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Title page 1
Contents 7
Editorial 4
Acknowledgements 6
Executive Summary 9
One in three adults has weak foundational skills 9
Adults with low foundational skills are not a homogeneous group 9
Adult learning systems fail the people who need them most 9
The profile of the low-skilled population matters for policy 10
What the evidence requires from policymakers 10
1. How many adults have low skills, and why does it matter? 11
How are foundational skills assessed? 13
How many adults have low foundational skills? 15
Are there more adults with low skills than a decade ago? 17
What are the economic and non-economic consequences of low skills? 20
References 29
Notes 30
2. Do countries face different low-skill challenges? 32
Introduction 34
How broad are foundational skill deficits? 34
How deep are foundational skill deficits? 36
Do countries face fundamentally different challenges? 46
References 49
Notes 50
3. Who are the adults with low foundational skills? 51
Introduction 52
Who has low literacy or numeracy skills? 53
A closer look at the characteristics of adults with low skills and their economic and non-economic outcomes 59
Barriers to participation in adult education and training for adults living with low skills 66
References 68
Notes 69
4. What can policy do to support adults with low foundational skills? 71
Introduction 73
What is the rationale for policy intervention? 73
How can adults with low foundational skills be reached? 74
What are the features of successful policy design? 77
What enabling conditions support learning success? 80
What roles does prevention play in addressing low foundational skills? 85
How does the nature of the challenge shape the policy response? 87
References 91
Figure 1.1. Most low-skill prevalence is driven by adults who completed the full assessment 16
Figure 1.2. The share of adults with low foundational skills has increased in many countries 18
Figure 1.3. Adults with low skills are far more likely to be inactive than those with medium skills 21
Figure 1.4. The wage penalty for low skills exceeds USD 10 per hour in some countries 22
Figure 1.5. Returns to foundational skills continue beyond medium proficiency 23
Figure 1.6. Adults with low skills report worse health and lower life satisfaction in most countries 25
Figure 1.7. Low skills are associated with lower trust and volunteering in most countries, but not always with lower political efficacy 28
Figure 2.1. Most adults with low skills are weak in both literacy and numeracy 35
Figure 2.2. The typical adult with low skills performs at Level 1 in literacy 37
Figure 2.3. Country rankings by numeracy depth differ markedly from those by literacy 38
Figure 2.4. Assignment to components 39
Figure 2.5. Reading slows before the Level 1 threshold, then speeds up as proficiency rises 40
Figure 2.6. Reading speed varies widely among slow readers 41
Figure 2.7. Most adults with low skills understand most sentences correctly 42
Figure 2.8. Reader profiles among low-skills adults differ sharply across countries 44
Figure 2.9. Restricting to native-born adults reduces cross-country variation in reader profiles 45
Figure 2.10. Breadth and depth of low foundational skills do not tell a consistent story 46
Figure 3.1. Own and parental education consistently predict low foundational skills 54
Figure 3.2. Education, occupation and social background are the top predictors of low skills 57
Figure 3.3. Few variables account for most of the predictive power of the models 58
Figure 3.4. In most countries, education is the strongest predictor of having low skills 59
Figure 3.5. The socio-demographic profiles of adults with low skills vary across countries 62
Figure 3.6. Distribution of adults with low skills, by outcomes profiles 64
Figure 3.7. Socio-demographic profiles do not determine outcomes profiles 65
Figure 3.8. Work-related reasons are the most common barriers to participation in adult learning 67
Boxes 17
Box 1.1. The doorstep interview in the 2023 Survey of Adult Skills 17
Box 1.2. Comparability between Cycle 1 and Cycle 2 of PIAAC 19
Box 1.3. Wage gradients for proficiency in literacy, numeracy and adaptive problem solving 23
Box 1.4. Measuring non-economic outcomes in the 2023 Survey of Adult Skills 24
Box 2.1. Components 39
Box 3.1. LASSO and random forests: two approaches to identify influential variables 56
Box 3.2. K-modes clustering: identifying profiles within the low-skilled population 61
Box 4.1. Programmes for Basic Skills in Switzerland 75
Box 4.2. The Unionlearn programme in the United Kingdom 76
Box 4.3. Skills for Success in Canada 78
Box 4.4. Building a professional infrastructure for the adult education workforce in England 80
Box 4.5. Financial Incentives for Unemployed Adults with Low Foundational Skills in Germany 81
Box 4.6. The Qualifica programme in Portugal 82
Box 4.7. Skills Plus in Norway 83
Box 4.8. Literacy for Life Campaign in Australia 85
Box 4.9. Integration Courses for Migrants in OECD countries 89
Box 4.10. Multiply Programme in the United Kingdom 91
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