In order to develop conclusions about future policy aimed at addressing the challenge of workers at risk because of low skills, the NEWSKILLS project combined scientific analysis with consultation with social partner representatives, policy analysis, and field work in firms. Population proportions in International Standard Classification of Education (ISCED) 0-2 group (those who had completed lower secondary or less education) varied widely among European countries. In all countries, the proportion of adults in the 0-2 group declined from 1985-95 resulting predominantly from more young people receiving further education and training. Adult upgrading from ISCED 0-2 remained the exception. Measured by duration, the low skill group received less employer-provided education and training than higher skill groups. The 0-2 group's labor market position declined over the same period relative to the national average. Technological change explained much of the decline in labor market demand for the group without further education and training. Older workers without full lower secondary education were at greatest risk. Increased expectations in social competence and communication resulting from growth of service economy employment was found. Suggestions were to frame education policy in terms of entitlement to a minimum level and not only to an entitlement of years of education. (Contains 73 references.) (YLB)