Explanatory Memorandum to COM(2005)548 - Key competences for lifelong learning - Main contents
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This page contains a limited version of this dossier in the EU Monitor.
| dossier | COM(2005)548 - Key competences for lifelong learning. |
|---|---|
| source | COM(2005)548  |
| date | 10-11-2005 |
The Lisbon European Council in March 2000 recognised that Europe faces challenges in adapting to globalisation and the shift to knowledge-based economies. It stressed that 'Every citizen must be equipped with the skills needed to live and work in this new information society' and that "a European framework should define the new basic skills[1] to be provided through lifelong learning: IT skills, foreign languages, technological culture, entrepreneurship and social skills". The recognition that people are Europe's most important asset for growth and employment was clear in 2000, and has been regularly restated, most recently in the relaunched Lisbon Strategy and at the European Council of March 2005, which called for increased investment in education and skills.
The mandate was reiterated and developed in the 'Education and Training 2010' work programme (ET2010) adopted by the Barcelona Council in March 2002, which also called for further action to 'improve the mastery of basic skills' and to strengthen the European dimension in education. This work was to focus on identifying the basic skills and how, together with traditional skills, they can be better integrated in the curricula, learned, and maintained through life. Basic skills should be genuinely available for everyone, including for those with special needs, school drop-outs and adult learners. Validation of basic skills should be promoted to support further learning and employability. The Commission Communication on lifelong learning (2001) and the subsequent Council Resolution (June 2002) further stressed the need to provide lifelong learning opportunities for all, particularly to acquire and update basic skills.
Based on this political mandate, a Working Group on basic skills, established in 2001 in the context of Education and Training 2010 work programme, has developed a framework of key competences i needed in a knowledge society and prepared with a number of recommendations on ensuring that all citizens can acquire them i.
The 2004 Joint Interim report of the Council and the Commission on the progress of the Education and Training 2010 work programme i made the case for common European references and principles to support national policies, facilitate and encourage reform, and gave priority to the key competences framework.
The Recommendation proposed here therefore presents a European reference tool for key competences and suggests how access to these competences can be ensured for all citizens through lifelong learning.
1) Identify and define the key competences necessary for personal fulfilment, social cohesion and employability in a knowledge society.
2) Support Member States' work on ensuring that by the end of initial education and training young people have developed the key competences to a level that equips them for adult life, and that adults are able to develop and update them throughout their lives.
3) Provide a European level reference tool, the annexed Key Competences for Lifelong Learning - a European Reference Framework i for policy makers, education providers, employers, and learners themselves to facilitate national and European level effort towards commonly agreed objectives.
4) Provide a framework for further action at Community level both within the Education and Training 2010 work programme and within the Community Education and Training Programmes.
In accordance with international studies, competence is defined here as a combination of knowledge, skills and attitudes appropriate to a particular situation. Key competences are those that support personal fulfilment, social inclusion, active citizenship and employment.
The development of the knowledge society is raising demand for the key competences in the personal, public and professional spheres. The way in which people access information and services is changing, as are the structure and make-up of societies. There is increasing concern about social cohesion and developing democratic citizenship; this requires people to be informed, concerned and active. The knowledge, skills and attitudes that everyone needs are changing as a result.
The growing internationalisation of economies affects the world of work, with rapid and frequent change, the introduction of new technologies and new approaches to organising companies. Employees need both to update specific job-related skills and to acquire generic competences that enable them to adapt to change. The knowledge, skills and attitudes of the workforce are a major factor in innovation, productivity and competitiveness and they contribute to the motivation, job-satisfaction of workers and the quality of work.
However, the High Level Group on the Lisbon Strategy made it clear in November 2004 that 'far from enough is being done in Europe to equip people with the tools they need to adapt to an evolving labour market, and this applies to high- and low-skilled positions.' It has been estimated that almost a third of the European labour force (80 million people) is low skilled. Further, a 2004 Cedefop report suggested that by 2010 only 15 % of newly created jobs will be for people with basic schooling, whereas 50% will require highly skilled workers.
International surveys such as IALS (the International Adult Literacy Survey) show that in many European countries a considerable share of the adult population does not have the reading and writing skills necessary to function in society, and early school leavers are particularly at risk. Although rates of illiteracy in Europe appear relatively low, no society is immune to this phenomenon and there are a number of minorities among whom illiteracy is a major problem. The 2005 data on European reference levels (‘benchmarks’), adopted by the Council in May 2003 i, show no progress since 2000 in reducing the percentage of low achievers in reading literacy at age 15, or in raising the completion rate for upper-secondary education. Progress towards achieving other reference levels is also too low: at current rates early school leaving would drop to 14% by 2010 while the reference level is 10%. Adult participation in education and training is growing only by 0.1-0.2 percentage points a year which will not lead to achieving the reference level of 12.5% by 2010. Moreover, data show that low skilled people are less likely to participate in further training, making it harder to support those who need it most.
At European level, the Community programmes such as Leonardo da Vinci and the Grundtvig action within Socrates programme provide support for projects tackling the lack of basic skills.
Since the adoption of the Education and Training 2010 work programme, several working groups have focussed on specific subject areas such as ICT or broader themes (e.g.; social inclusion and active citizenship) to which the work on key competences has provided a context by collecting all essential competences into a single framework. This work has also included collecting and disseminating good policy practice, including on developing transversal competences within compulsory education, ensuring access to key competences for disadvantaged learners and developing coherent provision of key competences for adults.
The work on key competences is closely linked to other developments in improving European education and training systems such as the ongoing work on the development of a European Qualifications Framework, and initiatives seeking to strengthen transparency and recognition of qualifications and competences (such as principles of validation of non-formal and informal learning and credit transfer systems). The work on Common European Principles for Teacher Competences and Qualifications is also related as it seeks to address the changing role of schools in developing competences of young people.
At Member State level, there is substantial activity in the reform of initial education curricula, reflecting a shift of focus from imparting knowledge to developing transferable competences that equip young people for adult life and further learning. This requires different approaches in organising learning, and new competences from teachers. Consequently, there is a debate on what competences each young person should develop and how schools would be best supported through developing e.g. their governance and evaluation. The social aspects of learning have also been given a more important role: educational disadvantage is often a combination of personal, social, cultural and economic circumstances and needs to be tackled in collaboration with other sectors. Schools are seeking ways of engaging families and local communities not only to support young people’s learning but to promote lifelong learning in the whole community.
Many countries have begun basic skills programmes, for example on literacy, numeracy and ICT for adults, often through NGOs. However, a number of countries are not yet in a position that would allow all citizens to learn and update their basic skills, and while many recognise the need to provide adult learners with broader competences, there has not been a common understanding of what they are, and provision is still far from consistent.
The good policy practice examples from Member States show that provision for adults should focus on clearly defined national, regional and/or local priorities. It should lead to infrastructures that recognise and meet the differing needs of adults, with qualified teachers/trainers, measures to ensure access by incentives, guidance and counselling support. Learners' particular situations should be recognised: their prior experiences, learning needs and aspirations should be taken into account, as well as broader issues that link to social and employment policies, and require the engagement of all partners.
Despite many good examples of good practice, the provision for key competences is seldom adapted to meet the learning needs of citizens at all ages. In this context, this proposal brings considerable added value by providing a reference tool identifying those key competences considered necessary for all, and supporting Member States in their endeavours to ensure that the provision of key competences is fully integrated into their lifelong learning strategies and infrastructures.
- The Integrated guidelines for Member States’ employment policies i recognise the importance of competences for employment (especially for vulnerable groups) and for adapting to change. This should be an important element of Member States National Reform Programmes in implementing the Integrated Guidelines.
- Social policy emphasises the role of education and training as a route out of poverty and/or a key factor for social cohesion.
- The Youth Pact i calls for ensuring that knowledge matches the needs of a knowledge-based economy and, to this end, encouraging the development of a common set of core skills.
- The Entrepreneurship Action Plan i recognises the essential role of education; entrepreneurship is one of the key competences.
- The ‘Key Competences for Lifelong Learning – A European Reference Framework’ includes knowledge, skills and attitudes that lead people to be more involved in both sustainable development and democratic citizenship.
The basis of this proposal has been the ‘European Framework of Key Competences’, developed by a Working Group made up of experts from Member States, EFTA/EEA countries, candidate countries (from January 2003) and European associations. Expertise in the group included policy-makers, practitioners and academic researchers, covering both adult and compulsory education and European level stakeholders.
The work has been debated in a range of conferences and seminars organised by stakeholders or international organisations. Ministers of Education discussed the European dimension of key competences at their informal meeting in Rotterdam in July 2004 and encouraged the Commission to continue working on this initiative.
A focus group of 5 experts (from Universities and government agencies on school development) was convened in spring 2005, to refine the framework on the basis of their expertise and the feedback gathered from debates in conferences and other sources and to discuss its implementation.
The Advisory Committee on Vocational Training was consulted in September/October 2005.
A consultant was engaged to survey related international work. Specific themes such as the European dimension of the framework, provision for less advantaged learners, and entrepreneurship were prepared in smaller groups and approved by the larger working group i.
The consultation and expertise provided, confirmed the need for an initiative at European level, and indicated that the proposed approach was in line with current trends and would be welcomed.
This proposal will support the development of Member States' lifelong learning strategies and education and training systems. It will facilitate curricular reforms and debates around them and give impetus to the creation of a coherent adult education and training provision. This will have a positive impact on individuals' personal, social and professional lives, and - at a broader level - on the Lisbon goals for social cohesion and economic competitiveness and growth. It should have most impact on disadvantaged groups who often do not acquire key competences at present.
Contents
- LEGAL ELEMENTS OF THE PROPOSAL
- BUDGETARY IMPLICATION
- 2. CONSULTATION OF INTERESTED PARTIES AND IMPACT ASSESSMENT
- - Grounds for and objectives of the proposal
- More concretely, its objectives are to:
- - The demand for competences in a knowledge society
- - Current provisions on key competences
- - Consistency with other policies and objectives of the Union
- The proposal contributes to the Lisbon goals of growth, employment and social cohesion:
- - Collection and use of expertise
- - Impact assessment
- - Summary of the proposed action
- The proposal invites the Commission to support reforms at national level through:
- - Legal basis
- - Subsidiarity and proportionality principles
The proposed recommendation defines the key competences needed by all citizens in knowledge-based economies and societies. It acknowledges that implementation decisions are best taken at national, regional and/or local level. It calls for Member States to ensure the acquisition of key competences by all by the end of initial education and training and, in the light of the European reference levels, encourages them to tackle educational disadvantage. As for adults, the Recommendation calls for comprehensive infrastructures to be created together with all relevant partners.
- peer learning, exchange of good practice and reporting on progress in ET2010 biennial reports;
- support for relevant projects through the Community Education and Training Programmes;
- promoting a common understanding of key competences and their links to employment and social policies;
- promoting partnerships with social partners and other relevant organisations.
According to the article149 of the Treaty the Community shall contribute to the development of quality education by encouraging cooperation between Member States and, if necessary, by supporting and complementing their action, while fully respecting the responsibility of the Member States for the content of teaching and the organisation of education systems and their cultural and linguistic diversity. The proposed Recommendation aims to support Member States efforts to develop their initial education and training systems as well as their adult education and training provision by providing a reference tool on key competences, and to encourage them to continue cooperation within the Education and Training 2010 work programme. In conformity with the paragraph 2 of the Article, the proposed Recommendation aims at developing exchanges of information and experience on common issues related to key competences provision through lifelong learning.
Article 150 of the Treaty states that Community action shall support and supplement the action of the Member States and, in particular, as stated in paragraph 2 of the Article, improve initial vocational training, facilitate vocational integration and reintegration as well as to develop exchanges of information and experience on common issues. The objective of the proposed recommendation is to improve all these aspects of vocational education and training as it provides a reference tool of key competences that facilitates Member States efforts to adapt their vocational education and training systems to meet the changes in labour market and society in general.
The proposed recommendation contributes to the quality of education and training by facilitating the work in which Member States have committed themselves within the Education and Training 2010 work programme and by the adoption of European reference levels in the Council in May 2003. It encourages and supports national reforms and learning from good practice from other countries in order to help Member States to create a comprehensive and coherent provision of key competences as part of their lifelong learning strategies. Therefore, this proposal conforms to the principle of subsidiarity. The Recommendation establishes a European reference framework on key competences to be acquired by all citizens, and creates and enhances the political commitment for reforms that cannot be achieved by using only e.g. the Community education and training programmes. However, it leaves the implementation of it entirely to Member States, and is therefore in conformity with the proportionality principle.
The proposal has no implication for the Community budget.