Highlights
Adult participation in learning and training: circumstances and incentives, not image
Raising participation in adult learning and continuing vocational education and training (CVET) has been on the European Union’s (EU’s) agenda for more than 20 years. Despite growing labour market demand for new and higher skills, the EU has consistently underperformed, failing to reach its targets for participation in adult learning and CVET. Only a handful of Member States met the EU’s target, set in 2010, of 15% of adults participating in lifelong learning by 2020. The EU average in 2019 (the year before the Covid-19 pandemic) was 11.1% (1) but with big differences between countries.
A concern was that adults do not participate in adult learning and CVET because they have a negative image and are not seen as attractive learning options. Cedefop’s opinion survey (Cedefop, 2020; Cedefop, 2021) analysed the views of more than 40,000 people aged over 25 in the EU, Norway and Iceland, to see if that was the case. It was not. The survey found that across countries, age, employment or unemployment, level of education, or occupation, adults believe strongly in the importance and benefits of adult learning and CVET.
Adults responding to the survey admit that they lack skills, but the main reason they give for not participating in adult learning and CVET is that they see no need. This suggests that skill need alone may not be a sufficient incentive for adults to learn or train. Decisions to participate in adult learning and CVET also seem to depend on adults’ unique circumstances that shape their needs. Such circumstances may include not only the need for skills, but also an individual’s prospects for career progression, or need to find a new or better-paying job.
Adults may perceive learning and CVET as important and ‘good things’ in abstract terms, just as they might see good diet and exercise as beneficial. However, adults also have many reasons why they do not exercise, including ‘I’m already thin’, ‘I’m too busy’ and ‘It’s too expensive’ (2). For many, the very good reasons for, and benefits of, exercise are not a sufficient incentive to do it. Other more tangible incentives are needed for them to decide to take more exercise, such as to overcome health problems or to participate in a run to raise money for charity.
Likewise, it may be that many adults see no ‘need’ to participate learning and CVET, even though they are beneficial, unless the benefits - career progression, higher income, better job - are tangible and realised in reasonable time.
But decisions on who benefits from adult learning and CVET are made not by participants, but mostly by employers, who also say that they have difficulties finding the skills they need.
Raising adult participation in adult learning and CVET by linking participation not to abstract but tangible benefits (which may be financial or non-financial such as better conditions, status, or recognition) would have important implications for European vocational education and training (VET) policy and for employers.
However, the current policy of regarding the need for skills as the driving force for participation in adult learning and CVET does not seem to be working as hoped. Learning can be an answer to a real need, but a lack of skills is only one need. Participation seems driven not only by the needs of the job but also of the individual
(1) The indicator measures the share of people aged 25 to 64 who stated that they received formal or non-formal education and training in the four weeks preceding the survey (numerator) and is based on the EU Labour Force Survey (see Annex on data sources)https://ec.europa.eu/eurostat/web/products-eurostat-news/-/DDN-20190517-1
Adult learning and CVET: a positive image
The survey shows across all working population age groups (18-64), countries and occupations, adult learning and continuing vocational education and training (CVET) have a positive image. They are strongly associated with employment related benefits, including career progression, better incomes and finding new jobs. Most adults also believe that governments should prioritise investment in adult learning and CVET. This positive image extends to perceptions of the availability and opportunities to participate in adult learning and CVET, as well as the quality of provision.
Important for career progression
Some 84% of adults say that over the next 10 years adult learning and CVET will, either ‘definitely’ or ‘probably’, become more important to career progression (Figure 1). The growing importance of adult training and CVET is noted across occupations at all levels. The same proportion of managers as workers in elementary occupations (both 39%), believe that adult learning and CVET will ‘definitely’ be more important for career progression in 10 years’ time.
Across all Member states, at least 68% of adults agree that their government should prioritise investment in adult learning and CVET (Figure 2). The highest numbers of those who ‘totally agree’ are in Malta (79%), Romania (75%), Greece and Cyprus (both 72%).
Figure 1: Importance of learning in 10 years: sex, age and occupation % (EU 28, Iceland and Norway), 2019
Do you think adult learning will be more important for enabling people to progress in their careers in 10 years' time? (% - EU)
Source: Cedefop opinion survey on adult learning and CVET
Figure 2: Governments should prioritise investment in adult learning and CVET, country (EU-28, Iceland and Norway), 2019
The government should prioritise investment in adult learning (%)
Source: Cedefop opinion survey on adult learning and CVET
Route to a better income and a new job
Some 49% of adults totally agree that adult learning and CVET are important for better incomes (Figure 3). This view is consistent across all age groups. Total agreement that adult learning and CVET are important for better incomes is significantly higher among those with a low level of education (58%) compared with those with a high level (43%). This may reflect expectations of those more highly educated to enter the labour market at higher levels of pay. Reflecting differences by education level, total agreement on the importance of adult learning and CVET for better pay is higher among those in less skilled than in advanced occupations, with the lowest proportion among managers and professionals (both 42%).
Figure 3: Important to have a better income; sex, age, education level and occupation % (EU28, Iceland and Norway), 2019
To what extent do you agree or disagree with the following statements? Adult learning and continuing training…are important to have a better income
Source: Cedefop opinion survey on adult learning and CVET
Some 55% of all respondents totally agree that adult learning and CVET are important when looking for a new job. Respondents are most likely to totally agree in Malta (78%), Romania (74%) and Greece (70%) (Figure 4). Adults least likely to totally agree are in Iceland (39%), Denmark (42%) and Croatia (43%). Denmark (13%) is the only country where more than one in ten respondents disagree that adult learning and CVET are important when looking for a new job.
Figure 4: Looking for a new job, country (EU-28, Iceland and Norway), 2019
AL and CVET are important when looking for a new job (%)
Source: Cedefop opinion survey on adult learning and CVET
Plenty of information about and opportunities to learn
Most adults, 72%, agree that their country has many opportunities to participate in adult learning and CVET and that people are aware of them. Most totally agree in Malta (66%) and Sweden (61%), followed by Romania (51%) and Denmark, Austria and Slovenia (all 47%) (Figure 5). Respondents in Italy are most likely to disagree (39%), followed by Spain (36%), France (34%) and Greece (30%).
Figure 5: Available opportunities, country (EU-28, Iceland and Norway), 2019
There are many AL and CVET opportunities available in my country (%)
Source: Cedefop opinion survey on adult learning and CVET
Good quality learning
In all countries, adults are more likely to report adult learning and CVET as good rather than bad, except in Italy where 43% say it is good and 48% bad (Figure 6). Very good ratings are highest in Malta (58%), Ireland (30%) and Austria (23%). As well as in Italy (48%), more than a third of respondents rate the quality of adult learning and CVET in their country as bad in Greece (40%) and Croatia (35%).
Figure 6: Quality of learning, country (EU-28, Iceland and Norway), 2019
How do you think the quality of AL and CVET is generally regarded in your country (%)
Source: Cedefop opinion survey on adult learning and CVET
Adults (women 71% and men 67%), perceive the quality of adult learning and CVET as at least good (Figure 7). Most think that the quality of adult learning and CVET in their country is ‘good’; 11% say ‘very good’ and 58% ‘fairly good’. Some 24% of respondents think that the quality is bad (5% ‘very bad’, 19% ‘fairly bad’).
Among age groups, perceptions of quality decline slightly, ranging from 71% among 25- to 34-year-olds, to 68% among those aged 55 to 64, which may reflect experience and changing expectations.
Those with a low level of education 68% are slightly less positive about the quality of adult learning and CVET than those with a high level (70%). People in work are the most positive about the quality of adult learning and CVET, (71% say it is good), while unemployed people looking for a job (63%) are the least positive, which may reflect their experiences in trying to find work. Among those employed, skilled agricultural, forestry and fishery workers are the most positive; 75% say it is good. Least positive are those in the armed forces where 60% say that the quality of learning is good.
Figure 7: Perception of quality of learning; sex, age, education level, employment status and current occupation % (EU28, Iceland and Norway), 2019
Overall, do you think the quality of ADULT LEARNING AND CONTINUING TRAINING in (OUR COUNTRY) is generally regarded as good or bad?
Source: Cedefop opinion survey on adult learning and CVET
Why adults learn: participation in adult learning and CVET
Adults who had participated in learning and continuing vocational education and training (CVET) in the 12 months prior to the survey were asked why they did so.
Given the option of multiple answers, the two most common reasons respondents give for taking part in organised training (Figure 8) are personal development (66%) and to improve job skills (64%). Respondents also mentioned improving basic skills (34%) and computer skills (20%). Work-related benefits were cited less often, such as promotion or better pay (11%), to find a new or different job (11%) or to set up a business (6%). Figure 8 also shows that the most common reason adults give for learning on their own (informal training) was personal development (81%), followed by improving job skills (49%), to acquire basic skills (35%) and develop computer skills (21%).
Figure 8: Reasons for taking part in adult learning and CVET; %, (EU 28, Iceland and Norway), 2019
You said you have taken part in an organised training activity/have been learning on your own within the last year. Was this for any of the following reasons? (MULTIPLE ANSWERS POSSIBLE) (% - EU28)
Source: Cedefop opinion survey on adult learning and CVET
The need to keep skills up to date: Country
The survey also gives insights into the importance of job-related learning to keep skills up to date. Respondents in Sweden and Norway (both 80%) are most likely to totally agree that their job requires them to keep their skills constantly up to date (Figure 9), followed by Czechia and Malta (both 73%), Slovenia (72%), Hungary (71%) and Germany and Estonia (both 70%).
Figure 9: Job requirements - keeping skills up-to-date, country (EU-28, Iceland and Norway), 2019
Your job requires to keep your skills constantly up to date (%)
Source: Cedefop opinion survey on adult learning and CVET
Portugal is the only country where most respondents say that they lack some technical skills (51%) for their job (Figure 10). However, a significant proportion of respondents agree that they lack required technical skills in Greece (47%), Cyprus (46%), Luxembourg (45%), Romania (43%) and Bulgaria (42%).
Figure 10: Lack of technical skills, country (EU-28, Iceland and Norway), 2019
You feel you lack some technical skills to carry out your job at the required level (%)
Source: Cedefop opinion survey on adult learning and CVET
Some 22% of respondents in work agree that they lack some general skills to carry out their job at the required level, including 8% who totally agree (Figure 11). Portugal is again the only country where respondents are more likely to agree (52%) than disagree they lack general skills, followed by Spain (43%), Cyprus and Luxembourg (both 40%). Respondents are most likely to disagree that they lack required general skills in Finland and Iceland (both 91%), Italy (88%), Germany (84%), Poland (82%) and Norway and Sweden (both 81%).
Figure 11: Lack of general skills, country (EU-28, Iceland and Norway), 2019
You feel you lack some general skills to carry out your job at the required level (%)
Source: Cedefop opinion survey on adult learning and CVET
The need to keep skills up to date: People
Significantly, 88% of all respondents who were in work at the time of the survey agreed that their job requires them to keep their skills constantly up to date, including 63% who totally agree. Overall, 64% of women and 62% of men totally agree that their job requires them to keep their skills constantly up to date. (Figure 12).
Those in the armed forces (81%), professionals (74%) and technicians (71%) are most likely to agree totally that their job requires them to keep their skills up to date. Total agreement falls to 37% among those working in elementary occupations.
Figure 12: Job requirements - keeping skills up to date; sex and current occupation % (EU 28, Iceland and Norway), 2019
Thinking about your current job, to what extent do you agree or disagree with the following statements? Your job requires you to keep your skills constantly up to date
Source: Cedefop opinion survey on adult learning and CVET
Across the EU, 28% of employees agree that they lack some technical skills to carry out their job at the required level (Figure 13). Skilled agricultural, forestry and fishery workers are most likely to agree that they lack some technical skills to carry out their job at the required level (38%), while agreement is lowest among armed forces occupations (6%).
Figure 13: Lack of technical skills; sex and current occupation % (EU 28, Iceland and Norway), 2019
Thinking about your current job, to what extent do you agree or disagree with the following statements? You feel you lack some technical skills to carry out your job at the required level (% - EU)
Source: Cedefop opinion survey on adult learning and CVET
Some 23% of employed people (25% of men and 22% of women) agree that that they lack some general skills to carry out their job at the required level (Figure 14) (Figure 14). Agreement over lacking some general skills increases with age. Some 25% of older adults in the 55 to 64 age group agree, compared to 22% of 25- to 34-year-olds.
Some 23% of employed people agree that they lack some general skills to carry out their job at the required level, including 8% who totally agree. Skilled agricultural, forestry and fishery workers (36%) and those in elementary occupations (33%) are most likely to agree that they lack some general skills to carry out their job at the required level.
Figure 14: Lack of general skills; sex and current occupation % (EU 28, Iceland and Norway), 2019
Thinking about your current job, to what extent do you agree or disagree with the following statements? You feel you lack some general skills (such as communication or teamwork) to carry out your job at the required level (% - EU)
Source: Cedefop opinion survey on adult learning and CVET
Overall, unsurprisingly, those in more highly skilled jobs have a greater need to keep their skills updated. However, more than half of adults in less highly skilled jobs, such as service and sales workers, and craft and related trades workers also totally agree that their jobs require them to keep their skills up to date. Those lacking technical and general skills are in less demanding jobs. . Those in lower-skilled jobs, such as elementary occupations are more likely to state that they lack technical and general skills, although they also state that it is less important to keep their skills up to date.
Why adults don’t learn: non-participation in adult learning and CVET
The three most common reasons adults give for not participating in any organised training in the past year (Figure 15) are that: they do not need any training (36%); training is difficult to fit in with other commitments (32%); and that people feel too old (28%). Less frequent responses are that training is too expensive (15%), a lack of suitable opportunities (13%), insufficient support (11%) and lacking the right skills or qualifications (7%).
Figure 15: Reasons for not participating in training in the previous 12 months % (EU28, Iceland and Norway), 2019
Source: Cedefop opinion survey on adult learning and CVET
Women (34%) are more likely than men (30%) to say that learning and training are difficult to fit in with other commitments (Figure 16) and that they are too expensive (women 16%; men 13%). However, men (39%) are more likely than women (33%) to say that they do not need adult learning and CVET.
Older adults are more likely to say that they don’t need to take part in organised training (39% of 55- to 64-year-olds, compared to 29% of 25- to 34-year-olds. However, younger adults (48% of 25- to 34-year-olds) have more difficulties combining adult learning and CVET with other commitments. Younger age groups also face more problems with the cost of adult learning and CVET, while middle age ranges (those 35 to 54 years of age) are the most likely to say that there is not enough support.
Adults working in elementary occupations are more likely to give several reasons, including training being too expensive (24%), lack of support (18%) and not having the right skills or qualifications (14%).
Figure 16: Reasons for not participating in training in the previous 12 months; sex, age and current occupation % (EU28, Iceland and Norway), 2019
You said you have not taken part in any organised training in the last year. What were the main reasons for this? (MULTIPLE ANSWERS POSSIBLE) (% - EU)
Source: Cedefop opinion survey on adult learning and CVET
In 22 countries, the reason respondents give most frequently for not taking part in organised training is that they feel they do not need it (Figure 17). Exceptions are Bulgaria, Ireland, Greece, Spain and Malta where the main reason for not participating is problems with time; and in France and Romania where it is feeling too old.
Figure 17: Reasons for non-participation, country (EU-28, Iceland and Norway), 2019
You said you have not taken part in any organised training in the last year. What were the main reasons for this? (MULTIPLE ANSWERS POSSIBLE) (% - Most answered question per country)
Source: Cedefop opinion survey on adult learning and CVET
Encouraging participation in work-related learning and training
There is widespread support for measures proposed to encourage participation in adult learning and CVET; namely, better information, improving quality, financial incentives, flexible learning arrangements, adapting learning to individual needs, help with caring responsibilities and certification and recognition of learning (Figure 18).
Some 58% of adults totally agree that flexible working hours or time off work to learn would encourage people to participate; 56% that people would be encouraged by financial incentives or support; 54% by certification of learning and training recognised by employers; and 54% through support with childcare and other caring responsibilities.
Just under half of adults totally agree that the following would encourage more adults to participate in work-related learning and training: more information and guidance (49%), being able to adapt the learning to individual needs (49%) and better-quality training (48%).
The vast majority agree that each support measure would encourage greater participation. No more than 10% of adults disagree.
Figure 18: Measures to encourage participation in training, overall % (EU-28, Iceland and Norway), 2019
To what extend do you agree or disagree with the folllowing statements regarding work related learning and training participation (EU-28)
Source: Cedefop opinion survey on adult learning and CVET
Support for measures to encourage participation in adult learning and CVET is strong across all occupations and does not follow any pattern related to skill levels or income. For example, high levels of total agreement are found across all occupations that measures such as adapting training to individual needs, and childcare support would encourage participation. This suggests that need for support is more closely linked to personal family and financial circumstances rather than occupation.
Despite support for and availability of measures to encourage it, participation in adult learning and CVET remains below the targets set by the EU. There is, of course, no measure to address the main reason adults give for not participating, namely that they see no need. This implies that, while important, decisions to participate in adult learning and CVET are also influenced by other matters.
Conclusions: image, skills and rewards
A positive image of adult learning and CVET
Respondents in all Member States are positive about adult learning and continuing vocational education and training (CVET). These positive views also appear to be deeply held and widely shared. They are also consistent; people’s support for adult learning and CVET are linked to the benefits they expect to receive from them. Such positive views can also be expected to last. Most respondents, across all Member States, believe that adult learning and CVET will be more important for career progression over the next 10 years and that they should be a priority for government investment.
The positive image of adult learning and CVET extends to perceptions of availability and access. Generally, Member States have made information easy to find through many different sources.
Not just skills, but rewards
Although for adults, learning matters both to find a job and to perform in one, irrespective of its skill level, the survey suggests the need for skills is not sufficient incentive for people to participate in adult learning and CVET,
Across most Member States, the main reason adults do not participate in adult learning and CVET, is that they see no need, particularly men and older age groups. Women, younger adults and those in elementary occupations also say that they have no need to participate but they are more likely to report that other commitments or costs prevent them from participating.
This is despite nearly nine out of ten respondents in work when surveyed, across sex, age, education level, occupation and country, saying that they totally agree that their job requires them to keep their skills constantly up to date. Some 28% said that they lack some technical skills, and 23% some general skills, to carry out their job at the required level. These findings underline changing job content is rapid and not limited to certain generations or occupations. There is a need to keep skills up to date, and some are failing to keep up.
When asked why they participate in work-related adult learning and CVET, given the option of multiple answers, the most common reasons adults give for taking part are personal development and to improve job skills. Work-related benefits, such as promotion, better pay, to find a new or different job, or to set up a business, were cited much less often.
The survey indicates that, positive perceptions, the need for skills and availability of support measures do not encourage participation to the desired levels. The survey suggests that such transitions are contingent not on characteristics, such as sex and age, but on combinations of personal circumstances that are unique to individuals. The implication is that adults perceive learning and CVET as important and ‘good’ things that can bring benefits, but in abstract terms as, for example, they would see exercise as a ‘good’ thing. Support measures to encourage participation can and do help, but decisions to participate appear to be contingent on how adult learning and CVET can improve someone’s situation by bringing tangible benefits, such as promotion, a new job, better pay, or higher qualifications, in a realistic timescale, rather than abstract benefits such as personal development and improved job skills.
It's not my decision
Realising tangible benefits in a reasonable period is complicated by decisions on who benefits from adult learning and CVET being made, for the most part, not by participants, but by employers. This emphasises that participation in adult learning and CVET is not only about people’s willingness to participate, but also employers’ willingness to invest.
Policy change?
Linking participation to tangible rather than abstract benefits has important implications for European vocational education and training (VET) policy, arguing, for example, that public measures to encourage participation need also to be linked with tangible benefits, such as a job or a qualification, or both. Linking learning and training to tangible benefits also has practical implications for employers, but it is important to note that tangible benefits can be, but are not always, financial and may include other benefits such as better conditions, status, or recognition
The survey suggests that current policies of relying on skill needs to deliver desired levels of adult participation in learning and CVET in the EU are insufficient. Participation seems driven not only by the skill needs of the job but also of the individual
Acronyms
AL |
adult learning |
CVET |
continuing vocational education and training |
NUTS |
nomenclature of territorial units for statistics |
VET |
vocational education and training |
RDD +3 |
random digit dialling +3 |
BE |
Belgium |
BG |
Bulgaria |
CZ |
Czechia |
DK |
Denmark |
DE |
Germany |
EE |
Estonia |
IE |
Ireland |
EL |
Greece |
ES |
Spain |
FR |
France |
HR |
Croatia |
IT |
Italy |
CY |
Cyprus |
LV |
Latvia |
LT |
Lithuania |
LU |
Luxembourg |
HU |
Hungary |
MT |
Malta |
NL |
Netherlands |
AT |
Austria |
PL |
Poland |
PT |
Portugal |
RO |
Romania |
SI |
Slovenia |
SK |
Slovakia |
FI |
Finland |
SE |
Sweden |
UK |
United Kingdom |
IS |
Iceland |
NO |
Norway |
Bibliography
Cedefop (2020). Perceptions on adult learning and continuing vocational education and training in Europe. Second opinion survey – volume 1: Member States. Luxembourg: Publications Office. Cedefop reference series 117. http://data.europa.eu/doi/10.2801/6647
Cedefop (2021). Perceptions on adult learning and continuing vocational education and training in Europe. Second opinion survey – volume 2: Views of adults in Europe States. Luxembourg: Publications Office. Cedefop reference series 119. http://data.europa.eu/doi/10.2801/55767
Further reading
Cedefop (2017). Cedefop European public opinion survey on vocational education and training. Luxembourg: Publications Office. Cedefop research paper; No 62.
https://www.cedefop.europa.eu/en/publications-and-resources/publications/5562
Council of the European Union (2011). Council resolution on a renewed European agenda for adult learning. Official Journal of the European Union, C 372, 20.12.2011, pp. 1-6. https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:32011G1220(01)&from=EN
Council of the European Union (2016). Council recommendation on upskilling pathways: new opportunities for adults. Official Journal of the European Union, C 484, 24.12.2016, pp. 1-6.https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:32016H1224(01)&from=EN
European Commission (2020) European skills agenda for sustainable competitiveness, social fairness and resilience file:///C:/Users/sb/Downloads/Communication_30June_v2%20(2).pdf
Website
Cedefop project page on adult learning and continuing vocational education and training: https://www.cedefop.europa.eu/en/events-and-projects/projects/adult-learning-empowering-adults-through-upskilling-and-reskilling