Promoting consumer education : trends, policies, and good practices.

192 Pages·2009·1.049 MB·English

by  OECD

Promoting Consumer Education
TRENDS, POLICIES AND GOOD PRACTICES
Promoting Consumer
Consumers today are challenged by growing amounts of information and wider choices of products.
To make good choices in increasingly complex markets, they must develop a greater range of skills
Education
and knowledge. This can be greatly facilitated through improved awareness and education.
This publication examines the approaches that governments use to promote consumer education
in OECD and some non-OECD countries, highlighting the policies and measures that have been TRENDS, POLICIES AND GOOD PRACTICES
particularly effective. It also analyses recent trends, the role of stakeholders, steps being taken to
evaluate the effectiveness of current programmes and the principal challenges.
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ISBN 978-92-64-06008-1 -:HSTCQE=U[UU]V:
93 2009 04 1 P
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Promoting Consumer
Education
TRENDS, POLICIES AND GOOD PRACTICES
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ORGANISATION FOR ECONOMIC CO-OPERATION
AND DEVELOPMENT
The OECD is a unique forum where the governments of 30 democracies work
together to address the economic, social and environmental challenges of globalisation.
The OECD is also at the forefront of efforts to understand and to help governments
respond to new developments and concerns, such as corporate governance, the
information economy and the challenges of an ageing population. The Organisation
provides a setting where governments can compare policy experiences, seek answers to
common problems, identify good practice and work to co-ordinate domestic and
international policies.
The OECD member countries are: Australia, Austria, Belgium, Canada, the
Czech Republic, Denmark, Finland, France, Germany, Greece, Hungary, Iceland,
Ireland, Italy, Japan, Korea, Luxembourg, Mexico, the Netherlands, New Zealand,
Norway, Poland, Portugal, the Slovak Republic, Spain, Sweden, Switzerland, Turkey,
the United Kingdom and the United States. The Commission of the European
Communities takes part in the work of the OECD.
OECD Publishing disseminates widely the results of the Organisation’s statistics
gathering and research on economic, social and environmental issues, as well as the
conventions, guidelines and standards agreed by its members.
This work is published on the responsibility of the Secretary-General of
the OECD. The opinions expressed and arguments employed herein do not
necessarily reflect the official views of the Organisation or of the governments
of its member countries.
Also available in French under the title:
La promotion de l’éducation des consommateurs
TENDANCES, POLITIQUES ET BONNES PRATIQUES
Corrigenda to OECD publications may be found on line at:www.oecd.org/publishing/corrigenda.
© OECD 2009
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3
FOREWORD –
Foreword
At its 72nd Session in October 2006, the OECD Committee on
Consumer Policy agreed to carry out a project on consumer education. The
purpose of the project was to examine the role that governments and other
stakeholders are taking in providing education, with a view towards identi-
fying effective policies and programmes. Information for the report was
collected by various means, including two questionnaires* and a stake-
holders conference organised with the United Nations Marrakech Taskforce
and the United Nations Environmental Programme in October 2008**.
The first chapter of this report presents an overview of key issues in
consumer education. These include definitions, policy objectives, structures and
implementation frameworks, and co-operative schemes among stakeholders.
This part is based largely on country responses to the two questionnaires.
The second chapter provides detailed analyses of key issues in consumer
education on a country-by-country basis. The third chapter provides an
overview of findings, and identifies key elements and features of effective
consumer education systems.
Work on the project was supported by a voluntary contribution provided
by the Japanese government. It was carried out principally by Yuko Ueno,
Magdalena Olczak and Yoshiaki Takahashi, under the overall direction of
Peter Avery of the OECD Directorate for Science, Technology and Industry.
The OECD Committee on Consumer Policy develops policy guidance
aimed at empowering and protecting consumers in the global marketplace.
Further reports and analysis on consumer issues can be found at
www.oecd.org/sti/consumer-policy.
* See Annexes 1.A5 and 2.A1.
** Conference report available atwww.oecd.org/sti/consumer-policy/education
PROMOTING CONSUMER EDUCATION – ISBN 978-92-64-06008-1 – © OECD 2009

5
TABLE OF CONTENTS –
Table of Contents
Chapter 1. Overview ........................................................................................... 7
Background ....................................................................................................... 7
Definition and goals of consumer education ..................................................... 8
Consumer protection and awareness ........................................................... 10
Consumer skills ........................................................................................... 11
Public interest .............................................................................................. 11
Structure of consumer education ..................................................................... 11
Formal education ......................................................................................... 12
Lifelong education ....................................................................................... 19
Targeted education ...................................................................................... 24
Institutions ....................................................................................................... 29
Non-governmental stakeholders .................................................................. 30
Co-operative schemes ..................................................................................... 35
Evaluation of consumer education programmes ............................................. 37
Key issues and challenges ............................................................................... 39
Annex 1.A1. Evolution of the Concept of Consumer Education ......................... 41
Annex 1.A2. Institutional Framework for Consumer Education ......................... 45
Annex 1.A3. Major Initiatives in Consumer Education ...................................... 51
Annex 1.A4. Summary of Key Challenges in Consumer Education .................... 63
Annex 1.A5. Questionnaire on Consumer Education: Consumer Rights ............ 65
Chapter 2. Analysis of Selected Countries ...................................................... 75
Australia .......................................................................................................... 77
Ireland ............................................................................................................. 85
Japan ............................................................................................................... 89
Korea ............................................................................................................... 96
Mexico .......................................................................................................... 103
Norway .......................................................................................................... 107
Portugal ......................................................................................................... 113
Slovak Republic ............................................................................................ 122
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– TABLE OF CONTENTS
Spain ............................................................................................................. 129
Thailand ........................................................................................................ 138
Turkey ........................................................................................................... 144
United Kingdom ............................................................................................ 149
United States ................................................................................................. 157
United Nations Environment Programme (UNEP) ....................................... 167
Annex 2.A1. Consumer Education Strategy Analysis Template ........................ 173
Chapter 3. Summary and Conclusions ........................................................... 179
General approach to consumer education ....................................................... 179
Formulating goals for consumer education .................................................... 181
Key approaches to consumer education ......................................................... 182
Lifelong learning ........................................................................................ 182
Formal education ....................................................................................... 183
Targeted education ..................................................................................... 184
Communication ............................................................................................. 185
Co-operation and co-ordination among stakeholders...................................... 186
Evaluation ...................................................................................................... 187
Challenges ..................................................................................................... 188
PROMOTING CONSUMER EDUCATION – ISBN 978-92-64-06008-1 – © OECD 2009
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1. OVERVIEW –
Chapter 1
OVERVIEW
This chapter presents an overview of key issues in consumer education.
These include definitions, policy objectives, structure and implementation
frameworks, and co-operative schemes among stakeholders. It is largely
based on country responses to the two questionnaires1 on which this
report is based.
Background
The need for consumer education has increased over time. Today’s
consumers operate in an increasingly complex marketplace and are faced
with increasing amounts of information and an expanding choice of complex
products and services (e.g. the financial and telecommunication sectors).
Moreover, they are more exposed to fraud and thus require a wider range of
skills and knowledge than ever before. Education can equip consumers with
the information and skills to meet these challenges and improve their
engagement with the marketplace, thereby increasing their welfare. By the
same token, consumers’ informed choices contribute to effective competi-
tion and to well-functioning markets.
For all these reasons, it is in the common interest of governments,
consumers and businesses to empower the individual consumer as much as
possible with an awareness of his/her rights, knowledge of how to defend
himself/herself against various pitfalls and to cope with the subsequent
consequences, as well as the ability to act proactively in the marketplace.
Consumer education has been defined in various ways. The focus has
moved from household management in the 1960s to learning how to
exercise consumer rights and how to avoid becoming a victim to fraudulent,
misleading or unfair commercial practices. It now also includes building
awareness of the social and environmental consequences of the choices
consumers make. Consumer education helps consumers to understand market
1. See Annexes 1.A5 and 2.A1.
PROMOTING CONSUMER EDUCATION – ISBN 978-92-64-06008-1 – © OECD 2009
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– 1. OVERVIEW
mechanisms and to deal confidently with the market. Broadly speaking, it
can be defined as:
“… a process of gaining skills, knowledge and understanding
needed by individuals in a consumer society such that they can
make full use of consumer opportunities presented in today’s
complex marketplace.” (Wells and Atherton, 1998)
Consumers can be educated through formal training, advice and instruc-
tion, as well as informal means (e.g. experience and individual research).
This education has two important aspects: i) development of adequate
knowledge of consumer issues; and ii) development of the skills to apply
that knowledge and make informed decisions. The process of educating
consumers is carried out by governments, civil society and business along
with other interested stakeholders.
The aim of this report is to analyse consumer education policy issues
and trends with a view to identifying effective policies and programmes. It
focuses on the role played by governments, but links these efforts with those
of other parties. It addresses the following questions:
• How are governments defining the goals/objectives of consumer
education?
• How is such education structured?
• What is the role of stakeholders other than government?
• What are some of the main initiatives being pursued?
In addition, it considers:
• The kinds of challenges policy makers face for developing and
implementing consumer education.
• Ways to promote consumer education more effectively.
Definition and goals of consumer education
Consumer education is not legally defined in most countries. Of the
countries responding to the OECD questionnaire, only Japan, Korea and
Chile describe consumer education in legislative terms. Finland, France,
Hungary and Sweden have developed definitions of an official character
which are linked to compulsory education programmes in schools. Mexico,
Spain, Switzerland, Turkey and Malaysia have working definitions of
consumer education, but these are not grounded in legislation. Japan, Korea
and Spain take a broad view which encompasses consumption and the
PROMOTING CONSUMER EDUCATION – ISBN 978-92-64-06008-1 – © OECD 2009
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1. OVERVIEW –
consumer society in general terms, while Mexico, Chile and Thailand
emphasise consumer protection and empowerment aspects (Box 1.1).
Box 1.1. Goals of consumer education
Hungary is concerned with the development of self-aware consumer behaviour in
preparation for adult life and with the development of social competencies.
Japan seeks to educate citizens about consumption.
Korea not only provides consumers with concrete information related to the goods and
services they buy, it also encourages them to manage their consumption carefully and
encourages them, when faced with various alternatives, to make cautious and rational
purchasing decisions based on the impacts their purchases will have on them and on society.
Mexico intends to give individuals a clear position vis-(cid:811)-vis consumption and, at the same
time, promote consumers’ empowerment through awareness of the sense and meaning of
consumption.
Spain sees a social need to develop a series of educational actions aimed at citizens to offer
them knowledge and help them to develop critical and responsible habits and attitudes.
Sweden provides pupils with the practical knowledge and skills to act as consumers,
particularly through education on food and health, consumer rights, home economics, the
environment and advertising.
Chile addresses a consumer’s right to receive information to act responsibly.
Thailand has a concrete mechanism for enhancing and protecting consumer rights effectively
and sufficiently.
Source: Country responses to the OECD questionnaire on consumer education: consumer rights (see
Annex 1.A5) and to the OECD template for in-depth analysis of consumer education strategy (see
Annex 2.A1).
The scope of consumer education differs significantly among countries
and generally covers one or more of the following areas: consumer
protection, consumer skills and protection of the public interest. The
objectives in these areas tend to be broad, and, to some extent, they reflect
the specificities and policy choices of individual jurisdictions. The
differences are closely linked to the tools and mechanisms used to
implement consumer education. Sometimes the goals are described in terms
of the role of the administrative bodies that are responsible for consumer
education.
As shown in Table 1.1, countries have articulated consumer education
objectives in various ways, such as laws on consumer protection, education
or trade; government programmes and strategies; and school curricula.
PROMOTING CONSUMER EDUCATION – ISBN 978-92-64-06008-1 – © OECD 2009