Department of Education

CAREER, TECHNICAL, AND ADULT EDUCATION

Fiscal Year 2017 Budget Request

CONTENTS

Page

Appropriations Language ....................................................................................................... M-1

Analysis of Language Provisions and Changes...................................................................... M-2

Appropriation, Adjustments, and Transfers ............................................................................ M-3

Summary of Changes ............................................................................................................ M-4

Authorizing Legislation........................................................................................................... M-5

Appropriations History............................................................................................................ M-6

Significant Items in FY 2016 Appropriations Reports.............................................................. M-7

Summary of Request ............................................................................................................. M-8

Activities:

Career and technical education:

Career and technical education: State grants............................................................. M-11

Career and technical education: National programs ................................................... M-24

Adult education:

Adult education: Adult basic and literacy education State grants................................ M-26

Adult education: National leadership activities............................................................ M-35

State tables*

* State tables reflecting final 2015 allocations and 2016 and 2017 estimates are posted on the Department’s Web 

page at: http://www2.ed.gov/about/overview/budget/statetables/index.html.
CAREER, TECHNICAL, AND ADULT EDUCATION

Appropriations Language

For carrying out, to the extent not otherwise provided, [the Carl D. Perkins Career and 

Technical Education Act of 2006 and]1 the Adult Education and Family Literacy Act ("AEFLA"), 

[$1,720,686,000, of which $929,686,000] $606,667,000, which shall become available on July 

1, [2016] 2017, and shall remain available through September 30, [2017, and of which 

$791,000,000 shall become available on October 1, 2016, and shall remain available through 

September 30, 2017] 2018:

2 Provided, That [of the amounts made available for AEFLA, 

$13,712,000] $24,712,000 shall be for national leadership activities under section 242.

3

 

(Department of Education Appropriations Act, 2016.)

NOTES

No appropriations language is included for programs authorized under the expired Carl D. Perkins Career and 

Technical Education Act; when new authorizing legislation for the Perkins Act is enacted, a budget request for these 

programs will be proposed.

Each language provision that is followed by a footnote reference is explained in the Analysis of Language 

Provisions and Changes document, which follows the appropriation language.

M-1
CAREER, TECHNICAL, AND ADULT EDUCATION

Analysis of Language Provisions and Changes

Language Provision Explanation

1 For carrying out, to the extent not otherwise 

provided, [the Carl D. Perkins Career and 

Technical Education Act of 2006 and] 

This language deletes the reference to the 

Carl D. Perkins Career and Technical 

Education Act. The programs under this Act 

are due to be reauthorized, so no 

appropriations language is included for them. 

Language will be proposed when new 

authorizing legislation is enacted.

2 the Adult Education and Family Literacy Act 

("AEFLA"), [$1,720,686,000, of which 

$929,686,000] $606,667,000, which shall 

become available on July 1, [2016] 2017, and 

shall remain available through September 30, 

[2017 and of which $791,000,000 shall 

become available on October 1, 2016, and 

shall remain available through September 30, 

2017] 2018:

This language provides funds appropriated 

on a forward-funded basis for Adult 

Education programs. The language also 

strikes a reference to a portion of the 

appropriation being available for Career and 

Technical Education State Grants on an 

advance-funded basis.

3 Provided, That [of the amounts made 

available for AEFLA, $13,712,000] 

$24,712,000 shall be for national leadership 

activities under section 242.

This language provides a specific amount for 

National Leadership Activities authorized 

under section 242 of the Adult Education and 

Family Literacy Act, overriding the statutory 

set-aside of 2 percent of the Adult Education 

appropriation (not to exceed $15 million).

M-2
CAREER, TECHNICAL, AND ADULT EDUCATION

Appropriation, Adjustments, and Transfers

(dollars in thousands)

Appropriation/Adjustments/Transfers 2015 2016 2017

Discretionary:

Discretionar yAppropriation.............................................................. $1,707,686 $1,720,686 $1,808,686

Advance:

Advance for succeeding fiscal year ........................ -791,000 -791,000 -791,000

Advance from prior year......................................... 791,000 791,000 791,000

Total, budget authority ....................................... 1,707,686 1,720,686 1,808,686

M-3
CAREER, TECHNICAL, AND ADULT EDUCATION

Summary of Changes

(dollars in thousands)

2016................................................................................................. $1,720,686

2017................................................................................................. 1,808,686

Net change ............................................................... +88,000

Increases: 2016 base

Change 

from base

Program:

Increase for Career and Technical Education (CTE) State Grants

to make competitive grants for the American Technical Training 

Fund to support the development, operation and expansion of

innovative, evidence-based job training programs in highdemand fields that provide a path to the middle class for lowincome individuals. $1,117,598 +$75,000

Increase for Career and Technical Education National Programs 

to provide technical assistance and evaluation support for 

projects under the American Technical Training Fund proposal. 7,421 +2,000

Increase for Adult Education National Leadership Activities to 

support States in their efforts to improve adult education 

standards and assessments and to carry out data collection 

activities during the first year of full implementation of the 

reauthorized Adult Education programs.

 

13,712 +11,000

Net change +88,000

M-4
CAREER, TECHNICAL, AND ADULT EDUCATION

Authorizing Legislation

(dollars in thousands)

Activity

2016

Authorized

Footnote

2016

Estimate

Footnote

2017

Authorized

Footnote

2017

Request

Footnote

Career and technical education (Carl D. Perkins CTEA):

CTAE State grants (CTEA Title I) 01 $1,117,598 To be determined1 $1,192,598

CTAE National programs (CTEA Section 114) 01 7,421 To be determined 1 9,421

Adult education (Adult Education and Family Literacy Act 

(AEFLA)):

AEF LA Adult basic and literacy education State grants (AEFLA) $622,2862,3 581,955 $635,1982,3 581,955

AEF LA National leadership activities (AEFLA section 242) (2,3) 13,712 (2,3) 24,712

Unfunded authorizations

UA Grants to States for workplace and community transition 

training for incarcerated individuals (HE Amendments 

of 1998, Title VIII-D) Indefinite 0 Indefinite 0

UA Occupational and employment information (CTEA 

section 118) Indefinite 0 Indefinite 0

UA Tech prep education State grants (CTEA Title II) Indefinite 0 Indefinite 0

Total definite authorization 622,286 0 635,198 0

Total annual appropriation 1,720,686 1,808,686

1 The GEPA extension expired September 30, 2013; reauthorizing legislation is sought for FY 2017. 2 A total of $622,286 thousand is authorized for both Adult Basic and Literacy Education State Grants and National Leadership Activities in FY 2016 and 

$635,198 thousand for FY 2017. 3 Section 211(a) of the Adult Education and Family Literacy Act requires that, of the funds appropriated for Adult Education, the Department reserve 

2 percent, not to exceed $15,000 thousand, for National Leadership Activities; and 12 percent of the remaining funds for Integrated English Literacy and Civics 

Education.

M-5

M-5
CAREER, TECHNICAL, AND ADULT EDUCATION

Appropriations History

(dollars in thousands)

Year

Budget

Estimate

to Congress

Footnote

House 

Allowance Footnote

Senate 

Allowance Footnote Appropriation Footnote

2008 $1,189,808 $2,038,220 $1,894,788 $1,941,642

(2008 Advance for 2009) (791,000) (791,000) (791,000)

2009 574,590 1,951,61111,863,16211,944,348

(2009 Advance for 2010) (791,000) (791,000) (791,000)

2010 2,018,447 2,016,447 2,018,44721,928,447

(2010 Advance for 2011) (791,000) (791,000) (791,000) (791,000)

2011 1,942,707 1,991,44731,942,54121,737,4514

(2011 Advance for 2012) (791,000) (791,000) (791,000) (791,000)

Rescission (P.L. 112-74) -(1,495)

2012 1,683,392 1,738,94651,738,94651,737,154

(2012 Advance for 2013) (791,000) (791,000) (791,000) (791,000)

2013 1,737,154 1,737,15461,737,15461,646,533

(2013 Advance for 2014) (791,000) (791,000) (791,000) (791,000)

2014 1,750,154 N/A71,737,949 1,702,686

(2014 Advance for 2015) (791,000) (791,000) (791,000)

2015 1,722,686 N/A71,720,93981,707,686

(2015 Advance for 2016) (791,000) (791,000) (791,000)

2016 1,915,686 1,700,60991,669,73191,720,686

(2016 Advance for 2017) (791,000) (791,000)

9 (791,000)9 (791,000)

2017 1,808,686

(2017 Advance for 2018) (791,000)

1 The levels for the House and Senate allowances reflect action on the regular annual 2009 appropriations bill, 

which proceeded in the 110th Congress only through the House Subcommittee and the Senate Committee. 2

 The level for the Senate allowance reflects Committee action only. 3

 The level for the House allowance reflects the House-passed full-year continuing resolution. 4

 The level for appropriation reflects the Department of Defense and Full-Year Continuing Appropriations Act, 

2011 (P.L. 112-10). 5

 The level for the House allowance reflects an introduced bill and the level for the Senate allowance reflects 

Senate Committee action only. 6

 The levels for the House and Senate allowances reflect action on the regular annual 2013 appropriations bill, 

which proceeded in the 112th Congress only through the House Subcommittee and the Senate Committee. 7

 The House allowance is shown as N/A because there was no Subcommittee action. 8

 The level for the Senate allowance reflects Senate Subcommittee action only. 9 The levels for the House and Senate allowances reflect action on the regular annual 2016 appropriations bill, 

which proceeded in the 114th Congress only through the House Committee and Senate Committee.

M-6
CAREER, TECHNICAL, AND ADULT EDUCATION

Significant Items in FY 2016 Appropriations Reports

Reports on Performance Partnership Pilots

Senate: The Committee requests the administration provide it with annual reports 

containing the following information: a detailed summary of all involved pilot 

programs, an overview of how pilots were selected, a summary of findings from 

the various pilots, and recommendations for Congress on how to apply best 

practices more broadly. 

Response: The Department plans to consult with the Committee on the content and timing of 

the requested reports. 

M-7
ACCOUNT

Summary of R equ est

DEPARTMENT OF EDUCATION FISCAL YEAR 2017 PRESIDENT'S BUDGET

(in thousands of dollars)

Click here for accessible version 

Amount Percent

Career, Technical, and Adult Education

1. Career and technical education (Carl D. Perkins CTEA):

(a) State grants (Title I)

Annual appropriation D 326,598 326,598 401,598 75,000 22.96%

Advance for succeeding fiscal year D 791,000 791,000 791,000 0 0.00%

Subtotal 1,117,598 1,117,598 1,192,598 75,000 6.71%

(b) National programs (section 114) D 7,421 7,421 9,421 2,000 26.95%

Subtotal, Career and technical education 1,125,019 1,125,019 1,202,019 77,000 6.84%

2. Adult education:

(a) Adult basic and literacy education State grants (AEFLA) D 568,955 581,955 581,955 0 0.00%

(b) National leadership activities (AEFLA section 242) D 13,712 13,712 24,712 11,000 80.22%

Subtotal, Adult education 582,667 595,667 606,667 11,000 1.85%

Total, Appropriation D 1,707,686 1,720,686 1,808,686 88,000 5.11%

Total, Budget authority D 1,707,686 1,720,686 1,808,686 88,000 5.11%

Current 916,686 929,686 1,017,686 88,000 9.47%

Prior year's advance 791,000 791,000 791,000 0 0.00%

NOTES: D = discretionary program; M = mandatory program; FY = fiscal year 

Detail may not add to totals due to rounding. 

2017 President's Budget

2016 Compared to 2016 Appropriation

Account, Program and Activity Appropriation

Category 

Code

2015 

Appropriation

2017 President's 

Budget

M-8

M-8
CAREER, TECHNICAL, AND ADULT EDUCATION

Summary of Request

Programs in the Career, Technical, and Adult Education account further the efforts of States 

and communities to improve their career and technical education programs and their adult 

education and literacy systems. The objective of the career and technical education programs 

is to develop the academic, career, and technical skills of youth and adults in high schools, 

community colleges, and correctional institutions by: (1) helping States develop challenging 

standards, (2) promoting the integration of academic, career, and technical instruction, and 

(3) supporting State and local program improvements. Adult education programs support local 

efforts to provide educational services to adults who lack the basic or English literacy skills 

needed for them to benefit fully from job training, obtain better jobs, complete secondary 

education, succeed in postsecondary education, and become full participants in their children’s 

education. The request for the Career and Technical Education programs would support 

program implementation under a reauthorized Perkins Act as outlined in the proposal the 

Department published in April 2012, “Investing in America’s Future: A Blueprint for 

Transforming Career and Technical Education.” Adult Education programs would be funded 

under the Adult Education and Family Literacy Act (AEFLA).

The Administration requests a total of $1.8 billion for this account. This request includes 

$1.2 billion for Career and Technical Education State Grants, $9.4 million for Career and 

Technical Education National Programs, $582.0 million for Adult Education State Grants, 

and $24.7 million for Adult Education National Leadership Activities.

The request for the Career and Technical Education (CTE) State Grants program would 

support the first year of activity under a reauthorized Carl D. Perkins Career and Technical 

Education Act that would seek to ensure that all CTE programs become viable and rigorous 

pathways to postsecondary education and career success. The Administration’s reauthorization 

proposal would increase the alignment between CTE and labor market needs, strengthen 

collaboration among secondary and postsecondary CTE programs and business and industry,

create a better accountability system, and provide competitive funding modeled after the 

Investing in Innovation (i3) program to promote innovation and reform in CTE. The request for a 

$75 million increase under State Grants would support competitive grants for the American 

Technical Training Fund to support the development, operation, and expansion of innovative, 

evidence-based job training programs in high-demand fields that provide a path to the middle 

class for low-income individuals.

The request for Career and Technical Education National Programs would support 

implementation of a reauthorized Perkins Act through research, evaluation, data collection, 

technical assistance, and other national leadership activities aimed at improving the quality and 

effectiveness of career and technical education. The $2 million increase would provide

technical assistance and evaluation support for projects under the American Technical Training 

Fund proposal included in the request for CTE State Grants.

The request for Adult Education State Grants would support State and local efforts to assist 

adults in becoming literate and in obtaining the knowledge and skills necessary for employment 

and self-sufficiency, assist adults who are parents in obtaining the educational skills necessary 

to become full partners in the educational development of their children, and assist adults in the 

completion of a secondary education. The Adult Education State Grants request also includes 

continuation of English Literacy/Civics Education State Grants (codified under the reauthorized 

AEFLA) to support the unmet needs of immigrants learning English. This program helps States 

M-9
CAREER, TECHNICAL, AND ADULT EDUCATION

Summary of Request—continued

and communities provide adult English Learners with expanded access to high-quality English 

literacy programs linked to civics education.

The request for Adult Education National Leadership Activities would continue to support 

activities intended to increase the literacy and workforce skills of our Nation’s native-born adult 

population, as well as the ongoing need to address the English language acquisition, literacy, 

and workforce skills gaps of the immigrant population. The requested increase of $11.0 million 

would support States in their efforts to improve adult education standards and assessments and 

carry out data collection activities, and support the interoperability of data systems and 

improvement of reporting to meet the requirements of the Workforce Innovation and Opportunity 

Act.

M-10
CAREER, TECHNICAL, AND ADULT EDUCATION

Activities:

Career and technical education:

Career and technical education: State grants 

(Carl D. Perkins Career and Technical Education Act of 2006, Title I)

(dollars in thousands)

FY 2017 Authorization: Indefinite1

Budget Authority: 

Acti vity and period of fund availability

2016 2017 Change

Annual appropriation $326,598 $401,598 +$75,000

Advance for succeeding fiscal year 791,000 791,000 0

Total 1,117,598 1,192,598 +$75,000

1 The GEPA extension expired September 30, 2013; reauthorizing legislation is sought for FY 2017.

PROGRAM DESCRIPTION

Under the Carl D. Perkins Career and Technical Education Act of 2006 (Perkins IV), State 

Grants for Career and Technical Education (CTE) assist States and Outlying Areas in 

expanding and improving career and technical education in high schools, technical schools, and 

community colleges. Each State uses program funds to support a variety of career and 

technical education programs developed in accordance with its State plan. 

The Department allocates funds to States, including the District of Columbia, Puerto Rico, and 

the Virgin Islands, through a formula based on State per-capita income and population in three 

age cohorts (15-19, 20-24, and 25-65). The formula provides for a minimum State allocation of 

at least 0.5 percent of the total appropriation, and a “hold-harmless” provision in the formula 

ensures that no State’s share of the appropriation is less than its share of the fiscal year 1998 

appropriation. A special provision limits the increase a State with an initial allocation of the 

0.5 percent minimum may receive, resulting in a number of States that receive an allocation of 

less than 0.5 percent of the total. If appropriations result in the amount of funds for allocation to 

States exceeding the amount of funds allocated to States from the fiscal year 2006 

appropriation, up to one-third of the additional funds is to be allotted to States with fiscal year 

2006 grant awards that were less than the minimum 0.5 percent grant amount and the 

remainder is to flow to the other States. 

In addition, the Pacific territories receive 0.13 percent of the total appropriated for State Grants 

to operate the same kinds of career and technical education programs as the States. Within 

that set-aside, Guam receives $660,000, American Samoa and the Northern Mariana Islands 

each receive $350,000, and Palau receives $160,000. Any remaining funds are distributed 

among Guam, American Samoa, and the Northern Mariana Islands in equal shares. Also, 

1.25 percent of the total appropriation for State Grants is set aside for grants to federally 

M-11
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

recognized Indian tribes and tribal organizations, and 0.25 percent is set aside for competitive 

grants to organizations that primarily serve and represent Hawaiian Natives.

Under the statute:

• Programs must, among other things, integrate academic and career and technical 

education, promote student attainment of challenging academic and career and technical 

standards, provide strong linkages between secondary and postsecondary education, and 

provide professional development for teachers, counselors, and administrators.

• States and local recipients must offer at least one program of study. Programs of study are 

coherent sequences of non-duplicative CTE courses that progress from the secondary to 

the postsecondary level, include rigorous and challenging academic content along with 

career and technical content, and lead to an industry-recognized credential or certificate at 

the postsecondary level or to an associate or baccalaureate degree. 

• The Secretary and each State must reach agreement on annual levels of performance for a 

number of “core indicators” specified in the law. 

o The core indicators for secondary education programs focus on student attainment of 

challenging academic standards, as measured by the State determined levels of 

achievement on the academic assessments described in Title I of the Elementary and 

Secondary Education Act (ESEA), as recently reauthorized; high school graduation; 

student attainment of career and technical skill proficiencies; student attainment of a 

secondary school diploma or its recognized equivalent, or a proficiency credential in 

conjunction with a secondary school diploma; student placement in postsecondary 

education, advanced training, military service, or employment; and student participation 

in and completion of career and technical education programs that lead to employment 

in fields that are traditionally dominated by one gender.

o The core indicators for postsecondary education programs focus on student attainment 

of challenging career and technical skill proficiencies; student attainment of an industryrecognized credential, certificate, or degree; student retention in postsecondary 

education or transfer to a baccalaureate degree program; student placement in the 

military or in apprenticeship programs, or placement or retention in employment; and 

student participation in and completion of career and technical education programs that 

lead to employment in fields that are traditionally dominated by one gender.

• At least 85 percent of State Grant funds must be allocated by formula to local educational 

agencies (LEAs) and postsecondary institutions, and a State may reserve up to 10 percent 

of those funds to make grant awards to local agencies in rural areas and areas with high 

percentages or high numbers of career and technical education students. 

• States may use up to 10 percent of their allocations to carry out State leadership activities, 

such as professional development, expanding the use of technology, assessing career and 

technical education services, furthering the integration of academic and career and technical 

education in order to improve student achievement, preparing students for employment in 

M-12
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

fields that are traditionally dominated by one gender, delivering career and technical 

education in correctional institutions, and providing services for special populations 

designated in the statute.

This is a forward-funded program that includes advance appropriations. A portion of the funds 

becomes available for obligation on July 1 of the fiscal year in which the funds are appropriated 

and remains available for 15 months through September 30 of the following year. The 

remaining funds become available on October 1 of the fiscal year following the year of 

appropriation and remain available for 12 months, expiring at the same time as the forwardfunded portion. 

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2012 ...................................................... $1,123,030

2013 ........................................................ 1,064,446

2014 ........................................................ 1,117,598

2015 ........................................................ 1,117,598

2016 ........................................................ 1,117,598

FY 2017 BUDGET REQUEST

For fiscal year 2017, the Administration requests $1.19 billion for the Career and Technical 

Education (CTE) State Grants program, an increase of $75 million over the fiscal year 2016 

level. The request would provide $1.1 billion for the State formula program and an additional 

$75 million for a grant competition for an American Technical Training Fund (ATTF) under a 

reauthorized Carl D. Perkins Career and Technical Education Act. ATTF would build on lessons 

learned from the Department of Labor’s Trade Adjustment Assistance Community College and 

Career Training Program (TAACCT) to ensure projects are well-integrated with local workforce 

systems, and would be jointly administered with the Department of Labor. The Department’s 

reauthorization proposal, Investing in America’s Future: A Blueprint for Transforming Career 

and Technical Education, was released in April 2012 and includes changes that would help 

ensure that all students exit their CTE programs well prepared for further education or 

employment in high-skill and high-demand occupations, including for technical jobs that are 

currently going unfilled. The reauthorization proposal would also support reaching the 

President’s goals that every student graduates from high school college- and career-ready, and 

that the United States will once again lead the world in college attainment.

American Technical Training Fund

The $75 million request for the American Technical Training Fund (funded through the CTE 

Innovation Fund proposed as part of the Administration’s reauthorization plan) would provide 

competitive grants to support the development, operation, and expansion of innovative, 

evidence-based, short-term, or accelerated education and job training programs that enable 

youth and adults, particularly from low-income families, to enter and complete career pathways 

that lead to jobs in in-demand industries and occupations. Building on the President’s JobM-13
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

Driven Training agenda, this funding would aim to create and expand education and training 

that is tightly linked with the skills most in-demand from employers and that results in students 

getting into well-paying jobs or career pathways upon the completion of training. Programs 

would be free to participants and grantees would be required to waive tuition and fees for 

students on a “first dollar” basis. This means that all tuition and fees would be waived and all 

other available financial aid could be used to pay other costs of attendance, such as 

transportation, dependent care, supplies, or room and board. These types of programs that 

offer opportunities for students to pursue education and training tuition-free are critical to 

providing a pathway to the middle class for hard-working individuals who need to gain technical 

skills and postsecondary credentials to obtain employment in in-demand industries and 

occupations. 

Eligible entities would be community and technical colleges and other eligible institutions of 

higher education (IHEs) that participate in the Department’s student financial assistance 

programs and that work with partners including local educational agencies, local workforce 

development boards, economic development agencies, industry organizations, labor 

management organizations, and employers. The eligible entities could also form partnerships 

with nonprofit organizations or other non-IHE training providers, including registered 

apprenticeship programs, that have a track record of serving students well, as demonstrated by 

graduation, retention, and job placement rates. In addition, the Department would reserve a 

portion of the program funds for applicants from rural areas, tribal organizations, or outlying 

areas, or postsecondary institutions operated by the Bureau of Indian Education.

The Department would make tiered awards under the ATTF, with smaller grants for initial startup of new programs or replication of existing programs, and larger grants for the expansion of 

existing models with evidence of effectiveness, which could include past performance on 

graduation rates, job placement and retention rates, wages earned, and wage progression by 

graduates. Grantees would be required to conduct independent evaluations of their programs 

to build evidence of what works in CTE and in short-term or accelerated training programs. The 

request for Career and Technical Education National Programs also includes $2 million to 

provide technical assistance and evaluation support to grantees under the ATTF competition. 

CTE Promotes Positive Educational and Employment Outcomes

Findings from the Final Report to Congress on the National Assessment of Career and 

Technical Education (NACTE), published in September 2014, show that CTE plays an important 

role in both secondary and postsecondary students’ educational experiences. The majority of 

high school students participate in CTE, but the intensity of their experience in CTE programs 

varies. While CTE programs are widely available to students and many students take at least 

one CTE course during high school, only about one-fifth of students earned at least three high 

school credits in the same CTE field.

In addition, the report indicated that postsecondary students who earned a CTE certificate or 

associate’s degree were more likely to be employed than those who did not earn a subbaccalaureate credential, and students who earned an undergraduate certificate or associate’s 

degree had higher earnings than high school graduates with no postsecondary education. 

M-14
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

However, the current distribution of Federal CTE funds does not reflect these findings on the 

important role of postsecondary CTE. On average, States distribute 60 percent of Perkins funds 

to secondary CTE programs and 40 percent to postsecondary programs. 

The Administration’s Reauthorization Proposal

The blueprint for reauthorization of the Perkins Act proposes statutory reforms to address both 

the current program’s shortcomings and to transform it. As the NACTE points out, it has been 

difficult to determine the program’s effectiveness and to hold States accountable for 

performance under the current Perkins Act, in part because States can establish their own 

definitions, performance measures, and goals. Furthermore, the current structure of the CTE 

State Grants program—with funds allocated from States to local secondary and postsecondary 

recipients separately and by formula—lacks the adequate linkages between secondary schools, 

postsecondary institutions, and employers that is necessary to promote effectiveness.

Manufacturing executives report that they expect nearly 3.5 million jobs will need to be filled 

over the next decade, but 2 million of those jobs to go unfilled due to the skills gap, according to 

Deloitte and The Manufacturing Institute’s 2015 “The Skills Gap in U.S. Manufacturing: 2015 

and Beyond.” This skills gap is affecting American productivity. Eighty-two percent of 

responders to the surveys discussed in the report indicated that they believe the skills gap will 

impact their ability to meet customer demand, and 78 percent indicated that they expect the 

skills gap to negatively affect their ability to implement new technologies and increase 

productivity. Moreover, the demand for skilled workers is not likely to decrease. The report 

points out that, with manufacturing becoming increasingly technical, there is increasing demand 

for more skilled workers. 

The blueprint proposes strategies that will strengthen the link between CTE programs and labor 

market needs while also supporting reforms based on evidence that high-quality CTE programs 

can have a significant, positive impact on student achievement, high school graduation, 

transition to college, and college completion rates. The Administration’s proposal seeks to: 

• Strengthen collaboration among secondary and postsecondary CTE programs and business 

and industry. Under the Administration’s reauthorization proposal, in place of separate 

within-State formula allocations to secondary and postsecondary programs, States would 

make competitive grants to consortia of secondary and postsecondary institutions, thus 

strengthening the linkage between secondary and postsecondary education. This change 

would also direct funds to programs with the strongest and most proven strategies for 

delivering CTE, including strategies for serving all students. Because employer involvement 

is also crucial to ensuring that CTE programs are aligned with workforce needs and give 

students work-based learning opportunities, consortia would be required to include relevant 

employers within each career pathway. Finally, grantees would be required to obtain 

matching funds from the private sector. 

• Create a better accountability system. The current accountability system does not provide 

valid, reliable, or comparable information about whether CTE programs are accomplishing 

their goals because States determine how their own performance will be measured. Nor 

M-15
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

does it create a basis for recognizing and expanding the most successful programs or 

identifying ineffective programs and taking actions to improve them. The Administration’s 

proposal would move States toward common definitions for performance measures, 

including measures that would hold States accountable for providing students participating 

in CTE programs with access to postsecondary education and increasing students’ 

attainment of a postsecondary credential, certificate, or degree. In addition, the 

reauthorized Perkins Act would create financial incentives for good performance, as well as 

consequences for poor performance.

• Increase alignment between CTE and labor market needs. The reauthorization proposal 

would require States and local agencies to work with workforce and economic development 

agencies and other partners to identify in-demand occupations in high-growth industry 

sectors to ensure that CTE programs are aligned with and provide students with the skills 

they need to succeed in these occupations.

• Promote innovation and reform in CTE. A key to improving the effectiveness and impact of 

CTE programs is expanding the knowledge base of effective practices by promoting the 

development, evaluation, and scaling up of innovations in CTE. Building on the 

Department’s successful experience with the Investing in Innovation (i3) program, the 

reauthorization would support a discretionary fund aimed at promoting innovation and 

reform in CTE and replicating the success of proven models. An innovation fund dedicated 

to CTE would be unique because it would allow for projects that focus on the alignment and 

articulation between secondary and postsecondary education, including alignment between 

CTE and computer science and other STEM subjects. A particular emphasis of the Fund 

would be to promote employer involvement and linkages to workforce needs as well as 

projects that focus on both labor market needs and educational outcomes. By providing 

incentives to partnerships between CTE programs and business and industry, this 

competitive fund could leverage local efforts. Examples of local efforts include: the “Maker 

Movement” (which promotes student use of technology to bring, or make, their ideas into 

reality), digital games and simulations, open educational resources, and other efforts that 

would generate critical innovations that can help students acquire technical skills and obtain 

credentials or degrees that prepare them for high-wage, high-skill employment. Future 

funding could also support activities to promote the development and adoption of State-level

reforms in CTE and to carry out “pay-for-success” projects. The American Technical 

Training Fund proposed in fiscal year 2017 would be supported through this authority.

The Administration also proposes revisions to the State allocation formula as part of the 

reauthorization proposal in order to improve and simplify the process for calculating allocations 

and to ensure that the formula drives funds to States based on current data.

A reauthorized CTE State Grants program will help provide better opportunities for students to 

graduate from high school and exit postsecondary education with the skills to succeed in today’s 

economy. By addressing a persistent skills gap in the employment market, the changes 

proposed by the Administration would help strengthen the U.S. economy and its global 

competitiveness while increasing the employment rate. 

M-16
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2015 2016 2017

Formula funds:

 ds: State grants $1,099,382 $1,099,382 $1,099,382

Formul a funds: Range of awards to States $4,215–$120,257 $4,215–$120,257 $4,215–$120,257

 ds: Territories allocation $1,452 $1,452 $1,452

 ds: Indian set-aside $13,970 $13,970 $13,970

Formul a funds: Indi an set-aside: Number of grants 31 31 31

 ds: Native Hawaiian grant $2,794 $2,794 $2,794

Formul a funds: N ati ve Hawaiian grant: Number of grants 7 7 7

American technical training fund:

 und: Innovation and reform grants 0 0 $74,250

 ning fund: Innovation and r eform grants: Number of new awards 0 0 5-25

 ning fund: Innovation and r eform grants: Average number of new

awards 0 0 15

 ning fund: Innovation and r eform grants: Number of sites 0 0 10-25

 ning fund: Innovation and r eform grants: Average number of sites 0 0 30

 ning fund: Innovation and r eform grants: Range of awards 0 0 $3,000-$15,000

 ning fund: Innovation and r eform grants: Average award amount 0 0 $5,000

 ning fund: Innovation and r eform grants: Number of participants 7,425

 ning fund: Peer review of applications 0 0 $750

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program information, including GPRA goals, objectives, 

measures, and performance targets and data; and an assessment of the progress made toward 

achieving program results. Achievement of program results is based on the cumulative effect of 

the resources provided in previous years and those requested in FY 2017 and future years, as 

well as the resources and efforts invested by those served by this program.

Goal: Increase access to and improve educational programs that strengthen education 

achievement, workforce preparation, and lifelong learning.

Objective: Ensure that secondary and postsecondary CTE concentrators, including special 

populations, meet rigorous academic standards, attain technical skills, and make successful 

transitions to further education and employment.

M-17
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

Measure: The percentage of CTE concentrators scoring at the proficient level or above on 

State reading/language arts assessments.

Year Target Percentage Actual Percentage

2012 71% 75.1%

2013 76 77.1

2014 77 77.8

2015 77

2016 77

2017 78

Measure: The percentage of CTE concentrators scoring at the proficient level or above on 

State mathematics assessments.

Year Target Percentage Actual Percentage

2012 65% 71.3%

2013 72 71.9

2014 72 70.8

2015 72

2016 72

2017 72

Measure: The percentage of CTE concentrators who graduated in the reporting year.

Year Target Percentage Actual Percentage

2012 91% 92.1%

2013 91 92.5

2014 91 92.7

2015 93

2016 93

2017 93

Additional information: The Department has defined a secondary CTE concentrator in nonregulatory guidance as a secondary student who has earned three or more credits in a single 

CTE program area (e.g., health care or business services), or two credits in a single CTE 

program area, but only in those program areas where two-credit sequences at the secondary 

level are recognized by the State and/or its local eligible recipients. However, States have 

authority under the Perkins statute to set definitions for performance measures, and they 

generally do so. As required in the statute, States measure reading/language arts and 

mathematics achievement by determining the percentage of CTE concentrators (of those who 

took State assessments) who attained a level of proficient or advanced on the assessments 

administered by the State under the Title I of the Elementary and Secondary Education Act 

(ESEA). Performance targets are averages of the performance targets the Department 

negotiated with individual State agencies. The source of data is the Consolidated Annual 

M-18
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

Report that State agencies submit to the Department. Note that many CTE students take the 

State assessments before they begin their coursework in CTE (i.e., in 9th or 10th grade).

The percentage of CTE concentrators who graduate from high school is obtained by extracting 

data on the CTE students who were included in the State’s computation of the graduation rate 

as required under ESEA Title I. In recent years, this rate has been higher than the average 

graduation rate for all students. Data for 2015 will be available in May 2016. 

Measure: The percentage of secondary CTE concentrators attaining technical skills.

Year Target Percentage Actual Percentage

2012 82% 79.4%

2013 82 81.7

2014 78 82.3

2015 80

2016 80

2017 81

Measure: The percentage of secondary CTE concentrators earning a diploma, a GED, or a 

proficiency credential in conjunction with a secondary school diploma.

Year Target Percentage Actual Percentage

2012 86% 94.1%

2013 94 94.0

2014 94 94.5

2015 95

2016 95

2017 95

Measure: The percentage of secondary CTE concentrators placed in postsecondary 

education, advanced training, military service, or employment.

Year Target Percentage Actual Percentage

2012 88% 84.2%

2013 81 82.5

2014 82 83.4

2015 85

2016 85

2017 85

M-19
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

Measure: The percentage of secondary CTE concentrators participating in programs in 

nontraditional fields.

Year Target Percentage Actual Percentage

2012 32% 36.5%

2013 31 36.8

2014 32 36.3

2015 38

2016 38

2017 38

Measure: The percentage of secondary CTE concentrators completing programs leading to 

nontraditional fields.

Year Target Percentage Actual Percentage

2012 21% 36.5%

2013 30 38.0

2014 32 34.5

2015 38

2016 38

2017 38

Measure: The percentage of postsecondary CTE concentrators attaining technical skills. 

Year Target Percentage Actual Percentage

2012 70% 82.6%

2013 82 80.7

2014 83 79.7

2015 84

2016 84

2017 81

Measure: The percentage of postsecondary CTE concentrators earning an industryrecognized credential, certificate, or degree.

Year Target Percentage Actual Percentage

2012 60% 53.0%

2013 56 50.0

2014 58 53.0

2015 58

2016 58

2017 54

M-20
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

Measure: The percentage of postsecondary CTE concentrators remaining in postsecondary 

education or transferring to a baccalaureate degree program.

Year Target Percentage Actual Percentage

2012 62% 69.6%

2013 60 68.6

2014 73 67.8

2015 73

2016 73

2017 69

Measure: The percentage of postsecondary CTE concentrators placed in military service, 

employment, or apprenticeships. 

Year Target Percentage Actual Percentage

2012 76% 73.4%

2013 74 74.1

2014 75 72.1

2015 75

2016 75

2017 73

Measure: The percentage of postsecondary CTE concentrators participating in nontraditional 

programs.

Year Target Percentage Actual Percentage

2012 22% 24.3%

2013 23 24.3

2014 24 23.9

2015 25

2016 25

2017 24

M-21
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

Measure: The percentage of postsecondary CTE concentrators completing nontraditional 

programs.

Year Target Percentage Actual Percentage

2012 18% 20.6%

2013 19 20.5

2014 21 20.3

2015 22

2016 22

2017 21

Additional information: Performance targets are based on the performance targets the 

Department negotiates with each State. In order to encourage consistency in how States define 

outcomes and concentrators, the Department published non-regulatory guidance providing 

suggested measures, measurement approaches, and data definitions for each indicator. 

However, not every State has opted to adopt the Department’s suggested approaches. The 

Department has defined a postsecondary CTE concentrator in non-regulatory guidance as a 

postsecondary or adult student who: (1) completes at least 12 academic or CTE credits within a 

single program area sequence that is comprised of 12 or more academic and technical credits 

and terminates in the award of an industry-recognized credential, a certificate, or a degree; or 

(2) completes a short-term CTE program sequence of less than 12 credit units that terminates in 

an industry-recognized credential, a certificate, or a degree. While the Department continues to 

work with States and provide technical assistance on improving the quality of performance data, 

the data that the States currently submit have limited validity. 

The Perkins Act defines nontraditional fields as occupations or fields of work, including careers 

in computer science, technology, and other current and emerging high-skill occupations, for 

which individuals from one gender comprise less than 25 percent of the individuals employed in 

each such occupation or field of work. Performance targets are averages of the performance 

targets the Department negotiated with individual State agencies. Data for 2015 will be 

available in May 2016.

Efficiency Measures

The Department has adopted Federal cost per participant as the efficiency measure for 

secondary participants in the program. This is also the efficiency measure included in the job 

training common measures adopted by the Department and other Agencies. The efficiency 

measure for postsecondary students is the Federal cost per postsecondary CTE concentrator 

placed or retained in employment, placed in military service, or entering apprenticeships after 

leaving postsecondary education.

Although the Department is able to calculate this measure at the national and State levels, State 

definitions of participants vary, limiting the validity and reliability of comparisons across States. 

The Department started calculating the postsecondary cost measure in 2009. Data for fiscal 

year 2015 will be available in late 2016.

M-22
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: State grants

Measure: Federal cost per student.

Year Cost per secondary student

2009 $75

2010 74

2011 80

2012 79

2013 76

2014 77

Measure: Federal cost per postsecondary CTE concentrator placed or retained in 

employment, placed in military service, or entering apprenticeships after leaving postsecondary 

education.

Year Cost per postsecondary student

2009 $107

2010 107

2011 119

2012 115

2013 114

2014 126

M-23
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: National programs

(Carl D. Perkins Career and Technical Education Act of 2006, Section 114)

(dollars in thousands)

FY 2017 Authorization: Indefinite1

Budget Authority: 

2016 2017 Change

$7,421 $9,421 $2,000

1 The GEPA extension expired September 30, 2013. Reauthorizing legislation is sought for FY 2017.

PROGRAM DESCRIPTION

The Carl D. Perkins Career and Technical Education Act of 2006 (Perkins IV) includes an 

authority for National Programs to support research, development, demonstration, 

dissemination, evaluation, and assessment activities aimed at improving the quality and 

effectiveness of career and technical education (CTE). Within this authority, Perkins IV 

specifically calls for the operation of a national center to carry out scientifically based research 

in career and technical education and for a national assessment of career and technical 

education programs operated under the Act. The Department used National Programs funds 

from fiscal years 2005 through 2008 to carry out this national assessment and submitted a final 

report on the National Assessment of Career and Technical Education to Congress in 

September 2014.

National Programs funds currently support the National Career and Technical Education 

Research Center and activities to assist States in implementing key provisions of the Perkins 

Act, such as the requirement that States implement at least one “program of study” that 

provides a coherent sequence of courses that links secondary and postsecondary education, 

provides rigorous and challenging content, and leads to a degree or an industry-recognized 

credential. 

This is a forward-funded program. Funds become available for obligation from July 1 of the 

fiscal year in which they are appropriated and remain available through September 30 of the 

following year.

Funding levels for the past 5 fiscal years were: 

Fiscal Year (dollars in thousands)

2012.............................................................$7,829

2013...............................................................7,421

2014...............................................................7,421

2015...............................................................7,421

2016...............................................................7,421

M-24
CAREER, TECHNICAL, AND ADULT EDUCATION

Career and technical education: National programs

FY 2017 BUDGET REQUEST

For fiscal year 2017, the Administration requests $9.4 million for Career and Technical 

Education National Programs, a $2 million increase over the fiscal year 2016 level. Most funds

would support implementation of the Administration’s proposal for a reauthorized Perkins Act 

(as described in the Blueprint for Transforming Career and Technical Education, announced in 

April 2012) through research, evaluation, data collection, technical assistance, and other 

national leadership activities aimed at improving the quality and effectiveness of career and 

technical education. 

The reauthorization proposal calls for revising the current National Programs authority to make it 

a more effective vehicle for funding research and evaluation along with other activities that 

support implementation of proposed requirements. As one example, a broader research 

authority would help the Department pursue the research questions that are most relevant and 

important for the improvement of career and technical education. Further, the areas that the 

statute currently designates for evaluation have focused mainly on implementation issues. The

broader authority proposed for reauthorization would allow the Department to examine the 

effectiveness of CTE programs.

The Department would reserve $2 million from the request to provide technical assistance and 

evaluation support for projects under the $75 million American Technical Training Fund 

proposal described under the request for CTE State Grants. This competition would fund 

innovative, evidence-based, short-term, or accelerated job training programs that provide a path 

to the middle class for low-income individuals by helping them attain tuition free credentials that 

lead to a living wage and are articulated to a postsecondary degree. In addition, the 

Department would use $500,000 from the request to strengthen data collection efforts related to 

career and technical education conducted by the National Center for Education Statistics 

(NCES). This would ensure continued data collection and expanded reporting through the 

NCES CTE Statistics program.

PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Output Measures 2015 2016 2017

National Career and Technical 

Education Research Center 0 $1,500 $2,000

National reporting system $1,266 1,266 1,750

Professional development 300 300 0

Data collection efforts 0 750 500

Technical Assistance and Evaluation 

Support for Innovation Fund 

Projects 0 0 2,000

Other program improvement activities 5,855 3,605 3,171

M-25
CAREER, TECHNICAL, AND ADULT EDUCATION

Adult education:

Adult education: Adult basic and literacy education State grants

(Adult Education and Family Literacy Act)

(dollars in thousands)

FY 2017 Authorization: $635,1981

Budget Authority:

2016 2017 Change

$581,955 $581,955 0

1 A total of $635,198 thousand is authorized for both Adult Basic and Literacy Education State Grants and 

National Leadership Activities.

PROGRAM DESCRIPTION

Under the Adult Education and Family Literacy Act (AEFLA), adult education grants to the 

States and Outlying Areas support programs that assist adults in becoming literate and in 

obtaining the knowledge and skills necessary for employment and self-sufficiency, assist adults 

who are parents in obtaining the educational skills necessary to become full partners in the 

educational development of their children, and assist adults in the completion of a secondary 

education. The Department also uses a portion of State grant funds to make formula grants to 

States for English literacy and civics education.

In July 2014, the President signed into law the Workforce Innovation and Opportunity Act 

(WIOA), which reauthorized AEFLA. The reauthorization promotes the integration of adult 

education with occupational education and training and with the development of career 

pathways systems, explicitly authorizes the use of program funds for integrated education and 

training and workforce preparation activities, emphasizes that adult education providers should 

assist participants in transitioning to postsecondary education, and encourages States to align 

their content standards for adult education with State-established academic standards for 

elementary and secondary education. The law also codifies the Integrated English Literacy and 

Civics Education program, eliminates Incentive Grants, increases the cap on State spending on 

correctional education, and requires that State performance levels be adjusted using an 

"objective statistical model" to reflect differences in State economic conditions. WIOA also 

aligns Adult Education State Grants more closely with Department of Labor (DOL) workforce 

development, job-training, and employment programs, including through provisions requiring 

common performance measures and inclusion of adult education activities in unified State 

workforce development plans.

Adult Education State Grants

The statute requires the Department to make an initial allotment of $250,000 to each State and 

$100,000 to each Outlying Area, and to distribute remaining funds on the basis of each State’s 

share of qualifying adults. Qualifying adults are defined in AEFLA as individuals aged 16 and 

M-26
CAREER, TECHNICAL, AND ADULT EDUCATION

Adult education: National leadership activities

older who lack a high school diploma or the equivalent, who are beyond the age of compulsory 

education in their States, and who are not currently enrolled in school. AEFLA also includes a 

“hold-harmless” provision that ensures that each State receives at least 90 percent of its 

previous year’s allocation. If funding is insufficient to satisfy the hold-harmless provision, each 

State receives the same proportion of available funding as in the previous year.

A State may use up to 12.5 percent of its grant for State leadership activities and an additional 

5 percent or $85,000 (whichever is greater) for State administration. At least 82.5 percent of a 

State’s grant must be used for local awards; of this amount, up to 20 percent may be used to 

educate incarcerated and other institutionalized individuals. Of the funds provided by the State 

agency to eligible entities, at least 95 percent must be used for instructional activities.

States make subgrants to local entities that provide adult basic education, English literacy, adult 

secondary education, workplace literacy, and family literacy services. Local service providers 

include local educational agencies, community colleges, libraries, and community- and faithbased organizations. In distributing funds, States must give equitable access to all types of 

eligible entities that have the ability to operate adult education programs, taking into account the 

extent to which such programs: have measurable goals for client outcomes, can demonstrate 

past effectiveness in improving the literacy skills of adults and families, serve individuals who 

are most in need of literacy services, are built on a strong foundation of research about effective 

practices; and coordinate with other available resources in the community.

State leadership funds are used for activities to improve adult education and literacy services, 

including professional development to improve the quality of instruction, technology assistance 

for local providers, and monitoring and evaluation activities to assess the quality of local 

programs. States may also use a portion of their State leadership funds for financial incentives 

to reward local programs for high performance or exemplary program coordination.

AEFLA shares a common performance accountability system with the workforce programs 

under WIOA that are administered by DOL, including six primary indicators of performance: (1) 

the percentage of program participants who are in unsubsidized employment during the second

quarter after exit from the program; (2) the percentage of program participants who are in 

unsubsidized employment during the fourth quarter after exit from the program; (3) the median 

earnings of program participants who are in unsubsidized employment during the second 

quarter after exit from the program; (4) the percentage of program participants who obtain a 

recognized postsecondary credential, or a secondary school diploma or its recognized

equivalent, during participation in or within 1 year after exit from the program; (5) the percentage 

of program participants who, during a program year, are in an education or training program that 

leads to a recognized postsecondary credential or employment and who are achieving 

measurable skill gains toward such a credential or employment; and (6) an indicator to measure 

the effectiveness of programs in serving employers (to be determined by the Secretaries of 

Labor and Education by summer 2016).

M-27
CAREER, TECHNICAL, AND ADULT EDUCATION

Adult education: National leadership activities

English Literacy and Civics Education State Grants

The Department also awards formula grants to States for English literacy and civics (EL/Civics) 

education from funds set aside from the Adult Education appropriation. Using data from the 

Department of Homeland Security’s Office of Immigration Statistics on the number of legal 

immigrants, the Department allocates 65 percent of funds based on each State’s share of a 

10-year average of immigrants admitted for legal permanent residence. The remaining 

35 percent is allocated to States that have experienced recent growth in immigration, as 

measured by the average number of immigrants in the 3 most recent years. No State receives 

an award of less than $60,000. 

This is a forward-funded program. Funds become available for obligation from July 1 of the 

fiscal year in which they are appropriated and remain available through September 30 of the 

following year.

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2012.........................................................$594,993

2013...........................................................563,955

2014...........................................................563,955

2015...........................................................568,955

2016...........................................................581,955

FY 2017 BUDGET REQUEST

The Administration requests $582.0 million for Adult Education State Grants for fiscal year 2017, 

the same as the 2016 level. The fiscal year 2017 funds would help meet the President’s goal of 

closing the opportunity and achievement gap so that every American has access to education, 

training, and pathways into the middle class. 

There is a persistent need for adult education services in the U.S. Data from the Organisation 

for Economic Co-operation and Development’s (OECD) Program for the International 

Assessment of Adult Competencies (PIAAC) indicate that, in 2012, mean proficiency scores in 

both literacy and numeracy among U.S. individuals ages 16-65 were below the average of the 

OECD countries participating in the survey. In the subgroup of individuals ages 16-25, the U.S. 

also failed to meet the OECD average. Eighteen percent of adults in the U.S. score at the 

lowest two of six levels in literacy and 30 percent score at the lowest two of six levels in 

numeracy, compared to an international average of 15 percent for literacy and 19 percent for 

numeracy.

Findings from a supplemental study of the National Assessment of Adult Literacy (NAAL), 

“Basic Reading Skills and the Literacy of America’s Least Literate Adults,” published in 2009, 

found that of the adults who scored “Below Basic” in prose literacy on the NAAL, 55 percent 

were those with the least amount of schooling (less than a high school degree) and 44 percent 

lived in families with incomes below the poverty line. State enrollment data for the Adult 

M-28
CAREER, TECHNICAL, AND ADULT EDUCATION

Adult education: National leadership activities

Education State Grants program also indicate approximately 1.6 million adults were enrolled in 

adult education during the 2013-2014 program year, with approximately 88 percent in adult 

basic education programs or English literacy programs and only 12 percent in adult secondary 

education programs.

Another group with a strong need for adult education services is high school dropouts. Some of 

these students may be immigrants without the English language skills or formal education 

background to succeed in a traditional secondary school. The Census Bureau reports a “status 

dropout rate,” which represents the proportion of young people, ages 16 through 24, who are 

out of school and who have not earned a high school diploma or equivalent. In 2000, this 

dropout rate was 11 percent. While the dropout rate for the same age group had declined to 

7 percent by 2013, higher rates persist for some minority groups. For example, the 2013 

dropout rate was 12 percent for Hispanics. These data underscore the need both to continue to 

serve at-risk populations and to work to improve the effectiveness of the services provided to 

these populations.

Further, the requisite educational attainment level for jobs that pay wages sufficient to support a 

family is increasing. A 2013 report released by Georgetown University’s Center on Education 

and the Workforce, “Recovery: Projections of Job Growth and Education Requirements through 

2020,” predicts that by 2020, 65 percent of jobs will require some postsecondary education or

training. In 1973, only about 28 percent of jobs required applicants to have more than a high 

school education; by 2010, that percentage had risen to about 59 percent. 

The Department has made significant improvements in program management and in the quality 

of participant data. Data collected through the program’s National Reporting System

demonstrate that the program has achieved consistent improvements on measures of student 

performance and other program goals, such as job attainment and retention. Also, the 

Department has increased the availability of research-based instructional materials for adult 

education teachers, and all States use standardized assessments to measure student-learning 

gains.

PROGRAM OUTPUT MEASURES 

(dollars in thousands) 

Output Measures 2015 2016 2017

Adult basic and literacy State 

grants (ABL) $497,516 $512,120 $512,120

Range of awards to States $751–$74,773 $766–$77,032 $766–$77,038 

English literacy and civics 

education State grants (ELC) $71,439 $69,835 $69,835

Range of awards to States $60–$14,602 $60–$14,273 $60–$14,273

Number of participants 

(estimated) 1,598,756 1,598,756 1,598,756

M-29
CAREER, TECHNICAL, AND ADULT EDUCATION

Adult education: National leadership activities

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program performance information, including, for example, GPRA 

goals, objectives, measures, and performance targets and data; and an assessment of the 

progress made toward achieving program results. Achievement of program results is based on 

the cumulative effect of the resources provided in previous years and those requested in 

FY 2017 and future years, and the resources and efforts invested by those served by this 

program.

In collaboration with the Department of Labor, the Department is revising several of its 

performance measures due to the reauthorization of the program under WIOA. New measures 

will be in place by July 1, 2016, the beginning of the 2016-17 program year. The Department 

will continue to report on most existing measures for grants made prior to enactment of WIOA. 

Current State-level performance indicators include: (1) demonstrated improvements in skill 

levels in reading, writing, and speaking English; numeracy and problem-solving; English 

language acquisition; and other literacy skills; (2) placement in, retention in, or completion of 

postsecondary education, training, unsubsidized employment, or career advancement; and 

(3) receipt of a secondary school diploma or a recognized equivalent. These indicators are 

reflected in the first four measures below. The Department recently revised several GPRA 

targets to reflect more realistic expectations and changes in data due to clarifications in the 

definitions of the measures. The previous statute also required that the Department report 

annually to Congress on State performance. The Department’s most recent report, released in 

fall 2015, provided State data on the performance of all adult education students on each of the 

indicators for school year 2011-2012. It is available at: 

http://www2.ed.gov/about/offices/list/ovae/resource/index.html#congress. The next report will 

be available in fall 2016. 

Goal: To support adult education systems that result in increased adult learner 

achievement in order to prepare adults for family, work, citizenship, and future learning. 

Objective: Provide adult learners with opportunities to acquire basic foundation skills (including 

English language acquisition), complete secondary education, and transition to further 

education and training and to work.

Measure: The percentage of adults in Adult Basic Education programs who acquire the level of 

basic skills needed to complete the level of instruction in which they enrolled.

Year Target Actual

2012 52% 43%

2013 54 43

2014 44 42

2015 45

2016 46

M-30
CAREER, TECHNICAL, AND ADULT EDUCATION

Adult education: National leadership activities

Measure: The percentage of adults enrolled in English literacy programs who acquire the level 

of English language skills needed to complete the levels of instruction in which they enrolled.

Year Target Actual

2012 50% 45%

2013 52 46

2014 47 46

2015 48

2016 49

Additional information: The Department has developed a data-quality review process for 

States based on its “Standards for Evaluating Program Performance Data.” Educational gain is 

demonstrated by Department-approved standardized tests. The Department expects to receive 

2015 data in spring 2016.

Measure: The percentage of adults who earn a high school diploma or recognized equivalent.

Year Target Actual

2012 57% 61%

2013 58 71

2014 64 73

2015 68

2016 73

Additional information: In 2011, the Department clarified the definition for this measure and 

the other outcome-based measures below, and began collecting information using this more 

specific definition in 2013. This more precise definition of this measure is: the percentage of 

adults who took all high school equivalency (HSE) tests, or who were enrolled in adult high 

school at the high Adult Secondary Education level, or who were enrolled in the assessment 

phase of the External Diploma Program who obtain certification of attaining passing scores on 

HSE tests, or who obtain a high school diploma or State-recognized equivalent documenting 

satisfactory completion of secondary studies (high school or adult high school diploma). The 

Department has developed a data-quality review process for States based on its “Standards for 

Evaluating Program Performance Data.” High school diplomas issued are certified by local 

educational agencies or the State educational agency, and HSE credentials are confirmed 

through a data match with the State’s administrative database. The Department expects to 

receive 2015 data in spring 2016. 

The three measures above will continue under the WIOA accountability system. The 

Department will establish new baselines and targets for these measures in spring 2018 using 

2017 data. 

M-31
CAREER, TECHNICAL, AND ADULT EDUCATION

Adult education: National leadership activities

Measure: The percentage of adults who enroll in a postsecondary education or training 

program.

Year Target Actual

2012 47% 58%

2013 49 29

2014 32 30

2015 35

2016 38

Additional information: The precise definition for this measure is: the percentage of adults 

who passed the HSE tests or earned a secondary credential while enrolled in adult education;

or who had a secondary credential at entry; or who were enrolled in a class specifically 

designed for transitioning to postsecondary education who enroll in a postsecondary 

educational program, occupational skills training program, or an apprenticeship training 

program. The decrease in 2013 in the percentage of adults meeting a goal of enrolling in a 

postsecondary education or training program is largely due to the change in the way the 

measure is applied, which now captures a broader segment of individuals receiving services 

under the program. The absolute number of adults meeting the standard increased in 2013. 

The change in the application of this measure will lead to greater comparability and consistency 

across States. Data for this measure should stabilize in the next couple years. States report 

annually on these common job training measures. The Department expects to receive 2015 

data in spring 2016. This measure will not continue under the WIOA accountability system.

Measure: The percentage of adults who obtain a job by the end of the first quarter after their 

program exit quarter.

Year Target Actual

2012 43% 48%

2013 44 47

2014 47 41

2015 42

2016 43

Additional information: The precise definition for this measure is: the percentage of adults 

who were unemployed and in the labor force at entry who obtain a job by the end of the first 

quarter after the program exit quarter. The Department expects to receive 2015 data in summer 

2016. 

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Measure: The percentage of adults who retain employment in the third quarter after exit.

Year Target Actual

2012 70% 66%

2013 70 56

2014 57 61

2015 62

2016 63

Additional information: The precise definition for this measure is: the percentage of adults 

who were employed in the first quarter after exit quarter who are employed in the third quarter 

after the program exit quarter. The Department expects to receive 2015 data in spring 2016.

The two employment measures above will be replaced by new employment measures under the 

WIOA accountability system. These measures, specified in WIOA, are: (1) the percentage of 

program participants who are in unsubsidized employment during the second quarter after exit 

from the program; and (2) the percentage of program participants who are in unsubsidized 

employment during the fourth quarter after exit from the program. The Department will establish 

new baselines and targets for these measures in spring 2018 using the 2017 data. 

Efficiency Measures

The Department developed two efficiency measures for the Adult Education State Grants 

program. The first measure, annual cost per participant, was established under the Federal 

Government’s common performance measures initiative for job training programs, and the 

Department has collected sufficient data to report this measure through the National Reporting 

System. The second measure, cost per student learning gain, captures the average Federal 

cost for a student to advance to at least the next educational level in an Adult Education 

program or to earn a high school diploma or HSE credential. 

Measure: The annual Federal cost per participant.

Year Target Actual

2012 $268 $298

2013 290

2014 280

Additional information: This measure reflects the average annual Federal cost per participant 

for Adult Education programs. Data do not include State and local resources, which account for 

a large proportion of Adult Education funds. Because funds are available for 27 months, data 

for fiscal year 2013 costs will be available in spring 2016. The Department is reporting on these 

measures under the previous authorization of the program only through 2014. This measure 

will continue under the WIOA accountability system and the Department will establish a new 

baseline and targets for this measure using data on the FY 2015 awards, the first to be awarded 

under WIOA. 

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Measure: The annual Federal cost per student learning gain or high school diploma/HSE

attainment.

Year Target Actual

2012 $540 $589

2013 580

2014 570

Additional information: This measure examines the annual Federal cost for Adult Education 

students who advance to at least the next higher educational level or who attain a high school 

diploma or HSE certificate. 2014 is the last fiscal year for which funds were appropriated under 

the previous authorization of the program. This measure will be replaced by a new measure 

under the WIOA accountability system: The annual Federal cost per student measurable skill 

gain. The Department will establish a new baseline and targets for this measure using data on 

the FY 2015 awards, the first funding to be awarded under WIOA.

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(Adult Education and Family Literacy Act, Section 242)

(dollars in thousands)

FY 2017 Authorization: $635,1981

Budget Authority:

2016 2017 Change

$13,712 $24,712 +$11,000

1 A total of $635,198 thousand is authorized for both National Leadership Activities and Adult Basic and Literacy 

Education State Grants.

PROGRAM DESCRIPTION

Adult Education National Leadership Activities, as authorized under the Adult Education and 

Family Literacy Act (AEFLA), address major policy priorities in adult education, including 

program improvement, accountability, professional development, and increasing access to 

learning opportunities for adults. Under this authority, the Department supports applied 

research, development, dissemination, evaluation, and program improvement activities to assist 

States in their efforts to improve the quality of adult education programs. Examples of these 

activities include: evaluations of the effectiveness of adult education programs, training 

institutes, national and international adult literacy surveys, and technical assistance on using 

technology to improve instruction.

In July 2014, the President signed into law the Workforce Innovation and Opportunity Act 

(WIOA), which reauthorized AEFLA. WIOA requires the Department to carry out certain 

national leadership activities, including assistance to States in meeting the requirements of the 

performance accountability provisions of WIOA, assistance to local providers of adult education

services upon request from one or more States, and carrying out research and evaluation on 

effective adult education and literacy services. 

This is a forward-funded program. Funds become available for obligation from July 1 of the 

fiscal year in which they are appropriated and remain available for 15 months through 

September 30 of the following year.

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Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2012...........................................................$11,302

2013.............................................................10,712

2014.............................................................13,712

2015.............................................................13,712

2016.............................................................13,712

FY 2017 BUDGET REQUEST

For fiscal year 2017, the Administration requests $24.7 million for National Leadership Activities, 

an increase of $11.0 million over the 2016 level. Funds would be used to continue supporting

States in their efforts to improve adult education standards and assessments and to carry out 

data collection activities of the reauthorized Adult Education and Family Literacy Act. The 

request would also continue support for activities designed to enhance the quality and outcomes 

of adult education and literacy programs. Currently, these activities include:

• The Literacy Information and Communications System, which includes a resource collection

of instructional and professional development materials, regional professional development 

centers, and the maintenance of the technology infrastructure needed to support the 

collection, maintenance, and dissemination of adult education resources.

• Improving Reentry Education, which supports the expansion of the Department’s reentry 

education model demonstration initiative, which is aimed at developing evidence of 

effectiveness in a variety of institutional contexts and building on lessons learned from the 

Department’s Promoting Reentry Success through Continuity of Educational Opportunities 

grants. 

• The National Reporting System, which specifies the methodologies by which local providers 

and States are to collect and report data on the outcome, participation, and student 

descriptive measures for the Adult Education programs; serves as the repository for these 

data; and provides resources to increase the knowledge of State staff and the capacity of 

State data systems. Investments in this area will help to ensure that local providers and 

States collect and report high quality data and become skilled in using this information in 

program management and decisionmaking.

• Support for English Language Learning and Immigrant Education, which includes the 

compilation and updating of professional development resources; partnering with States to 

provide training and technical assistance; and supporting master teacher groups to create, 

rate, review, and disseminate resources for adult English Learners. 

• Advancing Reading and Mathematics Instruction, which assists States in their ongoing 

efforts to scale evidence-based reading and mathematics instruction for adult education 

students at the intermediate level. 

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• Technical assistance for Performance Partnership Pilots, which supports State, local, and 

tribal governments in implementing better coordinated and more cost-effective services to 

improve outcomes for disconnected youth, including meeting education or employment 

goals.

Support for WIOA Implementation

The request includes $5.0 million to provide technical assistance to help States meet the WIOA 

requirement to align adult education content standards with the challenging State-determined 

academic standards for K-12 education required by Title I of the Elementary and Secondary 

Education Act. 

The Administration also is seeking $6.0 million to help meet WIOA data requirements. The 

Department would use $5.0 million of this amount to advance the interoperability of data 

systems and to improve accurate and timely data reporting under WIOA, both of which would 

support greater accountability and transparency, better research and evaluation, and increased 

data-driven decision-making. The Department would use the remaining $1.0 million to provide 

technical assistance to States in their collection of new WIOA data elements.

The Administration is also planning to leverage existing resources to meet the data 

requirements of WIOA. Included in the President’s budget request for the Department of Health 

and Human Services (HHS) is a proposal to allow other agencies and their State partners 

access to the National Directory of New Hires, a Federal database of employment and 

unemployment insurance information administered by the Office of Child Support Enforcement 

within HHS. This resource, which would be utilized at the sole discretion and option of a State, 

would provide States with an additional data collection tool to determine employment and wage 

outcomes across State lines for the purpose of reporting program performance under WIOA. 

The proposal includes language that would limit unauthorized access, use, disclosure, or redisclosure of personally identifiable information; requires that only the minimum data necessary 

can be accessed; and satisfies the Administration’s criteria for when authority to access NDNH 

data should be considered. More information about this request, as well as the package of 

proposals allowing additional programs and agencies authority to access NDNH, can be found 

in the HHS budget request, posted at http://www.hhs.gov/about/budget/, in the A Government of 

the Future Budget chapter.

PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Output Measures 2015 2016 2017

Literacy Information and Communications 

System $3,410 $3,350 $3,350

Improving reentry education 3,000 1,300 1,300

National Reporting System 1,500 1,500 1,500

Support for English language learning and 

immigrant education 1,400 1,800 1,800

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Output Measures 2015 2016 2017

Advancing reading and mathematics 

instruction $1,345 $800 $800

Technical assistance for performance 

partnership pilots 250 250 250

Support for State standards and 

assessments 0 0 5,000

Support for data infrastructure 0 0 5,000

Data collection technical assistance 0 0 1,000

Other technical assistance, logistical 

support, and evaluation 2,807 4,712 4,712

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program performance information, including, for example, GPRA 

goals, objectives, measures, and performance targets and data; and an assessment of the 

progress made toward achieving program results. Achievement of program results is based on 

the cumulative effect of the resources provided in previous years and those requested in 

FY 2017 and future years, and the resources and efforts invested by those served by this 

program. 

Goal: To support research, evaluation, information dissemination, and other activities to 

help States improve adult education and literacy programs.

Objective: To support adult education systems that result in increased adult learner 

achievement in order to prepare adults for family, work, citizenship, and future learning. 

Measure: The percentage of States submitting high-quality learner assessment data through 

the National Reporting System (NRS).

Year Target Actual

2012 100% 91%

2013 100 91

2014 100 91

2015 100

2016 100

2017 100

Additional information: Through National Leadership Activities, the Department offers 

technical assistance and guidance designed to help all States, including DC, Puerto Rico, and 

the Outlying Areas, meet high standards for the collection and reporting of these data. The 

program office has developed a data-quality review process for States based on the 

Department’s “Standards for Evaluating Program Performance Data.” This process leads to a 

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determination of whether each State has submitted high quality adult learner assessment data. 

The 2012 and 2013 figures reported differ from those reported in the FY 2016 budget because 

the Department has reviewed the data sources and found that an additional State met the 

standard of submitting high quality adult learner assessment data in each of those years. 

Other Performance Information

Beginning in 2008, the Department, in collaboration with the National Institute of Child Health 

and Human Development of the National Institutes of Health, supported a study of adult and 

adolescent literacy instruction through the National Academies of Sciences. The resulting 

2012 report, “Improving Adult Literacy Instruction: Options for Practice and Research,” explores 

in depth the factors that affect literacy development in adolescence and adulthood and 

examines the implications for strengthening literacy instruction for those populations. The report 

covers such topics as: technologies that can assist with multiple aspects of teaching,

assessment, and accommodations for learning; use of evidence-based practices and 

professional development; improving learner persistence through the use of educational 

technologies; social service support and incentives; and improved coordination of program 

improvement, evaluation, and research.

The Department’s Institute of Education Sciences funded a competition in fiscal year 2011 for its 

first national research and development center on cognition and adult literacy, which began 

work in September 2012. The primary goals of this center, the Center for the Study of Adult 

Literacy, are to: (1) build the understanding of the underlying cognitive and motivational 

processes that contribute to or impede struggling adult readers’ development, (2) examine the 

adequacy of measurement instruments and assessments for the population, and (3) develop 

and evaluate a multi-component reading intervention for this population. Since 2012, CSAL has 

tested 500 adult literacy students on a full battery of assessments to help determine this 

population’s underlying skill profiles. The Center has developed materials to help teach 

fundamental reading skills (e.g., fluency and comprehension) and has tested its feasibility in 

several programs. The materials contain 45 lessons on reading comprehension, 30 lessons on 

more basic skills (e.g., sounding out words), and 30 interactive computer-based lessons. The 

Center has also created an online reading repository that contains links to free texts, organized 

by reading level and content (http://csal.gsu.edu/content/library-resources). Since its launch, 

the student portal that connects to the reading repository has been accessed over 9,000 times, 

the research portal over 1,100 times, and the teacher portal over 2,000 times. In its 2014 

annual performance report, CSAL reported that it had collaborated with 29 education 

organizations (e.g., school boards, education community-based organizations). The 

researchers of CSAL have met with staff from the Departments of Education and Labor to 

discuss research activities and findings and possibilities for further coordination.

Along with authorizing a variety of activities under this program, WIOA includes some required

activities. Among them, the Department must (1) carry out rigorous research and evaluation on 

effective adult education and literacy activities, as well as estimate the number of adults 

functioning at the lowest levels of literacy proficiency; and (2) carry out an independent 

evaluation of WIOA’s Adult Education programs and activities at least once every 4 years. 

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Using FY 2016 funding, the Department expects to produce a strategic plan for research on, 

and evaluation of, adult education and literacy activities under WIOA.

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