In November 2011 the European Agenda for Adult Learning (EAAL) (2011) has been adopted. The main policy focus is the emphasis on the skills defined in the “new skills agenda" (2016).). In this sense, adult education became a central “device” for implementing European educational policies (Volles, 2016) in which national governmental features are intertwined with current European governance (Milana & Holford, 2014). P.I.A.A.C.’s report shows that Italy presents a high rate of low-skilled adults representing a problem both for social inclusion and employability. Furthermore, scholars have highlighted the relationship between immigration and human capital. Italy is characterized also by a low-skilled immigration, which poses several problems that may affects social mobility (Bertozzi, 2017, Santagati & Ongini, 2015, Azzolini & Ress, 2015; Barban & White, 2011), and the national welfare system (Bertozzi e Consoli, 2017). Moreover, nationality of migrants plays a decisive role in determining their chances of professional insertion (Roosmaa E.-L & Saar, 2017, Piché et alii, 2002; Dayan et alii, 1997). 

In terms of educational policies, in Italy, theCentri per l’Istruzione degli Adulti (CPIA) represent an answer to the demands coming from international agencies. The CPIA have been endowed with their own staff distinct from that of the school autonomy. For this reason, they respond to a concrete intent of expanding the training offer, which can be achieved through agreements with local authorities or private professional training institutions. In the D.P.R. n. 263/2012 the central and constituent elements of the CPIA are indicated. More specifically, the training offer emerges as directed to a plurality of publics.

For sure they glimpse an important potential both for the school and its audience: the school, in fact, can experience a professional and cultural openness to publics previously and traditionally excluded.

Regarding users, integration within a school institution is an element that can favor the processes of cohesion and social integration. While talking about the students - and especially asylum seekers - the main thing is to transmit basic Italian language skills. Moreover, it is also important to define the training needs of the users, to make the skills balance, to orientate users in the perspective of training and job placement.

In this sense, these types of users surely represent a challenge for school teachers who are not trained for this type of activity and are not necessarily motivated to work with them. This can eventually create a condition that could affect the teachers' turn-over.

Another difficulty is that these users are particularly fluctuating and unstable over time. This aspect is also a challenge for the school, both from an administrative and a pedagogical point of view.

The diversity of the public highlights the vastness of the challenge that invests the Italian strategy of adult learning on which the task of integrating immigrants is added: starting from the learning of the Italian language (L1, L2) up to the certification of competences and to the orientation to the work market.

The paper analyzes the potentials and risks associated with the construction of a new “dispositf” for the inclusion of the population in difficulty.

Among the main research objectives, in this paper it will be analyzed the governance of the adult education system and the process of policy construction. The policy is implemented as a sort of "organized anarchy" or through a bottom-up approach driven from above. This presents several important dilemmas to the researcher (and to the policy makers) that it is useful to investigate.
Nevertheless, this policy is strictly intertwined with immigration policies which have a direct impact on the school process and on its publics. 

Analysis of national and international literature focusing on the contents of the EPALE European platform in order to establish a comparative report on national policies. • Desk analysis of sub-populations that can be distinguished for some peculiarities that are particularly informative (for example: high rate of elderly population, high immigration rates of first and / or second generation, high rates of unemployment or inactivity among the population). • Analysis of the policy implementation process in Italy: in-depth interviews with privileged observers, in particular ministerial and school middle management observers (10 interviews); • Organizational analysis in order to bring out the peculiarities of the CPIA, as well as their strengths and weaknesses: interviews with school managers and teachers involved in organizational processes. (20 interviews). • Issues related to the professional culture of teachers, their goals and their difficulties: 20 in-depth interviews and 10 focus groups. • Construction of a repertoire of guidance practices, analysis of users training needs and of methods adopted to realize the balance of competencies: questionnaire for CPIA school leaders. • Analysis of the characteristics, orientations and training needs of the different types of users: sample survey, self-administered questionnaire.

In a organizational standpoint: the CPIAs are characterized by a network dimension that gives rise to a continuous negotiation, in which verticality and horizontality of relations at national and regional level are continuously intertwined. The territorial dimension: CPIAs seem to be a model of de-territorialized school. The absence of their own locations or the condition of being placed in "host schools" is an element of territorial instability that deserves a deep investigation. Within the institutional dimension, CPIAs seem to be a new form of hybrid school. The grafting of primary and secondary school, the co-presence of different audiences, different teachers, different objectives (literacy/ specialization and work address) is a significant organizational and cultural challenge for the teaching profession. Referring to the inter-institutional dimension, it will be considered as a case of porous school: The need for relations, networks with territory, university and training profession creates a new institutional iintertwinement. The processual dimension. CPIAs represent also a new model of flexible school: The CPIAs are called upon to continuously adapt themselves to the needs of the territory, to those of the users, to the political requests (for example, the integration of immigrants). Finally, the potential for change: the integration of newly arrived immigrant students changes, at least partially, the function and practice of an institution initially conceived as part of a strategy of social inclusion limited to a resident population.

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