OCDE - Helping adults overcome barriers to training

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HELPING ADULTS OVERCOME BARRIERS TO TRAINING © OECD 2026

22 June 2026 Key messages • Lifelong learning plays a crucial role in a context of rapidly changing skill needs and widespread skill shortages. It helps employers have the workforce they need to adopt new technologies and green their production processes. It also helps adults adapt to changing labour markets and transition between jobs. However, existing barriers limit participation in upsk illing and reskilling initiatives. • Assuming that the provision of training is sufficient, barriers to participation can arise at different stages: before adults even think about training, when they consider training options, at the point of deciding, and when they participate in training. • Governments have a central role in creating the conditions for adults to participate in training through policies such as training leave, Recognition of Prior Learning, career guidan ce, and Individual Learning Accounts or training subsidies. • However, training providers also have a responsibility, within their available budg et, to spread awareness and information about courses, offer flexible training options, create a supporti ve and inclusive learning environment, and make sure that adults have the incentives , and the resources, to complete their course. Adult learning is crucial to address changing skill needs, but existing barriers limit participation Labour markets are changing. The green and digital transitions are reshaping the skil ls needed in the labour market, making some jobs redundant (Lassébie and Quintini, 2022 [1]; Borgonovi et al., 2023[2]) and changing skills requirements in others (OECD, 2023[3]; OECD, 2024[4]), generating both skill shortages and mismatches. Population ageing and drops in fertility bring about additional skills shortages and mismatches through a decline in the working-age population and the skills obsolescence of ol der workers (OECD, 2025[5]). These skills shortages and mismatches are costly. Over-qualified workers face, on average, a 12% wage penalty compared to correctly matched peers in the same occupation and industry, implying lower

through a decline in the working-age population and the skills obsolescence of ol der workers (OECD, 2025[5]). These skills shortages and mismatches are costly. Over-qualified workers face, on average, a 12% wage penalty compared to correctly matched peers in the same occupation and industry, implying lower productivity for businesses, and they are 4 percentage points (p.p.) less likely to report high life satisfaction (OECD, 2024[6]). By increasing access to training and supporting underserved adults to complete training, Helping adults overcome barriers to training2 

HELPING ADULTS OVERCOME BARRIERS TO TRAINING © OECD 2026

governments and training providers can help build a pipeline of new talent for business es facing skills shortages. To build economic resilience and seize new opportunities, upskilling and r eskilling efforts are crucial. Currently, about 40% of adults participate or have participated in formal or non-formal adult learning in the last 12 months in OECD countries, with this participation rate declining over the last de cade. There is, however, scope to raise participation rates, with one in four adults reporting some kind of barrier preventing them from undertaking training (OECD, 2025[7]). Assuming that the supply of training is sufficient to cover all training deman d, the biggest barriers to participation are: 1) a lack of time due to work commitments, 2) a lack of time due to family responsibilities, and 3) the cost of training (Figure 1). These three barriers affect 29%, 18% and 13% of adults who did not participate in training in the previous 12 months, respectively. 1 Other reasons for not participating in training include the inconvenient time or location of training (9% of responde nts), the lack of employer’s support (5%), the inability to find suitable training (3%) or the lack of require d knowledge to participate i n the training (2%) (OECD, 2025[7]). Additionally, certain individuals may struggle with these barriers to a greater extent, and may face multiple

support (5%), the inability to find suitable training (3%) or the lack of require d knowledge to participate i n the training (2%) (OECD, 2025[7]). Additionally, certain individuals may struggle with these barriers to a greater extent, and may face multiple barriers. Women for instance have been shown to report more barriers to training than men. Nonetheless, individuals must express an interest in training to report a barrier – a large proportion of adults, one in two in fact, show no desire to train (OECD, 2025[7]). This may reflect motivational issues, a lack of information or awareness, and broader structural factors. Figure 1. Barriers to participate in adult learning Percentage of adults citing the following barrier as their main reason for not participating in learning in the Survey of Adult Skills

Note: Adults aged 25-65; Figure plots the average share of adults citing each given barrier to participation among those who reported being unable to participate in a desired training over the past 12 months. Respondents wer e asked to choose the single most important reason that prevented them from participating from a pre-defined list of potential barriers. OECD is an unweighted average of all participating member countries.

Source: OECD (2025[7]). Trends in Adult Learning: New Data from the 2023 Survey of Adult Skills, Getting Skills Right, OECD Publishing, Paris,

https://doi.org/10.1787/ec0624a6-en. 3

HELPING ADULTS OVERCOME BARRIERS TO TRAINING © OECD 2026

Barriers to participate in adult learning can arise at different times (Figure 2). They may arise before even thinking about training, as adults may be unaware of their training needs and options . When considering the possibility of training, barriers such as not being able to find information on courses or not being aware of the potential benefits of training can affect the decision to participate. Once an adult has decided to train, practical barriers such as lack of time or the course taking place at an incon venient time or location can affect the decision to enrol in training. Finally, even when an individual has decided to take up training,

of the potential benefits of training can affect the decision to participate. Once an adult has decided to train, practical barriers such as lack of time or the course taking place at an incon venient time or location can affect the decision to enrol in training. Finally, even when an individual has decided to take up training, unforeseen barriers typically related to a change in circumstances or to decr eased motivation can arise, affecting the likelihood that the individual completes the training. Figure 2. Times at which barriers to adult learning may arise

Note: Barriers that arise at each of the stages prevent the individual from moving to the next stage and eventually completing training.

Source: Authors’ elaboration, based on interviews with training providers, an online workshop and desk research.

Public policies and services provided by governments, training providers or fi rms (including as part of collective agreements) can mitigate these barriers, encouraging adults to parti cipate in and complete training. The demand-driven barriers that may arise at each stage, along with the i nterventions that can help adults overcome these barriers, are discussed in the following sections. Given that resources to offer these services may be scarce, governments and training providers are encouraged to evaluate the most relevant barriers to training in their contexts before deciding which services to provide. Supporting adults to train Pre-training With half of adults not expressing any desire to train, it is clear that certain barriers are present before individuals even consider the possibility of training. These relate primaril y to a lack of information and unconscious attitudes or beliefs which may be restricting the awareness of potential training options. Some adults may not realise they have a need to train, for instance if their job or sector is exposed to new technologies or changes in skill needs, while some individuals may not see themselves studying or working in certain sectors. Finally, the benefits of training may be unclear. Governments can raise awareness through public information campaigns. One example is the proactive outreach in Colombia in the context of literacy training. However, training providers are better placed to4 

HELPING ADULTS OVERCOME BARRIERS TO TRAINING © OECD 2026

Governments can raise awareness through public information campaigns. One example is the proactive outreach in Colombia in the context of literacy training. However, training providers are better placed to4 

HELPING ADULTS OVERCOME BARRIERS TO TRAINING © OECD 2026

conduct outreach activities in their local communities. By running advertisi ng or social media campaigns, engaging the local community, and linking directly with employers in the industry , providers can have an on-the-grounds presence and boost public awareness of their course offerings. In Spain, Som os F5 has successfully used social media, posters and local community outreach to attract lear ners from untapped groups – such as women, migrants, and other minorities – to their tech-heavy courses. In Ireland, SOLAS has a Skills to Advance programme where local Education and Training Boards c onduct employer outreach, helping businesses identify their skills needs and connecting them with training providers. Partnerships with social partners and charities such as those working with homeless people, ex-prisoners and people with disabilities, can help spread awareness of training to more vulner able populations, as is done by FIT Ireland. Other actors, such as trade unions, can also play an important role in helping workers identify their training needs. For example, through the Unionlearn programme in the United Kingdom, trained employee representatives support their colleagues in assessing their skills gaps and training requirements, among other activities (OECD, Forthcoming [8]). Training providers can also have an active role to play in dispelling myths or overcoming s tereotypes about particular sectors, such as technology, construction or nursing. Role modelling i s vital – it helps to showcase diverse and inclusive leaders in traditionally maleor female-domi nated sectors, helping youth overcome gendered stereotypes of these sectors. For instance, SheTech Italy uses role m odelling to encourage women to study and work in the AI space. Training providers can also use buddy programmes, matching youth with successful leaders in the field with similar backgrounds, who can serve as mentors and guides. Providers can also organise or attend industry events and careers fairs , and conduct school

encourage women to study and work in the AI space. Training providers can also use buddy programmes, matching youth with successful leaders in the field with similar backgrounds, who can serve as mentors and guides. Providers can also organise or attend industry events and careers fairs , and conduct school visits or talks to further engage younger students and build up interest in sectors suffering from skills shortages. Governments can support the work of training providers by providing the infrastructure for these mentoring and networking events, and by making sure public advertisements attract untapped talent from under-represented groups. Thinking about training The next set of barriers arise when individuals are thinking about the possibility of training. There can be problems accessing information related to training, with some potential learners feel ing overwhelmed by the number of course options, or not knowing where to start looking for a course. They may also be unsure how courses can suit their learning preferences, or they may have health or accessibility concerns. Governments play a role in providing career guidance counsellors, generally through public empl oyment services or schools, and in developing course aggregators or online tools that help learners search for and compare courses. Skills Checkpoint in Australia was a good example of a platform providing personalised career development roadmaps for workers aged 40 and over, helping workers to transition int o new roles within their current industry or find pathways to a new career. The programme was di scontinued in June 2024. Another example is Türkiye’ s Ministry of National Education eYaygın System, which aggregates information of training provided by community education centres and partner institutions. Training providers can assist learners with accessibility requirements by suggesting alternative courses, making adaptations to curriculums or the delivery of courses when needed, and developing learning material in various formats to broaden inclusiveness. Fondazione Mondo Digital, for i nstance, provides support through tutors/mentors and customises learning paths for learners, while RHA CC UK makes adjustments to courses and delivery if needed. Another challenge potential learners may face at this stage is a lack of pre-requisites or required knowledge. Governments should provide effective Recognition of Prior Learning, shortening timelines for

support through tutors/mentors and customises learning paths for learners, while RHA CC UK makes adjustments to courses and delivery if needed. Another challenge potential learners may face at this stage is a lack of pre-requisites or required knowledge. Governments should provide effective Recognition of Prior Learning, shortening timelines for future study (OECD, 2023[9]). In Portugal for instance, the national Qualifica Portal is a network of specialist centres that develop processes for the recognition, validation and certification of skills acquired through formal, non-formal and informal means. Career guidance counsellors and public employment services can also suggest alternate learning pathways, such as short, bridging courses, to workers who face skills gaps. 5

HELPING ADULTS OVERCOME BARRIERS TO TRAINING © OECD 2026

This is the case, for example, in Germany, where learners can receive support to acquire basic skills such as IT, mathematics or reading skills to allow them to pursue training. Training providers can consider broadening access to skilled adults without qualifications by removing non-ess ential entry requirements and adapting admissions processes. This occurs in the United Kingdom for examp le, with RHACC supporting older workers during the application stage, to ensure their applications are complete and to give them the best chance of being offered a place on a course. Finally, some potential learners may face a lack of confidence or motiv ation when deciding to train and may not see themselves training in certain fields. This especially applies to technical or digital fields such as AI, where adults may be unsure how AI can benefit their career and personal life, or may be uncomfortable with or scared of AI. Training providers can provide role models, engage employers, conduct networking events, showcase alumni, and develop their websites to better spread awareness and document the benefits of training. In Spain, Somos F5 employs a job placement co-ordinator who helps provide information on courses and supports learners throughout their programmes, even h elping them with job interviews and CVs when learners are ready to look for a job post-study.

document the benefits of training. In Spain, Somos F5 employs a job placement co-ordinator who helps provide information on courses and supports learners throughout their programmes, even h elping them with job interviews and CVs when learners are ready to look for a job post-study. Moreover, some potential learners may be hindered by a fear of failing or may feel as if they are not good at learning. Novel approaches to address this challenge include offering short “teaser” classes to introduce technical topics in a more friendly way. For instance, SheTech Italy conducts one-day bootcamps, Somos F5 Spain provides discovery workshops and one-month test-runs before students com mit to full programmes, and RHACC UK offers introductory test sessions. Often, the confidence to train can be strengthened through interpersonal skills training. SheTech Italy offers courses on public speaking, personal branding, leadership and time management to complement more technical training, while WE LEAD is an organisation that offers business skills training, in an effort to boost overall confidence to train. Decided to train Once individuals have decided to train, several barriers remain . These relate primarily to the choice of programme and can prevent trainees from enrolling, even though they are aware training could be beneficial. Time is one of the major constraints and can represent a barrier in two ways: lack of time or inconvenient time. Individuals can lack the time to engage in training (due to work or family resp onsibilities). In this case, governments can establish a training leave and/or provide/subsidise childcare. For instance, in B elgium, private sector employees may take paid leave to attend recognised training programmes, wi th wages compensated up to a statutory limit. 2 In Finland, workers are entitled to up to two years of unpaid study leave within a five-year period. 3 Similarly, in Sweden, employees can take study leave combined with income support. 4 Alternatively, the Turkish Employment Agency (İŞKUR) organises training courses for employed workers in close co-operation with employers and structured around their working schedules. Training providers can also offer services such as childcare or funding to cover childcare costs, as in the

income support. 4 Alternatively, the Turkish Employment Agency (İŞKUR) organises training courses for employed workers in close co-operation with employers and structured around their working schedules. Training providers can also offer services such as childcare or funding to cover childcare costs, as in the case of WE LEAD, a nonprofit training organisation that teamed up with a company that offers caregiving services. Some centres belonging to CISP, a network of training providers in Walloni a (Belgium), also provide childcare or childcare subsidies to trainees who need them. However, even if individuals have the time to enrol in a training programme, the courses available may be taking place at an inconvenient time. In this case, training providers can offer flexible training options, such as after-work, night or weekend sessions, or record the sessions and make the recordings available. For example, in Italy, SheTech organises weekend workshops for workers to have the opportunity to train outside of their workweek, while in Spain, Somos F5 records all their sessions , so that trainees who miss them can catch up in their own time. Financial resource constraints are another barrier that individuals may face when choosing a programme. Indeed, they may be unable to afford training or taking time off work, or be unaware of free training options.6 

HELPING ADULTS OVERCOME BARRIERS TO TRAINING © OECD 2026

Training providers can offer scholarships or create partnerships with employers who can fund training. An example of good practice is FIT Ireland, whose industry certified programmes are full y funded by employers. Governments can also play an active role in reducing this barrier: in addition to training leave, which could cover lost wages, they can subsidise training, either through subsidie s, or through individual learning accounts. Germany offers a good example, covering a wide range of continuing education c osts, including training course costs, travelling expenses, accommodation and board and childcare costs, as needed. France allows adults to accumulate annual credits – from EUR 500 to EUR 800 – to be used to finance registered training courses through the Compte Personnel de Formation (CPF) (OECD, 2025[10]).

a barrier, for instance for people with dis abilities. Here, training providers that offer online classes can make learning materials more accessible, for instance through captions, audio description s or dedicated note takers in class. During training Finally, in the last stage where individuals are enrolled in a training programme, unfo reseen barriers may appear that can prevent course completion. However, in this stage, motivation and engagement may also arise as an additional barrier to the completion of the training programme. Some unexpected commitments may come up, resulting in missed classes. The training location can also become inconvenient, for example when the trainee unexpectedly changes address. In such cases, training providers can try to offer opportunities to catch up on missed content, which can take the form of recorded sessions or catch-up sessions, or to join classes remotely. Equipment can break, malf unction or go missing, which can prevent students from completing the course. A hardship fun d can be used to pay for missing equipment or repair broken technology. Finally, a key barrier in this phase is a loss of motivation to complete the tr aining. Here, the development of an early warning system that detects disengaged learners – those who are either missing classes or not completing tasks – can help training providers to provide targeted support. This system has been implemented by RHACC UK who call trainees who missed classed and send SMS or email reminders. Building on a sense of community and developing a network of students to engage with, as well as establishing a coaching or mentoring programme, can also help alleviate this barrier. Training providers can offer additional incentives to complete the programme to sustai n motivation, such as a certification, financial incentives or support to find a job after completion of the course. In Italy, Progetto Arca offers a shopping voucher at the end of the course. The financial incentiv e can also take the form of 7

HELPING ADULTS OVERCOME BARRIERS TO TRAINING © OECD 2026

free follow-up learning opportunities for those who complete the programme as is done by German training provider Kiron. Concluding remarks

including training course costs, travelling expenses, accommodation and board and childcare costs, as needed. France allows adults to accumulate annual credits – from EUR 500 to EUR 800 – to be used to finance registered training courses through the Compte Personnel de Formation (CPF) (OECD, 2025[10]). Besides time and money, other barriers include training taking place at an inconveni ent location, particularly in the case of high geographic dispersion or in rural areas, a lack of equipment, lack of pre-requisites or required knowledge or accessibility concerns. To overcome the location barrier, training providers can offer flexible learning options, such as online classes, or place-based learning. The Agency for Education and Internationalisation (OeAD) in Austria offers in-person tr aining on AI in rural areas, to meet learners where they are. This training can take place in local libraries, youth centres, retirement homes, and even in fire stations.5 Similarly, the Literacy for Life Campaign in Australia implements literacy programmes within community settings, which are facilitated by locally recruited and trained facilitators (OECD, Forthcoming [8]). A lack of equipment and technology can also be a concern for some potential learners. Training providers can offer these individuals the possibility to borrow or rent equipment, fund the purchase of equipment, provide free licenses to software, or provide a library or free access to a public library. Another barrier at this stage is the lack of pre-requisites or required knowledge to follow the training. In this case, training providers can provide pre-training materials and support, as well as in-house career counsellors to suggest alternate learning pathways, or short bridging courses. For i nstance, CodeYourFuture offers an introductory class to acquire digital skills. Career guidance and Recognition of Prior Learning provided by governments, can also help remove this barrier. Finally, accessibility can be a barrier, for instance for people with dis abilities. Here, training providers that offer online classes can make learning materials more accessible, for instance through captions, audio description s or dedicated note takers in class. During training Finally, in the last stage where individuals are enrolled in a training programme, unfo reseen barriers may

HELPING ADULTS OVERCOME BARRIERS TO TRAINING © OECD 2026

free follow-up learning opportunities for those who complete the programme as is done by German training provider Kiron. Concluding remarks Governments and training providers can help adults overcome barriers to training through various policies and services. Doing so, they recognise that certain individuals face more barriers an d will need targeted support to overcome these barriers and undertake training. Bringing these in dividuals into training and ultimately into new jobs and careers can also help to serve businesses, who have a keen interest in tapping into underutilised talent pools and filling skills shortages. Whilst offering all services discussed in this brief would be very costly, the selection of services to offer should be guided by the most promi nent barriers experienced by potential learners of each training provider. Training provi ders can work with existing government support to offer the services that may benefit their beneficiaries the most. References

Borgonovi, F. et al. (2023), “The effects of the EU Fit for 55 package on labour markets and the demand for skills”, OECD Social, Employment and Migration Working Papers, No. 297, OECD Publishing, Paris, https://doi.org/10.1787/6c16baac-en. [2] Lassébie, J. and G. Quintini (2022), “What skills and abilities can automation technologies replicate and what does it mean for workers?: New evidence”, OECD Social, Employment and Migration Working Papers, No. 282, OECD Publishing, Paris, https://doi.org/10.1787/646aad77-en. [1] OECD (2025), Advancing Adult Skills through Individual Learning Accounts: A Stepby-Step Guide for Policymakers, Getting Skills Right, OECD Publishing, Paris, https://doi.org/10.1787/08e1bdaf-en. [10] OECD (2025), OECD Employment Outlook 2025: Can We Get Through the Demographic Crunch?, OECD Publishing, Paris, https://doi.org/10.1787/194a947b-en.

https://doi.org/10.1787/08e1bdaf-en. [10] OECD (2025), OECD Employment Outlook 2025: Can We Get Through the Demographic Crunch?, OECD Publishing, Paris, https://doi.org/10.1787/194a947b-en. [5] OECD (2025), Trends in Adult Learning: New Data from the 2023 Survey of Adult Skills , Getting Skills Right, OECD Publishing, Paris, https://doi.org/10.1787/ec0624a6-en. [7] OECD (2024), Do Adults Have the Skills They Need to Thrive in a Changing World?: Survey of Adult Skills 2023, OECD Skills Studies, OECD Publishing, Paris, https://doi.org/10.1787/b263dc5d-en. [6] OECD (2024), OECD Employment Outlook 2024: The Net-Zero Transition and the Labour Market, OECD Publishing, Paris, https://doi.org/10.1787/ac8b3538-en. [4] OECD (2023), OECD Employment Outlook 2023: Artificial Intelligence and the Labour Market , OECD Publishing, Paris, https://doi.org/10.1787/08785bba-en. [3] OECD (2023), “Recognition of prior learning: A practical guide for policy makers”, https://www.oecd.org/els/emp/skills-and-work/adult-learning/booklet-rpl-2023.pdf. [9] OECD (Forthcoming), “Navigating life with low literacy and numeracy”, OECD Skills Studies. [8]8 

HELPING ADULTS OVERCOME BARRIERS TO TRAINING © OECD 2026

Contact For questions or inquiries, please contact Elif Bahar ( Elif.Bahar@oecd.org), Arthur Felix (Arthur.Felix@oecd.org) or Patricia Navarro-Palau (Patricia.Navarro-Palau@oecd.org). Notes

1 For more information on the Survey of Adult Skills, please visit:

(Arthur.Felix@oecd.org) or Patricia Navarro-Palau (Patricia.Navarro-Palau@oecd.org). Notes

1 For more information on the Survey of Adult Skills, please visit: https://www.oecd.org/en/about/programmes/piaac.html. 2 For more information, please see https://www.cedefop.europa.eu/en/tools/financing-adult-learningdb/search/paid-education-leave and https://www.vlaanderen.be/en/flemish-training-leave. 3 For more information, please see: Study leave - Ministry of Economic Affairs and Employment. 4 For more information, please see: Leave for studies and other leave - verksamt.se. 5 For more information, please see: https://oead.at/en/education-digitisation/digital-skills-office/digitalueberall.

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