More than a Decade of RALE: Why Adult Learning Matters More Than Ever

 

 

By Arne Carlsen (HOF 2017)

A little over ten years ago, UNESCO Member States adopted the Recommendation on Adult Learning and Education (RALE). At the time, many of us regarded it as a landmark achievement—the first comprehensive international normative framework for adult learning in almost forty years, replacing the 1976 Recommendation on the Development of Adult Education. Looking back today, I believe its significance has only grown.

As Director of the UNESCO Institute for Lifelong Learning (UIL), I had the privilege of chairing the Steering Committee that guided the drafting of the Recommendation. It was a fascinating and rewarding process. Governments, international organizations, researchers, and civil society representatives came together to discuss what adult learning should look like in the twenty-first century. We did not agree on everything, but we did agree on one essential point: learning does not stop when people leave school.

The new Recommendation did much more than update its predecessor. The 1976 Recommendation was visionary for its time. It established adult education as an integral part of national education systems and affirmed its importance for personal development, social progress, and international understanding. But the world had changed profoundly in the four decades that followed. Globalization, technological innovation, demographic change, new patterns of work and migration, and the emergence of lifelong learning as a guiding educational principle all called for a broader vision.

RALE responded to these changes by reframing adult education as adult learning and education, recognizing that adults learn throughout their lives in formal, non-formal, and informal settings. It explicitly embraced technical and vocational education and training (TVET) alongside literacy, continuing education, community learning, and higher education opportunities for adults. It also placed far greater emphasis on quality, governance, sustainable financing, professionalization of educators, recognition of prior learning, monitoring, and accountability. Importantly, it recognized that international cooperation—through knowledge sharing, capacity development, research, policy dialogue, and partnerships—is essential if countries are to strengthen adult learning systems and respond collectively to global challenges.

That broader perspective may seem self-evident today, but in 2015 it represented an important shift in thinking. Adult learning had too often been viewed narrowly—as literacy programmes or vocational training. Those remain fundamental, of course, but they are only part of the picture.

RALE embraced a much broader vision. It recognized that adults continue to learn throughout their lives—in workplaces, communities, families, and everyday experiences. It highlighted the importance of learning not only for employment, but also for health, civic participation, culture, personal fulfilment, and social inclusion.

One feature of the Recommendation that I continue to value is its recognition of the three interconnected domains of adult learning: literacy and basic skills; continuing education and professional development; and liberal, popular, and community education. This was one of RALE's most important conceptual innovations. Together, these domains acknowledge that adult learning serves multiple and interconnected purposes. It contributes to economic growth and employability, certainly, but it is equally important for strengthening communities, supporting democratic participation, fostering social cohesion, and enhancing individual well-being.

Another important aspect of RALE is that it looks beyond individual programmes. Sustainable adult learning depends on strong systems. That means coherent national policies, adequate financing, professional educators, flexible learning pathways, recognition of prior learning, quality assurance, and reliable monitoring of progress. These may sound like technical issues, but they determine whether adults actually have meaningful opportunities to learn throughout their lives.

The year 2015 was significant for another reason. It was also the year the United Nations adopted the 2030 Agenda for Sustainable Development, with Sustainable Development Goal 4 committing the international community to "ensure inclusive and equitable quality education and promote lifelong learning opportunities for all." RALE has provided an important framework for translating that global commitment into national policies for adult learning.

Much has changed over the past decade. Digital technologies have transformed how we work and learn. Artificial intelligence is reshaping economies and societies. Climate change demands new knowledge and new forms of civic engagement. Populations are ageing in many countries, while migration continues to reshape communities. And, of course, the COVID-19 pandemic reminded us how quickly people's lives can change—and how essential learning is for adapting to new realities.

These developments have reinforced something that many adult educators have argued for years: adult learning is not simply about preparing people for jobs. It is about helping people navigate change. Adults need digital skills, media literacy, critical thinking, health literacy, environmental awareness, and the confidence to participate actively in their communities and democratic institutions. Lifelong learning has become an essential source of resilience—for individuals and for society as a whole. UNESCO's landmark report Reimagining Our Futures Together: A New Social Contract for Education reinforces this vision by placing lifelong learning at the heart of education for the future.

One lesson I still carry from chairing the drafting process is that international consensus is possible when discussions are grounded in evidence, mutual respect, and a shared commitment to human development. That spirit is reflected not only in the way RALE was drafted but also in the Recommendation itself, which calls for stronger international cooperation in research, policy exchange, capacity development, and mutual learning. RALE reflects contributions from every region of the world. It is not simply a UNESCO instrument; it is the product of Member States working together to strengthen adult learning and education.

Progress in implementing the Recommendation continues to be monitored through UNESCO's Global Report on Adult Learning and Education (GRALE), published by UIL. The successive reports demonstrate both encouraging progress and the considerable work that still lies ahead.

Of course, no recommendation changes the world on its own. Its impact depends on what happens after adoption. Governments, employers, educational institutions, civil society organizations, and learners themselves all have important roles to play in ensuring that adults have genuine opportunities to continue learning throughout their lives.

As we move into the second decade of RALE, I hope we see it not simply as a milestone worth celebrating, but as a reminder of unfinished work. The challenges facing our societies have become more complex, not less. That makes the case for lifelong learning even stronger than it was in 2015.

If there is one message I would leave with policymakers, educators, and all those who care about education, it is this: investing in adult learning is investing in more inclusive, resilient, democratic, and sustainable societies. More than a decade after RALE, that remains its most important lesson.

Continue the Conversation

RALE reminds us that adult learning is much more than preparing people for work—it is about empowering individuals and strengthening communities throughout life. More than a decade after its adoption, its vision remains highly relevant as societies respond to rapid technological change, demographic shifts, climate challenges, and evolving workforce demands.

We invite you to join the conversation:

• How has RALE influenced adult learning and education policies or practices in your country or organization?
• Which of RALE's principles do you believe are most critical for addressing today's global challenges?
• What progress have you seen in strengthening adult learning systems, and where do significant gaps remain?
• How can adult learning better support inclusion, resilience, democratic participation, and lifelong learning in the years ahead?
• What actions should educators, policymakers, institutions, and communities prioritize to ensure that adult learning remains central to building more equitable and sustainable societies?

Share your experiences, perspectives, and examples in the comments below. Together, we can continue advancing the vision of lifelong learning for all.

 

 

My Journey with the UNESCO Global Network of Learning Cities: Building Communities Through Lifelong Learning

 

  

By Arne Carlsen (HOF 2017)

When I became Director of the UNESCO Institute for Lifelong Learning (UIL) in 2011, I was convinced that lifelong learning should extend far beyond schools and universities. Learning takes place in homes, workplaces, libraries, museums, community centers, and public spaces. If learning is truly lifelong, our cities must become environments where everyone has the opportunity to learn throughout every stage of life.

This belief shaped my work with the UNESCO Global Network of Learning Cities (GNLC), an initiative that places lifelong learning at the heart of sustainable urban development. The network encourages cities to see learning as a shared responsibility involving local governments, educational institutions, businesses, civil society, and citizens themselves.

One of the greatest privileges of my career was witnessing cities around the world embrace this vision. Despite their different cultures, languages, and circumstances, they shared a common understanding: communities flourish when learning opportunities are accessible to everyone, regardless of age or background.

The GNLC became far more than a network of municipalities. It evolved into a global community where cities exchange ideas, share successful practices, and learn from one another. A city addressing literacy challenges can benefit from another city's innovative community programs, while others draw inspiration from initiatives promoting digital inclusion, intergenerational learning, and active citizenship.

At UIL, we sought to provide both strategic direction and practical support. Together with colleagues and international partners, we developed guiding frameworks, organized international conferences, and encouraged peer learning among member cities. Rather than promoting a single model, we encouraged each city to build on its own strengths while working toward a shared goal: creating a culture of lifelong learning.

Throughout my travels, I met mayors, educators, and community leaders whose commitment was both inspiring and practical. Libraries became vibrant learning hubs, museums expanded their educational role, employers invested in workforce development, and volunteers strengthened literacy initiatives. These experiences confirmed that lifelong learning is not an abstract policy concept but a powerful means of improving people's lives and strengthening communities.

The Learning City movement also reinforced my belief that lifelong learning is essential for achieving sustainable development. Education supports not only individual growth but also better health, social inclusion, gender equality, employment, environmental responsibility, and democratic participation. Cities that invest in learning invest in their future resilience and prosperity.

One lesson stands out above all others: successful learning cities are built through partnerships. No single institution can create a learning society. Progress depends on collaboration among municipal authorities, educational institutions, cultural organizations, businesses, and community groups. When these partners work together, learning becomes woven into the fabric of everyday life.

Equally important is inclusion. A learning city must reach those who have traditionally had fewer educational opportunities, including older adults, migrants, refugees, people with disabilities, and those who left formal education early. Lifelong learning fulfills its promise only when it expands opportunities for everyone.

Looking back, I am proud that the UNESCO Global Network of Learning Cities has grown into a worldwide movement connecting more than 400 cities committed to lifelong learning. More importantly, it has fostered lasting partnerships and inspired local innovation across every region of the world.

Today, rapid technological advances, artificial intelligence, climate change, geopolitical and security challenges, demographic shifts, and growing inequalities make lifelong learning more important than ever. These challenges require citizens who continue learning throughout their lives and cities that actively support this lifelong process.

My hope is that the Learning City movement will continue to inspire future leaders to place learning, inclusion, and human dignity at the center of urban development. By doing so, cities will become not only more competitive and sustainable but also more inclusive, resilient, and humane. Lifelong learning remains one of the most valuable investments we can make in the future of our communities.

Join the Conversation

Every learning city has its own story, and every educator, policymaker, and community leader brings a unique perspective on what lifelong learning can achieve. What examples have you seen in your own community? What opportunities or challenges do you believe will shape the future of learning cities?

We invite you to share your experiences, ideas, and reflections in the comments below. By learning from one another, we continue the spirit of collaboration that has been at the heart of the UNESCO Global Network of Learning Cities from the very beginning.

References

Organisation for Economic Co-operation and Development (OECD). (2021). OECD Skills Outlook 2021: Learning for Life. OECD Publishing. https://doi.org/10.1787/0ae365b4-en

UNESCO. (2015). Education 2030: Incheon Declaration and Framework for Action for the implementation of Sustainable Development Goal 4. Paris: UNESCO.

UNESCO Institute for Lifelong Learning (UIL). (2013). Key Features of Learning Cities. Hamburg: UNESCO Institute for Lifelong Learning.

UNESCO Institute for Lifelong Learning (UIL). (2015). Guiding Documents for the UNESCO Global Network of Learning Cities. Hamburg: UNESCO Institute for Lifelong Learning.

UNESCO Institute for Lifelong Learning (UIL). (2017). Unlocking the Potential of Urban Communities: Case Studies of Twelve Learning Cities. Hamburg: UNESCO Institute for Lifelong Learning.

UNESCO Institute for Lifelong Learning (UIL). (2019). UNESCO Global Network of Learning Cities: Membership Brochure. Hamburg: UNESCO Institute for Lifelong Learning.

UNESCO Institute for Lifelong Learning (UIL). (2024). UNESCO Global Network of Learning Cities. https://www.uil.unesco.org/en/learning-cities

United Nations. (2015). Transforming Our World: The 2030 Agenda for Sustainable Development. United Nations.

Inclusive Data for Global Impact – Shaping the Future of Adult Learning Evaluation

The 2024 Hall of Fame Induction Conference in Florence hosted a significant working group discussion on the Marrakech Framework for Action (MFA), the outcome document of the 7^th International Conference on Adult Learning and Education held in Morocco in June 2022 (CONFINTEA 7), and its monitoring and data collection mechanisms. Facilitated by Working Group 1 (WG1) Mentor Arne Carlsen (IACEHOF 2017), chaired by UIL Director Isabell Kempf, and with critical contributions from Nicolas Jonas of the UNESCO Institute for Lifelong Learning (UIL), the session explored strategies for developing inclusive and context-sensitive data frameworks to support global monitoring of Adult Learning and Education (ALE) through GRALE—the Global Report on Adult Learning and Education.

 

This working group focused on addressing the pressing need to broaden the scope of actors involved in data collection, moving beyond traditional government-led structures. As ALE is increasingly shaped by a diverse network of public and non-public entities, current monitoring strategies often fall short in capturing the full breadth of ALE activities, particularly those led by civil society organizations (CSOs) and private providers. The group’s objective was clear: to develop actionable recommendations for a more inclusive and effective data monitoring system.

 

Before the in-person meeting in Florence, a preparatory webinar set the stage by identifying best practices for engaging non-state actors. This pre-conference engagement ensured participants came prepared to dive deep into the complexities of global ALE data systems.

 

Key Challenges Identified

• Incomplete Data Coverage: ALE programmes run by CSOs and private providers are often not reflected in government reports, resulting in a fragmented picture of learning opportunities.
• Institutional Capacity Gaps: Many national monitoring systems face limitations in technical capacity, human resources, and infrastructure, hindering their ability to collect and validate comprehensive data.
• Misaligned Frameworks: Global monitoring tools like GRALE must account for diverse regional priorities and localized mechanisms—a difficult but crucial task.

 

The Role of Non-State Actors

Non-state stakeholders—especially CSOs and private companies—play an instrumental role in ALE delivery and innovation. Their involvement in data collection is not only logical but essential, as these actors often reach marginalized populations typically excluded from mainstream statistics. Participants discussed how their inclusion would improve both the reach and quality of data.

 

Recommendations for Capacity Building and Collaboration

Participants underscored the importance of joint initiatives that bring together governments, private sector organizations, and civil society. Cross-sector partnerships can create capacity-building programmes that develop data literacy and establish consistent methodologies. Moreover, participants called for ongoing, multi-level dialogue—national, regional, and global—to ensure monitoring systems remain relevant, inclusive, and widely adopted.

 

Exploring Alternative Data Sources

A forward-looking suggestion involved leveraging unconventional yet promising data sources, such as LinkedIn analytics or company-based human resource databases. While non-traditional, these sources could help fill data gaps, particularly regarding employment and skill development trends. Transparency and communication were deemed essential for securing buy-in from all involved parties.

 

Workshop Recommendations

The working group put forth several actionable strategies:

• Implement capacity-building activities to promote collaboration between government agencies and CSOs.
• Develop a global communication strategy to disseminate the goals and findings of GRALE 6.
• Maintain open dialogue with key stakeholders to align global monitoring tools with local and regional priorities.

 

Outcomes and Future Directions

As a direct result of the working group, partnerships were strengthened with key international actors, including ICAE, AONTAS, and DVV International. These enhanced collaborations are expected to play a pivotal role in advancing the implementation of GRALE 6. In parallel, UIL plans to integrate the workshop’s feedback to refine its monitoring framework.

 

Capacity-building activities led by UNESCO field offices are also in the pipeline, aimed at supporting more inclusive and context-sensitive data collection processes tailored to regional needs.

 

Beyond the technical outcomes, the session highlighted the essential role of data in shaping global agendas for ALE. ALE’s potential to address pressing global challenges—ranging from digital transitions and climate change to aging populations—can only be fully realized when monitoring frameworks capture the full diversity of learning environments and actors.

 

By prioritizing inclusion and collaboration, WG1 set a new global standard for evaluating lifelong learning.