Concepts and Indicators of Mathematical Literacy in Lower Primary Education: An Integrative Review

Abstract

Mathematical literacy became widely known after the OECD introduced PISA in the 2000s. In Indonesia, the importance of mathematical literacy is reflected in several education policies, including Kurikulum 2013, Kurikulum Merdeka, Asesmen Kompetensi Minimum, Gerakan Literasi Nasional, and Gerakan Numerasi Nasional. However, research on mathematical literacy remains strongly influenced by PISA-oriented frameworks designed for 15-year-old students. Existing reviews also do not systematically explain how mathematical literacy concepts and indicators are defined for lower primary students aged 7 to 9 years. Addressing this gap, this integrative review examines how international literature and Indonesian policy define mathematical literacy or numeracy for lower primary education and identifies indicators used to measure primary students’ mathematical literacy. This study uses Cooper’s five‑stage method to analyse empirical studies and policy documents. The review shows that most definitions adopt broad PISA-based wording, particularly the capacity to formulate, employ, and interpret mathematics, without sufficient developmental adaptation for younger learners. Indonesian policies define numeracy as the use of mathematics to solve everyday problems, interpret information, and make reasoned decisions. Indonesian policies frame mathematical literacy as solving practical everyday problems using basic maths and interpreting graphs. Findings reveal that there is no validated indicator set is uniquely designed for lower primary. The discussion shows that the current definitions that are taken from older population without any clear indicator for younger children post a risk of the difficulty in making the assessment or lesson that appropriate for younger children.  Accordingly, we conclude that a coherent, grade‑specific framework for lower primary mathematical literacy is urgently needed.