B Explanatory
memorandum by Ms Brasseur, rapporteur
1 Introduction
1. On 28 April 2010, 34 colleagues and I tabled a motion
for a resolution on “European cultural and educational policies
through national parliaments”, which was referred to the committee
for report on 22 June 2010. The committee appointed me rapporteur
on this subject at its meeting in Strasbourg on 22 June 2010.
2. The committee held a hearing on education policies in Paris
on 5 March 2012, with the participation of Ambassador Arif Mammadov,
Chair of the Council of Europe Committee of Ministers’ Rapporteur
Group on Education, Culture, Sport, Youth and Environment and a
number of experts.
Note The hearing
was organised in co-operation with UNESCO. After considering a preliminary
draft report at its meeting on 4 October 2012, the committee decided
to change the title of the report to the current one.
3. This report follows – and is intended to further – the Parliamentary
Assembly’s work towards the implementation of the White Paper on
Intercultural Dialogue “Living together as equals in dignity” (2008),
Note launched by the Council of Europe
Ministers of Foreign Affairs at their 118th Ministerial Session,
and of Assembly
Recommendation
1975 (2011) “Living together in 21st-century Europe: follow-up to
the report of the Group of Eminent Persons of the Council of Europe”.
4. Culture
Note and education
are enabling factors for personal development and for full and active
participation in society. It is through cultural experiences and
education that people shape their personality and build up the ability
to enter into constructive relationships with others. The capacity
of European citizens to accept differences and to value every human
being is enhanced through education and culture. Therefore, educational and
cultural policies are at the heart of a stronger and more cohesive
Europe.
5. The report will examine parliaments’ role in setting a strategic
vision for European cultural and educational policies. Within the
challenging context of globalisation, economic downturn, increasing
societal divides and major environmental concerns, national parliaments
should stand for the critical review of cultural and educational
policies and take a lead in developing a forward-looking strategic
vision. They should reconsider policy design in these fields to
ensure a more comprehensive approach and launch the policies needed
to respond to the present major societal challenges.
2 The role
of national parliaments in reshaping national cultural and educational
policies – Lines of action
6. Parliaments are expected to identify major challenges
and to find the best way to deal with these challenges. They have
a key role in determining a vision for the future, defining comprehensive
strategies and ensuring these are properly implemented. In order
to provide guidance for the systemic reforms needed, monitor their
implementation and assess their impact, parliaments need to be effective
in defining the strategic vision and setting the goals for such
reforms in the first place. Are parliaments effective in doing that,
and if not, why not? Here are some areas that could require further
consideration.
7. Short-term v. long-term –
Parliaments find themselves caught, like fire-fighters, in their
daily work on short-term “burning” issues, which prevents them from
devoting time to discussing (and delivering) a long-term vision
for the future of their countries and of Europe as a whole. Parliamentary
debates are, therefore, rarely held with a long-term perspective
and are mostly subject to electoral rationale.
8. Being reactive v. being proactive
– Parliaments often take action under pressure from public
opinion to respond to a given event or to a societal issue which
becomes “hot” and prominent in the political agenda. In this sense,
parliaments could be seen to be more reactive than proactive. Lack
of vision and strategy could be a consequence.
9. Comprehensiveness v. fragmentation of proposed legislation – Parliaments
are often invited to enact legislation which only covers narrow
areas. Such focused interventions can sometimes be necessary. However,
the risk is that this can eventually deliver patchwork legislation,
with no clear picture of the whole system and emerging trends that
are requiring integrated interventions. We must ask ourselves how parliaments
could make policies and legislation taking a more comprehensive
approach.
10. Lack of research facilities and
advisory services – Members of parliaments have scarce
research facilities, whilst governments have the support of specialised
administrative services and experts to carry out any research they
need. This may stifle the debate between the executive and parliament
when it comes to strategic decision-making and weaken parliaments’
role in policy design.
11. Parliaments can initiate changes and reshape national cultural
and educational policies. This requires a series of actions to be
taken, starting with the recognition of the need for a deeper reflection
on cultural and educational policies. Based on such a reflection,
parliaments should engage in a constructive debate on cultural and
educational policies, set new goals, rethink funding and resource
allocation, guide the reforms and assess their impact, whilst ensuring
the participation of major stakeholders, involving, in particular,
young people.
2.1 Engaging in a constructive
debate on cultural and educational policies
12. Culture and education are – and should be seen as
– essential for personal development and for full and active participation
in society. Culture and education sustain and develop our values
and our democratic systems, and the overall democratic culture without
which democratic institutions cannot function in practice.
Note Decision-makers
should, therefore, engage in a constructive debate on the related
policies.
13. First, culture and education are intertwined; therefore cultural
and education policies should be discussed and eventually devised
so as to reinforce each other’s impact. Culture and education are
also interconnected with – and influential on – a number of other
policy areas. For example, they can drive progress in youth and
social cohesion
Note policies,
are the backbone for research and (sustainable) development, and
can have an important impact in the spheres of health, social care
and environment protection.
14. Because of these interconnections, there is a need to assess
to what extent cultural and educational policies are contributing
to a cohesive society and achieve empowerment of the weakest or
whether they are inducing new divides and increasing the gap between
the privileged part of the society and marginalised groups.
Note
15. The models of governance in education and culture are changing
rapidly. In culture, in particular, the changes imply a growing
involvement of non-public actors,
Note including private sector and civil
society organisations
. This
has to be taken into account when education and cultural policies
are reviewed. Parliaments must therefore be able to engage in a
constructive dialogue with all stakeholders. Moreover, the ruling
majorities in parliaments must be capable of entering positive debates
and deciding which policies may be developed in a longer term perspective
and be enriched by taking in views from outside the majority party or
coalition.
16. Last but not least, it is necessary to ensure that cultural
and educational policies are adjusted to the new reality of our
multicultural societies and to the emergence of mixed cultures.
Culture and education can federate people and lead them towards
common goals. At the same time, however, we should also be aware
of tensions between cultures and counteract them. Greater attention
should be paid to the fact that many young people consider themselves
as belonging to multiple cultural backgrounds. This probably requires
new approaches in teaching and training for teachers, who must be
prepared to support the development of multiple facets of identity
in a context of mixed cultures.
2.2 Setting the goals
of cultural and educational policies
17. Sound goal setting requires that parliaments look
at the culture and education systems in their entirety. Concerning
education, in particular, it is necessary that strategic priorities
be set taking account of issues at stake at all levels of studies
from primary and secondary to vocational training and higher education
as well as lifelong learning.
Note Coherence
should be sought not only within the programmes of each level of
study, but also, of course, between the full range of knowledge,
know-how and skills that students are expected to acquire through
the entire education cycle. This was underscored in the European
Union’s “Rethinking Education” Strategy launched on 20 November
2012,
Note which our Assembly should welcome.
The Strategy calls for a fundamental shift in education, with more
focus on “learning outcomes” – the knowledge, skills and competences
Note that students acquire. It refers,
inter alia, to the investment needed
to build world-class vocational education and training systems and
increase levels of work-based learning.
18. This being said, we need to create learning opportunities
that give more than just employment-related skills. Martha Nussbaum,
in her book “Not For Profit: Why Democracy Needs the Humanities”,
pleads for the teaching of humanities, humanities being the basis
of democracy. Educational policy based essentially on the idea of
utility will not meet the needs of modern European societies: “Citizens
cannot relate well to the complex world around them by factual knowledge
and logic alone.” The design of educational policies – and the curriculum
– must, therefore, ensure balance in developing scientific and humanist
knowledge and skills. It should also seek to empower learners as
main actors in the process of realising their full potential.
19. Similarly, the design of cultural policies should also be
carried out in a holistic manner. As an example, when examining
the issue of access to culture and participation in cultural life,
there is a need to analyse and understand participation (who, why
and how) and non-participation (who and why not), factors which
hamper and marginalise and those which encourage and empower, quantitative
participation and qualitative participation and, all in all, not
only consider figures but the impact at the level of the individual
as well as the societal impact.
20. I would pinpoint the following as key challenges to consider
when developing a strategic vision of national cultural and educational
policies:
- countering inequalities
and marginalisation;
- fighting divisions which lead to intolerance and extremism;
- supporting sustainable socio-economic growth within a
globalised market economy and endangered environment.
21. I believe that these challenges cannot be faced effectively
without a comprehensive policy strategy, including:
- empowering people and removing
barriers in access to education and culture;
- reconciling identity and diversity in European societies;
- strengthening the ability to compete in a globalised market
economy through creativity and innovation;
- developing a participatory societal culture, active citizenship
and vibrant democracy.
2.3 Rethinking funding
and resource allocation
22. Cultural and educational policies require adequate
funding. Parliaments lay the foundations of sound policy implementation
by approving national budgets and reviewing budget allocations.
They should therefore explore ways and means of making better use
of available resources.
23. In this respect, the understanding of interconnections between
culture, education and other policy areas points to a first direction;
consideration should be given to strengthening synergies between
different sectors and to operating in a more collaborative way,
avoiding unnecessary competition between relevant public service
institutions (for example ministries).
24. Moreover, public authorities set the framework within which
funding is provided, also from non-public sources. Parliaments should
take note of this when considering other policies, such as, for
example, tax or sponsorship policies, or policies on private funding
of higher education institutions, where compliance with national
qualifications frameworks is an important criterion.
Note Parliaments should also
consider whether public funding should go in large part to areas
that are of value but attract little non-public funding or whether
it should complement private funding – or both. Finally, parliaments
should aim for sufficient public funding to be devoted to ensuring
equal opportunities and non-discrimination in both access to cultural
events as spectator and full participation as an artist/performer.
25. Policies as regards large-scale infrastructure should also
be reviewed. The question should be what new infrastructure we need
and where we most need it. But infrastructure is not only roads,
hospitals, energy plants, airports, etc. Infrastructure is also
cultural and educational institutions. How these institutions could
contribute to reducing regional disparities, helping development,
enhancing social cohesion and improving the quality of life, is
dependent on national circumstances.
26. The use of existing infrastructure should be reconsidered
in the light of the role it plays in giving people access to culture
and in fostering cultural expression, creativity and innovation.
As an example, today, about 90% of public budgets allocated to culture
Note are
spent maintaining large-scale infrastructure (operas, theatres, museums)
which is used by not more than 10% of the population. This is of
course a finding that should urge us to consider further how to
encourage access to cultural infrastructure for a greater number
of people, to rethink the relevance of these institutions for our
populations and to engage in a cultural democracy-driven policy
approach. Similarly, it might be useful to assess to what extent
higher education policies could strike a better balance between
the need to support centres of excellence (for example renowned
universities) and the need to avoid geographical polarisation in
education.
27. The availability of well-educated professionals in education
and culture is a further very important issue. Lifelong learning
opportunities must be created and professional training enhanced,
to ensure that all those working in the field of education and culture
are well equipped to apply modern, innovative approaches. E-education
and e-culture are evolving areas and require attention and support
in order to take full advantage of new information and communication
technologies.
2.4 Guiding systemic
reforms and assessing their impact
28. To bridge the gap between policy design and practice,
parliaments must guide systemic reforms and assess their impact,
as part of their scrutiny function. To enhance their capacity to
do this in the spheres of education and culture, parliaments could
call for the establishment of a parliamentary commissioner or an ombudsman
to support access to – and effective enjoyment of – cultural and
educational rights.
Note As a first step, the competencies of
the national ombudsman should be extended, ensuring that he or she
is also in charge of cultural and educational rights.
29. Parliaments could also set up specific procedures to see what
follow-up was given to “soft law” instruments, including the Council
of Europe Committee of Ministers recommendations to member States
and the Parliamentary Assembly resolutions and recommendations in
the fields of culture and education. Indeed, it is not enough to
adopt recommendations and resolutions. Proper follow-up should be
given to these texts not only by the Committee of Ministers, but
also by our national authorities, including parliaments.
30. The Council of Europe has developed excellent policy instruments,
but not all of them are fully implemented. This is certainly a challenging
task, but it is exactly the reason why national parliaments should be
called upon to do that. Each parliament could establish a checklist
and set up a road map for the implementation of policy instruments
agreed upon at the level of the Council of Europe. Parliaments could
in this way analyse governments’ policies to see whether they are
in line with the Council of Europe instruments.
2.5 Being proactive
and seeking to ensure a participatory reform process
31. Parliamentarians’ advocacy and mobilisation role
should not be overlooked when major reforms in education and culture
are at stake. They should maintain close contacts with society at
large, but also with people in their constituencies. They should
be responsive to their electorate and pay attention to citizens’
needs and be proactive in campaigning for the reforms envisaged:
convey proper information to local communities about the issues
at stake, raise their awareness about why reforms are needed, trigger
citizens’ involvement in public debate, relay their expectations
to national and European assemblies, and mobilise community support
when it comes to reform implementation.
32. The involvement of young people in the reform processes at
national level should be appreciated and encouraged. As the Assembly
stressed in its
Recommendation
1978 (2011) “Towards a European framework convention on youth rights”,
“national parliaments of member States have an essential responsibility”
in this regard. The Assembly called on them, in particular, to “promote
the participation of young people in democratic processes and in
real decision making, especially by offering opportunities for dialogue
between the national representatives of youth associations and the
relevant parliamentary committees, and by encouraging the establishment
of youth parliaments” (paragraph 8.2).
3 The European dimension
of cultural and educational policies
33. The parliamentary mechanisms that are in place in
the European Union and at the Council of Europe can help ensure
progress in the spheres of cultural and educational policies.
3.1 European Union
competence in the fields of culture and education – the legal basis
34. This section refers to the main provisions on European
Union action in the fields of culture and education which appear
in the consolidated versions of the Treaty on European Union (TEU)
and the Treaty on the Functioning of the European Union (TFEU) which
follow the Lisbon Treaty (2009).
Note The
Maastricht Treaty (1992) had already established the legal basis
for the actions of the European Community in the policy areas of
education and culture.
Note However, the Lisbon Treaty
better clarifies the extent and nature of European Union competence
in these two fields, which is subsidiary to the competences of member
States.
35. Article 2.5 of the TFEU provides that: “In certain areas …,
the Union shall have competence to carry out actions to support,
coordinate or supplement the actions of the Member States, without
thereby superseding their competence in these areas.” Article 6
of the TFEU lists these areas including, among others, culture (6.c) and education (6.e, which also mentions vocational
training, youth and sport). Article 165.1 of the TFEU spells out
the scope of European Union intervention in the field of education
as follows: “The Union shall contribute to the development of quality
education by encouraging cooperation between Member States and,
if necessary, by supporting and supplementing 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. …”
36. Article 165.2 of the TFEU contains a list of concrete objectives
aimed, inter alia, at “developing
the European dimension in education ... developing exchanges of
information and experience on issues common to the education systems
of the Member States ... encouraging the participation of young
people in democratic life in Europe, ...”.
37. Similarly, in the field of culture, Article 167.1 of the TFEU
provides that: “The Union shall contribute to the flowering of the
cultures of the Member States, while respecting their national and
regional diversity and at the same time bringing the common cultural
heritage to the fore.” And Article 167.2 specifies that: “Action
by the Union shall be aimed at encouraging cooperation between Member
States and, if necessary, supporting and supplementing their action”
in targeted areas.
Note In addition, Article 167.4 states that:
“The Union shall take cultural aspects into account in its action
under other provisions of the Treaties, in particular in order to
respect and to promote the diversity of its cultures.”
38. The wording of the above-mentioned provisions of the TFEU
– and namely the use of terms such as “if necessary”, “support”,
“co-ordinate”, “supplement”, “encourage” or “contribute” – does
not leave any doubt about the subsidiary nature of European Union
competence in the policy areas of education and culture.
39. These provisions should also be seen in conjunction with the
general provision concerning the principle of “subsidiarity” that
the Lisbon Treaty incorporated into Article 5.3, first sentence,
of the TEU: “Under the principle of subsidiarity, in areas which
do not fall within its exclusive competence, the Union shall act
only if and in so far as the objectives of the proposed action cannot
be sufficiently achieved by the Member States …, but can rather,
by reason of the scale or effects of the proposed action, be better
achieved at Union level …” Article 5.4 introduces a further limit
to EU action: “Under the principle of proportionality, the content
and form of Union action shall not exceed what is necessary to achieve
the objectives of the Treaties.”
40. In simple words, these provisions seek to exclude European
Union intervention when an issue can be regulated effectively by
member States (namely by public authorities at central, regional
or local level) and to empower the European Union when member States
(alone) appear unable to achieve adequately the objectives of the
Treaties. It is clear, therefore, that EU action in the spheres
of culture and education is not to replace but to accompany and
sustain national cultural and educational policies, fostering synergies
and upholding the European dimension of these policies, insofar
as this is required to reach Treaty objectives.
3.2 The role of national
parliaments in the European Union legal framework
41. The Lisbon Treaty highlights the role that national
parliaments (may) play within the EU framework. Article 12 of the
TEU explicitly acknowledges that “[n]ational Parliaments contribute
actively to the good functioning of the Union” in different ways.
I would mention three of them listed in the same article:
“a) through being informed by the
institutions of the Union and having draft legislative acts of the
Union forwarded to them in accordance with the Protocol on the role
of national Parliaments in the European Union; b) by seeing to it
that the principle of subsidiarity is respected in accordance with
the procedures provided for in the Protocol on the application of
the principles of subsidiarity and proportionality; … f) by taking
part in the inter-parliamentary cooperation between national Parliaments
and with the European Parliament, in accordance with the Protocol
on the role of national Parliaments in the European Union.”
42. These general provisions are most relevant to the
two policy areas subject of the present report (culture and education)
and probably more relevant for these areas than others, as the Lisbon
Treaty, by formally limiting the competence of the European Union
in the fields of culture and education to actions designed to encourage,
support and supplement its member States’ actions, recognises the
main role of national parliaments as policy and legislation makers
in these two fields. National parliaments are well armed to safeguard
the national competence in the fields of culture and education:
they are entitled – and they have the responsibility – to do so.
43. But the question is not only for each national parliament
to protect the national interests of its own country and its own
sphere of competence; it is also – and, I would suggest, should
mainly be – how to make proper use of this competence in a synergic
way, how to work within the EU framework in order to guide cultural and
educational policy at national and European level. This is why I
value the reference in Article 12.f of
the TEU to inter-parliamentary co-operation and believe that a lot
more could be done to improve such co-operation in the fields of
culture and education.
3.3 Promotion of cultural
and educational policies by national parliaments in the Council
of Europe framework
44. Cultural and educational policies within the Council
of Europe are based on a series of shared foundations: the promotion
of human rights, democratic citizenship and positive attitudes towards
dialogue and inclusive societies.
45. For European societies to evolve, people should be able to
build respectful relationships with each other. Instead, certain
components of our societies show a tendency to reject those that
are seen as “different” and as a result of this, we are not taking
full advantage of the richness of diversity because of mistrust
between those belonging to different cultures.
46. Educational and cultural policies can help change this and
have a positive influence on the process of building a more cohesive
society. We need to intensify our joint efforts within the Council
of Europe framework and develop further, together, the programmes
which are aimed at providing our peoples with what they need to
enter into constructive “intercultural dialogue” – namely an open
and respectful exchange of views between individuals, groups with
different ethnic, cultural, religious and linguistic backgrounds
and heritage on the basis of mutual understanding and respect.
Note National parliaments should
be more supportive in encouraging such development.
47. Dialogue can only exist and be effective when there is a real
desire and the capability to engage in it. Sharing the universal
values upheld by the Council of Europe is a precondition for this.
“No true dialogue can take place when recognition of the equal dignity
of all human beings and respect for human rights, the rule of law
and democratic principles are lacking”.
Note
48. However, one should also attempt to reach out to those who
do not share our values – or, to say the least – do not share our
political views. The power of dialogue for bridging differences
should not be underestimated. International conferences bringing
together Council of Europe member States and countries that are
not members of the Organisation including, in particular, Muslim
countries should be held on a regular basis (for example the 2008
conference of Ministers of Culture held in Baku (Azerbaijan)).
49. Education for democratic citizenship helps develop competences
for engaging actively in social and political life; but this does
not necessarily exclude an engagement which only aims at promoting
one’s own point of view. Human rights education can bring an understanding
of fundamental rights; but this does not necessarily imply that
they are recognised in practice. The right environment for living
together in dignity is there only when people “want to respect”
the rights of others, and this can only be achieved if the respect
of dignity and human rights of others is linked to personal values
and convictions.
50. Acceptance of diversity does not happen by itself. It requires
active engagement, which can only happen if there is a will to engage.
Looking with indifference at one’s own life, as a passive witness
of one’s own destiny and that of other people, prevents dialogue.
As Václav Havel wrote, “[t]he tragedy of modern man is not that he
knows less and less about the meaning of his own life, but that
it bothers him less and less”.
Note The first
step towards ensuring that people start to care about – and engage
with – others is through an early development of emphatic skills
in individuals. Developing abilities such as empathy will help “forge
bonds of solidarity … so that society can cohere as a whole”.
Note
51. Education and culture must play an important role in developing
positive attitudes and abilities such as empathy. Our societies
need open-minded people with a strong attachment to democratic values
and human rights, ready to interact in a constructive manner and
to accept the challenge of different opinions, able to perform critical
judgment and to value what can bring people together instead of
insisting on what may engender divisions. These basic skills, which
are transmitted through education and culture, will help face the social,
cultural, economic and environmental challenges of the 21st century.
3.3.1 Educational policies
aimed at living together in dignity
52. The Council of Europe “White Paper on Intercultural
Dialogue – Living together as equals in dignity” insists on the
crucial importance of intercultural competences for democratic culture
and social cohesion. Diversity of cultures should be considered
when designing education policies. On the one hand, education should
respond to the needs of members of different communities to see
their culture acknowledged and respected in education processes.
On the other hand, education should help people from various cultural backgrounds
express their views and participate as responsible citizens in the
life of society.
53. Intercultural dialogue must be practised for it to become
part of everyday life. Our education policies should reinforce existing
opportunities for intercultural dialogue and help develop new ones
to ensure such practice: from school and family-based exchanges
to the workplace, where teams are composed of people from various
cultural backgrounds, or sport, where playing together becomes an
intercultural experience.
54. “The competences necessary for intercultural dialogue are
not automatically acquired: they need to be learned, practised and
maintained throughout life”;
Note the
White Paper therefore recommends that they be a part of citizenship
and human rights education and of teacher training
.
55. The learning and practice of intercultural dialogue should
be part of the Council of Europe’s Pestalozzi Programme,
Note which is a training and capacity-building
programme for education professionals. The programme aims to support
member States in the move from education policy to education practice
in line with Council of Europe values. The Pestalozzi Programme
can help education professionals acquire competences for engaging
in intercultural dialogue and for facilitating the development of
such competences in their students.
56. Progress in acquiring specific competences for intercultural
dialogue should be monitored; this requires the development of specific
competence descriptors: “Competent public authorities and education
institutions should make full use of descriptors of key competences
for intercultural communication in designing and implementing curricula
and study programmes at all levels of education, including teacher
training and adult education programmes.”
Note
57. The Secretary General of the Council of Europe proposed that
the Organisation begin working on a European framework of competences
for education for democratic citizenship, human rights and intercultural understanding,
Note building on, and developing,
the work already done in the Organisation in this field. This proposal
should be welcomed. The European framework would assist educators
in their assessment of competences and in structuring educational
activities to ensure greater progress in learning. Based on this framework,
member States could review the content of national curricula and
consider devising a common European curriculum for primary and secondary
education in this area.
3.3.2 Cultural policies
aimed at living together in dignity
58. In the report on “The right of everyone to take part
in cultural life”,
Note we
stated that “the dignity and intimacy of all individual human beings
in their freedom of expression and freedom to develop their identities are
expressed via cultural constructions” and that “the cultural field
provides meaning for the prevailing social and political fabric
but also determines man’s place in the world” (paragraph 35). Culture
is therefore the essence of what we are as individuals and as societies.
59. Culture makes us different from one another;
Note but
it is also what binds us, a vehicle of values that bring people
closer together. It is most often through culture that we engage
in a dialogue in the first place. Cultural activities can provide
knowledge of diverse cultural expressions and so contribute to mutual
understanding and respect.
Note Creative
citizens, engaged in cultural activity, produce new spaces and potential
for dialogue. Music, art and dance can also be powerful tools for
intercultural education and enjoyment of different expressions of creativity
should be incorporated into learning about one another.
60. The Council of Europe CultureWatchEurope conference 2011 on
“Cultural Governance: from challenges to changes”, organised in
co-operation with the Slovenian Ministry of Culture, endorsed six
fundamental principles that must govern cultural policy design and
implementation. Four of these are of particular relevance to the
debate on intercultural dialogue: culture defending fundamental
human rights and democracy; support to creative and imaginative
work; freedom of cultural expression and circulation of works of
art; and support to artists and cultural actors.
Note
61. The exchange of good practices and review of policies in Council
of Europe member States provides an excellent basis for progress
in these areas. A powerful tool is the Compendium of Cultural Policies
and Trends. It addresses issues of priority and current challenges
to policy concerning: cultural rights and ethics; cultural diversity;
intercultural dialogue; the role of different partners in a changing
system of governance; support for creativity; participation in cultural
life; economic, legal and educational dimensions of cultural policies;
and international cultural co-operation.
Note
62. The Compendium is a web-based permanently updated information
and monitoring system on cultural policies in Europe. New data and
indicators are constantly introduced to monitor policy developments, standards
and trends. Country profiles are researched and written by national
experts, including chapters on general objectives and principles
of cultural policy, on decision-making and administration, on current
issues in cultural policy development and debate, on main legal
provisions in the cultural field, on financing of culture, on public
institutions and cultural infrastructures, and on specific policies
promoting creativity and participation.
63. The Council of Europe’s Intercultural Cities Index
Note is an additional tool that can
assist members of national parliaments in making informed choices
as regards educational and cultural policies. The Intercultural Cities
Index is a benchmark for diversity policies at local level, which
can be adapted to evaluate the diversity policies at national level.
64. National parliaments should take advantage of the tools available
at European level, such as the Council of Europe Compendium of Cultural
Policies and Trends in Europe and the Intercultural Cities Index
in their policy work in the field of culture. This Compendium may
give ideas for actions that can be taken to develop cultural policies
aimed at living together in dignity. It can also highlight areas
where more needs to be done. For example, the analysis of policy
priorities shows that only a few countries reported intercultural
dialogue being a national policy priority in culture.
Note Specific actions by national parliaments
can help review policy priorities to bring intercultural dialogue
to the fore.
65. Interreligious dialogue is a constituent part of intercultural
dialogue: our policies should also take account of the need to encourage
religious communities to engage actively in promoting human rights,
democracy and the rule of law in a multicultural Europe.
Note In
my report on “The religious dimension of intercultural dialogue” (
Doc. 12553), which led to the adoption by the Assembly of
Recommendation 1962 (2011), I stressed that it is indispensable that people of
all beliefs and world views, religious or otherwise, accept to intensify
dialogue based on the common assertion of equal dignity for all
and a wholehearted commitment to democratic principles and human
rights. These are two crucial conditions for developing a new culture
of living together
.
66. The Assembly called for a series of specific actions. It recommended,
for instance, that “the public authorities at local and national
levels facilitate encounters organised in the framework of inter-religious dialogue
and encourage and support projects jointly conducted by several
communities, including humanist and non-religious associations,
that seek to consolidate social bonds …”
Note In addition, the Assembly recommended
that “States and religious communities review together, on the basis
of the guidelines provided by the Council of Europe, the questions
regarding teaching on religions, denominational education, and training of
teachers and of religious ministers or those with religious responsibilities,
according to a holistic approach”.
Note The
Assembly invited States “to commit the resources required so that
statements lead to achievements on the ground”.
Note We
should follow this up in national parliaments, starting by drawing
up a checklist to get an overview of the actions taken to enhance
intercultural dialogue and to plan future action.
67. Parliaments should create an institutional and legal framework
that offers all necessary conditions for cultural democracy and
intercultural dialogue. This includes, of course, fully fledged
non-discrimination legislation and the establishment of independent
bodies entrusted to scrutinise its effective implementation, but should
also comprise a well-established democratic culture within the whole
range of public authorities and administrations (in particular,
but not only, those acting in the fields of culture and education).
These should respect neutrality when cultural and religious matters
are at stake, and at the same time should be sensitive and responsive
to the expectations of a culturally diverse population.
68. To conclude, I would like to stress that national parliaments
must play an essential role in shaping future cultural and educational
policies and in ensuring acceptance of political decisions in these
areas.
3.4 The specific role
of the Parliamentary Assembly of the Council of Europe
69. The Parliamentary Assembly plays a key role both
in promoting cultural and educational policies that reflect the
values the Council of Europe stands for and by delivering policy
guidance on how to deal with burning issues in these fields through
enhanced national legislation.
70. As members of the Parliamentary Assembly, we have a duty to
raise awareness in our respective national parliaments of the importance
of education and culture, including by disseminating information
on Council of Europe activities. We have to ensure visibility in
our countries of our joint work as a pan-European parliamentary
body. In addition, there is a range of actions that our Assembly
could implement to support the development of cultural and educational
policies:
- offer advisory services
to national parliaments and their committees, inter
alia based on the results of governmental and parliamentary
monitoring exercises;
- raise awareness about the Council of Europe’s policies
and initiatives, describing them in terms that will more easily
be understood and accepted by national parliaments;
- facilitate exchanges of experience between national parliaments’
education and culture committees;
- organise briefing sessions (seminars, round tables, lectures,
etc.) for members of parliaments, committee staff and other parliamentary
officials (including staff of the parliamentary political groups);
- help build parliamentary documentation and research facilities
in the context of capacity building for parliaments, fostering the
free flow of information, knowledge and data, using relevant existing
Council of Europe information tools and sources.
71. The Parliamentary Assembly should encourage collaborative
project design between the intergovernmental sector of the Council
of Europe and the European Commission. Bearing in mind that, following
Articles 165.3 and 167.3 of the TFEU, the European Union and its
member States shall foster co-operation with the Council of Europe
in the spheres of culture and education, the Council of Europe should
be proactive in reinforcing such co-operation.
72. The Assembly should welcome the existing joint programmes
in these areas, ranging from country-specific
Note and
regional
Note to
thematically-focused pan-European programmes;
Note and it should call
for the development of a new pan-European programme aimed at putting
into practice the recommendations of the White Paper on Intercultural
Dialogue “Living together as equals in dignity” and of Assembly
Recommendation 1975 (2011) “Living together in 21st-century Europe: follow-up to
the report of the Group of Eminent Persons of the Council of Europe”.
Moreover, country-specific programmes on democratic citizenship
and human rights education, similar to the one targeted to Turkey,
could be envisaged for other countries in Europe and, possibly, beyond.
73. The Assembly should also seek closer contacts and joint work
with the European Parliament in these fields. I
believe the Assembly is well placed to become the hub of European
inter-parliamentary co-operation in the fields of culture and education.
74. Finally, debates and informal co-ordination of national educational
and cultural policies must be strengthened within the Parliamentary
Assembly.
4 Conclusions:
Towards enhanced cultural and educational policies in Europe
4.1 Promoting policies
for culture and education that foster democratic citizenship and intercultural
dialogue
75. Cultural and educational policies are fundamental
to sustaining our common core values – human rights, democracy and
the rule of law – and are pivotal to a cohesive society where people
live together in dignity. Education and culture are the foundations
of citizens’ empowerment.
76. Policy making in the field of culture and education should
be designed to:
- ensure adequate
education opportunities for all and actively promote participation
in cultural life;
- develop deeply rooted attachment to democratic values
and human rights and people’s ability to make choices in a responsible
and critical manner;
- value inter-culturality and uphold a positive attitude
towards diversity, thus reinforcing the opportunities for intercultural
dialogue and encouraging cultural and educational exchanges across
borders, removing administrative barriers to such exchanges;
- promote (individual and collective) creativity and innovation,
and awake consciousness on the need for sustainable use of resources
in the framework of our global economies.
77. In this perspective, programmes and projects aimed at promoting
democratic culture, intercultural dialogue and education for human
rights and democratic citizenship should continue to receive our
support and be part of the Council of Europe’s priorities. In particular,
parliaments could invite governments to report on actions taken
to implement the White Paper on Intercultural Dialogue “Living together
as equals in dignity” (2008), launched by the Council of Europe
Ministers of Foreign Affairs at their 118th Ministerial Session,
and of Assembly
Recommendation
1975 (2011) “Living together in 21st-century Europe: follow-up to
the report of the Group of Eminent Persons of the Council of Europe”.
78. Furthermore, the Assembly should welcome the proposal by the
Secretary General of the Council of Europe to initiate work on a
European framework of competences for democratic citizenship, human
rights and intercultural understanding and should suggest making
it part of the Organisation’s Programme of Activities for the next
biennium.
79. Parliaments should take advantage of the tools available at
European level, such as the Council of Europe Compendium of Cultural
Policies and Trends in Europe and the Intercultural Cities Index,
in their policy work, and in particular in the setting of cultural
policies and strategies aimed at living together in dignity.
80. Particular attention should be paid to introducing intercultural
learning and practice in the initial and in-service training of
teachers and educators, and as part of the Council of Europe in-service
training programmes for teachers, such as the Pestalozzi Programme.
4.2 Enhancing the role
of national parliaments and of the Parliamentary Assembly in setting policies
for education and culture
81. National parliaments should reaffirm their attachment
to culture and education as essential pillars of our democratic
systems. They should re-engage in a broad debate on these policies
and encourage people’s participation in the debate and the involvement
of the relevant stakeholders in policy reforms. Policy making in the
fields of culture and education should better combine the need to
provide adequate responses to short-term needs and a long-term perspective:
parliaments should provide vision and a coherent strategy. The proposed legislation
should be more comprehensive, based on a holistic approach which
pays due attention to multiple challenges and to the global context.
82. Parliaments should also be better equipped to exercise their
oversight function, inter alia by
being adequately informed by governments and by keeping close contacts
with relevant stakeholders in the field of culture and education,
and in particular with civil society organisations.
83. Parliaments should reinforce inter-parliamentary co-operation
at regional and European levels, as well as co-operation between
national parliaments, on the one hand, and the European Parliament
(as regards the European Union member States) and the Parliamentary
Assembly of the Council of Europe, on the other.
84. National delegations to the Parliamentary Assembly should
be encouraged to set up, in their respective parliaments, the arrangements
necessary to ensure proper information of the relevant parliamentary committees
on Council of Europe activities in the field of education and culture.
They could establish a checklist and set up a roadmap for the implementation
of policy instruments agreed upon at the level of the Council of Europe.
85. Our Assembly should create new opportunities for dialogue
with national parliaments (their relevant committees), seeking to
uphold the role of national parliaments as policy makers in the
areas of culture and education and to increase the visibility of
Assembly and Council of Europe work and its impact on national policy
making. In addition to the Council of Europe relevant conventions,
Note the Appendix to this memorandum lists
a selection of texts adopted by our Assembly in recent years and
of other Council of Europe instruments. We should seek to make these
texts and instruments better known and encourage national parliaments
to make better use of them.
86. Finally, the Assembly should also strive to strengthen co-operation
with the European Parliament in the fields of education and culture,
involving relevant committees, and, where appropriate, develop joint
actions at European level, strengthening the European dimension
of cultural and educational policies.
