Opinion of the Committee of the Regions on Improving competences for the 21st century: An Agenda for European Cooperation on Schools
Date: 2008-11-27
Institutions: European Committee of the Regions
Subjects: EU programme, European Committee of the Regions, European cooperation, action programme, education policy, educational system, exchange of information, regional and local authorities, teacher training

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Official Journal of the European Union

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Opinion of the Committee of the Regions on ‘Improving competences for the 21st century: An
Agenda for European Cooperation on Schools’

(2009/C 76/12)

THE COMMITTEE OF THE REGIONS

— stresses the fact that the prime purpose of supranational measures must be to generate European
added value. In consequence, the Committee endorses the Commission's call to capitalise more on the
diversity — based on common values — of school systems in Europe, with their many innovative and
excellent practices

— points out the need to keep in mind the varying degrees of decentralisation in different Member
States. In many Member States, responsibility for schools lies with the local and regional authorities. It
is important, therefore, to have effective political and administrative interaction between all tiers and
that common policies are drawn up. The most successful way to improve schools is for local and
regional authorities to be active partners in the process and take responsibility for the development of
education in their areas

— thinks that t should not be forgotten that education is acquired not only in school, but also in pre-
school establishments and in everyday life outside of school — for example, in the family, in leisure
activities with contemporaries, in digital environments or through the media. Those responsible for
education or youth policy should endeavour to see the young people in their care in the round and
consequently factor into their thinking — as far as possible — the extracurricular education processes
and the influence that these have on school education and informal education.

— notes that it is largely local and regional authorities that have — as far as they have been able —
funded pre-school provision throughout Europe and continuously built up and improved it over
many years. Nevertheless, now as in the past, many projects — such as promoting multilingualism in
young children, especially in border regions — can only be launched with support from European
programme funds. In such cases, the Committee thinks that European Union support measures
should offer greater continuity to avoid good projects folding after only a few years due to lack of
funding and the knowledge and experience acquired being lost. Continuing with these projects would
require financial support from the EU.

— hopes in this regard that the new Comenius Regio programme will give local and regional authorities
greater scope to decide for themselves the priorities they would like to set in the support for projects.

— offers the Commission its support in the cooperation it proposes. It reiterates that cooperation should
consist above all in the direct pooling of experience between bodies responsible for education policy
in the Member States.

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Rapporteur: Ms Helma KUHN-THEIS (DE/EPP), Member of the Saarland Landtag

Reference document

Improving competences for the 21st century: An Agenda for European Cooperation on Schools

COM(2008) 425 final.

POLICY RECOMMENDATIONS

THE COMMITTEE OF THE REGIONS

1.
welcomes the European Commission's Communication on
Improving competences for the 21st century, which sets out impor-
tant challenges facing education systems in Europe. It largely
concurs with the Commission in its analysis of the difficulties
and with the conclusions it reaches.
it agrees
entirely with the Commission's view that investing in young
people — especially in the education sphere — should be the
highest priority.

In particular,

2.
would have found it helpful here if the Commission had
sought to calculate the scale of the financial commitment for
local and regional authorities that implementing its proposals
would entail.

this

reason,

takes the view that combating the problems examined by
3.
the Commission is in many respects already at the heart of
efforts not only of Member States but also of local and regional
authorities. For
the
Commission's failure to mention in its remarks the contribution
that local and regional authorities — with their diverse responsi-
bilities in the education sector and their detailed knowledge of
the local and regional circumstances — are already making, to
tackling the questions raised and the fact that they will continue
to provide financial resources and expertise.

the Committee

laments

4.
does see a need, on the other hand, for further action,
given the key role of education in economic growth and pros-
perity in Europe and the pre-eminent importance of schooling
with regard to lifelong learning. For this reason, it supports in
principle the proposal to strengthen European cooperation on
schools.

5.
at the same time stresses the fact that the prime purpose
of supranational measures must be to generate European added
value. In consequence, the Committee endorses the Commis-
to capitalise more on the diversity — based on
sion's call
common values — of school systems in Europe, with their
many innovative and excellent practices. This applies particularly
to the approach put forward by the Commission of supporting
bodies responsible for the form and substance of education
systems — at local and regional as well as national levels — by
facilitating the exchange of proven methods.

points out the need to keep in mind the varying degrees
6.
of decentralisation in different Member States. In many Member
States, responsibility for schools lies with the local and regional
authorities. It is important, therefore, to have effective political

and administrative interaction between all
tiers and that
common policies are drawn up. The most successful way to
improve schools is for local and regional authorities to be active
partners in the process and take responsibility for the develop-
ment of education in their areas.

thinks that the Communication's approach of

focusing
7.
only on the structuring of European cooperation on schools is
legitimate and viable. It should not be forgotten, however, that
education is acquired not only in school, but also in pre-school
establishments and in everyday life outside of school — for
example, in the family, in leisure activities with contemporaries,
in digital environments or through the media. Those responsible
for education or youth policy should endeavour to see the
young people in their care in the round and consequently factor
into their thinking — as far as possible — the extracurricular
education processes and the influence that these have on school
education and informal education.

Focus on competences (Section 2)

underscores

the Commission's observation that

skills
8.
‘by
acquisition largely depends on the learners themselves,
reflecting critically on their
learning aims, managing their
learning with self-discipline, working autonomously and colla-
boratively, seeking information and support when necessary,
and using all the opportunities of information and communica-
tion technologies’
in a society in
(see point 2.3). Therefore,
which the capacity for lifelong learning is increasingly impor-
tant, learning to learn and independent learning are absolutely
essential and need to be encouraged as key skills.

considers it important, for this reason, that schools have a
9.
coherent concept of education so that pupils understand how
the education they receive is structured and what is expected of
them. The learning of children and young adults should be
marked by positive expectations, receptiveness, stimulation and
direction.

10.
endorses the view that curricular reform should take a
holistic and skills-oriented approach ‘involving teachers, learners
and other actors fully’ (point 2.5), wobei besonders die Einbezie-
hung der Erziehungsberechtigten wichtig ist. High expectations
should be set for the school system whilst recognising that
schools also depend to a large extent on social circumstances.
Two examples illustrate the point. Firstly, the school's efforts
bear more fruit if
the foundations of a positive attitude to
learning have already been laid in the family and pre-school
facilities. Secondly, as the end of schooling approaches, the

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signals sent by the economy and the labour market are also
very important for young people's motivation to learn. For their
part, schools can also sustain a new culture of citizenship by:

— building up a local educational network which, based on the
subsidiarity principle, recognises the contribution to educa-
tion and training made by both formal and informal educa-
tional players;

— forging links with the local authority's cultural assets, tradi-

tions and scientific and economic heritage;

— on-going sharing of the educational and training project
with families, recognising roles and differences while at the
same time laying down reciprocal duties.

11.
agrees with the Commission that promoting reading
skills is one of the school's core tasks. Many of the support stra-
tegies set forth by the Commission — especially regarding the
school environment — are classic local and regional authority
roles, including promoting the language skills of families and
improving the literacy infrastructure. The equipping of schools,
multimedia libraries and leisure facilities, which is mostly
funded by regional and local authorities, is also an important
factor in developing a positive attitude towards mathematics,
information technology, natural sciences and technology (MINT
subjects).

stresses,

12.
in addition to the acquisition of reading and
writing skills, the importance of developing ICT (e-literacy) skills
as school. This is the best way of preparing children and young
people for an independent life and enabling them to master
modern information technologies, which bring additional added
value for their personal development and that of society

13.
shares the Commission's view of the importance of indi-
vidualised learning approaches and the purpose of assessment.
Assessments should be formative and forward looking — in
other words, they should be intended to shape further learning
more effectively and more individually. In reality, however, they
are often summative, that is to say definitive, and used only to
grade pupils. Here the Committee still sees a considerable need
for improvement in initial and in-service teacher training. Euro-
pean programmes to spread new knowledge can make a contri-
bution here, especially if they can also reach trainee teachers
and teachers who are receiving in-service training.

15.
sees a close connection between education designed to
cultivate an entrepreneurial culture and spirit and the principle
mentioned above whereby the overall aim is to foster the devel-
opment of independent individuals who are prepared to act on
their own initiative — not only in the economic sphere, but in
their role as citizens who take responsibility for the community.
Schools must therefore develop high quality learning for every
student
(Section 3), positioning themselves as educational
communities from the cognitive, cultural and social point of
view, and boosting not only education for knowledge, but also
education for citizenship. Another important
factor in this
context is close cooperation with the local and regional world
of work.

High quality learning for every student (Section 3)

for pre-school children.

unreservedly endorses the Commission's plea for better
16.
learning opportunities
It explicitly
endorses the statement that ‘improving pre-school provision and
widening access to it are potentially the most important contri-
butions […] to improving opportunities for all and achieving
Lisbon goals.’ It is in pre-school facilities that important founda-
tions are laid for subsequent successful learning throughout the
school career. This is not only true for children from disadvan-
taged groups; a good pre-school education benefits all. Chil-
dren's attendance at pre-school facilities offers an initial oppor-
tunity for an approach to knowledge in which socio-educational
steps, from the earliest years, lay down the foundations for posi-
learning
tive attitudes towards social existence, commitment,
and to involving families in their own children's education. The
innovative teaching methods that are often adopted in pre-
facilities could be usefully applied, with appropriate
school
the
changes,
Committee warns that even the best possible provision at the
pre-school stage does not absolve teachers in subsequent educa-
tion from their responsibility to keep alive and further develop
their pupils' joy of discovery and appetite for learning.

to the ensuing levels of education. However,

17.
notes that it is largely local and regional authorities that
have — as far as they have been able — funded pre-school
provision throughout Europe and continuously built up and
improved it over many years. Nevertheless, now as in the past,
many projects — such as promoting multilingualism in young
children, especially in border regions — can only be launched
with support from European programme funds. In such cases,
the Committee thinks that European Union support measures
should offer greater continuity to avoid good projects folding
after only a few years due to lack of funding and the knowledge
and experience acquired being lost. Continuing with these
projects would require financial support from the EU.

encompassing curricula,

14.
regrets the wording in the third indent of the conclusion
— ‘adopting a comprehensive approach to competence develop-
ment,
teacher
training …’ — since it fails to make clear that this is not a call
for a harmonised approach across Europe, but an impetus to
Member States and those within them who are responsible for
education.

learning materials,

hopes

in this

regard that

the new Comenius Regio
18.
programme will give local and regional authorities greater scope
to decide for themselves the priorities they would like to set in
the support for projects.

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19.
backs the Commission in its call for greater fairness in
the education system, but cannot endorse its sometimes too
general pronouncements on the different solutions in place in
the individual Member States, including the age at which chil-
dren are sent to schools that issue qualitatively different school-
leaving qualifications. A 2007 McKinsey study (1) shows that
success in learning depends far more on the structure of educa-
tion than how the school system is organised. For this reason,
teacher
effort should be put
training — as the Commission quite rightly says elsewhere in its
communication (Section 4).

into improving the quality of

20.
considers it important that all the Member States strive
for even greater equality of opportunity in access to schooling.
The aim is for everyone to have access to high quality schooling
and to ensure that social and economic inequalities do not play
any considerable role.

21.
is aware that in many instances pupils from migrant
backgrounds face very complex problems and therefore require
particular attention. In this context it welcomes the Commis-
sion's Green Paper (2) on this matter on which the Committee
of the Regions will soon draw up a separate opinion. Schools
must be supported in the efforts they are making to integrate
foreign pupils and their families, by providing intercultural
education that ensures attention for all and respect for diversity.
An understanding of the strong links between language and
culture highlights the importance of language learning, covering
both an aural and written knowledge of
the host country
language, as a means of communication and contact, and
preserving the language of the country of origin, as a token of
identity and respect and celebration of diversity.

considers it a very important task of schools to support
22.
disadvantaged pupils, to bolster their self-confidence, to recog-
nise their progress and to show them pathways to success that
as far as possible match their individual circumstances and
it should also not be forgotten that very
needs. However,
promising pupils with particular gifts and talents have just as
much right to be stimulated, supported and challenged. That,
too, is part of a fair school system. One of the most important
and exacting tasks in teaching is to structure individual support
for all pupils in a way that does not diminish social solidarity.
The individual's sense of responsibility for the whole must be
preserved.

23.
calls for a huge reinforcement of the importance of these
curricular and extracurricular measures to bring down early
school leaving. Local and regional authorities bear a large part
the responsibility in this matter and invest considerable
of
resources.
In this connection the Committee recognises that
making resources available from the European structural fund is
a great help, but would like to see local and regional authorities

(1) Michael Barber, Mona Mourshed:

‘How the world's best-performing
come out on top’, McKinsey & Company,

school
systems
September 2007.
(2) COM(2008) 423.

given more access to European support funds with the least
possible red tape.

24.
on the question of ‘second chance’ schools, points out
the importance of a second learning pathway not only for
young people, but at all stages of life. All adults, though espe-
cially, of course, those who missed out on a lot as children and
young adults, must still have opportunities for development.

feels that

25.
the overall measures concerning education
provision for pupils with special educational needs is inap-
propriate. Firstly, the individual needs of such children vary
greatly; secondly,
there are considerable differences between
systems in the Member States for providing for special educa-
tional needs. It must be the general aim of education to give
pupils with learning and adaptation difficulties prompt and flex-
ible help irrespective of the type of school they attend. It is
wrong, therefore, to judge the quality of special needs education
solely on the kind of school attended. For many pupils it is only
special needs schools that provide access to education. In par-
it is important for children who may have
ticular, however,
special educational needs that these are spotted and recognised
as early as possible in their pre-school years so that support
mechanisms can be activated. This would make the transition
into school much easier for the children concerned and their
families.

stresses the importance of school development for the
26.
sustainability of the reforms introduced in the various education
systems. As part of this, the role of school inspections — which
flexibility and innovation in
should promote and support
schools — should also be examined.
In line with this, the
Committee urges the Commission to pursue with care any
policy of coordination and coherence which could stifle the
overall objectives of
innovation and entrepreneurship at the
school
if it becomes a vehicle for standardisation. The
level
Committee thinks that school reform is a matter in which not
only Member States but also local and regional authorities as
well as schools themselves could benefit from pooling experi-
ence and recognises that European programmes, especially
Comenius and the earlier ARION, have been and continue to be
very useful in this regard.

that

schools

endorses

the Council's view (3)

27.
should
become self-evaluating learning communities that set themselves
new goals, committing to the educational policy of their local
or regional authority, possible according to the constitutional
provisions of the Member State, and playing a role in drawing
up these policies. This includes improving continuous education
and development provision for teachers. In this connection, the
Committee welcomes schools and teachers cultivating good
contacts with the local community. In its view, the regional and
sound
local
development.

crucially important

for a school's

tiers are

(3) OJ C 300, 12.12.2007, p. 7.

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Teachers and school staff (Section 4)

28.
agrees with the Commission that teachers are crucial to
achieving the Lisbon goals. It feels that priority must be given
to high-quality pedagogical and technical initial teacher-training
that includes periods of teaching practice.

29.
calls for greater teacher mobility in initial and continuing
education. It is reasonable to expect that teachers who have
gained first-hand experience in other European countries will be
able to bring alive to their pupils the diversity of Europe's tradi-
tions and cultures and bring them to recognise shared values.

can think of other factors which should be taken into
30.
account in the initial and continuing education of
teachers.
Among these is the change in learning behaviour through use
of the internet and the associated innovations. There thus needs
to be a change in the image of teachers and how they see them-
selves. Flexibility is vital: teachers must be quick to recognise
trends in education and engage with changes in the sector.
Teachers, social and youth workers, and many others involved
in teaching roles must work together and seek to understand
each other's professional environment. Teamwork should be one
of the pillars of initial and continuing education. Equally impor-
tant are networking and cooperation with colleagues at other
schools.

31.
also proposes to address the role of complementary and
possibly semi-professional work. In many regions, for example,
the role of learning coach has been created to tackle the indivi-
dual needs of particular learners. There could be models here
for other school systems to imitate.

feels that the Commission's proposal for better recruit-
32.
ment is a question that needs attention. The Committee regards
as a sound approach the targeted recruitment of qualified appli-
cants — who would then be continuously supported in their

Brussels, 27 November 2008.

education and career — as set out by the Commission in
point 4.4 of the communication.

agrees with the Commission that the demands placed on
33.
school managements have risen enormously. Local and regional
authorities have recognised this and,
in an attempt to attract
competent individuals to the job, are endeavouring to make
schools a more attractive workplace for school managers too.

34.
believes that it is important, as part of ongoing coopera-
tion in this area, to conduct a general debate on the role and
tasks of school leaders and the competences required of them. It
is also important in this context to exchange experience on
good practices in the recruitment of school leaders.

Conclusion of the Commission's proposal (Section 5)

35.
offers the Commission its support in the cooperation it
proposes. It reiterates that cooperation should consist above all
in the direct pooling of experience between bodies responsible
for education policy in the Member States. The Committee sees
the real priority here to be the focus proposed by the Commis-
sion in its conclusion: improving literacy, extending access to
pre-school provision and strengthening teacher education.
It
calls for more and easier ways of using EU funds to foster the
transfer and testing of procedures that have proven their worth
in local authorities and regions. The principle here, however,
must be to take the greatest care in transposing models from
one region to another — because of the different cultural and
social context involved — and this should only be done on the
basis of a conscious decision and with the express consent of
those responsible at local level.

36.
thanks the Commission for the stimulating ideas in its
communication and asks it to take note of these remarks as the
discussion proceeds.

The President

of the Committee of the Regions

Luc VAN DEN BRANDE