Bottom-up Initiatives: How Communities Develop Adult Learning and Education in the Absence of a National Law
Abstract: Adult education in Ukraine thrives despite the lack of a dedicated Law on Adult Education, thanks to local initiatives. This article examines the role of local self-governance in driving adult learning and education (ALE) in this context. NGOs, supported by local authorities, offer diverse non-formal programs that address various adult learning needs. Case studies in Poltava and Lviv demonstrate how municipal programs support vulnerable populations, promote professional development, and foster civic engagement. These programs are crucial amidst the ongoing war, providing pathways to reskilling, psychological support, and reintegration. Survey data highlights the positive impact of these initiatives, with high participant satisfaction and increased civic activity. Despite funding challenges, the resilience of local actors and international support demonstrate the potential for a robust ALE system in Ukraine.
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The development of adult education in Ukraine has a long history. More than 100 years ago, scientific and educational centers called "Prosvita" operated in Ukraine, serving as the adult education hubs of their time, with a strong focus on fostering civil society. Unfortunately, due to periods of occupation, Ukraine returned to developing the concept of adult education only after gaining independence. This development continues to evolve in the modern era, adapting to contemporary challenges and needs. According to the study on State Policy in the Field of Adult Education (Andreev, Bakhurin, Lukyanova, Panich, 2021), adult education programs in Ukraine are primarily implemented by three main entities:
● Formal education institutions: vocational and technical education institutions or establishments that provide postgraduate education and professional development.
● Specialized state and municipal postgraduate education institutions: training and qualification centers for professionals in specific fields, such as teachers, doctors, cultural workers, civil servants, and others.
● Civil society organizations.
A large number of adult education programs, which are regulated by the government, focus on various forms and types of professional training. Learners are required to undergo such training by the legislation regulating their professional activities. State and municipal institutions are responsible for developing these programs. The State Employment Service implements professional training mostactively in Ukraine; around 23,000 people receive vouchers for educational courses annually.
Civil society organizations, often in cooperation with local authorities, voluntarily implement non-formal adult education programs or help international donor organizations respond to the existing demands and expectations of potential learners. As providers, NGOs are institutionally capable of developing innovative programs and implementing cutting-edge teaching methods. However, they do not have guaranteed financial support from the state and are fully market-driven, relying on demand from learners.
This situation in Ukraine is largely due to the lack of legislative regulation of adult education. Currently, adult education providers and local authorities are guided by the Law of Ukraine "On Education"(2017).
The Law does not include a clear definition or regulations for adult education; it mentions it mainly as a component of postgraduate education, advanced training, and professional development. This narrows the understanding of adult education, limiting it only to the professional and career aspects.
The absence of a dedicated legislative framework for adult education in Ukraine has resulted in its development primarily occurring at the level of civil society organizations and local governmental bodies within individual communities. Funding for these initiatives is often derived from local programs. This lack of centralized legal norms has led to a non-systematic approach to adult education, with communities independently seeking diverse support mechanisms. However, this decentralized development has also yielded unique and often non-replicable outcomes, fostering the emergence of
original adult education institutions. Examples include the proliferation of adult education centers operating within municipal library systems, the establishment of universities for seniors, and the growth of youth space center networks.
Before reviewing the practices of local self-government and public organizations in the field of ALE, it is worth noting that since 2018, the Ministry of Education and Science, together with the help of DVV International in Ukraine and representatives of adult education providers and local authorities, has been developing a draft law on Adult Education. The draft law on AE was approved by the parliament in the first reading in January 2023. After approval, more than 1,100 amendments from various institutions, deputies, and Parliament committees to the draft law were collected and processed within 2 weeks, the updated law in the second reading must be approved by the relevant committee and voted on by the parliament. Unfortunately, the draft law has not yet been voted on, there is a lack of political will.
The absence of a dedicated law for ALE in Ukraine hinders its development due to several key factors:
● Right to Lifelong Learning: The lack of legislative recognition of the right to lifelong learning for adults creates obstacles to its practical implementation. Adults lack guaranteed access to quality
and affordable education throughout their lives.
● Inconsistent Development: The absence of a legal framework leads to a fragmented approach, with diverse community-led initiatives lacking standardization and systemic coherence.
● Limited Funding: Without legislative recognition, adult education struggles to secure consistent funding, relying heavily on limited local resources and international donor support.
● Narrow Understanding: The prevailing view of adult education often focuses solely on professional training, neglecting its broader potential for personal growth and social inclusion.
● Lack of Established Centers: Communities lack the legal basis to formally establish adult education centers, hindering the development of local infrastructure and access points.
● Absence of Support Mechanisms: There are no approved funding mechanisms or designated responsible bodies to ensure the sustainable development and oversight of adult education.
The draft law "On Adult Education" significantly expands the powers of local self-government bodies in adult education. This will allow them to participate in the formation of state policy, taking into account the needs of their communities, promote the development of a network of educational service providers, determine the amount of funding, conduct research on the needs of adults, and create municipal adult education centers. Thanks to these powers, local authorities will be able to better respond to the community needs, ensure access to education for all, and promote the development of the community as a whole.
The proposed law empowers local governments to financially support specialized adult education programs and related activities. Beyond funding, it establishes a framework for the growth of civic education, fosters the digitalization of learning opportunities, and facilitates retraining initiatives that align with current workforce needs. A key focus is ensuring territorial accessibility to education, and addressing the particular challenges faced by residents of remote communities. Further innovationsinclude creating the National Council for the Development of Adult Education, a collaborative body representing key stakeholders, including local authorities, within the adult learning ecosystem.
Remarkably, the bill's implementation is projected to be budget-neutral. Also, it introduces the individual learning portfolio, a comprehensive record of an individual's academic achievements, and ocumented learning outcomes from formal, non-formal, and informal educational experiences.
To summarize, the development of adult education in Ukraine, despite the legislative gap, demonstrates a remarkable spirit of collaboration between local governments, civil society organizations, and educational providers. The emergence of diverse local initiatives, from library-based learning centers to universities of the third age, highlights the untapped potential of adult learning and the strong community demand for accessible, lifelong education. The anticipated adoption of the Law "On Adult Education" promises to solidify these grassroots efforts, providing a robust framework for a comprehensive and inclusive adult education system that empowers individuals and strengthens communities across Ukraine.
Practices of local authorities
Adult education in Ukraine is at a crucial stage of development. Despite the absence of a law about Adult Education, significant progress has already been made in creating and supporting a variety of ALE initiatives, especially by support of local authorities.
The development of adult education at the municipal level mainly takes place through the approval of relevant statutory documents or municipal programs. In communities where adult education is developing, lifelong learning is mentioned mainly in municipal programs or development plans, and less often separate strategies for the development of adult education are approved (Anishchenko, 2021). Thus, a full-fledged strategy for the development of adult education in the community was completed only in the Yavoriv community, and Programs and development plans for adult education were approved in 6 communities (Nikopol, Lviv, Melitopol, Halychynovo, Vinnytsia and Poltava).
The challenges that Ukraine faces today require new approaches to adult education. The war, economic instability, forced displacement of the population, the need for reintegration of veterans, and the growing demand for digital skills define the themes of educational programs aimed at supporting citizens in this difficult time. In this regard, the directions approved in municipal programs are aimed at overcoming the challenges faced by Ukrainian society.
In response to these challenges, for example, in the city of Poltava and in the city of Lviv, targeted programs are being implemented that not only promote skills development but also help to adapt to new social and economic conditions. Their structure takes into account both national priorities and local community needs, offering learning opportunities for veterans, internally displaced persons, people from vulnerable groups, entrepreneurs, and all those who seek personal and professional development.
In Poltava, the Municipal Program "Development of Adult Education in the Poltava City Territorial Community for 2021–2025" plays a vital role in the city's socio-economic development by focusing on enhancing the knowledge, professional skills, and social adaptation of its adult population. The program prioritizes equal access to lifelong learning through a diverse range of educational events, courses, and training opportunities tailored to various adult groups. Key program areas include:
● Equal Access to Education: The program provides targeted educational courses for vulnerable populations, including people with disabilities, senior citizens, veterans and their families, internally displaced persons (IDPs), and low-income residents. It promotes inclusive learning environments, exemplified by initiatives like the "University of the Third Age" which offers cultural and professional development opportunities specifically for older adults.
● Professional Development and Employment Promotion: The program supports professional growth through educational programs designed for entrepreneurs, self-employed individuals, representatives of small and medium-sized businesses, and local government employees. The "RapidSkills" project offers intensive vocational training in high-demand sectors such as hospitality, retail, and gastronomy.
● Language and Digital Literacy: Free Ukrainian and foreign language courses (English, German, Polish) are available to adults, with specialized groups for IDPs, veterans, and their families. Recognizing the growing importance of digital skills, the program also offers computer literacy courses, particularly in rural areas.
● Social and Psychological Adaptation and Civic Education: The program addresses social and psychological well-being through training in areas such as emotional intelligence, anti-bullying strategies, stress management, and crisis response. Specialized programs support the social integration, mental health, and professional rehabilitation of veterans and IDPs. Furthermore, training in conflict resolution and media literacy empowers citizens to critically evaluate information, recognize disinformation, and enhance their communication skills.
● Health, Safety, and Environmental Awareness: The program promotes well-being and community safety through courses on first aid, tactical medicine, and emergency response. It also encourages healthy lifestyles through activities like yoga and Nordic walking, and raises environmental awareness through dedicated workshops.
The program benefits from a diverse funding model, drawing support from the Poltava community budget, international partners, and grants. In 2024, the total funding for the Adult Education Development Program in Poltava was 12,675,660 UAH (€291,800). Of this, 1,548,600 UAH (€35,650) came from the city budget, while 11,127,060 UAH (€256,150) was sourced from external funds. Thus, the program's funding consists of 12.2% from the municipal budget and 87.8% from other sources. In 2024 educational activities took part around 3,600 participants and were set up in learning spaces in the community.
Thus, the adult education program in Poltava serves as a comprehensive tool for human capital development, addressing modern challenges and improving the competitiveness of the community’s residents.
Since 2020, Lviv has also had an approved municipal program aimed at developing adult education. This program is unique in that it supports the creation of ALE centers based in libraries. The prerequisite for the program was a joint pilot project of the Municipal Institution City Institute together with the Office of Culture of the Lviv City Council. With the support of DVV International in Ukraine in 2019, they created a network of adult education centers based on 3 municipal libraries - Network of Education Centers (Merezha Tsentriv Edukatsiyi - in Ukranian).
In the first year of its existence, the Network in libraries demonstrated a significant demand for non-formal education courses among the adult population. Thus, in just six months, over 3,000 residents registered for training, while the capacity to train was only 400 people.
Due to the significant demand among the local population for non-formal education courses, a municipal support program "Non-Formal Adult Education Program at the Lviv Municipal Library" was created to support the Network of Education Centers in libraries. In 2021, the NGO "Network of Education Centers" was founded, and in 2024 an adult education coordination center was opened on the basis of the library, which is also equipped with a modern kitchen for culinary courses. Thus, there are 10 modern adult education centers operating in libraries in various districts of the city, which provides access to education for everyone. From 2019 to 2024, more than 17,000 people took part in educational events from the Network of Education Centers in libraries, and 7 city educational participatory festivals were held, at which people learned from first aid skills to tango dancing with visually impaired people, or self-defense courses.
It needs to mention key points of municipal Non-Formal Adult Education Program at the Lviv Municipal Library. The Program aims to create accessible lifelong learning opportunities by integrating educational activities into the city's public libraries. These libraries are transformed into ALE centers, providing knowledge and skills to adult residents. Special attention is given to socially vulnerable groups, including low-income individuals, the unemployed, internally displaced persons (IDPs), and veterans. The program focuses on key areas such as language learning, psychological support, creative skills development, civic education, and entrepreneurship. It includes regular courses, training sessions, and workshops held at library branches. Additionally, it provides specialized training for librarians, equipping them with the skills to manage educational initiatives.
Funding comes from the Lviv municipal budget, international grants, and partner support. The program is expected to strengthen the role of libraries as modern learning spaces, ensure access to quality education for adults, and support the social reintegration of veterans, IDPs, and other community members.
Unfortunately, due to the war in Ukraine, local budgets have limited funding. In 2024, the program received only UAH 100,000 (approximately EUR 2,300) of the planned UAH 400,000 (EUR 9,200). However, the NGO "Network of Education Center"consistently secures funding from international donors, supplementing adult education in Lviv with UAH 7,000,000-10,000,000 (EUR 161,000-230,000) annually from these partners.
The Network of Education Center in libraries diverse range of educational programs, designed to enhance professional skills, encourage personal development, and support social integration.
Professional development is one of the priority areas of the Network's activities. Within this area, courses in marketing and sales are offered, such as SMM, copywriting, graphic design, Internet marketing, PR, and others. These courses help adults gain up-to-date knowledge and skills necessary for a successful career in today's labor market. Special attention is also paid to IT courses, in particular in Project Management, QA, and HR, which corresponds to the growing demand for IT professionals. In addition, the Network offers business courses that help start-up entrepreneurs and veterans develop their businesses, as well as courses in accounting and finance, which are important for successful business management.
The psychological direction of the Network's activities is aimed at supporting the psychological health and emotional well-being of adults. Within this direction, courses in relationship psychology, practical psychology, stress and resilience psychology, child psychology, art therapy, psychosomatics, and others are offered. Particularly relevant are psychological support groups during the war, courses in the psychology of communication with the military, and courses in sleep psychology. These programs help adults overcome stress, anxiety, and other psychological difficulties associated with the war and other life circumstances. Psychological direction is one of the popular in the city.
Personal development is another important area of the Network's activities. Within this area, courses in financial literacy, first aid, investment, the history of Ukrainian culture, drawing, and others are offered. These courses help adults develop their talents and abilities, broaden their horizons, and improve the quality of their lives. Special attention is also paid to learning foreign languages, developing personal effectiveness, leadership, and communication, as well as civic education and volunteering.
In addition to training courses, the Network of Education Centers also offers a variety of cultural and artistic events, such as lectures and master classes. These events contribute to the cultural development and enrichment of the spiritual world of adults.
Surveys of participants in the Network of Education Centers' programs demonstrate a significant positive impact on the lives of Lviv's adult population (2024). The survey results indicate a high appreciation of the quality of education and its influence on various aspects of participants' lives.
92% of respondents rated the courses 5 out of 5 possible points, which indicates the high quality and relevance of educational programs. 88% of participants noted that the skills acquired will help them in finding new jobs, upgrading their qualifications, or starting their own businesses. This emphasizes the practical focus of training and its importance for the economic activity of the population.
It is particularly important to note that for 63% of respondents, these courses were the first experience of long-term non-formal education in their lives. This fact suggests that contributes to the formation of a culture of lifelong learning in the city, involving in the educational process even those who previously did not have the opportunity or motivation to learn.
It is also interesting that 73% of participants, regardless of the topic of the course they took (be it accounting, foreign languages, or something else), noted that they became more active in the life of the city. They began to attend other city events, participate in public initiatives, and show greater interest in the life of their community. This means that attending non-formal education events has a positive impact on the development of civil society and contributes to the formation of an active and responsible position of citizens.
The results obtained testify to the significance and effectiveness of the activities of the Network of Education Centers in Lviv. Non-formal education programs not only provide adults with the necessary knowledge and skills but also contribute to their personal development, increased economic activity, and involvement in the active life of the city.
In conclusion, despite the absence of nationwide legislation, local self-government in Ukraine plays a key role in the development of adult education. Municipal programs, while not always formalized into full-fledged strategies, are an important tool for implementing local initiatives and meeting the needs of the community. The experience of Poltava and Lviv demonstrates how local authorities, taking into account the challenges of the times and the needs of the population, create diverse and effective lifelong learning programs. These practices are a valuable contribution to the development of adult education in Ukraine and create a foundation for the formation of a national strategy in this area.