This song was written around 1980 by Tom Penick. It is about simple situations that lack simple solutions. The first verse was inspired by a divorced couple that is rebuilding their relationship. "She don't know her name" refers to the uncertainty of what her last name is going to be.
The second verse is about a good friend who became an IRS agent despite having more interesting goals. Sometimes the path we take is just circumstances unfolding, not what we had planned. He is, at least, in the adjustments department so that he is returning taxes, not collecting them. (He likes to point this out.) The chorus is just saying that some of life's lessons are not so clear.
Before the wheel will turn
There's a lesson we must learn
But it's beyond me
You took us all by surprise
Who wants another agent man
You are making the grade
Who is making the plans?
Before the wheel will turn
There's a lesson we must learn
But it's beyond me