Opinion of the Committee of the Regions on 'The White Paper on Education and Training - Teaching and learning towards the learning society`

(96/C 182/04)

At its 12th Plenary Session held on 20 and 21 March 1996 (meeting of 21 March 1996), the Committee of the Regions adopted an Opinion on the 'White Paper on Education and Training - Teaching and learning towards the learning society`.

THE COMMITTEE OF THE REGIONS,

- Having regard to the European Commission's decision of 21 December 1995 to consult the Committee of the Regions;

- Having regard to the decision of the Committee of the Regions on 18 July 1995 to make Commission 6 - Education and Training responsible for preparing this Opinion;

- Having regard to the White Paper of the European Commission (COM(95) 590 final);

- Having regard to the Opinion of Commission 6 adopted on 9 February 1996, for which the Rapporteurs were Irma Peiponen and Margareta Wallin-Johansson (CdR 439/95 fin.),

has adopted unanimously the following Opinion.

1. Introduction

1.1. Having regard to the Treaty establishing the European Community, and in particular Articles 126 and 127;

1.2. Having regard to the White Paper on Growth, Competitiveness and employment and the COR Opinion thereon (CdR 171/94) ();

1.3. Having regard to the EP and Council decision on the European Year of lifelong learning () and the COR Opinion thereon (CdR 244/94) ();

1.4. Having regard to the Commission communication on education and training in the face of technological, industrial and social challenges: first thoughts and the COR's Opinion (CdR 299/95) () thereon;

1.5. Having regard to the COR Opinion on the role of local and regional authorities in education and training for Central and Eastern Europe provided through the European Union (CdR 298/95) ();

1.6. Whereas Articles 126 and 127 of the Treaty establishing the European Community state that Community action in education and training shall support and supplement the action of the Member States while fully respecting that responsibility for the content and organization of their education and vocational training systems rests with the Member States and thereby excludes any harmonization of the laws and regulations of the Member States;

1.7. Whereas the Community should act strictly within the powers expressly conferred on it by the Treaty and in compliance with the principle of subsidiarity, respecting the responsibilities and powers that local and regional authorities are endowed with across the EU, as underlined in the COR Opinion on the revision of the Treaty on the European Union (CdR 136/95) ();

1.8. Whereas the Commission's White Paper on Growth, competitiveness and employment stressed that human resources constitute the EU's main economic asset and that the development of education and training is one of the conditions for the development of a new model of more employment-intensive growth;

1.9. Whereas the European Council in Essen, December 1994, identified the promotion of investment in vocational training as one of the key priority action fields in improving employment opportunities;

1.10. Whereas the European Council in Cannes, June 1995 and Madrid, December 1995 reaffirmed the importance of developing measures in this area,

2. General comments

2.1. The Committee of the Regions notes that the White Paper provides food for thought. The Committee underscores the value of exchanging information and experience on common problems within the educational and training systems of the Member States. Such cooperation can improve the bases for decisions on educational and training policy in the Member States. It can also contribute to high-quality education and training in the Member States. In a rapidly-changing information and technological society, there is an increasing demand for lifelong learning, which must be made available to all citizens - men and women alike - regardless of geographic, economic or social considerations. It is the Committee of the Regions' view that investment in knowledge and skills is of vital importance in the drive to curb unemployment, boost economic competitiveness and prevent social exclusion. Education and training are therefore society's window on the future.

2.2. Even though the responsibility for education and training rests first and foremost with national, regional and local authorities and even though the objective of the EU is not to set up a European Planning Authority for training and education, the COR feels that the European Community can encourage and back up the proposed exchange of information and experiences. The White Paper provides an excellent basis for a broad debate within the Member States which the Commission intends to launch during this year - 1996 - the European Year of Lifelong Learning, on the means and objectives of education and training policy and how they can be implemented at the various levels of society, in the short and long term.

2.3. The starting point for the COR's position and comments regarding the White Paper's analysis and suggestions is to be found in the contribution which EU regional and local authorities can make to the organization of the educational and vocational training systems in the Member States. The COR points out that the term 'learning society` is not well-chosen in some language versions of the White Paper where it does not do justice to the much wider claim that education policy has and should have in the Member States, local authorities and regions. In the COR's view, education encompasses more than just knowledge and the ability to handle new information technologies. It should help people to develop their personality to the full. Educational and training establishments fulfil this task by imparting knowledge, skills, values, a sense of responsibility, creativity, judgement and social skills.

2.4. The COR welcomes the emphasis given to subsidiarity and in particular the acknowledgement in the White Paper that in several Member States responsibilities for action in the field of education and training lies with local and regional authorities. The COR stresses the importance of local autonomy and that local and regional authorities must be fully involved in any forthcoming debate in this area. The COR therefore calls for a continuous dialogue with the Commission concerning its future initiatives and proposals in the field of education and training.

2.5. The COR also welcomes the emphasis given to the development of local and regional networks which the Commission in the White Paper recognizes as one of the main ways of generalizing training and strengthening cohesion in the EU. However, it calls for the important role of local and regional authorities in setting up and coordinating partnerships at local and regional level to be acknowledged. Local and regional authorities multidimensional approach involving all economic and social actors at local level - educational establishments, schools, universities, businesses, SMEs, workers, teachers, researchers, students etc. - can help tackle the new challenges of unemployment and social exclusion by stimulating local innovation and creativity as well as involving and mobilizing communities.

2.6. In many Member States these authorities have a complex and intricate role due to their unique position. They function as public employers as well as providers of education and training and are therefore concerned with both supply and demand. At the same time they are major players in regional development policy - aiming to stimulate and facilitate industrial development through the provision of a favourable economic, social environment in order to attract, establish, develop and maintain companies in a region. Local and regional authorities also have a role to play in supporting the establishment and growth of information highways in Member States. Vulnerable to the economic and social impact of widespread redundancies and unemployment, these authorities are nevertheless in a powerful position to respond effectively to particular local and regional development needs and labour market demands, taking into account cultural diversity. Moreover, their responsibility for public services and in particular welfare provision constitutes a built-in element in their accountability to the citizens they represent - their voters. The important democratic dimension of their role and the direct relationship they have with citizens enable them to bring an important added value to the debate.

2.7. The Committee stresses the need to undertake an exact assessment of the costs of the proposals set out in the White Paper before any decisions are taken.

SPECIFIC COMMENTS

3. In relation to Part one, Chapter 1: 'The three factors of upheaval: the impact of the information society, internationalization, scientific and technological knowledge`

The Committee of the Regions:

3.1. emphasizes that information technology must benefit everyone. It is important that the gap should not be widened between those who have access to and knowledge of information technology and those who do not. It is pleased to note that its call for specific action to be taken to promote equal opportunities in access for all to education and training in particular between men and women and to ensure that disadvantaged groups are not disenfranchised from new technologies and learning opportunities has been specifically referred to and supported by the Commission in the White Paper. Moreover, the COR calls for support to be given to the work being carried out by ATD Fourth World on combating social exclusion, in particular on access to new technology for the most disadvantaged population groups;

3.2. stresses that this goal is empty however if not backed by an all-out drive to tackle functional illiteracy. With the industrial and technological revolution developing faster than our education and training systems, functional illiteracy is becoming a serious problem;

3.3. highlights the important role of libraries and local information centres, etc., in granting access to information in particular through electronic communication and stresses the value of networks between schools, educational establishments and libraries, community centres, etc., in the effective dissemination of information;

3.4. points out that new communications technologies should be used to an increasing extent for educational interaction and spreading knowledge. Moreover, the educational role of the mass media should be examined in particular in the provision of commercial mass entertainment;

3.5. notes that teleworking and open distance learning are opening up new opportunities for remote areas and stresses that the information society may help peripheral areas to improve their competitiveness by diminishing the importance of geographical situation and social background;

3.6. supports granting network access to schools. However, it points out that schools and local and regional authorities need financial support for the application of the information society. It underlines that technology is only an aid in learning and teaching which can improve teacher/pupil and student personal interaction;

3.7. calls for support to be given to the investment in multi-media educational products in businesses and anticipates the results from the Task Force on multi-media educational software on developing their wider use;

4. In relation to Part one, Chapter 2: 'A first approach: Focusing on a broad knowledge base`

4.1. points out that broad knowledge is necessary if people are to make the right choices in selecting learning materials, in managing the information flood and in spending their leisure time in a meaningful way; a broad knowledge base can help people to think ethically;

4.2. calls for more emphasis to be given to the arts, humanities and cultural activities in order to provide a more solid base for personal development as well as enhance the important role of cultural activities in uniting people and binding communities together;

4.3. stresses that a broad knowledge base is particularly important for adults who need to compensate for insufficient basic education and/or to adapt to the changing demands of the working environment;

5. In relation to Part one, Chapter 3: 'A second response: Developing everyone's employability and capacity for economic life`

5.1. stresses that the issue of motivation needs to be urgently addressed. As underlined in the COR Opinion on the European Year of Lifelong Learning, one of the most serious obstacles in particular facing young people is lack of motivation. The COR maintains that linking education and training to meaningful job prospects can help motivate young people. It therefore welcomes the Commission's support of bringing schools and businesses together - in particular through apprenticeship/trainee schemes - enabling training courses to be better matched to employment opportunities;

5.2. whilst recognizing that the service sector, the craft sector and small enterprises are key to job creation (as pointed out in the White Paper), the COR maintains that new sectors of employment with growth potential should also be specifically identified in order to effectively link education and training to future new 'occupations`: the environment, health service, biotechnologies, information technologies, multimedia activities (as pointed out in the White Paper on Growth, Competitiveness and Employment) and in particular sectors which concern local and regional employment initiatives such as the 17 fields identified in a Commission Communication as offering substantial employment prospects: revitalization of urban public areas, tourism, cultural heritage, local services, protection and conservation of natural areas and the control of pollution, etc. [Communication on a European strategy for encouraging local development and employment initiatives (COM(95) 273)]. The COR observes that from a cost-benefit point of view, local initiatives constitute one of the most promising options among various employment policies;

5.3. stresses that new skills are required as a result of changes in the organization and systems of work and should be specifically identified: new decentralized, horizontal business structures, tele-working, etc., call for the development of technological skills, multi-disciplinary transferable skills, interpersonal communication skills and above all continuing training to update skills;

5.4. advocates a lifelong learning approach in particular in relation to continuing training: it is important for emphasis to be given not only to acquiring employability but to maintaining employability. In addition, there should be a stronger focus on adults' needs for continuous training and their attitudes towards training, previous learning experience and ways to trigger their participation in training programmes;

5.5. stresses that social and communication skills, knowledge in ethics and humanities are very important requisites in the information society. Moreover, it stresses that improved training in social skills is an important means to enhance self-reliance and the flexibility needed to adapt to changing conditions. To improve employability, a better balance should therefore be sought between technical and communication/relationship skills in training;

5.6. calls for the assessment of skills to be developed and guaranteed and for the roles of education providers and employers in this area to be examined;

5.7. calls for greater emphasis to be given to careers and studies guidance which can help individuals to use their abilities to the full. This should be available as a continuous service to young people and adults in particular to avoid gender stereotyping. Moreover, the use of information technology should be promoted in the dissemination of career guidance information in particular through exchanges of information and networks between Member States;

6. In relation to Part one, Chapter 4: 'Directions for the future`

6.1. points out that it is important to focus on general education in order for broad knowledge to be accessible to everyone whilst maintaining a high quality in the educational system. Providers of education in the school system therefore have a basic responsibility. Moreover, the COR points out that schools, being part of the community, reflect its values and thus if we want to strengthen democracy in society, schools must also function in a democratic way;

6.2. stresses that the training of trainers and teachers should be focused on, in particular where new skills are required and that networks be introduced in teaching programmes. Information technology should moreover be a key component of teaching programmes from primary level upwards;

6.3. calls for more research in the areas of learning attitudes, adult learning and for the social consequences of information technology to be an objective of the EU's forthcoming framework programme on R& D;

6.4. underlines the importance of ensuring complementarity between the Socrates, Leonardo and Youth for Europe programmes, the structural funds objective 4 activities, the Community initiatives (notably Employment, Adapt, etc.) and the research and development framework programmes. Moreover, bridging the gap between the programmes would ensure full opportunity of access for different target groups to the whole range of programmes;

7. In relation to Part two: 'Building the learning society` First objective: 'Encourage the acquisition of new knowledge`

7.1. welcomes the Commission's proposal of acknowledging informal skills acquired outside the formal qualification system;

7.2. feels that, in the long run, the accreditation of acquired skills/informal vocational training should be recognized within the EU. This should primarily operate on a voluntary basis, as a result of exchanges of experience and network-building, rather than as a consequence of enforced harmonization and standardization. In this respect, it stresses the value of promoting cooperation networks at local and regional level, coordinated through local and regional authorities which can provide examples of unconventional and original solutions even outside the education system, within the EU education and training framework. These could cover, for instance, ways of providing larger numbers of people with access to adequate vocational training, and show how methodology can be adapted to the different demands of the individual and the workplace;

7.3. calls for local and regional authorities to be involved in the European network on setting up an accreditation system and in particular in quality assessment;

7.4. stresses that emphasis should be placed on mutual recognition of vocational qualifications in particular for the unregulated professions. The absence of such recognition is a real barrier to the freedom of movement of workers;

7.5. stresses the value of developing mutual recognition of academic and vocational training/apprenticeship scheme course modules through the European Community Course Credit Transfer System in order to enable students to complete courses in other Member States;

7.6. stresses that there is a need to involve local and regional authorities in the identification of 'key skills` as underlined in the COR Opinion on education and training in the face of industrial, technological changes;

7.7. calls for the removal of economic and administrative barriers to the mobility of students and teachers, without imposing harmonization or standardization. Accommodation problems can also hinder student mobility. A common European database on student accommodation for exchange students could help them to investigate the accommodation situation beforehand from another Member State;

8. Second objective: 'Bring schools and businesses closer together`

8.1. underlines the need to develop cooperation not just between schools and businesses, but also between educational establishments, libraries, media centres, etc., and businesses;

8.2. emphasizes the central role of local and regional authorities in developing networks and coordinating partnerships at local and regional level, in particular involving education and training establishments and businesses; these networks are vital in promoting local development and employment initiatives and have an important multiplier effect in disseminating good practice;

8.3. points out that apprenticeship/trainee schemes should be looked upon as an integrated part or a complement to the education system, depending on the national system. Moreover, in-company training is important and should be provided for and acknowledged;

8.4. stresses that apprenticeship schemes should be able to demonstrate a priority for developing transferable skills so that these may be used in other sectors to improve employment prospects;

8.5. calls for training in how to set up a business and providing for new occupations in the service sector to be encouraged. This should be planned and organized in cooperation between education institutions, businesses and local/regional authorities. Every activity must recognize and support the local and regional structure of economic development by respecting common values, i.e. sustainable growth;

8.6. stresses the need for businesses to assume more responsibility for training and retraining and to be enabled to do so; it points out that many SMEs need support for training, in particular in new technologies. Moreover, it emphasizes the need to promote quality standards for training within businesses;

8.7. calls for a core module of language training to be built into apprenticeship training;

9. Third objective: 'Combat social exclusion`

9.1. whilst welcoming the Commission's support of second chance school schemes and the European Voluntary service, it regrets that these proposals exclusively concern the young. The COR calls for equal attention to be given to the education and training needs of socially excluded adults and in particular those within disadvantaged groups. It advocates a 'continuous chance system` for all as a part of a lifelong learning approach;

9.2. points out that adult and further education establishments could be used as mechanisms for second chance learning schemes and calls for out of school education, facilitating in particular the re-entry of women into labour markets, to also be supported;

9.3. stresses the need to enable all young unemployed people to participate in training schemes;

9.4. calls for the preventive measures for pupils with special needs to be supported, as early on as possible within the system. It points out the importance of arresting school failure and marginalisation from primary school level and underlines the value of exchanging experience in this area;

9.5. calls for necessary special education supports and facilities for the educational integration of people with learning difficulties to be made available in particular through libraries and community centres. The COR also calls for pilot projects on training teachers in this field to be funded. Moreover, the COR underlines the importance of ensuring the accessibility of buildings for the physically handicapped and points out the benefit of exchanging experience in this area as well as examining future EU standards that could be applied;

9.6. supports the proposal to establish a legal and financial framework for the European voluntary service;

9.7. calls for support to be given to projects involving cultural activities, which could help motivate young people to study and arouse their thirst for knowledge. Moreover, the COR strongly recommends supporting projects involving young people's own initiatives, as these can help build self esteem and a sense of responsibility as well as foster creativity;

9.8. points out that the voluntary sector civic organizations have a crucial role to play in assisting those who are losing hope or who are afraid of going back to education and training and therefore should be given support;

10. Fourth objective: 'Proficiency in three Community languages`

10.1. the COR stresses that support should also be given to the teaching of lesser-used minority or regional languages;

10.2. supports the idea of an early start of foreign language learning;

10.3. calls for special attention to be given to adult needs for basic language knowledge and training and in particular to parents with no foreign language-knowledge, in order to give support to their children; programmes involving whole families should moreover be encouraged;

10.4. stresses that language training should be made available throughout people's lives to encourage those who wish to continue learning;

11. Fifth objective: 'Treat capital investment and investment in training on an equal basis`

11.1. endorses the idea of encouraging enterprises to invest more in human resource development but stresses that it is up to each Member State to decide how. Moreover, it points out that it is up to the national, regional and local authorities to provide opportunities for education and training for those outside working life.

12. Conclusion

12.1. The main focus of the White Paper is on employment creation and improving people's employment prospects. Whilst recognizing the importance of this objective, the COR believes that the New Learning Society cannot be built primarily on the development of people's capacity for economic life. It stresses that it is absolutely vital that equal attention be given the objective of furthering people's personal development and their capacity to take part in social and civic life through education and training.

12.2. Education and training can enhance people's personal development by encouraging creativity and an interest in knowledge which can create a sense of purpose and build self esteem and social skills: it is clear that the well-educated unemployed not only stay so for much shorter periods but can cope psychologically with their unemployment in a much more constructive way.

12.3. Moreover, education and training can effectively discourage alienation and violence by promoting tolerance, solidarity and participation in the democratic decision-making process.

12.4. Multicultural education in particular can help in combating xenophobia and racism, as underlined in the Council Resolution on the response of educational systems to the problems of racism and xenophobia (October 1995). The COR points out that the education and training of refugees and immigrants ensures social cohesion which has an important preventive function in decreasing society's expenses in the long run.

12.5. The COR emphasizes the importance of development cooperation in the field of education and training with the CEECs and Baltic countries and the gradual opening up of Leonardo and Socrates to these countries in order to support their democratic and economic and social reforms, as underlined in the COR Opinion on the role of local and regional authorities in education and training for central and eastern Europe provided through the European Union.

12.6. The COR envisages a new learning society in which human values take precedence over the acquisition of knowledge per se so that people will be able to evaluate the knowledge they receive from an ethical point of view and thus ensure that we master the information society and will not be mastered by it.

12.7. The COR draws attention to the fact that adults should be allowed to share, on a par with young people, in the investment in knowledge and improved skills advocated in the White Paper. Whilst supporting 'second chance school` schemes, it recommends a 'continuous chance system` through adult education in particular for people from disadvantaged backgrounds. It calls for greater emphasis to be given to a lifelong learning approach based not only on the acquisition of skills but on personal development involving older generations as well as the young.

12.8. The COR concludes that in order to succeed with the proposed changes in the field of education and training, an increased consciousness in public opinion is necessary. The debate must therefore include the public at large whose support is required. The COR, representing the level of government closest to the citizen, is therefore well placed to help lead the debate within the EU.

Done at Brussels, 21 March 1996.

The Chairman

of the Committee of the Regions

Pasqual MARAGALL i MIRA

() OJ No C 210, 14. 8. 1995, p. 1.

() OJ No L 256, 26. 10. 1995, p. 45.

() OJ No C 210, 14. 8. 1995, p. 74.

() OJ No C 100, 2. 4. 1995, p. 106.

() OJ No C 100, 2. 4. 1995, p. 98.

() OJ No C 100, 2. 4. 1995, p. 1.