Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - An updated strategic framework for European cooperation in education and training {SEC(2008) 3047} {SEC(2008) 3048}
Date: 2008-12-16
Institutions: European Commission
Subjects: EU employment policy, continuing education, cooperation policy, economic consequence, education policy, educational reform, impact study, professional qualifications, social impact, vocational training

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 16.12.2008 
COM(2008) 865 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

An updated strategic framework for European cooperation in education and training 

{SEC(2008) 3047} 
{SEC(2008) 3048} 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

An updated strategic framework for European cooperation in education and training 

(Text with EEA relevance) 

1. 

INTRODUCTION 

Building  higher  skills  through  better  education  and  training  systems  is  an  essential 
part of Europe's strategy to meet future challenges such as the ageing of society and 
to deliver the high levels of sustainable, knowledge-based growth and jobs that are at 
the  heart  of  the  Lisbon  strategy.  Knowledge,  skills  and  competences  determine  an 
individual's  chances  to  succeed  in  the  labour  market  and  to  have  an  active  role  in 
society.  They  are  crucial  for  social  cohesion  as  well  as  the  competitiveness  and 
innovative capacity of enterprises and the entire economy. 

As set out in the initiative on New Skills for New Jobs, also published with this year's 
Lisbon package, labour market changes will require both upgrading the skills of the 
population  and  skills  development  policies  that  better  match  current  and  future 
labour market needs. This will only happen if lifelong learning becomes a reality, not 
a  slogan,  allowing  people  to  acquire  key  competences  early  and  update  skills 
throughout their lives; and if education and training systems become more responsive 
to change and more open to the wider world. 

EU  Member  States  and  the  Commission  have  been  cooperating  closely  to  support 
national  reforms  of  education  and  training  systems  through  the  "Education  & 
Training  2010"  work  programme.  While  taking  into  account  Member  States’  very 
different  starting  points,  the  open  method  of  coordination  (OMC)  has  supported 
progress towards a set of shared objectives measured against common indicators and 
benchmarks and in line with the integrated guidelines for growth and jobs, aimed at 
increasing  investment  in  human  capital  through  better  education  and  skills, 
facilitating  innovation,  and  promoting  a  more  entrepreneurial  culture1.  The  current 
framework for cooperation, which was agreed by the Education Council in 2001/02, 
is coming to an end and this is an appropriate point to take stock and look ahead. 

Following a wide consultation with Member States and other actors during 2008, this 
Communication  suggests  long-term  strategic  challenges  to  guide  the  policy 
cooperation  for  the  period  to  2020.  The  challenges  reflect  the  contribution  of 
education  and  training  to  the  Lisbon  Strategy  and  the  renewed  Social  Agenda.  The 
Communication  also  outlines  the  most  urgent  priorities  which  merit  particular 
attention  during  the  initial  period  ahead,  for  2009  and  2010.  This,  together  with 
improved working methods, will strengthen the focus on implementation and make 
the new framework more flexible to address both certain long-identified weaknesses 

1 

Guidelines 23, 24, 8, 15. 

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and to open policy cooperation on new challenges. It also includes the possibility to 
refocus later, in the light of progress made, to reflect new issues as they emerge in 
the policy dialogue and to adapt objectives, benchmarks and reporting mechanisms 
as necessary in the light of decisions that will be taken on the future Growth and Jobs 
strategy beyond 2010. 

At this time when the EU is seeking to minimise the impact of the current economic 
downturn  and  set  the  course  for  renewed  growth,  it  is  vital  that  the  momentum  in 
favour  of  educational  investment  that  is  both  efficient  and  equitable  is  maintained. 
Good  policies  will  simultaneously  aid  recovery  from  recent  shocks  and  build  the 
basis for meeting future challenges with confidence. 

2. 

WHERE DO WE STAND? 

2.1. 

Progress and challenges 

Responsibility  for  education  and  training  policy  lies  with  Member  States.  Europe’s 
role is to support the improvement of national systems through complementary EU-
level tools, mutual learning and exchange of good practice. 

Policy  cooperation  on  education  and  training  has  supported  national  reforms  of 
lifelong  learning  and  qualification  systems,  the  modernisation  of  higher  education 
and  the  development  of  European  instruments  promoting  quality,  transparency  of 
qualifications  and  mobility  in  learning.  But  progress  varies  considerably  between 
Member States and is insufficient in key areas. Implementation therefore needs to be 
strengthened. As shown in chart 1, most of the benchmarks that the Council set for 
2010 will not be reached. While the maths, science and technology benchmark was 
reached  in  2003,  progress  on  early-school  leaving,  upper-secondary  attainment  and 
adult  participation  in  lifelong  learning  is  insufficient  to  reach  the  targets. 
Performance on low achievers in reading literacy has even deteriorated2. 

The 2008 Spring European Council therefore urged Member States to take concrete 
action to reduce substantially the number of people who cannot read properly and the 
number of early school leavers, to improve the achievement levels of learners with a 
migrant  background  or  from  disadvantaged  groups,  to  attract  more  adults  into 
continuing  education  and  training  and  to  further  facilitate  geographic  and 
occupational mobility3. 

2 
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OJ C 86, 5.4.2008, p. 1; SEC(2008) 2293. 
European Council Conclusions March 2008, para. 15. 

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Chart 1: Progress towards meeting the 5 benchmarks for 2010 (EU average)4 

Progress towards meeting the 5 benchmarks (EU average)

0
0
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=
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m
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2

200
190
180
170
160
150
140
130
120
110
100
90
80
70
60
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40
30
20
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0
-10
-20
-30
-40
-50
-60
-70
-80

MST graduates

progress required

   Lifelong learning participation

Early school leavers

Upper secondary completion

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

(below 0 = performance 
getting worse)

Low achievers in reading

Year

2.2. 

European education and training systems in a worldwide perspective 

Seen in a wider perspective, the EU's education and training performance is broadly 
comparable with the best in the world. But comparisons with other OECD countries 
reveal  significant  backlogs  for  the  EU,  both  at  the  level  of  basic  schooling  and  in 
higher education.  

Most notably, PISA results for reading literacy (15-year-olds) show that the EU as a 
whole  has  an  increasing  share  of  low  performers.  Chart  2  shows  that  the  share  in 
South Korea, Canada and Australia is relatively stable and far below the EU average. 
Migrant  populations  –  which  perform  badly  on  this  indicator  within  the  EU5  – 
succeed  notably  better  in  Canada  and  Australia.  Chart  3  shows  that  some  EU 
Member States perform at a level comparable to the best in the world. But given the 
poor  performance  of  some  other  Member  States,  this  remains  a  substantial, 
European-level challenge. 

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Latest data for MST graduates, low achievers in reading: 2006. Others: 2007. 
COM(2008) 423. 

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Chart 2: Low achievers in reading (at age 15) on the PISA reading literacy scale in 
the EU and selected third countries 2000 and 2006 (Data source: OECD) 

EU

Japan

USA

Korea

Canada

Australia

Benchmark 2010

24,1

21,3

10,1

5,8

5,7

18,4

19,4

17,9

17

11

9,6

13,4

12,4

2006

2003

2000

0

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10

15

20

25

30

Chart 3: Low achievers in reading (at age 15) on the PISA reading literacy scale in 
the EU 2000 and 2006 (Data source: OECD) 

2000 

2006 

Secondly,  many  of  the  EU's  key  competitors  have  higher  shares  of  people  with 
tertiary  level  educational  attainment.  The  EU  average  for  25-64  years  old  is  23% 
compared  to  40%  for  Japan,  39%  for  the  USA,  32%  for  Australia  and  Korea  and 
27% for New Zealand. 

Finally,  while  ensuring  the  efficiency  of  investments  is  a  key  concern  for  the  EU, 
many countries outside Europe are investing significantly more in higher education, 

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in particular from private sources. Private investment (0.23% of GDP in the EU) is 
much higher in both Japan (0.76%) and the USA (1.91%)6. 

These comparisons show that if Europe is to succeed in its ambition to be the world's 
leading  knowledge  economy  and  society,  it  must  step  up  its  performance  in  these 
areas. 

3. 

LONG-TERM  STRATEGIC  CHALLENGES  AND  IMMEDIATE  PRIORITIES:  RAISING 
SKILLS LEVELS THROUGH LIFELONG LEARNING 

On  the  basis  of  its  consultations,  the  Commission  proposes  that  European 
cooperation in education and training should address four strategic challenges in the 
years to 2020: 

•  Make lifelong learning and learner mobility a reality; 

•  Improve the quality and efficiency of provision and outcomes; 

•  Promote equity and active citizenship; 

•  Enhance innovation and creativity, including entrepreneurship, at all levels of 

education and training. 

These challenges should be addressed in a joined-up policy across the systems as a 
whole  (schools,  higher  education,  vocational  education  and  training/VET  and  adult 
learning). Lifelong learning is therefore a fundamental perspective underpinning all 
the above challenges. 

While these strategic challenges should form the basis for policy cooperation for the 
period  2009-2020,  more  specific  objectives  should  be  established  for  priority 
attention  in  shorter  term  blocks.  The  following  sections  3.1  to  3.4  set  out  the  long 
term  strategic  challenges  in  more  detail  and  propose  relevant  priorities  for  the  first 
period, 2009-2010. 

3.1. 

Strategic challenge: Make lifelong learning and learner mobility a reality 

Lifelong  learning  comprises  learning  at  all  ages  (from  pre-primary  to  post–
retirement) and in all contexts, i.e. including formal, non-formal or informal settings. 
Member States agreed to put in place by 2006 coherent and comprehensive national 
lifelong learning strategies. 

Implementing such strategies remains a challenge. Progress has been made as a result 
of  the  European  Qualifications  Framework  (EQF)7  which  triggered  development 
work on national qualification frameworks in many countries, including a new focus 
on  learning  outcomes  (i.e.  on  what  a  learner  knows,  understands  and  is  able  to  do 
rather  than  the  learning  process  itself).  By  increasing  the  transparency  of 

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SEC(2008) 2293, pp. 69, 89, 148. 
OJ C 111, 6.5.2008, p. 1. 

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qualifications, the EQF will facilitate the mobility of learners and workers between 
countries and their access to lifelong learning.  

However,  much  remains  to  be  done  to  establish  flexible  learning  pathways,  e.g. 
through better transitions between VET and higher education, opening universities to 
non-traditional  learners  or  the  validation  of  non-formal  learning.  Learning  must  be 
attractive and accessible for all citizens, independent of age, educational attainment, 
employment  or  social  status.  Better  coordination  between  different  education  and 
training sectors, institutional commitment (including sustainable models of funding) 
and partnership with all stakeholders is required. 

Learner  mobility  between  countries  is  an  essential  element  of lifelong  learning  and 
for  building  people's  employability  and  adaptability.  Evaluations  of  the  EU 
programmes  show  that  mobility  breaks  down  barriers  between  people  and  groups, 
makes  the  benefit  of  European  citizenship  more  tangible  and  helps  people  become 
more  adaptable  and  open  to  mobility  when  they  enter  the  labour  market.  Cross-
border learner mobility should become the norm, rather than the exception that it is 
today.  A  new  commitment  of  all  actors,  together  with  more  broadly-based  funding 
will be required to achieve this.  

Priority themes to be highlighted in 2009-10: 

Member  States  and  the  Commission  should  give  priority  to  achieving  better 
implementation of 

•  Lifelong learning strategies: Complete the process of implementation of national 
lifelong  learning  strategies,  giving  particular  attention  to  the  validation  of  non-
formal and informal learning and guidance.  

•  European  Qualifications  Framework:  Link  all  national  qualifications  systems 
to  the  EQF  by  2010  and  support  the  use  of  an  approach  based  on  learning 
outcomes for standards and qualifications, assessment and validation procedures, 
credit transfer, curricula and quality assurance.  

Member  States  and  the  Commission  should  focus  on  developing  the  policy 
cooperation on  

•  Expanding  learning  mobility:  Work  together  to  eliminate  barriers  and  expand 
opportunities for learning mobility within Europe and worldwide, both for higher 
and other levels of education, including new targets and financing instruments at 
the European and national levels8. 

3.2. 

Strategic  challenge:  Improve  the  quality  and  efficiency  of  provision  and 
outcomes 

The  European  Council  has  frequently  stressed  that  high  quality  education  and 
training  systems  which  are  both  efficient  and  equitable  are  crucial  for  Europe's 
success. 

8 

Council Conclusions of 20/21.11.2008 on youth mobility.  

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The major challenge is to ensure the acquisition of key competences9 by everyone, 
while developing the excellence that will allow Europe to retain a strong global role 
in higher education. Learning outcomes at all levels must be relevant for professional 
and private life.  

The  quality  of  teachers,  trainers  and  other  educational  staff  is  the  most  important 
within-school factor affecting student performance10. With around two million older 
teachers to be replaced in the next 15 years, the teaching profession must become a 
more attractive career choice11. 

To provide high quality outcomes on a sustainable basis, the governance of education 
and  training  systems  must  also  be  addressed.  Education  and  training  institutions 
should  be  given  greater  autonomy,  should  be  more  open  to  the  civil  society  and 
enterprises and should be subject to effective systems of quality assurance. 

High quality will only be achieved with an efficient and sustainable use of resources. 
The case for investment in education and training as a factor essential for economic 
growth  and  social  inclusion  should  be  strengthened  by  developing  the  evidence 
base12. 

Priority themes to be highlighted in 2009-10 

Member  States  and  the  Commission  should  give  priority  to  achieving  better 
implementation in the following fields 

•  Languages:  To  enable  citizens  to  communicate  in  two  languages  in  addition  to 
their mother tongue, promote language teaching in VET and for adult learners and 
give migrants the opportunity to learn the language of the host country13. 

•  Professional development of teachers and trainers: Focus on key elements of 
teachers' initial training and on expanding the range and quality of the continuing 
professional  development  opportunities  for  teachers,  trainers  and  staff  involved, 
for example, in leadership or guidance activities.  

•  Governance  and  funding:  Implement  the  modernisation  agenda  for  higher 
education (including curricula)14, the quality assurance framework for VET15 and 
develop standards for adult learning professionals. Promote evidence-based policy 
and  practice,16  with  a  particular  emphasis  on  establishing  the  case  for 
sustainability of public and private investment. 

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13 
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15 
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OJ L 394, 30.12.2006, p. 10. 
COM(2007) 392. 
Council Conclusions of 15 November 2007, OJ C 300, 12.12.2007, p. 6. 
COM(2006) 481. 
COM(2008) 566. 
COM(2006) 208. 
COM(2008) 179. 
SEC(2007) 1098. 

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Member  States  and  the  Commission  should  focus  on  developing  the  policy 
cooperation on 

•  Basic skills in reading, mathematics and science: Set up a high-level group on 
literacy  to  investigate  the  problems  behind  the  decline  in  reading  performance 
among  school  pupils17  and  make  recommendations  to  improve  literacy  levels 
across the EU. Intensify existing cooperation to improve the take-up of maths and 
science  at  higher  levels  of  education  and  training,  and  to  strengthen  science 
teaching.  Member  States  should  consider  establishing  national  action  plans  for 
achievement in basic skills, including for adults. 

•  "New  Skills  for  New  Jobs":  Ensure  that  the  assessment  of  future  skill 
requirements and the matching of labour market needs are fully taken on board in 
all education and training planning processes. 

3.3. 

Strategic challenge: Promote equity and active citizenship  

Education and training policy should enable all citizens, irrespective of age, gender 
and socio-economic background, to acquire, update and develop over a lifetime both 
job-specific skills and the key competences needed to foster further learning, active 
citizenship and intercultural dialogue.  

Despite the fact that questions of equity have been central to the OMC on Education 
and Training from the outset, the main, central challenges remain. Every sixth young 
person still leaves school with only compulsory education attainment level or below. 
Many learners with a migrant background succeed less well in education and training 
than their native peers. While boys drop out of school more often and perform less 
well in reading, women are underrepresented among graduates in maths, science and 
technology.  Adults  with  low  education  attainment  are  seven  times  less  likely  to  be 
engaged in continuing education and training than those with high attainment levels. 
A  learner's  socio-economic  background  still  has  an  important  impact  on  his/her 
chances  to  access  and  succeed  in  education  and  training  at  whatever  level18.  These 
are major challenges which need to be addressed to promote social inclusion and to 
overcome bottlenecks in labour supply. 

Educational  disadvantage  can  be  addressed  by  high  quality  pre-primary  education 
and  targeted  support,  which  must  be  combined  with  properly-managed inclusion in 
mainstream education and training.  

Education  should  promote  intercultural  skills,  democratic  values,  the  respect  of 
fundamental rights and the fight against discrimination, equipping all young people 
to interact positively with their peers from diverse backgrounds. 

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SEC(2008) 2293. 
SEC(2008) 2293. 

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Priority themes to be highlighted in 2009-10 

Member States and the Commission should give priority to achieving better results in 

•  Early school leaving: Strengthen preventive approaches, build closer cooperation 
between general and vocational sectors and remove barriers for drop-outs to return 
to education and training.  

Member  States  and  the  Commission  should  focus  on  developing  the  policy 
cooperation on 

•  Pre-primary  education:  Promote  generalised  equitable  access  and  reinforce 

quality of provision and teacher support. 

•  Migrants:  Develop  mutual  learning  on  best  practices  for  education  of  children 

from a migrant background19. 

•  Learners  with  special  needs:  Promote  personalised  learning  through  timely 
support  and  well  coordinated  services.  Integrate  services  within  mainstream 
schooling and ensure pathways to further education and training.  

3.4. 

Strategic 
and 
entrepreneurship, at all levels of education and training 

challenge:  Enhance 

innovation 

creativity, 

including 

Innovation  and  creativity  are  key  factors  in  enterprise  development  and  crucial  to 
Europe's  ability  to  face  the  challenges  of  international  competition  and  sustainable 
development.  

A  first  challenge  is  to  ensure  that  all  citizens  can  acquire  transversal  key 
competences such as learning-to-learn and communication skills, a sense of initiative 
and entrepreneurship, digital competence (incl. media literacy20), cultural awareness 
and  expression21.  These  and  the  use  of  new  technologies  –  Member  States  should 
aim  to  make  high-speed  internet  available  to  all  schools  by  201022  –  must  be 
reflected  in  curricula,  pedagogies  and  qualifications.  Enhanced  university-business 
cooperation will stimulate entrepreneurial mindsets among students and researchers. 

The  second  challenge  is  to  ensure  a  fully  functioning  knowledge  triangle  of 
education-research-innovation. The European Institute of Innovation and Technology 
can  inspire  and  drive  change  to  achieve  excellence  in  teaching  and  research,  in 
particular  by  encouraging  multi-disciplinarity,  partnerships  between  education 
institutions  and  business.  Partnership  between  the  world  of  enterprise  and  different 
levels  and  sectors  of  education,  training  and  research  can  help  to  ensure  a  better 
focus on the skills and competences required in the labour market and on fostering 
innovation and entrepreneurship in all forms of learning. The creation of a European 

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COM(2008) 423. 
COM(2007) 833. 
OJ L 394, 30.12.2006, p. 10. 
European Council conclusions March 2008, para. 7; see also SEC(2008) 2629 and COM(2007) 833 on 
media literacy. 

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Research  Area  and  a  landscape  of  world-class  clusters  should  facilitate  many  such 
partnerships. 

The European Year of Creativity and Innovation 2009 will help to address some of 
the  key  challenges.  In  the  context  of  developing  the  policy  cooperation,  research, 
analysis and the exchange of ideas on how to measure creative and innovative skills 
needs to be promoted at EU level and with the relevant international organisations. 

Priority themes to be highlighted in 2009-10 

Member  States  and  the  Commission  should  give  priority  to  achieving  better 
implementation of 

•  Transversal key competences: Integrate transversal key competences fully into 

curricula, assessment and qualifications23. 

Member  States  and  the  Commission  should  focus  on  developing  the  policy 
cooperation on 

•  Innovation-friendly  institutions:  Promote  creativity  and  innovation  through 
developing specific teaching and learning methods (including the use of new ICT 
tools and teacher training). 

•  Partnership: Develop partnerships between education and training providers and 

businesses, research institutions, cultural actors and creative industries.  

4. 

IMPROVED  WORKING  METHODS  FOR  THE  FUTURE  OPEN  METHOD  OF 
COORDINATION 

The success of the open method of coordination in education and training depends on 
political  commitment  and  on  its  capacity  to  support  and  have  a  real  impact  on 
national  reforms.  The  policy  cooperation  should  be  relevant  and  concrete,  should 
produce  visible  results  and  reach  stakeholders  and  policy  makers,  including  at  the 
highest political level. Measuring progress towards agreed objectives is key. 

4.1. 

Governance and partnership 

The  lifelong  learning  perspective  calls  for  coordination  and  priority  setting  across 
different education and training sectors. Specific policy agendas have been set out for 
schools24,  VET25,  higher26  and  adult  education27.  Policy  exchange  and 
implementation work in all sectors must contribute to overall strategic priorities.  

To  this  end,  the  role  of  the  existing  informal  high  level  group  on  education  and 
training policy should be reinforced, to allow it to play a strategic role in steering the 

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24 
25 

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27 

OJ L 394, 30.12.2006, p. 10. 
COM(2008) 425. 
Council  Conclusions  on  the  future  priorities  for  enhanced  European  cooperation  on  Vocational 
Education Training (VET) of 20/21 November 2008. 
COM(2006) 208 and the intergovernmental Bologna process. 
COM(2006) 614; COM(2007) 558. 

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OMC  by:  identifying  priorities  and  monitoring  the  progress  of  work  across  all 
sectors;  preparing  inputs  for  policy  discussions  in  the  Education  Council,  for 
example, based on peer learning or review activities; and by ensuring that the policy 
cooperation on education and training is given due account both in the wider Lisbon 
process and in national policies. 

Priority should also be given to a greater involvement of stakeholders and social and 
civil  society  partners,  who  have  a  considerable  contribution  to  make  both  in  the 
policy dialogue and in implementation. The Commission will hold an annual forum 
with  European  stakeholder  organisations  and  relevant  stakeholders  will  be 
systematically involved in peer learning activities. 

4.2.  Mutual learning, transfer of innovation and policy development 

Mutual  learning  is  a  central  element  of  the  OMC  in  education  and  training.  It 
provides  input  for  European  policy  initiatives  and  support  to  national  policy 
development.  And  it  is  an  important  means  for  disseminating  and  implementing 
European tools and instruments, such as the European Qualifications Framework28 or 
the recommendation on key competences for lifelong learning29. 

For the future, the aim should be to strengthen peer learning in order to ensure that it 
fully reflects the priority challenges identified above and to increase its impact at the 
political  level.  Activities  need  to  be  based  on  clear  mandates,  time-schedules  and 
planned outputs (e.g. policy recommendations or handbooks, compendia of examples 
of best practice). It should be flexible enough to change and adapt to emerging issues 
and evolving policy themes. A rolling programme of peer learning and review based 
on the evolving policy priorities should be developed, starting with those defined for 
2009-10. 

In addition, the following instruments will also be used: 

•  The  Lifelong  Learning  Programme30  will  support  the  development,  testing, 

transfer and implementation of new approaches and innovation.  

•  Agencies such as Cedefop and the European Training Foundation, networks such 
as  Eurydice,  and  expert  groups31,  including  collaboration  with  the  relevant 
international organisations, will support research and analysis. 

•  The  policy  dialogue  with  several  external  partner  countries  can  provide  a  wider 
comparative framework and fresh ideas: it should be reinforced and better linked 
to the OMC. 

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29 
30 
31 

OJ C 111, 6.5.2008, p. 1. 
OJ L 394, 30.12.2006, p. 10. 
OJ L 327, 24.11.2006, p. 45. 
This includes the Centre for Research on Education and Lifelong Learning (CRELL), the Institute for 
Prospective Technological Studies (IPTS) and the expert networks of economists and social scientists in 
education (EENEE, NESSE). 

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4.3. 

Better reporting of progress and visibility  

The  Commission  and  the  Council  currently  issue  a  joint  progress  report  every  two 
years  based  on  national  reports  from  the  Member  States  which  chart  their  policy 
actions  to  address  the  OMC's  overall  objectives.  Future  reports  should  focus  in 
greater  detail  on  certain  specific  priorities  for  action.  Thus,  it  is  proposed  that  the 
next  joint  progress  report,  due  for  2010,  should  focus  on  one  or  more  of  the 
immediate  priorities  highlighted  in  section  3.  The  joint  reports  should  be  further 
strengthened by including assessments of the situation in individual countries, which 
will in turn feed into the assessment of the education, training and skills components 
of the Lisbon National Reform Programmes. As of now, no change in the reporting 
rhythm – every 2 years – is proposed. 

Further  efforts  should  be  made  to  raise  awareness,  at  the  European,  national  and 
regional  levels,  of  the  support  and  opportunities  provided  by  the  open  method  of 
coordination  in  education  and  training,  particularly  its  priorities  and  results.  A 
website  will  provide  information  about  policy  initiatives  and  concrete  examples  of 
best practice identified in the context of the OMC. 

4.4. 

Indicators and benchmarks 

The existing five benchmarks 

The  indicators  and  benchmarks  developed  in  the  context  of  the  Education  and 
Training  2010  work  programme  have  proved  to  be  useful  in  monitoring  and 
communicating  progress  at  the  European  level  and  in  providing  guidance  for  the 
identification of challenges. Three of these five benchmarks (on early school leavers, 
upper secondary attainment and adult participation in lifelong learning) form part of 
the integrated guidelines for growth and jobs. 

As shown in section 2.1, progress towards meeting the five benchmarks set for 2010 
has been insufficient. It is therefore important that efforts to improve performance in 
these areas are accelerated. To this end, Member States should adopt national targets 
in the areas where European benchmarks have been agreed. 

Updating the benchmarks beyond 2010 

For the period to 2020, policy cooperation should be supported by benchmarks which 
fully  reflect  the  identified  long  term  strategic  challenges  and  which  reflect  a  key 
aspect  of  the  New  Skills  for  New  Jobs  agenda  -  the  need  to  upgrade  skills  and 
employability  across  the  population  as  a  whole.  The  future  education  and  training 
benchmarks  should  also  be  sufficiently  flexible  to  take  account  of  the  targets  and 
indicators which will be used in the EU Strategy for Growth and Jobs beyond 2010– 
Lisbon  post  2010.  On  this  basis,  it  is  proposed  that  the  Commission  and  Member 
States  should  build  on  experience  with  the  existing  benchmarks  and  explore  a  new 
set of benchmarks along the following lines: 

•  Review  and  where  appropriate  update  the  existing  benchmarks,  e.g.  a  possible 
extension  of  the  benchmark  on  low  achievers  in  reading  skills  to  include  also 
mathematics and science; 

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•  Incorporate into the benchmarks framework targets that were set by the Barcelona 
European Council of 2002 (i.e. on participation in pre-primary education and on 
access to early language teaching); 

•  Introduce benchmarks building on themes which have emerged since the start of 
the  cooperation  or  reflecting  new  political  priorities  e.g.  in  tertiary  level 
attainment; learning mobility; 

•  Launch development work to create new indicators on the link between education 
attainment  and  employability  and  on  education  for  innovation  and  creativity, 
including entrepreneurship. 

Accordingly, the Commission would propose a debate with the Member States on the 
basis of the following possible benchmarks for the future OMC: 

4.4.1.  Making lifelong learning and mobility a reality 

•  Adult  participation  in  lifelong  learning:  The  existing  benchmark  foresees  a 
participation rate of 12.5% of adults (aged 25-64) in lifelong learning. While there 
has  been  reasonable  progress  towards  meeting  this  benchmark  since  2002  (on 
current  trends,  the  benchmark  is  likely  to  be  achieved  about  2017),  it  remains 
patchy  and  uneven  between  Member  States.  Given 
technological  and 
demographic trends and the inevitable impact of the  current economic downturn 
on  jobs,  it  is  even  more  urgent  to  upgrade  and  update  the  skills  of  adults. 
Consequently,  the  Commission  would  propose  to  raise  the  benchmark  to 
participation  of  15  %  of  adults  in  lifelong  learning.  It  is  important  also  that 
Member States should reduce the imbalance in participation between low and high 
skilled  adults  participation  in  lifelong  learning;  they  should  be  invited  to  set 
national targets to do so.  

•  Mobility: a new benchmark should be developed on the basis of the conclusions of 
the Education and Youth Council of November 2008 which propose objectives for 
mobility  of  university  students,  school pupils,  the  vocational  sector  and  teachers 
and trainers. 

4.4.2. 

Improving the quality and efficiency of provision and outcomes 

•  Low achievers in basic skills: Following the 2008 Spring European Council which 
urged  Member  States  to  take  concrete  action  to  tackle  this  problem,  the 
Commission would propose a benchmark that the share of low-achieving 15-year-
olds in basic skills (reading, mathematics and science) should be lower than 15% 
on  average  and  that  particular  attention  should  be  given  to  reducing  gender 
imbalances.  The  aim  would  be  to  widen  the  scope  of  the  previous  literacy-only 
benchmark without raising the threshold.  

•  Languages: The Commission would propose a new benchmark that at least 80% 
of  pupils  in  lower  secondary  education  should  be  taught  at  least  two  foreign 
languages.  This  proposal  would  seek  to  deliver  on  the  demand  of  the  Barcelona 
European  Council  to  provide  teaching  in  at  least  two  foreign  languages  from  an 
early  age.  There  has  recently  been  rapid  growth  in  language  teaching  in  early 
education. In 2000, 40% of pupils in early school education were receiving tuition 

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in two foreign languages; by 2006 (most recent figures available), this had risen to 
52%. The aim would be to further stimulate this good progress. 

•  Investment  in  higher  education:  The  Commission  would  propose  a  new 
benchmark  that  public  and  private  investment  in  modernised  higher  education 
should reach at least 2% of GDP32. This would reflect the policy discussions on 
modernising  higher  education  since  the  Hampton  Court  Summit  of  2005  and 
would seek to bring investment levels in higher education (currently 1.3% of GDP 
from  public  and  private  sources)  closer  to  the  levels  of  key  competitors  such  as 
the  US and Japan,  whose  investment (public  and  private) stands at 2.45%% and 
1.85% respectively. 

•  Tertiary level attainment: The Commission would propose a new benchmark that 
the  share  of  30-34  year  olds  with  high  educational  attainment  should  be  at  least 
45%.  This  proposal  reflects  the  current  upward  trend  in  the  share  of  30-34  year 
olds  with  high  educational  attainment  but  would,  as  above,  seek  to  encourage 
policies  to  bring  EU  performance  (currently  30%)  closer  to  the  levels  of  key 
competitors  such  as  the  US  and  Japan  (participation  rates  for  the  nearest 
comparable  age  group  25-34  are  39%  and  54%  respectively).The  existing 
benchmark on the numbers of Maths, Science and Technology graduates has been 
reached and could be discontinued; however, the gender imbalance in such studies 
should continue to be monitored. 

•  Employability: The Commission would propose to explore the development of a 
new benchmark linked to the labour market participation of people with different 
levels  of  educational  attainment.  Labour  market  success  is  strongly  linked  to  a 
person's  level  of  educational  attainment  and,  as  explained  in  the  Commission's 
Communication on "New Skills for New Jobs", will be even more so in the future. 
This  would  have  the  aim  of  strengthening  the  contribution  of  education  and 
training systems to the Lisbon agenda. 

4.4.3.  Promoting equity and active citizenship 

•  Pre-primary  education:  The  Commission  would  propose  a  new  benchmark  at 
least 90% of young children should participate in pre-primary education (4 years 
old).  The  EU  average  rate  of  participation  is  already  approaching  90%,  but  this 
overall  high  level  of  participation  masks  significant  variations  in  national 
performance.  This  proposal  would  seek  to  support  progress  towards  the  demand 
of the Barcelona European Council that childcare be provided in respect of 90% 
of children. 

•  Early school leavers: The Commission would propose to maintain unchanged the 
existing benchmark that not more than 10% of the population aged 18-24 should 
have  only  lower-secondary  education  and  not  be  in  education  and  training.  The 
proposal to leave the benchmark unchanged reflects the fact that progress towards 
this mark, since its adoption in 2002, has been slow The Commission would hope 
for  a  stronger  focus  on  the  implementation  of  policies  to  make  real  progress 
to  concentrate  on 
towards 

this  key  benchmark.  Reflecting 

this  need 

32 

COM(2005) 152. 

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implementation,  the  closely  linked  benchmark  on  upper  secondary  completion 
could be discontinued.  

4.4.4.  Enhancing  innovation  and  creativity,  including  entrepreneurship,  at  all  levels  of 

education and training 

•  Innovation and creativity: The Commission would propose to develop indicators 
and  explore  with  Member  States  the  feasibility  of  developing  a  benchmark  to 
address  how  education  systems  promote  innovation  and  creativity,  including 
entrepreneurship.  The  exchanges  to  be  undertaken  during  2009,  the  European 
Year  of  Creativity  and  Innovation,  should  help  with  the  reflection  on  what  is  a 
very new area of policy exchange. 

5. 

CONCLUSIONS 

Education  and  training  policy  remains  crucial  to  achieving  growth  and  jobs,  social 
inclusion and active citizenship but continues to face important challenges. Progress 
on  key  educational  issues  such  as  literacy  and  early  school  leaving  is  slower  than 
hoped.  The  current  focus  on  the  economic  crisis  must  not  divert  attention  from 
setting the right long-term, strategic education and training policies. As highlighted 
in this communication, Europe has to address a number of educational deficits if it is 
to avoid falling behind globally. For these reasons, there is, more than ever, a need 
for  an  effective  open  method  of  coordination  supporting  the  improvement  of 
education and training policies. 

The Commission calls upon the Council to endorse this proposed framework for the 
future European cooperation in education and training, the set of long-term strategic 
challenges until 2020 and priority issues for the period 2009-2010 and the proposed 
improved working methods.  

The framework should be reviewed and any necessary adjustments made in the light 
of the decisions taken on the EU Strategy for Growth and Jobs beyond 2010. 

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