Participation in adult education is today generally considered an individual responsibility. However, participation is the result of a complex bounded agency between individuals, educational institutions and regulating governments. This paper explores the motives of 12,000 European adult learners in formal adult education in 12 European countries. Analysis shows consistent patterns comparable to welfare state typologies. Further exploration demonstrates that motives to participate in adult education courses can be interpreted in relation to the labour market, education and social policy in the country of participation. (Contains 1 figure, 3 tables and 2 notes.)