Saakshar Bharat Mission

Saakshar Bharat Mission was a centrally sponsored adult education programme launched by the Government of India in 2009 to promote literacy, empowerment, and lifelong learning among adults, particularly women, disadvantaged groups, and rural populations. The mission sought to enhance functional literacy, increase adult participation in learning, and strengthen the broader framework of inclusive education. As a major component of India’s efforts to reduce illiteracy and achieve gender equity in education, it represented a significant policy intervention in the field of adult learning and community-based literacy empowerment.

Background and objectives

India has historically faced challenges related to adult illiteracy, especially among women, scheduled castes, scheduled tribes, and marginalised rural communities. Recognising literacy as a fundamental requirement for social participation and economic mobility, the Saakshar Bharat Mission was introduced to build on earlier adult education programmes such as the National Literacy Mission and Total Literacy Campaigns.
Its primary objectives included:

• improving literacy levels among adults aged 15 years and above,
• focusing on female literacy to achieve gender balance,
• providing opportunities for continuing education and skill development,
• strengthening community learning centres as hubs of local knowledge,
• promoting a literate environment supportive of lifelong learning.

By addressing not only reading and writing skills but also numeracy and functional literacy, the mission aligned with national development goals.

Key components and programme structure

The mission adopted a decentralised and participatory approach anchored at the village level. Its implementation relied on a combination of literacy campaigns, volunteer-driven teaching, and community-based monitoring.
Major components included:

• Basic literacy programmes offering foundational reading, writing, and numeracy skills.
• Vocational and skill-based content to link literacy with livelihood improvement.
• Lifelong learning opportunities through continuing education centres.
• Community involvement via panchayats, local bodies, and self-help groups.
• Voluntary teaching force, including trained literacy educators and community resource persons.

The mission emphasised functional literacy, ensuring that learners could apply skills in daily life—for example, reading instructions, managing finances, or understanding health information.

Target groups and geographical coverage

The mission primarily targeted adults who lacked basic literacy skills, with special emphasis on women. States and districts with low female literacy rates were prioritised for coverage.
Focus groups included:

• women from disadvantaged households,
• members of scheduled castes and scheduled tribes,
• minorities and backward communities,
• rural populations with limited educational access,
• neo-literates requiring reinforcement of literacy skills.

The mission covered large parts of rural India, especially those regions with persistent educational disparities.

Institutional framework and implementation strategy

Saakshar Bharat Mission was implemented through a multi-tiered institutional structure involving national, state, district, and village-level bodies.
Key institutional elements included:

• National Literacy Mission Authority (NLMA) overseeing overall administration and policy direction,
• State Literacy Missions coordinating state-level implementation,
• District Lok Shiksha Samitis supervising district activities,
• Adult Education Centres (AECs) housed in Gram Panchayat buildings for local delivery,
• Volunteer teachers trained to conduct literacy classes and assessments.

Community participation formed the core of the strategy, ensuring local ownership and contextual adaptation.

Assessment and certification

The mission introduced a structured assessment system to evaluate learning outcomes. The National Institute of Open Schooling (NIOS) played a central role in conducting assessments and certifying learners who successfully demonstrated functional literacy competencies.
Assessment focused on:

• basic reading ability,
• writing capability,
• simple arithmetic and numeracy,
• practical application of literacy in daily life.

Certification provided motivation for learners and strengthened the programme’s credibility.

Achievements and contributions

Saakshar Bharat Mission made substantial contributions to adult literacy in India, particularly by expanding access for women and rural learners.
Key achievements included:

• significant rise in adult literacy levels in targeted districts,
• substantial increase in female participation, supporting gender parity,
• development of vibrant community learning environments,
• empowerment of neo-literates through skill-linked learning,
• strengthened institutional mechanisms for adult education.

The mission also revitalised interest in adult learning by integrating functional content relevant to livelihoods, health, financial literacy, and civic participation.

Challenges and limitations

Despite its contributions, the mission encountered several challenges.
Notable limitations included:

• uneven implementation across states and districts,
• shortage of trained educators and reliance on voluntary instructors,
• limited infrastructural support in some Adult Education Centres,
• inconsistent monitoring and assessment mechanisms,
• difficulty in sustaining literacy gains without continuous learning opportunities.

Moreover, socio-cultural barriers, economic constraints, and mobility restrictions for women remained significant obstacles in certain regions.

Transition and policy evolution

Saakshar Bharat Mission continued until 2018, after which the focus of adult education policy shifted within India’s broader educational reforms. Subsequent developments emphasised:

• foundational literacy under new education frameworks,
• digital education and community learning,
• skill-based training aligned with national development priorities,
• integration of adult learning into lifelong learning strategies.

The experience of Saakshar Bharat provided valuable insights for designing future literacy initiatives, highlighting the need for sustained community engagement and robust institutional support.

Importance in India’s literacy landscape

The mission holds an important place in India’s literacy movement by:

• advancing national literacy goals,
• reducing gender disparities,
• strengthening local institutions for continuing education,
• promoting inclusive and life-oriented learning,
• contributing to socio-economic empowerment of rural populations.