Opinion of the European Economic and Social Committee on "Consumer education"
Date: 2003-03-26
Institutions: European Economic and Social Committee
Subjects: consumer, consumer protection, public awareness campaign

6.6.2003

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Official Journal of the European Union

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II

(Preparatory Acts)

ECONOMIC AND SOCIAL COMMITTEE

398th PLENARY SESSION, 26 AND 27 MARCH 2003

Opinion of the European Economic and Social Committee on ‘Consumer education’

(2003/C 133/01)

On 18 July 2002 the European Economic and Social Committee, acting under Rule 29(2) of its Rules of
Procedure, decided to draw up an opinion, on ‘Consumer education’.

The Section for the Single Market, Production and Consumption, which was responsible for preparing
the Committee’s work on the subject, adopted its opinion on 5 March 2003. The rapporteur was
Mr Hernández Bataller.

At its 398th plenary session on 26 and 27 March 2003 (meeting of 26 March), the European Economic
and Social Committee unanimously adopted the following opinion.

1.

Introduction

Developing an adequate, effective consumer protection
1.1.
policy calls for a series of measures to safeguard consumer
safety and welfare, particularly from an economic and health
point of view. Key components of such a policy include the
quality, composition and safety of goods and services, and
the conditions under which they are manufactured and
maintained; clear and accurate commercial communications
and advertising; guarantees in contracts; protection of privacy;
protection of the public interest; the gradual harmonisation of
rules; the development of channels for co-regulation and the
settlement of disputes out-of-court; and support for consumer
organisations.

1.2.
At the same time, European consumers need to be
given the skills and knowledge that will enable them to operate
in an increasingly complex, convergent and sophisticated
market so that they can effectively exercise their rights, meet
their responsibilities and benefit from all the possibilities and
safeguards that the EU has provided to protect their interests.
if the consumer
Consumer education is therefore essential
protection framework as a whole, and the single market and
other policies, are to be applied and really work well.

1.3.
The importance of consumer education is clearly
enshrined in Article 153 of the EU Treaty, which calls on the
Community to promote consumers’ rights to information and
education, and is also clearly linked to consumer protection in
documents such as the Green Paper. Of course, the subsidiarity
principle means that a large part of responsibility in the area
of education falls on national, regional and local authorities.
However, this does not mean that the issue cannot or should
not be debated at Community level so that specific actions
can be proposed to improve consumer education. This is
particularly true given the progressive establishment of the
single market and the problems associated with it, such
as cross-border transactions,
the European dimension of
consumer rights, and the need for Member States to exchange
experiences that could be useful to the EU as a whole. The
development of joint consumer education policies is even
more important in the light of imminent enlargement and the
need to prepare citizens and consumer organisations in
the candidate countries with specific programmes offering
information and training on the European Community. Action
on this is already under way and must be stepped up following
accession by the new Member States.

For its part, in the explanatory memorandum of its
1.4.
Communication to the European Parliament, the Council, the
Economic and Social Committee, and the Committee of the
Regions on Consumer Policy Strategy 2002-2006 (1), the
European Commission points out the need for the general

(1) COM(2002) 208 final.

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public to be given more information. To achieve the objectives
of this new strategy, the Commission points out that ‘more
attention should be given to the education of consumers so
that they can shop with confidence in the full knowledge of
their rights’. The EESC believes that more information is also
required concerning the price, quality and safety of goods and
services, the way in which they are manufactured and other
characteristics such as their environmental impact.

2. The importance of the ‘educated consumer’

2.1.
It is important for account to be taken of the consider-
able added value inherent in the concept of ‘educated con-
sumer’ — as a necessary condition for becoming an ‘informed
consumer’ — when guaranteeing adequate consumer protec-
tion. Whether descriptive or offering proposals, studies con-
ducted in recent years on the situation of consumers in the EU
tend to highlight the following:

a)

b)

the need to increase consumer confidence so that they
play a more active role vis-à-vis innovative products,
become more involved in civil society organisations and
benefit from the single market;

the fact that information alone is not enough to instil the
level of consumer confidence needed or to promote
among people (both young people and adults) a critical
and responsible attitude towards consumption.

2.2. With regard to confidence, it must be remembered that
recent scandals in the food sector — both primary and
industrial — have to a large extent undermined consumers’
perception of safety. In addition to this, there is a great deal of
uncertainty when it comes to assessing the quality and
suitability of complex goods and services such as functional
foods (novel foods), e-commerce and on-line banking services.
Another example of this is the experience gained by the
introduction of the euro, which has highlighted the need for
greater efforts in the area of information and training, and the
danger that insufficient information and training could create
scepticism towards the single market. Education should there-
fore also be seen as an important part of overall consumer
protection policy and a key factor in improving the public’s
confidence in and acceptance of the European Community
system, underpinned by the chance to participate in and
critically assess processes.

2.3. With regard to information, this is an essential part of
consumer protection and the Commission’s aim to develop ‘a
modern, efficient and reliable information policy’ is therefore
very fitting. However, it must be pointed out that, firstly, there
are still many barriers that prevent consumers being given
comprehensive information and, secondly, while information

factor in restoring and generating consumer
is a crucial
confidence,
it is not enough. Consumer confidence is not
achieved simply by increasing the quantity of information
available, guaranteeing access to it, or even improving the
quality of this information. People also need:

— a wealth of knowledge enabling them to take in, interpret,
understand and assess information received, and adopt a
standpoint on it. This includes, in particular, the basic
rules on the functioning of the economy, the ethical and
social dimension of consumption, models of sustainable
consumption, solidarity, cohesion and integration, rights
and duties as a consumer, etc.;

— a series of skills and resources enabling them to use both
information and their own experience to take effective
decisions that are in their best interests.

2.4.
Information is merely the ‘raw material’ of communi-
cation. Access to information implies the existence of ‘latent
knowledge’, but does not in itself guarantee the existence of a
‘reasonably well-informed’ consumer, according to the criteria
adopted by the European Union itself. Information only truly
benefits the citizen if
through education, can
the latter,
understand this information and is motivated to use it to make
decisions in a ‘reasonably observant and circumspect’ way, to
again use the terminology found in the case law of the Court
of Justice of the European Communities (CJEC).

2.5.
Consumers need more than mere information if they
are to be genuinely effective in their choice and use of goods
and services. They should also be able to use and apply this
information. Given the importance of consumption in the
world today, consumers need skills if they are to be active
citizens and fully participate in society.

3. Content and techniques of consumer education

3.1.
From the point of view of content, consumer education
must endeavour to give consumers a proper understanding of
the various social, technical, legal and regulatory concepts
associated with consumer protection, i.e.:

— a proper understanding of the composition of goods and
services, the safety and quality criteria that apply to each
product, the way products are used, consumed and
maintained, and the associated costs. The more complex
and sophisticated a product, the more important it is
information is
that scientifically correct and impartial
provided. This is the case, for example, of what are
known as novel foods, and IT or telecommunications;

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— a proper understanding of commercial communication,
in particular when distinguishing product information
from the ‘hype’ of advertising or promotional material.
One important aspect here is the fact that it is becoming
increasingly difficult
to properly identify commercial
communication, as it is integrated more and more in
other types of supposedly informative or recreational
content, such as newsmaking, sponsorship, product
placement, hidden or disguised advertising, etc.;

— a proper understanding of contract terms, many of which
are increasingly complicated owing to the variety of
options associated with increasingly personalised prod-
ucts. Telephony products, with their complex packages,
tariffs and conditions, are a good example of an area in
which training is needed;

— a proper understanding of consumer rights when bringing
complaints through the various administrative, legal and
out-of-court channels. Accordingly, only the existence
of truly educated consumers can enable market self-
regulation and co-regulation mechanisms to really work
in the future, thus strengthening their position as market
players.

From the technical point of view, it is important to
3.2.
develop educational
tools and materials that are clearly
designed to equip consumers with the knowledge and skills
needed for action. These tools and materials should also be
attractive, and motivate and catch the attention of potential
users.

3.3.
The possibilities offered by new technologies are an
important factor in meeting this objective, as they provide
virtual as well as real training. On-line interactive education
(e-learning), audiovisual
through the Internet and e-mail
(CDs) and digital means of communication are
material
all
instruments offering more than traditional media (e.g.
magazines, publications, press, radio, television). However,
this also requires more decisive policies to better equip and
train people to use these new technologies.

between centres, and increase the involvement and motivation
of school children,
for example through awareness-raising
measures. Finally, one must not of course forget to train
teachers of all disciplines in consumer-related issues so that
these issues can be integrated — through specific teaching
modules — into education across the board.

3.4.2.
Consumer education initiatives should also be
extended to higher education and specialised training, in order
to open up training to even more people. It is therefore
essential that universities are involved, by including consumer
issues on curricula (whether as a core, horizontal or optional
subject) and specifically devising teaching modules, materials
and tools for students following education or training.

3.4.3.
Finally, one should not forget the importance of both
adult education and ongoing training, which should also be
extended to other types of consumers who have no contact
with school or academic life. A special effort must be made to
devise practical
training materials and tools that address
everyday problems. Consumer associations and other social
organisations would seem to be the most effective channels
for distributing these materials in a decentralised manner.
Account must also be taken of
the need to reach the
most vulnerable consumer groups and those whose personal
circumstances bring a special need for protection and training
with regard to the single market, the new scenario of technical
convergence, and innovations in the bio-food sector. There is
a particular need for education targeting the following groups:

— immigrants, so that they are fully aware of their rights
and duties as citizens and, in particular, as consumers
throughout the European Union, thus making it easier
for people to move to another Member State in pursuit
of employment or professional advancement;

— young people who are not in higher education and who
can be best reached via youth associations in the various
Member States.

Consumer education should also take account of
3.4.
essential differences between different sectors of the popu-
lation, in particular with regard to age and education.

4. The educational role of consumer associations

3.4.1.
Consumer education in schools should therefore be
approached through regulated teaching channels, even if
complementary initiatives are also introduced in the area of
informal teaching. It is important for programmes and projects
to be developed to improve cooperation between national and
local authorities in the area of education, improve cooperation

4.1.
According to the aforementioned Commission Com-
munication on Consumer Policy Strategy 2002-2006, one of
the objectives of the new strategy is the ‘proper involvement
of consumer organisations in EU policies’. Particular attention
should be paid to training the staff of these organisations in
specific aspects such as cross-border transactions, financial
services and the rights of EU consumers in the internal market.

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In early 2002, the Commission launched a project
4.2.
entitled ‘Preparation of
training actions for personnel of
consumer organisations’, which comprises an initial phase for
preparing material and training trainers, followed in 2003 by
courses organised for the aforementioned personnel.

4.3.
The Committee believes that training designed for
consumer associations should not have solely internal objec-
tives such as optimising management, strengthening their
position, structure and capacity, lobbying effectively on behalf
of consumers, participating in the drafting of EU policies and
consolidating their position as market players in organising
demand.

5.3.
Neither must one forget the importance of ongoing
training, which offers the possibility of training to other types
of consumers who have no contact with school or academic
life. A special effort must therefore be made to devise practical
training materials and tools that address everyday problems.
Particular account must also be taken of particularly vulnerable
consumer groups and those with a special need for practical
guidance in this single, convergent and increasingly technologi-
cal market.

5.4.
Consumer organisations should be given Commission
support enabling them to play a fundamental role in educating
people, as they are a very effective channel for disseminating
training content and enjoy a high level of credibility and
contact with the public.

4.4.
The role of consumer associations in developing
training strategies should also be targeted at consumers in
general, as they play an important role in giving citizens advice
and helping them solve their problems.

5.5.
The Commission should therefore give greater econ-
omic support to consumer organisations’ projects in this area,
in particular transnational projects that have the added value
of a European dimension.

4.5.
Consumer organisations could therefore, with the
appropriate support, do more than provide advice, or merely
disseminate and distribute training materials and tools design-
ed by experts or within the EU institutions. They could also
play a fundamental role as active training providers for
consumers in general. Their high level of credibility and
contact with the public make them a very effective channel for
disseminating and raising awareness of Commission initiatives
and this must also be used and taken into account in the area
of consumer education. For this ‘knock-on effect’ to work,
consumer association members must be made a prime target
of the Commission’s training actions, so that by ‘training
trainers’ consumer education can become a reality in the EU.

5. Specific comments

5.1.
A greater effort should be made to design schemes that
complement current initiatives and are aimed at both school-
age children and consumers involved in adult education.
Initiatives also need to be publicised in order to raise awareness
of them.

6. Conclusions

In view of the above, it can be concluded that now would be a
good time to develop the following actions at Community
level:

6.1.
to organise and give impetus to the work of a group of
permanent experts, comprising education professionals with
an in-depth knowledge of consumer affairs, who can system-
atise on an ongoing basis the work carried out in each country
and draw up the reports needed to further apply the Treaty of
Amsterdam with regard to consumer education;

for the Commission to present a plan to consolidate
consumer education,

6.2.
European networks
through significant and ongoing projects;

that promote

5.2.
Consumer education initiatives must also be extended
to higher education and specialised education, by involving
universities and designing materials and tools especially for
such students.

to set up a database including all the schemes that have
6.3.
been financed by the Commission in recent years and,
if
appropriate, the most significant schemes conducted in the
Member States, in such a way that it can be consulted by other
countries (including the candidate countries) and can foster an
attitude of cooperation, dissemination and dynamism that
promotes consumer education;

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6.4.
to study the possibility of setting up a virtual school of
consumer education, drawing on new technologies and the
experience already gained by different countries in this area.
Account should also be taken of experience gained from
education at European level in the various stages of education,
e.g. the Erasmus project;

6.5.

to develop Commission proposals that:

— help make consumer education widely available so that

all European citizens can be educated and trained as
consumers, as is their right and duty;

— enable educational actions to be coordinated more effec-
tively and proper educational material to be drawn up,
including the use of the Internet, so as to take account of
the different characteristics of European consumers;
— provide training for trainers, adult consumers and vulner-

able groups;

— ensure that the members of consumer organisations and
other consumer bodies and institutions are given high-
quality ongoing training.

Brussels, 26 March 2003.

The President

of the European Economic and Social Committee

Roger BRIESCH

Opinion of the European Economic and Social Committee on ‘Simplification’

(2003/C 133/02)

On 18 July 2002 the European Economic and Social Committee, acting under Rule 29(2) of its Rules of
Procedure, decided to draw up an opinion on ‘Simplification’ (Single Market Observatory).

The Section for the Single Market, Production and Consumption, which was responsible for the
Committee’s work on the subject, adopted its opinion on 5 March 2003. The rapporteur was Mr Simpson.

At its 398th plenary session on 26 and 27 March 2003 (meeting of 26 March), the European Economic
and Social Committee adopted the following opinion with 81 votes in favour and two abstentions.

1.

Introduction

1.1. When presenting the programme of the current Com-
mission to the European Parliament in February 2000 (1),
President Romano Prodi
identified ‘the promotion of new
forms of governance’ as one of the four strategic objectives of
this Commission’s term of office. This included a greater
degree of openness on the part of the Commission, simplifying
the body of Community law and reducing its volume, the
better involvement of civil society in the legislative process and
developing connectivity through networking. The objective of
these measures, in toto, was to achieve better law-making.
However, the Commission recognised that it could not act
alone in this endeavour.

1.2.
Since October 2000, the European Economic and
Social Committee (EESC) has issued three Opinions (2) on
the subject of simplifying and improving the regulatory
environment of the European Union, reflecting the importance
that it attaches to this topic. One of these Opinions (3) was
prepared at the instigation of the President of the Commission,
Romano Prodi. The EESC has also issued an Opinion on the
Commission’s 2002 Review of the Internal Market Strategy (4)
that dealt, inter alia, with simplification issues and recognised
their quintessential importance to the completion of a true
Internal Market.

( 1) COM(2002) 705 final.

(2) OJ C 14, 16.1.2001, OJ C 48, 21.2.2002 and OJ C 125,

27.5.2002.

(3) OJ C 125, 27.5.2002, p. 105.
(4) OJ C 241, 7.10.2002.