Opinion of the Committee of the Regions on the 'Proposal for a Decision of the European Parliament and of the Council amending the Decision 819/95/EC establishing the Community action programme Socrates` (97/C 379/05)

THE COMMITTEE OF THE REGIONS,

having regard to the Commission proposal to the Parliament and the Council (COM(97) 99 final - 97/0103 COD) ();

having regard to the decision taken by the Council on 6 May 1997, under Article 126 and the first paragraph of Article 198c of the Treaty establishing the European Community, to consult the Committee of the Regions on this matter;

having regard to its decision of 11 June 1997 to direct Commission 6 - Education and Training - to draw up the relevant opinion;

having regard to the draft Opinion (CdR 151/97 rev.) adopted by Commission 6 on 27 June 1997 (rapporteur: Mr Viera de Carvalho);

whereas the joint statement by the EP, the Council and the Commission on the Socrates programme () provides that two years after the launching of the programme, the Commission will submit a report assessing its results accompanied by any appropriate proposals, in particular concerning the review of its financial framework;

whereas the report submitted by the Commission (accompanying the proposal under consideration) has set out the outstanding results achieved by the programme during the first two years following its adoption;

whereas the COR in its Opinion on the Socrates programme () welcomed its contribution towards the development of quality education and towards the development of partnerships and networks strengthening the economic and social development of localities and regions in the EU,

unanimously adopted the following opinion at its 19th plenary session on 17 and 18 September 1997 (meeting of 18 September).

1. Introduction

1.1. The Socrates action programme was adopted by the European Community in March 1995 with a budget of ECU 850 million for the 1995-9 period and is applicable to the fifteen Member States. This amount fell short of the ECU 1 005,6 million initially proposed by the Commission and which concerned only 12 Member States. It was the result of detailed negotiations between the European Parliament, the Council and the Commission, who finally agreed to accept this sum, on condition that a budgetary review would be carried out after two years, following an assessment of the programme's progress and the results achieved.

1.2. The present proposal aims to fulfil this condition, particularly the budgetary aspects. It proposes revising the budget to increase it by ECU 50 million, or 5,9 %, to be used during the final two years of the programme, 1998 and 1999. It should be noted that with this increase, Socrates would represent only 0,2 % of the Community budget in 1998.

1.3. The Commission calls for an urgent response to the proposal, so that it can be implemented immediately in 1998.

2. General comments

2.1. The Socrates programme covers all EU educational activities. It aims to contribute towards improving the quality of education and developing a European area for cooperation in education, supporting and supplementing the actions of the Member States in seven main areas of activities: higher education (Erasmus), school education (Comenius) and promotion of language learning (Lingua), open and distance learning, adult education, the promotion of exchange of information and experience (including Eurydice and Arion) and complementary measures (information activities, monitoring and evaluation of actions).

2.2. The Commission report accompanying the proposal indicates that the programme has given rise to a significantly increased volume and improved quality of European cooperation in the field of education. The COR welcomes this, particularly with regard to mobility of teachers and students, cooperation between educational establishments, academic recognition of study periods abroad through the European Credit Transfer System, promotion of the lesser-used languages of the Union, greater use of distance learning and extending the programme to a broader Europe.

2.3. However, attention should be drawn to a number of problems which have emerged as the programme has been put into practice:

- the relatively lower rate of involvement of primary and secondary education. In order to solve this problem, mechanisms should be set up within educational administrations to make them more dynamic and responsive;

- financial constraints. For example, support amounts to only ECU 75 per month per student abroad under Erasmus (15 % of maximum allowed) and ECU 2 000 per annum for schools under Comenius;

- the inability to meet demand effectively. If all eligible applications in 1996 had met with a positive response, ECU 700 million would have been needed, whereas only ECU 173 million was available. Demand is therefore four times the amount available and the Commission indicates that this is expected to rise;

- the situation is expected to worsen over the next two years on account of budgetary problems caused by:

a) the need to balance new initiatives with renewal of existing support;

b) the forecast increase in the number of applications as a result of information campaigns in previous years (1995 and 1996) and the accession of the three new Member States;

c) the availability, for the first time, of certain actions such as the Erasmus programme's Institutional Contracts or the in-service training courses under the Comenius programme;

d) the side-effects of other policies such as the 1997 European Year against Racism.

2.4. The case for the budget increase proposed by the Commission seems watertight, but doubts arise as to the extra amount requested: is it adequate to resolve the problems the Commission itself identifies?

3. Specific comments

a) The COR warmly welcomes the Socrates initiative as helping to raise the standard of education and develop partnerships and networks which can contribute to the economic and social strength of Europe's regions.

b) The COR would highlight the fact that currently, some 60 million pupils in the Union are taught by over 4 million teachers in 307 000 schools, almost 11 million students are studying in 5 000 higher education institutions; and millions of adults are also attending classes. Of these, the Socrates programme has directly benefited only 316 000 mobile students, 26 000 mobile professors and lecturers and 1 800 higher education institutions under Erasmus; 80 000 young people and 16 000 teachers under Lingua; 5 000 schools under Comenius; and 2 700 institutions under the remaining programmes for distance learning, teacher training and adult education.

In other words, the level of participation is very low in relation to the vast target population that the programme addresses.

c) The COR would also point to the low level of financial support per project. Under the Erasmus programme, for example, students are receiving only 15 % of the maximum allowed, and higher education institutions on average only ECU 17 000 for their institutional contracts per annum. At this point, the Committee would draw attention to the proposal made by the COR, in its Opinion on the Socrates programme - CdR 43/94 (Rapporteur: David Bellotti), to the effect that mobility among young people from disadvantaged groups in particular should be promoted.

d) The COR would point out that under the Comenius programme, each partner-school receives only ECU 2 000 per annum, thereby excluding a huge number of teachers and young Europeans.

e) In the COR's view, it is difficult to see how an increase of less than 6 % can overcome these problems and prevent the Socrates programme from benefiting only a few - necessarily the most economically advantaged. The COR maintains that such an increase will not be sufficient to enable the participation of a critical mass of beneficiaries in the programme and will not enable rising demand to be met. It points out that the objective of achieving maximum multiplier effect will therefore be jeopardized and warns against the consequences of increased feelings of disenchantment among European citizens in EU cooperation activities.

f) The COR is surprised to note that the Commission's proposal for a budgetary increase is related to the current geographical coverage of the programme and does not make provision for the participation of the ten associated countries of central and eastern Europe and Cyprus which is scheduled to be operational in 1998. It believes that this needs to be urgently addressed. Moreover, it reiterates that it welcomes the gradual participation of the ten associated countries of central and eastern Europe (which includes the Baltic countries) into Socrates, as pointed out in previous opinions. It emphasizes, in this respect, the valuable contribution that increased cooperation in the education sector can make, in particular at decentralized level, in strengthening the economic, social and democratic reform process under way in those countries.

g) The COR notes that the EP, in its report, estimates that an increase of ECU 165 million would be ideally required: ECU 70 million to guarantee reciprocal mobility between the EU and associated countries (to match the ECU 70 million budget contribution that these countries will be making, assisted through the Phare programme), ECU 15 million to take account of inflation in 1998-1999, ECU 80 million to increase the financial framework for 1998-1999 by 20 % to take account of increased demand and the minimum critical mass of funding per project. However, despite this analysis it calls for an increase of ECU 100 million as a bare minimum.

h) The COR draws attention to the need for the programme's activities to be strengthened in rural areas whilst noting that these can be seen as achieving some of the objectives set out in the strategies for rural areas under other headings of the EU budget, in particular the Common Agricultural Policy. These resources should be made accessible to support Socrates activities. The rules should be simplified, developed and adapted to suit rural areas.

i) 'Lingua sub-programme`: the COR considers it a matter of urgency to foster language learning in primary education, as shortcomings here will to a great extent vitiate subsequent efforts. To this end, more opportunities should be offered for language teachers to participate.

4. Conclusion

4.1. Towards the end of his life, Jean Monnet wondered if it had been a mistake to base the construction of a united Europe on economics rather than culture.

4.2. This comment, by Europe's founding father, is borne out by the increasingly clear need for European peace and cohesion to be based on safeguarding and disseminating the essential values of our culture and civilization, since these are of direct concern to ordinary people.

4.3. Putting them into practice entails a high level of involvement by students, teaching professionals and schools, as they represent the path to the future.

4.4. The COR believes that the human resources within Europe's regions must be developed if exclusion and unemployment are to be combated, competitiveness, growth and employment boosted and thereby locally/regionally based economic and social development secured. To achieve this, on-going and effective efforts must be made to raise the level of knowledge and skills among people in Europe, especially young people.

4.5. Against this backdrop, the COR welcomes and encourages all initiatives such as the Socrates programme and its component programmes, Erasmus, Comenius, Lingua etc.

4.6. The Committee warns, however, that Socrates must not be reduced for financial reasons to a programme of benefit only to the most privileged individuals and institutions possessing the greatest financial resources: this would compromise the principle of equality of opportunity. Moreover, it is concerned that the low level of funding opportunities will create barriers to access to the programme for citizens/institutions in localities and regions in the EU facing economic disadvantages and thereby undermine economic and social cohesion. The aid provided by the European Commission accounts for only 20 %-30 % of project budgets and hence the benefits are reaped solely by the privileged students of educational establishments which can finance the balance.

4.7. The COR points out that numerous new challenges in this area are emerging, particularly in the light of the information society and its direct impact on the education sector, including the need to connect schools to the Internet, tele-learning, the development of educational software and multimedia. It reiterates its call for increased funding to be given to this area within Socrates (amongst other programmes) as put forward in its Opinion on the Commission's Action Plan on Learning in the Information Society (rapporteur: Paul White).

4.8. The quality of life of people living in Europe's regions depends upon the creativity and innovation which programmes such as Socrates can provide. The COR stresses that the same creativity and innovation are the key to integrating the associated countries of central Europe, and Cyprus.

4.9. The vision of Europe which inspired Jean Monnet was one in which not only economic prosperity but also cohesion, solidarity, cooperation, understanding and knowledge would be basic, essential elements. This vision demands initiatives such as those represented by the Socrates programme.

4.10. The COR therefore urges the Council, the Commission and the European Parliament to recognize that investing more in Socrates will not only contribute towards strengthening economic and social cohesion in the EU but will also help to build a real 'citizens' Europe` which can have real meaning in people's lives. At a time when racism, xenophobia and violence are growing at an alarming rate, promoting the European and intercultural dimension of education through Socrates and promoting greater cooperation and collaboration between the learners and teachers within the EU is vital in order to strengthen greater understanding of cultural diversity and solidarity and preserve peaceful co-existence in the EU and in its neighbouring countries.

4.11. In conclusion, and in the light of European Union and Member States' financial difficulties and the principles of budgetary discipline they have adopted, the COR recommends that:

- the Commission and the Council give consideration to the arguments set out here for additional funding to be granted to the Socrates programme, in particular in order to ensure that an adequate level of support is given for unit funding for a critical mass of projects and in order to take into account the budgetary impact of extending Socrates to the associated countries of central and eastern Europe and Cyprus;

- the Commission amend its proposal to request a greater increase of at least ECU 100 million (11,8 % increase), in line with the amendments put forward by the European Parliament in its first reading under co-decision procedure on this subject (). It points out that this sum would increase the budget to ECU 950 million which is still below the European Commission's initial proposal of ECU 1 005,6 million for 12 Member States.

Brussels, 18 September 1997.

The Chairman of the Committee of the Regions

Pasqual MARAGALL i MIRA

() OJ C 113, 11. 4. 1997, p. 14.

() OJ L 132, 16. 6. 1995, p. 18.

() OJ C 217, 6. 8. 1994, p. 18.

() OJ C 200, 30. 6. 1997, p. 135.