Understandings of literacy (Chapter 6)
Education for All Global Monitoring Report
by UNESCO
2006
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At first glance, ‘literacy’ would seem to be a term that everyone understands. But at the same time, literacy as a concept has proved to be both complex and dynamic, continuing to be interpreted and defined in a multiplicity of ways. People’s notions of what it means to be literate or illiterate are influenced by academic research, institutional agendas, national context, cultural values and personal experiences. In the academic community, theories of literacy have evolved from those focused solely on changes in individuals to more complex views encompassing the broader social contexts (the ‘literate environment’ and the ‘literate society’) that encourage and enable literacy activities and practices to occur. As a result of these and other developments, understandings in the international policy community have expanded too: from viewing literacy as a simple process of acquiring basic cognitive skills, to using these skills in ways that contribute to socio-economic development, to developing the capacity for social awareness and critical reflection as a basis for personal and social change. This chapter traces the evolution of these different understandings of being (and becoming) ‘literate’ and shows how variants of these ideas have been integrated into policy discourse. Several important conceptual distinctions emerge, which form the basis for subsequent analyses in the Report.
Defining and conceptualizing literacy
For most of its history in English, the word ‘literate’ meant to be ‘familiar with literature’ or, more generally, ‘well educated, learned’. Only since the late nineteenth century has it also come to refer to the abilities to read and write text, while maintaining its broader meaning of being ‘knowledgeable or educated in a particular field or fields’. Thus, the original meaning of the English word ‘literacy’ is different from its translations in several other languages (see Box 6.1, for French terms).
Since the mid-twentieth century, scholars have devoted considerable attention to defining literacy, and their work has had direct implications for approaches to practice and policy (Fransman, 2005). [1] Academics from such wide-ranging disciplines as psychology, economics, linguistics, sociology, anthropology, philosophy and history have engaged in an ongoing and, at times, highly contested debate over the meaning and definition of the term ‘literacy’ and how it is related to the broader notions of education and knowledge. Taking into account these evolving debates, including the major traditions, critiques and approaches to literacy, this section presents four discrete understandings of literacy:
• literacy as an autonomous set of skills;
• literacy as applied, practised and situated;
• literacy as a learning process;
• literacy as text.
These broad areas of enquiry accommodate almost all theoretical understandings of literacy. [2]
The original meaning of the English word ‘literacy’ is different from its translations in several other languages
Box 6.1: French terms for 'literacy'
In French, alphabétisme and analphabétisme are the terms generally used to designate ‘literacy’ and ‘illiteracy’, while alphabétisation refers to ‘literacy learning’ and is used in France to denote the process of literacy acquisition. Until the early 1980s, France had perceived illiteracy as an issue concerning the immigrant population from North and sub-Saharan Africa. Yet, while the French used the terms analphabétisme (illiteracy) and alphabétisation (literacy learning) to refer to what they perceived as a literacy problem of immigrants, the issue was, in reality, one of poor reading and writing skills in French as a second language (which concerned second-generation immigrants and, to a lesser extent, immigrants as well as French nationals with a regional language, such as Basques, Catalans and Bretons).
In 1981, the Oheix Report on Poverty underscored the limited reading and writing skills of many French nationals. At the same time, the French charity ATD Quart Monde coined the term illetrisme, so that the poor French with limited reading and writing skills would not feel they were being compared to the immigrant workers labelled as analphabètes. Thus, the term illettrisme evolved to refer to those who had been through part or all of the French primary school system without gaining adequate skills. Subsequently, an interministerial body (the Groupe interministériel permanent de lutte contre l’illettrisme) was established to address this issue.
More recently, international (particularly anglophone) discourses contributed to new understandings of literacy and, in Canada, the International Adult Literacy Survey provided a new meaning for the term alphabétisme. Here, ‘literacy’ refers to broader learning and the mastery of information ‘to work within the knowledge (information) societies that will dominate the twenty-first century’ (OECD, 1997). In this view, literacy has a clear functional role within the context of a globalizing world.
The latest revision of the francophone concept of literacy has emerged (originally in Quebec) through the terms littératie and, less commonly, littératies. While the former derives from anglophone understandings of literacy championed by OECD (referring to competencies deemed important for ‘information societies’), the latter (employed, for example, by the Centre de Recherche et de Développement en Éducation of the University of Moncton, New Brunswick) is akin to the anglophone concept of multi-literacies advanced by the New Literacy Studies movement. (See the section Literacy as applied, practised and situated.)
In August 2005, France adopted the term littérisme as referring to ‘the ability to read and understand a simple text, and to use and transmit written information of everyday life’. Littérisme, meant to be the opposite of illettrisme, would thus be a close equivalent to the English concept of literacy, encompassing also numeracy.
Sources: Fernandez (2005), Limage (1986, 2005), Ministère de la culture et de la communication (2005), OECD/HRDC/Statistics Canada (1997).
Literacy as skills
Reading, writing and oral skills
The most common understanding of literacy is that it is a set of tangible skills – particularly the cognitive skills of reading and writing – that are independent of the context in which they are acquired and the background of the person who acquires them. Scholars continue to disagree on the best way to acquire literacy, with some advocating the ‘phonetic’ approach and others ‘reading for meaning’, resulting in what has sometimes been called the ‘reading wars’ (Adams, 1993; Goodman, 1996; and see discussion in Street, 2004). The emphasis on meaning has recently given way to a ‘scientific’ attention to phonetics, word recognition, spelling and vocabulary. This approach has lately turned to research in the cognitive sciences on important features of human memory (e.g. how the brain processes reading patterns) and to techniques such as phonological awareness training and giving increasingly faster reading tasks (Abadzi, 2003b, 2004).
A tendency to favour the ‘scientific’ principles of phonetics has given rise to claims that writing is the transcription of speech and hence ‘superior’ to it. Similarly, some claim the alphabetic system is technologically superior to other script forms, since it is phonetic, rather than reliant on pictures to denote meaning (Olson, 1994). Street (2004) notes that many such views are founded on deeper assumptions about the cognitive consequences of learning to read and write. The cognitive argument has been linked to broader societal development, so that literacy becomes a condition (or instrument) for economic growth, ‘progress’ and the transition from ‘oral’ to ‘literate’ cultures (Goody, 1977; Ong, 1982; Olson, 1977, 1994).
The transition from oral to literate modes has a fundamental impact on human consciousness. Not only does it allow for the representation of words by signs, but it gives a linear shape to thought, providing a critical framework within which to think analytically. While rational consciousness is often taken to be a given good, it derives from a classical epistemology, which may be less appropriate for societies founded on different patterns of thought and interaction. Consequently, an understanding of literacy that maintains some focus on oral skills is desirable (Box 6.2).
In the 1970s, some social psychologists argued that many of the assumptions about literacy in general were linked to school-based writing, resulting in serious limitations in accounts of literacy – particularly in the claim that it improves faculties of reasoning (Scribner and Cole, 1978; Olson, 1977).
Numeracy skills
Numeracy – and the competencies it comprises – is usually understood either as a supplement to the set of skills encompassed by ‘literacy’ or as a component of literacy itself. A recent research review notes that the English term ‘numeracy’ was first coined in 1959 (in the Crowther report submitted to the United Kingdom’s Ministry of Education), as the ‘mirror image of literacy’, to refer to a relatively sophisticated level of what we now call ‘scientific literacy’ (Coben et al., 2003).
Numeracy is most often assumed to depend upon a solid mathematical education and innumeracy to be the result of poor schooling. This ‘limited proficiency’ conception of numeracy, which emphasizes equipping the workforce with minimum skills, continues to dominate and has been adopted by many national and international assessment agencies (Coben et al., 2003).
The most common understanding of literacy is that it is a set of tangible skills — particularly the cognitive skills of reading and writing
Box 6.2 Oral expression
Earlier notions of a ‘great divide’ between oral and literate societies have given way to the concept of a ‘continuum’ of communication modes in different societies and an ongoing dynamic interaction between various media (Finnegan, 1988). Within a single society, a variety of modes of ‘orality’ and ‘literacy’ exist. Even the practices of individuals in their use of these modes may vary from situation to situation.
Taking into account oral competencies as well as reading and writing skills has important consequences for securing benefits from literacy programmes. For example, since efforts to empower women and girls involve developing their oral expression skills (i.e. confidence in speaking), these should build upon the oral knowledge that they already possess (Robinson, 2003). In terms of numeracy, most adult learners already know oral counting and some mathematical structures, and have an art of mental arithmetic more or less adequate for their daily life; in fact, many ‘illiterate’ adults (especially those involved in trade) are better at mental arithmetic than are more ‘educated’ people (Archer and Cottingham, 1996a). These skills should be taken into account and built upon.
Maintaining and developing oral skills can be a means of language preservation, since many languages do not have (or are less compatible with) equivalent textual scripts and thus run the risk of extinction as younger generations adapt to written languages employed in schools.
Challengers to this view note that the competence-based agenda for adult mathematics/numeracy education is dangerously limited (FitzSimons, 2002, cited in Coben et al., 2003). They distinguish between concepts of numeracy with narrowly defined learning outcomes, which they characterize as approaching numeracy from a human resources perspective, and approaches that would allow for the development of critical citizenship (Johnston et al., 2002, cited in Coben et al., 2003).
More recently, ‘numeracy’ has been used to refer to the ability to process, interpret and communicate numerical, quantitative, spatial, statistical and even mathematical information in ways that are appropriate for a variety of contexts (Box 6.3). The term increasingly refers to a competence allowing more effective participation in relevant social activities (Evans, 2000).
Skills enabling access to knowledge and information
The word ‘literacy’ has begun to be used in a much broader, metaphorical sense, to refer to other skills and competencies, for example ‘information literacy’, ‘visual literacy’, ‘media literacy’ and ‘scientific literacy’. International organizations – notably the OECD through publications such as Literacy in the Information Age (2000) and Literacy Skills for the Knowledge Society (1997) – have given impetus to the use of such terms, eventually giving rise to a new French term, littératie (Fernandez, 2005). The meaning of these concepts tends to be diverse and shifting, ranging from the view of literacy as a set of largely technical skills (the OECD perspective) to the idea that these skills should be applied in critical ways to examine one’s surroundings (e.g. the workplace and the media) and push for social change (Hull, 2003). For instance, ‘information literacy’ broadly refers to the ability to access and use a variety of information sources to solve an information need. Yet, it can also be defined as the development of a complex set of critical skills that allow people to express, explore, question, communicate and understand the flow of ideas among individuals and groups in quickly changing technological environments.
Scholars have suggested that a useful concept would be that of multiple literacies
Some scholars have suggested that a more useful concept would be that of multiple literacies – that is, ways of ‘reading the world’ in specific contexts: technological, health, information, media, visual, scientific, and so on (see Street, 2003; Lankshear and Knobel, 2003; Cope and Kalantzis, 2000). This concept has recently been adopted in the francophone world (most prominently, in Quebec) through the term littératies and has been used to understand the multiple forms of literacy among minority communities with shifting cultural identities (see the work cited in Fernandez, 2005).
Yet the notion of multiple literacies is not without controversy. By attracting a long list of modifiers, ‘literacy’ has become a debased term, its core reference to reading skills undermined (Jones, 1997; Hull, 2003). Some respond to this critique by emphasizing that reading, in the broadest sense of the word, remains integral to the notion of literacy. Thus, reading may mean not only the decoding and understanding of words, but also the interpreting of signs, symbols, pictures and sounds, which vary by social context (Cope and Kalantzis, 2000). In short, different everyday contexts present different literacy demands, perceptions of literacy, and types of power relations and hierarchies of knowledge (Barton et al., 1999; Street, 2003).
Box 6.3 Numeracy situations
A recent approach to the issue of numeracy describes three different types of ‘numeracy situations’ (Gal, 2000):
• Generative situations require people to count, quantify, compute and otherwise manipulate numbers, quantities, items or visual elements — all of which involve language skills to varying degrees.
• Interpretive situations require people to make sense of verbal or text-based messages that, while based on quantitative data, require no manipulation of numbers.
• Decision situations ‘demand that people find and consider multiple pieces of information in order to determine a course of action, typically in the presence of conflicting goals, constraints or uncertainty’.
Teaching adults numeracy means enabling them ‘to manage effectively multiple types of numeracy situations’. As such, numeracy should be seen as a semi-autonomous area at the intersection between literacy and mathematics and address not only purely cognitive issues, but also students’ dispositions and cognitive styles.
Sources: Gal (2000), Coben et al. (2003).
Literacy as applied, practised and situated
Acknowledging the limitations of a skills-based approach to literacy, some scholars have tried to focus on the application of these skills in ‘relevant’ ways. One of the first coordinated efforts to do so was through the development of the notion of ‘functional literacy’. In the 1960s and 1970s, this concept initially emphasized the impact of literacy on socio-economic development.3 Views of functional literacy often assumed literacy could be taught as a universal set of skills (applicable everywhere) and that there was only one literacy, which everyone should learn in the same way. Literacy was seen as neutral and independent of social context.
This understanding evolved as scholars argued that the ways in which literacy is practised vary by social and cultural context (Barton, 1994). Ethnographic research into literacy practices in particular settings was particularly instrumental in the development of this approach, typically known as ‘New Literacy Studies’ (NLS) (Gee, 1999; Barton and Hamilton, 1999; Collins, 1995; Heath, 1993; Street, 1998). Rather than see literacy as a technical skill independent of context, the NLS approach argues it is a social practice, embedded in social settings and, further, that even a presumably ‘objective’ skill such as numeracy can be socially situated (Box 6.4).
Among key concepts in this view of literacy are literacy events (‘any occasion in which a piece of writing is integral to the nature of the participants’ interactions and their interpretative processes’) and literacy practices (‘the social practices and conceptions of reading and writing’) (Street, 1984). The literacy as applied, practised and situated approach questions the validity of designations of individuals as ‘literate’ or ‘illiterate’, as many who are labelled illiterate are found to make significant use of literacy practices for specific purposes in their everyday lives (Doronilla, 1996).
Literacy can be viewed as an active and broad-based learning process
Yet, this approach has been criticized by some scholars, who claim it overemphasizes local exigencies and insufficiently recognizes how external forces (e.g. colonial administrations, missionaries, international communication and economic globalization) have impinged upon the ‘local’ experiences of specific communities (Brandt and Clinton, 2002; Collins and Blot, 2003). Maddox (2001) and Stromquist (2004) question the reluctance of advocates of this approach to examine the potential of literacy to help people move out of ‘local’ positions into fuller economic, social and political participation.
Literacy as a learning process
As individuals learn, they become literate. This idea is at the core of a third approach, which views literacy as an active and broad-based learning process, rather than as a product of a more limited and focused educational intervention. Building on the scholarship of Dewey and Piaget, constructivist educators focus on ways in which individual learners, especially children, make sense of their learning experiences. In the field of adult education, some scholars see personal experience as a central resource for learning. Experience is one of Knowles’s (1980) five principles of ‘andragogy’, or adult learning theory, in which he argues for a learner-centred educational process, with critical reflection as central. Kolb (1984) developed an experiential learning cycle, with ‘concrete experience’ as the starting point for learning, based on critical reflection.
Box 6.4 Ethnomathematics
The term ‘ethnomathematics’ encompasses both ‘the mathematics which is practised among identifiable cultural groups’ (Coben et al., 2003) and educational approaches geared to engagement with these forms of mathematics. It is a field of anthropological, political and educational research and a practice championed since the mid-1970s by Brazilian educationalist Ubiratan D’Ambrosio and since developed by Paulus Gerdes, Gelsa Knijnik and others. Although mathematics is sometimes claimed to be a universal language, much of mathematics education depends on Western assumptions and values. The development of ethnomathematics as an active area of research and practice has encouraged a growing recognition that mathematics may, like literacy, be embedded in a range of practices. Studies on folk mathematics, for example, have examined the methods by which members of various indigenous groups acquire numeracy skills. For instance, despite being officialy illiterate, adults in rural Tamil Nadu acquire sophisticated numeracy skills, including the ability to calculate time and seasonal changes on the basis of the length of the sun’s shadow; likewise, village women must know how to count in order to make sophisticated geometrical patterns in the rice-paste designs known as kolums.
Sources: Coben et al. (2003), Dighe (2004).
More recently, social psychologists and anthropologists have used terms such as ‘collaborative learning’, ‘distributed learning’ and ‘communities of practice’ to shift the focus away from the individual mind and towards more social practices building on newer understandings of literacy (Rogoff and Lave, 1984; Lave, 1988; Rogoff, 2003; Lave and Wenger, 1991). For example, Rogers (2003) distinguishes between ‘task-conscious’ learning, typically evaluated by test-based task completion, and ‘learning-conscious learning’, which is assessed from the perspective of the learner. The more traditional learning methods of children (‘task-conscious’ test learning) are often used for adults, as is evident in many adult literacy programmes.
Paulo Freire is perhaps the most famous adult literacy educator whose work integrated notions of active learning within socio-cultural settings (Box 6.5). Freire emphasized the importance of bringing the learner’s socio-cultural realities into the learning process itself and then using the learning process to challenge these social processes. Central to his pedagogy is the notion of ‘critical literacy’, a goal to be attained in part through engaging with books and other written texts, but, more profoundly, through ‘reading’ (i.e. interpreting, reflecting on, interrogating, theorizing, investigating, exploring, probing and questioning) and ‘writing’ (acting on and dialogically transforming) the social world.
Freire’s ideas have been used as pedagogical tools to support learners who have been oppressed, excluded or disadvantaged, due to gender, ethnicity or socio-economic status. In francophone Africa, scholars such as Joseph Ki-Zerbo from Burkina Faso have documented mobilization for an ‘Africanized’ literacy that would directly respond to the pressing communication needs of the continent. This movement has motivated the introduction of Freirean methodologies by several NGOs (Fernandez, 2005).
Literacy as text
A fourth way of understanding literacy is to look at it in terms of the ‘subject matter’ (Bhola, 1994) and the nature of the texts that are produced and consumed by literate individuals. Texts vary by subject and genre (e.g. textbooks, technical/professional publications and fiction), by complexity of the language used and by ideological content (explicit or hidden). [4]
This approach pays particular attention to the analysis of discrete passages of text, referred to by socio-linguists as ‘discourse’. Influenced by broader social theories (e.g. those of Michel Foucault), it locates literacy within wider communicative and socio-political practices that construct, legitimate and reproduce existing power structures (see Gee, 1990; Fairclough, 1991) [5]. Language represents one of several modes through which communication is conducted (Kress and van Leeuwen, 2001). The broader policy question raised by this work is whether the types of literacy taught in schools and adult programmes are relevant to the present and future lives of learners (Gee et al., 1996).6 In summary, these four approaches broadly reflect the evolution of the meaning of ‘literacy’ in different disciplinary traditions. While international policy has not evolved in direct response to these views, there has been a mutual influence between evolving theories and policy-oriented approaches to literacy, as the following section shows.
Central to Paulo Freire’s pedagogy is the notion of ‘critical literacy’
Box 6.5 Paulo Freire: reading the worldEvery reading of the word is preceded by a reading of the world. Starting from the reading of the world that the reader brings to literacy programs (a social- and class-determined reading), the reading of the word sends the reader back to the previous reading of the world, which is, in fact, a rereading.
-- Paulo Freire, Pedagogy of the City (1993, translated by D. Macedo)
According to Paulo Freire, dialogue provides the link between oral and literate forms of interpreting, understanding and transforming the world. It is not a matter of speaking first, then developing reading skills and then learning to write. Rather, speaking, reading and writing are interconnected parts of an active learning process and of social transformation. The words that people use in order to give meaning to their lives are fashioned, created and conditioned by the world which they inhabit.
Sources: Freire (1995), Gadotti (1994).
Understandings of literacy in the international community
Since the 1950s, international organizations have promoted policy discussions and decisions that have incorporated, in various ways, the conceptual understandings of literacy explored above. UNESCO in particular has played a leading role in developing international policies on literacy and has influenced the changing policy discourse among stakeholders in the international community. A key issue for the international community during this period has been the question of what emphasis and funding priority literacy-enhancing programmes and campaigns should be given in international policy agendas. Even when literacy became the focal point of international conferences, there was often a gap between the rhetoric of literacy-related policy statements and the realities of the investment in, and the implementation and evaluation of, literacy programmes. The discussion below pays particular attention to understandings of literacy as articulated in official policy discussions in international organizations. The practical application of these understandings is explored in Chapter 9.
The ‘eradication of illiteracy’ (1950s—1960s)
Following the Second World War, UNESCO supported the international drive to spread literacy as part of its concerted effort to promote basic education. [7] In 1947, UNESCO recognized a wide range of skills, including the acquisition of literacy, as fundamental aspects of individual development and human rights (UNESCO, 1947). UNESCO supported the idea of a ‘fundamental education’, centred mainly upon the skills of reading and writing, and which was reflected in UNESCO’s (1958) statement that ‘a literate person is one who can, with understanding, both read and write a short simple statement on his or her everyday life.’ The onset of the Cold War and the resulting political tensions weakened interest in a worldwide campaign for universal literacy. [8] Nevertheless, the international community agreed on the need to ‘eradicate illiteracy’ and promote ways to help individuals acquire a basic set of autonomous literacy skills (Jones, 1990b; Chabbott, 2003; UNESCO, 2004b).
An important development in the international effort to promote universal literacy emerged during the Second International Conference on Adult Education in Montreal, Canada, in 1960. Participants in this conference advocated the organization of a major international campaign to ‘eradicate illiteracy in just a few years’ that would bolster isolated national efforts in developing countries, with the financial support of industrialized countries. In addition, the Convention and the Recommendation against Discrimination in Education, adopted by UNESCO’s General Conference in 1960, sought ‘to encourage and intensify by appropriate methods the education of persons who have not received any primary education’ (Yousif, 2003). Despite these decisions and recommendations, actions on the ground were limited, with the exception of isolated national campaigns (e.g. in Cuba in 1961).
Functional literacy and the Experimental World Literacy Programme (1960s—1970s)
Most international organizations abandoned their support for mass literacy campaigns in the 1960s and 1970s and embraced human capital models of education. Increasingly, literacy came to be viewed as a necessary condition for economic growth and national development. For example, the World Congress of Ministers of Education on the Eradication of Illiteracy (held in Tehran, 1965) stressed for the first time the interrelationship between literacy and development, and highlighted the concept of functional literacy: ‘Rather than an end in itself, literacy should be regarded as a way of preparing man for a social, civic and economic role that goes beyond the limits of rudimentary literacy training consisting merely in the teaching of reading and writing’ (cited in Yousif, 2003). [9]
The notion of functional literacy became a linchpin of UNESCO’s Experimental World Literacy Programme (EWLP), initiated at the General Conference in 1966, implemented in eleven countries and discontinued in 1973. [10] The EWLP, funded by the United Nations Development Programme (UNDP) and other agencies, aimed to provide literacy acquisition via experimentation and work-oriented learning. In parallel, the UNDP took a leading role in financing technical assistance that incorporated ideas of functional literacy (Jones, 1990b).
Efforts to promote universal literacy started in the 1950s
Although initially focused on enhanced efficiency and productivity, the concept of functional literacy was later expanded in light of EWLP experiences to include a broader array of human concerns and aspirations:
It is with reference to the whole range of people’s functions, whether as citizens, as producers, as private householders in their families, villages or home neighbourhoods, or as individuals seeking answers to the questions they ask themselves about the physical, social, moral and intellectual world in which they live, that the role of literacy training is to be perceived and manifests itself. It is from this standpoint that functional literacy is seen to be identical with lifelong education, insofar as the latter concept also encompasses everything which enters into life (UNESCO/ UNDP, 1976, cited in Yousif, 2003).
In 1978, UNESCO’s General Conference adopted a definition of functional literacy – still in use today – which states: ‘A person is functionally literate who can engage in all those activities in which literacy is required for effective functioning of his group and community and also for enabling him to continue to use reading, writing and calculation for his own and the community’s development.’
Paulo Freire and literacy as transformative (1970s)
During the 1970s, Paulo Freire’s theory of ‘conscientization’ – which stated, among other things, that social awareness and critical enquiry are key factors in social change – gained popularity in developing countries. It also heavily influenced evolving conceptions of literacy in UNESCO and other international organizations. In 1975, during an International Symposium for Literacy held in Persepolis (Iran), Freire was awarded the Mohamed Reza Pahlavi Prize for literacy by UNESCO. The Persepolis Declaration reflected this influence and posited that literacy must go beyond the process of learning the skills of reading, writing and arithmetic, and contribute to the ‘liberation of man’ and to his full development:
Thus conceived, literacy creates the conditions for the acquisition of a critical consciousness of the contradictions of society in which man lives and of its aims; it also stimulates initiative and his participation in the creation of projects capable of acting upon the world, of transforming it, and of defining the aims of an authentic human development. It should open the way to a mastery of techniques and human relations. Literacy is not an end in itself. It is a fundamental human right (Bataille, 1976).
International recognition of Freire’s approach to literacy was considerable during this period.