Opinion of the European Economic and Social Committee on ‘Training and productivity’
Date: 2004-10-28
Institutions: European Economic and Social Committee
Subjects: ESC opinion, EU Member State, continuing education, cooperation policy, economic and social cohesion, education policy, productivity, vocational training

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Opinion of the European Economic and Social Committee on ‘Training and productivity’

(2005/C 120/13)

By means of a letter of 22 April 2004 from the Minister for European Affairs, Mr Atzo Nicolaï, the Dutch
Presidency asked the European Economic and Social Committee, under Article 262 of the Treaty estab-
lishing the European Community, to draw up an opinion on ‘Training and productivity’.

The Section for Employment, Social Affairs and Citizenship, which was responsible for preparing the
Committee's work on the subject, adopted its opinion on 22 September 2004. The rapporteur was
Mr Koryfidis.

At its 412th plenary session (meeting of 28 October 2004) the European Economic and Social Committee
adopted the following opinion by 81 votes to 1 with 1 abstention.

1. Background to the opinion

In response to the request from the Dutch Presidency to
1.1
the EESC, the content of this exploratory opinion is determined
by the following:

— the Dutch Presidency's programme, in particular its chapter

on Social Europe and its openness to change (1);

— the decision of the Brussels European Council (2) (25 and
26 March 2004) to meet the Lisbon challenge, in particular
its invitation to the EESC ‘to examine ways and means for
more effective implementation of the Lisbon Strategy’ (3);

— the search for agreement, during the second half of 2004,
between the 25 Member States concerning the new Social
Policy Agenda (2006-2010) (4);

— the discussion and inclusion of the Lisbon and Gothenburg

objectives in this agreement (5);

The objective of this conference is to discuss the struc-
1.1.2
tural changes that need to be made in four policy areas (6),
while at the same time stepping up participation and main-
taining social cohesion.

1.1.3
focus on the following points:

Finally, the Dutch Presidency has asked the EESC to

— What are the main obstacles to implementing national and
Community policies on continuing training in each
Member State and in the EU as a whole, and how can these
obstacles be overcome?

— What are the most effective ways of boosting continuing

training?

— How does the way in which responsibilities are allocated
between the different players involved in training (e.g.
government, social partners as well as employees and
employers) affect the organisation and success of conti-
nuing training? What is the most effective way of allocating
roles and responsibilities and how can this be achieved?

— the search for and the identification and presentation of the
causes of the problems relating to the implementation of
lifelong learning policies and of ways to improve the effec-
tiveness of continuing training policies.

2. Introduction

1.1.1
The overall context of the social policy and employ-
ment issues proposed by the Dutch Presidency will be discussed
at a high-level conference on More People at Work: policies to
take place in
labour potential which will
activate Europe's
Amsterdam on 25 and 26 October 2004.

(1) See the Dutch Presidency's programme.
(2) See Presidency conclusions – chapter III.
(3) See point 45 of these conclusions.
(4) The new Social Agenda will be presented by the Commission in the

first half of 2005.

(5) A mid-term assessment on the Lisbon Strategy is expected during

the spring European Council (March 2005).

2.1
The EESC attaches considerable importance to the
Dutch Presidency's request for this opinion to be drafted, in
particular its content and scope, which reflect
the broader
objectives of, and the major problems facing, the EU in the
area of sustainable development and, more specifically, employ-
ment, productivity and economic growth.

(6) The Dutch Presidency has called for structural changes in four
policy areas: an effective redefinition of the relationship between
working life and social/family life,
the social
security system and the promotion of changes at work, training
and productivity.

the activation of

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2.2 Without losing sight of its obligation to focus on the
questions posed by the Dutch Presidency, the EESC believes it
is important to make this focus part of a more general frame-
work (1) that examines all the issues relating to the EU's overall
progress in the sectors concerned in the context of specific
circumstances.

3. Definition of concepts (2)

The term (vocational) training means ‘The acquisition,
3.1
refreshing or updating (by an individual) of mainly technical
knowledge and skills’.

3.2
Initial education and training relates to the stage of
acquisition of initial basic knowledge and skills connected with
the trade which the person will follow. Initial education and
training is backed up in many Member States by apprentice-
ship, which links various forms of learning with company-
related work experience.

3.3
Continuing vocational education and training/conti-
nuing professional development relates to learning relevant
to the labour market or the company, based on already
acquired skills and experience, in order to update and broaden
knowledge and competence and acquire skills for other or new
fields of work and operational tasks. Continuing vocational
education and training is aimed first and foremost at citizens
who are in active working life, i.e. who have an initial educa-
tion and training,
in some cases as semiskilled employees
without a formal educational qualification, and are either in an
employment situation or registered as unemployed (and in this
connection take part in continuing vocational training promo-
tion schemes or retraining courses). In addition it is open to all
to take part in the many kinds of general and work-related
training schemes on offer, which are available publicly or
privately and in the most varied forms of learning.

3.4
European vocational training systems vary considerably
from one Member State to another and show marked differ-
ences within each country, as they are constantly being adapted
to the requirements of the professional and working world. It is
a continuing challenge to find a precise and directly applicable
definition of vocational training in terms of both interpretation

(1) This approach to problems – i.e. integrating the particular into the
general - is moreover characteristic of the EESC's work. Recent
opinions OJ C 110 of 30.4.2004 (Hornung-Draus-Greif) and OJ C
117 of 30.4.2004 (Ribbe-Ehnmark) are good examples of this.

(2) CEDEFOP publications provide more detailed information on the
definitions in the field of vocational education and training; cf. in
particular the CEDEFOP Glossary as well as the reports on voca-
tional training research and vocational training policy (www.cedefo-
p.eu.int and www.trainingvillage.gr). The appendix to opinion
supplements these.

and language. However, a generally important aspect is the
composition of the vocational training on offer as between
training establishments and company-based learning environ-
ments. The weighting can turn out differently in both initial
and continuing vocational education and training depending on
skills level,
industrial sector and branch of work. The same
applies to the type of training on offer, which can include semi-
nars, modules and courses of varying duration as well as
extended work-related study courses. In addition, the vocational
training and qualification systems, and finally also training
establishments and employers,
recognise non-formal and
informal learning processes (3).

The term lifelong learning means ‘all

3.5
learning activity
undertaken throughout life, with the aim of improving knowledge,
skills and competences within a personal, civic, social and/or employ-
ment-related perspective’ (4). As a result of the Lisbon Council
conclusions, lifelong learning has acquired outstanding political
significance as a key concept to meet the universally recognised
need for a fundamental renewal of
the European training
model as part of the transition to a knowledge-based economy
and society (5). A corresponding, consistent further develop-
ment/transformation of the structures, operation and teaching
and learning methods of the present general and vocational
education and training systems assumes a key significance for
achieving the Lisbon objectives.
the new
generation of Community action programmes for general and
vocational education and training will be combined from 2007
under the overall heading of lifelong learning (6).

In consequence,

lifelong
A practical, comprehensive realisation of
3.5.1
learning remains in many respects still to be achieved, in terms
of supply structures, access possibilities and social demand, as
well as of percentage of population participating in its overall
composition. The European agencies CEDEFOP and ETF have
done a great deal to make it possible for the Member States in
general and more specifically for the various interested parties
and the appropriate players in the training field to exchange
information and experience (7). In practice, however, a
ideas,
number of important questions remain, including:

— how lifelong learning can become an ‘umbrella’

for all

learning processes (formal and informal);

(3) On the definition see SEC(2000) 1832 (Memorandum on lifelong
learning) and COM(2001) 678 final (Making a European area of life-
long learning a reality).
(4) COM (2001) 678 final.
(5) On the definition see SEC(2000) 1832 and the Communication
‘Towards a Europe of

from the European Commission (1997)
knowledge’.

(6) COM(2004) 156 final.
(7) Cf.

relevant CEDEFOP publications under

the general heading
‘Getting to work on lifelong learning’ (www.trainingvillage.gr) and
relevant ETF studies and reports on the situation in the new
Member States and candidate states (www.etf.eu.int).

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— how it can be linked with the building of a knowledge-

based society and economy;

— how it can be linked with sustainable development and the

contemporary challenges of globalisation;

— more particularly, how it can become an instrument of

local productive, social and cultural development;

— how a European area of lifelong learning can be developed;

— how its various results can be capitalised on and validated;

— finally, how it can be financed.

3.5.2
In the context of attempts to legislate for lifelong
learning, as presented above, there is an effort to define a new
division of roles and responsibilities, and a new framework for
cooperation at all levels - particularly at local level where, with
a view to achieving the Lisbon goals, there is a clear need for
vigorous cooperation between the public authorities, the social
partners and civil society in general.

training’ (4). The Copenhagen decisions of 2002 mark a qualita-
titive forward step in the further development of this policy,
which also works towards consistency and synergy with the
Lisbon agenda on general education and vocational training by
2010 (5). The Joint
the Council and the
interim report of
Commission on the implementation of
the detailed work
programme on the follow-up of the objectives of education and
training systems in Europe (April 2004) (6) is another step in
the same positive direction.

4.1.1
The European agencies CEDEFOP and ETF support the
development of vocational education and training in a specific
way. In particular they contribute to the implementation of
European vocational training policy guidelines by outlining,
disseminating and exchanging information, experience and
examples of good practice, through commissioned studies and
reports and through the preparation and analysis of relevant
research work and accounts of practical experience. The Euro-
pean information network Eurydice (7) links up the systems and
players of the general education systems in a similar way.
These three organisations work together in constructive coop-
eration, the extent of which is constantly increasing with the
growing importance of lifelong learning, which brings with it
increasing cooperation and integration between general and
vocational education and training.

3.6
In formal terms, according to the Commission, produc-
tivity of work (1) signifies the amount of work needed for the
production of a specific unit. From a macro-economic stand-
point, productivity of work is measured by the Gross Domestic
Product (GDP) of a country per active member of the popula-
tion (2). Increasing productivity is the most important source of
economic growth (3).

The Leonardo da Vinci programme (8) is intended to
4.1.2
implement the Union's policy in the field of vocational training.
It contributes ‘to the promotion of a Europe of knowledge by devel-
oping a European area of cooperation in the field of education and
vocational training’ and supports ‘Member States' policies on life-
long learning and the building up of the knowledge and skills and
competences likely to foster active citizenship and employability’ (9).
The Member States are responsible for carrying out
the
programme.

4. The vocational training policy of the European Union

The Union ‘shall

4.1
training policy
which shall support and complement the action of the Member
States, while fully respecting the responsibility of the Member
vocational
States

and organisation of

implement a vocational

content

the

for

(1) See SCADPlus: Productivity: the key to the competitiveness of Euro-
pean economies and enterprises. Apart from the term ‘productivity
of work’ other relevant terms are also used, with slightly different
meanings. They include: productivity of the economy, productivity
of
individual productivity,
productivity of capital etc.

the enterprise, national productivity,

(2) See COM(2002) 262 final (Summary) and SCADPlus: Productivity:
the key to the competitiveness of European economies and enter-
prises.

(3) Cf. COM(2002) 262 final (Summary) and SCADPlus: Productivity:
the key to the competitiveness of European economies and enter-
prises.

4.1.3
In the context of the development and implementation
of lifelong learning, special attention should also be paid to the
‘Grundtvig’ action in the current Socrates
II programme,
concerned with promoting an integrated educational approach
over the whole spectrum of adult education (10).

(4) Article III-183 of the Draft Constitution. The Union's responsibilities
with regard to vocational training are determined by the phrase
‘The Union shall implement a vocational training policy’. With
regard to education, they are determined by the phrase ‘The Union
shall contribute to the development of quality education ...’.
(5) http://europa.eu.int/comm/education/copenhagen/copenhagen_de-

claration_en.pdf

(6) See ‘Education and training 2010: KEY MESSAGES FROM THE
EUROPEAN

COUNCIL AND THE COMMISSION TO THE
COUNCIL’ (2004/C 104/01).

(7) www.eurydice.org
(8) Earlier vocational training programmes were Comett (1986-1989
and 1990-1994), Iris (1988-1993 and 1994-1998), Petra (1988-
1991 and 1992-1994), Eurotecnet and Force.

(9) Article 1(3) of the Council Decision on a European Community
(Leonardo da Vinci
action programme

training

vocational
programme).

(10) http://europa.eu.int/comm/education/programmes/socrates/

grundtvig/overview_en.html

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4.2
The national general and vocational education and
training systems were structured and developed essentially to
meet the specific needs created over time and on a case-by-case
basis by the labour market. As a result their development
followed cycles of intensification and slowing corresponding to
those of that market. For the same reason, there are significant
differences among them. These differences are now giving rise
to problems of coordination, assimilation of relevant best prac-
tice and mutual comprehension of the terms and concepts used
in each case.

lifelong learning. It is clear that the present systems, together
with their learning processes and results, do not meet the
requirements either quantitatively or qualitatively. This overall
judgment does not exclude the possibility of exceptions in
specific branches and contexts where there are high-quality,
effective continuing vocational
training opportunities. One
example could be courses organised within a specific enterprise
to cover its specific needs; another could be sectoral training
opportunities (4), which have been developed by the European
social partners or in cooperation with them.

4.3
The expenditure of the European Union on vocational
training amounts in 2004 to EUR 194 533 900, of which EUR
163 million for the Leonardo da Vinci programme. In compar-
ison, the expenditure on culture of all kinds and levels except
education and training amounts to EUR 268 848 500; the total
budget of the Directorate-General for Education and Culture is
EUR 783 770 054, out of a total Community budget of EUR
92 370 071 153 (1).

4.3.1
This modest budget allocation in comparison with the
economic and political importance of vocational education and
training is reflected at Member State level. There is general
agreement among the leading players at all levels of decision-
making that the total funds available for the education and
training sector are inadequate for achieving the objectives set.

it should be pointed out that the average
4.4 Moreover,
percentage of EU citizens undergoing continuing vocational
training is low (8,4 %) (2). The Union's objective for 2010 is to
raise this percentage to 12,5 % of the potential active popula-
tion (25-64 age group) (3).

4.5
Efficient, forward-looking continuing vocational training
is an integral part of the successful practical implementation of

(1) The budget of the Directorate-General for Education and Culture
amounts to 0,85 % of the Union's total budget. The amounts allo-
cated for training account for 0,25 % of the budget of the Directo-
rate-General for Education and Culture and for 0,002 % (0,003 for
education of all other types and levels) of the Union's total budget
(all the figures are derived from or based on the General Budget of
the Union for 2004).

(2) In a relevant Eurostat survey (CVTS 2/Data 1999/EDITION 2002)
extremely important comments are made on the quantitative and
qualitative elements of training at sectoral
in a sample of
Member States.

level

(3) The original Commission proposal read as follows: ‘By 2010, the EU
average level of participation in lifelong learning should be at least 15 %
of the adult working age population (25-64 age group) and in no country
should it be lower than 10 %.’ This proposal was finally amended by
the Council on 5 May 2003 as described above (source: http://euro-
pa.eu.int/scadplus/leg/en/cha/c11064.htm).

5. The European Union's policy on raising productivity

5.1
All the data from relevant European Commission studies
in recent years show that developments in the field of produc-
tivity are negative for the Union. ‘During the second half of the
1990s, and following a period of substantial slowdown, the United
States saw an acceleration in both labour productivity growth (from
an average of 1,2 % in the period 1990-95 to 1,9 % in the period
1995-2001) and in employment growth (from 0,9 % to 1,3 %). In
the EU, growth in labour productivity slowed down (from an average
of 1,9 % in the first half of the decade to 1,2 % in the period 1995-
2001) but employment growth picked up considerably (from a decline
of 0,6 % in the first half of the decade to 1,2 % in the period 1995-
2001’ (5).

5.2
It is clear that there are considerable differences between
the productivity rates of individual EU Member States. The
European Commission, in its Communication entitled Produc-
tivity: the key to the competitiveness of European economies and enter-
prises (6), endeavours to show the causes and effects which this
situation can have on the Lisbon objectives. After identifying
and explaining the considerable differences between Member
States in this respect, the Communication points out that:‘Eco-
nomic growth will increase only if productivity rises. Improvements in
enterprise productivity depend heavily on progress in ICT and innova-
tion, and a labour force better adapted to the needs of industry’ (7).

(4) Training at sectoral level appears to be of particular importance for
acquiring international skills and competences. The players at this
level are close to the problems and challenges arising from globali-
sation and the development of new technologies, and are in a good
position to propose and develop solutions (Leonardo da Vinci –
EAC/11/04, III).

(5) COM(2002) 262 final, point 2 (second paragraph)
(6) COM (2002) 262 final
(7) Cf.

http://europa.eu.int/scadplus/leg/en/lvb/n26027.htm (Conclu-

sions).

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5.3
The EESC believes that greater productivity in the Union
is the key to its overall future. It also considers that all attempts
to increase productivity must take place within the framework
and with the support of the European social model. Such
efforts must be directed towards, and embraced by, all Euro-
pean citizens, they must be geared to medium- and long-term
development, be systematic and be determined by a knowl-
edge-based policy and action mix. Lastly, the Committee is
convinced that cooperation between the social partners and,
more widely, civil society and the public authorities – especially
at local level – has a vital role to play in carrying out these
measures.

6. The relationship between training and productivity

must also be examined and linked collectively, even if at
first sight problems seem to be individual.

— In any case, support from the Union for those of its regions
which are lagging behind in developing modern forms of
training, and in particular for the new Member States, is
highly important.

6.2
Against this backdrop, the systems and initiatives of
initial vocational education and training, and even more conti-
nuing vocational education and training/professional develop-
ment, should be developed to operate more efficiently than in
today's circumstances (4).

6.2.1
The creation today of a modern system for updating
knowledge, skills and qualifications requires an unprecedented
targets, operational
combination of guidelines, knowledge,
framework and incentives. More specifically, the following are
necessary:

6.1 More generally, in the EESC's view, the following must
be clarified with regard to the particular issue in question:

— familiarisation with the new global dimensions (including
technological, cultural and demo-

planning, economic,
graphic aspects);

— Productivity is influenced decisively, albeit

in part, by
knowledge: ‘Issues such as level of investments, workplace orga-
nisation, participation policies, the creation of innovation-stimu-
lating working milieus, new forms for university-enterprise coop-
eration, new forms for making available risk capital should be
part of a wider approach towards productivity growth in the Euro-
pean Union.’ (1). Productivity growth is
therefore not
achieved simply by improving the training system.

— In today's circumstances, training can effectively influence
productivity – and hence competitiveness and the achieve-
ment of the Lisbon objectives - to the extent that it is part
of a wider and general framework of education policy (2).
This wider framework must include a basic but nonetheless
operational
internal communication system (at regional,
national and Community level), must consider all forms of
education and training as
lifelong
sub-components of
in terms of objectives and content,
learning and, finally,
must be structured and geared towards an environment
characterised by a high degree of multi-dimensional mobi-
lity (3).

— Productivity and training must be examined and linked at
all levels including the workplace level where most of the
decisions on financing and access to CVT are taken. They

(1) See point 4.4 of opinion OJ C 85 of 8.4.2003 (Sirkeinen-

Ehnmark).

— sound general and specialist knowledge geared to the ratio-
nale and way of working of the global market and the new
forms of global political and economic governance;

— sensitivity to the needs and demands of society and the
through the development of

knowledge-based economy,
innovative, attractive and flexible programmes;

— awareness of the new fault lines revealed by the new global
production system and the need to develop counter-
measures to overcome them;

— redefinition of the form and structure of competition as a
path to mobility and innovation both within and beyond
the Union;

— redefinition of the incentives to take part in training, in par-
ticular by specifying how the added value generated by
training should be distributed;

— awareness of

the three dimensions of

the concept of
sustainability and its advancement in personal and collective
life. (5)

(2) See OJ C 311 of 7.11.2001 – in particular point 3.4.1. (Koryfidis –

Rodriguez Garcia Caro – Rupp).

(3) The main problem of European vocational education and training
systems today is that they do not reflect the current climate: while
the latter is extremely mobile, the former operate as a rule as if in
conditions of dead calm.

(4) For further details, see: Eurostat, Continuing vocational training
survey (CVTS2) Data 1999. See also the data in the Joint interim
report of the Council and the Commission on the implementation
of the detailed work programme on the follow-up of the objectives
of education and training systems in Europe (2004/C 104/01).

(5) See point 7.2.3.

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6.2.2
The conditions mentioned above cannot be met in all
forms and types of vocational training, whether continuing or
not. They form a part of systematic education measures (1),
influenced by several aspects and designed (learning + teaching)
to lead in the longer term to a culture of education (sociali-
sation)
in which knowledge appears as a driving force of
progress and synergy appears as an effective force for sustain-
able development.

emerging specialities or broader social and interpersonal
skills.

— Coordination: coordination of systems,

in many Member
States, encounters problems. This means that each distinct
continuing vocational education and training system oper-
ates in isolation from the rest of the education system, from
its counterparts in the European Union and, of course, in
complete isolation from the surrounding economic and
social situation.

6.3
In the Committee's view, a reasonable response to the
first two questions posed by the Dutch Presidency would be
the following:

6.3.2 Moreover, there are a number of gaps in strategic
aims, means and educational practices which paralyse European
educational and training systems. More specifically, these are:

— the practical implementation of lifelong learning should be
pursued without delay, at all responsible levels of policy
and practice;

6.3.1 With the present nature and mode of operation, Euro-
pean vocational training systems at the initial stage and conti-
nuing training have difficulties meeting the requirements of the
knowledge society and sustainable economic development.
Some of the particular problems these systems face include:

— stronger social cohesion and more mobility are prime Euro-
pean educational goals and should be given corresponding
priority in practical
implementation by the responsible
bodies and players;

— General orientation: these systems have been and continue
to be largely geared to resolving particular problems of an
economic environment with little mobility.

— Level of action: in view of this general orientation, Euro-
pean vocational education and training systems must better
integrate the particular into the general as part of a vision
of the whole, as the globalisation of the economy now
requires.

— System mobility: the orientation and level of action of
these systems partially hampers all types of mobility, either
internal or external, in terms of circulating new ideas, devel-
oping networks, fostering innovation and shaping policies
responding to real problems.

— Contact with contemporary knowledge: regardless of the
receptiveness and flexibility of individual training staff, the
aforementioned systems continue as a rule to be exempt
from any obligation to take on board developments in the
scientific, technological, productive or any other field.

— Contact with developments in the labour market: educa-
tion and training systems fail to meet the needs of the
labour market as they rarely include certain of the newly-

(1) See opinion – Appendix.

— in many training courses

the practical application is

lacking, and employability suffers as a result;

— the content of training courses is often geared too closely
to short-term market situations and hence leads in the long
term to mistakes concerning labour market requirements;

— very serious barriers to mobility between the Member
States persist because of incompatible training certificates
and qualifications and insufficient knowledge of
foreign
languages.

7. Problems and assessments in the struggle for European

productivity

These observations lead to the very serious assessment
7.1
that efforts for productivity in Europe have concentrated on
the wrong area and timescale. They should have focused on
basic education and training, for the acquisition of key compe-
tences (2) while maintaining similar
emphasis on lifelong
learning (3), as defined above (point 3.5).

(2) Key/core competences: the sets of skills which are complementary to
basic and generic skills and which enable individuals to acquire new
qualifications more easily, to adapt to changing technological or
organisational contexts, and/or to achieve mobility on the labour
market, including by means of career development (source: Second
report on vocational
training research in Europe – executive
summary – CEDEFOP publication)

(3) The European Council of 25/26 March 2004 includes the following
in its Conclusions (point 39):
life long
learning has positive effects on productivity and labour supply; it
supports the adoption of an integrated EU programme during 2005
and the putting in place of national strategies in all Member States
by 2006.’

‘It also recognises that

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7.2
The following proposals consequently refer to educa-
tional activities in their entirety – regardless of where responsi-
bility for them lies – and form part of a single approach,
requiring a major coordinated campaign to bring all European
general and vocational educational and training systems into
line with present-day European and worldwide conditions as
quickly as possible. More specifically,
the following are
proposed:

7.2.2.3 What they can offer is alternative forms and best
practices for familiarising European general and vocational
education and training systems with the new conditions and, in
particular, pilot applications and innovative schemes to gear
educational systems to the Lisbon objectives, to other major
Union aims, and to methods for approaching, seeking, high-
lighting and exploiting the new, valid global knowledge.

7.2.1
A more all-embracing and critical new approach to
the structures and interrelation of European general and
educational and training systems. This new
vocational
approach will
favour the development of a better level of
communication and cooperation between the sub-systems of
the various forms of education so that they can respond effec-
tively to the challenges of globalisation and the mobility which
it generates. It will be determined by an awareness of Europe's
role as a global partner in the new forms of global political and
economic governance.

It is strongly emphasised that the new approach
7.2.1.1
must not damage the classical humanist dimension of the Euro-
pean educational and cultural identity. On the contrary, it must
cultivate and promote that dimension.

7.2.1.2
In the context of this critical new approach, voca-
tional training should neither acquire independent importance
nor, of course, be dealt with in isolation. Like the related
training fields, non-formal and informal learning processes, it
will need to be embedded in an integrated lifelong learning
network. This would be a system which meets citizens' need
and demand for general and vocational education and training
and is directly and unrestrictedly linked with the great aim of
sustainable development.

7.2.2
The EESC has a second position regarding the Euro-
pean perspective and participation in the above process of
critical review of the new structures and interrelation of Euro-
pean general and vocational education and training systems.

The EESC considers that the scale of the problems,
7.2.2.1
their urgency and, in particular, the considerable cost of resol-
ving them, require immediate steps and research at European
level.

7.2.2.2
The aim of such steps and research should certainly
not be any type of Union intervention concerning existing
structures in European general and vocational education and
training systems: their diversity is a source of inestimable rich-
ness which should be boosted.

7.2.2.4
In this context, and in particular with regard to
productivity and what flows from it, the Union has a role, as
always on the basis of the acquis communautaire – a role which
it must emphasise and promote, especially at local and regional
level.

7.2.2.5
There is a further and highly significant dimension
to the Union's participation in the critical review of the new
structures and interrelation of European general and vocational
education and training systems. It can substantially reduce the
economic costs involved by seeking, identifying and promoting
relevant new and best practices, on behalf of and in coopera-
tion with the Member States. Lastly, by using the open method
of coordination, it can also inject greater mobility and dyna-
mism into the entire effort in order to achieve the common
goals.

7.2.3
The EESC's third position concerns the way in which
the learning process, of whatever type, can be tied in with the
sustainability of economic, social and environmental policies.
This EESC position is the most complex and at the same time
the most tangible. It is underpinned by relevant experience and
can be considered as best practice (1).

This position is based on the principle that difficult
7.2.3.1
problems,
survival and sustainable development,
such as
productivity, competitiveness or the realisation of the knowl-
edge society cannot be resolved at a distance from everyday
reality, with isolated steps or choices from above. Nor can they
be settled as individual problems with fragmentary actions.
They are to be resolved by society,
through integrated
approaches and committed individual and collective involve-
ment. This is why the EESC's central proposal on the ‘how’ of
productivity points beyond the European, national and sectoral
level to the local level, integrated policies for sustainable devel-
opment and vigorous reinforcement of all forms of cooperation
between the social partners (2) and, more broadly, between
organised civil society and local authorities, in order to achieve
common objectives (3).

(1) For further details, see the attached action plan for a local multi-
purpose centre for learning, sustainable development and education.
(2) A typical positive example is the priorities set by the social partners
at European level in March 2002, in the context of their efforts to
promote the lifelong development of skills and qualifications, which
should be supported.

(3) The European Council of 25/26 March 2004 includes the following
in its Conclusions (point 43):‘Support and advocacy for change
must reach beyond Governments. In order to generate this support,
the European Council calls on Member States to build Reform Part-
nerships involving the social partners, civil society and the public
authorities,
in accordance with national arrangements and tradi-
tions.’

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7.2.3.2
The proposal highlights knowledge, know-how and
innovation as a coherent subject for cooperation and for joint
objectives, representing an aim of central importance.

8. Allocation of responsibilities and the question of finan-

cing

The incentives of individual and corporate sustain-
7.2.3.3
ability, familiarity with current activities at world level and,
very importantly, mutual support for individual and collective
developmental efforts, are suggested as a driving force to
ensure that the proposal is workable.

7.2.3.4
The ideal tool for developing the proposal would be
the establishment of lifelong learning – an institution which
can be developed outside the existing rigidities of national
education and training systems, and free of any polarisations of
the kind created by the very nature of the internal competitive
productive system.

7.2.3.5
In any case, and regardless of the services which life-
long learning may offer now or in the future as a comprehen-
sive learning and educational system, a system of pressures and
incentives (political and social) must be created immediately so
that European educational and training systems can go on (1) to
bring their own objectives into line with the Lisbon objectives.
These objectives
in particular, be geared to the
following:

should,

— the needs of

the knowledge-based economy,

the new

economy and a globalised market;

8.1
The allocation of responsibilities as part of a multilat-
eral process to achieve common objectives – especially in the
context of globalisation – is a complex issue involving both
objective and subjective factors. These include:

— the recognition and acceptance by the parties involved of

the operational framework;

— the recognition and acceptance of the common objectives

and the need to achieve them;

— conditions affecting progress to achievement and balance in

the process;

— incentives for achieving the specific objectives;

— the chances of the success of the entire project.

8.1.1
Against this backdrop, the participation of individuals,
groups of individuals, enterprises or local communities in a
process of
initial or continuing vocational education and
training – and even more of lifelong learning - depends on clar-
ification of aims, means and incentives. The ensuing responsi-
bilities do not therefore fall only to the players in the field of
education and training. They also have political and social
repercussions, and may be allocated as follows:

— the needs of the labour market, as determined and devel-
oped under the influence of the sciences and technological
options;

— the need to foster enterprise, a productive collective spirit,
and social acceptance and accomplishment of innovation in
general, and innovative productive activities in particular.

8.1.1.1
The political responsibilities concern in principle
the creation of a smooth and transparent operating framework
with regard to the conditions and limits of economic, social or
any other form of operation. The development of relevant
preventive policies, the reinforcement of selected forms of poli-
tical and economic governance and the financing of such poli-
cies fall within the scope of political responsibilities.

7.2.3.6
These above incentives should create a favourable
and attractive climate for training and lifelong learning. A
climate produced with the specific support of cooperation
between educational
institutions and, most of all, between
educational
institutions, companies, civil society and local
authorities in promoting procedures and actions matching the
Lisbon objectives.

(1) For more details, see a relevant study by the Federation of Greek
Industries on the requirements of enterprises for the 2005-2007
period, which was unveiled in June (http://www.fgi.org.gr).

8.1.1.2
The responsibilities of civil society, the social part-
ners and local and regional authorities in promoting a
comprehensive policy of lifelong learning, are also considerable.
This basically concerns responsibilities regarding the populari-
sation of aims, ways and means for the creation of a learning
environment.
for devising
specific types of cooperation and the necessary all-embracing
actions. Lastly, it concerns responsibilities for formulating and
ensuring incentives for participation in selected policies and
actions, jointly agreed on a case-by-case basis.

It also concerns

responsibilities

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8.1.1.3
Corporate responsibilities have an economic and a
social aspect. It is the task of companies to define the condi-
tions and limits of their feasibility. Companies should also
constantly weigh up their requirements in terms of skills and
knowledge by conducting specialised training programmes,
both individually and in cooperation with other nearby produ-
cers. This applies of course in particular to SMEs, who enjoy a
closer link with their operating environment and are obliged to
seek the advice and support of the social and economic envir-
onment in which they operate, since it is difficult for them to
carry out complete educational actions by themselves. This
point also illustrates the corporate social responsibility aspect.
This dimension is all the more important in the context of
economic globalisation,
in terms of both the viability of
companies themselves and of their social environment.

8.1.1.4
Lastly, individuals bear a range of responsibilities
regarding their involvement in a lifelong learning process. They
affect changes in points of view, ways of looking at present
events and facts,
in links with learning and knowledge and
changes to the way of life as a whole and to the way free time
is organised and used. In consequence, and particularly in the
case of older working people, the responsibilities for them to
take part in lifelong learning processes must be accompanied
by specific obligations and more substantial
incentives. This
combination of obligations certainly includes the use by indivi-
duals of their free time, as well as their share of the added
value created by innovation and the new technologies.

the company with the aim of providing skills specifically useful
to that enterprise. Companies need to provide continuous
training for their workers so that they can meet the challenge
of technological and organisational modernisation and the need
for expansion. To this end, both the companies and the
workers must be helped and strengthened through incentives
agreed and proposed by the social partners. Such incentives
have already been referred to by the social partners in the
2004 second joint report on follow-up, in the context of efforts
to promote lifelong development of skills and qualifications.
The second point of the first chapter of that report reads:
‘National reports illustrate the variety of instruments used by
social partners in order to mobilise resources to promote effi-
cient
in the lifelong competence development.
Some instruments are put in place in cooperation with public
authorities, be they European or national (use of EU funds, tax
incentives, creation of new funds, etc.). Some instruments are
resourcing of
more specifically geared towards
competence development’.

investment

individual

At all events,

8.2.2.2
investments in competition-related
learning and knowledge acquisition should be seen in the
context of long-term productive partnerships between local,
regional, national and sectoral players and bodies. Such invest-
ments are not confined to support for public spending, but
bring in a range of resources of varied origin. Taken together
all resource applications, expenditure and activities contribute
to the long-term process of improving skills.

The question of financing of training and, most of all,

8.2
the financing of lifelong learning is also complex.

8.2.1
Under Article 14 of the European Union's Charter of
Fundamental Rights, every citizen of the Union has ‘the right to
education and to have access to vocational continuing training’.
It must therefore be a public task – for all levels and bodies
collectively – to create the preconditions for safeguarding these
rights. Guaranteeing the necessary funds is an essential part of
this task.

The fundamental public education task, which also
8.2.3
applies in the vocational training field, also calls for a differen-
tiated, case-by-case approach. First of all, certain EU regions
and population groups need special economic support, and
secondly certain sectors and industrial branches – not least
SMEs – deserve special attention.

Bodies which fund training at all

8.2.3.1
levels should
regard it as important to favour innovation and to develop a
heightened sensitivity to operational realities – particularly
where SMEs are concerned.

However, beyond this state obligation,

8.2.2
the driving
force for viability will in general come fundamentally from the
competitiveness of
the economy – especially towards the
exterior – and from the cooperation built up in this connec-
tion.

Such a case-by-case approach to the funding of life-
8.2.3.2
long learning in practice should of course respect transparency
and start at
i.e. with the cooperation and
consent of the social partners and civil society.

the right

level,

8.2.2.1
Public responsibility for the funding of education in
no way excludes the joint responsibility of employers and
companies. This joint responsibility does not relate generally to
the field of vocational training, nor to qualification and conti-
nuing training courses, but to training courses offered within

The EESC emphasises

8.2.4
the urgent need for more
rational distribution of resources in connection with the finan-
cing of training and lifelong learning. This applies both to the
way such resources are allocated and to their impact as invest-
ments.

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8.2.4.1
The EESC proposes that a high-level
drawn up, based on relevant research, and including:

report be

economic globalisation and contemporary technological
progress;

— a list of financial resources and means for training and life-

long learning at all levels;

— an assessment of their level of quality;

— Acceptance of cooperation at

level between local
administrations and organised civil society as the basis for
tackling the operational problems thrown up by new condi-
tions and for the joint achievement of agreed specific and
realistic objectives for sustainable development;

local

— an assessment of how they tie in with official school

systems;

— analyses and comparisons of their impact as investments.

— Use of the institution of lifelong learning as a tool for
sustainable development (in economic, social and environ-
mental
for creating and
acquiring reliable global knowledge;

terms), and as an instrument

8.2.4.2
This research would also serve to reveal issues which
are at present hidden. It would also certainly reveal instances of
good practice, which could lead to a roadmap of general guide-
lines for the development of training from now on, with the
consistent aim of a comprehensive system of lifelong learning.

— To this end, the foundation and operation of a Multifunc-
tional Centre for Learning, Sustainable Development and
Education, in appropriate cases.

9. An example of best practice: a comprehensive process

of sustainable development at local level

10. Recommendations

ADEDY – a third-level

the European social model

trade union of Greek civil
9.1
servants – recently conducted a programme on lifelong
learning, entitled ‘Lifelong learning as an individual right in the
for the 21st century’. The
context of
programme, which was co-funded by DG Education and
Culture, took place over a two-year period and was completed
in January 2004, and was implemented across a sample of
three geographically diverse regional administrations in Greece
(Kozani, Kalamata/Messinia and Khalkida/Evvia).

The initiative set out

9.2
to increase the awareness of
regional trade union officials and, more generally, of regional
members of civil society organisations and local authorities,
regarding the need to forge local
forms of cooperation in
working towards the Lisbon objectives, with lifelong learning
as the means for bringing this about.

the productivity problem today,

10.1
The EESC, in the context of its more general view of
its under-
the essence of
standing of the limits of education and training, but also its
awareness of what is feasible at present, would point out the
following to the Dutch Presidency with regard to continuing
training:

In theory continuing training is intended for adults.
10.1.1
Up to only a few years ago it successfully covered the needs for
simple skills, at times and in sectors where related technological
developments were taking place. This explains why this form
of training has developed more in the secondary sector of
production.

9.3
Regarding the results of the initiative, common frame-
works for action (1) were decided unanimously in all three
cases, with the following main features:

— Recognition of the new political, technological, social and
cultural operating framework being forged day-by-day by

(1) The last framework for action, from the Evvia (Khalkida) region,
appears in appendix (available in Greek and English only). The other
two frameworks are of similar content.

10.1.2
In the present economic situation technological and
other developments are moving at a faster pace, clearly have
greater scope, and above all are more all-encompassing. Moni-
toring and assimilating them require not just skills, but capaci-
ties (2). As a result continuing training as provided today is an
inadequate and perhaps ineffectual enterprise. It attempts some-
thing inappropriate to it and which cannot be satisfactory.

(2) Capacity: the proven ability of a person to make the most of his or
her know-how, skills, qualifications or knowledge so as to manage
successfully both familiar and new vocational situations and require-
ments (source: Second report on vocational training research in
Europe – executive summary – CEDEFOP publication)

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In parallel with the pace of technological develop-
10.1.3
ments,
their scope has created training requirements of a
modern nature for workers of a much broader age range and
in all production sectors. There has been an attempt to meet
these requirements in part through training practices of earlier
times, but without much result because they did not satisfy
objective modern needs. An exception to this has been certain
efforts by the social partners at sectoral level.

responsibilities can make suggestions for forward-looking reforms
of national vocational training systems, taking into account the
promotion of
the above
programme must be to support the European dimension of life-
long learning and to link basic vocational education with the need
for constant updating of knowledge;

employability; a central aim of

This,

then,

10.1.4
is the point reached with continuing
training in Europe at present: a point where it is in great need
of development and where this need cannot be met for reasons
of infrastructure, culture and/or lack of relevant best practice
and experience.

10.1.5
approach to:

Tackling the above situation presupposes a new

— what continuing training means today;

— whom it concerns (age groups and sectors);

— how it can be developed more effectively;

— how it can be financed.

The replies to the first two questions are of a theo-
10.1.5.1
retical kind and have already been answered in the context of
lifelong learning and the objective of a
the Lisbon Agenda,
knowledge-based society and economy. However,
the third
question has not yet been answered. The European Council (1)
repeatedly took decisions intended to create the necessary
mobilisation to fulfil the relevant – in some cases detailed –
commitments, but without significant results.

10.1.6
The Europe-wide networking of many enterprises
and the mobility of workers call for a European dimension in
vocational policy. Despite all the differences in their educa-
tional systems, the EU Member States must regard themselves
as forming a ‘training area’. The following points are of particu-
lar importance to the EESC:

— inclusion of continuing training as a post-school learning proce-
dure in an integrated EU programme of
lifelong learning for
immediate application (2), against the background of the formula-
tion of European training objectives, which while respecting

(1) A typical sentence is found in point 10 of the Conclusions of the
25 and 26 March 2004 meeting: ‘The European Council agrees that
the critical
issue now is the need for better implementation of
commitments already made.’

‘It also recognises that

(2) The Conclusions of the same European Council meeting include this
life long learning has positive
position:
effects on productivity and labour supply; it supports the adoption
of an integrated EU programme during 2005 and the putting in
place of national strategies in all Member States by 2006.’

— operational and creative linkage and inclusion of the said
programme in the pursuit of the major objective of sustain-
able development;

— making this link as decentralised and individualised as
in the context of European guidelines, relevant
possible,
national strategies and, above all, of cooperation between
civil society and the public authorities as well as with the
whole educational world;

— making the greatest possible use, to this end, of the social
partners and especially of the relevant cooperation agree-
ments between them at the European, national, local and
sectoral level;

— strengthening and making the most of relevant cooperation,
at the essentially local level, between the public authorities
and civil society;

— gearing the content of training courses both to assumed
labour market requirements and to making the training
content is as broad as possible;

— making lifelong learning easier by defining the educational
objective of learning qualifications; these are the best guar-
antee of employability;

— greater communication of economic knowledge as early as
the secondary schooling level, and education producing
well-rounded personalities,
and especially in personal
responsibility, critical faculty and self-reliance;

— enhancing employability through apprenticeship (practically

relevant learning e.g. in enterprises);

— the learning of foreign languages to facilitate mobility and
exchange between Member States should be intensified at
all levels;

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— the specific training of human resources staff, especially of
older staff, with a view to good leadership of the firm and
workers by setting up initial and continuing training plans
in the firm;

10.1.8
In the EESC's view the more difficult problems in
implementing the above proposal concern funding and making
the local forces (public authorities and civil society) operation-
ally available.

— greater efforts to harmonise, and ensure mutual recognition
of, vocational training certificates and vocational qualifica-
tions.

10.1.7
The above perspective of strengthened European
educational cooperation to deal in an overall and unified way
with the delay which exists in the approach to the Lisbon goals
presupposes the following specific political choices:

— sufficient resources to cover the range of different workers

and the depth of the training that would be involved;

— finding the necessary teaching staff on a European scale;

— shaping a modern learning framework and environment;

— awareness, active presence and participation of administra-
tions at all levels, the social partners and civil society in
general;

— clearer definition of the roles and responsibilities attaching
to any beneficiaries of
their
suppliers, and the arrangements for monitoring all initia-
tives at local, national and European level;

educational

initiatives,

— and lastly,

intensive mobilisation to promote the whole
initiative and the implications of its content and objectives.

Brussels, 28 October 2004.

10.1.8.1
In an earlier opinion, the EESC stated that ‘Invest-
ments of European interest designed to achieve the objectives set in
Lisbon should be
the public
deficit’ (1). In the above context, the funds allocated for lifelong
learning would in the EESC's view have a positive effect both
on the construction of a knowledge-based Europe and on the
promotion of sustainable development.

excluded from the

calculation of

Transferring the focal point of lifelong learning and
10.1.8.2
sustainable development to the local level would liberate new
energies, create greater mobilisation and make the whole
process more transparent.

A more concerted, comprehensive and effective
10.1.8.3
procedure for shaping, promoting and monitoring the imple-
mentation and effectiveness of European decisions on education
would pave the way for dramatic progress in making up the
ground the Union has lost in terms of productivity and in
achieving the Lisbon objectives.

10.1.8.4
Lastly, greater use and better coordination of the
conventional arenas of educational activity – family, school and
work – would boost such progress. A boost of this kind is
absolutely essential to attaining the major challenge of making
the Union the most dynamic knowledge-based economy in the
world by 2010.

The President

of the European Economic and Social Committee

Anne-Marie SIGMUND

(1) See point 5 of opinion OJ C 110 of 30.4.2004 (rapporteur: Ms

Florio).