Chapter 24., Section 12. Planning an Adult Literacy Program — Main Section | Community Tool Box

Author's Note: This section was originally informed by nearly 20 years of experience in adult education, including 13 years helping to found and run The Literacy Project, a community-based adult literacy program in western Massachusetts. Much of the discussion and many of the examples grew from that experience. The perspective reflected here emphasizes collaborative management, learner-centered adult education, community participation, and the role literacy can play in helping people pursue goals that matter to them. - Phil Rabinowitz

• What is adult literacy?
• Why start an adult literacy program?
• How do you plan an adult literacy program?

Adult literacy has long been an important part of education and community development. Over time, the way literacy is understood has expanded. Reading and writing remain central, but adults may also need or want support with numeracy, digital technology, English-language learning, health information, financial information, civic participation, workplace communication, and navigating increasingly complex systems.

Literacy is also shaped by opportunity and access. Adults come to programs with different educational experiences, languages, abilities, cultural knowledge, work histories, and goals. Some may want to strengthen reading or writing skills; others may want to earn a high school equivalency credential, communicate more confidently in English, help their children with schoolwork, use technology, pursue education or employment, or participate more fully in community life.

Adult literacy programs can support these goals while also strengthening communities. This section provides an overview of adult literacy and guidance for planning a program. The next section discusses how to establish and operate the program in the community.

What is adult literacy?

Adult literacy is broader than simply being able to read or write. Literacy involves using information, language, numbers, communication, and increasingly digital tools in ways that help people accomplish goals in their everyday lives.

Literacy also depends on context. Someone may read and write fluently in one language while learning English. A person may be highly skilled in a trade but want help completing online forms. Another person may read comfortably but want support with math, digital technology, or workplace writing.

For that reason, literacy should not be treated as a simple division between people who are "literate" and "illiterate." Adults have different strengths and learning goals, and literacy develops across a range of skills and settings.

Components of adult literacy

Adult literacy programs may address several areas depending on community priorities and participant goals:

• Reading: Developing the ability to understand and use written information for purposes that matter to the learner, such as work, education, family life, health, community participation, or personal interests.
• Writing: Developing the ability to communicate ideas and information effectively in forms relevant to the learner's goals, from messages and forms to workplace documents, applications, correspondence, and creative writing.
• Numeracy: Understanding and using numbers and mathematical information in everyday situations such as budgeting, measuring, comparing prices, interpreting data, managing medication schedules, or completing workplace tasks.
• English-language learning: Supporting adults who use languages other than English in developing speaking, listening, reading, and writing skills in English when those skills are relevant to their goals. These programs may also be called ESOL or ESL programs.
• Digital literacy: Using computers, smartphones, email, websites, online forms, communication platforms, and other technologies to find information, communicate, learn, work, and access services.
• Information and media literacy: Finding, understanding, evaluating, and using information from print, digital, news, social media, and other sources.
• Health, financial, workplace, and civic literacy: Applying literacy and numeracy skills to specific areas of life, depending on what participants want and need to accomplish.

The uses of literacy

Literacy becomes meaningful through how people use it. Adults seek literacy education for many different reasons, and those reasons should help shape the program.

Common goals may include:

• Employment and economic goals. Participants may want to strengthen workplace skills, qualify for training or advancement, apply for jobs, change careers, start a business, or communicate more effectively at work.
• Family and personal goals. Adults may want to read with their children, help with schoolwork, communicate with family members, manage household information, pursue hobbies, or simply experience the satisfaction of learning.
• Community and civic participation. Participants may want to understand community issues, communicate with public agencies, vote, advocate for themselves and others, participate in community organizations, or take on leadership roles.
• Further education. Adults may want to earn a high school equivalency credential, enter college or technical education, complete professional training, or continue learning for its own sake.

When planning an adult literacy program, begin with the goals learners identify for themselves. Program staff may offer information about additional opportunities, but learners should have meaningful influence over what they work toward and how their progress is defined.

Why start an adult literacy program?

Communities may develop adult literacy programs because residents have identified a need for additional educational opportunities or because literacy education supports broader community goals.

Community priorities and opportunities

Before establishing a program, listen to community members and examine available information to understand what kinds of learning opportunities people want, what already exists, and what barriers may be limiting participation.

Reasons for developing adult education or literacy services may include:

• Employment and economic opportunity. Workers and job seekers may want literacy, numeracy, digital, English-language, credentialing, or workplace skills connected with employment and career goals. Employers and workforce organizations may also identify skills that are increasingly important in local industries.
• Immigration and multilingual communities. Some immigrants and refugees may want opportunities to develop English-language skills while building on the languages, education, professional experience, and knowledge they already have. Language access may also be important across health care, schools, government, employment, and other community institutions.
• Family learning. Parents and caregivers may want skills or resources that help them support children's education, communicate with schools, use digital learning systems, or pursue educational goals alongside other family members. Children's educational outcomes are shaped by many factors, so family literacy should be viewed as one possible support rather than as a way of assigning responsibility for children's achievement to parents.
• Health and access to services. People may benefit from support understanding health information, forms, medication instructions, insurance information, public health guidance, or digital health systems. Organizations also have a responsibility to communicate information clearly and accessibly rather than placing the burden entirely on individuals.
• Quality of life and community participation. Adult education can expand opportunities for learning, social connection, leadership, creativity, civic participation, and personal growth.

A literacy program as part of a larger initiative

Adult literacy may also be one part of a broader initiative related to education, health, economic security, workforce development, community participation, or other priorities.

Examples include:

• Violence prevention and community safety
• Substance use prevention, treatment, or recovery support
• Community health
• Civic engagement and voter education
• Economic and community development
• Workforce development and career training
• Education initiatives
• Early childhood and family learning initiatives
• Initiatives designed to expand economic opportunity and reduce barriers associated with poverty

Literacy education should complement these efforts rather than being treated as an explanation for complex problems such as poverty, unemployment, health disparities, or community violence. Those issues are also shaped by policies, institutions, economic conditions, discrimination, access to services, and other factors.

How do you plan an adult literacy program?

Adult literacy programs are sometimes created quickly in response to a new funding opportunity or an identified service gap. Even when timelines are short, programs benefit from involving learners and community members in planning and from continuing to adapt after services begin.

The following steps describe an ideal planning process. They can also be used to review and improve a program that is already operating.

Step 1: Assemble a planning team

A planning team should reflect the community and include people with different kinds of expertise. Most importantly, adults who currently use or may use literacy services should have meaningful roles in planning rather than being consulted only after the program has been designed.

Potential participants include:

• Current and former adult learners. Their experience can help the group understand what makes education accessible, respectful, useful, and relevant.
• Local government and public agencies. Planning, economic development, workforce, human services, libraries, and other agencies may have useful information or resources.
• Libraries. Libraries often provide education, technology, information, meeting space, and connections with residents from many parts of the community.
• Community-based and human service organizations. Organizations working in housing, employment, disability services, immigrant and refugee support, health, family services, and other areas may understand barriers affecting potential participants.
• Schools and adult education providers. Schools, adult education programs, community colleges, family learning programs, and other educators can help identify existing resources and gaps.
• Health providers and community health organizations. They may identify opportunities to strengthen health literacy, digital access, language access, and connections between education and health services.
• Employers and workforce organizations. They may provide information about local employment opportunities, workplace skills, schedules, training, and career pathways.
• Labor unions and worker organizations. These groups may contribute knowledge about workers' goals, workplace education, and employment conditions.
• Community institutions and organizations. Community centers, cultural organizations, neighborhood groups, recreation programs, service organizations, veterans' organizations, and others may bring important community relationships.
• Faith and spiritual communities. When relevant, these organizations may provide trusted relationships, meeting space, volunteers, information, or community connections.
• Other trusted community members. Resident leaders, peer educators, community health workers, local business owners, advocates, and others may understand strengths, communication networks, and barriers that formal organizations overlook.

Step 2: Assess community priorities, opportunities, and barriers

Once a planning team is assembled, examine what educational opportunities already exist, what people want, which communities may be underserved, and what barriers affect participation.

Useful information sources may include:

• Census, workforce, education, and other community data. These can provide information about education, employment, language use, income, transportation, internet access, and other conditions relevant to planning.
• Schools and education systems. Graduation, adult education, multilingual education, special education, and continuing education data may help identify patterns and resources.
• Community organizations and service providers. These organizations may identify recurring barriers involving forms, digital systems, employment requirements, language access, transportation, or other areas, but they should avoid making assumptions about individuals' literacy based only on observation.
• Focus groups, listening sessions, surveys, and interviews. Include people who currently use adult education as well as people who might be interested but have not participated.
• Resident-led groups and trusted community networks. Community centers, cultural organizations, neighborhood groups, worker organizations, businesses, libraries, faith communities, and informal networks may help identify priorities and barriers.

For example, a community assessment might show both a large multilingual population and limited access to English-language education. Rather than assuming what residents need, planners could meet with community organizations and prospective learners to ask what kinds of classes, schedules, locations, and learning goals would be useful. Enrollment interest, community feedback, and available data could then guide the size and design of the program.

Be careful about treating "need" and "demand" as fixed quantities. Low enrollment does not necessarily mean that few people would benefit from or want a program. Cost, childcare, transportation, scheduling, language, disability access, previous experiences with school, privacy concerns, technology, or lack of awareness may all affect whether people enroll.

Instead of asking only how many people are currently willing to attend, ask what conditions would make participation realistic and worthwhile.

Step 3: Design a program with learners and the community

Several questions shape program design: What learning opportunities will be offered? Who will participate? Who will operate the program? What educational approach will be used? What staff and resources will be needed? How will the program be funded and evaluated?

What services will the program provide, and for whom?

The program might provide adult basic education, high school equivalency preparation, English-language learning, numeracy, digital literacy, family learning, workplace education, or a combination of services.

Decide who the program is intended to serve based on community priorities, program purpose, available resources, and legitimate funding requirements. Avoid unnecessary eligibility rules that exclude people who could benefit.

Funding may limit participation according to factors such as age, residence, income, employment status, or other criteria. Make requirements transparent and, when possible, connect people who do not qualify with other appropriate resources.

What organization or partnership will operate the program?

Adult literacy programs may be operated by:

• Federal, state, or local public agencies through funding, partnerships, or contracted providers
• State education, workforce, labor, or human service agencies and their local partners
• Local governments
• National, state, or regional literacy and education organizations
• Community-based organizations
• Employers and workforce partnerships
• Community colleges, universities, and other higher education institutions
• School systems and education partnerships
• Libraries, labor organizations, Tribal organizations, faith communities, and other community institutions

The strongest arrangement is one that can provide quality instruction, accessibility, reliable administration, community trust, and meaningful learner participation.

What are the program's educational assumptions?

Adult education should recognize learners as adults who bring knowledge, experience, skills, culture, language, responsibilities, and goals of their own.

Programs that treat learners mainly as people with deficits to correct may recreate negative educational experiences and reduce participants' sense of ownership. Learner-centered programs instead build on existing strengths and give participants meaningful roles in identifying goals, choosing learning strategies, and evaluating progress.

That does not mean instruction should be unstructured or that educators should avoid providing expertise. Effective programs combine strong teaching with respect for adult learners' agency and experience.

For example, learners in an adult education program might identify transportation as a major community barrier. A class could use that real issue to practice reading public information, analyzing schedules and budgets, writing letters or proposals, speaking at meetings, conducting research, and evaluating possible solutions.

Learning connected with real community concerns can strengthen academic skills while also giving participants opportunities to apply those skills to goals they identify as meaningful.

Adult education can support people in gaining greater access to information, choices, opportunities, and community participation. The goal is not for programs to "empower" people as though power is something staff give them, but to reduce barriers and create opportunities for learners to build and use their own knowledge, skills, relationships, and influence.

What will take place in the learning environment?

There is no single curriculum or teaching method that works for every learner. Strong programs generally:

• Use teaching approaches that are accessible and responsive to participants rather than simply reproducing educational experiences that did not work well for them
• Recognize and build on adults' existing knowledge, languages, skills, and life experiences
• Connect learning with practical and personally meaningful situations
• Develop critical, analytical, creative, and information-evaluation skills alongside academic content
• Help learners identify short- and long-term goals and develop strategies for pursuing them
• Create opportunities for participants to learn with and from one another when they want to
• Strengthen reasoning and problem-solving skills
• Provide appropriate challenge and support so learners can work through new ideas while knowing that help is available
• Use accessible technology and build digital skills when relevant
• Provide appropriate accommodations for learners with disabilities

Will the program use paid staff, volunteers, peer educators, or a combination?

Staffing decisions should be based on program goals, learner needs, required expertise, resources, and the responsibilities of each role.

Paid instructors can provide continuity, preparation time, coordination, assessment, and specialized expertise. Volunteers and peer educators can also contribute important skills, relationships, flexibility, and community knowledge.

Programs do not need to treat these models as competitors. Many effective programs use combinations of professional educators, trained volunteers, peer educators, and community partners.

Whatever staffing model is used, instructors and tutors should understand adult learning and should not simply transfer assumptions or methods designed for children into adult education.

Strong paid-staff programs often include:

• Sufficient paid time for teaching, preparation, learner support, documentation, coordination, and professional development
• A shared understanding of program values, goals, and educational approaches
• Hiring practices that consider relevant skills, adult education experience, cultural humility, accessibility, and ability to work collaboratively
• Regular staff communication, reflection, supervision, and professional development
• Meaningful opportunities for staff as well as learners to participate in decisions that affect their work

Volunteer programs can also provide valuable education and support, particularly when volunteers receive strong training and supervision and their roles are well matched to their skills.

Volunteer programs may offer one-on-one tutoring, small groups, digital skills support, conversation practice, homework assistance, career support, or specialized help. Programs should provide several learning options when possible rather than assuming one-on-one tutoring is best for everyone.

Privacy can matter to some learners, particularly because stigma around adult literacy continues to exist. Programs should protect confidentiality while also working to reduce the shame or stigma associated with seeking educational support.

To work well, a volunteer program should include:

• Role-appropriate screening. Interview potential volunteers and evaluate whether they understand the responsibilities, values, boundaries, and expectations of the role. Background checks or other safeguarding procedures may be appropriate when required by the setting or population served. Screening should be connected to actual safety and role requirements rather than using broad assumptions about a person's history, disability, recovery status, or other personal characteristics.
• Strong initial training. Volunteers should receive enough preparation to understand adult learning, the program's approach, accessibility, confidentiality, boundaries, instructional strategies, and the resources available when they need assistance.
• Ongoing learning. Provide continuing education based on volunteers' needs, learner feedback, and changes in curriculum, technology, or community circumstances.
• Regular supervision and support. Volunteers should have someone available to help them reflect on their work, address challenges, and strengthen their practice.
• Clear expectations. Explain expected schedules, communication, length of commitment, confidentiality, cancellations, and other responsibilities before a volunteer begins.
• Recognition and appreciation. Recognize volunteers' contributions in ways that are meaningful to them and consistent with the program's culture.
• A reliable administrative structure. Someone needs responsibility for recruitment, training, matching, scheduling, supervision, records, communication, and problem solving.

Programs should also consider whether work currently assigned to volunteers should instead be paid. Reliable, ongoing responsibilities that require substantial expertise or time may warrant compensated positions when resources allow.

How will you evaluate the program?

Program design should include a plan for evaluating both educational outcomes and participants' experiences.

Areas to consider include:

• Participation and access: Who is enrolling? Who may still be missing? Are waiting lists, eligibility rules, transportation, childcare, scheduling, language, disability access, cost, or technology limiting participation?
• Continuation and completion: Are learners able to remain in the program long enough to work toward their goals? If people leave, what reasons do they give?
• Learner experience: Do participants find instruction respectful, useful, accessible, relevant, and supportive?
• Staff and volunteer experience: Do staff and volunteers have the training, time, resources, supervision, and working conditions needed to do their jobs well?
• Attendance: What attendance patterns exist, and what do learners say about barriers such as work schedules, transportation, health, childcare, or other responsibilities?
• Participant-defined goals: Are learners making progress toward goals they have identified as important?
• Educational progress: Depending on the program, this might include growth in reading, writing, numeracy, English-language skills, digital literacy, completion of credentials, or transition to further education and training.
• Other outcomes identified by participants: Learners may value greater confidence using technology, increased ability to navigate services, employment progress, participation in children's education, civic engagement, stronger communication, or other changes connected with their goals.
• Staff development: Are staff and volunteers continuing to strengthen their knowledge and skills?
• Continuous improvement: Does the program respond to learner feedback, new evidence, changing technology, and changing community circumstances?
• Resources and infrastructure: Are funding, space, technology, accessibility, staffing, and partnerships adequate?

Evaluation should not assume that learners who leave have failed or that low attendance automatically means people do not value the program. Ask participants directly about the conditions affecting their participation.

Learners should also help determine which outcomes matter. Academic progress is important, but not every meaningful result will appear on a standardized assessment.

How will the program be funded?

Adult literacy programs may use several funding sources. Each comes with different requirements, restrictions, reporting expectations, and levels of flexibility.

• Public funding. Federal, state, county, municipal, workforce, education, or other public funds may support adult education. Eligibility, application, reporting, and program requirements vary, so organizations should understand them before accepting funds.
• Foundation funding. Private, family, corporate, community, and education foundations may support adult education, workforce, language access, digital inclusion, civic participation, or related goals. Grant size, duration, eligibility, and restrictions vary widely.
• Community and philanthropic funds. Community foundations, local charitable funds, giving circles, and other philanthropic organizations may support programs that address local priorities.
• Fundraising and individual giving. Programs may seek donations from individuals, businesses, alumni, community members, or other supporters and may hold events or campaigns when appropriate.
• Membership or recurring giving. Some organizations develop ongoing relationships with supporters who contribute regularly.
• Endowment and planned giving. Mature organizations may build long-term financial stability through endowments, bequests, or other planned gifts.
• Earned income. Some organizations generate revenue through training, consulting, curriculum development, contracts, or other mission-aligned services, subject to applicable financial and legal requirements.
• Employer and institutional partnerships. Employers, colleges, health systems, libraries, unions, and other institutions may provide funding, paid release time, space, technology, instructors, or other resources.
• In-kind support. Donated space, equipment, internet access, transportation, childcare, professional services, or materials can reduce program costs.

Funding diversity can make a program more resilient. Heavy dependence on one source may create problems if priorities or budgets change. At the same time, organizations should not pursue funding that requires them to abandon important commitments to learners, accessibility, quality, or community participation.

Once you've developed a plan, involved learners and community partners, identified resources, and secured enough initial support to begin responsibly, you're ready to move into the next phase: establishing the program in the community.

In Summary

Adult literacy includes reading, writing, numeracy, English-language learning, digital literacy, and other skills people use to pursue goals in work, education, family life, health, civic participation, and everyday life.

Strong adult literacy programs begin by listening to learners and communities. They identify existing strengths and resources, examine barriers to participation, and create learning opportunities that reflect participants' goals rather than assumptions about what adults "lack."

Program planning should consider who will participate, what learning opportunities will be offered, which organization or partnership will operate the program, how instruction will be designed, how staff and volunteers will be supported, how accessibility will be addressed, how success will be evaluated, and how the work will be sustained financially.

Most importantly, adult learners should be partners in the process. They bring languages, knowledge, work experience, relationships, culture, responsibilities, and goals of their own. Adult education is strongest when programs build on those strengths while expanding people's opportunities to learn, participate, and pursue what matters to them.