Opinion of the European Economic and Social Committee – How to ensure green skills and promote green vocational institutions (exploratory opinion requested by the Danish Presidency of the Council of the EU)
Date: 2025-09-18
Institutions: European Economic and Social Committee
Subjects: EU environmental policy, EU initiative, adaptation to climate change, climate change, continuing education, continuing vocational training, environmental protection, green economy, greenhouse gas, pollution control measures








C_202600023EN.000101.fmx.xml












Official Journal of the European Union


EN
C series













C/2026/23


16.1.2026






Opinion of the European Economic and Social Committee
How to ensure green skills and promote green vocational institutions
(exploratory opinion requested by the Danish Presidency of the Council of the EU)
(C/2026/23)


Rapporteur: 
Nicoletta MERLO

Co-rapporteur: 
Jean-Michel POTTIER






Advisor


Francis PETEL (to the Group I co-rapporteur)




Referral by the Danish Presidency of the EU


Letter, 7.2.2025




Legal basis


Article 304 of the Treaty on the Functioning of the European Union




Section responsible


Employment, Social Affairs and Citizenship




Adopted in section


3.9.2025




Adopted at plenary session


18.9.2025




Plenary session No


599




Outcome of vote
(for/against/abstentions)


96/0/2




1.   Conclusions and recommendations









1.1.


The EESC recommends a systemic approach to green skills training, integrating multi-level governance, targeted investment and inclusive educational models. Agility in skills design must be translated into concrete action, including through the empowerment of local and regional authorities and the effective implementation of existing mechanisms, such as the European green skills monitoring system and territorial observatories. This ensures a robust framework for monitoring and anticipating green skills needs by building on established instruments rather than creating new ones.












1.2.


The EESC recommends making strategic use of European funds to modernise VET, support lifelong learning and improve the qualifications of trainers. Tax incentives should be promoted, with a clear definition of investments in training, including in terms of the treatment of financing and accounting and the monitoring of outcomes. The Committee also considers it necessary to encourage public-private partnerships for the development of green skills and to adequately support SMEs in implementing training programmes. Furthermore, it is essential to ensure sufficient resources are allocated to guarantee effective green and digital training.












1.3.


To ensure that the green transition is truly inclusive, the EESC recommends developing a clear framework for the implementation of micro-credentials and promoting the widespread adoption of modular and flexible training pathways, particularly those based on blended learning. Special attention should be given to making these pathways accessible to adult learners and low-qualified workers. These efforts must be supported by individualised guidance and support services that strengthen transversal skills and foster motivation for lifelong learning.












1.4.


The EESC recommends the systemic integration of sustainability into education and training through cross-border cooperation, student and teacher mobility, and the exchange of good practices. The Erasmus+ programme plays a key role by supporting the green and digital transition in VET and it must be adequately funded and supported, as it represents a unique tool to promote student and teacher mobility, which is essential to foster cross-border collaboration, curriculum innovation and the exchange of best practices.












1.5.


The EESC recommends fully implementing the first principle of the European Pillar of Social Rights (EPSR) and ensuring that ‘everyone has the right to quality and inclusive education, training and life-long learning in order to maintain and acquire skills that enable them to participate fully in society and manage successfully transitions in the labour market’. It is necessary to promote the recognition of skills acquired in non-formal and informal contexts, and to encourage regular discussions between the social partners in order to establish professional development plans consistent with business needs and individual aspirations.












1.6.


Workers should benefit from quality vocational training throughout their careers, including guidance and skills assessment tools. The EESC considers it necessary to focus on rapid training pathways to enable workers to transition or adapt to green and digital roles, using a variety of flexible training formats, as well as developing tailored training for vulnerable groups, complemented by active employment support measures and lifelong guidance systems. In addition, a common European approach is needed for assessing the impact of training and disseminating good practices, including through social dialogue and collective bargaining in line with national practices.












1.7.


The EESC calls for AI to be used as a tool to make vocational training more responsive to the needs of the green transition, anticipating emerging training needs, rapidly updating curricula and personalising learning pathways. However, it is essential to ensure that its use is ethical and sustainable, with teachers and trainers receiving adequate training.




2.   Introduction









2.1.


The green and digital transition is both a unique opportunity and a key strategic challenge for the EU, with an impact on the environment, economy, society and employment. Its success relies on equipping workers and companies with the skills needed to adapt, innovate and implement sustainable solutions. As the transition to climate neutrality transforms sectors, creates new jobs and redefines existing ones, it is essential to promote and support green employment, growth, innovation and competitiveness. This also requires addressing the training and retraining of workers and anticipating changes in the workplaces of the future. In this context, it is crucial to support the Climate Pact (1), which follows up on the EU’s activities in the area of green jobs and will actively support labour organisations, educational institutions and public authorities in helping those seeking work in the green economy.












2.2.


There is a widespread shortage of green skills, especially in SMEs and key sectors such as construction, transport, waste management, energy and engineering (2). The lack of green skills in the workforce is a growing concern, and training and retraining efforts are still not managing to keep up with demand (3). Addressing these gaps, including by integrating green skills into the initial training curriculum for all young people as well as for under-represented groups, is vital so that the EU can achieve its climate and sustainability goals and ensure a fair and inclusive transition to the green economy (4).












2.3.


Meeting the European Green Deal goals – such as climate neutrality and the circular economy – depends on education and training systems capable of empowering knowledgeable citizens, informed consumers and skilled workers. Education and training, including re- and upskilling, plays a key role in enhancing environmental awareness, stimulating systems thinking, developing technical and transversal skills, and promoting collective action for sustainability. A systemic, life-cycle approach is needed, encompassing all forms of education, from compulsory school education to vocational training to higher education and lifelong learning, and integrating in an appropriate way environmental, economic and social sustainability into curricula and governance, as well as partnerships with municipalities and regions and with businesses.












2.4.


In this context, vocational education training (VET) institutions play a crucial role in accompanying the transformation of productive sectors and ensuring a fair transition. Moreover, for companies, investing in green skills means boosting competitiveness, innovating production models and attracting talent. For workers, it should mean access to new professional opportunities, better qualifications and more stable working conditions. This exploratory opinion, requested by the Danish Presidency, aims to support the necessary paradigm shift in order to position VET as a strategic tool for a fair, inclusive transition focused on excellence and quality. A related EESC opinion – SOC/826 (5) – complements this opinion.




3.   General Comments









3.1.


‘Green skills’ can be defined as the skills needed by the workforce, in all sectors and at all levels, in order to support the adaptation of products, services and processes to the changes brought about by climate change and environmental requirements and regulations (6). They include both the technical skills (scientific, technological and engineering) and soft skills (decision-making, creativity, critical thinking, interdisciplinary collaboration, active citizenship and a sustainability culture, project management and entrepreneurship) necessary for the net-zero transition and aligned with the United Nations’ Sustainable Development Goals (UN SDGs).












3.2.


Beyond green skills shortages, there is a broader mismatch between training systems and evolving labour market needs, exacerbated by the dual green and digital transitions. As stated in the Union of Skills, upskilling and reskilling will be essential throughout people’s lives and careers, yet one in five adults struggles to read and write, and less than 40 % of the adult population take part in education or training, far below the 60 % target set for 2030. This share is much lower among low-skilled adults (18,4 %). Almost half the adult population does not have basic digital skills despite these being necessary for more than 90 % of jobs. Time constraints, financial considerations, care responsibilities and motivation are some of the obstacles preventing adults from taking part in further learning.












3.3.


Despite EU efforts to strengthen VET (7), there is a need to focus on continuously updating curricula as an enabler for the relevant labour market skills that are important for all workers, in order to avoid the risk of training remaining fragmented, outdated and inaccessible to vulnerable groups. It is also crucial to provide young people with clearer guidance on future employment prospects in order to support informed and future-oriented education and career choices. Regional and local disparities in education quality further threaten European competitiveness, cohesion and the success of the green and digital transitions (8), and should be properly addressed.












3.4.


Social perceptions of VET remain a barrier: only 48 % of upper secondary students in Europe opt for VET (9), reflecting its lower status compared to academic education. A cultural shift is needed to improve the attractiveness of VET and recognise VET as vital for innovation, sustainability and inclusion, also in view of the fact that the transition to low-carbon societies is creating new specialisations and revitalising previously neglected roles (10). For instance, the Danish Year of VET is an example of an initiative that aims to boost public understanding of VET opportunities (11).












3.5.


The Green Deal Industrial Plan (GDIP) (12) stresses that ‘the green transition must be people-centred and inclusive to ensure equitable and just outcomes, generating quality jobs and leaving no-one behind’. This is a key aspect of the green transition and is essential in order to create legitimacy and avoid the perception that workers’ conditions and rights are being sacrificed. There is also a debate around whether workers whose fields of work are in decline will be able to move easily to new jobs, which are generally in different locations and require different skills (13).




4.   Specific comments









4.1.


A climate-neutral transition requires a systemic approach to green skills training that incorporates governance, investment and inclusive education models. Integrating green skills into national plans and structured dialogue among institutions, social partners, civil society organisations, training providers and the scientific community is essential for identifying emerging job profiles. Multi-level governance, supported by tools such as territorial observatories and public-private partnerships, can better identify needs and develop more targeted strategies, while stronger VET and school-to-work transition systems are key to youth integration in sectors with strong ecological and digital growth. As highlighted by the Union of Skills, governance frameworks must explicitly involve all relevant stakeholders to ensure policies and training programmes are fully aligned with the demands of the green transition.












4.2.


Empowering regional and local authorities in training planning is crucial for addressing regional and local needs, tailoring training to local economic and social contexts. The agility that needs to be displayed when defining the required skills and designing training pathways and the related qualifications required by the market must go beyond mere announcements of intent. On the contrary, such agility has to become a priority for training institutions












4.3.


The EESC has stressed the importance of continuous training in strategic green sectors, emphasising the role of professional services (14). A European green skills monitoring system based on existing instruments is needed to proactively detect and address emerging training needs. A regular reporting and benchmarking tool would enhance transparency and guide continuous improvements. Such a system should include age-disaggregated data and foresight studies to provide a medium- and long-term vision of labour market trends.












4.4.


Investment and incentives are vital. Strategic use of EU funds (15) is crucial for modernising VET, upgrading infrastructure, supporting lifelong learning and training educators. Tax incentives for companies investing in green skills, as well as public-private partnerships for developing innovative training clusters (e.g., renewable energy and sustainable construction), should be encouraged. Such investmentrequires suitable regulatory and accounting changes as well as monitoring outcomes, in line with the national practices of EU Member States.












4.5.


The green transition must be inclusive, promoting accessible, flexible and modular training pathways – such as those based on micro-credentialing (for which a clear implementation framework is needed) and blended learning – to support adult and less-qualified workers, especially in high emissions sectors. It will also be crucial to ensure individualised guidance and support services that enhance transversal skills and nurture motivation for lifelong learning. Tailor-made training for vulnerable groups will need to be developed and supplemented by active employment support measures and lifelong guidance systems. Adult apprenticeships, as successfully implemented in countries like Denmark, Finland and Germany, play a strategic role through modular programmes, part-time formats, formal recognition of prior experience and financial support, helping to build a resilient, skilled and inclusive workforce.












4.6.


In order to better promote the systemic integration of sustainability into education and training in Europe, it is necessary to foster cross-border cooperation, student and teacher mobility, and the exchange of good practices. To do so, it will be important to promote synergies between schools, businesses and research centres, enhancing specific regional features and contributing to the development of genuine local training ecosystems capable of connecting education, innovation and social inclusion (16).












4.7.


The Erasmus+ programme plays a crucial role in supporting the green and digital transformation of VET across Europe. Through strategic actions such as centres of vocational excellence (CoVEs), Key Action 2 (KA2) (17) partnerships for cooperation, and mobility projects for learners and teachers, Erasmus+ fosters cross-border collaboration, curriculum innovation and the exchange of best practices. It is essential that Erasmus+ continue to be strongly supported and adequately funded in the next programming period, to ensure its positive impact is not undermined.












4.8.


As enshrined in Principle 1 of the EPSR, everyone has the right to quality and inclusive lifelong learning to acquire and maintain skills that enable full participation in society and smooth labour market transitions. This implies the adoption of continuous update programmes for vocational training teachers and trainers, with a focus on innovative teaching methods and up-to-date content (18). In addition, it is essential to encourage the recognition of skills acquired in non-formal and informal contexts through transparent validation and certification systems, making it accessible to all workers. The organisation of career interviews between employers and employees would be an opportunity to share a professional development plan, with the aim of aligning employees’ aspirations for professional development with their company’s skills requirements.












4.9.


VET should accompany workers throughout their career, including tools for guidance and skills assessment. Recognising investment in human capital must become a strategic lever for competitiveness and social cohesion. Corporate training systems – internal, external, e-learning and on-site – require a defined framework and traceability to be effective. A common European approach for training impact assessment and dissemination of good practices is needed, including through social dialogue and collective bargaining in line with national practices, which may include specific provisions on strategic skills. VET systems need to be adapted to company needs, with on-the-job training as a key tool for developing new digital and green skills. Clear information, quality monitoring and traceability are essential to ensure access and effectiveness.












4.10.


Strengthening education for ecological citizenship, linking content to concrete local experience and adopting interdisciplinary methodologies will all be decisive for true internalisation of sustainability principles. Education on sustainability should begin in early childhood to foster a deep understanding of ecological and civic responsibilities. A full synergy between formal, non-formal and informal education will also enhance civic participation, experiential learning and peer education.












4.11.


Artificial intelligence (AI) can be a powerful ally in updating VET to the needs of the green transition, making it more responsive to rapid technological and regulatory changes (19). AI can help predict emerging training needs, rapidly update curricula and customise learning pathways; however, its implementation requires ethical, fair and sustainable development-oriented use by educational institutions and ensuring VET teachers and trainers have up-to-date competences, including the integration of AI into their teaching. Furthermore, all VET programmes and professions should include a dedicated module on green and digital skills, ensuring workers are fully prepared for the evolving demands of the labour market. To achieve this, adequate technological tools must be made available to both learners and educators.












4.12.


Possible barriers to training in companies should be re-examined, especially for SMEs (i.e. financial, psychological and organisational obstacles, replacements for employees away on training courses, etc.). For small companies, the goal is to avoid disrupting their organisation, with a loss of turnover caused by the difficulty of replacing employees that are in training. For employees, the feeling of having to go back to ‘school’ is a major psychological barrier that requires appropriate teaching methods.




The EESC, as well as CSOs (including environmental and youth organisations) at national and local level, can play a decisive role in helping to promote a fairer, more inclusive and participatory ecological transition.


Brussels, 18 September 2025.


The President


of the European Economic and Social Committee

Oliver RÖPKE
               





(1)  
            COM(2020) 788 (final).

(2)  
            https://www.cedefop.europa.eu/it/publications/4213.

(3)  
            Employment and Social Developments in Europe (ESDE) 2024 – Employment, Social Affairs & Inclusion (DG EMPL).

(4)  
            https://www.weforum.org/stories/2023/05/europe-green-skills-solar-wind/.

(5)  Opinion of the European Economic and Social Committee - How apprenticeships and dual learning schemes can bolster the skills that businesses need in order to face the challenges of the green and digital transitions (own-initiative opinion) (OJ C, C/2026/11, 16.1.2026, ELI: http://data.europa.eu/eli/C/2026/11/oj).

(6)  
            OECD/Cedefop (2014), Greener Skills and Jobs, OECD Green Growth Studies, OECD Publishing.

(7)  Recommendation of the European Parliament and of the Council of 18 June 2009 on the establishment of a European Quality Assurance Reference Framework for Vocational Education and Training (OJ C 155, 8.7.2009, p. 1), https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:32009H0708(01) and 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), https://eur-lex.europa.eu/legal-content/EN/TXT/HTML/?uri=CELEX:32020H1202(01).

(8)  
            ‘European Skills Agenda for sustainable competitiveness, social fairness and resilience’, EU Commission (2020), and Empowering adults through upskilling and reskilling pathways, Cedefop (2023).

(9)  
            The future of vocational education and training in Europe, Cedefop (2023).

(10)  
            https://eures.europa.eu/green-transition-transforming-jobs-are-you-ready-2024-10-24_en.

(11)  
            https://www.cedefop.europa.eu/en/tools/vet-in-europe/systems/denmark-u3.

(12)  
            COM(2023) 62 final.

(13)  
            Assessing and Anticipating Skills for the Green Transition, OECD, 2023.

(14)  
            https://www.eesc.europa.eu/en/our-work/opinions-information-reports/opinions/professional-services-green-transition.

(15)  ESF+, NextGenerationEU and InvestEU.

(16)  Opinion of the European Economic and Social Committee on ‘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) and on ‘Proposal for a Council recommendation on vocational education and training (VET) for sustainable competitiveness, social fairness and resilience’ (COM(2020) 275 final) (
OJ C 10, 11.1.2021, p. 40).

(17)  
            https://erasmus-plus.ec.europa.eu/programme-guide/part-b/key-action-2.

(18)  Opinion of the European Economic and Social Committee on Adult learning (Exploratory opinion at the request of the Slovenian Presidency) (
OJ C 374, 16.9.2021, p. 16).

(19)  
            https://www.cedefop.europa.eu/en/publications/4220.


ELI: http://data.europa.eu/eli/C/2026/23/oj
ISSN 1977-091X (electronic edition)