THE NATION’S ADULT EDUCATION AND LITERACY SYSTEMLONG TERM NEED FOR AN ADULT EDUCATION AND FAMILY LITERACY SYSTEM

 

A number of factors dictate this long-term need: 

The National Adult Literacy Survey:  Although the percentage of adults without a high school diploma has declined according the most recent decennial census, a nationwide study conducted in 1992  by the Educational Testing Service and Westat revealed that 44 million adults function at the lowest level of a five-tiered performance scale.  This group’s basic skills (or ability to speak the English language if foreign born) put them at severe risk of being able to achieve or sustain self-sufficiency.  The study showed  strong correlations between low basic skills, low income, and dependence upon public assistance.  Equally disturbing was the existence of a second group of almost 50 million that could function at a higher level than those at the bottom but whose skills fell short of what is increasingly needed in a global economy in which America’s relatively higher wages can only be sustained by dramatic increases in productivity.

While there have been some challenges to this study – especially to the cut point used to assign respondents to the various levels- even the most conservative interpretation reveals a large group of individuals in need.

The Tightening Spiral of Change;  In the early days of the last century an elementary school education qualified most Americans to discharge their duties on the job, in the community and in their families. Beginning around the middle of the Twentieth Century a high school education was needed.  In the Twenty-First Century not only are more adults seeking some level of postsecondary education, the demands of job performance involve new applications of basic skills to an ever changing workplace.  Businesses are working hand-in-hand with adult education and literacy programs to meet these challenges.  They cannot wait for school reform to upgrade their workforce at a replacement rate of two (2) percent per year.

The Welfare Challenge:  There can be no arguing that welfare reform in our nation has met with impressive success,  but there is still much work to be done..  The approximately one-third of the welfare population that remains on the rolls poses a need for different strategies.  The great majority of this population did not complete high school or has limited proficiency in English.  Their prospects of getting and holding a job are severely compromised by this lack of education or language proficiency. Yet, education should not replace work; programs are needed to combine education and work, not only for those just entering the workforce, but for those who may have found employment in the initial years of welfare reform but whose salaries in their current positions are insufficient to raise them out of poverty.

Our Changing Demography:  The U.S. Immigration and Naturalization Service (INS) estimated that in 1996 there were 10.525 million (+/- 350,000) legal permanent residents (or immigrants) residing in the United States as of April 1996. Approximately 5.776 million (+/- 325,000) of these immigrants were eligible to apply for U.S. citizenship.  Approximately 2.5 million additional immigrants have been admitted since that estimate was made.  Aside from a relatively small number who have been given special visas by our government to fill strategic high-skill labor shortages, the majority come from countries where the native language is other than English and where opportunity for a basic education in the native language is limited.  This group needs instruction in both basic skills and the English language to be able to function in the economy and society.  This population displays extraordinary interest in acquiring this instruction; approximately one half of all current enrollments in adult education and family literacy programs are persons with limited proficiency in English.  In some large cities the pressure for class space is so great that applicants must participate in lotteries to gain access.

Effect On School Reform:  The single greatest predictor of the educational success of children is the level of education of the mother. Reaching the national goal of leaving no child behind is highly dependent upon having parents read to their children.  Parents whose own reading skills are limited may be unable to, or reluctant to, perform this essential service.  Family literacy programs not only help adults to improve their reading skills but give them valuable practice in techniques of supporting their children’s education through Parent and Children Together (PACT) time.  Dollars spent on these programs are often referred to as “double duty dollars” because of the beneficial effect they have on both generations.

Public Health Concerns:  The National Institutes for Health reports that the deleterious affect of undereducation on preventive health measures and health care costs the United States $75 billion annually in unnecessary expenditures.  This situation may be exacerbated by recent developments by which undereducated adults may be expected to select from a variety of  complicated options to select health insurance coverage that best meet their needs.

Crime and Recidivism:  Seventy percent of prisoners in correctional institutions in the United States scored in the two lowest levels in the National Adult Literacy Survey.  Various studies have found that raising education levels reduces recidivism. A Virginia study found that out of a sample of 3000 inmates, 49 percent of those who did not participate in correctional education programs were re-incarcerated compared to 20 percent of those who did participate.

THE ADULT EDUCATION AND FAMILY LITERACY SYSTEM

            The Adult Education and Literacy System in the United States is guided by three purposes contained in Title II of the Workforce Investment Act.  Title II is also known by the “short title” given it in Section 201 - the Adult Education and Family Literacy Act.  This legislation was enacted to “create a partnership among the Federal Government, States and localities to provide, on a voluntary basis, adult education and literacy services, in order to –

(1)   assist adults to become literate and obtain the knowledge and skills necessary for employment and self sufficiency;

(2)   assist adults who are parents to obtain the educational skills necessary to become full partners in the education of their children; and

(3)   assist adults in the completion of a secondary school diploma. 

Adult education is defined in the Act as “services or instruction below the postsecondary level for individuals—

(A)   have attained 16 years of age

(B)   who are not enrolled or  required to be enrolled in secondary school under State law; and

(C)   who

(i)                  lack sufficient mastery of basic educational skills to enable the individuals to function effectively in society;

(ii)                do not have a secondary school diploma or its recognized equivalent, and have not achieved an equivalent level of education; or

(iii)               are unable to read, speak, or write the English language. 

Although the program purposes and definition allow for more than workforce-related

activity, so many enrollees come to adult education and family literacy to qualify for jobs or better jobs that the Congress placed the program in the Workforce Investment Act. 

The “Partners”:  (1)  At the National Level: The Adult Education and Family Literacy Act is administered by the United States Department of Education, Office of Vocational and Adult Education, Division of Adult Education and Literacy.  The primary functions of the Department are to call for and review State plans, distribute most of the funding by formula to the States (the Department is allowed to keep a small amount for national leadership activities – including commissioning research activities), collect and analyze accountability data, monitor State operations for compliance, and provide technical assistance and professional development opportunities to the States.

 There is also the National Institute for Literacy that was established as part of the National Literacy Act of 1991.  The Institute was set up to provide a national focal point for literacy within and outside of the Federal government, but it is federally funded.  It conducts basic and applied research in the development of policies regarding literacy goals, objectives and strategies, provide coordination assistance; assists in policy analysis and evaluation; provides program and technical assistance to State and local groups, including staff training; collects and disseminates information; and coordinates and disseminates information; and coordinates and tracks the literacy programs of federal agencies.  The Institute has also been given major responsibility for research on children’s reading programs.  The Director of  Institute reports to an interagency team comprised of the Secretaries of Education, Labor, and Health and Human Services.

Other entities also function at the national level.  The State Directors of Adult Education maintain a national presence by operating both a National Council (their advocacy arm) and a National Adult Education Professional Development Consortium (their professional development and policy analysis arm).  Also active are the two major volunteer literacy programs,(now merging as “ProLiteracy America”), Laubach Literacy and Literacy Volunteers of America.  In addition there are TESOL (Teachers of English to Speakers of Other Languages), The American Library Association, The National Center for Family Literacy, the Correctional Education Association, and the National Alliance of Urban Literacy Coalitions.. CAAL (Council for Advancement of Adult Literacy) is a relative newcomer on the national scene.  All of the above (including the State Directors’ Council), and approximately 25 other organizations, belong to the National Coalition for Literacy, the field’s collective advocacy structure.

(2)  At the State Level: Each State must assign responsibility for the program to an “eligible State agency for adult education and literacy.”  In most cases the agency is the one that operates public schools or community colleges.  Some States have created departments of workforce development and placed the responsibility for adult education therein.  The “eligible State agency for adult education and literacy” is responsible to carry out the approved State plan and to distribute AEFLA and matching funds to ensure that all sections of the State receive a fair share. Some States generously overmatch; others provide only what is required – often as  “in-kind” rather than as additional funding for local programs.  Funds flow from the “eligible State agency” to a diverse set of local service providers via a competitive process.  Providers may be schools, colleges, vocational centers, libraries, not for profit community based organizations (including faith-based groups), and volunteer agencies.  All eligible agencies must have “direct and equitable access” to apply for subgrants or contracts.  The adult education field was years ahead of other educational sectors in diversifying its delivery system.

States are given funds that may be used to provide technical assistance, professional and curriculum development (especially in the use of technology), monitoring and administration, negotiating performance levels with local agencies, and delivering technical assistance as indicated by local provider performance.

           (3) At the Local Level:  Local provider agencies have the responsibility to recruit adult learners, organize and deliver instruction, assess student performance at entry and measure improvement, prepare accountability reports and submit them to the State and to One-Stop Career Centers, strive for continuous improvement, and collaborate with other community agencies that can provide needed concurrent and post-program services to enrolled adults. Approximately 80% of instructors work part-time, and there is considerable turnover - creating a constant need for staff development. 

THE POPULATION SERVED BY THE PROGRAM AND SERVICES PROVIDED

Services: Adult education and literacy providers generally offer four primary types of services.  Adult Basic Education (ABE) provides instruction to adults with low literacy skills.  Adult Secondary Education (ASE) provides instruction that leads to a high school diploma or its equivalent, such as a GED certificate.  English for Speakers of Other Languages (ESOL) provides instruction in speaking, reading, and writing English.  ABE, ASE, and ESOL programs also take place in specific contexts.  Two major settings have been family literacy and workplace literacy; another setting is found in the nation’s federal, state and local correctional institutions. An emerging venue for adult education programs is at the One-Stop customer service centers established under title I of the Workforce Investment Act.

Family literacy provides integrated educational services for families, including adult education for parents in conjunction with early childhood education for their children.  Services also focus on developing parents’ knowledge and skills as their children’s first teachers and encouraging active involvement in their children’s schooling.  Workplace literacy provides basic skills instruction for incumbent workers either at work sites or in community settings.  Developed in partnership with employers, these programs often provide customized instruction focused on job performance.  Corrections programs emphasize preparation for employment for prisoners nearing release.  One-Stop programs combine education with other employment-related services to prepare the unemployed and under-employed for work that leads to self-sufficiency. 

Enrollments:  Approximately 2.8 million adults were reported as being enrolled in 1999-2000. according to information submitted to the new National Reporting System . Of these, approximately 1 million were enrolled in adult basic education, 700,000 in adult secondary education, and 1.1 million in English as a second language instruction.

Categories of Learners;   Adult literacy providers serve a diverse group of learners with a variety of needs.  Among the participants are the working poor, immigrants, high school dropouts, people with disabilities, One-Stop enrollees, and welfare recipients. The majority of participants are either young adults or adults in their prime employment years.  In 2000, over 41 percent of individuals reported enrolled in adult education and literacy programs were ages 16 to 24.  Another 43 percent were ages 25-44.  Eleven percent were ages 45-59, and 4 percent were age 60 and older.  In addition to being relatively young, the majority of participants in a 1996 analysis were either Hispanic or white. Thirty-nine percent of adult learners were Hispanic, 31 percent were white, 21 percent were African-American, 7 percent were Asian/Pacific Islander, and 2 percent were American Indian or Alaskan Native.  Fifty-four percent of enrollees were female and 46% male. The National Center for Learning Disabilities estimates that as many as one half of adult education students may have such disabilities.

ACTIONS TO RESPOND TO THE CONGRESSIONAL CALL FOR QUALITY

Research, Improvement and Accountability:  In several pieces of legislation over the last three years the Congress has sent a clear message that the instruction offered by education programs should be based upon sound research, that instructors should be qualified and given the professional development needed to ensure quality, and that programs should be held accountable for results.  In response to that message the field has:

            Formed a National Programs Committee which is setting a research agenda for the field and collaborating the research endeavors of the Department, the Institute, and major research centers engaged in literacy research.  They are also formulating strategies to convert research findings into improved practices.                                                                    

           Put in place an accountability system whereby all programs will track and report annually on learning gains, placement and retention in employment (for those who indicated that securing or retaining employment was a goal), and success in earning a high school diploma or GED and/or acceptance into further training or postsecondary education.  Each local provider agency’s performance will be available to the public.  States may earn incentive awards if statewide performance in adult education, vocational education and employment and training  exceeds expectations.

NEEDS OF THE SYSTEM

            The needs of the system are best described in a publication entitled “From the Margins to the Mainstream: An Action Agenda for Literacy.” that was released in September 2000 by the National Coalition for Literacy.  The publication describes in detail the resources needed to increase access to the system and improve the quality of its services.  In brief, resources are needed, not only through the appropriation for the Adult Education and Family Literacy Act, but through policy accommodations in welfare, technology, student aid, and tax incentive legislation:

To Increase Access:  by ensuring that support services are available to reduce barriers to participation, including assistive technology for students with disabilities; by reaching out through technology to those unable to participate in conventional learning venues; by establishing strong information and referral systems and by public information campaigns that make all potential students aware that instruction is available; by making computer technology available to students who otherwise would not have access to it; by instituting instructional programs at times and locations convenient to potential learners; and by promoting cross-system collaboration.

To Improve Quality:  by training State and local programs to install and maintain accountability systems; by adoption of content standards and curriculum frameworks that focus on the knowledge adults need to carry out life roles and meet community needs; by instituting or expanding professional development programs for State and local staff; by investing in a strong research and development capacity; and by developing and improving assessment tools that accurately reflect how well program components are performing.