IFLA Working Group on Literacy Final Report

PB-DOC. 99-84

NOTE: The complete report text is reproduced below. The appendices and supporting survey documents are not included, but are available from John Y. Cole, chair, IFLA Section on Reading, % The Center for the Book, Library of Congress, Washington, D.C. 20540-4920, e-mail: jcole@loc.gov.

Members of the IFLA Literacy Working Group

Background Information

At the 1994 Open Forum in Havana, Sissel Nilsen and Francis Kaiser presented a proposal for the establishment by IFLA of a core program for literacy and reading promotion based on a previous proposal made by the Standing Committee on Libraries Serving Disadvantaged Persons and supported by the Coordinating Board of Division 3 during January/April 1994. This proposal noted that although libraries have a responsibility to participate in the campaign against illiteracy, there has not been a forum where libraries can share their experiences and learn how to get involved in literacy programs. The primary aim of the proposed IFLA Promotion of Literacy and Reading Through Libraries Core Program is to "promote the advancement of literacy in the world and promote reading skills through libraries, including support for literacy among young people and people with disabilities, thus ensuring everyone's right to know and helping to secure democracy throughout the world."

Later in 1994, the Professional Board recommended to the Executive Board (PB Doc 94-117) that this sixth core group be established where "IFLA should expand and develop its strategies to support literacy and reading promotion and consider what practical ways support for literacy and reading can be developed throughout the world." A major focus of this core program would be the promotion and implementation of the UNESCO "Guidelines" and the UNESCO Public Library Manifesto. Some of the activities proposed for the core program included: the development of guidelines for reading promotion, publications on literacy promotion, pilot projects, organizing seminars and conferences, encouraging projects by libraries in less developed areas to combat illiteracy, training of librarians, easy to read books and audio-visual materials for use in public and school libraries to support literacy, assist those with reading handicaps, and volunteer tutoring programs for adults and guidelines for library literacy programs.

At a joint meeting of the Executive Committee and Professional Board in April 1995, the recommendation for a new core program was rejected based on organizational and financial grounds. It was decided that a working group of the Professional Board be established to study the feasibility of a major initiative by IFLA in support of literacy programs in libraries.

IFLA Literacy Working Group

The Working Group was further asked to:

• Review available data on the current situation with regard to literacy levels in developing and developed countries;
• Examine IFLA's existing commitments to support for literacy;
• Compile and evaluate reports of projects and activities undertaken by various IFLA groups;
• Survey the activities of other organizations active in the support of literacy;
• Investigate the possible role of IFLA in support of literacy and reading through libraries, and to propose specific actions;
• Formulate a draft policy statement for IFLA;
• Specify administrative arrangements and resources needed to support the proposed action by IFLA;
• Identify relevant sources of funding currently available to support literacy;
• Submit regular progress reports to the Professional Board and develop a final report.

During March 1997, several members of the Literacy Working Group met at The Hague for a series of meetings. Between the first meeting and this meeting, there were a number of changes in the membership of the Working Group and there was a need to select a new chair and secretary. Irene Sever volunteered to be Chair and Martin Kesselman volunteered to be Secretary. Several IFLA documents related to literacy, the reports of various members and published documents on regional literacy activities and other documents were numbered and passed out to members for review. These documents included reports on reading and literacy in Russia (Appendix 1, Valeria Stelmakh), in the United States and Canada (Appendix 2, Martin Kesselman), Asia and Oceania (Appendix 3, Maria Lao Sunthara), Africa (Appendix 4, Kay Raseroka), and the Caribbean (Appendix 5, Blanca Hodge).

At the Hague meetings, several discussions took place on the role IFLA might play with literacy, the need for a sixth core program on literacy, and the work of the Working Group. One major way we agreed IFLA could have an impact is with the promotion of literacy programs in libraries, in particular through cooperation with other NGOs and foundations involved with literacy programs worldwide. We realized as a Working Group that we must first define a role for libraries and library associations with literacy and then we could come up with some potential roles for IFLA.

Literacy Definitions

An international adult literacy survey undertaken between 1994 and 1996 compared literacy levels of adults in 12 developed countries. This study chose to view the concept of literacy/illiteracy as a continuum of how adults use written information to function in society. This study defined literacy according to three domains: prose literacy as the ability to understand and use textual information; document literacy as the ability to locate and use information in various formats (e.g. job applications, maps, tables, etc.); and quantitative literacy as the ability to apply arithmetic operations. Within each domain, five levels of literacy were described (4). The UNESCO definition of literacy is roughly equivalent to the lowest level, level 1 of prose literacy described by this study (the ability to read short pieces of text to find a single piece of information). Illiteracy at this most basic level is at epidemic proportions worldwide, especially within developing countries. Libraries have the opportunity, however, to provide support for literacy efforts at all levels. A report by Martin Kesselman on information literacy is appended (Appendix 6).

General Issues for Libraries/Library Associations

At the Hague meeting we affirmed the need for libraries to provide access to information and materials that includes variety and is of high interest. Information needs to be provided equally to different sectors of the population: both adults and children, males and females, urban and rural populations, ethnic minorities, and services to special populations such as the disadvantaged and those with learning disabilities, etc. In order for libraries to provide resources towards literacy there are needs for training and infrastructure such as staffing, equipment, telecommunications/access to the Internet, and space.

Libraries need to be aware of the cultural and political realities in their country in determining ways to develop appropriate literacy programs and providing motivational support to learners. How libraries help learners to become autonomous/self-sufficient depends greatly on the socioeconomic context. In some societies it may be just the ability to read and write, in other societies there may be needs for other literacies (e.g. information/computer literacy). Libraries need not only be in the business of providing information but of teaching information searching skills as well, especially in our rapid evolution into a global information society.

Literacy initiatives can exist elsewhere-schools, family, religious institutions and libraries need to know how best to support these efforts. Cooperation with local entities such as the government and media (e.g. the use of newspapers and other locally published or locally produced materials) are ways to promote literacy. Libraries need to have a role in the educational curriculum and have access to appropriate reading materials. Storytelling is another way of promoting literacy to young children. Libraries must be recognized for their role in lifelong learning and continuing the process of learning for those that go through literacy programs.

There are literacy activities that individual libraries perform best, those that can best be done by library schools, those that can be done by library associations, and those that can be done by IFLA. It was initially felt that IFLA would be most effective in working through library associations and that IFLA could encourage the development and promote the strengthening of associations, which are weak. However it is important to note that there are many grassroots programs out there that are very effective. Even in these situations, library associations can help, serving as mediators between the grassroots level and decision-makers. Library associations and IFLA can also help with intellectual property issues, working with library schools in the training of librarians for literacy work, as well as other ways of supporting literacy efforts at the local level.

Literacy Issues Related to Libraries in Developing Countries

• Most of the literacy activities in which libraries are engaged are those geared at children enrolled in the formal educational system. Formulation and implementation of library activities for youngsters and adults has been thoroughly neglected.
• There is an almost total lack of reading materials for adults who are in the process of becoming literate. It is difficult to find published materials such as simplified books in attractive formats and wider large fonts, practical booklets and fiction in editions for beginners.
• The training of the library staff in charge of the different activities of literacy programs has been informal, sporadic and limited.
• The public library has played an insignificant role in adult literacy and training programs undertaken by different private or public organizations. Normally the public library is not taken into account as a fundamental piece in national and regional literacy plans.
• Due to the precarious development of the school library, the public library has to take on a huge consult demand of school children. Due to this situation adults usually do not go to libraries, do not consider them attractive or simply do not find in them something specifically designed for them.
• The public library still lacks an adequate knowledge of the communities it is supposed to work with. This leads to the neglect for groups such as populations in literacy and post-literacy processes, adult beginners and youngsters not enrolled in formal education institutions.
• In the syllabuses of library schools, there is a small emphasis on the role the public library must play in eradicating illiteracy.

Building on the Work of IFLA

We also decided to endorse the following documents as reasons why libraries, library associations, and IFLA should be involved in literacy programs. Documents endorsed include:

• The UNESCO Public Library Manifesto, which lists among public library missions that they should facilitate the development of information and computer literacy skills and support and participate in literacy activities and programs for all age groups, and initiating such activities if necessary.
• The objectives of ALP, which are to promote the progressive improvement of library and information services in developing countries.
• The objectives of library services to multicultural populations (p. 36 of 92-97 MTP).
• IFLA's long-term policy, which addresses literacy under the role of libraries and general policy issues (p. 5 of 92-97 MTP).
• The guidelines for library services for young adults pamphlet produced by the IFLA Section of Children's Libraries, which list as goals for services for young adults to encourage life-long learning through library and reading promotion and to promote skills for information literacy.

Other International Literacy Initiatives

In 1994 UNESCO and the University of Pennsylvania's Graduate School of Education established an International Literacy Institute in the United States. The Institute has as its mission: "to provide leadership in research, development, and training in the broad field of international literacy and development, with an emphasis on developing countries." (5) The International Literacy Institute supports regional and international literacy conferences, networks and regional projects through linkages with universities and government agencies, and a summer literacy-training program for training specialists in developing countries. In 1999 the Institute published an International Literacy Explorer on CD-ROM and provides an overview of literacy issues and practices worldwide, literacy concepts and statistics, and highlights several innovative projects. A web version is available at :
http://www.literacyonline.org/explorer. The International Literacy Institute publishes a semiannual newsletter, Literacy Innovations, and maintains a Web site.

The International Literacy Support Service was established in 1992 by the International Council of Adult Education as a global alliance of regional networks and worldwide adult education associations. Activities include fostering linkages and collaboration for literacy promotion with national, bilateral and multilateral organizations, and other voluntary and private sector organizations. The International Literacy Support Service is involved in cataloging and disseminating information on development and literacy activities, to strengthen literacy networks, and to provide literacy education for marginalized groups such as refugees, migrants and indigenous peoples (6).

World Education's Literacy Division works with grassroots community initiatives, NGOs and government agencies to employ innovative training approaches for literacy. The division fosters team-based approaches and the development of peer support networks and study circles. Countries in which the organization has been active include the United States, Nepal, Philippines, Thailand, and India (7).

The Laubach Literacy International Program Division is another non-profit organization dedicated to helping adults with reading, writing, and problem-solving skills. Laubach Literacy International works via a network of education and development groups in more than thirty countries (8).

The International Reading Association was established in 1956 and is a non-profit professional organization that encourages the study of reading and promotes research and better teacher education. The association has more than 90,000 members including teachers, administrators, parents, librarians, and psychologists. Through its sections, the International Reading Association sponsors conferences throughout the world such as the European Conference on Reading (9).

An example of a more regional effort is the Asia-Pacific Literacy Division developed jointly by UNESCO working with many government and non-government literacy agencies. The database includes a wealth of statistical information on literacy rates, governmental policies and initiatives in each country, projects, training programs, and access to more than 500 literacy learning materials (10).

Literacy Survey Background

During the period between the Hague meetings and the 1997 IFLA conference in Copenhagen, an e-mail list for the Working Group was developed. Irene Sever and Francoise Danset, with input from Working Group members, prepared a draft survey for discussion at Copenhagen, which could then be translated by members of the Working Group into appropriate languages.

Although several literacy surveys have taken place throughout the world, in particular those by UNESCO, there has never before been a systematic assessment of the role libraries and library associations with literacy.

Literacy Survey Methodology

For distribution of the questionnaires, we decided to use the IFLA library association/other organizations list in the membership directory which cold also be supplemented by appropriate IFLA institutional members and ministries of education. We estimated the cost of keying in results and analysis for the questionnaires at $6,000 for the use of statistical packages, keying in the results and analysis. The Professional Board approved an additional 6000 NLG in March 1998 towards completion of the project.

As of March 1998, we found that we had not received a very large pool of returned surveys. It appeared in retrospect that working through the IFLA library association organizational members was not very effective. Posting the survey on IFLANET and announcements on IFLA-L resulted in a flurry of some additional survey responses from libraries directly. Because of this setback, the deadline for return of the questionnaires was extended, which did not leave time to process any of the survey results before the conference in Amsterdam. There was little the Working Group could do (except for making requests to additional libraries in various countries to fill out the survey) until we had a final tally of the number of questionnaires completed at the Amsterdam conference, which happily resulted in the receipt of more questionnaires than expected.

At the 1998 meeting of the Literacy Working Group in Amsterdam we reviewed where we currently were and the development of a work plan to complete our project during the next several months. At our meeting, reports were made by various Working Group members as to the completed questionnaires received. Unfortunately the surveys of countries included was uneven. Few questionnaires had been received from Africa, Asia, and South America. There was some discussion on whether we should attempt to get additional questionnaires from these areas but decided we needed to move forward. Instead, the current goal of the survey became to have a worldwide snapshot of the role libraries and library associations play with literacy programs rather than a country by country analysis.

Soon after the 1998 IFLA conference, members of the Working Group sent the questionnaires they had received to the Secretary in the United States. In October 1998, a progress report/financial report was made to the Professional Board that provided information on the steps the Working Group had taken up to this point and plans for completing the work during the coming year using the funds earmarked by IFLA.

A market research consultant was contracted to develop a program for coding, input and analysis using various statistical packages and to analyze the results. This report includes the analysis of results from the consultant and charts and graphs related to the analysis are appended. During the 1999 annual conference, the Literacy Working Group is holding its final meeting and an open review session of research and findings is being held for members of the Professional Board and other interested IFLA participants. A poster session of review findings and conclusions will also take place at the conference. It is hoped that the final report and survey findings will be made available on IFLANET. It is expected that the Working Group will be disbanded at the conclusion of the 1999 Bangkok conference.

Literacy Survey Results

Recommendations for IFLA

• IFLA must advocate the major role libraries play in the promotion of literacy. Libraries have a major role to play in the worldwide reduction of illiteracy. The development of a Manifesto for Libraries and Literacy involving many IFLA Standing Committees and other groups will go a long way in developing a cohesive agenda for IFLA to follow in the coming years. One thing to be learned from the survey is that only some library associations appear to take a proactive role. IFLA needs to have a broad-based program that reaches out to both library associations as well as individual libraries and for training purposes, to library schools. Outside of libraries, IFLA needs to take steps to work with other organizations involved in literacy pursuits be they private founds, IGOs, NGOs, publishers, etc. IFLA also needs to develop a policy for dealing with the media such as for public relations purposes, to promote the awareness of library services, and to make literacy information and texts available via the media. IFLA should have a major role in marketing and public awareness and raise the profile of library activities related to literacy.
• IFLA needs to continue to develop guidelines for libraries in promoting literacy activities. Building on the report developed by Barbro Thomas in 1993, the Standing Committee on Reading during our meeting in Amsterdam expressed interest in the continual development of guidelines. However, as noted above, literacy is more than just a matter related to reading and other IFLA groups such as the Standing Committee on Public Libraries need to become involved. These guidelines can also help in the development of indicators and in the evaluation and measurement of library literacy programs. IFLA can further provide materials for performing a literacy needs assessment or audit, building in flexibility at the local level.
• IFLA should serve as a clearinghouse for literacy programs in libraries. The survey has identified a multitude of activities libraries do to promote literacy. A clearinghouse program might begin with a literacy fair for the upcoming 2000 Conference in Jerusalem In 1998, the American Library Association, as part of their theme of Global Research, Local Touch, organized a very successful International Literacy Fair and included displays of materials by close to fifty libraries and literacy organizations from around the world. Another option might be sponsoring poster sessions according to a special focus such as literacy. The Standing Committee on Reading has also expressed interest in developing a clearinghouse on literacy programs worldwide.
• IFLA should provide leadership in the development and provision of continuing education and training manuals for libraries and, where needed, translations of these into various languages. IFLA needs to work with library schools in the training of new librarians and in providing continuing education efforts regarding literacy work in libraries. Literacy Link is an example of a program in the United States for providing resources for instructors and learners over the Internet. For instructors, Literacy Link includes modules for staff development and peer support. IFLA (or an appropriate group(s) within IFLA) might develop a literacy survival kit for libraries, distributed on CD-ROM and/or slide-tape. In addition, IFLA should strongly consider the development of a model literacy training program in one or two countries, possibly in conjunction with ALP.
• IFLA should serve as a major communication channel for literacy programs in libraries. IFLA should create a listserv for continuing discussions by libraries on literacy topics. Although several listservs exist on literacy, there are none that are devoted to libraries and literacy. Additionally, IFLA might publish a literacy newsletter (print and electronic), highlighting various successful library-based literacy programs, finding opportunities for literacy programs, worldwide organizations and foundations involved in literacy, etc.
• IFLA should have a major role in focusing research on libraries and literacy. Through an IFLA listserv, literacy newsletter, poster sessions, programs, and other means, IFLA can identify and make available research results on literacy programs and libraries. IFLA needs to also promote research into libraries and literacy. It has been noted that before this survey, very little information existed on libraries and literacy. IFLA needs to collect data in a systematic way on the role of libraries in literacy in helping to guide IFLA's continued programs to support libraries in this area.

In order for IFLA to begin carrying out these recommendations, we recommend that IFLA request funding by UNESCO for a full-time Literacy Officer for Libraries for a trial period of two or three years. This officer would work closely with a number of IFLA Standing Committees (e.g. Reading, Public Libraries, School Libraries, Education and Training, Regional SCs), Round Tables, and Core Programs (in particular ALP). The officer would also be very involved in developing liaisons to library associations and the many international/regional literacy organizations that exist and in developing grants and project proposals on behalf of IFLA. It is also urged that this officer do a more extensive survey of library-based literacy programs focused in particular on developing countries. After a period of two years, this position should be evaluated and at that time the need for a permanent Literacy Officer (and) the establishment of a new core program or the designation of literacy activities within another core program should be re-examined.

This report should not be viewed as a closed book but rather as an opening. Literacy is an issue that touches all parts of our lives and is of concern to all libraries worldwide. Reading and its promotion as well as information seeking skills are and will continue to be critical skills for lifelong learning. A major thrust for literacy programs by IFLA and by libraries, with assistance and leadership from IFLA, can be a major catalyst for global change and have a positive impact on many levels-education, health, and social and economic vitality.

Notes

1. Thomas, Barbro. Guidelines for Public Libraries Promoting Literacy. Paris: UNESCO, March 1993.
2. Thomas, p. 2.
3. Bhola, H.L. "Literacy," in International Encyclopedia of Information and Library Science. London: Routledge, 1997, pp. 277-280.
4. U.S. Department of Education. National Center for the Education Statistics. Adult Literacy: An International Perspective, Working Paper No. 97-33. Washington, D.C. National Center for Education Statistics, 1997
5. Brochure, International Literacy Institute. International Literacy Institute, University of Pennsylvania, 3910 Chestnut Street, Philadelphia, PA 19104, USA.
6. Brochure, International Literacy Support Service. ASPBAE Secretarat, 42 Tughlakabad Institutional Area, New Delhi 10062, India.
7. Brochure, Library Division World Education. World Education, 44 Farnsworth Street, Boston, MA 02210, USA
8. Laubach International:
9. "Organizational Profile: The International Reading Association," IFLA Section on Reading Newsletter, No. 7. November 1998, p. 7. (International Reading Association, 800 Barksdale Road, P.O. Box 8139, Newark, DE 19714, USA
10. Asia Pacific Database:

Appendices