Although quality is at the centre of adult learning systems, it is challenging to design and manage quality mechanisms effectively in adult basic skills programs that take place in a wide range of environments e.g., at the workplace, at home, in training institutions etc. Policies regarding adult learning and adult basic skills systems regard quality as a priority. In doing so, they acknowledge that defining quality in such initiatives need to account for flexibility, complexity, and highly context-based nature of adult basic skills programs. Institutions providing basic skills programs make use of quality frameworks set in policies, but they still need to translate these general standards to their own context-specific setting that is determined by the learners’ life conditions too.

This blog post focuses on this complex matter and aims at looking at what quality considerations some stakeholders in adult basic skills policy and practice are taking today. In the first half of the article, the most relevant policies for adult basic skills development are taken into account to see how these initiative contributed to the field and what they have to say about ensuring quality. In the second part of blog, the main points of a quality-oriented expert panel discussion are presented (EBSN’s 2023 conference on quality and professional development), to see how some key stakeholders with various background think about managing quality for adult basic skills programs in the future.

Quality in adult basic skills policies

New European agenda for adult learning 2021-2030

One of the key policy documents for adult learning in general, the New European Agenda for Adult Learning, sets out five priorities for the adult learning sector for the current cycle between 2021 and 2030 (i.e., NEAAL 2030). Out of the five priorities, quality is one. The Agenda (p. 22) promotes the following points for quality assurance:

• "Quality assurance of adult education and training providers and their partners on the systemic level should be further strengthened as appropriate.
• Monitoring the results of adult learning provision can increase quality assurance.
• Education and training should be more learner-centred and could provide short learning experiences to acquire or update targeted competences.
• The continuous development of monitoring, evaluation and quality methods is essential for ensuring that learning outcomes are evaluated and that progress is a prospect.
• In order to support the quality of adult learning, national and regional systems or models, including the validation and recognition of prior learning, should aim at developing and providing internal and external quality assurance."

Council Recommendation on Upskilling Pathways: new opportunities for adults

The most relevant EU policy for adult basic skills systems is the Upskilling Pathways which was adopted in 2016. It promotes a highly flexible and concise system for providing basic skills learning opportunities for adults who lack sufficient skills in reading and writing, numeracy, and basic digital skills. The three steps of the Recommendation (i.e., skills assessment, tailored learning offer, validation) suggest a need for a smooth transition from looking at what is needed for the individual, allowing one to engage in training opportunities in a form that is suitable for the learner’s life conditions, and finally, obtaining a qualification with which one can either enter the labour market or strengthen one’s already acquired position at work.

Since 2016, Member States’ investments in such robust adult basic skills systems paint a diverse picture. In this section, the results of a preliminary study supporting the Recommendation’s evaluation are shared to see the main focus areas on how quality could be improved in the future.

The study analysed the Member States’ initiatives with regards to the Recommendation on Upskilling pathways in five aspects:

• effectiveness
• efficiency
• relevance 
• coherence
• EU added value

In terms of effectiveness the study shows that moderate changes and progress were made in Member States to implement the Recommendation. “Since 2016, there has been an overall improvement in the educational attainment level of adults across the EU, with the share of low-qualified decreasing in all Member States (except Germany) in that time and the EU average falling from 23.4% to 20.7%” – says the supporting study (p. 145).

The study acknowledges that efforts were made to implement the three-step approach that lies in the heart of Upskilling Pathways (i.e., skills assessment, tailored learning offer and validation). Although many States implemented changes with regards to either of the three steps, it remains a challenge to consider all three aspects systematically, which would imply flexibility to the adult basic skills programs. “There is also less evidence of clear efforts to ensure a smooth integration and improved permeability of the three steps (and accompanying measures) into one comprehensive pathway” (p. 146).

With regards to efficiency, the study states that in those countries where adult learning policies had already been aligned with the scope of the Recommendation before 2016, no (or very low) additional costs emerged, whereas in countries where the adult learning systems had not been fully in line with the Upskilling Pathways, costs were higher.

The benefits of the Upskilling Pathways could be detected on the learners’, the employers’, and the society’s levels. Learners experienced increased opportunities leading to become more active socially and on the labour market too. Employers had access to additional funding due to the Recommendation, which contributed to decreasing skills shortages and increased motivation of employees. On a societal level, the upskilling initiatives contributed to the intention to increase income tax and VAT, increased wages, and consumer spending.

The relevance of the Recommendation’s objectives is evident in all EU countries (i.e., lower levels of qualification of adults, low shares of digital skills). The study suggests that the objectives, the target groups, and the systemic and flexible approach of the three steps of the Upskilling pathways have become even more relevant over the years.

The Recommendation promotes a rather coherent (albeit a very complex) system that most Member State can relate to. The success factors identified by the supporting study regard inter-sectoral cooperation, an all-of-government approach with a wide representation of different stakeholders in employment, social affairs, and training. The main challenges in coherence with national policies are also listed in the study:

• “a focus on other key policy priorities
• the time needed to progressively align national policies with the Recommendation
• resistance from certain stakeholders who fear that the existing VET/dual training systems could be undermined
• the ongoing absence of a specific national adult learning strategy or system
• frequent changes in government slowing down the implementation of new measures
• ensuring a tailored approach for low-skilled adults without creating a parallel system or fragmentation in their learning pathway
• lack of sufficient coordination at national level and the negative impact of the Covid-19 pandemic on adult learning” (p. 152).

Finally, it is interesting to consider that, according to the study supporting the evaluation of the Upskilling Pathways Recommendation, the following adult learning measures were improved in quality due to this initiative: motivation and outreach measures to raise awareness on training benefits; provision of tailored offer; guidance and/or mentoring to support learners’ progression.

EU approach to micro-credentials

An additional policy that could contribute to quality management in adult basic skills programs too, is the Recommendation on a European approach to micro-credentials for lifelong learning and employability. The Recommendation aims at creating a common set of reference and transparency for micro-credentials issued in the European education & training community by defining standard and optional elements. In the design of micro-credentials quality assurance is of primary importance in the Recommendation:

"Micro-credentials are subject to internal and external quality assurance by the system producing them (e.g. the education, training or labour market context in which the micro-credential is developed and delivered). Quality assurance processes must be fit-for-purpose, clearly documented and accessible and meet the needs and expectations of learners and stakeholders" (p. 29). 

Micro-credentials are expected to introduce a flexible and modular approach to the recognition of learning beyond formal and robust qualifications. Therefore, it could create a momentum and a tool for the recognition of learning outcomes in adult basic skills programs too.

Message from the field: how do stakeholders view quality?

This section outlines the main considerations from various member organisations of the European Basic Skills Network to see how some basic skills-related institutions go about the challenges in managing and improving quality in their field.

Approaching quality – the role of frameworks

Judith Alamprese from Abt Associates, USA, put forward the use of benchmarks in quality management that are backed up by academic standards, relevant policies, and research on instruction. These benchmarks can be understood as a background and a source for quality concepts that later translate into general frameworks. During this translation process the concept of quality is codified into the resulting framework, either directly or indirectly, thereby paving the way for certain concepts of quality. The advantage of such frameworks is that they create a clear overview and a set of guidelines for developing curricula in a standardised way, which then helps evaluation and large-scale implementation of training programmes. The disadvantage of standardised frameworks in this matter is that it becomes rather difficult to come up with an alternative quality concept that may lie beyond the scope of the existing framework. It could make change slow and bureaucratic.

Judith emphasised the role of a step-by-step approach when it comes to curriculum design. There needs to be a pilot phase where learners’ needs are checked, and an evaluation phase through which the implementation of curriculum at hand is assessed. Whenever there is a break-down in the learning process, three considerations can be made:

1. Frameworks: How does the framework translate into instructional materials? Is the link between the framework and the curriculum clear and coherent?
2. Instructional materials: Are the materials implemented as they were intended?
3. Curriculum design: Does the instruction support learners?

Managing quality in basic skills programs

Experiences from the UK

Alex Stevenson from the Learning & Work Institute, UK, agreed that although frameworks for quality have their merits, they leave relatively little room for alternative interpretations of quality. Usually, frameworks and formal training systems focus on learner's achievement, progression, and acquisition of qualifications. This is, however, not describing the reality of the learning processes of adults who engage in basic skills programs in a more diverse manner.

National inspection framework provided in the UK by Ofsted have a so-called linear view on learning, whereas in adult learning people tend to go back and forth between training programmes, modules ending up with a wider range of outcomes. Hence, the scope of what inspection regards as "achievement" needs to be broadened to be able to account for other gains such as social outcomes too. The challenge in the UK (and in many other countries) is to design an evaluation scheme for quality that can capture a wider range of benefits learners may reach.

It has been proven in the UK that such robust evaluation mechanisms can grasp the social benefits too which then, could be used as evidence when trying to secure funding with policy-makers for adult learning programs. In 2016, a community-based training program was conducted to teach English language to immigrants in the UK. The Learning & Work Institute used a validated social metrics to get a robust and measurable integration outcome on the program (e.g., considering indicators such as the number of social contacts and interactions made by participants before and after the training program). The evaluation used randomised control trials (RCTs) which helped in the collection of a more diverse set of evidence. This evidence was used during the budgetary negotiations with the finance ministry to ensure that further funding is allocated to the program in the coming years.

Quality management involving social outcomes may thereby enrich the evidence on the benefits of adult basic skills programs that are very diverse. In order to ensure such quality processes, it is important to collect data that go beyond the standard scope of, for example, course completion, learner satisfaction, effectiveness, efficiency and include data also from the social domain: confidence, social cohesion, integration, financial literacy, mental health indicators etc.

Experiences from Switzerland

Cäcilia Märki from the Swiss Federation for Adult Learning (SVEB) introduced a number of quality-related initiatives that is managed by SVEB. One of these is a quality label called eduQua that is “the first Swiss quality label geared towards providers of adult learning programmers. The label promotes transparency and comparability of adult learning for the benefit of consumers and contributes to safeguarding the quality of adult education programmers in Switzerland. More than 1,000 schools, institutes and academies in the whole of Switzerland are eduQua certified.” The label ensures certain minimum standards in the field of adult learning. Although 75% of the training institutions have acquired the eduQua label in Switzerland, it can be a costly and a demanding certification process for smaller institutions providing basic skills courses for adults.

SVEB additionally issues a certificate for trainers too called SVEB trainer certificate. There are different professional development programs issued by SVEB regarding the context of teaching and the target group. SVEB Professional Practice Trainer Certificate provides "the basic skills to train individual adult learners in the work place. With the extension module, you can simultaneously obtain the SVEB Trainer certificate and prepare for the Federal Trainer Diploma.” The Federal Trainer Diploma “is designed for professionals who wish to specialise in adult education within an educational institution or in company-based initial and continuing education."

SVEB also has the mandate to coordinate action in creating a common system of national diploma program for basic skills teachers and tutors in Switzerland. This initiative aims at creating a common point of reference in the professional development of basic skills teachers and trainers that is still a challenge in many European countries. As for basic skills provision, SVEB participates in a governance structure with other interest groups and basic skills providers to influence and participate in the discussion concerning overall national goals and quality objectives.

Besides the quality label, the diverse set of professional development programs, and national coordination, SVEB also publishes a yearly report on how the adult learning sector is developing in Switzerland, and a bi-annual report with a special focus on basic skills. The first results of this survey will be available in 2023.

Although these initiatives show an active role, Cäcilia mentioned that there is still room for improvement in terms of collecting and analysing data on the different funding structures providing literacy training, and on the availability of provision and participation in a comparable way.

Experiences from Finland

Erno Hyvönen from the Finnish Ministry of Education and Culture presented two programs engaging in basic skills development in the frame of the formal education system. One of them is called "Preparing for qualification" in English and it is a one-year program at the entry point to the upper-secondary education. This program gives the opportunity for learners for spending an additional year to develop foreign language skills and basic skills.

Another program was introduced called "Studies supporting learning abilities" which aims at developing language skills, basic skills, ICT skills, citizenship skills, via support and guidance. This program is dedicated primarily to VET providers, who have certain difficulties implementing such a program in the VET system. The Ministry conducted a project to support 55 VET providers with the financial aid of 4 million Euros. The project was about sharing best practices on how to implement this program in VET, and how institutions can best use this chance to benefit learners with basic skills needs. Erno mentioned that the key to the quality provision lies with convincing VET teachers which then, can lead to a more successful implementation.

The Ministry remains in ongoing discussion with VET institutions on how to improve these programs to help learners acquire upper-secondary qualifications. The key is to obtain a VET qualification (at least on the upper secondary level) to be able to enter the labour market.

A European perspective

Sofie Doškářová from the European Commission mentioned that the way how policies conceptualise quality in adult basic skills programs is coded into key initiatives in the field i.e., the Upskilling pathways and the New European Agenda for Adult Learning 2021-2030. Sofie highlighted that although quality assurance mechanisms tend to be in place for formal learning programs, it is less straightforward in non-formal systems. She added that efforts to ensure sufficient quality measures can be more demanding for smaller organisations than for formal institutions. However, it is still something worth investing in as quality management systems introduce accountability and create trust from learners, which boosts motivation to engage in learning programs.

As for additional data collection to improve quality in adult basic skills programs and policies, Sofie suggested that more quantitative data on basic skills programs, and more information from learners would be very useful in the future.

Conclusion

The need to ensure sufficient quality management systems is common sense in formal training systems with regards to the providing institutions in adult learning, trainers and programs too. Quality frameworks have their merits in formal systems, they support the development of curriculum, evaluation schemes and other measures that help maintaining quality in all walks of the learning process.

It is, however, not that straightforward in adult basic skills programs which is far from being standard in the EU Member States. Basic skills programs take place in a wide range of settings in formal and non-formal environment provided by trainers with a diverse professional background.

In such a diverse landscape, quality measures need to grasp the complexity of these programs by involving conventional and other indicators, perspectives when analysing and managing quality. The use of micro-credentials in line with the EU approach can also contribute to the quality of adult basic skills programs. With a careful design, micro-credentials can be an essential part in assuring quality in a diverse, complex, and often tailor-made learning process such as one finds in the field of adult basic skills initiatives.

Let us know!

This article aimed at presenting a brief case on the EU policy with regards to quality in adult learning programs and, especially, on basic skills programs with a few national accounts on experiences. We invite all our readers to share their own experiences on quality management in the comment section.

Learning from each other is one way of finding flexible and creative ways to grasp the complex nature of quality in adult learning and basic skills development programs!