Neoliberal reconceptualisations of lifelong learning? A critical analysis of learner agency in OECD documents

Abstract

Lifelong learning has been popularised under the term 'agency' in recent OECD policies, which emphasise learners' roles, capabilities, and responsibilities in directing their lifelong learning journeys. This direct shift to learners requires a critical analysis of key policy documents to understand the broader implications of neoliberal policies for education. This study employs critical content analysis of key OECD documents to critically examine how 'agency' is constructed within a neoliberal framework. By unpacking the language and assumptions embedded, this study shows how the term 'agency' is re-conceptualised and presented as a so-called empowerment tool and how educational accountability has shifted from institutions to individuals. It is highlighted how neoliberal policies use new 'window dressing' terms to promote individual responsibility, often hiding deeper issues like unequal resources and institutional duties. This analysis questions whether the term 'agency' truly empowers learners or simply acts as a new umbrella term serving a market-focused agenda in education.