Engaging Low-Skilled Adults in Education and Training: Exploring Participation Rates, Challenges, and Strategies

Abstract

The need for non-formal education (NFE), which does not result in formal degree or certificate, is substantial as labor markets often require adult workers to take an initiative in advancing their job-related skills. Yet, NFE opportunities are more often pursued by high-income and high-skilled adults than their low-income and low-skilled counterparts. For this study, we used data from the 2012 Program for the International Assessment of Adult Competencies (PIAAC) for Canada, the Netherlands, Norway, Sweden, and the U.S. to compare participation rates in NFE by medium/high and low-skilled adults. Additionally, to gain insights of adult education and training policies that promote NFE, international key informant interviews (n = 33) and document reviews were conducted. Findings include (a) as compared to high-skilled adults, low-skilled adults are less likely to participate in NFE; (b) as compared to the U.S., low-skilled adults in Norway and the Netherlands are more likely to participate in NFE; and (c) NFE is often more acceptable to low-skilled adults, possibly due to previous negative experiences with formal education. These findings are especially relevant to the increased need for retraining and reskilling as a result of the COVID-19 pandemic which has negatively impacted low-skilled workers more than their higher skilled counterparts (OECD, 2020a).