Opinion of the Committee of the Regions 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’
Date: 2005-02-23
Institutions: European Committee of the Regions
Subjects: action programme, continuing vocational training, division of powers, education policy

5.7.2005

EN

Official Journal of the European Union

C 164/59

Opinion of the Committee of the Regions on the ‘Proposal for a decision of the European Parlia-
ment and of the Council establishing an integrated action programme in the field of lifelong
learning’

(2005/C 164/07)

THE COMMITTEE OF THE REGIONS,

Having regard to 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));

Having regard to the decision of the European Commission of 15 July 2004 to consult it on this subject,
under the first paragraph of Article 265 and Article 149 of the Treaty establishing the European Com-
munity;

Having regard to the decision of its President of 5 April 2004 to instruct its Commission for Culture and
Education to draw up an opinion on this subject;

Having regard to its draft opinion CdR 258/2004 rev. 2 adopted on 7 December 2004 by its Commission
for Culture and Education, (Rapporteur: Ms Christina Tallberg, Member of Stockholm County Council
(SE-PES);

and in consideration of:

the Communication from the Commission on the new generation of Community education and training
programmes after 2006 (COM(2004) 156 final);

the Communication from the Commission to the Council and the European Parliament on Building our
common future: policy challenges and budgetary means of the enlarged Union 2007-2013 (COM(2004)
101 final).

unanimously adopted the following opinion at its 58th plenary session, held on 23-24 February
2005 (meeting of 23 February).

General background

The Commission has drafted a proposal for a decision of the
European Parliament and of the Council establishing an inte-
grated action programme in the field of
lifelong learning,
comprising a number of sectoral/specific programmes. The
integrated programme builds on the current Socrates and
Leonardo da Vinci programmes, the eLearning programme, the
Europass initiative and the various actions funded through the
Community action programme.

interest

The proposal
importance to
focuses on issues that are of
regional and local politics i.e. the grassroots level, and is there-
fore of great
the Regions.
However, the Commission proposal deals almost exclusively
with the EU and national level. The document refers only fleet-
ingly to the local and regional
level and its importance for
participation in developing and implementing the programme
in Europe.

to the Committee of

According to Eurostat figures (2001), an average 19.6 % of
young Europeans aged 18 and 24 do not show up in the
further education and training figures, and 20 %-30 % of
leavers do not undertake any further education or
school
training, be it vocational or general.

Member State education ministers and their counterparts in 14
other European countries established in the Bologna Declara-
tion (19 June 1999) that the European higher education sector
must acquire a global appeal to match Europe's great cultural
and scientific achievements.

In accordance with the conclusions of the Lisbon European
Council (March 2000), the European Council meeting in Feira
called on the Member States, the Council and the Commission
to establish uniform strategies and practical measures
to
promote lifelong learning for all.

With this in mind, the Commission adopted its Memorandum
on lifelong learning, with a view to launching a Europe-wide
debate on a comprehensive strategy to achieve lifelong learning
at individual and institutional level, and in all areas of public
and private life. The approach taken to European education
puts the emphasis on individual learning.

When European ministers with responsibility for higher educa-
tion met in Prague on 19 May 2001, they stressed, inter alia,
the importance of making European higher education more
attractive to students from Europe and other parts of
the
world.

The European Council meeting in Stockholm (March 2001)
fixed the objectives
for European education and training
systems. The Council established the following priority develop-
ment areas for the implementation of the Education 2010
work programme: access to guidance, quality assurance of
services, the role of guidance in the development of human
resources and guidance to facilitate mobility for study and
employment
in Europe. The Barcelona European Council
(2002) drew up a work programme to achieve these objectives.

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The proposal is a follow-up to the Commission Communica-
tion to the European Parliament and the Council on Strength-
ening Cooperation with third countries in the field of higher
education (COM(2001) 385 final)).

The White Paper on a New impetus for European Youth
addresses young people's need for a flexible guidance and
advice system to support continuing access to lifelong and life-
wide learning.

In 2002 the Commission decided to make the European area
for lifelong learning a reality. One of the practical results,
which the Commission achieved in cooperation with the
Committee of the Regions, was ‘Learning Regions’ (Regional
networks for lifelong learning — R3L programme). The project
brings together 120 regions in 17 networks and aims to
develop comprehensive strategies for lifelong learning.

In its Communication on European Union education
programmes post 2006, the Commission announces its plans
for new EU programmes
a new integrated
programme for transnational mobility and lifelong learning
cooperation for the EU Member States, EEA/EFTA countries
and the applicant countries. The programme covers both
general education and vocational training.

including

The joint interim report presented by the Council and the
Commission on Education and Training 2010 addresses essen-
tial reforms for the implementation of the Lisbon Strategy and
highlights
three priority areas: concentrating reforms and
investment on the key areas of the Information Society, Making
lifelong learning a reality, and Building a Europe of education
and training. A new interim report is expected for 2006.

In November 2004 Wim Kok, chairman of the High-Level
Group for the mid-term review, submitted his Lisbon Strategy
progress report. One of the report's conclusions is that progress
on the declared objectives is far too slow. The proposal for an
integrated action programme for lifelong learning should also
be seen in this context. The local and regional level have great
potential to make an active contribution towards achieving the
objectives in the field of education.

The Committee of
the Regions has on various occasions
stressed the need for lifelong learning efforts to be firmly
anchored at local and regional level. In view of the importance
of
local and
regional level, the Committee of the Regions would like to play
an active role in developing and implementing the lifelong
learning initiative.

this issue to the way society is organised at

Gist of the proposal

The integrated programme

The new rules cover a new integrated education and training
programme for mobility, and lifelong learning cooperation
projects and network building. It comprises the following:

1) The sectoral programmes:

— Comenius, for general education activities concerning
schools up to and including upper secondary level;

— Erasmus, for education and advanced training activities

at higher education level;

— Leonardo da Vinci, for all other aspects of vocational

education and training; and

— Grundtvig, for adult education.

2) A general/transversal programme incorporates four key

activities:

— Community cooperation on lifelong learning policy;

— paying particular attention to language learning;

— developing ICT-related activities when these extend

beyond specific programmes;

— improving dissemination.

3) A Jean Monnet programme to support action related to
European integration and European institutions and associa-
tions in education and training.

Target levels

The lifelong learning and vocational training programme is
expected to cost circa EUR 13,620 billion over seven years.
The budget centres on four key goals set out in the financial
perspective for 2007-2013.

The overall objective is to help to make the Community an
advanced knowledge-based society through lifelong learning.
The four specific programmes are as follows:

— 1 in 20 school pupils involved in Comenius actions 2007–

2013;

— 3 million Erasmus students by 2011;

— 150,000 annual Leonardo placements by 2013;

— 25,000 annual Grundtvig mobilities by 2013.

Committee of the Regions views

coordinate

in an integrated programme for

1. The Committee of the Regions welcomes the European
EU education
to
Commission proposal
programmes
lifelong
learning. The Committee sees this as a very significant
contribution towards efforts to encourage all stakeholders
to work for rapid changes to general and further education
and training systems. It meets the needs of the new knowl-
edge economy and is in line with the Community's ambi-
tions for
individual participation and responsibility in
society.

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2. The Committee has on previous occasions highlighted the
significance of a lifelong learning strategy and is anxious to
help ensure that
the integrated programme makes a
powerful impact and provides a meaningful contribution
in terms of democracy and prosperity.

8. It can also be said that local and regional authorities are
uniquely placed to enter into constructive partnerships
with the social partners and institutions for general and
continuing education in order to tailor general education
and vocational training courses to specific local needs and
requirements.

2a. A Youth Debate was held in connection with the 10 year
anniversary of the Committee of the Regions on November
17-18 2004. Youth representatives stressed that an urgent
objective should be to give every pupil the chance to take
part in exchange programmes, in order to gain an aware-
ness of other cultures, languages and the European Com-
munity. The Committee of the Regions sees the proposed
volume objectives as a step in the right direction and
endorses the long-term objective highlighted by the youth
representatives.

3. The Lisbon European Council noted that general education
and vocational training are crucial to the EU's ability to rise
to the challenge and ensure that the information society is
available to all. This will enable the EU to achieve its full
potential. Education initiatives must
include encourage-
ment
for various forms of knowledge acquisition and
development so that more and more people can be
supported more successfully.

The local and regional level has a key role to play

4. Throughout the European Union the local and regional
level has key responsibilities for the areas addressed in the
Commission document.

5. In many European countries the regional and local level is
responsible for general education, vocational training and
adult education. It is here that education and training deci-
sions are taken and put
into practice. The local and
regional level is also an element of the social partnership
and a coordinator for local and regional development and
growth. Consequently, it is also in its interest to develop
workforce skills.

6. It also acts as a social service, with responsibility for the
welfare of its citizens, be they children, adults or senior
citizens. Another of its tasks is to help ensure that the
most vulnerable groups can be part and parcel of society,
especially people with physical and/or mental disabilities.
It is also an employer and, as such, stands to gain directly
from efforts to improve the skills of its workforce.

9. Various regional and local cooperation projects act as a

significant driving force for growth and development.

10. Education programmes enable the EU to reach out to citi-
zens directly. No other EU endeavour affects so many
people each year. The programmes also help to modernise
education systems and help individuals update their
skills. In view of the local and regional level's responsibil-
ities, regional players should be an important target group
for programme activities in the field of education and
training.

lifelong

learning

11. The Regional networks
set up by

for
(R3L
programme),
the Commission and the
Committee of the Regions, is an excellent example of disse-
mination and development of lifelong learning in Europe.
The Committee would welcome several other initiatives of
this type that can rapidly take hold and actively contribute
towards stimulating European integration at grassroots
level.

12. The European local and regional level must be involved at
an early stage of the education and training programme
activities. It must never be reduced to merely accepting the
results of a programme once it has expired.

The lifelong learning strategy's place in the integrated programme

13. Lifelong learning is learning-focused rather than education-
focused, and is concerned with individual skills develop-
ment rather than formal education systems.

14. The strategy extends from nursery school through to adult
education, and addresses various forms of learning and
education. It is important that this overarching approach is
genuinely mainstreamed into the proposed integrated
programme and sectoral programmes.

15. It should be the task of all the specific programmes — not
just Comenius — to improve awareness of the diversity
and value of European cultures.

7. There is an important democratic element to local and
regional efforts in the field of European education: the
opportunity to take part and become a champion of demo-
cratic society.

16. The importance of sustainable economic, social and envir-
onmental development should be addressed, from a life-
long learning perspective, in the common objectives.

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17. This is why the Commission Memorandum also makes
clear that education and practical training systems should
be integrated into a lifelong learning context. The Commis-
the new integrated
sion has already established that
programme must cover both academic education and
vocational
the Regions
endorses this approach. Programmes such as Socrates and
Leonardo have been covered by different regulations and,
consequently, different procedures, and this has been a
drawback thus far.

training. The Committee of

25. Furthermore, development is often dependent on small and
medium-sized firms, where employees tend not to have been
through higher education. Education and training tradi-
to
tions vary, here. Consequently,
provide
for
workers with basic or high school level education needs. It
is essential to roll out education and skills programmes in
such a way that they reach those working in small and
medium-sized firms.

a development programme

is also important

support

for

it

18. The fact

that basic vocational

training comes under
Leonardo and post-high school vocational training comes
under Erasmus further highlights the need for good cross-
sectoral project opportunities.

26. It is also important to clarify how the programmes are to
have the flexibility needed to cope with policy objectives
and needs that might emerge during the programme
period.

19. The Committee of the Regions would stress the need for
optimum interaction between the different
sectoral
programmes. Both horizontal and vertical projects must
thus be enabled and facilitated in a lifelong learning
programme. The proposed structure would appear to be
open to such closer cross-sectoral cooperation.

20. The Committee of the Regions considers, however, that in
addition to this opening, there must also be a clear move
enhancing cooperation between the different
towards
specific programmes, from the perspective of the European
lifelong learning strategy.

Meeting current skills needs

21. Vocational

training is changing rapidly.

In vocational
training with a lifelong learning slant, notions such as
knowledge and learning take on important connotations,
and the current working environment calls for better
language skills, for example.

22. Social skills such as a willingness to take on responsibility,
to work as part of a team, to get on well with colleagues
and other adults, creativity, an ability to see the bigger
picture and quality awareness are also becoming important
factors in vocational training. Entrepreneurship, active citi-
zenship, equal opportunities and combating racism and
xenophobia are examples of other very important ‘general’
components of vocational training. Several of them are
included under the specific objectives of the integrated
programme, which the CoR considers positive.

23. In turn, the general education programmes must be more
open to the world of work and future employment
for example, partnerships with firms, project
through,
work, and by bringing representatives from the world of
work into the classroom.

24. The Committee of

the Regions believes

the
programme will be able to provide a valuable boost to
higher education. This is a very important premise for
regional development.

that

the

to the

resources

distribution of

27. The Committee of the Regions would also stress the need
various
for
programmes to be a continuous process,
linked to the
budget and to the integrated programme's objectives. This
the
also
specific
in order to
programmes and to redistribution options,
provide more
and
exchanges for students with a shorter academic career
behind them.

for development

encouragement

development

between

applies

to

Situation for participants

28. The European Parliament recently pointed out that because
funding for exchange students is inadequate, it is mostly
students from well-heeled backgrounds that have been able
to benefit from exchange programmes. It is important that
the Member States ensure that students genuinely have
access to exchange programmes and funding, and that
applicants' financial resources are taken into consideration.

29. A high priority development issue for the Committee of
the Regions — and an area in which the integrated action
programme for life-long learning can be of far-reaching
importance — is social integration. This concerns broad,
diverse groups of students with different support needs,
from those with learning difficulties or experiencing social
vulnerability and exclusion,
to students arriving in a
country and culture that is alien to them. Today, we can
see that a large group of young people with inadequate
basic education either interrupt their studies or abandon
compulsory education altogether. It should be possible to
support methodology development, skills transfers and
other initiatives for young people's development.

30. This is such an important problem that

it should be
expressed clearly in the programme objectives and enabled
through EU, national and regional and local programmes.
‘Second Chance Schools’ is an excellent example of Euro-
pean networks of this type, and contributes to metho-
dology development, skills transfers and activities develop-
ment.

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31. Students with disabilities must be given genuine opportu-
nities to participate in integrated programme activities.

32. With regard to adult participation in the exchange
programmes, equal opportunities issues should also be
highlighted so that both men and women can participate.
Special attention should be paid to workers with new
learning needs.

Inclusion of neighbouring third countries

33. The Committee of the Regions also welcomes the intention
to include neighbouring third countries. In this context it
would seem natural to refer to the European Parliament's
statement on wider European neighbourhood. At the local
and regional level, contacts were initiated at an early stage
and it has been possible to break new ground by estab-
lishing contacts with countries that have recently joined
the European Union.
this
regional and local level work to continue and be extended
to new countries.

It would seem natural

for

Division of responsibility

34. The Committee of the Regions would stress the need for a
clear division of responsibilities for programme efforts
level. The
between the Community and the national
Member States should be responsible for the practical side
as far as possible. A decentralised structure is crucial to the
success of future efforts. The local and regional level will
also have to play a more active role in this structure.

35. In accordance with the Commission proposal, the Com-
munity level should work with matters regarding objec-
tives, general overview, general strategy, observation and
analysis, and follow-up and assessment. The Community
level will also have to deal with implementation matters,
by identifying and disseminating successful forms of imple-
mentation. The Committee of the Regions considers that
the local and regional level should play an important role
in implementing, garnering support for and disseminating
the new programmes.

36. Any decision-making procedures that mean that a matter
would be handled by two levels should, as a rule, be
avoided.

Views on the integrated programme components

37. The Committee of the Regions believes that the proposed
is of
integrated programme, with its current ambitions,
great importance to the promotion of the mobility partner-
ships, projects and networks in Europe.

38. The mobility projects are extremely important for the local
and regional level. It is often the small mobility projects
decided at national
level that make a significant impact
and that advance the idea of Europe, active citizenship and

democracy issues. It is important that the projects should
provide scope for openness and opportunities for experi-
ence. This
facilitates dissemination of knowledge and
implementation. Mutual learning is a touchstone here.

39. Mobility projects must also increasingly aim to provide
national, regional and local back-up systems to support
continued mobility even after a project has ended, in order
to maintain the structures and contacts that have been
established. The projects should help to remove obstacles
and encourage continuous exchanges so that the projects
that
become part of regular activities.
national education funding schemes should also enable
students to study part of their course in another Member
State.

is important

It

40. With regard to the development programmes, it is essential
to exploit the expertise they breed, e.g. through pools of
experts, etc. Projects that value different forms of learning
to the lifelong learning
will be especially important
strategy. The pioneering approach of
the development
projects should therefore, subject
to certain conditions,
make it possible to change course while the project is
underway.

41. The Committee of the Regions believes that the proposed
general/transversal programmes will be very important as
a cohesive force and in terms of analysis and support for
involve
policy development. Other important tasks will
launching new projects and networks and contributing to
new processes that can meet the EU's education needs.-
Given the importance of the regional and local level in the
field of education, a link-up is needed between this activity
and the Committee of the Regions.

42. The Jean Monnet programme will play a strategic role for
European integration in higher education and research.

The committee

43. The Committee of

that
committee that is to assist the Commission (Article 10 of
the proposal) should:

the Regions would stress that

— work with objectives and policy development;

— continuously follow and encourage the integrated

programme's common objectives;

— ensure that the European strategy for life-long learning
sectoral
through to the

various

filters

actually
programmes.

This committee should have overall
responsibility for
ensuring that barriers are not created between the sectoral
programmes. Cooperation will also be needed between
that committee and the Committee of the Regions on
future efforts.

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Volume objectives

Committee of the Regions proposals

44. The Committee of

the Regions endorses the proposed
volume objectives, according to which the mobility
programmes are expected to treble. These ambitious
targets are likely to strengthen the European Community
and enhance cohesion. However, the volume objectives
must not allow the qualitative side of the programmes to
suffer.

Simplification of administrative procedures

45. The Committee of the Regions also welcomes a simplified/
flat-rate costing system. The CoR has on previous occa-
sions drawn attention to the negative impact of red tape
on application numbers. Many players decline to take part
because of complicated document
requirements. The
Committee of the Regions considers that administration
and accounting requirements should must be commensu-
rate with the size of funding involved. Smaller projects
need not be subject to the same comprehensive, laborious
checks as major projects.

46. The Committee would, however, point out that circum-
stances and ability to take part in the programmes vary,
and this can impact on costs. This can be a question of,
for example, lack of familiarity with studying, disabilities,
ability to afford travel and accommodation expenses or
different regional circumstances.

Titles

47. The Committee of the Regions would also point out that
the new programme and its various components should be
given unambiguous practical titles so that they are clear
and understandable regardless of the European language
being used. Expressions such as ‘the integrated programme’
and ‘the general/transversal programme’ will lead to confu-
sion and misunderstanding.

48. It should be made sufficiently plain that the ‘integrated
programme’ refers to the whole initiative, while the Come-
nius, Leonardo, Erasmus, Grundtvig and Jean Monnet
programmes are parts of the whole. It should also be made
clear that the general/transversal programme has a stra-
tegic, umbrella function. The Committee of the Regions
feels that this matter should be addressed with particular
care.

Subsidiarity and proportionality

49. The programme complements national or regional and
local initiatives. The proposed legal basis provides opportu-
nities to add to these. The programme is chiefly active in
areas where Member State action cannot be efficient. The
aim is not to change the structure and content of educa-
tional systems;
focuses rather on areas where value
added can be created at European level. With regard to
proportionality, the proposal has been designed to achieve
maximum simplification.

it

1. The local and the regional level must be involved in the

early stages of the integrated programme.

2. Local and regional players should be an important target
group for initiatives concerning European development
and integration in general, and programme activities in the
field of education in particular.

3. Non-formal and informal learning should be emphasised

more in the document.

accessing

4. One way of avoiding demarcation problems and obstacles
would be try to include as many as possible of the rules
for
integrated
programme in one common Article (equivalent to Article
4 of the proposal) and correspondingly restrict the specific
access rules for each of the Comenius, Erasmus, Leonardo
da Vinci and Grundtvig sectoral programmes.

various parts of

the

the

5. It is important that a corresponding openness should also
filter through to the way the proposed financial frame-
works are established for the specific projects.

6. The link between basic and higher education, between
training and between
learning needs to be

general education and vocational
formal, non-formal and informal
actively strengthened during the programme period.

7. The European life-long learning strategy should be more
clearly expressed in the integrated programme and its
various components.

8. The Committee of the Regions considers that the local and
the regional level must play an important role in imple-
menting, garnering support for and disseminating the inte-
grated programme and its various components.

9. The Committee of the Regions wishes to play an active
role in publicising, disseminating and discussing the
progress made on these issues at Community level.

10. The proposed general/transversal programme will have a
strategic role as a cohesive force in terms of policy devel-
opment, new projects, and networks for analysing and
helping create new mechanisms to meet the Community's
education needs. Given the importance of the regional and
local level in the field of education, a link-up is needed
between this activity and the Committee of the Regions.

Brussels, 23 February 2005.

The President

of the Committee of the Regions

Peter STRAUB