2015 09-wioa-playbook-for-creating-effective-state-plans - copy

REALIZING
INNOVATION
AND
OPPORTUNITY
IN WIOA
A Playbook
for Creating
Effective
State Plans
Bryan Wilson and Brooke DeRenzis
Updated April 2015

REALIZINGINNOVATIONANDOPPORTUNITYINWIOA
B

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TABLE OF CONTENTS
Executive Summary..........................................................................................................................2
Introduction .......................................................................................................................................3
I. The Planning Process................................................................................................................4
II. Plan Structure and Format........................................................................................................5
III. Sector Partnerships....................................................................................................................7
IV. Career Pathways.......................................................................................................................10
V. Cross-Agency Data and Measurement...............................................................................14
VI. Job-Driven Investments..........................................................................................................18
Conclusion........................................................................................................................................19

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EXECUTIVE SUMMARY
O
ver the next several months, states will embark on the process of creating new state plans
required by the Workforce Innovation and Opportunity Act (WIOA). This report provides recom-
mendations on how states can use their WIOA state plan to establish strategies that close the
skill gap and help workers and businesses succeed.
The writing of a new state workforce development plan is a major opportunity for states. WIOA
emphasizes sector partnerships, career pathways, cross-program data and measurement, and job-
driven investments. It is written in a way that allows visionary leaders to use it as a lever for strategies
that support economic growth and help a wide range of workers succeed in the labor market. The state
plan need not be limited to federal programs under WIOA’s four titles or to minimum federal planning
requirements. Instead, states are free to use their plans to describe the workforce development
system they truly want, and to explain how they will use WIOA and other state and federal programs
to achieve that vision. Rather than being a compliance document that sits on a shelf, the state plan
should serve as a playbook for effective strategies that help workers and businesses succeed. Broad
and authentic stakeholder engagement during the planning process will help ensure that the plan is
supported both by those who will implement it and by those intended to benefit from it.
National Skills Coalition offers the following recommendations for policymakers, practitioners, advo-
cates, employers, and labor to consider as they work to create a state plan that takes full advantage of
the skills strategies promoted by WIOA:
n The Planning Process: The state planning process should use different techniques to provide
multiple opportunities for a broad set of stakeholders to offer input on the state plan. In determining
whether to be an early implementer, states should consider how to balance the early implementa-
tion timeline with the process necessary to create a strong plan with broad stakeholder support.
n Plan Structure and Format: The state plan should clearly describe the state’s vision and goals for
preparing a skilled workforce that meets employer needs. It should articulate the major strategies
the state will use to achieve its vision and should explain the “who, what, and when” of action
steps to implement those strategies.
n Sector Partnerships: The state plan should describe the state’s criteria for local or regional
sector partnerships, and it should explain how the state will provide support and funding to those
partnerships.
n Career Pathways: The state plan should describe how state programs will collaborate with each
other, local programs, and other stakeholders to create career pathways. They should also describe
how states will use effective adult education approaches, wrap-around support services, and sector
partnerships as part of their career pathway approach.
n Cross-Agency Data and Measurement: The state plan should describe a comprehensive cross-
agency data and performance measurement system that covers all major workforce development
programs. This includes how the state will use supply-demand reports, dashboards, and cross-
agency credential measurement to develop policies to close the skill gap; how it will link data to
measure outcomes; and how it will provide training program performance scorecards for students
and workers.

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INTRODUCTION
On July 22, 2014 President Obama signed WIOA into law, replacing the Workforce Investment Act
(WIA). Most provisions of WIOA become effective on July 1, 2015.
WIOA includes many substantial changes to WIA that should improve the nation’s workforce devel-
opment system. WIOA should help states and local areas better align workforce programs with each
other and with the needs of employers for a skilled workforce.
WIOA’s support for sector partnerships should spur the growth of this proven industry-driven strategy
for advancing workers and addressing employer skill needs. WIOA’s encouragement of career pathways
should increase the integration of basic education, skills training, and support services, helping more
individuals attain postsecondary credentials and higher earnings. The creation of common metrics
that can reliably measure key outcomes from a large number of programs should help unify workforce
programs as a coherent system. And WIOA’s emphasis on job-driven investments that directly connect
training to employment should provide more people with jobs.
One of the first actions states will take under WIOA is the creation of a state plan. States do not have to
submit a plan until March 3, 2016. However, it will take months for a state to fully engage stakeholders
in a thorough process to create a plan that takes full advantage of the strategies promoted by WIOA.
Moreover, many states are considering the option of early implementation and submitting a plan prior to
the required date.
This report offers National Skill Coalition’s recommendations on how states can use the WIOA state
plan to establish a vision of a workforce system that closes the skill gap and helps workers and busi-
nesses succeed. A model plan will encompass all key programs, both federal and state-funded, and
will be supported both by stakeholders who will carry out the plan and by customers of the system. In
addition to the process and structure of the state plan, this report’s recommendations focus on critical
content for four key strategies that are supported by WIOA: sector partnerships, career pathways,
cross-program data and measurement, and job-driven investments. The recommendations also include
examples from current state plans.1
The recommendations are intended for all those who will be involved in the creation of their state
plan. This includes, or should include, not only the individuals in governors’ offices and state workforce
boards who are tasked with the plan’s development, but also representatives of business, labor, local
workforce boards, adult education, the employment service, vocational rehabilitation, secondary and
postsecondary education, training providers, community-based organizations, and others who advocate
for increasing the skills of individuals and meeting the skill needs of employers.
1 Links to state plans referenced in the report can be accessed in the online version of the document available on National Skill
Coalition’s website.

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I. THE PLANNING PROCESS
WIOA charges the state workforce development board with assisting the governor in developing the
state plan. In addition to the governor, the membership of the state board must include representatives
of business, labor, the legislature, local elected officials, apprenticeship, and the state agencies that
administer Adult, Youth and Dislocated Worker services (WIOA Title I), Adult Education (WIOA Title II),
Wagner-Peyser (WIOA Title III), and Vocational Rehabilitation (WIOA Title IV). The board may include
representatives of community-based organizations, organizations addressing the needs of youth, and
other members designated by the governor. While states must submit a state plan by March 3, 2016,
the law allows states to be “early implementers.”
In its effort to assist the governor in developing the state plan, the workforce development board
should use different techniques to provide multiple opportunities for stakeholders beyond its mem-
bership to provide input on the state plan. In determining whether to be an early implementer, states
should consider how to balance the early implementation timeline with the process required to create
a strong plan with broad stakeholder support.
STAKEHOLDER ENGAGEMENT
State workforce development boards should use a variety of techniques to solicit input on the state
plan from a broad set of stakeholders. In the past development of workforce plans, states have used
a variety of methods to reach out to a broader set of organizations and individuals concerned about
workforce development. Techniques have included field hearings and forums, surveys, focus groups,
social media, workgroups, and other methods. States have reached out to local workforce boards and
staff, secondary educators, community and technical colleges, proprietary schools, economic develop-
ment officials, social service agencies, and many community-based employment, training, and social
service providers.
For example, to develop WORKSmart Kentucky, the Kentucky State Workforce Investment Board
established four planning committees that, among other things, engaged in site visits, customer focus
groups, and conversations with technical staff. The state convened meetings with five stakeholder
groups, including local workforce boards, community and technical colleges, economic development
professionals, and other stakeholders. State workforce board staff members held monthly discussions
with local board directors and interviewed individually the state directors of programs covered under
WIA.
To create Washington’s state plan, the state workforce board established two workgroups consisting
of business and labor representatives, state and local agency officials, and practitioners from the
employment and training, education, and economic development fields. Once a draft plan was put
together, the state board held public forums in four cities around the state, with participation from
120 individuals. The board gathered advice from business representatives at Rotary and Chamber of
Commerce meetings in five cities. In addition, the state board posted drafts of the plan on its website
and solicited comments by e-mail. The planning process took a total of seven months.
RECOMMENDATION: The state workforce development board and state and local stakeholders
should engage in an extensive planning process that makes possible broad and authentic stake-
holder engagement. Stakeholders include state agencies that implement each of the programs
included in the state plan; advocacy organizations for the programs’ customers, including
business, labor, and community-based organizations; local workforce development boards and
staff; and local providers for each program included in the plan. The engagement process should
include a variety of opportunities for stakeholders to offer input and to comment on drafts, includ-
ing multiple locations and methods of communication.

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EARLY IMPLEMENTATION
WIOA requires that states have the opportunity to implement the Act early, however DOL has not yet
issued guidance for early implementation. When WIA was implemented, DOL allowed states to submit
transition plans that identified parts of the new Act that would be implemented early and parts that
would not be ready until the regular implementation deadline. It should also be noted that when WIA
was implemented, states that were early implementers became eligible to respond to DOL opportu-
nities not available to other states, such as opportunities to provide input on the final regulations.
The early implementer states for WIA were Florida, Indiana, Kentucky, Louisiana, New Jersey, North
Carolina, Pennsylvania, Texas, Utah, and Vermont. In determining whether to be early implementers,
states should consider whether the early implementation timeline is sufficient for engaging in an
extensive planning process that will produce a high-quality workforce plan.
RECOMMENDATION: States need to determine for themselves if they will be ready for early imple-
mentation, including having the stakeholder process and state plan that they want completed in
time for early plan submission.
II. PLAN STRUCTURE AND FORMAT
WIOA identifies the basic structure required for the state plan: it must consist of a strategic plan that
is broad in scope and operational elements that are consistent with the strategic plan. The strategic
plan must include the state’s vision, goals, and strategies for preparing a skilled workforce and closing
the skill gap. The operational elements must identify the programmatic steps the state will take to
implement the strategies.
The state plan should clearly describe the state’s vision and goals for preparing a skilled workforce that
meets employer needs. It should articulate the major strategies the state will use to achieve its vision,
and explain the “who, what, and when” of action steps to implement those strategies.
STRATEGIC AND OPERATIONAL PORTIONS OF THE STATE PLAN UNITED AROUND A
COMMON VISION AND GOALS
The plan is an opportunity for the state to commit fully to a vision of a skilled workforce that meets employer
needs, and to acknowledge the central role that middle-skill training plays in meeting those needs. Existing
state plans for California, Minnesota, Maryland, and Virginia all articulate this type of vision.
California’s plan is presented as a response to the state’s skill gap, particularly for middle-skill jobs,
and the Governor’s Workforce Development Council in Minnesota placed its call for “All Hands on
Deck” clearly in the context of the state’s skill gap.
Maryland’s state plan is built around the Governor’s goal of increasing the number of Marylanders
who receive at least two years of postsecondary education and skills training by 20 percent before
2018; this goal guides the Governor’s Skills2Compete initiative and aligns the full array of state human
capital programs.

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Virginia’s state plan clearly establishes four broad goals for the state’s workforce development system:
1. Establish Career Pathways as the Primary Model for Collaboration between Workforce Development
Stakeholders
2. Expand Virginia’s Pipeline of Workers for Targeted Industry Sectors
3. Increase Attainment of Postsecondary Education Credentials
4. Strengthen Data and Reporting of Virginia’s Career Pathways and Workforce System
RECOMMENDATION: The state plan should clearly describe the state’s vision and goals for
preparing a skilled workforce and meeting employer needs for middle-skill workers.
BROAD SCOPE
States have the choice of either submitting a unified plan that includes the strategic plan and the oper-
ational elements for WIOA’s four titles or submitting a combined plan that also includes operational
components required by federal agencies for at least one other program, such as Career and Technical
Education (CTE), Supplemental Nutrition Assistance Program Employment and Training (SNAP E&T),
and Temporary Assistance for Needy Families (TANF).
While a combined plan is desirable, there is not yet federal guidance on how to include operational
elements for programs other than the four titles of WIOA. Without such guidance, states may be
reluctant to submit a combined plan.
Still, states submitting a unified plan should use the strategic portion to address all the major strate-
gies the state will implement in order to prepare a skilled workforce, not just those covered by WIOA.
Such strategies should include actions by a wide range of agencies and programs. Having everything in
one place will help coordinate the efforts of agencies and programs and will facilitate their responsive-
ness to the common vision of preparing a skilled workforce.
The current state plans for Massachusetts, California, and Texas all include programs beyond those
administered through WIA:
n Massachusetts’s state plan includes education and economic development programs in addition to
workforce programs and requires the secretaries of the relevant departments to align their efforts.
n California state law “requires the State [Workforce] Board to collaborate with the Chancellor of the
California Community Colleges, the State Department of Education, other appropriate state agen-
cies, and local workforce investment boards to develop a comprehensive state plan that serves as a
framework for public policy, fiscal investment, and operation of all state labor exchange, workforce
education, and training programs.”
n Texas’ state plan covers the activities of eight different agencies and over 20 programs.
RECOMMENDATION: Whether a state chooses to submit a unified or a combined state plan, the
plan should broadly cover all the major strategies and actions across agencies and programs
that the state will use to prepare a skilled workforce that meets employer needs. National Skills
Coalition will provide recommendations on combined state plans as federal expectations regard-
ing combined plans become clearer.

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ACTIONABLE
As previously stated, the operational portions of the plan must identify the programmatic steps that
will be taken in order to implement the state’s strategies. So for example, the strategic plan should
describe the state’s strategy for supporting sector partnerships. The operational portions should
indicate specifically how programmatic resources will contribute to that strategy, the action steps that
will be taken, and the entities that will be responsible for implementation.
Similarly, local and regional plans must be consistent with the state plan and should indicate how
local areas will contribute to strategies in the state plan. The operational portions of the state plan
should be specific enough that state policymakers, state administrators, and local officials can tell
who is responsible for doing what and how the pieces fit together to complete the state’s strategies.
Such specificity will provide accountability and help those who are responsible carry out activities in a
manner consistent with the state plan.
For example, WORKSmart Kentucky spells out the specific action steps that will be carried out in order
to achieve the state’s goals, indicates who is responsible for implementing the action steps, and sets
forth a timeline for implementation.
RECOMMENDATION: The operational portions of the state plan should clearly describe the “who,
what, and when” of action steps that implement the state’s strategies.
III. SECTOR PARTNERSHIPS
WIOA highlights sector partnerships as a key strategy for meeting the needs of employers, workers,
and jobseekers. A sector partnership organizes multiple employers and key stakeholders in an industry
cluster into a working group that focuses on the shared goals and human resources needs of the
industry cluster.
Under WIOA, state plans must describe how employers will be engaged—including through sector
partnerships. Local workforce boards must use adult and dislocated worker funds to “develop, con-
vene, or implement” sector partnerships, and state support for local sector partnerships is one of the
activities for which statewide set-aside funds can be used.
Accordingly, a state plan should describe the key elements of sector partnerships that the state will
support. It should also explain how the state will administer and fund a strategy that supports the
development, convening, and implementation of local area sector partnerships.
STATE CRITERIA FOR SECTOR PARTNERSHIPS
Under WIOA, state boards must assist the governor in the implementation and continuous improve-
ment of the workforce development system, including through sector partnerships. The state plan
should describe the key elements of sector partnerships the state will support, addressing each of the
areas discussed below.
Target Sectors
States should prioritize certain industry sectors and/or provide guidance on how local areas can
identify key regional sectors. Critical factors include employment opportunities, wage levels, and the
economic impact of the industry. For example, Arizona’s state plan describes how local workforce
investment areas should use labor market information and employer feedback to identify target sec-
tors. It sets the expectation that local areas will use the Arizona Sector Selection Tool, which assesses
sectors based on employment size and concentration, recent and projected growth, worker earnings,
and business growth patterns (pp. 29-30).

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Partners
WIOA lists several types of stakeholders that can participate in a sector partnership.2
States can use
this list to provide advice on the types of partners that should participate. States should ensure that
partners include multiple employers within the industry and organizations that play a critical role in
educating, training, and supporting workers in the sector, including community-based organizations.
Maine’s state plan, for example, includes a detailed discussion of the roles that businesses, education
and training providers, workforce investment agencies, and service providers should play when partici-
pating in sector partnerships. (pp. 36-39).
A partnership should include businesses that, taken together, provide a substantial portion of local jobs
in the sector. Likewise, a partnership should include multiple training providers to ensure that most of
the organizations providing local training in the sector are represented. Broad membership will allow
the partnership to serve several functions and will avoid the creation of multiple local partnerships for
the same sector. It will also enable the partnership to offer greater service and employment opportu-
nities to employers and individuals. Michigan’s state plan explains how it uses industry clusters3
as
an organizing framework to leverage partners’ knowledge and resources, decrease duplication, and
achieve training cost-savings (p. 101).
Intermediaries
A variety of organizations can play the role of convening local sector partnerships, including local
workforce boards, community colleges, chambers of commerce, community-based organizations, and
economic development boards or agencies. State plans can provide guidance on how intermediaries
can be identified at the local level. Because many types of effective conveners already exist, and
because the type of entity that is best positioned to be the convener varies from one area to another,
we recommend that states permit flexibility as to who serves as the local convener.
For example, California’s state plan describes different organizations that can serve as the convener—
local boards, industry associations, labor-management partnerships, regional nonprofits, and com-
munity colleges—as long as they have credibility within the industry (pp. 3-5; 5-6). In discussing the
state’s industry cluster approach, Michigan’s state plan explains that local workforce agencies should
take advantage of existing partnerships (p. 105).
Targeted Populations
Sector partnerships can be an effective strategy for serving low-income adults and youth. States that
use WIOA Title I funds to support local sector partnerships will be expected to serve eligible popula-
tions through sector partnerships. Whether or not Title I funds are used, however, the state plan should
be explicit that raising the skill levels and advancing employment of low-income adults and youth is a
key purpose of the state’s sector partnership strategy.
For example, Maryland’s state plan explains that its state-funded sector strategy (called “EARN”)
targets Maryland’s harder-to-serve, lower-income, or lower-skilled residents by encouraging programs
to combine adult education and support services with sector-specific occupational skills training
(p. 3). Rhode Island’s state plan identifies helping youth connect to careers as an activity of a success-
ful industry partnership (p. 19).
2 Under WIOA, key stakeholders include representatives of multiple businesses or other employers in the industry cluster, labor,
and provider(s) of education or training programs that support the industry cluster. Partners may also include representatives
of state or local government, state or local economic development agencies, state boards or local boards, state workforce
agencies or entities providing employment services, other state or local agencies, business or trade associations, economic
development organizations, nonprofit organizations, community-based organizations, intermediaries, philanthropic organiza-
tions, industry associations, and others.
3 Michigan uses the term “clusters” not “sectors”.

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Activities
States should indicate the types of activities expected from sector partnerships. Activities may include,
among others, skill gap analyses, skill standards and certifications, shared training programs, and mecha-
nisms for regular employer engagement. The state, however, should not be overly prescriptive since local
sectors have different needs, and partnerships are in different stages of meeting those needs.
For example, California’s state plan lists several activities for sector partnerships, including identifying
and articulating skill needs, mapping and establishing career pathways, developing and/or adjusting
training curriculum, developing common systems to track participant success, and providing indus-
try-valued skill certifications, credentials, and degrees (pp. 3-6).
Similarly, Rhode Island’s state plan details activities of successful industry partnerships. These include
but are not limited to identifying and addressing businesses’ aggregate skill needs, helping education
and training organizations align curriculum and programs to industry demand, developing career
ladders within and across companies, and developing new industry credentials (p. 19).
Outcomes
A state plan should also describe how it will use WIOA core indicators and other measures to assess
sector partnerships. WIOA indicators for workers include employment rates, earnings, and credential
attainment. While WIOA’s employer measure is still under development, outcomes for businesses can
be measured by such metrics as vacancy rates, employee turnover, employer satisfaction, number of
employer members in partnerships, employer member retention rates, and employer investments.
RECOMMENDATION: The state plan should describe the key elements of sector partnerships that
it will support and the outcome measures it will use to assess sector partnerships.
STATE ACTIVITIES TO SUPPORT LOCAL SECTOR PARTNERSHIPS
A state plan should explain the types of support the state will provide to sector partnerships and which
state agencies will be responsible for administering that support. States can facilitate the development
of local sector partnerships by supporting sector-specific research that identifies skill gaps and the
creation of plans to close gaps. States can support implementation by providing resources or technical
assistance for partnership convening, worker training, and the establishment of skill standards and
industry-based certifications. State plans should assign a lead agency to administer this support, and
should describe the roles and responsibilities of any additional state agencies involved in supporting
sector partnerships.
For example, Colorado’s state plan describes the support and technical assistance that the Colorado
Department of Labor and Employment provides to regional sector partnerships in the form of sector
academies, a sector toolkit, and a “Sector Summit” for self-defined regional partnerships to learn how
to create and broaden sector partnerships (pp. 40-41).
Likewise, Kentucky’s state plan explains that the state designed a “Sectors Strategy 101” course, held
“Sector Strategy Institutes” to introduce the concept of sector partnerships, and developed a sector
strategy toolkit (pp. 20-21). It also describes resources the state will continue to provide, including
sector-specific skill need assessments, an updated toolkit, professional development and peer-learning,
and support developing strategic plans (p. 66).
RECOMMENDATION: The state plan should explain the sector partnership planning and imple-
mentation activities that it will support and assign a lead agency to administer that support. It
should also describe the roles and responsibilities of any additional supporting state agencies.

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FUNDING
A state plan should also describe the funding source(s) a state will use to support the activities
described above. States can use the WIOA Title I statewide set-aside to support the planning, con-
vening, and implementation of sector partnerships. Additionally, states can use state funds—such as
general fund appropriations, unemployment insurance diversion funds, or revenue from specified state
taxes—to help fund sector partnerships. Philanthropic foundations and local government may also be
sources of funding.
States typically allocate funding for sector partnerships to local areas through a competitive grant
process. States may require local partnerships to provide a cash or in-kind match in order to increase
resources and demonstrate local commitment.
State plans for Kentucky, Maryland, Massachusetts, New Jersey, and Rhode Island all describe funding
for competitive grants to support sector partnerships:
n Kentucky’s state plan describes Industry Partnership grants that are used to support sector partner-
ships (p. 87) and sets as an action step making investment decisions based on sector strategies
(p. 95).
n Maryland’s state plan describes Maryland’s EARN initiative (p. 3), which provides competitive grants
to sector partnerships to support planning and collaborative training strategies in sectors where
there is a skill gap.
n Massachusetts’ state plan explains how the Workforce Competitiveness Trust Fund uses state
funding to give grants to employer-driven partnerships that design industry-specific education and
training programs (p. 26).
n New Jersey’s state plan notes that New Jersey uses state training funds to support new training
programs developed in partnership with multiple employers to address industry-specific skill
shortages (p. 15; Action 3.8)
n Rhode Island’s state plan explains that the governor’s workforce board uses allocations from the
state’s job development fund to support the key activities of industry partnerships (p. 19)
RECOMMENDATION: The state plan should describe federal and state funding sources that will
be used to provide planning and implementation support to local sector partnerships. It should
also describe the mechanism for allocating that funding to local areas.
IV. CAREER PATHWAYS
WIOA also promotes career pathways as a key workforce development strategy. Career pathways align
and integrate education (including ABE and ESL), job training, counseling and support services to
create accelerated pathways to postsecondary education credentials and employment in in-demand
occupations.
Under WIOA, state and local boards are tasked with developing career pathways. The state plan must
describe a strategy for aligning core programs and explain how different entities will support career
pathways. WIOA Title I statewide set-aside funds can be used to support career pathway development
and implementation, and WIOA Title II state leadership funds must be used to align adult education
and literacy activities with other core programs.
Given this framework, state plans should describe how state programs will collaborate with each other,
local programs, and other stakeholders to create career pathways as defined by WIOA. They should
also describe how states will use effective adult education approaches and wrap-around support ser-
vices as part of their career pathway approach. Additionally, they should explain how career pathways
will relate to sector partnerships.

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CROSS-PROGRAM COLLABORATION
Career pathways involve a range of stakeholders. In addition to state and local workforce boards and
agencies, potential partners should include education and training providers, community colleges, commu-
nity-based organizations, support service providers, and employers. A state plan should explain how state
partners will collaborate with each other and with key stakeholders at the state and local levels to create
career pathways. A state plan can do this by:
n Articulating a common career pathway strategy;
n Specifying the different roles and responsibilities of key partners in implementation of that strategy;
n Identifying policies, MOUs, and articulation agreements that need to be created or changed to
support cross-program collaboration;
n Describing how agency and program funding and resources will contribute to career pathways; and
n Explaining how cross-program data and measurements will be used to facilitate and assess career
pathways.
State plans for Massachusetts, Minnesota, and Virginia each describe cross-agency coordination
around career pathways:
n Massachusetts: The state plan highlights the Governor’s cross-agency effort to develop career
pathways in four major industries. The effort is being led by three state secretaries and is advanced
by the Workforce Board’s Pathways Committee. The state plan articulates the Pathway Committee’s
goals, fundamental principles, primary roles, and operational functions. It also explains how the
Pathways Committee will be supported by an interagency funding team. Finally, it describes how
the Committee will use a regional planning process to develop career pathways (pp. 12-15).
n Minnesota: The state plan identifies Minnesota’s career pathways initiative, FastTRAC, as a
key skill strategy. The state plan sets the goal of expanding FastTRAC programs across the state
by building on an existing partnership between state workforce, education, and human service
agencies, the Minnesota Workforce Council Association, and the Greater Twin Cities United Way
(Section A, p. 4). It also provides a discussion of how these partners work together to blend funding
and resources in the implementation of FastTRAC.
n Virginia: The state plan sets out a vision for career pathways to serve as a primary vehicle for
collaboration between workforce development stakeholders (pp. 8-9). It lists specific strategies
for supporting this vision, including a statewide MOU that defines partner roles and expectations,
a governor’s Executive Order establishing a career pathways governance structure, expanded and
diversified funding sources, and a career pathways and workforce development report card to
measure progress (p. 26).
RECOMMENDATION: The state plan should explain the roles, policies, and resources that state
agencies will adopt or use to collaborate with each other and other state and local stakeholders
to create career pathways.

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EFFECTIVE ADULT EDUCATION APPROACHES IN CAREER PATHWAYS
Key features of career pathways under WIOA include programs that provide basic education/ESL con-
currently with or in the context of workforce preparation or occupational skills training, and strategies
that accelerate individuals’ educational and career advancement.
Examples of such programs include:
n Integrated programs that combine adult basic education with occupational skills training in the
same classroom or course
n Bridge programs that prepare adults with limited academic or English skills to enter and succeed in
pre-college or credit-bearing postsecondary education and training
n Vocational ESL programs
n Dual enrollment programs, in which adults and out-of-school youth without a high school diploma
or its equivalent enroll in postsecondary instruction and receive both postsecondary and secondary
credit.
A state plan should describe how these programs will be deployed as part of the state’s career
pathway approach, contribute to the state’s overall career pathway vision and strategy, and be
administered and funded. A state plan should also explain how these programs will help individuals of
different skill levels prepare for and be successful in earning postsecondary education credentials and
employment. Existing state plans for Minnesota, Washington State, and Illinois discuss effective adult
education approaches:
n Minnesota’s state plan explains that FastTRAC promotes effective adult education approaches by
promoting co-instruction to teach literacy and occupational skills in a career context (Section B, p. 6,
Section G, pp. 56-59). According to the state plan, 90 percent of Minnesota’s adult basic education
service delivery system use bridge or integrated programs with FastTRAC career pathways (Section
B, p. 14).
n Washington’s state plan identifies bridge programs and programs like I-BEST as key approaches for
improving training for adult workers with barriers to advancement. I-BEST integrates basic or devel-
opmental education with job skills training. The plan also calls out the need to increase approaches
that accelerate individuals’ education and training advancement, such as credit for prior learning,
competency-based programs, stackable and portable credentials, and online and hybrid learning
programs. (p. 11)
n Illinois’ state plan identifies sector-based bridge programs as a key aspect of their career pathways
strategy. The plan notes that the state has implemented bridge programs to ensure that low-skilled
adults have access to career pathways in key industries (p. 14).
RECOMMENDATION: The state plan should describe how it will deploy effective adult education
approaches as part of the state’s career pathways strategy.
WRAPAROUND SUPPORT SERVICES, INCLUDING COUNSELING AND FINANCIAL AID
Career pathways are designed to enable low-income, low-skilled adults achieve postsecondary creden-
tials and higher paying employment; accordingly they must offer support services to facilitate individu-
als’ transitions across programs and promote persistence within a pathway. Support services, such as
transportation and child care, are critical for reducing barriers that prevent low-income individuals from
persisting in career pathways. Quality child care and other family support services help parents who
are students, as well as their children. Counseling and career guidance connect individuals to needed
services and draw the roadmap to a career based on solid information. A state plan should describe
the types of support services that will be available to career pathway participants, as well as the state
agencies and programs responsible for providing those services.

13
Career pathways are increasingly using professional navigators to work closely with participants as
they move through career pathways—connecting them with the right support services and providing
guidance on transitions from one program to the next. In fact, WIOA includes as an element of career
pathways “counseling to support an individual in achieving the individual’s education and career
goals.” A state plan could describe how the state will use navigators in its career pathway strategy, in
which agency navigators will be located, and how navigator positions will be funded.
For example, Washington’s state plan mentions the use of navigators and discusses increased partner-
ships with community-based organizations and the state human services agencies to provide supportive
services (p. 11). Likewise, Minnesota’s state plan explains that the Minnesota Family Investment Program
and WIA Title I-B case managers connect FastTRAC participants with support services to increase
retention and completion (Section B, p. 6). Virgina’s state plan describes the state’s Adult Career Coach
program, which places coaches at every Virginia community college to help students develop career and
education plans and access resources (p. 35).
Career pathway participants often need access to financial aid in order to pursue postsecondary
education. However, traditional financial aid is less accessible to students who are working, attending
school less than half-time, or enrolled in non-credit occupational courses. Some states have responded
to this challenge by providing financial aid for working or part-time students or for students enrolled
in certain industry training programs. A state plan should identify the financial aid resources available
to career pathway participants, with particular attention paid to resources for working, part-time, or
non-credit students.
RECOMMENDATION: The state plan should describe the types of support services and financial
aid that will be available to career pathway participants.
RELATIONSHIP TO SECTOR PARTNERSHIPS
Under WIOA, career pathways are to align with the skill needs of industries in the state or region.
States can do this by using sector partnerships to help inform the development of career pathways.
For instance, sector partnerships can help identify and design industry skill standards, curriculum, and
certifications that should be part of career pathways. For activities that are best done on a statewide
basis, states may want to create state workgroups that draw upon members of local sector partner-
ships, or states may want to select particular local sector partnerships to take a lead role for the state.
Similarly at the local level, career pathways can use sector partnerships to engage employers on the
labor market relevance of local pathway programs. The bottom line is that states and local areas
should take advantage of sector partnerships in the development of career pathways, particularly in
order to obtain input from industry representatives.
For example, California’s state plan discusses using sector partnerships to develop industry-specific
career pathways (p. 4-2) and Illinois’ state plan explains how the state’s sector partnerships will help
develop and guide career pathways for youth and adults. (pp. 13-16)
RECOMMENDATION: The state plan should explain how the state will link career pathways and
sector partnerships.

14
V. CROSS-AGENCY DATA AND MEASUREMENT
WIOA has a new focus on data and performance measurement. Specifically, WIOA sets out common
metrics that must apply to each of WIOA’s four titles and training providers; these common metrics
can also be applied to other programs. In addition to employment and earnings measures, the WIOA
common metrics include a postsecondary credential attainment measure. WIOA will also provide a
template for training program performance reports.
These requirements provide the opportunity for states to use cross-agency data and measurement
to better align workforce and education programs with employer skill needs. The state plan should
describe a comprehensive cross-agency data and performance measurement system that covers all
major workforce development programs. This includes how the state will use supply-demand reports,
dashboards, and cross-agency credential measurement to develop policies to close the skill gap; how
it will provide training program performance scorecards for students and workers; and how it will link
data to measure outcomes.
COMPREHENSIVE SYSTEM
The state plan is an opportunity for states to commit to a comprehensive, unified data and performance
measurement system. WIOA asks states to describe how they will assess the overall effectiveness of
their workforce investment system, including assessing “the progress of participants that are exiting
from core programs in entering, persisting in, and completing postsecondary education, or entering
or remaining in employment.” While states are required to describe their performance measurement
system for the core programs of WIOA’s four titles, states are free to go beyond the core programs and
describe how their performance measurement system covers additional programs or even their entire
workforce development system.
The Workforce Data Quality Campaign (WDQC) has identified 13 “key features of an aligned, inclusive,
and market-relevant state data system.” The 13 elements encompass leading-edge practices in the
states. A state plan’s discussion of data and measurement should ideally address each of the 13 elements
in the WDQC Blueprint, explaining how the state will have each of the 13 elements in place.
Among current state plans, Washington’s is probably the closest to describing a comprehensive cross-
agency data and performance measurement system. The plan devotes an entire chapter to describing
goals, measures, evaluations, reports, data collection, data linking, performance targets, and perfor-
mance-based consequences.
RECOMMENDATION: The state plan should describe a comprehensive cross-agency data and
performance measurement system that covers all major workforce development programs, not
just the four titles of WIOA.
SUPPLY AND DEMAND REPORTS
Under WIOA, state plans must identify the skill needs in the state; this should include identifying the
sectors and occupations of the economy where there is a shortage of skilled workers. States can use
supply and demand reports to fulfill this requirement.
Supply and demand reports measure the supply of skilled workers and compare that supply to the num-
ber of skilled workers demanded by employers. These reports break down data by occupational fields
and level of education or training. The reports can identify the groups of occupations where a state is
clearly not supplying a sufficient number of skilled workers to meet employer demand, and states and
local areas can use this information to direct resources to boost supply where needed.
States that already have supply and demand reports should use the information to describe skill gaps
in the state. States that do not yet have supply and demand reports should describe the steps they will
take to create the reports.

15
For example, Colorado’s state plan (pp. 22-23) includes milestones for the creation and use of an
annual report on the match of labor supply and demand that will be used for strategic decision-making
across agencies. Massachusetts’s state plan (pp. 7-11) includes an analysis of supply and demand
based on the ratio of online job postings and unemployment insurance beneficiaries. Washington’s
state plan (p. 8) includes the findings of the state’s supply and demand report, lists the occupational
fields where employer demand greatly exceeds the annual supply of newly trained workers, and calls
for increasing capacity in those fields.
RECOMMENDATION: The state plan should describe the state’s process for producing supply and
demand reports. In states that already have supply and demand reports, the plan should describe
the reports’ findings on skill shortages and use that information to guide the plan’s strategies for
closing skill gaps.
COMMON METRICS AND DASHBOARDS
Common metrics across programs facilitate systemwide planning, program coordination and shared
accountability for results. They also make it easier for policymakers to view and understand the per-
formance of programs and the workforce development system as a whole. Dashboards present, in an
easily accessible format, the key results of programs and the system as measured by common metrics.
One of the major achievements of WIOA is the establishment of a new set of common metrics (“pri-
mary indicators of performance”) that apply to each of the four WIOA titles and to training providers
funded by WIOA. Since the metrics were designed to be applicable to a very broad range of workforce
development programs, they can be applied to programs beyond WIOA. Indeed, states are free to go
beyond the minimum requirements of WIOA and apply the metrics to additional programs, such as
CTE, SNAP E&T, TANF and/or others, helping to bring coherence to the broader system of workforce
development.
States do not need a combined plan in order to extend WIOA common metrics to additional programs.
The strategic portion of a unified plan may describe how a state will use the common metrics across
workforce programs beyond the WIOA core programs. It may also discuss how the state will present
performance information for multiple programs in a way that elected officials and policy leaders can
easily understand.
Some state plans have already taken steps in this direction. Prior to the enactment of the WIOA
common metrics, states moved to develop their own metrics for a range of programs beyond WIA.
For example:
n New Jersey’s state plan (p. 16) includes the establishment of common metrics to measure the
performance of workforce development programs. It also includes the creation of dashboards to
display results and “ensure that new metrics are disseminated to various audiences and that they
drive program and policy decisions.”
n California’s state plan (p. 11) includes the action: “Develop common cross-system metrics, align
performance outcome measures, monitor and report annually on progress towards goals.”
n Washington’s state plan (pp. 3-7) specifies seven state core measures to measure the results
of each of the state’s major workforce development programs and the system as a whole.
Washington’s Workforce Training Results displays the dashboards that use the state’s core
measures.
RECOMMENDATIONS: The state plan should describe how the state will use the WIOA common
metrics to measure the results of programs in addition to the core programs in WIOA. The state
plan should describe the state’s dashboard or the steps the state will take to create a dashboard
that displays program and system results as measured by the WIOA common measures.

16
MEASURING CREDENTIALS
One of the common metrics required by WIOA is the percentage of participants who obtain a creden-
tial. In order to derive a percentage, states and local areas will have to count the absolute number of
credentials obtained by participants.
This metric should spur additional training and skill attainment under WIOA. States and local areas,
however, have been challenged to consistently and accurately count the full range of credentials provided
by the workforce system. Addressing this challenge will require very concerted efforts by states and local
areas.
The state plan should discuss the steps the state will take to provide a full count of postsecondary
credentials that have value in the labor market. Such steps include:
n Using cross-agency credential measurements that capture credentials across all workforce develop-
ment programs;
n Producing an unduplicated count of the total with breakdowns available by type of credential;
n Counting industry-based certifications and occupational licenses in addition to educational certifi-
cates and degrees.
For example, Maryland’s plan (pp. 2-3) explains how the state will count all credentials that have value
in the labor market across agencies and programs in order to track progress toward achieving the
Governor’s goal of increasing postsecondary credential attainment by 20 percent.
RECOMMENDATION: The State Plan should discuss the steps the state will take to provide a full
count of postsecondary credentials that have value in the labor market.
SCORECARDS FOR STUDENTS AND WORKERS
Under WIOA, training providers other than apprenticeship programs must report their performance as
measured by the WIOA common metrics. These providers must report outcomes for all their students,
not just those students whose training is funded by a WIOA program. Moreover, the Administration has
indicated that DOL will no longer issue waivers that allow a state to extend the period of initial eligibil-
ity for training providers under WIOA. Without this waiver, training providers must report performance
to remain on the Eligible Training Provider List (ETPL) and eligible for WIOA funding. The new ETPL
requirements go into effect on July 23, 2015, although states may grandfather-in providers that were
eligible under WIA until December 31, 2015.
The most efficient and consistent way to measure training providers’ performance is for the state
to first collect a small set of seed records from each provider for each student (e.g. social security
number, program of study, start date, end date, credential, and demographic characteristics), and then
link the records with unemployment insurance wage records and other administrative records used to
determine outcomes. The state then shares overall program outcomes (not individuals’ outcomes) with
providers, local boards, and the general public through a web-based scorecard system. DOL and the
Department of Education (DOE) will be identifying a template for reporting program outcomes. By using
a common template to report outcome data for programs, states can create a meaningful scorecard
for consumers that clearly shows the performance of each training program, using consistent metrics
measured in a consistent way.
A few states have already created a comprehensive scorecard system. For example, as described in the
performance accountability chapter of Washington’s state plan (p. 11), “The Workforce Board operates
a consumer report system of training provider results, as well as course descriptions and other key
information for potential students at www.careerbridge.wa.gov. This online consumer report system
helps Washington residents make market-based decisions, moving their dollars from lesser to better

17
performing providers.” The details underlying Washington‘s consumer scorecard and eligible training
provider list may be found here.
RECOMMENDATION: The state plan should describe the state’s process, or the steps the state will
take, to provide scorecards for consumers that show training program performance as measured
by the WIOA common metrics for credential attainment, employment, and earnings.
UNIFIED AND COMPREHENSIVE DATA LINKING
In order for states to use the WIOA common metrics to measure provider, program, and system results,
states must link participant records with databases, such as unemployment insurance wage records
that are used for outcome information.
State plans are required to describe the state’s system for this data linking. States should consider
systems that avoid duplication of effort and are as efficient as possible, including how workforce data
can link to the State Longitudinal Data System (SLDS).
For example, Michigan’s state plan (pp. 51-52) describes how the state will connect its state longitu-
dinal data system and workforce longitudinal data to create a K-20W data system. Massachusetts’s
state plan (pp. 39-41) discusses how Massachusetts is building its workforce-based data warehouse
for all workforce programs and linking it to the state longitudinal data system. Finally, Minnesota’s
state plan (pp. 12-13) has as one of its goals the integration of the state’s data systems.
RECOMMENDATION: The state plan should identify a comprehensive system for linking data
across workforce and education agencies for the purpose of measuring outcomes.
Data linking should extend beyond state lines in order to account for training participants who work
in other states. The Wage Record Interchange System (WRIS) allows states to measure out-of-state
employment and earnings for WIA program participants whereas WRIS2 provides this function for
federal programs beyond WIOA. In order to more fully measure participant employment and earnings,
the state should join WRIS2 so that the state can measure out-of-state employment and earnings for
the broad array of workforce development programs.
RECOMMENDATION: The state plan should describe the state’s participation in WRIS2 or action
steps the state will take to participate in WRIS2.

18
VI. JOB-DRIVEN INVESTMENTS
States’ investment in education and training should reflect the jobs in the state. Middle-skill jobs
account for the largest share of the labor market in each of the 50 states, yet most states don’t have
enough workers trained to the middle-skill level, and states tend to invest far less in middle-skill
training than other levels of higher education. For example, an analysis of Connecticut’s investments
shows that although three out of five jobs there are middle-skill, only one out of every five postsecond-
ary dollars spent goes toward middle-skill education and training.
State plans must include an analysis of both employers’ and workers’ skill needs. The plans should also
indicate how well the state’s investments in education and training match those needs. States should
use such analyses not only to identify skill gaps, but also to guide state investments in education and
training. States plans should indicate how the state will invest its own education and training dollars
in middle-skill programs that can close skill gaps.
WIOA emphasizes training that is directly connected to jobs, including incumbent worker training,
on-the-job training, apprenticeship, and other types of work-based learning. By definition, sector
partnerships and career pathways are also job-driven. State plans should identify how such training
directly connected to jobs will be part of the state’s strategy to close the skills gap. State plans should
explain how the state will invest WIOA Title I statewide set-aside and other funds to support job-
driven strategies.
For example, Massachusetts’ state plan describes how the state uses a local workforce investment
board certification process to make job-driven investments aimed at closing skill gaps (p. 26). The state
plan explains that in order to be certified, local boards are required to have the following components:
n A strategic plan focused on the region’s skill gaps that outlines how state and federal funding will
be invested to address gaps;
n Evidence of industry partnerships;
n A dashboard tool to measure progress toward closing the skill gap and serving target populations;
n Metrics to measure the return on investment of key public programs; and
n Increased revenue outside of Department of Labor formula funding.
Similarly, Michigan’s state plan articulates several ways in which the state is using the Michigan
Industry Cluster Approach to make job-driven investments:
n It describes a process that Michigan workforce agencies use to identify industry-specific skill gaps,
training to close the gap, and resources needed to promote training and recruit participants (p. 104).
n It explains that cluster-based training will be the priority for any available competitively procured
and state discretionary funding, and that the state’s industry cluster approach will be the focus of
WIA statewide activities (pp. 106-107)
n It summarizes the state’s WIA formula funding policy by stating “[i]t is the expectation of the
Workforce Development Agency that WIA funds are used in support of a demand-driven system.
Locally defined priority industries must be identified by local Workforce Development Boards and
appropriate services developed and provided based upon input received from employers and other
key partners.” (p. 62)
n It details how apprenticeships, on-the-job training, incumbent worker training, and individual
training accounts can be used to provide demand-driven training (pp. 107-108).
Under WIOA, states must consider how training providers relate to the state’s in-demand industry
sectors and occupations when compiling the Eligible Provider Training List (EPTL). A state plan should
describe how the state will craft an EPTL that includes job-driven training.

19
For example, state plans for Michigan (p. 103) and New Jersey (Section B, page 8) both underscore the
importance of engaging employers in the process of creating the high-demand occupations list and in
turn aligning training with that list. Kentucky’s state plan describes the state’s intention to reform its
EPTL to “reinforce priorities around high demand occupations, sustainable wages and career ladder
goals.” (p. 94).
RECOMMENDATION: The state plan should identify and explain how state and federal funds will
be invested to close the middle-skill gap. The plan should also describe how the state will invest in
training directly connected to jobs. Investments in job-driven strategies should include the use of
state set-aside funds under WIOA Title I.
CONCLUSION
WIOA promotes strategies that will grow our economy by helping workers and employers succeed.
Policymakers can use WIOA to develop a workforce system that uses sector partnerships, career path-
ways, cross-program data and measurement, and job-driven investments to prepare a skilled workforce
that meets employers’ needs.
As one of the first actions required under WIOA, the state planning process provides an opportunity
for policymakers to commit to this vision. In order to make that vision actionable, state plans should
articulate how different programs, agencies, and stakeholders will work together to execute key
strategies, including sector partnerships, career pathways, cross-program data and measurement, and
job-driven investments. As states start on their WIOA plans, they should consider how to use a broad
and authentic planning process to create a state plan structured around a vision of a workforce system
that will help a wide range of workers and industries prosper.

20
ABOUT NATIONAL SKILLS COALITION
National Skills Coalition is a non-partisan, broad-based coalition of employers, unions, education and
training providers, and public officials working toward a vision of an America that grows its economy
by investing in its people so that every worker and every industry has the skills to compete and prosper.
We engage in organizing, advocacy, and communications to advance state and federal policies that
support these goals — policies that are based on the on-the-ground expertise of our members.
National Skills Coalition was founded in 1998 as The Workforce Alliance in response to a series of fed-
eral policies that signaled the end of national investments in the skills of America’s workers at a time
when skill gaps were growing in key U.S. industries. Since then, we’ve demonstrated that investments
in skills work. We’ve shown that diverse stakeholders can find agreement around specific reforms that
will improve a variety of workforce education and training policies. And we have documented that
the American public is strongly supportive of a deeper investment in the skills of America’s workers.
We continue to mobilize support for a new national skills agenda that cuts across public policies, and
simultaneously serves a wide range of U.S. workers and industries.
National Skills Coalition is governed by a Board of Directors and advised by a national Leadership
Council drawn from the ranks of business, labor, community colleges, community-based organizations,
and the public workforce system.
More than 8,000 members, representing more than 3,000 organizations in all 50 states, comprise the
broad-based membership of National Skills Coalition.
Learn more at www.nationalskillscoalition.org.

2015 09-wioa-playbook-for-creating-effective-state-plans - copy

NATIONAL SKILLS COALITION
1730 Rhode Island Avenue NW
Suite 712
Washington DC 20036
Phone: 202.223.8991
Fax: 202.223.8354
info@nationalskillscoalition.org
www.nationalskillscoalition.org

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