Why do so many of those who are deemed "illiterate" not think they have a problem or want to study? It is commonly said that people are reluctant to admit literacy limitations. This is no doubt true for some. And many people with limited education feel fear or anger about schooling, or reject the ways of learning that schools offer. But furthermore, even the most credible literacy statistics only tell us how many people have difficulties on a test — in a bundle of literacy task simulations, all in a row, outside of any normal daily context. The statistics don't say how many people have difficulties in life. Many can deal adequately with everyday routines without having literate skills — substituting memory for reading, getting help filling out forms, and so on. Many who cope well in their lives neither identify themselves as "illiterate" or perceive themselves as likely to choose to study.¹⁶

It is well known that people with the least education participate least in adult education.¹⁷ The response to this unequal participation is unavoidably a political choice and a policy choice. It is not enough only to note the distance that people with limited literacy feel from education. It must also be noted that adult education programming generally caters to people who are better educated and economically advantaged. Even in circumstances where literacy program supply seems to exceed demand, attention should be directed to the design of programs and means of recruitment that respond to the felt needs of potential learners.¹⁸