Education

UK's narrow post-16 education focus sparks calls for lifelong learning overhaul

Tuesday, 28 October 2025 5:04AM UTC

Emeritus Professor John Holford criticises the UK government's recent white paper, highlighting a dramatic decline in adult participation in further education and urging a shift towards a broader, more inclusive educational vision rooted in social and democratic values.

John Holford, emeritus professor of adult education at the University of Nottingham, has sharply criticised the UK government’s recent white paper on post-16 education for its narrow focus on employment skills at the expense of a broader educational vision. He argues that the white paper reflects a continuation of a policy approach dominant since the 1990s, which prioritises employer-led skills training, ultimately to the detriment of lifelong adult education. Holford laments that this approach has contributed to a dramatic decline in adult participation in further education—the lowest levels since the 1940s. He contrasts this with the broader, more humane and liberal educational ideals championed by early 20th-century educationists like RH Tawney, which embraced education for democracy, community, and social inclusion.

The decline Holford describes is echoed by recent research from the Learning and Work Institute, which reveals a startling halving of adult learner participation in further education institutions since its peak in 2009. Whereas around 15% of adults engaged in further education then, by 2023 this had fallen to just 7.5%. This reduction corresponds with substantial cuts in government funding and a generally low level of employer investment in adult training compared to other advanced economies. The cumulative effect, according to the Institute, is a loss of nearly four million adult learners over the past decade, signalling a crisis in the UK’s adult learning ecosystem and raising concerns about its potential consequences on economic growth and social mobility.

This trend of declining adult education participation is not unique to the UK. An OECD report from mid-2025 outlines broad international patterns, noting that many countries have experienced stagnation or outright declines in adult learning. While some countries like Estonia and Ireland have bucked the trend with marked increases in adult learning participation, others such as Korea, Israel, Poland, and Singapore have seen significant falls. The OECD also highlights persistent inequalities in access to adult education based on socio-economic status. Interestingly, some of these gaps are narrowing, but largely because those previously most engaged in learning—men, high earners, and individuals in skilled occupations—are participating less. The agency stresses a critical need for policies that dismantle structural barriers to adult education and widen access among underrepresented groups.

Voices from within the adult education community reinforce Holford’s concerns and underscore the human toll of these policies. One former local education authority officer who witnessed the devolvement of colleges from public control recalls how the loss of political influence and funding safeguards contributed to an alarming rise in the numbers of 16- to 24-year-olds not in education, employment or training (NEET). Another commentator points to the enduring struggle of vocational qualifications to gain respect, lamenting that entrenched academic elitism marginalises crucial tradespeople and care workers the economy desperately needs. Both arguments underline calls for a post-16 education system that values fully funded vocational options alongside academic pathways and embraces adult education as a lifelong endeavour, not merely a route to immediate employment.

Taken together, these analyses and testimonies challenge the UK government’s current post-16 education trajectory. They call for a radical rethinking beyond the narrow confines of employer-centred skills training towards a richly integrated system that supports lifelong learning, democratic participation, and social inclusion. The failure to do so risks further eroding adult educational opportunities at a moment when skills, adaptability, and civic engagement are increasingly vital. There is a pressing need for a system imbued with the “broad and generous, humane and liberal spirit” that figures like Tawney advocated—a vision that once animated adult education and can still inspire it today.

📌 Reference Map:

Paragraph 1 – ^[1] The Guardian, ^[2] The Guardian
Paragraph 2 – ^[3] FE Week, ^[4] Learning and Work Institute
Paragraph 3 – ^[6] OECD report, ^[7] OECD executive summary
Paragraph 4 – ^[1] The Guardian
Paragraph 5 – ^[1] The Guardian

Source: Noah Wire Services

More on this

https://www.theguardian.com/education/2025/oct/27/adult-education-should-be-for-life-not-just-a-job - Please view link - unable to able to access data
https://www.theguardian.com/education/2025/oct/27/adult-education-should-be-for-life-not-just-a-job - In this article, John Holford critiques the UK government's white paper on post-16 education, arguing that its focus on employer-driven skills training neglects the broader, lifelong learning advocated by RH Tawney. He highlights the decline in adult education participation since the 1990s, attributing it to an overemphasis on employment-centric education. Holford also points out the lack of emphasis on education for democracy, community, equality, and social inclusion in the white paper, suggesting that it fails to embody the 'broad and generous, humane and liberal spirit' of adult education.
https://feweek.co.uk/adult-learner-numbers-have-bombed-to-post-war-levels-says-lw/ - Research by the Learning and Work Institute reveals a significant decline in adult participation in further education, reaching levels not seen since the aftermath of World War II. The proportion of adult learners in further education institutions peaked at around 15% in 2009 but halved to about 7.5% by 2023. This sharp decline is attributed to ongoing cuts in adult education funding, raising concerns about the impact on economic growth and the UK's progress in adult learning.
https://learningandwork.org.uk/news-and-policy/decade-of-decline-in-adult-learning-with-four-million-lost-learners-since-2010/ - A national survey by the Learning and Work Institute indicates a record low in adult participation in education, with nearly 4 million fewer adults engaged in learning since 2010. The participation rate has dropped by 10 percentage points, equivalent to 3.8 million fewer adults taking part in learning since the start of the decade. The decline is linked to significant reductions in government spending on adult education and low employer investment in training compared to other advanced economies.
https://www.proliteracy.org/resources/declining-enrollment-in-federally-funded-adult-education-critical-questions-for-the-field/ - An essay by Amy Pickard highlights a consistent and significant decrease in enrollment in federally funded adult basic education, adult secondary education, and adult English Language programs since the 1990s. Notably, there has been a 65.8% decline in adult basic education and adult secondary education enrollment, and a 49.2% decline in English Language enrollment since standardized reporting began in 2000-2001. The essay aims to draw attention to these long-term trends and encourage further exploration and discussion on the topic.
https://www.oecd.org/en/publications/2025/06/trends-in-adult-learning_f0d8514f/full-report/where-what-and-how-are-adults-learning_59e53872.html - The OECD report reveals that participation in adult learning has stagnated or declined over the past decade in many countries. Among the few countries that saw increases in adult learning participation, Estonia and Ireland experienced significant increases of around 5 percentage points. Conversely, countries like Korea, Israel, Poland, and Singapore recorded significant falls in participation. These trends highlight the varying trajectories of countries with historically high participation rates and underscore the need for targeted policies to support adult learning.
https://www.oecd.org/en/publications/trends-in-adult-learning_ec0624a6-en/full-report/executive-summary_6b403d28.html - The OECD executive summary indicates that adult learning participation is stagnating, with only Ireland and Estonia seeing significant growth. Countries such as Korea and Israel have experienced significant declines. The report also notes that while participation gaps between socio-economic groups persist, some are narrowing due to sharper declines among those who once led in participation, such as men, high earners, and highly-educated workers in skilled roles. This underscores the need for targeted policies to remove structural barriers and expand access for those who would benefit most.

Noah Fact Check Pro

The draft above was created using the information available at the time the story first emerged. We’ve since applied our fact-checking process to the final narrative, based on the criteria listed below. The results are intended to help you assess the credibility of the piece and highlight any areas that may warrant further investigation.

Freshness check

Score: 9

Notes: The narrative is recent, published on 27 October 2025. The Guardian article cites John Holford's criticism of the UK government's white paper on post-16 education, highlighting a longstanding issue since the 1990s. The Learning and Work Institute's research, referenced in the article, indicates a significant decline in adult participation in further education since 2009. The OECD report from mid-2025 also discusses international trends in adult learning participation. While the data is current, the themes have been previously reported, suggesting a recycled narrative. The inclusion of updated data may justify a higher freshness score but should still be flagged. ([oecd.org](https://www.oecd.org/en/publications/trends-in-adult-learning_ec0624a6-en/full-report/where-what-and-how-are-adults-learning_59e53872.html?utm_source=openai))

Quotes check

Score: 8

Notes: The article includes direct quotes from John Holford and other commentators. A search for the earliest known usage of these quotes indicates they have been used in earlier materials, suggesting potential reuse. Variations in wording were noted, but the core message remains consistent. No online matches were found for some quotes, raising the possibility of original or exclusive content.

Source reliability

Score: 10

Notes: The narrative originates from The Guardian, a reputable organisation known for its journalistic standards. The Learning and Work Institute and the OECD are also credible sources, enhancing the report's reliability.

Plausability check

Score: 9

Notes: The claims about the decline in adult education participation are supported by data from the Learning and Work Institute and the OECD. The narrative aligns with previous reports on the subject, indicating consistency and plausibility. The tone and language are appropriate for the topic and region, with no inconsistencies noted.

Overall assessment

Verdict (FAIL, OPEN, PASS): PASS

Confidence (LOW, MEDIUM, HIGH): HIGH

Summary: The narrative is recent and originates from reputable sources, with claims supported by credible data. While some quotes may have been reused, the overall content is consistent and plausible. The inclusion of updated data strengthens the report's relevance.

Adult education
Lifelong learning
Educational policy