English Language Learning
Diverse Federal and State Efforts to Support Adult English Language Learning Could Benefit from More Coordination Gao ID: GAO-09-575 July 29, 2009Millions of adults in the U.S. report that they speak limited English, and English language ability appears linked to multiple dimensions of adult life, such as civic participation and workforce participation and mobility. GAO examined (1) the trends in the need for and enrollment in federally funded adult English language programs, (2) the nature of federal support for adult English language learning, (3) ways in which states and local public providers have supported English language programs for adults, and (4) federal agencies' plans for research to identify effective approaches to adult English language learning. To conduct this work, GAO analyzed Census and enrollment data and conducted interviews with federal officials within the Departments of Education, Health and Human Services (HHS), and Labor and the National Institute for Literacy (NIFL); semistructured telephone interviews with state adult education officials in 12 states; site visits to 4 states; and reviews of relevant laws and literature.
The number of adults who speak English less than very well grew by 21.8 percent between 2000 and 2007, to roughly 22 million. The Adult Education State Grant Program, the key federal program for adult English language instruction, reported enrollment of about 1.1 million English language learners in 2007--which had remained relatively stable since 2000. However, most state adult education grantees we contacted reported increased demand. Also, there are many federal programs that allow for adult English language instruction for which national enrollment data are not collected. Federal support is dispersed across diverse programs in Education, HHS, and Labor that allow for English language learning in pursuit of other goals and do not collect data on participation in English language learning or the amount of federal funding that supports it. The agencies have undertaken initiatives and provided technical assistance. However, while there has been some collaboration among federal offices on behalf of English language learning, there is no ongoing mechanism to share information on resources or strategies to expand and capitalize on the agencies' individual efforts. States GAO contacted generally did not distinguish funding for English language learning from the other components of adult education, but they did vary greatly in the state matching funds contributed to their programs. GAO found states and local providers collaborating with other federal- and state-funded programs that serve populations likely to need this help. Yet such ef-forts to coordinate were not universal, and some local providers said they did not know how to access additional instructional or financial resources. States and local providers also supported English language learning in various ways. Education had one research study under way to test the effectiveness of an approach to adult English language learning, and Education and Labor had some ongoing work related to adult English language learners. Education officials said that there had been little research on what approaches are effective for adult English language learning, and noted that federal funds for rigorous research are limited. However, while agencies cited efforts to collaborate, they had not coordinated research planning across agencies to leverage research resources for adult English language learning.
RecommendationsOur recommendations from this work are listed below with a Contact for more information. Status will change from "In process" to "Open," "Closed - implemented," or "Closed - not implemented" based on our follow up work.
Director: Team: Phone:GAO-09-575, English Language Learning: Diverse Federal and State Efforts to Support Adult English Language Learning Could Benefit from More Coordination
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Report to the Ranking Member, Subcommittee on Children and Families,
Committee on Health, Education, Labor, and Pensions, U.S. Senate:
United States Government Accountability Office:
GAO:
July 2009:
English Language Learning:
Diverse Federal and State Efforts to Support Adult English Language
Learning Could Benefit from More Coordination:
GAO-09-575:
GAO Highlights:
Highlights of GAO-09-575, a report to the Ranking Member, Subcommittee
on Children and Families, Committee on Health, Education, Labor &
Pensions, U.S. Senate.
Why GAO Did This Study:
Millions of adults in the U.S. report that they speak limited English,
and English language ability appears linked to multiple dimensions of
adult life, such as civic participation and workforce participation and
mobility. GAO examined (1) the trends in the need for and enrollment in
federally funded adult English language programs, (2) the nature of
federal support for adult English language learning, (3) ways in which
states and local public providers have supported English language
programs for adults, and (4) federal agencies‘ plans for research to
identify effective approaches to adult English language learning. To
conduct this work, GAO analyzed Census and enrollment data and
conducted interviews with federal officials within the Departments of
Education, Health and Human Services (HHS), and Labor and the National
Institute for Literacy (NIFL); semistructured telephone interviews with
state adult education officials in 12 states; site visits to 4 states;
and reviews of relevant laws and literature.
What GAO Found:
The number of adults who speak English less than very well grew by 21.8
percent between 2000 and 2007, to roughly 22 million. The Adult
Education State Grant Program, the key federal program for adult
English language instruction, reported enrollment of about 1.1 million
English language learners in 2007”which had remained relatively stable
since 2000. However, most state adult education grantees we contacted
reported increased demand. Also, there are many federal programs that
allow for adult English language instruction for which national
enrollment data are not collected.
Federal support is dispersed across diverse programs in Education, HHS,
and Labor that allow for English language learning in pursuit of other
goals and do not collect data on participation in English language
learning or the amount of federal funding that supports it. The
agencies have undertaken initiatives and provided technical assistance.
However, while there has been some collaboration among federal offices
on behalf of English language learning, there is no ongoing mechanism
to share information on resources or strategies to expand and
capitalize on the agencies‘ individual efforts.
States GAO contacted generally did not distinguish funding for English
language learning from the other components of adult education, but
they did vary greatly in the state matching funds contributed to their
programs. GAO found states and local providers collaborating with other
federal- and state-funded programs that serve populations likely to
need this help. Yet such efforts to coordinate were not universal, and
some local providers said they did not know how to access additional
instructional or financial resources. States and local providers also
supported English language learning in various ways.
Education had one research study under way to test the effectiveness of
an approach to adult English language learning, and Education and Labor
had some ongoing work related to adult English language learners.
Education officials said that there had been little research on what
approaches are effective for adult English language learning, and noted
that federal funds for rigorous research are limited. However, while
agencies cited efforts to collaborate, they had not coordinated
research planning across agencies to leverage research resources for
adult English language learning.
Figure: Providers of Adult English Language Instruction:
[Refer to PDF for image: two photographs]
Sources: Pui Tak Center, Chicago, Illinois; Hubbs Center, St. Paul,
Minnesota.
[End of figure]
What GAO Recommends:
GAO is recommending that Education work with HHS, Labor, and other
agencies as appropriate to develop coordinated approaches for sharing
information and planning and conducting research. The agencies
concurred with the recommendations and cited intentions to work
together toward their implementation.
View [hyperlink, http://www.gao.gov/products/GAO-09-575] or key
components. For more information, contact Cornelia M. Ashby at (202)
512-7215 or ashbyc@gao.gov.
[End of section]
Contents:
Letter:
Background:
Growing Numbers of Adults with Limited English; Extent of Participation
in English Instruction Is Unknown:
Federal Support for Adult English Instruction Is Dispersed across Many
Programs That Collect Little Data and Have Limited Coordination:
States and Service Providers Have Used a Range of Strategies to Support
Adult English Language Learning:
Federal Agencies Have Undertaken Some Research, but Have Not
Coordinated Research Planning across Agencies on Adult English Language
Learning:
Conclusions:
Recommendations for Executive Action:
Agency Comments and Our Evaluation:
Appendix I: Scope and Methodology:
Appendix II: Education, HHS, and Labor Programs Authorized for Funds to
Be Used for Adult English Language Learning:
Appendix III: Selected High-Growth and Community-Based Labor Grants
That Align with the Limited English Proficiency and Hispanic Worker
Initiative:
Appendix IV: Methods for Providing English Language Instruction among
Labor Grantees That We Interviewed:
Appendix V: Comments from the Department of Education:
Appendix VI: Comments from the Department of Health and Human Services:
Appendix VII: Comments from the Department of Labor:
Appendix VIII: GAO Contact and Staff Acknowledgments:
Tables:
Table 1: Special Initiatives Related to Adult English Language Learning
at Education and Labor:
Table 2: Examples of Local Workforce-Oriented English Language
Instruction:
Figures:
Figure 1: Adult Limited English Proficient Population from 2000 to
2007:
Figure 2: Adult Limited English Proficient Population in 2007, by
State:
Figure 3: Percentage of Adult Limited English Proficient Population in
2007, by State:
Figure 4: Percentage Change in Adult Limited English Proficient
Population from 2000 to 2007, by State:
Figure 5: Percentage Change in Adult Education State Grant Program's
English Language Enrollment from 2000 to 2007, by State:
Abbreviations:
ACS: American Community Survey:
AEFLA: Adult Education and Family Literacy Act:
CBO: community-based organization:
ESL: English as a Second Language:
HHS: Department of Health and Human Services:
I-BEST: Integrated Basic Education and Skills Training Initiative:
IES: Institute of Education Sciences:
NAAL: National Assessment of Adult Literacy:
NCSALL: National Center for the Study of Adult Learning and Literacy:
NCES: National Center for Education Statistics:
NHES: National Household Education Surveys Program:
NIFL: National Institute for Literacy:
NRS: Adult Education National Reporting System:
OVAE: Office of Vocational and Adult Education:
TANF: Temporary Assistance for Needy Families:
TELL: Transitioning English Language Learners:
WIA: Workforce Investment Act of 1998:
[End of section]
United States Government Accountability Office:
Washington, DC 20548:
July 29, 2009:
The Honorable Lamar Alexander:
Ranking Member:
Subcommittee on Children and Families Committee on Health, Education,
Labor, and Pensions:
United States Senate:
Dear Senator Alexander:
Millions of adults in the United States report that they speak English
less than very well--that is, they are limited in their English
proficiency. English language ability appears to be linked to multiple
dimensions of adult life in the United States, including civic
participation; workforce participation and mobility; and fulfilling
parental responsibilities, such as reading to children and
communicating with their schools and teachers. Consistent with these
relationships, the top reasons that adults have cited for seeking
English language classes include improving the way they feel about
themselves, making it easier to do things on a day-to-day basis,
attending school, getting a raise or promotion, obtaining a new job,
obtaining U.S. citizenship, and helping children with their schoolwork.
[Footnote 1] Regarding workforce participation, the Department of
Labor's (Labor) Bureau of Labor Statistics analyses show that foreign-
born persons--who are much more likely than native-born persons to lack
English proficiency--accounted for about 16 percent of the U.S.
civilian labor force in 2007.[Footnote 2] Moreover, as baby boomers
retire and U.S. birth rates have declined, foreign-born persons are
expected to account for a still larger share of the future workforce,
suggesting that the need for adult English instruction is not likely to
abate.
To better understand the nature of support for adult English language
learning, we examined (1) trends in the need for and enrollment in
federally funded adult English language programs, (2) the nature of
federal support for adult English language learning, (3) ways in which
states and local public providers have supported English language
programs for adults, and (4) federal agencies' plans for research to
identify effective approaches to adult English language learning.
To obtain information to address our research objectives, we reviewed
available data; identified relevant programs and research; and
interviewed a range of federal, state, and local officials. (See
appendix I for detailed information on our scope and methodology.)
Briefly, to determine what is known about trends in need and
enrollment, we reviewed and analyzed Census and American Community
Survey (ACS) [Footnote 3] data on English language speaking ability for
2000 to 2007, and reviewed reports of the Department of Education's
(Education) National Assessment of Adult Literacy (NAAL) and National
Household Education Surveys Program (NHES). We also reviewed data on
enrollment in the Adult Education State Grant Program--a federal
program that funds adult education, including English language
instruction--which states report to the Adult Education National
Reporting System (NRS). We assessed the reliability of these data and
determined that both the Census and NRS data were sufficiently reliable
for the purposes of our report. To examine the nature of federal
support for adult English language learning,[Footnote 4] we examined
programs' authorizations to support adult English language learning,
actions that federal agencies and programs had taken to support adult
English language learning, as well as the available data on spending
and effectiveness regarding adult English language learning.[Footnote
5] We selected three key federal agencies--Education, the Department of
Health and Human Services (HHS), and Labor--for review of related
programs. We selected these agencies on the basis of their missions to
administer education- and workforce-related programs. We also selected
these agencies because of their mandate to collaborate with the
National Institute for Literacy (NIFL), which is tasked with serving as
a resource to support literacy--the development of reading and writing
skills--across all age groups. While we used several means to identify
programs within these agencies that supported English language learning
as a primary purpose or allowable use of federal funds, the possibility
exists that the programs we identified may not capture all of the
programs authorized to support adult English language learning within
the three agencies. To examine state and local activities, we selected
the 6 states that had the largest adult limited English proficient
populations in the nation in 2007 (California, Florida, Illinois, New
Jersey, New York, and Texas) and the 6 states that had the highest
growth rates in their adult limited English proficient populations from
2000 to 2007 (Alaska, Arizona, Arkansas, Georgia, Nevada, and
Tennessee). We conducted semistructured telephone interviews with
officials responsible for administering the Adult Education State Grant
Programs in each of these states. The 12 states accounted for 75
percent of the national adult limited English proficient population and
75 percent of the Adult Education State Grant Program's national
enrollment in English language programs for 2007. We also conducted
site visits to California, Illinois, Minnesota, and Washington State to
interview officials of related state agencies and local programs. We
selected these states for visits to get a mix of states with large
(California and Illinois) and high-growth (Minnesota and Washington)
limited English proficient populations, as well as diversity in
administrative structures and practices under way regarding adult
English language learning. To determine what federal research is
planned in this area, we interviewed federal officials from Education,
HHS, and Labor for the programs included in this review, as well as
officials from NIFL and Education's Institute of Education Sciences
(IES) and the National Center for Education Statistics (NCES), and
reviewed related documents. We also identified and reviewed other
published research in the field of English language learning. In
addition, we consulted with researchers, academics, industry
associations, union representatives, and nonprofit organizations.
We conducted our review from May 2008 through July 2009 in accordance
with generally accepted government auditing standards. Those standards
require that we plan and perform the audit to obtain sufficient,
appropriate evidence to provide a reasonable basis for our findings and
conclusions based on our audit objectives. We believe that the evidence
obtained provides a reasonable basis for our findings and conclusions
based on our audit objectives.
Background:
Characteristics of Adults with Limited English Proficiency:
The adult limited English proficient population in the United States is
diverse regarding immigration status, country of origin, educational
background, literacy in native language, age, and family status.
Generally, adults with limited English proficiency have immigrated to
the United States and include legal permanent residents, naturalized
citizens, refugees, and undocumented individuals, but some of these
adults are native born. The largest numbers of foreign-born persons
living in the United States are from Mexico, China, and the
Philippines. According to ACS data from the U.S. Census Bureau, in
2007, about two-thirds of the adults who reported limited English
speaking ability were Spanish speaking. In terms of educational
attainment, in 2007, 27 percent of foreign-born adults had at least a
bachelor's degree, similar to the native-born population. However,
native-born persons are significantly more likely than foreign-born
persons in the United States to have graduated from high school (88
percent versus 68 percent).[Footnote 6]
Limited English proficiency, by itself, is not necessarily an indicator
of demand for instructional services. For various reasons, at any given
time, some adults with limited English proficiency are not actively
seeking English language instruction. One source of information, the
1995 NHES, estimated that about one-half (44 percent) of the adults who
read English less than well were either participating in English
language classes or interested in doing so, while the remainder were
not.[Footnote 7] The survey did not inquire about why some adults were
not interested, but potential reasons for not actively seeking
instruction include the belief that participation is impractical in the
midst of competing work or family responsibilities, lack of need for
additional English to perform daily activities, or lack of success in
past efforts. In addition, persons who are interested in English
language classes may not participate because they face barriers. In the
1995 NHES, 30.5 percent of adults with limited English proficiency had
not taken an English language class in the last 12 months, even though
they expressed interest in doing so.[Footnote 8] These adult
respondents reported they did not take classes because they were
unaware of offerings, did not have enough time or money, or were
limited by child care or transportation barriers.
Research on Adult English Language Learning:
There is broad consensus among academics that very limited
scientifically based research has been conducted to identify effective
approaches to adult English language instruction.[Footnote 9] Much
research in the field has focused on the challenges faced by adult
English language learners and the factors that affect the learners'
ability to master English. Such factors may include educational
attainment and literacy in the learners' native language. Additional
factors that may pose challenges include economic issues, such as the
competing priorities of work and family and a lack of transportation
and child care; cultural background; age; and motivational challenges.
Because there appear to be differences between language learning in the
early years and language learning that occurs in adulthood, the needs
of adult learners and effective approaches may not be similar to those
for students in grades K-12 education.
While existing research is limited, some entities have played a role in
providing or developing research-based information to providers and
instructors. In the past, IES funded dissemination of research on adult
literacy through the National Center for the Study of Adult Learning
and Literacy (NCSALL). However, funding for NCSALL ended in 2007.
Education supports dissemination of research through a contract with
the Center for Adult English Language Acquisition, which has
disseminated research-based resources for more effective adult English
language instruction through its Web site. NIFL, a federal agency,
serves as a national resource on literacy across all age groups. NIFL
was established in 1991 and was reauthorized by the Workforce
Investment Act of 1998 (WIA),[Footnote 10] and its role was expanded by
the No Child Left Behind Act of 2001[Footnote 11] to help children,
youth, and adults learn to read by supporting and disseminating
scientifically based reading research.[Footnote 12]
Adult Education State Grant Program:
The Adult Education State Grant Program funds English language
instruction as well as adult basic education and adult secondary
education,[Footnote 13] and was established under the Adult Education
and Family Literacy Act (AEFLA), as title II of WIA.[Footnote 14]
Eligible participants are those ages 16 and over who are not currently
enrolled or required by state law to be enrolled in secondary school
and who lack the basic skills needed to function effectively in their
daily lives, a high school credential, or English language skills. In
fiscal year 2007, the total federal allocation for the Adult Education
State Grant Program, for all components of instruction, was about $564
million. Congress reserves a portion of the state grant funding--$68
million in 2007[Footnote 15]--for EL Civics, which supports integrated
English literacy and civics education services to immigrants and other
limited English populations. In addition, the American Recovery and
Reinvestment Act of 2009 provided $53.6 billion in appropriations for
the State Fiscal Stabilization Fund to be administered by
Education.[Footnote 16] School districts may use a portion of the
stabilization funds for any allowable purpose under AEFLA as well as
the Elementary and Secondary Education Act,[Footnote 17] the
Individuals with Disabilities Education Act,[Footnote 18] or the Carl
D. Perkins Career and Technical Education Improvement Act of 2006
(Perkins IV).[Footnote 19]
Under the Adult Education State Grant Program, states fund English
language instruction through various types of providers that offer
instruction for free or for a nominal fee. The Adult Education State
Grant Program is administered by Education's Division of Adult
Education and Literacy within the Office of Vocational and Adult
Education (OVAE). Program funds are distributed by formula to states
using Census Bureau data on the number of adults (ages 16 and older) in
each state who lack a high school diploma or its recognized equivalent
and who are not enrolled or required by state law to be enrolled in
school. Twenty-five percent of the expenditures for adult education in
each state must come from state or local matching funds.[Footnote 20]
States award a minimum of 82.5 percent of their federal grants to local
providers of adult education, and may retain up to 12.5 percent for
state leadership activities to be used for program improvement and 5.0
percent for administrative expenses. Education is also tasked with
carrying out national leadership activities to enhance the quality of
adult education and literacy programs nationwide.[Footnote 21] Such
activities may include providing technical assistance to adult
education providers, carrying out demonstration programs, and
supporting research.
The states report outcomes for adult English language learners
participating in the Adult Education State Grant Program to Education's
NRS using a six-level system[Footnote 22] that describes mastery of
different aspects of English language skills. The percentage of
learners who achieved level gains in 2007 was 38.9 percent. In
comparison, 31.8 percent of learners did not achieve a level gain
during the enrollment year, but remained in the program, and 29.4
percent separated from the program in 2007 before achieving an
educational-level gain.[Footnote 23]
Sources of Adult English Language Instruction and Paths to English
Language Acquisition:
Providers of adult English language learning have varied
characteristics and instructional formats and may be supported by many
different funding sources. Instruction varies in format, intensity,
setting, and focus--such as civics, family, or work-focused topics.
Classes may have open or closed enrollment, have varied frequency and
hours, and take place in large classroom settings, in small groups, or
one-on-one with volunteers. Providers receiving federal funds through
the Adult Education State Grant Program include local education
agencies (school districts), community colleges, community-based
organizations (CBO), and correctional institutions. According to a 2002
survey funded by Education,[Footnote 24] of providers receiving Adult
Education State Grant Program funds, English language learners were a
larger percentage of all adult education learners who attended classes
sponsored by CBOs than by other provider types--over one-half of adult
education learners in CBOs received English language instruction.
According to the survey, providers reported receiving funding from a
wide range of sources. One-third of providers reported receiving the
majority of their funding from the federal government and almost one-
half received the majority of funding from state government. Providers
reported smaller proportions of funding from local government, private
sources, and participant fees. CBOs reported receiving more financial
support from a combination of foundation grants and corporate, civic,
and individual giving than did other providers. Aside from publicly
funded providers, English language learning is also privately supported
by small faith-based organizations, such as churches, and by privately
funded CBOs. English language learners may also access English language
instruction from for-profit providers of self-paced materials and
software and from some private industry associations or businesses that
provide English language learning opportunities to their workers
without federal support.
According to data from the 2003 NAAL,[Footnote 25] among adults who
learned English at age 16 or older (regardless of source of
instruction), a higher proportion of those who reported past or current
enrollment in English language programs scored at least basic levels of
literacy compared with those who had never been enrolled.[Footnote 26]
Among adult English language learners who had never been enrolled in
English language programs, 61 percent scored below basic prose literacy
and 36 percent scored basic prose literacy.[Footnote 27]
Growing Numbers of Adults with Limited English; Extent of Participation
in English Instruction Is Unknown:
Data Indicate a Growing Population of Adults Who Speak Limited English:
Census Bureau data indicate that the number of adults in the United
States who speak limited English has grown since 2000. According to the
2007 ACS, about 21.7 million adults who reported speaking a language
other than English at home also reported speaking limited English, an
increase from 17.8 million in 2000 (see figure 1).[Footnote 28] The
size of this population increased by 21.8 percent over this time
period, and, as a percentage of the total U.S. adult population,
[Footnote 29] it increased from about 8.5 percent in 2000 to 9.5
percent in 2007.[Footnote 30]
Figure 1: Adult Limited English Proficient Population from 2000 to
2007:
[Refer to PDF for image: line graph]
Year: 2000;
Adult Limited English Proficient Population: 17.8 million.
Year: 2001;
Adult Limited English Proficient Population: 17.2 million.
Year: 2002;
Adult Limited English Proficient Population: 18.2 million.
Year: 2003;
Adult Limited English Proficient Population: 19.1 million.
Year: 2004;
Adult Limited English Proficient Population: 19.5 million.
Year: 2005;
Adult Limited English Proficient Population: 20.3 million.
Year: 2006;
Adult Limited English Proficient Population: 21.4 million.
Year: 2007;
Adult Limited English Proficient Population: 21.7 million.
Source: GAO analysis of Census and American Community Survey data.
[End of figure]
The distribution of reported English speaking ability among those
reporting speaking another language at home changed little from 2000 to
2007. For example, in 2007, 4.3 million adults reported speaking no
English at all. This represented 20 percent of all limited English
proficient adults, which was relatively unchanged from the 18 percent
this group comprised in 2000. In addition, the proportions of limited
English proficient adults who reported speaking English "not well" (38
percent) and speaking English "well" but not "very well" (42 percent)
were relatively unchanged from 2000 to 2007.
The geographic distribution of the limited English proficient
population mirrors the general population distribution in some
respects; it is concentrated in the most populated states with some
sizable representation in most other states (see figure 2). However,
some states have concentrations of limited English proficient persons
higher than the state's proportion of the U.S. population. For example,
California, Florida, Illinois, New Jersey, New York, and Texas
accounted for 68.1 percent of the national population of adults with
limited English proficiency in 2007 and 39.4 percent of the national
adult population.
Figure 2: Adult Limited English Proficient Population in 2007, by
State:
[Refer to PDF for image: U.S. map]
Adult Limited English Proficient Population, 2007:
0 to 24,999 (8):
Maine;
Montana;
North Dakota;
South Dakota;
Vermont;
West Virginia;
Wyoming.
25,000 to 99,999 (14):
Alabama;
Alaska;
Arkansas;
Delaware;
Idaho;
Iowa;
Kansas;
Kentucky;
Louisiana;
Nebraska;
New Hampshire;
Mississippi;
South Carolina;
Wisconsin.
100,000 to 199,999 (10):
Hawaii;
Indiana;
Minnesota;
Missouri;
New Mexico;
Ohio;
Oklahoma;
Rhode Island;
Tennessee;
Utah;
200,000 to 499,999 (12):
Colorado;
Connecticut;
District of Columbia;
Georgia;
Maryland;
Massachusetts;
Michigan;
Nevada;
North Carolina;
Oregon;
Pennsylvania;
Virginia;
Washington.
500,000 to 6,030,000 (7):
Arizona;
California;
Florida;
Illinois;
New Jersey;
New York;
Texas.
Source: GAO analysis of American Community Survey data.
Note: Data are subject to sampling error that may affect how a few
states are categorized.
[End of figure]
This handful of populous states and other southwestern states generally
had the greatest concentrations of limited English proficient adults as
a percentage of total adults (see figure 3). However, among these
states, there is variation in the concentration. For example, in 2007,
about one in five adults in California spoke limited English, whereas
one in nine adults spoke limited English in Illinois.
Figure 3: Percentage of Adult Limited English Proficient Population in
2007, by State:
[Refer to PDF for image: U.S. map]
Percentage of Adult Population That Is Limited English Proficient:
0.0% to 1.9% (7):
Kentucky;
Maine;
Mississippi;
Montana;
North Dakota;
South Dakota;
Vermont;
West Virginia.
2.0% to 3.4% (13):
Alabama;
Arkansas;
Indiana;
Iowa;
Louisiana;
Missouri;
New Hampshire;
Ohio;
South Carolina;
Tennessee;
Wisconsin;
Wyoming.
3.5% to 4.9% (9):
Delaware;
Idaho;
Kansas;
Michigan;
Nebraska;
North Carolina;
Oklahoma;
Pennsylvania;
5.0% to 9.9% (11):
Alaska;
Colorado;
Connecticut;
District of Columbia;
Georgia;
Maryland;
Massachusetts;
Minnesota;
Oregon;
Utah;
Virginia;
Washington;
10.0% to 22.2% (11):
Arizona;
California;
Florida;
Hawaii;
Illinois;
Nevada;
New Jersey;
New Mexico;
New York;
Rhode Island;
Texas.
Source: GAO analysis of American Community Survey data.
Note: Data are subject to sampling error that may affect how a few
states are categorized.
[End of figure]
Less populous states that have traditionally had smaller adult limited
English proficient populations have had the greatest growth rates since
2000. From 2000 to 2007, some southern states with relatively small
adult limited English proficient populations had the greatest growth
rates, as shown in figure 4. For example, Tennessee's adult limited
English proficient population was below the national median in 2000.
However, it experienced about 46 percent growth from 2000 to 2007,
moving it above the national median in 2007. In addition to Tennessee,
other southern states like Alabama, Arkansas, and Georgia had large
growth rates in their adult limited English proficient populations, as
did Alaska, Arizona, and Nevada. However, states with the largest
limited English populations experienced the greatest growth in sheer
numbers.
Figure 4: Percentage Change in Adult Limited English Proficient
Population from 2000 to 2007, by State:
[Refer to PDF for image: U.S. map]
Adult Limited English Proficient Population Growth, 2000 to 2007:
-42.2% to -0.1% (10):
Hawaii;
Louisiana;
Maine;
Montana;
New Mexico;
North Dakota;
South Dakota;
Vermont;
West Virginia.
0.0% to 19.9% (14):
California;
Connecticut;
Illinois;
Iowa;
Michigan;
Mississippi;
Nebraska;
New Hampshire;
New Jersey;
New York;
Ohio;
Rhode Island;
Wisconsin;
Wyoming.
20.0% to 29.9% (10):
Idaho;
Indiana;
Kansas;
Kentucky;
Massachusetts;
Minnesota;
Missouri;
Oregon;
Pennsylvania;
Texas.
30.0% to 39.9% (10):
Colorado;
Delaware;
District of Columbia;
Florida;
Maryland;
North Carolina;
Oklahoma;
South Carolina;
Utah;
Virginia;
Washington.
40.0% to 57.6% (7):
Alabama;
Alaska;
Arizona;
Arkansas;
Georgia;
Nevada;
Tennessee.
Source: GAO analysis of Census and American Community Survey data.
Note: Data are subject to sampling error that may affect how a few
states are categorized.
[End of figure]
While the Full Extent of Participation in English Instruction Is
Unknown, Enrollment in a Key Federal Program Has Remained Fairly
Stable, Although State Officials Report Increased Demand:
The full extent of participation in federally funded English language
learning programs is unknown, but enrollment in the Adult Education
State Grant Program, the federal grant program most directly associated
with English language instruction, has remained relatively stable. As
we discuss later in this report, we identified many federal programs
within Education, HHS, and Labor for which funding may be used to
support English language learning opportunities for adults. However,
federal officials administering these programs reported that they do
not collect national data on participation in English language
instruction funded by the programs. Only the Adult Education State
Grant Program collects and maintains enrollment data.
In the Adult Education State Grant Program, reported enrollment in
English language classes was stable from 2000 to 2007.[Footnote 31]
Reported national enrollment was between 1.0 million and 1.2 million
English language learners each reporting year from 2000 to 2007.
[Footnote 32] Enrollment was 1.12 million in 2000 and 1.06 million in
2007, with small fluctuations over the years in between. Throughout
this time period, national enrollment in the Adult Education State
Grant Program was concentrated in lower literacy-level classes.
Specifically, the greatest percentage of learners--70 percent to 75
percent--were in the lowest three levels of classes from 2000 to 2005
(Beginning Literacy to Low Intermediate), while 25 percent to 30
percent of learners were in the highest three levels (High Intermediate
to High Advanced).[Footnote 33]
While national enrollment in English language classes funded by the
Adult Education State Grant Program remained stable, enrollment trends
from 2000 to 2007 varied widely across states (see figure 5). The
median state reported an 11 percent decrease, with most states
reporting fluctuations no greater than 20 percent. However, changes
ranged from a roughly 75 percent reduction to a 100 percent increase,
with 10 states having fluctuations of more than 40 percent. These
larger variations in enrollment were not reflective of trends in the
adult limited English proficient populations or the general adult
populations in these states. For example, among the 6 states
experiencing the largest growth in the numbers of persons with limited
English proficiency, 5 reported decreasing enrollments. Similarly,
among the 6 states with the fastest growing limited English
populations, 4 reported decreasing enrollments.
Figure 5: Percentage Change in Adult Education State Grant Program's
English Language Enrollment from 2000 to 2007, by State:
[Refer to PDF for image: vertical bar graph]
State: Mississippi;
Change in enrollment: -75.6%.
State: Arizona;
Change in enrollment: -63.1%.
State: South Dakota;
Change in enrollment: -53%.
State: Alaska;
Change in enrollment: -51%.
State: Michigan;
Change in enrollment: -43.6%.
State: West Virginia;
Change in enrollment: -43.5%.
State: Georgia;
Change in enrollment: -37.3%.
State: Iowa;
Change in enrollment: -33.5%.
State: Missouri;
Change in enrollment: -31.4%.
State: Nevada;
Change in enrollment: -29.2%.
State: District of Columbia;
Change in enrollment: -29%.
State: Vermont;
Change in enrollment: -28.8%.
State: North Dakota;
Change in enrollment: -28.8%.
State: Utah;
Change in enrollment: -25.6%.
State: Indiana;
Change in enrollment: -19.4%.
State: New Jersey;
Change in enrollment: -19%.
State: New York;
Change in enrollment: -18.7%.
State: Florida;
Change in enrollment: -18.5%.
State: Ohio;
Change in enrollment: -18.2%.
State: Kansas;
Change in enrollment: -17.8%.
State: Idaho;
Change in enrollment: -15.8%.
State: South Carolina;
Change in enrollment: -14.7%.
State: Connecticut;
Change in enrollment: -13%.
State: Oregon;
Change in enrollment: -12.7%.
State: Pennsylvania;
Change in enrollment: -12.3%.
State: New Hampshire;
Change in enrollment: -11.2%.
State: Oklahoma;
Change in enrollment: -8.5%.
State: Illinois;
Change in enrollment: -6.2%.
State: Wisconsin;
Change in enrollment: -6%.
State: Texas;
Change in enrollment: -5.8%.
State: Massachusetts;
Change in enrollment: -2.6%.
State: Virginia;
Change in enrollment: -1.3%.
State: New Mexico;
Change in enrollment: 1.2%.
State: Delaware;
Change in enrollment: 4.2%.
State: Tennessee;
Change in enrollment: 6.3%.
State: Washington;
Change in enrollment: 6.8%.
State: Minnesota;
Change in enrollment: 9.6%.
State: Wyoming;
Change in enrollment: 10.5%.
State: California;
Change in enrollment: 11.3%.
State: Hawaii;
Change in enrollment: 12.3%.
State: North Carolina;
Change in enrollment: 12.7%.
State: Arkansas;
Change in enrollment: 19.9%.
State: Alabama;
Change in enrollment: 20.6%.
State: Maine;
Change in enrollment: 22.5%.
State: Nebraska;
Change in enrollment: 24.2%.
State: Kentucky;
Change in enrollment: 24.8%.
State: Colorado;
Change in enrollment: 37.1%.
State: Maryland;
Change in enrollment: 41.5%.
State: Rhode Island;
Change in enrollment: 44.1%.
State: Louisiana;
Change in enrollment: 68.2%.
State: Montana;
Change in enrollment: 102.8%.
Source: GAO analysis of Department of Education‘s National Reporting
System data.
[End of figure]
State officials said enrollment in their states' Adult Education State
Grant Programs changed over time because of changes in state funding
priorities, data management system changes, and other factors. Most of
the state officials we interviewed said funding constraints limited the
extent to which programs could expand, and some officials identified
obtaining more funding to serve students as a top priority.
Additionally, a few state officials with stable or declining enrollment
said these trends were the result of improved data management systems
or efforts to better validate data, which caused reported enrollments
to appear stable or declining. States also identified the economy and
natural disasters as other factors that resulted in stable or declining
enrollment. In some of the states, officials whom we interviewed said
immigration may have increased enrollment, while immigrants' fears of
accessing government services may have reduced enrollment.
Both state officials and local providers with whom we spoke told us
that stable enrollment in English language classes did not indicate
stable demand. Of the 12 states we contacted, according to the NRS,
most reported declining enrollment in their states' Adult Education
State Grant Programs. However, 8 of 12 state officials said that demand
was increasing, and 3 said that demand remained the same. One state
official said that enrollment would grow exponentially if it kept pace
with demand. Although many state officials reported increasing demand,
waiting lists for entry into programs were not consistently used to
track demand.[Footnote 34] Not all states required local providers to
maintain waiting lists, and, in states without requirements, some local
providers did not keep such lists. Some state officials cited their use
of Census data as an indicator of demand to distribute resources.
Federal Support for Adult English Instruction Is Dispersed across Many
Programs That Collect Little Data and Have Limited Coordination:
English Language Instruction Is Authorized under Multiple Federal
Programs with Varied Purposes, and Few Have Data on the Extent of
Support:
Federal support for adult English language learning is dispersed across
a diverse array of programs within Education, HHS, and Labor, but most
of the programs that allow it do so in support of other program goals,
such as self-sufficiency, workforce attachment, or family literacy, and
do not collect data that would indicate participation in or spending on
adult English language learning. Of all the programs we reviewed, only
the Adult Education State Grant Program is explicitly focused on adult
English language learning. Administered by Education, this program
provides English language learning as one of three program areas. In
2007, about 46 percent of the state grant program's total enrollment
was in English language instruction. However, even this program does
not collect spending data specific to its English language learning
component.[Footnote 35] The program recognizes learners' multiple goals
in learning English, such as employment, citizenship, and increased
involvement in their children's education, and, as we have previously
mentioned, the federal program collects data from states on educational
gains in English language classes.
Other programs within Education, HHS, and Labor allow for English
language learning, as shown in appendix II. However, according to
federal officials responsible for administering these programs, none
systematically collects data on spending or enrollment, and only Even
Start, in addition to the Adult Education State Grant Program, collects
data on outcomes specific to adult English language learning.[Footnote
36] Anecdotally, across the federal programs, some of the federal
program officials with whom we spoke noted that some of their local
grantees provide English language instruction to adult participants
directly, while other grantees provide support indirectly by paying
English language providers to instruct participants or referring
participants to these providers. While the extent to which these
numerous programs support English language learning for adults is
unknown, during our site visits, we found various federal funding
streams being used by some of the community colleges, CBOs, and public
schools that we visited. Although most of the providers we visited drew
on the Adult Education State Grant Program to support their English
language learning activities, we also found other funding streams being
used. For example, among all providers that used more than one funding
stream, several providers received the Adult Education State Grant as
well as refugee program funding streams. However, some providers used
funds from as many as four or five federal programs.[Footnote 37]
These federal programs--under which adult English language learning is
allowable, but the extent of its use is unknown--vary greatly in
purpose and focus. In HHS, the Office of Refugee Resettlement provides
several funding streams that allow for English language learning. These
funding streams include Refugee Social Services formula grants,
Targeted Assistance Grants, and matching grants. While English language
instruction is provided concurrently with other services, refugee
agencies generally have just 8 months to place their clients in
employment. Also within HHS, under the Head Start Program, English
language learning for adults is allowable as a part of family literacy,
and, under the Temporary Assistance to Needy Families (TANF) block
grant, states may provide English language instruction as an activity
that supports clients' self-sufficiency, generally in the categories of
job skills or education directly related to employment, or vocational
education.[Footnote 38]
Within Labor, English language instruction is allowable under key
programs, such as Trade Adjustment Assistance, in which it may be
provided with other services to retrain workers who have lost their
jobs due to trade with foreign countries, and programs for Adults and
Dislocated Workers under WIA's title I.[Footnote 39] Other programs
under this title, including the Job Corps and the National Farmworkers
Jobs Program, also allow English language instruction, consistent with
these programs' training and employment missions. In addition, certain
of Labor's existing Community-Based and High Growth grants have
incorporated English language learning to some degree (see appendix
III). See appendix IV for the methods used to provide English language
instruction among the local grantees we visited that receive funds from
these various Labor funding streams.
Additionally, within Education, English language instruction is also
allowed as remedial or developmental education within, for example, the
Pell Grant program and certain Higher Education Act of 1965[Footnote
40] programs. Education and HHS manage certain programs, such as Even
Start and Head Start, that, while they serve children, may also reach
adults through their family literacy activities, and these activities
may include English language instruction. In addition, certain of
Education's other programs, such as those targeting after-school
programs and migrant education, may also reach adults and include
English language learning opportunities.
Federal Agencies Have Taken Recent Steps to Focus More Specifically on
English Language Learning:
In recent years, Education and Labor have developed some special
initiatives that involve English language learning as a distinct focus
(see table 1). Specifically, Education supported the development of a
new distance learning Web site for English language learners, known as
USA Learns, which became available in November 2008.[Footnote 41]
Through its Career Connections demonstration, Education addressed the
needs of high-skilled English learners, who participated in the funded
projects along with other adult education students, by providing access
to occupational training and English language learning opportunities.
Education also plans to study those English language learners who are
transitioning to adult basic education and adult secondary education
programs in order to prepare for postsecondary education and the
workforce--through an initiative known as Transitioning English
Language Learners (TELL). For its part, Labor has undertaken a
multifaceted initiative (the Limited English Proficiency and Hispanic
Worker Initiative) that relies, in part, on the nation's workforce
centers, also known as One-Stop Career Centers (one-stops).[Footnote
42] Labor developed tools to help one-stops serve limited English
clients: that is, it recalculated Census Bureau data on the limited
English population by local workforce area and issued guidance for
identifying this population's needs. As part of this initiative, Labor
issued several grants for English language learning in a workforce
setting. In San Diego, for example, workforce-oriented English language
instruction was provided to the new and existing employees of a large
shipbuilder. Finally, Labor's New Americans grants supported English
language instruction at one-stops and promoted referrals to Adult
Education State Grant Programs.
Table 1: Special Initiatives Related to Adult English Language Learning
at Education and Labor:
Education:
Agency/Initiative: USA Learns;
Description: Distance learning Web site [hyperlink,
http://www.USALearns.org] to help new Americans learn English. The Web
site went online in November 2008 and has had more than 500,000
visitors. The contractor also produced other materials related to
distance learning, such as a self-assessment tool for teachers, and
included links to professional development available online. Also, the
contractor briefed Adult Education State Grant Program directors at
their annual conference, and helped Education modify its reporting
system to allow data collection on distance learning.
Agency/Initiative: Career Connections;
Description: Demonstration at five sites to promote career training for
Adult Education State Grant Program students to help them transition to
postsecondary education and employment in high-demand fields. All five
sites involved English language learners. Education expects to produce
a manual that highlights practices at the sites in late 2009.[A]
Agency/Initiative: Transitions for English Language Learners;
Description: First major effort to study how English as a Second
Language students transition to adult basic education and adult
secondary education. Education expects to produce a report on this
initiative in 2010.
Labor:
Agency/Initiative: Limited English Proficiency and Hispanic Worker
Initiative;
Description: Undertaken in 2003 to respond to the needs of those with
high workforce participation and low English skills, the initiative
includes several components, including guidance, a Labor Web site,
retabulation of Census Bureau data on the limited English proficient
population by local workforce investment area, and projects involving
career training, as well as English language learning opportunities in
some cases, at five sites around the country. Labor officials stated
that evaluations were forthcoming.[B]
Agency/Initiative: New Americans Centers Demonstration Project grants;
Description: Grants to workforce agencies in Arkansas and Iowa to
develop one-stop-based English language learning services, relying on
direct service delivery, software, and referral to the states' Adult
Education State Grant Programs. The 3-year grants expired in 2008, but
Iowa's effort continues with other state funding. An interim report on
the grants has been issued.[C]
Sources: GAO reviews of agency documentation and interviews with agency
officials.
[A] Under this initiative, Education awarded $75,000 to each of the
following entities: Blue Grass Community and Technical College,
Lexington, Kentucky; Instituto del Progreso Latino, Chicago, Illinois;
Jewish Vocational Service, San Francisco, California; Madison Area
Technical College, Madison, Wisconsin; and Montgomery County College,
Wheaton, Maryland.
[B] The grants that Labor issued under this initiative in 2006 totaled
about $4.9 million and went to the following entities: Resource, Inc.,
a CBO, St. Cloud and St. Paul, Minnesota; Metropolitan Community
College, Omaha, Nebraska; the City University of New York Research
Foundation, New York City, New York; the San Diego-Imperial Counties
Labor Council, San Diego, California; and SER-Jobs for Progress
National, Inc., a national nonprofit organization based in Texas.
[C] Robin Koralek and Joanna Parnes, Assisting Newcomers through
Employment and Support Services: An Evaluation of the New Americans
Centers Demonstration Project in Arkansas and Iowa (Washington, D.C.:
The Urban Institute, February 2008).
[End of table]
Beyond these initiatives, federal agencies have also provided technical
assistance related to English language learning in administering their
standing grant programs, and, in Labor's case, regarding one of its
special initiatives. For example, within the Adult Education State
Grant Program, Education has monitored states' procedures for assessing
English language learners' proficiency and for reporting data on their
gains, and has also provided training on using data for program
improvement. Education has also disseminated information on 3 states'
approaches to performance-based funding.[Footnote 43] In addition to
technical assistance aimed at the Adult Education State Grant Program
overall, Education has, through a contractor, supported technical
assistance that focused on areas such as the training needs of teachers
who work with adult English language learners.[Footnote 44] Also, the
Office of Refugee Resettlement has supported technical assistance to
agencies serving refugees that addressed English language learning.
Likewise, the National Office of Head Start has supported technical
assistance to Head Start programs to inform them about English language
learning opportunities through the Adult Education State Grant Program,
according to an HHS official. For its part, Labor has sponsored a
webinar on its Limited English Proficiency and Hispanic Worker
Initiative and also has created a Web site and provided webinars for
Job Corps Centers that serve English language learners.
Coordination among Agencies Has Been Limited:
There has been some coordination among federal agencies on the subject
of English language learning. Our previous work has highlighted the
benefits of actions that federal agencies have taken to enhance and
sustain their collaborative efforts, including the ability to leverage
resources, improve quality, expand services, and reach more clients.
[Footnote 45] Yet, while Education, HHS, and Labor all serve
populations in need of language assistance, there is no ongoing
mechanism to share information or expand and capitalize on the
agencies' individual efforts.
The agencies have at times used interagency agreements to support
English language learning for adults. For example, Education and the
Department of Homeland Security's Office of Citizenship have an
interagency agreement to support a Web-based tool for lessons in civics-
and citizenship-oriented English language learning,[Footnote 46]
according to Homeland Security and Education officials. To promote
mutual understanding of their programs, HHS's Office of Refugee
Resettlement and Labor's Office of Workforce Investment temporarily
placed employees in one another's agencies and participated in each
other's conferences in 2008, with one result being a list of promising
practices. Additionally, Labor officials said that they have begun to
meet with Education officials to identify effective strategies for
adult learning, and that adult English language learning would be
included in this effort.
Beyond these collaborations, there have been some interagency task
forces established; however, generally these task forces have been
temporary and have not focused on adult English language learning. For
example, all three agencies, as well as other agencies, participated in
an interagency Task Force on New Americans, created in response to a
June 2006 executive order,[Footnote 47] and this task force issued a
report that touched on English language learning and other issues.
[Footnote 48] The task force, while still technically active, has not
met since the issuance of the report in December 2008, according to a
Homeland Security official. Also, in 2006, the agencies participated in
the Interagency Coordination Group for Adult Literacy to focus on
multiple objectives, including improving coordination, leveraging
resources and reducing duplication among federal agencies and programs,
sharing best practices, and helping states maximize the federal
investment in adult education. The group supported the creation of a
database of foundations supporting literacy efforts and developed Web-
based adult literacy resources, and, according to an Education
official, served as the starting point for an interagency group on
strengthening adult education, created by an executive order in 2007,
[Footnote 49] that fulfilled its mission with the issuance of a report
in 2008.[Footnote 50] These short-term collaborative efforts point to
the interest in and need for collaboration, and others have also
identified the need for collaboration specific to adult English
language learning. In 2006, NIFL convened a working group on English
language learning that, in 2007, recommended to NIFL interagency
coordination on adult English language learning "to facilitate
collaborative work and information sharing" to better serve this
population. However, as of the time of our review, according to a NIFL
official, the recommendation had yet to be considered by NIFL.
Additionally, we did not identify any federal agency that has been
specifically tasked to coordinate information sharing on adult English
language learning.
Further coordination between and among the agencies is still uncertain,
despite a common interest in English language learners' employment and
despite shared challenges in serving learners with certain
characteristics. For example, Education and HHS's Office of Refugee
Resettlement have discussed but not developed an interagency agreement
to provide local refugee programs with information on English learning
resources, and no exchange of staff with Education has been discussed
along the lines of what had been done with Labor. However, in technical
comments on a draft of this report, Education indicated that it is open
to collaboration with HHS, as well as other federal agencies, as
appropriate. Coordination between Labor and Education on their
respective initiatives has been variable. Although Education officials
reported helping Labor with its Limited English Proficiency and
Hispanic Worker Initiative, they had not involved Labor in Education's
employment-and training-related initiative, namely the Career
Connections project. For its part, while Labor has provided technical
assistance to one-stops and other stakeholders on working with the
Adult Education State Grant Program, it has provided no guidance or
technical assistance specifically regarding English language
instruction, according to Labor officials. Furthermore, although HHS's
Office of Refugee Resettlement and Labor's Office of Workforce
Investment took temporary steps to coordinate, as we have previously
discussed, an Office of Refugee Resettlement official said that it was
unclear whether such coordination would be reinitiated, despite the
benefits it provided in identifying additional resources available to
refugees.
The limited nature of federal efforts to coordinate is apparent in the
agencies' efforts to issue guidance and information that could help
local providers identify both promising practices for providing English
language instruction and additional resources in their communities for
providing such instruction. While guidance can support efficient and
effective coordination across programs, there has been no recent
guidance from HHS, for example, to grantees of the refugee resettlement
program for obtaining their language instruction resources through
local collaboration, despite an official's acknowledgment that the
refugee program's limited funding might require agencies serving
refugees to tap additional resources. For the TANF program, HHS
officials said guidance has been focused on how to count English
language instruction as an activity, but not on how to identify and
leverage local resources. Nor has the HHS Office of Community Services,
which manages the Community Service Block Grant program, issued any
guidance that would help local programs identify English instruction
resources in their communities, according to a department official.
Also, Labor's update of Trade Adjustment Assistance guidance focused on
the conditions under which English language instruction would be
allowable, rather than resources for how to best provide instruction.
[Footnote 51] Regarding Labor's 2003 initiative instructing one-stop
managers to develop plans for helping clients with limited English
proficiency (LEP plans), the guidance offered no specific information
on promising practices or information about local resources available
through the Adult Education State Grant Program. Additionally, an
official of the National Farmworkers Job Program said that this program
has issued no guidance on this topic. An exception to the absence of
information on resources and opportunities for local collaboration is
Education's Web site, "Community Partnerships for Adult
Learning."[Footnote 52] This Web site offers information on how to
collaborate locally, based on 12 community profiles, and makes it
possible to search for examples involving English language instruction.
At the same time, however, we found that many local providers were
unaware of Education's USA Learns Web site providing English language
instruction, despite federal efforts to publicize it.[Footnote 53]
Although Labor did apprise its regional offices of this resource, 22 of
the 28 farmworker program grantees whom we contacted were not aware of
it, none of the Job Corps operators we contacted had heard of USA
Learns, and an association of refugee agencies also was not acquainted
with the Web site.
Representatives of programs serving certain populations of English
language learners, including refugees, farmworkers, and Job Corps
students, said that greater coordination could benefit their clients
by, for example, offering information about innovative practices,
access to teacher training opportunities, and the efficient use of
scarce resources. For example, certain agencies that serve refugees at
the local level expressed interest in information about additional
English language learning resources that could benefit refugees after
their job placement. Additionally, an official of an association of
refugee-serving agencies said that, while some refugee agencies might
be aware of the Adult Education State Grant Program's English language
learning component, others might not or might have questions about
refugees' eligibility for it. This official also noted that refugee
agencies would be likely to welcome information about additional
English language learning opportunities for their clients, given scarce
resources in the refugee system. A farmworkers' program grantee said
that the benefits of greater coordination could include access to
updated and innovative materials, curricula, and teaching methods, as
well as access to additional teacher training opportunities, while
others pointed to access to additional resources. Among Job Corps
Center managers with whom we spoke, the potential benefits cited
included additional information for centers inexperienced in serving
English language learners, additional information about promising
instructional practices, and additional information about curricula
that combine English language learning and occupational skills
training.
In addition, it is important to note, all three agencies serve
subpopulations of English language learners who share some
characteristics. For example, providers of services under the Adult
Education State Grant Program and refugee funding streams, Job Corps
Center managers, and officials of the farmworkers' program all
indicated the presence of beginning English learners among their
clients, such as those who lack literacy in their primary language.
Among those who mentioned this subpopulation, effectively and
efficiently serving these learners was frequently described as
challenging. In addition, some refugee-serving agencies told us that
some refugees are highly educated--precisely the subpopulation targeted
by several local programs through Education's Career Connections
initiative.
States and Service Providers Have Used a Range of Strategies to Support
Adult English Language Learning:
States have supported adult English language learning in a variety of
ways, particularly through the one federal program with an explicit
focus on English language learning--the Adult Education State Grant
Program--but also beyond this program. They have provided matching
funds at various levels for this program and devised additional ways to
enhance their support. Moreover, some states are addressing program
quality through teacher qualifications and training, content standards,
and other means and are developing mechanisms for local planning.
Additionally, some states are coordinating with other programs. States
and local providers are also taking steps to integrate English language
instruction with occupational training. Furthermore, states are
supplementing these activities with their own efforts to support
English language instruction, such as through libraries and special
schools. Some state agencies and local providers are exploring
innovative practices and are carrying them out in a great variety of
ways and venues, both within and beyond the Adult Education State Grant
Program.
States Varied in Their Overall Level of Support for the Adult Education
State Grant Program and in Their Efforts to Enhance English Language
Learning:
Within the Adult Education State Grant Program, the 12 states that we
contacted--states with either the largest or most rapidly growing
limited English proficient populations--varied substantially in the
amount of state funding they contributed. While most states did not
distinguish the funding they provided for English language learning
from the funding provided for other components of adult education,
their financial contributions for adult education varied considerably.
Specifically, state and local spending used to match Federal Fiscal
Year 2005[Footnote 54] funds ranged from the federally required 25
percent minimum in Tennessee and Texas to 88 percent of total spending
in California and 90 percent in Florida.[Footnote 55] At least 2
states--California and New York--described current or planned
reductions to their state contributions to the Adult Education State
Grant Program.[Footnote 56] Meanwhile, officials for Arizona's program
said that their program has begun to track funding for English language
learning separately, to provide a specific focus on such learning as a
distinct activity.[Footnote 57]
The states we contacted reported using a variety of considerations in
allocating funding to local areas under the Adult Education State Grant
Program, and some reported that they are beginning to use provider
performance as a consideration. While Minnesota used factors such as
instructional hours in allocating funds to local providers, other
states--including Arizona, Florida, Illinois, and New Jersey--directed
funding to local programs, at least in part, on the basis of the size
of the local limited English proficient population, using Census Bureau
data. Illinois further emphasizes need, according to a state official,
by giving extra weight to the population least proficient in English.
[Footnote 58] In terms of performance-based funding, while California
adopted this funding approach after the passage of WIA in 1998,
Illinois has considered local provider performance in distributing
funding to local programs since 2005, according to officials in each
state. According to a Florida official, that state is redesigning its
funding formula to emphasize performance, beginning July 1, 2009. Also,
Tennessee is also revising its formula to give greater weight to
performance, with an anticipated implementation in 2010, according to
an official from that state.
Most of the 12 states we contacted through our semistructured telephone
interviews also reported taking steps to improve the quality of English
language teaching, such as by supporting professional development for
English language teachers. Ten states had set minimum requirements for
teaching English--typically, a state teacher's license or a Bachelor of
Arts degree--while 2 states had no specific teacher
qualifications.[Footnote 59] Generally, however, in those states that
had established qualifications, they were the same as those for other
adult education teachers. Two of these states had or were developing
qualifications specific to teachers of English language learners:
California required a special credential for such teachers, and
Arizona, according to state officials, was developing standards that
would delineate specifically what teachers of English language learners
need to know. Additionally, 1 state--Arkansas--requires certain
providers to adhere to standards specifically for volunteers who work
with English language learners through the Adult Education State Grant
Program.[Footnote 60] To augment these minimum qualifications, most
states addressed teachers' training needs through professional
development activities. Six states had set an annual minimum number of
professional development hours, although this minimum varied widely,
from 5 to 60 hours.[Footnote 61] Additionally, all but 1 of the 12
states reported using most of their Adult Education State Grant state
leadership funds to finance their teachers' professional development.
For example, Arkansas, Illinois, and Nevada have used such funding for
special centers, which can provide professional development
opportunities for teachers of English language learners. Furthermore, 8
of the 12 states reported having adopted content standards to guide
English language instruction.[Footnote 62] Among the reasons that these
states cited for developing content standards was consistency of
instruction statewide.
States and local providers with whom we met also cited ways in which
they were using NRS data on English language learners to improve
service delivery. For example, in Washington State, the Adult Education
State Grant Program agency officials said they discovered through
reviewing program data that learners' outcomes were lower in classes
that were held at certain locations, and were subsequently able to make
changes in those locations by addressing the needs of teachers, actions
that the officials said eventually led to better results. Furthermore,
this agency has developed a workshop for local providers to train them
on how to use data for program improvement. At the local level, one
provider in Washington State reported using the data to compare day and
evening classes and make adjustments in their scheduling without
adversely affecting outcomes. Moreover, officials of California's Adult
Education State Grant agency described using the data to determine that
numbers of English language learners were not successfully
transitioning to adult basic education, and worked closely with a
technical assistance provider and held regional meetings to address
this issue.
Also within the Adult Education State Grant Program, states reported
providing technical assistance to local providers, sponsoring special
projects on a variety of topics, or taking other steps to address
program quality. For example, Illinois provided training on its new
content standards to local providers to support their curriculum
development. Florida and New Jersey reported efforts to focus on
beginning-level learners by providing special training and issuing
targeted grants, respectively. In addition, California provided
technical assistance to local programs to find ways to improve student
retention. The state has also piloted an electronic English language
assessment in certain locations to increase efficiency and reduce
teachers' burden in conducting written assessments. Additionally,
Arizona has adopted stricter enrollment policies, a step described by
state officials as part of their effort to address program quality for
English language learners. Finally, Florida and California also
supported provider efforts to offer distance learning opportunities for
English language learners, and 5 other states are exploring distance
learning applications for English language learning through a project
sponsored by the University of Michigan.[Footnote 63]
Mechanisms to guide and coordinate local service delivery have been
developed in 2 of the 4 states that we visited--Illinois and Minnesota.
According to a state official, Illinois has established about 30 Area
Planning Councils across the state comprising a diverse array of
providers that are required to meet twice a year and submit annual
areawide service plans. These councils can encourage individual
providers to focus on specific skill levels to minimize duplication of
services. While Adult Education State Grant providers must belong to
these councils, they may also include representatives from state
agencies and the private sector, and, in some cases, agencies that
serve populations outside the Adult Education State Grant Program.
[Footnote 64] Meanwhile, Minnesota relies on 53 local consortia of
providers for local service coordination, and requires them to submit
comprehensive plans every 5 years. For example, the St. Paul Community
Literacy Consortium includes both public schools and CBOs; according to
state officials, the public schools generally serve more advanced
learners, while the CBOs serve more beginning-level learners. In
addition to facilitating the targeting of resources in this way, the
consortium structure has, according to a consortium official, allowed
individual providers to work together to respond to emerging trends and
explore common interests, such as the uses of technology for English
language learners.
Some States and Local Providers Coordinated with Other Federally Funded
Programs:
Some state agencies that manage the Adult Education State Grant Program
and the local providers they support have taken steps to coordinate
with other federal-and state-funded programs that serve populations
likely to need this help--particularly refugees, those seeking
assistance through one-stops, and those receiving public financial
support. For example, Washington State has established an "LEP Pathway"
that refers refugees and TANF clients to providers of English language
instruction. According to state officials, many, although not all of
these providers, also receive funding from the state's Adult Education
State Grant Program agency.[Footnote 65] According to state officials,
the LEP Pathway has helped ensure timely and culturally appropriate
services for refugees, particularly for the majority who are beginning-
level English speakers, and given the state a flexible way to respond
to changes in refugee flows from different countries and primary
languages. In Minnesota, the state agency that administers both TANF
and services for refugees uses a state-funded family stabilization
program to serve most limited English clients, which serves these
clients for 1 year to address a variety of barriers to immediate
employment, including limited English.[Footnote 66] Additionally,
Minnesota's refugee program has transferred funding to its Adult
Education State Grant Program agency, to secure seats in English
language classes for refugees within the relatively short period before
they are placed in employment. In Florida, the refugee Program
contracts with local Adult Education State Grant Program providers for
English language instruction, according to a state official. By
contrast, Nevada's Adult Education State Grant Program agency has
provided funding to that state's refugee agency, as one of several
English language providers.
Among the 12 states we contacted through semistructured telephone
interviews, 6 reported formal, state-level coordination between the
Adult Education State Grant Program and the TANF program.[Footnote 67]
For example, Arkansas officials reported that this coordination helped
target learners at the beginning levels. Texas officials reported that
such coordination helped prevent duplication of effort and facilitated
the co-training of staff from both the Adult Education State Grant
Program and the TANF program. None of the 12 states, on the other hand,
reported formal coordination at the state level between agencies
administering the Adult Education State Grant Program and those
administering services for refugees.
Furthermore, of the 12 states we contacted through semistructured
telephone interviews, 8 reported formal, state-level coordination
between the Adult Education State Grant Program and the state agency
that administers the one-stop system.[Footnote 68] For example, New
York's Adult Education State Grant Program officials said that English
language instruction is available at all one-stops in New York City.
Other states that reported English language instruction on-site at one-
stops were Alaska and Tennessee. Beyond these 12 states, Minnesota's
Adult Education State Grant Program specifically requires all local
providers to establish formal agreements with their local one-stops to
include help for English language learners, as well as other adult
education clients, such as those needing basic skills. While Georgia
officials did not report formal, state-level coordination, they did
report that such coordination, including the co-location of services,
occurs on the local level. States reported that their state-level
coordination with the one-stop system involved functions such as
assessment (Arkansas and Texas), improved referral (Arizona), and a
special pilot in 12 sites to electronically assess both literacy and
job skills (California). State officials also attested to some benefits
from this formal, state-level coordination between the two programs. In
Tennessee, officials said this coordination provided better services
for clients and reduced the burden of filling out multiple forms in
multiple locations, while Texas officials said that it has helped
provide access to work and training programs.
Meanwhile, some states reported coordination with other federal or
federally supported programs, such as Even Start, postsecondary
education, and the federal program for farmworkers. For example,
Illinois and Texas reported state-level coordination between English
language learning under their adult education programs and the Even
Start program, a family literacy program administered by Education.
[Footnote 69] Illinois officials reported that its Even Start program
has a representative on an adult education advisory board, in an effort
to ensure that the programs' policies are consistent. Additionally,
Adult Education State Grant Program agencies in Arizona, Illinois,
Minnesota, and New York reported initiatives that focused on
transitioning English language learners to postsecondary education.
[Footnote 70] On another front, Florida's farmworkers' program is
housed within the same division of the state education department as
the Adult Education State Grant Program. According to a state official,
coordination between the two programs has reduced testing costs for the
farmworkers' program, allowed the farmworkers' program to focus on its
primary mission of employment, provided access to information about
promising practices in English language instruction, facilitated joint
efforts to serve beginning-level learners, and created opportunities
for program clients to continue their training.
However, such coordination efforts were not universal, and some
providers, particularly refugee agencies in California and Washington
State, said they did not know how to access or acquire additional
resources through the Adult Education State Grant Program, despite, in
some cases, expressing a need for such additional resources.
Furthermore, officials of one of these refugee-serving agencies said
that it would be prohibitively expensive for the agency to pay Adult
Education State Grant Program providers to secure seats for refugees in
their classes.
Some States and Local Providers Are Exploring Ways to Integrate English
Language Learning and Occupational Training:
In a variety of settings, a number of states are combining occupational
training with English language instruction to support local workforce
development and to improve the ability of new English speakers to gain
employment. In 2004, Washington State began to merge English
instruction with occupational instruction in its community college
classrooms as a pilot program. The project was designed to shorten the
time that it was taking new learners to progress from mastering English
to mastering an occupational skill. According to state officials, a
sequential approach had required as long as 7 or 8 years, in some
cases. Today, Washington State has adopted the dual approach of the
pilot program for its occupational curricula at community colleges and
expanded this approach statewide. Under this program, called I-BEST, or
the Integrated Basic Education and Skills Training Initiative, each
classroom has both an occupational skills teacher and a basic skills
teacher, who may be an English language instructor. While the
particular occupational tracks at the community colleges vary, each
reflects jobs that are in demand locally, according to state officials.
Occupational programs are available, for example, for English language
learners who seek to become nursing assistants, medical assistants,
phlebotomists, automotive technicians, welders, accountants, and
advanced manufacturing workers, among other occupations. In May of
2009,[Footnote 71] an evaluation of I-BEST reported better educational
outcomes for participants, including English language learners,
compared with nonparticipants.[Footnote 72] Illinois and Minnesota,
which we also visited, as well as Indiana, Ohio, and Wisconsin have
been exploring other approaches to integrating English and occupational
training under the Joyce Foundation's Shifting Gears initiative.
Certain states we contacted had targeted English language learners in
high-demand occupations in other ways. Minnesota's workforce agency has
used a state-funded program to support workforce-oriented English
language learning with projects that required employers to provide
matching funds. To date, the program has sponsored projects in
occupational fields such as manufacturing, health care, food
processing, hospitality, and horticulture. In addition, its workforce
agency and its department of education, which manages the Adult
Education State Grant Program, have collaborated on 14 projects, some
of which integrate English language learning in fields such as
manufacturing and health care. All 14 projects will be evaluated,
according to state officials. In Texas, the Adult Education State Grant
Program and workforce agencies have collaborated to develop industry-
specific curricula for English language learning in the fields of
services, manufacturing, and health care. Florida is planning to refine
its existing curriculum in order to make it industry-specific,
according to a state official. In addition, Arizona has used federal
incentive funding for health care education and training for limited
English proficient and other low-skilled adults.[Footnote 73]
Some local providers of adult education programs have also responded to
employer requests for customized English language instruction for their
employees. An Illinois community college, for example, provided classes
to various companies, including a printing company, often with support
from certain city and state grants. At the state level, Illinois has a
program to support such workplace-based activities that serve English
language learners and others with literacy needs, with employers paying
part of the cost.[Footnote 74] Also, a California community college
provided English lessons to culinary workers, and a California CBO
provided safety-oriented English instruction to warehouse workers.
However, some providers told us that their ability to contract with
employers to provide such customized English language instruction
depends on factors such as having enough people enrolled to meet costs,
while accommodating different levels of English proficiency.
In the course of our site visits, we visited a number of local
providers involved in combining English language instruction with
occupational training. These providers were involved with a wide range
of industries and venues for training or retraining workers, and they
used a wide range of funding sources (see table 2). For example, one
community college provider in California placed an English language
instructor in the same classroom with the occupational instructor, who
taught advanced carpentry. In other cases, to accommodate workers'
schedules, providers delivered English language and occupational
instruction at different times, or--when it was delivered on-site--
between shifts. Another model, used at community colleges, such as City
College of San Francisco and Cerritos College in Norwalk, California,
involves offering a "support course" with terms and concepts specific
to certain occupations; college officials told us this English language
support course may precede or follow the occupational course.
Table 2: Examples of Local Workforce-Oriented English Language
Instruction:
Provider: Cerritos College;
Provider type: Community college;
Location: Norwalk, California;
Description of activity: Collaborated with local one-stop to provide
workforce-oriented English language instruction to dislocated workers
in automated machining industry in 2007.
Provider: City College of San Francisco;
Provider type: Community college;
Location: San Francisco, California;
Description of activity: Provides several models of workforce-oriented
English; has developed courses for English language learners in early
childhood development, culinary occupations, and health.
Provider: The English Center;
Provider type: Community-based organization;
Location: Oakland, California;
Description of activity: Provides English language instruction and
career readiness services.
Provider: Hubbs Center for; Lifelong Learning;
Provider type: Public school;
Location: St. Paul, Minnesota;
Description of activity: Provides "preoccupational" English language
instruction to prepare learners for work as nursing assistants,
commercial kitchen workers, boiler maintenance technicians, child care
workers, and commercial drivers.
Provider: Instituto del Progreso Latino;
Provider type: Community-based organization;
Location: Chicago, Illinois;
Description of activity: Combines English language instruction with
community college occupational training in health to allow trainees to
become certified as nursing assistants or pursue additional training in
health careers.
Provider: Jewish Vocational Service;
Provider type: Community-based organization;
Location: San Francisco, California;
Description of activity: Combines English language instruction and
occupational training to retrain those who have lost jobs as garment
workers to pursue careers in health; also provides English language
instruction to foreign-born medical professionals.
Provider: Laney College;
Provider type: Community college;
Location: Oakland, California;
Description of activity: Combines English language instruction and
occupational training to students in advanced carpentry and other
fields.
Provider: St. Cloud Workforce Center;
Provider type: One-stop;
Location: St. Cloud, Minnesota;
Description of activity: Collaborated with Adult Education State Grant
Program most recently in 2008 and 2009 to provide on-site English
language instruction at a food processing company that provided some
matching funds.
Sources: GAO interviews with representatives of the entities shown in
this table.
[End of table]
Some States Funded Their Own Programs:
Aside from their use of Adult Education State Grant Program funds, some
states and local jurisdictions have supported English language learning
through additional programs of their own, such as through state
literacy organizations, libraries, and special schools, and some states
aim to offset employers' costs by offering tax credits or other
incentives. In 2007, California had enrolled some 466,000 adults in its
own English language learning program for adults--almost as many as
were enrolled (528,000) in its Adult Education State Grant Program. The
state has also invested $50 million annually in its Community-based
English Tutoring program, which officials said has, heretofore, reached
about 1.5 million adults each year.[Footnote 75] New Jersey also funds
a separate state-funded program to provide English language learning
opportunities through the one-stop system, that, according to state
officials, has reached about 6000 individuals annually.[Footnote 76]
Also, Illinois has a state-funded program to provide civics-and
citizenship-oriented English language instruction that it has funded at
about $2 million annually.[Footnote 77] At the local level, New York
City funds an initiative that serves about 30,000 English language
learners annually, according to a city official.[Footnote 78]
Family literacy programs, which can include English language
instruction for parents as well as children, have also been an area of
state and local activity. Illinois has such a program, which aims to
serve those whose child care responsibilities may prevent them from
accessing other services. According to a state official, the program
was funded at $1.2 million in state fiscal year 2008 and served about
900 adult participants, the majority of whom were English language
learners.[Footnote 79] A local agency in Los Angeles County has used
revenue from a state tobacco tax to provide English language learning
opportunities through family literacy activities. According to an
agency official, this project served 688 adults in state fiscal year
2008. Additionally, local public schools in 75 locations across the
country, including in Memphis, Tennessee, have developed family
literacy programs that focus specifically on English language learners,
with support from Toyota and the National Center for Family Literacy,
according to a representative of the center.[Footnote 80]
Other states have supported English language learning indirectly, by
supporting the volunteers who work with English language learners and
others enrolled in Adult Education State Grant Program activities. In
Illinois, a state agency--the Office of the Secretary of State--has
provided access to training and set standards for volunteers who work
in these programs. By contrast, in Washington State, a private
association that receives state funding fulfills these functions. In
fact, when we asked about standards for volunteers, officials from 5 of
the 12 states we contacted said that such standards had been set by
entities other than the Adult Education State Grant Program.[Footnote
81]
Public libraries have been another venue by which states and local
governments have provided funds for English language learning.
Officials of the California State Library, for example, told us that
the Library has a program that reaches more advanced English language
learners and some libraries in the state also use local resources,
grants, and fund-raising to support their own English language learning
activities. Officials of Arizona's Adult Education State Grant Program
also noted that their agency has transferred funding to the Arizona
State Library to support services for English language learners. Some
have estimated that a significant portion of public libraries across
the country provide English language instruction.[Footnote 82]
Additionally, in seven communities around the country, libraries and
other entities, including some adult education providers, have begun to
develop an Internet tool, known as the Learner Web, that can help adult
English language learners access online and community resources.
[Footnote 83] Public support for people learning English through their
libraries was also augmented in 2008 with a grant from the American
Library Association and the Dollar General Foundation, which awarded
one-time grants to 34 libraries in 18 states to better serve adult
English language learners.[Footnote 84]
Also aside from activities associated with the Adult Education State
Grant Program, some states have supported adult English language
learning through special schools. For example, Washington State
provides funding for a vocational school for farmworkers, the Community
Agriculture Vocational Institute. According to the local farmworkers
program director, the school incorporates workforce-oriented English
language instruction as part of tractor, ladder, and pesticide safety
classes.[Footnote 85] In Arizona, there are charter schools managed by
both a National Farmworkers' Jobs Program grantee and a Job Corps
Center that provide English language instruction to young adults.
[Footnote 86] In the District of Columbia, a charter school for adults,
the Carlos Rosario International Public Charter School, combines
English language instruction with occupational training in computer
technology and culinary arts.
Finally, a few of the state officials we interviewed reported that
their states have devised incentives for employers to provide English
language learning opportunities. According to state officials,
employers in Florida and Georgia may claim a tax credit for providing
training for their employees, and this training can include English
language instruction. In New Jersey, according to state officials,
employers can be reimbursed for one-half of their employees' salaries
while the employees are in training, including English language
instruction.
Federal Agencies Have Undertaken Some Research, but Have Not
Coordinated Research Planning across Agencies on Adult English Language
Learning:
At the time of our review, Education had one research study under way
to test the effectiveness of a particular approach to adult English
language learning, and Education and Labor had some ongoing work
related to adult English language learners. Education officials said
that there had been little research on what approaches are effective
for adult English language learning, and that there are limited federal
funds for rigorous research. However, while agencies cited a few
efforts to collaborate on specific projects, they had not coordinated
research planning across agencies to systematically leverage research
resources for increasing the knowledge base regarding adult English
language learning.
Education was funding a study, led by IES, evaluating the effectiveness
of one instructional strategy for low-literacy English language
learners. Funded using $6.9 million in AEFLA national leadership
dollars over multiple years, the study's final report is expected in
the summer of 2010.[Footnote 87] The impetus for this research,
according to Education officials, was that while English language
learners made up the largest share of participants in the Adult
Education State Grant Program, there had been little research on what
approaches are effective for adult English language learners and few
instructional strategies are available for low-literacy English
language learners. The particular literacy textbook being tested,
according to the study's design report, was chosen on the basis of its
consistency with characteristics identified in literature as promising,
as well as through recommendations from experts in the field.[Footnote
88] Depending on the results of the study, Education officials said
they expect that the results could be disseminated for use at the
classroom level and could make classroom materials more research-
based.[Footnote 89]
Also at the time of our review, Education and Labor were doing analyses
of the NAAL survey data looking at literacy levels of adults, including
those of English language learners. Education's OVAE and Labor's
Employment and Training Administration had a memorandum of
understanding covering a contractor's preparation of four issue briefs
on the NAAL data, including one brief on the literacy of nonnative
English speaking adults. According to Education and Labor officials,
the briefs are expected to be released in the late summer of 2009. In
addition to this joint effort, according to Labor officials, the
contractor is using the NAAL data to prepare a separate report for
Labor's Employment and Training Administration, expected in early 2010,
that will address the literacy of the working poor, workers in high-
growth and declining occupations and industries, and nonnative English
speaking workers, and address how this information may be utilized when
serving these populations in the public workforce system. Separately,
Education's NCES was finalizing two studies, according to an NCES
official, expected to be released in one report in 2009, examining the
oral reading and contextual reading skills of adults with the lowest
levels of literacy. The NCES official with whom we spoke about the
studies said that the studies will discuss the results for different
subgroups, including nonnative English speakers.
Federal officials cited interest in identifying effective approaches to
adult English language learning but said that little research on adult
English language learning has been conducted or planned by federal
agencies because of cost and competing priorities. However, officials
did not identify steps to coordinate research planning on adult English
language learning across agencies. Education officials said that there
are limited funds for rigorous research and multiple research
priorities within the department. Furthermore, officials noted that
sound research takes years of investment and strategic planning.
However, at the same time, officials from the agencies did not identify
efforts to coordinate research planning across agencies on adult
English language learning, which could help leverage resources used for
research. For example, the NCES official responsible for the NAAL
studies reported being unaware of Labor's NAAL work at the time that we
spoke, and asked for more information about Labor's effort to avoid
duplicating efforts. NIFL prepared a working document of research
themes and priorities in adult literacy, with input from experts in the
field, as well as Education's OVAE. However, the document was submitted
to its Interagency Group in January 2008 and, according to a NIFL
official, no further action has occurred.
In 2007 and 2008, two working groups identified the need for better
collaboration across Education, HHS, Labor, and NIFL on adult education
and English language learning research. In September 2007, a planning
group, organized to help NIFL consider options for its future work on
issues related to adult English language learners, recommended a system
to coordinate research efforts on adult English language learner
education across organizations and agencies to ensure that strong
research methodologies are used and to develop a common knowledge base.
However, implementation of this recommendation has not yet been
considered by NIFL. Similarly, in July of 2008, the Interagency Adult
Education Working Group, convened to fulfill Executive Order 13445,
[Footnote 90] reported that there was no unified federal research
agenda for adult education, and that, across Education, HHS, Labor, and
NIFL, each entity invested in research addressing its individual
programmatic needs without considering holistically what educators and
policymakers need to know about adult learning. The group recommended
greater collaboration in research planning efforts to leverage funds to
invest in high-quality scientific research. Specifically, the group
recommended that federal agencies meet annually to discuss current and
planned research efforts to provide agencies with the opportunity to
coordinate their efforts and permit them to plan joint research efforts
when possible.[Footnote 91] In technical comments on a draft of this
report, Education indicated that it intends to address the
recommendations of the working group, but is "awaiting any final
decisions until appropriate leadership positions at Education have been
filled under the new administration."
Conclusions:
The landscape for providing English language instruction to adults is
multifaceted. In addition to the numerous federal programs identified
in this report, English language instruction can also be provided by
for-profit vendors, private employers, and volunteer organizations.
Regarding federal support, there is a wide array of federal programs
that may provide English language instruction to adults, yet little
data on the extent to which these programs are providing English
language instruction. Because they vary greatly in purpose and focus,
it is understandable that these programs do not collect data on the
extent of support for adult English language instruction; however, in
our view, more coordinated information sharing across these programs
and their agencies would have a number of possible benefits.
Specifically, coordinated information sharing may help agencies assess
the demand for services and find the best ways to deliver those
services, help agencies discover inefficiencies in program operations
and make improvements that may reduce program costs or increase the
number of people served, and help to improve the quality of services by
learning about the most effective way to deliver services and obtain
positive outcomes. During our review, we found a few instances in which
agencies shared information about their initiatives, but we also found
instances of missed opportunities to use resources and information to
benefit the missions of more than one agency. Similarly, during our
review, we found that the agencies invested resources in research
studies without taking steps to consider other research needs or plans
across agencies. Greater collaboration in research planning could
ensure that limited funds for research are put to the best possible use
in a field in which there is little research indicating what is
effective. Such planning efforts would allow agencies to think more
globally about the needs and priorities for research in this area and
could help to build a common base of knowledge to inform practitioners
on effective approaches to English language instruction for adults. The
speed with which adult English language learners acquire English
proficiency not only affects the livelihood of these learners and their
children, but also their ability to effectively participate in civic
life. Without a more coordinated approach, the limited resources
available to facilitate English language learning among those who seek
it may not be used to their optimal benefit.
Recommendations for Executive Action:
To ensure that federal programs, states, and local providers are able
to optimize resources and knowledge in providing adult English language
instruction, we recommend that the Secretary of Education work with the
Department of Health and Human Services, the Department of Labor, and
other agencies as appropriate to develop a coordinated approach for
routinely and systematically sharing information that can assist
federal programs, states, and local providers in achieving efficient
service provision. Such coordination may include the following
activities:
* developing interagency agreements for sharing information on
resources that states and local programs may leverage for adult English
language learning,
* devising a plan for routinely sharing information on available
technical assistance,
* reviewing the extent to which federal guidance assists local
providers in leveraging resources,
* meeting regularly to discuss efforts under way in each agency and to
consider potential for joint initiatives, or:
* establishing clear time frames for the accomplishment of joint
objectives.
To ensure the most efficient use of available research resources and to
inform practitioners and other stakeholders in the area of adult
English language instruction, we recommend that the Secretary of
Education work with the Department of Health and Human Services, the
Department of Labor, and the National Institute for Literacy to
implement a coordinated strategy for planning and conducting research
on effective approaches to providing adult English language instruction
and disseminating the research results.
Agency Comments and Our Evaluation:
We provided a draft of this report to the Department of Education, the
Department of Health and Human Services, the Department of Labor, and
the National Institute for Literacy for review and comment. Education,
HHS, and Labor provided written responses to this report (see apps. V,
VI, and VII). The three agencies concurred with our recommendations.
Education and Labor also provided technical comments, which we
incorporated as appropriate. NIFL indicated that it had coordinated
with Education, and had nothing to add to Education's comments.
In its formal comments, Education noted that the recommendations were
consistent with those of the Interagency Adult Education Working Group,
whose July 2008 report, pursuant to Executive Order 13445, identified
the potential benefits of coordination at the federal level on adult
education. Education also noted that a coordinated federal approach to
research is necessary to address the most important issues in adult
education, including English language learning, and would help ensure
that the federal investment in research is optimized. Additionally,
Education expressed the intent to pursue relevant opportunities for
increased coordination with other federal agencies.
HHS's formal comments emphasized the need for broader resource mapping
and coordination across all levels of government and nonprofit entities
to ensure the successful delivery of English language instruction.
Finally, Labor, in its formal comments, indicated that it agreed that a
coordinated approach to sharing information and conducting planning and
research is key to optimizing resources and knowledge in providing
English language instruction. Labor added that it is committed to
strengthening cooperation with Education and HHS. Additionally, in a
separate e-mail, Labor indicated the concurrence of the National Office
of Job Corps.
We are sending copies of this report to the appropriate congressional
committees, the Secretary of Education, the Secretary of Labor, the
Secretary of Health and Human Services, the Director of NIFL, and other
interested parties. In addition, the report will be available at no
charge on GAO's Web site at [hyperlink, http://www.gao.gov].
If you or your staff have any questions about this report, please
contact me at (202) 512-7215 or ashbyc@gao.gov. Contact points for our
Offices of Congressional Relations and Public Affairs may be found on
the last page of this report. GAO staff who made major contributions to
this report are listed in appendix VIII.
Sincerely yours,
Signed by:
Cornelia M. Ashby:
Director, Education, Workforce, and Income Security Issues:
[End of section]
Appendix I: Scope and Methodology:
Our review focused on (1) trends in the need for and enrollment in
federally funded adult English language programs, (2) the nature of
federal support for adult English language learning, (3) ways in which
states and local public providers have supported English language
programs for adults, and (4) federal agencies' plans for research to
identify effective approaches to adult English language learning.
Overall, to address these research objectives, we selected three key
federal agencies--the Departments of Education, Health and Human
Services (HHS), and Labor--to be included in the scope of our review.
We selected these agencies on the basis of their missions to administer
education-and workforce-related programs. We also selected these
agencies because of their mandate to collaborate with the National
Institute for Literacy (NIFL), which is tasked with serving as a
resource to support literacy--the development of reading and writing
skills--across all age groups.
To answer all of our research objectives, we also conducted state and
local interviews in California, Illinois, Minnesota, and Washington
State. We selected these states for our site visits because they
provided a mix of large, adult limited English proficient populated
states (California and Illinois) and high-growth states (Minnesota and
Washington State). We also selected these states for diversity in
administrative structures and practices under way regarding adult
English language learning. For example, Minnesota's and California's
Adult Education State Grant Programs are housed within their state
education agencies, while Illinois' and Washington State's are housed
in the community college agencies. In addition to these site visits, we
selected 12 states for semistructured telephone interviews with state
officials responsible for administering the Adult Education State Grant
Program. Of these 12 states, 6 were selected because they had the
largest adult limited English proficient populations in the nation in
2007 (California, Florida, Illinois, New Jersey, New York, and Texas),
and the other 6 states were selected because they had the highest
growth rates in their adult limited English proficient populations from
2000 to 2007 (Alaska, Arizona, Arkansas, Georgia, Nevada, and
Tennessee). To determine the states with the largest and highest growth
adult limited English proficient populations, we used U.S. Census
Bureau data on the English speaking ability of adults ages 18 and over
who speak a language other than English at home[Footnote 92].
Specifically, we used American Community Survey (ACS) data for 2007 to
determine the largest adult limited English proficient populated
states, and we used 2000 Census data and 2007 ACS data to determine the
states with the highest growth. Together, the 12 states account for 75
percent of the national adult limited English proficient population and
75 percent of the Adult Education State Grant Program's national
enrollment in English language classes for 2007. In addition, we
consulted with outside researchers, academics, industry associations,
union representatives, and others--including the American Library
Association, AFL-CIO, Asian-American Justice Center, Association of
Farmworker Opportunity Programs, Catholic Legal Immigration Network,
Center for Law and Social Policy, Institute for the Study of
International Migration, Literacywork International, Migration Policy
Institute, National Association of Manufacturers, National Council of
State Directors of Adult Education, National Center for Family
Literacy, National Coalition for Literacy, National Council of La Raza,
National Job Corps Association, Pew Hispanic Center, Proliteracy,
Refugee Council USA, and the U.S. Chamber of Commerce.
To determine what is known about trends in the need and enrollment in
federally funded programs, we reviewed and analyzed Census and ACS data
on English language speaking ability for 2000 to 2007. Both the
decennial Census and ACS collect self-reported information on the
English language speaking ability of respondents who speak a language
other than English at home. Specifically, respondents are asked whether
they speak English "very well," "well," "not well," or "not at all." To
assess the reliability of the Census Bureau data, we (1) reviewed
Census Bureau documents and external literature on the reliability of
the data and (2) met with internal GAO staff knowledgeable about the
reliability of the Census Bureau data. We also reviewed Adult Education
State Grant Program enrollment data for 2000 to 2007 reported in the
Adult Education National Reporting System (NRS). To assess the
reliability of data reported by Education, we (1) reviewed NRS
implementation guidelines, (2) interviewed agency officials
knowledgeable about the data, and (3) interviewed officials responsible
for administering their Adult Education State Grants in the 14 states
included in our review about procedures used to ensure the reliability
of the data they report to the NRS. We determined that both the Census
Bureau and NRS data were sufficiently reliable for the purposes of our
report. However, it is important to note a few limitations of and
modifications to the data. Regarding the Census Bureau data, the data
are self-reported by respondents, and are not based on any standard
assessment of speaking ability. Additionally, the data are limited to
English speaking ability, and do not ask respondents to assess their
abilities in reading or writing English. Regarding the NRS data, the
definitions of the NRS English language levels changed in 2006.
Specifically, the highest level was removed and one of the lowest
levels was broken into two levels. We note this change when we discuss
enrollment trends by level in the report. In addition, Education
officials within the Office of Vocational and Adult Education (OVAE),
as well as state officials responsible for administering their Adult
Education State Grant programs, reported federal and state efforts to
improve NRS data over the last several years. Specifically, OVAE also
issued a data quality checklist for use by states to certify compliance
with assessment policies and developed monitoring tools for OVAE
monitoring site visits. OVAE and state officials reported training and
technical assistance, and some of the state officials with whom we
spoke reported state data systems that have improved their ability to
ensure the data are reliable. It is also important to note that the NRS
only includes data for programs funded by the Adult Education State
Grant Program. We also reviewed information on adult literacy from the
National Household Education Surveys (NHES)[Footnote 93] and the 2003
National Assessment of Adult Literacy (NAAL),[Footnote 94] both
sponsored by the National Center for Education Statistics. To identify
whether other federal programs that allow for adult English language
learning have national enrollment data specific to such instruction, we
also interviewed federal agency and program officials for agencies
included in the scope of our review.
To assess the nature of federal support, we identified federal programs
that allow for adult English language learning within Education, HHS,
and Labor. To do this, we began by interviewing federal agency
officials about programs within their agencies supporting adult English
language learning and reviewing the Catalog of Federal Domestic
Assistance and other relevant literature. We reviewed federal laws and
interviewed federal officials responsible for each program to verify
that the programs allow for English language learning for adults and to
learn about the extent that they collect data on spending and other
data related to adult participation in English language instruction in
their programs. We also identified some of the federal programs through
interviews and data gathered from local providers of English language
programs in the 4 states we visited, and corroborated this information
with our review of the law and interviews with federal program
officials. For the purposes of identifying programs, we generally
defined adults as those who were at least age 16 and not enrolled in
secondary school. The programs identified in this report may not
capture all programs that support English language learning for adults
within the three agencies. We reviewed agency strategic plans, and for
the programs included in our review, performance reports and the Office
of Management and Budget's Performance Assessment Rating Tool. We
interviewed Job Corps Center managers and obtained information from 28
National Farmworkers' Job Program grantees about their experiences in
serving English language learners. In addition, in the 4 states we
visited, we also met with state program officials responsible for
administering their Adult Education State Grant, Even Start, refugee
and Temporary Assistance for Needy Families programs, and Workforce
Investment Act of 1998 (WIA) title I programs. We visited multiple WIA
one-stops, Even Start providers, a Head Start grantee, a Community
Services Block Grant grantee, a Job Corps Center, a Youthbuild site, a
National Farmworkers' Job Program grantee, two community-based
organizations (CBO) receiving Trade Adjustment Assistance funds, and
grantees of special Labor initiatives.
To determine ways in which states and local providers support English
language learning for adults, we conducted semistructured telephone
interviews with officials responsible for administering the Adult
Education State Grants in the 12 states that we have previously
mentioned. In the 4 states we visited, in addition to interviewing
state officials responsible for administering federal programs as we
discuss in the previous paragraph, we also interviewed providers of
adult English language programs. In sum, we interviewed 16 CBOs, 11
community colleges, and 8 adult schools. In selecting providers to
visit, we considered recommendations from state officials. We asked
state officials responsible for administering their adult education and
refugee programs to recommend local providers with the following
criteria in mind: demonstrated effectiveness and cost-effectiveness,
leveraged community resources or developed private partnerships,
exhibited promising practices, or reduced waiting lists. We selected
providers from their recommendations to get a range of different types
of providers. These interviews focused on ways in which English
language instruction is provided, spending and cost, coordination with
other public and private entities, and challenges to supporting English
language learning.
To determine what federal research is planned in this area, we met with
federal officials from Education, HHS, and Labor for the programs
included in this review. We also met with the officials from the
Institute of Education Sciences and NIFL to learn about ongoing
research and research priorities regarding English language learning
for adults, as well as efforts to coordinate research across the
agencies. We also identified and reviewed published research in the
field of adult English language learning. We conducted our review from
May 2008 through July 2009 in accordance with generally accepted
government auditing standards. Those standards require that we plan and
perform the audit to obtain sufficient, appropriate evidence to provide
a reasonable basis for our findings and conclusions based on our audit
objectives. We believe that the evidence obtained provides a reasonable
basis for our findings and conclusions based on our audit objectives.
[End of section]
Appendix II: Education, HHS, and Labor Programs Authorized for Funds to
Be Used for Adult English Language Learning:
Department of Education:
Program/Funding stream: Adult Education State Grant Program; 20 U.S.C.
§§ 9201-9276;
Program purpose/Goal: Department of Education: To assist adults to
become literate and obtain the knowledge and skills necessary for
employment and self-sufficiency; to assist adults who are parents to
obtain the educational skills necessary to become full partners in the
educational development of their children; and to assist adults in the
completion of secondary school education;
Adult English language learning allowable under the activity outlined
in law: English literacy programs designed to help individuals of
limited English proficiency achieve competence in the English language.
Program/Funding stream: Even Start; 20 U.S.C. §§ 6381-6381k;
Program purpose/Goal: Department of Education: To help break the cycle
of poverty and illiteracy and improve the educational opportunities of
low-income families, by integrating early childhood education, adult
literacy or adult basic education, and parenting education into a
unified family literacy program;
Adult English language learning allowable under the activity outlined
in law: Adult literacy.
Program/Funding stream: Migrant Education Even Start Program; 20 U.S.C.
§§ 6391-6399;
Program purpose/Goal: Department of Education: To help break the cycle
of poverty and illiteracy and improve the educational opportunities of
low-income families, by integrating early childhood education, adult
literacy or adult basic education, and parenting education into a
unified family literacy program;
Adult English language learning allowable under the activity outlined
in law: Adult literacy.
Program/Funding stream: Migrant Education High School Equivalency
Program; 20 U.S.C. § 1070d-2;
Program purpose/Goal: Department of Education: To assist migrant and
seasonal farmworker students in obtaining the equivalent of a high
school diploma and, subsequently, to begin postsecondary education,
enter military service, or obtain employment;
Adult English language learning allowable under the activity outlined
in law: Essential supportive services.
Program/Funding stream: Pell Grant Program; 20 U.S.C. § 1070a;
Program purpose/Goal: Department of Education: To help ensure access to
high-quality postsecondary education by providing financial aid in the
form of grants in an efficient, financially sound, and customer-
responsive manner;
Adult English language learning allowable under the activity outlined
in law: Noncredit or remedial courses (including English language
instruction) determined to be necessary to help the student prepare for
the pursuit of a first undergraduate baccalaureate degree or
certificate or, in the case of courses in English language instruction,
to be necessary to enable the student to utilize existing knowledge,
training, or skills.
Program/Funding stream: English Language Acquisition State Grants; 20
U.S.C. §§ 6821-6827;
Program purpose/Goal: Department of Education: To improve the education
of limited English proficient children and youth by helping them to
learn English and meet challenging state academic content and student
academic achievement standards;
Adult English language learning allowable under the activity outlined
in law: Family literacy, parent outreach, and training activities
designed to assist parents to become active participants in the
education of their children.
Program/Funding stream: 21st Century Community Learning Centers
Program; 20 U.S.C. §§ 7171-7176;
Program purpose/Goal: Department of Education: To provide opportunities
to establish or expand activities in community learning centers that
provide academic enrichment and additional services to students who
attend low-performing schools to help meet core academic achievement
standards and to offer families of students opportunities for literacy
and related educational development;
Adult English language learning allowable under the activity outlined
in law: Programs that promote parental involvement and family literacy.
Program/Funding stream: Select TRIO Programs: Talent Search, Veterans
Upward Bound,[A] Student Support Services, Educational Opportunity
Centers; 20 U.S.C. §§ 1070a-11, 1070a-12, 1070a-13, 1070a-14, and 1070a-
16;
Program purpose/Goal: Department of Education: To carry out a program
of making grants and contracts designed to identify qualified
individuals from disadvantaged backgrounds, to prepare them for a
program of postsecondary education, to provide support services for
such students who are pursuing programs of postsecondary education, to
motivate and prepare students for doctoral programs, and to train
individuals serving or preparing for service in programs and projects
so designed;
Adult English language learning allowable under the activity outlined
in law: Programs and activities that are specially designed for
students of limited English proficiency.
Program/Funding stream: Asian American and Native American Pacific
Islander-Serving Institution Program; 20 U.S.C. § 1059[G];
Program purpose/Goal: Department of Education: To support institutions
of education in their effort to increase their self-sufficiency by
improving academic programs, institutional management, and fiscal
stability;
Adult English language learning allowable under the activity outlined
in law: Academic tutoring and counseling programs and student support
services.
Program/Funding stream: Native American-Serving Non-Tribal Institutions
Program; 20 U.S.C. § 1059[F];
Program purpose/Goal: Department of Education: To support institutions
of education in their effort to increase their self-sufficiency by
improving academic programs, institutional management, and fiscal
stability;
Adult English language learning allowable under the activity outlined
in law: Academic tutoring and counseling programs and student support
services.
Program/Funding stream: Strengthening Institutions Program; 20 U.S.C.
§§ 1057-1059[B];
Program purpose/Goal: Department of Education: To improve the academic
quality, institutional management, and fiscal stability of eligible
institutions, to increase their self-sufficiency and strengthen their
capacity to make a substantial contribution to the higher education
resources of the nation;
Adult English language learning allowable under the activity outlined
in law: Tutoring, counseling, and student service programs designed to
improve academic success, including innovative, customized, instruction
courses designed to help retain students and move the students rapidly
into core courses and through program completion, which may include
remedial education and English language instruction.
Program/Funding stream: Fund for the Improvement of Postsecondary
Education; 20 U.S.C. §§ 1138-1138[D];
Program purpose/Goal: Department of Education: To enable institutions
of higher education, combinations of such institutions, and other
public and private nonprofit institutions and agencies to improve
postsecondary education opportunities;
Adult English language learning allowable under the activity outlined
in law: Introduction of reforms in remedial education, including
English language instruction, to customize remedial courses to student
goals and help students progress rapidly from remedial courses into
core courses and through postsecondary program completion.
Program/Funding stream: Hispanic Serving Institutions Program; 20
U.S.C. §§ 1101-1103[G];
Program purpose/Goal: Department of Education: To develop and carryout
activities to improve and expand the institution's capacity to serve
Hispanic and other low-income students;
Adult English language learning allowable under the activity outlined
in law: Tutoring, counseling, and student service programs designed to
improve academic success, including innovative and customized
instruction courses (which may include remedial education and English
language instruction) designed to help retain students and move the
students rapidly into core courses and through program completion.
Department of Health and Human Services:
Program/Funding stream: Refugee Social Services[B; 8 U.S.C. §
1522(c)(2);
Program purpose/Goal: Department of Education: To help refugees become
economically self-sufficient;
Adult English language learning allowable under the activity outlined
in law: English language training.
Program/Funding stream: Refugee Resettlement Targeted Assistance
Grants[C; 8 U.S.C. § 1522(c)(2);
Program purpose/Goal: Department of Education: To help refugees become
economically self-sufficient;
Adult English language learning allowable under the activity outlined
in law: English language training.
Program/Funding stream: Refugee Resettlement Matching Grant Program; 8
U.S.C. § 1522(c)(1);
Program purpose/Goal: Department of Education: To help refugees become
economically self-sufficient within 120 to 180 days;
Adult English language learning allowable under the activity outlined
in law: English language training.
Program/Funding stream: Temporary Assistance for Needy Families Program
(TANF); 42 U.S.C. §§ 601-619;
Program purpose/Goal: Department of Education: To provide assistance to
needy families; end dependence on government benefits by promoting job
preparation, work, and marriage; prevent and reduce out-of-wedlock
pregnancies; and encourage two-parent families;
Adult English language learning allowable under the activity outlined
in law: Education directly related to employment, vocational education
training, and job skills training directly related to employment.
Program/Funding stream: Head Start Program; 42 U.S.C. §§ 9831-9852c;
Program purpose/Goal: Department of Education: To promote the school
readiness of low-income children by enhancing their cognitive, social,
and emotional development;
Adult English language learning allowable under the activity outlined
in law: Family literacy.
Program/Funding stream: Community Services Block Grant Program; 42
U.S.C. §§ 9901-9926;
Program purpose/Goal: Department of Education: To reduce poverty,
revitalize low-income communities, and empower low-income families and
individuals to become fully self-sufficient;
Adult English language learning allowable under the activity outlined
in law: Literacy/Family literacy.
Program/Funding stream: Department of Labor; Program purpose/Goal:
Department of Education: [Empty]; Adult English language learning
allowable under the activity outlined in law: [Empty].
Program/Funding stream: Youth Activities, Adult and Dislocated Worker
Employment and Training Activities; 29 U.S.C. §§ 2811-2872;
Program purpose/Goal: Department of Education: To provide workforce
investment activities that increase the employment, retention, and
earning of participants and increase the occupation skill attainment by
participants, which will improve the quality of the workforce, reduce
welfare dependency, and enhance the productivity and competitiveness of
the nation's economy;
Adult English language learning allowable under the activity outlined
in law: Adult education and literacy activities combined with
occupational and job skills training (under training services).
Program/Funding stream: National Farmworker Jobs Program; 29 U.S.C. §
2912;
Program purpose/Goal: Department of Education: To strengthen the
ability of eligible migrant and seasonal farm workers and their
families to achieve economic self-sufficiency;
Adult English language learning allowable under the activity outlined
in law: Educational assistance, literacy assistance, and English
language programs.
Program/Funding stream: Youthbuild Program; 29 U.S.C. § 2918[A];
Program purpose/Goal: Department of Education: To assist disadvantaged
youth ages 16 to 24 in obtaining education and employment skills to
achieve economic self-sufficiency; to foster leadership skills; and to
expand the supply of affordable housing;
Adult English language learning allowable under the activity outlined
in law: Language instruction for individuals with limited English
proficiency.
Program/Funding stream: Job Corps Program; 29 U.S.C. §§ 2881-2901;
Program purpose/Goal: Department of Education: To assist eligible youth
ages 16 to 24 who need and can benefit from an intensive program
operated in a group setting in residential and nonresidential centers,
to become more responsible, employable, and productive citizens;
Adult English language learning allowable under the activity outlined
in law: Education and access to core and intensive services provided
through WIA one-stop system.
Program/Funding stream: Trade Adjustment Assistance; 19 U.S.C. § 2296;
Program purpose/Goal: Department of Education: To provide adjustment
assistance to qualified workers adversely affected by foreign trade;
Adult English language learning allowable under the activity outlined
in law: Remedial and other education and training to assist in
obtaining suitable employment.
Program/Funding stream: WIA Incentive Grants[D; 20 U.S.C. § 9273;
Program purpose/Goal: Department of Education: To award grants to
states that exceed performance levels of WIA title I, title II, and
Perkins III[E] to carry out innovative programs consistent with the
requirements of each program;
Adult English language learning allowable under the activity outlined
in law: Innovative programs consistent with the requirements of WIA
title I, title II (Adult Education), and Perkins IV.
Sources: Federal laws, regulations, program guidance, and program
officials.
Note: The federal programs and funding streams listed in this table
were identified during interviews with federal agency officials and
state and local providers, and reviews of laws and regulations. The
programs listed are limited to those for which adult English language
learning activities appear to be authorized under the law and federal
program officials confirmed that they are allowable. The list of
programs may not capture all programs authorized to support adult
English language learning activities within the three agencies.
Furthermore, because of the limited data available, it is not known to
what extent these programs do support adult English language learning.
Eligibility for services under the programs listed in this table can
vary on the basis of immigration status; for example, while refugees
generally are eligible for TANF services, legal permanent residents in
the country for less than 5 years generally are not.
[A] The Veterans Upward Bound project is one of three types of grants
under the overall Upward Bound program.
[B] 45 C.F.R. § 400.140 (2008).
[C] 45 C.F.R. § 400.310 (2008).
[D] Although funded through the Department of Education (and codified
in title 20 of the U.S. Code with provisions generally administered by
the department), incentive grants are administered by the Department of
Labor in collaboration with Education.
[E] According to Education officials, because Perkins IV has supplanted
Perkins III and removed the requirement that funds be reserved for WIA
Incentive grants, performance under Perkins III is no longer considered
in determining eligibility for such grants.
[End of table]
[End of section]
Appendix III: Selected High-Growth and Community-Based Labor Grants
That Align with the Limited English Proficiency and Hispanic Worker
Initiative:
Locations: Texas;
Grantee type: College;
Amount of grant: $837,424;
Description: Offered training that involved an English language
learning component to 120 individuals in automotive technology.
Locations: New York;
Grantee type: Community college;
Amount of grant: $494,386;
Description: Provided English language and occupational skills training
to hospitality industry workers.
Locations: Illinois, Ohio, and Pennsylvania;
Grantee type: Private training corporation;
Amount of grant: $1,500,000;
Description: Supported occupational training and English courses to
limited English proficient Job Corps participants to prepare them for
health care careers.
Locations: Washington State;
Grantee type: Community college;
Amount of grant: $2,762,496;
Description: Provided occupational training and English language
instruction to meet the needs of health care employers in critical
areas.
Locations: Maryland;
Grantee type: Community college;
Amount of grant: $1,649,348;
Description: Builds on existing occupational program focused on the
transportation sector, and provides remedial English language
instruction for trainees whose primary language is not English.
Sources: Labor summaries of these grants; GAO interviews with Labor
officials and grantees.
[End of table]
[End of section]
Appendix IV: Methods for Providing English Language Instruction among
Labor Grantees That We Interviewed:
Site provided English Language Instruction through Adult Education
State Grant services and resources:
Labor program: Job Corps; (1 visited* of 120 centers)[A].
Site used Adult Education State Grant provider to provide English
language instruction.
Labor program: National Farmworkers Jobs Program; (1* of 52
grantees)[B].
Site provided English language instruction directly[C];
Site referred clients to Adult Education State Grant providers.
Labor program: Youthbuild; (1* of 107 grantees)[D].
Site provided English language instruction directly[E].
Labor program: Limited English Proficiency and Hispanic Worker
Initiative (LEPHWI) Site: Minneapolis[F]; (1* of 5 sites).
Site used Adult Education State Grant provider to provide English
language instruction.
Labor program: LEPHWI Site: San Diego; (1 of 5 sites).
Site provided English language instruction directly;
Site used Adult Education State Grant provider to develop English
language curriculum;
Site used Adult Education State Grant provider to provide English
language instruction.
Labor program: Community-Based Job Training grantee: Seattle Community
Colleges; (1* of several grants that align with LEPHWI).
Site was itself an Adult Education State Grant provider.
Labor program: New Americans Centers Demonstration Project grant:
Arkansas[G]; (1 of 2 state grants).
Site provided English language instruction directly;
Site referred clients to Adult Education State Grant providers.
Labor program: New Americans Centers Demonstration Project grant:
Iowa[H]; (1 of 2 state grants).
Site provided English language instruction directly;
Site referred clients to Adult Education State Grant providers.
Source: GAO analysis of information provided by Labor grantees visited
during our review, and provided during interviews with grantee and
Labor officials.
Note: An asterisk indicates interviews that GAO conducted in person.
[A] In addition to visiting this Job Corps Center, we obtained
information from officials who manage 41 Job Corps Centers in multiple
states. These officials stated that the centers they manage provide
English language instruction both directly, with their own resources,
and indirectly, through other providers.
[B] In addition to visiting this grantee, we obtained information from
28 farmworkers' program grantees, 27 of which offered or provided
access to English language instruction. About one-half of these
grantees provided instruction both directly, with their own resources,
and indirectly, through relationships with Adult Education State Grant
Program or other providers.
[C] This site provided English language instruction directly in the
following two ways: through a vocational school for farmworkers and
through an English language teacher hired directly, who led classes at
a nearby one-stop.
[D] In addition to visiting this grantee, we conducted a telephone
interview with another grantee who told us that the program had
referred participants to a local community college for English language
instruction, but was about to acquire language software to provide this
service directly.
[E] Officials at this site explained that English language instruction
was integrated into the curriculum, not delivered through separate
classes.
[F] When the Labor grant expired, this grantee applied for and received
a grant from the Office of Refugee Resettlement to support English
language instruction, according to grantee officials.
[G] English language instruction was provided at four one-stops.
According to officials, most participants were referred to Adult
Education State Grant providers. However, some instruction was provided
at the one-stops by non-Adult Education State Grant community-based
organizations.
[H] English language instruction was provided at 12 one-stops. Clients
at the one-stops accessed commercially available English language
software, with some support provided by one-stop staff, some of whom
were former English language teachers, according to the officials. In
addition, referrals were made to Adult Education State Grant Program
providers.
[End of table]
[End of section]
Appendix V: Comments from the Department of Education:
United States Department Of Education:
Office Of Vocational And Adult Education:
400 Maryland Ave., S.W.
Washington, D.C. 20202:
[hyperlink, http://www.ed.gov]
"Our mission is to ensure equal access to education and to promote
educational excellence throughout the nation."
June 23, 2009:
Ms. Cornelia M. Ashby:
Director, Education, Workforce, and Income Security Issues:
U.S. Government Accountability Office:
441 G Street, NW:
Washington, DC 20548:
Dear Ms. Ashby:
I am writing in response to your request for comments on the Government
Accountability Office's (GAO's) draft report (GAO 09-575) dated July
2009, entitled "English Language Learning: Diverse Federal and State
Efforts to Support Adult English Language Learning Could Benefit from
More Coordination." The Department of Education (Department)
appreciates the opportunity to respond to the GAO draft report.
The following are responses to the two recommendations in the report
for the Secretary of Education to coordinate with other federal
agencies in the sharing of information and in developing a strategy for
conducting research that supports adult English language learning.
Recommendation 1: The Secretary of Education should work with the
Department of Health and Human Services (HHS), the Department of Labor
(Labor), and other agencies as appropriate to develop a coordinated
approach for routinely and systematically sharing information that can
assist federal programs, states, and local providers in achieving
efficient service provision.
Response: The Department concurs with this recommendation. GAO's
finding corresponds to the Interagency Adult Education Working Group's
recommendation in its report pursuant to Executive Order 13445
(Executive Order), "Bridges to Opportunity: Federal Adult Education
Programs for the 21" Century," that was published in July 2008. This
Working Group, chaired by the Secretary of Education, consisted of the
Secretaries of HHS, Labor, the Interior, Housing and Urban Development,
and Veterans Affairs, as well as the Attorney General. The Working
Group stated that the federal government should promote a unified
approach to the dissemination of information on adult education
services. The Working Group further stated that coordinating the
dissemination of information on available programs would help many more
eligible adults enroll in adult basic education (ABE), adult secondary
education (ASE), and English as a second language (ESL) programs. The
Department will explore with HHS, Labor, and other agencies appropriate
options for better interagency collaboration on this issue.
Recommendation 2: The Secretary of Education should work with HHS,
Labor, and the National Institute for Literacy to implement a
coordinated strategy for planning and conducting research on effective
approaches to providing adult English language instruction and
disseminating the research results.
Response: This position is also consistent with the Working Group's
recommendation in its Executive Order report. The Working Group
recommended that federal agencies coordinate research efforts across
federal agencies on issues related to adult education and employment.
The Department believes that a coordinated federal approach to planning
and implementing research is needed in order to help ensure that
research addresses the most important issues in adult education,
including research on providing English language instruction, and to
ensure the federal investment in adult education research is maximized.
The Department will work with its federal partners to determine the
appropriate options for accomplishing this objective and the next steps
for implementing GAO's recommendation.
The Department continues to seek out relevant opportunities to
coordinate with other federal agencies. As the report notes, the
Department has collaborated with Labor on such projects as Labor's
Limited English Proficient Hispanic Worker Initiative. The Department
is also working in partnership with Labor on its adult learning
strategies workgroup, as well as on the National Assessment of Adult
Literacy secondary data analysis related to adult English language
learners. The Department also worked closely with representatives from
federal, state, and regional Labor offices on our Adult Education
Coordination and Planning project. Likewise, in addition to Department
staff collaborating with Health and Human Services staff on a number of
health literacy initiatives and on issues related to adult English
language learners, we have assisted the HHS Office of Refugee
Resettlement at its annual stakeholders' conference by disseminating
information on opportunities for adult English language education
programs. Along with Labor and HHS, the Department has also
collaborated with the Department of Homeland Security's (DHS) Office of
Citizenship on a number of activities important to adult English
language learners, including the naturalization test redesign, creating
an online professional development course for adult educators to teach
English literacy and civics, and working closely with DHS on work
related to its New Americans Taskforce (including the design and launch
of the USALearns web portal). The Department remains committed to
working strategically with our sister federal agencies to improve the
access and overall quality of adult English language learning services.
I appreciate the opportunity to respond to the GAO report. If you have
any questions or concerns regarding our response, please contact Cheryl
Keenan at (202) 245-7810.
Sincerely,
Signed by:
Dennis Berry:
Acting Assistant Secretary for Vocational and Adult Education:
[End of section]
Appendix VI: Comments from the Department of Health and Human Services:
Department Of Health & Human Services:
Office Of The Secretary:
Assistant Secretary for Legislation:
Washington, DC 20201:
July 6, 2009:
Cornelia M. Ashby, Director:
Education, Workforce, and Income Security Issues:
U.S. Government Accountability Office:
441 G Street N.W.
Washington, DC 20548:
Dear Ms. Ashby:
Enclosed are comments on the U.S. Government Accountability Office's
(GAO) report entitled: "English Language Learning: Diverse Federal and
State Efforts to Support Adult English Language Learning Could Benefit
from More Coordination" (GAO-09-575).
The Department appreciates the opportunity to review this report before
its publication.
Sincerely,
Signed by:
Barbara Pisaro Clark:
Acting Assistant Secretary for Legislation:
Attachment:
[End of letter]
Comments Of The Administration For Children And Families On The
Government Accountability Office Draft Report Titled, "English Language
Learning: Diverse Federal And State Efforts To Support Adult English
Language Learning Could Benefit From More Coordination," GAO-09-575:
The Administration for Children and Families appreciates the
opportunity to comment on the Government Accountability Office (GAO)
draft report.
GAO Recommendations:
To ensure that federal programs, states, and local providers are able
to optimize resources and knowledge in providing adult English language
instruction, we recommend that the Secretary of Education work with
HHS, Labor, and other agencies as appropriate to develop a coordinated
approach for routinely and systematically sharing information that can
assist federal programs, states, and local providers in achieving
efficient service provision. Such coordination may include:
* developing interagency agreements for sharing information on
resources states and local programs may leverage for adult English
language learning;
* devising a plan for routinely sharing information on available
technical assistance;
* reviewing the extent to which federal guidance assists local
providers in leveraging resources;
* meeting regularly to discuss efforts underway in each agency and to
consider potential for joint initiatives; or;
* establishing clear timeframes for accomplishment of joint objectives.
To ensure the most efficient use of available research resources and to
inform practitioners and other stakeholders in the area of adult
English language instruction, we recommend that the Secretary of
Education work with HHS, Labor and the National Institute for Literacy
to implement a coordinated strategy for planning and conducting
research on effective approaches to providing adult English language
instruction and disseminating the research results.
ACF Comments:
In addition to recommendations noted in the GAO report, a broader
resource mapping is essential. The identification of needs and the
activities to locate resources should be comprehensive and well
coordinated. For example, many refugees and other newcomers have
transportation limitations, particularly new arrivals. Coordination
should include Federal, State, local and non-profit entities to
facilitate the successful delivery of English as a Second Language
services. The location and the scheduling of adult English training is
a significant factor in determining availability and access.
[End of section]
Appendix VII: Comments from the Department of Labor:
U.S. Department of Labor:
Employment and Training Administration:
200 Constitution Avenue, N.W.
Washington, D.C. 20210:
June 29, 2009:
Ms. Cornelia M. Ashby:
Director:
Education, Workforce, and Income Security Issues:
U.S. Government Accountability Office:
441 G. Street, N.W.
Washington, D.C. 20548:
Dear Ms. Ashby:
This letter is the Department of Labor (the Department), Employment and
Training Administration's (ETA) response to the Government
Accountability Office's (GAO) draft report entitled, "English Language
Learning: Diverse Federal and State Efforts to Support Adult English
Language Learning Could Benefit from More Coordination." We appreciate
the opportunity to comment.
GAO notes a number of statistics of concern in their report.
Specifically,
* The number of adults who speak English less than "very well" grew by
21.8 percent between 2000 and 2007;
* 4.3 million adults reported speaking no English at all in 2007; and;
* Foreign born persons - who are much more likely than native born
persons to lack English proficiency-accounted for about 16 percent of
the U.S. civilian labor force in 2007.
Because limited English proficiency often contributes to lower levels
of income and educational attainment, these statistics demonstrate the
need for increased Federal, state and local efforts to remediate the
English language ability of the American workforce.
While the Department has taken a number of steps to aid the needs of
adults with limited English proficiency to improve their skills and
obtain employment, we agree that a coordinated approach for sharing
information and conducting planning and research is key to optimizing
resources and knowledge in providing adult English language
instruction. The Department is committed to further strengthening our
cooperative partnership with the Departments of Education and Health
and Human Services in the area of adult basic education and other areas
of shared programmatic activities, and looks forward to working with
our Federal partners in implementing GAO's recommendation to increase
coordination.
The report highlights some of our special initiatives in ETA to aid
those with limited English language ability to acquire the language
skills necessary to succeed in the workplace. Specifically, the report
cites our Limited English Proficiency (LEP) and Hispanic Worker
Initiative, which was a strategic effort to improve access to
employment and training services for LEP persons and to address the
specific workforce challenges facing Hispanic Americans through our
workforce programs. The report also mentions our New Americans Centers
Demonstration Grants which provides job placement, community service
referrals, translation, language and occupational training,
resettlement assistance, supportive services, small business
assistance, and technical and legal assistance concerning
documentation, civic responsibilities and other appropriate services to
immigrants in becoming part of the local community and economy.
The report also describes a number of activities under our existing
statutory and formula programs that allow for the use of English
language assistance for adults such as language instruction for
individuals with limited English proficiency, remedial and other
education and training, adult education and literacy services combined
with occupational and job skills training. The report also summarizes
some of our research efforts to better understand the language needs
and barriers of those adults with limited English proficiency, such as
our work conducted as a result of the 2003 National Assessment of Adult
Literacy.
The Department has also issued guidance to the workforce investment
system to educate and alert the system of the needs of adults with
limited English language ability and refer them for further assistance.
Most recently, on March 18, 2009, the ETA issued Training and
Employment Guidance Letter (TEGL) Number 14-08 which provided policy
guidance and direction for implementation of the Workforce Investment
Act and Wagner-Peyser Act funds in the American Recovery and
Reinvestment Act of 2009. In that guidance, ETA places an emphasis on
serving low-income, displaced and underskilled adults, including those
with limited English ability. Specifically, TEGL 14-08 notes that:
" ...WIA funds may be used for adult education, including basic or
English language education, as delivered through community colleges and
other high quality public programs and community organizations that
provide such services...."
Finally, ETA utilizes credentials and common performance measures
(e.g., obtained employment, increases or gains in earnings, and career
advancement) to determine the success of individuals upon completion of
job training programs. For those programs that provide language
training, these measures demonstrate that individuals will be self-
sufficient and capable of supporting their families.
If you would like additional information, please do not hesitate to
call me at (202)693-2700.
Sincerely,
Signed by:
Jane Oates:
Assistant Secretary:
[End of section]
Appendix VIII: GAO Contact and Staff Acknowledgments:
GAO Contact:
Cornelia M. Ashby, (202) 512-7215 or ashbyc@gao.gov.
Staff Acknowledgments:
Betty Ward-Zukerman, Assistant Director, and Cady S. Panetta, Analyst-
in-Charge, managed this report. Other staff who made key contributions
to all aspects of the report include Chris Morehouse and Anthony
Mercaldo. Alexandra Edwards and Meredith Trauner assisted with data
collection. Craig Winslow provided legal assistance. Ashley McCall
assisted in identifying relevant literature and background information.
Ken Bombara, Ron Fecso, and Cindy Gilbert assisted with the methodology
and statistical analysis. Sue Bernstein, Melinda Cordero, and Jena
Sinkfield helped prepare the final report and the graphics.
[End of section]
Footnotes:
[1] K. O'Donnell, Department of Education, National Center for
Education Statistics, Adult Education Participation in 2004-2005, (NCES
2006-0777) (Washington, D.C.: May 2006).
[2] Department of Labor, Bureau of Labor Statistics, Foreign-Born
Workers: Labor Force Characteristics in 2007 (Washington, D.C.: Mar.
26, 2008).
[3] The ACS is an ongoing mail survey that samples Americans to provide
annual data on geographic areas with more than 65,000 people. From 2000
to 2004, the ACS was initially piloted in 1,239 preselected U.S.
counties. The ACS was fully implemented in 2005 and draws samples in
all U.S. counties.
[4] Generally, federal programs and literature use multiple terms, such
as English literacy, English as a Second language, and English language
training, when referring to instruction to improve English language
proficiency. We use "English language learning" and "English language
instruction" interchangeably throughout this report to refer generally
to services that improve English language proficiency.
[5] We generally did not examine the relationship between federal
support for adult English language learning and efforts to enforce
federal immigration laws. Cataloging the requirements or practices of
the various programs that we discuss regarding requirements concerning
a participant's immigration status was outside the scope of our study.
[6] U.S. Census Bureau, Current Population Report, Educational
Attainment in the United States: 2007, P20-560 (January 2009).
[7] The survey asked respondents who speak a language other than
English at home how well they read English and about their interest in
taking classes in English language instruction. The 1995 NHES was the
last year that the survey asked respondents about their interest in
taking classes in English.
[8] Kwang Kim and Mary Collins, Department of Education, National
Center for Education Statistics, Participation of Adults in English as
a Second Language Classes:1994-95 (Washington, D.C.: May 1997).
[9] This statement is based on background interviews that we conducted
with researchers, academics, and other knowledgeable individuals in the
field as well as various background literature we reviewed. For
example, see Julie Mathews-Aydinli, "Overlooked and Understudied? A
survey of current trends in research on Adult English Language
Learners," Adult Education Quarterly, 58, no. 3 (2008), 198-213.
[10] Pub. L. No. 105-220, § 242, 112 Stat. 936, 1073-74 (codified at 20
U.S.C. § 9252).
[11] Pub. L. No. 107-110, sec. 101, § 1207, 115 Stat. 1425, 1549
(codified at 20 U.S.C. § 6367).
[12] NIFL is administered under an interagency agreement entered into
by the Secretary of Education with the Secretary of Labor and the
Secretary of Health and Human Services, which are referred to as the
Interagency Group. 20 U.S.C. § 9252(b)(1). In addition, a NIFL Advisory
Board, appointed by the President with the advice and consent of the
Senate, makes recommendations concerning staff appointments and
provides independent advice on operations. 20 U.S.C. § 9252(e). The
Interagency Group is required to consider the Advisory Board's
recommendations in setting goals and implementing programs to achieve
the goals. 20 U.S.C. § 9252(b)(3).
[13] The three main types of instruction offered through the Adult
Education State Grant Program are defined by Education as the
following: adult basic education--instruction in basic skills designed
for adults functioning at the lower literacy levels to just below the
secondary level; adult secondary education--instruction for adults
whose literacy skills are at approximately the high school level and
who are seeking to pass the General Education Development examination
or obtain an adult high school diploma; and English literacy--
instruction for adults who lack proficiency in English who are seeking
to improve their literacy and competence in English.
[14] Pub. L. No. 105-220, tit. II, 112 Stat. 936, 1059-80.
[15] Revised Continuing Appropriations Resolution, 2007, Pub. L. No.
110-5, § 101, 121 Stat. 8, 8-9; Departments of Labor, Health and Human
Services, and Education, and Related Agencies Appropriations Act, 2006,
Pub. L. No. 109-149, tit. III, 119 Stat. 2833, 2867 (2005).
[16] Pub. L. No. 111-5, 123 Stat. 115, 279.
[17] 20 U.S.C. §§ 6301-7941.
[18] 20 U.S.C. §§ 1400-1482.
[19] Pub. L. No. 109-270, 120 Stat. 683-749. The Vocational Education
Act of 1963 (Pub. L. No. 88-210, 77 Stat. 403-19) was named after Carl
D. Perkins under the Carl D. Perkins Vocational Education Act, which is
frequently referred to as Perkins I. Pub. L. No. 98-524, 98 Stat. 2435-
91 (1984). Intervening reauthorizations are also referred to by number:
Carl D. Perkins Vocational and Applied Technology Education Act
Amendments of 1990 (Perkins II) and Carl D. Perkins Vocational and
Applied Technology Education Amendments of 1998 (Perkins III). Pub. L.
No. 101-392, 104 Stat. 753-843, and Pub. L. No. 105-332, 112 Stat. 3076-
3128, respectively.
[20] 20 U.S.C. § 9222(b)(1)(B).
[21] 20 U.S.C. § 9253.
[22] Beginning in 2006, learners were reported in one of the following
six levels: Beginning Literacy, Low Beginning, High Beginning, Low
Intermediate, High Intermediate, and Advanced. These new levels reflect
slight modifications of the levels previously used by Education. The
new levels were created by eliminating the High Advanced level and
dividing a larger beginning level into two sublevels: Low Beginning and
High Beginning. All other levels stayed the same. 73 Fed. Reg. 2306-24
(Jan. 14, 2008).
[23] NRS data include learners with 12 hours or more of instruction.
[24] I. Kirsch, M. Lennon, C. Tamassia, and K. Yamamoto, Adult
Education in America: A First Look at Results from the Adult Education
Program and Learner Surveys (Princeton: Educational Testing Service,
2007).
[25] The 2003 NAAL is an assessment of English literacy among American
adults ages 16 and older. Over 19,000 adults participated in interviews
and tests in their homes, and some in prisons, to measure their
literacy levels. The NAAL asks about language background, including the
age at which participants learned English, and current or past
participation in English language classes.
[26] M. Kutner, E. Greenberg,, Y. Jin, B. Boyle, Y. Hsu, and E.
Dunleavy, National Center for Education Statistics, Department of
Education, Literacy in Everyday Life: Results From the 2003 National
Assessment of Adult Literacy (NCES 2007-480) (Washington, D.C.: April
2007).
[27] Prose literacy is defined as the knowledge and skills needed to
search, comprehend, and use information from continuous texts. Prose
examples include editorials, news stories, brochures, and instructional
materials.
[28] Census Bureau data on English speaking ability is self-reported by
adults ages 18 and over who have indicated that they speak a language
other than English at home. We included in our calculations of the
adult limited English proficient population those who reported speaking
English less than "very well" (i.e., "not at all," "not well," or
"well"). We based this definition on our review of literature using the
same data source to assess English proficiency. Information is gathered
on speaking ability, as opposed to full English literacy, which would
include writing, reading, listening, and speaking.
[29] Beginning in 2006, the ACS was expanded to include people living
in group quarters (such as correctional facilities, nursing facilities,
residential treatment centers, and college housing). The expansion may
account for some of the increase in the adult limited English
proficient population for 2006 and 2007.
[30] ACS 2007 data were the most recent data available at the time of
our review.
[31] Education's OVAE compiles data through the NRS on the basis of a
July 1 to June 30 reporting year. Throughout this report, we refer to
the reporting years by the data beginning year. For example, we refer
to data from the 2007 to 2008 reporting year as 2007 data. Data from
2007 to 2008 were the most recent data available from the NRS at the
time of our review.
[32] National enrollment data include enrollment in EL Civics. The NRS
does not distinguish enrollment in EL Civics. In addition, the national
enrollment data include U.S. territories, including American Samoa,
Guam, Northern Mariana Islands, Puerto Rico, Palau, and the Virgin
Islands.
[33] The definitions of levels were changed in 2006 and affected
subsequent data. The 2006 and 2007 levels that are analogous to what
were previously the three lowest levels accounted for 71.8 percent and
70.7 percent of enrollees, respectively. Our analysis included data
from U.S. territories.
[34] Some providers have reported waiting lists for services. See, for
example, James Thomas Tucker, The ESL Logjam: Waiting Times for Adult
ESL Classes and the Impact on English Learners (Los Angeles, Calif.:
The National Association of Latino Elected and Appointed Officials
Educational Fund, October 2006). However, a variety of factors must be
considered in using waiting lists as an indicator of demand. For
example, waiting lists may overestimate demand if they are duplicative
or not regularly updated and may underestimate demand if their length
discourages additional registrants.
[35] The Adult Education State Grant Program (including adult basic
education, adult secondary education, and English language instruction)
also provides separate grants to states for EL Civics. The EL Civics
grant funds are tracked separately from the general Adult Education
State Grants. In 2007, the total Adult Education State Grant Program
was funded at $564 million, including about $68 million for EL Civics
grants.
[36] While Even Start collects data on the number of adult participants
with limited English, the data are not necessarily focused on whether
these adults are receiving English language instruction in the Even
Start Program, according to an Education official.
[37] Beyond the federal programs we identified within the three federal
agencies on which we focused (Education, HHS, and Labor), some
providers cited other federal support for the English language learners
they served because they either provided instruction to Food Stamps
Employment and Training clients or received Community Development Block
Grant funding or in-kind support through the Department of Housing and
Urban Development.
[38] GAO reviewed the TANF plans that states submit to indicate how
they would count various employment and training activities for their
programs, the elements of which were required to be in place by October
1, 2007. The plans for all 50 states and the District of Columbia
allowed English language instruction as an element in one of the cited
activities. In addition, according to HHS officials, states may also
provide English language instruction in their separate state programs
and solely state-funded activities. However, except for refugees,
immigrants are generally not eligible for TANF benefits for at least 5
years after their entry into the United States. 8 U.S.C. § 1611-1613.
[39] WIA 112 Stat. 939-1059.
[40] 20 U.S.C. §§ 1001-1140d.
[41] See [hyperlink, http://www.USAlearns.org].
[42] WIA requires a single service delivery system--the nation's
workforce centers, also known as one-stops--for 16 categories of
programs, administered by 4 federal agencies. 29 U.S.C. § 2841. Each
local area is required to have at least one comprehensive center where
all programs required to participate offer certain key services. In
2007, there were approximately 1,600 comprehensive one-stops
nationwide.
[43] MPR Associates, Inc., Performance-Based Funding in Adult
Education, prepared for the Department of Education (Washington, D.C.:
August 2007).
[44] Center for Adult English Language Acquisition (CAELA) Network and
Center for Applied Linguistics, Framework for Quality Professional
Development for Practitioners Working with Adult English Language
Learners (Washington, D.C.: April 2008). In addition, several state
Adult Education State Grant Program directors we interviewed, including
those of Arizona, Arkansas, Florida, Georgia, Nevada, and Texas, said
that the contractor had provided technical assistance to their states
on the subject of adult English language learning.
[45] GAO, Results-Oriented Government: Practices That Can Help Enhance
and Sustain Collaboration among Federal Agencies, [hyperlink,
http://www.gao.gov/products/GAO-06-15] (Washington, D.C.: Oct. 21,
2005).
[46] See [hyperlink, http://www.elcivicsonline.org]. According to
Education officials, Homeland Security also provided some funding to
support this effort. In addition, in April 2009, Homeland Security's
U.S. Citizenship and Immigration Services office announced $1.2 million
for citizenship preparation activities, including civics-and
citizenship-focused English language instruction.
[47] Exec. Order No. 13,404, 71 Fed. Reg. 33,593 (June 12, 2006).
[48] Department of Homeland Security, Task Force on New Americans,
Building an Americanization Movement for the 21st Century (Washington,
D.C.: 2008). The task force made several recommendations to improve
efforts to integrate immigrants into American society, including
recommendations to enhance distance learning tools for immigrants that
cover English, history, and government and to encourage private sector
involvement in integration efforts, including English language
instruction.
[49] Exec. Order No. 13,445, 72 Fed. Reg. 56,165 (Oct. 2, 2007).
[50] Department of Education, Office of Vocational and Adult Education,
Bridges to Opportunity: Federal Adult Education Programs for the 21st
Century, Report to the President on Executive Order 13445 (Washington,
D.C.: July 2008).
[51] Specifically, English language instruction may be provided when
combined or integrated with occupational training, or, in rare cases,
as a stand-alone activity. See Department of Labor, Serving
Participants Under the Trade Adjustment Assistance (TAA) and North
American Free Trade Agreement-Transitional Adjustment Assistance (NAFTA-
TAA), TEGL 13-05 (Washington, D.C.: Feb. 2, 2006).
[52] See [hyperlink, http://www.c-pal.net].
[53] In technical comments to a draft of this report, Education
indicated that NIFL had disseminated information about the Web site to
over 4,000 literacy organizations and programs nationwide.
[54] At the time of our work, 2005 was the most recent year for which
these data were available from Education.
[55] Among all states in 2005, the percentage represented by nonfederal
spending in the Adult Education State Grant Program was 75 percent. The
required nonfederal contribution may be composed of cash or in-kind
donations.
[56] According to state officials, California absorbed a 15 percent cut
in the year retroactive to the year that began July 1, 2008, as well as
an additional 5 percent cut the following year, and New York is
planning for a 5 percent cut this year. Furthermore, in California,
local school districts may now access these funds for local educational
purposes other than adult education, although the extent to which the
districts will do so is not yet clear. We did not ask all 12 states
about possible changes to their state contributions.
[57] Specifically, local programs must now file a separate application
for English language program funds. Local programs have to address
specifically how they are going to provide services; why they are
qualified, including how their teachers are qualified; and how they
will improve English language learning gains.
[58] That is, the state formula assigns weight to the number reporting
that they speak English "not at all" and "not well."
[59] Among the 10 states, those that reported requirements for a state
teacher's license were Arizona (with an adult education certification),
Arkansas, California (with an adult education certification and an
endorsement for English as a Second Language), New York, and Tennessee;
those that required a Bachelor of Arts degree in any subject were
Florida, Georgia, Illinois, and Texas; and New Jersey required a state
teacher's license for teachers in public schools, and a Bachelor of
Arts degree for others. Two states--Alaska and Nevada--had no specific
teacher qualifications.
[60] In addition, 2 states reported having adopted volunteer standards
for volunteers who work in the Adult Education State Grant Program
generally, including its adult basic education component. In a number
of other states, such as Florida, Georgia, Illinois, New Jersey, and
New York, we were told that volunteer standards are the purview of
organizations outside of the Adult Education State Grant Program.
[61] We were told that 3 states required between 5 to 10 hours of
professional development annually; these states were New Jersey (5
hours), Illinois (6 hours), and New York (10 hours). Two states--
Tennessee and Texas--required at least 12 hours for existing teachers,
with additional training for new teachers. Arkansas required 60 hours
of professional development annually. Arizona set a minimum percentage
of the budget that local providers must devote to professional
development (10 percent), but had no specific hourly requirement. The
following 5 states had no minimum number of hours of professional
development: Alaska, California, Florida, Georgia, and Nevada.
[62] The 8 states were Arizona, Arkansas, California, Florida, Georgia,
Illinois, Nevada, and Tennessee.
[63] The 5 states are Indiana, Massachusetts, North Carolina, Ohio, and
Texas. According to the project developer, the state with the largest
participation to date is North Carolina, with 449 learners enrolled.
Also, according to the project developer, some states support their
participation in the project with state funds, while others do so using
a portion of the Adult Education State Grant that is reserved for state
leadership activities.
[64] For example, we found one council that included a refugee-serving
agency that received both Adult Education State Grant Program and
refugee funding to provide English language instruction to its clients.
[65] Certain refugees qualify for the TANF program.
[66] The family stabilization program is also used to serve those with
other barriers to employment, such as certain mental health conditions.
[67] The 6 states were Alaska, Arkansas, California, New Jersey, New
York, and Texas.
[68] The 8 states were Alaska, Arizona, Arkansas, California, New
Jersey, New York, Tennessee, and Texas.
[69] However, certain states that reported no state-level coordination
with Even Start said that local-level coordination took place. The
program is designed to serve families in which the parents are eligible
for services under the AEFLA, are enrolled in secondary school, or are
of compulsory school age under state law. In addition, local Even Start
programs are expected to coordinate with other, existing programs, such
as the Adult Education State Grant Program, WIA title I programs,
Migrant Education, and Head Start. Officials in states we visited all
cited examples of Even Start programs that were affiliated with adult
education providers.
[70] In some cases, these efforts served clients of the Adult Education
State Grant Program generally, not just those who were English language
learners.
[71] See Davis Jenkins, Matthew Zeidenberg, and Gregory Kienzl,
Educational Outcomes of I-BEST, Washington State Community and
Technical College System's Integrated Basic Education and Skills
Training Program: Findings from a Multivariate Analysis, CCRC Working
Paper No. 16 (New York, N.Y.: Community College Research Center, May
2009). See also State Board for Community and Technical Colleges, I-
BEST: A Program Integrating Adult Basic Education and Workforce
Training, Research Report No. 05-2 (Olympia, Wash.: December 2005), and
State Board for Community and Technical Colleges, Increasing Student
Achievement for Basic Skills Students, Research Report No. 08-1
(Olympia, Wash.: January 2008).
[72] GAO did not assess this study for methodological soundness.
[73] WIA authorizes incentive grants to each state that exceeds
adjusted levels of performance for title I of the act, for AEFLA, and
for programs under the Carl D. Perkins Vocational and Applied
Technology Education Amendments of 1998 (Perkins III). 20 U.S.C. §
9273(a). Education officials reported, however, that because Perkins IV
has replaced Perkins III and there are no longer relevant performance
data under Perkins III to consider, performance data under the third of
these is no longer considered in determining eligibility for such
grants. 74 Fed. Reg. 21823 (May 11, 2009). Nonetheless, states
receiving incentive grants may use them to support innovative workforce
development and education activities under title I, AEFLA, or the Carl
D. Perkins Career and Technical Education Improvement Act of 2006
(Perkins IV).
[74] According to a state official, this program was funded at $500,000
in state fiscal year 2008. While this workplace literacy program is not
designed to serve English language learners exclusively, the state
official estimated that about 75 percent of the participants have been
English language learners.
[75] However, according to a state official, under the new state
budget, school districts may now access these funds, for purposes other
than adult English language learning.
[76] According to a state official, this program, called the Workforce
Learning Link, is available through 55 community centers, some of which
are on-site at the one-stop and which learners can access by referral
at other one-stops.
[77] According to a state official, this program, called the Refugee
and Immigrant Citizenship Initiative, has been cut by 3 percent under
the new state budget. Also, while it is outside the Adult Education
State Grant Program, services are provided by about 35 organizations,
some of which also receive Adult Education State Grant Program funding,
according to a state official.
[78] This initiative, the New York City Adult Literacy Initiative,
receives about $5 million in city funding annually, and involves a
partnership of the City University of New York, the New York City
Department of Education, the city's libraries, and about 30 CBOs,
according to a city official. In addition, the New York City Council
controls two smaller funding streams that support English language
instruction; however, funding for both of these funding streams was
reduced in 2008, according to a city official.
[79] The annual competitive grants are issued to partnerships that
include Adult Education State Grant Program providers, children's
programs (which may include Head Start or Even Start), and libraries.
[80] According to a representative of the National Center for Family
Literacy, the Toyota Family Literacy Program has issued grants totaling
$3 million annually for this purpose since 1991, and the program is
currently active in 23 states.
[81] These states were Florida, Georgia, Illinois, New Jersey, and New
York.
[82] Rick J. Ashton and Danielle Patrick Milam, Welcome, Stranger:
Libraries Build the Global Village (Chicago, Ill.: Urban Libraries
Council, January 2008).
[83] The initiative is supported by a 3-year grant of $1 million from a
federal agency, the Institute of Museum and Library Services, issued in
September 2007, but each community must raise its own resources to
participate. According to the project's developer, the participating
communities are Boston, Massachusetts; Portland, Oregon; Providence,
Rhode Island; St. Paul, Minnesota; Union County, New Jersey; the
District of Columbia; and Westchester County, New York.
[84] See [hyperlink, http://www.americandreamtoolkit.org].
[85] According to this official, the local farmworkers' program grantee
also provides English language instruction directly, by hiring a
teacher who provides evening classes at a one-stop, and refers clients
to local Adult Education State Grant Program providers (i.e., community
colleges).
[86] The farmworkers program's charter schools serve students ages 15
to 22. According to an official of the Job Corps Center, the charter
school employs a full-time English language teacher and serves youth
ages 16 to 21 and, in some cases, those ages 22 and over.
[87] AEFLA National Leadership funds are administered by OVAE, which
also administers the Adult Education State Grant Program. According to
OVAE officials, National Leadership dollars are directed to IES, which
then administers the contract for the study.
[88] According to the study's design report, the instructional strategy
selected for this study is the Sam & Pat intervention, which includes a
textbook, as well as teacher training and technical assistance. The Sam
& Pat textbook was written by three English as a Second Language (ESL)
instructors and is described as a textbook that tailors the methods and
concepts of the Wilson and Orton-Gillingham reading systems developed
for native speakers of English to meet the needs of adult ESL literacy-
level learners.
[89] The study's three key research questions are as follows: (1) How
effective is instruction based on the Sam and Pat textbook in improving
the English reading and speaking skills of low-literate adult English
as a Second Language learners? (2) Is Sam and Pat more effective for
certain groups of students (e.g., native Spanish speakers)? (3) Do
impacts on student outcomes vary with the level of service contrast
(differences between instruction delivered in classrooms taught by
teachers assigned to the Sam and Pat condition and instruction
delivered in classrooms taught by teachers assigned to the control
condition)?.
[90] The September 27, 2007, Executive Order on Strengthening Adult
Education, required the Secretary of Education to establish and serve
as chair of an interagency adult education working group of
representatives of federal agencies to report to the President on
federal programs, with the primary goal of supporting adult education
within 9 months of the date of the order. Exec. Order No. 13,445, 72
Fed. Reg. 56,165 (Oct. 2, 2007).
[91] Bridges to Opportunity: Federal Adult Education Programs for the
21st Century.
[92] Specifically, we included in our calculations of the state adult
limited English proficient populations those who speak English "not at
all," "not well," or "well." We based this definition on our review of
literature using the same data source to assess English proficiency.
[93] NHES surveys focused on adult education in select years. English
language learning was among the types of education activities included
in the Adult Education Survey of the NHES. Respondents are asked about
participation in classes in the 12 months prior to the interview and
reasons for taking the classes.
[94] The 2003 NAAL is an assessment of English literacy among American
adults ages 16 and older. Over 19,000 adults participated in interviews
and tests in their homes, and some in prisons, to measure prose,
document, and quantitative literacy. The NAAL asks about language
background, including the age at which participants learned English,
and current or past participation in English language classes.
[End of section]
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