The Personal Responsibility and Work Opportunity Reconciliation Act of 1996 emphasizes the placement of people in jobs as the first step in the welfare reform process rather than the development of basic and job skills. This has forced adult and vocational educators to rethink the role their programs can play in welfare reform. The move to de-emphasize education and training in the welfare reform act is more than a little ironic in view of the fact that the research on welfare-to-work programs continues to confirm that the most effective welfare-to-work programs share a balanced approach that mixes job search, education, job training, and paid and unpaid work experience. When developing programs for welfare recipients, adult and vocational educators must create ways of developing balanced programs while still meeting the requirements of the legislation. Although activities to improve basic skills are important, they should be provided as part of a comprehensive program designed to develop employability. Successful basic skills components include the following qualities: clear concept of participants' educational and other needs; support for teachers' efforts to innovate and experiment in the classroom; and sufficient funding to implement innovative ideas. (Contains 18 annotated references.) (MN)