[Federal Register Volume 87, Number 235 (Thursday, December 8, 2022)]
[Notices]
[Pages 75290-75294]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2022-26461]


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DEPARTMENT OF LABOR

Employment and Training Administration


Digital Literacy and Resilience, Request for Information (RFI)

AGENCY: Employment and Training Administration (ETA), Labor.

ACTION: Request for information: request for comments.

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SUMMARY: The U.S. Department of Labor (DOL) is requesting information 
on successful approaches related to digital skills attainment and 
competency development in education and training efforts, the 
strategies our education and workforce development systems are 
employing to assess and ensure individuals are digitally resilient, and 
any challenges the education and public workforce systems are facing. 
DOL is also requesting information on strategies to advance digital 
equity and inclusion in the workforce. DOL developed this RFI with 
substantial input from the U.S. Department of Commerce (Commerce), U.S. 
Department of Education (ED), and the Institute of Museum and Library 
Sciences (IMLS), as part of its long-standing coordination and 
partnership with these agencies.

DATES: To be ensured consideration, comments are due by February 6, 
2023.

ADDRESSES: You may submit comments in response to the RFI described in 
this notice by one of the following methods:
    Electronic submission: Submit comments by email to: 
[email protected].
    Postal mail and hand delivery/courier: Written comment submissions 
may be mailed or delivered to Attn: Yufanyi Nshom, Office of Workforce 
Investment, U.S. Department of Labor, 200 Constitution Avenue NW, Suite 
C-4510, Washington, DC 20210.
    Instructions: The Department of Labor invites all interested 
parties to submit responses to the questions posed in the below 
`Request for Information' section. Label all submissions with ``Digital 
Literacy/Digital Resilience RFI.'' Please submit your comments by only 
one method.

FOR FURTHER INFORMATION CONTACT: DOL: Yufanyi Nshom, Office of 
Workforce Investment (OWI), U.S. Department of Labor, Employment and 
Training Administration, 200 Constitution Avenue NW, Room C-4510, 
Washington, DC 20210, Telephone: (202) 693-3915 (this is not a toll-
free number), Email: [email protected].

SUPPLEMENTARY INFORMATION: 
    Background: The federal government has supported digital literacy 
and digital equity across a variety of sectors and through a range of 
programs. Attaining and maintaining digital literacy is critical to 
surviving and thriving in modern society. Digital resilience signifies 
having the awareness, skills, agility, and confidence to empower users 
of new technologies and adapt to changing digital skill demands. 
Digital resilience improves capacity to problem-solve and upskill in 
employment, navigate digital transformations, and be active 
participants in society and the economy.\1\ Under the Bipartisan 
Infrastructure Law of 2021 (BIL, Pub. L. 117-58), digital equity is 
defined as the ``condition in which individuals and communities have 
the information technology capacity that is needed for full 
participation in the society and economy of the United States.'' Under 
BIL, digital inclusion refers to having reliable and affordable access 
to technology, broadband infrastructure,

[[Page 75291]]

and training. The Workforce Innovation and Opportunity Act of 2014 
(WIOA, Pub. L. 113-39) and Digital Equity Act of 2021 (DEA),\2\ 
applying the Museum and Library Services Act definition, both define 
digital literacy as ``the skills associated with using technology to 
enable users to find, evaluate, organize, create, and communicate 
information.'' \3\ WIOA includes digital literacy as a workforce 
preparation activity, thereby allowing states to use their WIOA funding 
allotments to increase digital literacy for successful transition into 
and completion of postsecondary education and training or employment. 
Workforce preparation activities were included in WIOA to further its 
overall goal of improving coordination between the public workforce 
system \4\ and industry partners. Workers, jobseekers and employers 
meet their workforce needs through the core title I programs that 
support eligible adults, youth, and dislocated workers, administered by 
DOL; and through title II (Adult Education and Family Literacy Act) and 
title IV (Vocational Rehabilitation) programs, administered by ED.
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    \1\ Building a Digitally Resilient Workforce: Creating On-Ramps 
to Opportunity. (2020). Digital US Coalition. https://digitalus.org/wp-content/uploads/2020/06/DigitalUS-Report-pages-20200602.pdf.
    \2\ Text--H.R.3684--117th Congress (2021-2022): Infrastructure 
Investment and Jobs Act [verbar] Congress.gov [verbar] Library of 
Congress.
    \3\ Section 101(d)(7)(A) of WIOA, as defined in section 202 of 
the Museum and Library Services Act (20 U.S.C. 9101).
    \4\ The term ``workforce development system'' as defined in 
WIOA, means a system ``that makes available the core program, the 
other one-stop partner programs, and any other programs providing 
employment and training services as identified by a State local 
board or local board.'' STATUTE-128-Pg1425.pdf (congress.gov). 
Section 203(17) of WIOA defines workforce preparation activities as 
``activities, programs, or services designed to help an individual 
acquire a combination of basic academic skills, critical thinking 
skills, digital literacy skills, and self-management skills, 
including competencies in utilizing resources, using information, 
working with others, understanding systems, and obtaining skills 
necessary for successful transition into and completion of 
postsecondary education or training, or employment.'' (Pub. L. 113-
129).
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    Going forward, digital literacy will become increasingly important 
to securing a quality job and the advancement of the American 
workforce; therefore, it is imperative for federal agencies to better 
understand current trends in digital literacy and digital skills 
attainment. DOL, in collaboration with Commerce, ED, and IMLS, will use 
the information collected through this RFI to inform competitive grant 
opportunities, further develop technical assistance, inform public 
policy on the expansion of digital skill-building training programs 
that facilitate upskilling the workforce, and address demands related 
to digital literacy and access.
    DOL's Employment and Training Administration (ETA) contributes to 
the more efficient functioning of the U.S. labor market by providing 
high-quality job training, employment, labor market information, and 
income maintenance services, primarily through state and local 
workforce development systems. This includes responsibility for 
implementing an integrated national workforce investment system that 
supports economic growth and provides workers with the information, 
advice, job search assistance, supportive services, and training for 
in-demand industries and occupations needed to get and keep quality 
jobs. Workforce services also help connect employers with skilled 
workers seeking employment. Available training services include both 
classroom and work-based learning opportunities provided through the 
American Job Center network. ETA's workforce development programs are 
designed to assist communities, educators, businesses, and jobseekers 
(e.g., adults, dislocated and transitioning workers, disadvantaged 
youth, veterans, older workers, individuals with disabilities, migrant 
and seasonal farmworkers, Indians and Native Americans, and others) 
compete in a changing global economy.
    Commerce's National Telecommunications and Information 
Administration (NTIA) is leading the Biden-Harris Administration's 
internet For All initiative, which includes multiple new broadband 
deployment and digital equity and inclusion programs funded by the BIL. 
The BIL includes the Broadband Equity Access and Deployment (BEAD) 
program, providing $42.5 billion for funding broadband deployment and 
digital inclusion initiatives; the Digital Equity Act of 2021 \5\, 
which provides $2.75 billion in formula and competitive grant funding 
for digital equity and inclusion planning and projects; and an 
additional $2 billion in funding for the existing Tribal Broadband 
Connectivity Program (TBCP). These collective programs will support 
states and other entities to advance digital equity, digital inclusion, 
digital literacy and workforce development initiatives in their 
respective territories.
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    \5\ Digital Equity Act Program Overview: https://www.internetforall.gov/sites/default/files/2022-05/digital-equity-act-info-sheet.pdf.
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    NTIA is also currently implementing additional broadband programs 
created by the Consolidated Appropriations Act of 2021 (CAA) \6\. The 
CAA established the Office of Minority Broadband Initiatives within 
NTIA, to focus on collaboration for internet access and promotion of 
digital skills and digital inclusion at Historically Black Colleges and 
Universities (HBCUs), Tribal Colleges and Universities (TCUs), 
Minority-Serving Institutions (MSIs), and their surrounding 
communities. The CAA also established the Connecting Minority 
Communities Pilot Program, which provides grants to HBCUs, TCUs, MSIs, 
and minority business enterprises and nonprofits to be used for devices 
and internet service, as well as digital literacy programming and the 
hiring and training of technology personnel.
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    \6\ Consolidated Appropriations Act of 2021: http://www.congress.gov/bill/116th-congress/house-bill/133/text.
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    ED's Office of Career, Technical and Adult Education (OCTAE) 
supports the teaching and learning of digital skills for youth and 
adults. Preparing secondary, postsecondary and adult learners for 
career opportunities in STEM industry sectors, such as advanced 
manufacturing and healthcare, is essential to promoting innovation and 
economic growth. In recent Perkins V discretionary grant competitions, 
OCTAE issued a Notice Inviting Applications that promoted projects 
designed to improve student achievement or educational outcomes, 
including computer science, as a competitive preference priority. 
Annually, OCTAE administers the Presidential Cyber Security Educator 
award to recognize two educators--one at the elementary level, and one 
at the secondary level--who demonstrate superior achievement in 
instilling skills, knowledge, and passion with respect to cybersecurity 
and cybersecurity-related subjects.
    OCTAE also funds projects to support adult education learners to 
engage with digital technologies and help practitioners improve their 
ability to deliver effective digital skills training and support. The 
projects include Digital Resilience in the American Workforce (DRAW), 
Enhancing Access for Refugees and New Americans, and the Adult EdTech 
Challenge. Over the next three years, ED will invest in funding these 
programs to support improving the quality of foundational digital 
literacy skills and training in adult education/literacy programs. If 
passed, the Digital Citizenship and Media Literacy Act of 2020 (DCML) 
would direct ED to award approximately $20 million bi-annually in grant 
funding to state/local education agencies to promote media literacy and

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digital citizenship.\7\ The DCML Act highlights the provision of 
information and technology literacy as an important strategy for 
preparing students for further education, training, and employment.
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    \7\ S.2240--116th Congress (2019-2020): Digital Citizenship and 
Media Literacy Act [verbar] Congress.gov [verbar] Library of 
Congress.
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    The federal Institute of Museum and Library Services (IMLS) also 
addresses digital literacy skills by statute (20 U.S.C. 9101 et seq.) 
and funds a range of training programs in libraries and museums. 
Library staff are often on the frontlines of helping individuals 
develop the digital skills they need for success in education, 
employment, and civic engagement. Among other projects, IMLS funding 
has supported the Public Library Association's DigitalLearn.org, an 
online hub for digital literacy support and training, as well as Salt 
Lake City Public Library's Digital Navigators Program, which identified 
massive digital inclusion needs exposed by the COVID-19 pandemic.
    In accordance with President Biden's Executive Order on advancing 
racial equity and support for underserved communities through the 
federal government,\8\ federal agencies are tasked with developing a 
comprehensive approach to advance equity for historically underserved 
and marginalized communities adversely affected by persistent poverty 
and inequality. This approach requires agencies to assess whether, and 
to what extent, its programs and policies perpetuate systemic barriers 
to opportunities and benefits for underserved groups.\9\ As part of 
this effort, it is critically important to improve digital resilience 
and address issues of access around training, technology, and 
infrastructure to advance digital equity.\10\ An individual's access to 
technology and opportunities to develop digital skills is a key equity 
issue that affects their ability to participate in society. This issue 
disproportionately impacts Black, Indigenous, and other People of 
Color, as well as people in rural communities.\11\
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    \8\ President Biden's Executive Order 13985, `Advancing Racial 
Equity and Support for Underserved Communities Through the Federal 
Government,' defines the term ``equity'' and directs every agency to 
assess whether underserved communities and their members face 
systemic barriers in accessing benefits and opportunities available 
under certain of its programs.
    \9\ https://www.federalregister.gov/documents/2021/01/25/2021-01753/advancing-racial-equityand-support-for-underserved-communities-through-the-federal-government. As recent PIACC Survey 
of Adult Skills data shows, in the United States, 19 percent of 
adults are profoundly in need of literacy skills development. These 
adults are overrepresented in communities of color.
    \10\ Under the DEA, the term ``digital equity'' means the 
condition in which individuals and communities have the information 
technology capacity that is needed for full participation in the 
society and economy of the United States. The term ``digital 
inclusion'' means the activities that are necessary to ensure that 
all individuals in the United States have access to, and the use of, 
affordable information and communication technologies, such as 
reliable fixed and wireless broadband internet service; and includes 
obtaining access to digital literacy training.
    \11\ Bergson-Shilcock, A. (2020). Applying a Racial Equity Lens 
to Digital Literacy. National Skills Coalition. https://www.nationalskillscoalition.org/wp-content/uploads/2020/12/Digital-Skills-Racial-Equity-Final.pdf.
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    Access to training programs, devices (i.e., computers) and 
reliable, high-speed internet varies across the country. Rural 
Americans consistently have lower adoption rates of broadband compared 
to urban or suburban Americans, and are less likely to own a 
smartphone, tablet, or computer.\12\ Digitally redlined urban 
communities also face issues of access and adoption. One-third of 
Americans have limited to no digital skills, and People of Color are 
disproportionately affected by these digital skills mismatch.\13\ 
Additionally, individuals with disabilities are adopting technologies 
at lower rates compared to their non-disabled peers, regardless of 
their age.\14\ ED's Office of Education and Training (OET), through its 
Digital Equity Education Roundtables (DEER) Initiative, convened 
stakeholders to identify existing barriers to digital equity/inclusion 
adoption, defined under BIL as ``daily access to the internet with the 
digital skills that are necessary for the individual to participate 
online.'' The DEER Initiative found that one of the most significant 
challenges that impede adoption faced by learners, families/caregivers, 
and communities is the lack of digital skills necessary to fully take 
advantage of technology and access opportunities. It is vital to 
understand the need for digital resilience, the digital skills mismatch 
that exist amongst workers and learners, and how digital skills 
instruction alongside other basic skills can be contextualized and 
integrated into various education and training programs.
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    \12\ https://www.pewresearch.org/fact-tank/2021/08/19/some-digital-divides-persist-between-rural-urban-and-suburban-america/.
    \13\ https://www.nationalskillscoalition.org/wp-content/uploads/2020/12/Digital-Skills-Racial-Equity-Final.pdf.
    \14\ https://www.pewresearch.org/fact-tank/2021/09/10/americans-with-disabilities-less-likely-than-those-without-to-own-some-digital-devices/.
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    As more jobs require digital resilience and access to reliable 
infrastructure, jobseekers, workers, and learners who lack digital 
literacy skills or other foundational career-readiness skills are at a 
disadvantage in both securing and retaining employment opportunities. 
Further, as noted in a 2020 report from the National Skills Coalition, 
``digital skill levels are strongly correlated with general literacy 
and numeracy skills,'' such that ``those who struggle with technology 
may also struggle with the academic skills needed to gain entry to a 
degree or other educational program.'' \15\ Occupations that have not 
traditionally required workers to be digitally resilient are 
increasingly demanding that workers have digital literacy skills. 
Current research suggests that while the demand for jobs requiring 
digital skills will increase, many workers and jobseekers continue to 
lack foundational digital skills. The National Skills Coalition's 
analysis of the Organization for Economic Cooperation and Development 
(OECD) Survey of Adult Skills (PIAAC) \16\ found that 73 percent of 
workers in entry-level service work lacked digital problem-solving 
skills, and 67 percent struggled to use computers on the job.\17\ The 
lack of workers' digital skills bring considerable costs to workers and 
employers, and threaten economic recovery efforts by imposing a drag on 
economic productivity. A lack of digital resilience creates an 
opportunity cost on workers by limiting their career advancement 
opportunities and job prospects. A 2017 report titled ``The Digital 
Edge: Middle-Skill Workers and Careers'' \18\ explains ``the high price 
of low skills,'' and how job seekers might have to turn down jobs or 
will be considered unqualified for jobs due to a lack of digital 
skills. Middle-skill jobs, defined in the report as those that 
typically require less than a bachelor's degree while paying a living 
wage, make up 46 percent of overall labor demand--and digital skills 
are widely required across the middle-skill labor market. 82 percent of 
``middle skill jobs'' require digital skills, and 78 percent of these 
jobs require spreadsheets and word processing as the baseline for 
digital skills. In addition, the report concluded that digitally

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intensive middle-skill jobs pay 17 percent more than non-digital roles.
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    \15\ Bergson-Shilcock, 2020. The New Landscape of Digital 
Literacy. Washington, DC: National Skills Coalition. https://nationalskillscoalition.org/resource/publications/the-new-landscape-of-digital-literacy/.
    \16\ https://nces.ed.gov/surveys/piaac/current_results.asp.
    \17\ Bergson-Shilcock, 2017. Foundational skills in the service 
sector. Washington, DC: National Skills Coalition. https://www.nationalskillscoalition.org/resources/publications/file/NSC-foundational-skills-FINAL.pdf, p. 9-16.
    \18\ The Digital Edge: Middle-Skill Workers and Careers. (2017). 
Burning Glass Technologies. https://www.burningglass.com/wp-content/uploads/Digital_Edge_report_2017_final.pdf.
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    Technology is built into nearly every aspect of our daily lives, 
including how Americans learn, work and communicate with each other. 
Digital literacy and resilience enable jobseekers, workers, and 
learners to participate in the global economy, and digital skills are 
necessary to access many of the public workforce programs that help job 
seekers successfully complete job-readiness and/or occupational 
training. The COVID-19 pandemic increased the need for the American 
workforce to utilize digital skills, and in today's labor market, the 
job search, recruitment, and application processes are becoming 
increasingly digitized. Despite the shift toward increased uses of 
digital tools and technology, an estimated 32 million Americans 
struggle to use a computer, and half of all Americans say they are not 
confident in using technology to learn.\19\ The pandemic also 
accelerated a shift to the online service delivery model, which exposed 
more nuanced features of the digital divide and illustrated the 
importance of being able to navigate digital transformations, such as 
managing the shift to online education, increased use of telehealth 
services, and the ability to secure goods and services necessary for 
every-day life. The shift created additional barriers for job seekers 
who lack the digital skills needed to access virtual services from the 
public workforce system, and further highlighted the impacts of 
systemic racism and inequity on disadvantaged communities. As digital 
literacy skills increasingly intertwine with basic job functions, the 
public workforce system will need to gather new data on digital skill 
demands to develop plans that address the technology gaps in priority 
industries across different geographies and demographics. This will 
ensure all individuals have the digital resilience needed to 
participate in education/training programs and society.
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    \19\ Mamedova, S., Pawlowski, E., & Hudson, L. (2018). A 
Description of U.S. Adults Who Are Not Digitally Literate (No. 
NCES2018-161; Statistics in Brief). US Department of Education. 
https://nces.ed.gov/pubs2018/2018161.pdf.
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    Request for Information: The U.S. Department of Labor, with input 
from the above-referenced Agencies, is interested in learning about 
successful approaches to improving digital literacy from workforce 
development providers, business and labor leaders, employers, 
educators, policymakers, advocates, including community-anchor 
institutions and other nonprofit organizations, researchers, and other 
interested individuals and entities. Through this RFI, the Agencies 
seek public input to gather information about digital literacy and 
competencies both prior to and during the COVID-19 pandemic, as 
applicable. The Agencies request that commenters address the key 
questions and themes, as noted below, in the context of the preceding 
discussion in this document. Commenters do not need to address every 
question and should focus on those that relate to their expertise or 
perspective. To the extent possible, please clearly indicate the 
question(s) addressed in your response.
    Key Themes and Questions:
    1. Current Trends in Digital Literacy: Please share how actors in 
the workforce development system, including education entities, 
libraries, community organizations, businesses or industry 
associations, and union or worker organizations, are currently engaged 
in digital literacy in the following areas:
    (a) Assessing digital resilience for adult and youth learners?
    (b) Addressing digital literacy skill demands or skills mismatches 
for adult and youth workers seeking employment or training services?
    (c) Upskilling employees in the workforce, including incorporating 
digital skills instruction and integrating digital technologies into 
occupational skills training?
    (d) Identifying in-demand digital literacy skills and/or skills 
most relevant for the local labor market? Are industry or occupation-
specific skills being identified?
    (e) Creating and utilizing incentives to engage workers and job 
seekers in digital learning?
    (f) Developing/piloting innovative strategies and promising 
practices or projects to support digital resilience amongst learners?
    (g) What are some examples of promising practices in the field of 
digital skills training?
    (h) What are successful processes used by employers to share 
information on in-demand digital skills needed for their respective 
industry? How do employers share information with the public workforce 
system, including other employers, jobseekers and training providers?
    (i) What are successful processes by which employers upgrade 
specific digital skills amongst their own workforces?
    (j) Which library systems and museums do you consider to be 
exemplars in teaching digital skills? What promising practices do these 
institutions utilize to serve the public?
    2. Challenges and Barriers to Digital Literacy: Please share 
identified mismatches, needs, and/or systemic barriers for stakeholders 
involved in digital literacy training:
    (a) What barriers are individuals (adult and youth workers/
learners) experiencing in accessing digital tools and/or training?
    (b) What challenges are instructors and/or training providers 
facing when seeking to deliver digital literacy instruction and 
training to learners and/or workers?
    (c) What are common mismatches in digital literacy that employers 
are facing for newly hired workers as well as incumbent workers?
    (d) What resources are most needed by educators and training 
providers to address the challenges in providing digital skills 
training to individuals?
    (e) What challenges are training program participants (adult and 
youth) facing, and where are there still mismatches in the digital 
literacy ecosystem (i.e., public school systems, libraries, employment 
service centers, etc.)?
    (f) What challenges or barriers are local entities facing when 
attempting to use new or existing funding to support digital literacy 
training for learners?
    3. Digital Equity and Inclusion: Please share what steps need to be 
taken by digital literacy stakeholders to ensure the following equity 
milestones are achieved:
    (a) What additional resources are needed for workers of all 
backgrounds to access and succeed in digital literacy upskilling/
training opportunities?
    (b) How can programs ensure underserved and/or marginalized 
populations are adequately targeted for digital literacy training 
opportunities?
    (c) How can digital skills/literacy efforts be integrated into 
ongoing worker preparation programs?
    (d) What interventions/supports can be utilized to support digital 
inclusion for all program participants? For example, are there issues 
centered around digital literacy resources being made available in 
Spanish and other widely-used languages, in addition to English?
    (e) How should the Institute of Museum and Library Sciences better 
encourage digital skills development in libraries and museums?
    4. Strategic Partnerships and Collaboration: Please explain how 
state, local, nonprofit, and business partners are collaborating to 
implement successful digital literacy initiatives:
    (a) How are the most successful partnerships structured? Are there 
required partners?

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    (b) Are there barriers preventing successful partnerships with 
business and industry partners at the state and/or local levels? If so, 
what are the barriers and what support is needed to overcome them?
    (c) What is the role of employers in preparing new or incumbent 
workers for industry-specific digital skills, or how should workforce 
providers partner with employers? How might employer-specific digital 
skills be taught by the employer to build on skills taught by workforce 
grantees or training providers?
    (d) Are there any specific digital skills that workforce and 
education training providers should be responsible for teaching 
learners, such as how to type or navigate digital devices?
    5. Federal Investments in Digital Literacy: Please share what 
support from the federal government is needed to advance national 
digital literacy attainment efforts:
    (a) Which existing federal programs/federal funding sources are 
being utilized to support digital resilience?
    (b) Is additional federal funding needed for states/local 
governments to facilitate better services to the public?
    (c) What types of technical assistance and resources would be most 
valuable to build digital resilience capacity?
    (d) How are WIOA grantees/sub-grantees leveraging funding outside 
of WIOA, such as the Affordable Connectivity Program and/or digital 
equity funding under the Bipartisan Infrastructure Law, to address 
digital inclusion and equity challenges with federal funding?
    (e) How can federally-funded workforce and education training 
programs work together to ensure that participants (adult and youth) 
receive needed training in foundational and occupation-specific digital 
literacy skills?
    6. Digital Literacy & K-12 Public Education System: Please share 
successful strategies, key challenges, and lessons learned in 
addressing digital literacy for K-12 youth:
    (a) What are the digital skills necessary to be considered 
digitally literate today? In the future?
    (b) Which K-12 and community college/postsecondary education 
systems do you consider to be exemplars in teaching digital skills to 
adult learners, youth learners, and/or families/caregivers? Why?
    (c) How should the Department of Education better encourage digital 
skills education in the K-12, community colleges, and adult education 
settings?
    (d) What are some recommended strategies to ensure digital skills 
education evolves alongside society's technological advances?

Brent Parton,
Acting Assistant Secretary for Employment and Training, Labor.
[FR Doc. 2022-26461 Filed 12-7-22; 8:45 am]
BILLING CODE 4510-FN-P