What’s missing in adult learning?

New OECD research reveals a critical workforce development challenge: whilst economies undergo rapid digital and green transitions, adult learning participation has stagnated or declined across most countries. Only 40% of adults engage in formal or non-formal learning annually, with stark variations from 58% in Finland and Norway to just 13% in Korea.

Share of adults who participated in formal and non-formal learning, 2023 (%)

The data exposes equity gaps. Adults with lower education levels and incomes, along with those in lower-skilled jobs, are consistently less likely to participate in learning opportunities. The research emphasises that whilst 42% of non-formal training lasts just one day or less, such short formats often fall short of supporting the deeper reskilling needed for long-term workforce transitions.

Policy solutions require fundamental redesign of adult learning systems. Rather than one-size-fits-all approaches, effective strategies must combine financial incentives, flexible learning pathways and robust quality assurance. Individual learning accounts, training leave and targeted subsidies are some mechanisms highlighted that might improve access to adult learning whilst ensuring it delivers genuine career progression.

Source: OECD (2025). What's Missing in Adult Learning – and How Do We Fix It? Adult Skills in Focus #14.