Construction Plus training in YouthBuild

                                                         CLASSIFICATION
   EMPLOYMENT AND TRAINING ADMINISTRATION                YouthBuild
               ADVISORY SYSTEM                           CORRESPONDENCE SYMBOL
          U.S. DEPARTMENT OF LABOR                       OWI-DYS
             Washington, D.C. 20210                      DATE
                                                         September 12, 2014


ADVISORY:       TRAINING AND EMPLOYMENT GUIDANCE LETTER NO. 7-14

TO:             STATE WORKFORCE AGENCIES
                STATE WORKFORCE LIAISONS
                ALL YOUTHBUILD GRANTEES

FROM:           PORTIA WU /s/
                Assistant Secretary


SUBJECT:        Guidance for Implementing the “Construction Plus” Component of the
                YouthBuild Program

1. Purpose. To provide guidance for YouthBuild grantees implementing the “Construction
   Plus” component of the YouthBuild program, including a synopsis of what it entails and to
   inform workforce partners of the expansion of the YouthBuild program to include
   Construction Plus training in addition to construction training.

2. References.
   • Workforce Innovation and Opportunity Act (PL 113-128 July 2014),
      www.doleta.gov/wioa
   • YouthBuild Final Rule, 20 CFR Part 672,
      https://www.federalregister.gov/articles/2012/02/15/2012-2373/youthbuild-program
   • Training and Employment Guidance Letter (TEGL) No. 15-10, “Increasing Credential,
      Degree, and Certificate Attainment by Participants of the Public Workforce System,”
      http://wdr.doleta.gov/directives/corr_doc.cfm?DOCN=2967
   • Notice of Availability of Funds and Solicitation for Grant Applications (SGA) for
      YouthBuild Grants, SGA-DFA-PY-13-04,
      http://www.doleta.gov/grants/pdf/YouthBuild_SGA-DFA-PY-13-04.pdf
   • CareerOneStop Labor Market Information Center,
      http://www.careeronestop.org/lmi/lmihome.asp
   • CareerOneStop Credentials Center,
      http://www.careeronestop.org/EducationTraining/KeepLearning/GetCredentials.aspx
   • Labor Market Information Win-Win Network Community of Practice,
      https://winwin.workforce3one.org/

3. Background. YouthBuild is a workforce development program that provides employment,
   education, pre-apprenticeship and registered apprenticeship opportunities, and leadership
   development training to disconnected youth between the ages of 16 and 24 who are high
   school dropouts. Those eligible may be a member of a low-income family, a foster care
 RESCISSIONS                                            EXPIRATION DATE
 None                                                   Continuing

   youth, an offender, a youth with a disability, a child of an incarcerated parent, or a migrant
   youth. The YouthBuild Transfer Act of 2006 (Transfer Act) established the YouthBuild
   program in the U.S. Department of Labor (Department) under subtitle D of Title I of WIA, as
   amended. The Transfer Act authorizes grants for job training and educational activities for
   YouthBuild participants who, as part of their training, help build or rehabilitate housing for
   low-income or homeless individuals and families in their respective communities.

   In the YouthBuild Final Rule, published February 15, 2012 at 77 FR 9129, the Department
   expanded the occupational skills training component of the YouthBuild program from solely
   construction skills training to include skills training in other high-demand jobs toward the
   goal of economic self-sufficiency. This guidance refers to these additional training industries
   as “Construction Plus” industries.

4. What is Construction Plus? Construction Plus refers to the inclusion of occupational skills
   training opportunities for YouthBuild participants in in-demand occupations other than
   construction. All Department-funded YouthBuild programs are required to offer
   construction skills training to program participants. Whether Construction Plus training is
   provided consecutively or in tandem, the required training time of educational skills (50% of
   the time) and occupational skills (40% of the time) - also known as eligible workforce
   activities - for each participant must be maintained, as identified in the YouthBuild Final
   Rule. Further, the participation timeframe must not exceed 24 months, regardless of the
   participant’s occupational skills training track, and must allow for a follow-up period of not
   less than 9 months and no more than 12 months, as identified in the YouthBuild Final Rule.

   As defined in the SGA issued on February 18, 2014 (SGA-DFA-PY-13-04), only grantees
   that have been awarded a YouthBuild grant by the Department’s YouthBuild program in a
   previous grant year are eligible to apply as Construction Plus grantees; first-time DOL
   YouthBuild grantees are not eligible for Construction Plus as they must first demonstrate
   their ability to provide construction training, as the core YouthBuild industry, prior to being
   able to add additional industries for training. Only those previously-funded grantees that
   were approved through their grant statements of work at the time of grant award are eligible
   to use grant funds to offer training in Construction Plus occupations. Construction Plus
   grantees must have demonstrated in their statements of work, through the use of local labor
   market data, that the proposed additional occupational skills trainings will lead to or prepare
   participants for employment in high-demand or locally in-demand jobs and that the selected
   industries will benefit the target communities.

5. Labor Market Information Resources. The Department has many labor market
   information resources available to grantees for assistance in identifying appropriate
   Construction Plus industries within their local communities; the CareerOneStop Labor
   Market Information Center Web page (http://www.careeronestop.org/lmi/lmihome.asp)
   provides information on local labor markets across the country. Additionally, grantees must
   use comprehensive curricula that, upon completion, lead to the attainment of industry-
   recognized credentials for program participants. The Labor Market Information Win-Win
   Network Community of Practice (https://winwin.workforce3one.org/) provides valuable
   information on additional data sources useful for determining in-demand occupations and

   skills. Information on related credentials such as industry-recognized certifications and
   required state occupational licenses are available through the CareerOneStop Credentials
   Center
   (http://www.careeronestop.org/EducationTraining/KeepLearning/GetCredentials.aspx). This
   information can be helpful in developing the required curricula and credentialing pathways.

6. Implementing Construction Plus in Your YouthBuild Program. YouthBuild grantees
   offering approved Construction Plus training must provide the same level of opportunity and
   benefit to Construction Plus participants that are available to participants in the core
   construction training. As with the core construction training, Construction Plus programs
   must offer participants eligible education activities during at least 50 percent of the time and
   eligible workforce investment activities during at least 40 percent of the time during which
   they participate in the program. Up to 10 percent of the time of participation may be used for
   leadership development and community service activities.

   Like the core construction training, Construction Plus training must balance project-based
   learning and occupational skills training that prepare disconnected youth to gain placement
   into career pathways and/or further education or training. Construction Plus training must
   not be limited to classroom learning and must incorporate hands-on training similar to that
   offered in the core construction training. Additionally, Construction Plus must incorporate
   community service, youth leadership development, and work experience opportunities like
   those required in the core construction training.

   Grantees have flexibility in determining how the program model includes Construction Plus
   industries. However, they are required to enroll a sufficient number of participants in the
   construction skills training component to build or renovate at least one unit of affordable
   housing for low-income individuals and families or transitional housing for homeless
   individuals during the grant period of performance. Youth may be divided between
   construction training and Construction Plus industry(ies) training, based on assessments of
   interest and skills match or all youth may first be placed in construction training for
   development of broadly-applicable professional skills, including soft skills (teamwork,
   leadership, communication) and hard skills (math, reading comprehension) before being
   further trained in the chosen Construction Plus industry. The grant period of performance
   and budget should be considered in designing the program model for the addition of
   Construction Plus.

   All program performance measures are the same for the Construction Plus training(s). In
   particular, grantees should take into consideration the eligibility of YouthBuild participants
   for industry-recognized credentials and placement opportunities in selected Construction Plus
   field(s) (see Attachment A, “Considerations Guide for Credential Attainment for US
   Department of Labor (DOL) YouthBuild Grantees,” for additional information).

7. What is an Industry-Recognized Credential? Within the workforce system, the term
   credential refers to the attestation of qualification or competence issued to an individual by a
   third party with the relevant authority or competence to issue such a credential. There are
   many different types of industry-recognized credentials offered or awarded by various types

   of third-party organizations, such as an educational institution or an industry- or
   occupational-certifying organization. You can find more information on credentials in TEGL
   No. 15-10 (http://wdr.doleta.gov/directives/corr_doc.cfm?docn=2967).

   An industry-recognized credential provides recognition of an individual’s attainment of
   measurable technical or occupational skills necessary to obtain employment or advance
   within an occupation. An industry-recognized credential is either one that is developed or
   endorsed by a nationally-recognized industry, professional, or occupational association or
   organization or one that is sought or accepted by companies within the industry sector for
   purposes of hiring or recruitment.

   Generally, employers develop or endorse these technical or occupational skills standards. A
   variety of different public and private entities issue credentials, including:
       • State agencies, including workforce or education agencies;
       • Professional, industry, or employer organizations;
       • The Department’s Employment and Training Administration/Office of
           Apprenticeship or state apprenticeship agencies;
       • Public regulatory agencies, including state and local licensing boards;
       • Programs approved by Job Corps centers or the Department of Veterans Affairs;
       • Institutions of higher education governed by an Indian or Native American tribe or
           tribes; and
       • Community colleges.

8. Qualifying Credentials for the YouthBuild Program. A qualifying credential is one that
   provides a participant with the documentation of education and/or technical or occupational
   skills necessary to gain employment or advance within an occupation. These skills are
   measureable, based on industry standards, and developed or endorsed by employers.
   Qualifying credentials for YouthBuild must meet the definition of industry-recognized
   credentials provided above. Only qualifying credentials are appropriate to be recorded into
   the YouthBuild Management Information System (MIS) for the “Attainment of
   Degree/Certificate” performance measure, which measures the number of participants who
   attain a diploma, a state-recognized high school equivalency credential, or a certificate within
   9 months of program exit.

   A non-qualifying credential is any diploma or certificate that does not meet the above
   definition and does not document “measurable technical or occupational skills necessary to
   gain employment or advance within an occupation.” The Department will not count non-
   qualifying credentials toward the “Attainment of Degree/Certificate” performance measure in
   the YouthBuild MIS. However, such credentials can be of value to participants as building
   blocks for educational and/or occupational success. Examples of non-qualifying credentials
   include: certificates awarded by Workforce Investment Boards (WIBs); single skill
   certificates, such as CPR, First Aid, Occupational Safety and Health Administration (OSHA)
   Safety Training, and ServSafe; and work readiness certificates, such as the Jobs for
   America’s Graduates (JAG) Certificate of Mastery and the WorkKeys National Career
   Readiness Certificate (NCRC).

   At the state level, the workforce system can recognize specific programs of study and
   determine if they meet the WIA definition of a credential, as defined in TEGL 15-10. Local
   WIA youth service providers may be of assistance to YouthBuild grantees in determining if a
   certificate offered for a particular completed program of study qualifies as a credential within
   their state. YouthBuild grantees should consult their assigned Federal Project Officers with
   any questions regarding qualifying credentials.

   In addition to identifying qualifying credentials, the stackability and portability of credentials
   are also important factors in determining whether to pursue a particular course of
   credentialing in the Construction Plus component. A credential is considered “stackable”
   when it is part of a sequence of credentials that can be accumulated over time to build an
   individual’s qualifications and help the individual to move along a career pathway or up a
   career ladder to different and potentially higher-paying jobs within the same industry. A
   credential is considered “portable” when it is recognized and accepted as verifying the
   qualifications of an individual in other settings such as, in other geographic areas, at other
   educational institutions, or by other industries or employers. To the extent possible,
   YouthBuild grantees that incorporate Construction Plus into their programs should strive to
   identify occupational skills training fields that will lead to both stackable and portable
   credentials within the chosen Construction Plus industries.

   The Department developed a tool to help you determine potential Construction Plus
   industries and the related credentials, particularly as they relate to the guidance in TEGL 15-
   10 on qualifying, stackable, and portable credentials. Attachment A, “Considerations Guide
   for Credential Attainment for US Department of Labor (DOL) YouthBuild Grantees,”
   provides a series of framing questions that can help programs determine whether a
   Construction Plus credential pathway is the right fit for their YouthBuild program
   participants.

   Please find additional information on what constitutes an industry-recognized credential in
   TEGL No. 15-10 at: http://wdr.doleta.gov/directives/corr_doc.cfm?docn=2967.

9. Inquiries. Questions on this TEGL may be addressed to the appropriate ETA regional
   office.

10. Attachment. Considerations Guide for Credential Attainment for US Department of Labor
    (DOL) YouthBuild Grantees

Attachment A: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2014/TEGL-7-14-Attachment-A-Acc.pdf

                                                                                    Attachment A

Considerations Guide for Credential Attainment for US Department of Labor (DOL)
YouthBuild Grantees

DOL YouthBuild grantees should become familiar with TEGL 15-10, “Increasing Credential,
Degree, and Certificate Attainment by Participants of the Public Workforce System,” which
describes the criteria for ensuring that credentials are career-enhancing and meet the standards
for the degree/certificate attainment performance measure (see Attachment 2). Some of the
important criteria to consider are whether credentials are stackable and portable. A credential is
considered “stackable” when it is part of a sequence of credentials that can be accumulated over
time to build up an individual’s qualifications and help him/her to move along a career pathway
or up a career ladder to different and potentially higher-paying jobs. A credential is considered
“portable” when it is recognized and accepted as verifying the qualifications of an individual in
other settings, such as a different geographic area, across educational institutions, or by other
industries or employers. See TEGL 15-10 for further explanation of the attributes of career-
enhancing credentials.

To be consistent with TEGL 15-10, the considerations outlined below should be used to help
YouthBuild grantees determine which certifications they should offer to participants. These
considerations help grantees to focus on the value-added aspects of certifications as they relate to
career entry and advancement. Grantees should use these considerations as a guiding tool for
designing occupational skills training and certification opportunities for youth, particularly for
those programs that were previously funded by DOL and are now considering expansion of
training into new labor markets. The considerations outlined below provide a lens through
which DOL YouthBuild grantees can ensure that they incorporate key components for successful
attainment of credentials into their program design. There is no right or wrong answers to the
considerations questions. Rather, these questions frame the intent of providing career-enhancing
occupational skills training to youth participants and illustrate what can be gained by selecting
stackable and portable credentials, certifications, or degrees that have labor market value; in
other words, credentials that are recognized by employers and considered valuable in hiring
decisions.

This Considerations Guide provides insight to grantees to consider when selecting occupational
skills training curricula that the program will use and the types of credentials to be pursued
within each industry. DOL requires each program to offer participants the opportunity to attain
an industry-recognized credential in construction. Additionally, with advance approval from
DOL, beginning with the 2012 grant awards, those that have been previously-funded may now
include additional occupational skills training opportunities in in-demand sectors as part of their
DOL YouthBuild program model.

Industry-recognized credentials provide an opportunity for YouthBuild participants to
demonstrate and document skills and may lead to advantages in the hiring process, higher
earnings, enhanced job security, or advancement along a career pathway. According to the
Bureau of Labor Statistics (BLS), between 2012 and 2022, 19 of the 30 fastest growing
occupations will require some form of post-secondary education. Moreover, “occupations that

typically require an apprenticeship are projected to grow 22.2 percent from 2012 to 2022, faster
than any other on-the-job training assignment.” (Bureau of Labor Statistics, Employment
Projections - 2012-2022, December 2013)

Definition of Credential

TEGL 15-10 defines “credential” as a broad term that encompasses educational certificates or
degrees, occupational licenses, Registered Apprenticeships, and industry-recognized
certifications.

Considerations:

    1. What is the labor market value of the proposed credential?
        a. Is the skills training responsive to employer needs and employer-driven (i.e., does
             the industry drive the curriculum of the credential)?
        b. Does it meet the skills and competencies as identified by the industry/employer?
        c. Is the credential recognized by employers and taken into consideration in hiring,
             promotion, and compensation decisions?
        d. Are the skills documented through the credential currently in demand in the local
             labor market?
        e. Does the training increase the participant’s employment potential in a demand
             occupation, either nationally or locally?

    2. What is the length and intensity of the skills training course of study?
        a. Are the design, delivery, and duration of the curriculum sufficient to achieve
             learning outcomes? What is the minimum length of time required to attain the
             necessary skills for certification?
        b. Are there opportunities for on-the-job training or internships affiliated with the
             course of study? Is there a minimum requirement for work-based training?
        c. Is an apprenticeship required to gain the credential?

    3. What are the pre-requisites for the credentialing (educational or otherwise)?
        a. Is an entrance examination required?
        b. Is a high school diploma or equivalency required? Can career and technical
            training be started concurrently with secondary education?
        c. Are there minimum requirements beyond a high school diploma for each
            credential offered?

    4. What are the affiliated or stackable credentials related to the field(s) under consideration?
        a. Does it allow students to achieve the skills to get, keep, and progress in a chosen
            job or to enter further post-secondary or vocational training options?
        b. Does it incorporate some other educational components beyond the vocational
            field of study, such as college credit or foundational coursework?
        c. Are there opportunities for further post-secondary study or training in a related
            field that lead to additional credentials?

       d. Is the credential embedded in a larger career pathway model (such as the
          progression from Paramedic or Certified Nursing Assistant to Licensed Practical
          Nurse to Registered Nurse in which skills demonstrated in each credential provide
          foundations for the next level) that provides opportunities to continue developing
          income-enhancing skills and competencies?
       e. Does the vocational training include apprenticeable fields or lead to
          apprenticeship opportunities?
       f. Are other public agencies, including educational institutions, economic
          development organizations, and human services providers, included in
          certification development, to ensure the effective leveraging and targeting of
          public resources aimed at increasing the skills of American workers?

5. Does the credential assist participants with specific barriers to employment to access
   career pathways?
       a. Does it provide a demonstration of additional training for youth populations that
           may often be overlooked in hiring (such as justice-involved youth)?
       b. Are there credentials from which specific populations are excluded– either from
           attaining the degree or being gainfully employed in the affiliated industry?