is a further positive development.

5.3. The COR views further moves towards developing partnerships built on collaborative arrangements very favourably. It should be noted that most of the proposals have an impact on local and regional authorities and full participation in the proposals should be urged. Local and regional authorities have a key strategic role in promoting lifelong learning and would be enthusiastic supporters of the move 'Towards a Europe of Knowledge`.

5.4. Finally, underpinning strategy and implementation is an allocation of budgetary resource which needs to be adequate for the purposes outlined by the Commission. The proposals set out offer a challenging and stimulating agenda for developing far reaching strategies to take Europe into the 21st century. This needs to be recognized in a realistic funding resource to deliver the objectives identified.

Brussels, 13 March 1998.

The Chairman of the Committee of the Regions

Manfred DAMMEYER

() COM(97) 563 final.

() OJ C 182, 24.6.1996, p. 15.

() OJ C 379, 15.12.1997, p. 17.

() OJ C 215, 16.7.1997, p. 21.

() OJ C 244, 11.8.1997, p. 47.

() OJ C 215, 16.7.1997, p. 1.

() OJ C 116, 14.4.1997, p. 89.

() OJ C 116, 14.4.1997, p. 98.

() OJ C 34, 3.2.1997, p. 49.