Though most readers of this listserve know the US system, the following 
gives a basic background for those who do not know the system.

In 1998, the government established the Workforce Investment Act (WIA) to 
consolidate more than 50 employment, training, and literacy programs into 
three block grants to states to be used for adult education and family 
literacy, disadvantaged youth, and adult employment and training.

In addition to its specific authorization of adult education services, WIA 
encourages the coordination of efforts across employment, training, and 
adult basic education programs.  This coordination is fostered by 
"one-stop" centres, local agencies within each state through which adults 
can gain access to an array of job training, education, and employment 
services. WIA's focus on preparing people for employment and on family 
literacy does not necessarily diminish the importance of services geared 
toward adults pursuing their education for other purposes, such as 
citizenship or personal improvement. However, these outcomes are considered 
secondary. The primary outcomes are learning gains, measured by 
standardized tests, and employment.

The basic skills component of WIA is funded through federal and state funds 
and administered by state agencies that fund programs that provide 
services. The proportion of state funding varies. WIA requires each state 
to match the federal share with at least 25% funding. However, most states 
match the federal share with an equal amount of funding. Only ten states 
greatly exceed the equal funding level, but since they include states with 
large populations, total state funding is almost three times the federal 
funding level. Total state and federal funding is around $2 billion per 
year.

Some programs follow a classroom format, some use one-on-one tutoring, and 
some combine the two approaches to instruction.  Many large programs are 
able to offer classes at different skill levels, while smaller programs can 
only offer a few classes that must accommodate a group of students who have 
a range of abilities.  Programs offer classes that range from a few to 20 
hours per week.  Some programs run in closed cycles of a few months to a 
year, while others have ongoing classes with open-entry admission that 
fills the seats of students who drop out.  Class sizes vary from small to 
large.  Classes are held in a variety of venues, including community 
centers, social service agencies, workplaces, libraries, prisons, community 
colleges, churches, and schools.  Most of these programs provide classes in 
basic skills (literacy and numeracy), English language, and high school 
equivalence.

The first level of basic skills instruction is provided to students with 
very poor reading skills, often described as below the fifth-grade level, 
equivalent to IALS Level 1.  Adults at this level may have learning 
disabilities that hinder their learning to decode the sounds of a word with 
the ease needed to read effectively.  Instruction at this level requires a 
teacher who is well trained and a student who has the motivation and time 
to work on basic reading skills.  Adults at this level usually need 
instruction in basic math as well.  LD diagnosis is expensive. Some younger 
participants were identified (but not necessarily tested) for LD when they 
were in school.

The second level of basic skills instruction is provided to students who do 
not have severe learning disabilities and who do not have significant 
problems with decoding.  Adults at this level read at between fifth- and 
eighth-grade levels, equivalent to IALS Level 2.  People at this level 
usually score low on tests of oral vocabulary and background knowledge and 
reading fluency (speed and accuracy).  This situation requires students to 
engage in a good deal of practice in reading, writing, and math and direct 
instruction that builds vocabulary and fluency

English language instruction is usually provided at beginning, 
intermediate, and advanced levels, though some programs have more than 
three levels of instruction.  These levels are assessed by tests that 
measure Student Performance Levels (SPL) (citation), which range from 0 to 
10.  Beginning classes usually serve adults who are in the range of SPL 0 
to 4.  Intermediate classes usually serve adults who are in the range of 
SPL 5 to 6, and advanced classes usually serve adults who are in the range 
of SPL 7 to 10.  This instruction begins with oral language development but 
eventually includes literacy and math in English as well.

The General Education Development Tests (GED) -- a set of five tests that 
measure writing skills, social studies, science, interpretation of 
literature and the arts, and math -- is the most common alternative way to 
earn a high school credential.  To pass the test, an adult must achieve a 
minimum total score and a minimum score on each of the five subject tests. 
The GED passing score is determined by testing high school graduates and 
setting the passing level at the point where 40% of high school graduates 
do not pass. However, each state determines whether or not passing the GED 
test qualifies as a high school diploma or an equivalence.  A newly revised 
version of the test was released in 2002.  The new test has a more explicit 
emphasis on cross-disciplinary skills, such as information processing, 
problem solving, and communication.  The math section demonstrates a 
greater emphasis on data analysis, statistics, and probability. Several 
other approaches to high school equivalence are available.

WIA allows states to design services in any way, except that instruction 
should be based on evidence from scientific research and states must meet 
goals defined by the National Reporting System (NRS). Scientific research 
is defined as studies that employ a rigorous methodology, particularly 
experimental or quasi-experimental, and have been peer reviewed. The NRS 
sets out three core indicators of performance:

1.	Demonstrated improvements in literacy skill levels in reading, writing 
and speaking English, numeracy, problem solving, English language 
acquisition, and other literacy skills. The benchmark is moving up one "NRS 
Level". There are six NRS Levels for ESOL and six for literacy and 
numeracy, each equivalent to two grade-level equivalents.  A student might 
be one point away from moving up a level or might be two complete grade 
levels away from moving up a level, but both transitions are considered 
sufficient improvement.
2.	Placement in, retention in, or completion of postsecondary education, 
training, unsubsidized employment, or career advancement; and
3.	Receipt of a GED or a recognized equivalent.
These indicators are operationalized through five basic core measures:

1.	Educational Gain—The percentage of adult learners in basic and English 
literacy programs who acquire the basic or English language skills needed 
(validated through standardized assessment) to complete the educational 
functioning level in which they were initially enrolled. These gains may be 
measured by any standardized test. To measure educational gain, the NRS 
established a hierarchy of six educational functioning levels, from 
beginning literacy through high school level completion, and six levels for 
English literacy, from beginning literacy level to high advanced, which 
represents skills sufficient to study for and pass the GED test. The levels 
are defined through reading, writing, numeracy and functional and workplace 
skills (and, for English literacy, speaking and listening skills) at each 
level.  Included for each level is a corresponding set of benchmarks on 
commonly used standardized assessments, such as the Test of Adult Basic 
Education (TABE) and the Comprehensive Adult Student Assessment System 
(CASAS), as examples of how students functioning at each level would 
perform on these tests.
2.	High School Completion—The percentage of adult learners with a high 
school completion goal who earned a high school diploma or recognized 
equivalent.
3.	Entered Postsecondary Education—The percentage of adult learners who 
establish a goal to continue their education at the postsecondary level and 
who entered postsecondary education or training after program exit.
4.	Entered Employment—The percentage of unemployed adult learners (in the 
workforce) with an employment goal who obtained a job within one quarter 
after program exit.
5.	Retained Employment—The percentage of adult learners with a job 
retention goal who (a) entered employment within one quarter after exiting 
and (b) were still employed in the third quarter after program exit.


John Comings, Director
National Center for the Study of Adult Learning and Literacy
Harvard Graduate School of Education
7 Appian Way
Cambridge MA 02138
(617) 496-0516, voice
(617) 495-4811, fax
(617) 335-9839, mobile
john_comings at harvard.edu
http://ncsall.gse.harvard.edu