2.1 As we approach the twenty-first century, the people of this country, in common with those of many others, face a bewildering mixture of uncertainty, risk, insecurity, division and yet opportunity. The challenges of rapid change are evident all around. They can be seen in radical shifts in the organisation of industry and labour markets. They are apparent in rapid changes in occupations and the demand for skills. They are occurring in the structure of communities and in family forms, roles and relationships. They manifest themselves in new technologies and patterns of communication. They impact upon individual identities, produce new opportunities for active citizenship and affect even the nature and form of knowledge itself.

2.2 These challenges can be met, at least in part, by moving towards a learning culture for all. We do not think that the only response should come from learning, nor do we claim that the development of a learning culture will itself produce automatic or ready-made answers to the challenges our country now faces. To make such claims would be to foster illusions and would do damage to the promise of lifelong learning, when inevitably it failed to live up to them. Learning can make its valuable contribution to the resolution of problems, but it cannot and should not be a substitute for politics, economy and society.

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