Implementation of the "Education & Training 2010" programme - Supporting document for the draft joint interim report on the implementation of the detailed work programme on the follow-up of the objectives of education and training systems in Europe {COM (2003) 685 final}

TABLE OF CONTENTS

Introduction

1. An integrated approach

2. This is not just an isolated initiative

Part I. Implementing the work programme

1. Ambitious common objectives, a new method

1.1 Objectives which are defined, diversified and ambitious

1.2 A new and enhanced method of cooperation

2. The contribution of the working groups

2.1 Thematic working groups at the heart of the process

2.2 A common and coherent working approach

2.3 An open and collaborative approach

3. A platform for cooperation

3.1 Taking stock, establishing synergy and achieving consensus

3.2 Exchange of innovative practices: an instrument of measurement and a reflection of the vitality of the systems

- Defining the framework for the exchange of "best practice"

- Examples of practices which reflect the vitality of the systems

- The contribution at this stage by exchanges of best practice

4. Interim results and conclusions of the working groups

4.1 Need to pursue and step up action in all areas

4.1.1 Provide all Europeans with the key competences needed to live and work in the knowledge-driven society and economy (Objectives concerned: 1.2, 3.2, 3.3)

4.1.2 Teachers and trainers: the essential catalysts of change (Objective concerned: 1.1)

4.1.3 The role of ICT in transforming and modernising education and training systems (Objective 1.3)

4.1.4 Helping to raise the general level of scientific and technical culture and competence in the Union (Objective concerned: 1.4)

4.1.5 A more resolute effort with regard to linguistic diversity and language learning in Europe (Objective concerned: 3.3)

4.1.6 Diversified and effective investment in resources (Objective 1.5)

4.1.7 Strengthening mobility and cooperation in the Union (Objectives concerned: 3.4 and 3.5)

4.1.8 Developing a learning-conducive environment which is open to society and the world of work (Objectives concerned: 2.1, 2.2 and 3.1)

4.1.9. Social inclusion and equal opportunities (Objectives concerned: 2.1 and 2.3)

4.1.10. Education and training for active citizenship (Objective concerned: 2.3)

4.2 Main recommendations

5. Progress indicators and European benchmarks to support the "education & training 2010" programme

5.1. Identification of 29 progress indicators

5.2. Highlighting shortcomings and requirements

5.3. The "Education" Council adopts five European benchmarks

5.4. An initial picture of education and training systems in Europe

Part II: Enhanced European cooperation in vocational education and training : the Copenhagen process

1. Implementation of the Copenhagen process : a flexible approach

2. Progress November 2002 - October 2003

2.1. Developing a single framework for the transparency of qualifications and competences

2.2. Quality assurance in VET

2.3. Developing a credit transfer system and common reference levels for VET

2.4. Increasing support the development of sectoral qualifications and competences

2.5. The European dimension

2.6. Developing common European principles for the validation of non-formal and informal learning

2.7. Strengthening policies, systems and practices that support information, guidance and counselling

2.8. Giving attention to the learning needs of teachers and trainers in VET

3. Coordination: transparency, transfer and quality

3.1. Transparency

3.2. Transfer

3.3. Quality

4. Conclusion

Part III: Implementation of national coherent and global lifelong learning strategies

1. Introduction

2. Main trends in national policies

2.1. LLL a guiding principle growing in importance

2.2. Basic competencies

2.3. Learning and the workplace; the role of the social partners

2.4. Financing lifelong learning; public-private partnerships

2.5. Facilitating access

2.6. Information and guidance

2.7. Qualifications and validation of acquired competencies

2.8. Creating a cradle-to-grave learning culture - some missing links

2.9. European dimension

Part IV. Higher Education: the Bologna Process

1. The Bologna process

2. Accelerating the Bologna reforms

3. Bologna Action Lines

Annex 1.

Organisation of the working groups and preliminary exchanges of best practice /

Annex 2.

INDICATORS AND REFERENCE LEVELS OF EUROPEAN AVERAGE PERFORMANCE (Benchmarks)

Introduction

The report on the future objectives of education and training systems in Europe [1] and the ten-year work programme [2] which accompanies it are central to the implementation of the Union's new economic, social and environmental strategy defined in Lisbon in March 2000 by the Heads of State and Government. They come in response to the request made at that time by the latter to the (Education) Council to modernise education and training systems to enable them to rise to the challenge of a knowledge-driven society and a more job-rich economy, and to reflect together on the future objectives of these systems using their common concerns as a starting point [3]. These texts were approved at the highest level in February 2001 and March 2002 respectively [4] and constitute an historical agreement which for the first time provides European cooperation on education and training with medium-term common objectives, a framework and a working method which are coherent, structured and open, since June 2002, to the participation of other countries, particularly those which will be joining the Union as from 2004.

[1] Report adopted by the "Education" Council on 12 February 2001. Council document 6365/02 of 14.02.2001.

[2] Detailed work programme on the follow-up of the objectives of education and training systems in Europe. OJ of 14.6.2002 No C 142/01.

[3] Conclusions of the European Lisbon Council, 23-24 March 2000. Paragraph 27.

[4] After its adoption by the Education Council on 12 February 2001, the report on the future objectives of education and training systems was adopted by the Stockholm European Council of 23-24 March 2001. The detailed work programme which followed on from this was adopted jointly by the Education Council and the Commission on 14 February 2002 and approved by the European Council meeting in Barcelona on 23-24 March 2002.

The work programme on the future objectives of education and training systems ("Education & Training 2010") specifies and defines the areas of action and thus is itself a specific framework of action. Its broad scope and political significance also make it the reference framework which henceforth bring together all initiatives in progress in the area of education and training to enhance coherence and effectiveness. Everything is now being concentrated on three strategic targets in order to attain by 2010 the objectives set by the Heads of State and Government in Lisbon in March 2000: education and training systems must more than ever before rise to the challenge of quality and effectiveness; they must be accessible to everyone, as part of a lifelong learning approach, and open to society and the rest of the world.

At the request of the Barcelona European Council [5], the Commission has adopted a Communication [6] ahead of the Spring 2004 European Council, taking preliminary stock of the situation of education and training in Europe in relation to the objectives set under the Lisbon strategy. It examines the challenges to be faced by 2010 and makes recommendations on priority action for the future. This report backs up the Communication and presents a more detailed inventory of action taken since 2001.

[5] Barcelona European Council, 15-16 March 2002, paragraph 43 of the conclusions.

[6] COM(2003) check reference final

The adoption of the work programme is still too recent to allow any reliable and meaningful assessment of how far the Union has progressed towards the objectives set jointly. The work of the past two years nevertheless illustrates the vitality of the education and training systems in gradually adapting to the knowledge-driven society and economy. At the same time they highlight the huge gap to be narrowed if the objectives set for 2010 by the Heads of State and Government are to be attained, particularly that of making the European education and training systems "a world quality reference by 2010".

1. An integrated approach

The various actions in progress when the work programme was adopted in 2002 or which have been started since all strive towards the same objective, i.e. to attain the targets set by the Lisbon European Council. In line with the Education Council's request, they are part of an integrated approach in relation to the "Education & Training 2010" programme and are thus also covered by this report.

Accordingly the report, after describing the initial phase of implementation of the work programme as such, through the various working groups set up (Part I), takes stock of the work carried out in the wake of the Copenhagen Ministerial Declaration [7] (Part II) adopted in November 2002. The point of this Declaration is to strengthen European cooperation in the area of vocational training. It defines five priority areas of action: transparency; information and guidance; recognition of qualifications and competences; quality assurance and the European dimension. Lifelong learning is henceforth the underlying principle for all Community cooperation in education and training. The progress made (Part III) in implementing at national level coherent and comprehensive strategies in this area [8] are therefore meaningful also for the "Education & Training 2010" programme. The implementation of the Recommendation on the mobility of students, people in training, volunteers, teachers and trainers [9] is another major strand and is described in a separate report.

[7] Declaration by the European ministers responsible for vocational training and the Commission, meeting in Copenhagen on 29-30 November 2002, and Council Resolution of 19 December 2002 on the promotion of enhanced European cooperation in vocational education and training; OJ C 13 of 18.01.2003.

[8] Implementation of the Commission Communication of 21 November 2001 "Making a European area of lifelong learning a reality". COM(2001) 678 final and Council Resolution of 27 June 2002; OJ C 163/1 of 9 July 2002.

[9] Recommendation of 10 July 2001 of the European Parliament and of the Council "on the mobility within the Community of students, people undergoing training, volunteers, teachers and trainers" (OJ L 21 of 9. 08. 2001).

Given the importance of the process initiated in Bologna in June 1999 [10] on the creation of a European Area of Higher Education and the strong link with Community action undertaken at this level in recent years, this document also refers to the work pursued within this framework (Part IV).

[10] On 19 June 1999 the ministers responsible for higher education from 29 European countries signed, in Bologna, a Declaration on the creation of a coherent European area of higher education by 2010.

At this stage of implementation and given the diversity involved (in terms of both time and arrangements) as well as their still variable degree of integration within the "Education & Training 2010" programme started a mere two years ago, these different actions are described in parallel presentations in this first interim review. The links which already exist with this process are nonetheless made explicit, considering the high degree of complementarity involved. In particular, there are transversal aspects which closely affect lifelong learning strategies (e.g. validation of non-formal and informal competences; training of teachers and trainers; development of guidance and of flexible and open qualifications frameworks). These are indeed major components of the work carried out as part of the implementation both of the "Education & Training 2010" programme (Part I) as well as of the Copenhagen Declaration (Part II). Some extent of integration already exists and needs to be strengthened, and a close link will have to be established with the regular collection of information on national lifelong learning strategies (Part III).

The work also brings out the close relationship that exists between the objectives pursued by the Copenhagen process and those which underpin the Bologna process, particularly with regard to transparency and quality assurance. It stresses (Part II-point 3 and Part IV-point 2) the need for better coordination and synergy. This will be essential for the European level development of a reference framework for qualifications, both in higher education and in vocational training. The European employment market cannot function smoothly and effectively until such a European framework exists. A framework of this kind would make mobility easier, thanks to better linkage across the various systems in Europe and a higher degree of mutual trust between countries.

2. This is not just an isolated initiative

It is important to stress that the implementation of this new road map for cooperation in education and training started at Stockholm is not a disjointed initiative. The training of human resources is central to the dynamism of European economies and societies and to the construction of a genuine Europe of knowledge, so the action is from the outset closely related to the other dimensions involved in the implementation of the Lisbon strategy. It involves in particular the European Employment Strategy, the creation of a European area of research, the information society, but also the major economic policy guidelines, the internal market and enterprise policy. Education and training are benefiting from developments in progress in these areas and at the same time contribute to enhancing their impact. In addition, they carry forward the social and citizen-focused dimension of the Lisbon strategy.

The work of the social partners in implementing their joint framework of actions for the lifelong development of competences and qualifications, adopted in March 2002, is also of great relevance to the key aspects of the "Education & Training 2010" programme.

PART I. IMPLEMENTING THE WORK PROGRAMME

In this initial phase of implementation of the "Education and Training 2010" programme, the main thrust of the work, based on the guidelines of the programme itself, was to take stock with regard to each of the 13 common objectives, to agree on the key issues to be addressed as a matter of priority and on the indicators needed to monitor the process, and to ensure preliminary identification and exchange of best practice applied nationally.

1. AMBITIOUS COMMON OBJECTIVES, A NEW METHOD

1.1 Objectives which are defined, diversified and ambitious

The work programme adopted in 2002 by the Education Council and the Commission has a very broad scope, for it is built around the principle of lifelong learning. It touches on the different areas and levels of education and training systems and addresses the full spectrum of issues facing them in order to cope with the changes anticipated, whether in terms of quality and effectiveness, basic skills, adapting to the digital age, funding, access or openness to the world.

The work is structured around a common framework which defines the different objectives to be implemented and the practical arrangements at the Community level. Starting with three strategic objectives (quality/effectiveness, access and openness), themselves subdivided into 13 specific targets, the common work programme is in fact a guide for individual and collective action by the Member States within the Community framework up until 2010. In addition, it sets out 42 key points considered to be crucial to the attainment of all the objectives and which must steer the work, and provides an indicative list of instruments for measuring progress along the road to these objectives.

Contribution of the European education and training systems

to the Lisbon strategy

>TABLE POSITION>

In order to address the different dimensions of the work programme in a coherent way, taking due account of the interrelation which is essential in any lifelong learning approach, the work pursued since 2001, in line with the timeframe envisaged, very quickly examined all thirteen objectives defined jointly. In line with the wishes of the (Education) Council, top priority was given as early as the second half of 2001 to examining the three objectives concerning the skills needed in a knowledge-driven society, increasing recruitment into scientific and technical channels and using ICT. The work relating to teachers and trainers started in September 2002 while that relating to the other themes was launched at the start of 2003. While all the programme's objectives have since been covered the actual work has not reached the same stage in all cases.

The reports of each working group are available in full on the Europa site (http://europa.eu.int/comm/education/ policies/2010/et_2010_en.html).

1.2 A new and enhanced method of cooperation

Learning from one another in a more systematic and more structured way, and thus improving national policies in relation to the objectives set jointly, is central to the open method of coordination applied in education and training. This enhanced approach to cooperation defined by the Lisbon European Council is based on the principle that the changes and reforms defined nationally become more effective when they can draw on successful experience acquired elsewhere and on the factors which determined this success. It uses a whole range of instruments designed to encourage mutual learning and follow up the progress made: indicators, reference criteria, exchange of best practice, peer reviews, etc.

Over the period since the programme was adopted in February 2002, education and training have established the basis needed for optimum implementation of the open method of coordination. Thanks to the assistance of working groups, and on the basis of the guidelines supplied by the work programme, the key areas to receive priority have been defined and the work of identifying best practice (with regard to policies introduced) has been started. Considerable work has gone into the matter of indicators and common reference levels which are needed to follow up the process (see point 5). Using the information available, this has led to a preliminary list of 29 relevant indicators and made it possible to identify the areas which will require new developments. The adoption by the (Education) Council on 5 May 2003 of five new common reference levels (benchmarks) is an additional step towards the actual implementation of the open method of coordination in education and training.

2. THE CONTRIBUTION OF THE WORKING GROUPS

2.1 Thematic working groups at the heart of the process

The bulk of the work has been carried out in eight working groups (see table) comprising national experts appointed by the participating countries (Member States; EFTA/EEA countries, acceding countries and candidate countries) and representatives of the players from the world of education and training. The groups have met regularly (cf. Annex 1) and each one has taken charge of one or more of the thirteen objectives defined in the work programme. When the themes in question were close, the objectives were grouped. Certain working groups have also taken on the task of monitoring Community actions in progress which are closely linked with the implementation of the "Education & Training 2010" programme. This is the case, for instance, of the working group on mobility and European cooperation which has been entrusted with the task of monitoring the implementation of the action plan on mobility and the recommendation on the mobility of students, people in training, volunteers, teachers and trainers, adopted by the Council in 2000 and 2001 respectively.

Similarly, a sub-group on languages was set up to keep track not only of the language-related aspects of the work programme on the objectives but also the preparation of the action plan on languages and the definition of a language proficiency indicator following the Barcelona European Council. This group has also covered more specifically the objective relating to improving foreign language learning (objective 3.3) and has in this capacity acted as a sub-group of group (B) on key competences, foreign languages and entrepreneurship.

The groups of experts set up in 2003 in the context of the implementation of the Copenhagen Declaration on enhanced cooperation in vocational education and training (Copenhagen process -- cf. Part II) have provided direct input for the work of the working groups in relation to the most important objectives. This is particularly the case of the expert groups dealing with lifelong guidance and validation of non-formal and informal learning.

In July 2002 the Commission also set up a standing working group on indicators (see point 5), entrusted with the task of advising it on the use and development of reliable and meaningful indicators in support of the implementation of the process up to 2010 and in order to be in a position to assess progress made in relation to the common objectives. This working group has worked in close conjunction with the various thematic working groups.

Objectives covered by the different working groups

>TABLE POSITION>

2.2 A common and coherent working approach

Considering the number of working groups, the different facets of the work itself and the horizontal nature of certain themes handled within the specific working groups (e.g. ICT, languages, teachers, basic skills, citizenship, equal opportunities), the Commission prepared a common working methodology in order to ensure maximum consistency and to promote synergy across the different levels of reflection. In line with this, certain Member States have set up national coordination bodies. This approach is not yet, however, operational across the board and needs to be strengthened in the future. There should be close links between the national structures coordinating the "Education & Training 2010" programme and those being developed elsewhere, particularly under the Copenhagen process.

Three working phases have thus been defined. The first, based on the detailed guidelines set out in the work programme itself, was to take stock of each of the objectives covered by the working groups, define the concepts and key issues to be dealt with as a matter of priority, to identify the themes which would be the subject of exchanges of best practice and to define priority needs with regard to indicators for measuring progress. The second focused essentially on the exchange and analysis of best practice, identifying the factors of success or failure, and on possible peer review (at the initiative of the participating countries). The third was designed to make recommendations.

In order to delimit the work properly, specify the objective and ensure coherent and good quality outcomes, the Commission also provided the different working groups with common guidelines for identifying and implementing exchanges of best practice focusing on national policies and strategies in education and training and also for study visits.

The coordination by the Commission of the overall process also relies on external consultants which have assisted it in preparing the basic documents and the working party reports and in analysing examples of best practice.

2.3 An open and collaborative approach

As the future and the modernisation of education and training systems must assemble everyone's energies, the implementation of the "Education & Training 2010" programme was opened up immediately to the consultation and involvement of all players concerned. The working groups thus benefited from the contribution of specialised circles and associations. Community-level agencies and specialised networks (Cedefop; ETF; Eurydice) but also other Commission departments concerned, as well as international organisations active in this area (Unesco, OECD, Council of Europe), were able to play a leading part along with a wide range of interested partners (European organisations, representatives of associations, the social partners, etc.).

The process of work and consultation is also profoundly European, given the number of countries involved. The countries of the EFTA/EEA [11], the acceding countries [12] and the candidate countries [13] have been playing an active part in its implementation since January 2003 [14], thus taking the number of countries concerned to 31.

[11] Iceland, Norway and Liechtenstein.

[12] Cyprus, Estonia, Hungary, Latvia, Lithuania, Malta, the Czech Republic, Slovakia, Slovenia and Poland.

[13] Bulgaria, Romania and Turkey.

[14] The opening up of the process to these countries was decided at the meeting of European Education Ministers held in Bratislava in June 2002.

In order to encourage the flow of information and transparency with regard to the work carried out and to undertake, between working group meetings, regular consultations on the content of the work in order to improve its representativeness and its quality, the Commission has given access to this work via its extranet (CIRCA) to all participants and to the members of the Education Committee.

3. A PLATFORM FOR COOPERATION

3.1 Taking stock, establishing synergy and achieving consensus

These first two years of work have made it possible to take stock of virtually all the themes covered by the work programme. The working group reports provide us with a clearer picture of the situation, and the way in which, at the European but also international levels, most of the different key issues identified in connection with the 13 objectives of the work programme are addressed. This review and analysis of the existing situation was essential in order to avoid duplication of effort, to make full use of the work completed or in progress and to prepare the ground for future work.

The working group on the competences needed in the knowledge society, for instance, took account of the conceptual and methodological work carried out by the OECD. The work of the Council of Europe and UNESCO, and, more recently, by the Greek Presidency of the European Union on education in democratic citizenship, was also taken into account. The subject is a complex one and abundant literature exists, which means that this stocktaking was particularly advantageous with regard to the matter of investment in resources. In some instances, the experts were also asked to provide an overview of national policy in the areas concerned in order to ensure better mutual comprehension of the different national contexts and the approaches pursued.

The work which has been going on over the past two years has been based on close consultation (meetings and regular comparing of notes, but also intensive exchanges by electronic means) with the experts of the countries concerned and the partners in the area. This allowed the broadest possible consensus to emerge on matters which are so important to good comprehension and mutual action and to the quality of the overall process, e.g. the definition of the key questions addressed, the concepts used, best practice, etc.

The Community's Socrates, Leonardo da Vinci and Youth programmes have also, in certain cases, been a support but also a source of inspiration for the work. Projects developed within this framework have thus been proposed by certain countries as examples of interesting practices. Certain networks (particularly under Grundtvig) have been invited to participate in the work of the working groups and the action of the Socrates programme on observation and innovation has started to target project selection on requirements (training of teachers, basic skills, etc.) of the "Education & Training 2010" programme.

The process's effectiveness also hinges on close synergy being achieved with related areas which often address the same issues from different but complementary angles. The strategy defined in Lisbon is indeed based on strong involvement and coordination of all areas and actors concerned, and requires pooling of reflection and endeavour at national and Community levels alike. The work carried out has made it possible to identify the synergy which needs to be intensified in the future at Community level. Examination of the new skills needed in the knowledge society has highlighted the need for closer cooperation with the area of research but also with the business sector, both active in this field [15]. The issues of validation of informal and non-formal competences and of guidance are crucial to a genuine lifelong learning approach, and must also be informed by the work of the social partners in this area [16]. The scope and impact of efforts to promote social inclusion and equal opportunities could benefit significantly from working more closely with Community policies on employment and action against all forms of discrimination and inequality. The reflection in progress with regard to education in science and technology must also interact with that conducted in 2001 on research through the action plan "Science and society". Needless to say, the importance of human capital, a matter which is central to the Lisbon strategy for investment in human resources, is growing every day and should receive increasing attention from the various areas involved at the Community level (education and training, employment, social inclusion, research, economics).

[15] The Commission's Enterprise DG has set up an expert group on "Education and training for entrepreneurship".

[16] The ETUC, UNICE/UEAPME and the CEEP in March 2002 adopted a framework of actions for the lifelong development of competences and qualifications; this framework was the subject of a preliminary follow-up report in March 2003.

3.2 Exchange of innovative practices: an instrument of measurement and a reflection of the vitality of the systems

Once a consensus was reached on the more methodological aspects, each working group was able to look at the exchange of actual experience between countries, while recognising, on the basis of international studies on the question, that there are no universal criteria for selecting "good" practices. The objective was to identify a limited number of experiences as examples in order to understand what made them successful or perhaps unsuccessful, and to thus formulate recommendations in support of changes in national policy. The first three working groups [17] started their work in the second half of 2001, that on the training of teachers and trainers in September 2002, and these are the working groups which have got furthest on this matter. The others set up at the beginning of 2003 started to collect examples during the summer and will have results to hand in the coming months.

[17] The three objectives concerned: developing the competences needed in the knowledge society (including language learning and the development of enterpreneurship); ensuring access for everyone to ICT, and increasing the numbers going into scientific and technical channels.

- Defining the framework for the exchange of "best practice"

In order to target exchanges of "best practice" between Member States on the dimensions which are the most significant in relation to the nature of the overall process, it was decided that these would concentrate by way of priority on the national education and training policies and strategies. The work did not overlook the innovative practices in the field when the theme required it (e.g. the use of ICT in teaching) or the fact that these provided elements for evaluating the scope and relevance of the policies and strategies concerned.

On the basis of this tentative refocusing of the work and of a general background document from the Commission, the various working groups applied a common analysis grid for the selection of national examples. This was adapted according to the requirements of each group. The collection was also tailored to the general approach chosen in relation to each of the 13 objectives. Some decided to tackle all the key points proposed in the work programme (language working group; group E), while others preferred to specify or reorganise them in order to make them more readable (groups D, G and H), and others decided to start with a few only. The ICT working group geared its work to the use of ICT in school teaching. The working group on teachers focused on teachers within the education system and on what will be needed to adapt them to their new role in the knowledge society. The working group on basic skills gave priority to exchanges concerning adult literacy and numeracy, the ability to learn to learn, interpersonal skills and civics, and on cultural awareness. The working group on mobility and European cooperation decided to place the focus on matters of access, quality and openness to Europe and the rest of the world.

The existence of an evaluation was considered as a determining element for judging the quality of the practices highlighted and the factors which conditioned their failure or success. The criteria most frequently mentioned by the working groups in judging the quality of a practice and the conditions of success were the existence of a prior analysis of requirements (relevance of the measure in relation to national priorities/requirements), clearly identifiable objectives, the involvement of all the parties concerned, including the learners themselves, the innovative nature of the practice in question, its insertion in a long-term perspective particularly from the funding point of view (sustainability), its potential for transferability into another context and, above all, the availability of results which have been evaluated.

- Examples of practices which reflect the vitality of the systems

In order to enhance the work and avoid duplication of effort, the working groups also took account of interesting examples of practices collected and published in other contexts. It was the case of the group on key competences which - as regards entrepreneurship education - has made use of the results of activities recently carried out in the context of the Commission enterprise policy [18]. The languages working group made also full use of the information from the Community data base of innovative projects in language teaching and learning, the resources working group drew on the results of a study conducted on partnerships between the public and private sectors by the Commission's Regional Policy DG, and the ICT working group exploited the work of case studies conducted in particular within the framework of the OECD and the IEA [19].

[18] "Best Procedure" project on Education and Training for Entrepreneurship and its follow-up.

[19] International Association for the Evaluation of Educational Achievements.

The extent of exchange which has taken place at this stage of implementation of the work programme (cf. Annex 1) is impressive. The quantity and diversity of the examples highlighted by the countries concerned attest to the vitality of the education and training systems and the efforts made in public policy to adapt them to the changes required in all the areas affected by lifelong learning. This is corroborated by the analysis of the contributions by countries to the consultation on the implementation of coherent national lifelong learning strategies (cf. Part III). This analysis shows that while these overall strategies are not yet in place in all the Member States, there are many initiatives and reforms moving in that direction.

- The contribution at this stage by exchanges of best practice

The four working groups (A, B (including languages), C and D) have had more time to organise such exchanges and analyse the outcomes, and therefore stress the value of the exercise. It is in itself an invaluable source of information on the steps deemed to be the most effective nationally in relation to the objectives of the work programme and in relation to the factors of success or failure. It makes it possible to set the national debate on education and training policy in the European context. It also brings out the trends with regard to education policy and common priorities across the countries. Working group B on basic skills was thus able to observe that most of the examples given for adult education were designed to strengthen social cohesion through social integration. Similarly, the practices exchanged on the development of interpersonal skills and civics or those related to cultural awareness in compulsory education point to an approach which is increasingly cross-disciplinary and to a growing accent being placed on lifelong learning. The experts' contributions highlight the emergence of a learning culture increasingly focused on the learner and drawing on a wide range of interpersonal skills. If they were to gain further ground, these trends would be fully in line with an adaptation of the systems to a lifelong learning approach. The analysis of these practices has also made it possible to better circumscribe the essential parameters and the main factors which contribute to the success of a policy.

The analysis of the actions conducted as part of the exchanges also makes it possible to identify the countries whose systems have gone furthest with certain approaches (e.g. concerning the incorporation of ICT in developing pupils' capacity for scientific argument or in designing resource centres in an original manner). Using practices deemed to have been successful as a basis and whose implementation has been evaluated, mutual learning can thus be achieved by comparing the approaches adopted and the results obtained by the different countries. An analysis of the best ICT practices has also confirmed that the major challenge facing education systems is henceforth not so much a matter of computer equipment and Internet connections as of the fundamental changes generated by the combined effect of societal trends and trends in learners' needs in terms of educational processes and school organisation. Through the examples they highlight, certain countries make specific reference to these changes (with reference to contexts, places, modes of learning and the new skills necessary, etc.) in their policies and have defined new medium and long-term education objectives to take these into account. On the basis of this exchange on an issue which henceforth has an impact on the whole of education, it is also possible to note very differing levels of reflection across the European countries and therefore to conclude that there is a need to go further in sharing experience and practice.

With regard to teachers, the analysis by the working group of the practices collected in relation to education policies had a twofold function. It served as the basis for reflection and the conclusions of the working group on the changing role of teachers and the competences they will have to acquire as a result. In addition, it made it possible to select seven examples of practices judged to be the most relevant and promising in terms of mutual learning. These were then the subject of study visits which provided the opportunity to see them in context and to better understand how they were developed and implemented, and the factors which were key to their success. The working group on teachers is, at this stage, the one which has gone furthest in identifying and analysing practices likely to be used in other countries. These study visits, thanks to dialogue, a focus on training policies, and involvement of all the players concerned, have made it possible to identify the aspects of the practices studied in the field which could be transposed into another context/system as well as the messages which could be of interest to policy leaders. As far as those responsible in the host countries are concerned they have also helped them to view things not solely in relation to their specific national situation, in order to present their policy and its results to peers from other countries.

4. INTERIM RESULTS AND CONCLUSIONS OF THE WORKING GROUPS

Even though some of the work did not start until the beginning of 2003, all the working groups have by now drafted their specific conclusions and recommendations on the basis both of the focus placed on each area dealt with and the lessons drawn from a first exchange of best practice. These also take account of the work carried out as part of the implementation of the Copenhagen process on vocational training (see Part II), certain aspects of which (validation of non-formal and informal learning and lifelong guidance) are already being dealt with in direct connection with the "Education & Training 2010" programme. They are in line with the main conclusions drawn from the analysis of the national contributions to the questionnaire on the implementation of lifelong learning (cf. Part III).

These conclusions and recommendations vary widely because of the diversity of the themes dealt with. They are preliminary at this stage but provide pointers as to the priority actions which national and Community policies should pursue in the coming years. Some relate more specifically to education policies and strategies, others concern more closely their implementation in the field. Some are more a matter for the Community level, and others for national, regional and local policies. Considering the horizontal nature of certain issues (resources, basic skills, ICT, teachers, citizenship, equal opportunities, etc.), some cut across one another or merge. The analysis has not always been conducted from the same angle, depending on the objectives in question, so this apparent overlapping between the work of certain working groups is in fact beneficial.

The added value and the support Community action can bring to the national efforts made are prominent in the work, reflecting the advantages of framing national action in the European context, a factor in greater consistency and collective effectiveness.

The discussions in the different working groups have brought out the extent of activity of the education and training systems on all the fronts concerned by the 13 objectives of the work programme. The conclusions and recommendations made by the working groups nonetheless show also the need to pursue and step up the efforts made so far in order to be in a position to attain by 2010 the targets set by the Heads of State and Government in Lisbon in March 2000.

4.1 Need to pursue and step up action in all areas

4.1.1 Provide all Europeans with the key competences needed to live and work in the knowledge-driven society and economy (Objectives concerned: 1.2, 3.2, 3.3)

The work of most of the working groups, particularly the one responsible for dealing with this specific aspect (Group B), shows clearly that the matter of key competences, (traditional and new) that all people, particularly the most vulnerable, should henceforth have in order to live and work in the knowledge-driven society and economy is a dimension which is central to the reforms the national systems must implement. There are major problems to be overcome: the most recent international surveys [20] show that there are still too many adults who do not have the minimum level required in terms of reading, writing and arithmetic skills consonant with the requirements of modern life.

[20] OECD (2000) Literacy in the Information Age: Final report from the International Adult Literacy Survey.

The work has also enabled an agreement to be reached on a proposal for eight areas [21] of key competences [22] which everyone should have in future and which should be maintained and updated throughout life. These have been defined as a transferable and multifunctional set of knowledge, aptitudes and attitudes essential for everyone for their personal development, and their social and occupational integration. They should be acquired before the end of compulsory schooling and serve as the platform for any further learning. The development of the ability to learn to learn has been judged particularly crucial in assuring the access by everyone to continuing learning and adapting to the changing needs of society and the world of work. This work has been very useful to other groups, particularly the working group on active citizenship and social cohesion, for which interpersonal skills and civics are essential, and the working group on re-establishing the importance of mathematics, science and technology. The guidance expert group stresses the need to also develop the ability to take charge of one's own learning and career [23].

[21] Communication in one's mother tongue; communication in a foreign language; knowledge of maths and basic skills in science and technology; ICT skills; learning to learn; interpersonal skills and civics; entrepreneurship and cultural awareness.

[22] The working group, drawing on recent studies, particularly by the OECD, decided to use the concept (expressed in English) by the word 'competences' rather than 'skills'; that of 'competences' being broader (including simultaneously the ability to learn and know-how) and covering a combination of aptitudes, attitudes and knowledge.

[23] This point is also stressed in the recent work of the OECD: "Career guidance and public policy: bridging the gap" (draft final report, August 2003) and "OECD Education Policy Analysis 2002 - Rethinking Human Capital".

The development of an entrepreneurial spirit is also related to learning to learn, interpersonal and civic competences. Given the horizontal nature of these key competences, working group B stressed that their development will require a coherent common approach to the systems as a whole on how to make sure that they are acquired. Environments conducive to continuing learning will have to be created and effective cooperation must be secured between all the players and levels involved in the system.

The recommendations also stress the need to set national endeavour in this area in a European perspective. They accordingly take on board the guidelines formulated by the Lisbon European Council (paragraph 26 of the conclusions) for the development of a European framework of key competences. Its implementation could be based on the eight competences already identified by the working group concerned.

The working group on competences also recommends that the Community programmes make the acquisition of the key competences one of their fundamental objectives.

4.1.2 Teachers and trainers: the essential catalysts of change (Objective concerned: 1.1)

One of the points raised by all the working groups is the key role played by teachers and trainers in attaining the 13 objectives covered by the work programme. Being at the heart (as players and main recipients) of the changes in progress and anticipated, teachers in particular have come in for special attention, particularly from the angle dealt with by the working group concerned (Group A) i.e. their new role in the knowledge society and the key competences they should henceforth possess.

Teachers and their training, moreover, have always received special attention in most Community texts related to education and training. Indeed the context is today more strategic than ever (high level of staff turnover and major changes stemming from the knowledge society) in justifying major changes to adapt the configuration of the profession, enhance its attractiveness and its level of training. The working group concerned calls on governments to make continuing training a priority for teachers from the moment they enter the profession. This should take due account not only of the new objectives and the new qualifications needed but also of other dimensions such as the studies undertaken independently or classroom experience. It should be possible to gain official recognition of these. The accent is on strengthening the links with research, partnerships between the school and its environment and the involvement of all the players concerned.

This is seen as a matter of priority by the working group on basic competences because these cannot be acquired by learners without highly qualified teachers, particularly with regard to the competences of a more social or horizontal nature. This is also the case of the ICT working group which stresses that ICTs cannot be incorporated successfully in the world of education without solid training for teachers and trainers but also for the headteachers who have to steer the changes generated at all levels (material and pedagogical organisation, content, etc.) by the information society. The working group on mathematics, science and technology shares this concern and stresses the need to have teachers trained in new teaching methods and able to make the link between theory and practice and generate greater motivation in pupils for these disciplines. The working group which looked at ways of making education and training more attractive stresses the need to make teachers and trainers active partners in defining new learning environments. The expert group on lifelong guidance proposes that their education should include a specific dimension on their role with regard to guidance.

Drawing on national experience and practices, the working group on teachers identified five dimensions to the role of teachers which are subject to major changes [24] in the knowledge society and which condition the new skills these people must acquire and which they will have to develop and update throughout their careers. Its recommendations stress the need to make this reflection part of a European perspective. They are based amongst other things on the proposal (see Communication on lifelong learning, point 3.6) for the European level development of a reference framework for the competences and qualifications of teachers and trainers.

[24] Promoting new learning outcomes (citizenship; competences for the knowledge society and a lifelong learning approach); reorganisation of classroom work (consideration of social, cultural and ethnic diversity among pupils; developing an effective learning environment, teamwork); "outside the classroom" work and work with the local community (parents and other partners); incorporating the ICTs in formal learning situations and in vocational practice; an enhanced professional pattern of behaviour (taking on a greater share of responsibility for one's own vocational development on an ongoing basis).

As headteachers are given ever greater autonomy and responsibility (both administrative and pedagogical), several working groups also stressed the evolving and increasingly important role played by them in developing schools as genuine places of learning which are dynamic and open to the outside world, and which fully incorporate ICT, and the need therefore to adapt their competences accordingly.

4.1.3 The role of ICT in transforming and modernising education and training systems (Objective 1.3)

Information and communication technologies (ICT) are becoming an essential dimension in education and training pathways. Young people, adults, teachers and trainers are having to make them part and parcel of their daily lives. As regards priority action for the future, several working groups have therefore stressed this aspect: the ICT working group (group C) as well as the working group on competences (one of the eight key competences listed by the working group concerned relates to ICT), that on teachers (ICT are one of the five dimensions identified by the working group as implying a change in the role of teachers) and that on social inclusion and active citizenship.

The ICT working group stresses the need to tailor ICT-related policies and strategies to long-term educational aims, making sure that the people concerned are involved. These technologies fulfil their promises only if they are part of teaching which takes specific account of them, and if they are steered by teachers and trainers who are capable of building up the applications linked to long-term educational aims. The economic importance of ICT must not mask the essential contribution they make to educational objectives for the benefit of society and the individual. Account needs to be taken urgently of the impact of ICT on our relationship to knowledge, the way we process information, communication and cooperation, and on our modes of learning.

Special attention must be paid to the link between decision-making at policy level and the local dimension when considering the educational context and specific needs. Education and training policies, when it comes to ICT, must focus their efforts less on the technical aspects than on their impact and potential for transforming systems and approaches: on-line and proximity services; changes with regard to methods, timetabling, the architecture of the places of learning; open education environments, etc.

The development of a wide range of services is considered essential to give schools the means to take full advantage of ICT with, for instance, the widespread introduction of education portals and open access to software or works in the cultural field. The same applies to access to customised services which go hand in hand with the use of the Net or software: tutoring, cooperation platform, school and vocational guidance, validation and certification. The use of these services should be applied as a function of matters relating to quality, ethics and protection of citizens' interests.

4.1.4 Helping to raise the general level of scientific and technical culture and competence in the Union (Objective concerned: 1.4)

Scientific and technological development is fundamental to a competitive society and economy based on knowledge. This is why the Ministers of Education and Research, back in 2001, expressed their common concern at the dwindling interest shown, particularly by girls, in the maths and science channels, and at the drain of top scientists and researchers to other continents or other areas of activity. The Barcelona European Council of March 2002 set the target of achieving a level of research investment equivalent to 3% of the average European GDP (currently 1.9%), by 2010, thus giving a clear signal in the right direction. The education ministers did likewise by approving, on 5 May 2003, the objective of a minimum increase of 15% by 2010 in the number of graduates in maths, science and technology in the Union and a reduction in the gender imbalance in these areas. The common commitment to the objectives via the work programme is to bring about a substantial increase in numbers in these channels, to modernise teaching approaches and to develop closer links with occupational life and the business sector.

The case for action in this area is compelling enough for the working group dealing with this specific matter (working group D) to recommend to decision-makers to make the teaching of maths, science and technology an entitlement for each child as early as possible. In the view of the working group, this teaching should be compulsory at all levels of compulsory education. It stresses the need to introduce at primary and secondary levels more effective and more attractive teaching methods for pupils. These methods should promote the link between theoretical learning and real-life experience and combine classroom teaching with extra-curricular activities (participation in science fairs, visits to science museums, reading of scientific journals, etc.) The initial and continuing training of teachers is considered to be crucial in supporting and promoting these changes.

The gender issue and a better balanced distribution/participation across the sexes has been central to the work of the working group, which has stressed the need for information and guidance systems to promote career opportunities in the sciences and technologies and to help to get rid of gender-related inequalities and stereotypes. It is also important to take action to motivate young people, particularly girls, to go in for scientific and technical studies and to encourage them to opt for a career in these areas. The group also stressed the need to take due account of the needs of specific groups (gifted pupils, pupils experiencing difficulties or from different ethnic origins), through improved methods and pedagogical and evaluation tools.

4.1.5 A more resolute effort with regard to linguistic diversity and language learning in Europe (Objective concerned: 3.3)

In its recommendations to those responsible for education and training policies, the language subgroup, which also had the task of assisting the Commission in preparing the Action Plan 2004-2006 [25] and the application of a language proficiency indicator (see point 5.1.3) [26] stresses the need for national, regional and local authorities to invest more in raising public awareness on the capital importance of language diversity in Europe. Its recommendations present the case for stepping up the promotion of all languages, including minority and regional languages, neighbouring languages and the languages of migrants. Education and training policies should include action in this direction.

[25] "Promoting language learning and language diversity: an action plan 2004-2006", adopted by the Commission on 24 July 2003 (COM(2003)449).

[26] As called for by the Barcelona European Council, 15-16 March 2002. European Council Conclusions, paragraph 44.

On foreign-language teaching, the group stresses the need for policy leaders to define clearly its aims for each level within the education system (including the acquisition of language skills, but also the promotion of mutual respect and awareness in language matters) and to remove the obstacles to continuity in language options and teaching methods in the transition from primary to secondary. It encourages them to support the widespread introduction of the teaching of a subject through the medium of a foreign language (CLIL/EMILE) by defining standards for the qualification of teachers and providing for the appropriate teaching material, and introducing a system of tutors to support language teachers at the start of their careers.

Working group G also stressed the importance of adaptation of the systems to an increasingly multicultural and multilingual public, in conjunction with discussions on the strengthening of information and guidance systems. The group stressed that the latter should incorporate this new reality into their work so as to allow access for everyone to lifelong learning.

In addition to these recommendations calling for changes particularly in education policy, the languages working group also formulated other proposals which could be implemented at decentralised or local level: the development of cross-border links between education and training systems, schools, and different players; the development of language resource centres; the raising of the awareness of students as to the economic value of foreign languages through links with the world of work; the introduction of ICT and multimedia tools and the training of teachers in their use. It also endeavoured to set this within a lifelong learning perspective, emphasising ongoing foreign-language learning and recommending that language courses have a strong self-tuition component consistent with the development of ability to "learn to learn".

The working group points out that the Member States have already been asked to set up transparent systems of language proficiency validation based on the Council of Europe's Common European Reference Framework for Languages. As regards the certification of vocational training, the European language portfolio developed by the Council of Europe will be incorporated into the single European framework for the transparency of qualifications and competences mentioned in the Copenhagen Declaration (see Part II).

The working group also recommends the extension and development of agreements between training establishments and between the ministries of two or more Member States on mobility and exchanges of established or newly-started language teachers, in order to help them to round off or update their language skills and to have contact with the culture of the country concerned. The systems which provide for the recognition by two or more Member States of certification issued to language teachers have already yielded good results and could be extended.

4.1.6 Diversified and effective investment in resources (Objective 1.5)

Investment in human capital and more efficient use of resources generally is a central and crucial aspect of the Lisbon strategy and of the "Education & Training 2010" programme. Education and training expenditure makes up the greater part of this investment which is a factor of substantial benefits both in economic and in social terms. Indeed, investment in human resources conditions the attainment of all the objectives set jointly in Stockholm by the Ministers of Education. If there is no appropriate and effective public and private investment in education and training within a lifelong learning perspective, then the objectives set jointly will remain no more than wishful thinking.

The working group (group E) given the task of monitoring the objective of the work programme concerning optimum use of resources focused its attention not only on the matter of increasing investment in human resources but also on the related issues, viz. the development of quality assurance systems and of partnerships between public and private sectors. Given the current widespread strain on public budgets and that there is little hope of seeing these substantially increased in the years ahead, the working group decided to concentrate its work on the effective use of resources rather than their increase, while at the same time not underestimating the importance of this latter aspect from the point of view of a more targeted increase of public investment and a higher contribution by the private sector.

The group recognised the complexity of the issue of investment and the need to take due account of its different facets and dimensions, be they quantitative or qualitative (access, fairness, equality) and at this initial stage of its work put the emphasis in its conclusions and recommendations above all on the need to act to facilitate private investment in education and training, particularly at higher education level, thus rallying to the positions taken by the Commission in its two recent Communications [27]. It stressed the advantages of public-private partnerships as an approach for better involving the private sector and increasing the effectiveness of investments, and called for consideration to be given to the validation of competences based on experience, particularly non-formal and informal (see point 4.1.8), as a means of making best use of and encouraging investment by individuals and families in education and training.

[27] "Investing efficiently in education and training: an imperative for Europe", Commission Communication of 10 January 2003, COM(2002) 779 final, and Commission Communication of 5 February 2003 "The role of the universities in the Europe of knowledge", COM (2003) 58 final.

Its work also stressed that the quality of education (formal and non-formal) and arrangements on quality assurance are a major dimension which is closely linked to effectiveness (quality being a key dimension of the "product" of education) but also to equal opportunities. The working group stressed that the fair distribution of resources is linked to the question of access and recommends that compulsory teaching be of high quality and free of charge in order to avoid problems of fairness and access to other levels.

It hopes that the players from the world of education and training be encouraged to compare their results (benchmarking), within European networks, particularly at the decentralised level or at the level of schools in order to improve the effectiveness of the use of resources. In this context, the availability of comparable information (including statistics) would make analysis and exchange of best practice easier.

4.1.7 Strengthening mobility and cooperation in the Union (Objectives concerned: 3.4 and 3.5)

The free movement of people has been one of the fundamental freedoms written into the Treaty since the start of European integration. European mobility of players from the world of education and training, and of students in particular, has been central to the Community programmes since they were launched in the second half of the 1980s. Twenty years on, it still nonetheless remains limited and much progress is still needed to remove all the obstacles along its path. At the turn of the century, some political headway was made in terms of consolidation of Community and national action in the area. An Action Plan was adopted in 2000 offering the Member States a wide range of tools to stimulate educational and occupational mobility. In 2001, the European Parliament and the Council adopted a Recommendation on the mobility of students, people in training, volunteers, teachers and trainers.

The working group set up (group F) to deal with the work programme objectives for increasing mobility and strengthening European cooperation therefore quite naturally included follow-up to the Action Plan and the recommendation in its work. The representatives of the Member States have thus coordinated preparation of the national reports on the implementation of this Recommendation. These reports will be made into a consolidated evaluation report by the Commission and should be adopted in December 2003.

On aspects more specifically related to the work programme objectives, the group focused essentially on access, quality and Europe's openness to the rest of the world. At this early stage of its work, the group stresses the need to increase mobility, particularly in the area of vocational training, which lags seriously behind higher education.

The group also recommends a substantial effort to improve full access to transnational mobility for people are disadvantaged or have specific needs. In addition to "mainstreaming" actions already in place, specific measures or positive discrimination should be introduced in order to open up this access.

In order to improve mobility in qualitative terms, the idea of a "quality charter" at European level has also been put forward. This would be based on the progress already made, for instance under the Socrates ("Erasmus Charter") and would present common quality criteria which could perhaps become compulsory for any Community or national mobility action. Similarly, an appeal is made for additional efforts to be made to improve the attractiveness of education and training systems at international level. It is accordingly proposed that international mobility statistics be improved, particularly those from outside Europe, and that there should be European action to support national efforts to promote education and training in Europe. This could take the form of logos or common messages defined at European level and which would enhance the impact of national promotional actions by highlighting the advantages of training in Europe.

4.1.8 Developing a learning-conducive environment which is open to society and the world of work (Objectives concerned: 2.1, 2.2 and 3.1)

Europe still has too many people who have failed to complete their upper secondary education, a situation which hinders the dynamism and creativeness of the countries concerned and of Europe as a whole, and which is socially and economically damaging. No stone should therefore be left unturned in the endeavour to redynamise the national systems (formal and non-formal), to make them more attractive so that they actively sustain the demand for lifelong learning and to restore the taste for learning and self-improvement in young people and adults who left the systems prematurely and who could be even more vulnerable and excluded in the knowledge society. If they are to attract people, education and training have to be diversified in terms of content and source. They should be accessible to everyone and should focus on learner needs and assemble the energies of all the players involved in a range of partnerships.

These aspects are central to the Commission Communication of 2001 on lifelong learning (see Part III) and the November 2002 Copenhagen Declaration (see Part II) and imply major changes to the organisation and content of education and training systems, and committed involvement by the social partners in developing continuing learning at the place of work. The recognition and validation of non-formal and informal learning and the development of appropriate guidance and counselling services are key dimensions of the policies to be implemented. While considerable headway has been made on this in certain Member States and supports the case for exchange of "best" practice at European level, much remains to be done.

The working groups concerned by these aspects (groups G and H [28]) have worked closely together with the Commission's two experts' groups set up to implement the dimensions of the Copenhagen Declaration (see Part II) related to the validation of non-formal and informal learning and to lifelong guidance.

[28] Considering how close some of the objectives covered are, the work of groups G and H have been closely coordinated, e.g. Objective 2.1 to create a learning-conducive environment (group G) and Objective 2.2 to make education and training more attractive (group H).

Enhancing the attractiveness of learning in all its forms

The recommendations made stressed the need to promote from a very early age a new culture and new environments of learning and a type of learning open to the needs of the learner and making it easier to continually update knowledge. Teachers and trainers should take an active part in this process. This also applies to employers and employees with regard to the development of learning at the work place.

The accent is placed on the need to develop nationally qualifications frameworks and evaluation approaches which encourage ongoing learning and recognise the broadest possible forms and results of this learning, including partial qualifications obtained. The emphasis must be switched away from what people have failed to achieve so that the best use can be made of the success and progress they have achieved and the competences they have acquired. In order to make individual learning easier and to support the development of a European credit transfer system for vocational training, the Member States are encouraged to make training courses and syllabuses available as modules and units.

The aim is also to strengthen, with the involvement and commitment of all the partners concerned, measures to open up the work place to learning and to remove the obstacles which prevent these developments. The exchange of experience within working group H revealed the existence of practices of mutual interest: rotation at the work place; co-financing programmes; work/learning combinations; education leave, etc.. Employers and employees should become active partners in developing learning-conducive work environments, including in SMEs and micro-enterprises.

The way in which non-formal and informal learning is taken into account takes on a whole new meaning in a lifelong learning perspective based on the development of competences and experience which are very diverse in nature and in terms of where they were acquired. This is an area where significant progress is being made at the national level in this direction, as is shown by the national contributions to the questionnaire on the implementation of lifelong learning strategies (see Part III, point 2.7).

The matter of appreciation, recognition and validation of these competences then becomes a crucial one. The recommendations made support one of the major priorities of the Copenhagen declaration, which is to define at the European level a set of common principles for validating such learning in order to allow a higher level of compatibility between the different national approaches. These principles would set out the best arrangements that exist to allow people to validate their competences in a transparent way, along with guidelines for the development of high quality validation methods and systems which are comparable at the European level.

Investing in guidance systems which encourage lifelong learning

The work has stressed the need for governments to develop permanent high quality guidance and counselling services which are accessible to everyone throughout life, including at the place of work, and are open to Europe and are based on shared responsibility and close partnership between all the stakeholders (education services, social services and youth services, local businesses, social partners, etc.), because these services are key to the motivation of learners and adults and to making their pathway through the systems and the provision of education and training easier. There is already some evidence of moves in this direction in certain Member States (see Part III, point 2.6) and these should continue to be encouraged.

It is stressed that these guidance services should be tailored to the needs of different target publics, sensitive to cultural diversity and gender equality, and able to help learners with regard to recognition and utilisation of their informal learning. Their role in actively promoting individual, social and economic benefits stemming from diversified learning and in training citizens to manage their occupational progression and their careers must be supported. The authorities should, in order to encourage innovation and better consideration of learners' needs also support the development of a system of feedback from these services with regard to any individuals' or potential learners' needs not catered for. As in the case of all services provided by education and training systems, the guarantee of their quality is a matter judged particularly important through both a certification system and a continuing training system which is in tune with new working configurations.

The analyses by the working groups concerned argue the need for increased investment in guidance services for education, training and employment, because of the role they play in reducing the rate of school drop-outs, increasing the number of those obtaining their secondary school leaving certificate and in higher education, etc.

A range of partnerships in order to ensure quality

The partnership-based approach is judged to the crucial to the effective implementation of all these guidelines. It should be part and parcel of policy at all levels: national (including cooperation between ministries), regional, local, involving the social partners, civil society, employment services, etc. New organisational forms are needed to nurture these partnerships and to enable all the actors concerned to cooperate closely in a spirit of shared responsibility, to effectively open up the systems to their environment and to develop diversified and flexible learning places.

The importance of partnerships between field players and researchers is stressed so that new models, methods and learning programmes can be evolved. Empirical and applied research needs to be stepped up on learning conditions in the formal education and training systems and at work, with special focus on active methods and alternative forms of learning and on the development of more flexible learning environments, of learning-conducive work organisation, etc.

The need to develop diversified partnerships is also supported by other working groups, albeit from different angles. In the view of the teachers and trainers group, governments should support the development of partnerships between schools, universities, the business community and the community at large in order to ensure that teacher training is tailored to requirements. The working group on basic skills feels these partnerships should be encouraged because they allow clearer identification of the needs of specific groups and local needs, and a sharing of responsibilities. The work on restoring the place of teaching in maths, science and technology also stresses the positive influence of strong and effective partnerships between schools, the universities, research establishments, the business sector, parents, etc., in improving the quality of this teaching and making it more attractive.

4.1.9. Social inclusion and equal opportunities (Objectives concerned: 2.1 and 2.3)

At the time of the Lisbon, Feira and Nice European Councils, the Heads of State and Government made the fight against poverty and social exclusion one of the central dimensions of the European social model. They decided to work together and exchange experience on the subject through national action plans and a Community programme of action against social exclusion to support their cooperation.

Unemployment and poverty often go hand in hand with a low level of education, so the education and training systems are in the front line in the battle against social exclusion. They have a leading role to play in heading off the risk at an early stage and in working towards solutions. Better consideration of the individual needs of all learners, certain specific groups and of the pathways and contents of non-traditional learning is one of the major challenges for the years ahead.

Equal opportunities for women and men is already part of the acquis communautaire. The matter of what education and training systems contribute in terms of social inclusion and also equal opportunities is a dimension which is central to the "Education & Training 2010" programme. It cuts across all thirteen objectives (mainstreaming approach) to be attained by 2010.

The working group (G) responsible for dealing with these matters has stressed this important aspect, stressing in particular the need to take due account of the gender aspect at all levels (gender mainstreaming) of implementation of the "Education & Training 2010" programme.

It recommends that strategic interdisciplinary task forces be set up nationally on lifelong learning in order to better coordinate action in all the sectors concerned (e.g. youth, the elderly, social work, employment, migration). The experts have stressed the merits of stepping up the development of "learning" regions and towns, referring amongst other things to the Community R3L initiative linking 120 "learning" regions, thus favouring exchange of know-how and the development of methods for ongoing learning at the regional level. Extensive partnership-based approaches have been developed within this framework focusing on social inclusion and lifelong learning. European networks such as that which organises adult-focused weeks and festivals (e.g. Adult Learner's Week) or the use of cultural institutions and the media have been considered as ways of better reaching, stimulating and motivating excluded groups.

The working group observes that obstacles to access in many instances still remain a serious problem for many segments of society. People with disabilities have been considered as a priority group among potential learners. They must have entitlement to learning and have full access to the competences needed for them to integrate into the knowledge society. If they are to be full integrated into all forums of lifelong learning, they must be able to rely on specialised support staff: technical and medical assistance, individual tutors, special guides and advisors (e.g. coordinators for students with disabilities), etc. Spurred by the success of initiatives under the European Year of People with Disabilities 2003, the working group has set up a specific subgroup (coordinated by Austria). The definitions of the notion of "disability" and approaches in this field vary widely in Europe, and the group will also focus on a framework of recommendations for improving the collection of data and the development of follow-up instruments.

The working group considers that one of the major challenges which education and training systems in Europe will have to face in the years ahead is the achievement of genuine equal opportunity for itinerant people and gypsies, bearing in mind that the size of this group within the European Union is set to grow substantially with enlargement. Recent initiatives in this area (DG EMPL, World Bank, action under Socrates and Leonardo) have been taken into account in discussion and exchanges on this matter. It also stresses that education and training services will have to be strengthened to cope with the continuing rise in the number of third country migrants with social and educational needs which are often extensive and urgent. Mainstreaming, an approach which is increasingly implemented in schools in order to take account of groups and people with specific needs, should be extended to the continuing education of marginalised adults. These changes would make it possible to speed up the development of multicultural education and training programmes supported by an increasing number of teachers and trainers of diverse cultural origin and having knowledge of several languages.

The working group also gave priority to heading off racism and xenophobia in all lifelong learning establishments. Continuous and systematic monitoring of the effectiveness of the European directive on this in education and training establishments would make a useful contribution to the changes needed. The group will take account of the information and instruments already available from the European Monitoring Centre on Racism and Xenophobia (EUMC).

These measures will all contribute to heading off premature school leaving which continues to be a major problem in the Union. The people concerned, when in employment, should be given the opportunity to alternate between work and learning in order to finish their studies. The working group will examine in detail examples of good practices developed in particular in the Nordic countries (e.g. paid leave for fathers so that young mothers can finish their studies). National initiatives and action plans and the experience of the European network of second chance schools (Socrates/Grundtvig) will provide a basis for subsequent work on this issue.

Early dropping out at university level has been stressed as a problem for which solutions must be found. The aim would be, particularly for non-traditional learners, to introduce more flexible and more open learning approaches, supported, for instance, by individual mentors and by childminding facilities, allowing people to continue and succeed in their studies or make it easier to temporarily interrupt studies and later come back to them on a regular basis.

4.1.10. Education and training for active citizenship (Objective concerned: 2.3)

The Amsterdam Treaty provides for the development of citizenship of the Union, not only from the legal point of view but also as part of a vision of a Europe close to its people. Full and active participation by people in European integration has been one of the focal points of the Convention on the future of the Union. The contribution of education and training to the development of active citizenship promoting inclusion and social cohesion is acknowledged by everyone. The Council of Europe's project on education for democratic citizenship is, moreover, actively supported by the Member States and the European Commission. The Commission in 1998 published a study on education in active citizenship, showing that: "the concept of citizenship is becoming more fluid and dynamic, in conformity with the nature of European societies themselves. In this context, the practice of citizenship becomes more like a method of social inclusion, in the course of which people together create the experience of becoming the architects and actors of their own lives. Opportunities to learn and practise autonomy, responsibility, cooperation and creativity enable the development of a sense of personal worth and of expertise in confronting and tolerating ambiguities and oppositions". This view which places the learner at the centre has been considered as very close to the approach and values upheld by working group G and the experts group on guidance which has supported its work.

Education in citizenship, in a globalised world, can no longer be restricted to the national or European level and calls for continuous cooperation with the international organisations concerned, the social partners, the NGOs and the networks active in this area. These are contributing to the tasks of the working party. The Unesco Institute for Education (UIE) active in the area of adult education and active citizenship will coordinate a subgroup of working group G [29] on education in active citizenship which will also be supported by the DARE network (Democracy and Human Rights in Europe) under Socrates-Grundtvig. In addition to the examples of good practice collected by the members of the working group, the work will also take account of the examples collected under the Council of Europe's project and the Community's Socrates, Leonardo and Youth programmes.

[29] A member of working group B (key competences) will be invited to take part in this subgroup, given that civics-related competences have been identified by it as one of the eight key competences (see point 4.1.1).

The working group has stressed that education in active citizenship should be developed using collaborative methods and in democratic structures which stimulate participation. The active involvement of the learner in all the stages of his education pathway is a precondition for learning of active citizenship to simultaneously combine knowledge and the necessary competences. Bills to establish pupils' and students' parliaments are among the examples of best practice which the group will examine. The development of sustainable and independent professional support structures to promote education in active citizenship and appropriate initial and continuing training of staff, plus the publication and updating of a range of learning material, are considered to be priorities.

4.2 Main recommendations

The recommendations from the working groups concern the national and European levels alike and lay particular emphasis on the following aspects:

Equip all citizens with the key competences they need

- by the time they finish their compulsory schooling, everyone should have the package of key competences essential to their personal development, to their social and occupational integration, and to any subsequent learning undertaken;

- teachers and trainers are essential catalysts of change and innovation and it is important to invest in them, particularly by consolidating and making substantial adjustments to their training throughout their careers so that they have the competences and resources they need to fulfil their new role in the knowledge society;

- the teaching of entrepreneurship at the level of compulsory education should be especially based on a cross-curricular approach. Schools should be empowered to run activities promoting entrepreneurial attitudes and skills. Teachers should be trained in order to support the acquisition of key competences;

- efforts to increase the general level of scientific and technical culture and learning in the Union need to be carried forward through reforms in teaching methods and practices, making teaching more relevant to real life, in order to better prepare young people for the knowledge society, the world of work and also for active citizenship; in particular, action should be taken to motivate young people, particularly girls, to undertake scientific and technical studies and to encourage them to opt for a career in these areas;

- the ICTs should be incorporated more clearly when drawing up and seeking to implement long term education objectives; ICT-related services should be developed, making fuller use of their potential in teaching methods and organisation (in time and in space) and involving learners more closely;

- language teaching should be given clear, coherent and transparent objectives at every level of schooling; teaching methods should be adjusted, along with the training and initial support of teachers, in order to make this teaching more effective; young people and the general public need to be made more aware of the need for and the advantages of learning several languages and preserving language diversity.

Securing the essential investment

- endeavours to guarantee adequate and effective investment (both public and private) in education and training should be continued, while respecting the principles of access, fairness and equality. A higher level of private investment is needed, particularly in higher education;

- the policies implemented must allow the widest possible access to learning opportunities, backed up by material and financial support for the most vulnerable groups and incentive measures to increase the rate of take-up.

Creating learning environments which are open, attractive and accessible to everyone

- teachers and trainers, and also employers and employees at the workplace, should be involved in developing new learning environments open to everyone;

- all countries should develop flexible and open qualifications frameworks, evaluation approaches which encourage lifelong learning and arrangements whereby everyone can have the competences and learning they have acquired in a non-formal or informal framework validated;

- there is also a need to strengthen and ensure coherence in the existing measures (placements, courses which alternate periods of work with school, inclusion in general teaching of in-company placements, development of accumulable units, etc.) in order to diversity pathways and make individual choices easier;

- the role, quality and coordination of information and guidance services should be strengthened so that they can actively support ongoing learning at all ages, particularly making it easier for learners to work their way through the various systems and arrangements. Closer account should be taken of individual requirements and the expectations of the different target groups;

- every effort should be made to adapt education and training systems to the requirements of the knowledge-driven society and economy and greater account should be taken, by way of priority, of the different requirements of the disadvantaged and vulnerable groups. They must to encouraged to take full advantage of the new opportunities;

- coherent approaches are needed for all initiatives to bring back in young people who failed at school or who left prematurely; the accent should be on prevention, systematic detection and shepherding of those at risk;

- partnerships at all levels (national, regional, local sectoral) should be strengthened in order to achieve, in a spirit of shared responsibility, full involvement of all partners (institutional, the social partners, learners, teachers, civil society, etc.) in the development of education and training systems which are flexible, effective and open to their environment.

Setting national action in the European context

The reflections and recommendations of the different working groups support in particular the following developments at the European level:

- the introduction, on the basis of work already started, of European frameworks, and of definitions and common principles relating to:

- the key competences needed (at work, on a personal level and as an active citizen) by everyone to live and work in the knowledge-driven society and economy and in order to learn on an ongoing basis;

- the competences and qualifications needed by teachers and trainers to fulfil their new roles and meet the new expectations of education and training;

- the validation of learning acquired informally or non-formally.

- The development of European networks grouping all the players concerned around specific policy issues (e.g. of institutions responsible for the quality of systems; authorities responsible for qualifications; on the matter of effective use of resources); the strengthening of actions and European networks of learning cities and regions;

- support for the development of actions and support structures for the lifelong learning of active European citizenship;

- intensifying European mobility, particularly in the area of vocational training, and actions to provide full access for disadvantaged people to transnational mobility;

- improving mobility in terms of quality, by setting up a European level "quality charter";

- enhancing the attractiveness of European systems in the international arena by developing European action to support efforts by the Member States to promote education in Europe.

5. PROGRESS INDICATORS AND EUROPEAN BENCHMARKS TO SUPPORT THE "EDUCATION & TRAINING 2010" PROGRAMME

Indicators and benchmarks are essential instruments of the open method of coordination without which the whole of the Lisbon process would become substantially less relevant. Accordingly, in order to achieve the anticipated impact, the "Education & Training 2010" programme must have a range of reliable and relevant key indicators to measure progress and benchmarks to convert the ambitions set out in Lisbon, and at the subsequent European Councils, into specific targets.

The work carried out since 2002 has allowed progress to be made in this direction. It has involved 30 European countries [30] and has been conducted with the support of Eurostat, Eurydice, Cedefop and the ETF. The OECD has played an active part in the work. Among the existing indicators, 29 have been selected in conjunction with the 13 objectives of the work programme. The (Education) Council has also adopted five levels of benchmarks. The work has brought out the mismatch between certain existing indicators and requirements, and the absence of comparable data for certain key dimensions of the "Education & Training 2010" programme. The situation therefore needs to be improved in the years ahead, both by enhancing the quality of the existing indicators and developing a restricted number of new indicators and the necessary data in the areas judged to be priority areas.

[30] The 15 Member States of the European Union; three EFTA/EEA countries and 12 candidate countries.

There will have to be a closer examination of the instruments which are the most appropriate for the objectives and key issues tackled. It will be necessary to identify the areas which best lend themselves to exchanges of good practice or peer reviews rather than to an evaluation based on quantitative indicators. In any event, the various instruments used will have to be applied in combination. Indicators should not be interpreted in an isolated manner but in close conjunction with best practice identified or the outcomes of peer reviews.

5.1. Identification of 29 progress indicators

Most of the indicators which exist at European level in education and training emanate essentially [31] from the sources of the European Statistical System: from the annual statistical collection conducted jointly by Unesco, Eurostat and the OECD (UOE collection), from the Eurostat specific data collection on languages, from the Labour Force Survey (LFS) and from the Continuing Vocational Training Survey (CVTS2). Internationally, the work of the OECD (INES, PISA [32]) and the IEA [33] provides, on the basis of empirical surveys, another source of indicators of relevance to Community work. The Eurydice network also offers a range of qualitative indicators on education systems.

[31] 23 out of the 29 indicators selected by the Standing Group on Indicators; it is worth also refering to the regular publications of the European Commission "Key data on education" and "Key data on vocational training" produced jointly by Eurydice and Eurostat and Cedefop and Eurostat respectively.

[32] The OECD programme for international student assessment (PISA) is a three-yearly survey of the attainment levels of 15-year-old pupils in written comprehension, maths and science, extended for PISA 2003 to their problem-solving ability .

[33] International Association for the Evaluation of Educational Achievements

The work conducted since 2002 has sought to identify the best indicators for supporting the implementation of the 13 objectives and its follow-up. In July 2002 the Commission set up a standing group on indicators to advise it and study the relevance and feasibility of the 33 indicators proposed in the work programme for the future objectives of education and training systems. The Group met between June 2002 and September 2003 (7 meetings) and in April 2003 produced a preliminary list of indicators based on available data deemed to be reliable and comparable. On the basis of this preliminary selection, it sought the opinion of the eight working groups (see Part I) of the "Education & Training 2010" programme on the consistency, relevance and appropriateness of the indicators selected in relation to the requirements of the 13 work programme objectives and their follow-up. The working groups also had to identify the areas for which new indicators were needed.

Generally speaking, while the eight working groups welcomed the Standing Group's preliminary selection of proposed indicators, they found some to be too narrow in relation to requirements or the complexity of the area in question (see point 5.2 below). Proposals for amendments, deletion or additions were also made. Following this the Standing Group drew up a fresh list of 29 indicators (see statistical annex), all based on available data considered to be reliable and comparable.

This is the first stage in establishing a common framework of solid and reliable statistical indicators as a basis for regular monitoring of progress with the implementation of the common objectives and identifying best practice with regard to education and training policies.

5.2. Highlighting shortcomings and requirements

The work also brought to light shortcomings in the existing indicators, and even the absence of data in certain key areas of the process. Not all 13 objectives of the work programme are in fact covered by the list of 29 indicators selected. These include access to the ICT; active citizenship, entrepreneurship, European cooperation and consideration of the gender dimension. The work stressed the need to remedy the lack of relevant indicators in general by improving the existing indicators and developing new indicators in order to provide the "Education & Training 2010" programme with evaluation instruments consonant with the ambitions stated in Lisbon and Barcelona.

When the working groups were consulted by the Standing Group, several pointed out shortcomings in relation to aspects which were highly significant for their work. In response to this, the following areas were deemed to be priority areas for the future development of new indicators:

- language proficiency;

- effectiveness in education and training expenditure;

- the ability to learn to learn;

- the percentage of teachers and trainers in continuing vocational training;

- the social origin