There are not a lot of people who get excited about international literacy and numeracy data. After all, the Programme for the International Assessment of Adult Competencies (PIAAC) survey is not exactly Friday night entertainment.
However, while its findings might not come with popcorn or a gripping plot, they do offer a crucial insight into how well the global adult population, including Aotearoa New Zealand, is equipped for work, life, and everything in between.
What is the PIAAC Survey?
Often referred to as the ‘literacy and numeracy census of the world’, PIAAC measures how adults apply essential skills in real-world contexts. The report looks at the literacy and numeracy skills of people aged 16 to 65.
It doesn’t just measure how well people can read or count but also how they understand complex information, solve problems, and make financial decisions. It’s not just about passing a test; it’s about whether we, as a country, are setting people up to thrive.
Produced once every 10 years, the latest PIAAC survey (2023) has highlighted some real concerns around Aotearoa New Zealand’s literacy and numeracy rates. At the same time, there are still some wins to celebrate.
Why should New Zealanders care about PIAAC?
It’s tempting to file PIAAC under “education policy” and move on. Still, literacy and numeracy rates don’t just reflect what happens in classrooms—they affect every part of our lives. The data gathered in the PIAAC survey provides crucial information for understanding the capabilities of Aotearoa New Zealand’s workforce and our society as a whole.
Economic implications
Everyone should have access to education in order to gain opportunities that impact their life outcomes. Strong literacy and numeracy rates mean a more productive workforce, smarter decision-making, and fewer costly mistakes.
Community impact
The data is clear—higher literacy leads to better health outcomes, financial stability, and civic engagement. It’s not just about reading books; it’s about navigating life effectively and working together collectively as a society to uplift and support each other’s well-being and success.
The future of New Zealand
Investing in adult skills isn’t just about ticking an Organisation for Economic Co-operation and Development (OECD) box—it’s about ensuring we remain competitive in a rapidly evolving economy. Right now, automation and digital transformation are shifting job markets. If we don’t level up, we’ll be playing catch-up while other nations surge ahead.
Key takeaways from the PIAAC 2023 Report
The Ministry of Education strongly suggests that the PIAAC 2023 results be interpreted cautiously, particularly when comparing them to the results of the previous survey in 2014 and those of other countries.
Due to a limited sample size, it’s important to note that Aotearoa New Zealand’s results may not represent the population as a whole. Just under half (48%) of people selected for the 2023 Survey agreed to do so. This compares with just under two-thirds (63%) in 2014.
Challenges identified
We’re seeing gaps concerning foundational literacy and numeracy, particularly among specific demographics. Young adults who’ve come through the education system more recently have unfortunately become a standout. The bottom line is this: some of our newer graduates are struggling with essential skills, and that’s just the surface.
Māori and Pacific communities are disproportionately affected, facing systemic barriers to skill acquisition. Productivity is also taking a hit, with gaps in numeracy and literacy leading to inefficiencies in workplaces across the country. With younger people entering the workforce lacking essential skills, this decline is not just persisting—it’s increasing.
The risk
Without action, these gaps translate into lower productivity, limited career progression, and economic drag. The global workforce is changing fast, and if we don’t keep up, we risk falling behind in ways that affect everything—from innovation to income levels.
For Māori and Pacific communities, these skill gaps contribute to persistent inequities in employment and earnings. The challenge is even more pressing for younger workers who are entering a workforce that demands skills they haven’t been adequately equipped with. As for businesses, the loss in productivity from a workforce struggling with foundational skills compounds year after year.
On a Positive Note
Some of our adults are performing well, particularly in problem-solving areas in technology-rich environments. The results show we have some real adaptability and critical thinking strengths worth celebrating.
The bigger picture
Ako Aotearoa notes that the data supports a trend of decreasing literacy and numeracy levels, particularly among lower-income groups and vulnerable adult demographics, and an increasing proportion of school leavers entering the tertiary sector with lower skills. This issue is highlighted in the outcomes of the Programme for International Student Assessment (PISA), the National Certificate of Educational Achievement (NCEA), the Trends in International Mathematics and Science Study (TIMSS), and the Progress in International Reading Literacy Study (PIRLS).
For example, NCEA 2024 results within lower-income schools were concerning, with half of participating students failing to meet NCEA Level One reading and two-thirds failing Level One numeracy. Provisional 2025 results suggest similar outcomes. The 2022 PISA results found a significant performance gap within socio-economic status and highlighted a decline in lower-income schools' reading and numeracy levels. Furthermore, the 2023 TIMSS also indicated a concerning increase in performance range, meaning a greater gap between higher and lower-achieving students. Finally, the 2021 PIRLS identified a widening achievement gap in reading skills.
In addition to aligning with these studies, the PIAAC results are supported by ongoing feedback we’ve received from the educational and business sectors. These sectors have identified a growing issue within trades training, with apprentices experiencing difficulties with tasks ranging from reading measuring tapes to developing higher-level skills such as applying the Pythagoras theorem.
Feedback also suggests unusually high drop-out rates of young adults engaging with online distance learning. Again, the difficulty is reported as a consequence of serious literacy and numeracy difficulties.
Where do we go from here?
Here’s the thing: data alone doesn’t change anything. What matters is what we do with it. The PIAAC 2023 report gives us a wake-up call, not a final verdict. The numbers tell us where we stand—but the real question is, where to next?
We can either keep talking about these challenges every survey cycle or start embedding real solutions in workplaces, tertiary education, and community learning. Literacy and numeracy skills shouldn’t just live in education courses; they should be woven into every subject, every workplace training, and every life skill program.
We can also get better at making literacy and numeracy more engaging. Getting tertiary educators to embed these skills into subject areas can feel like a challenge. What we need are strategies that make it natural, relevant, and rewarding.
And finally, we need to shift the national conversation. Literacy and numeracy aren’t just educational buzzwords—they’re the keys to unlocking economic resilience, social mobility, and a stronger Aotearoa New Zealand.
We need to get moving. Not just toward better stats but also toward a future where every adult in Aotearoa New Zealand has the skills they need to thrive.
Click here for the full report.
With thanks to Graeme Smith and Dr Damon Whitten for their contributions to this post.
Ako Aotearoa is a government-funded organisation committed to supporting the country’s tertiary sector teachers, trainers, and educators to be the best they can be for the success of all learners.