Supporters urge statewide ESOL strategy to address long waitlists, connect classes to jobs

Supporters of H.2080 and S.1326 told the Joint Committee on Labor and Workforce Development that Massachusetts needs a coordinated strategy to expand English-for-speakers-of-other-languages (ESOL) services, connect classroom instruction to job pathways and reduce multi-year waitlists that block immigrants from filling workforce vacancies.

The Boston Foundation's vice president for public affairs, Keith Mahoney, told the committee, "Investing in English for speakers of other language programs isn't just social good, it's smart economic strategy." He cited a 2020 report showing a large mismatch between demand and available seats and urged the committee to report the bill favorably.

The bill would authorize an executive-level coordinator to develop a statewide plan and better align ESOL funding, program design and employer needs. "This is absolutely a workforce issue," Andre Green, executive director of SkillWorks, said, describing roughly 140,000 foreign-born workers in Massachusetts who are underemployed or not using their credentials. Green and other witnesses pointed to studies and program evaluations showing earnings gains for participants and argued that vocationally contextualized ESOL — classes that teach the language and vocabulary used in specific jobs — produces stronger employment outcomes.

Ben Foreman of the Massing Policy Center said the state's ESOL delivery is "decentralized [and] fragmented," operated across community-based organizations, workforce agencies, higher education and K–12, with no single plan or quarterback. Testimony from Amy Grinder of the Massachusetts Immigrant and Refugee Advocacy Coalition (MIRA) and practitioners confirmed the mismatch: despite increased state funding over the last decade, waitlists have remained at "over 20,000" and average reported wait times approach two years. Witnesses said federal funding has decreased while demand has grown, contributing to geographic gaps where some communities lack state-funded seats.

Providers and employers described program models that combine language instruction with employment services. Amy Nischman of JVS Boston promoted pilots that teach workplace English paired with career coaching; Claudia Green of English for New Bostonians described employer partnerships that run on-site training; and Elise Doksevich, CEO of Alpha Chemical Services, recounted investing roughly $120,000 in an on-site English program that led to promotions and retention.

Advocates detailed what job‑focused ESOL looks like in practice: teaching workers how to say "I am available to work from this time to this time," role‑play for calling a supervisor, and industry vocabulary for healthcare or weatherization work. Community representatives gave examples: Gia Navarro recounted winning a business pitch after taking an English-for-entrepreneurs class; Nikki Nesbeth, Caribbean Youth Club executive director, described translating weatherization training for Haitian Creole speakers so they could access $25‑per‑hour Mass Save jobs.

Committee members did not take a formal vote during the hearing. Witnesses asked the committee to recommend a favorable report so the proposal could proceed to fiscal and policy review. Proponents emphasized that a statewide coordinator and strategy would allow layering of public, private and philanthropic investments and target vocational ESOL where employer demand and regional workforce shortages intersect.

Supporters asked the committee to consider metrics for success — seats added, waitlist reduction and job placement — and to ensure interagency coordination across the Department of Elementary and Secondary Education, the Executive Office of Labor and Workforce Development and the Office for Refugees and Immigrants.

If reported favorably, the bill would not itself appropriate funds; proponents said legislative backing would help catalyze more state, federal and private investment in vocational ESOL.