Opinion of the Committee of the Regions on the Action Plan on Adult learning — It is always a good time to learn
Date: 2008-06-19
Institutions: European Committee of the Regions
Subjects: action programme, adult education, continuing education, continuing vocational training, education policy

C 257/70

EN

Official Journal of the European Union

9.10.2008

Opinion of the Committee of the Regions on the ‘Action Plan on Adult learning — It is always a
good time to learn’

(2008/C 257/11)

THE COMMITTEE OF THE REGIONS

— recalls that in many Member States, the regional and local level is responsible for adult learning and it
is at local and regional level that education and training decisions are taken and put into practice.
Therefore, the actions proposed in the Action Plan should also be carried out at local and regional
level where appropriate;

— notes that adult learning, in particular, makes an essential contribution to employability, mobility,
social inclusion and personal development through the promotion of the acquisition of key compe-
tences for all;

— recognises that the benefits, affirmation, and unblocking of personal potential of adult learning has a
significant ‘value added’ effect on many other aspects of participants' social, vocational, civic, cultural,
and economic lives. Adult learning programmes, based on partnership principles and processes are a
major source of individual and community empowerment;

— supports and will actively contribute to seeking to ensure that the necessary financial, human, admin-
istrative and other resources are provided to realise the ideal of increased and deeper participation by
European citizens in adult learning;

— wishes to ensure that local and regional providers and stakeholders are involved as partners at all

stages, in particular, at policy development, governance structures and delivery systems;

— regrets that although the European Commission calls for ensuring adequate levels of investment in,
and better monitoring of, the adult learning sector, both the public and private sectors currently
provide inadequate funding in the field.

9.10.2008

EN

Official Journal of the European Union

C 257/71

Rapporteur: Mary SHIELDS (IE/UEN-AE), Member of Cork City Council

Reference document

Communication from the Commission to the Council, the European Parliament, the European Economic
and Social Committee and the Committee of the Regions :Action Plan on Adult learning — It is always a
good time to learn

COM(2007) 558 final

POLICY RECOMMENDATIONS

THE COMMITTEE OF THE REGIONS

GENERAL COMMENTS

1.
welcomes the broad concept and process of adult learning
in the Commission Communication on an ‘Action Plan on
Adult Learning: It is always a good time to learn’ and endorses
the central and key focus on the ‘adult learner’ in the document;

2.
recalls that education and training are critical factors for
growth and development at local and regional level as well as
achieving the Lisbon Strategy's objectives. Adult learning, in par-
ticular, makes an essential contribution to employability, mobi-
lity, social
through the
inclusion and personal development
promotion of the acquisition of key competences for all;

3.
Adult learning is of major importance for Europe's future.
Flexicurity recognises that the traditional culture of ‘a job for
life’ is over. In addition, technology is changing faster and faster,
requiring continual ‘re-education’ at all ages to keep pace with
skills requirements, and life expectancy will also increase. In this
future environment, adult learning is vital, for individual better-
ment as well as for the economic success and social cohesion of
Europe;

4.
refers to the main tasks of adult education, as identified by
the OECD: to improve competences, promote self-fulfilment and
more solidarity in society, and enhance social
(community)
action;

endorses the key benefits of adult learning to European
5.
citizens; community development; economic prosperity and
competitiveness; promotion of
inclusion; personal
empowerment; and the promotion of socio-civic integration as
an integral phase in a developmental life path, and welcomes
the identification of three key elements as being vital to an effec-
tive and efficient adult learning sector: Policies, Governance and
Delivery systems;

social

supports the identification of, and implementation sche-
7.
dule for, five key areas on which to focus the measures included
in the proposed Action Plan;

8.
considers that the proposed Action Plan has the potential
to integrate and elevate adult learning for target groups, finan-
cial and resourcing implications, research and professional devel-
opment, and managing the diversity of European learning tradi-
tions;

9.
agrees that the holistic integration of these aspects (in
Point 4) and the linked Action Plan positively positions adult
learning in Europe in a proactive, reflective,
learner(s)-driven,
and policy-inspired phase of expanded development;

10.
recalls that in many Member States, the regional and
local level is responsible for adult learning and it is at local and
regional
level that education and training decisions are taken
and put into practice. Therefore, the actions proposed in the
Action Plan should also be carried out at local and regional
level where appropriate;

notes with approval the sustained use of the concept of
11.
‘adult learning’ in the text. The broad and inclusive concept of
‘adult learning’ per se indicate the value of personal engagement
in learning; the myriad of formal/informal
learning events in
citizens' lives; emphasises the developmental benefits of enga-
ging positively with our changing European environment and
realities; and ‘manage’ effectively our diverse destinies;

12.
considers that the development of diverse adult learning
will be more effective and efficient when learners are viewed as
acquirers/transmitters/creators of
‘knowledge’ and recognises
that
the proposed Action Plan seeks to operationalise this
concept in a coherent manner;

6.
agrees that adult learning should fall within the framework
of lifelong learning, so that the policies planned in the area are
in line with the strategies drawn up for lifelong learning;

believes that adult learning encompasses a multifaceted
13.
conceptualisation of inter-related elements, knowledge skills and
attitudes, perceptions, understandings, etc. Adults have many
and varied life experiences, their learning is enriched when they

C 257/72

EN

Official Journal of the European Union

9.10.2008

are involved,
show self-responsibility in learning, and feel
accepted, engaged, and supported in ‘mutually respectful’
learning environments. The social relationships of all partici-
pants (learners, teachers, facilitators, administrations etc.) play a
very significant role in personal capacity for effective adult
learning engagements;

14.
recognises that the benefits, affirmation, and unblocking
of personal potential of adult learning has a significant ‘value
added’ effect on many other aspects of participants' social, voca-
tional, civic, cultural, and economic lives, as well as enhancing
its
aspects. Adult
learning programmes, based on partnership principles and
processes are a major source of
individual and community
empowerment;

and intergenerational

cross-generational

15.
recalls the importance the CoR attaches to the acquisition
of key competences by all European citizens, especially in terms
of their ability to lead an independent lifestyle and gain self-
esteem. The EU's key competences is ideally suited as a reference
framework for the development of such competences, not least
at regional and local level. Adults must be able to update their
key competences throughout their lives and special focus must
be given to target groups that have been identified as priority
groups in a national, regional or local context. Local and
regional
involve and motivating these
groups will make an important contribution here, with a view
to providing a range of education geared to the needs of people
in the area;

initiatives to inform,

16.
supports the breadth and depth of adult learning activ-
ities (formal/informal) in the proposed Action Plan, the range of
learning dimension, and the formative approaches to learning
evaluation which reflect a Multiple Intelligences (MI) construct
and process;

supports and will actively contribute to seeking to ensure
17.
that the necessary financial, human, administrative and other
resources are provided to realise the ideal of
increased and
deeper participation by European citizens in adult learning;

Learning Partnerships

already reflected in a diverse range of educational responses to
adult learning throughout Europe;

20.

underlines that a learning partnership approach:

— has a rich motivational value for individual

learners and

groups of learners;

— provides a firm basis for parity of esteem of all stakeholders;

— forges two-way communication and mutual respect;

— contributes to the professionalisation of the adult learning

process; and

— is a crucial factor in promoting higher and deeper participa-
tion levels with a range of ‘excluded’ persons and groups;

21.
supports learning partnership's very valuable contribu-
tions to future adult learning in Europe and suggests to the
Commission that ‘action planning’ be based on identification of
appropriate principles and aims; delineation of good practice
partnership aspects from existing adult learning in Europe; inte-
grate these findings in learning materials; and co-design and co-
develop appropriate quantitative and qualitative evaluation
procedures;

22.
considers that this empowering ‘cascade process’ could
feature as an enduring aspect of European adult learning. This is
consistent with underlying EU aims and endorses the role and
contributions of local and regional stakeholders in an integrated
process;

Participation/Non Participation in Adult Learning

23.
welcomes the importance attached in the communication
to broaden and deepen participation in a spectrum of life long
learning ‘events’ by all European citizens, and in particular by
targeted ‘non/low participation’/excluded persons and groups,
such as low-literacy persons, older people, socially excluded
groups, disabled persons, early school
low skilled
workers, older workers, migrant workers, etc.;

leavers,

notes that, when properly organised, adult learning can
18.
actively contribute to integration.
integrating
immigrants into their new home country and offers the resident
population an opportunity to learn new cultures and languages;

It is a way of

24.
recognises in this respect that exclusion from, and non
participation in, the learning process constitutes a significant
first step towards future marginalisation, often followed by
patterned ‘exclusion’ from employment, socio-civic and cultural
life;

welcomes the reference throughout the communication
19.
on the importance of ‘partnership’ as an animating principle
and process aspect of socio-personal engagement(s)
in adult
learning. Learning partnerships are symbiotic processes and are

supports the contention that an integrated approach is
25.
necessary to redress patterned under-representation in adult
learning of a wide range of individuals and groups and to estab-
lish a culture of learning on a continuous basis for all citizens;

9.10.2008

EN

Official Journal of the European Union

C 257/73

26.
considers, furthermore, that this is not an easy, cheap or
rapid challenge and is best seen as a form of personal and
socio-educational investment and engagement which requires it
local, regional and
to be embedded at personal, professional,
national levels;

in situ and that the actions necessary to encourage participation
in workplace learning will be influenced by a wide range of vari-
ables (1);

27.
wishes to ensure that local and regional providers and
stakeholders are involved as partners at all stages, in particular,
at policy development, governance structures and delivery
systems, as responsibility for the delivery of adult education
levels in many Member
systems resides at regional and local
States and the local/regional commitment to workplace skills
development, community integration, civic literacy, cultural inte-
gration, adaptation to changing socio-personal circumstances is
well demonstrated;

urges the social partners to ensure that adult learning

28.
needs are taken into account in collective agreements;

notes that gender equality must also be taken into
29.
there are
account when developing adult
regions where attention needs to be focused on women, there
are many countries where it is actually male participation in
adult learning which is lower, especially in Community develop-
ment type programmes;

learning. Whilst

An Efficient Adult Learning Sector — Policy

there
supports the European Commission's view that
30.
exists a key need for local and regional authorities to engage in
positive, symbiotic adult learning interventions with other stake-
holders,
in order to provide learning opportunities with and
for‘at risk’ individuals and groups;

stresses that adult education is a key instrument

31.
for
joining up various policy areas at local and regional level, for
example in linking educational, social,
labour market, growth
and integration issues;

to enhance personal-organisational

32.
agrees that work based learning provides a very positive
and ‘ready-made setting’ for such interventions which has the
potential
skills
development, foster the growth of ‘learning organisations’ and a
climate of continuous learning and lead to the development and
implementation of effective strategies for dealing with change at
several levels;

learning,

further considers that

33.
the workplace provides a rich
forum where potential participants in adult learning are already

An Efficient Adult Learning Sector — Research

34.
agrees with the Action Plan consultation process state-
ment that ‘compared to other areas of learning, the contribution
and benefits of the adult learning sector are not well researched,
debated or published’ and considers that an integrated and
focussed research process could guide the achievement of the
five key messages in the adult learning communication;

35.
welcomes the benefits that quality, focussed research will
make to the realisation of the Action Plan objectives, as it feels
that a ‘feed back loop’ of learning, insights and materials for all
stakeholders would strengthen the basis of the effective and effi-
cient delivery of adult learning;

further considers that better European research in the
36.
‘participants’ area would move from the dependency on
comparative data and analysis from other systems, especially the
USA, in order to guide appropriate responses to the participa-
tion issue in the European Union;

37.
proposes that in order to guide various elements of the
Action Plan, the following research should be conducted in a
‘feedback loop’ process on issues such as: the identification and
role of possible factors influencing participation/non participa-
tion in European adult learning;
including general contextual
and social background factors, related behavioural/situational
factors and related personal attitudes and dispositions, European
learners' motivational orientations, learning styles, and attitudes
to adult learning, the return on investment (financial, personal,
community, regional, vocational, etc.) of engagement in adult
learning and the perceptions, attitudes/insights of low partici-
pating target groups in Europe; the profile of teachers involved
initial and
in formal adult education processes and their
ongoing training;

An Efficient Adult Learning Sector — Governance

38.
notes that the consultation process associated with the
communication identified the importance of good governance
in adult learning as being characterised, inter alia, by a focus on

(1) Variables include: (i) previous educational experience/perceptions of
the target groups;
(ii) participants' motivational orientations and
‘learning styles’ (iii) the extent and nature of partnership in the learning
fora; (iv) the range and quality of adult support systems, guidance, peer
learning; (v) validation and recognition of formal and non-formal adult
workplace learning; (vi) the relationship of adult learning to partici-
pants' socio-personal needs, and (vii) the employment of wide-ranging
innovative learning approaches, especially aspects such as peer
mentoring and support, a positive psycho-social learning environment,
etc.

C 257/74

EN

Official Journal of the European Union

9.10.2008

innovative approaches to learning; effective
the adult learner;
learning needs analysis:
local and regional planning; and the
need for a planned and systematic approach at all levels and
within all elements of adult learning, formal and informal;

45.
calls for a higher level of funding to existing and future
programmes in order to maintain their potential impact in the
adult learning sector;

39.
welcomes the centrality accorded the adult learner in the
governance section and notes with approval the value attached
to local and regional contributions in an adult learning partner-
ship framework;

An Efficient Adult Learning Sector — Delivery

that

agrees

the challenge for adult

40.
learning in an
expanded Europe of 27 Member States is to ‘deliver a service’
that can, at the same time, incorporate adult learners' motiva-
interests and needs changed/changing labour market
tions,
demands; societal requirements; and seek to redress and over-
come, with interrelated actions, multi-dimensional barriers to
participation;

41.
points out that effective networking with second level
schools not only makes for cost-effective learning provision but
in familiarising young people with adult
is also important
In this way, young people become aware of adult
learning.
education centres at an early age and, when the time comes,
they are then able to use such centres effectively to meet their
own needs;

42.
the
believes that by pooling resources intended for
education and training of young people and adults it is possible
to respond in a comprehensive and flexible manner to the chan-
ging labour requirements of the workplace, the specific needs of
adult education and the demand for qualified teachers and to
improve the cost-effectiveness of the education system;

welcomes the series of measures outlined in the consulta-
43.
tion process relating to participation in adult learning, as they
reflect international good practice and suggests:

— an initiative in Community-Workplace Adult Basic Skills
to better utilise community and workplace

(CWABS),
settings for adult learning;

ACTION PLAN

Analyse the effects of reforms in all sectors of education
and training in member states on adult learning

46.
notes the close relationship of adult learning to other
(well developed) sectors of the educational process and to the
fact that engaging in a formal/informal adult learning event is
never a tabula rasa event in citizens'
lives but part of a self-
improvement process which has added-value for society;

47.
welcomes the development of National Qualification
Frameworks (NQF) and mainstreaming of the adult learning
sector and believes that focussed analysis of such trends in the
Action Plan will bring coherence and added status to adult
learning in Europe;

Improve the quality of the adult learning sector

48.
accepts the importance of the professionalisation of adult
learning personnel, including the provision of on-going training
specific to adult education. These personnel are the ‘front line’
contact and learning point for many adult learners. The quality
of their learning, services and learning methodologies is vital in
the effective translation of
the European policy rhetoric of
increased and deepened participation in adult learning into the
reality of growth in this area;

49.
believes that teaching staff's knowledge of the workplace
should be ensured through interaction and flexible cooperation
with the world of work;

looks forward with interest to the identification of Euro-
50.
pean good practice in the forthcoming study Adult
learning
professions in Europe which will serve as a coherent basis for
‘professional’ development. The inclusive nature of the list of
stakeholders and adult learning contributors is welcomed;

— support for a European network of local and regional adult

learning providers and animators/advisers;

Increase the possibility for adults to go one step up and
achieve at least one higher level qualification

— widening the access to higher education awards by facili-
tating ‘one level higher’ qualifications with innovative
measures to facilitate continued learner participation in full
or part time learning;

regrets that although the European Commission calls for
44.
ensuring adequate levels of investment in, and better monitoring
of, the adult learning sector, both the public and private sectors
currently provide inadequate funding in the field;

believes that this ‘one step up’ measure could have a very
51.
positive effect on adult's motivation and learners' continued
participation in a life long process. It addresses, inter alia chan-
ging demographic patterns in Europe, actively listening to ‘the
voice of the learners themselves’ and quality adult learning infor-
mation, guidance services and resources. An important element
for many adult learners is the personal feeling of self-affirmation
and positive wellness associated with ‘success’
in learning
(formal/informal);

9.10.2008

EN

Official Journal of the European Union

C 257/75

believes that

52.
the Action Plan could make a positive
contribution to the production of good practice projects for
reaching target groups, and attach greater value to the results
from projects such as Grundtvig, and proposes better use of the
media in promoting the availability and suitability of adult
educational programmes, especially amongst the hard-to-reach
groups;

Speed up the process of assessing and recognising non-
formal and informal learning for disadvantaged groups

53.
underlines that the broadening of adult learners per se in
an inclusive and developmental way recognises and endorses the
diverse range of abilities,
‘intelligences,’ skills, socio-personal
competences, experiences etc. of all European citizens. These are
the rich contributions that adult learners bring to the learning
table. It is important to organise lifelong learning opportunities
in such a way as to ensure that wherever possible new knowl-
edge, skills and attitudes can be related by learners to their
immediate surroundings and matched to individual needs;

54.
welcomes the Action Plan proposals such as the identifi-
cation of good practice in recognition and validation of non
formal/informal learning, emphasises on peer learning, and co-
production of generic learning materials, as this recognition and
legitimisation will be of positive motivational value to the
sector, most especially the adult learner her/him self; validation
must therefore be carried out at local and regional level, with
the involvement of the various employment sectors in both the
identification of needs and validation;

recognises that

55.
the inclusive recognition of previous
‘learnings’ should be of particular value in broadening and
deepening the participation of older European persons. Research
data show that older people are not a visible cohort in European
learning systems and demographic trends clearly indicate the
urgency of treating this group in a targeted and focussed way;

56.
believes that non/low engagement by this cohort has
major implications for the group itself, as well as health, socio-
civic, economic, cultural,
inter- generational, and European
cohesion considerations. Good principles and practice in Educa-
tional Gerontology must seek to build effective adult learning
partnerships with this group,
recognise and validate their
learning needs, aspirations, achievements, experiences, motiva-
tions, learning styles, expectations, etc. and challenge the myths
and stereotypes regarding older adult learning;

Brussels, 19 June 2008.

57.
calls for the co-delivery of appropriately funded and
quality learning opportunities to take due cognisance of cogni-
tive, physical, motivational, dispositional, and attitudes
to
learning, etc. of this increasingly important adult learning group
in Europe;

58.
is in favour of giving more people a chance to benefit
from the use and influence of Information Communications Tech-
nology (ICT) in the field of adult learning;

59.
highlights that there is a significant body of evidence that
the rapid expansion of e-learning in Europe may risk generating
a new form of social inequality, i.e. digital exclusion. Research
data suggest that people with access to the Internet and its
sustained (learning) usage, while generally increasing in Euro-
pean society, are still relatively low among the various at-risk
groups;

imbalance

in generational, geographical,

advises that inequities in access to ICT reinforce, rather
60.
than ameliorate, existing barriers
to participation in adult
learning. The term ‘digital divide’ indicates sharp disparities and
substantial
socio-
‘Blended
economic, gender, unequal access to, and use of, ICT.
methods’, the quality of e-learning experiences, barriers to parti-
cipation in e-learning, etc. are all important aspects of efficient
and effective adult learning in Europe. The real concern is to
take advantage of the opportunities provided by new technolo-
gies and use local and regional learning facilities to ensure that
more people can benefit from them;

Improve the monitoring of the adult learning sector

61.
accepts that the failure to demonstrate the benefits of
adult learning is a significant weakness in this area and has
major personal, social, economic, policy, resourcing, and struc-
tural implications;

62.
considers that it is not a ‘black box’ process of quantita-
tive input-output data and findings but rather a research-led
qualitative and ‘communications’ engagement which could
elevate the status and value of adult learning per se in personal,
local, regional, and national ‘mind sets’ and activities. The quest
for shared understandings, ‘first principles’, etc. will assist in this
area and the actions set out in the communication in this regard
are welcomed.

The President

of the Committee of the Regions

Luc VAN DEN BRANDE