Opinion of the Committee of the Regions on 'The European Voluntary Service for young people` (97/C 42/01)

THE COMMITTEE OF THE REGIONS,

Having regard to the Working Document of the European Commission entitled towards a European Voluntary Service for Young People;

Having regard to the European Commission's Decision of 18 March 1996 to consult the Committee of the Regions, in accordance with Article 198C, first paragraph of the Treaty on the European Union;

Having regard to its Decision on 8 March 1996 to make Commission 6 - Education and Training - responsible for preparing this Opinion;

Having regard to the Draft Opinion (CdR 191/96 rev.) adopted by Commission 6 on 12 July 1996 (Rapporteur: Mr Giltjes);

Whereas the European Parliament Resolution of 22 September 1995 called on the Commission to draw up and submit to the European Parliament and the Council a communication on setting up a European voluntary service and to draw up a special legal status for volunteers;

Whereas the Commission in its White Paper on 'Teaching and learning: towards the learning society` underlined that it would launch a support measure for volunteers to undertake a variety of public service tasks outside their own country and that it would examine the possibility of establishing a legal and financial framework for the European voluntary service;

Whereas the Committee of the Regions in its Opinion on the White Paper on education and training (CdR 115/96) () endorsed the Commission's proposal,

unanimously adopted the following opinion at its 15th plenary session on 13-14 November 1996 (meeting of 13 November).

1. General comments

1.1. The European voluntary service initiative

1.1.1. The COR welcomes the Commission's working document which presents its proposals for a pilot action on a European Voluntary Service offering young people the opportunity to participate in another Member State in activities in the social, cultural and environmental field contributing to the welfare of the local community. It particularly welcomes the participation of disadvantaged young people who have limited access to other EU mainstream education and training programmes.

1.1.2. The Committee of the Regions endorses the experimental approach adopted by the Commission maintaining that the pilot action on the European voluntary service will provide useful information for framing the multiannual European voluntary service programme that the Commission is in the process of devising.

1.1.3. The Committee of the Regions welcomes the opportunity it has been given to influence the decision-making process at this preliminary drafting stage which enables its views to be effectively taken into account in the formulation of the programme.

1.1.4. The Committee of the Regions trusts that the European voluntary service for young people will not be detrimental to existing programmes such as Eurodyssée.

2. Specific comments

2.1. Implications for local and regional authorities

2.1.1. The European voluntary service is of direct concern to local and regional authorities, many having important competences in the area of youth, employment, education and training policy as well as important experiences in developing voluntary youth service schemes.

2.1.2. The COR therefore welcomes the Commission's decentralized approach in the implementation of the pilot action which enables the European voluntary service to respond effectively to local and regional development needs and thus strengthen economic and social cohesion in the EU.

2.1.3. It in particular welcomes the involvement of local and regional authorities in the implementation of the pilot action:

- as major partners alongside NGOs in the hosting and sending projects;

- in networks involving the selection, preparation and supervision and follow-up of the volunteers;

- as responsible for spreading information at the local level and guaranteeing monitoring and follow-up of the experience;

- through their participation in the technical group which will assist and advise the Commission.

2.1.4. It calls on the Commission to ensure that this decentralized approach is followed in the formulation of the Community programme and calls for local and regional authorities to be represented in any Committee that may be set up to run the programme.

2.1.5. It also calls for support to be given to EU information networks at local and regional level, coordinated by local and regional authorities, enabling dissemination of best practice on and exchange of information in developing the European voluntary service.

2.1.6. The COR emphasizes that the success of the programme will depend on its effective implementation at local and regional level and calls for local and regional authorities, responsible for implementing many of its measures to be consulted on all decisions concerning its management.

2.1.7. It underlines the need to ensure that existing experiences in this field amongst local/regional authorities and their associations and within the Member States are effectively taken into consideration in the initiative.

2.2. Activities of the European voluntary service

2.2.1. The COR notes with satisfaction that the activities involved contribute towards local and regional development and will take place in urban and rural areas facing economic, social and environmental problems. It points out that this will help to combat social exclusion and to generate local development employment opportunities by responding to new needs such as the social and occupational integration of young people.

2.2.2. However, it stresses the need to ensure equal opportunity in access to the initiative for all localities and regions, in particular those in a peripheral or ultraperipheral geographical situation and those where lesser known languages are spoken.

2.2.3. It calls for consideration to be given to including within the scope of the initiative humanitarian activities in areas where natural disasters (floods, fires, earthquakes etc.) have occurred as raised in the context of a proposal put forward in the Reflection group report concerning the creation of a European voluntary 'peace corps`. The COR, however, stresses that education and training opportunities should be provided for within the framework of such activities and that the voluntary service should not be used as an excuse for putting inexperienced people in skilled or high-risk jobs.

2.2.4. The COR expresses its concern that the voluntary service be misused as a source of cheap labour. It calls for vigilance to ensure that the European voluntary service does not compete with or replace paid labour and for the Commission to observe this requirement carefully in its selection of potential projects and in monitoring actions to guard against any distortions.

2.3. Participation of third countries

2.3.1. The COR calls for third countries to be brought into the framework of the European voluntary service, including both hosting and sending volunteers, stressing that this could play an important part in fostering greater understanding between different cultures and thereby help combat racism and xenophobia as well as help promote peace and solidarity on an international level. It underlines the value of incorporating humanitarian aid activities within the voluntary service for projects in developing countries, in particular to combat drought and famine. It also points out that existing facilities and structures of cooperation for joint projects involving third countries in this field should be built upon within the framework of this initiative.

2.3.2. It in particular supports the inclusion of Central and Eastern European countries, including the Baltic States, which should be viewed within the framework of the pre-accession strategy of these countries, as this would help to strengthen a greater sense of European solidarity as well as support their transition towards membership.

2.4. Participation of disadvantaged young people

2.4.1. The COR welcomes the fact that the European voluntary service will be open to those without formal educational qualifications and that special attention will be given to access for disadvantaged young people.

2.4.2. These young people are very often left by the wayside and face the greatest difficulties in integrating into social and professional life. The European voluntary service should help them to overcome these difficulties and eliminate alienation.

2.4.3. Moreover, their limited participation in mainstream EU education and training programmes such as Socrates and Leonardo, also confirms the need for increased support to be given to targeting this group within the European voluntary service.

2.4.4. The COR points out that the period attributed for the voluntary service of 6 months to one year could discourage participation from disadvantaged youth who may feel overawed by the prospect of leaving their communities for long. Many disadvantaged people may never have had the opportunity to travel outside their own community let alone their country.

2.4.5. The COR underlines the need to ensure that there are effective measures supporting their participation. It stresses the key role of local and regional authorities in ensuring effective dissemination of information at local and regional level, targeting disadvantaged communities as well providing guidance and follow-up of the volunteer, taking into account their special needs. It welcomes moreover the Commission's proposal to ensure the involvement of organizations with experience of working with disadvantaged young people.

2.4.6. The COR calls on the Commission to ensure that the initiative is open to as many disadvantaged young people in the Community as possible and is not exclusive to the membership of organizations involved in setting up projects.

2.5. The educational framework of the European voluntary service

2.5.1. The COR welcomes the fact that the European voluntary service is primarily an educational initiative and it underlines the need to ensure that all projects provide educational, training opportunities for the volunteer.

2.5.2. The COR maintains that the activities of the European voluntary service will enable young people to develop their sense of responsibility and initiative as well as learn new skills (language skills, communication skills, technical skills etc.) and knowledge which will help them to gain access to the world of work as well as participate in social and civic life.

2.5.3. It endorses the Commission's proposal to award volunteers certificates with a 'European label`, confirming the different skills and experiences that the volunteer has acquired which could provide useful information for future employers.

2.5.4. The European voluntary service will also enable young people to broaden their geographical and cultural horizons by discovering a different country, language and culture. The COR points out that this intercultural learning aspect can promote greater understanding between the Member States and help combat racism and xenophobia.

2.6. Training

2.6.1. The COR maintains that it is essential that adequate language learning be provided not only before the volunteers departure but also throughout their stay and calls for provisions within the programme enabling local or regional authorities and non-governmental organizations to support this and any other supplementary training.

2.6.2. The COR calls for support to be given to training the supervisors as well as the administrators running the project and in particular calls for seminars as well as networks to be set up enabling them to exchange their experiences and disseminate best practice and training materials.

2.7. Monitoring and follow-up of young volunteers

2.7.1. The COR welcomes the important role attributed to local and regional authorities for ensuring the monitoring and follow-up of the young volunteers.

2.7.2. It underlines the need to provide volunteers with adequate guidance and counselling before and during the service period, to ensure that they are able to cope with the challenges that a European voluntary service entails. The COR points out that this is particularly relevant when dealing with the special needs of disadvantaged as well as vulnerable youth who may have personal problems or difficulties that require specialist professional help or guidance.

2.7.3. In order to enhance the practical value of the voluntary service the COR advocates the organization of meetings (in the middle and end of each service) bringing together volunteers from different Member States in order to share their experiences. Information on job finding, interview skills as well as different education and training courses with appropriate guidance and counselling could be given within their framework.

2.7.4. Monitoring following the period of voluntary service, should include guidance on a continual basis in order to provide assistance in employment seeking or encourage young people to take part in further education or training courses.

2.7.5. The COR underlines that effective follow-up of the volunteer after the completion of the service is paramount to ensure that the European voluntary service is of real benefit to young people, in particular disadvantaged young people. It strongly endorses the network set up by the Commission to promote the professional integration of the volunteers after completion of the service.

2.8. Obstacles to overcome

2.8.1. The COR points out that the definition of a European legal status for young volunteers could effectively remove obstacles relating to freedom of movement, social security and taxation that seriously hinder young people's participation. It requests that such a status be extended to the young people taking part in programmes set up by local and regional authorities or their associations. This would not give special advantages to the new volunteers, but enable all volunteers throughout the European Union to have the same benefits and obligations.

2.8.2. The COR also calls for measures to be introduced to facilitate the mobility of young nationals of third countries residing in a Member State who are confronted with administrative visa formalities.

2.8.3. The COR maintains that all the volunteers entitlements should be guaranteed within a contract: free board and lodging, pocket money and insurance against the risks of illness, accidents and third party liability. This contract could also outline the specific tasks and training involved in the European voluntary service that they will be undertaking. It stresses, however, that social security systems should remain the sole responsibility of the Member States and that they should therefore be involved at an early stage in the solution of problems.

3. Conclusions

3.1. The COR strongly supports the promotion of the European voluntary service as a pedagogical instrument outside formal education and training structures which could ultimately facilitate the access of disadvantaged young people into the labour market as well as promote their insertion into education and training systems.

3.2. The COR welcomes the opportunity provided through the voluntary service to strengthen solidarity in the EU not only between the volunteers but also the regions and localities taking part. It strongly endorses the decentralized approach of the initiative which recognizes the important role of local and regional authorities and links projects to local development strategies.

3.3. The COR underlines that the European voluntary service could play a vital role in combating social exclusion and strengthening economic and social cohesion within the EU whilst at the same time contributing towards the creation of a citizens' Europe, reinforcing young people's sense of citizenship and solidarity within a European perspective.

3.4. The COR underlines the importance of effective monitoring and evaluation of the pilot action in order to lay the foundations for a coherent European framework within the multiannual programme which it looks forward to commenting on.

Brussels, 13 November 1996.

The Chairman of the Committee of the Regions

Pasqual MARAGALL i MIRA

() OJ No C 182, 24. 6. 1996, p. 15.