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This paper offers a comprehensive analysis of the information from the Survey of Adult Skills (PIAAC) regarding adults with low literacy and numeracy proficiency. The paper first describes the demographic and socio-economic characteristics of these populations. Although, they are more likely than the rest of the population to exhibit certain characteristics, such as lower levels of educational attainment, lower rates of unemployment or more disadvantaged backgrounds, adults with low literacy are found in among all socio-demographic groups and in all walks of life. The paper then explores the frequency with which adults with low proficiency engage in the reading, writing and numeracy practices and the relationship between these practices and a range of social and economic outcomes. For most outcomes, levels of engagement in literacy practices appear to be as strong predictors as proficiency, indicating the importance of encouraging more intense use of these skills both in and outside of work.

The unique data from the Survey of Adult Skills regarding performance on the simple reading tasks (the so called 'reading components') is also analysed. Adults with low proficiency are found to be able to easily recognise commonly used words in printed form but often have difficulty with processing the logic of sentences and reading extended passages for basic meaning. Adults with low proficiency are considerably less likely than their more proficient peers to participate in formal or non-formal adult education or training programmes, which is mostly due to the socio-demographic and employment characteristics of this population. However, the lower participation rates among the low proficient adults does not appear to be a consequence of their lack of motivation as much as of the presence of various obstacles to participation, such as lack of time and the cost of training.

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Governments and other stakeholders have become increasingly interested in assessing the skills of their adult populations in order to examine how well prepared they are to meet the challenges of the modern knowledge-based society. The current paper provides a conceptual framework for the assessment of reading component skills in the OECD’s Programme for the International Assessment of Adult Competencies (PIAAC). The assessment of component skills is intended to provide a greater level of information about the skills of individuals with low levels of literacy proficiency than has been available from previous international assessments. The ‘component skills’ identified for the assessment are vocabulary knowledge, sentence processing and passage comprehension.

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The 2003 NAAL [National Assessment of Adult Literacy] assessed the English literacy skills of a nationally representative sample of 18,500 U.S. adults (age 16 and older) residing in private households. NAAL is the first national assessment of adult literacy since the 1992 National Adult Literacy Survey (NALS). The NAAL project comprised four assessment components: the core literacy tasks, the main literacy assessment, the Fluency Addition to NAAL (FAN), and the Adult Literacy Supplemental Assessment (ALSA). Results from the main literacy assessment are reported as averages and as the percentage of adults in each of four literacy levels: Below Basic, Basic, Intermediate, and Proficient. This report focuses on results from the FAN and the ALSA. The Adult Literacy Supplemental Assessment (ALSA) was administered to adults unable to successfully answer the core literacy tasks. Instead of completing the main literacy assessment, these adults completed the ALSA, which gathered information about their letter-reading, word-reading, word-identification, and basic comprehension skills. The Fluency Addition to NAAL (FAN) measures the basic reading skills of America's adults. The FAN was administered to all adults who participated in the NAAL project following the completion of the main literacy assessment or the supplemental assessment.

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Governments and other stakeholders are increasingly interested in assessing the skills of their adult populations in order to monitor how well prepared they are for the challenges of the modern knowledge-based society. The current paper provides an overview of the conceptual framework guiding the development of the assessment of literacy in the OECD’s Programme for the International Assessment of Adult Competencies (PIAAC). It builds upon earlier conceptions of literacy from the International Adult Literacy Survey (IALS) in the 1990s and the Adult Literacy and Life Skills Survey (ALL) in 2003 and 2006 to facilitate an appropriate assessment of the broad range of literacy skills required for the 21st century. The framework broadens the definition of literacy to make it relevant to the information age, in particular, by including the skills of reading in digital environments.

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