The OECD solutionism and mythologies in adult education policy: skills strategies in Portugal and Slovenia

ABSTRACT The role of international governmental organisations (IGOs) in global policymaking has received significant attention in the field of adult learning and education (ALE) in the twenty-first century, and the Organisation for Economic Co-operation and Development (OECD) was recognised as one of the most influential IGO due to its skill surveys – such as the Programme for the International Assessment of Adult Competencies (PIAAC). However, while the majority of empirical studies in the field have focused on the analysis of PIAAC data, little attention has been given to the influence of the OECD skills strategies on the development and/or improvement of national ALE systems. This study addresses this gap in two OECD member states – Portugal and Slovenia – by applying the ‘what’s the problem represented to be?’ approach to policy analysis and using the theoretical concept of myth in defining policy problems. Our findings indicate that although both countries’ ALE systems differ, they share problem representations that reinforce several policy myths: ALE is a solution to tackle socioeconomic problems; unemployment is a problem of low-skilled adults; the learner-centred approach is a way to raise participation in ALE, and improved governance is a means to advance national ALE systems.