The Workforce Investment Act (WIA) is the name for the federal law passed in 1998 that established a new national workforce development system. WIA, which went into effect as national policy in 2000, governs much of the federally funded workforce development system. It also provides title I money for ABE funding. Prior to WIA, policymakers and other stakeholders in workforce development suggested that the national patchwork of workforce development policies and programs had been largely ineffective in preparing workers and students for the needs of the current economy and employers.

WIA was passed around the same time as welfare reform (Temporary Assistance for Needy Families, or TANF) legislation was passed, and toget her they have governed much of the Bush administration's "work first" policies. The crafting and implementation of WIA represented a total revamping of the federally funded workforce development system, bringing it more into line with employers' needs and making it more demand-driven. In addition to a reduction in overall funding for public-funded job training, the following components of WIA illustrate some of the profound changes in the workforce development system in recent years.

Connection to ABE
In part, workforce development and adult basic education(ABE) are currently funded under one piece of federal legislation though ABE maintains its own title. The Workforce Investment WIA, in concert with the Welfare Reform Act (the Personal Responsibility Act and Work Opportunity Reconciliation Act) of 1996, restructured the way in which the Department of Health and Human Services, the Department of Labor, and the U.S Department of Education serve the nation's neediest individuals, families, and communities. In effect, this legislation created a new level of federal interdepartmental scaffolding meant to rearticulate the government's response to poverty and to the impact of poverty on individuals, families and communities. In addition to supporting low-literacy adults, native and non-native speakers alike, in their attempts to gain the skills necessary to function in the workplace and in their roles as family and community members, the new legislation mandated that programming for the nation's neediest would focus on job placement and the importance of personal responsibility and initiative. Proficiency in language was seen as a means to an ends.

For better and/or for worse, the field of workforce development was officially born and ABE was uniquely positioned to work within it. For instance, it is increasingly recognized that a variety of "wrap-around" services are needed in order for workers with low skills, low literacy, little work experience, low income, and/or entry-level jobs to be able to move toward "family economic self-sufficiency." Along with child care, transportation, a variety of counseling and advocacy services, and support while transitioning into jobs and for quite some time afterwards, adult literacy and ongoing learning are frequently needed in order not only to enter a job, but to stay there, succeed, and even advance up the employment ladder. Otherwise, workers frequently get "stuck" in a cycle of entry-level, low-paid jobs, rotating through a series of entry-level positions but unable to advance or to move towards family-sustaining wages. In other words, our ABE programs assist learners in acquiring many of the skills needed in the workplace-not only literacy, but also the "soft skills" and interpersonal skills needed.

Workforce Investment Boards (WIBs) and the Role of Employers
WIA replaced existing regional employment boards (REBs) with locally appointed (WIBs) driven by employers/businesses. Though each WIB does include representation by labor unions, community anti-poverty (CAP) agencies, and an ABE representative appointed by the Department of Education, employers are mandated to represent over 50 per cent of local WIB boards. Each WIB sets local workforce development policy, governs use of local WIA funding, and provides funding for local job training and other workforce development programs.

One-Stop Career Centers
WIA universalized a new system of One-Stop Career Centers, which Massachusetts had recently developed, and which comprise either public entities, non-profit organizations, or a collaboration of the two. These centers replace the former unemployment offices with a new, more "modern" and convenient privatized networks of agencies. The One-Stop Career Centers collaborate in some areas with ABE and ESOL programs, and in several areas of the state have an ABE staff person "out-stationed" at scheduled times to make referrals to ABE/ESOL programs. Career Center staff assesses clients' language and literacy levels and needs. If the clients' language and literacy levels are not high enough to meet job requirements, they are referred to ABE or ESOL programs and often start on waiting lists. In addition, there are now huge disincentives for the Career Centers to serve low-literacy or low-skilled clients, those with limited English abilities, or those with little formal work experience. This population includes, as we know, many immigrants, those without a GED, and those leaving welfare, among others. To their credit, many Career Center staff are conscientious, caring, and sensitive to the needs of these clients. However, all Career Centers are now currently under resourced and understaffed, and cannot typically provide all the services and assistance that clients need. Thus, WIA has shifted the workforce development system away from serving low-income, low-literacy, or low-skilled clients—the typical ABE/ESOL population. And with declining level of funding for WIA, this shift will only become more pronounced.

Universal Services
In addition, WIA instituted a new mandate for universal services: workforce development services, including job training, counseling, job referrals, and placement must be provided to everyone regardless of income. Given decreased funding for workforce development, of course universalizing services means decreasing access for low- and even middle-income clients to services, since existing dollars must be spread thinner.

Individual Training Accounts
Prior to WIA, local job training programs received contracts to provide workforce development services. These contracts have been replaced with a voucher type system called Individual Training Accounts (ITAs). These accounts provide "consumer choice"; eligible workers can use the vouchers at any qualified programs they choose.

Successful Outcomes
The outcomes measurement system for WIA, including Career Centers and WIA-funded job training programs, are entirely based on successful job placements and, typically, a 90-day job retention after hire. Career Centers' successful performance and future funding is entirely based on placing clients directly in jobs where they can succeed at least for a time. Therefore, there is strong pressure to "cream," that is, to serve those clients who are easiest to place in jobs, and to avoid those with fewer skills or little job history. To their credit, many Career Centers manage to find additional funding sources or partnerships that enable them to serve low-literacy, low-skill, or little-work-history clients as much as possible, but often this is despite WIA, not because of it.

Labor Exchange
WIA is responsible for both "labor exchange" (matching workers up with employers) and labor market improvement (job skills training and job readiness). WIA also funds and regulates job training—the labor market end of workforce development. While labor exchange attempts to match workers with employers, labor market efforts aim to increase the skills and qualifications of the workforce itself. WIA does both.

Massachusetts Department of Workforce Development
In Massachusetts, most of the workforce development system is now placed under the Massachu-setts Department of Workforce Development (DWD). This has actually been reorganized twice since WIA was instituted. Different workforce development functions are currently divided among the Commonwealth Corporation, the Division of Career Services (DCS), and the Division of Unemployment Insurance (DUI). These are described in more detail below. In addition to public funding, SkillWorks, a collaboration of private foundations spearheaded by the Boston Foundation, to date has raised $13 million to fund a workforce development initiative focusing on Boston residents. It includes three components: The Capacity-Building Initiative, the Workforce Solutions Group, and Career Ladder Partnerships.

How Can ABE/ESOL Programs Utilize the Workforce Development System and Its Funding?
There are many opportunities for ABE programs to use the workforce development system to benefit their students. Most collaborations or partnerships with workforce development require partnership with an employer or employers, and in many cases the employer is the lead partner and must be the applicant. It is important for ABE programs to be "at the table" in partnerships with employers and/or the workforce development system or job training CBOs to ensure that educationally solid programs and curricula are developed.

What's Around the Bend?
The state budget may soon include additional funding from the Economic Stimulus package, proposed by Governor Romney and modified by the legislature, including $8 million in additional funding for ABE. It incorporates many of the provisions of the Workforce Solutions Act, proposed by the Workforce Solutions Group (funded by SkillsWorks), which includes a workforce development skills fund. Despite some of the constraints of WIS, ABE and ESOL programs can still be active players in the workforce development arena. It's crucial to become a partner early in the process so that a project is developed that takes adequately into account, for example, the amount of time it typically would take an employee to learn sufficient English. Local WIBs are responsible for knowing the CBOs and ABE/ESOL programs in their area, but this knowledge may not be complete, and it's not usually their priority. So, it's important to get your program known to the WIB as well as to employers. It's also a good idea to develop a relationship with the local Career Center(s), too. All these relationships and channels will enable you help your students better learn skills and become more employable, and move toward jobs that can help support themselves and their families.