ULLAS and India’s 100% Literacy Push

Why in News ?

India has set an ambitious goal of achieving 100% literacy by 2030, aligned with the National Education Policy (NEP) 2020 and SDG-4 (Quality Education). To achieve this, the Union Government launched the ULLAS (Understanding Lifelong Learning for All in Society) programme. However, Bihar’s non-participation, despite being one of India’s least literate States, has emerged as a major bottleneck in achieving the national target.

Background and Context

Literacy has long been a cornerstone of India’s social and economic development strategy. While school enrolment has improved substantially over the decades, adult illiteracy remains a challenge, particularly among women, marginalised communities, and in backward regions.

Recognising this gap, NEP 2020 expanded the concept of literacy beyond basic reading and writing to include digital, financial, and life skills, necessitating a renewed focus on adult and lifelong learning through schemes like ULLAS.

Overview of the ULLAS Scheme

• Launched: 2022 by the Union Ministry of Education
• Target Group: Non-literate persons aged 15 years and above
• Core Approach:
  • Door-to-door identification of non-literates
  • Training in basic literacy and numeracy (up to Class 3 level)
  • Combination of online and offline learning modes
  • Mandatory assessment and certification

Expanded Definition of Literacy (2024 Guidelines):

• Reading, writing, and numeracy with comprehension
• Digital literacy, financial literacy, and essential life skills
• Benchmark: 95% literacy treated as equivalent to 100% literacy for policy purposes
  

Progress So Far

• Declared Fully Literate States/UTs: Himachal Pradesh, Mizoram, Goa, Tripura, Ladakh
• Likely to Join Soon: At least two southern States and one Union Territory
• National Impact: Gains expected to reflect in upcoming Census data, strengthening India’s human capital indicators.

Bihar – A Major Concern

Literacy Snapshot

• PLFS 2023–24:
  • Overall literacy: 74.3% (second lowest in India)
  • Male literacy: 82.3%
  • Female literacy: 66.1%
• Non-literates (15–59 age group): Nearly 2 crore, including 1.32 crore women
• Census 2011: Literacy rate was 61.8%, the lowest nationally

Financial and Administrative Issues

• ULLAS Funds Approved (2023–24): ~₹35 crore
  • Central share: ₹21 crore
  • State share: ₹14 crore
• Issues flagged by the Centre:
  • Funds not transferred to the Single Nodal Agency (SNA)
  • No annual action plan submitted
  • Non-utilisation of released funds
  • 7% interest penalty applicable on delayed transfers (Department of Expenditure norms)

Bihar’s Stand: Akshar Anchal Scheme

• Nature: State-run literacy programme operational for ~15 years
• Focus Groups:
  • Dalits, Mahadalits, minorities
  • Extremely Backward Classes (EBCs)
  • Women (15–45 age group)
• Key Features:
  • Schooling for children (6–14 age group)
  • Basic literacy and numeracy for adult women
  • Biannual literacy assessments conducted by the State
• State’s Argument:
  • Higher financial outlay than ULLAS
  • Existing institutional mechanisms make ULLAS redundant

Key Challenges and Way Forward

• Centre–State Coordination Deficit: Need for stronger cooperative federalism in education governance.
• Duplication vs Convergence: Align Akshar Anchal with the ULLAS framework rather than operating parallel schemes.
• Gender Gap in Literacy: Prioritise female literacy as a catalyst for health, nutrition, and workforce participation.
• Underutilisation of Central Funds: Introduce performance-linked incentives and strict monitoring.
• Monitoring and Outcome-Based Evaluation: Use digital platforms, community educators, and third-party assessments for accountability.