Proposal for a COUNCIL RECOMMENDATION on promoting common values, inclusive education, and the European dimension of teaching
Date: 2018-01-17
Institutions: Directorate-General for Education, Youth, Sport and Culture, European Commission
Subjects: European citizenship, civics, cooperation in the field of education, cultural pluralism, education policy, social integration, teaching, teaching method, vocational training, young person

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   EUROPEAN COMMISSION  Brussels, 17.1.2018 COM(2018) 23 final 2018/0007 (NLE)  Proposal for a COUNCIL RECOMMENDATION on promoting common values, inclusive education, and the European dimension of teaching {SWD(2018) 13 final}  
 
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

As President Juncker emphasised in his 2017 State of the Union address ‘Europe is more than 
just a single market. More than money, more than the euro. It was always about values’1. As 
stated in Article 2 of the Treaty on European Union, ‘The Union is founded on the values of 
respect  for  human  dignity,  freedom,  democracy,  equality,  the  rule  of  law  and  respect  for 
human  rights,  including  the  rights  of  persons  belonging  to  minorities.  These  values  are 
common to the Member States in a society in which pluralism, non-discrimination, tolerance, 
justice, solidarity and equality between women and men prevail’.  

These common values are the bedrock of our national democracies and a reflection of who we 
are. In addition, they form the fabric of our Union that has bound countries, communities and 
people together in a unique political project, enabling Europe's longest period of peace. This 
has spanned from overcoming Europe's deepest divisions immediately after World War Two 
to Europe's reunification with Central and Eastern European countries after 1989. A peaceful, 
social and democratic Union is built on these values, which are not only valid within Europe, 
but are those that represent the Union in the world.    

As  highlighted  in  the  Reflection  Paper  on  the  Social  Dimension  of  Europe,  "by  global 
standards,  European  societies  are  prosperous  and  affluent  places  to  live.  They  have  the 
highest levels of social protection in the world and rank highly in terms of wellbeing, human 
development and quality of life"2. Yet, although the Union is experiencing strong growth and 
unemployment is  at its lowest level since 2009, when asked about the future,  many express 
anxiety and concern, in particular for future generations. The Union and its Member States are 
faced  with  a  variety  of  challenges,  including  populism,  xenophobia,  divisive  nationalism, 
discrimination,  the  spreading  of  fake  news  and  misinformation,  as  well  as  the  challenge  of 
radicalisation.  These  phenomena  could  pose  a  serious  threat  to  the  foundations  of  our 
democracies,  undermine  trust  in  the  rule  of  law  and  democratic  institutions,  and  hinder  a 
common sense of belonging within and amongst our European societies 

Our democracy can only function if it is legitimate in the eyes of the citizens it serves, both 
nationally  and  for  the  Union  as  a  whole.  There  are  worrying  signs  that  the  necessary 
knowledge of our common values and of the role of national and European democracy is not 
embedded  enough,  which  risk  leading  to  their  erosion  and  challenges  the  cohesion  of  our 
societies in Member States as well as at the EU level. The promotion of these common values 
embedded  in  Article  2  of  the  Treaty  on  European  Union  is  vital  to  strengthen  our  national 
democracies and bolster our Union. 

High quality and inclusive education and training, at all levels, is essential in ensuring social 
mobility and inclusion, in offering our citizens knowledge and skills to succeed in the labour 
market, but also in promoting the competences of critical thinking and a deeper understanding 
of our common values.  

1 

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State  of  the  Union  Speech,  13  September,  2017  —  https://ec.europa.eu/commission/state-union-
2017_en. 
See 
https://ec.europa.eu/commission/sites/beta-political/files/reflection-paper-social-dimension-
europe_en.pdf   

the  Social  Dimension  of  Europe,  COM/2017/0206 

the  Reflection  Paper  on 

final, 

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In  some  Member  States,  education  includes  national  civic  instruction.  This  may  include 
instruction  on  the  reasons  why  Member  States  have  chosen  to  voluntarily  cooperate  and 
integrate in  a  European  Union.  A  lack  of  awareness  of  the  EU’s  origins,  the  reasons  for  its 
creation  and  its  basic  functioning  favours  misinformation  and  prevents  the  formation  of 
informed opinions on its actions. Moreover, knowledge about the social, religious and cultural 
diversity,  and  the  heritage,  traditions  and  political  realities  of  one’s  own  country,  of  other 
Member  States  and  of  other  countries  in  the  world,  is  essential  for  mutual  respect, 
understanding  and  cooperation  within  and  amongst  Member  States  and  with  the  world  at 
large. 

This will help safeguard democracy at all levels and in turn, contribute to a common sense of 
belonging at the European level. 

This Recommendation is built on four objectives: promoting common values at all levels of 
education;  fostering  more  inclusive  education;  encouraging  a  European  dimension  of 
teaching,  without  prejudice  to  the  national  prerogatives  in  this  realm;  as  well  as  supporting 
teachers  and  teaching.    It  encourages  Member  States  and  the  Commission  to  share  good 
practice  and  information;  and  to  develop  policies  at  both  national  and  EU  levels.  The 
commitments for Member States are of a voluntary nature and each Member State decides the 
approach to take in implementing them. 

To achieve those aims  and support Member States  in their endeavour, the  Commission will 
take  steps  to  increase  virtual  exchanges  among  schools,  notably  through  the  e-Twinning 
network, and boost school mobility under the Erasmus+ programme. The European Structural 
and Investment funds can help to support teacher training or fund infrastructure that enables 
inclusive education.  

• 

Background 

The present Recommendation builds upon the Paris Declaration on promoting citizenship and 
the common values of freedom, tolerance and non-discrimination through education adopted 
at an informal ministerial meeting held in Paris on 17 March 2015. In the Paris Declaration, 
education  ministers  called  for  actions  at  all  levels  of  government  to  reinforce  the  role  of 
education  in  promoting  citizenship  and  common  values,  strengthening  social  cohesion  and 
helping  young  people  become  responsible,  open-minded  and  active  members  of  our  diverse 
and  inclusive  societies3.  They  also  identified  four  overarching  objectives  for  cooperation  at 
EU level: 

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Ensuring that children and young people acquire social, civic and intercultural 
competences,  by  promoting  democratic  values  and  fundamental  rights,  social 
inclusion and non-discrimination, as well as active citizenship; 

Enhancing  critical  thinking  and  media  literacy,  particularly  in  the  use  of  the 
Internet  and  social  media,  so  as  to  develop  resistance  to  divisive  narratives, 
polarisation and indoctrination; 

Fostering  the  education  of  disadvantaged  children  and  young  people,  by 
ensuring that our education and training systems address their needs; 

Promoting  intercultural  dialogue  through  all  forms  of  learning  in  cooperation 
with other relevant policies and stakeholders. 

3 

Paris Declaration, 17th March, 2015 - http://ec.europa.eu/education/news/20150316-paris-education_en. 

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This  Recommendation  also  continues  work  set  out  in  the  Commission  Communication  on 
supporting the prevention of radicalisation leading to violent extremism4 that was adopted in 
the  aftermath  of  terrorist  attacks  in  Europe.  It  underlined  the  important  role  that  education 
plays in helping to identify and safeguard young people at risk of radicalisation and in helping 
to address its root causes. 
Furthermore,  the  Declaration  of  Rome5  of  25  March  2017  asserts  that  the  Union  should  be 
one in which ‘young people receive the best education and training and can study and find 
jobs  across  the  continent’  and  which  'preserves  Europe’s  cultural  heritage  and  promotes 
cultural diversity.’ 
In the White Paper on the Future of Europe6 the Commission highlights the role of values in 
helping create a shared history in that ‘the sacrifice of previous generations should never be 
forgotten.  Human  dignity,  freedom  and  democracy  were  hard-earned  and  can  never  be 
relinquished.  Even  if  the  attachment  to  peace  is  not  one  that  all  of  today’s  Europeans  can 
relate to in the same way as their parents or grandparents, these core values continue to bind 
us together.’ This notion is further underscored by the idea that 70 years of lasting peace is a 
testimony to our shared values and mutual understanding. 
The  Commission  recalled  in  its  Reflection  Paper  on  Harnessing  globalisation7  that  ‘equal 
access to high-quality education and training is a powerful way of redistributing wealth in a 
society. This should start with  a high standard of  basic education  and access  at  all ages  to 
training and skills’. 

Ahead of the Leaders' Agenda discussion on education and culture held in November 2017 in 
Gothenburg, the Commission published as its input to the discussion the Communication on 
‘Strengthening European Identity through Education and Culture8. The text stresses that ‘it is 
in  the  shared  interest  of  all  Member  States  to  harness  the  full  potential  of  education  and 
culture as drivers for jobs, social fairness, active citizenship as well as a means to experience 
European identity in all its diversity.' 

• 

Consistency with existing provisions in the policy area  

In addition to the above initiatives, the 2015 Joint Report of the Council and the Commission 
on the implementation of the strategic framework for European cooperation in education and 
training (ET2020)9 states that ‘Education and training have an important role in ensuring that 
the human and civic values we share are safeguarded and passed on to future generations, to 
promote freedom of thought and expression, social inclusion and respect for others, as well as 
to  prevent  and  tackle  discrimination  in  all  its  forms'  and,  furthermore,  proposed  ‘inclusive 
education, equality, equity, non-discrimination and the promotion of civic competences’ as a 
new priority area for European cooperation in education and training. 

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Commission  Communication  on  supporting  the  prevention  of  radicalisation  leading  to  violent 
extremism; COM(2016) 379 final. 
http://www.consilium.europa.eu/en/press/press-releases/2017/03/25/rome-declaration# 
White  Paper  on  the  Future  of  Europe  Reflections  and  scenarios  for  the  EU27  by  2025  (COM 
2017(2025) final) 
Reflection 
https://ec.europa.eu/commission/publications/reflection-paper-harnessing-globalisation_en. 
Commission  Communication  on  Strengthening  European  Identity  through  Education  and  Culture; 
COM(2017) 673 final 
Joint Report of the Council and the Commission on the implementation of the strategic framework for 
European cooperation in education and training (ET 2020) New priorities for European cooperation in 
education and training (OJ C 417, 15.12.2015) 

globalisation, 

harnessing 

paper 

May, 

2017 

10th 

on 

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The  Commission  has  implemented  a  wide  range  of  specific  measures  and  actions.  This 
includes the setting up of the ET 2020 Working Group on Promoting citizenship and common 
values; the organisation of a ‘role models’ initiative of individuals who engage in activities to 
promote social inclusion and prevent exclusion and radicalisation; a tool kit for youth workers 
and  youth  organisations  working  with  young  people  at  risk  of  marginalisation;  a  European 
Award  for  Social  Inclusion  through  Sport;  and  making  available  over  EUR  400  million  in 
funding  annually  through  Erasmus+  for  transnational  partnerships  to  develop  innovative 
policy approaches and practices at grass-root level, prioritising social inclusion, the promotion 
of common values and intercultural understanding. 
Moreover, in the Investing in Europe’s Youth package10 the Commission set out its strategy 
for  high  quality,  inclusive  and  future-oriented  education  with  specific  initiatives.  In  this 
context the Commission proposed actions related to inclusive education and the promotion of 
common  values  including  the  continued  professional  development  of  teachers,  the  further 
development of the European Toolkit for Schools as well as the use of Erasmus+ and Horizon 
2020 funds to promote good practices in the area of inclusive learning. 

Other initiatives related to this Recommendation are: 

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The  2013  Commission  Recommendation  Investing  in  children:  breaking  the 
cycle  of  disadvantage11  which  underlined  the  need  to  provide  quality  early 
childhood education and care and improve education systems’ impact on equal 
opportunities.  

The 2014 Council Conclusions on a Work Plan for Culture 2015-2018 which 
prioritise  EU  policy  collaboration  on  the  contribution  of  culture  to  social 
inclusion,  building  on  the  commitments  to  cultural  diversity  and  intercultural 
dialogue in the European Agenda for Culture. 

The  2016  Council  Conclusions  on  developing  media  literacy  and  critical 
thinking  through  education  and  training,  in  which  Member  States  agreed  that 
media  literacy,  critical  thinking  and  digital  competences  are  skills  which  are 
preconditions  for  active  participation  in  democratic  life  and  for  enhancing 
employability and, as such, should be acquired by learners of all ages; 

The 2017 Council Conclusions on the role of youth work in supporting young 
people's  development,  in  which  Member  States  agreed  to  strengthen  the 
cooperation,  peer  learning  and  exchange  with  regard  to  the  promotion  and 
development of life skills among young people; 
The  2018  renewed  Key  Competences  Framework  for  Lifelong  Learning12 
which  describes  civic  competences  as  the  ability  to  act  as  responsible  people 
and  fully  participate  in  civic  and  social  life,  based  on  the  understanding  of 
social,  economic  and  political  concepts  and  structures,  as  well  as  global 
developments  and  sustainability.  The  higher  prominence  given  to  civic 
competence in this revision of the Key Competences Framework highlights the 
role of citizenship, democratic values and human rights in today's increasingly 

10 

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12 

Commission Communication on Improving and Modernising Education COM(2016)941; Commission 
Communication on School Development and Excellent Teaching for a Great Start in Life; COM(2017) 
248; Commission Communication on a Renewed Agenda for Higher Education; COM(2017) 247 
Commission  Recommendation  of  20  February  2013  Investing  in  children:  breaking  the  cycle  of 
disadvantage; 2013/112/EU 
[REFERENCE TO BE ADDED ONCE ADOPTED] 

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connected  global  society.  It  recognises  the  importance  of  empowering 
individuals to act as responsible, active citizens able to contribute to peaceful, 
tolerant,  inclusive  and  secure  societies.  In  this  context,  media  literacy  and 
intercultural skills are further strengthened; 

The 2018 European Year of Cultural Heritage which aims to raise awareness of 
common  history  and  values  and  encourage  people  to  explore  Europe’s  rich 
and diverse cultural heritage; 

The  2016  Commission's  Action  Plan  on  the  Integration  of  Third-Country 
Nationals13  which  highlights  that  integration  is  key  to  the  future  wellbeing, 
prosperity  and  cohesion  of  European  societies,  and  of  common  interest  to  all 
Member States; 

The  2017  Council  Conclusions  on  building  on 
the  Commission 
Communication  of  12  April  2017  on  the  protection  of  children  in  migration, 
that  underlines,  the  importance  of  equal,  early  access  to  formal,  inclusive 
education including early childhood education and care; 

The  2016  Council  Conclusions  on  accelerating  the  process  of  Roma 
integration, which call on Member States to increase efforts to promote equal 
access to inclusive mainstream quality education. 

The  2017  Council  Conclusions  on  inclusion  in  diversity  to  achieve  a  high 
quality  education  for  all,  in  which  Member  States  agreed  to  put  measures  in 
place to promote a democratic and inclusive school culture, develop measures 
that  allow  the  early  identification  and  prevention  of  social  exclusion  and 
encourage closer cooperation between education and other relevant areas, such 
as culture, youth, sports, employment, welfare, security and other channels of 
work on social inclusion; 

The European Solidarity Corps, which creates opportunities for young people 
to  volunteer  or  work  in  projects  in  their  own  country  or  abroad  that  benefit 
communities  and  people  around  Europe.  It  brings  young  people  together  to 
build a more inclusive society, supporting vulnerable people and responding to 
societal challenges. 

The  Council  of  Europe’s  2016  Reference  Framework  of  Competences  for 
Democratic Culture. 

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Consistency with other Union policies 

The main aim of this Recommendation is to promote common values, inclusive education and 
a European dimension of teaching. It is complementary to the Commission’s ongoing work on 
implementing  the  European  Pillar  of  Social  Rights14  in  that  the  Recommendation  further 
supports ‘the right to quality and inclusive education, training and lifelong learning in order 
to  maintain  and  acquire  skills  that  enable  [everyone]  to  participate  fully  in  society  and 
manage successfully transitions in the labour market.’ 

13 

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Commission Communication: Action Plan on the Integration of Third-Country Nationals; COM(2016) 
377 final 
Commission Communication on Establishing a European Pillar of Social Rights; COM/2017/0250 final 

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The present Recommendation is also consistent with the aims expressed in the EU citizenship 
report 201715, where the Commission recognised that continuous efforts are needed to make 
sure  that  all  EU  citizens  know  their  rights  and  can  fully  participate  in  the  European 
democratic  process.  It  stressed  that  promoting  awareness  of  EU  citizenship  and  the  values 
attached to it among young Europeans reaching voting age and those acquiring the nationality 
of a Member State, and in society as a whole, requires a joint effort of all actors concerned at 
all levels — the Member States, including their local and regional authorities, EU institutions 
and civil society. 

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

The initiative is in conformity with Articles 165 and 166 of the Treaty on the Functioning of 
the  European  Union  (TFEU).  Article  165  states  that  the  Union  shall  contribute  to  the 
development of quality education by encouraging cooperation between Member States and, if 
necessary,  by  supporting  and  supplementing  their  action,  while  fully  respecting  the 
responsibility  of  the  Member  States  for  the  content  and  organisation  of  their  education 
systems. Article 166 states that the Union shall implement a vocational training policy which 
shall  support  and  supplement  the  action  of  the  Member  States,  while  fully  respecting  the 
responsibility of the Member States for the content and organisation of vocational training. 

The  initiative  does  not  propose  any  extension  of  EU  regulatory  power  or  binding 
commitments  on  Member  States.  Member  States  will  decide,  according  to  their  national 
circumstances, how they implement the Council Recommendation.   

• 

Subsidiarity (for non-exclusive competence) 

While  many  Member  States  have  put  into  practice  various  actions  to  support  inclusive 
education  systems  and  promote  common  values  at  the  national  level,  more  cooperation  is 
needed at the European level.  

The added value of action at EU level lies in the ability of the EU to: 

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promote a common understanding as to the importance of common values; 

support  the  work  of  the  Member  States  in  order  to  implement  actions  at 
national and regional level to promote common values; 

fund mobility and twinning initiatives and other transnational projects; 

facilitate sharing of knowledge, expertise and good practice. 

• 

Proportionality 

The  proposal  reinforces  a  common  understanding  of  values,  inclusive  education  and  the 
European  dimension  of  teaching  by  demonstrating  how  they  can  be  promoted  through 
education.  It  allows  Member  States  and  the  Commission  to  share  good  practice  and 
information  and  to  develop  policies  at  both  national  and  EU  levels.  As  the  commitments 
Member  States  will  make  are  of  a  voluntary  nature  and  each  Member  State  decides  the 
approach  to  take  in  implementing  actions  aimed  at  promoting  common  values,  inclusive 
education and a European dimension in teaching, the measure is considered proportionate.  

15 

Commission  Report  on  Strengthening  Citizens'  Rights  in  a  Union  of  Democratic  Change  EU 
Citizenship Report 2017; COM/2017/030 final 

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• 

Choice of the instrument 

A  Council  Recommendation  is  an  appropriate  instrument  within  the  field  of  education  and 
training,  where  the  EU  has  a  supporting  competence  and  is  an  instrument  that  has  been 
frequently  used  for  European  action  in  the  areas  of  education  and  training.  As  a  legal 
instrument, it signals the commitment of Member States to the measures within the text and 
provides a stronger political basis for cooperation in this area, while fully respecting Member 
State competence in the fields of education and training.   

3. 

• 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Ex-post evaluations/fitness checks of existing legislation 

Not applicable. 

• 

Stakeholder consultations 

An  online  public  consultation  was  launched  on  19  May  2017  and  came  to  a  close  on  11 
August  2017.  In  total,  1 124  responses  were  received,  including  over  200  position  papers, 
which  illustrated  great  interest  in  the  initiative.  The  responses  revealed  virtually  unanimous 
agreement  (95 %)  on  the  role  of  education  in  helping  young  people  ‘understand  the 
importance of and adhere to shared values’ and that the EU should help Member States in this 
task (98 %). The results of the consultation are available online. 

Key findings from the consultation included: 

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 

 

The  majority  of  the  respondents  (62.6%)  believe  that  education  already 
plays  a  strong  role  in  helping  young  people  to  understand  the  importance  of 
and  adhere  to  shared  values,  but  a  significant  share,  almost  40%  of 
respondents, think education could do more; 

Almost  all  respondents  (98%)  agreed  on  the  need  to  promote  inclusive 
education  that  addresses  the  needs  of  all  learners  while  only  16%  felt  that 
education was currently doing this. Great overall support was expressed for the 
EU  tools.  EU  funding  (93.3%),  support  to  cooperation  between  schools  and 
universities to promote innovation and modernisation (91.6%), student learning 
mobility  (91.5%)  and  short-term  exchanges  for  pupils  in  schools  (88.2%)  are 
seen as the most effective ones; 

Almost  all respondents (93.2%) considered it important or very important for 
people to increase their understanding of the EU’s and other Member States’ 
history, culture and values in order to fully understand their role as responsible 
and active member of European societies. 

In addition, a wide range of consultative meetings and events were held: 

Meetings gathering Member States' input include: Meeting of the High-Level Group (senior 
education  ministry  officials)  on  15-16  June  2017  (Estonia);  and  three  Directors  Generals' 
meetings: Higher Education meeting, 13-14 March 2016; and Schools meetings, 10-11 April 
2016 (Malta) and 18-19 September 2017 (Estonia); 

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Events  where  input  from  stakeholders  have  been  gathered  include:  the  Jean  Monnet 
conference, 15 November 201516; a colloquium hosted by First-Vice President Timmermans 
in  cooperation  with  Commissioners  Jourová  and  Oettinger  on  media  and  democracy, 
including  the  role  of  ethical  journalism  and  of  media  literacy  for  democracy  and  pluralistic 
societies17;  Commission  high-level  dialogues  with 
religious  and  non-confessional 
organisations dedicated in 2016 to integration and European values; a colloquium hosted by 
Commissioner  Navracsics  on  Promoting  Inclusion  and  Fundamental  Values  through 
Education,  26  May  201618;  and  European  Education,  Training  and  Youth  Forum19  and  a 
dedicated meeting with civil society20, 19-21 October  2016; Civil society organisations were 
also consulted in a dedicated participatory seminar in December 2015 and social partners and 
youth  organisations  in  January  2016.  Finally,  the  Recommendation  delivers  on  the 
Conclusions  of  the  2015  Commission's  Colloquium  on  Fundamental  Rights  devoted  to 
through 
preventing  and  countering  anti-Semitic  and  anti-Muslim  hatred, 
education21.  

including 

Participants  in  the  above-mentioned  meetings  expressed  strong  support  and  interest  in 
exploring  how  inclusive  education  can  help  promote  common  values  and  the  role  that  the 
European Union can play in this regard.  

The  ET2020  Working  Group  on  promoting  citizenship  and  the  common  values  of  freedom, 
tolerance and non-discrimination through education held a series of peer-learning activities on 
these issues. Key messages from these peer learning activities included22: 

 

 

 

Education  should  go  beyond  equal  opportunities  to  ensure  inclusion  of  a 
diverse range of learners and progress towards real educational equity; 

Values  need  to  be  experienced  by  students  and  educators.  Values  need  to  be 
lived  not  taught;  democratic  values need  to  happen  in  the  classroom,  through 
project-based  learning  for  instance,  and  schools  need  to  embrace  active 
participation by students, parents, teachers and the wider community, in what is 
referred to as the "whole school approach"; 

There  should  be  more  focus  on  value-based  actions  in  the  community  for 
children at risk of exclusion; i.e. not only for early school leavers, but also for 
those  who  are  suspended  or  expelled  from  one  or  more  schools  and 
marginalised.  There  were  also  calls  for  more  support,  including  financial,  for 
second/third  chance  initiatives,  one-on-one  learning  adapted  to  individual 
needs, and mentoring for marginalised and excluded children. 

16 
17 

18 

19 
20 
21 

22 

http://ec.europa.eu/education/sites/education/files/201605-colloquium-report-

See details at http://ec.europa.eu/education/events/20151109-jean-monnet-conference_en 
See  conclusions  at  http://ec.europa.eu/information_society/newsroom/image/document/2016-50/2016-
fundamental-colloquium-conclusions_40602.pdf 
See 
at 
report 
radicalisation_en.pdf 
See report at https://ec.europa.eu/education/sites/education/files/flash-report-ety-forum-2016_en.pdf 
See report at https://ec.europa.eu/education/sites/education/files/flash-report-cso-day-2016_en.pdf 
See 
at 
2015/files/fundamental_rights_colloquium_conclusions_en.pdf 
See key messages from peer learning activities on critical thinking and media literacy, social and civic 
at 
competences, 
http://ec.europa.eu/education/policy/strategic-framework/expert-groups/citizenship-common-values_en 

http://ec.europa.eu/justice/events/colloquium-fundamental-rights-

conclusions 

education 

education 

inclusive 

teacher 

and 

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• 

Collection and use of expertise 

This proposal is based on a wide range of reports and studies as well as expertise gathered 
through peer learning activities and meetings of the ET2020 Working Group on promoting 
citizenship and the common values of freedom, tolerance and non-discrimination through 
education. 

The  work  of  the  European  Agency  for  Special  Needs  and  Inclusive  Education23  aims  to 
ensure equity, equal opportunities and the rights for all learners, in particular those who are 
vulnerable to marginalisation and exclusion, such as students with disabilities and/or special 
educational needs. This  agency  contributes  to  EU policy  making  through its various  reports 
and publications, including on early childhood education, early school leaving among learners 
with special educational needs and empowering teachers to promote inclusive education. 

The work of the European Union Agency for Fundamental Rights, which has a specific task 
of  providing 
rights  and  of 
communicating and raising awareness of fundamental rights, with a view to ensuring that the 
rights of people living in the EU are protected.  

independent,  evidence-based  advice  on 

fundamental 

Evidence  gathered  from  analytical  reports  by  the  NESET  II  academic  network  (Network  of 
Experts on Social Aspects of Education and Training)24 concluded that education and training 
systems that uphold high standards of quality for all, foster personalised, inclusive approaches 
that involve parents, support early intervention, and target disadvantaged learners, especially 
in mainstream education, can be powerful drivers of social inclusion. Similarly, the NESET II 
network  highlighted  that  bullying  is  an  affront  to  the  common  values  of  freedom,  tolerance 
and  non-discrimination  and  provided  and  overview  of  the  most  effective  strategies  and 
practices for preventing bullying and violence in schools across the EU25. 

The Eurydice report on ‘Citizenship Education at School in Europe’ (2017), carried out on 
behalf of the Commission, examined how citizenship education can be used to create 
engaging and interactive learning environments through the use of innovative pedagogies to 
develop the knowledge, skills and attitudes young people need to become active citizens. 

The  Education  and  Training  Monitor  (2017)  also  underscored  the  need  to  make  education 
systems  more  inclusive  as  students’  educational  attainment  largely  depends  on  their  socio-
economic backgrounds. 

As  concerns  the  ET  2020  Working  Group  and  its  dedicated  peer  learning  activities  key 
messages worth noting within the context of this Recommendation include: 

23 

24 

25 

This Agency is an independent organisation that acts as a platform of collaboration for the ministries of 
education of the EU Member States  Its main aim is to help them improve their educational policies and 
practice,  through  evidence  based  information  and  suggesting  the  implementation  of  inclusive  based 
education  policies.  The  Agency  is  funded  through  Erasmus+  funds  and  contributions  from  national 
ministries, 27 Member States as well as Iceland, Norway and Switzerland are members of the Agency. 
Policy  and  Practices  for  Equality  and  Inclusion  In  and  Through  Education:  Evidence  and  policy 
guidance  from  European  research  projects  funded  under  FP6  and  FP7  (2015)  http://nesetweb.eu/wp-
content/uploads/2015/08/AR1_2015.pdf; Education Policies and Practices to Foster Tolerance, Respect 
for  Diversity  and  Civic  Responsibility  in  Children  and  Young  People  in  the  EU’  (2016)  c 
http://nesetweb.eu/en/library/education-policies-and-practices-to-foster-tolerance-respect-for-diversity-
and-civic-responsibility-in-children-and-young-people-in-the-eu/  
How  to  Prevent  and  Tackle  Bullying  and  School  Violence:  Evidence  and  Practices  for  Strategies  for 
Inclusive and Safe Schools’ (2015), http://nesetweb.eu/wp-content/uploads/2015/08/AR2_2015.pdf  

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 

 

 

Learning  institutions  should  become  an  integral  part  of  the  local 
community  and  help  foster  closer  cooperation  with  civil  society,  youth 
organisations,  local  authorities  and  the  business  sector  to  help  educate 
young people; 

A  democratic  and  inclusive  learning  culture  which  values  diversity  and 
allows  space  for  dialogue  and  discussion  on  controversial  issues  is 
essential  for  socio-emotional  learning  and  acquiring  social  and  civic 
competences; 

Teachers need to be supported and empowered to manage diversity and 
develop  the  social  and  civic  competences  of  learners,  through  initial 
teacher  education,  continuous  professional  development,  practical  tools 
and ongoing support and guidance. 

• 

Impact assessment 

Given  the  complementary  approach  of  the  proposed  activities  to  Member  State  initiatives, 
their voluntary nature and the scope of the impacts expected, an impact assessment was not 
necessary  and  thus  not  carried  out.  Rather,  development  of  the  proposal  was  informed  by 
previous studies, consultation of Member States and the public consultation. 

• 

Regulatory fitness and simplification 

Not applicable. 

• 

Fundamental rights 

This Recommendation aims to support Member States in their efforts to promote fundamental 
rights. 

4. 

BUDGETARY IMPLICATIONS 

This initiative will not require additional resources from the EU budget. 

The  use  of  EU  funding  programmes  such  as  Erasmus+,  Creative  Europe  and  Europe  for 
Citizens,  to  help  fund  individual  learning  mobility,  virtual  exchanges,  cooperation  projects 
and volunteering activities that serve to promote common values, inclusion and understanding 
of Europe, will be encouraged, where appropriate. This will be done in line with their legal 
basis and noting their respective financial capacity.  

5. 

• 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

This  Recommendation  will  be  implemented  through  continuous  collaboration  within  the 
Strategic Framework for European cooperation in education and training (ET 2020) and any 
successor framework. The actions taken in response to this Recommendation will be subject 
to regular review through these frameworks, including in the Education and Training Monitor. 

• 

Explanatory documents (for directives) 

Not applicable. 

• 

Detailed explanation of the specific provisions of the proposal 

Taking into account the great variety of education systems and while respecting the principle 
of subsidiarity, the proposal identifies a number of recommendations to guide Member States 
in coming up with the most effective measures to promote common values, provide inclusive 
education and include a European dimension to teaching in their specific contexts. 

EN 

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With regard to promoting common values, the proposal recommends that Member States 

 

 

 

 

Promote the provision of dedicated citizenship and ethics education; 

Enhance critical thinking and media literacy; 

Encourage active participation of students, parents and teachers in school 
governance and of young people in their local communities; 

Promote best practices such as  those set out  in  the Council of Europe’s 
Competences for Democratic Culture.   

As regards inclusive education for all learners, the proposal recommends 

 

 

Including  all  children  in  education  from  an  early  age  while  supporting 
students with specific educational needs; offering flexibility in transitions 
between  various  educational  levels;  and  ensuring  sufficient  educational 
and career guidance; 

Building  on  the  expertise  and  support  of  the  European  Agency  for 
Special Needs and Inclusive education. 

On the European dimension of teaching, the proposal recommends 

 

Facilitating learning about the EU and its Member States and promoting 
participation in mobility and e-twinning initiatives and in projects on the 
ground. 

In  order  to  achieve  the  above,  the  proposal  recommends  that  teachers  be  supported  with 
sufficient  initial  and  ongoing  training  in  civic  education  and  inclusive  pedagogies,  and  be 
facilitated in participating in exchanges and learning programmes. 

The text suggests specific implementing measures that would help Member State authorities 
to meet these goals.   

The proposal also welcomes the Commission's intention to support Member States in meeting 
the above-mentioned recommendations; including through funding learning mobility, mutual 
exchanges,  cooperation projects,  volunteering  and  youth  work;  peer  learning  and  exchanges 
of good practice through the ET2020 framework; and developing the evidence base for policy 
reforms.

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2018/0007 (NLE) 

Proposal for a 

COUNCIL RECOMMENDATION 

on promoting common values, inclusive education, and the European dimension of 
teaching 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Articles 165 and 166 thereof, 

Having regard to the proposal from the European Commission, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

Article  2  of  the  Treaty on  European  Union  states  that  ‘The  Union  is  founded  on  the 
values of respect for human dignity, freedom, democracy, equality, the rule of law and 
respect  for  human  rights,  including  the  rights  of  persons  belonging  to  minorities. 
These values are common to the Member States in a society in which pluralism, non-
discrimination,  tolerance,  justice,  solidarity  and  equality  between  women  and  men 
prevail’. 

Inspired by these values, the Union has succeeded in bringing countries, communities 
and people together in a unique political project, enabling Europe's longest period of 
peace,  which  in  turn  has  brought  about  social  stability  and  economic  prosperity. 
Member  States'  adoption  of  the  values  set  out  in  the  Treaty  creates  common  ground 
that makes up the distinct feature of the European way of life and identity and gives 
the Union its place on the global stage. 

The  Union  and  its  Member  States  are  faced  with  a  variety  of  challenges,  including 
populism,    xenophobia,  divisive  nationalism,  discrimination,  the  spreading  of  fake 
news and misinformation, as well as the challenge of radicalisation. These phenomena 
could pose a serious threat to the foundations of our democracies, undermine trust in 
the rule of law and democratic institutions, and hinder a common sense of belonging 
within and amongst our European societies. 

A  lack  of  awareness  of  the  origins  of  the  Union,  the  reasons  for  its  creation  and  its 
basic  functioning  favours  misinformation  and  prevents  the  formation  of  informed 
opinions  on  its  actions.  Knowledge  of  the  diversity  of  the  Union  and  its  Member 
States  supports  mutual  respect,  understanding  and  cooperation  within  and  amongst 
Member States 

Education  at  all  levels  and  from  an  early  age  plays  a  pivotal  role  in  promoting  and 
teaching common values. It helps to ensure social inclusion by providing every child 
with a fair chance to succeed. It provides opportunities to become active and critically 
aware citizens, and increases understanding of the European identity.  

At the Leaders' Agenda meeting in November 2017 in Gothenburg, European leaders 
discussed the importance of education and culture for the future of Europe. Informing 
this  debate,  the  Commission  set  out  its  vision  for  a  European  Education  Area  and 
proposed  a  number  of  initiatives  in  its  Communication  on  ‘Strengthening  European 

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(7) 

(8) 

(9) 

Identity  through  Education  and  Culture26’,  which  states  that  ‘strengthening  our 
European identity remains essential and education and culture are the best vectors to 
ensure this’. 

One of the objectives of the ET2020 framework for European cooperation in education 
and  training27,  namely  to  promote  equity,  social  cohesion  and  active  citizenship,  has 
been established on the basis that education should promote intercultural competences, 
democratic  values  and  respect  for  fundamental  rights,  combat  all  forms  of 
discrimination  and  racism,  and  equip  young  people  to  interact  positively  with  their 
peers from diverse backgrounds. 
The Paris Declaration28 adopted on 17 March 2015 by European education ministers 
indicated the commitment by the Member States to promote common values, enhance 
critical  thinking  and  media  literacy,  inclusive  education  and  intercultural  dialogue. 
Responses to an EU-wide public consultation29 clearly show that inclusive education 
should  be  promoted.  Only  16%  of  the  respondents  feel  that  education  is  currently 
achieving this goal; 95% feel that education should help young people understand the 
importance  of  common  values  and  that  the  Union  should  help  Member  States  in 
achieving this task (98%). 
A  2017  Eurydice  survey  on  Citizenship  Education  at  School  in  Europe30  shows  that 
citizenship education is currently in the spotlight in a number of European countries. 
However,  nearly  half  of  the  countries  still  have  no  policies  on  including  citizenship 
education  in  initial  teacher  training.  Therefore,  teachers  should  be  supported  and 
empowered through measures to create an open learning culture and deal with diverse 
learning groups in order to teach civic competences, transmit Europe’s shared heritage, 
communicate common values and act as role models for learners. 

(10)  Radicalisation  leading  to  violent  extremism  remains  an  acute  problem  in  several 
Member  States.  Promoting  common  values  as  a  vector  of  social  cohesion  and 
integration, including through education policies, is an integral part of the solution. In 
order  to  support  Member  States  in  their  endeavours,  in  July  2017,  the  European 
Commission  established  a  High  Level  Group  on  Radicalisation31  to  identify  support 
measures, including in education. 

(11)  The  most  recent  results  of  the  PISA  survey32  and  the  2017  Education  and  Training 
Monitor33  emphasise  the  link  between  educational  inequalities  and  students’  socio-
economic  background.  PISA  data  illustrate  that  students  from  poorer  households  are 
three  times  more  likely  to  perform  worse  than  their  wealthier  counterparts  and  that 
students of migrant background are more than twice as likely to be low achievers as 
other  students.  To  prevent  the  marginalisation  of  young  people,  it  is  vital  to  have 

26 

27 

28 

29 
30 
31 

32 
33 

https://ec.europa.eu/commission/sites/beta-political/files/communication-strengthening-european-
identity-education-culture_en.pdf  
2015 Joint Report of the Council and the Commission on the implementation of the strategic framework 
for European cooperation in education and training (ET 2020) New priorities for European cooperation 
in education and training (OJ C 417, 15.12.2015) 
http://ec.europa.eu/dgs/education_culture/repository/education/news/2015/documents/citizenship-
education-declaration_en.pdf  
https://ec.europa.eu/info/sites/info/files/results-citizenship-consultation_en.pdf  
https://webgate.ec.europa.eu/fpfis/mwikis/eurydice/images/6/68/215_EN_Citizenship_2017_N.pdf  
Commission  Decision  of  27  July  2017  setting  up  the  High-Level  Commission  Expert  Group  on 
Radicalisation. JO C252/3, 3.8.2017. 
https://www.oecd.org/pisa/pisa-2015-results-in-focus.pdf  
http://ec.europa.eu/education/policy/strategic-framework/et-monitor_en 

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inclusive  and  fair  education  systems  that  foster  cohesive  societies  and  lay  the 
foundations for active citizenship and enhance employability.  

(12)  Eurobarometer surveys highlight a remarkably low level of knowledge of the Union. 
According  to  a  2014  opinion  poll,  44%  of  people  feel  that  they  have  limited 
understanding  of  how  the  Union  works34  while  a  2011  survey  shows  that  a  relative 
majority feel they are not well informed about the European Union35. The same study 
also  revealed  that  a  third  of  people  do  not  know  exactly  how  many  Member  States 
there  are  in  the  Union36.  Finally,  the  most  recent  Eurobarometer  survey37  highlights 
that  35%  of  respondents  consider  comparable  education  standards  to  be  the  most 
helpful for the future of Europe.  

(13)  Against this background, it is of the essence that Member States step up their efforts to 
further  implement  all  the  objectives  of  the  2015  Paris  Declaration.  It  is  particularly 
important  to  continue  promote  common  values  as  vectors  of  cohesion  and  inclusion, 
favour  the  implementation  of  participatory  learning  environments  at  all  levels  of 
education, improve training for teachers on citizenship and diversity and enhance the 
media literacy and critical thinking skills of all learners. 

(14)  Ensuring  effective  equal  access  to  quality  inclusive  education  for  all  learners, 
including  those  of  migrant  origins,  those  from  disadvantaged  socio-economic 
backgrounds,  and  those  with  special  needs  is  indispensable  for  achieving  more 
cohesive  societies.  In  this  endeavour,  Member  States  could  benefit  from  existing 
Union instruments, notably Erasmus+, the European Structural and Investment Funds, 
the  Rights,  Equality  and  Citizenship 
Creative  Europe,  Europe  for  Citizens, 
Programme, the European Solidarity Corps and Horizon 2020, as well as the guidance 
and expertise of the European Agency for Special Needs and Inclusive Education.  

(15)  The Erasmus+ programme shows that mobility and cross-border contacts are the most 
efficient  way  to  experience  European  identity.  It  is  essential  that  all  categories  of 
learners  benefit  equally  from  the  opportunities  offered  by  this  programme;  notably 
through  school  exchanges  between  Member  States.  Virtual  mobility,  especially 
through the e-Twinning network, is an excellent tool to enable direct contact between 
pupils, and shall be used on a larger scale in the following years, and in combination 
with physical mobility. 

(16) 

Introducing a European dimension to teaching should aim to help learners experience 
European  identity  in  all  its  diversity  and  strengthen  a  European  sense  of  belonging 
complementing  their  local,  regional  and  national  identities  and  traditions.  It  is  also 
important  for  promoting  a  better  understanding  of  the  Union  as  well  as  an 
understanding of its Member States. 

34 

35 

36 

37 

2014, 

Spring 

Eurobarometer 

Eurobarometer 

p. 
81 
Standard 
(http://ec.europa.eu/commfrontoffice/publicopinion/archives/eb/eb81/eb81_publ_en.pdf)  
Standard 
75 
(http://ec.europa.eu/commfrontoffice/publicopinion/archives/eb/eb75/eb75_publ_en.pdf)  
Standard 
75 
(http://ec.europa.eu/commfrontoffice/publicopinion/archives/eb/eb75/eb75_publ_en.pdf)  
Special Eurobarometer 467, Autumn 2017, p 6: "The majority think comparable living standards would 
be most helpful for the future of Europe (52%), and more than one third mention comparable education 
standards  (35%)",  
http://ec.europa.eu/commfrontoffice/publicopinion/index.cfm/Survey/getSurveyDetail/instruments/SPE
CIAL/surveyKy/2179)    

Eurobarometer 

Spring 

Spring 

2011, 

2011, 

p. 

p. 

117 

48. 

50. 

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(17)  This Recommendation fully respects the principles of subsidiarity and proportionality. 
The  content  of  this  Recommendation  is  without  prejudice  to  existing  national 
initiatives in these fields, notably in national civic education.   

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HAS ADOPTED THIS RECOMMENDATION 

The Member States should: 

Promotion of common values 

1. 

increase  the  sharing  of  the  common  values  set  out  in  Article  2  of  the  Treaty  on 
European Union from an early age and at all levels of education to strengthen social 
cohesion  and  a  common  sense  of  belonging  at  local,  regional,  national  and  Union 
level. 

2. 

continue to implement the commitments of the Paris Declaration, notably through: 

(a)  promoting  citizenship  and  ethics  education  as  well  as  an  open  classroom 

climate to foster tolerant and democratic attitudes; 

(b) 

(c) 

(d) 

 enhancing  critical  thinking  and  media  literacy,  particularly  in  the  use  of  the 
internet  and  social  media,  so  as  to  raise  awareness  of  risks  related  to  the 
reliability of information sources and to help exercise sound judgment; 

 developing structures that promote the active participation of teachers, parents, 
students and the wider community in school governance; and 

 supporting  opportunities  for  young  people’s  democratic  participation  and  an 
active and responsible community engagement. 

3. 

make  effective  use  of  existing  tools  to  promote  citizenship  education,  notably  the 
Council of Europe’s Competences for Democratic Culture framework38. 

Provision of inclusive education 

4. 

promote inclusive education for all learners, notably by: 

(a) 

(b) 

 including all pupils in quality education from an early age onwards; 

 providing the necessary support to pupils and students according to their needs, 
including those from disadvantaged socio-economic backgrounds, those from a 
migrant  background,  those  with  special  educational  needs  and  the  most 
talented learners; 

(c) 

 facilitating  the transition between  various educational levels and enabling the 
provision of adequate educational and career guidance. 

5. 

make  effective  use  of  the  European  Agency  for  Special  Needs  and  Inclusive 
Education39  to  implement  and  monitor  successful  inclusive  approaches  in  their 
education systems. 

Promotion of a European dimension of teaching; 

6. 

promote a European dimension of teaching by encouraging:  

(a) 

 an understanding of the European context and common heritage and awareness 
of the diversity of the Member States of the Union; 

(b) 

 an understanding of the origins and functioning of the Union; 

38 

39 

Competences  for  democratic  culture  -  Living  together  as  equals  in  culturally  diverse  democratic 
societies , (2016), https://www.coe.int/en/web/education/competences-for-democratic-culture  
As set out Article 10 of Regulation (EU) No 1288/2013 establishing 'Erasmus+': the Union programme 
for education, training, youth and sport, 

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(c) 

(d) 

 the  participation  of  students  and  teachers  in  the  e-Twinning  network  and  in 
cross-border mobility, especially for schools; 

 projects on the ground to raise awareness of the European Union in education 
centres, notably through direct interaction with young people. 

Support teachers and teaching 

7. 

Enable  teachers,  school  leaders  and  academic  staff  to  promote  common  values  and 
deliver inclusive education, through: 

(a) 

 measures to empower teachers, school leaders and academic staff helping them 
convey  common  values,  and  promote  active  citizenship  while  transmitting  a 
sense of belonging and responding to the diverse needs of learners; and 

(b) 

 promoting  exchanges  and  peer  learning  programmes  as  well  as  guidance  and 
mentoring for teachers and academic staff. 

Implementing measures 

8. 

9. 

10. 

11. 

Review,  and  where  necessary  amend,  existing  policies  and  practices  in  the  field  of 
education,  training  and  non-formal  learning  with  a  view  to  acting  on  these 
recommendations; 

Identify gaps and enhance public engagement, consultation and data collection with a 
view to improving evidence-based policy making on the social and civic dimensions 
of education and training; 

Continue  collaborating  in  EU  strategic  cooperation  frameworks  in  the  fields  of 
education and training, youth, sport and culture through peer learning and exchange 
of good practices with a view to promoting common values; 

Make  effective  use  of  EU  funding  instruments,  in  particular  Erasmus+,  European 
Structural  and  Investment  Funds,  Creative  Europe,  Europe  for  Citizens,  the  Rights, 
Equality and Citizenship Programme and Horizon 2020 with a view to implementing 
these recommendations. 

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WELCOMES THE COMMISSION’S INTENTION TO: 

12. 

13. 

14. 

15. 

support the Member States in implementing the provisions of this Recommendation 
through  the  available  tools  and  funding  instruments,  particularly  through  school 
mobility and the e-Twinning network;   

support national and regional policy reforms and practice improvements through the 
ET2020  framework  for  European  cooperation  in  education  and  training  and  any 
successor framework; 

develop  and  regularly  review  practical  reference  tools  and  guidance  documents  for 
policymakers and practitioners and support research and stakeholder engagement to 
fill knowledge gaps; 

assess  and  evaluate  the  action  taken  in  response  to  this  Recommendation,  in 
particular  through  the  ET2020  framework,  including  the  Education  and  Training 
Monitor. 

Done at Brussels, 

For the Council 
The President 

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