ENEN
Table of Contents
1.INTRODUCTION
a.Political context
i.Common values in the EU education and training agenda
ii.Articulation with other initiatives and measures
2.CHALLENGES UNDERLYING THE PROPOSAL
a.Low achievers: a challenge for common values
b.Sense of belonging and social cohesion
c.Students' civic attitudes
3.RESULTS FROM THE STAKEHOLDER CONSULTATION
a.Online public consultation
Effectiveness of policy approaches, tools and methods
b.Position Papers – Key Themes
c.Overall feedback from public consultations
4.SUPPORTED POLICY POINTERS
a.Promote common values
b.Provide inclusive education
c.Promote a European dimension of teaching
d.Support teachers and teaching
1.INTRODUCTION
As President Juncker emphasised in his 2017 State of the Union address ‘Europe is more than just a single market. More than money, more than the euro. It was always about values.’[1] As stated in Article 2 of the Treaty on European Union, ‘The Union is founded on the values of respect for human dignity, freedom, democracy, equality, the rule of law and respect for human rights, including the rights of persons belonging to minorities. These values are common to the Member States in a society in which pluralism, non-discrimination, tolerance, justice, solidarity and equality between men and women prevail’. The Preamble to the Treaty refers to the cultural, religious and humanist inheritance of Europe which has inspired these values.
The common values have been fundamental in forming a Union that has bound countries, communities and people together in a unique political project, enabling Europe's longest ever period of peace. This has spanned overcoming Europe's deepest divisions immediately after World War Two to the peaceful transition to democracy in countries of Central and Eastern Europe after 1989. A peaceful, social and democratic Union is built on these values, which are not only valid within Europe, but are those that represent the Union in the world.
By global standards, European societies are prosperous and affluent places to live. They have the highest levels of social protection in the world and rank highly in terms of wellbeing, human development and quality of life. Yet, although the Union is experiencing strong growth and unemployment is at its lowest level since 2009, when asked about the future, many express anxiety and concern, in particular for future generations, in a context of growing threats and uncertainties both at home and abroad, increasing inequalities, a resurgence of racism and xenophobia and the viral spreading of misinformation and fake news.
High quality education, enhanced through mobility, transnational cooperation and structural reforms, is critical in reducing inequalities; fostering inclusive, stable and democratic societies; and making a success of migration and globalisation, all of which can help combat the risk that social challenges .threaten our ability to maintain open, equal and cohesive societies.
Building common values into all learning environments can help mitigate intolerance, polarisation and divisive nationalism. Education is central, therefore, in safeguarding the foundations of our societies. It supports social cohesion, enhances the emergence of a common sense of belonging — be it at local or national level and strengthens people’s confidence in public institutions and in our democratic systems.
This is particularly true for the European Union. A widespread lack of awareness of its origins, its basic functioning and its raison d’être favour misinformation and prevent the formation of informed opinion on its actions and evolutions. Moreover, Europeans know little about the social, religious and cultural diversity, heritage and the political realities of their own countries and those of other Member States. This prevents both a deeper understanding of their respective realities as well as the emergence of a collective sense of belonging across Member States. The promotion of the common values embedded in Article 2 of the Treaty of the European Union is vital to reverse those trends.
Education, at all levels, be it formal, informal or non-formal, is essential in ensuring social mobility and inclusive education, inculcating common values and in building a common sense of belonging at European level. Concrete steps have already been taken in that direction. On 17 March 2015, Member States’ education ministers called for actions at all levels of government to reinforce the role of education in promoting citizenship and the common values of freedom, tolerance and non-discrimination, strengthening social cohesion and helping young people become responsible, open-minded and active members of our diverse and inclusive societies[2]. More recently, the Commission recalled in its reflection paper on globalisation that ‘equal access to high-quality education and training is a powerful way of redistributing wealth in a society. This should start with a high standard of basic education and access at all ages to training and skills’[3]. Finally, ahead of the Social Summit held in Gothenburg, the Commission published its Communication on ‘Strengthening European Identity through Education and Culture[4]. The text stresses that ‘it is in the shared interest of all Member States to harness the full potential of education and culture as drivers for jobs, social fairness, active citizenship as well as a means to experience European identity in all its diversity.
Against this background, this Recommendation seeks to create the conditions for a greater commitment of Member States and render their education systems more resilient, inclusive, and values based. The Recommendation is built on three main objectives: promoting common values at all levels of education, fostering more inclusive education as well as encouraging a European dimension of teaching. To achieve those aims, the Commission will take steps to increase virtual exchanges among schools, notably through the e-Twinning network and boost school mobility under the Erasmus+ programme. The European Structural and Investment funds can be availed of to support teacher training or fund physical infrastructure that enables inclusive education.
a.Political context
i.Common values in the EU education and training agenda
One of the objectives of the ET2020 framework for European cooperation in education and training, namely to promote equity, social cohesion and active citizenship, has been established on the basis that education should promote intercultural competences, democratic values and respect for fundamental rights, combat all forms of discrimination, and equip young people to interact positively with their peers from diverse backgrounds.
ET 2020 was updated in 2015. The 2015 Joint Reportof the Council and the Commission on the implementation of the strategic framework for European cooperation in education and training (ET2020) states that ‘Education and training have an important role in ensuring that the human and civic values we share are safeguarded and passed on to future generations, to promote freedom of thought and expression, social inclusion and respect for others, as well as to prevent and tackle discrimination in all its forms…’ and, furthermore, proposed ‘inclusive education, equality, equity, non-discrimination and the promotion of civic competences’ as a new priority area for European cooperation in education and training. In this context an ET 2020 Working Group on Promoting citizenship and the common values of freedom, tolerance and non-discrimination through education was established.
Recommendation 2006/962/EC of the European Parliament and of the Council of 18 December 2006 on key competences for lifelong learning identifies the knowledge, skills and attitudes for personal fulfilment, active citizenship, social cohesion and employability. Critical thinking, sense of responsibility, conflict resolution are identified as concepts transversally underlying all other competences.
In the 'Communication on Improving and Modernising Education’adopted on 7 December 2016 and subsequently the youth initiative adopted on 30 May 2017, the Commission set out its strategy for high quality, inclusive and future-oriented education with specific measures including School Development and Excellent Teaching for a Great Start in Life,[5] a Renewed EU Agenda for Higher Education[6]and a proposal for a Council Recommendation on graduate tracking.[7] Along these lines, the Communication proposed actions related to inclusive education and the promotion of common values including the continued professional development of teachers, the further development of the European Toolkit for Schools as well as the use of Erasmus+ and Horizon 2020 funds to promote good practice in the area of inclusive learning (e.g. integration of migrant pupils and imparting common values).
The European Structural and Investment Funds also help to promote inclusive education, by supporting projects targeting education systems, teachers and schoolchildren. They finance initiatives to ensure young people complete their education and get the skills that make them more competitive on the jobs market. Reducing school drop-out rates is a major priority, along with improving vocational and tertiary education opportunities. In the 2014-2020 period more than EUR 39 billion are allocated to achieving that objective.
ii.Articulation with other initiatives and measures
A number of initiatives at EU level are already in place, which highlight the need to support promotion of common values, to support integration and social cohesion.
EU leaders meeting at the Social Summit in Gothenburg in November 2017, endorsed the Commission Communication on ‘Strengthening European Identity through Education and Culture’[8]
The Action Plan on the Integration of Third-Country Nationalshighlights that integration is a precondition for an inclusive, cohesive and prosperous society and sets out the joint responsibility and common interest to work together on integration;
The 2018 European Year of Cultural Heritageaims to raise awareness of common history and values and encourage people to explore Europe’s rich and diverse cultural heritage;
The European Agenda on Migration develops President Juncker’s Political Guidelines into a set of mutually coherent and reinforcing initiatives, based around four pillars, to manage migration better in all its aspects.
The European Agenda on Security guides the Commission’s work in this area, setting out the main actions to ensure an effective EU response to terrorism and security threats in the European Union. Preventing and fighting radicalisation is one dimension of this agenda, where education has an essential role. As part of that agenda, the Radicalisation Awareness Network is an umbrella network connecting people involved in preventing radicalisation and violent extremism throughout Europe that has a specific Working Group on education.
The Commission 2016 Communication on Supporting the prevention of radicalisation leading to violent extremism' put forth key areas whereby the EU can help support Member States in preventing and countering violent radicalisation leading to terrorism. This Communication proposes the need to ‘promote inclusive education and EU common values’ through specific measures including announcing this Council Recommendation, mobilising Erasmus+ funding, establishing a network of positive role models and awarding student credits for volunteering.
In July 2017, the European Commission set up a High Level Group on Radicalisation[9] to step up efforts to prevent and counter radicalisation, including through educational policiesand to improve coordination and cooperation between all relevant stakeholders building on achievements so far. In November 2017, the High Level Group issued an interim report with preliminary findings and a set of first practical recommendations in different areas.
As regards education, the High Level Group has mainly recommended to instigate the use of opportunities offered by existing platforms (such as eTwinning) to promote fundamental values, democracy and citizenship and help develop critical thinking, as well as to develop the awareness of teachers and their ability to work in the best possible way within the school if there are signs of radicalisation.
Other EU initiatives are referred to in the ‘state of play’ sections in chapter 4.
2.CHALLENGES UNDERLYING THE PROPOSAL
Terrorism and social issues are a prominent concern of EU citizens. In the 2017 Standard Eurobarometer,[10] terrorism is on top of the issues that citizens cite when it comes to challenges that the EU is currently facing, and the number one concern for the EU in 21 Member States while this was the case in one country only in autumn 2016. In the 2016 Eurobarometer report on ‘Future of Europe’, more than one third of respondents considered social inequalities to be the main challenge for the EU, alongside migration issues (both 36 %).[11] When asked to identify up to two areas they thought should be emphasised by society in order to face major global challenges, almost half (46 %) of respondents mention social equality and solidarity. A majority of respondents in 21 Member States think social equality and solidarity should be emphasised in order to face major global challenges.
EU citizens are also very much attached to the EU values as defined in Article 2. The EU’s respect for human dignity, freedom, democracy, equality, the rule of law and respect for human rights, including the rights of persons belonging to minorities are seen as its main assets. Peace, freedom of opinion, social equality and solidarity, and tolerance and openness to others are the values considered to be best embodied by the European Union. Almost six in ten respondents say the EU best embodies peace and freedom of opinion (both 57 %), while 55 % say this about social equality and solidarity and 52 % about tolerance and openness to others.
However, since 2012, there has been a decline across the EU in those who think the EU best embodies these values. Furthermore, more than half of Europeans (52 %) feel that their voice does not count in the EU. This is also reflected in participation in European Parliament elections, with a voter turnout of 43 % at the 2014 elections, and only 28 % of people aged between 18 and 24. When looking in details, the evidence shows that common values are not at a level where they should be.
a.Low achievers: a challenge for common values
The EU is lagging behind in the latest PISA survey
The OECD Programme for International Student Assessment (PISA)[12] is the basis for the ET 2020 benchmark on underachievement of 15-year-olds in basic skills.[13] This benchmark, which aims to increase equity in education,[14] states that the share of 15-year-olds who are low achievers in reading, maths or science should be less than 15 % in the EU by 2020.
In the PISA 2015 results, very few Member States have met the 2020 benchmark: 4 in reading, 3 in maths and 2 in science. But most importantly, the EU as a whole is seriously lagging behind in all three domains and has taken a step backward, compared to the PISA 2012 results (science: 20.6 %, +4.0 percentage points; reading: 19.7 %, +1.9 percentage points; maths: 22.2 %, + 0.1 percentage point). Low achievers cannot successfully complete basic tasks that are required in modern societies and the consequences of this underachievement, if it is not tackled successfully, will be eminent and costly in the long run for them individually, but also for societies as a whole.
The socio-economic gap in low achievers is much bigger in some EU countries
In many countries, schools tend to reproduce existing patterns of socio-economic advantage, rather than contribute to a more equitable distribution of learning opportunities and outcomes. Socio-economic status continues to be a strongly influential factor for 15-year-old students’ achievement in science, with much higher shares of low achievers among the lower social groups than among students of higher socio-economic status.
The figure below shows the share of low achievers in science in PISA 2015 in the bottom quarter of PISA’s socio-economic index and the share of low achievers in science among the upper 25 % of this index; thus, this comparison includes half of the student population that took part in PISA 2015 and is not just a comparison of extremes.
Also, the gap among the upper and lower social quarters is very different across EU Member States: while it is 26.2 percentage points in the EU average, it is especially large in BG (42.1 percentage points) and above 35 percentage points in LU, HU, RO, SK and EL. There are, however, countries that are able to combine both low levels of low achievement with a low level of reproduction of socio-economic patterns.
Too many students with a migrant background do not achieve the necessary basic skills
A student’s migrant background is an additional factor that is related to high shares of low achievers in most EU Member States. Even after taking into account the effects of socio-economic background, too many students with a migrant background do not achieve the necessary basic skills, and a gap remains among children of migrants who were born in the country where the test was taken.
In almost all of the Member States shown here with relevant shares of migrants among their student population, the difference in the share of low achievers between migrant students and their non-migrant counterparts is quite large. In most EU Member States with more than 3 % second generation migrant students, the share of low achievers among second generation students is lower than among first-generation students, except in DK, IE and HR but a gap remains between second generation migrants and students without a migrant background.
Low achievers are less likely to feel a citizen of the European Union
Even if feeling like a citizen of the European Union is not similar to sharing EU values, it can however be considered as an indicator. 66 % of respondents feel they are citizens of the European Union.[15] The proportion of respondents reporting this feeling is declining in some Member States and in some Member States not feeling a citizen of the EU is quite high: 45 % of respondents in the UK say they do not feel citizens of the EU, a figure that is higher still in Cyprus, Bulgaria, Italy and Greece.
More importantly and reflecting the contribution of education, a clear majority of respondents who studied up to the age of 20 or beyond feel like EU citizens (76 % versus 23 %), while those who left school at the age of 15 or earlier are evenly divided (49 % versus 49 %).