In 2011, the European Council issued a policy framework that recommended member states to prevent early school leaving with wide-ranging measures. At the same time, the Council recommended to intervene on at-risk students in secondary schools and to address the problems of early leavers by means of lifelong learning. However, member states do not seem to have actively adopted all these measures, particularly as far as prevention is concerned (Timmerman and Willems, 2015).
This is not a surprising observation if we take into account two previous conclusions of research on European public policies. First, expert knowledge plays a great role in policy adoption to the extent that the very Commission often engages in constructing causal narratives on a given set of policies (Adler-Nissen, 2015). Second, national governments are not eager to directly implement EU educational policies (Alexiadou et al, 2010). Not only this competence had been a power of national authorities for decades before the Treaties, but it maintains a remarkable symbolic power in all the member states.Thus, while recommendations may impinge in official rhetorics, decision-makers may also maintain their own traditions of expert knowlege that convey differing theories on the causes and the solutions of early school leaving (Rambla, 2018).
The paper suggests that sub-national educational authorities sometimes draw on the EU recommendations on early school leaving despite the reluctance of national governments. Complex patterns of interaction between these scales of governance seem to make a difference. Thus, in Italy a nationally funded programme induced the region of Liguria and the city of Genoa to deliver wider schemes of career guidance and second chance schools in the vein of the EC recommendations (Bartolini, 2018). Although the Catalan and other regional governments have mostly adhered to the same understanding as the national one, in Spain the educational authority of Barcelona has also found inspiration in the EC recommendations. In this member state, the national government and most regions have assumed that single-ability grouping and the introduction of vocational education within compulsory secondary education can tackle the problem. In this vein, prevention is not so important as intervention on at-risk students in the very high school. In contrast, for some years the educational authority of Barcelona has looked at the EU for inspiration on how to widen guidance and improve prevention (Rambla, 2018; Tarabini et al, 2018) .
Albeit in quite different ways, sub-national authorities seem to have retrieved the European discourse in order to challenge its own traditions of expert knowledge. Thus, the paper will analyse the influence of epistemic communities and multi-level governance on the decision of regions and municipalities to prevent early school leaving. Interestingly, regional and municipal decision-makers have looked at the European Council recommendation in order to design and implement measures that aim at preventing early school leaving.