the location of foreign workers admitted into the United States,

the location of individuals in the United States requiring and desiring the educational assistance and training for which the funds can be applied, and

the location of unemployed and underemployed United States workers.

Within the purposes and allocations established under this section, disbursements shall be made to the States, in accordance with grant applications submitted to and approved jointly by the Secretaries of Labor and Education, to be applied in a manner consistent with the guidelines established by such Secretaries in consultation with the States. In applying such grants, the States shall consider providing funding to joint labor-management trust funds and other such non-profit organizations which have demonstrated capability and experience in directly training and educating workers.

Not more than 5 percent of the funds disbursed to any State under this section may be used for administrative expenses.