WIOA one-stop delivery system vision

CLASSIFICATION
  EMPLOYMENT AND TRAINING ADMINISTRATION                 VISION FOR THE ONE-STOP SYSTEM
              ADVISORY SYSTEM                            CORRESPONDENCE SYMBOL
         U.S. DEPARTMENT OF LABOR                        ETA OWI
            Washington, D.C. 20210                       DATE
                                                          August 13, 2015

ADVISORY:        TRAINING AND EMPLOYMENT GUIDANCE LETTER WIOA NO: 4-15
                 OPERATING GUIDANCE for the WORKFORCE INNOVATION AND
                 OPPORTUNITY ACT (WIOA or Opportunity Act)

TO:              STATE AND LOCAL STAKEHOLDERS IN THE WORKFORCE
                 INNOVATION AND OPPORTUNITY ACT
                 STATE WORKFORCE ADMINISTRATORS
                 STATE WORKFORCE LIAISONS
                 STATE AND LOCAL WORKFORCE BOARD CHAIRS AND DIRECTORS
                 AMERICAN JOB CENTER DIRECTORS
                 SECTION 166 INDIAN AND NATIVE AMERICAN GRANTEES

FROM:            PORTIA WU /s/
                 Assistant Secretary

SUBJECT:         Vision for the One-Stop Delivery System under the Workforce Innovation and
                 Opportunity Act (WIOA)

1. Purpose. This Training and Employment Guidance Letter (TEGL) lays out the vision for the
   one-stop delivery system under the Workforce Innovation and Opportunity Act (WIOA) and
   links to key technical assistance resources to support states and local areas as they integrate
   this vision into their one-stop delivery system (http://www.doleta.gov/wioa). This guidance is
   also being issued by the Department of Education’s Office of Career, Technical, and Adult
   Education and Office of Special Education and Rehabilitation Services. It was developed in
   collaboration with these agencies, as well as the Department of Health and Human Services,
   Administration for Children and Families. The Employment and Training Administration
   (ETA) will soon issue additional guidance to other programs administered by DOL that
   covers governance, operational, and service delivery topics related to the one-stop delivery
   system.

   WIOA was signed into law on July 22, 2014. WIOA is designed to help job seekers access
   employment, education, training, and support services to succeed in the labor market and to
   match employers with the skilled workers they need to compete in the global economy.
   WIOA supersedes titles I and II of the Workforce Investment Act of 1998 (WIA), and
   amends the Wagner-Peyser Act and the Rehabilitation Act of 1973.

   RESCISSIONS                                          EXPIRATION DATE
   None                                                 Continuing

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   The Departments of Labor and Education published a set of proposed regulations for
   implementing WIOA through the posting of five Notice of Proposed Rulemaking (NPRMs)
   documents. These NPRMs were open for public comment until June 15, 2015, and
   thousands of comments were received by both Departments. The Federal agencies will
   review, analyze, consider, and respond to the comments received. The Final WIOA rules
   will be issued in 2016.
   In order to continue implementation prior to the final rule, a series of WIOA Operating
   Guidance documents are being issued in the form of Training and Employment Guidance
   Letters (TEGLs). These Operating Guidance documents on WIOA will inform the
   workforce system on how to begin the important planning and organizational work necessary
   to comply with the WIOA statutory requirements. The Operating Guidance TEGLs will
   provide a framework for program activities until the regulations are finalized. This TEGL is
   one in a series of WIOA Operating Guidance.
2. References. See Attachment.

3. Background. The vision for the one-stop delivery system contained in this TEGL reflects
   the long-standing and ongoing work of dedicated workforce professionals around the country
   to align a wide range of publicly- and privately-funded education, employment, and training
   programs while also providing high-quality customer service to job seekers, workers, and
   businesses through the one-stop delivery system.

   The creation of one-stop centers (currently branded as American Job Centers) was a
   cornerstone of WIA when it passed in 1998. In the years between the passage of WIA and
   WIOA—and longer for those communities that piloted one-stop centers under the Job
   Training Partnership Act of 1982—the workforce system has tested a variety of approaches
   to maximize the benefits of one-stop centers to its direct customers and their communities. In
   the last 10 years, technological advancements have opened up new avenues of service
   delivery, and the increased availability of evidence-based models has strengthened our shared
   understanding of the best of these approaches. In addition, the Obama Administration
   worked intensively with federal agencies in 2013 and 2014 to reform federal employment,
   education, and training programs to create a more integrated, job-driven service delivery
   system. A job-driven service delivery system is one that results in linking our nation’s
   diverse talent with employers and businesses. As a result of this work, one-stop centers
   continue to be a valued community resource, known both locally and nationally as an
   important source of assistance for those looking for work or workers, and those looking for
   opportunities to grow their careers.

   WIOA recognizes the value of the one-stop delivery system, and provides the workforce
   system with important tools to enhance the quality of its one-stop centers. The law
   strengthens the ability of States, regions, and local areas to align investments in workforce,
   education, and economic development to regional in-demand jobs. It also places greater
   emphasis on achieving results for job seekers, workers, and businesses. Finally, it reinforces
   the partnerships and strategies necessary for one-stop centers to provide job seekers and
   workers with the high-quality career services, education and training, and the supportive
   services they need to obtain good jobs and stay employed; and to help businesses find skilled

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    workers and access other supports, including education and training for their current
    workforce.

    Since the one-stop delivery system was established, technology has made lasting changes to
    our economy and society. Mobile workers and businesses with regional and national
    footprints that cross municipal borders are much more common. For that reason, there is an
    increased customer demand for consistent, high-quality education, employment, and training
    services across the country. The passage of WIOA supports the workforce system in meeting
    that demand, and the adoption of a national vision for the one-stop delivery system and its
    one-stop centers is an important first step in that work.

4. Vision for the One-Stop Centers under WIOA. The publicly funded workforce system
   envisioned by WIOA is quality-focused, employer-driven, customer-centered, and tailored to
   meet the needs of regional economies. It is designed to increase access to, and opportunities
   for, the employment, education, training, and support services that individuals need to
   succeed in the labor market, particularly those with barriers to employment. It aligns
   workforce development, education, and economic development programs with regional
   economic development strategies to meet the needs of local and regional employers, and
   provide a comprehensive, accessible and high-quality workforce development system. This
   is accomplished by providing all customers access to high-quality one-stop centers that
   connect them with the full range of services available in their communities, whether they are
   looking to find jobs, build basic educational or occupational skills, earn a postsecondary
   certificate or degree, or obtain guidance on how to make career choices, or are businesses
   and employers seeking skilled workers.

    Under WIOA, partner programs and entities that are jointly responsible for workforce and
    economic development, educational, and other human resource programs collaborate to
    create a seamless customer-focused one-stop delivery system that integrates service delivery
    across all programs and enhances access to the programs' services. The one-stop delivery
    system includes six core programs (Title I adult, dislocated worker, and youth programs;
    Title II adult education and literacy programs; Title III Wagner-Peyser program; and Title IV
    vocational rehabilitation program), as well as other required and optional partners identified
    in WIOA 1. Through the one-stop centers, these partner programs and their service providers
1
  In addition to the core programs, required partners include the Senior Community Service Employment Program;
job counseling, training, and placement services for veterans authorized under chapter 41 of title 38; career and
technical postsecondary education programs authorized under the Carl D. Perkins Career and Technical Education
Act of 2006; Trade Adjustment Assistance Programs; employment and training activities carried out under the
Community Services Block Grant; U.S. Department of Housing and Urban Development (HUD) employment and
training programs; Unemployment Compensation programs; programs authorized under the Second Chance Act of
2007, Section 212 (reintegration of ex-offenders); and programs authorized under the Social Security Act Title IV,
Part A (TANF), unless the Governor determines that TANF is not a required partner.

Optional partners may include, with the approval of the local board and chief elected officials, the U.S. Social
Security Administration (SSA) employment and training program (i.e. Ticket to Work programs); Supplemental
Nutrition and Assistance Program (SNAP) employment and training programs; the Vocational Rehabilitation Client
Assistance Program; National and Community Service Act Programs; and other employment, education or training
programs such as those operated by libraries or in the private sector.

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   ensure that businesses and job seekers—a shared client base across the multiple programs
   identified above—have access to information and services that lead to positive employment
   outcomes. Under WIOA, one-stop centers and their partners:

       •   provide job seekers with the skills and credentials necessary to secure and advance in
           employment with family-sustaining wages;
       •   provide access and opportunities to all job seekers, including individuals with barriers
           to employment, such as individuals with disabilities, to prepare for, obtain, retain, and
           advance in high-quality jobs and high-demand careers;
       •   enable businesses and employers to easily identify and hire skilled workers and
           access other supports, including education and training for their current workforce;
       •   participate in rigorous evaluations that support continuous improvement of one-stop
           centers by identifying which strategies work better for different populations;
       •   ensure that high-quality integrated data inform decisions made by policy makers,
           employers, and job seekers.

   The management of the one-stop delivery system is the shared responsibility of States, local
   boards, elected officials, the core WIOA partners, other required partners, and one-stop
   center operators. The Departments encourage all of these entities to integrate the
   characteristics below into their work, including developing state, regional, and local strategic
   plans; establishing one-stop center certification criteria; examining the state, regional, and
   local footprint of one-stop centers; conducting competitions for selecting one-stop center
   operators; developing local Memoranda of Understanding (MOUs); updating other one-stop
   center policies and procedures; and operating and delivering services through the one-stop
   centers.

5. Characteristics of a High-Quality One-Stop Center. The characteristics identified below,
   consistent with the purpose and authorized scope of each of the programs, are designed to
   reflect elements that the Departments believe contribute to a high-quality one-stop delivery
   system. They demonstrate the spirit and intent of WIOA, and the Departments believe they
   will strengthen the successful integration and implementation of partner programs in one-
   stop centers. For clarity and readability the characteristics have been grouped into three
   functional categories: (a) Customer Service; (b) Innovation and Service Design; and (c)
   Systems Integration and High-Quality Staffing.

   a. One-Stop Centers Provide Excellent Customer Service to Job Seekers, Workers and
      Businesses. Meeting the needs of job seekers, workers and businesses is important in
      developing thriving communities where all citizens succeed and businesses prosper.
      High-quality one-stop centers:

       •   Reflect a welcoming environment to all customer groups who are served by the
           one-stop centers. All one-stop center staff are courteous, polite, responsive, and
           helpful to job seekers, businesses, and others who visit the one-stop centers, either in
           person or by telephone or e-mail. Moreover, one-stop center staff are sensitive to the
           unique needs of individuals with disabilities and are prepared to provide necessary
           accommodations.

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   •   Develop, offer, and deliver quality business services that assist specific businesses
       and industry sectors in overcoming the challenges of recruiting, retaining, and
       developing talent for the regional economy. To support area employers and industry
       sectors most effectively, one-stop center staff identify and have a clear understanding
       of industry skill needs, identify appropriate strategies for assisting employers, and
       coordinate business services activities across one-stop center partner programs, as
       appropriate. This includes the incorporation of an integrated and aligned business
       services strategy among one-stop center partners to present a unified voice for the
       one-stop center in its communications with employers. Additionally, one-stop centers
       use the forthcoming performance measure(s) on effectiveness in serving employers to
       support continuous improvement of these services.

   •   Improve the skills of job seeker and worker customers. One-stop centers offer
       access to education and training leading to industry-recognized credentials through
       the use of career pathways, apprenticeships, and other strategies that enable
       customers, including those with disabilities, to compete successfully in today’s global
       economy. They provide businesses with access to the quantity and quality of talent
       they need and support upskill/backfill strategies that expand job opportunities in the
       community.

   •   Create opportunities for individuals at all skill levels and levels of experience by
       providing customers, including those with disabilities, as much timely, labor market,
       job-driven information and, choice as possible related to education and training,
       careers, and service delivery options, while offering customers the opportunity to
       receive both skill-development and job placement services.

   •   Provide career services that motivate, support and empower customers,
       including individuals with disabilities, to make informed decisions based on local and
       regional economic demand and effectively attain their personal employment and
       education goals.

   •   Value skill development by assessing and improving each individual’s basic,
       occupational, and employability skills.

b. One-Stop Centers Reflect Innovative and Effective Service Design. High-quality one-
   stop centers:

   •   Use an integrated and expert intake process for all customers entering the one-
       stop centers. Frontline staff are highly familiar with the functions and basic
       eligibility requirements of each program, and can appropriately assist customers and
       make knowledgeable referrals to partner programs, as needed and as appropriate
       given the authorized scope of the program.

   •   Design and implement practices that actively engage industry sectors and use
       economic and labor market information, sector strategies, career pathways,

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       Registered Apprenticeships, and competency models to help drive skill-based
       initiatives.

   •   Balance traditional labor exchange services with strategic talent development
       within a regional economy. This includes use of market-driven principles and labor
       market information that help to define a regional economy, its demographics, its
       workforce and its assets and gaps in skills and resources.

   •   Ensure meaningful access to all customers. One-stop centers must be physically
       and programmatically accessible to all customers, including individuals with
       disabilities. In so doing, one-stop centers use principles of universal design and
       human-centered design, such as flexibility in space usage; the use of pictorial,
       written, verbal and tactile modes to present information for customers with
       disabilities or limited English proficiency; providing clear lines of sight to
       information for seated or standing users; providing necessary accommodations; and
       providing adequate space for the use of assistive devices or personal assistants. One-
       stop centers use assistive technology and flexible business hours to meet the range of
       customer needs.

   •   Include both virtual and center-based service delivery for job seekers, workers,
       and employers. Both methods of delivery support the talent needs of the regional
       economy, although each may better serve different customers with different levels of
       service needs at any given time. The one-stop delivery system can expand its reach
       by delivering robust virtual services; and increasing the accessibility of those services
       through community partners, such as libraries, community and faith-based
       organizations, and other partners.

   •   Incorporate innovative and evidence-based delivery models that improve the
       integration of education and training, create career pathways that lead to industry-
       recognized credentials, encourage work-based learning, and use state-of-the-art
       technology to accelerate learning and promote college and career success.

c. One-Stop Centers Operate with Integrated Management Systems and High-Quality
   Staffing. High-quality one-stop centers:

   •   Reflect the establishment of robust partnerships among partners. The one-stop
       center operator facilitates an integrated, co-located partnership that seamlessly
       incorporates services of the core partners and other one-stop center partners.

   •   Organize and integrate services by function (rather than by program); when
       permitted by a program’s authorizing statute and as appropriate, and by coordinating
       staff communication, capacity building, and training efforts. Functional alignment
       includes having one-stop center staff who perform similar tasks serve on relevant
       functional teams, e.g. Skills Development Team, Business Services Team. Service
       integration focuses on serving all customers seamlessly (including targeted

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           populations) by providing a full range of services staffed by cross-functional teams,
           consistent with the purpose, scope, and requirements of each program.

       •   Develop and maintain integrated case management systems that inform customer
           service throughout the customer’s interaction with the integrated system and allow
           information collected from customers at intake to be captured once. Customer
           information is properly secured in accordance with personally identifiable
           information guidelines, and facilitated as appropriate, with the necessary memoranda
           of understanding or other forms of confidentiality and data sharing agreements,
           consistent with federal and state privacy laws and regulations. Data, however, would
           be shared with other programs, for those programs’ purposes, within the one-stop
           system only after the informed written consent of the individual has been obtained,
           where required.

       •   Develop and implement operational policies that reflect an integrated system of
           performance, communication, and case management, and use technology to achieve
           integration and expanded service offerings.

       •   Use common performance indicators to ensure that federal investments in
           employment and training programs are evidence-based, labor market driven, and
           accountable to participants and taxpayers. Center performance is transparent and
           accountable to the communities and regions served; data entry staff are trained and
           understand the importance of data validation, data collection processes, and the
           importance of accurate reporting.

       •   Train and equip one-stop center staff in an ongoing learning process with the
           knowledge, skills, and motivation to provide superior service to job seekers, including
           those with disabilities, and businesses in an integrated, regionally focused framework
           of service delivery. Center staff are cross-trained, as appropriate, to increase staff
           capacity, expertise, and efficiency. Cross-training allows staff from differing
           programs to understand every program and to share their expertise about the needs of
           specific populations so that all staff can better serve all customers. Center staff are
           routinely trained and are keenly aware as to how their particular function supports
           and contributes to the overall vision of the local board.

       •   Staff the center with highly trained career counselors, skilled in advising job
           seekers of their options, knowledgeable about local labor market dynamics, aware of
           available services inside and outside the one-stop center, and skilled in developing
           customers’ skills for employment success.

6. Resources. Along with the resources provided at the WIOA collections page at
   http://wioa.workforce3one.org, the following technical assistance tools are currently
   available as part of the Departments’ ongoing effort to support state and local areas in the
   adoption of the vision for the one-stop centers under WIOA.

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a. Provide Excellent Customer Service to Job Seekers, Workers and Employers.

   •   Opening Doors for Everyone: Providing Outstanding Customer Service at One-Stop
       Career Centers: This toolkit is designed to provide one-stop center staff members an
       enhanced level of comfort when providing service to customers with a diverse array
       of backgrounds and needs.
       https://wioa.workforce3one.org/view/2001501480321360042/info

   •   Expanding Business Engagement: WIOA makes significant changes to the nation’s
       workforce development system, expressly incorporating the sector strategies
       approach throughout and requiring regional planning and alignment with local labor
       market needs for in-demand sectors and occupations. The Expanding Business
       Engagement (EBE) - Technical Assistance (TA) Initiative will support the strategic
       planning and implementation of revitalized or enhanced business engagement
       activities within states, regions, and local areas.
       http://businessengagement.workforce3one.org/

b. Reflect Innovative and Effective Service Design.

   •   One-Stop Service Design: The resources section contains a variety of curated
       technical assistance tools, best practices, replicable models, implementation plans,
       recorded webinars, videos, research documents, and data reports to support
       innovative and effective one-stop center service design.
       https://wioa.workforce3one.org/ws/wioa/pages/resources.aspx?pparams=1001501462
       393639983

   •   Legacy Disability Training: Understanding Disability: The purpose of this
       introductory course is to provide practical learning experience toward acquiring the
       knowledge and skills needed to provide quality workforce development services to
       persons with disabilities.
       https://wioa.workforce3one.org/view/4011507054815454755/info

c. Integrated Administrative Systems and High Quality Staffing.

   •   Integrated Service Delivery Toolkit: This toolkit provides ideas, strategies and
       resources for integrating service delivery in the public workforce system.
       https://wioa.workforce3one.org/view/2001508963127430705/info

   •   Effective Case Management: This site contains resources and tools designed to help
       system administrators, local leaders and staff to support high-quality case
       management in the workforce system.
       https://effectivecasemanagement.workforce3one.org/index.aspx

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   d. Other One-Stop Vision Technical Assistance Tools.

       •   One-Stop Career Centers Fact Sheet: Provides highlights of WIOA reforms for one-
           stop centers. https://wioa.workforce3one.org/view/2001507734890961606/info

       •   Quick Start Action Plan (QSAP) for One-Stop Centers: An interactive, self-paced
           assessment tool designed to help leaders at all levels of the public workforce system
           prepare for implementation of WIOA. The QSAP helps identify areas of strength and
           focused areas for improvement in a state or local workforce system and connects to
           targeted resources that can help leaders to prepare and plan effectively.
           http://qsap.workforce3one.org/page/planner/OneStop/Questionnaire

7. Action Requested. As WIOA core programs and partners at the state and local level
   implement WIOA in program year 2015, the Departments encourage states to adopt this
   vision and build it into the policies and procedures related to the management of the one-stop
   delivery system. This includes developing regional and local strategic plans; establishing
   certification criteria for one-stop centers and the one-stop delivery system; examining the
   state, regional, and local footprint of one-stop centers; conducting competitions for selecting
   one-stop center operators; developing the local MOU; and updating other one-stop center
   policies and procedures.

8. Inquiries. Please direct questions regarding this guidance to the appropriate ETA Regional
   office or through the ETA email address established for this purpose: [email protected].
   ETA monitors this account daily, and may respond to inquiries directly or through general
   communications such as official guidance, webinars, and public Q&A documents.

9. Attachment. References for the One-Stop Vision TEGL

Attachment 1

Official attachment: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2015/TEGL_04-15_Attachment_Acc.pdf

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Attachment

                       References for the One-Stop Vision TEGL

  •   WIOA (Pub. L. 113-128);
  •   WIA (Pub. L. 105-220), Title I;
  •   TEGL No. 3-14, Implementing a Job- Driven Workforce System, dated July 30, 2014
         http://wdr.doleta.gov/directives/corr_doc.cfm?DOCN=5483;
  •   TEN No. 5-14, WIOA Announcement and Initial Informational Resources, dated July 22,
         2014 http://wdr.doleta.gov/directives/corr_doc.cfm?DOCN=3556;
  •   TEN No. 6-14, Information for Stakeholder Engagement for Workforce Innovation and
         Opportunity Act Implementation, dated August 15, 2014
         http://wdr.doleta.gov/directives/corr_doc.cfm?DOCN=8186;
  •   TEGL No. 12-14, Allowable Uses and Funding Limits of WIA Program Year 2014 Funds
         for Workforce Innovation and Opportunity Act Transitional Activities, dated October
         28, 2014 http://wdr.doleta.gov/directives/corr_doc.cfm?DOCN=3475;
  •   TEGL No. 15-14, Implementation of the New Uniform Guidance Regulations, dated
         December 19, 2014 http://wdr.doleta.gov/directives/corr_doc.cfm?DOCN=5740;
  •   TEGL No. 19-14, Vision for the Workforce System and Initial Implementation of the
         Workforce Innovation and Opportunity Act dated February 19, 2015
         http://wdr.doleta.gov/directives/corr_doc.cfm?DOCN=7353;
  •   WIOA implementation dates, http://wdr.doleta.gov/directives/attach/TEN/WIOA-Key-
         Implementation-Dates_Acc.pdf.
  •   Notice of Proposed Rulemaking (NPRM) with the Departments of Education and Labor).
         Workforce Innovation and Opportunity Act; Joint Rule for Unified and Combined
         State Plans, Performance Accountability, and the One-Stop System Joint Provisions.
         Pages 20573-20687 [FR DOC# 2015-05528] (joint).
  •   Workforce Innovation and Opportunity Act; Notice of Proposed Rulemaking Pages
         20689-20966 [FR DOC# 2015-05530] (Labor only, for review and public comment).
  •   Notice of Proposed Rulemaking (NPRM) with the Departments of Education and Labor).
         Programs and Activities Authorized by the Adult Education and Family Literacy Act;
         (Title II of the Workforce Innovation and Opportunity Act). Pages 20967-20987 [FR
         DOC# 2015-5540] (Education only).
  •   Notice of Proposed Rulemaking (NPRM) with the Departments of Education and Labor).
         State Vocational Rehabilitation Services Program; State Supported Employment
         Services Program; Limitations on Use of Subminimum Wage; Pages 21059-21146
         [FR DOC# 2015-05538] (Education only).
  •   Notice of Proposed Rulemaking (NPRM) with the Departments of Education and Labor).
         Workforce Innovation and Opportunity Act, Miscellaneous Program Changes;
         Pages 20988-21058 [FR DOC# 2015-05535] (Education only).