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A Technical Assistance Guide

Illinois Department of Commerce and Economic Opportunity

Bureau of Workforce Development

Using WIA Title I to Support Bridge Programs




September 2009 i

Table of Contents: Page

1. Introduction………………….…………………………………..….......... 1

2. ARRA Background……………………………………………….............. 1

3. Training Contract Options............................................................ 5

4. Individual Training Accounts vs. Class-size Training Contracts...... 7

5. Bridge Program Overview……………………………………................. 10

6. Example Bridge Program Models and Funding Options…............... 15

a. Adult Education Healthcare bridge model……….…........... 16

b. Adult education Transportation, Distribution, and Logistics

(TDL) bridge model…………………………….......................... 19

c. Developmental education manufacturing model………........ 23

7. Discussion of Funding Options 24

8. Procuring Training Grants and Contracts…………………..……….... 28

9. Request for Proposal (RFP)................................................................ 28

10. Performance Management of Training Grants and Contracts…....... 32

11. Other Exceptions to ITAs…………………………………………........... 38

12. ATTACHMENTS................................................................................. 43

A: Assessing the Utility of Employing a Class-Size Training

Contract......................................................................................... 43

B: Checklist for Training Project Request for Proposal Content...... 45





September 2009 1

Introduction

We have the perfect opportunity now to leverage new resources to invest with our

partners in the preparation of lower-skilled adults for new jobs. We will do this by

creating courses that bridge the gap between the current skills of these adult students

and the skills they need to be successful in college and work. A key part of this

initiative involves strengthening partnerships between community colleges, local

workforce investment boards and adult education providers. By doing this, we will

obtain better results for this often-neglected population which is so important to the

future growth of our economy.

-- The Illinois Shifting Gears Workgroup

The purpose of this guide is to provide a two-fold approach to understanding training options

available through Workforce Investment Act (WIA) funding. The guide is to assist Local

Workforce Investment Areas (LWIAs) in considering options for supporting bridge programs

in their communities. It is part of a technical assistance effort by DCEO and its partners to

encourage increased investment in these programs. While the guide is principally addressed

to WIA Title I administrators, it will also be of interest to community colleges, other Adult

Education providers, and other providers or partners with an interest in promoting the use of

bridge programs to improve student transitions to post-secondary instruction and

employment. The information can be used by those parties wishing to enter a contract with

the State (as the Grantee of Federal WIA funds) or with a sub-grantee of the State or it can

be used by those sub-grantees who seek the assistance of others to provide training or other

services.

The guide includes an overview of bridge programs and related policies in Illinois. It

discusses the impact of the American Recovery and Reinvestment Act (ARRA) on the use of

training contracts to support bridge programs. The advantages and disadvantages of using

class-size training contracts vs. Individual Training Accounts (ITAs) for bridge programs are

also discussed in addition to examples of career pathways that incorporate bridge

components, and potential funding options for each component. Suggestions are included

concerning the procurement of training contracts (specifically through the use of a Request

for Proposal (RFP)), and the management of performance of these contracts. Finally, an

overview is provided to outline other exceptions to the use of ITAs under WIA which may be

applicable to bridge program implementation.

American Recovery and Reinvestment Act (ARRA)

The President signed into law the American Recovery and Reinvestment Act of 2009 (ARRA

or the Recovery Act) on February 17, 2009. In addition to substantially increasing the WIA

resources available to states and LWIAs for training, ARRA makes other changes which

increase local flexibility for the use of these resources in support of bridge program

implementation.



September 2009 2

USDOL issued Training and Employment Guidance Letter No. 14-08 on March 18, 2009.

This letter provides guidance on the implementation of ARRA, including discussion of

changes to Title I of WIA that were included in the legislation. One of these changes gives

LWIAs the authority to by-pass the use of Individual Training Accounts (ITAs) and enter

directly into contracts with educational institutions to provide training:

―To increase the availability of training to workforce system customers, the Recovery

Act allows Local Workforce Investment Boards (LWIB) to award contracts to

institutions of higher education, such as community colleges, or other eligible

training providers, if the board determines it would facilitate the training of multiple

individuals in high-demand occupations and if the contracts do not limit customer

choice. This provision of the law is in addition to the current methods for providing

training and is intended to help increase education and training enrollments and

capacity in a time when many states and educational institutions are experiencing

budget shortfalls, by allowing LWIBs to pay for the full cost of training at the

beginning of the course. Direct contracts with institutions of higher education and

eligible training providers also allow LWIBs to quickly design training to fit the

needs of job seekers and employers.

Training services include the full range of occupational skills training, adult

education and literacy services, and customized training as described in WIA section

134 (d)(4)(D). Before (sic) entering into such contracts, ETA encourages LWIBs to

assess current training offerings to ensure that the contracts are not duplicating

existing training courses and curricula. These training contracts can be performance-

based to ensure that they result in real outcomes for the students.

As part of the contract, the institution of higher education or eligible training

provider could develop curriculum for emerging sectors and enhance the capacity of

the institutions to ensure quality training within limited timeframes. As such, the

development of curriculum by institutions of higher education can be considered a

training activity under WIA, if it is developed in the context of providing training to

WIA participants. To be consistent with the timely spending of Recovery Act funds,

curriculum activities should focus on adapting existing or creating new curriculum

that will result in a short-term increase in training capacity, rather than long-term

curriculum development activities.

Institutions of higher education, such as community colleges, need not be on a state

list of eligible providers of training services in order to be awarded a contract with

Recovery Act funds. Other providers of training that are not institutions of higher

education must be on the state list of eligible providers in order to be awarded a

contract.‖

A note on nomenclature: ARRA refers to the authority of LWIAs to ―…award contracts… if

the board determines it would facilitate the training of multiple individuals…‖ These direct

contracts with educational institutions for multiple students, rather than the use Individual



September 2009 3

Training Accounts (ITAs) are often referred to as ―class-size contracts,‖ and are referred to as

such in DCEO policies and in this guide. However, they are not necessarily required to be

contracts which encompass an entire class of students. They could be for a portion of a class,

so long as an accepted method has been developed to allocate the costs of the class associated

with the WIA-registered students to the contract. Obviously, the fewer number of students

that are included in the training contract, the less distinct the arrangement becomes from a

standard ITA.

State of Illinois Policy

DCEO policy provides guidance on the provision of training under ARRA, including the

circumstances under which training contracts may be used. LWIAs and others interested in

developing training contracts should carefully review this policy.

The DCEO policy letter places the following additional limitations on the use of the training

contract vehicle:

1. Training contracts must be with an eligible training provider under Section 122;

2. Training contracts must be for programs on the approved list of training programs

for WIA;

3. Curriculum development is limited to six months;

4. Training contracts must be in high demand occupations as defined by State and local

policy;

5. Contract content requirements are specified; and

6. Special reporting requirements pertain to training contracts.



September 2009 4

Training Contract Options

Status of Illinois waiver requests and implications for training contracts:

As a supplement to the existing WIA training provisions as modified by ARRA, Illinois

presented several requests for waivers as part of its WIA and Wagner Peyser plan

modification. The state has now received a response from USDOL to these waiver requests.

USDOL has imposed two significant new limitations on the use of non-ITA training

mechanisms. First, it has restricted the authority of LWIAs to enter into contracts with

training providers to the ARRA funds. In other words, regular WIA Title I formula funds can

only be spent on training contracts if these contracts meet one of the exceptions to the use of

ITAs described in section 663.430 of the WIA Rules. It was hoped that since the ARRA

language itself did not specifically restrict the use of this training contract authority to the

ARRA funds, USDOL might take a more expansive view of this language, but it did not.

Second, while USDOL approved an expansion of the local waiver authority for incumbent

worker training (IWT) from 10 percent to 20 percent, it has limited the use of incumbent

worker training to dislocated worker funds only (no adult or youth funds) and will allow this

training to be done only in support of layoff aversion projects. In practice this means that

IWT cannot be done in support of general skills upgrading projects, such as an incumbent

worker bridge project for CNAs to move up to LPNs. These types of projects could still be

done with WIA funds, just not as IWT projects.

Finally, previous responses by USDOL to prior waiver requests had indicated that the local

statewide activities waiver authority under which the incumbent worker waiver had been

implemented also extended to other statewide activities (such as training contracts for

capacity-building). This interpretation would have allowed LWIAs to expend local funds on

class-size contracts, up to the ten percent waiver limit. USDOL has rescinded this

interpretation, and indicated that the (now) 20 percent waiver authority can only be used for

incumbent worker training as described above.



September 2009 5

Table 1 provides a summary of the guidance that Illinois has received from USDOL on the

status of waiver requests concerning the provision of training.

Table 1: WIA Title I Training Contract Options by Fund Source

Fund

Source:

Program: Permissible Contract Vehicles under ETA Guidance to

Illinois:

Individual

Training

Account (ITA)

Incumbent worker

training program

(IWT)

Class-size

contract (CSC)

Regular

WIA

Adult

Formula

Yes No Must meet

663.430

exception

Dislocated

Worker

Formula

Yes Yes for layoff aversion

only; restricted to 20

percent under waiver.

Must meet

663.430

exception

Youth

Formula

Yes under waiver No Yes

Statewide Yes Yes Yes

ARRA

WIA

Adult

Formula

Yes No Yes

Dislocated

Worker

Formula

Yes Yes for layoff aversion

only; restricted to 20

percent under waiver.

Yes

Youth

Formula

Yes under waiver No Yes

Statewide Yes Yes, but not with

Statewide Rapid

Response funds unless

approved by a waiver.

Yes

Due to the restrictions placed by USDOL on the use of local incumbent worker training, this

guide will not attempt to address how local IWT funds can be used to support bridge

programs.

Statewide WIA discretionary funds may still be expended on incumbent worker

training as well as training contracts. According to the state plan, DCEO will

―partner with industry organizations and employers and education and training

providers to utilize incumbent, customized, OJT, and class-sized training

mechanisms to accelerate training and provide transitional employment

opportunities for workers while in training where possible. State funds will be



September 2009 6

targeted to incumbent worker training because of current limitations in the use of

LWIA funds for incumbent worker training. DCEO will work with LWIAs to

coordinate state and local accelerated pre-employment training in targeted sector. In

addition, Illinois will use regular state WIA funds to expand access to sector-based

bridge programs to provide opportunities for low-skilled workers to access

accelerated training opportunities in the targeted key sectors. This will be done

through the Shifting Gears initiative.‖

DCEO will be issuing a solicitation in relation to training projects in support of its overall

sector initiatives, but this project is outside the scope of this guide.

The bottom line for the use of local WIA Title I funding is as follows:

WIA Adult and Dislocated worker ARRA funds can be used to operate class-size

training contracts outside the requirements of Section 663.430 (exceptions to use of

ITAs).

Regular formula Adult and Dislocated Worker funds can be used for training

contracts if these contacts meet one of the requirements of Section 663.430.

Youth funds of any type can be used for training contracts, since these funds do not

fall under the requirements for use of ITAs. Such funds would have to meet the

youth program eligibility and program element requirements. ARRA WIA youth

funds can be used to serve clients through age 24.



September 2009 7

Individual Training Accounts vs. Class-size Training Contracts

Having the authority under ARRA to enter into training contracts with educational

institutions and other approved training providers does not necessarily mean that it

will always be a good idea to do so. There are advantages and disadvantages to this

new authority.

Advantages of class-size training contracts include:

For occupational program areas where there is inadequate capacity, class size

contracts can enable training providers to invest in increased capacity, because

training contract costs can be used for curriculum development and instructor costs,

as well as the variable costs of student tuition and fees. The ITA mechanism is not

well-suited to this type of training capacity investment, because the ITA is normally

restricted to the off-the-shelf tuition and fee costs of the course or program.

Class size contracts can allow the LWIA to secure entry into programs for its clients

in situations where they might otherwise have to wait, because a contract can be

used to add an additional section of a course or courses specifically for the WIA

registrants. The use of an ITA reimbursement vehicle generally does not gain an

advantage for entry of clients, because it is not increasing capacity.

Class size contracts can help LWIAs respond directly to employer requests for

significant numbers of persons trained in a particular occupation, because they will

be able to enter into a direct class-size contract with one or more training providers

to conduct the training. ITAs can be used in this way as well, but it is a less direct

method.

Under the Illinois definition of training for the minimum training expenditure

requirement, staff costs for case management can be incorporated in a training

contract, so long as these costs are exclusively on behalf of WIA registrants enrolled

in a training class at that provider. This allows the LWIA to expand capacity for case

management and other staff services without increasing its base staff costs. The

provision of this type of staff support has been shown to be of significant benefit to

students enrolled in bridge programs. ITA costs can also contain the general staff

costs incurred by the training provider, but it is more difficult to incorporate special

staff costs for the WIA clients, since ITAs normally only cover the off-the-shelf tuition

and fees of a course or program.

Class size contracts can have performance requirements for the WIA outcomes

(employment, retention and earnings) that are more enforceable than those that can

be imposed via the ITA mechanism. Although educational institutions which qualify

to be on the statewide list for redeeming ITAs are subject to basic performance

minimums, these are set very low, so as not to unfairly exclude providers who

specialize in programs for hard-to-serve students. As a result, LWIAs usually

assume most of the responsibility for making sure that their clients make sound

program choices, complete their programs, and enter employment. Under a class-

size contract, this performance management requirement can be shared with the



September 2009 8

training provider by having realistic goals for program completion and entry into

employment.

In situations where there is adequate training capacity, but few providers, class size

contracts might be a more efficient vehicle for procuring and managing the delivery

of training. If there is only one training provider in the LWIA for nursing, it makes

little sense to run all the clients through the motions of a training provider selection

process that is designed to manage client choice among multiple providers.

Disadvantages of class-size training contracts include:

Class size contracts must be procured in a manner that meets the LWIA procurement

procedures. For ITAs, once the program is on the approved list, it can be purchased

on an individual basis without a separate procurement step.

Class size contracts require the LWIA to manage a relationship with a training

provider that has greater performance risk, since it may concentrate more of the

LWIA’s clients in a single provider or program. This situation would apply in a case

in which several training providers are available (e.g., truck driving schools) and the

WIA clients were spread across the schools. If the LWIA concentrated its truck

driving training in one or two providers via class size contracts, it might receive a

better deal, but it also would be taking on a greater performance risk.

Entry into a class-size contract must be accompanied by an agreement between the

CEO and board that the contract will be dissolved if it is not meeting contractual

requirements. This is an agreement that may be difficult to enforce in practice if

training institutions have significant influence on local boards.

The ARRA authority to enter into class-size contracts that do not meet the exceptions

under Section 663.430 of the WIA Rule, expires with the ARRA funds on June 30,

2011. Therefore these vehicles should probably not be used for training programs

that will last longer than this time, unless other mechanisms will be available to

complete the training sequences for clients (such as ITAs or contracts which meet one

of the Section 663.430 exceptions).



September 2009 9

Table 2 provides a comparison between the use of Class-size training contracts and

Individual Training Accounts (ITAs)

Table 2: WIA Training Contract Vehicles Advantages and Disadvantages

Contract

vehicle

Class-size training contract

(CSTC)

Individual Training Account

(ITA)

Training

capacity

Can be used to increase training

capacity

Focused on purchasing slots in

existing capacity, but not generally an

effective way to increase training

capacity

WIA client

access

Can be used to obtain access for

WIA clients

WIA clients must wait in same line as

all students

Employer

response

Can be used to customize a

response to training needs by an

employer or group of employers

Focused on purchasing training in

existing courses, not development of

customized training

Staff services Specialized staff services can be

incorporated as part of the

contract and charged to training

category

Only staff services that are normally

incorporated by the provider into its

tuition and fees expense

Performance

risk

Greater ability to impose

customized performance

requirements

Potentially greater performance

exposure

Statewide performance minimums are

too low, requires higher LWIA

requirements, which may not be

appropriate in all situations

If multiple providers are used,

performance risk is reduced

Procurement Must be procured in accordance

with LWIA contracting

procedures

No procurement process beyond

approval under WIA eligible training

provider process

Longevity Must meet 663.430 exception

after 6/30/2011

No restriction

Attachment A: Assessing the Utility of Employing a Class-Size Training Contract is a tool to

assist in determining whether a Class-Size Contract is the best choice for providing training.



September 2009 10

Bridge Programs Overview

What are bridge programs? Bridge programs prepare adults with limited academic or

limited English skills to enter and succeed in credit-bearing postsecondary education and

training leading to career-path employment in high-demand, middle- and high-skilled

occupations. The goal of bridge programs is to sequentially bridge the gap between the

initial skills of individuals and what they need to enter and succeed in postsecondary

education and career-path employment.

Overview of bridge program development in Illinois. Illinois has been engaged in a

multi-year effort, with support from the Joyce Foundation Shifting Gears Initiative, to

develop the bridge program concept and foster the implementation of bridge programs in the

state. According to the WIA state plan:

―ICCB-Shifting Gears-Establish Sector Bridge Programs:

DCEO partners with ICCB to support the statewide deployment of bridge

programs to serve lower skilled individuals. The Shifting Gears program was

underway prior to the Recovery Act, but it will serve as the model for bridge

programs funded by the Recovery Act. The model has two main components:

Statewide Sector-based Bridge Program Curriculum Materials: Develop

statewide model sector-based bridge program curriculum materials for

healthcare, manufacturing, transportation and logistics, and information

technology for both blended on-line and regular classroom instruction and

make widely available to all eligible providers and provide free access to

employers and workers through Illinois workNet. Curriculum materials

already developed under CSSI and ICCB-funded curriculum materials will be

used as a starting point for programs.

Outreach and Training to LWIAs: Provide outreach and training to LWIAs

on how to use sector-based bridge programs as access points to occupational

skills training programs for adults with low language and literacy skills so

that they have access to stimulus training provided through WIA formula

funding and other funding sources.

For those individuals that are out of high school, but not quite qualified to

enter certain key sector training, we will promote the use of bridge programs.

These flexible programs will allow individuals to receive skill upgrades in

reading and math quickly so that they are able to enter bona fide training

and education programs and be on their way toward employability in higher

level occupations.‖

DCEO has incorporated support for bridge program development into its WIA policies, and

provision of technical assistance to LWIAs. Again, according to the state plan:



September 2009 11

―DCEO and ICCB have recently partnered on innovative demonstration projects for

bridge programs. This is training that allows under-skilled clients to quickly improve

their reading and math skills so that they may enter bona fide training programs

that lead to meaningful, self-sustaining employment. These demonstration projects

have positioned Illinois to be ready to implement additional bridge programs using

Recovery Act funding, again increasing access to training to some of our harder to

serve clients. IWP has begun discussions with ICCB to expand the use of bridge

programs throughout the State. To assist the expansion of bridge programs and class

size training projects in general, DCEO is interested in helping streamline the

process for procuring contracted training services to the extent prudent and possible.

DCEO will also consider how reporting requirements on class size projects may

impact how quickly and widespread they are used by the LWIAs and community

colleges while keeping in mind federally mandated reporting requirements.‖

ICCB, the Bridge Program Task Force, and the Shifting Gears workgroup have collaborated

on the development of a bridge program definition, which begins below.



September 2009 12

FIGURE 1. BRIDGE DEFINITION AND CORE ELEMENTS

Bridge programs prepare adults with limited academic or limited English skills to enter and succeed

in credit-bearing postsecondary education and training leading to career-path employment in high-

demand, middle- and high-skilled occupations. The goal of bridge programs is to sequentially bridge

the gap between the initial skills of individuals and what they need to enter and succeed in

postsecondary education and career-path employment.

CORE ELEMENTS

Bridge programs assist students in obtaining the necessary academic, employability, and technical

skills through three required components—contextualized instruction, career development, and

support services. Required elements include:

Contextualized instruction that integrates basic reading, math, and language skills and

industry/occupation knowledge.

Career development that includes career exploration, career planning within a career area,

and understanding the world of work (specific elements depend upon the level of the bridge

program and on whether participants are already incumbent workers in the specific field).

Transition services that provide students with the information and assistance they need to

successfully navigate the process of moving from adult education or remedial coursework to

credit or occupational programs. Services may include (as needed and available) academic

advising, tutoring, study skills, coaching, and referrals to individual support services, e.g.,

transportation and child care.

o Note: Career development and transition services should take into account the needs

of those low-income adults who will need to find related work as they progress in their

education and career paths.

Eligibility

Bridge programs are designed for adults 16 years and older, who:

Have reading and math levels at or above the 6th grade through pre-college level or

English language proficiency at or above the low-intermediate ESL level

May or may not have a high school credential

May or may not be an incumbent worker

Specific eligibility requirements will depend upon the type of provider offering the bridge program and

program requirements. 1

1 Determination of WIA eligibility may be necessary to ensure the student meets the

minimum criteria as a WIA registrant. This is required of all students who are entered into a

training program funded in whole or partially by WIA Title I funds.



September 2009 13


PROGRAM DESIGN OPTIONS

A bridge program may be designed as 1) a single course (for students at higher reading and math

levels) that moves students directly into credit-bearing courses, with the aim of eliminating the need

for remediation or 2) a series of courses, in which students first complete a lower-level bridge course

that prepares them to enter a non-credit occupational course or program that leads to an entry-level

job. In this case, the student can stop out for needed work/income and return to a higher-level bridge

course without having to repeat content.

The bridge program must prepare students to enter credit-bearing courses and programs within one of

the 16 nationally recognized career clusters (see: http://www.careerclusters.org/16clusters.cfm). That

is, the course content must contain the knowledge and skills common for entry-level occupations

within a broad cluster (e.g. health sciences, manufacturing, information technology, etc.). This

curriculum design element exposes the student to career information and to information about the

skills and knowledge required by a broad range of occupational options within a cluster. The bridge

program must be of sufficient duration and intensity to produce these transition results.

Education and Training Providers (and partnerships):

Bridge programs may be provided by: (1) an Illinois Community College Board-approved and funded

adult education program2; (2) the remedial credit or non-credit department(s) of a community college;

and (3) community-based organizations or other types of provider that offer non-credit workforce

training.

Bridge programs may be offered by a single entity (e.g., a community-based organization or a

community college) or by a partnership (e.g., a community-based organization and a community

college). Regardless of the provider, they:

May provide opportunities to earn college credit (such as through escrow credit accounts)

May offer dual enrollment in credit and non-credit programs

May offer a multi-level program that moves people from an adult education course offered by

one provider to a non-credit occupational course offered by the same or another provider.

All bridge program providers will use pre-skill assessments consistent with program requirements to

place students into the appropriate courses as well as post-skill assessments to measure progress, and

all providers will use data tracking systems to collect and analyze key information about bridge

program participants and graduates.

2 ICCB-approved adult education providers currently include community-based

organizations, community colleges, regional offices of education, public school districts, the

Illinois Department of Corrections, and a university.

http://www.careerclusters.org/16clusters.cfm



September 2009 14


Outcomes: Short-Term

1. Higher number of low-income working adults enroll in postsecondary education

2. Bridge program graduates who enroll in credit programs will succeed in their courses.

Long-Term

1. Higher proportion of low-income working adults attain degrees and/or certificates

2. Higher proportion of Adult Basic Education (ABE)/GED, English-as-a-Second-Language

(ESL), Adult Secondary Education (ASE), and developmental/remedial adult learners

transition into and completion of associates degrees and/or certificates

3. Increase in earnings and job quality for low-income adults engaged in career pathways work.

Source: Illinois Community College Board

Why bridge programs? Bridge programs offer several advantages over traditional forms of

academic remediation:

Academic instruction that is contextualized to a particular career cluster or career

pathway is more relevant to students, because it is more closely linked with the

student’s career objective.

Bridge programs are often delivered in an accelerated format (with ICCB approval)

relative to the amount of time that students would consume acquiring the same skills

via traditional methods.

Bridge programs are often accompanied by higher levels of staff support with

students, through a transition coordinator or case manager, which contributes to

program completion.



September 2009 15

Example Bridge Program Models and Funding Options

The purpose of this section is to give three examples of career pathway models that lead to a

program of study which incorporate bridge courses, and identify potential funding sources,

including WIA Title I as appropriate. The section also discusses these funding options and

the issues associated with using WIA Title I to fund bridge programs.

Each of the example career pathway models is presented in the following tables:

The Pathway Description, provides a description of each pathway component, the entrance

requirements, and the exit credential if applicable, including the occupational employment

target for students completing that component. This table is presented beginning with the

lowest-skilled components and proceeding to the most skilled components as you move down

the table. The next step(s) for students are also indicated by the numbered components.

The Funding Options, identifies potential funding options for each component, and

summarizes key considerations in the use of each funding option.

Following the tables, there is a discussion of the funding options and issues.

The idea behind this section is to give examples to promote discussion and planning, not to

specify the only allowable mechanisms for funding these bridge programs. Each LWIA

should work with its educational institutions and other partners to identify opportunities

and develop responses which meet local needs.



September 2009 16

Table 3. (Adult Education Healthcare Bridge Model)

Career Pathway Model for English as a Second Language (ESL) to the Registered Nurse (RN) Program of Study:

Carreras en Salud, Instituto del Progreso Latino

Pathway Description Funding Sources

Pathway

Component

Description Entry Qualifications Exit Credential/

Employment Target

Potential Funding

Sources*

Considerations

1. ESL in a

Health Careers

Context

16 week ESL course

contextualized to

health careers.

Greater than or equal to

grade level equivalent

(GLE) of 6.0 on Test of

Adult Basic Education

(TABE).

No specific exit credential, but

completers can go on to VESL

(Component 2).

Adult

Education ESL

WIA Title I

short-term

prevocational

intensive

service

WIA Title I

youth

Adult Education funding must be

at least 51 percent to qualify for

AE students.

WIA significant performance risk

for adults or dislocated workers.

WIA youth funds may be more

appropriate if students qualify.

2. Vocational

ESL in a

Certified

Nursing

Assistant

(CNA) Context:

16 week VESL course

contextualized to CNA.


grade level equivalent

(GLE) of 7.0 on Test of

Adult Basic Education

(TABE).


completers can go on to the

CNA component (3), or Pre-

LPN Module A (Component 4).

Adult

Education ESL

WIA Title I

short-term

prevocational

intensive

service

WIA Title I

youth



AE students





3. CNA in a

GED context:

8-10 week CNA course

contextualized


English Reading 125 (64

points on Compass test

Certified Nursing Assistant

(CNA) certificate.

Completers may go on to Pre-

LPN Module A (Component 4)

Adult

Education ASE

WIA Title I ITA

WIA Title I

Class Size

Contract (CSC)



AE students

WIA only if strong linkages to

subsequent components

WIA CSC if used to provide other

supports

IPL currently uses private

foundation funding for this

component



September 2009 17





Pathway

Component


Employment Target

Potential Funding

Sources*

Considerations

4. Pre-Licensed

Practical

Nurse (LPN)

Module A

16 week intensive

academic remediation

course for students

wishing to meet

qualifications to enter

an LPN program.


GLE of 8.0 on TABE.

.

GED

Completers may go on to Pre-

LPN Module B (Component 6),

or may take PCT course

(Component 5)

Students take Compass test

and may qualify to go directly

to LPN core prerequisites

(Component 7).

WIA Title I ITA

WIA Title I

CSC




supports



component

5. Patient Care

Technician

Optional 8 week course

covering EKG and

phlebotomy technician

requirements.

Completion of CNA

certificate

Enrollment in Pre-LPN

Module A

Patient Care Technician WIA Title I ITA

6. Pre-LPN

Module B

16 week intensive

academic remediation

course for students

wishing to meet

qualifications to enter

an LPN program.


GLE of 10.0 on TABE, or

completion of Pre-LPN

Module A.

GED

Students take Compass test

and may qualify to go on to

LPN core prerequisites

(Component 7).

WIA Title I ITA

WIA Title I

CSC




supports



component

7. LPN Core

Prerequisites

[32] week academic

prerequisites for LPN

admission: Biology 226,

Mathematics 118,

English 101 and

Psychology 201.

GED

Placement into courses

based on COMPASS

scores


these courses are prerequisites

for entry into LPN program at

Wright College.

WIA Title I ITA

Pell Grant or

other student

assistance

WIA ITA if policy allows use for

prerequisite coursework



component



September 2009 18





Pathway

Component


Employment Target

Potential Funding

Sources*

Considerations

8. Licensed

Practical

Nurse (LPN)

program

12 months (three

semesters)

26 credit hours

Successful completion of

LPN core academic

sequence

Admission to the program

LPN certificate

NCLEX-PN

WIA Title I ITA

Pell Grant or

other student

assistance

WIA ITA may require policy to

permit use of more than one ITA

per client if ITA was used earlier

in sequence.

WIA CSC if used to address

capacity limitation.

9. Registered

Nurse (RN)

program

[12] months (three

semesters)

[26] credit hours

Successful completion of

LPN program

Associate Degree in Nursing

(RN)

NCLEX-RN

WIA Title I ITA

Pell Grant or

other student

assistance

WIA ITA may require policy to

permit use of more than one ITA

per client if ITA was used earlier

in sequence.



Sources: Pathway description provided by Glenda Nicke, Black Hawk Community College, June, 2009.

(1) A Cross-Case Analysis of Career Pathway Programs that Link Low-Skilled Adults to Family-Sustaining Wage Careers National Research Center for Career and Technical

Education, University of Minnesota, October 2007, Debra D. Bragg, Christine D. Bremer, Marisa Castellano, Catherine Kirby, Ann Mavis, Donna Schaad, Judith Sunderman,

pp. 19-32.

(2) Carreras En Salud: A Chicago Bilingual Health Care Career Pathways Partnership, 2008, National Council of La Raza, Frank Mirabal.



September 2009 19

Table 4. (Adult Education Transportation, Distribution, and Logistics Bridge Model)

Black Hawk College Warehouse Distribution Specialist Pathway to the AAS, AS, and/or BA Program(s) of Study


Pathway

Component


Employment Target

Potential Funding

Sources*

Considerations

1. Adult

contextualized

ESL

16 week English as a

Second Language

instruction

contextualized to TDL

sector

CELSA scores at high

intermediate or advanced

level required (30-75 range).

Entry point for ESL

students

Entry into Components (3) or

(4). Adult

Education ESL

WIA Title I

short-term

prevocational

intensive

service

WIA Title I

youth



AE students.







2. Adult

contextualized

GED

Variable week Adult

GED course using

PLATO

TABE of 9.0 reading

required. No high school

diploma or GED.

Entry point for ASE

students

Most achieve GED

Entry into Components (3) or

(4)

Adult

Education ESL

WIA Title I

short-term

prevocational

intensive

service

WIA Title I

youth



AE students.







3. Warehouse

Distribution

Specialist,

Option 1

13 Week accelerated

certificate program

10 credit hours

For ESL, completion of

contextualized curriculum

(1) and recommendation of

their instructor served as

the entrance criteria. An

ESL student who had not

completed the


would be required to score a

65 on both the Michigan

Warehouse Distribution

Specialist (WDS) certificate

and possibility of entry-level

employment.

The 10 credits earned for the

WDS certificate will apply to

the 34 credit Logistics and

Warehousing Certificate and

can also be applied to the

WIA Title I

ITA

WIA Title I

Class Size

Contract (CSC)



WIA clients may require

accelerated option (1) or (2).

4. Warehouse

Distribution

Specialist,

Option 2

25 Week accelerated

certificate program

10 credit hours



September 2009 20




Pathway

Component


Employment Target

Potential Funding

Sources*

Considerations

5. Warehouse

Distribution

Specialist,

Option 3

52 Week certificate

program

10 credit hours

Test of Aural

Comprehension (MTAC)

and the Michigan Test of

English Language

Proficiency (MTELP) and

score at least at the

Intermediate level in

composition OR complete

ESL Level 6 and 7

developmental classes. For

GED, completion of


and recommendation of

GED instructor and case

manager required, GED

completion recommended.

Associate in Applied Science

General Occupational and

Technical Studies degree.

Students who qualify may

enter Components (6), (7),

(8), or (9).



September 2009 21




Pathway

Component


Employment Target

Potential Funding

Sources*

Considerations

6. Logistics

and

Warehousing

Certificate

3 semester certificate

program which builds

on (4) with expanded

math, business and

economics courses

(Pending ICCB

approval)

24 credit hours

Math Compass score of 32

or above required. ESL

students must also score a

65 on both the Michigan

Test of Aural

Comprehension (MTAC)

and the Michigan Test of

English Language

Proficiency (MTELP) and

score at least at the

Intermediate level in

composition OR complete

ESL Level 6 and 7

developmental classes.

Logistics and Warehousing

Certificate

Students can apply credits

toward the Associate in

Applied Science General

Occupational and Technical

Studies degree. Some credit

would also transfer to the

Associate in Science in

Supply Chain Management

degree and ultimately to the

B. A. in Business Supply

Chain Management.


enter Components (7), (8), or

(9).

WIA Title I

ITA

WIA Title I

CSC

Pell Grant or

other student

assistance



7. Inventory

Specialist

Certificate

3 Semesters

29-31 credit hours

Note: No classes from

the WDS certificate

apply to this

certificate.

Same as (6) Logistics and

Warehousing Certificate.

Inventory Specialist

Certificate

Some credit would also

transfer to the Associate in

Science in Supply Chain

Management degree.


enter Components (8) or (9).

WIA Title I

ITA

WIA Title I

CSC

Pell Grant or

other student

assistance





September 2009 22




Pathway

Component


Employment Target

Potential Funding

Sources*

Considerations

8. Associate in

Applied

Science

General

Occupational

and Technical

Studies

4 semester

64 credit hours

Students pursuing this

degree will have completed

certificates or may have

been involved in an

apprenticeship program.

Entrance criteria may vary

depending on certificates

and courses already

completed.

AAS in General Occupational

and Technical Studies

WIA Title I

ITA

Pell Grant or

other student

assistance

9. Associate in

Science in

Supply Chain

Management

4 semester

64 credit hours

Transfer program. To enter

without taking

developmental classes or

other prerequisites,

students must score at least

66 on Compass writing,

above 99 in reading, and at

least 46 in math. ESL

students would also need to

score above 80 on both the

MTAC and MTELP

components of the Michigan

and above the Advanced

Level of the Michigan

writing.

AS in Supply Chain

Management

Transfer to (10)

WIA Title I

ITA

Pell Grant or

other student

assistance

10. BA in

Business

4 semester

WIU BA in Business,

Supply Chain

Management

AS in Supply Chain

management or other

transfer credit.

BA WIA Title I

ITA

Pell Grant or

other student

assistance

WIA ITA may be appropriate for

students who need additional

financial support to complete the

program.

* Potential fund sources include allowable sources, not only sources currently in use for this model

Sources: Pathway description provided by Glenda Nicke, Black Hawk Community College, June, 2009.



September 2009 23

Table 5. (Developmental Education Manufacturing Bridge Model)

College of DuPage Project Right Start: A Bridge Project to Prepare Students for Postsecondary Education Leading to Careers in Manufacturing


Pathway

Component


Employment Target

Potential Funding

Sources*

Considerations

1.

Fundamentals

of Product

Design and

Fabrication

24-week bridge course

10 credits

Test at developmental level

in [math] based on the

[compass?] test

Entry level assembly,

machining and quality

control.

WIA Title I

ITA

WIA Title I

Class Size

Contract (CSC)



2.

Manufacturing

Technology

certificate

program

2 semester

34 credits

Appropriate Compass scores

in math, reading and

writing

Manufacturing Technology

Certificate based on

Manufacturing Skills

Standards Council (MSSC)

curriculum

Mid-level positions in quality

control, safety, and

machining.

WIA Title I

ITA

WIA Title I

Class Size

Contract (CSC)



3. Associate in

Applied

Science

program

65 credits Appropriate Compass scores

in math, reading and

writing

AS degree/ Manufacturing

Technician

Entry level positions in

engineering, manufacturing

technician.

WIA Title I

ITA

4. Bachelors in

Science

program NIU

108 credits AS degree and appropriate

transfer credits

BS degree

Industrial engineer,

supervisor, lead technician.

WIA Title I

ITA

WIA ITA may be appropriate for

students who need additional

financial support to complete the

program.

* Potential fund sources include allowable sources, not only sources currently in use for this model.



September 2009 24

Discussion of Funding Options:

Adult Education (WIA Title II). Sections 201 through 251 of the Workforce Investment

Act of 1998 describe the program elements and requirements of WIA Title II. This title may

be cited as the "Adult Education and Family Literacy Act". It is the purpose of this title to

create a partnership among the Federal Government, States, and localities to provide, on a

voluntary basis, adult education and literacy services, in order to (1) assist adults to become

literate and obtain the knowledge and skills necessary for employment and self-sufficiency;

(2) assist adults who are parents to obtain the educational skills necessary to become full

partners in the educational development of their children; and (3) assist adults in the

completion of a secondary school education.

Adult Education is defined as instruction and support services below the postsecondary level

for individuals (A) who have attained 16 years of age; (B) who are not enrolled or required to

be enrolled in secondary school under state law; and (C) who:

• lack sufficient mastery of basic educational skills to enable the individuals to

function effectively in society;

• do not have a secondary school diploma or its recognized equivalent, and have not

achieved an equivalent level of education; or

• are unable to speak, read, or write the English language.

Adult Education Programs funded through the ICCB provide a variety of instruction to

individuals who meet the above criteria. These instructional categories include: English-as

a Second Language (ESL), Adult Basic Education (ABE), and Adult Secondary Education

(ASE), High School Credit (HSCR), and Vocational Training (VOC).

Adult Education must meet five performance measures as required under WIA-Title II Adult

Education. They include: Educational Attainment, Post-Secondary Transition, Retain

Employment, Obtain Employment, and GED/High School Completion. These measures are

reported annually to the Department of Education-Office of Vocational and Adult Education.

Bridge Program Development and Instruction

Bridge Programs have been added to the adult education instructional offerings under the

ESL, ABE, and ASE categories. Bridge Programs under these categories are an allowable

activity under adult education; however some restrictions may exist due to the intent of the

law. In addition, Adult Education Programs offering bridge programs must meet the criteria

as established under the statewide definition of a ―Bridge Program‖ as well as policies and

procedures outlined in the Adult Education Provider Manual.

The use of Adult Education Funding for Bridge Programs

All state and some federal adult education resources can be used in the development of

contextualized curriculum/instruction which integrates basic skills and

occupational/vocational specific terminology. This contextualized curriculum may be taught

in ESL, ABE, or ASE. This curriculum and the subsequent instruction will allow students to



September 2009 25

grasp the basic skills that are needed while gaining specific career pathway knowledge and

skills that will prepare them to enter postsecondary education and/or employment.

There are some restrictions. For example, Federal adult education funds cannot be used in

the delivery or the development of vocational training (VOC) and occupational programs.

Adult Education programs must consult the Illinois Community College Board (ICCB) for

other policies related to the development and delivery of Bridge Instruction.

WIA Title I Youth. WIA section 129(c) describes the program elements and requirements

for services to eligible youth. These programs are intended to provide:

―…(i) preparation for postsecondary educational opportunities, in appropriate cases;

(ii) strong linkages between academic and occupational learning; (iii) preparation for

unsubsidized employment opportunities, in appropriate cases; and (iv) effective

connections to intermediaries with strong links to (I) the job market; and (II) local

and regional employers.‖

Among the ten required local elements for WIA Title I youth programs are: ―(A) tutoring,

study skills training, and instruction, leading to completion of secondary school, including

dropout prevention strategies;‖ and …‖(E) occupational skill training, as appropriate.‖

There may be circumstances where WIA youth funds could be an appropriate source of

funding for bridge programs for younger adults. Outcomes for adult education bridge

programs, which include increased skill levels, completion of the GED, and entry into post-

secondary instruction, are more aligned with the performance requirements for WIA youth

programs than they are with WIA adult and dislocated worker programs, which emphasize

employment, employment retention and earnings. Therefore, using WIA youth funds for

these programs imposes a much lower performance risk.

PY 00 WIA Policy Letter No. 012 and associated materials describes the eligibility

requirements for WIA Title I, including youth program eligibility. These documents can be

accessed via the DCEO website.

Eligibility for WIA Title I youth funding is limited to youth who are 14 through 21 at

registration. ARRA expanded this age range to include youth from 14 through 24 for use of

ARRA funds.

Youth training activities may be procured with the use of an ITA under a waiver obtained by

Illinois, but they are not required to use an ITA. Bridge programs and other training

services funded with WIA Title I youth funds may be procured via the LWIA’s regular

procurement method for youth programs.

WIA Title I Adult and Dislocated Worker, Short-term Prevocational Intensive

Services. WIA section 134 (d)(3)(C) describes the types of intensive services that may be

provided to Adults and Dislocated Workers, including:

http://www.commerce.state.il.us/dceo/Bureaus/Workforce_Development/Resources/WIA+Policy+Letters.htm



September 2009 26

―Short-term prevocational services, including development of learning skills,

communication skills, interviewing skills, punctuality, personal maintenance skills, and

professional conduct, to prepare individuals for unsubsidized employment or training.‖

663.200 of the WIA Rules expands on the definition in WIA:

―The list in the Act is not all-inclusive and other intensive services, such as out-of-area

job search assistance, literacy activities related to basic workforce readiness,

relocation assistance, internships, and work experience may be provided, based on an

assessment or individual employment plan.‖

DCEO has included ―internships, literacy activities‖ in the definition of intensive services.

Chicago has included ―Basic language skills including English as a Second Language (ESL)

and other language or literacy skills not directly related to a specific occupation or

occupational skills training program.‖3

The main principle that justifies the use of WIA prevocational intensive services is the idea

that the literacy activity is preparing the person to enter subsequent vocational instruction.

Generally, bridge programs, particularly bridge programs in an adult education context,

have this as their primary objective. As long as the student is not obtaining an occupational

credential as a result of the instruction, the program could most likely be justified as

prevocational in nature.

LWIAs could therefore consider funding these activities as prevocational intensive services.

The advantage of doing this is that the provisions of WIA Section 134(d)(4)(G)(ii), which

requires the use of ITAs except in limited circumstances, only applies to training services as

described in Section 134(d)(4), not to intensive services. LWIAs are free to issue grants or

contracts for intensive services as described in Section 663.210 of the Rule:

―Intensive services may be provided directly by the One-Stop operator or through

contracts with service providers, which may include contracts with public, private for-

profit, and private non-profit service providers (including specialized service providers),

that are approved by the Local Board.‖

While the use of the intensive services category avoids the limitations imposed by the

requirement to use ITAs, the other requirements of WIA registered services still apply,

including eligibility and performance accountability. Therefore, the use of WIA Adult and

Dislocated Worker intensive services should only be used when the bridge program is part of

a larger career pathway opportunity that includes strong linkages between components, and

a commitment on the part of the training institution to support students through multiple

steps along a pathway, culminating in a training credential and entry into employment.

3 Other states have expanded on the definition of intensive services. Washington State and

Ohio have classified ―Literacy activities related to basic workforce readiness (20 CFR

663.200(a))‖ as an intensive service. Idaho DOL includes ―Basic skills training such as GED,

language, math or computer skills‖ as an intensive service.



September 2009 27

WIA Title I Adult and Dislocated Worker, Individual Training Accounts. The ITA is

still probably the best mechanism to use for funding training components under the following

conditions:

The training is occupational in nature (i.e., it prepares students for employment in a

specific occupation or leads to an occupational credential, rather than preparing

students for entry into such a program);

The training is on the approved list of WIA eligible training programs (or can quickly

get on the list);

The training program is expected to last beyond June 30, 2011 (when the ARRA

authority to conduct class size contracts expires); and

There is not sufficient client interest in the program to justify the creation of a class-

size contract.

WIA Title I Adult and Dislocated Worker, Class Size Contracts. As described above,

ARRA provides LWIAs with expanded authority to enter into contracts for training with

educational institutions to train WIA clients for demand occupations. LWIAs should

consider the option of implementing a class size contract for training under the following

conditions:

The training is occupational in nature (i.e., it prepares students for employment in a

specific occupation or leads to an occupational credential, rather than preparing

students for entry into such a program);

The training program combines preparation and occupational instruction, or is too

long term to justify as a prevocational intensive service;

The training is not expected to last beyond June 30, 2011 or if so, it meets one of the

exceptions to ITAs listed in Section 663.430 of the WIA Rule; and

There is sufficient student interest in the training to justify the creation of a class-

size contract.

For LWIAs considering the use of a class size contract for bridge programs (or any form of

training, for that matter) the balance of this guide addresses two key aspects of this decision:

1) procurement of these contracts, and 2) managing the performance of these contracts.



September 2009 28

Procuring Training Grants and Contracts

LWIAs may award grants or contracts to institutions of higher learning or

other eligible training providers by following established procurement

guidelines and/or by taking advantage of any flexibility provided by Training

and Employment Guidance Letters that is passed on to local areas by the

State.

-- WIA State Plan modification

This section discusses procurement of training projects, and outlines a procedure for using a

Request for Proposal method. As previously discussed, the advantage of ITAs is that they do

not require separate procurement steps beyond the initial and subsequent certification of the

training provider and program. Non-ITA training contracts, including class-size contracts

under ARRA, must be procured in compliance with whatever procurement regulations apply

to your organization.

A good starting point for thinking about procurement of a class size contract it to complete

the Attachment A: Assessing the Utility of a Class-size Training Project tool.. This tool

will help the LWIA determine the following aspects of the procurement environment:

What are the training needs?

What types of training are most suitable for a non-ITA response?

Who can provide the desired training?

How can we use a grant or contract vehicle to leverage access for our clients?

How can we use a grant or contract vehicle to improve results?

Request for Proposal (RFP):

Background

Requests for Proposals may be initiated by the Grantee (the State of Illinois through a grant

received from the Federal Government) or by a Sub-Grantee (a community college, adult

education provider, local workforce investment board, or other entity who has received a

grant from the State and is wishing to secure services with these funds). An RFP should be

used if your organization is seeking to secure training or other services, conversely, an

application should be completed and submitted if you are interested in providing such

training or other services. Most importantly in either instance is determining eligibility. As

the developer of an RFP, it is critical that the eligible respondents are clearly listed in order

to address the appropriate potential applicants. As an applicant, you must ensure you

understand eligibility criteria prior to submitting an application.

The State will generally (but not always) utilize both public notification and a bidder's

conference to provide information potential applicants of their RFPs. The public notification

is an opportunity to provide the public with initial information about funding opportunities.

A bidder's conference is utilized to provide additional information to potential applicants and



September 2009 29

allows an opportunity for interactive discussion amongst State representatives and bidders.

While not always mandatory to attend, participation may be critical to the success of an

application.

The RFP Process

This section describes the process that should be used to request submissions for training or

other services. More specifically, this guidance addresses a request for training services. It is

easily adapted to be used in developing an RFP for other services, as well.

Once a determination is made that the type of training to be provided would best be done

through a grant or contract, rather than an ITA, the next step is to determine what method

should be used to select the training provider.

A Request for Proposals (RFP) process should be used to procure class-size or other non-ITA

training projects if 1) procurement rules for your organization require an RFP process; or 2)

if management considers it advantageous to use an RFP process.

The general process for using an RFP and issuing a grant for a training project involves the

following steps, which are discussed in greater detail in the balance of this section: 1)

Authoring the RFP, 2) Reviewing and Selecting a Proposal, 3) Negotiating and Executing the

Grant, and 4) Post-Award Activities.

1. Authoring the Request for Proposals (RFP). Prior to writing the RFP, first

research the project idea sufficiently to specify the requirements of the RFP and

uncover any unanticipated implications of going forward with the project. This

should include consultation with management, contacting similar projects to learn

about their experiences, conducting internet searches, reviewing relevant statutes

and regulations, and making a final decision on doing an RFP.

Once this background research has been completed and management has decided to

go forward with an RFP, your goal should be to author an RFP that provides

potential applicants with contextual information surrounding the solicitation,

specifies the work requirements, provides guidance regarding how to submit a

proposal, and describes the criteria and procedures that will be used to select

applicants for funding.

Attachment B: Checklist for Training Project Request for Proposal Content

can be used to help organize the content of the RFP, and to ensure that all of the

critical elements of the RFP are included. Each organization’s environment differs,

of course, and individual training projects have unique requirements. This chceklist

should be adapted to serve the user's unique situation and needs.



September 2009 30

2. Reviewing and Selecting Proposals: The objectives of the RFP review process

should be as follows:

Ensure that all communication with potential respondents is consistent with the

information presented in the RFP and that the questions and your responses are

recorded.

Ensure that all proposals are reviewed by a qualified team in accordance with the

procedures outlined in the RFP and that the results of the review are

documented and records are retained.

Ensure that the review is well organized and proceeds according to a schedule

that allows for the timely obligation of grant awards.

Ensure that all proposals recommended for funding are analyzed for issues,

either programmatic or budgetary, that should be negotiated prior to making an

award.

Ensure that the results of the review are efficiently presented to management for

final funding decisions.

Ensure that the results of the review are communicated with all applicants.

3. Negotiate and Executing the Grant or Contract: Once the successful

proposal is identified, the next step is to negotiate and execute the grant or contract.

The objectives of this process should be as follows:

Ensure that grant requirements are clearly defined and can be monitored for

compliance by inclusion of a detailed work statement, budget, and

implementation schedule.

Ensure that the grant clearly identifies who is to conduct the work by inclusion of

a description of the grantee’s project team with specific activities associated with

team members.

Ensure that your organization receives the intended benefit from grant-

sponsored activities by inclusion of descriptions of deliverable products.

Ensure that your organization has a contractual basis to exercise the desired

level of control over implementation of grant-sponsored activities by inclusion of

appropriate programmatic and budgetary controls.

Ensure that all parts of the grant document (e.g., work statement, budget, and

boiler plate) are internally consistent.

Ensure that there is understanding and consensus between you and the grantee

regarding the grant requirements and ongoing grant-related procedures (e.g.,

cash management, grant modifications, and reporting).

4. Post Award Activities: Following execution of the grant or contract, several

post-award activities should be conducted to facilitate successful implementation of

the grant or contract. These include:

Establish Access to Reporting Systems: Ensure that arrangements are in place to

allow the grantee access to reporting systems.

Orient Grantees to Management Procedures: Ensure that the grantee is briefed

on grant requirements and procedures related to grants management, reporting,

corrective action, and technical assistance.

Participate in Monitoring: Coordinate desk monitoring of reports and

deliverables with on-site monitoring and request corrective action and technical

assistance, as needed.



September 2009 31

Review Deliverables: Establish procedures to receive and review reports and

deliverable products.

Provide Other Grants Management Services: Provide ongoing grant management

services, such as processing requests for grant modifications, approval of cash

disbursements, and provide other information and technical assistance, as

requested.

Prepare Progress Reports: Prepare periodic reports for management regarding

grantee achievement of objectives.

Maintain Grant File: Maintain a file including all grant-related documents such

as: the executed grant; modifications; internal and external correspondence;

reports; deliverable products; and public relations (PR) materials.



September 2009 32

Performance Management for Training Grants and Contracts

WIA Title I has significant performance management requirements, including tough

sanctions for LWIAs which fail to meet negotiated goals for one or more of the WIA Title I

measures. Therefore, it is important that LWIAs carefully assess the potential impact of any

training project on the overall LWIA performance. In addition, prospective bridge program

providers must be cognizant of these performance requirements and willing to design

programs in a manner that is consistent with success as defined by the applicable

performance measures.

The Illinois Department of Commerce and Economic Opportunity Bureau of Workforce

Development, Division of Performance Management is responsible for the implementation

and success in achieving the 9 federally-imposed performance goals and developing a

performance standards system to ensure compliance with the Workforce Investment Act.

The U.S. Department of Labor (USDOL) negotiates performance goals with Illinois for each

of the 9 performance measures on a bi-annual basis. In turn, the State negotiates

performance goals with each of the 26 local workforce investment areas (LWIA). Since the

State is responsible for meeting or exceeding its performance goals, the 26 LWIAs must

manage their performance in order for the state to be successful. Performance measures are

divided among funding streams which include adults (1A), dislocated workers (1D), and

youth (1Y) age 14-21 (under 22) at registration. (Eligibility for the ARRA youth funds

include youth up to age 24 at registration).

The State is rewarded with incentive money if all 9 performance measure outcomes meet or

exceed 90% of the negotiated goal and at least one performance measure outcome meets or

exceeds 100% of the negotiated goal. The incentive money is then awarded to the LWIAs

whose performance meets the criteria listed above and outcomes are at least 80% of their

negotiated goal. If an LWIA fails one performance measure they are precluded from

receiving any incentive money and will be subject to ongoing technical assistance by the

State. If the State fails one performance measure, sanctions could cause the loss of allocation

of funds.

Participants who are enrolled with statewide 15% funds to support a bridge program will

be included in statewide WIA performance outcomes. The Bureau will negotiate appropriate

goals with each of its 15% grantees based on the goals of the project, sector, and persons

being served. LWIAs that enroll participants using ARRA funds to support bridge

programs will be included in local performance measure outcomes. These participants must

meet WIA eligibility criteria and be enrolled as registrants in the Illinois Workforce

Development System (IWDS). Participants of an Incumbent Worker Training (IWT)

program are not included in statewide or local WIA performance measure outcomes.



September 2009 33

PY 2009 WIA Title I Performance Measure Definitions

Following are the nine (9) performance measures for which Illinois has negotiated

goals for Program year 2009 and a definition of each measure.

Youth Attainment of a Degree or Certificate (ADC): Of those youth enrolled in

education (at the date of participation or at any point during the program): the number of

youth participants who attain a diploma, GED, or certificate by the end of the third

quarter after the exit quarter divided by the number of youth participants who exit

during the quarter.

Youth Placement in Employment or Education (PEER): Of those youth who are not

in post-secondary education or employment (including the military) at the date of

participation: the number of youth participants who are in employment (including the

military) or enrolled in post-secondary education and/or advanced training/occupational

skills training in the first quarter after the exit quarter divided by the number of youth

participants who exit during the quarter.

Youth Literacy and Numeracy Gains (LNG): Of those out-of-school youth who are

basic skills deficient: the number of youth participants who increase one or more

educational functioning levels divided by the number of participants who have completed

a year in the youth program (i.e., one year from the date of the first youth program service

plus the number of participants who exit before completing a year in the youth program.

Adult Entered Employment Rate (AEER): Of all adults who were not employed at

registration: the number who enter employment in the quarter after exit divided by the

number who exit during the quarter.

Adult Employment Retention Rate (AERR): Of all adults who are employed in the

first quarter after exit: the number of adults who are employed in the second and third

quarter after exit divided by the number of adults who exit during the quarter.

Adult Average Earnings (AAE): Of all adults who are employed in the first, second,

and third quarter after exit: the total earnings in the second quarter plus total earnings

in the third quarter after the exit quarter divided by the number of adults who exit

during the quarter.

Dislocated Worker Entered Employment Rate (DEER): Of all dislocated workers:

the number of dislocated workers, who enter employment in the quarter after exit

divided by the number of dislocated workers who exit during the quarter.

Dislocated Worker Employment Retention Rate (DRR): Of all dislocated workers

who are employed in the first quarter after exit: the number of dislocated workers who are

employed in the second and third quarter after exit divided by the number of dislocated

workers who exit during the quarter.

.

Dislocated Worker Average Earnings (DAE): Of all dislocated workers who are

employed in the first, second, and third quarter after exit: the total earnings in the second

quarter plus total earnings in the third quarter after the exit quarter divided by the

number of dislocated workers who exit during the quarter.



September 2009 34

This does not mean that all training projects must be expected to achieve the same

performance levels. Projects will vary in their outcomes based on the types of clients being

trained, the career objectives, and the program design, as well as other less predictable

factors such as staff interaction and client motivation. Local areas will need to ensure that

the overall performance of all of its training programs combined meet their locally agreed

upon goals. If projects are to be allowed to have different outcome goals, LWIAs will need to

be able to address the following issues:

Will the overall result of the mix of all projects yields an acceptable performance

result for each of the applicable measures?

Is there a practical and fair method to determining what the goals should be for each

project?

This section addresses these issues.

Assessing Impact: The following table (Table 6) is provided as an aid in estimating the

impact of a training project on the overall performance of the LWIA. In order to complete

this table, the LWIA must have estimates of the following for the planned project, and for the

balance of the LWIA:

Number of planned registrants,

Number of planned exiters,

Planned number entering employment,

Planned employment retention,

Estimated hourly earnings of persons who will enter employment, and

Estimated average hours per week expected to be worked.

With these estimates, and the instructions below, the LWIA can derive an expected

performance impact from the project. This can assist the LWIA in deciding what

performance levels must be achieved by the project in order for overall LWIA performance to

achieve required levels.

This tool shows that performance impacts are a product of the size of the project relative to

the balance of the LWIA activity, as well as the results of the project. The larger the project

becomes in terms of exiters, the more important it is that the project achieves acceptable

outcomes.



September 2009 35

Table 6. Estimating Training Project Performance Impacts

(A)

Project

Results

(B)

Other LWIA-

level Results

(C)

Totals

(D)

Performance

Impact

[(C)-(B)]

(1) Registrants

(2) Exiters

(3) Entered Employment

(4) Entered Employment Rate

[(3)/(2)]

(5) Employment Retention

(6) Employment Retention Rate

[(5)/(3)]

(7) Estimated Avg. Hourly

Earnings

(8) Estimated Avg. Hours per

Week

(9) Estimated Avg. Earnings Level

[(7)*(8)*26]

Instructions for completion of the Estimating Training Project Performance Impacts table:

1. Registrants: Enter the estimate number of WIA registrants for the project (A), and

other LWIA registrants (B). Column C is sum of (A) and (B).

2. Exiters: Enter the estimate number of exiters for the project (A), and other LWIA

exiters (B). Column C is sum of (A) and (B).

3. Entered Employment: Enter the estimated number of exiters who will be employed

in the first quarter post-program for the project (A), and other LWIA exiters (B).

Column C is sum of (A) and (B).

4. Entered Employment Rate: Compute the percentage (3) of (2) for Columns (A), (B)

and (C).

5. Employment Retention: Enter the estimated number of exiters entering employment

who will remain employed in the second and third quarters post-program, for the

project (A), and other LWIA exiters (B). Column C is sum of (A) and (B).

6. Employment Retention Rate: Compute the percentage (5) of (3) for Columns (A), (B)

and (C).

7. Estimated Average Hourly Earnings: Enter the estimated average hourly earnings

for exiters who enter employment for the project (A), and other LWIA exiters (B).

Column C is obtained by the following calculation:

Multiply Column (A), Row (7) by Column (A), Row (5)

Multiply Column (B), Row (7) by Column (B), Row (5)

Add the values

Divide the sum by Column (C), Row (5)



September 2009 36

8. Estimated Average Hours per Week: Enter the estimated average hours worked per

week for exiters who enter employment for the project (A) and other LWIA exiters

(B). Column C is obtained by the following calculation:

Multiply Column (A), Row (8) by Column (A), Row (5)

Multiply Column (B), Row (8) by Column (B), Row (5)

Add the values

Divide the sum by Column (C), Row (5)

9. Estimated Average Earnings Level: Compute the values for Columns (A), (B), and

(C) as follows: Row (7) X Row (8) X 26 (the number of weeks in two quarters).

Performance Impact (Column D): Column (C) minus Column (B).

Table 7 – provides an example of this analysis for a hypothetical training project.

Table 7. Estimating Training Project Performance Impacts (Example)

(A)

Project

Results

(B)

Other LWIA-

level Results

(C)

Totals

(D)

Performance

Impact

(1) Registrants 20 200 220 20

(2) Exiters 15 120 135 15

(3) Entered Employment 10 100 110 10

(4) Entered Employment Rate

[(3)/(2)] 66.7% 83.3% 81.5% -1.85%

(5) Employment Retention 7 75 82 7

(6) Employment Retention Rate

[(5)/(3)] 70.0% 75.0% 74.5% -0.45%

(7) Estimated Avg. Hourly

Earnings $10.00 $12.00 $11.83 ($0.17)

(8) Estimated Avg. Hours per

Week 35.0 35.0 35.0 0.00

(9) Estimated Avg. Earnings Level

[(5)*(7)*(8)*26] $9,100.00 $10,920.00 $10,764.63 -$155.37

Setting expectations: LWIAs must set a reasonable performance expectation for any

training contract prior to its initiation. This should be done on an individual project basis if

at all possible. Attempting to impose identical goals on all contracts will tend to discourage

the use of these contracts for any situation involving hard-to-serve clients. Since lower-

skilled students are the focus of bridge programs, contracts which incorporate support for

bridge programs will by definition be reaching a harder to serve clientele.



September 2009 37

Some of the factors to consider when setting performance expectations for a training contract

are:

Employability of the targeted population:

o Basic skill levels

o Educational levels

o Prior work experience

Career targets of the training program:

o Job opportunities for the occupation(s) for which students are prepared

o Earnings experience of students in the targeted occupation

Likelihood of successful completion:

o Duration of the training required prior to entry into employment

o Number of discrete steps

o Nature of support mechanisms that students will have along the way

To the extent possible, the LWIA should compare the proposed training program to past

results for programs serving similar clients, similar occupations, and similar educational

settings.



September 2009 38

Other Exceptions to ITAs

This guide is focused on the use of training contracts to support bridge programs under WIA,

employing the class-size contract authority provided under ARRA. However, there are other

general exceptions to the use of ITAs under WIA. These exceptions include:

Customized training,

Limited service provider availability, and

Community Based Organizations (CBOs) and other private organizations of

demonstrated effectiveness in serving hard-to-serve clients.

Since the ARRA authority for class-size contracts is temporary, LWIAs should consider

whether training projects undertaken with ARRA funds might qualify under one of these

exceptions to ITAs. If so, they can be continued after ARRA funds expire. If not, students in

these programs will need to be transitioned to ITAs, if they are in programs considered

training under Section 134(d) of WIA. This section provides an overview of these exceptions.

The following tables (Tables 8 - 10) provide an overview of each of these ITA exceptions, and

their potential applicability to bridge program funding.



September 2009 39

Table 8. ITA Exceptions: Customized Training

Definition: Customized Training is training: (A) that is designed to meet the

special requirements of an employer (including a group of employers);

(B) that is conducted with a commitment by the employer to employ

an individual on successful completion of the training; and (C) for

which the employer pays for not less than 50 percent of the cost of the

training.

Requirements: Customized Training Requirements

Employer contribution: Not less than 50% of training costs,

maybe cash or in-kind, must be documented, and is subject to

audit.

Commitment to hire upon training completion.

Customized training for employed workers:

Allowable if the incumbent worker is not earning a self-

sufficient wage

Employer must commit to retaining employee if training

is successfully completed

Training must relate to: introduction of new technologies,

introduction of new production or service procedures,

upgrading to new jobs requiring new skills/workplace

literacy, or other appropriate purposes identified by the

LWIB

Employers are excluded if there has been past failure to meet

customized training contract requirements

Management

Issues:

Convincing employer to pay half the costs of training a non-

employee

Who does the training? Who chooses the training provider –

employer or you?

For employed workers, ensuring that training is related to new

technologies, new production procedures, or new jobs requiring

additional skills or literacy.

How customized is it?

What happens if employer doesn’t hire?

Recruiting training providers

Applicability to

Bridge Programs:

Customized training may be an option to consider for a bridge

program for currently employed workers, if the workers and the

training meet the requirements for employed worker training.

This exception does not release the LWIA from the overall

requirement for at least 51 percent of its training to be funded

through ITAs, under Illinois policy.



September 2009 40

Table 9. ITA Exceptions: Limited Training Service Providers

Definition: An exception to the ITA requirements if the local board determines

that there are an insufficient number of eligible providers of training

services in the local area involved (such as in a rural area) to

accomplish the purposes of a system of individual training accounts.

Requirements: Primarily rural areas but not limited to rural areas

Local plan must provide a description of reasons and extent of

requested waiver

Program-by-program basis possible – blanket approval not

required and unlikely

51% ITA requirements waived under this exception.

Management

Issues:

Justifying the insufficient number of eligible providers: This

should be based on specific programs in which there are capacity

problems.

Recruiting appropriate providers

Applicability to

Bridge Programs:

LWIAs which can justify this exception for specific programs will have

the authority to enter into grants and contracts for training without

having to be concerned about the requirement to use ITAs.



September 2009 41

Table 10. ITA Exceptions: CBOs or Other Private Organizations

of Demonstrated Effectiveness

Definition: An exception to the ITA requirements if the local board determines

that there is a training services program of demonstrated

effectiveness offered in the local area by a community-based

organization or another private organization to serve special

participant populations that face multiple barriers to employment.

Requirements: Programs of Demonstrated Effectiveness Requirements:

Special low income population with multiple barriers: substantial

language or cultural barriers, offenders, homeless, and disabled

individuals

CBO or other private organization is the training provider

LWIB must develop criteria to determine effectiveness

Provider must be WIA eligible training provider under Section

122, under Illinois policy.

Programs of Demonstrated Effectiveness Criteria:

LWIB must develop criteria to determine effectiveness applicable

to each special population group. These Criteria may include:

Financial stability

Demonstrated performance with the special population, such

as, completion rates, skills or degrees provided, placement,

and retention

How the specific program relates to the workforce investment

needs in the plan

Specific local criteria should be developed

Management

Issues:

Three things should be present to justify this exception:

CBO that is an eligible training provider

Low income targeted group needing training in a class size

setting

A situation where it makes sense to use this exception versus an

ITA

Applicability to

Bridge Programs:

This exception may be an appropriate mechanism for funding a bridge

program operated by a CBO or other private organization, if the

training is targeted to low income persons with multiple barriers to

employment, and the LWIA can show that the organization has a good

track record in completion and placement for this population.

This exception does not release the LWIA from the overall

requirement for at least 51 percent of its training to be funded

through ITAs, under Illinois policy.



September 2009 42



September 2009 43

ATTACHMENT A

Assessing the Utility of a Class-size Training Project

This form is a tool to assist in determining whether a Class-Size Contract is the best choice

for providing training.

Training Need: Describe the training need.

Demand Assessment: For which high-demand occupation(s) will this training prepare

students? Are there employers in the area who have expressed an interest in hiring persons

with these skills?

Target Group Assessment: Are there specific target groups that we are attempting to

reach with this training?

Curriculum Assessment: Does the curriculum currently exist? If not, how long will it take

to develop?



September 2009 44

Providers: Are there educational institutions or other approved training providers

accessible to our clients who could provide this training?

Capacity Assessment: Is there adequate capacity for this training at present? If not, how

exactly would a training contract expand capacity?

Services Assessment: In addition to training, what other services should be provided to

the target group, and how should these services be provided?

Outcomes Assessment: What outcomes should we expect to obtain from this training, for

entry into employment, employment retention and average earnings?

Funding Assessment: In addition to WIA Title I, what other sources of funds, if any, could

be used to underwrite this training?



September 2009 45

ATTACHMENT B

Checklist for Training Project Request for Proposal Content

This checklist can be used to help organize the content of an RFP and to ensure that all of

the critical elements of the RFP are included. It should be adapted to serve the users own

unique needs and situation.

Section I: General Information

Grantor Agency: Who is issuing this RFP?

Project Goal: What will be accomplished as a result of this project?

Source of Funds: What funds will be used for this project? What is the

timeframe for project expenditure?

Eligible Respondents: Who may respond to this RFP?

Schedule and Instruction for Submittal of Proposals: When are responses

due, and to whom must they be sent? When will awards be announced?

Bidder’s Conference: Will there be a bidder’s conference? If so, when and

where?

Agency Contact: Who in your organization should prospective respondents

contact if they have questions?

Section II: Program Description: Describe the work that you want

respondents to do in as much detail as possible.

Background: Briefly tell the reader about the training need being addressed,

what led up to the decision to issue the RFP, and who (e.g., which agencies)

has been involved in the effort, and what work has been completed to date.

Best Practices: Identify methods and techniques you will consider ―best

practice‖ in relation to the training to be provided.

Required Work: Tell the respondent exactly what work you expect them to do

in as much detail as you are prepared to discuss.

Project Team/ Staffing: Specify any requirements regarding the staffing and

qualifications of persons to work on the project.

Project Schedule: Describe the anticipated duration of the project, and the

timing of when any intermediate steps must be completed.

Allowable Costs: Specify any limit on the total size of the award, as well as

limits on particular types of costs (e.g., administrative, indirect).

Project Reporting: Specify any requirements for project participant and

financial reporting.



September 2009 46

Section III: Guidelines for Preparation of Proposals: Specify the

required content for responses to the RFP.

Cover Sheet: Basic identifying information for the proposal

Executive Summary: Summarizes key aspects of the project for reviewers

and management.

Table of Contents:

Applicant Information: Describe the related experience of the organization

responding to the RFP. If any of the work is to be subcontracted, describe the

relevant experience of the contractor(s).

Discussion of the Problem: Provide a brief discussion of the problem and/or

issue being addressed by this project in response to the narrative presented

in the Background, Best Practice, and Required Work sections of this RFP.

Work Plan and Schedule: Detailed period of performance, project activity

benchmarks, and schedule for delivery of required products.

Budget Request: Line item budget and supportive narrative.

Section IV: Review and Selection Procedures: Define the criteria for

review of proposals and selection of projects to be awarded.

Compliance with the requirements of the RFP;

Quality of the work plan;

Coordination with important partners (e.g., other agencies);

Experience and qualifications of the staff assigned to the project;

Proposed project costs in relationship to planned outcomes; and,

If required, the amount of matching contributions.

Source: Illinois Dept. of Commerce and Economic Opportunity, Grant-Related Business

Processes, Bureau of Workforce Development, January, 2006, Workforce Enterprise

Services, Inc.

Documents

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