Opinion of the Economic and Social Committee on the 'Proposal for a Council Decision on the promotion of European pathways for work-linked training, including apprenticeship'
Date: 1998-04-29
Institutions: European Economic and Social Committee
Subjects: apprenticeship, job creation, vocational education, vocational training, young worker

10.7.98

EN

Official Journal of the European Communities

C 214/63

Opinion of the Economic and Social Committee on the ‘Proposal for a Council Decision on
the promotion of European pathways for work-linked training, including apprenticeship’

(98/C 214/16)

On 3 February 1998 the Council, acting in accordance with Article 127 of the Treaty, asked
the Economic and Social Committee for an opinion on the above-mentioned proposal.

The Section for Social, Family, Educational and Cultural Affairs, which was instructed to
prepare the Committee’s work on this matter, adopted its opinion on 16 April 1998 (rapporteur:
Mr Dantin).

At its 354th plenary session (meeting of 29 April 1998) the Committee adopted the opinion set
out below by 115 votes to one, with five abstentions.

1.

Introduction

1.1.
The recent Commission communication on the
promotion of apprenticeship training in Europe (1)
drawn up at the request of the European Council held
in Florence (June 1996) highlighted the importance of
apprenticeship and work-linked training in general.

1.2.
The Committee’s opinion on the above-
mentioned communication (2) welcomed its innovative
provisions whilst expressing a number of reservations
and putting forward some proposals, particularly with
regard to the mobility of apprentices.

1.3.
The draft Council decision, which seeks to
promote European pathways for work-linked training,
including apprenticeship, is thus an opportune develop-
ment.

1.4.
As is pointed out in the explanatory memoran-
dum, in the context of the completion of the single
market and, more generally, that of the building of a
Europe without frontiers, trainee mobility is becoming
an increasingly important dimension of European citi-
zenship, as well as an instrument of multi-cultural and
social integration.

1.5. Whilst respecting Member States’ prerogatives
in respect of the content and organization of their
vocational training systems and structures, the draft
Council decision sets out measures which apply to
vocational training systems and structures providing for
work-linked training including one or more elements of
mobility. The proposal has a twofold objective:

— to define the content and common underlying prin-
ciples in respect of training periods spent in another
Member State, as part of work-linked training,

(1) COM(97) 300 final.
(2) OJ C 95, 30.3.1998.

where such training forms part of the course taken
by the trainee in his home Member State;

— to enhance the profile of such training periods by
issuing a certificate (the Europass-training certifi-
cate); the content and lay-out of this certificate,
which validates the training or work experience
acquired in another Member State, are defined at
EU level.

1.6.
The Commission takes the view that the estab-
lishment of ‘European pathways’ and the introduction
of the ‘Europass-training’ certificate should, in turn,
promote the development of work-linked training and
apprenticeship in the Member States in the broader
context of the policies designed to bolster growth,
competitiveness and employment.

2. General comments

2.1.
The Economic and Social Committee broadly
endorses the draft Council decision; it does, however,
believe that the scope and some operational aspects of
the proposal should be amended (see point 3 below).

In line with its Opinion on the Commission’s
2.2.
Communication entitled Promoting apprenticeship
training in Europe, the Committee endorses the view
that work-linked training — and in particular appren-
ticeships — makes it easier for people to find jobs,
promotes employment and boosts recognition of EU
citizenship and fosters freedom of movement.

In the abovementioned opinion the Committee
2.3.
pointed out that it ‘awaits with interest the draft
instrument intended to lead to the drawing-up of a
common legal framework with a view to promoting
apprenticeship training in Europe. A common legal
framework of this kind should lay down guarantees
with regard to working and training time, material

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conditions (lodging, meals, tuition, quality criteria)
and social and legal cover. More generally, the legal
framework should mitigate or even eliminate altogether
the various difficulties in relation to intra-Community
training pinpointed by the ESC in its Opinion on the
Commission Green Paper on Education, training and
research — the obstacles to transnational mobility’ (1).
With this aim in view, particular attention should be
paid to the recognition of intra-Community diplomas
awarded in connection with apprenticeship training and
work-linked training in general, particularly in relation
to new sectors.

2.4.
The Committee’s appraisal of the draft decision
must therefore be seen in the context of the comments
made in its previous opinions.

3. Specific comments

3.1.
The Committee approves, in principle, the estab-
lishment of the ‘European pathways’ and the introduc-
tion of the ‘EUROPASS-training’ certificates, but urges
that this proposal should not be regarded as an end in
itself; the aim should be to maintain and increase the
momentum created by the proposal. Despite its appeal,
the proposal cannot be regarded, in itself, as an adequate
response to the need to promote work-linked training,
including apprenticeship, in the EU, and the requisite
international mobility. In the Committee’s view, the
draft decision does not go far enough. Such a decision
could not under any circumstances define the status of
‘apprentice’ or set out how mobility is to be implemented.
The political scope of the decision is limited; in reality
it is a purely technical instrument, merely extending the
Leonardo programme to include work-linked training,
including apprenticeship, whilst at the same time re-
solving some of the problems arising between host
countries and the countries in which students are
following work-linked training courses.

In addition to the draft decision, it is therefore necessary
to continue the appraisal (see Opinion No CES 110/98)
and to draft proposals which will take us further
along the road towards realising and implementing this
concept. Steps should however be taken to ensure that
the measures taken do not reduce the number of
work-linked training places available; they should, on
the contrary, create additional training places, over and
above the existing ones.

earlier

that whereas the
The Committee regrets the fact
Commission’s
communication focused on
apprenticeship, the draft decision under review covers
the broad swathe of work-linked training, including
apprenticeship. This will create a distortion between the
appraisal carried out and the implementation of the

(1) OJ C 129, 27.4.1998.

appraisal because of the difference in the scope of the
two measures. This situation blurs the case for a
comparative assessment, especially since — by virtue of
its principles and functioning — apprenticeship must be
distinguished from other types of work-linked training
in a number of states.

3.2.
The Committee takes the view that the draft
decision represents only a small step towards the
establishment of the legal framework which it has
advocated. This assessment applies (a) to the definition
of the training and (b) to the allocation of the various
areas of responsibility. In its proposal the Commission
should have spelt out individual tasks and responsibili-
ties. Despite these limitations, the document does how-
ever represent a first step in the development of
work-related training, including apprenticeship, at EU
level, whilst scrupulously respecting the responsibility
of the Member States for the content and organization
of vocational training (Article 127 of the EC Treaty).

3.3. Whilst the proposed introduction of ‘Europass
Training’ is a legal instrument which will remove a
number of obstacles to mobility, it will achieve this goal
only in a piecemeal and haphazard way.

3.4.
This is illustrated by Article 3(1) which stipulates
that ‘Where Member States provide in their vocational
training system for work-linked training, including an
element of mobility in another Member State, they shall
adopt the necessary measures so that those persons
concerned in training can benefit from “European
pathways”.’ (bold type added by rapporteur).

The Committee takes the view the ‘Europass Training’
should be available in all the EU Member States without
exception.

To this end, the Committee calls upon the Council
to urge the Member States to incorporate in their
work-linked training and apprenticeship schemes the
possibility of a period of training in other EU Member
States, where this is not already the case.

The Committee also makes the following proposals to
the Commission:

— that it extend the legal basis of its proposal beyond
the provisions of Article 127 of the Treaty. Consider-
ation of Articles 48 and 51 of the Treaty could prove
beneficial in this respect;

— that it consider making EU rules on free movement
of workers and students, applicable to the proposal;
this applies in particular to the right of abode, right
to work, safety and social protection;

— that persons participating in the Europass Training
scheme be regarded as students, within the meaning
of Directive No 93/96/EEC on students’ right of
abode, thereby enabling them to benefit from the
provisions of that Directive.

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3.5.
At all events, the Committee expresses both its
surprise and disapproval at the proposal to confine
the Europass-training system to persons whose home
Member State gives de facto recognition to work-linked
training,
including apprenticeship, which includes a
period of training in another Member State.

3.6.
The Committee reiterates its calls for a legal
framework to be established which ensures de jure
equality between persons undergoing training, irrespec-
tive of which Member State they come from and makes
a significant contribution to removing obstacles to
the pursuit of training in another Member State, in
particular, by recognizing intra-Community certificates
over and above the Europass-training certificates.

3.7.
It is deplorable that the draft decision fails to list
— and define — a number of quality criteria and
reference criteria which would make intra-Community
certificates awarded for work-linked training, including
apprenticeship, more transparent and facilitate their
recognition, without jeopardizing the responsibility of
the Member States, as defined in Article 127 of the EC
Treaty.

In addition to validating qualifications, such a joint
identification system should spell out:

— the objectives of the EU training pathways (the

abilities and skills to be acquired, etc.);

— the broad thrust of the European pathways (what
aspects should be particularly highlighted, what
should be the goal of European training, etc.);

— validation procedures; the aim should be to endorse
a component or a module of the overall training
pathway.

This identification, like the validation, must be differen-
tiated according to whether it relates to apprenticeship
or work-linked training, and involve the participation
of public or private bodies which manage work-linked
training or apprenticeship in a number of Member
States.

A certificate should be issued testifying that the holder
has acquired specific skills; the certificate should be
recognized throughout the EU.

to take on any persons following a course of work-linked
training, including apprenticeship. Such a scheme would
lend credibility to the development of mobility, whilst
making it easier to regulate the flow of exchange trainees.

3.9.
There is also a need to remove the ambiguity by
spelling out the legal means for ensuring that the
Europass-training scheme would be applicable to all EU
Member States, without exception. This requirement
would not clash with the voluntary nature of this
scheme.

that

3.10.
the
The Committee would point out
proposed budgetary proposals make no provision for
funding the actual operation of the Europass-training
scheme. The Committee is thus unable to give its views
on the financial feasibility of the proposal. It is essential
to make budgetary provision for the operation of the
scheme, either through the direct allocation of funds, or
by providing funding under the Leonardo or Erasmus
programmes — though not at the expense of those
programmes; such measures would lend credibility to
Europass and would give it a good chance of being
implemented. This is particularly important in view of
the ‘significant duration’ requirement for European
pathways (Article 3) which, the Committee construes as
a minimum duration of three weeks; the duration should
vary in line with the specific nature of the occupation
involved and of training content.

3.11.
The Committee also has its doubts about the
scope of the Erasmus programme, which covers the
right of abode and right of study of university students.
The Committee calls for an appraisal to be carried out
and proposals to be put forward for the purpose
of extending the Erasmus programme to secondary
students, and, perhaps, to all persons with employment
contracts for work-linked training. The Committee
would be very interested in the establishment of an
Erasmus programme for apprentices.

The Committee is surprised that no specific
3.12.
provisions have been made in respect of SMEs and the
craft sector, despite the fact that they have a central role
to play in the system of work-linked training, including
apprenticeship, and are crucial for the development
of this system. The Committee takes the view that
simplifying and abbreviating the application procedure
for EU aid would represent an important step towards
involving SMEs.

It is vital that the social partners be involved throughout
this process. Such participation is a prerequisite, in each
of the Member States, for the success of planning
including Europass
measures in respect of training,
Training.

3.13.
In order to ensure more effective utilization of
Europass Training, the certificate should be drawn up
in three EU languages:

— the language of the trainee’s home Member State;

The Committee would also reiterate its proposal
3.8.
that grants be given to enterprises which are prepared

— a third EU language.

— the language of the host Member State;

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3.14.
The Committee calls upon the Commission to
draw up an appraisal report after the Europass-training
scheme has been in operation for two years. The
Committee would like the report to be referred to it for
its opinion.

4. Conclusions

4.1.
The Committee has issued a number of opinions
on the general subject of vocational training. The
Committee’s appraisal of the draft Council decision
takes account of these earlier opinions.

4.2.
The Committee takes the view that, although a
significant number of questions have yet to be answered,
the draft Council decision is a step in the right direction;
it does, however, fall far short of constituting an
acceptable vehicle for implementing the views expressed
earlier by both the Commission and the ESC.

4.3.
The Committee urges that this proposal should
not be regarded as an end in itself; it does in fact represent
only a small step towards the establishment of the legal
framework, in particular the specific legal framework for
apprenticeship, advocated by the Committee.

4.4. Moreover the proposal must not exclude EU citi-
zens solely on the grounds that the domestic legislation
in their country makes no provision for intra-EU training.

4.5.
The Committee would ask the Commission to
pursue its appraisal with a view to drawing up a legal
framework, in line with the terms of its communication

Brussels, 29 April 1998.

on the promotion of apprenticeship training in Euro-
pe (1). The objective should be to promote the mobility
of apprentices and the recognition of diplomas (CES
110/98). The Committee awaits with interest the out-
come of this overall appraisal. The Committee considers
it necessary to avoid dispersion of resources and proposes
adoption of an effective overall strategy for apprentice-
ship, in the form of an internally consistent package of
measures for promoting and developing apprenticeship.
This system should be introduced in the Member States
where it does not yet exist. The Committee urges the
Commission to lose no time in extending the legal basis
of its proposal to embrace Articles 48 and 51 of the
Treaty and Directive No 93/96/EEC on the right of
abode of students.

in
4.6. On the subject of Europass Training,
particular, the Committee takes the view that the
‘significant duration’ should be a minimum of three
weeks; it calls for appropriate budgetary provision in
order to guarantee the scheme a minimum of credibility.

4.7.
The Committee recalls that the development of
mobility and the success of the Europass scheme hinge
on participation in the development and monitoring of
the scheme by all the relevant public and private
operators involved in work-linked and apprenticeship
training. The Committee also considers that the mobility
must concern not only persons in training but also those
providing that training.

(1) COM(97) 300 final.

The President

of the Economic and Social Committee

Tom JENKINS