Mizoram or Kerala: Who achieved 'full literacy' first? NILP, Functional Literacy explained

On May 20, Mizoram was declared the first state in India to achieve full functional literacy. Interestingly, this comes nearly 34 years after Kerala was declared a “fully literate” state on April 18, 1991. Functional literacy—defined as the ability to read and write with understanding in any language—was also the benchmark during Kerala’s declaration in 1991.

So, why do both states lay claim to a seemingly similar milestone?

When the National Literacy Mission (NLM) was launched by the Government of India in 1988 to eradicate illiteracy and promote functional literacy among adults, it defined a region or state as fully literate if over 90% of its population had attained self-sufficiency in reading, writing, and basic arithmetic.

Kerala’s declaration of full literacy in 1991 was based on these NLM parameters. That year, the census recorded Kerala’s literacy rate at 90.90%, just crossing the NLM threshold. In contrast, Mizoram’s recent declaration is based on a new set of criteria under a different framework—the ULLAS – Nav Bharat Saaksharta Karyakram, also known as the New India Literacy Programme (NILP).

According to the last census conducted in 2011, Kerala was the most literate state in India, with a literacy rate of 93.91 per cent, closely followed by Lakshadweep (92.28 per cent) and Mizoram (91.58 per cent). However, by the time the New India Literacy Programme (NILP) was launched in 2022, Mizoram had surpassed all other states in terms of literacy rate. Among individuals aged five and above, Mizoram recorded a literacy rate of 98.4 per cent, followed by Lakshadweep (94.8 per cent) and Nagaland (94.4 per cent), according to the 2022 Periodic Labour Force Survey (PLFS). Kerala, in comparison, recorded a literacy rate of only 91.7 per cent in the same survey.

Notably, under the NILP, different states set their own targets as part of the centrally sponsored scheme. The programme was approved by the Union government with a financial outlay of ₹1,037 crore. In addition to foundational literacy and numeracy, the scheme includes four other components: critical life skills, vocational skills development, basic education, and continuing education. Mizoram’s declaration of full literacy is based on the Foundational Literacy and Numeracy Assessment Test components.

Mizoram’s initial number of targeted learners was 6,300, and the state’s focus was primarily on the 15–35 age group. A door-to-door survey conducted by Cluster Resource Centre Coordinators across the state in August–September 2023 identified 3,026 non-literates. Of these, 1,692 individuals actively engaged in teaching-learning activities. Around 290 volunteer teachers—including students, educators, resource persons, and CRCCs—came forward to lead the initiative in the northeastern state. Based on this progress, Mizoram was declared to have crossed the threshold for full literacy—defined by the Union Ministry of Education as 95 per cent. The PLFS survey for 2023–24 also reports Mizoram’s literacy rate at 98.2 per cent.

Meanwhile, under NILP, Kerala set a target of 85,000 learners. During the 2022–23 and 2023–24 period alone, the State Literacy Mission identified 92,279 non-literates through surveys and brought 85,000 of them into classrooms. A total of 12,050 volunteers were engaged to teach them. By December 2023, 58,428 individuals had passed the literacy examinations. Aiming to make Kerala fully literate, the mission received approval in the 2024–25 financial year to implement the third phase of the ULLAS initiative, targeting literacy for an additional 92,000 people.

However, A.G. Oleena, Director of the Kerala State Literacy Mission, told THE WEEK that the state is now putting forward a new definition of literacy—one that goes beyond the traditional understanding of reading, writing, and speaking. “Today, literacy also includes awareness of constitutional rights, democratic rights, and the right to live with dignity. This is the broader definition we are adopting,” she says. “In today’s digital age, where digital signatures and digital knowledge are essential, those without such awareness cannot fully participate in society. That’s why we are moving toward full digital literacy. Kerala is currently at the stage of declaring full digital literacy, and that is where we are focusing our efforts. We’re also addressing social literacy, cultural literacy, historical literacy, environmental literacy, and health literacy—all as part of a comprehensive concept tied to human and civic rights. Each of these areas has corresponding programmes in Kerala.”

Interestingly, Kerala state machinery acknowledges that some individuals who were made literate in earlier campaigns have since returned to a state of illiteracy. “It’s an ongoing process, and the system needs to remain open and adaptive,” Oleena says. She also noted Kerala's high influx of people from other regions. “Many of these individuals are in transit—floating populations who stay only temporarily. Achieving 100 per cent literacy isn’t easy. Even in developed nations, this remains an elusive goal. Literacy rates will fluctuate—they rise, dip, and rise again. That reality applies to Kerala as well.”

Kerala has adopted a model under which the NILP is being implemented with the involvement of university and college students across the state.

“We have written to all vice-chancellors in Kerala, and they are responding positively,” said Oleena. “So, while we carry this movement forward on one side, on the other, Kerala continues to evolve into a knowledge society. Alongside this, we are working to ensure that no individual is left behind in ignorance—that there are no remaining islands of illiteracy.”