Introduction: A Moment for Action

In an era of digital disruption, demographic and climate change, adults’ ability to increasingly thrive depends greatly on foundational skills i.e. literacy, numeracy, and problem-solving skills. The 2023 OECD Survey of Adult Skills (PIAAC) sends a clear signal: while some European countries have seen modest gains, many are facing stagnation or decline in adult skills, with widening inequalities. 

PIAAC’s Latest Insights – A European Wake-Up Call

The PIAAC (Programme for the International Assessment of Adult Competencies) assesses numeracy, literacy, and problem-solving skills among the working-age population in 31 OECD countries. The first cycle took place more than ten years ago, and its results were published in 2013. The results of the second cycle published in December 2024 offer a decade-long overview to understand trends in adult competences. This longitudinal perspective reveals not only static snapshots of national skill levels, but dynamic shifts — often rather worrying — in the distribution of foundational competencies.

Across OECD countries, about one-fifth of adults can only perform the most basic literacy and numeracy tasks. More concerning is the growing disparity: adults with lower skills are disproportionately older, foreign-born, or from disadvantaged backgrounds. While educational attainment, age, gender and migration status all influence proficiency, socio-economic background emerges as a persistent predictor. Even when adjusting for age, gender and education, socio-economic background remains a decisive factor. The widening skill divide underscores that low proficiency is both a driver and a symptom of inequality.

The PIAAC data shows that the overall decline in skill proficiency across many countries is not due to a general drop in skills, but to a growing share of adults scoring at the lowest levels. This trend reflects a deeper, systemic polarisation that aligns with global patterns of inequality. In most European countries, literacy and numeracy scores among the bottom 10% have declined and digital competencies lag even further behind.

The implications are profound. Adults with low basic skills face multiple, compounding barriers:

• They are less likely to access lifelong learning and vocational training.
• They often struggle to find stable, well-paid jobs and adapt to changing workplaces.
• They are at risk of exclusion from the digital society.
• They may lack the health literacy to learn about healthy lifestyles or navigate healthcare systems.

Skills also correlate strongly with social outcomes. Adults with higher numeracy skills report better health, life satisfaction, and greater civic engagement. Crucially, they are more likely to feel that they can influence political decisions — a foundation for democratic participation.

With regards to economics, skills are powerful predictors of employability and wages. In fact, they often matter more than formal education alone. Adults with higher proficiency levels are more likely to be employed and earn more. For those at the lowest end of the skills spectrum, upward mobility remains elusive, reinforcing cycles of poverty and exclusion.

The survey underscores the urgent need for a comprehensive re-evaluation of how countries support the development of foundational skills. Beyond their individual benefits, improved basic skills generate societal returns: higher earnings, reduced welfare dependency, increased tax contributions, and stronger social cohesion.

Addressing basic skills deficits is not merely a technical issue; it is a moral and economic imperative. As the EBSN and EAEA joint statement on the PIAAC results makes clear, inclusive adult learning opportunities must be at the centre of national and European strategies. Policies must integrate basic skills development into wider agendas for employment, health, digital and climate transformation — recognising that these domains are deeply interconnected.

Policy Momentum: The Union of Skills & Action Plan on Basic Skills

In response to the growing urgency surrounding adult basic skills, Europe is mobilising through a coordinated set of policy initiatives. Chiefs among these are the Union of Skills, the Action Plan on Basic Skills, and the Upskilling Pathways.

The Union of Skills is an ambitious strategic vision aimed at building a resilient and inclusive European skills ecosystem. Its guiding principle is clear: every individual in Europe should be empowered to acquire solid foundational skills and have access to lifelong learning opportunities that evolve with the demands of the labour market and society. It places a strong emphasis on supporting individuals from disadvantaged backgrounds — including people with disabilities, migrants, and early school leavers — recognising the structural barriers these groups face.

A major component of the Union of Skills is “building skills for quality jobs and lives through a strong educational foundation, with an inclusive lifelong learning approach.” This includes promoting flexible and personalised learning pathways, such as Individual Learning Accounts (ILAs in short), which are particularly beneficial for low-skilled adults who may struggle to engage with traditional systems. Another component is ‘regular upskilling and reskilling’, which involves promoting flexible learning solutions by expanding the use of microcredentials.

Complementing this is the Action Plan on Basic Skills, a flagship initiative under the Union of Skills umbrella. It directly addresses the concerning drop in basic skills across the EU, highlighting also young people adults. The Action Plan addresses skill decline with practical, short- and medium-term actions. Its focus is not just on expanding access to learning, but also on re-designing delivery models to better reach and motivate those “hardest to reach” i.e. adults who have had negative educational experiences, face social exclusion, or deal with complex life circumstances.

The plan advocates for integrating basic skills provision with services such as employment support, housing, health care, and parental support. It also promotes the use of informal learning environments — community centres, libraries, and local associations — as spaces where adults can engage with education in familiar and supportive settings. The plan recognises that adult learning succeeds best when it is embedded in people’s everyday realities.

Another pillar of the EU’s skills agenda is the Upskilling Pathways initiative, which targets adults without upper-secondary education. Launched earlier, but still central to today’s policy architecture, it aims to help these individuals attain a higher level of proficiency in literacy, numeracy, and digital skills, and enable them to obtain an upper secondary qualification. It outlines a three-step model: skills assessment, tailored learning offer, and validation of skills. Crucially, it also stresses outreach and support measures to ensure that vulnerable adults are not only eligible for learning but feel confident and welcome in taking it up.

These initiatives are further reinforced by the Digital Education Action Plan (2021–2027), which aims to boost digital literacy and competencies across all education sectors. For adults, especially those with limited digital exposure, this is essential not just for employability but also for accessing public services, health information, and civic life.

Taken together, these interconnected policies reflect a shift in the EU’s strategic mindset: from fragmented interventions to cohesive, inclusive, and holistic strategies for adult basic skills while acknowledging the need for a redesign of learning systems to align with the lives and realities of learners.

From Policy to Practice: Why Evidence Must Drive Action

Turning policy ambition into tangible progress requires alignment between European goals and national-level implementation. This is where the role of evidence becomes paramount.

PIAAC provides a detailed map of needs: where to target resources, whom to reach, and what kinds of support are most effective. It also makes plain the cost of inaction: worsening skills mismatches, diminished productivity, and persistent social exclusion.

Key steps to move from policy to practice:

• Develop national strategiesaligned with EU goals, tailored to local needs.
• Integrated adult learning systems that bring together education, employment, social welfare, and health services to support holistic development.
• Invest in outreach and community learning spaces that empower learners through trusted environments like libraries, adult education centres, and digital hubs.
• Support educators, recognising their key role in motivating and guiding adults with low skills.

Success depends on building learning systems around people — not just institutions. It means co-designing programs with learners, respecting their prior experiences, and recognising that motivation and confidence are just as vital as pedagogy and content.

As adult learning professionals, we must champion approaches that are empathetic, inclusive, and grounded in reality. The PIAAC data do not just highlight problems — they guide us to smarter, fairer solutions.

Conclusion

Basic skills are the bedrock of inclusion, democracy, economic resilience and prosperity. The latest PIAAC findings demand urgent attention from educators, policy-makers, and civil society alike. With the right mix of evidence, policy alignment, and inclusive practice, we can contribute to a society where all adults — regardless of their background — can access learning opportunities, improve their lives, and contribute meaningfully to their communities. 

The success of EPALE is clearly reflected in further successful intergovernmental collaborations providing us with valuable experiences we can all learn from. The Nordic Network For Lifelong Learning (in short: NLL formerly known as NVL), is an excellent example of international cooperation to improve adult learning policy and practice with a regional focus.

The Nordic Network for Lifelong Learning (NLL), established by the Nordic Council of Ministers (NCM) in 2005, unites all the Nordic countries and works according to the strategy of the NCM on adult educators’ competence development, VPL (validation of prior learning), lifelong guidance, education for sustainable development, basic skills development. NLL is responsible for creating and coordinating thematic networks with the goal to gather evidence about as well as compare the situation in different fields of adult education in the Nordic region. The results from NLL work support the development of policy and practice of adult learning. NLL strives to involve both education organisations and social partners in the dissemination and development activities.

The following interview was conducted by Tamás Harangozó, editor at the European Basic Skills Network and EPALE Adult Learning Expert, and is dedicated to the 10^th anniversary of EPALE. We invited different regional coordinators from NLL to ensure a holistic view on EPALE’s role in the Nordic cooperation. The insights given in this interview reflects three experts’ views: Antra Carlsen – head coordinator, Johanni Larjanko – national coordinator for Finland, and Andreas Gravdahl – national coordinator for Norway.

NLL’s role in EPALE’s development

Over the past decade, how has The Nordic Network for Lifelong Learning contributed to shaping discussions and policies on EPALE? Can you highlight a key initiative or collaboration where NLL’s expertise made a significant impact?

The Nordic Network for Lifelong Learning and EPALE have collaborated in various ways to promote lifelong learning, skills development, and policy innovation across Europe. This partnership has been valuable in addressing challenges like digitalisation, inclusion, sustainability, and skills validation.

The NLL-EPALE cooperation over several years has strengthened lifelong learning policies, networks, and innovations in both the Nordic region and the broader European landscape. 

By sharing best practices, influencing policy, and promoting new learning methods, this partnership has contributed to more inclusive, sustainable, and future-oriented adult education across Europe.

Nordic Approaches in European Policy

How has NLL helped integrate Nordic perspectives on lifelong learning into EPALE’s broader European policy discussions? Are there specific themes, such as sustainability, digital learning, or inclusion, where NLL’s influence is particularly visible?

Knowledge sharing and learning practice sharing have been essential for creating synergies and linking Nordic perspectives with broader European perspectives.

NLL’s research and thematic reports on competence development, green transition, and digital learning have been widely shared through EPALE. EPALE has provided a platform for Nordic educators and policymakers to publish case studies and insights that can be applied in a European context. 

NLL has contributed expertise to EPALE’s work on digital transformation, inclusion, and work-based learning. The Nordic Thematic Landing Page on Digital basic skills of adult learners serves as a guiding reference (author: Jenni Westö). 

Furthermore, Nordic experiences in non-formal adult education and validation of prior learning (VPL) have helped in shaping European strategies. One milestone publication in this field was the comprehensive policy recommendation titled Liberal adult education certificate as a tool for validation (available also in Finnish and Swedish). 

Finally, the sharing of PIAAC follow-up experiences has just started. A vast amount of data on the knowledge levels among adults is available in the PIAAC2 survey. The main findings can be summarised in four lines, but there is much, much more to be gained from the results of large-scale interviews with 4,000 respondents (Norway) aged 16 to 65. 

Strengthening Cross-Border Collaboration

NLL is known for fostering cross-border cooperation in adult learning. How has EPALE supported NVL in connecting Nordic adult learning strategies with wider European networks? Can you share examples of successful partnerships or knowledge-sharing efforts?

Cross-border learning events, like webinars, workshops, and seminars organized jointly have helped spread Nordic innovations in adult learning (e.g., competence-based learning, sustainability education). EPALE’s extensive reach across Europe has enabled Nordic best practices to influence policies and strategies beyond the region.

NLL Norway has actively cooperated with EPALE Norway on several events, including both the Læring i nord annual conference (in English: Learing in the north), and the DigiNorden conference in Tromsø, Norway, September 2022. Both organisations have jointly gathered all the information needed on the selected topics presented in the conferences, and contacted the relevant stakeholders, resulting in both obtaining new knowledge for our host organization and main organisation; also acquiring new contacts and a greater network for future events and projects. The event’s goal is to highlight and spread Nordic and European initiatives to a first and foremost Norwegian, Nordic and European target group for the selected topic related to lifelong learning. 

The DigiNorden conference addressed Digital skills in the Nordic countries and brought together Universities, Higher VET providers, the social partners, providers of non-formal education, governmental institutions and stakeholders relevant for the topic. The conference was co-created by EPALE and NLL in where the selected presenters and stakeholders partaking was coordinated by both organisations. Relevant topics and questions revolved around digital inclusion, the digital and green shift, competence needs and the demand for lifelong learning opportunities in the Nordic countries. 

In 2022 the Læring i nord event focused on skills for the green transition in Nordic industries. For this event, green organizations, academia, industry actors, and the social partners was contacted and represented at the conference. This led to presentations from Norway and Sweden covering a wide range of topics from energy transition education to industry validation. 

The 2023 Læring i nord conference’s theme was validation in the Nordic countries related to the EU’s year of skills, gathering stakeholders from Sweden, Denmark, Finland and Norway showcasing our countries’ different actions and tools we use in validation situation for the individual to formalizing competence and which opportunities and challenges we face. 

The theme for Læring i nord 2024 was micro-credentials, and EPALE and NLL managed to have presentation from Sweden, Finland, Norway and from OECD and micro-credential alliances in Europe. This conference gave us insight in how both Nordic countries and the European alliances are working with micro-credentials showcasing examples on these courses, and how they can be developed and utilised. 

Læring i nord 2025 conference is yet to be planned, but the topic of basic skills is the chosen focus for this conference.

EPALE and NLL were important stakeholders in organising the 4th VPL Biennale in 2022. VPL Biennale facilitated discussions and exchange on how validation processes can become an integral part of policies and services to support lifelong learning.

In 2022, NLL and EPALE co-hosted an event titled Sustainable Competences for the Future, focusing on integrating sustainability into adult education. The discussions influenced training programs in multiple EU countries.

NLL and EPALE have also facilitated stronger links between Nordic adult learning experts and European institutions, thus strengthening professional networks. Educators and policymakers from the Nordic region have participated in EPALE’s online discussions, thematic groups, and conferences. EPALE and NLL organised live events twice during EPALE Community Conferences in 2022 in Vaasa and in 2023 in Helsinki.

EPALE and NLL have worked together in Finland for many years. EPALE streamed the Adult Basic Skills national conference in September 2022, extending its reach across the Nordics and beyond. The conference was a joint effort of NLL Finland, the national Board of Education and the Ministry of Education and Culture.

Last year (in 2024) EPALE published a thematic blog series on Bildung based in part of a suggestion from NLL Finland. The blog entries deepened the understanding and improved the current discussion on the role(s) of education and adult learning. 

Another example of partnership is the 8 NLL-EPALE podcasts on validation, produced and published in 2024-2025. These helped in framing the discussion on the state of validation and its many layers in Finland. 

EPALE’s network has helped disseminate Nordic policy recommendations to a wider European audience through a series of different policy briefs published by NLL:

• Policy Brief: Basic digital skills for adults in the Nordic countries (2020)
• NVL: Policy brief on statistics about VPL (2023)
• Policy Brief osaamisen validoinnin tilastoinnista – NVL (2024)(in English: Policy brief on statistics about VPL)

EPALE’s large European user base has helped increase awareness over Nordic adult learning models, policies and practices. A comprehensive blog post was published by Antra Carlsen that outlines the future directions Nordic adult learning has been taking titled   Towards becoming the most integrated and sustainable region by 2030: Nordic collaboration in adult education – how can we support social inclusion?

Future Vision

What opportunities do you see for strengthening Nordic contributions to European adult education policy and practice through the platform?

Creating events in the manner that NLL and EPALE Norway have done is a clear example of cooperation that fosters new networks and contacts, while also enables the presenters to get to know each other and other countries’ best practice. It is easier to contribute to European adult education policy and practice if you know the Nordic contacts and initiatives well. Both the events and the knowledge from these are already being disseminated at the EPALE platform.

NLL believes that it is important to keep strong focus on sustainability and green transition. And choose relevant forms of further collaboration and co-creation.

We need to join forces and share best practices on teaching sustainability competences in adult education programs. Nordic and European discussions should help adult learning to support the green transition.

PIAAC 2024: Do adults have the basic skills to thrive in a changing world?

The 2024 OECD PIAAC (Programme for the International Assessment of Adult Competencies) survey has shed light on the significant challenges adults face worldwide in fundamental skills such as literacy, numeracy, and adaptive problem-solving. While some countries have made progress over the past decade, many have seen a decline in performance.

International trends and top-performing countries

Among the 31 participating countries, Finland, Japan, Sweden, and Norway performed the best in all three skill domains. Finland, for example, improved its average literacy score by 15 points over the past decade and saw a 17-point increase in numeracy .

In contrast, several countries, including Poland, Lithuania, and South Korea, experienced a significant decline in literacy skills, with drops of more than 20 points . Alarmingly, the gap between high and low performers has widened in many places, suggesting increasing social inequalities.

Hungary’s performance in the 2024 PIAAC Report

Hungary’s results remain below the OECD average in all three skill areas :

• Literacy: 248 points (OECD average: 260)
• Numeracy: 254 points (OECD average: 263)
• Adaptive Problem-Solving: 241 points (OECD average: 251)

One of the most concerning trends is the sharp rise in the share of low-performing adults. In 2017/18, 18.6% of Hungarian adults had low literacy skills, but by 2022/23, this figure had surged to 32.5% . Similarly, the percentage of adults with low numeracy skills rose from 17.8% to 28.8%. The decline is dramatic among young adults aged 16-24.

What’s Next?

The PIAAC results send a clear message: education and adult learning systems must adapt quickly. A lack of fundamental skills not only limits individual job opportunities but also has long-term consequences for the entire economy.

For a deeper understanding of the Hungarian results and their implications, we recommend reading Dr. Éva Farkas’s recent report, which provides a detailed analysis of the trends and challenges Hungarian adults face .

Az esemény a Magyar Pedagógiai Társaság, a MELLearN Felsőoktatási LLL Hálózat és az Albizottság közös szervezésében valósul meg, az EPALE Magyarország és a Kossuth Klub szakmai partnerségével.

Időpont: 2025. március 19., szerda 15:00

Helyszín: Kossuth Klub, Budapest (1088, Múzeum u. 7.)

Az ülés egyik kiemelt programpontja a PIAAC 2024 felmérés Magyarországra vonatkozó eredményeinek értékelése, amelyre rangos szakértők reflektálnak.

A rendezvényen Farkas Éva és Várkonyi Zoltán nemcsak meghívott előadóként vesznek részt, hanem a PROFADUL szakértői csapatának tagjaiként is hozzájárulnak az izgalmasnak ígérkező beszélgetéshez.

A konferencia különösen ajánlott azoknak, akik a felnőttképzés fejlesztésével, minőségbiztosításával és szakpolitikai irányításával foglalkoznak.

A részvétel minden érdeklődő számára nyitott és ingyenes, de regisztrációhoz kötött.

Regisztráció határideje: 2025. március 17. hétfő 16.00 óra