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·	From Theory To Practice

• Introduction
• Problems Associated with Adult Literacy
• Adult Literacy Interventions
• Lessons Learned
• Potential Future Directions

Introduction

Literacy is an essential skill for citizenship, work and lifelong learning. In Canada, many adults do not have the level of literacy skills they need to participate in the community, the economy and in education or training. According to the 1994 International Adult Literacy Survey, about 18% of working age Canadians have extreme difficulty with reading and another 26% have very limited skills.

Problems Associated with Adult Literacy

Problems related to adult literacy take two forms: problems for people who have low levels of literacy skills; and problems of unnecessarily difficult and increasingly complex reading materials.

Studies conclude that there are problems, for individuals and for society, associated with low literacy skill levels that are personal, social, economic and political in nature.

• Most adults with literacy problems have personal and/or learning difficulties, low self-esteem and associated social problems.
• Adults with literacy problems are reported to have two-thirds the income of other Canadians. They are twice as likely to be unemployed, and they are much more likely to receive some form of social assistance.
• Literacy problems may cost business and industry in terms of lost productivity, health and safety problems, training and retraining.

At the same time, some reading materials have become unnecessarily difficult. Technical information from institutions and industries is an example. The levels of literacy and formal education/training demands are increasing, particularly in the workplace. High-level literacy is an essential tool in the knowledge-based economy.

Adult Literacy Interventions

To address these issues, policies supporting research, programs and strategies have been developed.

Policies related to adult literacy have been shaped by three factors:

• the changing understanding of what “literacy” is;
• the two dimensions of the literacy problem – individuals with low skill levels and reading demands that may be inappropriately difficult; and
• jurisdictional responsibilities and priorities.

These policies have largely supported researching the nature of adult literacy, promoting the values of literacy through public education campaigns, developing delivery models and materials, implementing plain language initiatives, and encouraging the non-governmental sector to deliver programs.

Adult literacy programs for learners are offered by the public education system, non-governmental organizations (NGOs) and community agencies. Practices and strategies related to adult literacy take such forms as specific reading materials, teaching strategies and public relations campaigns, such as plain language campaigns.

The evaluation of various literacy policies, programs and practices aimed at addressing adult literacy problems reveals a number of lessons to be learned.

Lessons Learned

1. Adult literacy programs benefit both individuals and society, but these benefits have not been fully realized due to low levels of public interest and political support.

Where they exist, adult literacy programs can benefit both individuals and all of society. When adults take part in literacy programs, most acquire more literacy skills. Depending on the type of program, potential benefits for learners include improved self-confidence, better parenting, employment opportunities and community leadership.

Knowing this, however, has not resulted in a coordinated plan to achieve these benefits. The public appears to accept “adult illiteracy” as a charitable cause but not an educational issue. Individuals volunteer as tutors and literacy advocates, but support appears to end there. As such, considerable resources go to research and public education about adult literacy, but few dedicated resources have been directed at modifying the current education and training system to accommodate adult literacy in a meaningful way.

2. Experiences suggest how to design and deliver good adult literacy programs, but conditions do not always exist to allow that to happen.

The variety of adult literacy programs is almost limitless, with various combinations of paid and volunteer staff, formal and non-formal design, individual and group instruction, flexible and rigorous learning management. The most effective instructional methods and learning environments are likely different for different kinds of learners. As such, there is no “one way” to deliver literacy instruction, and variety in programs and approaches is important.

In general, good practice in adult literacy programs includes trained instructors; a non-threatening learning environment; adult-oriented materials, teaching approaches and evaluation; and flexible and individualized instruction. Good programs provide support services and links to other service providers. Effective instruction should focus on the learners’ interests and use everyday materials. Programs that offer more than just reading and writing instruction appear to be most successful.

3. Adult literacy programs aimed at specific target groups appear to have better results.

Some types of programs have more appeal and/or success with adults who have literacy problems. Parents, for example, are far more likely to persist in family programs than other types of adult literacy programs. Employees are more likely to participate in programs if training occurs during normal working hours. Workers are more inclined to participate in skills upgrading programs while they are employed rather than unemployed, because of the stresses associated with unemployment.

Since different program and teaching approaches are favoured for different learner groups, targeted programs appear most appropriate and effective. Targeted programs are motivating because of a direct relevance to the learner’s situation, such as the promise of a job or some other recognition. The impact of literacy programs can be improved with better targeting, for example, for offenders, families, employed and unemployed workers, adult education upgrading students, adults with learning disabilities and others.

4. Adults in need of upgrading face barriers that make it difficult to enter or remain in literacy programs.

Programs that provide literacy instruction and skills upgrading for adults have had mixed success. In general, they have not been successful in recruiting and retaining students. Only about 6% to 10% of those who could or should be in literacy programs actually participate. Reasons for low participation rates include barriers to access and accommodation in teaching/learning programs associated with poverty and unemployment.

In addition, a significant number of adults do not complete their literacy program and the number of learners who are unsuccessful for whatever reasons is high. Among the reasons for “dropping out” of literacy programs are:

• previously acquired negative attitudes toward learning;
• a lack of motivation;
• work and family responsibilities; and
• elements of the program delivery such as a lack of learner involvement.

5. It is important that adult literacy learners have a say in policies and programs addressing their needs.

To gain the benefits of adult literacy programs for individuals and for society, the barriers to participation and completion need to be overcome and the acknowledged problems with programs need to be addressed. To do this, an important strategy is to involve learners in decision making about the programs and policies. A very small number of actual learners, with assistance from government and NGOs, have been able to advocate for themselves. The majority of students in literacy programs demonstrate a strong commitment to learning, a keen understanding of the issues that affect their lives, and a willingness to become involved in making positive choices. To increase success rates, adult literacy strategies should focus on the participants and seek to meet their needs.

6. Evidence suggests considerable advantages in using learning technologies in adult literacy programs, but there is room for improvement.

There appear to be many advantages to using computer software with adult students. Computers give students the privacy they may desire, and they provide fast feedback for each student. Computers are seen as prestigious for programs and tend to attract more students. In addition, learners are able to acquire basic computer skills. There is some evidence of increased output and greater understanding of what producing written text involves, increased participation by learners, and higher levels of enthusiasm and interest using learning technologies. However, there is no evidence that computers result in dramatic achievement gains, improved attitudes, increased self-esteem, individual content, control or flexibility.

The level of interest in using technology is reported to be high. However, studies report a variety of challenges. Most programs do not have the funds to purchase the hardware and software needed to provide their students with adequate computer access. For those that do, no type of software has been shown to be particularly more advantageous. Much of the software lacks creativity and is geared toward children instead of adults. In addition, staff and volunteers have limited knowledge and training in the use of technology as a teaching tool.

7. More systematic evaluation of adult literacy policies, programs and practices is needed to increase accountability and to improve the knowledge base in the field.

Consistent evaluation would contribute to the systematic planning, development and accountability of all types of adult literacy interventions in the future. Literacy policies, programs and practices have not been consistently evaluated, and assistance is needed with this for the future. Many critical issues do not appear to have been evaluated, such as provincial/territorial literacy education policies and programs; the actual impacts of programs on learners and the rewards to improved literacy skills for adults; or the effects and effectiveness of plain language initiatives.

Potential Future Directions

First, it is possible and important to create one comprehensive description of best practice in literacy programs by pulling together all that is known. This would include, for example, the preparation of teachers, materials used, learning technologies and learner involvement. A comprehensive, consensus-based set of guidelines for good practice could serve both planning and evaluation purposes, and begin to ensure equitable access to effective and efficient adult literacy programs for all Canadians.

In addition, adult literacy needs to be imbedded in other social policies. Adults with low literacy skills have common characteristics including low income, low social status and learning disabilities. There are also groups within Canadian society that have a greater incidence of low-level literacy skills among adults, for instance, First Nations, offenders and people living in poverty. It is impossible to disentangle the multiple problems contributing to and stemming from low-level literacy. Future efforts should build on this knowledge and lead to effective targeted programs.

Third, the seven lessons learned should be addressed as challenges. There are different roles for different levels of government, and a demonstrated need for continued federal intervention in literacy. It is important to realize that multiple systems are all serving the same client and networking these systems together makes sense.