Seeking continuities and discontinuities in the European policy agenda(s) for adult learning – Reflections on purposes and governance

Abstract

This article focus on what is and isn’t ‘new’ in the most recent European Union (EU) key policy document for Adult Learning (AL), because it claims (in its own title) that it will constitute a basis for a ‘new’ agenda. As this document has been much disseminated to Member States, we think it is important to analyse its evidence of the ‘new’ determined by comparing the 2021 Council Resolution [the ‘New European Agenda for Adult Learning 2021–2030’ (CEU, 2021)] with the two other previous EU’s key policy documents for AL [the ‘Renewed European Agenda for Adult Learning’ (CEU, 2011) and the ‘Adult Learning: It is Never too Late to Learn’ (CEC, 2006)]. By highlighting how the discourse of the ‘new' is used in the European policy agenda(s) we expect to give an interesting contribution for the actors that, in each country, are looking for policy implementation beyond rhetoric statements. From this analytical angle, we use an adult education policy discourse analytical model as a theoretical framework to seek for continuities and discontinuities in purposes and governance of AL in the EU. Thus, we seek the policy approach and educational rationale supporting what is claimed by the Commission of the EU to be explicitly ‘new’ in the most recent AL key policy document (which has significantly been entitled ‘The New European Agenda for Adult Learning 2021–2030’). The core results of a comparison focussed on the educational aims, vision and policy purposes as well as main governance mechanisms of these three key documents, suggest that the ‘new’ in the CEU (2021) document (also known in the literature as the NEAAL 2030) is not really ‘new’. Instead, the recent document reflects and maintains trends within previous rationale dating from 2006 and 2011, with policy priorities rooted in the logic of human resources management, as well as governance trends based on multilevel coordination at the European level. Here, the modernising trend toward a framework of control and standardisation, according to our theoretical model, seems to have gained momentum as a political rationale over the last 15 years. We argue those set of major continuities were, indeed, assisted by the discursive power of the ‘new’, which is a hyperbole favourable to the political purpose of disseminating an educational rationale of functional adaptation whose AL guidelines can influence the national policy implementation in the current contexts of Europeanisation.