COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on a European strategy for universities
Date: 2022-01-18
Institutions: Directorate-General for Education, Youth, Sport and Culture, European Commission
Subjects: EU strategy, European cooperation, cooperation in the field of education, digital transformation, education policy, environmental education, innovation, student mobility, university, university research

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  EN 

   EUROPEAN COMMISSION  Strasbourg, 18.1.2022  COM(2022) 16 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on a European strategy for universities {SWD(2022) 6 final}  
 
 
1  Universities – a distinctive feature of our European way of life 

Today,  our society needs  more than ever  the  contribution of  its  universities1. Europe, in a 
quickly  changing  world,  is  facing  major  challenges  -  climate  change  and  biodiversity  loss,  the 
digital transformation and aging population - at a time when it is hit by the biggest global health 
crisis in a century and its economic fall-out. Europe’s position in the world and the well-being 
and  prosperity  of  future  generations  will  depend  on  our  response.  The  higher  education  sector 
has an essential role to play in Europe’s post-pandemic recovery and in shaping sustainable and 
resilient  societies  and  economies.  Excellent  and  inclusive  universities  are  a  condition  and 
foundation  for  open,  democratic,  fair  and  sustainable  societies  as  well  as  sustained  growth, 
entrepreneurship and employment.  

Europe can build on a diverse and flourishing higher education sector, deeply enrooted in 
European culture. Europe is home to close to 5 000 higher education institutions2, 17.5 million 
tertiary education students, 1.35 million people teaching in tertiary education3 and 1.17 million 
researchers4.  Be  it  research  universities,  institutes  of  technology,  schools  of  arts  or  higher 
vocational  education  and  training  institutions  –  the  different  types  of  higher  education 
institutions  are  all  hallmarks  of  our  European  way  of  life.  This  diversity  is  a  strength,  as  it 
allows for choice and for creativity and synergy through mobility and cooperation. Europe now 
celebrates 35 years of life-changing experiences for more than 10 million young learners through 
its emblematic Erasmus+ programme.   

Universities  have  a  unique  position  at  the  crossroads  of  education,  research,  innovation, 
serving  society  and  economy:  they  play  a  critical  role  in  achieving  the  European  Education 
Area  (EEA)  and  the  European  Research  Area  (ERA),  in  synergy  with  the  European  Higher 
Education Area. Through strong partnerships in the EU and across the globe and building on the 
cumulative asset of education systems and research networks, they are key actors to promote the 
European  model  in  line  with  EU’s  interests  and  values:  rule  of  law,  human  rights  and 
international norms and standards.  

Europe  needs  thriving  universities  to  contribute  implementing  the  European  Union  political 
agenda,  as  they  cut  across  many  different  key  initiatives  taken  recently  for  recovery  and 
resilience. The European Union and Member States have a shared interest in supporting the 
higher  education  sector  by  joining  their  forces  around  a  joint  vision  for  the  higher  education 
sector, building on the richness of its diversity. 

In  doing  so,  they  need  to  take  into  account  the  evolving  context  the  EU  is  facing,  and  that 
impacts the higher education sector directly. If not acted upon appropriately, this could drag on 

1 

The  term  “university”  is  used  as  a  reference  to  the  broader  sector,  representing  the  entire  area  of  tertiary 
education,  thus  including  all  types  of  higher  education  institutions,  including  research  universities,  university 
colleges, universities of applied sciences, higher vocational education and training institutions, and higher arts 
institutions. 

2   These are counted as higher education institutions having received the Erasmus+ Charter for Higher Education 

(ECHE), a prerequisite for higher education institutions to participate in the Erasmus+ programme. 
For EU, Eurostat, https://ec.europa.eu/eurostat/statistics-explained/index.php?title=Tertiary_education_statistics 
For EU, Eurostat, https://ec.europa.eu/eurostat/databrowser/view/tsc00003/default/table?lang=en 

3 
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universities’ performance. Universities have embarked on a process of rethinking and renewing 
themselves. The EU and Member States should support them in this endeavour.  

Universities  can  better  solve  big  societal  challenges  by  engaging  more  effectively  in 
transnational  cooperation.  92%  of  universities  identified  the  elimination  of  legal  and 
administrative obstacles  to  international  strategic institutional  partnerships  as  a key issue5.  In a 
Eurobarometer survey, 93% respondents answered that it would be useful to create EU degrees 
delivered by networks of European universities, offering students the chance to study in different 
EU countries, with a flexible choice of courses or modules6.   

Funding of universities is often insufficient to fulfil their growing societal mission. A public 
funding observatory report7 has revealed that in more than half of the higher education systems 
surveyed, investment in higher education either decline despite growing numbers of students, or 
does  not  increase  at  the  same  pace.  The  Covid-19  pandemic  has  led  to  additional  investment 
needs (e.g. in digital tools and infrastructure) and loss of revenues.  

As skills needs are rapidly evolving, the higher education sector has to adapt. The green and 
digital  transitions  require  future-proof  education,  research  and  innovation,  in  close  cooperation 
with the related industries and stakeholders and the significant disparities in digital skills across 
the EU must be overcome. Students and staff across the EU need to be equipped with the green 
and  digital  skills  for  the  future  and  the  innovation  and  technological  potential  of  universities 
needs to be put at work to tackle related societal challenges.  The European targets are that, by 
2030, at least 45% of 25-34 year-olds obtain tertiary level attainment8 and at least 60% of adults 
participate  in  learning  (over  the  previous  12  months)  by  20309.  The  Digital  Decade10  sets 
ambitious targets, aiming at 80% of people with at least basic digital skills and 20 million ICT 
specialists employed by 2030.  

Diversity,  inclusiveness  and  gender  equality  in  the  higher  education  sector  have  become 
more  important  than  ever.  Students,  academics,  administrative  staff  and  researchers  from 
disadvantaged backgrounds are still underrepresented in higher education11. A persistent gender 
gap  remains  in  some  fields  of  study  and  research  and  in  decision-making  positions  at 
universities.  Gender  balance  clearly  decreases  with  seniority  among  heads  of  higher  education 
institutions where women hold slightly below 24% of these positions in EU2712.  

5 

Survey  EUA,  International  strategic  institutional  partnerships  and  the  European  Universities  Initiative,  April 
(2020), p 26 
Eurobarometer (2018): https://europa.eu/eurobarometer/surveys/detail/2186 

6 
7   EUA Public Funding Observatory Report 2019/20 
8      The Council Resolution on a strategic framework for European cooperation in education and training towards        
       the European Education Area and beyond (2021-2030), Official Journal C 66, 26.2.2021, p. 1–21 
9       As set under the European Pillar of Social Rights Action Plan 
10     COM(2021) 118 final 
11  Hauschildt, Gwosć,  Schirmer,  & Wartenbergh-Cras  (2021). Social  and  economic  conditions  of  student  life  in 

Europe: Synopsis of Indicators.EUROSTUDENT VII 2018-2021   

12   She Figures 2021, Women in Science database, DG Research and Innovation. https://op.europa.eu/s/tflN  

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Fundamental academic and democratic values are under pressure. Universities have voiced 
deep concern over threats to academic freedom and university autonomy13. Numbers of scholars 
and researchers at risk in European neighbourhood are on the rise. Foreign interference in higher 
education institutions is also a threat.  

Universities  have  to  remain  competitive  on  a  worldwide  scene.  Europe’s  relative  weight  at 
global  scale  when  it  comes  to  research-intensive  universities  is  shrinking.  There  is  unused 
potential in bringing together Member States’ efforts on the global scene. Europe could still do 
better  in  stimulating  mobility  and  attracting  and  retaining  talented  students,  academics  and 
researchers to maximise Europe’s global influence when it comes to values, education, research, 
industry and societal impact.  

This European strategy for universities is part of a higher education package, together with 
a  proposal  for  a  Council  Recommendation  on  building  bridges  for  effective  European 
higher education cooperation.  The two initiatives together aim to  unlock the full  potential of 
the  higher  education  sector  as  the  promoter  of  skills  and  knowledge  and  the  engine  for 
innovation and solving societal challenges. The strategy builds upon the achievements of more 
than  20  years  of  the  Bologna  Process  to  propose  a  vision  for  a  European  higher  education 
cooperation  that  is  transformative  for  the  benefit  of  the  EU  and  beyond.  The  Commission 
proposal  for  a  Council  Recommendation  is  a  first  step  in  facilitating  deep  transnational 
cooperation for universities to be able to thrive and to strengthen a sense of European belonging.  

2  Objectives of the European strategy for universities 

The  European  strategy  for  universities  aims  at  supporting  and  enabling  universities  to 
adapt  to  changing  conditions,  to  thrive  and  to  contribute  to  Europe’s  resilience  and 
recovery.  It  is  a  call to  Member States and higher education institutions across Europe to  join 
forces.  It  seeks  to  take  transnational  cooperation  to  a  new  level  of  intensity  and  scope  and  to 
develop a genuinely European dimension in the higher education sector, built on shared values. 
The  strategy  recognises  excellence  and  inclusion  as  a  distinctive  feature  of  European  higher 
education,  exemplary  for  our  European  way  of  life.  This  makes  the  higher  education  sector  in 
Europe different from other parts of the world. 

The  strategy  also  builds  on  the  first  lessons  learned  from  the  European  Universities 
initiative14.  This  initiative  represents  a  vivid  example  of  deep  institutional  transnational 
cooperation  based  on  joint  and  shared  long-term  visions  of  universities.  The  41  European 
Universities alliances15 are catalysts for the launch of new instruments and legal frameworks and 
can inspire the wider higher education community across Europe.  

13   Academic  freedom  and  institutional  autonomy:  commitments  must  be  followed  by  action,  joint  statement  by 

ALLEA, EUA and Science Europe, April 2019 

14   European Universities Initiative | Education and Training (europa.eu) 
15   European Universities factsheets | Education and Training (europa.eu) 

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By mid-2024, the Commission proposes to focus on achieving the four joint key objectives: 

- 

- 

strengthen the European dimension in higher education and research:  
Implement  a  set  of  flagship  initiatives  that  will  be  for  transnational  cooperation  what 
Erasmus+ has been for student mobility so far and Horizon Europe for excellent research: the 
visible  expression  of  a  distinctly  European  approach.  With  the  growing  responsibilities  of 
universities for a resilient Europe, they need appropriate financial support.  

support universities as lighthouses of our European way of life: 
Higher  education  and  research  in  Europe  support  our  European  way  of  life  through  their 
trifold focus on 1) quality and relevance for future-proof skills, 2) diversity and inclusion 3) 
democratic  practices,  fundamental  rights  and  academic  values  and  freedom  of  scientific 
research, 
research.  Flexible  and  attractive  academic  careers,  valuing 
entrepreneurship, management and leadership activities need to be promoted. 

teaching, 

-    empower universities as actors of change in the twin green and digital transitions: 

Support  the  full  engagement  of  universities  in  unfolding  green  and  digital  transitions.  The 
EU will only meet its ambitions on equipping more young people and lifelong learners with 
digital  skills  and  skills  for  the  green  transition,  or  developing  green  solutions  through 
technological and social innovation, if the higher education sector pulls its weight.  

-  reinforce universities as drivers of the EU’s global role and leadership: 

Through deeper international cooperation within Europe and beyond, support universities in 
becoming more outward looking and competitive on the global scene, and in contributing to 
the  strengthening  of  higher  education  systems  in  partner  countries,  in  line  with  European 
values. This will help in turn boosting Europe’s attractiveness not only as a study destination, 
but also as an attractive global partner for cooperation in education, research and innovation. 

To  succeed,  the  European  strategy  for  universities  requires  alignment  of  policy  priorities 
and  investments  at  EU,  national,  regional  and  institutional  levels.  Implementation  of  this 
strategy will require closer cooperation with and between Member States, universities and other 
stakeholders.  Together,  we  can  leverage  the  strong  and  unique  basis  of  Europe’s  higher 
education sector and bring its missions – education, research, innovation at the service of society 
- closer together. 

3  A new framework for enhancing European cooperation  

3.1  Four  flagships  to  boost  the  European  dimension  in  higher  education  and 

research 

Both  Communications  on  Achieving  the  European  Education  Area  by  202516  and  on  a  new 
European Research Area for Research and Innovation17 emphasise that we need to facilitate and 
reinforce  transnational  cooperation  between  universities  to  strengthen  their  capacities  to 
equip  young  people,  lifelong  learners  and  researchers  with  the  right  competences  and  skills.  It 
will also mainstream a culture of excellence in education and science and value creation amongst 

16   COM(2020)625 
17   COM(2020)628 

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higher  education  institutions,  improving  attractiveness  and  global  competitiveness.  Europe  can 
support these efforts through a gradual approach, with a set of four flagship initiatives that will 
– taken together – leverage the strength of universities across Europe and further strengthen both 
their inclusion and excellence in all their activities.  

The Erasmus+ European Universities initiative, in combination with Horizon Europe, Digital 
Europe and other EU and national instruments, will support ambitious transnational alliances of 
higher  education  institutions  to  develop  and  share  a  common  long-term  structural,  sustainable 
and  systemic  cooperation  on  education,  research  and  innovation,  creating  European  inter-
university  campuses  where  students,  staff  and  researchers  from  all  parts  of  Europe  can  enjoy 
seamless mobility and create new knowledge together, across countries and disciplines.  

A  legal  statute  for  alliances  of  higher  education  institutions  –  for  European  Universities  and 
other types of alliances - would allow them to mutualise their strengths together, make common 
strategic decisions, act together with a legal personality, and facilitate pooling together resources, 
activities  and  data.  Such  statute  would  facilitate  deeper,  long-term  and  flexible  transnational 
cooperation, allowing the sharing of capacities, exchange of staff and the implementation of joint 
programmes,  with  the  aim  to  award  at  the  level  of  the  alliance  joint  degrees,  including  a  joint 
European degree.  

A  joint  European  degree,  to  be  delivered  at  national  level,  would  attest  learning  outcomes 
achieved  as  part  of  transnational  cooperation  among  several  institutions,  offered  for  example 
within  European  Universities  alliances,  and  based  on  a  common  set  of  criteria.  A  European 
degree should be easy to issue, store, share, verify  and  authenticate, and recognised across the 
EU.  As  a  first  step,  the  Commission  will  work  towards  developing  European  criteria  for  the 
award of a European Degree label. Such a label would be issued as a complementary certificate 
to  the  qualification  of  students  graduating  from  joint  programmes  delivered  in  the  context  of 
transnational cooperation between several higher education institutions.  

The  generalised  use  of  the  European  Student  Card  initiative  for  all  mobile  students  across 
universities  in  Europe  will  facilitate  their  access  to  transnational  mobility  at  all  levels.  It  will 
make  the  management  of  mobility  easier,  more  efficient  and  greener.  Ensuring  that  each 
European student can be uniquely identified across borders and across digital tools, will facilitate 
the roll out of European Student Cards across Europe and enable the complete digitalisation of 
the  management  of  Erasmus+  student  mobilities  from  application  to  issuing  of  study 
credentials18.  

These  four  flagships  will  work  in  synergy  and  will  contribute  to  a  framework  for  European 
cooperation  in  the  higher  education  sector.  They  will  contribute  to  shaping  a  true  European 

18   This  action  will  draw  lessons  from  the  digital  identity  framework  of  the  European  Commission  and  be 
interoperable with other European IT tools, including the eIDAS (electronic IDentification, Authentication and 
trust Services) Regulation which is an EU regulation on electronic identification and trust services for electronic 
transactions in the European Single Market;  and the work on the Digital Wallets which rely on the European 
Blokchain  Services  Infrastructure  (EBSI)  using  W3C  Verifiable  Credentials  for  exchanging  educational 
credentials. 

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identity,  bringing  transnational  cooperation  to  a  higher  level  and  fostering  a  strong  sense  of 
European belonging.   

In  addition,  with  universities  enjoying  autonomy  and  the  national  legislation  in  the  hands  of 
Member States, it is a permanent  challenge to  ensure that curricula and qualifications are fully 
transparent, and that differences do not get in the way of free movement of students, academics 
and  researchers.  Ensuring  quality  assurance  is  the  foundation  for  mutual  trust  that  enables  in-
depth  cooperation  and  seamless  mobility.  This  is  why  it  is  proposed  to  further  develop  a 
European Quality Assurance and Recognition System, where the quality of qualifications is 
assured, the qualifications are digitised and recognised automatically across Europe, doing away 
with the bureaucracy that hinders mobility, access to further learning and training or entering the 
labour market. In synergy with the ERA Policy Agenda, a European Excellence Initiative will 
raise  excellence  in  science  and  in  knowledge  valorisation  of  Europe’s  universities  and  will 
improve  global  competitiveness  of  European  Universities  in  key  areas  such  as  the  green  and 
digital transition. 

The Commission, in close cooperation with the stakeholders and the Member States, will:  
- Expand to 60 European Universities with more than 500 universities by mid-2024, with an 
Erasmus+ indicative budget totalling EUR 1.1 billion for 2021-2027. 
- Work towards a legal statute for alliances of universities by mid-2024: pilot as of 2022 under 
Erasmus+ the implementation of existing European instruments19. 
- Examine options and necessary steps towards a joint European degree by mid-2024: pilot as 
of  2022  under  Erasmus+  the  first  steps  towards  a  joint  European  degree,  in  particular  the 
development of European criteria for the award of a European Degree label.  
- Scale up the European Student Card initiative by deploying a unique European Student 
Identifier available to all mobile students in 2022 and to all students in universities in Europe by 
mid-2024.  
- Review the Recommendation on further European cooperation in Quality Assurance in higher 
education20  in  2023  to  further  develop  a  European  Quality  Assurance  and  Recognition 
System.  
-  Report  in  2022  on  the  implementation  of  the  Council  Recommendation  on  promoting 
automatic mutual recognition of higher education and upper secondary education and training 
qualifications and the outcomes of learning periods abroad, and support Member States. 
-  Propose  a  Council  Recommendation  on  ‘Building  bridges  for  effective  European  higher 
education cooperation’ to facilitate deeper transnational cooperation.  

3.2  Adequate financial support to higher education and research 

Achieving  inclusion  and  excellence  requires  appropriate  funding  for  universities  at  local, 
regional, national and European levels. Currently, Member States spend, on average, 0,8% of 
their GDP on tertiary education, ranging from 0,3% to 1,7%21. Average government expenditure 
for research and development in higher education institution is 0,48% of the GDP in Europe22. 

19  One existing instrument is the European Groupings of Territorial Cooperation (EGTC)   
20   Recommendation  of  the  European  Parliament  and  of  the  Council  of  15 February  2006  on  further  European 

cooperation in quality assurance in higher education, Official Journal L 64, 4.3.2006, p. 60–62  

21   General government expenditure according to the Classification of the Functions of Government - COFOG 
22  https://ec.europa.eu/eurostat/statistics-

explained/index.php?title=R_%26_D_expenditure#Gross_domestic_expenditure_on_R.26D 

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The EU’s higher education sector shows signs of significant underfunding, especially in the light 
of the increase of numbers of students and growing responsibilities of universities.  

European funding is important to universities to complement national funding as a source 
of  income,  but  also  as  a  platform  for  European  and  international  academic  cooperation. 
With  the  new  multiannual  financial  framework,  the  EU-level  is  going  to  invest  a  significant 
amount  in  the  support  of  universities,  estimated  at  EUR  80  billion23  over  the  programming 
period 2021-2027. The higher education sector will thus benefit from an unprecedented level of 
EU  funding  from  various  sources,  including  from  Erasmus+,  Horizon  Europe,  Digital  Europe, 
the Recovery and Resilience Facility, the funds under shared management24 or InvestEU. Each 
of these funding sources is a financial tool in its own right with its specific purpose and mission.  

While  EU  funds  and  programmes  are  significant,  they  must  not  replace,  but  operate  in 
addition to sufficient national public funding and other public and private investments. It is 
key that Member States and actors of the higher education sector make effective use of the EU 
tools and explore synergies with national, regional and local funding to mobilise EU and national 
efforts towards the common vision as set out in this European strategy for universities.    

The Commission, in close cooperation with the stakeholders and the Member States, will:  
- Facilitate the access to EU and national funding for quality projects that could not be funded 
under Erasmus+: first, a certificate from the Commission will be delivered to be tested for the 
2022 European Universities  Call for Proposals;  second,  the Seal  of Excellence tool25  could  be 
implemented under Erasmus+, as is currently the case under Horizon Europe. 
- As part of the mid-term review of the MFF programmes, develop an investment pathway that 
takes into account regional, national and European funding.  

In addition to the above, the Commission calls on Member States: 
-  To  maximise  the  impact  of  EU  interventions,  by  seeking  further  synergies  with  national 
financing, notably in the context of European Universities. 
- To develop adequate funding mechanisms for universities. 
- To support higher education reforms via the Technical Support Instrument. 
 - To ensure flexibility in funding programmes to allow for interdisciplinarity. 

4  Lighthouses of our European way of life 

4.1  Strengthen quality and relevance for future-proof skills  

There is a need to tackle in a systemic and comprehensive way academic careers, responding to 
the call of the Council to promote flexible and attractive career structures and improve working 
conditions.  Career  assessment  should  take  into  account  the  variety  of  activities  of  academics 
leadership.  A  Council 
such  as 
Recommendation  on  a  Pact  for  Research  and  Innovation  in  Europe  aims  to  improve  the 
attractiveness of research careers and ensure better access to excellent science. 

teaching,  research,  entrepreneurship,  management  or 

23   The final figure will depend on the outcome of the on-going programming of funds. 
24     The European Regional Development Fund (ERDF) and the European Social Fund (ESF) 
25   This  is  a  quality  label  awarded  to  project  proposals  evaluated  above  quality  threshold  to  help  them  find 

alternative funding through the European Regional Development Fund and the European Social Fund+. 

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Universities  have  a  key  role  to  play  in  preventing  skills  mismatches  and  bottlenecks  that  risk 
hindering Europe’s recovery, and in enabling the development of learners as creative and critical 
thinkers, problem solvers and active and responsible citizens equipped for lifelong learning. The 
Commission  presented  in  2021  a  proposal  for  a  Council  Recommendation  on  a  European 
approach to  micro-credentials for lifelong  learning and employability.  Its  swift  follow-up by 
the Council will help to mobilise higher education in support of lifelong learning and contribute 
to professional reskilling and upskilling to meet new and emerging needs in society and labour 
market.  

Excellent education, research and innovation environments are an enabler for  developing high-
level  skills,  creating  breakthrough  knowledge  and  translating  it  into  practical  applications. 
Cooperation among universities and with the industrial ecosystems is mutually beneficial in this 
respect,  with  the  higher  education  sector  supporting  skills  development  for  industry  and  the 
business  sector,  in  addition  to  personal  development  purposes.  Learners  should  have  more 
opportunities to benefit from traineeships, be exposed to start-ups, and be engaged as actors of 
change  in  their  community  to  positively  impact  the  society  around  them.  Entrepreneurial 
education and training that enhance business knowledge and skills are essential, in particular for 
SMEs. More synergies should be promoted between the European Universities alliances and the 
Centres of Vocational Excellence in that respect. 

To  achieve  excellent  and  relevant  higher  education,  support  is  also  needed  to  stimulate 
pedagogical innovation, focused on the learners, with a variety of learning spaces and flexible, 
interdisciplinary paths. The creation of ‘living labs’26 should be promoted as a good example of 
how students can be trained to work on challenges in a holistic way, across disciplines, and how 
to support students’ critical thinking, problem-solving, creative and entrepreneurial skills.  

The Commission, in close cooperation with the stakeholders and the Member States, will:  
- Propose by 2023 a  European framework for attractive and  sustainable careers in higher 
education, in synergy with the research career framework developed under the ERA. 
-  Support  the  future-proof  skills  development  and  entrepreneurship  competences  of  graduates 
and  co-design  of  curricula  between  industry  -  including  SMEs  -  and  higher  education 
institutions  in  strategically  important  industrial  sectors  identified  in  the  updated  industrial 
strategy27,  implemented  by  the  Erasmus+  Alliances  for  Sectoral  Cooperation  on  Skills  and 
contributing to the transition pathways of eco-systems28 . 
- Extend the EIT label29 to lifelong learning activities such as mentoring, re-skilling and up-
skilling modules and programmes, and open the EIT label beyond academic education. 
-  Support  the  uptake  of  the  joint  EU/OECD-INFE30  financial  competence  framework  to 
support adults’ financial wellbeing throughout their lives. 

26   Living  Labs  in  universities  enable  students,  staff  and  researchers  to  cooperate  with  other  key  stakeholders  to 
solve societal challenges and encourages application of knowledge to the real-world context, enhances skills of 
those  involved,  increases  connections  between  people, and  provides  more opportunities  to  connect  with 
society.    

27    COM(2021) 350 final, Updating the 2020 New Industrial Strategy 
28  Transition pathways will be co-created with stakeholders, and could offer a better bottom-up understanding of 
the required action to accompany the twin transitions for the most relevant ecosystems leading to an actionable 
plan. 

29   The EIT label is awarded to educational programmes on innovation, entrepreneurship, creativity and leadership 

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-  Boost  Erasmus+  traineeships  abroad,  reaching  more  than  100 000  trainees  every  year, 
through student peer reviews and traineeships in start-ups and entrepreneurial organisations. 
- Mainstream new innovative approaches to learning and teaching, including ‘living labs’, at 
Bachelor, Master and Doctorate levels, through the Erasmus+ and Horizon Europe programmes. 
- Develop a transition toolbox for universities and Member States: Eurograduate tracking 
surveys, HEInnovate 2.031 and Acceleration Services for universities under Horizon Europe. 
- As part of the ERA Hubs, reinforce universities’ role in local innovation ecosystems, such as 
strengthening  and  sharing  of  technology  transfer  capacities,  through  spin-offs  and  through 
promoting joint investment in synergy with InvestEU. 
-  Strengthen  the  role  of  universities  in  implementing  ERA4You  by  promoting  intersectoral 
mobility, in particular between academia and businesses.  
- Provide  European  support as  from  2023  for  Innovators at school, for  school  partnerships to 
involve leading personalities from start-ups to act as ambassadors and mentors to inspire young 
people, and invite them to develop new ideas and solutions. 
-  Provide  European  support  as  from  2023  -  including  a  toolkit  for  universities  -  for  the 
development  of  incubators  within  higher  education  institutions,  in  close  cooperation  with  the 
entrepreneurial sector, to help student entrepreneurs to develop their ideas into businesses. 
- Organise an annual European Talent Fair bringing together students, early career researchers, 
scholars, start-ups, industry and investors promoting talent, business and job opportunities across 
the EU, starting with the first edition under the European Science in the City in Leiden 2022. 

In addition to the above, the Commission calls on Member States: 
-  To  facilitate  and  promote  interdisciplinary  approaches,  including  through  institutional 
accreditation, academic assessment, reward and professional development.  
-  To  promote  parity  of  esteem  between  different  academic  career  paths  and  provide  more 
flexibility for academic careers, also beyond academia.  

4.2  Foster diversity, inclusiveness and gender equality 

As  set  out  in  the  first  principle  under  the  European  Pillar  of  Social  Rights,  ‘everyone  has  the 
right  to  quality  and  inclusive  education,  training  and  life-long  learning’.  Europe  has  highly 
accessible  higher  education  compared  to  the  rest  of  the  world.  However,  disadvantaged  or 
discriminated  groups  (ethnic  minorities,  people  with  migration  background,  or  with  disability, 
people  from  poor  families,  children  of  low  qualified  parents)  are  still  underrepresented  among 
students, academic staff and researchers. Despite increasing access to tertiary education, higher 
education  systems  remain  highly  stratified.  First-generation  students  and  students  with  an 
immigrant or minority background have lower chances to achieve a tertiary education in the EU. 

There  are persistent  gender  gaps  in  higher education.  While at  Bachelor’s and Master’s levels, 
women outnumber men as students  and graduates, and while there is  almost  gender balance at 
Doctoral  level,  there  are  large  gender  differences  across  fields  of  study  –  in  the  STEM  fields, 
women still represent slightly less than a third of students at bachelor and master level, and 37% 
of doctoral candidates. Despite some progress in recent years, the proportion of women holding 
full professorship or equivalent positions remains at a low 26% in the EU. 

30   OECD International Network on Financial Education 
31   This is a self-assessment tool of universities’ innovation and entrepreneurial capacity. 

9 

 
 
                                                                                                                                                                                           
More  institutional  changes  are  needed  for  universities  to  become  places  of  truly  equal 
opportunities.  

The Commission, in close cooperation with the stakeholders and the Member States, will:  
-  Develop  a  European  framework  for  diversity  and  inclusion,  including  on  gender  gaps, 
identifying challenges and solutions for universities, and the needed support of public authorities.  
- Address the underrepresentation of women in STEM fields through a roadmap that includes 
a manifesto from STE(A)M-oriented universities on gender-inclusive STE(A)M32 education. 
-  Support  for  researchers  at  risk  with  guiding  principles  for  universities  to  facilitate  their 
inclusion. 
In addition to the above, the Commission calls on Member States: 
-  To  encourage  universities  to  implement  institutional  change  through  concrete  measures  for 
diversity  and  inclusion,  including  voluntary,  quantified  targets  for  inclusion  and  inclusive 
gender equality plans, building on the Rome Communiqué33. 
- To develop national support schemes and support access to higher education of refugees and 
individuals  seeking  asylum,  including  the  establishment  and  scaling  of  complementary 
pathways  for  refugee  students  and  the  related  support,  in  line  with  the  Commission 
Recommendation on legal pathways to protection in the EU34. 

4.3  Promote and protect European democratic values 

Universities need to be places of freedom: for speech, thought, learning, research and academic 
freedom  at  large.  Academic  freedom  cannot  be  isolated  from  institutional  autonomy,  nor  from 
the participation of students and staff in higher education governance.  

Ensuring academic freedom in higher education institutions is at the core of all higher education 
policies developed at EU level, as well as in the Bologna Process. It is a basic prerequisite for the 
creation  of  the  European  Education  Area  and  the  European  Research  Area.  Fundamental 
academic values cannot be taken for granted. In recent years, we see them threatened in different 
formats  and  in  different  places,  even  in  the  EU.  Autonomy  of  higher  education  institutions  is 
uneven in Europe35. The Union and its Member States are called on to protect actively, nurture 
and  defend  these  values  through  their  policies  and  funding  opportunities,  as  well  as  protect 
research-performing organisations against foreign interference.  

Universities  are  key  to  promote  active  citizenship,  tolerance,  equality  and  diversity,  openness 
and  critical  thinking  for  more  social  cohesion  and  social  trust,  and  thus  protect  European 
democracies. Universities have an active role to play in preparing graduates to be well-informed 
European citizens. By teaching and awareness raising actions, they support anchoring European 
values in society, and by upholding scientific rigour they help to strengthen trust in science.  

32   Science, technology, engineering, (the arts) and mathematics (STEAM) is a multidisciplinary set of approaches 
to education removing traditional barriers between subjects and disciplines to connect STEM and ICT education 
with the arts, humanities, and social sciences. 

33   Rome Ministerial Communiqué, http://ehea.info/Upload/Rome_Ministerial_Communique.pdf 
34     Commission Recommendation (EU) 2020/1364 of 23 September 2020 on legal pathways to protection in the 
        EU: promoting resettlement, humanitarian admission and other complementary pathways, Official Journal L 
        317, 1.10.2020, p. 13–22 
35   The European Universities Association’s Autonomy Scorecard (2017) 

10 

 
 
                                                           
The Commission, in close cooperation with the stakeholders and the Member States, will:  
- Roll-out and monitor the new Erasmus Charter for Higher Education and the new Erasmus 
Student Charter36, integrating academic freedom and integrity.  
-  Create  new  opportunities  to  foster  academic  debates  and  exchange  of  best  practices  on 
values  and  democracy  as  part  of  the  Erasmus+  Jean  Monnet  Higher  Education  activities, 
including in third countries. 
- Propose in 2024 guiding principles on protecting fundamental academic values, based on 
the  Rome  Communique37,  in  synergy  with  the  action  developed  under  ERA,  which  aims  at 
developing an action plan for protecting academic freedom and the freedom of scientific research 
in Europe, based on the Bonn Declaration 
-  Provide  support  for  implementing  the  guidelines  on  foreign  interference  in  research  and 
innovation.   
In addition to the above, the Commission calls on Member States: 
- To support the diversity within the European higher education sector  
- To strengthen and respect university autonomy in its various dimensions. 
- To promote and protect academic freedom and integrity. 

5  Actors of change in the twin green and digital transitions 

5.1  Develop  skills,  competences  and  technological  innovation  for  the  green 

transition 

Universities are key actors for the green transition and for a more sustainable world. They have 
an  important  role  in  conducting  research  to  find  solutions,  in  cooperation  with  industry  and 
society  to  environmental  and  climate  challenges  in  view  of  achieving  climate  neutrality, 
reversing biodiversity loss and stopping pollution, and in developing climate and environmental 
literacy for all students across all levels and disciplines, as well as for the public at large through 
community  engagement.  Universities can also  be a role model for environmental sustainability 
through  their  infrastructure  and  operations.  Ultimately,  results  of  research  and  innovation 
activities  can  constitute  a  solid  ground  for  environmental-related  policies,  innovation  and 
measures. 

The Commission has recently presented proposals for Council Recommendations on learning 
for  environmental  sustainability  and  micro-credentials  for 
learning  and 
employability. The Council’s swift follow-up will help to mobilise Member States in supporting 
their universities and students to become agents of change for the green transition, including in a 
lifelong  learning  perspective.  Horizon  Europe  partnerships  and  missions38  offer  great 
potential for synergies, for example, in  sectors such as zero-emission transport and sustainably 
sourced batteries, requiring new skills.  

lifelong 

36   Which  are  respectively  a  prerequisite  to  receive  any  Erasmus+  funding  and  present  the  rights  and 

responsibilities of Erasmus+ students while on mobility 
37   http://www.ehea.info/page-ministerial-conference-rome-2020 
38   EU are a new way to bring concrete solutions to some of our greatest challenges. EU Missions are a coordinated 
effort by the Commission to pool the necessary resources in terms of funding, policies and regulations, etc. 

11 

 
 
 
 
                                                           
The Commission, in close cooperation with the stakeholders and the Member States, will:  
- Support Member States’ efforts through peer learning and sharing best practices in promoting 
whole-institutional approaches to sustainability, climate and environmental literacy. Foster 
innovative  teaching  and  learning  approaches.  Support  universities  through  the  Erasmus+ 
Programme  to  mainstream  environmental  sustainability  across  their  infrastructure  and 
operations.  
-  Support  the  development  by  universities  in  cooperation  with  socio-economic  actors  of  short 
learning courses on skills for the green transition leading to micro-credentials39 
- Support  Higher Education Climate  Frontrunners, a platform for  transnational  partnerships 
between  students,  academics,  universities,  employers  and  communities  on  climate  challenges, 
building on the Education for Climate Coalition and the European Climate Pact Ambassadors. 
- Encourage ‘green villages’ as a way to open up university campuses to communities, to bring 
science closer to citizens, with the support of Horizon Europe, including its missions. 
- Promote and monitor the new Green and Blue Erasmus+40 to boost environment and climate 
change-related  action.  Monitor  the  implementation  of  the  new  Erasmus  Charter  for  Higher 
Education and the Green Charter for the Marie Skłodowska-Curie Action programme. 
-  Provide  support  to  the  European  Battery  Alliance  (EBA)  Academy  run  by  the  European 
Institute  of  Innovation  and  Technology,  for  training,  up-  and  reskilling  the  workforce  in  the 
battery industry value chain.  
-  Supporting  the  implementation  of  strategic  research  and  innovation  action  plans  that 
deliver on the green energy transformation and the greening of key industrial ecosystems. 
In addition to the above, the Commission calls on Member States: 
- To support universities in their whole-institutional approaches to sustainability, including on 
green  skills,  as  well  as  the  key  role  of  universities  for  innovation  and  new  green 
technologies; and universities to lead in green transition. 

5.2  Develop  skills  and  competences  and  promote  innovation  for  the  digital 

transition 

The  digital  transition  gives  universities  a  fundamental  role  in  equipping  students  and 
researchers  with  the  digital  skills  and  competences  needed  in  the  new  reality  and  in  the 
promotion of innovation and new technologies.  

During the COVID-19 pandemic, the higher education sector showed its ability to adapt to the 
new  situation.  It  became  evident  that  digital  solutions  cannot  and  should  not  fully  replace 
physical  activities.  The  future  should  be  based  on  hybrid  solutions  representing  a  good 
balance  between  physical  presence  and  digital  tools.  Universities  can  also  foster  innovative 

39  

Inspired  by  the  Competence  Framework  for  learning  for  environmental  sustainability  and  the  upcoming 
Commission’s  taxonomy  of  skills  for  the  green  transition,  to  strengthen  the  up-skilling  and  re-skilling  of  the 
European workforce. 

40   Environmental and climate goals are an overarching priority of the Erasmus programme. The ‘Green Erasmus’ 
aims  to  promote  the  incorporation  of  green  practices  in  all  projects  and  support  awareness-raising.  The  blue 
dimension is an important part of Green Erasmus. All planned sustainability measures will be relevant as well 
for the blue dimension of Erasmus+, with the objective of preserving healthy oceans, seas, coastal and inland 
waters. 

12 

 
 
                                                           
education technology development through spin-off or scale-ups and leverage the potential of the 
growing European Education Technology (EdTech) industry. 

The Commission has set up a structured dialogue with Member States on digital education 
and  skills  to  agree  jointly  on  the  key  enabling  factors  to  make  digital  education  and  training 
effective and inclusive. Universities have a key role to play in fostering a labour force equipped 
to  take  on  the  challenges  of  the  digital  transition  in  the  future.  Specialised  education  offer  in 
digital  areas,  such  as  AI,  cybersecurity  or  cloud  computing,  as  well  as  microelectronics,  are 
crucial  in  this  respect41.  Skill  shortages  in  science,  technology,  engineering  and  mathematics 
(STEM)  are  one  of  the  main  obstacles.  As  digital  technologies  penetrate  all  sectors  of  the 
economy,  it  is  also  necessary  that  all  students,  for  example  those  studying  medicine,  business 
administration and agriculture learn to use them at an advanced level in their professions.  

In the next decade we need to make ‘connected universities’ a reality. For that, sufficient digital 
capacity and infrastructure of universities is key. The more widespread use of digital means will 
have to rely on new and trusted technologies and platforms, which will require interoperability, 
have  a  solid  European  basis,  and  should  serve  education  and  research  needs  in  an  integrated 
manner.  At  the  same  time,  common,  open  standards  are  needed,  allowing  universities  to  take 
better control of their data to make cooperation effective. 

The Commission, in close cooperation with the stakeholders and the Member States, will 
- Provide support to transnational cooperation to develop the digital skills and competences 
of students of all ages, staff and researchers, in line with the Digital Education Action Plan. 
-  Through  the  Digital  Europe  Programme,  provide  support  to  specialised  education  and 
training programmes in cutting-edge digital technologies and for multi-disciplinary courses in 
artificial intelligence, cybersecurity, microelectronics and high performance computing.  
- As a follow up to a feasibility study conducted in the context of the Digital Education  Action 
Plan, support the launch and rollout of a targeted European platform to promote cooperation 
between  higher  education  institutions,  compatible  with  the  European  Open  Science  Cloud 
(EOSC) and interoperable with other European standards. 
-  As  part  of  the  Erasmus+  Jean  Monnet  activities,  support  dedicated  measures  to  recognise  at 
EU level the efforts of universities driving the digital transformation across the EU 
- Lead universities in  co-developing guidelines and principles for allowing  mutual access to 
services  and  enabling  seamless  knowledge  and  data  exchange,  reflecting  the  need  for 
interoperability and openness.  
In addition to the above, the Commission calls on Member States: 
- To support the development of digital skills of students of all ages, staff and researchers, the 
digital capacity of universities, as well as the key role of universities for innovation and new 
digital technologies, and universities to lead in digital transition. 

41  E.g. gains from investment on common EU projects, such as the European Cloud Initiative or the upcoming  
    Chips Act, can only materialise if there are highly qualified people able to design and develop these technologies.   

13 

 
 
 
 
 
                                                           
6  Drivers of Europe’s global role and leadership 

Europe needs more than ever to reach out to the rest of the world. Universities are instrumental 
in  building  Europe’s  connections  with  the world  and in  promoting European values  globally42. 
They  play  a  vital  role  in  generating  the  evidence  that  underpins  Europe's  foreign  and  security 
policies, international agreements, and multilateral action. As key players in science diplomacy, 
they help building bridges.  

Europe  has  become  a  pacesetter  in  higher  education  cooperation.  For  many  regions,  countries 
and  universities  worldwide,  the  European  experience  has  inspired  new  strategies  towards 
internationalisation or regional cooperation. Deepening cooperation among European institutions 
therefore goes hand in hand with consolidating their global dimension. In parallel, supporting the 
strengthening of higher education in partner countries is essential.  

In  line  with  the  Global  Gateway  strategy,  universities  in  Europe  are  essential  to  assist  partner 
countries to transform their education systems and facilitate mobility of students, staff, teachers, 
and  trainees,  in  a  spirit  of  mutual  benefit  and  reciprocity.  They  are  also  the  drivers  behind 
strengthening cooperation on research and innovation.  

The diversity and international standing of the EU education systems and Europe’ status as the 
biggest provider of cooperation on higher education represents a substantial cumulative asset that 
could  be  leveraged.  EU  experience  with  cross-border  recognition,  quality  assurance  and 
accreditation  issues  is  informing  regional  cooperation  and  integration  in  wider  geographical 
areas.  

By exchanging talents from all over the world and building strong bridges with partner countries 
across  the  globe,  and  by  promoting  academic  and  European  values,  universities  are  part  of 
Europe’s soft power. Europe needs to strengthen and build on this reputation, and level up these 
strengths  across  Member  States.  This  will  in  turn  make  it  more  attractive  not  only  as  a  study 
destination but also as a homogenous cooperation partner for education, research and innovation.  

The Commission offers to:  
-  work jointly with Member States to promote Europe’s higher education offer and international 
cooperation  in  higher  education  in  a  Team  Europe  approach.  This  means:  developing  the 
‘Study  in  Europe’  portal  to  foster  international  exchanges;  strengthening  peer-learning  among 
universities  and  agencies  on  internationalisation;  strengthening  partnerships  with  priority 
regions,  such  as  Western  Balkans,  the  Neighbourhood  and  Africa,  based  on  reciprocity,  and 
better engaging and relying on alumni networks. 
The Commission, in close cooperation with the stakeholders and the Member States, will: 
- Foster mobility between Europe and other regions of the world: call on Member States to 
organise in particular the relevant procedures in view of the timely issuance of permits/visas to 
third-country  students  so  they  can  start  the  academic  year  in  the  EU  on  time,  respecting  the 
Students and Researchers Directive43. 

42  As outlined in the Global Approach to Research and Innovation (COM(2021)252 final) 
43  Directive (EU) 2016/801 of the European  Parliament and of the Council of 11 May 2016 on the conditions of 
entry and residence of third-country nationals for the purposes of research, studies, training, voluntary service, 
pupil exchange schemes or educational projects and au pairing, Official Journal L 132 of 21.5.2016, p. 21-57 

14 

 
 
                                                           
 
-  Support  consortia  of  worldwide  leading  universities  to  develop  and  implement  Master 
programmes, through Erasmus Mundus Joint Master calls addressing global challenges. 
-  Support  transparent  and  fair  recognition  of  third  country  qualifications,  including  those  of 
refugees, through the network of academic recognition centres44 and the EU transparency tools 
(European Qualifications Framework, European Digital Credentials for Learning).  

7  Making it happen: monitoring and governance 

Progress in implementing this strategy will be reported on through the European Education Area 
strategic  framework  and  the  European  Research  Area  governance.  The  Commission  will  take 
stock  of  the  state  of  play  in  its  Progress  Report  on  the  European  Education  Area  (EEA) 
and  through  the  European  Research  Area  monitoring  system.  This  will  enable  the 
Commission,  the  Member  States  and  the  stakeholders  to  engage  in  a  strategic  dialogue  on 
progress accomplished and where to focus our policies and support.  

In 2023, the Commission will set-up a European Higher Education Sector Observatory as part 
of this process in order to provide evidence on the progress made. This Observatory will combine 
the  best  of  the  current  EU  data  tools  and  capacities45  in  one  single  place,  while  further 
enhancing  their  use  and  relevance  for  policy  makers,  universities,  students  and  researchers. 
Streamlining  and  upgrading  existing  European  data  sources  will  enable  institutions  and 
governments  to  strengthen  their  evidence  basis  on  key  topics  such  as  inclusion,  learning 
outcomes,  progress  on  digital,  green  and  entrepreneurial  skills, 
transfer, 
employability,  students  and  labour  market  needs,  strengthening  research  careers,  open  science, 
the  institutions’  role  in  innovation  ecosystems,    and  transnational  cooperation  in  the  higher 
education sector.  The Observatory  will  make it possible  to  compare, analyse and showcase the 
higher education sector’s performance across various fields. By building on the synergies among 
the  existing  data  tools,  it  will  ensure  focused  and  purpose-driven  monitoring,  eliminating 
potential overlaps and decreasing data collection burden on higher education institutions. 

technology 

One of the Observatory’s deliverables will be a European Higher Education Sector Scoreboard 
to  yearly  assess  the  progress  made  across  the  EU  towards  the  key  priorities  of  this  strategy: 
inclusion,  values,  quality  and  relevance,  mobility,  green  and  digital  skills,  employability, 
transnational cooperation, technology transfer and knowledge valorisation.  

This  monitoring  will  also  cover  the  adequacy  of  investment  in  higher  education  and  research 
both at the EU, national and institutional levels. For this purpose, the Commission will use the 
results of the work of the Expert Group on Quality Investment in Education and Training.  

This Communication is an invitation for  closer cooperation between countries and actors of 
the  higher  education  sector  within  the  European  Education  Area  (EEA),  the  European 
Research Area (ERA) and the European Higher Education Area (EHEA, Bologna process). 
Synergies  are  needed  in  areas  such  as  transnational  cooperation  and  the  institutional 
transformation of universities, support for fundamental academic values and scientific freedom, 

44   Joint  network  of  the  European  Network  of  Information  Centres  in  the  European  Region  and  the  National 

Academic Recognition Information Centres in the European Union (ENIC-NARIC) 

45  For example, ETER, U-Multirank, DEQAR, Eurostudent, Eurograduate, Bologna implementation reports data 
and  Mobility  Scoreboard,  Eurostat,  Education  and  training  statistics  and  R&D  statistics  and  JRC  KT  Metrics 
Platform 

15 

 
 
 
                                                           
developing academic careers, innovative and interdisciplinary learning, teaching and research, as 
well  as  the  interconnectedness  between  these,  knowledge  circulation,  international  cooperation 
with partners beyond the EU and the contribution to the United Nation’s SDG’s.   

The Commission, in close cooperation with the stakeholders and the Member States, will:  
-  Set-up  a  data-focused  European  Higher  Education  Sector  Observatory  in  2023,  with  a 
European Higher Education Sector Scoreboard as one of its deliverables. 
-  Promote synergies between the European Education Area, the European Research Area 
and the European Higher Education Area in a fit-for-purpose and flexible manner. 

8  Conclusion: the way forward 

This  strategy  sets  out  a  European  vision  for  the  future  of  universities  and  how  the  Union  can 
support them across Europe. This Communication is presented at the beginning of the 2022 
European Year of Youth. To underpin Europe’s recovery and resilience and lay the foundation 
for  its  sustainable  growth,  Europe  has  to  invest  in  its  young  generation.  This  phase  in  life  is 
marked by education and training.  We owe young people the chance to acquire excellent and 
relevant  skills  and  competences.  Offering  each  young  European  a  real  chance  to  upskill  and 
reskill, helps lay the foundation for a stronger, more prosperous and resilient Europe. 

With this Communication on a European strategy for universities, the Commission invites 
Member States and their universities to join forces for the benefit of higher education and 
of  the  European  Union  as  a  whole.  It  is  an  invitation  for  joint  reflection  and  debate  and 
collaborative work on how we can together develop the European dimension in higher education, 
research and innovation in a way that harnesses the full potential of universities.  

This strategy can only be implemented together. The Commission invites Universities to take 
forward  the  work  within  their  institutions  and  Member  States  to  support  their  universities 
through  appropriate  policy  and  funding  support;  and  invites  Member  States,  universities, 
students, academic staff, researchers and their partners within broader innovation ecosystems to 
take ownership of the strategy and share pledges to inspire others. 

The Commission is committed to mobilise all the instruments at its disposal – be it governance, 
funding, cooperation, or legislation – to implement this strategy.  

Coordination  of  efforts  between  the  EU,  Member  States,  regions,  civil  society  and  the  higher 
education sector is key to make this strategy a reality. The Commission invites the [European] 
Council,  Member  States  and  universities  to  engage  in  a  joint  discussion  on  this  policy 
agenda  and  work  jointly  towards  future-proof  universities,  for  the  benefit  of  Europe’s  young 
generation and to nurture lifelong learning for the benefit of people of all ages.  

16