On learning and who should judge it

Schools are about a thing called "learning", and school reform movements try to increase this thing. But learning itself is never defined; it is suposed to be understood what Learning is, though actually it is as difficult to define as Time or Quality. Just try

First of all, learning as "increasing one's knowledge" doesn't do, because it leads us to define knowledge: equally difficult. I like Chilean philosopher Rafael Echeverria's definition:  learning is "Increasing one's capacity for effective action". [1]