Resolution on Increasing Access to Higher Education
1.
Making sure everyone can enter and complete higher education, as always, remains one of the priorities of the student movement. Since the COVID pandemic and the start of the war in Ukraine, and more recently with the war in Iran, the costs of living have continued to increase all across Europe. In addition, in recent years, the housing crisis’s impact on students has continued to increase. For ESU, it’s important that 7 the European Union tackles these issues and makes Higher Education more accessible.
For ESU, the deliverable in the Union of Skills (1) on increasing access to higher education is a commitment to put concrete actions in place to support EU citizens in accessing higher education. For ESU, this deliverable must reflect the ambitions of the student movement and really support people in accessing and completing higher education.
Building on the Principles and Guidelines to Strengthen the Social Dimension of Higher Education in the EHEA (2). The EU, the Member States and Higher Education Institutions are responsible for improving the conditions of students in Europe.
For this, in March 2026, during its 51st European Student Convention, ESU gathered with its membership to discuss and exchange on challenges and solutions to increase access to higher education. This document is the conclusion of these discussions.
2.
a. Pillar I – Cross-Cutting Barriers
Main Barriers:
Access to and success in higher education are shaped by structural inequalities that disproportionately affect students from disadvantaged and underrepresented backgrounds. Students from lower socioeconomic backgrounds, first-generation students, racialised and ethnic minority groups, LGBTQIA+ students, migrants, refugees, Students with caring responsibilities, international students, students with disabilities, commuting students and other students facing structural barriers often face intersecting forms of discrimination and exclusion that impact both their ability to enter higher education and to successfully remain and complete their studies.
These inequalities are reinforced by institutional, administrative, social and economic barriers. Complex bureaucratic procedures, fragmented support systems and inaccessible administrative requirements disproportionately disadvantage students with less institutional familiarity or access to guidance. At the same time, many students experience social and cultural exclusion within higher education environments, including stigma, low academic socialisation and a lack of representation and belonging.
Housing insecurity and financial precarity are also major cross-cutting barriers to equitable participation in higher education. Rising living costs, lack of affordable and quality student accommodation, dependence on family support and insufficient public funding force many students into precarious living conditions or excessive paid work alongside their studies. These challenges particularly affect students facing multiple and intersecting forms of disadvantage, undermining both access to higher education and students’ capacity to succeed within it.
b. Pillar II – Entry in Higher Education
Main Barriers:
Entry into higher education is shaped by unequal access to information, financial resources, preparatory opportunities and fair admission systems. Many students continue to face barriers before they can access higher education, particularly students from lower socioeconomic backgrounds, minority groups, students with disabilities, refugees, migrants, mature students, students with caring responsibilities, and students following non-traditional educational pathways.
The costs associated with entering higher education represent a major obstacle for many students. Beyond tuition fees, students face substantial overt costs, including rent, transport, food, healthcare, academic materials, digital equipment, visa expenses and other essential living costs. In addition, costs such as unpaid preparatory courses, tutoring, relocation expenses, caregiving responsibilities, childcare, social integration costs and the financial burden of adapting to new environments create even more inequalities in access. These barriers particularly disadvantage students without family financial support or existing familiarity with higher education systems.
Access inequalities are further reinforced through rigid and exclusionary admission systems. Overly complex procedures, in-person examinations, language barriers, fragmented information systems and bureaucratic requirements disproportionately disadvantage students from marginalised groups, international students and those with non-traditional educational pathways. Existing admission models often reward access to private tutoring, financial resources and institutional familiarity rather than students’ motivation or potential.
Educational inequality begins long before students apply to higher education. Unequal access to quality secondary education, limited outreach and guidance systems and inflexible transitions between vocational education and training (VET), lifelong learning pathways and higher education contribute to the reproduction of social inequalities. Fragmented recognition systems between countries and institutions further create barriers for students seeking cross-border mobility or recognition of prior learning, vocational qualifications and alternative learning pathways.
c. Pilar III – Retention and completion in Higher Education
Main Barriers:
Retention and completion in higher education remain deeply shaped by structural inequalities that disproportionately affect students from underrepresented and marginalised backgrounds. While entering higher education is the first barrier to cross, access alone is insufficient if students are not adequately supported throughout their studies.
Financial hardship remains one of the main barriers to student retention. Rising living costs, tuition fees, housing expenses, material costs and debt anxiety force many students to prioritise economic survival over academic engagement, negatively affecting wellbeing, concentration, attendance and overall capacity to succeed in their studies. Overt study costs such as tuition fees and administrative fees necessary to enter and continue higher education incongruously hinder students’ participation, creating additional financial strain and consequently impoverishing students in already precarious situations and ridding them of fulfilling their basic needs (such as hygiene, food or transport).
Many students are compelled to work alongside their studies because public support systems fail to cover the real cost of living, creating a harmful “work-study paradox”. Paid work should be a voluntary opportunity for professional development or additional income, not a condition for educational participation. Mandatory unpaid internships and placements further exclude students who cannot afford unpaid labour. Doctoral students are particularly affected due to poor stipends, excessive workloads and insufficient employment rights in some countries.
Students with care responsibilities face additional barriers to persistence in higher education. Many students must balance their studies with paid work to support dependents, while insufficient care infrastructure and inflexible study structures make participation more difficult. Financial dependency on parents also remains a major issue. Estranged students are particularly disadvantaged when access to public financial support is assessed based on parental income, despite the absence of actual parental support, leaving many without sufficient means to continue their studies.
Social and psychosocial barriers, including isolation, lack of peer support, exclusionary campus cultures, lack of purpose student spaces, gendered expectations and difficulties adapting to academic environments, can also weaken students’ sense of belonging and therefore increase the risk of withdrawal. Mental health issues, including anxiety, depression, stress and burnout, significantly affect students’ ability to engage with their studies.
Accessibility barriers continue to systematically exclude many students, particularly neurodivergent students and students with disabilities or chronic health conditions. Inaccessible campuses, poorly designed or uninclusive digital systems, insufficient flexibility, rigid teaching methods, assessment formats and attendance policies that fail to accommodate different ways of learning create unnecessary obstacles to participation. Many students are required to repeatedly prove their support needs through burdensome administrative procedures, leading to exhaustion, frustration and marginalisation.
Institutional and bureaucratic barriers further contribute to non-completion. Rigid academic timetables, inflexible progression requirements, lack of effective mentoring and insufficient academic guidance can leave students unsupported and overwhelmed. Where studies do not align with students’ interests or aspirations, the lack of opportunities for flexible transitions or academic reorientation hinders students from staying in higher education altogether. Punitive financial policies, such as significantly increased fees for repeated years or failed credits, create additional pressure and discourage students from continuing their studies after setbacks.
Addressing retention and completion, therefore, requires a holistic approach that includes adequate financial support, accessible and inclusive learning environments, flexible study pathways and strong support systems to ensure all students can succeed in higher education.
d. Proposed Actions
EU-Level Actions
Student Housing Pillar I – Cross-Cutting Barriers (In line with: “European Affordable Housing Plan (2024)”) (Following the principles of: “European Parliament resolution of 21 January 2021 on access to decent and affordable housing for all (2019/2187(INI))”) Recognise students as a priority group in areas experiencing housing stress; Address student needs in the Affordable Housing Act; Ensure that the consequences of short-term rentals affecting students are mentioned in the regulation on short-term rentals, and solutions are presented; Establish an EU-standardised guarantor model to eliminate upfront housing costs for students, particularly low-income and international students. Access to Student Support Services Pillar I – Cross-Cutting Principles Establish a Council recommendation on Student Support Service, to ensure an equal definition of what a student support service is, ensure equal access to support services and ensure comparability between support services systems. EU Mental Health Quality Label & promoting student wellbeing, accessibility and inclusive learning environments Pillar I – Cross-Cutting Principles Pillar III – Retention & Completion in Higher Education (Building on: “European Commission’s Communication on a Comprehensive Approach to Mental Health (COM(2023) 298)”) (As mandated by: “EU AI Act (Regulation (EU) 2024/1689), Article 86”) Introduce EU-wide standards for student mental health support, including accessible counselling services, crisis support and preventative measures; Link compliance with mental health standards to eligibility for EU education funding programmes; Promote accessible and student-centred mental health support systems within
HEIs; Provide legal rights for students participating in mobility programmes to access mental health support in their native language through EU-funded tele-health platforms; Enforce the “Right to Explanation” under the EU AI Act to protect students from biased AI proctoring systems or algorithmic failures that may contribute to dropout. Inclusive Learning Environments / Anti-racism and Inclusion in Higher Education Pillar I – Cross-Cutting Principles Pillar III – Retention & Completion in Higher Education (In line with: “A Union of equality: EU anti-racism action plan 2020-2025”) Integrate anti-racism and inclusion indicators into European Education Area monitoring frameworks; Require institutions participating in Erasmus+ and Horizon Europe to adopt institutional anti-racism and inclusion strategies as a condition for participation in EU programmes; Develop measurable criteria within existing EU diversity and inclusion frameworks to incentivise institutions to improve access, representation, reporting mechanisms and inclusive governance; Support the systematic integration of anti-racism, equality and inclusion education across higher education curricula through EU-level guidelines and monitoring mechanisms to empower institutions, governments and student unions to record and track discrete incidences of racially motivated attacks, and to develop evidence-backed policy; Include higher education specific indicators in EU monitoring tools to track inequalities in access, participation, completion and living conditions; Promote inclusive curricula, which incorporate diverse viewpoints and experiences, with efforts being made to decolonise existing curricula. Ensure adequate representation and staff training on anti-discrimination, unconscious bias, accessibility and inclusive teaching practices; Support mentoring, outreach programmes, and peer-support systems for underrepresented students. Recognition and Flexible Learning Pathways Pillar I – Cross-Cutting Principles Pillar II – Entry in Higher Education Pillar III – Retention & Completion in Higher Education (Following the principles of: “Council Recommendation on promoting automatic mutual recognition (2018/C 444/01)”) Promote recognition of prior learning, non-formal and informal learning experiences to support lifelong learning and continuation of studies; Strengthen automatic recognition mechanisms for qualifications, joint degrees, microcredentials and vocational education pathways across Europe; Facilitate cross-border mobility and transitions between vocational education, lifelong learning and higher education systems. Outreach and Equal Opportunity Measures Pillar II – Entry in Higher Education Develop a centralised, multilingual European platform containing accessible information on study programmes, admission requirements, financial support, accommodation and student services across Europe; Promote harmonised and transparent admission guidelines aligned with the principles of the European Higher Education Area and the ECTS system; Ensure accessible and inclusive digital admission systems, including multilingual information and accessible formats; Create EU-wide initiatives that strengthen outreach, counselling, and information-sharing for prospective students from underrepresented groups; Promote cooperation between secondary education institutions, vocational education providers and higher education institutions to strengthen transition pathways. Establish flexible learning pathways to support progression and re-entry Pillar III – Retention & Completion in Higher Education (As established in: “Council Recommendation on a European approach to micro- credentials (2022)”, Point 11(c)) Develop policies enabling transitions between vocational education and training, secondary, tertiary and adult education through microcredentials; Support the development of flexible and inclusive entry routes into higher education, including recognition of prior learning and non traditional educational backgrounds; Promote flexible study progression systems allowing students to adapt study pace according to personal circumstances, including illness, disability, care responsibilities, and financial hardship; Track progression and re-entry rates through national and EU monitoring frameworks. Inclusive and Fair Mobility Frameworks Pillar II – Entry in Higher Education Pillar III – Retention & Completion in Higher Education Simplify visa and administrative procedures for international students and researchers entering the EU and renewing their visa; Reduce financial and bureaucratic barriers related to mobility, migration and recognition procedures; Promote affordable and sustainable transportation infrastructure supporting student mobility between Member States; Standardise automatic Erasmus+ “Inclusion Top-Up” grant increases triggered through socioeconomic data verified on the European Student Card (ESC). Implement student-centred and experiential learning approaches Pillar III – Retention & Completion in Higher Education (As established in: “Council Recommendation on learning for the green transition and sustainable development (2022)”, Point 5(e)) Integrate development of critical thinking, problem-solving, and collaboration skills into curricula; Support student engagement in real-world societal challenges to increase motivation and persistence; Promote student-centered pedagogical approaches, including co-created learning environments and flexible assessment methods; Measure through learning outcomes, engagement surveys and completion rates. Set and monitor EU-level targets for reducing early leaving and improving completion Pillar III – Retention & Completion in Higher Education (As established in: “Council Resolution on a strategic framework for European cooperation in education and training (2021–2030)”, Annex II & Point 7) Implement EU-level targets to reduce early leaving from education and training (below 9% by 2030) and increase tertiary attainment (at least 45%) Require Member States to align national targets with EU benchmarks and report progress through existing monitoring tools (e.g. Education and Training Monitor, European Semester) Use comparable EU data (Eurostat, surveys) to track retention and completion trends Develop national strategies to support the successful completion of education pathways Pillar III – Retention & Completion in Higher Education Require Member States to implement “student success strategies” aimed at reducing drop-out and supporting completion Promote whole-institution and learner-centred approaches to support student progression Monitor effectiveness through completion rates and reduction of early drop outs; Promote fair study conditions and reduce financial barriers Pillar III – Retention & Completion in Higher Education (Following the principles of: “European Parliament resolution of 14 June 2023 on quality traineeships in the EU (2020/2005(INL))”) (As mandated by: “Council Recommendation on individual learning accounts (2022/C 243/03)”) Fully deploy Individual Learning Accounts (ILAs) that provide students with direct training credits and reduce the burden of covert study costs; Promote grant and scholarship systems aligned with the real costs of living and adequately accessible to all; Ban unpaid internships and traineeships across the EU and ensure that all internships, traineeships and doctoral teaching or research responsibilities are fairly remunerated and do not replace paid labour. Member State / HEI-Level Actions
Housing infrastructure and inclusive and affordable housing Pillar I – Cross-Cutting Principles Prioritise the renovation and construction of publicly funded student housing and student social infrastructure; Use available EU instruments, including the Social Climate Fund, to reduce overall housing and energy costs for students; Expand publicly funded and non-profit student accommodation; Introduce rent protections and anti-discrimination mechanisms in student housing markets; Ensure housing quality standards, accessibility and energy efficiency. Simplified Administrative Procedures, Administrative Integration and Digital Student Identity Pillar I – Cross-Cutting Principles Reduce administrative burdens for students accessing grants, housing, migration support and disability accommodations; Minimise repeated documentation requirements and improve the digital accessibility of institutional services; Integrate student information and access to public services through interoperable digital student systems, including the European Student Card, where applicable; Facilitate access to housing, transport, and public services for domestic and international students. Recognition and Alternative Access Routes Pillar I – Cross-Cutting Principles Pillar II – Entry in Higher Education Adopt and operationalise the EU Disability Card as valid proof for reasonable accommodations in higher education; Ensure accessible learning environments, housing and digital infrastructure; Legally recognise microcredentials, vocational qualifications and alternative learning pathways as valid routes into higher education; Strengthen recognition systems for prior learning and non-traditional educational experiences; Remove unnecessary restrictions linked to quotas, first-time student status or rigid entry requirements that disproportionately disadvantage non-traditional learners. Outreach & Accessible Student Support Services Pillar I – Cross-Cutting Principles Pillar II – Entry in Higher Education Guarantee accessible, free and culturally competent mental health services within higher education institutions; Establish integrated “one-stop-shop” student support systems for orientation, housing, financial aid, disability services and wellbeing support; Establish accessible and well-funded guidance and counselling systems supporting students throughout the transition into higher education; Implement outreach programmes targeting students and guardians from underrepresented backgrounds to increase awareness of higher education pathways; Support school visits, open days, student shadowing opportunities, mentoring programmes and preparatory courses; Provide free and publicly funded tutoring and preparatory support for admission procedures; Promote non-financial student support measures targeted at relieving financial hardship, including access to affordable or free meals, transportation and student services. Institutional Equality and Anti-Discrimination Frameworks Pillar I – Cross-Cutting Principles Pillar II – Entry in Higher Education Require higher education institutions to adopt comprehensive equality, diversity and anti-racism strategies with meaningful student participation; Ensure safe, accessible and independent discrimination reporting mechanisms; Develop targeted access measures for marginalised and underrepresented groups, including refugees, racialised and ethnic minority students, students with disabilities and students from lower socioeconomic backgrounds; Introduce free pre-study programmes, language courses and transition support mechanisms; Ensure admission systems and institutional environments actively address discrimination and structural inequalities; Where appropriate and in line with national contexts, introduce measures that improve the representation of underrepresented and marginalised groups within higher education. Financial Accessibility and Support Pillar II – Entry in Higher Education Pillar III – Retention & Completion in Higher Education Establish comprehensive grant and scholarship systems aligned with the real costs of living and adequately accessible to all; Ensure the timely distribution of financial support before the start of the semester to prevent debt-traps; Provide targeted financial support for students facing additional barriers, including students with disabilities, refugees, student parents and students from lower socioeconomic backgrounds; Support estranged students who are currently excluded from grant schemes due to parental income assessments, despite lacking parental support, especially those who lack formal documentation of estrangement; To make transparent and reduce covert &indirect costs associated with admission and entry into higher education; Legally mandate that internships and PhD responsibilities must meet minimum salary standards or stipends that reflect the real cost of living. Inclusive and Flexible Admission Systems Pillar II – Entry in Higher Education Reform admission systems to reduce reliance on large, high-stakes entrance examinations; Introduce smaller, staggered and flexible admission procedures that accommodate diverse educational backgrounds and accessibility needs; Ensure admission processes are accessible for students with disabilities and students requiring reasonable accommodations; Develop flexible transitions between vocational education, lifelong learning pathways and higher education. 386 (1) https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX%3A52responsible for 387 improving025DC0090 p 8-10
(2) https://ehea.info/Upload/Rome_Ministerial_Communique_Annex_II.pdf
Reason & Seconders
Making sure everyone can enter and complete higher education, as always, remains one of the priorities of the student movement. Since the COVID pandemic and the start of the war in Ukraine, and more recently with the war in Iran, the costs of living have continued to increase all across Europe. In addition, in recent years, the housing crisis’s impact on students has continued to increase. For ESU, it’s important that the European Union tackles these issues and makes Higher Education more accessible.
For ESU, the deliverable in the Union of Skills on increasing access to higher education is a commitment to put concrete actions in place to support EU citizens in accessing higher education. For ESU, this deliverable must reflect the ambitions of the student movement and really support people in accessing and completing higher education.