The Commission evaluated the actions taken in response to the Council Recommendation on Upskilling Pathways.

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Moreover, it investigated the progress made towards raising the levels of literacy, numeracy and digital skills amongst adults as well as towards providing those who are lower skilled with further upskilling opportunities. It also assessed the experience gained and implications for the future. The evaluation reports adopted as part of the European Year of Skills show a mixed picture in the implementation efforts.

Basic skills – literacy, numeracy and digital skills – are the foundation for full participation in society and the labour market. However, far too many adults in the EU do not possess a functional level of these skills and they risk getting stuck in a “low skills-poor jobs trap”.

The objective of the Council Recommendation on Upskilling Pathways is to respond to this risk and provide adults with lower level of skills, knowledge or competence, for instance adults with a qualification below the upper secondary level, with opportunities to develop basic skills and/or acquire a wider set of skills, relevant for active participation in society and the labour market. 

To reach the objectives of the Recommendation, Member States were invited to offer to the target groups personalised support via an integrated pathway consisting of three steps – skills assessment, provision of tailored and flexible learning opportunities and validation and recognition – complemented by outreach, guidance and support measures.

The evaluation report and Staff Working Document, based on the available evidence, paint a picture of overall moderate impact of the Recommendation:

• Relevant indicators show moderate positive trends
• Implementation has been uneven across the Member States with measures often lacking scale and coordination
•  Some stakeholders view the Recommendation as a catalyst for renewed focus on support for adults to acquire basic skills as well as upskilling in general
•  The three step-approach is considered as a useful reference point
• The objectives of the Recommendations are still relevant.

Based on the results of the evaluation and provided that labour shortages and skills mismatches are increasing, the implementation of the Council Recommendation on Upskilling Pathways clearly needs improvement. It is necessary to provide everyone with opportunities on the labour market and in society.

It is equally necessary to fill the skills gaps on the labour market and drive forward the EU’s competitiveness and the green and digital transitions. Skills development throughout life is an individual right as spelled out in the Charter of Fundamental Rights of the European Union, the European Pillar of Social Rights and translated into its Action Plan.  Better implementation of Upskilling Pathways would contribute to putting this right in practice.