Recent Workforce Innovation and Opportunity Act legislation in the United States has initiated increasingly complex and multi-tiered systems for program implementation in the adult learning, career training, and workforce development sectors. The paper presents a conceptual framework to assist in understanding capacity building for implementation of adult and workforce education programming. The framework synthesizes a number of policy models, dimensions, and definitions for program delivery and capacity building. A capacity building framework can be applied for conducting policy analysis, needs assessment, and evaluation to underscore how the execution of ambitious policy initiatives and the sustained use of effective practices in communities and institutions, is more likely to be effective if the implementation process begins with a clear understanding of the program model and policies themselves. It also assists in building an active investment in and intentional cultivation of systemic capacity for implementation. Efforts at executing new initiatives without attending to system-level development and scaffolding support structures are prone to ineffective realization and poor program sustainability.