# ADULT EDUCATION AND FAMILY LITERACY ACT

# Program Facts

The Adult Education and Family Literacy Act (AEFLA), enacted as Title II
of the Workforce Investment Act (WIA) of 1998, is the principal source
of federal support for adult basic and literacy education programs for
adults who lack basic skills, a high school diploma, or proficiency in
English.

AEFLA funds are distributed by formula to states using Census data on
the number of adults (ages 16 and older) in each state who lack a high
school diploma and who are not enrolled in school. States must match 25
percent of the federal contribution with state or local funds, but many
states contribute considerably more.

States competitively award 82.5 percent of their federal grants to local
school districts, community colleges, community- and faith-based
organizations, and other providers to support adult education programs.
States retain 17.5 percent of the federal allocation for program
improvement activities (12.5 percent), such as professional development
for instructors, and administrative expenses (5 percent).

**Courses of Instruction**

Adult education programs provide the following types of instruction:

-   *Adult Basic Education* (ABE) is instruction in basic skills for
    adults functioning at the lower literacy levels to just below the
    high school level.

-   *Adult Secondary Education* (ASE) is instruction for adults whose
    literacy skills are at approximately the high school level and who
    are seeking to pass the General Educational Development (GED) tests
    or obtain an adult high school credential.

-   *English Literacy* (EL) is instruction for adults who lack
    proficiency in English and who seek to improve their literacy and
    competence in English. English literacy instruction is sometimes
    integrated with civics education (EL/Civics).

In addition, some providers offer support services to participants,
generally using non-AEFLA funds. For example, in 2003, 58 percent of
providers offered job placement services, 33 percent of providers
offered free child care services, and 30 percent provided assistance
with transportation.[^1]

**Participants**

Nearly 2.7 million adults enrolled in AEFLA-funded programs during FY
2003, the most recent year for which complete data are available.
English literacy programs had the largest enrollment (44 percent),
followed by Adult Basic Education (40 percent), and Adult Secondary
Education (16 percent).[^2]

*Enrollment in AEFLA-funded programs, by program area (FY 2003)*

  --------- ------------------------------ ------------------------------
  Program   Number of participants         Percentage of total
  Area      enrolled in this program area  participants enrolled in this
                                           program area

  ABE       1,061,814                      40%

  ASE       442,726                        16%

  EL        1,172,579                      44%

  Total     2,677,119                      100%
  --------- ------------------------------ ------------------------------

In FY 2003, most participants in AEFLA-funded programs (70 percent) were
between the ages of 19 and 44, but the age distribution varied across
program area. For example, participants in Adult Secondary Education
programs tended to be younger: 66 percent were between the ages of 16
and 24. Participants in English Literacy programs, on the other hand,
tended to be older: 57 percent were between the ages 25 and 44, and an
additional 20 percent were 45 years of age or older.[^3]

*Number and percentage of participants in AEFLA-funded programs,*

*by program area and age (FY 2003)*

+--------+---------+---------+---------+---------+----------+--------+
| P      | Age     | Age     | Age     | Age     | Age 60   | Total  |
| rogram | 16-18   | 19-24   | 25-44   | 45-59   | and      |        |
| Area   |         |         |         |         | older    |        |
+--------+---------+---------+---------+---------+----------+--------+
| ABE    | 176,422 | 314,908 | 417,261 | 120,897 | 32,326   | 1,0    |
|        | (17%)   |         |         |         |          | 61,814 |
|        |         | (30%)   | (39%)   | (11%)   | (3%)     |        |
|        |         |         |         |         |          | (100%) |
+--------+---------+---------+---------+---------+----------+--------+
| ASE    | 158,252 | 132,110 | 119,873 | 26,311  | 6,180    | 4      |
|        |         |         |         |         |          | 42,726 |
|        | (36%)   | (30%)   | (27%)   | (6%)    | (1%)     |        |
|        |         |         |         |         |          | (100%) |
+--------+---------+---------+---------+---------+----------+--------+
| EL     | 37,917  | 230,522 | 663,511 | 181,356 | 59,273   | 1,1    |
|        |         |         |         |         |          | 72,579 |
|        | (3%)    | (20%)   | (57%)   | (15%)   | (5%)     |        |
|        |         |         |         |         |          | (100%) |
+--------+---------+---------+---------+---------+----------+--------+
| Total  | 372,591 | 677,540 | 1,      | 328,564 | 97,779   | 2,6    |
|        | (14%)   |         | 200,645 |         |          | 77,119 |
|        |         | (25%)   |         | (12%)   | (4%)     |        |
|        |         |         | (45%)   |         |          | (100%) |
+--------+---------+---------+---------+---------+----------+--------+

In FY 2003, 43 percent of adult education participants were Hispanic, 28
percent were white, 20 percent were Black, 7 percent were Asian, and the
rest were American Indians, Alaska Natives, and Pacific Islanders.
Participants in English Literacy programs were predominantly Hispanic
(71 percent of English Literacy participants were Hispanic), while
nearly half (47 percent) of the participants in Adult Secondary
Education programs were White.[^4]

*Number and percentage of participants in AEFLA programs,*

*by program area and race/ethnicity (FY 2003)*

+------+--------+--------+--------+--------+--------+--------+--------+
| Pro  | Am     | Asian  | Black  | Hi     | Native | White  | Total  |
| gram | erican |        |        | spanic | Hawa   |        |        |
| Area | I      |        |        |        | iian/P |        |        |
|      | ndian/ |        |        |        | acific |        |        |
|      |        |        |        |        | Is     |        |        |
|      | Alaska |        |        |        | lander |        |        |
|      | Native |        |        |        |        |        |        |
+------+--------+--------+--------+--------+--------+--------+--------+
| ABE  | 22,355 | 19,989 | 3      | 2      | 8,863  | 4      | 1,0    |
|      |        |        | 78,853 | 10,470 |        | 21,284 | 61,814 |
|      | (2%)   | (2%)   |        |        | (\<1%) |        |        |
|      |        |        | (36%)  | (20%)  |        | (40%)  | (100%) |
+------+--------+--------+--------+--------+--------+--------+--------+
| ASE  | 6,504  | 8,961  | 96,636 | 1      | 6,877  | 2      | 4      |
|      |        |        |        | 14,144 |        | 09,604 | 42,726 |
|      | (1%)   | (2%)   | (22%)  |        | (2%)   |        |        |
|      |        |        |        | (26%)  |        | (47%)  | (100%) |
+------+--------+--------+--------+--------+--------+--------+--------+
| EL   | 7,112  | 1      | 60,000 | 8      | 5,088  | 1      | 1,1    |
|      |        | 60,784 |        | 32,954 |        | 06,641 | 72,579 |
|      | (\<1%) |        | (5%)   |        | (\<1%) |        |        |
|      |        | (14%)  |        | (71%)  |        | (9%)   | (100%) |
+------+--------+--------+--------+--------+--------+--------+--------+
| T    | 35,971 | 1      | 5      | 1,1    | 20,828 | 7      | 2,6    |
| otal |        | 89,734 | 35,489 | 57,568 |        | 37,529 | 77,119 |
|      | (1%)   |        |        |        | (\<1%) |        |        |
|      |        | (7%)   | (20%)  | (43%)  |        | (28%)  | (100%) |
+------+--------+--------+--------+--------+--------+--------+--------+

In FY 2003, 38 percent of participants were employed, while 39 percent
were unemployed but looking for work. Another 12 percent were unemployed
but not seeking work because they were retired or full-time homemakers,
or for other reasons. The remaining participants (11 percent) were
incarcerated or resided in other state institutions.[^5]

*Number and percentage of participants in AEFLA-funded programs,*

*by employment status (FY 2003)*

  ----------------------------------- ------------------- ---------------
  Status                              Number of           Percentage of
                                      participants        participants

  Employed                            1,008,684           38%

  Unemployed, seeking work            1,054,507           39%

  Unemployed, not seeking work        324,863             12%

  Incarcerated/institutionalized      289,065             11%

  Total                               2,677,119           100%
  ----------------------------------- ------------------- ---------------

**Providers**

AEFLA-funded programs are delivered by a variety of different providers.
In FY 2003, more than half of the AEFLA-funded providers were local
school districts. Other providers included community-based organizations
(24 percent), community colleges (17 percent), and correctional or other
institutions (5 percent).[^6]

*AEFLA-funded providers (FY 2003)*

  --------------------------------------------- -------------------------
  Organization type                             Percentage of providers

  Local school district                         54%

  Community-based organization                  24%

  Community college                             17%

  Correctional institution/other                5%
  --------------------------------------------- -------------------------

In FY 2003, most providers (58 percent) offered instruction at 5 or
fewer sites, but 9 percent offered services at more than 20 sites.[^7]

*Number of sites at which AEFLA-funded providers offered instruction (FY
2003)*

+--------------------------------------------+-------------------------+
| Number of sites at which instruction       | Percentage of providers |
|                                            |                         |
| was provided                               |                         |
+--------------------------------------------+-------------------------+
| 1-5 sites                                  | 58%                     |
+--------------------------------------------+-------------------------+
| 6-10 sites                                 | 16%                     |
+--------------------------------------------+-------------------------+
| 11-20 sites                                | 14%                     |
+--------------------------------------------+-------------------------+
| Over 20 sites                              | 9%                      |
+--------------------------------------------+-------------------------+

AEFLA-funded providers offered instruction at a variety of different
types of sites in FY 2003, including public schools, adult learning
centers, faith-based facilities, community colleges, learners' places of
work, and libraries.[^8]

*Types of sites at which AEFLA-funded providers offered instruction (FY
2003)*

  ----------------------------------------------------- -----------------
  Type of site                                          Percentage of
                                                        providers
                                                        offering some
                                                        instruction at
                                                        this type of site

  Public school                                         57%

  Adult learning center (single use facility)           46%

  Community center (multiple use facility)              40%

  Adult correctional facility                           36%

  Faith-based facility                                  29%

  Learner's place of work in space provided by employer 26%

  Community college                                     25%

  Library                                               24%

  Learner's home                                        13%
  ----------------------------------------------------- -----------------

**Instructors**

During FY 2003, AEFLA-funded programs employed 71,764 instructors. Most
(80 percent) of these instructors were employed part-time. Nearly 75
percent of programs reported in 2003 that they required their
instructors to complete a minimum number of in-service training hours
each year. [^9]

**Program Funding**

Congress appropriated nearly \$560 million for AEFLA state grants in FY
2005. State allocations for FY 2005 are shown in Attachment A.

During FY 2002, the most recent year for which complete financial data
are available, AEFLA-funded programs spent an average of \$803 per
participant. AEFLA funds comprised about one quarter of these funds
(\$206), and the remainder were contributed from state and local
sources. However, the share of funds provided from state and local
sources varies widely across states. In some states, AEFLA dollars
varied from as much as 75 percent to as little as 10 percent of the
total spent per participant in FY 2002. The federal and non-federal
contributions made to support AEFLA programs in FY 2002 in each state
are shown in Attachment B.[^10]

Most adult education programs have small operating budgets. In FY 2003,
a majority (51 percent) of providers received \$200,000 or less to
support their adult education programs.[^11]

*Total funding received by AEFLA providers for*

*adult education instruction from all sources (FY 2003)*

  -------------------------------------- --------------------------------
  Amount of funding received from all    Percentage of providers
  sources for adult education            receiving this amount of funds
  instruction                            

  Below \$100,000                        30%

  \$100,000-200,000                      21%

  \$200,000-500,000                      28%

  \$500,000-1,000,000                    13%

  \$1,000,000-5,000,000                  7%
  -------------------------------------- --------------------------------

About half (47 percent) of providers in FY 2003 reported that a majority
of their funding was contributed by states, while 33 percent indicated
that a majority of their funds came from federal sources. Another 5
percent reported that local government contributed a majority of their
funds.[^12]

In FY 2003, most AEFLA-funded programs did not receive any funding from
non-public sources, such as donations from foundations, corporations, or
the general public.[^13]

> *Non-public funds received by AEFLA-funded programs (FY 2003)*

  ----------------------------------------- -----------------------------
  Source                                    Percentage of programs that
                                            received any funding from
                                            this source

  Foundation grants                         17%

  Civic/individual donations                15%

  Corporate giving                          11%

  Fees charged to participants              8%

  Fees charged to employers for services    5%
  (e.g., workplace literacy programs)       
  ----------------------------------------- -----------------------------

However, most programs (71 percent) received in-kind donations of goods
and services in FY 2003. More than three-quarters (83 percent) of
programs received donations of classroom space, for example, and half
(50 percent) received donations of computer hardware.[^14]

**Program Results**

Programs are required to show measurable gains in the literacy skills of
their participants. Learning is measured using standardized assessments
that are administered when participants enter the program and
periodically throughout their participation. Programs also report on the
success of participants in achieving other goals, including earning a
General Educational Development (GED) credential or adult high school
diploma, entering postsecondary education or training, and obtaining or
retaining employment. The Department of Education agrees on annual
performance targets for these indicators with states. If a state fails
to meet its performance targets, it is not eligible to receive an
incentive grant, but there are no other consequences.

In FY 2003, on the measure related to improving literacy skills, 38
percent of ABE and ASE participants and 36 percent of EL participants
advanced one or more "educational functioning levels," which are roughly
equivalent to two grade levels. In addition, 45 percent of participants
who were seeking a GED or high school diploma achieved this goal in FY
2003.[^15]

*AEFLA Performance (FY 2001 -- 03)*

  ------------------ ------------- -------------- ------------- ------------
  Performance        National                                   
  Indicators         Averages                                   

                     FY 2000       FY 2001        FY 2002       FY 2003

  *ABE/ASE*                                                     

  Advanced one or    36%           37%            38%           38%
  more educational                                              
  functioning levels                                            

  Earned GED or      33%           42%            44%           45%
  adult high school                                             
  diploma                                                       

  *EL*                                                          

  Advanced one or    32%           34%            36%           36%
  more educational                                              
  functioning levels                                            

  *OTHER OUTCOMES*                                              

  Entered            25%           29%            30%           30%
  postsecondary                                                 
  education or                                                  
  training                                                      

  Entered employment 31%           39%            37%           36%

  Retained           62%           63%            69%           63%
  employment                                                    
  ------------------ ------------- -------------- ------------- ------------

Attachment A

#### Adult Education and Family Literacy Act State Grants

## FY 2005 State Award Amounts

+--------------------------------------+-------------------------------+
| State                                | FY 2005 Award Amount          |
+======================================+===============================+
| ALABAMA                              | \$9,294,618                   |
+--------------------------------------+-------------------------------+
| ALASKA                               | \$1,077,004                   |
+--------------------------------------+-------------------------------+
| ARIZONA                              | \$9,659,000                   |
+--------------------------------------+-------------------------------+
| ARKANSAS                             | \$5,654,766                   |
+--------------------------------------+-------------------------------+
| CALIFORNIA                           | \$81,473,634                  |
+--------------------------------------+-------------------------------+
| COLORADO                             | \$6,472,166                   |
+--------------------------------------+-------------------------------+
| CONNECTICUT                          | \$5,798,457                   |
+--------------------------------------+-------------------------------+
| DELAWARE                             | \$1,538,520                   |
+--------------------------------------+-------------------------------+
| FLORIDA                              | \$34,062,869                  |
+--------------------------------------+-------------------------------+
| GEORGIA                              | \$16,123,524                  |
+--------------------------------------+-------------------------------+
| HAWAII                               | \$2,329,046                   |
+--------------------------------------+-------------------------------+
| IDAHO                                | \$2,199,300                   |
+--------------------------------------+-------------------------------+
| ILLINOIS                             | \$23,047,674                  |
+--------------------------------------+-------------------------------+
| INDIANA                              | \$10,042,747                  |
+--------------------------------------+-------------------------------+
| IOWA                                 | \$4,286,916                   |
+--------------------------------------+-------------------------------+
| KANSAS                               | \$4,046,253                   |
+--------------------------------------+-------------------------------+
| KENTUCKY                             | \$8,823,969                   |
+--------------------------------------+-------------------------------+
| LOUISIANA                            | \$9,477,811                   |
+--------------------------------------+-------------------------------+
| MAINE                                | \$2,046,666                   |
+--------------------------------------+-------------------------------+
| MARYLAND                             | \$9,158,037                   |
+--------------------------------------+-------------------------------+
| MASSACHUSETTS                        | \$10,546,085                  |
+--------------------------------------+-------------------------------+
| MICHIGAN                             | \$16,114,857                  |
+--------------------------------------+-------------------------------+
| MINNESOTA                            | \$6,808,591                   |
+--------------------------------------+-------------------------------+
| MISSISSIPPI                          | \$6,381,089                   |
+--------------------------------------+-------------------------------+
| MISSOURI                             | \$9,669,024                   |
+--------------------------------------+-------------------------------+
| MONTANA                              | \$1,440,658                   |
+--------------------------------------+-------------------------------+
| NEBRASKA                             | \$2,631,363                   |
+--------------------------------------+-------------------------------+
| NEVADA                               | \$4,191,751                   |
+--------------------------------------+-------------------------------+
| NEW HAMPSHIRE                        | \$1,886,394                   |
+--------------------------------------+-------------------------------+
| NEW JERSEY                           | \$16,922,004                  |
+--------------------------------------+-------------------------------+
| NEW MEXICO                           | \$3,751,962                   |
+--------------------------------------+-------------------------------+
| NEW YORK                             | \$42,147,181                  |
+--------------------------------------+-------------------------------+
| NORTH CAROLINA                       | \$15,465,115                  |
+--------------------------------------+-------------------------------+
| NORTH DAKOTA                         | \$1,219,745                   |
+--------------------------------------+-------------------------------+
| OHIO                                 | \$18,020,569                  |
+--------------------------------------+-------------------------------+
| OKLAHOMA                             | \$6,263,400                   |
+--------------------------------------+-------------------------------+
| OREGON                               | \$5,655,506                   |
+--------------------------------------+-------------------------------+
| PENNSYLVANIA                         | \$20,569,819                  |
+--------------------------------------+-------------------------------+
| RHODE ISLAND                         | \$2,314,512                   |
+--------------------------------------+-------------------------------+
| SOUTH CAROLINA                       | \$8,102,229                   |
+--------------------------------------+-------------------------------+
| SOUTH DAKOTA                         | \$1,375,096                   |
+--------------------------------------+-------------------------------+
| TENNESSEE                            | \$11,617,883                  |
+--------------------------------------+-------------------------------+
| TEXAS                                | \$46,629,775                  |
+--------------------------------------+-------------------------------+
| UTAH                                 | \$3,263,828                   |
+--------------------------------------+-------------------------------+
| VERMONT                              | \$1,072,063                   |
+--------------------------------------+-------------------------------+
| VIRGINIA                             | \$12,948,119                  |
+--------------------------------------+-------------------------------+
| WASHINGTON                           | \$9,217,927                   |
+--------------------------------------+-------------------------------+
| WEST VIRGINIA                        | \$3,939,445                   |
+--------------------------------------+-------------------------------+
| WISCONSIN                            | \$7,977,228                   |
+--------------------------------------+-------------------------------+
| WYOMING                              | \$910,111                     |
+--------------------------------------+-------------------------------+
| DISTRICT OF COLUMBIA                 | \$1,510,273                   |
+--------------------------------------+-------------------------------+
| PUERTO RICO                          | \$11,037,650                  |
+--------------------------------------+-------------------------------+
| VIRGIN ISLANDS                       | \$407,986                     |
+--------------------------------------+-------------------------------+
| AMERICAN SAMOA                       | \$217,771                     |
+--------------------------------------+-------------------------------+
| GUAM                                 | \$373,969                     |
+--------------------------------------+-------------------------------+
| NORTHERN MARIANAS                    | \$288,936                     |
+--------------------------------------+-------------------------------+
| PALAU                                | \$47,831                      |
+--------------------------------------+-------------------------------+
| # Total                              | **\$559,602,889**             |
+--------------------------------------+-------------------------------+

ATTACHMENT B

#### FY 2002: Expenditures per participant, and Federal and non-Federal contributions

  -------------------------------------------------------------------------------
  State                   Total Amount  Amount        Amount        State and
                          Spent Per     Contributed   Contributed   Other
                          Participant   by States and by AEFLA      Non-Federal
                                        from Other                  Share of
                                        Non-Federal                 Spending
                                        Sources                     
  ----------------------- ------------- ------------- ------------- -------------
  ALABAMA                 \$730         \$261         \$469         36%

  ALASKA                  \$557         \$368         \$189         66%

  ARIZONA                 \$363         \$137         \$226         38%

  ARKANSAS                \$627         \$465         \$161         74%

  CALIFORNIA              \$1,276       \$1,141       \$135         89%

  COLORADO                \$470         \$147         \$323         31%

  CONNECTICUT             \$1,260       \$1,066       \$194         85%

  DELAWARE                \$482         \$237         \$245         49%

  DIST. of COLUMBIA       \$1,150       \$582         \$569         51%

  FLORIDA                 \$831         \$744         \$86          90%

  GEORGIA                 \$208         \$73          \$135         35%

  HAWAII                  \$442         \$216         \$226         49%

  IDAHO                   \$319         \$115         \$204         36%

  ILLINOIS                \$310         \$124         \$185         40%

  INDIANA                 \$920         \$663         \$258         72%

  IOWA                    \$804         \$530         \$274         66%

  KANSAS                  \$514         \$129         \$386         25%

  KENTUCKY                \$538         \$248         \$290         46%

  LOUISIANA               \$581         \$265         \$315         46%

  MAINE                   \$1,361       \$1,144       \$218         84%

  MARYLAND                \$637         \$316         \$321         50%

  MASSACHUSETTS           \$1,904       \$1,375       \$528         72%

  MICHIGAN                \$2,301       \$2,053       \$248         89%

  MINNESOTA               \$940         \$792         \$148         84%

  MISSISSIPPI             \$248         \$62          \$186         25%

  MISSOURI                \$398         \$144         \$254         36%

  MONTANA                 \$539         \$217         \$322         40%

  NEBRASKA                \$325         \$81          \$243         25%

  NEVADA                  \$558         \$177         \$381         32%

  NEW HAMPSHIRE           \$616         \$323         \$293         52%

  NEW JERSEY              \$1,067       \$648         \$420         61%

  NEW MEXICO              \$352         \$199         \$153         57%

  NEW YORK                \$830         \$502         \$329         60%

  NORTH CAROLINA          \$512         \$366         \$147         71%

  NORTH DAKOTA            \$866         \$242         \$624         28%

  OHIO                    \$537         \$192         \$345         36%

  OKLAHOMA                \$406         \$107         \$299         26%

  OREGON                  \$1,462       \$1,258       \$204         86%

  PENNSYLVANIA            \$772         \$309         \$463         40%

  RHODE ISLAND            \$1,140       \$579         \$561         51%

  SOUTH CAROLINA          \$353         \$230         \$123         65%

  SOUTH DAKOTA            \$556         \$138         \$418         25%

  TENNESSEE               \$366         \$92          \$275         25%

  TEXAS                   \$425         \$106         \$318         25%

  UTAH                    \$326         \$258         \$69          79%

  VERMONT                 \$2,683       \$2,106       \$578         78%

  VIRGINIA                \$614         \$190         \$425         31%

  WASHINGTON              \$623         \$479         \$143         77%

  WEST VIRGINIA           \$717         \$261         \$456         36%

  WISCONSIN               \$517         \$245         \$271         48%

  WYOMING                 \$557         \$234         \$322         42%

  PUERTO RICO             \$320         \$80          \$240         25%

  GUAM                    \$374         \$42          \$332         11%

  AMERICAN SAMOA          \$316         \$53          \$263         17%

  VIRGIN ISLANDS          N/A           N/A           N/A           N/A

  **UNITED STATES**       **\$803**     **\$597**     **\$206**     **74%**
  -------------------------------------------------------------------------------

[^1]: Westat, *Adult Education Program Study* (forthcoming) (2003).
    During 2003, Westat surveyed a random, nationally representative
    sample of programs that received funds under AEFLA.

[^2]: State performance and financial reports, FY 2003.

[^3]: Ibid.

[^4]: Ibid.

[^5]: Ibid.

[^6]: Westat, AEPS (2003).

[^7]: Ibid.

[^8]: Ibid.

[^9]: State performance and financial reports, FY 2003.

[^10]: Ibid.

[^11]: Westat, AEPS (2003).

[^12]: Ibid.

[^13]: Ibid.

[^14]: Ibid.

[^15]: State performance and financial reports, FY 2003.