Opinion of the Committee of the Regions on Efficiency and equity in European education and training systems and the European Qualifications Framework for lifelong learning
Date: 2007-02-14
Institutions: European Committee of the Regions
Subjects: access to education, education policy, educational system, equal treatment, recognition of diplomas, teaching quality, vocational training

30.6.2007

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Official Journal of the European Union

C 146/77

Opinion of the Committee of the Regions on Efficiency and equity in European education and
training systems and the European Qualifications Framework for lifelong learning

(2007/C 146/12)

THE COMMITTEE OF THE REGIONS

— notes that exclusion from the educational system is the first step towards marginalisation followed by
exclusion from the employment system and from cultural, social and civic life. It reiterates the impor-
tance of combating school drop outs which have negative effects on competitiveness and cohesion;

— recognises that in the long run pre-primary education and targeted early intervention programmes
bring the highest rates of return over the whole lifelong learning process, especially for the most
disadvantaged and recalls in this respect the necessity of the cross-sectoral approach in which key
responsibilities are held by local and regional authorities;

— agrees that modernisation of higher education is a crucial factor in the rapidly evolving knowledge
society. Higher education institutions are at the heart of the ‘knowledge triangle’ given their interlinked
roles of education, research and innovation. Local and regional authorities play a key role in channel-
ling funding towards the modernisation of higher education systems;

for

— expresses support

the double objective of

improving transparency of qualifications while
promoting increased mobility in the EU, but insists that qualifications frameworks should continue to
be developed at national and regional level. Responsibility for reform must therefore remain in the
hands of the competent authorities within the Member States.

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THE COMMITTEE OF THE REGIONS,

Having regard to the Communication from the Commission to the Council and to the European Parliament
on Efficiency and equity in European education and training systems COM(2006) 481 final — SEC(2006) 1096;

Having regard to the Proposal for a Recommendation of the European Parliament and of the Council on
the establishment of the European Qualifications Framework for lifelong learning COM(2006) 479 final;

Having regard to the Opinion on the Integrated action programme in the
CdR 258/2004 fin (1);

field of

lifelong learning,

Having regard to the report and recommendations that arose from the second test consultation of the
subsidiarity/proportionality monitoring network (DI/CdR 2/2007), which currently numbers 49 partners
and was set up in the context of the Committee opinions on Better Lawmaking 2004 (CdR 121/2005 fin)
subsidiarity and proportionality principles
and on Guidelines
(CdR 220/2004 fin);

the application and monitoring of

the

for

Having regard to the Council decision of 19 October 2006 to request its opinion on this subject, under
Article 265(1) of the Treaty establishing the European Community;

Having regard to the decision of the Bureau of 25 April 2006 to instruct its Commission for Culture,
Education and Research to draw up an opinion on this subject;

Having regard to the draft opinion of the Commission for Culture, Education and Research, adopted on
30 November 2006, (CdR 335/2006 rev.1) (rapporteur: Mr Geert Bourgeois, Minister in the Flemish
Government — BE/EPP);

adopted the following opinion at its 68th plenary session, held on 13-14 February 2007 (meeting of
14 February):

1. Communication from the Commission to the Council
and to the European Parliament Efficiency and equity in
European education and training systems

to early age education are an important but not sufficient policy
measure. As pre-primary education in most countries is not
part of compulsory education, parents send their children to
pre-primary education on a voluntary basis;

Planning for Efficiency and Equity

THE COMMITTEE OF THE REGIONS,

thanks the Commission for this contribution to the
1.1
debate on the reform of education and vocational
training
systems, and agrees with the Commission that responsibility for
this reform must remain in the hands of the competent authori-
ties within the Member States;

1.2
agrees that investments in education and training take
time to bear fruit and therefore when deciding on funding prio-
rities, governments should allow for long-term planning at local,
regional and national levels. In fact, several proposals set out in
the Communication may have budgetary implications
at
regional and local level;

acknowledges the importance of

1.3
long-term planning
but stresses the need to include local and regional authorities in
devising and implementing any lifelong learning strategies;

1.4
agrees with the need for a culture of evaluation within
education and training systems but stresses the importance of
fostering awareness of the efficient use of resources (2), draws
attention to the fact that lifting the financial obstacles to access

(1) OJ C 164, 5.7.2005, p. 59.
(2) CdR 21/2000 fin.

1.5
considers that targeted policy measures should seek not
only increased enrolment of children at pre-school age but also
incentives and supporting parent-oriented measures to encou-
rage regular attendance in pre-primary education, especially for
children from a disadvantaged social background or who live in
upland, rural or sparsely populated areas;

1.6
stresses that effective early childhood education requires
well-trained pedagogical staff and therefore calls for increased
effort on the level of teacher training;

encourages in this respect the promotion of exchanges
1.7
of best practice and of cross-border networks between localities
and regions in improving evaluation and promoting quality
assurance;

1.8
notes that exclusion from the educational system is the
first step towards marginalisation followed by exclusion from
the employment system and by extension from cultural, social
and civic life. In this respect, it reiterates (3) the importance of
combating school dropouts which have negative effects on
competitiveness and cohesion (4);

(3) Conclusions of the CoR conference in Helsinki At the sources of knowl-
edge — Competitiveness through basic education on 29 September
2006.

(4) http://www.cor.europa.eu/en/presentation/educ.asp.

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1.9 welcomes the focus of the Communication on evidence-
based policy planning using solid research results as a reference.

Pre-primary education: Focusing on learning at an early age

THE COMMITTEE OF THE REGIONS,

1.10
recognises that research evidence, including from the
important work undertaken by the OECD in this field, has
shown that in the long run pre-primary education and targeted
early intervention programmes bring the highest rates of return
over the whole lifelong learning process, especially for the most
disadvantaged;

recalls, however,

the cross-sectoral
1.11
approach in which key responsibilities are held by local and
regional authorities and regrets the absence of their recognition
in the Communication.

the necessity of

1.16
draws particular attention to the needs of the immi-
grant population, who often have problems integrating into the
education system. This may be due to gaps in the education
they received in their countries of origin, or to an insufficient
knowledge of the language of the host country. In order to
ensure that
specific
receive proper
immigrants
training of teaching staff is also necessary;

treatment,

1.17
is of the opinion that the motivation, skills compe-
tences and salaries of teachers and trainers, the availability of
guidance services and infrastructure factors like appropriate
teaching group sizes are important contributory factors in
achieving high quality learning outcomes;

regards as important

1.18
the development of a caring
learning environment which boosts individual motivation, the
effort to learn and confidence to achieve. It also underlines the
need to ensure the involvement of parents in the education
process noting that students with weak home and peer support
are at greater risk of social exclusion;

Primary and secondary education: Improving the quality of basic educa-
tion for all

THE COMMITTEE OF THE REGIONS,

1.19
stresses that the measures adopted to secure greater
equity and improve the way in which the needs of particular
groups are met should remain consistent with the effort to
improve the efficiency or quality of the education system; these
should involve mechanisms to help the learning process to keep
the appropriate speed;

acknowledges that EU Member States and competent
1.12
regions have different
education systems with different
approaches; however agrees that an early differentiation of
pupils according to ability at an early age can condition their
future career and life paths;

1.13
supports inclusive lifelong learning opportunities for
all recognising the right to go to school and participate in
education schemes;

1.20
highlights the need to strike a balance in education
systems between basic general training and the possibilities for
specialisation. This general knowledge base should always
include European culture and history. Moreover, the different
education and training systems should devote sufficient atten-
tion to key competences for lifelong learning, as defined and
adopted in the Recommendation of the European Parliament
and of the Council on key competences for lifelong learning.

that

tracking

suggests

1.14
upper
postponing
secondary level, combined with the possibility to transfer
between school types can be one of the instruments to reduce
segregation and promote equity without diminishing efficiency
and can also help develop the natural potential and abilities of
each pupil;

until

Higher education: Improving investment while widening participation

THE COMMITTEE OF THE REGIONS,

1.15
has consistently called for measures for pupils with
special needs to be supported, as early on as possible in the
system. It stresses the importance of arresting marginalisation
at primary school level and underlines the value of exchanging
experience in this area; it underlines the need for universally
challenging learning and for schools that can stimulate all
pupils. This applies equally to those with a more difficult back-
ground and to the more advanced;

1.21
agrees that modernisation of higher education is a
crucial factor in the rapidly evolving knowledge society. Higher
education institutions are an essential element of the ‘knowledge
triangle’ of education, research and innovation given their inter-
linked roles;

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1.22
points out therefore that higher education institutions
should open themselves up more to new groups of learners, to
emphasise lifelong learning and to offer wider access
to
academic education, as essential conditions for meeting demo-
graphic and structural changes over the next few decades;

supports the Commission's proposal

1.28
for clear and
diverse pathways through vocational education and training to
further learning and employment and welcomes the specific
reference to involving the local and regional level in encoura-
ging stakeholder partnerships to enhance the quality and rele-
vance of public training programmes for the unemployed and
disadvantaged learners;

that

recognises, however,

1.23
the growth in student
numbers and increasing costs of high-quality education and
research need to be matched by increased public and, where
appropriate, private funding. Local and regional authorities play
a key role in channelling funding towards the modernisation of
higher education systems, especially through targeted use of
European structural funds;

1.24
recalls that access to higher education must be as inclu-
sive as possible, not only in order to secure the future of a
Europe of knowledge, but also to serve as a basis for the social
cohesion of Europe as a whole. Reaffirms the broad mission of
higher education encompassing its contribution to personal
fulfilment and democratic citizenship as well as its role in revita-
lising cultural heritage (5);

1.25
notes that the Communication focuses on the issue of
tuition as a means to enhance funding and to stimulate a
responsive attitude of students and families towards higher
education achievement. Tuition should not become a factor for
exclusion on the basis of financial resources. Nevertheless, it
stresses that tuition is never an isolated issue but, on the
contrary, is always embedded in the larger context of a variety
of factors related to financial incentives or obstacles to participa-
therefore calls for a broader,
tion in higher education.
context-related approach, taking into account national, regional
and local particularities of the funding and tax systems, rather
than focussing on the issue of tuition only.

It

Vocational education and training: Improving quality and relevance

THE COMMITTEE OF THE REGIONS,

1.29
points out that training of teachers and trainers should
be updated in order to serve the needs of an increasingly
mature learners' public. Specific pedagogical methods and mate-
rial need to be developed while paying attention to flexible
modes of delivery adapted to learners combining their training
with professional and family duties. In this context educational
and training policies will
interfere with social policy issues
where local and regional authorities can play a catalyst role;

stresses the need for generalised application of struc-
1.30
tured mechanisms for the validation of prior learning, especially
for knowledge and competences acquired outside the formal
education system. This validation should serve a double
purpose: facilitating employability/social inclusion and providing
access to further learning on the basis of prior learning experi-
ences;

1.31 welcomes in this respect the European Commission's
communication on ‘Adult learning: It is never too late to learn’
and agrees that in the light of
the demographic change in
Europe, more emphasis should be placed on the education of
adults, with well-targeted, efficient investments;

points out,

in this respect, that in many European
1.32
countries the regional and local level has key responsibilities in
the field of adult education and it has a direct interest in the
development of workforce skills. It therefore calls for the local
and regional
to be involved more closely in actions
concerning the education of adults at EU level.

level

1.26
agrees with the European Commission that as our
population ages, the persistently high level of youth unemploy-
ment
the increased
in the EU is unacceptable,
demand for a highly qualified workforce;

in view of

2. Proposal for a Recommendation on the establishment of
the European Qualifications Framework for lifelong
learning

1.27
calls for vocational education and training systems to
be recognised and promoted in countries where they are under-
developed, so that they meet the requirements of the many
young people seeking reliable access to the labour market, and
the needs of the labour market itself;

(5) CdR 154/2005 fin.

THE COMMITTEE OF THE REGIONS,

appreciates the need for a specific European framework
2.1
for
learning qualifications complementing arrangements for
professional qualifications, not least because a EQF for lifelong
transition between the different
learning will make

the

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education and training paths more transparent and visible.
Nevertheless, learning qualifications play an important role in
the transition from learning environment to working life and
can therefore not be disconnected from issues of preparation for
the labour market;

sion and employability as well as personal fulfilment, welcomes
the output-oriented approach of the Commission to learning
outcomes,
the description of qualifications in terms of
i.e.
knowledge and competence;

2.2
draws the Commission's attention to the need to
carry out a systematic analysis of the impact of its legislative
proposals at local and regional level, in particular for fields such
as education and vocational training, for which the regional and
local authorities are responsible in several Member States. This
impact analysis should be published online in full and in all the
official languages of the Union;

learning context

considers that qualifications should be comparable inde-
2.8
pendent of
learning
outcomes approach makes it easier to compare qualifications
across different countries and education and training systems,
facilitating the role of local and regional educational authorities
in the EU;

and provider. The

2.3 welcomes the Commission's Framework of Qualifica-
tions, and supports its double objective of improving transpar-
ency of qualifications and promoting mobility in the European
Union; stresses, however, that the EQF in itself does not deliver
qualifications but that qualifications frameworks are developed
at
level. Local and regional competent
authorities are therefore to be involved in the exercise of linking
up national/regional qualifications frameworks to the EQF;

the national/regional

2.9 moreover, learning outcomes and descriptors can func-
tion as reference points for quality assurance, thus enhancing
European cooperation in quality assurance and mutual recogni-
tion of evaluation decisions; welcomes therefore the explicit
link in the recommendation between the EQF as a transparency
tool and the general principles on quality assurance, as these
quality assurance principles can play an important role in
creating mutual trust as a basis for international recognition of
qualifications;

facilitate

frameworks will

agrees with the Commission that national and European
2.4
qualifications
the validation of
learning in all contexts. It welcomes this inclusive approach as
it recalls the need for the recognition of formal, non-formal
and informal education in lifelong learning and agrees that this
is of particular importance for promoting equal opportunities
by recognising the key competences and skills of
the least
advantaged (6);

2.5
considers the EQF to be a useful tool for increasing
mutual trust between national and regional education systems
in Europe which will contribute to mobility, competitiveness
and employment, encouraging the exchange of knowledge and
competences across the EU;

2.6
however, calls on the Commission to clarify the relation-
ship between qualifications levels, Directive 2000/36/EC and the
provisions for the certification of formal and informal learning,
which already exist or are currently being established at national
and regional level (7);

2.10
calls for the promotion of a framework for cooperation
and dissemination of best practice in order to establish a real
exchange of experience on a continuous basis. This would
taking place within the
enable the positive developments
Member States in particular at local and regional
level to be
capitalised on.
therefore recommends the promotion of
more Europe-wide networks disseminating best practice in
promoting access to training in particular through local and
regional partnerships;

It

2.11
emphasises that the EQF should respect the diversity
and strengths of regions and localities in the EU. As a reading
grid or translation device, the EQF will not replace but comple-
ment national and regional qualifications frameworks;

2.12
believes that applying the EQF will almost certainly
lead to further actions at Community level and stresses that, in
this case, an in-depth subsidiarity and proportionality analysis
must be carried out on these subsequent actions;

2.7
lifelong
notwithstanding the broader perspective of
learning strategies encompassing the objectives of social inclu-

(6) CdR 31/2006 fin.
(7) European Parliament resolution on the creation of a European Qualifi-

cations Framework (2006/2002 (INI)).

2.13
calls for clear descriptors to be used and a clear coordi-
nation between existing regional qualifications frameworks and
the EQF.

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2.14 Recommendations to the Member States

Text proposed by the Commission

CoR amendment

HEREBY RECOMMEND THAT MEMBER STATES

HEREBY RECOMMEND THAT MEMBER STATES

(…)

(…)

2. Relate their national qualification systems to the Euro-
pean Qualifications framework by 2009 … by devel-
oping a national qualification framework, where appro-
priate according to national legislation and practice.

(…)

2. Relate their national/regional qualification systems to
the European Qualifications framework by 2010 in par-
ticular by referencing in a transparent manner their
qualification levels to the levels set out in Annex I, and
by developing a national/regional qualification frame-
work, where appropriate according to national/regional
legislation and practice.

5. Designate a national centre to support and coordinate
the relationship between the national qualifications
system and the European Qualifications Framework.

(…)

This centre's tasks should include: (…)

(a) ensuring the participation of all relevant national stake-
holders including, according to national legislation and
practice, higher education and vocational education and
training institutions, social partners, sectors and experts
on the comparison and use of qualifications at the
European level;

5. Designate a national/regional coordination point

to
support
and in conjunction with other
relevant
national/regional authorities coordinate the relationship
between the national/regional qualifications systems and
the European Qualifications Framework.

In those Member States where it would be constitution-
ally impossible to set up a regional coordination point,
the national point should ensure appropriate and suffi-
cient representation of regions with legislative powers.

In all events, national/regional coordination points
should be built on existing structures wherever possible.
If the creation of a new structure cannot be avoided,
then the administrative costs should be kept
to a
minimum.

Ultimately, the decision to set up national or regional
coordination points should come from the authority
responsible in each Member State.

This coordination point's tasks should include: (..)

(a) ensuring the participation of all

relevant national,
regional and local stakeholders including, according to
national legislation and practice, higher education and
vocational education and training institutions, social
partners, sectors, experts on the comparison and use of
qualifications at the European level, while coordinating
with local and regional authorities;

R ationale

Importance should be given to the local and regional level as in many Member States local and regional
authorities are vested with direct responsibilities and powers in the field of education and training, including
the establishment of qualifications frameworks. They are responsible for the delivery of educational and
training services which provide a structure for lifelong learning through the provision of pre-school, school,
youth, adult and community services.

If the Commission expects a contact point at Member State level, it can only fulfil the role of coordination
point ensuring cooperation at all levels.

Due to the large consultation process when linking up national/regional qualification frameworks to the
EQF and the fact that the Recommendation will be adopted no earlier than the end of 2007, beginning of
2008, the deadline of 2010 is more realistic than that of 2009.

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2.15 Endorsement of the Commission's intention

Text proposed by the Commission

CoR amendment

ENDORSE THE COMMISSION'S INTENTION TO:

ENDORSE THE COMMISSION'S INTENTION TO:

2. Establish a European Qualifications Framework advisory
group (including representatives of the national centres,
the European social partners and other stakeholders, as
appropriate)
in order to monitor, co-ordinate and to
ensure the quality and overall coherence of the process
of relating qualifications systems to the European Quali-
fications Framework;

2. Establish a European Qualifications Framework advisory
group (including representatives of the national/regional
centres, the European social partners and other stake-
holders, as appropriate) in order to monitor, co-ordinate
and to ensure the quality and overall coherence of the
process of
relating national/regional
qualifications
systems to the European Qualifications Framework;

3. Monitor the action taken in response to this Recom-

Assess, in cooperation with the Member States, …

mendation …

R ationale

As qualifications frameworks are developed at national/regional level the Commission has to be supported
by the Member States in the assessment exercise.

2.16 Definitions

The CoR regrets that there is no mention of regional qualifications frameworks alongside national qualifica-
tions frameworks. In contrast to what the Commission proposal's definition seems to suggest it has to be
observed that in some Member States regional qualifications frameworks are defined autonomously and can
therefore not be seen as mere ‘sub-frameworks’ of the national qualifications framework.

2.17 Annex I: descriptors

The CoR acknowledges that the list of descriptors strikes a delicate balance between the different contexts in
which learning qualifications can be acquired.

It draws attention to the necessity of safeguarding the compatibility of the definition of the descriptors for
level 5 to 8 with the descriptors from the overarching qualifications framework for the European Higher
Education Area already approved by the Ministers in charge of higher education in the context of the
Bologna process in 2005. In this context it is important to note that the Bologna qualifications framework
has defined the levels not only in terms of learning outcomes but also in terms of ECTS credit ranges,
thus making comparison easier.

The CoR therefore welcomes the Commission's intention to develop a credit transfer system for vocational
education and training and, in the long run, considers a credit transfer system valid for the whole range of
lifelong learning as a necessary tool to make the implementation of the EQF more efficient.

2.18 Annex II: common principles for quality assurance

Although the CoR stresses the triangular relationship between transparency (EQF), quality assurance and
recognition of qualifications, it would like to suggest that Annex II is too general to replace existing elabo-
rated systems, principles and standards developed for European cooperation in quality assurance in specific
sectors of education and training. Moreover, some of the principles seem to be less appropriate in the
context of evaluation of school education. The CoR therefore would like to recall the guiding role of the
Recommendation of the European Parliament and of the Council of 12 February 2001 on European

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cooperation in quality evaluation in school education (OJ L 60, 1.3.2001, p. 51-53), the Recommendation on
further European cooperation in quality assurance in higher education of 15 February 2006 (OJ L 64, 4.3.2006,
p. 60) and the Council Conclusions on Quality Assurance in Vocational Education and Training of 18 May 2004
(doc. 9599/04).

Brussels, 14 February 2007.

The President

of the Committee of the Regions

Michel DELEBARRE