Canadian Council on Learning | Conseil Canadien sur l'Apprentissage

State of Learning in Canada:
Unlocking Canada's Potential

Summary

Canadians recognize the value of adult learning and training to their personal, social and economic lives. Lifelong learning is an essential ingredient of a vibrant democracy.

It is also our greatest safeguard against an uncertain future as we face the challenges of increased globalization, including rapid advancements in new technologies and demand for innovation and higher productivity.

Despite a high level of educational attainment in Canada, nearly half of Canadians lack the skills they need to participate fully in today’s complex society. In 2002, only one-third of Canadian adults participated in some form of learning or training activity—and over the last decade their rate of participation has stagnated.

Meanwhile, Canadian employers are increasingly seeking workers with sophisticated and adaptable skills. Even individuals with low qualifications increasingly need to learn about new technologies and upgrade their skills or risk becoming marginalized.

The workplace is where most adult learning and training occurs. In 2002, one-quarter of Canada’s adult workforce benefitted from their employers’ training support. Yet provision of employer-sponsored training opportunities in Canada is uneven at best, lagging well behind that of other countries.

Multiple barriers—institutional, situational, attitudinal, and academic—inhibit Canadian individuals and employers from participating fully in learning and training. About one-third of Canadians have reported they were unable to take job-related training that they wanted or needed because they faced barriers. Although most reported lack of time and money, and family responsibilities, these factors can mask underlying reasons, such as low literacy or lack of recognition of prior learning.

Lack of engagement appears to be a significant barrier for 2.2 million Canadians—many of whom are male, 45 years and older. More than half (56%) of this group had no education above the secondary school level. These long-term non-trainees have not participated in any formal job-related training for a period of four years and do not plan to do so in the coming three. Many have expressed no interest in participating in learning and training activities, either now or in the future.

There are insufficient data about the learning and training needs of this group. But we know that their lack of motivation or interest, combined with low levels of literacy in low- and medium-skilled jobs, reduces the likelihood they will ever pursue formal learning activities.

Lack of interest can also be a barrier for many employers, particularly SMEs, who may not recognize the economic benefits of training—such as increased productivity and innovation—and lack information about available programs, delivery options and financial incentives.

If we are to avoid a host of social and economic ills, we must act now. Declining productivity, lack of innovation, labour-force shortages, deteriorating prosperity and compromised quality of life pose very real threats to our future as a nation.

There is simply no room for complacency. We need to instil a culture of learning in Canada that will unlock the potential of all Canadians.

• Full report (PDF, 1 MB)

Recommendations

Canada’s current approach to adult learning, with its emphasis on youth education and training, limits our capacity to develop a learning culture and to engage the full potential of our labour market.

Research from many countries has established the link between increased adult learning and training and concrete improvements in business productivity176 and social and personal well-being. Removing barriers to adult participation in learning and training is, therefore, a shared responsibility.

Based on the findings of this report, CCL recommends that Canada meet this challenge by pursuing five broad initiatives, each of which represents a cluster of related recommendations:

1. Create a pan-Canadian vision of what constitutes adult learning and training
2. Encourage collaboration among partners
3. Foster a culture of learning within the workplace, especially for SMEs
4. Motivate and target the lower skilled population
5. Develop a data strategy to address gaps in knowledge

1. Create a pan-Canadian vision of what constitutes adult learning and training

Canada’s current system of adult learning and training is fragmented across jurisdictions and unsustainable in the long-term. We need a comprehensive adult learning and training approach that builds on best practices and removes the barriers that prevent individuals and employers from engaging more fully in learning and training.

Below are several measures that may expand our vision of learning and enhance learning opportunities for Canadians.

1.1 Recognize informal learning

Adult learning includes a combination of formal and informal learning, and it is this mix that ultimately enables Canadians to maintain the skills and knowledge they need to make informed decisions and lead successful lives. Yet the benefits of informal learning are not recognized.

• We must learn more about the nature of informal learning and its role within the workplace, home and community.

1.2 Promote a flexible, accessible delivery system

In a robust learning culture, adults will have the freedom to choose how, when and where they will participate in learning activities that meet their own work and personal needs.

• We need policies that will accommodate adults’ work and family responsibilities, allowing for time off for learning, fully or partial sponsored training, income support during training and greater choice of learning approaches.

1.3 Assess and recognize prior learning

Canada does not have a cohesive system to assess and recognize competencies, skills and knowledge gained from prior learning, informal learning and/or international credentials (professional and academic).

• We must develop a system of certification that provides assessment and recognition of individuals’ prior learning (including informal), skills, knowledge, competencies, and experience.

2. Encourage cooperation among partners

We have a solid basis of stakeholder cooperation from which to proceed, but improvements are needed.

• Canada needs a national forum in which all Canadians can participate in a dialogue about adult learning and training—its appropriate level and its composition.
• Canada must build on its experience fostering cooperation between governments, training institutions, individuals, businesses, unions and organizations to deliver competencies that match employers’ needs and foster a culture of learning.
• Partners must share the cost of learning and training through the financial participation of employers, individuals, governments and unions in the supply of financial supports such as ILAs.
• We must bring learning and training providers into a network of information exchange with all partners.
• To ensure quality control of learning and training programs, Canada must foster a “culture of outcome evaluation” among all partners through the regular monitoring and assessment of programs.

3. Foster a culture of learning within the workplace, especially for SMEs

Employers under-invest in workplace training and learning. Many are not aware of the economic benefits. As well, employers face time and financial constraints and lack information about training needs assessment, prior learning and informal learning, programs and delivery mechanisms.

• We must promote the benefits of adult and workplace training by providing transparent and easily understandable information on training outcomes and returns on investments for all learning and training partners.
• We must provide employers with information and guidance on programs and courses available incentives, the benefits of a flexible program delivery, the merits of prior learning assessment and recognition and the importance informal learning.

Many employers do not see the value of providing basic skills instruction for their lower skilled employees.

• We must inform employers of the economic and social benefits of training lower skilled workers.
• We must develop a system to help employers assess employee skills and needs, and their integration with job requirements.
• We must provide employers with incentives to increase workplace learning, through shared financing arrangements and collaboration with learning institutions.

3.1 Target SMEss

Compared to large firms, SMEs face more barriers to providing workplace learning and training opportunities. Collaboration with large firms can help SMEs reduce the costs of learning and training programs.

• We must develop training consortia in Canada that pools resources.

4. Motivate and target the lower skilled population

Unfortunately, those most in need of skills upgrading are least likely to receive it. Skills upgrading not only improves performance in the workplace, but also contributes to the learning environment of workers’ children. It is an investment in the next generation of workers.

• We must inform adults who do not participate in training of the economic, social and family benefits of learning.
• Canada should significantly invest in both early childhood education and in raising the rates of literacy, numeracy and IT competencies in lower skilled adults and youth.

5. Develop a data strategy to address gaps in knowledge

We need more information to deepen our understanding of the barriers to adult learning and training.

We must collect data on:

• informal and “alternative” learning methods
• non-trainees
• barriers to learning and training on a pan-Canadian level
• training outcomes and returns on investment
• outcomes of basic skills training on those most at risk
• successful collaboration between large and small firms
• collaborative approaches involving sector councils
• successful models of work-life balance
• personal and social outcomes of learning and training
• learner satisfaction with learning and training

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