Lifelong Learning: a New Route to an Old Destination

Lifelong learning: a new route to an old destination?

Nick Small, Open University, UK

Paper presented at SCUTREA, 31st Annual Conference, 3-5 July 2001, University of East London

'That the number of our Members be unlimited' - 1792 First Rule of the London Corresponding Society (Thompson, 1968, p.19) Could this be interpreted as a first step on the road to universal education or to lifelong learning? This is most unlikely, as the concerns of the early meetings were matters such as parliamentary reform and, indeed, admission to membership rested on support for the extension of the vote to 'every adult person, in possession of his reason, and not incapacitated by crimes.' Thomas Hardy, who recorded the Society's meetings, was arrested and committed to the Tower and later Newgate gaol. He was brought to trial on grounds of high treason, facing the death penalty, but was acquitted. (Thompson, 1968, p. 19-22)

This serves as a reminder that education can be a cause of contentious political debate, well beyond that seen in Britain over the last two decades. The battle to secure a universal system is only the beginning of the battle over what form that it will or should take. Here we are on the edge of entitlement and human rights and ultimately of access to the benefits that education can bestow.

So the issue is clearly one of policy, reflecting the political history of the state in question and the cultural heritage that has flowed from that. The Travellers of the conference theme have been self-motivated, often political, activists, endorsing adult education as an opportunity (possibly political education) as a means to an end. Lifelong learning, as espoused by the present Government, is being used similarly, though here the sub-text is economics with a follow-through on the cultural side of society. Each constitutes a huge agenda.

What has become recognised as a classic statement of support for educating adults is that in the 1919 Ministry of Reconstruction Final Report: The adult educational movement is inextricably interwoven with the whole of the organised life of the community. Whilst on the one hand it originates in a desire among individuals for adequate opportunities for self-expression and the cultivation of their personal powers and interests, it is, on the other hand, rooted in the social aspirations of the democratic movement of the country. In other words, it rests upon the twin principles of personal development and social service.

It aims at satisfying the needs of the individual and at the attainment of new standards of citizenship and a better social order. In some cases the personal motive predominates. In perhaps the greater majority of cases the dynamic character of adult education is due to its social motive. (Cmnd 321, 1919, paragraph 330) Over 50 years later the next report on adult education, chaired by Sir Lionel Russell, put forward its own philosophical view, less stridently: The value of adult education is not solely to be measured by direct increases in earning power or productive capacity or by any other materialistic yardstick, but by the quality of life it inspires in the individual and generates for the community at large. It is an agent changing and improving our society: but for each individual the means of change may differ and each must develop in their own way through their own talents. No academic subject or social or creative activity is superior to another provided that those engaged in it develop a greater awareness of their own capacities and a more certain knowledge of the totality of their responsibilities as human beings. (Russell, 1973, paragraph 6) The Russell Report maybe interpreted as that of a civil servant to ensure 'the most effective and economical deployment of available resources' (paragraph 9.7) with 'unmet needs' among adults (paragraph 9.2) best met by the schools.

Schools work best when supported and not resisted by the adult society surrounding them; and much of their effort is wasted without opportunities for carrying on into adult life the intellectual, creative and recreational interests that a good school will implant. (Russell, 1973, paragraph 9.4) 'Those purposes demand a comprehensive and flexible system of adult education.' (Russell, 1973, paragraph 9.5) Noting that 'the effect of successful education is always to open windows on further fields of education', the Report remarked presciently: 'Any system of education that does not allow of lifelong continuance is bound to be incomplete' (Paragraph 10) (though UNESCO's 'Learning To Be' had emerged in 1972 and thoughts were turning to new and different paradigms.) In quoting the 1919 Report, the Russell Committee described them as 'even more relevant today than when they were written in 1919' (paragraph 10) Russell's approach could be interpreted as both traditional and liberal in citing the following from the 1919 Report: We do not wish to understate the value of increased technical efficiency on the desirability of increasing productivity: but we believe that a short-sighted insistence upon these things will defeat its object. We wish to emphasise the necessity for a great development of non- technical studies, partly because we think that it would assist the growth of a truer conception of technical education, but more especially because it seems to us vital to provide the fullest opportunities for personal development and for the realisation of a higher standard has been laid on material considerations and too little regard paid to other aspects of life. (Quoted in Russell, 1973, paragraph 10).

Thus, in this way, Russell reinforced the approach of the 1919 Report. One of Russell's recommendations was that the Secretary of State 'should establish a Development Council for Adult Education for England and Wales' (rec. 4.4). Ultimately an Advisory Council (for Adult and Continuing Education - ACACE) was set up under the chairmanship of Professor Richard Hoggart. In a life of six years (1977-83) it did an excellent job in recording and publishing a mass of topics, activities, projects and information in the area of adult provision.

So matters continued. Adult education at local authority level has generally acted as an economic barometer, waxing in more prosperous times, waning in less affluent times, a small unit at LEA level, considered expendable when cuts are needed (but frankly, too small to be able to offer much saving.) Its light weight has given it little strength in struggles for resource. Despite having a statutory base and Russell's support for a 'varied and comprehensive service', with LEAs (the main provider) required ' to make provision for' adults.

Russell, using the latest figures available (1968-69) found net expenditure on adult education by LEAs was about £16 million, and by D.E.S. (then DfEE) £1.4 million, these figures representing barely 1% of the national education budget (covering the two million adults attending classes).

Russell sought to double student numbers over five to seven years, raising LEA expenditure by £22 million net to about £38 million and D.E.S. expenditure by £1.25 million to £2.65 million. (Russell, 1973, paragraph 4.) Literacy became a major concern in the mid-late 1970s, followed by numeracy. Despite major campaigns and increasing government involvement, this has remained a major concern. (Most recently today in the schools with the literacy and numeracy hours in primary schools).

The A.C.A.C.E. Report on a Strategy for the Basic Education of Adults, 1979, estimated

... more ... than three millions ... are severely disadvantaged by lack of basic educational skills' (A.C.A.C.E.,1979, p.6) and later in the Report quoted 'The National Extension College [who] claim that between 6 and 8 million people cannot perform everyday calculation with money and measurement.' (A.C.A.C.E.,1979, paragraph 39).

A more recent publication has been no more reassuring.

A Working Group chaired by Sir Claus Moser found that:

Roughly 20% of adults - that is perhaps as many as 7 million people - have more or less severe problems with basic skills, in particular with what is called 'functional literacy' and 'functional numeracy'. The ability to read, write and speak in English and use mathematics at a level necessary to function at work and in society in general. It is a shocking state of affairs in this rich country, and a sad reflection on past decades of schooling and policy priorities over the years. Moreover, the key facts are not new. (DfEE, , 1999, p. 2)

What is clear from research is that very limited numeracy can be as serious as poor literacy for the individual in certain jobs and indeed for the economy. (DfEE, 1999, Paragraph 15.) The arrival of the Labour administration of May 1997 brought education into the forefront of policy. It also brought the education of adults into a spotlight it had not known hitherto. It brought lifelong learning which had been in the background and recesses of debate into a major policy area.

One of the early and major documents was 'The Learning Age - a renaissance for a new Britain' that emerged nine months after Labour had taken office, and was the first of an unprecedented cascade of material on education - for change and development.

Like many of the papers to come, it was labelled 'for consultation', though the tone and style was assertive and not negotiating. It appeared motivated more by economic than educational concerns. The Secretary of State's Foreword began 'Learning is the key to prosperity.' and phrases and sentences in the Foreword included: 'Investment in human capital will be the foundation of success in the knowledge-based economy of the twenty-first century.' ; 'Learning enables people to play a full part in their community''... we value learning for its own sake as well as for the equality of opportunity it brings.' (DfEE 1998, p. 7) Chapter headers tended to be the same: 'Education is the best economic policy we have.' Rt. Hon. Tony Blair, M.P. (p. 9).'Qualifications in the Learning Age should meet the needs of people and uphold standards. They must value both academic and vocational achievement, and be easily understood, flexible and widely recognised.' (p. 63) Had the Cinderella of the education service met and married the Prince? And acquired a major policy role intended to transform a society that had apparently succeeded industrially without a strong educational base.

The Government foresaw a new kind of industrial age based on technological change and, as was often repeated, a flexible workforce. This last assumed frequent job change, no' job for life' (another much used phrase). The corollary was an adaptable workforce, competent when it came to re-training.

This anticipated change of culture, at the very least, and numerous initiatives were launched with these considerations in mind, certainly motivated in part by the high numbers of unemployed when the Government came to office.

The economy itself was changing from one based heavily on manufacturing to one growing in services provision. The nature of society itself was affected, and divisive conflict took place as coal and steel production declined in importance and changing technology deskilled workers in the newspaper and printing industries.

As indicated earlier, the education of adults was part of and had been seen as within the state education system, with local education authority not the only, but certainly the main provider. Feeding lifelong learning into the system as an overarching concept could have wide implications. It would remain available in a much more active manner than hitherto for a life-time, not just a career change agent and trainer conveniently available when needed.

More significantly and uniquely, education, with its lifelong learning label, was being used as a policy tool to create rather than respond or react to circumstances. When James Callaghan was Prime Minister, in 1977, launching the debate on education, it was to respond to a given situation. Education could be a way out of a tight corner.

Under the present Government, education is seen as a way forward in combating inevitable economic change that will bring profound change to society.

Before we go too far on this, Colin Griffin, in a helpful paper (Griffin, 2000,p.10), warns that lifelong learning, as policy, 'remains a policy of government when the meaning of lifelong learning is identical with the expansion of the public education and training system', and goes on to suggest that 'Strategy implies that the government abandons control over the outcomes of policy and restricts itself to the means.' (p.11) Griffin concluded that: Lifelong learning can only be an object of policy in relation to some of its meanings, namely those which reduce lifelong learning to the expansion of educational and training opportunities. Furthermore, the contingency of policy analysis upon a concept of social welfare focuses attention on the consequences for the professed social objectives of lifelong learning, such as social cohesion, equal opportunities and social inclusion.

The further the retreat from public education policy towards lifelong learning or the learning society, the less likely such objectives could be achieved.' (Griffin, 2000, p.13) That seems to sum up much that the Government in trying to do. The title it has used tended, certainly at first, to be more frequently 'The Learning Age'; 'The Learning Society' and 'a culture of learning' have also been used. For this Traveller (to maintain the conference there), this is an assault on the culture of the nation, going against received opinion that those with most education want more, those with least opt out. How is this to be changed? Is it a matter of carrot and the stick? People will train for jobs if there are suitable jobs locally to apply for - motivation is important, some benefit must be available to prompt a positive response. Information and Communications Technology (ICT) is a potentially powerful new instrument for disseminating knowledge and other things besides. Thorpe, in a recent paper, defines her terms: 'New technology' is being used here to refer to the Internet, the World Wide Web, electronic communication and other computer based applications. (Thorpe, 2000, p.1.) Furthermore, as she points out: 'New technology' is itself a shorthand reference to applications ... which are changing so rapidly that the risk of generalising from what is known now, is that new applications simply by-pass current experience and render their conclusions outdated ... There is also a 'technology lag' in terms of penetration within particular sectors and discipline areas. Clearly, competence in this area can offer novel aspects of provision.

..the information technology revolution is creating a new form of electronic, interactive education that should blossom into a lifelong learning system that allows almost anyone to learn anything from anywhere at anytime. (Quoted by Thorpe, 2000, p. 3) The report goes on from this to point out that: Location of provision and flexibility of entry and exit can make or break a student's educational career. (Quoted by Thorpe, 2000, p.3) A variation of the Open University's claim to be open as to people, open as to place, open as to method, open to ideas? Thorpe quotes figures on the rapid spread of computer ownership (26% in 1996-7 to 34% in 1998/9 page 3). Like so much else, it is a potential barrier to access, depending on finance and available house space, though families with children are better equipped (49%) compared with one person householders under 60 (28%). So significant could access to the World Wide Web become that the barrier to inequality of opportunity could rise higher, and havea disadvantaging effect across society.

The drafting of this paper coincided with the publication by The Guardian of an enquiry into the role and status of the public service, including how they were viewed by society. This showed strong public support for public (not privatised) services and The Labour government ....staking its future on improvement on the basic social infrastructure of our country. On this prime minister and chancellor speak with one voice, confessing that if public services are not improved by the end of their tenure they will have failed.

That single objective is now the Labour "project". The government will stand or fall on its achievements.

(Guardian, March 20, 2001,p.1) Alas, on education, If we were to construct a league table of E.U. countries ranked according to how many over 16s are still in school, guess who comes bottom? We do, with Germany and France 20 percentage points ahead of us. A 1999 survey found that one in five adults cannot add up the change in their pocket.

Why are these ... most basic services lagging so far behind? Here's a big clue: money. On healthcare we spend little more than a third per citizen of the amount paid out in the US and just over half the sum spent in France. We spend less than the latter because we pay less tax. The total tax take here for 1999 was 36.6% of GDP in France it was 46%. (Guardian, March 20, 2001 p.1) The paper also shows (p.3) a fall in public spending as a percentage of GDP from 44.8% in 1979-80 to 38.5% in 1998-9 with a projected climb to 40.5% in 2003-4, with spending on health growing by an average 3.1%, 1979-97 and by 4.7% 1997-2001; and education expenditure growing by 1.5% 1979-97, and by 3.6% 1997-2001.

This surprise intervention has left this pilgrim unsure where he is on his journey. Two other contemporary issues cause confusion; one is the foot and mouth disease outbreak with its shades of a medieval black death that could haunt society through the summer. The other is the possibility of a general election, unresolved as this is written, but the first impinges on the second.

Reflecting on society, education and progress, where do the ticks and crosses go? Ticks for adult education from early times and as a means forward for the otherwise unlettered. More ticks for the prospects and possibilities under present government policies of commitment to a learning society.

What is the goal, the heaven that the pilgrim is making for? A society imbued with education and educational opportunity that will overcome present and traditional barriers to access (such as finance), that disadvantages, arising from an inadequate or incomplete education system that permits people to leave school neither fully literate nor fully numerate, are anticipated or overcome; and the new agency of ICT is harnessed and familiar to all school leavers, enabling further education and training, post school, to be available and known about and used as and when desired.

Despite the plethora of initiatives that have poured forth under the present Government, whether the will to create a learning society will succeed depends on the whim, the wish, the commitment, ultimately of the adult learner. On this hangs the future not only of society but of the nature of that society. Put another way in what is likely to be an election year, how far the wish for a learning society expresses itself in the result of the election. Will education policy be a major issue in any election debate and, if so, what form will it take? Will our Travellers ask for more of what we have had so far? Is education, or should it become, part of national economic policy? And is that what the Traveller has undertaken his journey to achieve? Or has the membership of the London Corresponding Society become not only unlimited but universal?

References

A.C.A.C.E. (1979) A strategy for the basic education of adults report. Leicester: Advisory Council for Adult and Continuing Education.

Adult Education Committee Final Report (1919) Ministry for Reconstruction, Cmnd 321 London: H.M.S.O.

DfEE (1998) The Learning Age: a renaissance for a new Britain, Cm. 3790. February. London: H.M.S.O.

DfEE (1999) A fresh start: Improving literacy and numeracy .The report of the working group chaired by Sir Claus Moser. London: D.F.E.E. Publications.

Griffin, C. (2000) 'Lifelong Learning: Policy, Strategy and Culture.' In Supporting Lifelong Learning - Working Papers. London: University of East London.

RussellL. (1973) Adult Education: A Plan for Development Report of a Committee of Inquiry appointed by the Secretary of State for Education and Science. London, H.M.S.O.

Thompson, E.P. (1968) The making of the English working class. Harmondsworth, Pelican Books.

Thorpe, M. (2000) 'New Technology and Lifelong Learning' in Supporting Lifelong Learning - Working Papers. University of East London: London.

The Guardian (20.3.01) 'The common good'