On May 20, 2025, Mizoram was officially declared the first Indian state to achieve full functional literacy, nearly 34 years after Kerala’s declaration of being “fully literate” in 1991. Both states claim this important milestone, but differences in the definitions and measurement methods explain the debate.
What is Functional Literacy?
Functional literacy means the ability to read, write, and understand any language well enough to manage daily tasks. Kerala’s 1991 literacy declaration was based on this standard, set by the National Literacy Mission (NLM) launched in 1988. NLM considered a state fully literate if over 90% of its population was self-sufficient in basic reading, writing, and arithmetic.
In 1991, Kerala crossed this 90% threshold, with a literacy rate of 90.9%, according to the census.
New Literacy Standards Under NILP
Mizoram’s recent achievement is recognized under a new framework—the New India Literacy Programme (NILP), also called ULLAS – Nav Bharat Saaksharta Karyakram, introduced in 2022. NILP sets a higher standard for literacy and includes foundational literacy, numeracy, life skills, vocational training, and continuing education.
According to the 2022 Periodic Labour Force Survey (PLFS), Mizoram leads all Indian states with a literacy rate of 98.4% for those aged five and above. Kerala, in comparison, recorded 91.7% literacy in the same survey.
Key Differences in State Literacy Targets
Under NILP, states set their own targets. Mizoram focused on foundational literacy for the 15–35 age group and identified 3,026 non-literates through a door-to-door survey in 2023. With the help of about 290 volunteer teachers, including educators and students, Mizoram managed to achieve over 95% literacy, surpassing the Union Ministry of Education’s benchmark for full literacy.
Kerala, on the other hand, set a target of 85,000 learners under NILP. The state is redefining literacy to include digital literacy, constitutional awareness, civic rights, and social literacy, reflecting modern demands beyond just reading and writing.
Kerala’s Broader Vision of Literacy
O.G. Oleena, Director of Kerala State Literacy Mission, explains that today literacy means much more. It includes knowledge of democratic rights, digital skills, health literacy, environmental awareness, and cultural understanding. Kerala is working toward full digital literacy and aims to make its society inclusive with no “islands of illiteracy.”
Challenges in Maintaining Literacy
Kerala acknowledges that literacy rates fluctuate due to factors like population mobility and migration. Some people who were once literate may slip back into illiteracy, making literacy a continuous effort rather than a one-time achievement.
Conclusion
While Kerala was the first to declare full literacy under the NLM in 1991, Mizoram now leads under the stricter, updated NILP framework with a literacy rate surpassing all other states. Both states demonstrate strong commitment to literacy but approach it through different lenses reflecting changing times and needs.
