Legal provisions of COM(2020)275 - Vocational education and training (VET) for sustainable competitiveness, social fairness and resilience - Main contents
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| dossier | COM(2020)275 - Vocational education and training (VET) for sustainable competitiveness, social fairness and resilience. |
|---|---|
| document | COM(2020)275  |
| date | November 24, 2020 |
| 2.12.2020 | EN | Official Journal of the European Union | C 417/1 |
COUNCIL RECOMMENDATION
of 24 November 2020
on vocational education and training (VET) for sustainable competitiveness, social fairness and resilience
(2020/C 417/01)
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty on the Functioning of the European Union, and in particular Articles 166 and 165 thereof,
Having regard to the proposal from the European Commission,
Whereas:
| (1) | The Charter of Fundamental Rights of the European Union (1) recognises education and access to vocational and continuing training as a fundamental right, the United Nations' Sustainable Development Goals envisage by 2030 equal access for all women and men to affordable and quality technical, vocational and tertiary education, including university, and a substantial increase in the number of youth and adults who have relevant skills, including technical and vocational skills, for employment, decent jobs and entrepreneurship. |
| (2) | The European Pillar of Social Rights (2) proclaimed on 17 November 2017 sets out a number of principles to support fair and well-functioning labour markets and welfare systems, including Principle 1 on the right to quality and inclusive education, training and lifelong learning, and Principle 4 on active support to employment. |
| (3) | High quality and innovative vocational education and training systems provide people with skills for work, personal development and citizenship, which help them to adapt to and deliver on the twin digital and green transitions, to cope with emergency situations and economic shocks, while also supporting economic growth and social cohesion. Thereby providing them with skills that help them get or create jobs in demand on the labour market. |
| (4) | Effective vocational education and training policies are essential in order to achieve the goal of promoting a skilled, trained and adaptable workforce and labour markets responsive to economic change, set in Article 145 TFEU. |
| (5) | The Commission Communication on ‘The European Green Deal’ (3) is Europe’s new growth strategy aiming to transform its economy and society and put them on a more sustainable path. Schools, training institutions and universities are well placed to engage with pupils, parents, businesses and the wider community on the changes needed for a successful transition. Pro-active up- and reskilling are necessary to reap the benefits of the green transition. |
| (6) | The Commission Communication on ‘A strong social Europe for just transition’ (4) highlights the need to place skills, employability and human capital at the centre stage, through the European Skills Agenda for sustainable competitiveness, social fairness and resilience (5), accompanied by a proposal for a Council Recommendation on vocational education and training. It also announces further work on the European Education Area and a new education and training cooperation framework with the Member States. |
| (7) | The Commission Communication on A New Industrial Strategy for Europe (6) calls for decisive action to make lifelong learning a reality for all and ensure that education and training keep pace and help deliver the twin transitions. It also calls on higher and vocational education and training to provide more scientists, engineers and technicians for the labour market. The New Circular Economy Action Plan (7) and the EU Biodiversity Strategy for 2030 (8) highlight the key role of skills in the transition to a green and clean economy. |
| (8) | The Commission Communication on An SME Strategy for a sustainable and digital Europe (9) highlights that availability of skilled staff or experienced managers has become the most important problem for a quarter of EU’s micro, small and medium-sized companies (SMEs) and that lack of skilled employees is the most important obstacle to new investment across the EU. Vocational education and training is particularly relevant for SMEs to make sure that their workforce has the skills needed. |
| (9) | The Commission Communication on a Union of Equality: Gender Equality Strategy 2020-2025 (10) highlights the importance of vocational education and training for women and men to ensure a gender balance in professions which are, traditionally, male or female dominated, to tackle gender stereotypes. |
| (10) | The Commission Communication on EU budget powering the recovery plan for Europe (11) sets out a bold and comprehensive plan for European recovery, based on an emergency European Recovery Instrument (‘Next Generation EU’) and a reinforced multiannual financial framework for 2021-2027. This plan is based on solidarity and fairness, and deeply rooted in the Union’s shared principles and values. The plan sets out how to kick-start the European economy, boost the green and digital transitions, and make it fairer, more resilient and more sustainable for future generations. |
| (11) | Since 2013, the Youth Guarantee (12) has helped young people enter the labour market by offering them a quality offer of employment, continued education, apprenticeships or traineeships within four months of becoming unemployed or leaving school. Vocational education and training has been effective in smoothing transition to the labour market for young people at risk of exclusion. In the future, attractive and labour-market relevant vocational education and training, notably apprenticeships can play an even a stronger role under the Youth Guarantee in preventing young people from becoming unemployed and preparing them for future labour market opportunities, in particular as part of the green and digital transitions. |
| (12) | The Commission Proposal for a Regulation of the European Parliament and of the Council on the European Social Fund Plus (ESF+) aims at ensuring better labour market relevance of education and training system and equal access to lifelong learning opportunities for all, through up- and reskilling pathways. |
| (13) | The Commission Proposal for a Regulation of the European Parliament and of the Council establishing Erasmus: the Union programme for education, training, youth and sport and repealing Regulation (EU) No 1288/2013 provides that the integrated nature of the 2014-2020 programme covering learning in all contexts - formal, non-formal and informal, and at all stages of life - should be maintained to boost flexible learning paths allowing individuals to develop those competences that are necessary to face the challenges of the twenty-first century. |
| (14) | The present Recommendation is building on a number of initiatives in the area of education and training and skills that have been developed at European level, as summarised in Annex I and will contribute to the European Skills Agenda for sustainable competitiveness, social fairness and resilience, the updated Digital Education Action Plan, the European Education Area and the strategic framework for European cooperation in education and training. |
| (15) | The present Recommendation aims at fulfilling the objective of the European Education Area to develop a genuine European learning space where high quality and inclusive education and training is not hampered by borders and which aims at removing obstacles for recognition of higher education and upper secondary education and training qualifications and learning periods abroad, and work towards the smoother cross-border validation of training and lifelong learning outcomes. |
| (16) | Building on the priorities of an enhanced European cooperation in vocational education and training (the Copenhagen process), adopted as a Council Resolution on 19 December 2002 (13), the objectives of high quality and flexible vocational education and training and of transnational mobility continued to be at the core of the global vision for the modernisation of vocational education and training defined by the Ministers in charge in 2010 in the Bruges Communiqué. |
| (17) | In the Riga Conclusions of 22 June 2015, the Ministers in charge of vocational education and training agreed on a set of priorities to support the achievement of this vision, as integrated in the 2015 Joint Report of the Council and the Commission on the implementation of the strategic framework for European cooperation in education and training (ET 2020) (14) and in the 2016 New Skills Agenda for Europe (15) which gave a further strong boost to the Union VET policy with a stronger focus on attractiveness and quality. |
| (18) | The 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 (‘EQAVET’) (16) set out a reference framework to support Member States in improving the quality of their vocational education and training systems and to contribute to increased transparency of vocational education and training policy developments between Member States. During the ten years of its implementation, EQAVET has stimulated reforms in national quality assurance systems, but did not contribute significantly to the improvement of transparency of quality assurance arrangements. Furthermore, it was mostly applied in school-based initial vocational education and training. Therefore, the 2009 EQAVET framework should be integrated into this Recommendation and elements addressing the shortcomings of its implementation in relation to the quality of learning outcomes, certification and assessment, stakeholders’ consultation, the role of teachers and trainers, work-based learning and flexibility of vocational education and training should be added. In order to improve mutual learning, enhance the transparency and consistency of quality assurance arrangements in the provision of vocational education and training and reinforce mutual trust between EU Member States, EU level peer reviews of quality assurance at system level should be introduced. |
| (19) | The Recommendation of the European Parliament and of the Council of 18 June 2009 on the establishment of a European Credit System for Vocational Education and Training (‘ECVET’) (17) set the objective to improve the recognition, accumulation and transfer of learning outcomes, supporting mobility and lifelong learning as well as the establishment of a EU credit system in vocational education and training. During the ten years of its implementation, ECVET has widely contributed to the development of a better-quality mobility experience through the use and documentation of units of learning outcomes. The concept of ECVET points however was generally not applied and ECVET did not lead to the development of a European credit system in vocational education and training. Therefore, this Council Recommendation should include the key principles of ECVET (e.g. units of learning outcomes) related to flexibility. The ECVET tools (e.g. learning agreement and memorandum of understanding) supporting mobility of vocational learners, are to be further developed in the framework of other EU instruments such as those supported under the Erasmus+ programme. For vocational qualifications at post-secondary and tertiary level, the European Credit Transfer and Accumulation System already in use may be applied. |
| (20) | The Council Recommendation of 15 March 2018 on a European Framework for Quality and Effective Apprenticeships (18) identifies 14 key criteria that Member States and stakeholders should use to develop quality and effective apprenticeships ensuring both the development of job-related skills and the personal development of apprentices. |
| (21) | CEDEFOP monitoring of the priorities agreed in the Riga conclusions of 22 June 2015 shows a number of areas where countries have progressed with the modernisation agenda of vocational education and training, in particular in relation to apprenticeships and work based learning, quality assurance, setting up of skills anticipation mechanisms and of advisory bodies involving social partners, increasing permeability and flexibility and recently a stronger focus on digital skills. However, in light of the green and digital transitions there is a need to significantly expand and improve the offer for vocational education and training both for young people and adults, while also increasing the attractiveness and quality of initial vocational education and training. |
| (22) | Many countries have in place initiatives to promote excellence in vocational education and training and to better connect VET to innovation and skills ecosystems. Building upon these examples, the concept of Centres of Vocational Excellence is being piloted with a view to becoming world-class reference points for training in specific areas for both initial training and continuing up-skilling and re-skilling. |
| (23) | In its Opinion on the Future of Vocational Education and Training, adopted in December 2018, the Advisory Committee on Vocational Training (‘ACVT’) set the vision for an excellent, inclusive and lifelong vocational education and training that meets the requirements of the future generated by economic, technological and societal changes. This Opinion invited the Commission to prepare a proposal to streamline and consolidate the EU policy framework for vocational education and training, its governance and existing instruments in the form of an overarching Council Recommendation. |
| (24) | Given its non-binding nature, this Recommendation respects the principles of subsidiarity and proportionality and should be implemented in accordance with European law, national law and practice. In particular, this Recommendation is without prejudice to the Directive 2005/36/EC (19) as amended by Directive 2013/55/EU (20) on the recognition of professional qualifications and the regime of automatic recognition provided therein. Taking into account the following definition of ‘vocational education and training’: For the purposes of this Recommendation, vocational education and training is to be understood as the education and training which aims to equip young people and adults with knowledge, skills and competences required in particular occupations or more broadly on the labour market (21). It may be provided in formal and in non-formal settings, at all levels of the European Qualifications Framework (EQF), including tertiary level, if applicable, |
HEREBY RECOMMENDS THAT MEMBER STATES:
in accordance with national and Union legislation, available resources, national priorities and circumstances, including the socio-economic situation and the characteristics of national VET systems, and in close cooperation with all relevant stakeholders:
| a) | work towards implementing a vocational education and training policy which:
|
| b) | deploy actions and investments for implementing this policy, in accordance with the principles defined below in points 1-21 and |
| c) | work towards achieving by 2025 the following EU-level objectives (22) which are part of relevant European monitoring frameworks, including in the area of education and training and social and employment policies:
|
Vocational education and training is agile in adapting to labour market changes
| 1. | Vocational education and training programmes offer a balanced mix of vocational including technical skills well aligned to all economic cycles, evolving jobs and working methods and key competences (26), including solid basic skills, digital, transversal, green and other life skills which provide strong foundations for resilience, lifelong learning, lifelong employability, social inclusion, active citizenship and personal development; |
| 2. | Vocational education and training curricula, programme offers and qualifications are regularly updated, as relevant, building on skills intelligence (i.e. graduate tracking systems, skills anticipation mechanisms, including at sectoral and regional levels); |
| 3. | Providers of vocational education and training have. in line with national context, an appropriate degree of autonomy, flexibility, support and funding to adapt their training offer to changing skills needs, green and digital transitions and economic cycles, while ensuring quality; |
| 4. | Vocational education and training programmes at all levels comprise work-based learning components that are further expanded also in continuing vocational education and training; apprenticeship schemes (27) are further developed, to enhance Youth Guarantee offers (28), and are complemented by appropriate support (29) and measures to stabilise the offer of apprenticeships, and to address specific challenges of small companies; in order to create work-based learning opportunities in different sectors of the economy, incentive measures could be provided for employers in line with national context; |
Flexibility and progression opportunities are at the core of vocational education and training
| 5. | Vocational education and training programmes are learner centred, offer access to face-to-face and digital or blended learning, flexible and modular pathways based on the recognition of the outcomes of non-formal and informal learning, and open up career and learning progression; continuing vocational training programmes are designed to be adaptable to labour market, sectoral or individual up- or reskilling needs; |
| 6. | Vocational education and training programmes are based on modules or units of learning outcomes and validation mechanisms are in place allowing the transfer, recognition and accumulation of individuals’ learning outcomes with a view to gaining a qualification, a partial qualification, as relevant in the national context; (30) In initial VET the primary goal is to progress to a full qualification. |
Vocational education and training is a driver for innovation and growth and prepares for the digital and green transitions and occupations in high demand
| 7. | Vocational education and training is made resilient by being part of economic, industrial and innovation strategies, including those linked to recovery, green and digital transitions. As a consequence, the offer of vocational education and training needs to be significantly adapted and/or expanded, especially for adults, by fostering the acquisition of entrepreneurial, digital and green skills; |
| 8. | Centres of Vocational Excellence act as catalysts for local business investment, supporting recovery, green and digital transitions, European and regional innovation and smart specialisation strategies, development of vocational education and training, including at higher qualification levels (EQF levels 5-8) in line with national context and provide innovative services such as clusters and business incubators for start-ups and technology innovation for SMEs, as well as innovative reskilling solutions for workers at risk of redundancy; |
| 9. | Vocational education and training institutions have access to state-of-the-art infrastructure, have in place digitalisation strategies (31) in line with national context and embed environmental and social sustainability in their programmes and organisational management, thus contributing to the implementation of the UN Sustainable Development Goals; |
Vocational education and training is an attractive choice based on modern and digitalised provision of training/skills
| 10. | Initial and continuing vocational education and training are part of the lifelong learning. Flexible and permeable pathways are in place between both initial and continuing vocational education and training, general education and higher education; |
| 11. | Vocational education and training programmes at EQF levels 5 to 8 are further developed to support a growing need for higher vocational skills in line with national context; |
| 12. | Vocational education and training programmes are delivered through an appropriate mix of open, digital and participative learning environments, including learning conducive workplaces and are supported by state-of-the-art and accessible infrastructure, equipment and technology, and versatile pedagogies and tools, for example ICT based simulators, virtual and augmented reality which increase the accessibility and efficiency of training provision, including for small enterprises (32); |
| 13. | Teachers, trainers and other staff in vocational education and training undertake initial and continuing professional development in order to: deliver high quality training; foster technical and digital skills and effective innovative training methods, including teaching in virtual environment; in line with state of the art vocational and digital pedagogy, work with digital learning tools, and in diverse and multicultural environments. Their career paths become more attractive through broader recruitment approaches, enhanced career opportunities (33), as well as strengthened cooperation between vocational teachers/trainers and companies and other workplaces; |
| 14. | Internationalisation strategies support a strategic approach to international cooperation in vocational education and training, including in border regions of the EU; such strategies promote successful national practices worldwide and can be implemented by different means such as mobility of learners and teachers/trainers, and participation and joint preparation in international skills competitions; |
| 15. | Opportunities for learning mobility of vocational learners and staff, including virtual mobility, long-duration mobility and mobility to third countries are in place, facilitated by the use and recognition of units of learning outcomes and of relevant European tools; (34) |
| 16. | Clear and user-friendly information on learning and career opportunities, and validation opportunities, in the entire EU is ensured through high quality lifelong learning and career guidance services, making full use of Europass and other digital services; |
Vocational education and training promotes equality of opportunities
| 17. | VET programmes are inclusive and accessible for vulnerable groups, such as people with disabilities, low-qualified/skilled persons, minorities, people with migrant background and people with fewer opportunities because of their geographical location and/or their social-economically disadvantaged situation; Targeted measures and flexible training formats prevent early leaving from education and training and support the school-to-work transition; |
| 18. | VET programmes are accessible through digital learning platforms, supported by tools, devices and internet connection, in particular for vulnerable groups and people in rural or remote areas; |
| 19. | Targeted measures promote gender balance in traditionally ‘male’ or ‘female’ professions and address gender related and other types of stereotypes together; |
Vocational education and training is underpinned by a culture of quality assurance
| 20. | The European Quality Assurance Reference Framework (the EQAVET Framework) as described in Annex II is used in national quality assurance systems, for both initial and continuing vocational education and training; it covers vocational education and training in all learning environments (such as school-based provision and work-based learning, including apprenticeship schemes) and all learning types (digital, face-to-face or blended), delivered by both public and private providers, and is underpinned by a set of indicative descriptors and common reference indicators for quality assurance in vocational education and training applied both at system and provider level, according to national context, as listed in Annex II; |
| 21. | A Quality Assurance National Reference Point for vocational education and training continues to bring together all relevant stakeholders at national and regional levels to:
|
Implementation at national level
It is recommended that Member States take actions to implement this policy at national level, together with social partners and other relevant stakeholders. In doing so, they should:
| 22. | Support sustainable partnerships for the governance of vocational education and training, in accordance with national context and, where relevant, through public-private partnerships. Involve social partners and all relevant stakeholders, including vocational education and training institutions, industries and businesses of all sizes, public and private employment services, VET teachers and trainers and their representatives, intermediary bodies such as chambers of industry, commerce and crafts, professional and sectoral organisations, national coordinators for the Youth Guarantee, ESF and other EU initiatives, the information technologies sector, Centres of Vocational Excellence, clusters, learners’ and parents’ organisations, as well as local, regional and national authorities. Promote such partnerships at regional and sectoral level; |
| 23. | Make best use of the European transparency tools such as the European Qualifications Framework, the European Credit Transfer and Accumulation System (ECTS), Europass and the European Skills, Competences, Qualifications and Occupations (ESCO), facilitate automatic mutual recognition of qualifications and the outcomes of learning periods abroad (36), enable learners to use the various features of Europass (e.g. recording their experience, skills and qualifications in an online profile that serves for career guidance, mobility experience, obtaining digitally signed credentials, and receiving suggestions and searching for learning and job opportunities, qualifications, validation, recognition, etc.); |
| 24. | Make best use of European Union funds and instruments supporting reforms and/or investment in vocational education and training, including on digitalisation and environmental sustainability, such as the Next Generation EU (Recovery and Resilience Facility, REACT-EU), European Social Fund+, SURE, the European Regional Development Fund, InvestEU, Erasmus+, Horizon Europe, Interreg, Digital Europe, the Just Transition Mechanism and the European Agricultural Fund for Rural Development, and the Modernisation Fund; stimulate further investments in vocational education and training from both public and private sectors; |
| 25. | Define by building on relevant existing national arrangements and financial frameworks measures to be taken for the implementation of this Recommendation at national level within 18 months of its adoption and follow up their implementation, including with national resource allocations as adequate at national level and with a strong focus on mainstreaming digitalisation and environmental sustainability across the entire VET sector with due regard to the responsibility/autonomy of education and training institutions in line with national context. |
HEREBY WELCOMES THE COMMISSION’S INTENTION, WITH DUE REGARD FOR SUBSIDIARITY, TO:
implement the Union’s vocational education and training policy, supporting the action of the Member States, including through:
| 26. | Ensuring effective governance of the EU policy for vocational education and training through the tripartite Advisory Committee on Vocational Training, on the basis of a rolling work programme and in cooperation with Directors-General for Vocational Education and Training (37), learners’ representatives and providers of vocational education and training; |
| 27. | Ensuring that the EU policy for vocational education and training is fully reflected in taking forward the EU Recovery Plan, the European Green Deal and the New Industrial Strategy for Europe, the SME-Strategy for a sustainable and digital Europe and is a consistent and coherent part of the European Skills Agenda for sustainable competitiveness, social fairness and resilience, the Digital Education Action Plan, the overall European cooperation framework for education and training and the European Education Area; |
| 28. | Further providing support for structural reforms on apprenticeship through the apprenticeship support service and a new boost to the European Alliance for Apprenticeships in synergy with the Youth Guarantee; gradually expanding support services for vocational education and training in cooperation with CEDEFOP; |
| 29. | Exploring the concept and use of microcredentials, including in VET, together with Member States and relevant stakeholders, including in the context of the EQF Advisory Group, as proposed in the European Skills Agenda. |
| 30. | Supporting the goal of gradually establishing and developing European Platforms of Centres of Vocational Excellence and exploring European Vocational Core Profiles together with Member States and relevant stakeholders, as part of Europass platform and complemented, where possible, by vocational digital content developed in the framework of European transparency tools, with a view to facilitate mobility of learners and workers and the transparency and recognition of qualifications; |
| 31. | Supporting qualitative and effective digitalisation of VET provision in both school-based and work-based learning through promoting the use of European competence frameworks (38) and self-assessment tools (39), and exploring the feasibility of an EU wide survey for VET schools; |
| 32. | Reinforcing the European Alliance for Apprenticeships and the Digital Skills and Job Coalitions as announced in the European Skills Agenda; |
| 33. | Promoting European vocational education and training systems in an international context so that they are recognised as a worldwide reference for vocational learners, including by supporting internationalisation of vocational education and training systems also with regard to EU candidate countries and to European Neighbourhood countries in cooperation with the European Training Foundation, skills competitions and communication campaigns to raise the attractiveness and image of VET and providing user-friendly access to information about vocational education and training and related career opportunities, building and further developing the Europass features; |
| 34. | Cooperating with international organisations, in particular OECD, ILO, UNESCO and the World Bank, in the field of vocational education and training. |
| 35. | Supporting the Member States’ efforts for the implementation of this Recommendation, strengthening capacity of vocational education and training institutions, including their digitalisation and environmental sustainability and promoting research in VET at both national and EU level through funding from the relevant Union funds and programmes (the Next Generation EU (Recovery and Resilience Facility and REACT-EU), European Social Fund+, SURE, European Regional Development Fund, InvestEU, Erasmus+, Horizon Europe, Interreg, Digital Europe, Just Transition Mechanism, the European Agricultural Fund for Rural Development, the Modernisation Fund); |
| 36. | Ensuring qualitative and quantitative monitoring in line with the common objectives defined in this Recommendation as well as other relevant data, including on investment, and feeding this data into the European Semester and relevant European monitoring and reporting frameworks and reporting to the Council on the implementation of the Recommendation every five years, building on data available at national and European level and annual monitoring by CEDEFOP. |
This Recommendation replaces the 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 (EQAVET), and the Recommendation of the European Parliament and of the Council of 18 June 2009 on the establishment of a European Credit System for Vocational Education and Training (ECVET).