Just read the graph. The cross point indicates that supply and demand intersect and read down. The x axis shows the equilibrium point to be 16, but it is a supply demand problem. At equilibrium there are just enough workers to fill the needs of the employers.
This is a tricky question. Don't get caught. The answer is 28 people are willing to go to work for this amount, but employers are only willing to hire 9. The government is not doing the other 19 any kind of favor when employers don't hire anyone. In fact they will likely look for ways to let people go.
E:28