International Review of Education (2008) 54:733–743 DOI 10.1007/s11159-008-9101-4

Ó Springer 2008

THE LITERACY INITIATIVE FOR EMPOWERMENT (LIFE) 2006–2015 ULRIKE HANEMANN

Background When it became apparent that existing literacy efforts in a number of countries would not be enough to reach Dakar Goal 4 – achieving a 50% improvement in levels of adult literacy by 2015, especially for women, and equitable access to basic and continuing education for all adults – UNESCO created a ten-year framework of collaborative action for enhancing and improving national literacy efforts in support of the United Nations Literacy Decade (2003–2012). This Literacy Initiative for Empowerment (LIFE) was launched by UNESCO in the context of the 33rd General Conference in October 2005 as one of the three core EFA initiatives – LIFE, the Teacher Training Initiative for Sub-Saharan Africa (TTISSA) and EDUCAIDS – prioritized by the Education Sector. It is conceived not only as a key operational mechanism for achieving the goals of the UNLD but also as a contribution to the achievement of EFA as a whole, in particular Goal 3 (meeting the learning needs of all young people and adults), Goal 4 (a 50% improvement in adult literacy rates) and Goal 5 (achieving gender equality in education) and to the Millennium Development Goals (MDGs) on poverty reduction, women’s empowerment, HIV and AIDS and sustainable development (Figure 1).

What is LIFE all about? LIFE has its focus on 35 countries of the world’s most challenged countries: those with literacy rates which are below 50% and/or a population of more than 10 million adults without literacy competencies. 85% of the world’s non-literate population lives in these 35 countries, of which 18 are in Africa, 9 in Asia and the Pacific, 6 in the Arab Region and 2 in Latin America and the Caribbean. The majority of the population lacking literacy competencies and life skills are women. For this reason, the LIFE framework supports national literacy policies and programmes that aim to empower women and girls, in particular in rural areas. UNESCO’s support for these 35 countries was planned in three progressive phases: the first phase began in 2006 with

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Figure 1. LIFE as part of major international frameworks, initiatives and decades

LITERACY

LIFE

UNLD

Education for All (EFA) Dakar Goals 3, 4, 5

MDGs

11 countries, the second starts in 2008 with 13 countries, and during the third, starting in 2010, the remaining 11 countries will join (Table 1). However, in the course of implementing, monitoring and refining the LIFE strategy, it became clear that it does not make sense to have countries of the third round waiting until 2010 before joining the initiative. At the end of 2007 and beginning of 2008, in the context of regional LIFE meetings, all LIFE countries were invited to ‘‘immediately set to work in order to extend, accelerate and improve their literacy strategies’’ (UIL 2008). Among the preparatory activities in 2005 was the formulation of a LIFE Vision and Strategy Paper. With support from a number of international partners UNESCO developed the rationale, goals and objectives, strategic areas for action, scope of LIFE, implementation strategy and the monitoring and evaluation of LIFE. In the foreword, the Director-General, Koı¨ chiro Matsuura, summarizes the main orientation of LIFE: Through LIFE, UNESCO’s strategy is focused on empowering learners through country-led practice, informed by evidence-based research. The aim is to build literacy programmes that are grounded upon what works, that is, proven Table 1. 35 Countries participating in LIFE Phase 1

Phase 2

Phase 3

Africa (18)

Mali, Niger, Nigeria, Senegal

Benin, Burkina Faso, Democratic Republic of Congo, Ethiopia, Gambia, Mozambique

Asia and the Pacific (9)

Bangladesh, Pakistan

Central African Republic, Chad, Djibouti, Eritrea, Guinea, Guinea Bissau, Madagascar, Sierra Leone Iran, Nepal

Afghanistan, China, India, Indonesia, Papua New Guinea Arab Region (6) Egypt, Morocco, Mauritania Sudan, Yemen Haiti Brazil Latin America and the Caribbean (2)

Iraq

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success-stories and best practices. Through LIFE, UNESCO will endeavour to raise awareness at international, regional and national levels about the importance of literacy, rally political will and mobilize resources, contribute to policy development and capacity-building through technical assistance, and develop rigorous monitoring and evaluation mechanisms to measure effectiveness. (UNESCO Institute for Lifelong Learning 2007, 3rd edition: 7)

Experiences during the first two years often showed a rather narrow understanding of LIFE as a project or programme implemented by UNESCO Field Offices in an isolated way. Therefore, the revised Vision and Strategy Paper (UNESCO Institute for Lifelong Learning 2007) specifies that LIFE is: – a framework of collaborative action for enhancing and improving national literacy efforts; – a process in support of literacy which is country-led and country-specific; – embedded in national policies and strategies; – a mechanism for technical support services and facilitation by UNESCO in the areas of policy, advocacy, partnership building, capacity-building and innovations. As a strategic framework and support mechanism, the overall objectives of LIFE are: – To reinforce the national and international commitment to literacy through advocacy and communication. – To support the articulation of policies for sustainable literacy within sector-wide and national development frameworks. – To strengthen national capacities for programme design, management and implementation. – To enhance countries’ innovative initiatives and practices in providing literacy learning opportunities. Therefore, advocacy, capacity, policy, country-led programmes and knowledge sharing are the key components of the LIFE strategy, which is underlain by accountability, transparency and cost-effectiveness. In order to achieve the goals of LIFE, UNESCO facilitates a process of collaborative action designed to reinforce national and international commitments to literacy (advocacy), to strengthen capacities for the articulation of sustainable policies and programme delivery (capacity building), and to enhance countries’ innovative initiatives and practices in providing literacy learning opportunities (innovation).

Making it happen: LIFE at country level The main emphasis of LIFE is on concrete action at the country level. Starting and developing LIFE processes at country level are at the centre of UNESCO’s strategy and constitute at the same time the biggest challenge.

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Grounded processes can only develop if the LIFE framework is tailored to the specific context of the participating countries and promoted in flexible ways. National policies, strategies, initiatives and development frameworks in LIFE countries are the starting point and should continue to lead literacyrelated activities. They should neither be remodeled nor recreated into ‘‘LIFE plans’’. LIFE facilitation is rather expected to lead to renewed and improved country-led literacy policies, strategies and plans and to strengthen partnerships for their successful implementation. The strategic orientation of the LIFE framework at the country level includes starting from an introspective sector-wide situation analysis of what is in place, what is working well, what is missing and what needs to be improved in order to achieve the literacy goals; to integrate LIFE with ongoing literacy activities, relevant agendas and planning cycles; to identify and strengthen priority activities related to literacy and non-formal education foreseen in national development strategies and sector-wide education plans; to facilitate the review, monitoring and continuing improvement of literacy policies and practices; to promote participatory processes that strengthen ownership and partnerships; to help strengthen capacities and structures for implementing empowering and innovative literacy programmes; and to create opportunities for information, experience and knowledge exchange among stakeholders and countries on common issues. LIFE will probably take as many shapes as the number of participating countries, and there are no uniform answers and approaches to key questions such as: What has to be in place in order to achieve Dakar Goal 4 in a specific country? Who are the key actors and what is their potential? What kind of support does the country need? How can the LIFE support mechanism help to bring all the relevant (and new) stakeholders together into a shared framework and process pf promoting literacy broadly? How can a new momentum on adult literacy be built and sustained in a country? UNESCO’s role and strategy will have to adjust to different situations of LIFE countries, which can be broadly classified into: (a) the poorest and aid dependant countries, driven by poverty reduction strategic plans, around which donor and government coordinated planning and review cycles are in place (e.g. Bangladesh, Benin, Ethiopia, Mali, Mozambique); (b) better-off middle-income countries (e.g. Brazil, China, India); and (c) post-war countries or countries in crisis and conflict (e.g. Afghanistan, Democratic Republic of the Congo, Eritrea, Iraq, Nepal, Sierra Leone, Sudan). UIL as the coordinating entity of LIFE has to make sure that support is mobilized above all for those countries that are most in need and ready to move forward. High levels of coordination and flexible responses are required to set up LIFE processes at the country level. Bringing together literacy stakeholders, facilitating exchange of experiences, ensuring an overview of the literacy situation (situation analysis), identifying entry points for policy dialogue and advocacy, building a shared framework and vision, agreeing on gaps that

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need to be addressed and developing a LIFE country framework or action plan, all this is part of the preparatory activities to get LIFE started. Drawing from the situation analysis, a national Literacy Dossier can be compiled and used as a powerful advocacy tool as well as baseline information for continuously monitoring literacy progress in the country. The facilitation of a national coalition of all stakeholders or other forms of a partnership structure that involve the commitment of high level politicians and celebrities can also help to strengthen literacy efforts. LIFE can only be successful if it is shared and carried by many partners. Building strong teams, partnerships and coordination mechanisms is one of the strategic tasks of the LIFE framework in order to mobilize the required support for literacy.

Coordination of LIFE As part of the UNESCO Education Sector Reform, the mandate for the overall coordination of UNESCO’s LIFE was transferred in mid-2006 from the Literacy Section at UNESCO Headquarters to the UNESCO Institute for Lifelong Learning (UIL), which is the specialized institute for adult literacy, non-formal education and adult learning within a lifelong learning perspective. In addition to the macro-coordination of LIFE through creating an enabling and facilitating process of continuous consultation and negotiation with all stakeholders, UIL is also engaged directly through providing its technical assistance to LIFE countries responding to specific demands. Within the UNESCO structure, field and cluster offices in (or responsible for) LIFE countries are at the forefront for implementing LIFE and for helping countries to strengthen existing literacy policies and programmes. LIFE focal points – usually the UNESCO education officers – coordinate LIFE-supported activities with a national focal point for LIFE, appointed by the Minister of Education and usually the Director of the Department for Non-formal Education and/or Literacy. A similarly important role is played by the regional LIFE focal point at each UNESCO Regional Bureau, who helps to identify existing experiences, capacities, needs, partners and a pool of consultants in order to organize technical support in specific areas agreed upon and in demand by LIFE countries, preferably within a South-South cooperation scheme. Another layer within the LIFE support structure consists of UNESCO’s specialized institutes (e.g. the UNESCO Institute for Statistics, the International Bureau of Education and the International Institute for Educational Planning), related divisions at Headquarters (e.g. Coordination of UN Priorities, Basic Education, Country Planning and Field Support) and the EFA Global Monitoring Report team. Since ‘‘LIFE is a key strategic framework for the implementation of the United Nations Literacy Decade’’ (UIL 2007:11), the Unit responsible for the UNLD at Headquarters is mainly taking care of coordinating with international and multilateral partners. In

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addition, UIL is mobilizing its literacy networks among international and government agencies, university and research institutions and NGOs, in particular in the participating LIFE and neighbouring countries.

Major achievements during 2006–2007 Regional consultation, planning and coordination meetings for LIFE implementation were held in March 2006 in Pakistan, Niger and Yemen and in December 2007 in Morocco and in January 2008 in Bangladesh and Mozambique. These meetings were also used for sharing experiences, information and knowledge on successful literacy policies and practices as well as for monitoring, networking and the strengthening of South-South-North partnerships. The 11 first-round LIFE countries were financially supported by UNESCO with budgetary and extra-budgetary funds to undertake activities in the areas of policy, advocacy, capacity-building and innovations. The first biennium was also used to build a facilitating coordination mechanism that provides a strong role to UNESCO Regional Bureaux, Field Offices, Institutes and Country Partner Institutions. UIL, in close consultation with the LIFE focal points, developed guidelines for the situation analysis, for in-built monitoring and evaluation systems, and for a refined implementation strategy. Along the lines of the four strategic areas for action, main activities and results are listed below. (a) Advocacy and communication to make literacy a priority on the agenda of different stakeholders and create a momentum for jointly accelerating literacy efforts Through a series of four regional conferences organized by UNESCO in support of global literacy in 2007 and other regional and national advocacy events, LIFE has become well known, even beyond the 35 selected countries. Those countries which have expressed their interest to be included into this initiative will certainly benefit from the experience, knowledge and resources generated in the framework of LIFE, as well from networks, partnerships and South-South-North exchanges. The LIFE Vision and Strategy Paper, which is available in six languages (English, French, Arabic, Spanish, Portuguese and Bangla) and has been revised and published in a 3rd edition, has been broadly disseminated in LIFE countries and among international partners. In addition, UNESCO has launched its web-based Literacy Portal, which provides basic information on LIFE and the main activities carried out within the framework of this initiative. A database on effective practice and research in literacy and numeracy is under construction and will be complemented by a network and online platform (‘‘LIFE-Line’’) for LIFE focal points and activists in order to communicate directly with each other, to exchange experiences and provide an effective platform for South-South cooperation.

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The results have revealed that major literacy programmes or campaigns are going on in a number of LIFE countries and LIFE has become well known. Many Member States have expressed their interest in being included in this initiative. (b) Capacity-building for the development of policies for sustainable and empowering literacy Country profiles on policies, practices and main challenges in the area of literacy have been developed by UNESCO for each LIFE country. Furthermore, financial and technical support was provided to Bangladesh, Egypt, Eritrea, Haiti, Mali, Mauritania, Morocco, Nepal, Nigeria, Pakistan, Papua New Guinea, Sudan, Senegal, and Yemen to carry out needs assessment studies or situation analysis that serve as a basis for strategic planning. This resulted in the renewal or improvement of literacy policies and strategies in a number of countries. In contrast to the widespread neglect of literacy, seven countries (Bangladesh, Egypt, Morocco, Niger, Nigeria, Pakistan and Senegal), which piloted the UNESCO National Education Support Strategy (UNESS) through the related UNESCO Field or Cluster Offices, have emphasized LIFE and literacy in their respective work plans for 2008– 2009. (c) Capacity-building for the delivery of empowering literacy programmes of good quality The implementation of extra-budgetary funded LIFE projects within the Capacity-Building Programme for Education for All (EFA) in Pakistan, Bangladesh, Egypt, Morocco, Senegal, and Niger (2006–2008), had a major impact within the framework of LIFE. To each of these first-round countries around one million dollars were made available in order to further strengthen capacities for literacy in areas such as advocacy for coordination and leadership for change, improving policy through innovative approaches, developing curriculum frameworks and learning materials with a life skills orientation, piloting Community Learning Centres (CLCs), promoting the use of modern Information and Communication Technologies (ICTs) as a means of increasing national delivery capacity, and establishing monitoring, evaluation and assessment systems. A series of international and regional workshops was also implemented, in which participants from LIFE countries were supported in concretizing their implementation strategies and strengthening their capacities for identifying, analysing and promoting innovative pedagogical approaches to literacy. As a result of these activities, capacities were strengthened for design, implementation and management of good quality literacy programmes, as well as for curriculum and material development, training of senior and middle-level management, assessment, monitoring and evaluation.

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(d) Sharing of knowledge and inspiring innovations to continuously improve literacy policies and practices The main findings and recommendations from in-depth studies on literacy policies and strategies, cost and financing, innovative approaches and content areas, use of ICTs and media, benchmarking, monitoring and evaluation were presented at international, regional and national conferences, seminars and workshops and also made available in print and electronic forms (http://www.unesco.org/uil/en/nesico/bamako/bamakores.htm). Several sub-regional workshops were carried out to develop and/ or strengthen capacities of trainers of literacy facilitators on community-based approaches. A literacy database is currently under construction with more research on effective policies and practices in literacy, numeracy and non-formal education. In the future this will also include in-depth reports and impact studies on innovative approaches – for example, to literacy in bilingual or multilingual contexts – and good practice. This has resulted in a better understanding of literacy as the foundation of lifelong learning and provided decision-makers and practitioners with evidence-based information on what works in literacy and what does not.

First lessons learned and key challenges identified Each country started from a different situation and has initiated LIFE in its own way. Flexible approaches that streamline into national agendas work best in terms of creating a strong ownership sense. LIFE-countries do not need to wait for ‘‘their turn’’ in order to join the initiative. In several countries that are included in the second (2008) or third (2010) phase of LIFE – such as Brazil, China, India or Indonesia – major literacy programmes or campaigns are going on. Other countries belonging to this category have put in place policies to mobilize their own resources and have launched large literacy initiatives in the framework of LIFE, such as Burkina Faso, Ethiopia and Mozambique. Therefore, one of the major lessons learned is that LIFE implementation does not depend only on access to UNESCO grants. On the other hand, the extra-budgetary funded LIFE projects acted as strong motivating factors to kick start LIFE processes in the countries that benefited from this. UNESCO has to undertake considerable efforts to make LIFE processes sustainable. Laying solid foundations during the first steps of situation analysis and agreement upon a LIFE Country Support Plan will help to achieve this. The understanding of LIFE and the quality of the processes tended to be hampered by a lack of technical support. It is not easy for local stakeholders to think ‘‘out of traditional boxes’’. Without substantial inputs from ‘‘outsiders’’, the needs analysis processes tended to

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produce ‘‘more of the same’’. In addition, there was uneven participation from civil society as well as from private sector in many cases. Preparatory activities of LIFE were largely government-driven with some support from academic institutions. UNESCO is usually accepted as an independent ‘‘broker’’ with better possibilities to bring new partners ‘‘on board’’ and together. Translating LIFE, as an international initiative in the framework of the UNLD, EFA, DESD and MDGs, into country-led concrete actions is one of the major challenges. How can the ‘‘added value’’ of LIFE be made palpable to a variety of partners and motivate them to take related action? Other key challenges include how LIFE can be effectively used as a facilitating framework at the local and country levels and how it can make a difference to learners. Communicating with governmental actors and a wide group of stakeholders in order to develop realistic expectations and to build a common understanding on the vision and strategy of LIFE for accelerating literacy efforts is posing a continuous challenge for LIFE. Another challenge is to design an effective monitoring and evaluation strategy and strengthen capacities for its implementation. Responding in a timely way to specific requests for technical and financial assistance from the LIFE countries is challenging UNESCO and other international and bilateral partner organizations. This includes the need for strategic sequencing and harmonizing planning processes within UNESCO and by other UN agencies, donor organizations and the LIFE countries. Policy-makers and government personnel tend to seek quick solutions to national literacy problems instead of devising holistic and longer-term strategies embedded in national development and education policies. Advocating for a broader notion of literacy and building an integral system of learning opportunities that ensure – at least – basic and continuing education for all adults, as established in Dakar Goal 4, constitutes a permanent challenge. This includes the need to strengthen sustainable commitment and political will that translates into increased funding and action with a longer-term perspective. Other challenges are related to research and knowledge sharing such as the need to obtain clear and reliable literacy data on the literacy situation and determine progress made and to facilitate knowledge-sharing among LIFE countries as well as with other countries and partners. It is not easy to generate participatory processes and democratic structures, to promote partnerships between governmental and non-governmental actors and to bring ‘‘on board’’ unusual partners such as from the community, local governments or private sector. At the regional and international levels, it will be necessary to create mechanisms that bring about mutual support among LIFE countries and inter-country partnership in the recognition that the 35 LIFE countries are in need of priority support and solidarity from all the other countries.

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The way forward From 2008 LIFE will be in its second phase, with 13 countries officially starting their processes. At the same time, all 35 countries have been invited to immediately implement LIFE. This extension of course, involves additional challenges. At the same time it can draw from rich experiences and lessons learned. Setting up committed teams and sustainable LIFE processes at country level in preparing or implementing LIFE country support plans will be at the centre of UNESCO’s efforts. Enhancing advocacy and communication, partnership building, fundraising and dissemination of good practice at regional level in support of literacy in LIFE (and other) countries are other priority activities to further UNESCO’s initiative. This also includes the strengthening of national capacities for programme design, management and implementation as well as for piloting innovative approaches to literacy through implementing LIFE projects within the EFA extra-budgetary programme and LIFE country support plans; the facilitation of South-South cooperation on different themes (i.e. family literacy, HIV/AIDS education, literacy teacher training); the sharing of knowledge and inspiring innovations through the Literacy Portal, Literacy Database and the LIFE Forum (‘‘LIFE-Line’’) hosted on the UNESCO website; and the carrying out of an effective monitoring and evaluation of the LIFE process at country and at international level. The LIFE implementation strategy as a shared responsibility requires commitment of all with special emphasis on advocacy, resource mobilization, communication and innovation to meet the expectations of the most marginalized populations.

References UNESCO. 2000. The Dakar Framework for Action: Education for All – Meeting our Collective Commitments. Report of the World Education Forum, Dakar. Paris: UNESCO. ——. 2004. The Plurality of Literacy and its Implications for Policies and Programmes. UNESCO Education Sector Position Paper. Paris: UNESCO. ——. 2005. EFA Global Monitoring Report 2006. Education for All: Literacy for Life. Paris: UNESCO. UNESCO Asia and Pacific Regional Bureau for Education/UNESCO Institute for Lifelong Learning. 2008. Regional Meeting of Asia and Pacific LIFE Countries, 21–24 January 2008, Dhaka, Bangladesh. Bangkok: UNESCO. UNESCO Institute for Lifelong Learning (UIL). 2007. Literacy Initiative For Empowerment 2006–2015. Vision and Strategy Paper. 3rd ed. Hamburg: UIL. ——. 2008. Maputo Strategic Platform for LIFE. Flyer, Hamburg: UIL. United Nations. 2001. Resolution on Literacy Decade. Adopted by the General Assembly, 88th Plenary Meeting. New York: United Nations.

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United Nations. 2005. UN Millennium Development Goals. New York: United Nations. http://www.un.org/millenniumgoals/ (accessed 22 June 2008). United Nations General Assembly. 2002. United Nations Literacy Decade: Education for all: International Plan of Action: Implementation of General Assembly Resolution 56/116. Paris: UNESCO.

Websites UIL: www.unesco.org/uil, http://www.unesco.org/uil/en/focus/litinforemp.htm and http://www.unesco.org/uil/en/nesico/bamako/bamakores.htm. UNESCO Literacy Portal: www.unesco.org/education/literacy and http://portal.unes co.org/education/en/ev.php-URL_ID=53813&URL_DO=DO_TOPIC&URL_SECT ION=201.html.

The author Ulrike Hanemann is an educationist by background and is Senior Programme Specialist at the UNESCO Institute for Lifelong Learning (UIL) in Hamburg, Germany. She specializes in the areas of literacy, non-formal education and adult learning with a lifelong learning perspective. Currently she is coordinating LIFE. Contact address: UNESCO Institute for Lifelong Learning (UIL), Feldbrunnenstrasse 58, 20148 Hamburg, Germany. E-mail: [email protected].