Proposal for a COUNCIL RECOMMENDATION on the key enabling factors for successful digital education and training
Date: 2023-04-24
Institutions: Directorate-General for Education, Youth, Sport and Culture, European Commission
Subjects: EU Member State, digital literacy, digital transformation, distance learning, education, education policy, educational system, investment, teacher training, vocational training

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 24.4.2023  COM(2023) 205 final/2 2023/0099 (NLE)  CORRIGENDUM This document corrects document COM(2023)205 final Concerns the EN version only Minor editing corrections which do not affect the substance The text shall read as follows: Proposal for a COUNCIL RECOMMENDATION on the key enabling factors for successful digital education and training {SWD(2023) 205 final}  
 
 
EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

Education  and  training  are  key  for  personal  development,  social  cohesion,  competitiveness 
and  innovation.  They  are  also  a  critical  building  block  for  a  fairer,  more  resilient  and  more 
sustainable  Europe.  This  is  reflected  in  the  Council  Resolution  on  a  strategic  framework 
for  European  cooperation  in  education  and  training  towards  the  European  Education 
Area and beyond (2021-2030)1, which includes the green and digital transitions among its 
strategic priorities. 

Today, digital education is at the heart of these efforts. The COVID-19 pandemic highlighted 
the  need  to  improve  the  digital  readiness  of  education  and  training  systems  in  terms  of 
resilience, high-quality, inclusiveness, accessibility and security. The European Commission’s 
Digital  Education  Action  Plan  2021-20272  sets  two  strategic  priorities  to  achieve  this: 
fostering  the  development  of  a  high-performing  digital  education  ecosystem  and  enhancing 
digital skills and competences for the digital transformation.  

Member States welcomed the action plan in the  Council Conclusions on digital education 
in Europe’s knowledge societies3. They acknowledged the need for closer cooperation and 
invited  the  Commission  to  launch  a  strategic  reflection  process  on  the  enabling  factors  of 
successful  digital  education.  Following  the  call  of  President  von  der  Leyen  in  2021  for 
‘leaders’ attention and a structured dialogue at top level’ on digital education and skills, the 
Commission  carried  out  a  structured  dialogue  on  digital  education  and  skills  with  all 
Member States in 2022.  

In  their  Recovery  and  Resilience  Plans,  Member  States  have  allocated  EUR  130  billion  to 
measures supporting the digital transformation – 26% of the total allocation of plans. Of this, 
EUR 16.5 billion is dedicated to improving connectivity and almost EUR 23 billion to digital 
education and digital skills development.4 Implementation is now of utmost importance.  

the  need  for  a  high-performing  digital  education  ecosystem  (including 
Reflecting 
infrastructure,  connectivity,  organisation,  capacity),  the  current  proposal  builds  on  the  key 
enabling  factors  for  successful  digital  education  identified  in  the  action  plan  and  the 
Council  Conclusions,  as  well  as  the  findings  of  the  structured  dialogue.  It  presents 
recommendations  to  Member  States  on  how  to  achieve  accessible,  high-quality  and 
inclusive digital education for all. The proposal focuses on formal education and training 
and the investments, capacity building and cooperation needed to benefit from the potential of 
digital  technologies  to  strengthen  teaching,  learning  and  assessment,  and  improve  learning 
outcomes of all learners. In this respect, it stresses the importance of a meaningful integration 
of  digital  technologies  in  schools  and  universities  related  to  pedagogical  and  organisational 
methods in the teaching of all subjects.  

1 
2 
3 
4 

2021/C 66/01 
COM(2020) 624 final 
2020/C 415/10 
The figures in this paragraph are calculated using Annex VII of the RRF Regulation. 

EN 

1 

  EN 

 
                                                 
Successful digital education is about  creating more and better opportunities for learning 
and teaching for everyone in the digital age. Digital solutions have made EU education and 
training systems more accessible over the last few years. However, in a fast-developing and 
more uncertain world it is necessary to continue to improve the effectiveness and efficiency of 
education and support the diversification of teaching and learning, including through existing 
and emerging digital solutions. While our societies change, education remains a basic human 
right, and universal access to it must be guaranteed and extended to the digital world.  

User-centred digital tools can bring innovative solutions to education and support teachers by 
reducing  their  administrative  burden.  In  addition,  they  help  teachers  in  adapting  their  work 
and the education systems to disruptive technologies such as generative artificial intelligence 
and other emerging technologies that quickly enter learners’ environments with the potential 
opportunities  and  risks  this  entails.  Generative  AI  tools  are  creating  new  opportunities  for 
learning  and  can  support  students  in  improving  their  learning  pace  and  self-efficacy  while 
raising new questions including for example on assessment or authorship. Successful digital 
education is  therefore  a  precondition  for learners to  acquire the skills  they  need to  thrive in 
today’s world.  

This  proposal  is  part  of  the  initiatives  taken  by  the  Commission  and Member  States  to 
ensure  human-centred  digital  transformation.  It  is  in  line  with  the  objectives  set  in  the 
Digital  Education  Action  Plan,  the  Digital  Decade  Policy  Programme5,  the  European 
Declaration  on  Digital  Rights  and  Principles  for  the  Digital  Decade6  and  the  European 
strategy for a better internet for kids7. The Digital Education Action Plan, the Digital Decade 
Policy Programme, the European Skills Agenda8, the European Pillar of Social Rights Action 
Plan9, and the Union of Equality strategies set ambitious EU-level targets to encourage action 
on  digital  transformation  and  ensure  sustainable  growth  and  innovation  in  the  EU.  The 
proposal also takes account of the ongoing work on digital transition under the Recovery and 
Resilience Facility and is aligned with the outcomes of the Report of the Conference on the 
Future of Europe.  

The  proposal  is  based  on  the  first  strategic  priority  (promoting  a  high-performing  digital 
education  ecosystem)  of  the  Digital  Education  Action  Plan  and  complements  the  Proposal 
for a Council Recommendation on improving the provision of digital skills in education 
and training.  

• 

Key challenges to be addressed by the proposed Council Recommendation 

Experiences since the COVID-19 crisis and the structured dialogue have revealed the richness 
of  investments  and  policies  undertaken  by  Member  States  to  support  digital  education  and 
skills.  However,  while  most  Member  States  have  strategies  related  to  the  digital 
transformation  of  education  and  training  and  the  provision  of  digital  skills,  these  are  not 

5 
6 
7 
8 
9 

Decision (EU) 2022/2481 
COM(2022) 28 final 
COM(2022) 212 final 
COM/2020/274 final 
COM(2021) 102 final  

EN 

2 

  EN 

 
                                                 
always specific, detailed or comprehensive enough. An analysis of policies across the Union 
reveals a lack of strategic overview connecting different sectoral and territorial levels of the 
policy approach. There are several common challenges that Member States face in developing 
high-performing digital education and training ecosystems:  

– 

– 

– 

– 

lack  of  systemic  whole-of-government  approach  to  digital  education  policies  and 
challenges with coordinating effectively across and between government levels;  

lack of strategic focus of investment in digital education and training infrastructure, 
equipment and content, including on socio-economic and territorial disparities;  

insufficient digital training of teachers and staff in adopting and making best use of 
technology for teaching and learning; 

insufficient monitoring and evaluation of digital education and training policies and 
their impact.  

Governance of digital education and training policies 

– 

– 

– 

Despite  progress  and  excellent  examples  of  innovation,  endeavours  have  not  yet 
resulted  in  systemic  digital  transformation  in  education  and  training.  In  particular, 
there are two key challenges.  

First,  the  introduction  of  digital  technologies  in  education  and  training  systems 
requires  a  whole-of-government  approach 
that  ensures  collaboration  and 
coordination of different departments of government. For example, the effective 
digitalisation of a school requires close alignment among authorities responsible for 
infrastructure  to  ensure  connectivity,  finance  to  provide  funding  for  investments, 
and education to align curricula and support teachers. Moreover, in Member States 
with  high  levels  of  regional  or  local  autonomy,  coordination  across  different 
government levels is crucial. The structured dialogue showed that these coordination 
efforts  are  complex  and  challenging,  resulting  in  many  Member  States  having 
multiple  sectoral  strategies  that  are  implemented  independently  of  each  other. 
This risks either silo structures or overlaps  thus missing opportunities for synergies 
and  greater  impact.  The  absence  of  such  a  whole-of-government  approach  has 
been  identified  as  the  main  challenge  to  developing  and  implementing  digital 
education and skills policy. 

Second,  the  development  of  meaningful  digital  solutions  and  their  widespread 
adoption heavily depends on the involvement of and ownership by many relevant 
stakeholders.  This  implies  the  need  for  close  dialogue  among  policymakers, 
practitioners,  digital  solution  providers,  social  partners,  businesses,  parents  and 
learners.  The  structured  dialogue  showed  that  while  many  countries  have  formal 
platforms  for  stakeholder  consultation  in  place,  closer  collaboration  is  still  in  the 
early  stages,  especially  when  it  comes  to  interaction  among  education  institutions, 
teachers and industry, including technology providers and employers. Member States 
have shown a growing interest in engaging in public-private partnerships, including 
with the education technology (EdTech) sector, to further expand and strengthen the 
digital education ecosystem while taking important issues such as safeguarding data 
privacy into account.  

Investment in digital infrastructure for education and training  

EN 

3 

  EN 

 
School  connectivity  remains  uneven  between  and  within  EU  countries,  and  high-speed 
internet  connections  in  schools  are  still  rare10,  in  particular  in  rural  and  remote  areas  where 
connectivity is lagging behind11. According to the most recent data, only 11% of EU students 
in primary, 17% in lower secondary and 18% in upper secondary education were in schools 
that had an internet speed above 100 Mbps, far from the 2025 EU-level target of high-speed 
broadband connectivity (at least 1 Gbps or more) for all schools12. When it comes to school 
equipment,  the  share  of  students  attending  schools  where  more  than  90%  of  digital 
equipment  was  operational  ranged  from  61%  at  primary  school  level  to  73%  at  upper 
secondary  level13.  Insufficient  provision  of  digital  devices  (particularly  tablets  and  laptops) 
was  considered  by  teachers  to  be  the  biggest  obstacle  to  the  use  of  digital  technologies  for 
teaching  and  learning14.  Higher  education  institutions  tend  to  be  better  connected  and 
equipped,  but  the  integration  and  take-up  of  effective  digital  education  practices  remains 
slow.  

While  the  COVID-19  pandemic  significantly  accelerated  the  use  of  technology  in  teaching 
and  learning,  it  also  highlighted  and  aggravated  inequalities  in  education  and  training. 
Learners’  socio-economic  background  continues  to  be  the  strongest  determinant  of 
educational  outcomes.  This  is  also  reflected  in  the  provision  of  digital  education: 
disadvantaged  learners  such  as  those  from  low-education,  low-income,  Roma  or  migrant 
backgrounds have less access to computers at home15 and start using digital devices later in 
life  compared  to  their  more  advantaged  peers16.  The  lack  of  accessible  and  assistive  digital 
technologies  creates  major  barriers  for  persons  with  disabilities,  impeding  their  ability  to 
study in formal education settings autonomously and independently. 

The  structured  dialogue  on  digital  education  and  skills  and  national  recovery  and  resilience 
plans  confirm  the  importance  that  Member  States  attach  to  making  effective  and 
equitable  digital  infrastructure  available  to  education  institutions.  Connectivity,  digital 
equipment, platforms and content are being prioritised in the reforms and investments in this 
area by Member States.  

An  upcoming  special  report  of  the  European  Court  of  Auditors  will  provide  further 
evidence on the effectiveness of EU support for the digitalisation of schools.17 

Other concerns relate to the maintenance of equipment and devices and the challenge to 
match the rapid pace of technological change when it comes to teaching and learning content, 
approaches and tools. Countries with a range of digital tools and platforms express growing 

10 
11 
12 
13 
14 
15 

16 

17 

European Commission (2019). 2nd Survey of Schools: ICT in Education. Luxembourg: EU Publications Office 
SWD(2021)167 final 
COM(2016)587 
European Commission (2019). 2nd Survey of Schools: ICT in Education. Luxembourg: EU Publications Office 
Ibid. 
OECD  (2018).  Getting  ready  for  the  digital  world,  PISA  2018:  Insights  and  Interpretations.  Paris:  OECD 
Publishing. 
Biagi F., Rodrigues M. (2017). Digital technologies and learning outcomes of students from low socio-economic 
background: An analysis of PISA 2015. JRC Science for Policy Report. 
European Court of  Auditors,  Indicative timetable of publication of reports from January to December 
2023, https://www.eca.europa.eu/sites/ep/en/Documents/Timetable_of_upcoming_publications_EN.pdf 

EN 

4 

  EN 

 
                                                 
concerns about interoperability across systems and services. Member States are also seeking 
ways to increase the availability of and access to high-quality digital education content in 
their  own  languages.  In  addition,  education  institutions  at  all  levels  are  concerned  about 
meeting  data  protection  obligations,  safeguarding  learners’  privacy  and  preventing 
cybersecurity threats.  

Digital training of teachers and staff 

Teachers  are  key  partners  upon  whom  the  successful  adoption  of  digital  technologies  in 
education  and  training  depends,  and  they  need  to  be  closely  involved  and  consulted  in  its 
mainstreaming.  Numerous  studies  suggest  that  teachers  are  more  likely  to  use  digital 
teaching  if  their  schools  encourage  relevant  planning  and 
technologies  in  their 
collaboration  when  using  technology  in  education18.  Teachers  are  uniquely  placed  in 
educating future generations to the highest standards. They need targeted support to integrate 
digitalisation into their pedagogy with confidence and in the best way possible so it can serve 
their  students  and  facilitate  inclusive  and  accessible  learning.  Some  schools  have  ICT 
coordinators that support teachers in all ICT administrative tasks and allow them to focus on 
their core tasks. However, a systemic and long-term approach to integrating technology into 
school  activities  is  currently  the  exception  rather  than  the  norm.  For  instance,  before  the 
COVID-19  pandemic,  only  around  one-third  of  students  attended  schools  that  had 
written  statements  on  the  use  of  digital  technologies  for  pedagogical  purposes19.  For 
many  education  and  training  institutions,  insufficient  capacities  mean  that  developing  and 
implementing an institutional digital education strategy that considers the needs of educators 
and learners remains a challenge. Initiatives to raise the  capacities of education institution 
leaders  to  lead  the  digital  transformation  exist  in  some  Member  States,  but  are  not 
widespread.  

One  of  the  key  factors  that  influenced  the  quality  of  the  learning  experience  during  the 
COVID-19 lockdowns was the digital competence of educators20. However, on average in the 
EU,  fewer  than  half  of  teachers  (49.1%)  reported  that  ICT  was  included  in  their  formal 
education or training21, and only 39% of teachers felt well prepared to use digital technologies 
for  teaching22.  While  teachers  and  educators  need  to  be  equipped  with  the  necessary  digital 
pedagogy  skills23,  it  is  essential  that  there  is  a  trust-based  approach  by  the  authorities  and 
stakeholders alike, empowering teachers and supporting them to make best use of technology 
for teaching and learning.   

18 

19 

20 
21 
22 

23 

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. 
European Commission (2019). 2nd Survey of Schools: ICT in Education. Luxembourg: Publications Office of the 
European Union. 
Digital Education Action Plan Staff Working Document, SWD(2020) 209 final 
Education and Training Monitor 2020 
OECD (2019), TALIS 2018 Results (Volume I): Teachers and School Leaders as Lifelong Learners, TALIS. Paris: 
OECD Publishing 
OECD (2019), TALIS 2018 Results (Volume I): Teachers and School Leaders as Lifelong Learners, TALIS. Paris: 
OECD Publishing  

EN 

5 

  EN 

 
                                                 
The  high  level  of  autonomy  of  higher  education  institutions  that  typically  provide  initial 
teacher education programmes has led to delays in introducing digital pedagogy skills into 
teacher training curricula in several countries. Moreover, the fact that the teacher population is 
ageing  in  most  EU  countries  means  that  digital  pedagogy  challenges  cannot  be  addressed 
through initial training alone. The structured dialogue showed that many Member States have 
recently  expanded  their  offer  of  continuous  professional  development  opportunities  for 
teachers and educators in relation to digital pedagogies. However, several Member States 
point  to  difficulties  in  getting  teachers  to  participate,  and  social  partners  highlight  that 
teachers  often  lack  designated  time  for  continuous  professional  development.  While 
participation  in  continuous  professional  development  is  monitored  in  most  Member  States, 
there  is  less  focus  on  assessing  its  impact  on  teachers’  skills.  This  can  lead  to  a  possible 
mismatch between the training offer and the needs of educators. 

Monitoring and evaluation of policies and impact 

While  most  Member  States  have  strategies  in  place  to  help  education  and  training 
institutions use digital technologies, these are not always specific, detailed or comprehensive 
enough. Moreover, only few regularly monitor or evaluate their implementation or implement 
revisions  to  reflect  new  developments  in  technology  and  related  learning  needs24. 
Furthermore,  frameworks  that  monitor  the  state  of  play  of  enabling  factors  for  digital 
education  are  well  developed  only  in  a  small  number  of  Member  States.  In  many  cases,  a 
fragmented  or  ad  hoc  approach  to  monitoring  is  applied.  A  particular  concern,  which 
affects  the  overall  impact  assessment  of  investments,  is  the  lack  of  information  on  device 
usage as well as the lack of systems to monitor and keep track of the digital infrastructure of 
educational institutions.  

At EU level, the availability of data and evidence remains a major challenge. Large-scale 
international studies are published only at very long intervals, which makes it difficult to keep 
pace with the rapidly evolving digital education domain and they do not include all data that 
is needed to design policy and support instruments.   

• 

Objectives of the proposed Council Recommendation 

This  proposal  aims  to  promote  the  necessary  structural  reforms  and  investments  in  the 
Member States to deliver a step change in the digital transformation of education and training 
and enable the provision of skills, based on: 

– 

– 

a  coherent  strategy  specifically  addressing  digital  education  and  skills;  and 
improving policy feedback through better monitoring and evaluation of digital 
education  and  training  policies  and  faster  integration  of  these  results  for 
responsive policy adjustments; 

a  whole-of-government  approach  to  digital  education  and  training  and 
strengthened  cooperation  and  coordination  with  and  between  stakeholders, 
including with the private sector;  

24 

European  Commission  /  EACEA  /  Eurydice  (2019).  Digital  Education  at  School  in  Europe.  Eurydice  Report. 
Luxembourg: Publications Office of the European Union. 

EN 

6 

  EN 

 
                                                 
– 

– 

building and strengthening partnerships with teachers, while ensuring access to 
digital  training  for  all  teachers,  educators  and  staff  and  support  for  digital 
capacity building for all education and training institutions; 

equitable and impact-focused investment in high-quality, accessible, inclusive 
and secure digital education and training. 

• 

International dimension 

The  proposal  is  based  on  and  complements  work  at  international  level.  It  contributes  to  the 
UN  2030  Sustainable  Development  Goals  (SDGs)25,  in  particular  SDG  4  on  quality 
education.  

The  initiative  is  consistent  with  ongoing  work  of  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  initiative  recognises  the  importance  of  working  across  borders,  especially  with  EU 
enlargement and neighbourhood partner countries, including the Western Balkan partners, to 
ensure that no one is left behind and that everyone has the right to high-quality and inclusive 
education. 

• 

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 also be supported by: 

– 

– 

– 

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,  Cohesion  Fund,  Digital  Europe  Programme,  Horizon  Europe, 
and NDICI-Global Europe; 

existing  EU  tools,  platforms  and  communities  (European  Digital  Education  Hub, 
European  SALTO  Digital  Resource  Centre,  European  School  Education  Platform, 
including  eTwinning,  SELFIE,  SELFIEforTEACHERS,  Electronic  Platform  for 
Adult  Learning  in  Europe  (EPALE),  Better  Internet  for  Kids  (BIK)  platform, 
Learning Corner);  

– 

the collection of comparative evidence on key enabling factors across the EU;  

25 

https://sdgs.un.org/ 

EN 

7 

  EN 

 
                                                 
– 

– 

• 

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

reporting and monitoring under the European Education Area strategic framework.  

Complementarity with other initiatives 

The  proposal  complements  and  contributes  to  the  implementation  of  other  Commission 
initiatives presented under:  

– 

– 

– 

– 

– 

2. 

• 

The European Education Area Communication26;  
The Digital Education Action Plan 2021-202727;  

The  European  Skills  Agenda  for  Sustainable  Competitiveness,  Social  Fairness  and 
Resilience28;  
The Digital Decade Policy Programme29; 

The Cybersecurity Skills Academy.  

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

The 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)  

The 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  the  Member  States  for  the  content  of  teaching  and  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.  In  the  context  of  the  European  Education  Area,  the 
initiative  will  support  Member  States’  efforts  in  developing  and  implementing  policies  and 
mechanisms, as appropriate to their national systems and structures. 

The  initiative  does  not  propose  any  extension  of  EU  regulatory  power  or  binding 
commitments on Member States. Its European added value lies in the EU’s ability to mobilise 
political  engagement  and  support  education  and  training  systems  through  policy  guidelines, 
common tools and instruments.  

• 

Proportionality 

The  proposal  complies  with  the  principle  of  proportionality  as  provided  for  in  Article  5(4) 
TEU. 

26 
27 
28 
29 

COM(2020) 625 final 
COM(2020) 624 final 
COM(2020) 274 final. 
Decision (EU) 2022/2481 

EN 

8 

  EN 

 
                                                 
Neither the content nor the form of the proposal goes beyond what is necessary to achieve its 
objectives.  The  commitments  that  Member  States  will  make  are  of  a  voluntary  nature  and 
each Member State remains free to decide on how to implement the proposal.  

• 

Choice of the instrument 

To contribute to the achievement of the objectives referred to in Articles 165 and 166 of the 
TFEU, that Treaty provides for the adoption by the Council of recommendations based 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, and is an instrument that has been used 
frequently for European action in these areas.  

3. 

• 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Ex-post evaluations/fitness checks of existing legislation 

An  assessment  of  the  opportunities  and  challenges  that  the  digital  transformation  brings  to 
education  and  training  was  made  in  the  Staff  Working  Document  accompanying  the 
Communication on the Digital Education Action Plan 2021-2027.30  

The Commission will undertake a comprehensive review of the action plan in 2024 to assess 
its outreach and impact. 

This  proposal  combines  those  findings  with  the  outcomes  of  the  structured  dialogue  with 
Member States, which discussed the readiness of existing national frameworks and legislation 
to respond to the needs related to digital education and skills. 

• 

Stakeholder consultations 

The  proposal  is  based  on  the  outcomes  of  the  public  consultation  on  the  Digital  Education 
Action Plan 2021-202731 and inputs gathered during an extensive consultation process32.  

• 

Collection and use of expertise 

The proposal is based on:  

– 

– 

– 

30 
31 

32 

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 inputs from the Working Group 
on Digital Education: Learning, Teaching and Assessment (DELTA); 

a wide range of reports and studies on the impact of the COVID-19 crisis, equity in 
education, inclusive systems, etc;  

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  
A synopsis report is attached to the Staff Working Document; 

EN 

9 

  EN 

 
                                                 
– 

– 

• 

Digital Economy and Society Index (DESI) reports; 

OECD report ‘Enabling factors for effective and equitable digital education: state of 
play and promising policies’; 

Impact assessment 

Given  the  activities’  complementary  approach  to  Member  State  initiatives,  the  voluntary 
nature of the proposed activities and scope of the expected impacts, an impact assessment was 
not  carried  out.  The  development  of  the  proposal  was  informed  by  previous  studies, 
consultation of Member States and the public consultation33. 

• 

Regulatory fitness and simplification 

Not applicable. 

• 

Fundamental rights 

The 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 enshrined in Article 13, the right to education 
laid down in Article 14, and the right to non-discrimination provided for in Article 21 and the 
right to integration of persons with disabilities in article 26.  

The  measures  will  be  carried  out  in  accordance  with  EU  law  on  the  protection  of  personal 
data, in particular Regulation (EU) 2016/679 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  and  its 
implementation will be supported by existing EU funding instruments.  

5. 

• 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

To  support  implementation,  the  Commission  proposes  to  develop,  in  cooperation  with 
Member  States,  peer  learning  activities  and  identify  good  practices,  as  well  as  to  provide 
research, guidance material and other evidence-based deliverables.  

The  Commission  will  also  help  build  comparative  evidence  on  the  key  enabling  factors  for 
digital  education  across  the  EU  by  conducting  a  Digital  Education  in  Europe  survey  in  the 
Member States. 

The  Commission  intends  to  report  on  the  use  of  the  Council  Recommendation  within  the 
European Education Area strategic framework. 

33 

Full references are available in the Staff Working Document.  

EN 

10 

  EN 

 
                                                 
• 

Explanatory documents (for Directives) 

Not applicable. 

• 

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

The proposed Council Recommendation recognises the role of digital education and training 
in supporting the resilience, accessibility, quality and inclusiveness of education and training 
systems, and in enabling learners to thrive in today’s digital world.  

Drawing on the results of the  structured  dialogue with  Member States the proposal  outlines 
the key enabling factors for universal access to high-quality, inclusive and accessible digital 
education  and  training.  This  includes  addressing  the  digital  divide  between  groups  and 
territories, which has become even more apparent in the light of the COVID-19 crisis. 

It proposes guidance and action that can be pursued by Member States to implement a whole-
of-government  and multi-stakeholder approach to  developing, implementing and monitoring 
digital  education  and  training  policies,  accompanied  by  targeted  and  impactful  investment. 
Moreover, it promotes a culture of bottom-up innovation and digitalisation led by education 
and training staff.    

The accompanying staff working document sets out stakeholder views and provides examples 
proposal. 
practices 
of 

evidence, 

underpin 

policies 

that 

and 

the 

EN 

11 

  EN 

 
2023/0099 (NLE) 

Proposal for a 

COUNCIL RECOMMENDATION 

on the key enabling factors for successful digital 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) 

34 

35 

The European Council Conclusions of 9 February 2023 stressed the need for bolder, 
more ambitious action to further develop the skills that are required for the green and 
digital  transitions  through  education,  training,  upskilling  and  reskilling  in  order  to 
meet  the  challenges  of  labour  shortages  and  the  transformation  of  jobs,  including  in 
the context of demographic challenges.  

Education  and 
training  are  key  for  personal  development,  social  cohesion, 
competitiveness  and  innovation,  and  a  critical  building  block  for  a  fairer,  more 
resilient  and  more  sustainable  Europe.  In  that  context,  the  Communication  on  the 
European  Education  Area34  called  for  education  and  training  policies  and 
investments  to  be  geared  towards  inclusive  green  and  digital  transitions  for  a 
sustainable and resource-efficient society and economy. 

The  COVID-19  pandemic  highlighted  the  need  to  improve  the  digital  readiness  of 
education  and  training  systems  in  terms  of  resilience,  high-quality,  inclusiveness, 
accessibility,  and  security.  The  rapidly  advancing  technological  change  calls  for  a 
people-centred digital transformation and education and training systems which are fit 
for  the  digital  age.  To  tackle  these  challenges,  the  Commission  adopted  the  Digital 
Education  Action  Plan  2021-202735.  The  action  plan  seeks  to  address  the  digital 
divide  and  inequities  in  education  and  training,  and  highlights  the  potential  of 
technology  to  facilitate  more  accessible,  flexible,  personalised  and  learner-centred 
teaching and learning.  

The  first  strategic  priority  of  the  action  plan  –  fostering  the  development  of  a  high 
performing  digital  education  ecosystem  –  stresses  the  need  for  strengthening  digital 
capacity and resilience in education and training systems in a coherent and sustainable 
way. To this purpose, enablers such as relevant infrastructure, connectivity and digital 

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. 

EN 

12 

  EN 

 
                                                 
(5) 

(6) 

(7) 

capacity  have  been  identified  in  the  action  plan  and  further  complemented  in  the 
Council Conclusions on digital education in Europe’s knowledge societies36.  

Responding  to  the  need  to  achieve  accessible,  high-quality  and  inclusive  digital 
education  and  training,  this  Recommendation  should  address  the  following  key 
enabling factors: (i) a strategic approach on digital education and skills; (ii) a whole-
of-government coordination and multi-stakeholder engagement; (iii) capacity-building 
for  education  and  training  institutions  and  teachers;  and  (iv)  impact-focused 
investment.  

The  effective  implementation  of  these  enabling  factors  requires  action  at  top  level, 
going beyond education and training ministries alone. In her 2021 speech on the State 
of the European Union, the President of the Commission called for leaders to focus on 
digital  education  and  skills.  This  led  to  the  launch  of  a  structured  dialogue  with 
Member  States  on  digital  education  and  skills37.  The  outcomes  of  the  structured 
dialogue highlighted a number of common challenges faced by Member States in the 
digital transformation of their education and training systems, demonstrating the need 
to share best practices at Union level.  

In  this  context,  the  Council  Resolution  on  a  strategic  framework  for  European 
cooperation in education and training towards the European Education Area and 
beyond  (2021-2030)  promotes  European  cooperation  in  education  and  training  to 
support further the development of education and training systems in Member States. 
These  are  aimed  at  ensuring  the  personal,  social  and  professional  fulfilment  of  all 
citizens,  while  promoting  democratic  values,  equality,  social  cohesion,  active 
citizenship  and  intercultural  dialogue,  as  well  as  sustainable  social  and  economic 
development, the green and digital transitions, and employability. 

(8) 

(9) 

Reflecting the need for a whole-of-government approach to the digital transformation 
of education and training, in 2022, Member States nominated their representatives for 
the  high-level  group  of  National  Coordinators  to  the  structured  dialogue  on 
digital education and skills. Their mandate is 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).  This  approach  proved 
useful  and  necessary  in  bringing  effectively  together  expertise  from  the  different 
sectors and should be continued.  
In  her  2022  speech  on  the  State  of  the  European  Union38,  the  President  of  the 
Commission  declared  2023  the  European  Year  of  Skills39.  This  also  entails 
increasing ongoing efforts to improve the skills needed for the digital transition, which 
now depend more than ever on the involvement of and coordinated contribution from 
stakeholders from all sectors of society, the economy and education and training.  
(10)  The first principle of the European Pillar of Social Rights40 states that ‘everyone has 
the right to quality and inclusive education, training and lifelong learning in order to 
maintain and acquire skills that enable them to participate fully in society and manage 
successfully  transitions  in  the  labour  market.’  Every  European  citizen  should  have 

36 
37 
38 
39 
40 

OJ C 415, 1.12.2020, p. 22. 
Digital Education Action Plan – Action 1 | European Education Area (europa.eu) 
State of the Union Address by President von der Leyen (europa.eu) 
COM(2022) 526 final. 
OJ C 428, 13.12.2017, p. 10. 

EN 

13 

  EN 

 
                                                 
 
access to digital education, which enables them to develop the knowledge, skills and 
competences  needed  for  active  participation  in  today’s  increasingly  digital  societies. 
The  human  right  to  high-quality  and  inclusive  education,  training  and  lifelong 
learning,  as  set  out  and  protected  by  the  Charter  of  Fundamental  Rights  of  the 
European  Union,  should  be  guaranteed  at  all  times.  Every  European  citizen  is  to 
benefit  from  suitable,  accessible  and  safe  learning  environments,  including  digital 
ones.  

(11)  The  Union  of  Equality  strategies41  adopted  by  the  Commission  emphasises  the 
important  role  of  quality  and  inclusive  education  as  an  enabler  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.  

training,  deepening 

(12)  The COVID-19 crisis has further exacerbated socio-economic inequalities in education 
and 
the  digital  divide.  The  Council  Recommendation 
establishing  a  European  Child  Guarantee42  invites  Member  States  to  guarantee 
effective and free access to education and school-based activities for children in need, 
namely those at risk of poverty or social exclusion. Furthermore, the EU Strategy on 
the Rights of the Child43 and the Strategy for the Rights of Persons with Disabilities 
2021-2030 call for building inclusive and accessible, quality education. 

(13)  The  European  Skills  Agenda44  sets  out  actions  to  help  individuals  and  businesses 
develop  more  and  better  skills  and  put  them  to  use  by  strengthening  sustainable 
competitiveness  and  by  building  resilience  to  react  to  crises,  based  on  the  lessons 
learnt during the COVID-19 pandemic.  

(14)  Digital Decade Policy Programme 203045 and the European Declaration on Digital 
Rights  and  Principles  for  the  Digital  Decade46  put  forward  a  plan  to  achieve 
inclusive  human-centred  digital  transformation  of  the  EU’s  society  and  economy  by 
2030.  This  includes  a  governance  and  reporting  framework  with  Member  States  as 
part of the Digital Decade Policy Programme to reach the relevant Union-level targets 
for the Digital Decade, including achieving universal connectivity (gigabit broadband 
for  everyone  and  5G everywhere,  including  in  rural  areas).These  initiatives  seek  to 
address existing digital divides in terms of connectivity and skills by promoting action 
and putting in place necessary mitigating measures.  

(15)  Those  initiatives  highlight  that  successful  digital  education  and  training  is  about 
creating  more  and  better  opportunities  for  learning  and  teaching  for  everyone  in  the 
digital age. Digital solutions have made education and training systems in the Union 

41 

42 

43 

44 

45 

46 

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. 
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. 
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). 
OJ C 23, 23.1.2023, p. 1. 

EN 

14 

  EN 

 
                                                 
more accessible over the last few years. However, in a fast-developing world, it is vital 
to improve continuously the effectiveness and efficiency of education and support new 
teaching  and  learning  approaches,  including  through  existing  and  emerging  digital 
solutions. 

(16)  Council  Conclusions  on  digital  education  in  Europe’s  knowledge  societies47 
highlight  that  the  widespread  distribution  of  digital  technologies  and  access  to  the 
internet create new possibilities for high-quality and inclusive education and training 
in  Europe.  Digital  education,  as  an  integral  part  of  high-quality  and  inclusive 
education  and  training,  can  complement  face‐to‐face  teaching  and  contribute  to 
enhancing accessibility of educational content and pedagogies, greater social inclusion 
as  well  as  to  more  effective  acquisition  of  competences,  promoting  educational 
success for all.  

(17)  At  the  same  time,  new  and  emerging  technologies  such  as  artificial  intelligence 
quickly  enter  learner  environments  which  brings  potential  opportunities  as  well  as 
risks,  such  as  cybersecurity.  It  is  therefore  crucial  to  support  education  and  training 
institutions and teachers in developing better understanding about such tools and how 
they  could  use  them  in  a  confident  and  safe  manner  to  the  benefit  of  teaching  and 
learning.  The  Artificial  Intelligence  Strategy48,  the  European  data  strategy49,  the 
Proposal  for  an  Artificial  Intelligence  Act50,  the  Digital  Services  Act51  and  the 
Ethical  guidelines  on  the  use  of  artificial  intelligence  and  data  in  teaching  and 
learning  for  educators52,  as  well  as  the  proposed  European  Digital  Identity 
Framework53,  are  relevant  to  the  education  and  training  sector  and  its  use  of  digital 
technologies  in  practice.  Concurrently,  the  Digital  Education  Action  Plan  is  raising 
cybersecurity awareness among individuals, especially children and young people, and 
organisations, especially SMEs. Education and awareness raising will not only protect 
against  cyber  threats  but  will  also  contribute  to  developing  and  diversifying  the 
cybersecurity  workforce,  complementing  the  efforts  of  the  Cybersecurity  Skills 
Academy. 

(18) 

In  a  lifelong  perspective,  using  digital  technologies  to  improve  the  accessibility  and 
quality  of  teaching  and  learning  is  of  essence  for  all  sectors  and  levels  of  education 
and training, starting from an early age to adult learning, including elderly citizens. 

47 
48 

49 

50 
51 

52 

53 

OJ C 415, 1.12.2020, p.22 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee  and  the  Committee  of  the  Regions  ‘Artificial  Intelligence  for  Europe’,  COM(2018)  237  final  of 
25.4.2018. 
Communication from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee  and  the  Committee  of  the  Regions  ‘A  European  strategy  for  data’,  COM(2020)  66  final  of 
19.2.2020. 
COM(2021)206 final. 
Regulation  (EU)  2022/2065  of  the  European  Parliament  and  of  the  Council  of  19  October  2022  on a 
Single Market  For Digital  Services and amending Directive  2000/31/EC (Digital Services Act) (OJ L 
277, 27.10.2022, p. 1). 
European Commission, Directorate-General for Education, Youth, Sport and Culture, Ethical guidelines on the use 
of artificial intelligence (AI) and data in teaching and learning for educators, Publications Office of the European 
Union, 2022, https://data.europa.eu/doi/10.2766/153756. 
https://commission.europa.eu/strategy-and-policy/priorities-2019-2024/europe-fit-digital-age/european-digital-
identity_en 

EN 

15 

  EN 

 
                                                 
(19)  Council Recommendation on vocational education and training (VET) for sustainable 
competitiveness,  social fairness  and resilience54 proposes a modernised Union policy 
vision  of  VET,  including  its  digitalisation  and  the  use  of  blended  learning.  The 
Osnabrück Declaration on vocational education and training as an enabler of recovery 
and  just  transitions  to  digital  and  green  economies55  states  that  digital  learning  can 
play an important and complementary role. 

(20)  The  European  Universities  initiative56,  which  supports  transnational  alliances  of 
higher education institutions, promotes the creation and sharing of digital content for 
students, staff, researchers and citizens. Online and blended learning support the goal 
of the European universities to increase the mobility of their students and staff, offer 
more  flexible  learning  pathways  and  increase  transdisciplinary  approaches  to  link 
students and staff with the public and private sector. 

(21)  Council  Recommendation  on  Upskilling  Pathways:  New  Opportunities  for 
Adults57  aims  to  provide  low-qualified  adults  with  flexible  opportunities  to  improve 
their  basic  and  further  skills,  including  digital  competences  relevant  for  the  labour 
market and active participation in society. This is being put into practice by delivering 
training in appropriate learning settings in which qualified teachers and trainers apply 
adult-specific teaching methods and exploit the potential of digital learning. 

(22)  Council Conclusions on European teachers and trainers for the future58 recognise 
that  teachers,  trainers  and  school  leaders  are  an  indispensable  driving  force  behind 
education  and  training.  They  are  to  be  involved  in  creating  education  and  training 
policies,  with  autonomy  in  applying  these  policies  in  practice.  However,  they  also 
need  the  support  of  a  comprehensive  approach  to  initial  education,  induction  and 
continuous professional development.  

(23)  Council  Recommendation  on  blended  learning  approaches  for  high-quality  and 
inclusive  primary  and  secondary  education59  recommends  embedding  blended 
learning  approaches 
teacher  education  and  continuous  professional 
development  programmes.  It  also  recommends  supporting  educational  staff  in  using 
digital tools and materials, including knowledge on how to operate safely and ethically 
in digital environments.  

initial 

in 

(24)  Council  Recommendation  on  learning  for  the  green  transition  and  sustainable 
development60 highlights the importance of educators’ digital competences and digital 
learning  for 
infrastructure, 
sustainability.  

tools  and  resources 

to  strengthen 

teaching  and 

(25) 

It is therefore essential that teachers are treated as key partners in the successful digital 
transformation in education and training. As key partners in this process they need to 

54 

55 
56 
57 

58 
59 

60 

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). 
Endorsed on 30 November 2020 
European Universities initiative | European Education Area (europa.eu) 
Council Recommendation of 19 December 2016 on Upskilling Pathways: New Opportunities for Adults 
(OJ C 484, 24.12.2016, p. 1). 
OJ C 193, 9.6.2020, p. 11.  
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). 
Council  Recommendation  of  16  June  2022  on  learning  for  the  green  transition  and  sustainable 
development (OJ C 243, 27.6.2022, p. 1). 

EN 

16 

  EN 

 
                                                 
be  closely  involved  and  consulted  in  the  adoption  of  digital  technologies,  as  well  as 
equipped with the necessary skills and competences for their effective use.  

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

EN 

17 

  EN 

 
 
RECOMMENDS THAT MEMBER STATES: 

1. 

1.1. 

1.2. 

1.3. 

1.4. 

1.5. 

2. 

2.1. 

2.2. 

2.3. 

through  a  whole-of-government  approach,  and 

together  with  key 
Agree, 
stakeholders,  on  a  national  strategy  for  digital  education  and  skills,  developed  or 
updated along the principles of this Recommendation, and monitor its effectiveness 
and impact. In pursuit of their national strategy, Member States should in particular: 

Set  in  an  integrated  manner  national  objectives  for  the  digital  transformation  of 
education  and  training  systems  and  digital  skills  development,  and  ensure  they  are 
reviewed and updated regularly.  

Align  the  national  objectives  referred  to  in  point 1.1  with  the  strategic  priorities  of 
the  Digital  Education  Action  Plan  2021–2027  and  the  Union-level  targets  of    the 
Digital Decade Policy Programme. 

Set ambitious national targets for the key enablers in line with this Recommendation 
and  the  national  objectives  for  the  digital  transformation  of  education  and  training 
systems.  

Monitor progress in reaching the national targets referred to in point 1.3 and publish 
reports  on  a  regular  basis,  including  lessons  learnt  and  recommendations  for 
improvement.  

Conduct regular evaluations of the impact of digital education policies and practices, 
including on learning outcomes, accessibility and inclusion, equality and well-being, 
with a life-long learning approach, and develop research on those subjects. 

Increase the efficiency, effectiveness and resilience of digital education and training 
policy  by  promoting  synergies  and  coordination  at  all  levels  of  administration  and 
ensuring  a  whole-of-government  and  multi-stakeholder  approach.  In  particular, 
Member States should: 

Organise  regular  dialogues  between  the  different  parts  of  government  involved  in 
delivering digital education and training at appropriate levels in accordance with the 
structure  of  national  education  and  training  systems  to  ensure  alignment,  draw 
benefits from synergies, and prevent double-spending. 

Ensure  the  structural  involvement  of  stakeholders  and  social  partners  in  digital 
education  and  training  policy  design,  development,  implementation  and  evaluation 
processes,  including  active  participation  of  those  without  formal  representative 
bodies, such as parents and learners, including those from different socio-economic, 
age, sectoral and territorial contexts.  

Establish  sustainable  cooperation  and  exchange  with  the  private  sector  and 
technology providers, including education technology providers, small and medium-
sized enterprises and start-ups in developing solutions that reflect Union values and 
principles,  including  digital  sovereignty,  interoperability,  security,  data  privacy  and 
transparency,  as  well  as  sustainable  use  of  rare  resources  and  energy  for  digital 
purposes, by: 

2.3.1. 

supporting  research,  development  and  testing  of  digital  educational  tools  and 
technologies,  including  those  based  on  emerging  technologies  including  eXtended 
Reality,  virtual  reality,  augmented  reality,  artificial  intelligence,  robotics  and 
metaverse; 

2.3.2. 

promoting public-private partnerships for the development and deployment of digital 
education solutions, where appropriate; 

EN 

18 

  EN 

 
2.3.3. 

providing incentives  for  research on the quality,  inclusion, accessibility and impact 
of digital education solutions, including those based on emerging technologies. 

2.4. 

3. 

3.1. 

3.1.1. 

3.1.2. 

3.1.3. 

3.1.4. 

Engage  in  peer-learning,  the  exchange  of  practices  and  coordination,  including 
across different policy sectors, at European and international level, to find common 
solutions to cross-national challenges. 

Ensure  digital  training  for  all  teaching  and  support  staff  and  promote  capacity 
building of education and training institutions. In particular, Member States should: 

Ensure  that  all  teachers  and  teaching  staff  are  supported  in  integrating  digital 
technologies  into  their  pedagogy,  namely  to  use  digital  technologies  for  teaching, 
learning and assessment. That support should in particular take the following forms: 

involving  teachers  in  institutional  decisions  on  how  to  integrate  digital  equipment 
into teaching and learning and on selecting and developing digital education content; 

introducing mandatory digital pedagogy in all  initial teacher education programmes 
for  pre-service  teachers,  and  supporting  providers  of  those  programmes  with 
necessary  resources  and  facilities  for  that  purpose;  cooperate  at  EU  level  on 
curriculum development, delivery and assessment on digital pedagogy for teachers ; 

ensuring  that  all  in-service  teachers  and  teaching  staff  are  provided  with  regular 
opportunities  and  time  to  develop  and  upgrade  their  digital  skills  in  continuous 
professional development,; 

recognising  and  incentivising  flexible,  accessible  and  innovative  formats  of  digital 
upskilling such as online training, short courses leading to micro-credentials, national 
and  international  staff  exchanges,  peer  learning,  and  digital  upskilling  through 
collaborative projects, networks, and communities of practice and research; 

3.1.5.  making  use  of  opportunities  to  develop  digital  pedagogy  through  the  Erasmus+ 

Teacher Academies; 

3.1.6. 

reflecting the need for digital well-being in the teaching and learning process and the 
design of supportive digital teaching and learning approaches and environments. 

3.2. 

3.2.1. 

3.2.2. 

3.2.3. 

3.2.4. 

Encourage education  and training  institutions  to  foster the digital  transformation of 
education and training by: 

promoting  capacity  building  and  the  use  of  frameworks  and  self-assessment  tools 
such  as  SELFIE  (self-reflection  tool  designed  to  help  schools  embed  digital 
technologies  into  teaching,  learning  and  assessment,  based  on  the  DigCompOrg 
framework for school leaders), SELFIEforTEACHERS (based on the DigCompEdu 
framework), and HEInnovate (self-assessment tool for higher education institutions), 
to  identify  institutional  needs  and  objectives  for  digital  transformation  and 
upskilling; 

including criteria on the enabling factors for digital education and training in internal 
and external quality assurance processes for education and training institutions; 

helping  education  and 
transformation, including by offering continuous professional development; 

implement 

institution 

training 

leaders 

the  digital 

promoting evidence-based scaling up of good practice by giving recognition to early 
adopter institutions that have improved teaching and learning through innovation and 
digital technologies, and supporting peer-to-peer exchanges; 

EN 

19 

  EN 

 
3.2.5. 

3.2.6. 

3.2.7. 

4. 

4.1. 

4.1.1. 

4.1.2. 

4.1.3. 

encouraging  a  continuous  dialogue  between  education  and  training  institutions  and 
industry  on  development  and  training  needs  and  opportunities,  exchanging 
experience  and  providing  feedback  on  products  and  technologies  used  in  teaching 
and learning; 

ensuring that every school has access to ICT and digital pedagogy administrators to 
help  teachers  and  learners  select,  effectively  deploy,  manage  and  maintain  digital 
devices and tools for teaching, learning and assessment; 

taking comprehensive measures to address cybersecurity in all education and training 
institutions, encouraging all staff to take cybersecurity training, raising cybersecurity 
awareness  among  students  and  ensuring  robust  security  policies  and  access  control 
while  making  full  use  of  modern  technology  solutions  such  as  cryptography  and 
authentication. 

Promote  equitable  and  impact-focused  investment  in  high-quality,  resilient  and 
inclusive digital education and training. In particular, Member States should: 

Increase  the  efficiency  and  impact  of  spending  on  connectivity,  equipment, 
infrastructure, digital tools and content by:  

coordinating  procurement  processes  to  benefit  from  economies  of  scale  where 
possible, while allowing for flexibility to the specific needs of education and training 
institutions, taking into account also the need for sustainability and accessibility for 
persons with disabilities; cooperate at EU level on standards and specifications that 
can be used for issues such as procurement organised in the field of digital education; 

considering  alternative  approaches 
including  public-private 
to 
partnerships,  donation  schemes,  the  refurbishment  of  second-hand  equipment,  as 
well as translating and reusing, where relevant, digital education content from other 
Member States; 

investment, 

offering  tailored  support,  expertise  and  know-how,  for  example  in  the  form  of 
public-private  partnerships,  advisory  bodies  or  steering/clearing  houses,  to  allow 
education  and  training  institutions  to  choose  appropriate  digital  education  solutions 
that  are  tailored  to  their  teaching  and  learning  needs  and  address  digital  security, 
accessibility, data privacy and digital well-being in a strategic manner; 

4.1.4. 

ensuring that investments in new digital equipment, infrastructure, tools and content 
are accompanied by corresponding training. 

4.2. 

To provide equal access for all learners, ensure adequate investment in:  

4.2.1. 

high-speed  internet  connectivity  to  achieve  100%  gigabit  or  higher  internet 
connectivity  in  all  education  and  training  institutions  and  close  territorial  and 
socioeconomic  gaps  by  using  a  variety  of  different  technologies  and  alternatives, 
fibre,  5G  and  satellite,  in  line  with  the  Union-level  targets  for  the  Digital  Decade 
Policy Programme; 

4.2.2. 

upgrading  digital  classroom  equipment  and  ensuring  that  all  teachers  and  teaching 
staff have access  to  a personalised device (desktop,  laptop or tablet) to  enrich their 
pedagogical practice; 

4.2.3. 

ensuring  that  all  learners  have  access  to  a  personalised  device  at  school  that  meets 
their specific needs  and that all devices are serviced and maintained regularly; 

EN 

20 

  EN 

 
4.2.4. 

4.2.5. 

4.2.6. 

digitising  teaching  and  learning  materials  and  developing  modern,  accessible  and 
high-quality digital  education content,  aligned with  curricula and  good pedagogical 
practices; 

the  deployment  and  integration  of  relevant  centralised  services,  including  through 
cloud  solutions,  such  as  virtual  learning  and  administration  management  systems 
(including  secure  communication  and  collaboration  tools,  education  content 
repositories,  classroom  management  and  digital  assessments)  in  all  education  and 
training institutions, while ensuring their interoperability, privacy and data security;  

ensuring  inclusive  education  by  safeguarding  the  accessibility  of  digital  education 
content  and  technologies  for  learners  and  teachers  with  disabilities  and  providing 
specialised  equipment  and  solutions  for  learners  with  special  educational  needs, 
taking  into  account  the  existing  Union  accessibility  legislation,  in  particular 
Directives (EU) 2016/210261 and (EU) 2019/882 of the European Parliament and of 
the Council62. 

WELCOMES THE COMMISSION’S INTENTION TO:  

1. 

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  Training63  and  the  Digital 
Decade Board64. 

Promote  the  exchange  of  best  practice,  peer  learning  and  cooperation  with 
stakeholders  on  digital  education  and  training.  In  particular,  the  Commission 
intends to:  

Enable  the  exchange  of  best  practice,  networks  and  peer  learning  among  Member 
States,  policy-makers,  practitioners  and  stakeholders  from  the  private  and  public 
sector through existing tools, platforms and communities (Working Group on Digital 
Education: Learning, Teaching and Assessment (DELTA), European SALTO Digital 
Resource  Centre,  European  School  Education  Platform,  including  eTwinning, 
Electronic Platform for Adult Learning in Europe (EPALE), Better Internet for Kids 
platform, Technical Support Instrument projects), including by promoting the Digital 
Education Hub as a main entry point for digital education and training in the Union.  

2.  

2.1. 

61 

62 

63 

64 

Directive (EU) 2016/2102 of the European Parliament and  of the Council of 26 October 2016 on the 
accessibility of the websites and mobile applications of public sector bodies (OJ L 327, 2.12.2016, p. 1). 
Directive  (EU)  2019/882  of  the  European  Parliament  and  of  the  Council  of  17  April  2019  on  the 
accessibility requirements for products and services (OJ L 151, 7.6.2019, p. 70). 
Council Resolution on the governance structure of the strategic framework for European cooperation in 
education  and  training  towards  the  European  Education  Area  and  beyond  (2021-2030)  (OJ  C  497, 
10.12.2021, p. 1). 
Commission Decision of 11 October 2022 setting up the group of experts 'the Digital Decade Board'  - 
C(2022) 7141. 

EN 

21 

  EN 

 
                                                 
2.2. 

Promote cooperation with stakeholders, including software and hardware providers, 
on digital infrastructure and tools and their sustainable use in education and training, 
while  promoting  Union  values  and  principles  on  privacy,  data  protection  and 
interoperability. 

2.3.   Strengthen international cooperation on the enabling factors for digital education and 

skills. 

3.  

3.1. 

3.2. 

3.3. 

4.   

4.1. 

4.2. 

4.3. 

4.4. 

Support the digital training of teachers, teaching and support staff of education 
and training institutions. In particular, the Commission intends to: 

Support,  through  Erasmus+,  mobility  with  the  aim  of  upskilling  teachers,  teaching 
and  support  staff  of  education  and  training  institutions  in  the  use  of  digital 
technologies  in  teaching,  learning  and  administration,  including  with  regard  to  the 
rapidly changing capabilities of emerging technologies.  

tools 

Promote 
like  DigCompEdu  and  SELFIEforTEACHERS,  and  support 
cooperation  on  the  development  and  delivery  of  courses  on  digital  pedagogy  for 
initial teacher education and continuous professional development. 

Promote the roll-out of the ethical guidelines on the use of artificial intelligence  and 
data  in  teaching  and  learning  to  help  primary  and  secondary  teachers  integrate 
artificial intelligence and data into school education effectively, and build on them to 
take  into  account  the  implications  of  misuse  of  emerging  technologies  such  as 
generative artificial intelligence and counter the risks.  

impact-focused 

training 
Support 
infrastructure and services through national and Union funding and strengthen 
evidence  on  the  effectiveness  and  efficiency  of  digital  education  policies  and 
tools. In particular, the Commission intends to: 

in  digital  education  and 

investment 

Support  Member  States’  investment  in  essential  digital  education  infrastructure 
(including connectivity, equipment, tools and digital content) through Union funding 
and  strengthen  the  links  between  existing  Union  policies  and  funding  instruments 
and  programmes  and  national  and  regional  strategies  for  digital  education  and  the 
digitalisation of schools. 

In  light  of  the  rapid  technological  developments,  support  the  development,  in 
cooperation  with  Member  States  and  stakeholders,  of  guidelines  and  quality 
requirements for accessible, well-designed and high-quality digital education content 
and  virtual  learning  environments  and  tools  (such  as  stand-alone  learning 
management  systems  and  applications)  to  help  education  and  training  systems 
systematically  evaluate  their  quality,  safety,  trustworthiness,  reliability,  utility  and 
inclusiveness. 

Support  Member  States  and  technology  providers  in  addressing  interoperability 
challenges  linked  to  digital  education  platforms  and  services  in  different  education 
and training sectors. 

Increase research coordination, promote evidence-based scaling up of best practices 
and  support,  via  Horizon  Europe,  Digital  Europe  and  Erasmus+  programmes,  the 
research, development and deployment of digital solutions for teaching, learning and 
assessment,  and  the  testing  of  their  impact  on  improving  learning  outcomes  and 
equity. 

4.5. 

Support  Member  States  in  developing  effective  and  efficient  digital  education 
policies by improving evidence, evaluation and analysis of those policies through the 

EN 

22 

  EN 

 
4.6. 

4.7. 

Learning  Lab  on  Investing  in  Quality  Education  and  Training,  as  well  as  provide 
targeted guidance and technical support through the Technical Support Instrument.  

Facilitate  exchanges  on  national  approaches  and  best  practice  on  the  effective 
procurement  of  digital  equipment  and  infrastructure  for  education  and  training 
institutions through, inter alia, the Network of National Advisory Services on digital 
education. 

Support  the  digital  transformation  of  Member  State  education  and  training 
credentials, in particular with the further roll-out of the European Digital Credentials 
for Learning infrastructure. 

5.  

Improve transparency and evaluate progress in implementing digital education 
and training. In particular, the Commission intends to: 

5.1.  Contribute  to  building  comparative  data  on  the  key  enabling  factors  of  digital 
education and training across the Union by conducting a Digital Education in Europe 
survey every  3  years in  the Member States, building on  and further developing the 
‘European  Survey  of  Schools:  ICT  in  Education’,  with  the  aim  of  collecting  a  first 
comprehensive set of data by 2025. 

5.2.  Monitor  and  report  on  progress  on  the  enabling  factors  for  digital  education  and 
training, taking into account  Member States’ national strategies, within the European 
Education Area framework, such as the Education and Training Monitor. 

5.3.  Support Member State participation in international surveys that provide comparative 
data on the state of play of teachers’ readiness for digital education, most notably the 
OECD Teaching and Learning International Survey.  

5.4.  Review the progress made in implementing this Recommendation and report to the 

Council no later than 5 years after its adoption. 

Done at Brussels, 

For the Council 
The President 

EN 

23 

  EN