Overcoming Exclusion through Adult Learning

168 Pages·1999·1.166 MB·English

by  John Walshe, Ian Nash

CENTRE FOR EDUCATIONAL RESEARCH AND INNOVATION
The phenomenon of social exclusion has become one of O
V
the outstanding problems on the eve of the 21st century. E
R D
C
Even with the long-term trend towards rising general levels of O
M
affluence across OECD countries, large sections of our I
N
G
societies are missing out and for some prospects are getting E
X
worse. Learning – in formal education and in a wide range of C
L
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other community and enterprise settings – represents one of
S
I
O
the most important means of overcoming exclusion. While
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much is known about the impact of schooling for young T
H
R
people, the relationships between exclusion and adult O
C
U
learning are less well examined. G
H
A
OVERCOMING
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This study seeks to address this gap, focusing on U
L
T
19 innovative learning initiatives that are making the L
E
difference in six countries: Belgium (Flemish Community), AR EXCLUSION
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Mexico, the Netherlands, Norway, Portugal, the United
I
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Kingdom (England). How well do these initiatives meet the G
learning needs of adults at risk of exclusion? How are they THROUGH ADULT
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organised and what are their innovative features? These are
the key questions answered, taking into account not only the
point of view of the analysts, organisers and administrators, LEARNING
but also that of the adult learners themselves.
O
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(96 1999 03 1 P) FF 160 --
ISBN 92-64-17026-X 99
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OVERCOMING EXCLUSION
THROUGH ADULT LEARNING
ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT
ORGANISATION FOR ECONOMIC CO-OPERATION
AND DEVELOPMENT
Pursuant to Article 1 of the Convention signed in Paris on 14th December 1960, and which
came into force on 30th September 1961, the Organisation for Economic Co-operation and Develop-
ment (OECD) shall promote policies designed:
– to achieve the highest sustainable economic growth and employment and a rising standard of
living in Member countries, while maintaining financial stability, and thus to contribute to
the development of the world economy;
– to contribute to sound economic expansion in Member as well as non-member countries in
the process of economic development; and
– to contribute to the expansion of world trade on a multilateral, non-discriminatory basis in
accordance with international obligations.
The original Member countries of the OECD are Austria, Belgium, Canada, Denmark, France,
Germany, Greece, Iceland, Ireland, Italy, Luxembourg, the Netherlands, Norway, Portugal, Spain,
Sweden, Switzerland, Turkey, the United Kingdom and the United States. The following countries
became Members subsequently through accession at the dates indicated hereafter: Japan (28th April
1964), Finland (28th January 1969), Australia (7th June 1971), New Zealand (29th May 1973),
Mexico (18th May 1994), the Czech Republic (21st December 1995), Hungary (7th May 1996),
Poland (22nd November 1996) and Korea (12th December 1996). The Commission of the European
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The Centre for Educational Research and Innovation was created in June 1968 by the Council of the
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ipants.
The main objectives of the Centre are as follows:
– analyse and develop research, innovation and key indicators in current and emerging education and
learning issues, and their links to other sectors of policy;
– explore forward-looking coherent approaches to education and learning in the context of national and
international cultural, social and economic change; and
– facilitate practical co-operation among Member countries and, where relevant, with non-member
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is supervised by a Governing Board composed of one national expert in its field of competence from each of the
countries participating in its programme of work.
Publié en français sous le titre :
SURMONTER L’EXCLUSION GRÂCE A L’APPRENTISSAGE DES ADULTES
© OECD 1999
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Foreword
This “What Works” study addresses some of the most important social and eco-
nomic issues of our day, and does so through a focus on initiatives that promote
learning. Learning is about opening access to economic activity and resources, and
for promoting many aspects of social, cultural and personal life. The renewal of
knowledge and skills is increasingly a prerequisite for meeting basic needs, for par-
ticipation in economic activities, and more broadly for full and active citizenship.
Learning takes place through the formalised, organised activities we call “educa-
tion”. At the same time, especially among adults, much goes on outside through a
wide range of less formal arrangements.
On approach, the “What Works in Innovation in Education” series is distinctive
among OECD education activities in being conducted over a short time period
(approximately one year from the beginning of the fieldwork to publication) yet
with visits made to all the countries and cases included.* The focus is on specific
initiatives within a set of participating countries, identified as having proved partic-
ularly effective and innovative in the areas relevant to that particular study. This
focus is complemented by relevant policy and contextual information for each
country.
Six countries (and parts of countries) participated in this year’s “What Works”:
Belgium (Flemish Community), Mexico, Netherlands, Norway, Portugal, UK
(England). The study is based on:
– Background reports prepared by country experts appointed by each partic-
ipating country.
* Previous themes for "What Works" studies were; 1993:School: A Matter of Choice (policies to
increase school choice have functioned in practice in six countries); 1994:Schools Under
Scrutiny (school evaluation in seven countries); 1995:Mapping the Future: Young People and
Career Guidance (educational and career guidance in seven countries); 1996:Parents as
Partners in Schooling (relationships between families and schools in nine countries);
1997:Staying Ahead: in-service training and teacher professional development (eight member countries). 3
OECD 1999
Overcoming Exclusion Through Adult Learning
– Visits to the six countries by the OECD Secretariat and/or consultants to
the study. Nineteen initiatives within these countries were examined in
detail. Their experiences and the conclusions that can be drawn about
effectiveness and innovation in learning initiatives that address exclusion
form the core of this study. Through interviews, learners’ views and voices
were gathered.
– Previous OECD reports and other research literature.
As in previous reports in the series, the country chapters that comprise PartII
are introduced by a substantial synthesis in PartI, covering the main issues, trends
and conclusions that emerge from the detailed national and local analyses. Partic-
ular attention has been paid in this report not only to the views of analysts, organ-
isers and administrators but to those of the adult learners themselves.
Under the overall responsibility of the CERI Secretariat, this report was pre-
pared by two consultants, Mr.Ian Nash of the Times Educational Supplement and
Mr.John Walshe of the Irish Independent. Within the Secretariat, the responsible offi-
cials were Motoyo Kamiya and David Istance, and they also contributed to the
drafting.
The report is published on the responsibility of the Secretary-General of
the OECD.
4
OECD 1999
Acknowledgments
We appreciate the work and support of country experts: Dr.Dirk Van Damme
(Belgium), Prof.John Field (United Kingdom), Ms.Ana Ma. Méndez Puga (Mexico),
Prof.Max Van der Kamp (the Netherlands), Ms.Margreth Steen Hernes (Norway)
and Prof.Rojerio Roque Amaro (Portugal). We are also grateful for contributions
made by consultants: Prof.Stephen McNair, Prof.John Field, Prof.Denis Kallen and
Mr.Donald Hirsch.
This study has been made possible by the financial assistance, through volun-
tary contributions, of the Department of Education of Belgium (Flanders); the Depart-
ment of Education of Mexico; the Department of Education in the Netherlands; the
Department of Education, Research and Church Affairs in Norway; the Department of
Education of Portugal; and the Department for Education and Employment (Interna-
tional Relations Division), United Kingdom.
5
OECD 1999
Table of Contents
Introduction................................................................................................................................ 9
Part I
THEMATIC REVIEW
Chapter 1. Social Exclusion and Adult Learning: Concepts and Dimensions................ 15
Growing attention to social exclusion ................................................................................ 15
Different perspectives on social exclusion ....................................................................... 15
Adult learning and social exclusion: relationships and dimensions .............................. 20
Chapter 2. Combating Exclusion through Adult Learning in Six Countries.................... 25
National policy approaches ................................................................................................ 25
Elements of policies to tackle exclusion through learning ............................................. 27
The case studies: Target issues and population .............................................................. 29
Organisational features of the case studies ...................................................................... 30
Local initiative and national policy .................................................................................... 34
Chapter 3. Innovation, Effectiveness and Lessons Learned............................................. 37
Introduction ........................................................................................................................... 37
Costs, efficiency and partnerships ..................................................................................... 38
Innovation and effectiveness .............................................................................................. 39
Implications for research ..................................................................................................... 46
Key policy considerations ................................................................................................... 46
Part II
COUNTRY CHAPTERS
Belgium (Flanders)................................................................................................................... 53
Context ................................................................................................................................... 53
Problems of exclusion in Belgium (Flanders) ................................................................... 54
Adult education and social exclusion ................................................................................ 55
Main policy approaches ....................................................................................................... 57
Case studies .......................................................................................................................... 59
Innovation and effectiveness .............................................................................................. 68
7
Commentary .......................................................................................................................... 69
OECD 1999
Overcoming Exclusion Through Adult Learning
Mexico......................................................................................................................................... 73
Context .................................................................................................................................... 73
Problems of exclusion in Mexico ......................................................................................... 74
Adult learning and social exclusion .................................................................................... 75
Main policy approaches ....................................................................................................... 76
Case studies ........................................................................................................................... 78
Innovation and effectiveness ............................................................................................... 87
Commentary ........................................................................................................................... 88
Netherlands................................................................................................................................ 93
Context .................................................................................................................................... 93
Problems of exclusion in the Netherlands ......................................................................... 94
Adult learning and social exclusion .................................................................................... 96
Main policy approaches ....................................................................................................... 97
Case studies ........................................................................................................................... 98
Innovation and effectiveness ............................................................................................... 108
Commentary ........................................................................................................................... 109
Norway......................................................................................................................................... 113
Context .................................................................................................................................... 113
Problems of exclusion in Norway ........................................................................................ 115
Adult learning and social exclusion .................................................................................... 116
Main policy approaches ....................................................................................................... 117
Case studies ........................................................................................................................... 119
Innovations and effectiveness ............................................................................................. 128
Commentary ........................................................................................................................... 129
Portugal....................................................................................................................................... 133
Context .................................................................................................................................... 133
Problems of exclusion in Portugal ....................................................................................... 134
Adult learning and social exclusion .................................................................................... 135
Main policy approaches ....................................................................................................... 137
Case studies ........................................................................................................................... 141
Innovation and effectiveness ............................................................................................... 150
Commentary ........................................................................................................................... 151
United Kingdom (England)...................................................................................................... 155
Context .................................................................................................................................... 155
Problems of exclusion in the United Kingdom ................................................................. 156
Adult learning and social exclusion .................................................................................... 158
Main policy approaches ....................................................................................................... 160
Case studies ........................................................................................................................... 161
Innovation and effectiveness ............................................................................................... 172
Commentary ........................................................................................................................... 172
8 Bibliography............................................................................................................................... 175
OECD 1999
Introduction
Social exclusion has become a major problem in many OECD countries on the
eve of the 21stcentury. If general levels of material affluence have continued to
rise, important sections of society have not shared in this growth. They have been
bypassed, they are missing out. The problem is compounded by the fact that exclu-
sion is about much more than income levels. Exclusion involves a lack of social
belonging and the absence of a sense of community. There are grounds for concern
that lives are becoming more fragmented and less inclusive. Furthermore, major
structural factors are at play that threaten to worsen the situation. The development
of globalising “knowledge” economies may marginalize large groups, either for geo-
graphical reasons or because of lack of access to knowledge and learning. Exclusion
is a problem that must be addressed.
Issues of exclusion, education and adult learning are being looked at from a
range of perspectives within the OECD.1 The distinctive contribution of this report
in the CERI “What Works in Innovation” series is two-fold in terms of subject matter
and approach. On subject matter, this study is a contribution to an important but
relatively neglected field. Instead of addressing issues of exclusion and issues of
adult learning separately, this report examines the impact adult learning can make
on overcoming exclusion. Thus far, the main focus has been on combating social and
economic disadvantage through initial education and training. Less attention has
been paid to addressing the problem through adult learning.2 Yet if lifelong learn-
ing for all is to become a reality, more emphasis will need to be given to this. This
report is one contribution to this approach.
In this study, we have sought to include diverse initiatives – formal, non-formal,
and informal learning; public sector, community, and enterprise-based. The learn-
ers targeted by the initiatives examined are also varied, whether indigenous com-
munities, or geographically-defined areas of social isolation, or the long-term
unemployed, or workers at risk of exclusion, or others. Learning and education rep-
resent not only the means to enhance access to knowledge, skills and diplomas in
order to overcome exclusion, important though this is. They are often important
direct vehicles for social inclusion – individuals meet others through learning and
develop confidence and new networks; communities organise themselves by and 9
OECD 1999