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Rising Adult Illiteracy in America: Trends, Causes, and Solutions Explained
Guest Contributor
New data from the National Center for Education Statistics (NCES) paints a sobering picture of adult literacy in the United States. According to the agency’s latest Survey of Adult Skills, the percentage of U.S. adults with literacy skills at the lowest measured levels has risen significantly—from 19% in 2017 to 28% in 2023. This trend highlights a growing literacy gap and raises questions about the underlying causes and potential consequences of declining adult reading proficiency.
This increase is not a minor fluctuation. NCES Commissioner Peggy Carr described the shift as “substantial” during a news conference announcing the findings. She emphasized that such a change is unusual for international assessments, especially for literacy, which she characterized as a “fairly stable construct.” The survey, which evaluates literacy, numeracy, and problem-solving among working-age adults, is conducted across more than two dozen countries, primarily members of the Organization for Economic Cooperation and Development (OECD).
One important clarification made by Carr is that low scores in the survey do not equate to full illiteracy. Instead, the lowest proficiency levels reflect what experts refer to as “functional illiteracy”—the inability to read or write well enough to manage basic tasks in everyday life and work. This includes understanding simple written instructions, completing forms, or reading labels and schedules. The rise in functional illiteracy suggests a widening divide between those equipped to navigate modern demands and those who are not.
Despite the troubling increase in low-literacy adults, the United States is not an outlier globally. Many other countries included in the survey also experienced a decline in skills over the same period. In that context, the U.S. maintained its relative position. However, the internal shift within the country—where nearly three in ten adults now fall into the lowest literacy bracket—remains a cause for concern.
When asked about potential reasons behind the decline, Carr acknowledged the complexity of the issue. “It is difficult to say,” she remarked, indicating that no single factor has been definitively identified. This uncertainty underscores the multifaceted nature of literacy development, which can be influenced by education systems, socioeconomic conditions, access to resources, and even technological changes that alter how people consume and interact with written language.
The Survey of Adult Skills offers a comprehensive look at how adults function in real-world scenarios that require reading, math, and problem-solving. It is part of the Program for the International Assessment of Adult Competencies (PIAAC), an initiative designed to inform policy and educational strategies. By evaluating a broad range of skills, the survey aims to capture the practical abilities that adults need to participate fully in society and the workforce.
One aspect I found striking is the scale of the change over just six years. Literacy is often thought of as a foundational skill acquired in early life and retained throughout adulthood. Yet, this data suggests that adult literacy is more dynamic—and perhaps more vulnerable—than commonly assumed. Whether due to changing job requirements, evolving communication habits, or gaps in continuing education, the decline points to a need for renewed focus on adult learning opportunities.
Improving adult literacy is not only a matter of personal development but also one of national importance. Low literacy levels can limit employment prospects, reduce civic engagement, and increase reliance on social services. As the U.S. economy becomes more knowledge-based, the ability to read and process information remains essential for upward mobility and inclusion.
Addressing this issue may require a combination of targeted adult education programs, workplace training, and community-based initiatives. It also calls for better understanding of who is most affected and why. While the survey data provides a high-level overview, more granular research could help identify specific demographic or regional trends that warrant attention.
The growing adult literacy gap in the U.S. is a complex challenge with no easy answers. But acknowledging the trend is a crucial first step. As policymakers, educators, and community leaders consider how to respond, the findings from the NCES survey serve as a reminder that literacy is not a static achievement but a skill that must be supported and sustained throughout life.