Adult literacy surveys are crucial for identifying literacy gaps, understanding the needs of the population and advocating for literacy programs. The latest international adult literacy survey, Program for the International Assessment of Adult Competencies (PIAAC), released in December 2024,  gathered data from 2022 and 2023.

While Canada ranks among the top 10 countries in terms of literacy skills, nearly 49% of Canadians lack the level three skills needed for today’s job market.

Dr. Ralf St. Clair, University of Victoria Professor, Department of Curriculum and Instruction, explored the findings during a free Decoda webinar in February 2025, titled “Running Ahead of the PIAAC: What Is It, and What Does It Mean for Literacy Education?” to help people better understand the data and its implications.

What is PIAAC?

PIAAC (Program for the International Assessment of Adult Competencies) is an international adult literacy survey conducted by the OECD (Organisation for Economic Co-operation and Development). It is typically administered every ten years and measures adult skills in three areas:

• Literacy: The ability to read and retrieve information from texts.
• Numeracy: Understanding and using numerical information.
• Adaptive Problem-Solving: Solving problems in contexts where the situation changes during the solution process.

PIAAC seeks to assess how these skills relate to education and lifelong learning.

“PIAAC tries to measure how skills relate to education,” said Dr. St. Clair. “It’s not about education but about other forms of knowledge. What are the potential effects of adult education and lifelong learning? If you’re engaged in learning, how does it benefit you in life? Is there actually an economic benefit?  What difference does aging make?”

Survey Details

The 2022-2023 PIAAC survey assessed adults aged 16-65 across 31 countries and economies, using a door-to-door household survey randomized by postal code. In Canada, 11,697 adults participated, with data modeled to reflect the national population. Notably, Northern Territories and on-reserve communities were not included in the survey.

The OECD technical report – which details the survey methodology, data quality, technical procedures, comparability and technical methods – is not yet available.

Literacy Levels Explained

The PIAAC survey defines literacy levels as follows:

• Below Level 1: Limited understanding of the language spoken in the country.
• Level 3 and above: The threshold for functioning well in today’s information-rich society.
• Level 4 and above: High-level functioning skills.

Canada’s average literacy score of 271 places it at Level 2, meaning Canadians can read simple texts and find three facts, but lack the skills to thrive in a knowledge-based economy.

Key Findings from the 2023 Canadian Survey

Canada’s average literacy score of 271 is higher than the OECD average of 260. The country ranks 10th among OECD nations. Key results include:

• Literacy: 51% of Canadians are at Level 3 or above, far above the OECD average of 34%. However, 19% of Canadians scored at Level 1 or below.
• Numeracy: 49% of Canadians are at Level 3 or above, compared to 46% in the OECD. 21% are at Level 1 or below.
• Adaptive Problem Solving: 39% of Canadians score at Level 3 or above, surpassing the OECD average of 32%. 22% are at Level 1 or below.

Why Literacy Levels Matter

Literacy is strongly linked to employment, earnings, and overall well-being:

• 67% of individuals with literacy levels below Level 1 are in the labour force, compared to 94% of those at Level 4 or above.
• The unemployment rate is just 2% for people at Level 4 and above, while it rises to 7% for those below Level 1.
• Hourly earnings for individuals at Level 1 or below average $19/hour, while those at Level 4 or above earn $36/hour.

“These are very, very strong indicators of the importance of skills and competencies in workforce or labour outcomes,” said Dr. St. Clair.

Age and Literacy

PIAAC data also reveals how literacy levels change with age. Over a ten-year period, adults aged 55-65 saw a decline of 16 points in their literacy scores.

“Older adults tend to have lower skills, are therefore less likely to be employed, and earn less,” said Dr. St. Clair. “It points to a real concern for older Canadians and some of the challenges they may be facing.”

Meanwhile, 25-34-year-olds showed a rise in literacy scores, likely due to entering the workforce and gaining new skills.

Literacy and Quality of Life

Literacy is linked to various aspects of quality of life:

• Health: 36% of people with Level 1 literacy report good or excellent health, compared to 67% of those at Level 4 or above.
• Life Satisfaction: 66% of people with Level 1 literacy report high life satisfaction, compared to 84% at Level 4.
• Political Engagement: 25% of those at Level 1 feel they can influence political decisions, compared to 29% at Level 4.
• Trust: 26% of individuals at Level 1 trust others, compared to 53% at Level 5.
• Volunteering: 26% of people at Level 1 engage in volunteer activities, compared to 49% at Level 4.

Immigrant Literacy Levels

Immigrants in Canada tend to have lower literacy skills than native-born Canadians, with a gap equivalent to about 3.5 years of schooling. Roughly half of this gap is attributable to language issues, differences in educational attainment, age, gender and parents’ educational attainment.

• In Canada, 58% of migrants are highly educated compared to 42% of natives.
• Second-generation immigrants (those who were born in Canada but whose parents were not born in Canada) performed as well or better on average than non-immigrants.
• Immigrants who arrived in Canada at a young age or have lived here for a long time tend to have better literacy skills.
• Immigrants who learn the country’s language early on, especially those who arrive as children, fare better in literacy assessments.
• Language mastery is a key factor in bridging the literacy gap.

British Columbia’s Performance

British Columbia’s literacy scores have increased slightly since the 2013 survey. The province now ranks first in Canada with an average score of 281, surpassing the national average of 271. In 2013, British Columbia ranked 4th with a score of 274.8.

Survey Limitations

While valuable, the PIAAC survey has limitations. Dr. St. Clair highlighted several factors that could impact the results:

• The survey response rate was only 28%, which may not fully represent the population.
• Translation issues may affect how certain questions are interpreted.
• The focus on reading complex texts doesn’t capture all the ways literacy is used in everyday life.
• Correlation doesn’t imply causation—low literacy may not directly cause poor health or low income, but these factors are often connected.

Dr. St. Clair advised, “While PIAAC has limitations, it provides valuable insights that can support the importance of literacy education.”

Key Takeaways

1. Nearly 49% of Canadians still lack the literacy skills needed to succeed in today’s economy.
2. Literacy is closely tied to employment and higher wages.
3. Higher literacy skills contribute to economic growth.
4. As we age, literacy skills tend to decline, emphasizing the need for lifelong learning.
5. Literacy affects quality of life, including health, life satisfaction, and community involvement.
6. Mastering the host country’s language is crucial for immigrant success, and literacy programs play a key role in integration.

Resources

• Webinar recording
• OECD Report
• OECD Survey of Adult Skills Reader’s Companion
• PIAAC 2023 Survey of Adult Skills Released: My thoughts
• What is so important about PIAAC?
• Canada’s 2024 PIAAC Results amid Economic Instability