Proposal for a COUNCIL RECOMMENDATION on improving the provision of digital skills in education and training
Date: 2023-04-18
Institutions: Directorate-General for Education, Youth, Sport and Culture, European Commission
Subjects: access to education, digital literacy, digital transformation, education, educational system, recognition of diplomas, teacher training, teaching curriculum, teaching quality, vocational training

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   EUROPEAN COMMISSION  Strasbourg, 18.4.2023  COM(2023) 206 final 2023/0100 (NLE)  Proposal for a COUNCIL RECOMMENDATION on improving the provision of digital skills in education and training {SWD(2023) 205}  
 
 
EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

In her 2022 State of the Union address, the President of the European Commission, Ursula von 
der Leyen, highlighted the shortage of skills as a major challenge and proposed that 2023 would 
be the European Year of Skills1. 

While  digital  transformation  is  pervasive  and  technology  is  increasingly  becoming  part  of 
everyday life, many people still lack the digital skills needed  in today’s society and economy2. 
The COVID-19 crisis showed the risk of exacerbating inequalities due to an insufficient level of 
digital skills3. It also revealed that technology, if not used wisely, can have a negative impact on 
personal  well-being  and  mental  health4.  The  ground-breaking  potential  of  some  emerging 
technologies,  such  as  generative  artificial  intelligence  (AI),  has  made  it  clear  that  digital  skills 
are key to reap the opportunities offered by these tools while addressing possible risks. Demand 
for  basic  digital  skills  is  growing,  new  specialist  digital  skills  are  emerging  across  sectors  and 
occupations5, and ICT specialists are in short supply. 
The  Digital  Compass6  and  the  European  Pillar  of  Social  Rights  Action  Plan7  set  ambitious 
targets to support Member States in their digital transformation. They aim at ensuring that 80% 
of adults have at least basic digital skills and that 20 million ICT specialists are employed in the 
EU, with more participation from women. These targets are reflected in the decision establishing 
the  Digital  Decade  policy  programme  20308  and  are  complemented  by  a  target  set  in  the 
European  Education  Area9  of  reducing  the  rate  of  low-achievers  in  computer  and  information 
literacy to less than 15%.  
As stated in the Declaration on digital rights and principles10, acquiring digital skills is a right11. 
Recognised  as  a  key  competence  for  lifelong  learning12,  digital  skills  involve  the  confident, 
critical and responsible use of, and engagement with, digital technologies for learning, work, 
and  participation  in  society13.  This  also  applies  to  personal  finances,  where  the  increased 
digitalisation  of  financial  products  and  services  has  made  digital  skills  essential  for  accessing 
financial services and making informed decisions. Digital skills also contribute to the resilience 
of the Union economy. 

Digital skills development is one of the priorities of the Digital Education Action Plan 2021-
2027, which sets Commission’s long-term approach to the digital transformation14 in education 

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https://state-of-the-union.ec.europa.eu/index_en. 
Centeno C., Karpinski Z., Urzi Brancati C. (2022). Supporting policies addressing the digital skills gap. Identifying 
priority groups in the context of employment. 
Di Pietro G., Biagi F., Costa P., Karpiński Z., Mazza J. (2020).The likely impact of COVID-19 on education: 
Reflections based on the existing literature and international datasets. 
2022/C 469/04. 
Manca F., Oses Arranz A. (2022). Skills for the digital transition: assessing recent trends using big data.  
COM(2021) 118 final. 
COM/2021/102 final 
DECISION (EU) 2022/2481, 14.12.2022. 
2021/C 66/01. 
https://digital-strategy.ec.europa.eu/en/library/european-declaration-digital-rights-and-principles. 
COM(2021) 118 final. 
2018/C 189/01. 
In this proposal, digital skills and digital competences are used as synonyms.  
COM(2020) 624 final. 

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and training. Its vision was endorsed in the Council Conclusions on digital education in Europe’s 
knowledge societies15, where Member States  invited the Commission  to  launch a  reflection on 
the  digital  transformation  of  education  and  training  systems.  In  the  2021  State  of  the  Union 
address, President von der Leyen stressed that digital education and skills need leaders’ attention 
and launched a structured dialogue to support Member States with an integrated, coherent and 
more ambitious approach16. The European Council Conclusions of February 2023 state that more 
ambitious actions should be taken to further develop the skills that are required for the green and 
digital transitions17. 

The  Recovery  and  Resilience  Facility  (RRF),  part  of  the  EU’s  response  to  the  COVID-19 
pandemic, has been designed as a key instrument for accelerating the digital transition. National 
plans submitted by Member States include a wide range of reforms and investments in the area 
of  digital  skills,  as  for  instance  curriculum  reforms  and  upskilling  and  reskilling  opportunities, 
for teachers, trainers  and  the workforce18.  At the same time, the  structured dialogue confirmed 
the  political  importance  that  governments  give  to  the  need  to  take  coordinated  action.  With 
regard to digital skills, three topics have featured prominently in Member States’ discussions : 1) 
reforms in formal education settings; 2) new large-scale initiatives outside formal education; 3) 
ongoing efforts to improve monitoring, evaluation and assessment. The need for more guidance 
and support on digital skills at EU level emerged as a general request. 

This  proposal  for  a  Council  Recommendation  aims  to  support  Member  States  in  addressing 
challenges related to digital skills development and the ability of education and training systems 
to support their provision19. The proposal and acknowledges the importance of digital skills for 
all and takes into consideration all levels of education and training and calls for engagement by 
various stakeholders.  Its implementation  will  support the attainment of the EU-level  targets  on 
digital skills, including by addressing the social and territorial dimension of existing skill gaps. 
The  proposal  is  aligned  with  the  results  of  the  Report  of  the  Conference  on  the  Future  of 
Europe.20  

This initiative complements the proposal for a Council Recommendation on the key enabling 
factors  for  successful  digital  education  and  training  of  the  Digital  Education  Action  Plan 
2021-2027. 

• 

Challenges to be addressed by this proposed Council Recommendation 

The low level of basic digital skills and the growing need for both advanced and specialist digital 
skills are a major concern across Member States. 

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2020/C 415/10. 
https://education.ec.europa.eu/focus-topics/digital-education/action-plan/action-1. 
https://data.consilium.europa.eu/doc/document/ST-1-2023-INIT/en/pdf. 
Data on digital skills are available on the Recovery and Resilience Scoreboard: 
https://ec.europa.eu/economy_finance/recovery-and-resilience-scoreboard/. Thematic analyses on digital skills and 
education, as well as on adult learning and skills in the national recovery and resilience plans can be found here: 
Recovery and Resilience Scoreboard (europa.eu) 
In this proposal, the term provision refers to the education and training offer or the range of general and specialised 
courses for the development of digital skills. 
In particular, in relation to its Proposal 32 on Digital literacy and skills, which proposes to ensure ‘access to formal and 
non-formal digital literacy and skills training and education, including in school curricula, during all stages of life by 
building on existing initiatives at European level, with special focus on the inclusion of vulnerable groups and elderly, 
enhancing digital skills of children in a manner that is compatible with their healthy development and tackling digital 
inequalities, including the digital gender gap.’ 

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Only 54% of people (aged 16-74) have at least basic digital skills21 - against a EU-level target 
of 80%. There  are wide  differences  between Member States and  within countries  due to  a  gap 
between rural areas and cities, and to the high impact that age, socio-economic background and 
education have on the level of digital skills22. 
More than a third of the EU’s labour force lacks the digital skills required in most jobs23, 
despite a rising demand across occupations, especially in non-tech industries24. 

Digital skills level of European youth (aged 16-24) is higher than that of the overall population 
(54%).  Still,  fewer  than  four  in  five  young  people  (71%)  have  at  least  basic  digital  skills25.  In 
2018,  on  average  across  Member  States  participating  in  the  International  Computer  and 
Information  Literacy  Study  (ICILS),  approximately  34%  of  students  were  rated  as 
underachieving26  in  digital  skills  (against  a  target  of  15%)  with  great  differences  linked  to 
gender27, socio-economic, migrant or Roma background28. 

The number of employed ICT specialists (9 million in 2021) is not enough to meet the needs of 
the labour market and is far below the EU-level target of 20 million. Leveraging legal migration 
channels  and  recognising  skills  and  qualifications  acquired  in  third  countries  can  help  in 
attracting more talents to the EU29. The sector also suffers from a severe gender imbalance with 
81% of employed ICT specialists being male30. Encouraging more women to work in this field is 
of crucial importance to tackle gender segregation and address staff shortages. 

The ongoing digital transformation requires education and training systems to adapt and respond 
to  the  learning  needs  of  people  using  technologies  that  rapidly  change,  often  in  a  disruptive 
manner.  Long-term  evidence  and  recent  stakeholder  consultations  point  to  an  inadequate 
provision of digital skills in education and training as the root cause of underachievement. 

Early childhood education and care (ECEC) plays a fundamental role in supporting children 
to  become  active  citizens  and  learners.  Research  shows  that  children  are  engaging  with  digital 
technologies  from  an  increasingly  younger  age,  and  mostly  from  home,  by  mirroring  adult 
behaviour  and  following  a  trial-and-error  strategy  that  is  not  free  from  risks31.  Digitally 
competent professionals at ECEC level can support children and their families in developing the 
skills needed for their safe interaction with technology whilst also ensuring equal opportunities. 

In  formal  education  (primary  and  secondary),  digital  skills  are  developed  in  a  variety  of 
ways32. Many Member States recently changed or are currently reviewing their curricula: while 
half  of  the  reforms  mentioned  in  the  structured  dialogue  are  transversal,  about  a  third  of  them 

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Eurostat (2021). Survey on ICT usage in households. 
Centeno C., Karpinski Z., Urzi Brancati C. (2022). Supporting policies addressing the digital skills gap. Identifying 
priority groups in the context of employment. 
CEDEFOP (2018). Insights into skills shortages and skill mismatch. 
CEDEFOP (2021). Second European skills and jobs survey.  
Eurostat (2021). ICT usage in households. 
Fraillon J., Ainley J., Schulz W., Friedman T., Duckworth D. (2019). Preparing for Life in a Digital World: 
International Computer and Information Literacy Study 2018 International Report.  
ICILS 2018 further shows that girls outperformed boys in all participating Member States. 
Karpiński Z., Di Pietro G., Biagi F. (2023) Non-cognitive skills and social gaps in digital skills: Evidence from ICILS 
2018. Learning and Individual Differences, 102, 102254.  
https://ec.europa.eu/info/strategy/priorities-2019-2024/promoting-our-european-way-life/new-pact-migration-and-
asylum/skills-and-talent_en. 
Eurostat (2021). ICT specialists in employment. 
Chaudron S., Di Gioia R., Gemo M. (2017). Young Children (0-8) and Digital Technology - A qualitative study across 
Europe.  
European Commission/EACEA/Eurydice (2019). Digital Education at School in Europe.  

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consists  of  introducing  a  separate  subject  in  the  curriculum.  An  emerging  trend  focuses  on 
including learning outcomes on informatics for both lower and upper secondary education. 

The  cross-curricular  provision,  in  which  digital  skills  are  taught  in  most  subjects,  helps  to 
engage a greater number of teachers and students. The trend to develop digital skills through a 
separate  subject,  such  as  informatics,  is  confirmed  by  recent  studies,  which  show  various 
implementation  methods  with  a  provision  that  often  starts  at  secondary  level  and  is  partly 
optional,  thus  failing to  reach  all students33. Some countries  include  aspects of digital skills or 
informatics within another subject (like mathematics or science) to avoid creating a new subject 
and to improve the effectiveness of their educational offer. 

A dedicated curriculum for digital skills (be it a separate subject or a topic embedded across all 
subjects  or  in  another  subject)  needs  to  be  complemented  with  a  plan  to  make  it  understood, 
endorsed, delivered, supported and assessed by digitally competent teachers. Challenges arise in 
ensuring quality teaching, relevant resources, gender-balanced uptake, and proper assessment. 

In  recent  years,  major  efforts  have  been  made  in  fostering  the  digital  transformation  of 
vocational  education  and  training  (VET).  This  will  continue  as  part  of  the  national  plans  to 
implement  the  2020  VET  Council  Recommendation34.  However,  many  initiatives  focus  on  the 
use  of  technology  for  teaching  and  learning,  rather  than  strengthening  digital  skills 
development35. While both aspects are important, policies in VET tend to group the digitalisation 
of the sector and actions focused on learners’ digital skills. Evidence from a 2020 study shows 
that,  in  initial  VET,  digital  skills  are  commonly  integrated  across  subjects,  rather  than  as  a 
separate  subject.  Despite  high  demand  for  the  development  of  specialist  digital  skills  (which 
would  include  aspects  of  informatics),  the  VET  sector  faces  challenges  in  responding  to  these 
demands, with notable disparity across contexts and among Member States36.  
The higher education learning offer needs to be both general and sector-specific37. At university 
level,  digital  skills  are  developed  mainly  through  programmes  for  ICT  specialists,  despite  the 
importance they have for all professions. In 2019, less than 5% of young people opted to enrol in 
ICT-related  programmes,  with  low  participation  of  women38.  The  structured  dialogue 
highlighted  Member  States’  concerns  but  also  efforts  to  develop  digital  skills  across  a  broad 
range  of  higher  education  courses  and  to  increase  the  number  of  students,  especially  women, 
acquiring  advanced  digital  skills.  Available  data  shows  that  the  EU  suffers  from  a  lack  of 
expertise  in  teaching  advanced  digital  technologies39.  Mutual  recognition  of  qualifications 
between Member States suffers from differences arising from relevance and content of education 
and  training  for  ICT  specialists,  thus  hampering  the  mobility  of  ICT  talents.  In  this  context 
bodies  like  the  ENIC-NARIC  networks40  or  quality  assurance  agencies  foster  collaboration  on 
academic recognition of qualifications. 

Adult learning is the sector presenting the most diverse challenges. Despite the importance of 
upskilling and reskilling, the provision of digital skills for adults remains scattered. Even where 
there is a plethora of options, there is often no regional or national overview of the courses on 

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European Commission/EACEA/Eurydice (2022). Informatics education at school in Europe.  
2020/C 417/01. 
CEDEFOP (2022). Evidence supporting the upcoming proposal for a Council Recommendation on improving the 
provision of digital skills in education and training. Draft working paper. 
Bocconi S. et al. (2022). Reviewing Computational Thinking in Compulsory Education. 
COM(2022) 11 final. 
Eurostat (2020). Tertiary education statistics. 
Joint Research Centre (2022). Academic Offer of Advanced Digital Skills in 2020-21. International Comparison. 
https://www.enic-naric.net/ 

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offer.  In  addition,  the  challenges  related  to  its  accessibility  create  further  inequalities41.  This 
situation  is  common  across  adult  learning,  rather  than  specific  to  digital  skills.  In  this  regard, 
short  courses  leading  to  micro-credentials  help  provide  flexible  learning  opportunities  for 
adults42.  

The  structured  dialogue  has  indicated  a  trend  of  new  large-scale  digital  skills  initiatives  for 
disadvantaged  groups  and  unemployed  people43.  Most  Member  States  referred  to  major 
difficulties in improving adults’ digital skills, due to a lack of funding but also of motivation and 
outreach. Some also mentioned that companies, especially SMEs, lack the financial and human 
resources to train and upskill their staff. In some cases, Member States flagged the need for more 
EU support to increase participation, reach vulnerable groups, scale up small or pilot initiatives, 
and  monitor  participation  rates  and  outcomes.  Despite  the  60%  EU  headline  target,  adult 
participation in learning, including on digital skills, remains limited in most Member States44. 

Besides  sector-specific  issues,  there  are  general  challenges  that  are  relevant  for  all  levels  of 
education and training: 

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Specialised teaching staff: it is difficult to recruit, retain and train teachers, especially 
in  informatics  and  other  specific  or  advanced  digital  areas.  There  are  multiple  factors 
hindering developments: few people specialise in these domains and  those that  do  are 
easily  attracted  by  more  competitive  offers  in  the  private  sector.  Upskilling/reskilling 
programmes  and  existing  supporting  measures  are  insufficient  to  satisfy  the  needs  of 
teachers, especially when dealing with specific or advanced digital areas. 
Progression  of  programmes45:  while  most  Member  States  have  developed  strategies 
for digital skills, few take a comprehensive approach to ensure purposeful sequencing of 
programmes across all levels of education and training. There are challenges to ensure a 
consistent  implementation  of  digital  skills  policies  at  all  levels  and  in  all  sectors  of 
education and training. 

Member  States  highlight  the  need  for  EU  support  for  peer  learning  and  exchanges  on  the 
development  and assessment  of digital  skills  within  and outside formal education and training. 
They also call for exchanges on how to coordinate efforts addressing the digital skills gap and 
see a role for the Commission in funding further research and providing technical support. 

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The objectives of the proposed Council Recommendation 

The proposal aims to: 

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promote a quality, inclusive and consistent approach to the development of digital skills 
at all levels of education and training, with support from all sectors of society and  the 
economy; 

enable cooperation among Member States in promoting and providing quality education 
in informatics at school; 

Beblavý M., Bačová B. (2022). Literature review on the provision of digital skills for adults. EENEE report. 
2022/C 243/02. 
A second target group often mentioned is staff in SMEs and public administration. 
It was 37% in 2016 (the latest available data with the indicator over a 12-month reference period).  
In this proposal, the term progression refers to the purposeful sequencing of teaching and learning across multiple 
developmental stages, ages, or grade levels. 

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– 

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support higher education in the development of digital skills across disciplines, address 
the need for specialist and advanced digital skills, foster expertise in developing multi-
disciplinary courses in cutting-edge technologies; 

support  the  provision  of  digital  skills  in  VET  and  for  adults,  and  improve  its 
accessibility; 

foster actions connected to digital skills certification and mutual recognition;  

support the recruitment, training and retention of specialised teachers and trainers. 

• 

International dimension 

The proposal is based on and complements work at the international level. It contributes to the 
UN 2030 Sustainable Development Goals (SDGs)46, in particular SDG 4 and partially SDGs 5, 
8 and 10.  

initiative 

is  consistent  with  ongoing  work  of 

The 
the  United  Nations  Secretary-
General’s roadmap  for  digital  cooperation  and  aligned  with  the  Call  for  Action  on  Digital 
Learning of the Global Transform Education Summit. 

The  proposal  also  contributes  to  the  objectives  of  the  EU’s  Global  Gateway  strategy  to  build 
sustainable and trusted connections that work for the people and the planet. 

The  results  of  the  OECD  Programme  for  International  Student  Assessment  (PISA)  and  Skills 
Toolkit and Outlook have been taken into consideration in preparing the proposal. The EU target 
on low-achieving eighth graders is based on ICILS which enables international comparability. 

• 

Tools for supporting the implementation 

The Commission’s intention is to set up a High-Level Group on Digital Education and Skills to 
take forward in a formal setting the informal coordination between National Coordinators under 
the Structured Dialogue. This would bring together expertise from the worlds of education and 
digital and could be used to develop guidelines or other tools to facilitate the further evolution of 
digital education.   

The proposal will be supported by: 

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the Working Group on Digital Education: Learning, Teaching and Assessment; 

EU  instruments,  such  as  the  Technical  Support  Instrument,  and  EU  funding,  such  as 
Erasmus+,  European  Social  Fund  Plus,  Just  Transition  Fund,  European  Regional 
Development  Fund,  Digital  Europe  Programme,  Horizon  Europe,  and  NDICI-Global 
Europe; 

existing  tools,  platforms  and  communities  such  as  DigComp,  European  Digital 
Education Hub, EU Code Week,  Digital Skills and Jobs  Coalition/Platform, Europass, 
EPALE, Digital Education Hackathon, Pact for Skills; 

improved  evidence  and  analysis  through  the  Learning  Lab  on  Investing  in  Quality 
Education and Training; 

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https://sdgs.un.org. 

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international assessments on digital skills such as ICILS, PISA, and the Programme for 
the International Assessment of Adult Competencies (PIAAC); 

reporting  and  monitoring  under  the  European  Education  Area  strategic  framework 
(including the Education and Training Monitor) and the Digital Decade. 

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Complementarity with other initiatives 

The proposal complements other EU actions presented under: 

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– 

the European Education Area Communication47; 
the Digital Education Action Plan 2021-202748; 

the  European  Skills  Agenda  for  Sustainable  Competitiveness,  Social  Fairness  and 
Resilience49;  

The proposal will also contribute to implementing: 

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2. 

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the Digital Decade Policy Programme50 
the European Pillar of Social Rights and its action plan51; 

the Union of Equality strategies;  
the European Year of Skills52.  

the Cybersecurity Skills Academy 
the Harnessing Talent in Europe’s Regions Communication53. 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

This proposal is in conformity with Articles 165 and 166 of the Treaty on the Functioning of the 
European Union (TFEU). 

• 

Subsidiarity (for non-exclusive competence) 

This proposal is in conformity with the principle of subsidiarity as provided for in Article 5(3) of 
the Treaty on European Union (TEU).  It fully respects the responsibility of Member States for 
the  content  of  teaching,  the  organisation  of  education  systems  and  their  cultural  and  linguistic 
diversity,  while  reflecting  the  supplementing  and  supporting  role  of  the  EU  and  the  voluntary 
nature  of  European  cooperation  in  education  and  training.  The  initiative  does  not  propose  any 
extension  of  EU  regulatory  power  or  binding  commitments  on  Member  States.  Its  European 
added  value  lies  in  the  ability  of  the  EU  to  mobilise  political  engagement  and  to  support 
education and training systems through policy guidelines, common tools and instruments. 

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COM(2020) 625 final. 
COM(2020) 624 final. 
COM(2020) 274 final. 
COM(2021) 118 final 
https://commission.europa.eu/strategy-and-policy/priorities-2019-2024/economy-works-people/jobs-growth-and-
investment/european-pillar-social-rights_en. 
COM(2022) 526 final. 
COM(2023) 32 final 

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• 

Proportionality 

This proposal complies with the principle of proportionality as provided for in Article 5(4) TEU. 
Neither  the  content  nor  the  form  of  this  proposal  exceeds  what  is  necessary  to  achieve  its 
objectives.  The  commitments  Member  States  will  make  are  of  a  voluntary  nature  and  each 
Member State remains free to decide which approach to take. 

• 

Choice of the instrument 

To  contribute  to  the  achievement  of  the  objectives  referred  to  in  Articles  165  and  166  of  the 
TFEU, the Treaty provides for the adoption by the Council of recommendations, on a proposal 
from the Commission. 

A  Council  recommendation  is  an  appropriate  instrument  within  the  field  of  education  and 
training, where the EU has a supporting responsibility. Recommendations have frequently been 
used for European action in these areas. 

3. 

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RESULTS OF EX POST EVALUATIONS, STAKEHOLDER CONSULTATIONS 
AND IMPACT ASSESSMENTS 

Ex post evaluations and fitness checks of existing legislation 

The Commission will undertake a comprehensive review of the Digital Education Action Plan in 
2024 to assess its outreach and impact. 

An assessment of the opportunities and challenges that digital transformation brings to education 
and  training  was  made  in  the  staff  working  document  accompanying  the  Digital  Education 
Action Plan 2021-202754. 

This  proposal  builds  on  those  findings  as  well  as  on  the  outcomes  of  the  structured  dialogue, 
which provided a forum to discuss the readiness of existing national frameworks and legislation 
to respond to the needs related to digital education and skills. The proposal builds upon previous 
work  done  in  the  framework  of  the  Digital  Decade,  including  trends  observed  in  the  Digital 
Economy and Society Index (DESI). 

• 

Stakeholder consultations 

The proposal is based on the outcomes of the open public consultation organised in 2020 for the 
Digital Education Action Plan 2021-202755, the results of the structured dialogue, and the inputs 
gathered during an extensive consultation process56. 

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Collection and use of expertise 

The proposal is based on: 

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outcomes of the structured dialogue with Member States on digital education and skills; 

lessons  learnt  from  the  implementation  of  the  European  Education  Area  strategic 
framework,  the  Education  and  Training  Monitor,  and  messages  of  various  working 
groups,  including  the  Working  Group  on  Digital  Education:  Learning,  Teaching  and 
Assessment; 

SWD/2020/209 final 
https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/12453-Digital-education-action-plan-update-
/public-consultation_en. 
Annex 2 of the staff working document accompanying this proposal. 

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analysis of the results of the open public consultation on the Digital Education Action 
Plan 2021-2027 and the accompanying Staff Working Document; 

a  wide  range  of  reports  and  studies  on  relevant  topics  including  the  impact  of  the 
COVID-19  crisis,  quality  investments  in  education  and  training,  and  the  digital  skills 
gap. A literature review and two studies provided information on the provision of digital 
skills for young people and adults across Europe57; 

evidence-based  knowledge  and  advice  from  the  European  Expert  Network  on 
Economics of Education (EENEE) and the expert groups working on the guidelines on 
tackling disinformation and promoting digital literacy58 and on the ethical use of AI and 
data in teaching and learning59; 

evidence and input from Digital Economy and Society Index (DESI) and International 
Computer and Information Literacy Study (ICILS); 

ad  hoc  analysis  of  reports  and  studies  from  the  OECD,  UNESCO,  the  Council  of 
Europe, the Joint Research Centre, CEDEFOP and Eurydice as well as projects from the 
Technical Support Instrument. 

Impact assessment 

Given the activities’ complementary approach to Member State initiatives, the voluntary nature 
of the proposed activities and the scope of the impacts expected, an impact assessment was not 
conducted. The development of the proposal was informed by previous studies, an open public 
consultation and targeted stakeholder consultations60. 

• 

Regulatory fitness and simplification 

Not applicable. 

• 

Fundamental rights 

This proposal is in line with the fundamental rights and principles recognised by the Charter of 
Fundamental Rights of the European Union, notably the right to the protection of personal data 
laid down in Article 8, academic freedom in Article 13, the right to education in Article 14, the 
right  to  non-discrimination  in  Article 21  and  right  to  integration  of  persons  with  disabilities  in 
Article  26.  The  measures  will  be  pursued  in  accordance  with  EU  law  on  the  protection  of 
personal  data, in  particular Regulation  (EU) 2016/67961 of the European Parliament and of the 
Council on the protection of natural persons with regard to the processing of personal data and 
on the free movement of such data (General Data Protection Regulation). 

4. 

BUDGETARY IMPLICATIONS 

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

57 

58 
59 
60 
61 

Beblavý M., Bačová B. (2022). Literature review on the provision of digital skills for adults. EENEE report.  
European Commission/EACEA/Eurydice (2022). Informatics Education at school in Europe.  
Bocconi S. et al. (2022). Reviewing Computational Thinking in Compulsory Education.  
https://op.europa.eu/en/publication-detail/-/publication/a224c235-4843-11ed-92ed-01aa75ed71a1/. 
https://op.europa.eu/en/publication-detail/-/publication/d81a0d54-5348-11ed-92ed-01aa75ed71a1/. 
Annex 2 of the staff working document accompanying this proposal. 
OJ L 119, 4.5.2016, p. 1-88. 

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5.            OTHER ELEMENTS 

• 

Implementation plans and monitoring, evaluation and reporting arrangements 

To  support  implementation,  the  Commission  proposes,  in  cooperation  with  Member  States,  to 
develop  peer  learning  activities  and  the  identification  of  good  practices,  as  well  as  research, 
guidance material, handbooks and other concrete evidence-based deliverables. The Commission 
intends  to  report  on  the  use  of  the  Recommendation  within  the  European  Education  Area 
strategic framework. 

• 

Explanatory documents (for directives) 

Not applicable. 

• 

Outline  of  the  proposal  for  a  Council  Recommendation  and  staff  working 
document 

In line with the European Year of Skills, the proposal recognises the role that digital skills have 
in  the  context  of  the  twin  transition,  for  active  participation  in  society,  social  inclusion,  equal 
opportunities  for  all,  well-being,  security  and  territorial  cohesion,  as  well  as  employability, 
innovation, productivity, and growth. 

By following up on the outcomes of the structured dialogue and considering the EU-level targets 
on  digital  skills,  the  proposal  aims  to  improve  the  provision  of  digital  skills  at  all  levels  of 
education  and  training,  including  by  strengthening  ongoing  efforts  and  calling  for  greater 
cooperation between education and training, the private sector and civil society. 

It  proposes  guidance  and  action  that  can  be  pursued  by  Member  States  to  better  develop  all 
levels of digital skills (basic, advanced, specialist) in education, training and lifelong learning. It 
also sets out Commission’s intention to supporting and complementing Member State actions in 
this area. 

The accompanying staff working document sets out stakeholder opinions and provides examples 
of  existing  evidence,  policies  and  practices 
the  proposed  Council 
Recommendation. 

that  underpin 

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2023/0100 (NLE) 

Proposal for a 

COUNCIL RECOMMENDATION 

on improving the provision of digital skills in education and training 

THE COUNCIL OF THE EUROPEAN UNION, 

Having regard to the Treaty on the Functioning of the European Union, and in particular Article 
165(4) and Article 166(4) thereof, 

Having regard to the proposal from the European Commission, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

(5) 

62 
63 
64 
65 
66 
67 

Digital skills have become a must in almost every sector of society and the economy, and 
a cornerstone for people’s social inclusion, well-being, active citizenship, employability, 
productivity,  security  and  growth62.  All  citizens  need  them  to  be  informed,  to  exercise 
their  rights,  to  access  online  services,  to  communicate,  and  to  consume,  create  and 
disseminate digital content. 

In particular, the European Council Conclusions of 9 February 2023 stressed the need 
for more ambitious action to further develop the skills that are required for the green and 
digital  transition  through  education,  training,  upskilling  and  reskilling  to  meet  the 
challenges of labour shortages and the transformation of jobs, including in the context of 
socio-economic and demographic challenges63. 

Following  the  announcement  of  the  President  of  the  European  Commission  on  making 
2023  the  European  Year  of  Skills64,  political  agreement  between  the  European 
Parliament and Member States has been reached on the Commission’s proposal to work 
together to further promote skills development65. 

The  2022  European  Declaration  on  Digital  Rights  and  Principles  for  the  Digital 
Decade66 sets out how Europe’s values and fundamental rights should be applied to the 
digital world. The declaration states, among its principles, that people are at the centre of 
the  digital  transformation,  that  the  digital  transformation  should  contribute  to  a  fair 
society and economy, and that everyone has the right to acquire digital skills. 

The importance of digital skills is also recognised in the first principle of the European 
Pillar of Social Rights67. In this context, education and training systems have been called 
on to  support the  development  of digital  skills  of all citizens. Non-formal providers are 
also  addressing  this  need  by  supporting  a  rich  and  varied  educational  offer  for  young 
people and adults. 

In the context of this proposal, digital skills and digital competences are used as synonyms. 
Available at: https://data.consilium.europa.eu/doc/document/ST-1-2023-INIT/en/pdf. 
State of the Union Address by President von der Leyen (europa.eu) 
https://ec.europa.eu/commission/presscorner/detail/en/ip_23_1501  
OJ C 23, 23.1.2023, p. 1.  
European Pillar of Social Rights (europa.eu) 

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(6) 

The Union of Equality strategies68 emphasise the important role of quality and inclusive 
education and training for making progress towards a Union of equality for all, regardless 
of gender, racial or ethnic origin, religion or belief, disability, age or sexual orientation. 
Actions are needed to make this a reality and overcome the digital divide, in particular for 
vulnerable  and  socio-economically  disadvantaged  groups,  people  living  in  rural  and 
remote areas, persons with disabilities.  

(7) 

The  Commission  Communication  on  achieving  the  European  Education  Area  by 
202569  outlines  a  vision  to  build  education  and  training  systems  that  are  more  resilient 
and inclusive.  

(8)  Within  this  vision,  the  Digital  Education  Action  Plan  2021-202770  sets  out  Europe’s 
approach for education in the digital age and considers the development of digital skills 
as  a  strategic  priority.  The  plan  states  that  a  sound  understanding  of  the  digital  world 
should be part of formal and non-formal education. This is particularly important in the 
context  of  the  ongoing  digital  transformation  and  the  impact  of  emerging  digital  tools, 
based  for  instance  on  generative  AI  systems.  This  implies  the  need  for  education  and 
training  institutions  to  prepare  people  for  a  healthy,  safe  and  meaningful  use  of 
technology. 

(9) 

In her 2021 State of the Union address, the President of the European Commission called 
for top leaders to give attention to digital education and skills, which led to the launch of 
a  structured  dialogue  on  digital  education  and  skills71.  In  2022,  Member  States 
nominated  their  representatives  for  the  high-level  group  of  National  Coordinators  to 
the structured dialogue, with the mandate to represent the relevant departments in their 
countries  responsible  for  different  aspects  of  digital  education,  training  and  skills 
(including  education,  labour,  digital,  industry  and  finance).  Outcomes  of  the  structured 
dialogue  demonstrated  Member  States’  need  for  greater  guidance,  support  and 
cooperation  to  strengthen  digital  skills  development  and  to  improve  the  provision  of 
digital skills in a lifelong learning perspective. The valuable work of this group should be 
continued in the future.  

(10)  Council  Recommendation  on  key  competences  for  lifelong  learning72  includes  the 
confident,  critical,  responsible  and  sustainable  use  of,  and  engagement  with,  digital 
technologies,  as  one  of  the  eight  key  competences  for  lifelong  learning.  The  Digital 
Competence Framework for Citizens (DigComp)73 sets out the key elements of digital 
competence in five interrelated areas with different proficiency levels. The framework is 
used by education, training and certification providers as a reference for the development 
and assessment of digital skills. 

68 

69 

70 

71 
72 
73 

Five equality strategies were adopted in 2020 and 2021 to make progress towards a Union of Equality: Gender Equality 
Strategy  2020-2025;  LGBTIQ  Equality  Strategy  2020-2025;  EU  anti-racism  action  plan  2020-2025;  Roma  strategic 
framework  for  equality,  inclusion  and  participation  2020-2030;  Strategy  for  the  Rights  of  Persons  with  Disabilities 
2021-2030. 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions on achieving the European Education Area by 2025, COM(2020) 625 
final of 30.9.2020. 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions ‘Digital Education Action Plan 2021-2027. Resetting education and 
training for the digital age’, COM(2020) 624 final of 30.9.2020. 
Digital Education Action Plan – Action 1 | European Education Area (europa.eu) 
Council Recommendation of 22 May 2018 on key competences for lifelong learning (OJ C 189, 4.6.2018, p. 1). 
Vuorikari R., Kluzer S., Punie Y. (2022). DigComp 2.2: The Digital Competence Framework for Citizens - With new 
examples of knowledge, skills and attitudes. Luxembourg: Publications Office of the European Union. 

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(11)  The  relevance  of  digital  skills  for  society  and  employability  is  supported  by  a  series  of 
targets  on  attainment  levels  of  digital  skills.  With  Council  Resolution  on  a  strategic 
framework  for  European  cooperation  in  education  and  training  towards  the 
European Education Area and beyond (2021-2030)74, the Council committed to a Union-
level target on young people’s digital skills, with the aim to reduce low-achievers to less 
than 15% by 2030. The European Skills Agenda75 proposes fostering the development 
of digital skills and reaching a target of 70% of adults aged 16-74 having at least basic 
digital skills by 2025. The Digital Decade policy programme76 includes commitment to 
cooperate with a view to achieving a digitally skilled population and highly skilled digital 
professionals, where at least 80% of those aged 16-74 have at least basic digital skills and 
at  least  20 million  ICT specialists  are  employed  within the  Union, while promoting the 
access of women to this field and increasing the number of ICT graduates. 

(12)  However,  available  data  shows  that  on  average  across  Member  States  participating  in 
the  International  Computer  and  Information  Literacy  Study,  approximately  34%  of 
eighth-grade students  were rated  as underachieving in digital skills  in  201877 (against a 
target of 15%). In 2021, only 54% of people in the Union aged 16-74 had at least basic 
digital skills78, over half of Union companies reported difficulties in filling the number of 
vacancies  for  ICT  specialists79,  and  only  9  million  people  worked  as  ICT  specialists 
across  the  Union80.  In  ICT-related  professions,  men  account  for  81%  of  the  overall 
figure81. Figures confirm the need to further support digital skills development including 
by addressing the gap between rural areas and cities and the high impact that age, socio-
economic background and education have on the level of digital skills. 

(13)  Efforts  are needed for basic as well  as advanced digital  skills.  In this  context,  the  New 
European Innovation Agenda82 stresses the need to focus on talent development in the 
deep tech sector. To this  end,  the European  Institute of  Innovation and Technology has 
been entrusted to coordinate the Deep Tech Talent initiative83, which aims to train one 
million  deep  tech  talents  by  2025  across  Member  States.  Other  strategic  initiatives 
include  the  Cyber  Skills  Academy,  an  umbrella  instrument  aiming  to  increase  the 
number of cybersecurity professionals in Europe84. 

(14)  Bodies  like  the  ENIC-NARIC  networks85  and  quality  assurance  agencies  support 
collaboration  on  recognition  of  qualifications  which  facilitates  mobility,  career 

74 
75 

76 

77 

78 
79 
80 
81 
82 

83 
84 

85 

OJ C 66, 26.2.2021, p. 1. 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions ‘European Skills Agenda for sustainable competitiveness, social fairness 
and resilience’, COM(2020) 274 final of 1.7.2020. 
Decision (EU) 2022/2481 of the European Parliament and of the Council of 14 December 2022 establishing the Digital 
Decade Policy Programme 2030 (OJ L 323, 19.12.2022, p. 4). 
Fraillon  J.,  Ainley  J.,  Schulz  W.,  Friedman  T.,  Duckworth  D.  (2019).  Preparing  for  Life  in  a  Digital  World: 
International Computer and Information Literacy Study 2018 International Report. Amsterdam: IEA. 
Eurostat (2021). ICT usage in households. 
Eurostat (2021). ICT specialists - statistics on hard-to-fill vacancies in enterprises. 

Eurostat (2021). ICT usage in households and by individuals. 
Eurostat (2021). ICT specialists in employment. 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions ‘A New European Innovation Agenda’, COM(2022) 332 final of 
5.7.2022. 
The Deep Tech Initiative | (eitdeeptechtalent.eu) 
COM(2022) 548 final 
https://www.enic-naric.net/ 

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opportunities  and  further  learning.  While  there  is  already  work  done  to  establish 
standards  for  the  ICT  profession,  which  covers  all  ICT  sectors  with  a  well-established 
body of knowledge that has been adopted by CEN/CENELEC86, further work is needed 
to attract a larger and more diversified pool of talents into the digital sector. As stated in 
the 2022 skills and talent package87, highly qualified workers from third countries play 
a crucial role in strengthening the competitiveness of the Union. In this context, action is 
needed to make full use of the Blue Card Directive88 which was adopted in 2021. The 
directive makes it easier for highly skilled migrants to join the EU’s workforce, including 
by facilitating the recognition  of their professional  skills.  Moreover, the  Commission  is 
launching, together with interested Member States, Talent Partnerships with key partner 
countries89. They combine direct support for mobility schemes with capacity building and 
investments  in  human  capital.  Talent  Partnerships  are  open  to  all  skill  levels  and  could 
concern various labour market sectors, such as ICT. 

(15)  The  EU  Gender  Equality  Strategy  2020-202590  underlines  the  importance  of  closing 
gender gaps and tackling gender stereotypes and biases. Stereotypical expectations based 
on  fixed  norms  for  women  and  men,  girls  and  boys,  limit  their  aspirations  to  choose  a 
field of study or training and to pursue a professional career in the digital sector. This in 
turn  influences  the  design  of  digital  products  where  women’s  and  girl’s  needs  or 
specificities  might  not  be  adequately  taken  into  account.  In  line  with  the  declaration 
Commitment  on  Women  in  Digital91,  action  is  needed  to  achieve  equal  participation 
across sectors and in particular in the digital one.  

(16)  Council Conclusions on countering the COVID-19 crisis in education and training92 
invite  Member  States  to  examine  possibilities  for  innovation,  accelerated  digital 
transformation, and further development of digital skills. Council Conclusions on digital 
education  in  Europe’s  knowledge  societies93  call  for  digital  education  that  covers 
media,  digital  and  data  literacy,  critical  thinking  and  the  fight  against  mis-  and 
disinformation,  hateful  and  harmful  speech,  and  cyberbullying  and  addiction. 
Furthermore,  Council  Conclusions  on  supporting  well-being  in  digital  education94 
reflect upon the need to  consider the key role that digital skills play to ensure  the well-
being of all players involved in the teaching and learning process. 

(17)  The  national  Recovery  and  Resilience  Plans  show  the  political  impetus  of  Member 
States for further developing digital skills for learners, teachers and the workforce and for 
ensuring an adequate legal framework and the required equipment and infrastructure.95 In 

86 
87 

88 

89 
90 

91 
92 
93 
94 
95 

CEN - CEN/TC 428 (cencenelec.eu) 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions ‘Attracting skills and talent to the EU’, COM(2022) 657 final of 
27.4.2022.  
Directive (EU) 2021/1883 of the European Parliament and of the Council of 20 October 2021 on the conditions of entry 
and residence of third-country nationals for the purpose of highly qualified employment, and repealing Council 
Directive 2009/50/EC (OJ L 382, 28.10.2021, p. 1). 
https://home-affairs.ec.europa.eu/policies/migration-and-asylum/legal-migration-and-integration/talent-partnerships_en 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions ‘A Union of Equality: Gender Equality Strategy 2020-2025’, 
COM(2020) 152 final of 5.3.2020. 
EU countries commit to boost participation of women in digital | Shaping Europe’s digital future (europa.eu) 
OJ C 212I, 26.6.2020, p. 9. 
OJ C 415, 1.12.2020, p. 22. 
OJ C 469, 9.12.2022, p. 19. 
OJ C 469, 9.12.2022, p. 19. 

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(18) 

this context, it is of utmost importance that Member States proceed with the efficient and 
effective  implementation  of  their  national  plans,  including  by  addressing  the  need  to 
strategically address digital skills development. 

in 

the 

in  (re)integrating 

labour  market.  As  stated 

In  education  and  training,  the  development  of  digital  skills  is  ensured  through  various 
approaches and each level  of education and training faces different  challenges. Council 
Recommendation  on  high-quality  early  childhood  education  and  care96  underlines 
the importance of early childhood education and care to support children's development 
and  reduce  socio-economic  and  territorial  inequalities  and  support  parents,  especially 
women, 
the  Council 
Recommendation  establishing  a  European  Child  Guarantee97,  Member  States  are 
invited to guarantee effective and free access to education for children at risk of poverty 
or  social  exclusion  and,  as  stated  in  the  EU  strategy  on  the  rights  of  the  child98,  this 
includes ensuring that children can safely navigate the digital environment.  Considering 
that children are engaging with digital technologies from an increasingly younger age and 
mostly from home99, digitally competent teachers in early childhood education and care 
play  a  key  role  in  supporting  families  and  young  children  in  better  understanding  the 
opportunities  and  risks  of  the  digital  world  in  a  more  equal  and  inclusive  way.  In  this 
context,  it  is  particularly  important  to  anticipate  and  counter  the  misuse  by  learners  of 
artificial  intelligence  (AI)  and  other  emerging  technologies,  by  favouring  a  good 
understanding of these technologies and explaining how to safely exploit their potential. 

in 

(19)  Council  Recommendation  on  pathways  to  school  success100  aims  to  increase  school 
inclusiveness  and  well-being  while  Council  Recommendation  on  blended  learning 
approaches for high-quality and inclusive primary and secondary education101 specifically 
calls for efforts in boosting the development of digital skills of learners and teachers by 
taking  into  account  the  digital  divide  and  the  digital  gender  gap.  In  this  context,  the 
structured dialogue confirmed that in primary and secondary education digital skills are 
developed  with  a  combination  of  approaches102  and  that  many  Member  States  are 
reviewing their curricula to better promote digital skills (both as a dedicated subject and 
integrated  within  or  across  subjects).  An  emerging  trend  is  the  introduction  of 
informatics103 (also variously referred to as computer science or computational thinking) 
as a separate subject on its own or incorporated into an existing core curricular area such 
as  mathematics  or  science.  Regardless  of  curricular  choices,  it  is  necessary  to  promote 

96 

97 

98 

99 

100 

101 

102 

103 

Council Recommendation of 22 May 2019 on High-Quality Early Childhood Education and Care Systems (OJ C 189, 
5.6.2019, p. 4). 
Council Recommendation (EU) 2021/1004 of 14 June 2021 establishing a European Child Guarantee (OJ L 223, 
22.6.2021, p. 14). 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions ‘EU strategy on the rights of the child’, COM(2021) 142 final of 
24.3.2021.  
Chaudron S., Di Gioia R., Gemo M. (2015).Young Children (0-8) and Digital Technology - A qualitative study across 
Europe, Luxembourg: Publications Office of the European Union. 
Council Recommendation of 28 November 2022 on Pathways to School Success and replacing the Council 
Recommendation of 28 June 2011 on policies to reduce early school leaving (OJ C 469, 9.12.2022, p. 1). 
Council Recommendation of 29 November 2021 on blended learning approaches for high-quality and inclusive 
primary and secondary education (OJ C 504, 14.12.2021, p. 21). 
For example, cross-curricular approach, separate subject within another subject. For further, details see the staff 
working document accompanying this proposal. 
In  this  proposal,  informatics,  also  known  as  computer  science,  is  considered  as  a  distinct  scientific  discipline, 
characterised  by  its  own  concepts,  methods,  body  of  knowledge,  and  open  issues.  It  covers  the  foundations  of 
computational  structures,  processes,  artefacts  and  systems,  and  their  software  designs,  their  applications,  and  their 
impact on society. 

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quality  education  in  informatics,  supported  by  age-  and  developmentally  appropriate 
teaching methods, quality  resources,  gender-balanced uptake, representation, and proper 
evaluation104. 

(20)  Council  Recommendation  on  vocational  education  and  training  (VET)  for  sustainable 
competitiveness, social fairness and resilience105 proposes a renewed Union policy vision 
for VET, including major efforts on its digitalisation. The European Council Conclusions 
of  8  December  2022106  invites  Member  States  to  support  the  vocational  education  and 
training of persons with disabilities. An analysis of the national implementation plans of 
the  recommendation  and  the  Osnabrück  Declaration107  shows  that  more  than  half  of 
Member  States  plan  to  integrate  digital  skills  and  competences  into  VET  curricula. 
Nevertheless  it  is  necessary  to  further  promote  excellence  in  digital  skills  development 
for all VET students.  

(21)  Communication  on  a  European  strategy  for  universities108  encourages  higher 
education  institutions  to  adopt  a  whole-institution  approach  with  a  learning  offer  that 
addresses ICT specialists and provides digital skills in sector-specific curricula. As stated 
in  Council  Recommendation  on  learning  for  the  green  transition  and  sustainable 
development109 this applies to both green and digital skills. The European Universities 
initiative110, through  its  pioneering deep institutional  and transnational  cooperation, is  a 
powerful driver for the development of innovative digital skills learning and contributes 
to  accelerating  the  digital  transformation  of  the  higher  education  sector.  Learning  from 
this  experience  is  key  to  address  the  lacks  of  expertise  that  Europe  shows  in  teaching 
advanced  digital  technologies  (such  as  AI,  cybersecurity  and  high-performance 
computing)  and  integrating  these  technologies  across  higher  education  curricula  and  in 
specialised courses111.  

(22)  Council Recommendation on a European approach to micro-credentials for lifelong 
learning  and  employability112  sets  a  framework  to  support  the  provision  of  flexible, 
accessible  learning  opportunities  for  a  variety  of  students,  including  young  people  and 
lifelong  learners  which  needs  to  be  leveraged  to  address  current  digital  skills  learning 
needs.  

104 

105 

106 
107 

108 

109 

110 
111 

112 

European Commission/EACEA/Eurydice (2022). Informatics education at school in Europe. Luxembourg: Publication 
Office of the European Union. 
Council Recommendation of 24 November 2020 on vocational education and training (VET) for sustainable 
competitiveness, social fairness and resilience (OJ C 417, 2.12.2020, p. 1). 
Available at: pdf (europa.eu) 
Osnabruck  declaration  2020:  on  vocational  education  and  training  as  an  enabler  of  recovery  and  just  transitions  to 
digital and green economies | CEDEFOP (europa.eu) 
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, COM(2022) 16 final of 
18.1.2022. 
Council Recommendation of 16 June 2022 on learning for the green transition and sustainable development (OJ C 243, 
27.6.2022, p. 1). 
European Universities initiative | European Education Area (europa.eu) 
Righi R., Lopez Cobo M., Papazoglou M., Samoili S., Cardona M., Vazquez-Prada Baillet M., De Prato G. (2022). 
Academic Offer of Advanced Digital Skills in 2020-21. International Comparison, Luxembourg: Publications Office of 
the European Union. 
Council Recommendation of 16 June 2022 on a European approach to micro-credentials for lifelong learning and 
employability (OJ C 243, 27.6.2022, p. 10). 

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(23)  The  European  Pillar  of  Social  Rights  Action  Plan113  proposes  clear  targets  for  adult 
participation in training  (60% by 2030), including on digital skills. Council Resolution 
on  a  new  European  agenda  for  adult  learning  2021-2030114  identifies  the  need  to 
foster  skills  connected  to  the  digital  transformation,  and  Council  Recommendation  on 
upskilling pathways: new opportunities for adults115 recognises digital skills as one of 
the three basic skills that all adults should develop. Despite policy attention, participation 
of adults in training is low, including on digital skills, and provision of digital skills for 
adults  is  scattered  and  uneven116.  Member  States  are  trying  to  address  this  through 
existing  and  new  initiatives  planned  in  their  recovery  and  resilience  plans  and  by 
involving various stakeholders such as the social, voluntary and non-governmental sector. 
Individual  learning  accounts  as  set  in  the  Council  Recommendation117  support  the 
increase  of  the  number  of  people  engaging  in  training  each  year  with  a  combination  of 
incentives, including financial ones.  

(24)  Companies  play  a  crucial  role  in  upskilling  and  reskilling  their  staff,  but  large 
discrepancies  exist.  Only  a  small  proportion  of  SMEs  (20.9%)  provided  training  to  all 
their  staff  to  enhance  their  ICT-related  skills,  compared  with  69.5%  of  large 
companies118.  The  Pact  for  Skills119  invites  business,  social  partners  and  public 
organisations to join forces and take concrete action to upskill and reskill  the workforce 
across  the  Union.  Furthermore,  the  Digital  Skills  and  Jobs  Coalition  brings  together 
Member  States,  companies,  social  partners,  non-profit  organisations  and  education 
providers,  to  work  together  to  address  the  lack  of  digital  skills  in  Europe120.  In  this 
context, the Digital Education Action Plan 2021-2027 proposed to develop a European 
digital  skills  certificate  to  enhance  the  transparency  and  recognition  of  digital  skills 
certifications. 

(25)  While  most  Member  States  have  developed  strategies  for  digital  skills,  few  take  a 
comprehensive approach towards the progression of programmes throughout the different 
levels  of  education  and  training121.  A  recent  report  from  the  Commission  on  Quality 
investments on education and training122 highlights the need for impact assessment of 
the various programmes on learners’ learning outcomes. The issue is general, and applies 
equally to digital skills, with only a few Member States undertaking regular monitoring 
and evaluation. 

113 

114 
115 

116 

117 
118 

119 
120 
121 

122 

Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions ‘The European Pillar of Social Rights Action Plan’, COM(2021) 102 
final of 4.3.2021. 
OJ C 504, 14.12.2021, p. 9. 
Council Recommendation of 19 December 2016 on Upskilling Pathways: New Opportunities for Adults (OJ C 484, 
24.12.2016, p. 1).. 
Beblavý M., Bačová B. (2022). Literature review on the provision of digital skills for adults. EENEE report. 
Luxembourg: Publications Office of the European Union. Righi R., Lopez Cobo M., Papazoglou M., Samoili S., 
Cardona M., Vazquez-Prada Baillet M., De Prato G. (2022). Academic Offer of Advanced Digital Skills in 2020-21. 
International Comparison, Luxembourg: Publications Office of the European Union. 
Council Recommendation of 16 June 2022 on individual learning accounts (OJ C 243, 27.6.2022, p. 26). 
Eurostat  (2022).  Enterprises  that  provided  training  to  develop/upgrade  ICT  skills  of  their  personnel  by  size  class  of 
enterprise. 
Pact for Skills - Employment, Social Affairs & Inclusion - European Commission (europa.eu) 
Digital Skills and Jobs Coalition I Digital Skills and Jobs Platform (europa.eu) 
In  this  proposal,  the  term  progression  refers  to  the  purposeful  sequencing  of  teaching  and  learning  across  multiple 
developmental stages, ages, or grade levels. 
European Commission (2022). Investing in our future: quality investment in education and training. Luxembourg: 
Publications Office of the European Union. 

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(26)  Council  Conclusions  on  European  teachers  and  trainers  for  the  future123  highlight 
that teachers are a driving force who need to be involved in the creation of education and 
training  policies  but  who  also  need  to  be  supported  with  a  comprehensive  approach  to 
initial education, induction and continuing professional development. The area of digital 
competence  is  the  one  where  most  teachers  feel  a  strong  need  for  professional 
development124.  Moreover,  the  structured  dialogue  highlights  the  challenges  most 
Member  States  face  in  recruiting,  retaining  and  preparing  teachers,  especially  in 
informatics (for primary/secondary education and VET) or other specific/advanced digital 
areas (for higher education).  

(27)  The Erasmus+ Teacher Academies125 aim to support competent, motivated and highly 
qualified  teachers,  trainers,  educators  and  school  leaders,  and  promote  their  continuing 
professional  development,  including  in  the  area  of  digital  skills.  Recent  relevant 
initiatives 
tackling 
disinformation and promoting digital literacy through education and training126 and 
those on the ethical use of artificial intelligence and data in teaching and learning127. 
These two sets of guidelines need to be further promoted to support teachers dealing with 
specific  aspects  of  digital  technology  and  digital  skills  development,  especially  in  the 
context of pressing social issues. 

teachers  and  educators  on 

the  guidelines 

include 

for 

(28)  Various  initiatives  by  Member  States  and  the  Commission,  for  instance  the  EU  Code 
Week128  and  the  Digital  Education  Hackathon129,  aim  at  promoting  stakeholder 
engagement  and  grass-roots  innovation  in  digital  education  and  skills.  Similarly,  the 
European Strategy for Better Internet for Kids (BIK+)130 promotes engagement with 
stakeholders including through the network of Safer Internet Centres131 to create a safer 
internet  for  children.  These  initiatives  support  the  development  of  digital  skills  in  the 
non-formal sector and should be further promoted as a mean to support the development 
of digital skills.  

(29)  This  Recommendation  fully  respects  the  principles  of  subsidiarity  and  proportionality. 
Member States will decide, according to their national circumstances, how to implement 
the Recommendation, 

RECOMMENDS THAT MEMBER STATES: 

1. 

123 
124 

125 

126 

127 

128 
129 
130 
131 

Agree,  through  a  whole-of-government  approach,  and  together  with  key  stakeholders, 
on a national strategy for digital education and skills, developed or updated in line with 
the  principles  of  this  Recommendation,  and  monitor  its  effectiveness  and  impact.  In 
particular, Member States should: 

OJ C 193, 9.6.2020, p. 11. 
OECD (2019). TALIS 2018 Results (Volume I): Teachers and School Leaders as Lifelong Learners. Paris: OECD 
Publishing. 
Erasmus+ Teachers Academies, available at: https://erasmus-plus.ec.europa.eu/programme-guide/part-b/key-action-
2/teacher-academies. 
Guidelines for teachers and educators on tackling disinformation and promoting digital literacy through education and 
training | European Education Area (europa.eu) 
Ethical guidelines on the use of artificial intelligence and data in teaching and learning for educators | European 
Education Area (europa.eu) 
Europe Code Week 
https://digieduhack.com/en/ 
COM(2022) 212. 
https://digital-strategy.ec.europa.eu/en/policies/safer-internet-centres 

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1.1. 

1.2. 

1.3. 

1.4. 

1.5. 

1.6. 

1.7. 

2. 

2.1. 

2.2. 

2.3. 

132 

133 
134 
135 

Set national objectives for the provision of digital skills and ensure their regular review 
and update.  

Align the national objectives referred to in point 1.1 with the strategic priorities of the 
Digital  Education  Action  Plan  2021-2027  and  reflect  these  national  objectives  in  the 
national  roadmaps  to  be  adopted  by  Member  States  in  accordance  with  the  Digital 
Decade 2030 policy programme. 
Identify  ‘priority  or  hard-to-reach  groups’132  and  set  up  appropriate  measures  to 
facilitate  their  participation,  taking  into  account  accessibility,  territorial133  and  socio-
economic gaps in digital skills. 

Ensure a consistent approach to the provision of digital skills throughout all sectors and 
levels  of  education  and  training  by  structuring  it  from  early  childhood  education  and 
care (ECEC), through primary, secondary and vocational education and training (VET) 
to higher education and adult learning in a progressive way, in close consultation with 
relevant stakeholders and social partners reaching a joint understanding on key aspects 
to be covered in developing digital skills for specific age groups and education sectors. 

Develop a specific and coherent approach that tackles the full spectrum of digital skills, 
from  basic  to  advanced  digital  skills  in  all  labour  market  sectors,  including  for  ICT 
professionals. 

Ensure relevant and methodologically sound  monitoring, evaluation and assessment of 
educational  initiatives  and  training  programmes  on  digital  skills  at  local,  regional  and 
national levels to prove and improve the effectiveness and quality of the actions taken. 

Contribute  to  peer  learning,  exchange  of  practices  and  coordination,  including  across 
policy sectors, at European and global level, so as to find common solutions to cross-
continental, -national and -regional challenges. 

Start early to guide learners in the digital world and offer equal opportunities to develop 
digital skills. In particular, Member States should: 

Consistent with overall priorities of early childhood education and care, ensure that pre-
primary  students  and  especially  their  parents,  carers  and  families  are  given  support  to 
develop digital skills, and are aware of and better understand the opportunities and risks 
that come with digitalisation. 

Use age-  and developmentally-appropriate activities, for example in  ECEC unplugged 
digital education activities134 and play-based learning of digital skills135. 

Further  strengthen  the  provision  of  digital  skills  in  primary  and  secondary  education, 
including  VET.  Special  attention  should  be  paid  to  the  provision  of  skills  needed  to 
enable  appropriate  understanding  and  meaningful,  healthy,  safe,  and  sustainable 
engagement with digital technologies, including generative AI systems. 

For instance, those living in rural areas, disadvantaged or marginalised groups such as persons with disabilities, Roma 
and  third-country  nationals  with  limited  knowledge  of  the  host  country,  and  those  having  a  low  or  medium-level  of 
education, or not in education, employment or training. .  
E.g. urban/rural, remote and outermost regions, cross-border territories. 
For example, educational activities that promote the development of digital skills without using digital devices. 
For  example,  pedagogical  approaches  on  digital  skills  where  young  children  can  explore,  experiment,  discover,  and 
solve problems in imaginative and playful ways. 

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3. 

3.1. 

3.2. 

3.3. 

3.4. 

3.5. 

4. 

4.1. 

4.2. 

4.3. 

4.4. 

4.5. 

Expand the cross-curricular approach (i.e. digital skills taught transversally in different 
subjects) and improve its assessment and teacher training. In particular, Member States 
should: 

Support  cross-curricular  approaches  for  the  provision  of  digital  skills  in  formal 
education (ECEC, primary and secondary, including VET). 

Ensure  cross-curricular  assessment  of  digital  skills,  with  means  comparable  to  those 
applied to other basic skills, at least at the end of each cycle for primary, secondary and 
VET (summative assessment). 

In line with the proposal for a Council Recommendation on the key enabling factors for 
successful  digital  education  and  training,  address  barriers  to  the  cross-curricular 
approach by providing quality training on the use of digital technology for teaching and 
learning  purposes  (digital  pedagogy)  in  teachers’  and  trainers’  initial  teacher  training 
and continuing professional development.  

Take  greater  action to  close the  gender  gap in  the digital  skills levels  between  female 
and male teachers.  

Promote the use of the Guidelines for teachers and educators on tackling disinformation 
and promoting digital literacy through education and training136 and the toolkit on how 
to spot and fight disinformation,137 as well as the Guidelines on the ethical use of AI and 
data in teaching and learning138 in classrooms. 

Support  high-quality  education  in  informatics  at  school.  In  particular,  Member  States 
should: 

Cooperate at EU level on curriculum development, delivery and assessment.  

From  the  start  of  compulsory  education,  ensure  all  students  have  the  opportunity  to 
develop their digital skills through exposure to the core elements of informatics. 

Consider  setting  up  a  separate  subject  on  informatics,  to  deliver  a  more  targeted 
provision  that  has  clear  education  and  training  goals,  dedicated  time,  and  structured 
assessment.  

Ensure  that  teaching  and  learning  on  informatics  is  supported  by  qualified  and  
specialised teachers, with access to quality and accessible learning resources and taking 
into account school sizes, and appropriate assessment of learning outcomes. 

Promote diversity and a gender-balanced uptake and reduce any possible stereotype in 
the teaching and learning of  informatics. This  should  be supported by  research, firstly 
on cultural, socio-economic and institutional barriers to girls’ aspirations and access to 
the  digital  sector  (including  girls  with  a  minority  racial  or  ethnic  background)  and 
secondly on the impact of textbooks and other resources that teach digital subjects in a 
more inclusive way. 

4.6. 

Make  use  of  opportunities  to  develop  quality  informatics  pedagogies  through  the 
Erasmus+ Teacher Academies. 

136 

137 
138 

Guidelines for teachers and educators on tackling disinformation and promoting digital literacy through education and 
training | European Education Area (europa.eu) 
Spot and fight disinformation (europa.eu) 
Ethical guidelines on the use of artificial intelligence and data in teaching and learning for educators | European 
Education Area (europa.eu) 

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4.7. 

4.8. 

5. 

5.1. 

5.1.1. 

5.1.2. 

5.2. 

6. 

6.1. 

6.2. 

6.3. 

7. 

7.1. 

Encourage all schools, in particular those teaching hard-to-reach groups, to participate 
in  the  EU  Code  Week  as  an  icebreaker  to  lower  the  barriers  to  integrating  elements 
related to informatics (such as coding) in everyday teaching practices in an innovative 
and  engaging  way.  This  participation  should  be  leveraged  to  support  new  school  or 
local/regional strategies and policies. 

Facilitate access to and participation of schools in the Digital Education Hackathon and 
link  informatics  teaching  and  learning  to  hands-on,  innovative  digital  education 
solutions. 

Set  up  and  improve  measures  to  recruit  and  train  specialised  teachers  in  the  area  of 
informatics and advanced digital technologies. In particular, Member States should: 

Build upon ongoing initiatives such as the Pact for Skills and the Digital Skills and Jobs 
Coalition,  to  support  a  two-way  exchange  and  collaboration  between  education  and 
training institutions and the private sector139 in order to allow: 

professionals  working  in  the  digital  sector  (for  instance  in  informatics)  to  support 
classroom teachers at primary or secondary level (including VET); and 

specialised  teachers  to  acquire  specific  skills  in  the  field  of  informatics  and  specific 
digital technology domains (for instance AI, cybersecurity). 

Review  the  continuing  professional  development  offer  on  digital  skills  for  specialised 
teachers  by 
further 
professionalisation  in  informatics,  including  by  using  micro-credentials  and  individual 
learning accounts. 

learning  opportunities 

setting  up 

to  enable 

specific 

Ensure the development of advanced and specialist digital skills in vocational education 
and  training,  including  on  deep  tech  and  in  other  key  capacity  areas.  In  particular, 
Member States should: 

Strengthen the provision of digital skills and ease access to learners (both in initial and 
continuing  VET)  to  acquire  advanced  and  specialist  digital  skills  that  are  increasingly 
required  for  many  vocational  profiles,  including  through  work-based  learning  and 
apprenticeship  placements,  interdisciplinary  programmes  or  short  courses  leading  to 
micro-credentials.  

Expand  vocational  programmes  in  areas  such  as  AI,  cybersecurity  and  software 
development and attract more learners to choose such programmes, in line with labour 
market  needs.  Cooperate  at  EU  level  on  curriculum  development,  delivery  and 
assessment. 

Support  VET  students  in  acquiring  the  digital  skills  required  to  use  immersive 
technologies such as virtual reality, augmented reality, simulation and gaming as well as 
adaptive learning 

Foster the development of a wide range of digital skills in higher education and address 
ongoing and emerging digital skills mismatches. In particular, Member States should: 

Cooperate  at  EU  level  on  curriculum  development,  delivery  and  assessment  and 
encourage  higher  education  institutions  to  promote  a  provision  of  digital  skills  that  is 
both general and sector-specific. This should include:  

139 

Primary, secondary and tertiary sector. 

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7.1.1.  Digital  skills  courses  across  levels  and disciplines  with  the objective to  strengthen the 
provision for all students, regardless of the sector of their professional career;  

7.1.2.  Flexible,  tailored,  and  digitally  accessible  learning  opportunities  on  advanced  and 

specialist digital skills, including through short courses leading to micro-credentials. 

7.2. 

7.3. 

7.4. 

7.5. 

7.6. 

8. 

8.1. 

8.2. 

8.3. 

8.4. 

Facilitate  exchanges  between  industry  or  professional  groups  and  higher  education 
institutions  for  developing  interdisciplinary  courses  and  further  embedding  advanced 
and specialist courses on digital skills across degrees. 

Provide  appropriate  incentives  to  industry,  including  small  and  medium  enterprises 
(SMEs), to assist higher education institutions in the design and delivery of programmes 
responding to specific labour market needs. 

Ensure quality and recognition of qualifications and micro-credentials (in line with the 
European approach to micro-credentials). 

Reward  and  recognise  efforts  of  teaching  staff  and  higher  education  institutions  to 
strengthen the provision of digital skills to all students. Encourage, promote and reward 
the  mobility  of  teaching  staff  across  higher  education  institutions  and,  when  relevant, 
between academia and the private sector. 

Support higher education institutions in attracting students, and particularly women, to 
enrol  in  and  complete  studies  focusing  on  developing  advanced  skills  in  a  number  of 
digital domains (e.g. hardware, software, digital design, digital integration, data science, 
AI or cybersecurity) and promote dual degree tracks where digital skills are integrated 
with another discipline. 

Support  the  development  of  digital  skills  of  adults  and  offer  equal  opportunities.  In 
particular, Member States should: 

Mainstream digital skills opportunities across the adult learning system, for instance by 
integrating them into national skills strategies. Ensure adequate attention and support to 
the implementation of measures at all levels of digital skills.  

Promote  public-private  partnerships,  including  among  actors  such  as  social  partners, 
national and local authorities, local schools and community centres, industry and other 
sectors,  to  design,  develop,  deliver,  monitor  and  evaluate  new  programmes  and 
initiatives  addressing specific  adult learning needs, including for work-based learning. 
Cooperate at EU level on curriculum development, delivery and assessment.   

Run targeted awareness raising campaigns on the importance of digital skills and ensure 
specific  support  for  adults  most  in  need  of  developing  their  digital  skills  including 
access to career guidance.  

Introduce  individual  learning  accounts,  in  accordance  with  the  related  Council 
Recommendation140,  to  promote  regular  training  for  adults  on  digital  skills.  Include, 
among the available courses, quality assured training opportunities on different levels of 
digital skills in line with labour market and society needs. Strengthen legislation on paid 
training  leave  and  encourage  employers  to  prioritise  upskilling  and  reskilling  of 
employees during working time. 

140 

Council Recommendation of 16 June 2022 on individual learning accounts (OJ C 243, 27.6.2022, p. 26). 

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8.5. 

8.6. 

9. 

9.1. 

9.2. 

9.3. 

9.4. 

10. 

Strengthen  efforts  to  better  embed  companies,  particularly  SMEs  and  start-ups,  in  the 
existing sectoral, industrial and national ecosystems to provide them with the necessary 
support, including knowledge sharing, guidance and learning opportunities. 

Encourage and promote the creation of additional local and regional  Digital Skills and 
Jobs Coalitions to develop concrete measures for digital skills aligned to the local and 
regional needs. 

Promote  the  development  of  certification  on  digital  skills  and  its  recognition.  In 
particular, Member States should: 

Support and promote the certification of digital skills of all citizens across all sectors of 
education  and  training,  including  those  gained  through  training  provided  via  the 
individual  learning  accounts.  Support  education  and  training  institutions  in  delivering 
trusted certification of digital skills.  

In  cooperation  with  competent  authorities,  support  the  recognition  of  digital  skills 
certificates  and  qualifications,  including  micro-credentials,  as  well  as  when  working 
towards  fulfilling  the  commitment  to  take  steps  to  introduce  automatic  mutual 
recognition141 of qualifications by 2025. Set up a list of recognised and trusted certifiers, 
as  well  as  training  providers  to  support  delivering  high  quality  training  provision,  as 
well as certification.  

Provide incentives and give visibility to digital skills for learning or career progression 
by facilitating their identification, documentation, assessment, and certification whether 
acquired  through  formal,  non-formal  or  informal  learning.  Help  recruiters  and  third 
country  nationals  on  all  steps  related  to  recognition  and  certification  of  skills  and 
qualifications, including by leveraging the European Digital Skills Certificate. 
Contribute  to  the  pilot, 
Certificate. 

,development  and  uptake  of  the  European  Digital  Skills 

Develop a strategic and systematic approach to address the shortage of ICT specialists. 
In particular, Member States should: 

10.1.  Use forecasting to assess the future needs for digital skills of different target groups of 
the  market,  particularly  those  of  SMEs  and  conduct  research  to  better  understand  the 
digital skills gaps. 

10.2.  Design,  and  integrate  in  national  strategies  and  action  plans,  initiatives  addressing 
specific  digital  skills  shortages  (for  instance  on  cybersecurity,  AI)  that  are  relevant  at 
national level. Actively contribute to the implementation of the Cyber Skills Academy. 

10.3.  Attract and retain talents from abroad by making full use of the Blue Card Directive and 
Talent  Partnerships.  Enhance  cooperation  with  other  Member  States  to  exchange 
practices and solutions to attract digitally talented individuals to the Union and facilitate 
their mobility, where applicable.  

10.4. 

Pursue a more strategic and systematic approach to train and attract ICT specialists also 
from  third  countries,  for  example  by  implementing  fast-track  ICT  profession  visa 
schemes and study incentives, with a particular focus on SMEs. 

141 

Council Recommendation of 26 November 2018 on promoting automatic mutual recognition of higher education and 
upper secondary education and training qualifications and the outcomes of learning periods abroad  

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10.5. 

10.6. 

Provide comprehensive career and study guidance at school, VET and higher education 
level to stimulate young people’s interest, particularly that of girls and young women, in 
taking  up  studies  in  ICT  and/or  pursuing  a  career  as  ICT  specialists.  Run  targeted 
campaigns  to  address  preconceptions  on  the  accessibility  of  tech  careers  (particularly 
addressing those not having an ICT background) and the different possible career paths 
when  studying  ICT.  Use  various  communication  channels  to  reach  out  to  different 
segments,  and  to  highlight  the  possibility  of  having  a  meaningful  ICT  career  that  is 
beneficial for society. 

In  line  with  the  declaration  Commitment  on  Women  in  Digital  and  in  synergies  with 
relevant  initaitives  by  European  Institute  of  Innovation  and  Technology  and  the 
European  Innovation  Council,  prioritise  efforts  aiming  at  tackling  the  gender  bias  to 
close  the  gender  and  pay  gap  in  ICT  and  provide  targeted  up-  and  reskilling 
opportunities to girls and women at all levels of education and training, so recognising 
the value of their contribution and talent. 

10.7. 

Increase the attractiveness of the digital sector for women, for instance by working with 
the national Digital Skills and Jobs Coalitions to develop awareness-raising campaigns 
and tailor national messages. 

10.8.  Create  opportunities  for  schools,  VET  providers  and  technical  universities  to  attract 
students to digital careers (for instance by organising open days, family days, seminars 
and by promoting participation in initiatives such as the Innovation Talent Platform142, 
EU Code Week, the Digital Education Hackathon, and extracurricular activities). 

11. 

11.1. 

Provide necessary funding for digital skills development. In particular, Member States 
should: 

Implement  the  various  aspects  of  this  Recommendation  by  using  national  and  Union 
funds, including Erasmus+, European Social Fund Plus, Just Transition Fund, European 
Regional  Development  Fund,  European  Agricultural  Fund  for  Rural  Development, 
Digital  Europe  Programme,  Horizon  Europe,  and  proceed  with  implementing  the 
national Recovery and Resilience plans. 

11.2.  Use the Technical Support Instrument, including its multi-country approach, to design 
and implement reforms to strengthen the provision of digital skills in a lifelong learning 
perspective in line with this Recommendation. 

11.3. 

Encourage  private  investment  in  digital  skills  development  and  consider  blending 
different  sources  of  funding  to  upscale  initiatives  and  increase  their  impact  and 
sustainability. 

WELCOMES THE COMMISSION’S INTENTION TO: 

Build upon existing initiatives, including the European Year of Youth and the European Year of 
Skills,  to  support  and  complement  Member  States’  actions  in  the  area  of  digital  skills.  In 
particular, the Commission intends to: 

1. 

Support  reform  efforts  for  digital  skills  development  and  high-quality  informatics.  In 
particular, the Commission intends to: 

142 

https://euraxess.ec.europa.eu/euraxess/innovation-talent-platform 

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Facilitate Member State reforms, via Union instruments such as the Technical Support 
Instrument,  including  by  facilitating  exchanges  on  national  approaches  on  the 
development  of  digital  skills  and  skills  related  to  informatics.  The  Commission  will 
promote  the  use  and  upscaling  of  existing  tools  for  the  evaluation  of  skills,  and 
successful teacher-training initiatives on informatics. 

In close cooperation with Member States and stakeholders, support quality education in 
informatics  by  developing  common  guidelines  for  teachers  and  educators  to  foster 
quality  education  in  informatics  and  developing  informatics  competence  indicators,  in 
line with existing competence and curricular frameworks143. 

Support  peer  learning  and  cooperation  on  curriculum  development,  delivery  and 
assessment  via  Union  programmes  such  as  Erasmus+  and  tools  like  the  European 
Digital Competence Framework, for both citizens and educators. 

Support  Member  States  in  monitoring  the  development  of  digital  skills  through  their 
participation in international surveys (such as ICILS, PISA, TALIS, PIAAC) and other 
European initiatives (such as  Eurograduate), which have complementary  purposes and 
can strategically complement national efforts. 

Promote excellence in advanced and specialist digital skills courses in higher education 
and VET. In particular, the Commission intends to: 

Support  Member  States  in  creating  conditions  conducive  to  developing  advanced  and 
specialist digital skills of students, researchers and lifelong learners, to be provided by 
higher  education  institutions  and  VET  providers.  This  would  be  done  both  in 
interdisciplinary  programmes  and  programmes  focused  on  advanced  ICT  skills, 
considering the need to permanently upgrade these skills to follow the rapid innovation 
pace,  as  well  as  the  necessity  to  make  such  programmes  inclusive  and  accessible  to 
diverse learners. 

Sustain  the  support  for  academic  offer  in  advanced  digital  skills  in  digital  technology 
areas  and  other  trans-  or  multi-disciplinary  areas,  and  their  applications  in  strategic 
sectors not sufficiently covered by previous adopted Digital Europe work programmes. 

Support efforts on the provision of digital skills to adults. In particular, the Commission 
intends to: 

Promote initiatives such as the Pact for Skills and the Digital Skills and Jobs Coalition, 
to  join  forces  to  offer  up  re-skilling  opportunities  for  adults  to  improve  their  digital 
skills.   

Promote  (through  the  Technical  Support  Instrument  and  Union  funding  opportunities) 
the development of accessible digital skills training courses, where possible leading to 
micro-credentials, addressing specific adult learning needs.   

Promote  the  development  of  accessible  digital  skills  training  courses,  including  on 
advanced digital skills, where possible leading to micro-credentials, addressing specific 
adult learning and labour market needs, with a particular focus on SME staff.  

Facilitate  exchanges  on  best  practices  for  adult  learning  on  digital  skills  through  the 
Public Employment Services network, the Pact for Skills, the European Education Area 

1.1. 

1.2. 

1.3. 

1.4. 

2. 

2.1. 

2.2. 

3. 

3.1. 

3.2. 

3.3. 

3.4. 

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4. 

4.1. 

4.2. 

4.3. 

5. 

5.1. 

5.2. 

5.3. 

6. 

6.1. 

working  group on adult learning, the national coordinators on  adult learning and other 
relevant fora. 

Facilitate the recognition of certification of digital skills. In particular, the Commission 
will: 
Pilot  and  roll  out,  in  cooperation  with  the  Member  States  and  stakeholders144,  a 
European  digital  skills  certificate  aimed  at  enhancing  the  trust  in  and  acceptance  of 
digital skills certification across governments and industries145. The pilot project aims to 
identify  and  test  minimum  quality  requirements  that  any  certificate  and  certification 
process  on  digital  skills  should  have.  The  European  digital  skills  certificate  would 
enable every European citizen to indicate in a reliable and transparent manner their level 
of digital skills corresponding to the DigComp framework. 

In  close  cooperation  with  Member  States,  support  the  development  of  guidelines  and 
facilitate exchanges on best practices on the assessment and evaluation of digital skills. 

Support  the  European  competent  bodies  in  quality  assurance  and/or  standardisation  in 
developing a recognition mechanism for certifications of digital skills, including micro-
credentials,  and  continue  providing  support  to  the  Member  States  for  putting  in  place 
the  conditions  that  will  make  automatic  mutual  recognition  of  those  digital  skills 
possible by 2025. 

Support  efforts  aiming  at  increasing  the  number  and  diversity  of  ICT  specialists.  In 
particular, the Commission intends to: 

In close cooperation with the Member States, build on the declaration Commitment on 
Women in Digital, to further encourage women to play an active and prominent role in 
the digital technology sector. 

Promote advanced digital skills development and careers in the digital sector to women. 
Maintain  and where needed enhance efforts  towards digital  inclusion  ensuring that  all 
individuals and communities, including the most disadvantaged ones, can contribute to 
and benefit from the digital transformation. 

Support  Member  States  in  promoting  gender-sensitive  teaching  of  digital  skills  in 
primary  and secondary  education  by  identifying innovative scalable teaching practices 
to address institutional and cultural barriers to girls’ aspirations and their access to ICT 
studies and careers in the Union. 

Support the implementation of this Recommendation through the High Level Group on 
Digital Education and Skills, to be set up by Commission Decision: 

Support  effective  continuation  and  functioning  of  the  High-level  Group  set  up  for  the 
Structured  Dialogue  with  Member  States  with  a  view  to  provide  steering  on  key 
strategic topics addressed in this Recommendation. The group  may establish technical 
subgroups,  notably  on  assessment  and  certification  of  digital  skills,  curriculum 
development,  and  quality  requirements  for  digital  education  tools  and  content.  This 
work should ensure consistency and complementarity with the work carried out by the 
High Level Group on Education and Training and the Digital Decade Board. 

144 
145 

Stakeholders from education and training, social partners, digital skills certification providers. 
This will contribute to the setting up of a European digital skills  certificate, which is one of the actions of the Digital 
Education Action Plan 2021-2027 and is currently under development to provide support to existing and future digital 
skills certifications and their alignment to DigComp. 

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7. 

7.1. 

7.2. 

7.3. 

Monitor progress, disseminate good practices and increase exchanges with stakeholders. 
In particular, the Commission intends to: 

Monitor  progress  in  the  implementation  of  this  Recommendation,  taking  into  account 
Member States’ national strategies, and including the specific outcomes and impacts on 
the provision of digital skills. This should be done within the European Education Area 
and  its  Education  and  Training  Monitor,  and  as  part  of  the  Member  States’  reporting 
through the Digital Decade. 

Strenghten international cooperation on digital education and skills. 

Review  the  progress  made  in  implementing  this  Recommendation  and  report  to  the 
Council no later than 5 years after its adoption. 

Done at Strasbourg, 

For the Council 

The President 

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