The causal relationship among adult literacy, social evolution, and economic development has traditionally made adult literacy programs a priority in developing nations. To develop effective adult literacy programs, educational planners must consider a variety of linguistic, cultural, economic, and political needs. First of all, planners must define what it means to be literate in a particular culture or country. Frequently, planners of functional literacy programs will determine that literacy programs must be supplemented by basic educational programs emphasizing work habits, motivation, and teamwork. In other areas, adult literacy is perceived as a means to enhance civic responsibility, facilitate political and ideological changes, and enhance social as well as individual development. As more attention is given to the educational needs of adults, different types of government and private organizations are beginning to sponsor literacy programs. The roles of policy, planning, and implementation in adult education present a number of major issues that need systematic review. Included among these are the following: determination of whether it is more appropriate to conduct mass literacy campaigns or to provide basic relevant skills to selected categories and classes of adults; definition of the relationship of adult literacy programs to formal education; and delineation of the role of post-literacy programing. (MN)