This report explores one avenue for health education and promotion for audiences with low literacy levels: embedding empowerment health education directly in adult literacy programs. This approach emerged through participatory action research (PAR). The four sections correspond to the four questions around which the PAR process organizes the research. Intended audiences include public health and adult literacy practitioners, policy makers, and funders. Section I, "What is the problem?," provides multiple perspectives from public health, adult literacy education, and the target community. It cites literature supporting these concepts, summarizes research connecting literacy level and health status, and assesses social and political factors. Section II, "What are we going to do about the problem?," provides a description of how two major health education programs were carried out by a student action health team in adult literacy classrooms. Section III, "What did we learn from our action?," assesses what was learned in the programs, commonalities of findings, and how they merge to form a guiding model. The model is presented as a framework with fundamental components of empowerment health education in adult literacy. Section IV, "What do we need to share with others?," reviews research findings, implications for public health and adult literacy education policy, and recommendations for future funding. Finally, it includes suggestions for adult literacy teachers and public health educators for getting started. (Contains 140 references and instruments.) (YLB)