After a brief literature review, this paper examines the problem of defining literacy. It emphasizes the importance of using a flexible definition based on learners' needs and goals in social contexts in determining the goals of literacy instruction. In order to illustrate the wide variation in not only students' levels of English-language proficiency but also in their experience with literacy, different types of learners who may attend adult English literacy programs are described. An overview is provided of the types of programs available to immigrants in the United States, as well as some of the obstacles that may discourage adults from participating in these programs. Finally, the paper discusses a number of learner-centered approaches to English-as-a-Second-Language (ESL) literacy instruction that have been used for helping limited English proficient adults acquire skills that will empower them socially, politically, educationally, and economically. It is concluded that literacy educators must continue to investigate and use approaches that utilize teacher/learner collaboration. (Contains 30 references.) (Adjunct ERIC Clearinghouse on Literacy Education) (LB)