Introduction

The European education area (EEA) is a comprehensive EU policy and investment strategy to ensure quality education and training for all, covering formal, non-formal and informal learning at all levels, from early childhood through to adulthood. It assists Member States in developing their education and training systems in line with shared priorities, while promoting voluntary transnational cooperation in the field. Erasmus+, the EU's flagship programme in education, training, youth and sport, is instrumental to advance the EEA's goals.

Following the 2020 Commission communication on achieving the EEA by 2025, the achievement and further development of the EEA is the overarching political objective of the 2021‑2030 strategic framework for European cooperation in education and training, established by a February 2021 Council resolution (strategic framework resolution). This was complemented by a November 2021 Council resolution providing orientation and guiding principles for the strategic framework's governance structure, as well as a May 2023 Council resolution entitled 'The European Education Area: Looking to 2025 and beyond'. The EEA strategic framework builds upon its predecessors, Education and Training 2010 (ET2010) and Education and Training 2020 (ET2020).

The strategic framework resolution stated that the work towards the EEA would happen over two work cycles: the first cycle (2021‑2025) would enable the creation of the EEA by 2025 and the second cycle (2026‑2030) would further develop the EEA. The Council also asked the Commission to publish an evaluation report on the EEA in 2025. On the basis of that evaluation, the Council would carry out a review of the strategic framework, with a view to making any necessary adjustments for its 2026‑2030 cycle.

Evaluation overview

In June 2025, the Commission published a report on the interim evaluation of the 2021‑2030 EEA strategic framework, accompanied by a staff working document (SWD) summarising the findings. The evaluation aimed to provide an assessment of the progress in developing the EEA, in line with the evaluation criteria in the Better Regulation Guidelines. It involved analysing the progress at EU and Member State levels between 2021 and 2024, and was informed by an external support study and consultation activities involving stakeholders and the broader education and training community. The consultation outcome was presented in a synopsis report prepared as Annex V to the SWD.

The evaluation covers the five EEA strategic priorities for national reform and European cooperation set out in the strategic framework resolution: 1) improving quality, equity, inclusion and success for all in education and training; 2) making lifelong learning and mobility a reality for all; 3) enhancing competences and motivation in the education profession (teachers and trainers); 4) reinforcing European higher education; and 5) supporting the green and digital transitions in and through education and training. Moreover, it covers the six implementation instruments that support the development of the EEA: a) governance; b) mobilisation of EU funds and instruments for national reforms; c) strategic EEA initiatives; d) EU‑level projects and calls; e) reporting, monitoring and evaluating progress; and f) communication and dissemination. The global perspective of cooperation in education and training was also examined.

The evaluation has served as input for the Council's review of the strategic framework, to inform potential adjustments to EU‑level targets, the governance structure, working methods and priority areas, in preparation for the second cycle spanning 2026-2030. The Commission report noted that the framework review also offers the opportunity to account for the 2025 Union of skills Commission communication, which, alongside the evaluation's key findings, provided the latest EU‑level strategic orientation for education and skills. Moreover, the report stated that given the changed circumstances in which the second cycle of the framework will operate, new political priorities addressing challenges highlighted in several 2024 reports, such as the Draghi report, should also be reflected in the review.

Findings from the evaluation

The evaluation indicated the strategic framework's EU added value in bringing together Member States to discuss and adopt measurable targets, while building consensus and cooperation around common priorities across the broader education and training community. The evaluation also revealed that EU‑level cooperation enabled a coordinated response to tackle the educational impact of crises occurring during the period under evaluation, thereby strengthening EU resilience. While building on previous frameworks, the EEA promoted more sustainable and structured transnational cooperation in education and training, by achieving substantial progress in advancing mobility, innovation and shared standards.

The evaluation noted that the strategic framework's strength is rooted in voluntary cooperation and co-creation. Despite the lack of regulatory power, the EEA achieved results and meaningful improvements by combining various support mechanisms, quantified targets and EU policy frameworks with policy guidance and cooperation, allocating EU funds, tracking progress and providing support for the evaluation of reforms.

The evaluation observed noteworthy advancements towards the strategic priorities at EU level. Member States implemented reforms aligned with these priorities, contributing to their attainment, although progress varied between individual countries. The strategic priorities architecture, which integrates both horizontal and sectoral priorities, has provided comprehensive coverage of education sectors. At the same time, the level of support through various types of EEA implementation instruments differed according to priority during the first cycle of the strategic framework. Priority 4 (reinforcing European higher education), for example, was given high coverage, while priority 3 (enhancing competences and motivation in the education profession) received relatively low coverage. Evaluation consultations concluded that the major challenges, structured through the strategic priorities, remain relevant. Findings also suggested that the Council may update these priorities to adapt them to the new circumstances.

The EEA implementation instruments supported the achievement of the strategic priorities. Their delivery and combination were assessed as effective, coherent and aligned with the priorities. On the other hand, the evaluation acknowledged the need for more efficiency and speed.

Several EU‑level policy initiatives across different areas, including inclusive and digital education, learning for sustainability, promoting mobility and reinforcing European higher education, have been developed and launched. According to the evaluation, the EEA has driven significant new EU-level initiatives, such as the Erasmus+ teacher academies, and inspired and supported national reforms. It has also paved the way for greater European cooperation between education institutions, including through the European Universities initiative. The evaluation covered 19¹  strategic EEA initiatives,² mainly Council recommendations and some Commission communications, as well as 17³  EU‑level projects and calls (most funded under Erasmus+). Council recommendations covered areas relevant to the strategic priorities, including the promotion of school success, boosting mobility, supporting learning for sustainability, enhancing digital education and skills, and strengthening European higher education. Projects and calls, such as the centres of vocational excellence, addressed key education priorities.

The seven EU‑level targets,⁴ as set out in the strategic framework resolution, and the supporting indicators proved to be an effective instrument for driving and tracking progress towards the EEA. Nevertheless, EU‑level targets were not fully aligned with the strategic priorities, as certain priorities and associated educational challenges cannot be measured quantitatively by a single target domain. While several targets can be associated with strategic priority 1 (improve quality, equity, inclusion and success for all in education and training), no target has been established for priority 3 (enhance competences and motivation in the education profession), or learning for sustainability, which is under priority 5 (support the green and digital transitions in and through education and training). However, in response to the Council's request, the Commission has developed indicators in the areas of the teaching profession and learning for sustainability, as well as for equity. These and other indicators can be consulted through the online monitor toolbox of the Commission's annual education and training monitor, which allows progress towards EU‑level targets to be tracked.

According to the evaluation, progress towards attaining the EU‑level targets was mixed. On a positive note, a trend of upward convergence was observed, characterised by the EU average moving closer to reaching several 2030 targets (relating to early school leaving, tertiary educational attainment and participation in early childhood education and care). Additionally, the 2025 target for participation in work-based learning by vocational education and training (VET) graduates was surpassed. Other target trends, however, showed limited or decreased convergence. Although some progress had been made, more efforts were needed to meet the target for adult participation in learning. Moreover, alarming signs of persistent and even growing underachievement in basic and digital skills emerged, with disadvantaged students especially affected.

The EEA's reformed governance provided stronger political steering on shared priorities and challenges and more strategic agenda setting than the previous cooperation frameworks. However, the evaluation revealed inconsistencies in information flow between governance bodies, and that roles and cooperation lines between some of these bodies were not always clear for EEA actors.

EU funds and instruments, including the European Social Fund Plus (ESF+), the European Regional Development Fund (ERDF) and the Recovery and Resilience Facility (RRF), supported reforms at national and regional levels in line with the strategic priorities. The evaluation noted that under the current EU budget, more than €150 billion (€75 billion from the RRF, €40.4 billion from the ESF+, €8.7 billion from the ERDF and over €26 billion from Erasmus+) have been invested in education, skills and infrastructure to support progress towards the strategic priorities.

Cooperation under the strategic framework helped to promote education and training from a global perspective. For instance, several EU‑level projects and calls under the Erasmus+ programme open to some non-EU countries demonstrated their effectiveness in this respect, with the European Universities initiative as a notable example.

Areas of improvement set out in the Commission report

Among the significant challenges that persisted, the report cited declining learning outcomes in basic skills, teacher shortages, low number of STEM⁵ graduates compared to demand, disparities in access to quality education and in educational outcomes, unmet demand for learning mobility opportunities, low participation in adult learning and a decline in democratic engagement among young people. The fact that some EU‑level targets remained unmet over time underscored the need for greater focus and faster implementation of effective reforms.

The report called for increased cross-sectoral coordination and coherence among various sectoral policy areas related to education and skills. It also highlighted the importance of the European Semester, which serves as a channel through which the strategic framework informs investments and reforms in the field. It noted that the governance model's voluntary and informal character, combined with factors such as unclear responsibilities of governance bodies, limited the framework's ability to systematically drive and support national reforms in line with common priorities.

The report further highlighted two significant gaps that impede evidence-informed policy-making: the lack of EU‑level targets for certain key persistent or emerging priorities, such as STEM education and equity, and the lack of systematic evidence of national reforms in response to EU initiatives. The availability of such evidence would be crucial if the EEA is to fully realise its potential in supporting evidence-informed policy through mutual learning, and to enable a systematic combination of all EEA implementation instruments.

Issues the Council review may consider

The Commission report recommended a sharper focus and intensified efforts to address the most persistent and emerging challenges under the current strategic priorities. The Commission also suggested that the Council might prioritise lifelong learning and skills development as a horizontal priority that transcends all educational levels, while addressing citizenship education as a strategic priority underpinned by a new EU‑level target.

The report stated that improved coordination between education and training, employment, economic policies and actors is key to shaping skills development through a common approach. A stronger alignment between the strategic framework, including both its political and technical governance, and the European Semester could be ensured.

According to the report, the strategic framework review presented an opportunity to consider how the political profile of education could be raised, thereby bolstering support for Member States as they implement evidence-informed reforms. Furthermore, the Commission put forward the need to discuss how to better synchronise the strategic framework with the Union of skills in relation to the development of skills for life and work.

Strengthening and simplifying governance structures and processes, with better connected governance bodies, would allow for reinforced and more targeted support for Member States in the implementation of reforms. By establishing clearer responsibilities for the strategic governance bodies, the Council review could also contribute to improving information flows and cooperation.

The report recommended implementing essential structural reforms more efficiently. It noted that the Commission was developing a comprehensive technical EU‑level toolbox aimed at enhancing support for implementation through mutual learning.

The Commission also thought it would be valuable to bring together the sectoral targets of the EEA 2021-2025 cycle with the thematic targets proposed in the Union of skills communication. The annex to the Commission report set out how the thematic and sectoral targets could be combined to strengthen progress monitoring. As the 2025 education and training monitor pointed out, the sectoral targets would comprise the targets established in the strategic framework resolution, except for those related to underachievement in basic skills, including digital skills. These targets would be incorporated into the thematic group. In addition, the Commission suggested more ambitious target values in relation to early school leaving and tertiary education attainment. The targets proposed in the Union of skills communication for STEM, international attractiveness and top performance in literacy, mathematics and science⁶ would be included in the thematic group. Additionally, the Commission suggested adding two new thematic EU‑level targets on equity and on citizenship education.

Furthermore, the report noted that the Council could initiate a discussion on consistent reporting by Member States, which would enhance EU‑level monitoring and support evidence-informed policy reforms during the 2026-2030 cycle.