Evaluation of progress towards implementation of the Council Recommendation of 19 December 2016 on Upskilling Pathways: New Opportunities for Adults
Date: 2022-06-23
Institutions: Directorate-General for Employment, Social Affairs and Inclusion, European Commission
Subjects: education policy

Factual summary report on the 
public consultation for the 
evaluation of the Council 
Recommendation on Upskilling 
Pathways: New Opportunities for 
Adults

  
 
EUROPEAN COMMISSION 

Factual summary report on the public 
consultation for the evaluation of the 
Council Recommendation on Upskilling 
Pathways: New Opportunities for 
Adults  

This document has been prepared for the European Commission however it reflects the views only of the authors, 
and the European Commission is not liable for any consequence stemming from the reuse of this publication. More 
information on the European Union is available on the Internet (http://www.europa.eu). 

Directorate-General for Employment, Social Affairs and Inclusion 

2022 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
1. 

Introduction 

In 2016, the European Commission adopted a Recommendation on Upskilling Pathways aiming 
to  ensure  that  everyone  in  society  has  a  comprehensive  set  of  skills,  knowledge,  and 
competences  to  achieve  their  full  potential,  play  an  active  part  in  society  and  progress  on  the 
labour market. As part of the evaluation of this Recommendation, an online public consultation 
was launched on 16 December 2021 which ran until 17 March 2022.   

This report summarises the responses from the public consultation. The aim of the consultation 
was to gather feedback from stakeholders and the wider public on the effectiveness, efficiency, 
relevance,  coherence,  and  EU  added  value  of  upskilling  pathways  measures.  The  survey 
included both open-ended and closed questions that were available in the 23 official languages 
of  the  EU.  The  public  consultation  was  structured  differently  for  three  different  profiles  of 
respondents, defined as follows: 

•  All organisations and citizens 

•  Current or recent adult learners (recent: within the last 4 years a participant in an adult 

learning measure) 

•  Adults not currently participating in an adult learning measure but wishing to gain new 

skills or qualifications 

2. 

Who participated in the public consultation? 

60 respondents participated in the public consultation. These include 35 organisations, 15 
citizens,  and  ten  respondents  giving  their  answer  on  behalf  of  groups  other  than  those  listed. 
Respondents were from 19 EU Member States and four non-EU countries. The responses show 
a somewhat unbalanced geographical distribution, with five out of 23 countries (22%) covering 
over half of responses (32 out of 60, 53%). These are: Belgium, Estonia, Lithuania, Germany and 
Italy. Figure 1 gives a breakdown of respondents by country of origin.  

Ten position papers were also submitted in response to the public consultation1. The feedback 
received has been analysed as part of the findings of the public consultation.  

1 From European Association for the Education of Adults (EAEA), the Department of Employment and Vocational 
Training of Wallonia (DEFP), the Walloon Institute for Apprenticeship and SMEs (IFAPME), the Francophone 
Service for Occupations and Qualifications (SFMQ) and the Walloon Confederation for Construction (CCW),  
Eurodiaconia, the European Basic Skills Network, World Employment Confederation (Europe), the European 
Training Foundation (ETF), Public Libraries 2030, the International Labour Organisation (ILO), Caritas Europa and 
an anonymous source. 

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Figure 1 Breakdown of respondents by country of origin (n=60) 

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Non-EU countries

Figure  2  shows  that  the  largest  groups  of  respondents  were  public  authorities  (13)  and 
individuals who are EU-citizens (13). The second largest group were respondents from non-
governmental organisations (10) and those who indicated that they belonged to a group not listed 
as a main stakeholder group in the questionnaire (i.e. Other) (10). The remaining respondents 
represented Business organisations (6), Trade unions (3), Business associations (3) and Non-EU 
citizens (2).  

Figure 2 Breakdown of respondents by main stakeholder groups (“I am giving my contribution as”) (n=60) 

Public authority
EU citizen
Other
Non-governmental organisation (NGO)
Company/business organisation
Trade union
Business association
Non-EU citizen

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56  respondents  out  of  60  (93%)  further  specified  the  capacity  in  which  they  replied  to  the 
questionnaire. As Figure 3 shows, the largest group of respondents belonged to public authorities 
or bodies which are involved in adult learning/training, vocational education and training, lifelong 
learning, skills and/or employment policies (12 out of 56, 21%).  

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Figure 3 Can you specify further the capacity in which you are replying to this questionnaire? (n=56) 

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In terms of organisation size, of the 45 organisations that responded, the largest groups were 
respondents from micro-organisations (14, 31%), followed by medium (11, 24%), large (10, 22%) 
and small (10, 22%).2 Public authorities that responded to the questionnaire were also asked to 
indicate the scope of their work. Of the 13 responding public authorities, five (38%) indicated that 
their  organisations  have  a  national  scope,  followed  by  four  (31%)  that  indicated  they  have  a 
regional scope, three (23%) that have a local scope and one (8%) that has an international scope. 

Nine  out  of  56  respondents  indicated  they  were  responding  to  the  public  consultation  in  their 
individual capacities: four citizens (out of 56, 7% of all respondents); four potential adult learners 
(out  of  56,  7%  of  all  respondents)  not  currently  participating  in  an  adult  learning  measure  but 
wishing to gain new skills or qualifications; and one adult learner (out of 56, 2% of all respondents) 
who participated in adult learning within the past 4 years.  

3. 

3.1. 

Responses to the consultation 

Effectiveness 

Figure 4 shows the breakdown of responses by feature of the Recommendation. The provision 
of  skills  assessment  was  the  feature  most  frequently  considered  as  implemented,  with  29 
respondents out  of 48  (60%) indicating it had been implemented to a very large or fairly large 
extent in their country or in the EU. The validation and recognition of skills acquired was the 
feature  most  frequently  considered  as  least  implemented,  as  19  respondents  out  of  48  (40%) 
indicated it had been implemented to a small extent or not at all.  

2 The size of organisations is determined by the number of employees; large (250 or more employees), medium (50-

249), small (10-49) and micro (one-nine). 

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Figure 4 To what extent have the following features of the Council Recommendation on Upskilling Pathways been implemented 
in your country/the EU? 

Degree of implementation of Upskilling Pathways features

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Provision of
flexible offer
(n=48)

Provision of
tailored offer
(n=47)

Skills
assessment
(n=48)

Guidance 
and/or 
mentoring to 
support 
learners’ 
progression 
(n=48)

Motivation
and outreach
measures to
raise
awareness on
training
benefits
(n=47)

Validation and
recognition of
skills acquired
(n=48)

Training of
teachers /
other
professionals
involved in
adult learning
(n=48)

Support
measures to
address
obstacles to
participation
in learning
(e.g. childcare,
financial
support, etc.)
(n=48)

To a very large extent

To a fairly large extent

To a small extent

Not at all

Do not know/Not applicable

EU citizens consider that the features of the Council Recommendation were implemented to a 
fairly or large extent, in particular the provision of a tailored offer (6 out of 47), skills assessment 
(7 out of 48) and validation and recognition of skills (6 out of 48); Public authorities indicate that 
all features were implemented to a very large or fairly large extent (more than seven responses 
across  all  indicated  features  of  adult  learning  measures).  In  comparison,  non-governmental 
organisations (NGOs) suggested that the features were implemented to a small extent. More 
than four respondents from this stakeholder group selected this option when assessing degree of 
implementation across all features. However, the statistical significance of the differences could 
not be further tested due to the very low number of responses. 

As shown in Figure 5, long-term unemployed adults were most frequently considered as the 
target group that has had better access to learning offers to a very large or fairly large extent since 
2016 (25 out of 46 participants, 54%). Nationals with a migrant background, older workers 
and  third  country  nationals  were  the  target  groups  most  frequently  seen  as  having  had 
improved  access  to  adult  learning  measures  to  a  small  extent  or  not  at  all.  For  each  of  these 
groups,  25  respondents  out  of  47  (53%,  for  nationals  with  a  migrant  background  and  older 
workers) and out of 46 (54%, for third country nationals) indicated this. 

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Figure  5  To  what  extent  have  the  following  target  groups  in  your  country/the  EU  been  able  to  better  access  adult  learning 
measures (as specified in the previous question) over the past five years? 

Accessing better adult learning measures

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Not at all

Do not know/Not applicable

More  than  half  of  the  respondents  (25  out  of  41,  61%)  stated  that  skills  needs  in  economic 
sectors had been targeted. Respondents reported the tourism industry (four respondents out of 
13, 31%), construction (four out of 13, 31%), agriculture (three out of 13, 23%), and the services 
industry (two out of 13, 15%). One respondent also gave the example of healthcare in Germany.  

In terms of the perceived degree of stakeholder’s involvement in the delivery of adult learning 
measures, only small differences could  be observed  between the number of respondents who 
indicated  that  this  has  been  done  to  a  very  large  or  fairly  large  extent,  and  the  numbers  of 
respondents who considered that  this has been done to a small extent or not at all. Among all 
features of adult learning measures, the validation and recognition of skills acquired was most 
frequently viewed as delivered to a fairly large or very large extent in cooperation with relevant 
stakeholders (23 respondents out of 45, 51%). By contrast, 23 respondents out of 46 (50%) and 
22 respondents out of 46 (49%) reported that guidance and/or mentoring to support learners’ 
progression and the provision of a flexible offer were delivered in cooperation with relevant 
actors  to  a  small  extent  or  not  at  all.    Involvement  of  stakeholders  was  also  identified  as  an 
important  aspect  of  upskilling  measures  by  respondents  that  submitted  a  position  paper.  In 
particular,  Public  Libraries  2030  and  the  European  Association  for  the  Education  of  Adults 
highlighted  the  key  role  that  local  community  actors  can  play  in  creating  effective  upskilling 
opportunities. 

On  the  degree  of  provision  of  outreach  and  guidance  services,  the  largest  group  of 
respondents declared that these were provided to a small extent (16 respondents out of 47 (34%). 
14 (30%) declared that these were delivered to a fairly large extent and seven (15%) to a very 
large extent. Four respondents declared (9%) that these services were not at all provided. The 
position paper submitted in response to the public consultation by Eurodiaconia highlighted that 
ensuring  the  social  and  economic  inclusion  of  vulnerable  groups  requires  active  outreach 
measures which are currently not being systematically offered.  

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EUROPEAN COMMISSION 

Among the five respondents who identified as adult learners, three (60%) considered they have 
had a lot more or quite a lot more access to measures for developing their skills, knowledge, and 
competences whilst two (40%) indicated they have had little access to such measures.  

3.2. 

Efficiency 

In terms of benefits of the Recommendation, Figure 6 below shows that the Recommendation 
contributed to a very large or fairly large extent to ‘gaining access to employment’ (25 respondents 
out  of  43,  58%),  ‘gaining  further  education  or  training’  (23  out  of  43,  53%),  and  ‘gaining  a 
qualification’ (23 out of 43, 53%). 

Figure  6  To  what  extent  have  adult  learning  measures  in  response  to  the  Council  Recommendation  on  Upskilling  Pathways 
contributed to the following benefits in your country/the EU? (n=43, one option allowed 

Gaining access to employment
Gaining a qualification
Fewer skills shortages
Gaining access to further education or training
Gaining basic literacy, numeracy and digital skills
Gaining more confidence
Improving cohesion of society and equal opportunities
Reducing skills mismatches in the labour market
More motivated staff
Gaining improved participation in society
Gaining improved wellbeing and health
Additional funding for training
Gaining a promotion in current workplace
Supporting the skills needed for green and digital transition
Higher levels of productivity
Increased income tax and VAT
Lowered costs for welfare payments
Other benefits

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They have contributed to a very large extent

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Do not know

The costs most often selected by respondents as having been incurred to a fairly large or a very 
large extent were ‘costs of designing, delivering, and monitoring measures’ (16 out of 43, 37%), 
and ‘infrastructure costs to deliver measures’ (14 out of 43, 33%). 

As shown in Figure 7, out of relevant EU funding programmes, the European Social Fund and 
Erasmus+ were the most often selected as having contributed to a fairly large or very large extent 
to  the  Recommendation’s  implementation  across  EU  Member  States  (respectively  25  and  21 
respondents out of 46, 54% and 46%).   

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EUROPEAN COMMISSION 

Figure  7.  To  what  extent  have  the  following  EU  funding  programmes  contributed  to  achieving  the  objective  of  the  Council 
Recommendation on Upskilling Pathways to provide adults with a low level of skills opportunities to improve their skills? (n=46, 
one option allowed), ordered by funding programmes with the most ‘to a very large extent’ responses. 

Contribution of EU funding programmes 

European Social Fund
European Regional Development Fund
Erasmus +
The Recovery and Resilience Facility
Employment and Social Innovation Programme
Digital Europe
European Globalization Fund
Technical Support Instrument
Other
Horizon Europe
Just Transition Fund
Invest EU

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They have contributed to a very large extent

They have contributed to a fairly large extent

They have contributed to a small extent

They have not contributed at all

Do not know

3.3. 

Relevance 

A large majority of respondents (41 out of 47 (87%)) declared it is still relevant to provide further 
guidance  support  to  low-skilled  adults  in  the  EU,  three  (6%)  somewhat  relevant  and  two  (4%) 
somewhat irrelevant. Potential adult learners found ‘support to address potential obstacles to their 
participation  and  training’,  ‘support  in  getting  a  learning  offer  tailored  to  their  needs  and 
‘awareness-raising on the employment and further learning opportunities following the training’ 
very useful (three respondents out of four, 75%). Position papers submitted in response to the 
public consultation also highlighted  the increased relevance of providing support to low-skilled 
adults  in  light  of  global  drivers  such  as  technological  changes,  demographic  shifts  and  more 
recently the COVID-19 pandemic which has exacerbated existing disparities. 

Figure  8  shows  that  target  groups  most  frequently  perceived  as  very  relevant  by  respondents 
were adults with low levels of basic skills (33 respondents out of  45, 73%), older workers 
above 55 years old (32, 71%) and  long-term unemployed adults (32, 71%). Conversely, five 
(11%) and four (8%) respondents out of 45 viewed nationals with migrant background and Third 
country  nationals  as  target  groups  somewhat  irrelevant  in  the  context  of  upskilling  pathways.  
Other target groups indicated by respondents include Travellers (3 out of 45, 6%), single parents 
(2,  4%)  and  Roma  people  (2,  4%).  The  position  papers  submitted  in  response  to  the  public 
consultation also pointed out the relevance of the low-skilled target group, with some highlighting 
that young people were a relevant target as well.  

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Figure 8 To what extent are the target groups addressed in the Council Recommendation on Upskilling Pathways still relevant 
today? (n=45) 

Relevance of target groups

33

32

32

31

30

28

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Adults with low
levels of basic skills

Long-term
unemployed adults

Persons with
disabilities

Nationals with a
migrant background

Other target group

Very relevant

Somewhat relevant

Somewhat irrelevant

Not at all relevant

Do not know

3.4. 

Coherence 

Respondents  were  asked  to  assess  the  synergies  and  overlaps  between  Upskilling  Pathways 
measures  and  eight  existing  EU  policies  and  with  policies  on  the  national  level.  Overall,  low 
numbers  of  respondents  (between  one  and  two)  found  the  Council  Recommendation  on 
Upskilling  Pathways  ‘not  at  all’  complementary  with  any  of  the  eight  EU  policies.  As  Figure  9, 
shows over half of respondents agreed that the Recommendation complemented the European 
Pillar of Social Rights and the 2020 European Skills Agenda to a fairly large or very large extent 
(25 respondents out of 46, 54%, for each policy). At the same time, the latter was the policy most 
frequently described as overlapping to a fairy large or very large extent with the Recommendation 
(20  respondents  out  of  45,  44%).  More  than  half  of  the  respondents  (25  out  of  44,  57%) 
considered that Upskilling Pathways measures were to a fairly large or very large extent coherent 
with their national policies. 

Figure  9  To  what  extent  have  adult  learning  measures  related  to  the  Council  Recommendation  on  Upskilling  Pathways 
complemented and created synergies with the following EU policies on skills? (n=46, one option allowed) 

Synergies with EU policies on skills

European Pillar of Social Rights

European Agenda for Adult Learning

Recommendation on the Youth Guarantee

Recommendation on Key Competences for Lifelong
Learning

2020 European Skills Agenda

Recommendation on the validation of non-formal and
informal learning

Recommendation on the long-term unemployed

2016 New Skills Agenda for Europe

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To a very large extent

To a fairly large extent

To a small extent

Not at all

Do not know

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3.5. 

EU added value 

The adult learning features most frequently described as having benefitted from  EU action to a 
fairly or very large extent are ‘Validation and recognition of skills acquired’ (22 respondents out of 
45, 49%), ‘Skills Assessment’ (19 out of 45, 42%) and ‘Support measures to address obstacles 
to participation in learning’ (19 out of 45, 42%). This is illustrated in Figure 10 below. 

When asked about the continued value of EU action in providing skills-development opportunities 
to low-skilled adults, most respondents indicated that EU policy guidance was still required to a 
fairly or very large extent (30 respondents out of 45,  67%). Three respondents  out of  45 (7%) 
considered that EU policy guidance was required to a small extent and four (9%) did not know.  

Figure 10. To what extent has the Council Recommendation on Upskilling Pathways and EU action/support led to improved use 
and  quality  of  the  following  features  of  adult  learning  measures  as  defined  by  the  Recommendation,  which  would  not  have 
happened if Member States had acted alone? (n=45, one option allowed)  

Contribution of EU action 

Provision of a tailored offer

Skills assessment

Validation and recognition of skills acquired

Provision of a flexible offer

Motivation and outreach measures to raise
awareness on training benefits

Guidance and/or mentoring to support learners’ 
progression

Training of teachers / other professionals involved in
adult learning

Support measures to address obstacles to
participation in learning

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To a very large extent

To a fairly large extent

To a small extent

Not at all

Do not know

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