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 strategies aligned 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. 

To take this conversation further, the European Basic Skills Network (EBSN) invites policy-makers, practitioners, researchers, and adult learners to its 2025 annual conference: From Evidence to Action: Advancing Adult Basic Skills for Tackling Inequalities - 18-20 June 2025 – Brussels.