This report is a first step in defining the direction in which the Job Training Partnership Act (JTPA) system should move to create programs that facilitate growth toward a socially constructive adulthood. An introduction describes the purpose and scope of a project that convened a panel of experts who generated the information, four background papers, and five case studies synthesized into this report. Chapter II examines briefly the role development plays in youth employability and lays out a developmental framework from which employment programs can be examined. Chapters III and IV focus on specific program features considered critical for providing environments that can enhance youth development. Chapter III considers assessment and engagement in program settings, including assessment and goals, tracking progress, engaging youth in programs, and how support services facilitate growth. Chapter IV describes a more systematic approach to staff selection and training, including structuring relationships between staff and youth, criteria and process for staff and youth, and staff training. Chapter V considers the current JTPA system in light of these critical features; Chapter VI recommends ways to begin incorporating practices into the JTPA system that could improve effectiveness by more directly promoting youth development. Appendixes include the following: 44 references, descriptions of 5 exemplary programs, and a training package for new staff, "A Developmental Approach to Job Training with 'At-Risk' Youth." (YLB)