This thesis considers how statistics about adult literacy have produced a new transnational norm of what it means to “be literate” and asks what has been produced by demarcating a calculable threshold of capable literate conduct. Analyzing literacy as a form of conduct enables investigation of the political dimensions of governmental interest in literate conduct and consideration of what subjects, relationships and forms of power are produced by various problematizations. Genealogical analysis of the currently dominant governing rationality, what is termed the psychometrological regime, revealed that Level Three of the International Adult Literacy Survey (IALS) has been constructed as a threshold between people who can act as autonomous, entrepreneurial subjects and those who cannot. In the case of Ontario, this threshold becomes an indicator of “employability” and produces a singular and problematic population who are subjected to coercive educational interventions. Tactics and techniques in the province’s Literacy and Basic Skills (LBS) policy construct literacy programs as sites responsible for transforming subjects below the threshold into human capital assets; this represents a significant departure from the original mission of community-based agencies. Data from interviews with educators in these programs indicate that adult literacy workers occupy an uneasy position between the demands of policy, their pastoral relationships with learners, and the complex realities faced by adults who struggle with print. While these educators may choose to disobey some policy imperatives they nonetheless act, at times unwittingly, as agents of governance. By highlighting the impossibilities produced by the neoliberal problematization of literacy, and the negotiations that literacy workers perform in the face of such dilemmas, this research contributes to thinking through how to transform coercive and authoritarian tendencies currently governing literate conduct.

This thesis considers how statistics about adult literacy have produced a new transnational norm of what it means to “be literate” and asks what has been produced by demarcating a calculable threshold of capable literate conduct. Analyzing literacy as a form of conduct enables investigation of the political dimensions of governmental interest in literate conduct and consideration of what subjects, relationships and forms of power are produced by various problematizations. Genealogical analysis of the currently dominant governing rationality, what is termed the psychometrological regime, revealed that Level Three of the International Adult Literacy Survey (IALS) has been constructed as a threshold between people who can act as autonomous, entrepreneurial subjects and those who cannot. In the case of Ontario, this threshold becomes an indicator of “employability” and produces a singular and problematic population who are subjected to coercive educational interventions. Tactics and techniques in the province’s Literacy and Basic Skills (LBS) policy construct literacy programs as sites responsible for transforming subjects below the threshold into human capital assets; this represents a significant departure from the original mission of community-based agencies. Data from interviews with educators in these programs indicate that adult literacy workers occupy an uneasy position between the demands of policy, their pastoral relationships with learners, and the complex realities faced by adults who struggle with print. While these educators may choose to disobey some policy imperatives they nonetheless act, at times unwittingly, as agents of governance. By highlighting the impossibilities produced by the neoliberal problematization of literacy, and the negotiations that literacy workers perform in the face of such dilemmas, this research contributes to thinking through how to transform coercive and authoritarian tendencies currently governing literate conduct.