India’s Quest for 100% Literacy – Bihar’s Reluctance and the ULLAS Challenge

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• India has set an ambitious target of achieving 100% literacy by 2030, in line with the National Education Policy (NEP) 2020 and UN Sustainable Development Goals (SDG-4: Quality Education). 
• To realise this, the Union Government launched the ULLAS – Understanding Lifelong Learning for All in Society.
• However, the non-participation of Bihar—one of India’s least literate states—has emerged as a major obstacle.

Overview of the ULLAS Scheme

• Launched: It was launched in 2022 by the Union Education Ministry in line with the NEP 2020.
• Target group: Non-literate persons above 15 years of age.
• Methodology to identify beneficiaries:
  • Door-to-door identification of non-literates
  • Training in basic literacy and numeracy (Class 3 level)
  • Online/offline learning modes
  • Mandatory assessment and certification
• Expanded definition of literacy (as per August 2024 guidelines):
  • Reading, writing, and numeracy with comprehension
  • Digital literacy, financial literacy, and life skills
• Benchmark: 95% literacy treated as equivalent to 100% literacy.

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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 UT.
• Assessment of impact: Gains likely to reflect in upcoming Census data.

Bihar – A Major Concern

• Literacy statistics:
  • PLFS 2023–24: 
    • Bihar literacy rate was 74.3% (2nd lowest after Andhra Pradesh – 72.6%), with male literacy of 82.3%, and female literacy of 66.1%.
    • Non-literates (15–59 age group): Nearly 2 crore, including 1.32 crore women.
  • Historical trend: Census 2011 literacy rate was 61.8% (lowest in India).
• Financial and administrative issues:
  • Funds released under ULLAS (2023–24): A total amount of about Rs 35 crore was approved (Central share: ₹21 cr; State: ₹14 cr). The first instalment of 75% of the approved amount–Rs 16 crore–was released as the central share to Bihar in 2023.
• Issues flagged by Centre:
  • Funds not transferred to Single Nodal Agency (SNA)
  • No annual plan submitted
  • Non-utilisation of funds
  • 7% interest penalty applicable on delayed transfers (as per Department of Expenditure norms)

Bihar’s Stand – Akshar Anchal Scheme

• It is a State-run literacy programme in operation for about 15 years.
• Focus groups:
  • Dalits, Mahadalits, minorities
  • Extremely Backward Classes (EBCs)
  • Women (15–45 age group)
• Features:
  • Ensuring schooling for children in the 6-14 age group, and basic literacy and numeracy among women in the 15-45 age group. 
  • Women of the targeted groups take a test on basic literacy organised by the state every six months.
• State’s argument:
  • The scheme attracts larger financial outlay than ULLAS.
  • The existing institutional mechanism makes ULLAS redundant.

Key Challenges and Way Forward

• Centre–State coordination deficit: Union Education Minister urged Bihar CM to take immediate action, emphasised Bihar’s role in achieving national literacy goals, and directed Bihar to utilise released funds.
• Duplication vs integration of literacy schemes: Convergence of schemes – Align Akshar Anchal with ULLAS framework.
• Gender gap in literacy, especially in Bihar: Focus on female literacy as a multiplier for social development.
• Underutilisation of central funds: Incentivise participation through performance-linked funding.
• Political and administrative inertia: Strengthen cooperative federalism in education governance.
• Monitoring and outcome-based evaluation: Digital and community-based learning models to reach adult learners. Robust monitoring mechanism with third-party assessments.

Conclusion

• The success of India’s mission to achieve 100% literacy by 2030 critically depends on bringing laggard states like Bihar on board. 
• A cooperative, flexible, and outcome-oriented approach—rooted in NEP 2020’s vision of lifelong learning—is essential to transform literacy from a statistical target into a social reality.

Source: IE