Opinion of the European Economic and Social Committee on the Proposal for a Decision of the European Parliament and of the Council establishing an integrated action programme in the field of lifelong learning (COM(2004) 474 final — 2004/0153 (COD))
Date: 2005-02-10
Institutions: European Economic and Social Committee
Subjects: EU office or agency, EU programme, action programme, continuing vocational training, education

C 221/134

EN

Official Journal of the European Union

8.9.2005

Opinion of the European Economic and Social Committee on the Proposal for a Decision of the
European Parliament and of the Council establishing an integrated action programme in the field
of lifelong learning

(COM(2004) 474 final — 2004/0153 (COD))

(2005/C 221/22)

On 9 September 2004 the Council decided to consult the European Economic and Social Committee,
under Article 149(4) of
the Treaty establishing the European Community, on the abovementioned
proposal.

The Section for Employment, Social Affairs and Citizenship, which was responsible for preparing the
Committee's work on the subject, adopted its opinion on 20 January 2005. The rapporteur was
Mr Koryfidis.

At its 414th plenary session held on 9 and 10 February 2005 (meeting of 10 February), the European
Economic and Social Committee adopted the following opinion by 107 votes to 2 with no abstentions.

1. Introduction

2. The Commission proposal

1.1
After a lengthy process of research, preparations and
consultations (1), the Commission has presented its proposal
establishing an integrated action programme in the field of lifelong
learning.

The

European

1.2
Social Committee
welcomes this development and points out that the purpose of
the ideas set out in the present opinion is to make the Commis-
sion's proposal more effective and practical.

Economic

and

1.3
The EESC's view of the Commission's proposal is there-
fore determined mainly by the knowledge and experience it
provides in connection with:

the delay in achieving the Lisbon objectives;

the delay in matching education and training with produc-
tivity (2);

2.1
The Commission's proposal (COM(2004) 474 final) aims
at a restructuring of existing education programmes. According
to the proposal, this restructuring responds in particular to
four factors:

— to changes across the EU whereby education and training
systems are becoming increasingly integrated in a lifelong
learning context (…);

— to the increasingly important

role for education and
training in creating a competitive and dynamic knowledge-
based economy in Europe (…);

the demographic situation in Europe; and

— to the need to reinforce the strengths of programmes and

address the discontinuities and lack of synergy (…);

the discussions which have recently developed at European and
national level to find solutions to these problems (3).

(1) The main stages in this long process are listed in the Appendix.
(2) OJ C 120 of 20.5.2005.
(3) It should be noted that considerable momentum has been built up
in seeking solutions to the Union's current key problems, such as
the Lisbon objectives (employment, knowledge-based economy,
sustainable development, etc.). Life-long learning, and the need to
put it on an institutional footing, represent a common denominator
in all the approaches to resolve such problems. This momentum
includes the initiatives taken by the Dutch Presidency, in coopera-
tion with the European Commission, on the links between training
and productivity and on strengthening European cooperation on
vocational training, together with the Kok Report on the mid-term
review of the Lisbon strategy in March 2005 ( http://europa.eu.int/
comm/lisbon_strategy/pdf/2004-1866-EN-complet.pdf).

— to the need to simplify and rationalise Community legisla-
tive instruments by creating an integrated framework
within which a wide variety of activities can be funded.

2.2
The proposal is based on the existing Socrates, Leonardo
da Vinci and eLearning programmes, the Europass initiative,
and the various actions funded through the Community action
programme to promote bodies active at European level and to
support
in the fields of education and
training.

specific activities

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2.3
The proposal is also based on the realisation that ‘signifi-
cant advantages would accrue from integrating Community
support for transnational cooperation and mobility in the fields
of education and training into a single programme, which
would permit greater synergies between the different fields of
action, and offer more capacity to support developments in life-
long learning, and more coherent, streamlined and efficient
modes of administration’ (1).

— The ‘transversal programme’ is to comprise the following

four key activities:

— policy cooperation in lifelong learning within the Com-

munity

The proposal

therefore concludes that

‘an Integrated
2.4
Programme should (…) be established to contribute through
lifelong learning to the development of the European Union as
an advanced knowledge society, with sustainable economic
development, more and better jobs and greater social cohe-
sion’ (2).

It

that

is pointed out

‘given the specificities of

2.5
the
schools, higher education, vocational training and adult educa-
tion sectors, and the consequent need for Community action to
be based on objectives,
forms of action and organisational
structures tailored to them, it is appropriate to retain individual
programmes within
Integrated
Programme targeted at each of these four sectors, while maxi-
mising the coherence and commonality between them’ (3).

framework

the

the

of

The ‘integrated programme’ contains the following cate-

2.6
gories of programme:

— The sectoral programmes:

— the Comenius programme, which is to address the
teaching and learning needs of all those in pre-school
and school education (…)

the
to address
— the Erasmus programme, which is
those in formal
teaching and learning needs of all
higher education and vocational education and training
at tertiary level (…)

— the Leonardo da Vinci programme, which is to address
the teaching and learning needs of all those in voca-
tional education and training (…)

— promotion of language learning

— development of innovative ICT-based content, services,

pedagogies and practice for lifelong learning

— dissemination and exploitation of results of actions
supported under the programme and previous related
programmes, and exchange of good practice;

— The Jean Monnet programme is to support institutions and
It will

in the field of European integration.

activities
comprise the following three key activities:

— the Jean Monnet action

— operating

to support
dealing with issues relating to European integration

specified institutions

grants

— operating grants to other European institutions and
associations in the fields of education and training.

2.7
An important element in the Commission's proposal is
the revision of the quantified targets, in the light of the changes
to the amounts that were proposed in the detailed financial
perspective 2007 to 2013. These targets are:

— 1 in 20 school pupils involved in Comenius activities 2007

— 2013

— 3 million Erasmus students by 2011

— the Grundtvig programme, which is to address the
teaching and learning needs of those in all forms of
adult education (…);

— 150,000 Leonardo placements by 2013

(1) COM(2004) 474 final – recital (16).
(2) COM(2004) 474 final – recital (17).
(3) COM(2004) 474 final – recital (18).

— 25,000 Grundtvig mobilities by 2013.

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2.7.1
The Commission views such ambitious targets as
essential to make the new programme an adequate instrument
to support
the most competitive and
the achievement of
dynamic knowledge-based economy by 2010.

— a basis for developing within the Union effective mobility

of people and mobility of ideas and best practice;

2.7.2
€ 13.620 billion for the seven years of the programme.

The indicative financial amount proposed is set at

3. General comments

3.1
Addressing the Commission proposal constructively will
certainly be a complex process. It will demand general and
expert knowledge of the objectives, measures and difficulties
encountered in the development of European education policy.
It will also depend on the possibility of
tying educational
choices tightly in with the Union's major objectives for the 21st
century (1) and more specifically with the major objectives of
the current decade (2). Lastly, this will require a far-sighted
approach, to ensure that the choices taken now for the future
are the right ones.

3.2
The EESC has a clear position regarding the relative
importance of the Union's current central objectives, and has
formulated an approach regarding how to tie life-long learning
into these objectives. Its ideas were set out in its recent explora-
tory opinion on ‘training and productivity’ (3), requested by the
Dutch presidency. Thus the EESC's approach to the Commis-
sion proposal
is based to a large extent on the above-
mentioned ideas and positions.

— a basis for action that promises a high level of European

value added, both now and in the future.

3.3.1.1
It is worth pointing out that the Union's educational
programmes to date are among the very few Community
actions addressed directly to its citizens. The new programme
should therefore aim to promote democracy based on partici-
pation and active citizenship, and to promote employment and
a versatile labour market. The new programme should also
contribute towards personal and occupational fulfilment for
Europe's citizens,
through the creation of opportunities to
broaden and make use of their potential. It is important, from
the point of view of the Union and its links with its citizens,
for a comprehensive programme to be built up targeting
different age groups, individual citizens, the workplace, SMEs
and the social partners.

In the Committee's view,

3.4
the Commission's plan to
establish an ‘integrated action programme in the field of life-
long learning’ marks a positive step. Consequently, the EESC's
proposals on the matter are designed exclusively to improve
the programme.

3.4.1
coming in the definition of lifelong learning.

In this context, the EESC would first note a short-

The EESC's approach is also determined by its experi-
3.3
ence of the results of the Union's policies and programmes to
date in the fields of culture and education, vocational training,
youth and sport.

3.3.1
reservations. The Committee regards the programmes as:

The overall picture is generally positive, with a few

— high-quality and effective channels of communication
between Union bodies, and more specifically the Commis-
sion, and the European public;

(1) These include the objectives of creating a knowledge-based society,
sustainable development and its three dimensions and the multifa-
ceted system of global governance.

(2) These are the objectives set in Lisbon, relating to the knowledge-
(Gothenburg), and
based economy and sustainable development
Barcelona, relating to the qualitative dimension of European educa-
tion systems.

(3) See CESE 1435/2004.

Specifically, the EESC believes that there should be a
3.4.1.1
single approach to (4) education, training and youth policies,
because it sees lifelong learning as a single process from
nursery school to retirement and beyond (5). Furthermore, the
EESC believes that there is a need to move beyond the age-
imposed on the European
related educational
public by the European education and training systems.
It
therefore expected more from the programme, particularly
concerning the establishment of a framework for lifelong
learning. In the EESC's view, the main difficulty is the need to

restrictions

(4) See OJ C 157 of 25.5.1998, point 3.7.1, which states the following:
‘The ESC considers a key issue in the development of the European educa-
tional area, and in European education policy generally, to be the consoli-
dation of relevant policies (education, training, youth) and integration of
the relevant action programmes. Policies on education, training and youth
must be incorporated within a single framework of action and integrated
from inception and adoption right through to implementation. This view
derives not so much from the fact that initiatives on education still exclude
certain areas, but more from the need to adopt a centralised policy
approach. It derives from the need at last for there to be a single strategy
training and youth, as well as integrated planning of
on education,
measures.’

(5) See the definition of lifelong learning in Article 3, point 27 of the

Commission proposal.

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give the single, transversal concept of lifelong learning a prac-
tical and legal basis that goes beyond access to the sectoral
programmes. The integrated programme should act as a
specific instrument for the EU Member States to create the
conditions for everyone without exception — regardless of age
and social status — to have genuine and unconditional access
to education and training programmes.
It should also be
possible to defend this principle as a fundamental right before
the European Court of Justice.

integrated in a lifelong learning context, in order to respond to
the new challenges of the knowledge society and of demo-
graphic change’ (2). Unfortunately, this position does not mate-
rialise in the present proposal. The Commission's proposal is
basically geared to existing educational structures and promotes
only minimal synergies between the different educational levels.
The EESC believes that the new programme would be more
adaptable and more innovative if access
to the specific
programmes covered priority target groups without excluding
groups which might be interested on the basis of their educa-
tional qualifications or age.

it calls

the future of

for provisions

The EESC is aware that

3.4.1.2
lifelong
learning will fundamentally be decided at national, regional and
local level. It also realises that there are obstacles at European
level to the programme being integrated in substance and in
practice. However,
in the sectoral
programmes to remove the severe restrictions (on age and
content of study) that existing education and training systems
impose on each other and on those wishing to learn. It is also
in favour of active cooperation in developing the integrated
programme and cultural and youth programmes, as well as
(with a view to the probable ratification of
the European
Constitution) sports programmes. This is important because the
above-mentioned informal
education provided for young
people in particular relates fundamentally to acquisition of the
basic skills needed to ensure their employability as citizens and
active social integration.

3.4.2
communication and links between the sectoral programmes.

There are also shortcomings

regarding horizontal

3.4.2.1
The EESC believes that the problems relating to the
process of achieving the major goals of the Union are complex.
Consequently, their solution requires the removal of obstacles
to enable all forms of mobility to develop between the educa-
tional subsystems, within individual countries and between
countries. Removing barriers and limitations is also the precon-
dition for making lifelong learning a conscious and productive
reality.

The explanatory memorandum of the Commission's
3.4.2.2
proposal contains an important point,
in its
Communication on the new generation of Community Educa-
tion and Training Programmes after 2006 (1). It argues that ‘…
education and training systems are becoming increasingly

first set out

(1) COM(2004) 156 final.

For these reasons, the funding and scope of the
3.4.2.3
transversal programme must be broadened. The aim should be
to develop cooperation and measures to create the foundations
of a genuine European area of
lifelong learning, bringing
substantial European added value and contributing significantly
to realisation of the Lisbon objectives and sustainable develop-
ment. Obviously, the above cooperation and action will call for
the involvement of all types of educational subsystems (3), the
social partners and, more generally, organised civil society and
public authorities, regional and local authorities in particular.

3.4.2.4
Given the above, a particular boost should be
provided for the Grundtvig Programme, which is designed to
meet all types of adult education needs.

There is a third, but important, shortcoming in the
3.4.3
link between the integrated programme and the goals of the
Lisbon strategy.

The EESC believes that we are already far behind in
3.4.3.1
achieving the Lisbon objectives. It also believes that 2010 is
approaching fast and that, consequently, whether or not the
Lisbon objectives are reached will depend on those Europeans
who are currently in work. Lastly, it believes that raising aware-
ness of the Lisbon strategy and objectives will require persistent
and comprehensive action vis-à-vis this sector of the European
in collaboration with the social partners. This means
public,
giving priority to enhancing people's understanding of
the
Lisbon strategy and to working with them to successfully adapt
to the challenges of sustainable development and the knowl-
edge-based economy, while also promoting lifelong learning as
an overall approach at all levels.

(2) COM(2004) 474 final, point 1.3, first indent.
(3) The educational subsystems include primary, secondary and higher
education; general education and vocational
training/education;
educational establishments (suppliers of education and/or training);
and types of education (conventional and alternative).

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3.4.3.2
To this end, the EESC would recommend strength-
ening the lifelong learning programmes addressed to citizens
that are currently in the workforce, while also making an
immediate link between these programmes and sustainable
development and the achievement of a knowledge-based
economy.
In other words, this means developing individual
small and large-scale lifelong learning programmes on the basis
of
for broader programmes on
sustainable development and achieving the Lisbon objectives (1),
that will meet the approval of the social partners, following
consultation and agreement.

the specific requirements

The EESC attaches particular

importance to the
3.4.3.3
possibility of SMEs having access to the programme. It has
argued that ‘… SMEs (…) are obliged to seek the advice and
support of the social and economic environment in which they
operate, since it is difficult for them to carry out complete
educational actions by themselves’ (2). The EESC therefore
proposes a special approach for SMEs, simplifying the relevant
procedures
to make their participation in the
programme both feasible and effective.

in order

These recommendations of

the EESC could be
3.4.3.4
financed within the proposed budget for the programme, if the
balance between mobility and development actions were
adjusted in favour of the latter for the period up until 2010.
The above recommendation could also be financed by ensuring
greater consistency and complementarity with other relevant
Community policies (cf. Article 14 of the proposal). In this
context European employment and research policies, European
Social Fund policies, as well as Structural Fund policies, must
include a lifelong learning dimension. At the same time and up
the above policies must be as compatible as
until 2010,
possible with the
learning
programme.

objectives

lifelong

the

of

A further

shortcoming

confusion
3.5
surrounding the division of responsibilities between the Euro-
pean, national, regional and local
levels, and between the
public authorities and the social partners and, more broadly,
organised civil society.

concerns

the

3.5.1
The EESC considers it vital for there to be a clear and
efficient allocation of roles and responsibilities among all the
factors and players contributing to the implementation of the
integrated programme of lifelong learning. It is contradictory

(1) For additional

information see CESE 1435/2004, point 9 (an

example of best practice).

(2) OJ C 120 of 20.5.2005, point 8.1.1.3.

for a line to be drawn between active policy-makers on the one
hand, and passive recipients on the other, in such an important
joint effort geared to the future aim of a knowledge-based
Europe.

3.5.2
The EESC calls for the social partners, together with
regional and local authorities, to be involved in the entire range
of processes and actions under the integrated programme of
lifelong learning. All social and civil organisations could, at
their own request, be awarded a European label for taking part
in the integrated programme — provided they themselves
launch complementary schemes. As label holders, they would
be able to join a European popular education ‘coalition’, which
could have one or more representatives on the programme
committee. Active involvement of this kind would make the
system socially acceptable and lend it dynamism and effective-
ness.

3.5.3
This recommendation would make it possible to relate
the lifelong learning programme to practical, everyday social
needs, and with the needs of the market. Among other things it
would maximise the chances of improving the balance between
the needs of the market — especially the labour market — and
social needs.

The EESC draws attention in particular to the fact
3.5.3.1
that the Commission's proposal makes no mention of the prio-
rities set out by the social partners in March 2002 regarding
the framework of actions for lifelong development of skills and
qualifications.

Another important issue is that of mobility, the funds to
3.6
be assigned to it, and how they are to be distributed between
the sectoral programmes.

ties

therefore include qualitative features.

in with the qualitative elements of

The EESC believes that mobility is a positive factor,
3.6.1
the
provided it
programmes. The aim of tripling the mobility programmes
must
the
above, and in the present phase up to 2010, mobility of citi-
zens currently at work contains such qualitative features and
has a major contribution to make to achieving the Lisbon
objectives.

In view of

3.6.2
tion of mobility funds to the benefit of these citizens.

The EESC therefore calls for a more balanced distribu-

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The EESC considers that the communication aspect is a
issue in terms of European citizens' engagement

3.7
significant
with the integrated programme.

3.7.1
In this regard, the EESC would also point out that the
term ‘integrated programme’ does nothing — including from
the communication point of view — to present the programme
in a positive way.

3.7.2
Consequently, it is proposed that the term ‘integrated
programme’ be replaced with one which is both accessible and
descriptive. The EESC believes that ‘Athena’ — the ancient
Greek goddess of knowledge and wisdom — could be an
appropriate title.

4. Specific comments

4.1
Following on from the general comments, the purpose
of the specific comments is to set out in detail the reservations
and disagreements of the EESC regarding certain articles of the
Commission's proposal. This means that it should generally be
understood that the EESC endorses the articles in question to
the extent that it does not state otherwise.

4.2 Articles 1-8:

The EESC thinks that Articles 1 to 8 should be revised
4.2.1
in accordance with its recommendation that the social partners
— together with civil society and regional and local authorities
— should be more actively involved in the planned processes
and actions (point 3.5.2); and with its recommendation on the
programme title (point 3.7.2).

As regards the specific programmes in particular, and
4.2.2
still in the context of its general comments, the EESC recom-
mends that institutional structures be created to strengthen
joint — and perhaps long-term — actions, above all in spheres
that cultivate the principle of lifelong learning and citizens'
response to current challenges.

4.3 Articles 9-14

4.3.1
sentation and participation of
Committee, is poorly formulated.

The EESC feels that Article 11, which refers to repre-
in the

the social partners

the social partners

Firstly, there is a fundamental problem in relation to
4.3.1.1
the form of participation of
in the
Committee. Giving them the status of observers, even though
they may state their opinions in practice, is not consistent with
the principle of democratic participation espoused by the
Union in its constitution which is in the process of ratification.
In addition, the main issue here is to establish the basis for
cultivating a sense of shared social responsibility in framing
and developing European education policies. If the social part-
ners participate fully in the Committee (i.e. with voting rights),
there will be a basis for such a sense of shared responsibility
and its role will be of critical importance in framing and devel-
oping effective education policies. Furthermore, in addition to
the responsibility of public authorities for decisions of a
general educational nature, a corresponding responsibility also
falls to the social partners. This responsibility is for training
should be
throughout working life and is expressed, or
collective
expressed, officially,
bargaining.

through the processes of

This inadequate form of participation of the social
4.3.1.2
partners also sets a precedent for similar decisions at national,
regional and local level, which makes no sense given that in
certain Member States at least the social partners already play a
key role in framing these policies.

4.3.1.3
The EESC believes that a separate dialogue is needed
on the composition of the Committee, on a basis which would
make it functional and effective. However, in general terms the
EESC thinks it necessary for the Committee to include, on the
basis of an intelligent balance, representatives of all groups
who influence or are influenced by lifelong learning and have
the relevant general and specialised knowledge. In other words,
the Committee must be composed not only on a national basis,
but also on an economic social basis (social partners — civil
society more generally) and a knowledge basis (academic com-
munity).

training. The work of

4.3.1.4
Finally, the EESC takes the view that it is a mistake
to limit the participation of the social partners to questions
relating solely to vocational
the
Committee will need to be integrated in the process leading to
achievement of a knowledge-based Europe. That means that
this Committee can provide an example of good practice for
planning and policy choices based on reliable knowledge —
knowledge of the whole picture, but also specialised knowledge
as part of the whole. It will therefore be important for all
players represented in the Committee to take part in all
its
procedures, in a way which is both functional and committed,
as regards the what, the how and the why of the policy choices.

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The EESC calls

4.3.1.5
approach
for
concerning the specific learning needs of people with disabil-
ities. To this end, it proposes that Article 12(b) be amended to
read as follows:

a more

active

‘making provision for learners with special needs, and actively
taking into account the specific needs of people with disabil-
ities, in particular by helping to promote their integration into
mainstream education and training’.

4.4 Articles 15-46

The EESC,

4.4.1
in the context of its general comments
(point 3.4.2 above), proposes broadening the activities and
increasing the funding of the transversal programme, with a
corresponding reduction in the funds allocated to sectoral
programmes.

The thinking behind the above proposal is straight-
4.4.1.1
forward. Strengthening the transversal programme, in accord-
ance with its content, starts off procedures to modernise the
European educational systems as a whole. This means essen-
tially that investments made in the transversal programme will
yield returns for the European educational systems, depending
to a large extent on the form of specific added value in each
case. It follows from the above that the investments to be made
in the transversal programme will naturally be the most
productive and most effective investments.

The EESC proposes that

4.4.2
the improved transversal
programme for lifelong learning be linked directly with the
Lisbon objectives, sustainable development and the European
citizens who will be economically active in the period up to
2010 (point 3.4.3.2 above).

Brussels, 10 February 2005.

In practice this means an integrated approach to our
4.4.2.1
overall strategy for lifelong learning, on the basis of
the
problems which led us to that strategy, the aims we have set
ourselves for overcoming those problems and the means avail-
able for achieving those aims. It also means:

— supporting research and pilot applications of the academic
community, the social partners and organised civil society
in general, and at the level of regional public authorities,
with a view to achieving the Lisbon objectives;

— particular encouragement for cooperation among the afore-
mentioned players, who are pursuing the same objective
and objectives relating to sustainable development;

— alternative proposals by the Union, on the basis of relevant
good practice, on how to link lifelong learning with the
Lisbon objectives at local level.

4.5
The EESC believes the programme under discussion to
be of supreme importance for the future of the Union. For that
reason it also thinks it important for the implementation of the
programme to be subject to adjustment and for it to be moni-
tored at the highest level. In this context the EESC would like
to see the creation of a high-level standing committee to
monitor the implementation of
the programme, under the
open method of coordination. The main task of this committee,
with the support of the European Commission, would be to
report on progress in the programme's implementation at any
given moment and to inform the European Council about it at
regular intervals, with a view to making any necessary adjust-
ments.

The President

of the European Economic and Social Committee

Anne-Marie SIGMUND