Literacy policy has often developed independently of other social and employment programs. As a consequence, literacy tends to become an end unto itself, and assessment is directed more toward academic, archival ends than toward policy evaluation. Many justifications given for large-scale literacy programs are not based upon empirical data.…

Although a large number of adults in the United States are assumed to need literacy training, little agreement exists on that number. Adults who attend literacy instruction are assumed to acquire the skills, but little is known about program effectiveness. Another assumption is that adults should define their goals, but this does not ensure that…