Extension of Texas State Plan for
Adult Education and Family Literacy

2.0 Needs Assessment (Sec. 224 (b) (1))

2.1 Individuals Most in Need

The need for adult education services in Texas is acute. More than 4 million people in Texas (about 27 percent of the State’s population) function at the lowest literacy level. For the Texas population living on and near the Texas/Mexico border, the needs are even greater. Up to 60 percent of this population is functioning at this lowest level. Additionally, the sharp increase in the Spanish-speaking population of Texas, as shown in the 2000 Census, presents an ever-growing need for English literacy as well as new approaches to increasing the timely employment readiness of this population.

Illiteracy is a long-term problem and basic education is still lacking for many adult Texans. It is estimated that adult illiteracy carries a price tag of more than $17 billion per year as a result of lost income and tax revenue, welfare, unemployment, crime and incarceration, and training costs for business and industry.

Education: Adults who completed higher levels of schooling outperformed those with a limited education. In Texas, 81 to 83 percent of the individuals whose highest level of education was zero to eight years of school performed in the lowest level of literacy (Level 1). However, 50 to 52 percent whose highest level of education was 9 to 12 years of school performed in the lowest level. In contrast, 21 percent of individuals, whose highest level of education was a high school diploma or a high school equivalency certificate performed in Level 1. Educationally disadvantaged adults who are most in need are a primary target population for adult education and literacy services.

The 2000 U.S. Census shows that approximately 1,400,000 Texans over 25 years of age had less than 9 years of school and another 1,600,000 had completed 9 to 11 years of school but not received a high-school diploma. Ethnic minorities comprised the largest numbers of adults with less than a high school education. Since 1994, ethnic minorities served by adult education programs increased from 75 percent to 81 percent, with Hispanics comprising 64 percent of enrollments.

Since 1994, the percent of adults served in ABE and ESL programs has increased from 71 percent to 81 percent.

Ethnicity: In Texas, 14 to 15 percent of White respondents, 40 to 46 percent of African American respondents, and 50 to 51 percent of Latino respondents performed in the lowest level of literacy according to the Texas Adult Literacy Survey. African Americans and Latinos are disproportionately represented in Level 1 across the literacy scales.

Employment Status: TTexans need basic skills to reach their employment goals. In 2001, over 55 percent of people who rely on Temporary Assistance for Needy Families (TANF) lacked a high school diploma. The closings of many garment and apparel factories along the Texas/Mexico border continue to leave workers -- many with limited education and limited English skills -- in need of strategic basic education programs that will assist them in transitioning back into the workplace.

The Texas Adult Literacy Survey (TALS) revealed that the literacy proficiency of Texas adults who are employed lag far behind that of their counterparts in the South and the nation -- performance which has significant implications for development of the workforce in regard to basic skills. According to the National Adult Literacy Survey (NALS), many more Texas adults (20 to 28 percent) in the workforce (full-time or part-time) performed at the lowest level of literacy (Level 1) than regional (8 to 9 percent) or United States (13 to 14 percent) adults. Among unemployed Texas adults who are looking for work, 26 percent performed at Level 1. The TALS revealed that even among employed adults (full-time and part-time), functional literacy is a serious problem, and that it is more serious in Texas than in the South or in the nation. Adult education targets adults who are unemployed but seeking employment as well as adults who are employed but in need of improved literacy proficiency. The percentage of unemployed adults served in adult education programs in Texas has increased from 44 percent to 53 percent since 1994.

According to the Texas Workforce Commission, Strategic Plan 2001-2005, the labor market needs of business and industry continue to require more specialized education and skills. Recent statistics show that Texans lack the education and training required for higher paying jobs, leaving business and industry struggling to fill jobs. Employers also face decisions about moving their companies where a skilled workforce already exists.

Low Income Adult Learners Who Are Educationally Disadvantaged: Literacy is strongly connected to economic status. Half of “poor or near poor” Texans also ranked in the lowest literacy level. In addition, Texas residents who were classified as poor or near poor did not perform as well as their counterparts nationwide. Poor or near poor adults are disproportionately single mothers. Low-income adults who are educationally disadvantaged are a primary target population for adult education and literacy services.

Individuals with Disabilities: One of the background questions included in the Texas Adult Literacy Survey asked respondents whether they have physical or mental conditions that keep them from participating fully in work, school, housework, or other activities. Ten percent of the adults in Texas reported having such conditions. Of the Texas residents who said they have limiting physical or mental conditions, 55 to 58 percent fell into Level 1. The average proficiencies of Texas respondents who reported limiting conditions had considerably lower proficiencies than those of individuals who reported no such conditions. One can assume that adults with disabilities are a major target population for adult education.

The Department of Assistive and Rehabilitative Services (DARS) is the state’s vocational rehabilitation agency. Many DARS clients are also adult education students. Serving learning disabled adults in adult education is a critical issue facing adult education programs. It has been estimated that 50-80% of the students in Adult Basic Education and literacy programs are affected by learning disabilities. National Adult Literacy and Learning Disabilities Center (1995). Nationwide, it is estimated that up to 50 percent of adult education students have a learning disability. In Texas, this would potentially equate to 20,000 students. Funding for diagnosis is a challenge for adult learners and programs. Many adult education students have not had the benefit of special education, and inexpensive or free resources for diagnosis are almost nonexistent. DARS provides the major avenue for obtaining services for adults to document specific learning disabilities outside of K-12 special education services. In past years, TEA and DARS have worked together on special projects related to serving visually impaired and hearing impaired individuals in adult education. It is our goal to work together to help adult education students to receive the accommodations needed to succeed.

Single Parents and Displaced Homemakers: The primary population of adult recipients of the various welfare programs, including Temporary Assistance for Needy Families (TANF) cash payments, are single parents, most often female. The Texas Adult Literacy Survey showed that more than 75 percent of adult respondents who were receiving TANF demonstrated skills in the two lowest literacy levels, and 41 to 48 percent performed in Level 1. Results with Food Stamp recipients are similar, with 47 to 51 percent performing in Level 1. In fiscal year 2003, 68.9 percent of adult TANF recipients lacked a high school diploma. A one-month snapshot in August of 2003 indicated 71.24 percent of adults who received TANF during that month had less than high school completion. TANF recipients are a major target population for adult education.

Local adult education programs and workforce centers will continue to use a standardized referral process for referral of TANF/ CHOICES welfare clients. Adult education and one-stop workforce centers will continue to identify services that adult education programs can provide to TANF/CHOICES participants without cost. The Test of Adult Basic Education (TABE) will serve to increase the exchange of assessment information available as local workforce centers and adult education programs serve the same client. Local adult education organizational arrangements may need to restructure to address performance accountability under AEFLA.

Limited English Proficiency: In the Texas Adult Literacy Survey, Texas residents who described themselves as not understanding, speaking, reading or writing English well had average prose, document, and quantitative proficiency scores that fell into the Level 1 range of each scale. In other words, adults in Texas who self report that they have restricted skills in English actually tend to demonstrate more limited proficiency than those who said they read, write and speak the language well or very well. The limited English proficient adult education population in Texas' adult education program comprises 46 percent of the entire adult education student population (an increase of 9 percent over 1994) and limited English proficient adults placed in Beginning English as a Second Language (ESL) classes are an overwhelming 65 percent of all ESL students. The 1990 U. S. Census showed that among adults in Texas whose native language is not English, 348,000 individuals indicated that they speak English "not well," and another 206,000 speak English "not at all."

The education needs of the immigrant population are reflected in the increase of ESL students. Over 70,000 immigrants are served annually. The need for ESL services will continue to grow since Texas is among the top three states in the number of immigrants moving to the United States annually. Over 40,000 immigrants move to Texas annually. In addition, limited English proficient high school drops outs seek adult education services. It is clear that the language needs of the limited English proficient adult education population in Texas are substantial and this is a major target for adult education services.

More recently, the 2000 Census identified Texas as one of 22 states with an increase of more than 90% in foreign-born population during 1990-2000.

¹According to Census 2000, the following states experienced an increase of more than 90% in their foreign-born population between 1990 and 2000: Alabama, Arizona, Arkansas, Colorado, Delaware, Georgia, Idaho, Indiana, Iowa, Kansas, Kentucky, Minnesota, Mississippi, Nebraska, Nevada, North Carolina, Oklahoma, Oregon, South Carolina, Tennessee, Texas, and Washington.

Criminal Offenders in correctional institutions and other institutionalized individuals:
Adults in institutions have significant learning needs. In Texas, the Windham School District (WSD) is the adult school system within the Texas Department of Criminal Justice (TDCJ). The mission of the WSD is to provide appropriate educational programming and services to meet the needs of the eligible offender population in the Texas Department of Criminal Justice (TDJC) and reduce recidivism by assisting offenders in becoming responsible, productive members of their communities. The goals of the WSD shall include educating offenders to: (1) reduce recidivism; (2) reduce the cost of confinement or imprisonment; (3) increase the success of former inmates in obtaining and maintaining employment; and (4) provide an incentive to inmates to behave in positive ways during confinement or imprisonment.

The typical Windham student dropped out of school in the 6^th or 7^th grade and functions at about the 5^th grade level. He or she is in the mid-thirties and has a history of academic failure compounded by other difficulties in leading a normal, productive life. Since offenders typically cycle from county jails to TDCJ, there is reason to think this profile also fits the offender served in adult education in county and other jails. Nationally, prison inmates differ from the regular household population with respect to many demographic characteristics. Generally, prison inmates tend to be male, minority, young and less educated than the household population. In the National Adult Literacy Survey, 31 to 40 percent of prison inmates performed in Level 1 across the three scales.

Seventy-six thousand, two hundred ninety-four (76,294) students were served in 2003-2004 by Windham School District through state appropriations. There is a tremendous need for education services as a priority for offenders released to the community. Currently, there is no appropriation to serve the educational needs of releases. In addition, a great need exists for education services for incarcerated individuals outside Windham, in such facilities as county jails, city jails, halfway houses, restitution centers, substance abuse facilities, boot camps, and other residential facilities. The Community Justice Assistance Division (adult probation) of TDCJ has a small source of funds to serve the educational needs of probationers; however, it is woefully inadequate. The offender and ex-offender population is a major target for adult education services.

For Lifelong Learners:
Adult education is an important component for achieving the goals of the State’s Closing the Gaps plan. General Education Development (GED) completers and English as Second Language (ESL) students account for a significant portion of community college students. Texas has identified transition to post secondary education and further training as a priority in 2006-2007. For accountability purposes, Texas LEARNS will define post secondary education and determine the most appropriate method to measure transition. In addition, teachers will receive additional training in goal setting, student orientation, and tools for assisting adult students with accessing post secondary. The goal is to give more people the tools to move successfully through these programs and into postsecondary education and training while meeting student’s employment needs.

Further Information
The data presented above provides significant rationale for serving the needs of the special populations through programs of adult education and literacy, including workplace literacy, family literacy, and programs for limited English proficient adults. Sections 3.0, 6.0, 8.0, 11.0, and 12.0 all present initiatives that may be undertaken during the period of the plan. Included in these initiatives is a mutual planning process with the other agencies who serve the same client, including the Texas Workforce Commission and the local one-stop workforce centers, the Texas Department of Human Services, the Texas Rehabilitation Commission, and the Texas Department of Criminal Justice.

Next | Table of Contents | Previous