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)
Date: 2025-09-18
Institutions: European Economic and Social Committee
Subjects: apprenticeship, artificial intelligence, digital literacy, digital transformation, digitisation, educational reform, environmental education, innovation, twin transition, vocational retraining








C_202600011EN.000101.fmx.xml












Official Journal of the European Union


EN
C series













C/2026/11


16.1.2026






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)
(C/2026/11)


Rapporteur: 
Jean-Michel POTTIER






Advisor


Francis PETEL (to the rapporteur, Group I)




Plenary Assembly decision


23.1.2025




Legal basis


Rule 52(2) of the Rules of Procedure




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)


95/0/4




1.   Conclusions and recommendations









1.1.


The EESC points out that apprenticeship-based training is instrumental in equipping people with the digital and environmental skills that will be needed in the European labour market. Businesses of all sizes play a decisive role in training apprentices. This training also takes into account the specific features of SMEs, as many respond to niche market needs requiring unique know-how. This concerns all sectors of activity, including the rural economy.












1.2.


The EESC points out that mastering basic skills is a prerequisite for vocational training such as apprenticeships. It also flags up that apprenticeships are a way to build bridges between school and a great number of young people in serious difficulty, such as those not in employment, education or training (NEETs), because apprenticeships tailor training to the workplace.












1.3.


A number of EU countries have developed specific schemes for identifying the new digital and green skills that would help support the transitions and meet the skills needs in the labour market. The EESC calls on the EU to provide appropriate funding to help identify needs, with due regard for national practices.












1.4.


The EESC notes that in many EU countries, apprenticeships and certification schemes operate in silos. It supports the objective of a thorough reform, for example to adapt training to labour market needs, improve accessibility and foster transferable skills. In the meantime, a disruptive approach is needed to allow rapid adjustments to be made.












1.5.


The EESC proposes a new approach to apprenticeship systems that would involve the provision of a complementary training module in the field of new technologies or innovations in digital and green skills, which would account for 5-10 % of the vocational training course. This additional module, chosen by the company and the training provider in consultation with professional bodies, will either be noted on the main certification or be covered by a micro-certification (1). The EESC proposes that this method be tested by Union of Skills projects that aim to ‘develop an attractive and innovative vocational education and training (VET) system (2)’.












1.6.


The EESC supports the development of the apprenticeship training system used in some EU countries for adults over the age of 30. It notes that this is particularly helpful for reskilling employees throughout their careers, for example with a view to career changes, professional development or entrepreneurship.












1.7.


The social partners are great at gauging the skills needs in the labour market. The EESC reiterates that ‘the social partners [are] effective players in designing and managing training systems; they are particularly well-placed to measure the skills needs of the labour market’ (3).












1.8.


Learning digital skills involves mastering artificial intelligence (AI) tools. The opportunities and risks that AI use brings form an integral part of apprenticeship-based training. This means including AI in the design of training schemes and educating young people about AI as soon as they begin general training.












1.9.


The EESC strongly supports the Erasmus+ programme, which is targeted towards students who are enrolled in vocational training programmes within a school-based system, as well as apprentices. It enables people to carry out traineeships in European companies, to undertake training courses in Europe in a vocational training organisation, or to take part in educational exchanges.












1.10.


The EESC also endorses apprenticeships as a way to integrate people with disabilities. A number of countries, like France, offer specific apprenticeship schemes to help those with disabilities integrate into companies, and help create adapted work spaces (4). The EESC calls for the widespread use of these schemes, with due regard for national practices.












1.11.


The EESC notes that support and guidance services are needed to inform young people about the new skills and the opportunities in the labour market. The aim is to help people discover new digital and green professions and learn about the transformation of existing professions by taking advantage of the possibilities offered by apprenticeships for successful integration into long-term employment. The information and guidance provided should also give the different forms of vocational training the same weight, particularly as apprenticeships offer very high rates of direct integration into the labour market.




2.   Background



Skills shortages in Europe










2.1.


In 2018, the Council adopted a recommendation on a European framework for quality and effective apprenticeships (5). The objectives under this framework include competency frameworks described in terms of learning outcomes and structured to efficiently guide the design of the workplace training component.












2.2.


The European Commission set targets in the European Skills Agenda and in the Digital Education Action Plan to ensure that 70 % of adults are equipped with basic digital skills by 2025. These initiatives aim to reduce the number of 13 to 14-year-olds with insufficient computer and digital literacy skills from 30 % (in 2019) to 15 % by 2030.












2.3.


According to the European Commission, more than 70 % of companies have stated that a lack of staff with sufficient digital skills was a barrier to investment.












2.4.


The Commission has presented an action plan to tackle labour and skills shortages and is proposing to work with the Member States and the social partners to address these issues over the coming months and years (6).












2.5.


The action plan is also a key part of the European Year of Skills (7). It builds on the many policy and funding measures already in place at EU level, such as the Skills Pact (8) (which has provided training for 3.5 million workers to date), on the employment and skills goals for 2030 agreed at the Porto Social Summit, on the directives on adequate minimum wages and platform working, and on the EUR 65 billion of EU funds available for investment in skills.












2.6.


In it, the European Commission calls on the Member States to revise education and training curricula to better meet labour market needs. It also notes that the social partners intend to support apprenticeships and partnerships between vocational education and training (VET) providers and employers.






Draghi report










2.7.


The EESC supports the actions set out in the Draghi report in the field of skills development to meet the EU’s future challenges (9). The report specifically mentions skills gaps: ‘a European strategy to address skills gaps – focused on all stages of education – is essential’.












2.8.


The Draghi report pinpoints digital skills, green skills, and science, technology, engineering and mathematics (STEM) skills as crucial to mastering the use of new technologies and advancing their development (10).












2.9.


The new European Commission’s political guidelines highlight the importance of vocational education and training. The EU will, inter alia, develop a European strategy for vocational education and training. A proposal on raising awareness among young people about STEM disciplines will be put forward, focusing on encouraging women to enrol in these courses. The Skills Union initiative was proposed in March 2025.






Need for green skills










2.10.


Under the European Climate Law (11), the EU is legally obliged to become climate-neutral by 2050. It sets an intermediate target to reduce net greenhouse gas emissions by at least 55 % by 2030. The EU strategy highlights the significant role that education and training play in achieving climate neutrality.












2.11.


Created on the European Commission’s own initiative, GreenComp (12) is a reference framework for sustainability competences. It is one of the policy actions set out in the European Green Deal and aims to promote learning in the field of environmental sustainability in the European Union.












2.12.


In line with this policy direction, the Commission has published a number of policy papers such as the European Skills Agenda for sustainable competitiveness, social fairness and resilience, and A European Education Area by 2025, highlighting the need to develop a European skills framework for sustainability.












2.13.


Lastly, Article 28 of Directive (EU) 2023/1791 of the European Parliament and of the Council on energy efficiency stipulates that ‘Member States, in close cooperation with the social partners, shall ensure that certification or equivalent qualification schemes, including, where necessary, suitable training programmes, are available for energy efficiency-related professions […] (13)’.






Need for digital skills










2.14.


The Digital Education Action Plan 2021-2027 is an EU policy initiative to support EU Member States in adapting their education and training systems to the digital age in a sustainable and effective way (14).












2.15.


To achieve its objectives, the action plan sets out two priority areas:






—


fostering the development of a high-performing digital education ecosystem; and










—


enhancing digital skills and competences for the digital transformation.








3.   General comments









3.1.


Number of apprentices in different countries (based on national data collected from government websites, using each country’s own definition of ‘apprenticeship’; this data therefore groups together various different elements under the same umbrella): Germany leads, with almost 1.3 million apprentices (2023), followed in 2023 by France with 1 million, the Netherlands with 500 000, Austria with 130 000, Denmark with 100 000, Poland with 99 000, Finland with 57 000, Hungary with 51 000, Belgium with 30 000, Portugal with 22 000 and Spain with 20 500.












3.2.


The term ‘apprenticeship’ covers two very different concepts in countries we can split into two groups.












3.2.1.


In the first, apprenticeships form a separate system from formal education. This is particularly so in Germany’s dual system, but also in dual learning schemes in Austria, Denmark and Switzerland. This model can also be found in Ireland, Croatia, Iceland, Norway and Poland.












3.2.2.


In our second group, apprenticeships are not a specific sub-system of formal education and vocational training, but a form of in-company training based on the same qualification standards as full-time vocational training. In both France and Belgium (Flanders), these are complete pathways to qualifications. They can also be found in Italy, Finland, Sweden and French-speaking Belgium, which also offer partial learning paths. The Netherlands and Portugal are unique in this regard, in that apprenticeships are organised as programmes like those in the first group.












3.3.


There are therefore significant differences between EU countries owing to differences in cultures and traditions. This diversity should be considered a strength, and warrants a complex comparative analysis.












3.4.


Young people acquire digital skills – which are an integral part of their way of life – from an early age. The use of digital tools (sometimes from a very young age) in general, and the use of these tools in initial education and in developing social networks are all part of young people’s daily lives. Likewise, their education introduces them to environmental issues early on. Many young people realise that these challenges weigh heavily on their generations, and will affect future generations even more. However, young people need initial training adapted to these natural skills.












3.5.


Employees nearing the end of their careers are part of the analogue generation, while the vast majority of young people come from the digital generation. Reconciling the analogue skills of senior employees with the digital skills of young people as they enter the world of work is a huge challenge for businesses.












3.6.


New digital and green skills include technological innovations stemming from corporate research and development activities and from university and institutional research. Combining in-company training with training provided by training providers is a particularly effective way of ensuring that these new skills are learned. The transmission of know-how through dual learning schemes should allow us to meet the challenges posed by the digital and green transitions, changing job profiles and the creation of new professions. To this end, the role of vocational training organisations is crucial, particularly for helping SMEs to determine the skills they need.












3.7.


Apprenticeships are a powerful means of getting into employment for young people. In some EU countries, apprentices are company employees; in others, they benefit from a special status. The labour market integration rate is 87 % in Germany, 75 % in the Netherlands and 70 % in Denmark, for example.












3.8.


Businesses perform their role honestly as dual-learning trainers in conjunction with the training organisation. However, particular care must be taken to anticipate and prevent any abuse of the system that would see productive jobs being carried out for free.




4.   Specific comments









4.1.


Given the nature of the new skills required, companies of all sizes play a decisive role in training apprentices. Account must also be taken of the specific features of SMEs, as many respond to niche market needs requiring unique know-how. This concerns all sectors of activity, including the rural economy. This training role makes it possible to take into account consumer acceptance of the transitions by meeting market needs linked with the implementation of those transitions in EU countries.












4.2.


The recent 2022 PISA study shows that 30 % of EU school pupils under 15 fail to meet minimum skills standards in maths, and around 25 % fail to meet these benchmarks in reading and science. Mastering basic skills is essential for pursuing vocational training such as an apprenticeship. It should also be pointed out that apprenticeships are a way to build bridges between school and a great number of young people in serious difficulty, such as NEETs, because apprenticeships tailor training to the workplace.












4.3.


A number of EU countries have developed specific schemes for identifying the new digital and green skills that would help support the transitions and meet the skills needs in the labour market. However, efforts to pinpoint the skills and shape the training bring together public services, government authorities, business representatives and the social partners in very different ways. One notable example is the ‘Disruption Council’ in Denmark (15).












4.4.


Companies often view the vocational training system as overly rigid. Both company managers and employees, particularly mentors for vocational training schemes, find that the qualifications on offer are not keeping up with technological progress or emerging new professions. A disruptive approach is needed to allow for rapid adaptations to increasingly rapid changes in skills needs. This will open the door to the adaptation of existing professions and the emergence of new ones, particularly in the digital and environmental fields which are closely linked to energy.












4.5.


The apprenticeship training system is used in some EU countries for adults over the age of 30. This is particularly helpful for reskilling employees throughout their careers. It may also involve periods of time or contracts that alternate between time spent in the company and in the training organisation.












4.6.


The EESC recommends that, in order to implement effective policies on the development of digital skills, the European Commission should encourage the Member States to use a comprehensive approach involving the social partners, training organisations, the scientific community and the institutions concerned, such as chambers of commerce (16). Civil society organisations can also play a role as partners in dual learning systems, both by providing educational content and by helping identify local communities’ skills needs.












4.7.


Learning digital skills involves mastering artificial intelligence (AI) tools. Early education on AI technology allows young people to start mastering these skills. As such, it is essential that apprenticeship-based training consider the opportunities and risks that AI use brings (17).












4.8.


Erasmus+ is targeted towards students who are enrolled in vocational training programmes within a school-based system, as well as apprentices. It enables people to carry out traineeships in European companies, to undertake training courses in Europe in a vocational training organisation, or to take part in educational exchanges.












4.9.


Apprenticeships are also a way to integrate people with disabilities. A number of countries, like France, offer specific apprenticeship schemes to help those with disabilities integrate into companies, and help create adapted work spaces (18).












4.10.


Support and guidance services are needed to inform young people about the new skills and the opportunities in the labour market. The fact that the national systems differ greatly must be taken into account here. The aim is to help people discover the new digital and green professions, and learn about the transformation of existing professions, by taking advantage of the possibilities offered by apprenticeships for successful integration into long-term employment. The information and guidance provided should also give the different forms of vocational training the same weight, particularly as apprenticeships offer very high rates of direct integration into the labour market.






Brussels, 18 September 2025.


The President


of the European Economic and Social Committee

Oliver RÖPKE
               





(1)  Recommendation on a European approach to micro-credentials for lifelong learning and employability.

(2)  Communication from the Commission on the Union of Skills, COM(2025) 90 final.

(3)  Opinion of the European Economic and Social Committee on ‘Vocational training: the effectiveness of systems to anticipate and match skills and labour market needs and the role of social partners and different stakeholders’ (Exploratory opinion requested by the Portuguese presidency) (
OJ C 286, 16.7.2021, p. 20).

(4)  
            Apprentissage et handicap: un guide pour les employeurs et les apprentis | Travail-emploi.gouv.fr | Ministère du travail, de la santé, des solidarités et des familles (Apprenticeships and disability: a guide for employers and apprentices | Travail-emploi.gouv.fr | Ministry of Labour, Health, Solidarity and Families).

(5)  
            European Framework for Quality and Effective Apprenticeships, EFQEA.

(6)  
            https://data.consilium.europa.eu/doc/document/ST-15463-2024-INIT/en/pdf.

(7)  Decision (EU) 2023/936 of the European Parliament and of the Council of 10 May 2023 on a European Year of Skills (OJ L 125, 11.5.2023, p. 1).

(8)  
            pact-for-skills.ec.europa.eu.

(9)  Opinion of the European Economic and Social Committee – Assessment of the Letta and Draghi reports on the functioning and the competitiveness of the EU’s single market (own-initiative opinion) (OJ C, C/2025/2004, 30.4.2025, ELI: https://eur-lex.europa.eu/eli/C/2025/2004/oj).

(10)  Draghi report 
The future of European competitiveness: In-depth analysis and recommendations
, page 258.

(11)  
            https://climate.ec.europa.eu/eu-action/european-climate-law_en.

(12)  
            GreenComp: the European sustainability competence framework, European Commission.

(13)  
            Directive (EU) 2023/1791 of the European Parliament and of the Council of 13 September 2023 on energy efficiency and amending Regulation (EU) 2023/955 (OJ L 231, 20.9.2023, p. 1).

(14)  
            Digital Education Action Plan (2021-2027), European Education Area.

(15)  
            Follow-up on the Danish Disruption Council, February 2019.

(16)  Opinion of the European Economic and Social Committee on the proposal for a Council Recommendation on the key enabling factors for successful digital education and training (COM(2023) 205 final – 2023/0099 (NLE)), the proposal for a Council Recommendation on improving the provision of digital skills in education and training (COM(2023) 206 final – 2023/0100 (NLE)) and new ways of achieving digital inclusion (exploratory opinion at the request of the Belgian Presidency) (OJ C, C/2024/885, 6.2.2024, ELI: https://eur-lex.europa.eu/eli/C/2024/885/oj).

(17)  Opinion of the European Economic and Social Committee – Pro-worker AI: levers for harnessing the potential and mitigating the risks of AI in connection with employment and labour market policies (own-initiative opinion) (OJ C, C/2025/1185, 21.3.2025, ELI: http://data.europa.eu/eli/C/2025/1185/oj).

(18)  
            Apprentissage et handicap: un guide pour les employeurs et les apprentis | Travail-emploi.gouv.fr | Ministère du travail, de la santé, des solidarités et des familles (Apprenticeships and disability: a guide for employers and apprentices | Travail-emploi.gouv.fr | Ministry of Labour, Health, Solidarity and Families).


ELI: http://data.europa.eu/eli/C/2026/11/oj
ISSN 1977-091X (electronic edition)