We search in vain for a "global plan" for literacy — defining the roles of not only educational organizations but also a broad range of government agencies, non-profit organizations, business and labour; and addressing limited literacy in its relationships with poverty. There is even surprisingly little discussion from literacy advocacy organizations of specific goals for literacy improvement. There is little urging, outside Québec and one report from the Ontario Literacy Coalition,¹³² of a global plan for literacy. Furthermore, talk of the "elimination of illiteracy" has nearly vanished from political and policy discussion. During 1990, international declarations were adopted proposing time-bound goals of "basic education for all"¹³³ or the "eradication or massive reduction of illiteracy."¹³⁴ But there are no Canadian counterparts to these declarations. Only one government has defined specific goals or deadlines for literacy improvement (New Brunswick, 1% per year for four years). There have been trial proposals from the federal government to cut illiteracy rates in half by the end of the decade.¹³⁵ Of course it remains to be seen how these proposals relate to subsequent policy.

The picture is no better if we attempt to give an accounting of literacy activity. Ideally, such an accounting would state enrollments and program expenditures for programs of all types, in all provinces and territories. This would require a clear and consistent definition of what counts as "literacy" activity. This definition should include programs that are deemed "literacy" as distinct from general Adult Basic Education (or as a specific component of ABE), or are administratively defined at a grade 0-8 level. Alternatively, the definition might include all adult education programs through the secondary level. But, given the likelihood that more basic programs are neglected in program funding and provision, the definition should include separate reporting for "literacy" in the narrower sense. Expenditures for student support allowances and special projects could be reported separately.

However, inconsistent and unclear reporting of data makes a clear accounting impossible. Provinces and territories use different dividing lines between literacy and other adult basic education, and often report partially or not at all. Some, but not all, provide data that includes all adult basic education and even all adult second-language activity as "literacy." There is often not even standardized or aggregated data collection across ministries within provinces. All this is another indication of the underdevelopment of serious policy for literacy.