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We use the phrase unmet literacy needs to highlight that literacy needs are caused by societal issues and not the fault of an individual.

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The Adult Literacy for Life (ALL) Strategy was published by SOLAS in 2021, following a lengthy consultation process with stakeholders. The vision of the strategy is an Ireland where every adult has the necessary literacy, numeracy and digital literacy to fully engage in society and realise their potential (p.10).

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A traditional / cognitive view of literacy

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A traditional / cognitive view of literacy

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A traditional or cognitive view of literacy is that it means:

•           To be able to read is to be able to decode writing

•           To be able to write is to be able to code language

•           It is a mental/cognitive process, detached from the social settings in which it happens.

(Gee, 2015)

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James Paul Gee explains Discourses as socially accepted ways of behaving, interacting, valuing, thinking, and speaking and, often, reading and writing that reflect specific identities (2015). He deliberately uses a capital ‘D’ to talk about Discourse in this way.

For example, you might adjust your speech and behaviour when in a professional setting compared to when you are with close friends. Language is a part of Discourse.

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Our primary Discourse shapes our early and lasting sense of who we are. It forms the basis of our everyday language, the way we normally speak and behave, and helps create our culturally specific identity.

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The recent PIACC results tell us that one in five adults (approximately 700,000 people) have literacy difficulties that affect their ability to read everyday materials such as bus timetables or medicine instructions. Additionally, one in four adults (around 835,000 people) struggle with numeracy, making it difficult to carry out basic calculations like working out bills or percentages. The percentage of adults in Ireland with literacy needs has risen from 18% in 2013 to 21% in 2025, highlighting the growing demand for effective literacy support (NALA, 2025).

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Reading is a holistic activity, which involves different skills. Allan Luke and Peter Freebody developed the Four Resources Model. This model explores the different elements involved in developing reading skills. They can be applied to any text with learners at any level. A beginner reader can be critical about the texts they read and a developing reader still needs to navigate the codes and conventions that are features of different texts.

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A traditional / cognitive view of literacy

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A traditional / cognitive view of literacy

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In this approach, literacy is seen as a fixed set of technical skills, separate from the social contexts in which they are used. These skills are viewed as stable over time and place, and adults are expected to move through them step by step, like rungs on a ladder, before being considered fully literate (Maclachlan, 2008).

Although this view of literacy is now considered outdated, it still continues to influence some literacy policy approaches.

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Discourses are strongly connected to the distribution of social power and hierarchical structure in society. Control over certain powerful Discourses can lead to the gaining social goods (money, power, status) in society.

(Gee, 2015)

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People use different types of literacy in different areas of life.  The way we use literacy is shaped by society and power. Some types of literacy are more powerful and influential than others (Maclachlan, 2008).

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This view of literacy means we are aware that people use their literacy skills in different ways in different areas of life. Literacy is connected to the social settings where it is used. So, we can talk about family literacy, health literacy and work literacy as some examples of literacy.

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Four Resources Breakdown (handbook, pp.15-16)

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Four Resources Breakdown (handbook, pp.15-16)

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Code breaking means understanding a text by recognising letters, sounds, syllables, and common patterns in words, sentences, and paragraphs so the text can be read and made sense of.

Meaning making involves using what learners already know about the world and their own experiences to understand a text, with learning being easier when the text connects to their real lives.

Text use refers to learners understanding how to use a text appropriately for different purposes and contexts by choosing the right structure, tone, and level of formality for the situation.

Text analysis involves critically examining a text to understand whose perspective it presents, whether it excludes other voices, and how word choices reflect fact, opinion, or bias.

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The Discourses we learn later in life, beyond our primary Discourse, are learned in more public settings. These are called secondary Discourses. We acquire them through institutions that belong to wider communities, such as schools, religious groups, community organisations, businesses, and governments.