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WIOA core-program performance accountability
Summary DOL and Education gave states and grantees guidance on WIOA performance indicators, data collection and reporting across the six core workforce programs. Eleven attachments provide definitions, tables, charts and calculations. TEGL 10-16, Change 1 later rescinded and replaced this version.
Document
Federal guidance
Agency
U.S. Department of Labor, Employment and Training Administration (ETA)
Document number
TEGL No. 10-16
Date issued
December 19, 2016
Status
Rescinded
TEGL 10-16, Change 1 expressly rescinds and replaces this letter; ETA lists the base letter Canceled as of 2026-10-24.
Status last verified October 24, 2026
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CLASSIFICATION
EMPLOYMENT AND TRAINING ADMINISTRATION Performance
ADVISORY SYSTEM CORRESPONDENCE SYMBOL
U.S. DEPARTMENT OF LABOR OPDR/OWI
Washington, D.C. 20210 DATE
December 19,2016
ADVISORY: TRAINING AND EMPLOYMENT GUIDANCE LETTER WIOA NO. 10-16
OPERATING GUIDANCE for the WORKFORCE INNOVATION AND
OPPORTUNITY ACT (referred to as WIOA)
TO: STATE AND LOCAL STAKEHOLDERS IN THE WORKFORCE
INNOVATION AND OPPORTUNITY ACT
STATE WORKFORCE AGENCIES
STATE WORKFORCE ADMINISTRATORS
STATE WORKFORCE LIAISONS
FROM: PORTIA WU /s/
Assistant Secretary for Employment and Training, Department of Labor
SUBJECT: Performance Accountability Guidance for Workforce Innovation and
Opportunity Act (WIOA) Title I, Title II, Title III and Title IV Core Programs
1. Purpose.
This Training and Employment Guidance Letter (TEGL) provides sub-regulatory guidance
on the requirements set forth in the Workforce Innovation and Opportunity Act (WIOA),
related to the implementation and operation of the performance accountability system under
section 116 of WIOA and the implementing joint regulations in 20 CFR part 677 (and
reprinted in 34 CFR parts 361 and 463). As explained further in this guidance, developed
jointly by the U.S. Departments of Labor (DOL) and Education (ED) (Departments), WIOA
requires all States and direct grantees of the Departments to collect and report information on
all the participants described in this TEGL.
WIOA, signed into law on July 22, 2014, 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
The WIOA Joint Rule for Unified and Combined State Plans, Performance Accountability,
and the One-Stop System Joint Provisions (Joint WIOA Final Rule) was published in the
Federal Register on August 19, 2016, at 81 FR 55791, and took effect on October 18, 2016.
This guidance is based on the statutory requirements of WIOA, as well as its implementing
final regulations.
2. References. See Attachment 11.
3. Background.
Section 116 of WIOA establishes performance accountability indicators and performance
reporting requirements to assess the effectiveness of States and local areas in achieving
positive outcomes for individuals served by the workforce development system’s six core
programs. These six core programs are the Adult, Dislocated Worker, and Youth programs,
authorized under WIOA title I and administered by DOL; the Adult Education and Family
Literacy Act (AEFLA) program, authorized under WIOA title II and administered by ED; the
Employment Service program authorized under the Wagner-Peyser Act, as amended by
WIOA title III and administered by DOL; and the Vocational Rehabilitation (VR) program
authorized under title I of the Rehabilitation Act of 1973, as amended by WIOA title IV and
administered by ED. WIOA provides a historic opportunity to align performance-related
definitions, streamline performance indicators, integrate reporting, and ensure comparable
data collection and reporting across all six of these core programs, while also implementing
program-specific requirements related to data collection and reporting.
Through this guidance, the Departments elaborate on the performance accountability
requirements in section 116 of WIOA, part 677 of the Joint WIOA Final Rule (also
reproduced in 34 CFR parts 361 (VR) and 463 (AEFLA)), and the performance reporting
requirements in the WIOA Joint Performance Accountability Information and Reporting
System (WIOA Performance ICR), approved by the Office of Management and Budget
(OMB) on June 30, 2016 as No. 1205-0526. Specifically, this TEGL addresses the:
Methodology for calculating the six primary indicators of performance for the core
programs;
Definitions of: (1) reportable individual, (2) participant, (3) exit, and (4) period of
participation; and
Guidance related to: (1) career services vs. training services, (2) core services, (3)
incumbent worker training, and (4) indicator of performance score calculation.
Where applicable, this document refers to data elements in the WIOA Joint Participant
Individual Record Layout (Joint PIRL).1 Additional references are also made to the DOL-
only PIRL, as applicable for the DOL-administered programs.
The specific sections of this guidance can be found on the following pages:
Section Page
Primary Indicators of Performance 5
A. Employment Rate – 2nd Quarter After Exit 8
A-1. Title I Youth Education and Employment Rate – 2nd Quarter After Exit
Quarter
B. Employment Rate – 4th Quarter After Exit 9
B-1. Title I Youth Education and Employment Rate – 4th Quarter After Exit
Quarter
C. Median Earnings – 2nd Quarter After Exit 10
D. Credential Attainment 12
E. Measurable Skill Gains 17
F. Effectiveness in Serving Employers 23
Categories of Enrollment: Reportable Individual, Participant & Date of Exit from 29
the program
Self-Service and Information-Only Activities 35
Period of Participation 36
Career Service and Training Service Guidance 37
Incumbent Worker Training Under Title I 40
4. List of Attachments.
Attachment 1: Definitions of Terms Related to the Performance Accountability System
Attachment 2:
- Table A: Exclusions (PIRL Data Element 923): Title I Adult, Title I Dislocated
Worker, Title II AEFLA, Title III Employment Service, and Title IV VR
Programs;
- Table B: Exclusions (PIRL Data Element 923): Title I Youth program; and
1
ETA Form-9170, the WIOA Participant Individual Record Layout (Joint PIRL), has been approved with OMB
Control Number 1205-0526 (Workforce Innovation and Opportunity Act Common Performance Reporting,
expiration date June 30, 2019), available at https://doleta.gov/performance/reporting/eta_default.cfm. The PIRL
provides a standardized set of data elements, definitions, and reporting instructions used to describe the
characteristics, activities, and outcomes of WIOA participants.
- Table C: Exclusions: Sec. 225 of WIOA
Attachment 3: Wage Conversion Chart
Attachment 4:
- Table – A: Effectiveness in Serving Employers’ Data Elements Specifications
- Table – B: Effectiveness in Serving Employers’ Specifications: Employer
Repeat Business Customers and Penetration Rate
Attachment 5: Periods of Participation – Effects on Indicators of Performance
Attachment 6: Examples of Counting Periods of Participation for Exit-Based Indicators
of Performance
Attachment 7:
- Table – A: Participation Level Services Chart – WIOA Title I Adult, Title I
Dislocated Worker and Title III Wagner-Peyser Act Employment Service
Program;
- Table – B: Participation Level Services Chart – WIOA Title I Youth Program;
- Table – C: Applicable Career and Training Services for WIOA Title II AEFLA
Program; and
- Table – D: Participation Level Services Chart – WIOA Title IV VR Program
Attachment 8: Incumbent Worker Training Required Data Elements
Attachment 9: Calculation – Average Indicator of Performance Score
Attachment 10: Calculations – WIOA Indicators of Performance
Attachment 11: References – WIOA Operating Guidance
5. Definitions of Terms Related to the Performance Accountability System.
This guidance uses the following terms. See Attachment 1 for complete definitions.
Common Exit
Competitive Integrated Employment
Customized Training
Employment
Exit
Incumbent worker
Integrated Education and Training Program (IET)
Participant
Participant Individual Record Layout
Period of participation
Reportable individual
Secondary school diploma
Unsubsidized employment
6. Primary Indicators of Performance.
Under section 116(b)(2)(A) of WIOA, there are six primary indicators of performance:
A. Employment Rate – 2nd Quarter After Exit: The percentage of participants who are in
unsubsidized employment during the second quarter after exit from the program (for title
I Youth, the indicator is the percentage of participants in education or training activities,
or in unsubsidized employment during the second quarter after exit);
B. Employment Rate – 4th Quarter After Exit: The percentage of participants who are in
unsubsidized employment during the fourth quarter after exit from the program (for title I
Youth, the indicator is the percentage of participants in education or training activities, or
in unsubsidized employment during the fourth quarter after exit);
C. Median Earnings – 2nd Quarter After Exit: The median earnings of participants who are
in unsubsidized employment during the second quarter after exit from the program;
D. Credential Attainment: The percentage of those participants enrolled in an education or
training program (excluding those in on-the-job training (OJT) and customized training)
who attain a recognized postsecondary credential or a secondary school diploma, or its
recognized equivalent, during participation in or within one year after exit from the
program. A participant who has attained a secondary school diploma or its recognized
equivalent is included in the percentage of participants who have attained a secondary
school diploma or its recognized equivalent only if the participant also is employed or is
enrolled in an education or training program leading to a recognized postsecondary
credential within one year after exit from the program;
E. Measurable Skill Gains: The percentage of program participants who, during a program
year, are in an education or training program that leads to a recognized postsecondary
credential or employment and who are achieving measurable skill gains, defined as
documented academic, technical, occupational, or other forms of progress, towards such
a credential or employment. Depending on the type of education or training program,
documented progress is defined as one of the following:
a) Documented achievement of at least one educational functioning level of a
participant who is receiving instruction below the postsecondary education level;
b) Documented attainment of a secondary school diploma or its recognized equivalent;
c) Secondary or postsecondary transcript or report card for a sufficient number of credit
hours that shows a participant is meeting the State unit’s academic standards2;
d) Satisfactory or better progress report, towards established milestones, such as
completion of OJT or completion of one year of an apprenticeship program or similar
milestones, from an employer or training provider who is providing training; or
e) Successful passage of an exam that is required for a particular occupation or progress
in attaining technical or occupational skills as evidenced by trade-related benchmarks
such as knowledge-based exams.
F. Effectiveness in Serving Employers: WIOA sec. 116(b)(2)(A)(i)(VI) requires the
Departments to establish a primary indicator of performance for effectiveness in serving
employers. The Departments are piloting three approaches designed to gauge three
critical workforce needs of the business community.
o Approach 1 – Retention with the same employer – addresses the programs’ efforts to
provide employers with skilled workers;
o Approach 2 – Repeat Business Customers – addresses the programs’ efforts to
provide quality engagement and services to employers and sectors and establish
productive relationships with employers and sectors over extended periods of time;
and
o Approach 3 – Employer Penetration Rate – addresses the programs’ efforts to provide
quality engagement and services to all employers and sectors within a State and local
economy.
Since this indicator is a new approach for measuring performance under WIOA’s six core
programs, the Departments have implemented a pilot program during which States must
select two of the three approaches. They also may develop an additional State-specific
approach. The Departments will evaluate State experiences with the various approaches
and plan to identify a standardized indicator that the Departments anticipate will be
implemented no later than the beginning of Program Year 2019.
2
Within each State there is an administrative unit that provides authorization to postsecondary institutions within the
State. States differ in the requirements to which they hold postsecondary institutions responsible for satisfactory
progress. Progress for WIOA purposes must comply with any applicable State standards. Likewise, every State has
a State educational agency that establishes education standards for secondary education within the State, which
would apply for purposes of determining if a participant is meeting the State’s academic standards.
The methodologies for calculating most of the primary indicators of performance are written
as equations (see Attachment 10), clearly identifying which cohorts are in the numerator and
which cohorts are in the denominator. In cases where there are conditions that apply to both
the numerator and denominator, the condition is represented in italics at the beginning of the
discussion about the indicator.
These primary indicators of performance apply to all six core programs, except that the
indicators for credential attainment and measurable skill gains do not apply to the title III
Employment Service program.
For the three employment-related performance indicators (employment rate in the second and
fourth quarters after exit and median earnings in the second quarter after exit), status in
unsubsidized employment and quarterly earnings may be determined by direct
Unemployment Insurance (UI) wage match, Federal employment records, military
employment records, or supplemental wage information. Participants who are in the military
or in a Registered Apprenticeship program are also considered as employed, and their
quarterly earnings are calculated, for the purpose of these indicators. Supplemental wage
information may be collected in those circumstances where quarterly wage records are not
available or may not apply (e.g. for participants who are self-employed, or for participants
who decline to provide a social security number (SSN)). States must submit supplemental
wage information to the Departments by using the data reporting instruments (i.e., PIRL and
Statewide and Local Performance Report Template and Specifications). The Departments
will provide specific protocols on the use and reporting of supplemental wage information in
future guidance.
In addition, as set forth in more detail in Attachment 2, Table A and Attachment 2, Table
B, under very limited circumstances, some participants who exit programs are excluded from
the performance calculations for the six indicators. These categories of exclusions apply to
participants in all six core programs who exit for any of the reasons described in Attachment
2, Tables A and B. Additionally, participants receiving services under WIOA sec. 225 are
excluded from exit-based measures described in Attachment 2, Table C.
Furthermore, participants who have exited a program, but for whom exit-based information
(e.g., employment-related information) is not yet available, are not included in performance
calculations until such data subsequently become available. For the employment-related
indicators (i.e., employment rate in the second and fourth quarters after exit, and median
earnings in the second quarter-s after exit), if employment status is recorded as “Information
not yet available” or if total earnings are recorded as “999999.99” (data were not yet
available), the participant record will be excluded from the performance calculations. The
Departments anticipate, however, that data for the employment indicators will generally be
available, as there is a two-quarter lag built into the reporting times for the employment- and
wage-based indicators to allow time for reporting participant exit and conducting direct UI
wage record match.
The methodology for calculating the primary indicators of performance for the core
programs, and the operational parameters determining the population assessed for each
primary indicator, are as follows.
A. Employment Rate – 2nd Quarter After Exit
Employment Rate – 2nd Quarter After Exit is the percentage of program participants who
are in unsubsidized employment during the second quarter after exit from the program.
Methodology:
Calculation includes all program participants, except those participating in the title I
Youth program (which will be discussed separately below):
The number of participants who exited during the reporting period who are found to
be employed, either through direct UI wage record match, Federal or military
employment records, or supplemental wage information, in the second quarter after
the exit quarter DIVIDED by the number of participants who exited during the
reporting period. This is described in Attachment 10, Figure 1.
Operational Parameters:
When calculating levels of performance for this indicator, States must include all
participants exiting the title I Adult, title I Dislocated Worker, title II AEFLA, title III
Employment Service, and title IV VR programs, except States must not include (in either
the numerator or denominator) those participants who exit during the reporting period for
any of the reasons listed in Attachment 2, Table A or Attachment 2, Table C (PIRL
923) regarding exclusions.
A-1. Title I Youth Education and Employment Rate – 2nd Quarter After Exit
Title I Youth Education and Employment Rate – 2nd Quarter After Exit is the percentage
of title I Youth program participants who are in education or training activities, or in
unsubsidized employment, during the second quarter after exit from the program.
Methodology:
Calculation includes all title I Youth program participants:
The number of title I Youth program participants who exited during the reporting
period who are found to be employed, either through direct UI wage record match,
Federal or military employment records, or supplemental wage information, OR
found to be enrolled in secondary education, postsecondary education, or
occupational skills training (including advanced training) in the second quarter after
the exit quarter DIVIDED by the number of title I Youth program participants who
exited the program during the reporting period. This is described in Attachment 10,
Figure 2.
Operational Parameters:
Calculations for determining levels of performance for this indicator include all
participants who exit the title I Youth program except those that exit for any of the
reasons listed in Attachment 2, Table B or Attachment 2, Table C (PIRL 923). Title I
Youth who are in the AmeriCorps program or Job Corps program in the second quarter
after exit are counted as a success in the training portion of the indicator.
B. Employment Rate – 4th Quarter After Exit
Employment Rate – Fourth Quarter After Exit is the percentage of program participants
who are in unsubsidized employment during the fourth quarter after exit from the
program.
Methodology:
Calculation includes all program participants, except those participating in the title I
Youth program (which will be discussed separately below):
The number of participants who exited during the reporting period who are found to
be employed, either through direct UI wage record match, Federal or military
employment records, or supplemental wage information, in the fourth quarter after
the exit quarter DIVIDED by the number of participants who exited during the
reporting period. This is described in Attachment 10, Figure 3.
Operational Parameters:
Calculation of levels of performance for this indicator includes all participants who exit
from the title I Adult, title I Dislocated Worker, title II AEFLA, title III Employment
Service, and title IV VR programs, except States must not include (in either the
numerator or denominator) those who exit for any of the reasons listed in Attachment 2,
Table A.
B - 1. Title I Youth Education and Employment Rate – 4th Quarter After Exit
Title I Youth Education and Employment Rate – Fourth Quarter After Exit is the
percentage of program participants who are in education or training activities, or in
unsubsidized employment, during the fourth quarter after exit from the program.
Methodology:
Calculation includes all title I Youth program participants who exit from the program:
The number of title I Youth program participants who exited the program during the
reporting period who are found to be employed, either through direct UI wage record
match, Federal or military employment records, or supplemental wage information,
OR found to be enrolled in secondary education, postsecondary education, or
occupational skills training (including advanced training) in the fourth quarter after
the exit quarter DIVIDED by the number of title I Youth program participants who
exited the program during the reporting period. This is described in Attachment 10,
Figure 4.
Operational Parameters:
Calculation of levels of performance for this indicator includes all participants who exit
from the title I Youth program, except those who exit for any of the reasons listed in
Attachment 2, Table B. Title I Youth who are in the AmeriCorps program or Job Corps
program in the fourth quarter after exit are counted as a success in the training portion of
the indicator.
C. Median Earnings – 2nd Quarter After Exit
Median Earnings – 2nd Quarter After Exit is the median earnings of program participants
who are in unsubsidized employment during the second quarter after exit from the
program, as established through direct UI wage record match, Federal or military
employment records, or supplemental wage information.
Methodology:
To calculate the median earnings for all participants employed in the second quarter
after exit from any of the core programs, including the title I Youth program:
Total quarterly earnings, for all participants employed in the second quarter after exit,
are collected by either direct wage record match or supplemental wage information.
The collected quarterly wage information values are listed in order, from the lowest to
the highest value. The value in the middle of this list is the median earnings value,
where there is the same quantity of numbers above the median number as there is
below the median number. This is described in Attachment 10, Figure 5.
The Wage Conversion Chart (Attachment 3) is used to convert supplemental wage
information values that do not represent the total amount a participant earned in the
second quarter after exit.
Operational Parameters:
The following participants and any associated earnings figures are excluded from the
calculation for median earnings:
1. Participants who have exited and are not employed in the second quarter after exit
(PIRL 1602 – Employed in 2nd Quarter After Exit Quarter – with code value 0)
2. Participants who have exited a program and for whom earnings information is not
yet available:
PIRL 1602 – Employed in 2nd Quarter After Exit Quarter – with code 09
(Information not yet available); or
PIRL 1603 – Type of Employment Match 2nd Quarter After Exit Quarter –
with code value 5 (Information not yet available); or
PIRL 1704 – Wages 2nd Quarter After Exit Quarter – with code value
999999.99 or blank.
There is a two quarter lag built into the reporting times for the wage- and
employment-based indicators to allow time for reporting participant exit and
conducting direct wage record match. After two quarters, if the information is still
not available, wages will be converted to $0 permanently. Wages reported as $0
will indicate that the participant was not employed in the second quarter after exit,
thereby counting as a negative outcome in the Employment Rate 2nd Quarter
After Exit indicator and excluding that participant from the Median Earnings 2nd
Quarter After Exit indicator.
3. Participants who have exited from a program and who have $0 income. For
purposes of the VR program, these participants would include unpaid family
workers and homemakers.
4. Participants who have exited a program and are in subsidized employment.
5. Participants who have exited for any of the reasons listed in Attachment 2,
Tables A through C.
D. Credential Attainment
Credential Attainment is the percentage of those participants enrolled in an education or
training program (excluding those in OJT and customized training) who attained a
recognized postsecondary credential or a secondary school diploma, or its recognized
equivalent, during participation in or within one year after exit from the program.
A participant who has attained a secondary school diploma or its recognized equivalent
is included in the percentage of participants who have attained a secondary school
diploma or its recognized equivalent only if the participant also is employed or is
enrolled in an education or training program leading to a recognized postsecondary
credential within one year after exit from the program.
Methodology:
Calculation includes all participants who exited from a program and were in either a
postsecondary education or training program (other than OJT and customized training)
OR in a secondary education program at or above the 9th grade level without a
secondary school diploma or its equivalent:
The number of participants who exited during the reporting period who obtained a
recognized postsecondary credential during the program or within one year after exit
PLUS those who were in a secondary education program and obtained a secondary
school diploma or its recognized equivalent during the program or within one year
after exit and were also employed, or in an education or training program leading to a
recognized postsecondary credential within one year after exit DIVIDED by the
number of participants enrolled in an education or training program (excluding those
in OJT and customized training) who exited during the reporting period. This is
described in Attachment 10, Figure 6.
Operational parameters:
Definition of Credential: This indicator measures attainment of two types of credentials:
either a recognized postsecondary credential, or a secondary school diploma or its
recognized equivalent.
A recognized postsecondary credential is defined as a credential consisting of an
industry-recognized certificate or certification, a certificate of completion of an
apprenticeship, a license recognized by the State involved or Federal government, or an
associate or baccalaureate degree, as well as graduate degrees for purposes of the VR
program as required by section 103(a)(5) of the Rehabilitation Act of 1973, as amended
by title IV of WIOA. A recognized postsecondary credential is awarded in recognition of
an individual’s attainment of measurable technical or industry/occupational skills
necessary to obtain employment or advance within an industry/occupation. These
technical or industry/occupational skills generally are based on standards developed or
endorsed by employers or industry associations. Neither certificates awarded by
workforce development boards (WDBs), nor work readiness certificates, are included in
this definition because neither type of certificate documents the measurable technical or
industry/occupational skills necessary to gain employment or advance within an
occupation. Likewise, such certificates must recognize technology or
industry/occupational skills for the specific industry/occupation rather than general skills
related to safety, hygiene, etc., even if such general skills certificates are broadly required
to qualify for entry-level employment or advancement in employment.
A variety of different public and private entities issue recognized postsecondary
credentials. Below is a list of the types of organizations and institutions that award
recognized postsecondary credentials (not all credentials by these entities meet the
definition of recognized postsecondary credential).
A State educational agency or a State agency responsible for administering vocational
and technical education within a State;
An institution of higher education described in Section 102 of the Higher Education
Act (20 USC 1002) that is qualified to participate in the student financial assistance
programs authorized by title IV of that Act. This includes community colleges,
proprietary schools, and all other institutions of higher education that are eligible to
participate in Federal student financial aid programs;
An institution of higher education that is formally controlled, or has been formally
sanctioned or chartered, by the governing body of an Indian tribe or tribes.
A professional, industry, or employer organization (e.g., National Institute for
Automotive Service Excellence certification, National Institute for Metalworking
Skills, Inc., Machining Level I credential) or product manufacturer or developer (e.g.,
recognized Microsoft Information Technology certificates, such as Microsoft
Certified IT Professional (MCITP), Certified Novell Engineer, a Sun Certified Java
Programmer, etc.) using a valid and reliable assessment of an individual’s knowledge,
skills and abilities;
ETA’s Office of Apprenticeship or a State Apprenticeship Agency;
A public regulatory agency, which awards a credential upon an individual’s
fulfillment of educational, work experience, or skill requirements that are legally
necessary for an individual to use an occupational or professional title or to practice
an occupation or profession (e.g., Federal Aviation Administration aviation mechanic
license, or a State-licensed asbestos inspector);
A program that has been approved by the Department of Veterans Affairs to offer
education benefits to veterans and other eligible persons.
Job Corps, which issues certificates for completing career training programs that are
based on industry skills standards and certification requirements.
Definition of a Secondary School Diploma: For purposes of the credential attainment
performance indicator, a secondary school diploma (or alternate diploma) (commonly
referred to as high school diploma) is one that is recognized by a State and that is
included for accountability purposes under the Elementary and Secondary Education Act
of 1965 (ESEA), as amended by the Every Student Succeeds Act (ESSA). A secondary
school equivalency certification signifies that a student has completed the requirements
for a high school education. The types of recognized equivalents, for those not covered
under ESEA, that would satisfy this performance indicator are those recognized by a
State.
Examples of secondary school diplomas, alternate diplomas, and recognized equivalents
recognized by individual States include:
Obtaining certification of attaining passing scores on a State-recognized high school
equivalency test.
Earning a secondary school diploma or State-recognized equivalent through a credit
bearing secondary education program sanctioned by State law, code, or regulation.
Obtaining certification of passing a State recognized competency-based assessment.
Completion of a specified number of college credits.
Types of Acceptable Credentials: The following are acceptable types of credentials that
count toward the credential attainment indicator:
Secondary School diploma or recognized equivalent
Associate’s degree
Bachelor’s degree
Graduate degree for purposes of the VR program
Occupational licensure
Occupational certificate, including Registered Apprenticeship and Career and
Technical Education educational certificates
Occupational certification
Other recognized certificates of industry/occupational skills completion sufficient
to qualify for entry-level or advancement in employment.
Who is included in the Calculation of the Credential Attainment Indicator:
Participants who exit and are in a postsecondary education or training program, or who
are in a secondary education program (at or above the 9th grade level) without a
secondary school diploma or equivalent, are included in the credential attainment
indicator, subject to the “Special Rule” below. However, participants enrolled in work-
based OJT or customized training are excluded from this indicator because such training
does not typically lead to a credential.
Special Rule Relating to Secondary School Diplomas and Recognized Equivalents in
the Calculation of the Credential Attainment Indicator:
Participants who obtain a secondary school diploma or its recognized equivalent must
also meet an additional condition before they are counted as a successful outcome and
included in the numerator of the credential attainment indicator. These participants must
be employed, or enrolled in an education or training program leading to a recognized
postsecondary credential within one year following exit.
For each core program, a description of who is considered to be enrolled in an “education
or training program”, and thus included in the credential attainment indicator, follows:
Title I Adult: All Adult program participants who received training that was not OJT
or Customized Training are included in the credential attainment indicator.
Title I Dislocated Worker: All Dislocated Worker program participants who
received training that was not OJT or Customized Training are included in the
credential attainment indicator.
Title I Youth: All in-school Youth (ISY) are included in the credential attainment
indicator since they are attending secondary or postsecondary school. Only out-of-
school Youth (OSY) who participate in one of the following are included in the
credential attainment indicator:
- the program element occupational skills training
- secondary education during participation in the title I Youth program
- postsecondary education during participation in the title I Youth program
- Title II-funded adult education during participation in the title I Youth
program
- YouthBuild during participation in the title I Youth program
- Job Corps during participation in the title I Youth program
Title II AEFLA: The following AEFLA program participants are included in this
measure:
- For the secondary school credential: Participants without a secondary school
diploma or recognized equivalent, who were enrolled in a secondary education
program at or above the 9th grade level.
- For the postsecondary credential: Participants who were co-enrolled in a
postsecondary education or training program.
Title IV VR: The following VR program participants are included in this measure:
- All participants who have participated in an educational or training program
leading to a postsecondary credential.
- All participants who are enrolled in secondary education and who have the
attainment of a secondary school diploma or its equivalent identified on their
Individualized Plan for Employment (IPE).
Exclusions from the Measure:
Participants who exited a program and who were enrolled in the following are excluded
from the credential attainment indicator:
a. OJT only;
b. Customized training only; or
c. The title III Employment Service program (Wagner-Peyser) only.
Also, participants who exit for any of the reasons listed in Attachment 2, Tables A
through C are excluded from the credential attainment indicator.
E. Measurable Skill Gains
The Measurable Skill Gains indicator is the percentage of participants who, during a
program year, are in education or training programs that lead to a recognized
postsecondary credential or employment and who are achieving measurable skill gains,
defined as documented academic, technical, occupational, or other forms of progress,
towards such a credential or employment.
The measurable skill gains indicator is used to measure interim progress of participants
who are enrolled in education or training services for a specified reporting period.
Therefore, it is not an exit-based measure. Instead, it is intended to capture important
progressions through pathways that offer different services based on program purposes
and participant needs and can help fulfill the vision for a workforce system that serves a
diverse set of individuals with a range of services tailored to individual needs and goals.
Depending upon the type of education or training program in which a participant is
enrolled, documented progress is defined as one of the following:
1. Documented achievement of at least one educational functioning level of a
participant who is receiving instruction below the postsecondary education level;
2. Documented attainment of a secondary school diploma or its recognized
equivalent;
3. Secondary or postsecondary transcript or report card for a sufficient number of
credit hours that shows a participant is meeting the State unit’s academic
standards;
4. Satisfactory or better progress report, towards established milestones, such as
completion of OJT or completion of one year of an apprenticeship program or
similar milestones, from an employer or training provider who is providing
training; or
5. Successful passage of an exam that is required for a particular occupation or
progress in attaining technical or occupational skills as evidenced by trade-related
benchmarks, such as knowledge-based exams.
Examples:
A participant is enrolled in a 4-year registered apprenticeship program: the
measurable skill gains indicator tracks the skills the participant gains throughout the
reporting period, not just at the end of the 4-year training program.
Low-skilled adult participants of an adult education program: the measurable skill
gains indicator provides an opportunity to track and report gains in reading, writing,
mathematics, and English proficiency.
Documenting Progress for Types of Measurable Skill Gains
1. Documented achievement of at least one educational functioning level of a
participant who is receiving instruction below the postsecondary level – Programs
may measure educational functioning level gain in one of three ways:
(a) States may compare the participant’s initial educational functioning level, as
measured by a pre-test, with the participant’s educational functioning level, as
measured by a post-test;3
(b) States that offer adult high school programs that lead to a secondary school
diploma or its recognized equivalent may measure and report educational gain
through the awarding of credits or Carnegie units; or
(c) States may report an educational functioning level gain for participants who exit a
program below the postsecondary level and enroll in postsecondary education and
training during the program year. A program below the postsecondary level
applies to participants enrolled in a basic education program.
2. Documented attainment of a secondary school diploma4 or its recognized
equivalent – Programs may document attainment of a secondary school diploma or
its recognized equivalent if the participant obtains certification of attaining passing
scores on all parts of a State-recognized high school equivalency test, or the
participant obtains a diploma or State-recognized equivalent documenting satisfactory
completion of secondary studies or an alternate diploma5, including a high school or
adult secondary school diploma.
3. Secondary or postsecondary transcript or report card for a sufficient number of
credit hours that shows a participant is meeting the State unit’s academic
3
The approved pre- and post-tests must be based on the list of tests the Secretary of Education determines to be
suitable for use in the National Reporting System for Adult Education. The list of approved assessments is
published annually in the Federal Register. See Tests Determined To Be Suitable for Use in the National Reporting
System for Adult Education; Education Department, 80 Fed. Reg. 48304 (August 12, 2015).
https://federalregister.gov/a/2015-19847.
4
Secondary school diploma refers to a regular high school diploma, as defined in section §101(43) of the ESEA, as
amended by the ESSA. See Every Student Succeeds Act, Pub. L. 114-95, Sec. 8002. December 2015.
5
Alternate diploma must meet the requirements under the ESEA, as amended by the ESSA.
standards – For secondary education, this gain may be documented through receipt
of a secondary transcript6 or report card for one semester showing that the participant
is achieving the State unit’s policies for academic standards. For postsecondary
education, this gain must demonstrate a sufficient number of credit hours—which is
at least 12 hours per semester or, for part-time students, a total of at least 12 hours
over the course of two completed consecutive semesters during the program year—
that shows a participant is achieving the State unit’s academic standards (or the
equivalent for other than credit hour programs).
4. Satisfactory or better progress report, towards established milestones, such as
completion of OJT or completion of one year of an apprenticeship program or
similar milestones, from an employer or training provider who is providing
training – Documentation for this gain may vary, as programs should identify
appropriate methodologies based upon the nature of services being provided, but
progress reports must document substantive skill development that the participant has
achieved. The gain may be documented by a satisfactory or better progress report
from an employer or training provider. Progress reports may include training reports
on milestones completed as the individual masters the required job skills, or steps to
complete an OJT or apprenticeship program. Increases in pay resulting from newly
acquired skills or increased performance also can be used to document progress.
5. Successful passage of an exam that is required for a particular occupation or
progress in attaining technical or occupational skills as evidenced by trade-
related benchmarks, such as knowledge-based exams – Documentation for this
gain may include passage of a component exam in a Registered Apprenticeship
program, employer-required knowledge-based exam, satisfactory attainment of an
element on an industry or occupational competency-based assessment, or other
completion test necessary to obtain a credential.
Methodology:
Calculation includes all participants:
The number of program participants during the reporting period who are in an
education or training program that leads to a recognized postsecondary credential
or employment and are achieving measurable skill gains based on attainment of at
least one type of gain DIVIDED by the number of program participants during the
reporting period who are in an education or training program that leads to a
recognized postsecondary credential or employment.
6
Secondary transcript is specific to youth attending high school.
Participants who, during any point in the program year, are in an education or
training program that leads to a recognized postsecondary credential or
employment are included in the denominator. This includes participants who
continue to receive services as well as those who have participated during the
reporting period and have exited the program. Data for the denominator in this
calculation is drawn from PIRL 1811: Date Enrolled During Program
Participation in an Education or Training Program Leading to a Recognized
Postsecondary Credential or Employment.
The numerator is the number of program participants defined above who achieved
at least one type of gain. A participant may have achieved more than one type of
gain in a reporting period; however, only one gain per participant in a reporting
period may be used to calculate success on the measurable skill gains indicator.
These calculations are described in Attachment 10, Figure 7.
Operational Parameters:
All participants who, during a program year, are in an education or training program that
leads to a recognized postsecondary credential or employment are counted in the
calculation of this indicator. Participants who exit for any of the reasons listed in
Attachment 2, Tables A and B are excluded from the measurable skill gains indicator.
The following participants in education or training programs are included:
Title I Adult and Dislocated Worker – All participants who are in a title I Adult- or
Dislocated Worker-funded training program are included in the measurable skill gains
indicator (which includes funding a training program for a secondary school program
equivalent). This includes all participants in work-based training. (Refer to
Incumbent Workers Training section on page 39.)
Title I Youth – All ISY are included in the measurable skill gains indicator since
they are attending secondary or postsecondary school. Only OSY who are in one of
the following are included in the indicator:
- the program element occupational skills training
- secondary education during participation in the title I Youth program
- postsecondary education during participation in the title I Youth program
- Title II-funded adult education during participation in the title I Youth
program
- the YouthBuild program during participation in the title I Youth program
- Job Corps during participation in the title I Youth program
Title II AEFLA – All participants in title II AEFLA programs are considered to
be in an education program leading to a recognized postsecondary credential or
employment and, as such, would be included in the measurable skill gains
indicator.
Title IV VR – All VR program participants who are in an education or training
program that leads to a recognized secondary or postsecondary credential, which
is identified on the individual’s IPE, would be included in the measurable skill
gains indicator.
Additional Operational Parameters:
Participants are only included in the denominator one time per reporting period (i.e.,
program year), regardless of how many skill gains they achieve in a given program
year unless the individual has more than one period of participation in a given
program year. Likewise, participants are only included in the numerator one time per
reporting period (i.e., program year), regardless of how many skill gains they achieve
in a given program year unless the individual has more than one period of
participation in a given program year (See Section 9, page 35, for discussion on
periods of participation.);
A participant who exits the program and re-enrolls in the program during the same
program year and is in an education or training program will be in the indicator two
times for that particular program year, as explained in the discussion of periods of
participation in Section 9 of this guidance;
The measurable skill gains indicator is different from the other indicators because it is
not exit-based, meaning that a participant can achieve a measurable skill gain while
still participating in a program; and
Programs should not delay enrollment or services to participants until a new program
year even if programs believe there is insufficient time for the participant to make any
type of measurable skill gain by the end of that program year.
For performance accountability purposes, the measurable skill gains indicator calculates
the number of participants who attain at least one type of gain during each period of
participation within a given program year. Since this indicator is not exit-based, each
unique program entry date (not exit date) triggers inclusion in the calculation.
Participants will achieve a successful outcome in the indicator as long as they attain one
type of gain applicable to the core programs. See the example below for how this would
apply in a typical scenario.
Example
Chris enters an American Job Center and becomes a participant on October 2, 2016 (PY16). He
exits the program on February 10, 2017. During this time, Chris achieves two types of gain under
the measurable skill gain indicator.
He re-enters the program as a participant on June 11, 2017 (PY16). By the end of the program
year (June 30, 2017), he is still in his second participation period. During this time, Chris obtains
an additional type of gain under the measurable skill gain indicator.
In this example, Chris has two periods of participation and two positive outcomes on the
measurable skill gains indicator. Although two types of gain were achieved in the first period of
participation, only one of the two types of gains counts toward the indicator in the first
participation period. During the second period of participation, another type of gain was achieved
before the end of the program year, which counts as another positive outcome towards the
measurable skill gains indicator.
This information is collected, for all core programs (except the title III Employment
Service program), as part of the Measurable Skill Gains Report Template. If a participant
achieves more than one type of measurable skill gain in a reporting period, the most
recent gain is the skill gain type that should be recorded on the Measurable Skill Gains
Report Template.
Operational Parameters – Individual Core Programs:
The appropriate types of measurable skill gains for each core program are detailed in the
table below. These parameters are intended to focus performance accountability under
measurable skill gain on the services that are allowable under the respective statutory
provisions.
Operational Parameters – Individual Core Programs
Core Program Type of Measurable Skill Gains
Title I – Adult and Dislocated Worker Measured by achievement of any of the 5 types of
measurable skill gains
No specific measurable skill gain types required for
specific Adult or Dislocated Worker participants
Title I – Youth Measured by achievement of any of the 5 types of
measurable skill gains
No specific measurable skill gains types required
for specific Youth participants
Type of skill gain should be based on the youth’s
individual service strategy
Operational Parameters – Individual Core Programs
Core Program Type of Measurable Skill Gains
Title II – AEFLA Measured by:
- Achievement of at least one educational
functioning level, OR
- Documented attainment of a secondary school
diploma or its recognized equivalent.
Title IV – VR May be measured by achievement of any of the 5
measurable skill gains.
F. Effectiveness in Serving Employers
WIOA sec. 116(b)(2)(A)(i)(VI) requires the Departments to establish a primary indicator
of performance for effectiveness in serving employers. The Departments have
determined that this indicator will be measured as a shared outcome across all six core
programs within each State to ensure a holistic approach to serving employers. The
Departments are implementing this indicator in the form of a pilot program to test the
rigor and feasibility of three approaches, and to subsequently set a standardized indicator.
This indicator is reported on an annual basis; therefore, the reporting period for the
effectiveness in serving employers indicator is the program year.
As described in the Joint WIOA Final Rule and the Joint WIOA Performance ICR (OMB
Control No. 1205-0526), the Departments have developed three approaches for
measuring effectiveness in serving employers. States must select two of these three
approaches to report on this indicator. Governors also may establish and report on a third
State-specific approach for measuring effectiveness, in addition to the two Departmental
approaches selected. The Departments will evaluate State experiences with the various
approaches and plan to identify a standardized indicator that the Departments anticipate
will be implemented no later than the beginning of Program Year 2019.
The three approaches implemented by the Departments are designed to gauge three
critical workforce needs of the business community:
1) Providing employers with skilled workers;
2) Providing quality engagement and services to employers and sectors and
establishing productive relationships with employers and sectors over extended
periods of time; and
3) Providing quality engagement and services to all employers and sectors within a
State and local economy.
a. Three Approaches to Measuring Effectiveness in Serving Employers (Each State
must select two and may also develop a third State-established measure(s).)
1. Retention (Retention with the same employer) – This approach captures the
percentage of participants who exit and are employed with the same employer
in the second and fourth quarters after exit. States must use wage records to
identify whether a participant’s employer wage record indicates a match of the
same establishment identifier (such as a Federal Employer Identification
Number (FEIN) or State tax id) in the second and fourth quarters.
This approach is useful in determining whether the core programs are serving
employers effectively by improving the skills of their workforce and decreasing
employee turnover.
2. Repeat Business Customers (Percentage of repeat employers using services
within the previous three years) – This approach tracks the percentage of
employers who receive services that use core program services more than once.
This approach is useful in determining whether employers who receive services
from the core programs are satisfied with those services and become repeat
customers. This approach also assesses the workforce system’s ability to
develop and maintain strong relationships with employers over extended
periods of time.
3. Employer Penetration Rate (Percentage of employers using services out of all
employers in the State) – This approach tracks the percentage of employers
who are using the core program services out of all employers represented in an
area or State served by the public workforce system (i.e., employers served).
States are required to track data elements E1 – E4 in Attachment 4, Table A
(“Effectiveness in Serving Employers Specifications”) of the WIOA joint
reporting requirements for employer penetration rate and repeat business
customer measures. American Job Centers will keep track of the number of
establishments served within a program year, and States will collect that data
and compare it to the aggregate number of employers in a given State and/or
county.
This approach is useful in determining whether the core programs are serving a
large portion of employers in an area and are adequately meeting the
workforce needs of the area.
b. How to Calculate
In order to implement the effectiveness in serving employers indicator as a shared
indicator, the Departments recommend that States centralize the coordination of data
collection and reporting into a single agency. Since the measure is dependent on UI
wage data and an establishment identifier (such as an employer FEIN or State tax id),
the Departments anticipate that the State Workforce Agency (SWA) may be best
positioned to report this measure for the State.
States have flexibility in determining which agency is responsible for tracking these
services, including the collection of the data and the setting of goals with the local
workforce boards.
Approach 1 – Retention with the Same Employer
Percentage of participants with wage records who exit and were employed by the
same employer in the second and fourth quarters after exit.
Methodology:
The number of participants with wage records who exit during the reporting period
and were employed by the same employer during the second quarter after exit and the
fourth quarter after exit DIVIDED by the number of participants with wage records
who exit and were employed during the second quarter after exit.
For this measure, States must report on data element 1618 (Retention with the Same
Employer in the 2nd Quarter and the 4th Quarter) in the WIOA Joint PIRL. This data
element is calculated based on information included in the wage record matches for
participants in their fourth quarter after exit. This means that the only participants
who are included in this approach are those for whom a wage record match is
available. In order to count as a “yes” for this measure, the participant must have the
same establishment identifier (such as an employer FEIN or State tax id) in both the
second and fourth quarters after exit. This creates the numerator for this measure.
The denominator for this measure is calculated based on those participants with wage
records who were employed in the second quarter after exit.
Data on employee retention for all participants who received ETA-funded WIOA
program services will be collected by the American Job Centers and reported at the
State-level by the SWA. Outcomes for title II AEFLA participants who are co-
enrolled and receiving career services through the American Job Center would also be
captured in that set of data. Data on title IV VR participants will be collected at the
State level, through the State VR agency, and submitted to the SWA, which will
aggregate both sets of information to provide one shared outcome for this approach.
Approach 2 – Repeat Business Customers
Percentage of employers who have used WIOA core program services more than
once during the last three reporting periods
Methodology:
The total number of establishments, as defined by Bureau of Labor Statistics (BLS)
Quarterly Census of Employment and Wages (QCEW) program, served during the
current reporting period (i.e., one program year) and that during the prior three
reporting periods have used core program services more than once DIVIDED by the
number of establishments, as defined by BLS QCEW, served during the current
reporting period.
This measure is a unique count of employers who use WIOA core programs more
than once. Regardless of the incidence of repeat usage of WIOA core program
services, an employer who uses WIOA core program services more than once during
the last three reporting periods should be counted only once in this calculation.
Note: The reporting period for this indicator is a program year (July 1 through June
30).
Note: As this indicator is implemented, it is the Departments’ intent to look forward
until three program years’ worth of data become available. The Departments are not
requiring States to use data for services delivered to employers prior to July 2016 to
fulfill the prior three reporting periods’ requirement.
For this measure, States must report on data elements E1 and E2 as shown in
Attachment 4, Table A - Effectiveness in Serving Employers Specifications. Please
note that for employers with more than one physical location, the QCEW reports each
work site as a separate establishment, and therefore, the total number of business
establishments receiving services should be counted this way.
Attachment 4, Table B also includes definitions for the different categories of “Core
Program Services” that may be counted when calculating levels of performance for
the effectiveness in serving employers indicator. For example, a placement through
title IV would fall under the “Worker Recruitment Assistance” category and would
therefore count as a core program service.
Note: For more information about QCEW, see below.
Approach 3 – Employer Penetration
Percentage of employers using WIOA core program services out of all employers in
the State
Methodology:
The total number of establishments, as defined by the BLS QCEW program, that
received a service or, if it is an ongoing activity, are continuing to receive a service or
other assistance during the reporting period DIVIDED by the total number of
establishments, as defined by BLS QCEW, located within the State during the final
month or quarter of the reporting period. This measure is a unique count of employers
using WIOA core programs. If an establishment receives, or continues to receive,
more than one service during the reporting period (i.e., during the program year), that
establishment should be counted only once in this calculation.
For this measure, States must report data elements E3 and E4 found in “WIOA
Effectiveness in Serving Employers’ Data Elements and Specifications” part of the
WIOA joint reporting requirements (see Attachment 4, Table A for the data
elements and their definitions). For employers with more than one physical location,
the QCEW reports each work site as a separate establishment and therefore, the total
number of business establishments receiving services should be counted this way.
Attachment 4, Table B also includes definitions for the different categories of “Core
Program Services” that may be counted when calculating this measure. For example,
a placement through the title IV VR program would fall under the “Worker
Recruitment Assistance” category and would therefore count as a core program
service.
Note: For more information about QCEW, see below.
c. Pilot Program
Since these metrics are new to WIOA core programs, the Departments have
developed options by which States can pilot two of the above approaches to measure
effectiveness in serving employers. States must select two of the approaches
discussed above, and also may develop, at the Governor’s discretion, an additional
State-specific approach.
These three approaches are outlined in the WIOA joint reporting requirements. Data
reporting references include PIRL data element 1618 (Retention with the Same
Employer in the 2nd Quarter and 4th Quarter) and Effectiveness in Serving Employer
Data elements (i.e., E1, E2, E3, and E4) in Attachment 4, Table A.
States must implement and report on two of three approaches, with initial results to be
included in the first WIOA annual report due in October 2017. Having said this, due
to the lag in data availability for the first and third approaches, the Departments
understand that complete data will not be available for reporting in October 2017.
The Departments believe that these options provide States flexibility in selecting the
approaches that best suit their needs, while providing partner agencies the opportunity
to evaluate States’ experiences in using these approaches during PY 2016 and PY
2017. This pilot program also allows the Departments to obtain employer feedback
regarding the extent to which these indicators measure effectiveness in serving
employers. For States that choose to develop an additional approach, the outcomes
for that approach should be reported in the Statewide Performance Report Template
for Effectiveness in Serving Employers Section C.4. A brief definition of the
calculation should be included in Section D.1 of the same report template. The
Departments will evaluate State experiences with the various approaches and plan to
use the results of that evaluation to identify a standardized indicator for
implementation no later than the beginning of PY 2019.
d. Reporting “Effectiveness in Serving Employers” to the Departments
The reporting methodology depends on the approaches selected. Retention with the
Same Employer in the 2nd Quarter and the 4th Quarter (data element 1618) is
calculated using data collected in the PIRL and, therefore, can be aggregated and
reported like the other primary performance indicators. The Employer Penetration
and Repeat Business Customers approaches are not based on individual participant
data and will not be derived from the PIRL. Therefore, States must establish
processes and policies for collecting and validating data related to these approaches
before reporting the outcomes in the Statewide Performance Reporting Template.
e. Overview of the BLS QCEW Program
The QCEW program publishes a quarterly count of employment and wages reported
by employers covering 98 percent of U.S. jobs, available at the county, Metropolitan
Statistical Area (MSA), State and national levels by industry. The Departments
consider this data, collected from the States, to be an accurate count of the total work
sites in a given State or county. For more information about the QCEW program and
for accessing the work-site counts in a given State or county, please visit:
http://www.bls.gov/cew/.
7. Categories of Enrollment: Reportable Individual, Participant & Date of Program Exit.
Reportable Individual: The category of reportable individual allows the Departments to
identify the individuals who engaged with the workforce development system on an initial
level but who do not complete the requirements to become participants. The Departments
will use this category to track the number of individuals who may take part in self-services,
receive information-only services or activities, or those who do not complete the program
requirements for eligibility or for participation. A reportable individual is an individual who
has taken action that demonstrates an intent to use program services and who meets specific
reporting criteria of the program, including:
1) Individuals who provide identifying information;
2) Individuals who only use the self-service system;
3) Individuals who only receive information-only services or activities; or
4) For purposes of the title IV VR program only, a student with a disability who solely
receives pre-employment transition services and who does not apply for VR services,
who is not determined eligible, and who does not have an approved IPE.
The Departments will not negotiate levels of performance or impose sanctions based on the
outcomes of reportable individuals, because only “participants” are included in the
performance indicators. However, the Departments require inclusion of certain information
about reportable individuals in the State annual performance reports and associated WIOA
performance reporting instruments or program-specific performance reporting instruments.
For example, the Departments will track the number of individuals taking part in self-
services, receiving information-only services or activities, or failing to complete the program
requirements for eligibility or participation. Collecting such information allows the
Departments to identify the individuals who engaged with the system on an initial level but
who do not complete the requirements to become participants.
Participant: Although the definition of participant is consistent across the core programs,
there are some slight differences to account for programmatic requirements. For the WIOA
title I Adult, title I Dislocated Worker, title II AEFLA, and title III Employment Service
programs, a participant is a reportable individual who has received services other than the
services described in 20 CFR § 677.150(a)(3) or 34 CFR § 463.150(a)(3) for the AEFLA
program, after satisfying all applicable programmatic requirements for the provision of
services, such as eligibility determination.
As set forth in more detail in section 677.150(a)(3) or section 463.150(a)(3), as applicable,
the following individuals are not participants:
Individuals in an AEFLA program who have not completed at least 12 contact hours;
Individuals who only use the self-service system; and
Individuals who receive information-only services or activities, which provide readily
available information that does not require an assessment by a staff member of the
individual’s skills, education, or career objectives.
For the title I Youth program, a participant is a reportable individual who has satisfied all
applicable program requirements for the provision of services, including eligibility
determination, an objective assessment, and development of an individual service strategy,
and received one or more of the 14 WIOA Youth program elements identified in sec.
129(c)(2) of WIOA.
For the title IV VR programs, a participant is a reportable individual who has applied and
been determined eligible for VR services, has an approved and signed IPE, and has begun to
receive services.
In summary, a participant is an individual who:
(1) Meets the definition of reportable individual;
(2) Has received services other than the services described in 20 U.S.C. § 677.150(a)(3) (or
34 CFR § 361.150(a)(3) or § 463.150(a)(3), as applicable); and
(3) Has satisfied all applicable programmatic requirements for the provision of services.
The Departments will negotiate levels of performance and calculate sanctions based on the
outcomes of program participants because the performance indicators are based on the
experience of participants upon exit from or, as applicable, during participation in a program.
Programmatic Criteria For Becoming a Participant in Each of the Core Programs:
Due to the variability in programmatic criteria to receive services, the particular services that
trigger inclusion as a participant vary across the core programs:
Title I Adult and Dislocated Worker – Receipt of any training services or
individualized career services makes a reportable individual a participant. For basic
career services, a reportable individual becomes a participant when he or she receives a
service that is neither self-service nor information-only. See the chart in Attachment 7,
Table A, which lists types of services received; identifies those services as basic career
services, individualized career services, or training services; and states whether each type
of service triggers inclusion in participation for the title I Adult and Dislocated Worker
programs and for the title III Employment Service program.
Title I Youth – When a reportable individual has satisfied all applicable program
requirements for the provision of services, including eligibility determination, an
objective assessment, development of an individual service strategy, and received one of
the 14 WIOA Youth program elements identified in sec. 129(c)(2) of WIOA, he or she is
considered a participant. See the chart in Attachment 7, Table B.
Title II AEFLA – When a reportable individual in an AEFLA program has completed at
least 12, contact hours he or she is considered a participant.
Title III Employment Service – When a reportable individual receives an individualized
career service, he or she is considered a participant. For basic career services, a reportable
individual becomes a participant when he or she receives a service that is neither self-
service nor information-only. See the chart in Attachment 7, Table A.
Title IV VR – When a reportable individual has applied and been determined eligible for
VR services, has an approved and signed IPE, and has begun to receive services under
the IPE, he or she is considered a participant. The date the individual begins receiving
services under the IPE corresponds with data element 127 on the RSA-911.
Exit: Exit from a program generally occurs, as described below, when the participant has
not received services for a specified period of time and has no additional services scheduled.
The title IV VR program has a consistent, but slightly different, definition of exit to account
for programmatic requirements.
Follow-up services (for participants in the title I Adult, Dislocated Worker and Youth
programs) occur, by definition, after exit and therefore do not trigger the exit date to change
or delay exit. States should count each exit of a participant during the same program year as
a separate period of participation if a participant has more than one exit in a program year.
Program-Specific Criteria of Exit:
Title I Adult, Dislocated Worker and Youth; Title II AEFLA; and Title III
Employment Service programs – The date of exit from the program is the last date of
service. Specifically:
- The date of exit cannot be determined until 90 days have elapsed since the participant
last received services; furthermore, there must be no plans to provide the participant
with future services. At that point, the date of exit is applied retroactively to the last
date of service.
- For determining whether 90 days have elapsed since the participant last received
services, do not include receipt by the participant of any self-service, information-
only services or activities, or follow-up services, as these services do not delay,
postpone, or affect the date of exit. Because the date of exit is retroactive to the last
date of service, follow-up services may begin immediately following the last date of
service if it is expected that the participant will not receive any future services other
than follow-up services. Provision of follow-up services does not extend the date of
exit.
- PIRL data element 901 (Date of Program Exit) is used to collect and report the date of
exit. For exit-based performance measures, the quarter for collecting follow-up data
is determined by the quarter in which the date of exit occurs. For example, if the date
of exit is between January 1st and March 31st, the first quarter after exit would be
April 1st through June 30th.
Title IV VR program–
- The participant’s record of service is closed in accordance with 34 CFR § 361.56
because the participant has achieved an employment outcome; or
- The participant’s service record is closed because the individual has not achieved an
employment outcome or the individual has been determined ineligible after receiving
services in accordance with 34 CFR § 361.43.
- VR participants are not considered to have exited if the service record is closed
because the participant has achieved a supported employment outcome in an
integrated setting, but not in competitive integrated employment at the time the VR
service record is closed.
- The RSA-911 data element 353 (Date of Exit) is the VR equivalent of PIRL data
element 901 (Date of Program Exit). For VR program participants who have
achieved an employment outcome, the exit date is at least 90 days after the attainment
of the employment outcome and the individual has met the requirements under 34
CFR 361.56. For VR program participants who have not achieved an employment
outcome, or have been determined ineligible after receiving services in accordance
with 34 CFR 361.43, the exit is based on the date of the determination to close the
service record.
Date of Exit for Titles I and III Programs – Reportable Individuals:
For tracking purposes, the date of “exit” for reportable individuals from a title I Adult,
Dislocated Worker, or Youth program or title III Employment Service program is determined
as follows:
The individual does not become a participant; and
The individual is served under WIOA titles I or III through receipt of services that do
not result in the individual becoming a participant; and
The individual has had 90 days elapse since being identified as a reportable
individual and the individual has not received additional self-service or information-
only services or activities during that 90-day time period.
The date of exit for reportable individuals cannot be determined until 90 days have
elapsed since the reportable individual last received any of the following services:
self-service, information-only services or activities, and/or services under WIOA
titles I or III that do not result in the individual becoming a participant (See
Attachment 7, Table A), with no future services scheduled. At that point, the date
of exit is applied retroactively to the last date of receipt of self-service, information-
only services or activities, and/or services under WIOA titles I or III that do not
result in the individual becoming a participant.
Date of Exit for Title II AEFLA Program – Reportable Individuals:
Reportable individuals are those with less than 12 contact hours. For tracking
purposes, a reportable individual must be considered “exited” when 90 days have
elapsed since the last date of service and no future services are planned. This means
the individual has had 90 days of no services, including self-service and information-
only service, since being identified as a reportable individual.
Date of Exit for title IV VR Program – Reportable Individuals:
For a student with a disability who solely receives pre-employment transition services
and who has not applied or been determined eligible to receive other VR services, the
service record is closed when the student is no longer receiving such services as
indicated in the pre-employment transition services data elements 96 through 126
included in the RSA-911. At that time, the student is no longer considered a
reportable individual. However, if a student with a disability has applied and been
determined eligible for VR services and has an approved and signed IPE, the
student’s service record would be “closed” when the student satisfies the definition
of “exit” at 34 CFR 361.150(c) because his or her service record is closed pursuant to
34 CFR 361.43 or 361.56. At that time, the student would be considered to have
exited the VR program for purposes of WIOA’s performance accountability system
as a participant.
For all other reportable individuals under the VR program, the individual will be
determined to have “exited” the VR program as of the date reported in RSA-911 data
element 353 (Date of Exit).
Common Exit for DOL–Administered Programs Only:
DOL encourages States to utilize a “common exit” for DOL-administered programs, and
envisions full implementation of a common exit across the DOL-administered core programs
within each State. A “common exit” occurs when a participant, enrolled in multiple DOL-
administered partner programs, has not received services from any DOL-administered
program to which the common exit policy applies for at least 90 days, and no future services
are planned.
States that retain or develop a common exit policy must require that a participant is only
exited when all the criteria for exit are met for the WIOA titles I and III core programs, as
well as any additional DOL-administered required partner programs to which the State’s
common exit policy applies in which the participant is enrolled. The WIOA title I and title
III core programs are:
WIOA title I Adult formula program;
WIOA title I Dislocated Worker formula program;
WIOA title I Youth formula program; and
Wagner-Peyser Act Employment Service program.
Additionally, DOL encourages the additional required partner programs listed in sec.
121(b)(1)(B) of WIOA (i.e., the title I non-core programs) that are under the authority of
DOL to be included in the common exit policy. Those partner programs, which may7 be
included in a common exit policy, are as follows:
Job Corps program, under WIOA sec. 141 et seq.;
Native American programs, under WIOA sec. 166;
National Farmworker Jobs program, under WIOA sec. 167;
National Dislocated Worker Grants, under WIOA sec. 170;
7
Some of these programs may require common exit. Grantees should refer to guidance specific to these programs
for more information.
YouthBuild program, under WIOA sec. 171;
Senior Community Service Employment Program (SCSEP), authorized under title V
of the Older Americans Act of 1965 (42 U.S.C. 3056 et seq.);
Trade Adjustment Assistance program (TAA), authorized under chapter 2 of title II of
the Trade Act of 1974 (19 U.S.C. 2271 et seq.);
Jobs for Veterans State Grants program (JVSG), authorized under chapter 41 of title
38, United States Code; and
Reentry Employment Opportunities program (REO), authorized under section 212 of
the Second Chance Act of 2007 (42 U.S.C. 17532)
If a State chooses to retain or implement a common exit policy, the policy must require that a
participant is “exited” when that individual has not received services for 90 days, and no
future services are planned (with the exception of self-service, information-only activities, or
follow-up services) from any of the DOL-administered programs to which the common exit
policy applies, in which the participant is enrolled.
States must identify the programs for which they have adopted a common exit in their annual
narrative reports. The Departments will provide further information on this requirement in
the Departments’ forthcoming amended information collection request. Additionally, States
will identify in the annual Program Performance Report Template (ETA – 9173) the
programs that share a common exit with the program being reported.
8. Self-Service and Information-Only Activities.
Workforce development system programs offer many services to the public, both virtually
and in person, that are general in nature and not customized to an individual’s needs. These
are commonly known as self-services or information-only services or activities. These
services do not constitute participation in a program. Therefore, individuals who receive
only self-services or information-only services or activities are considered reportable
individuals, not participants.
Self-service occurs when individuals independently access any workforce development
system program’s information and activities in either a physical location, such as an
American Job Center resource room or partner agency, or remotely via the use of electronic
technologies.
However, it is important to note that self-service does not uniformly apply to all virtually-
accessed services. For example, virtually-accessed services that provide a level of support
beyond independent job or information seeking on the part of an individual would not qualify
as self-service. This more intensive level of service would qualify the individual as a
participant.
Information-only services or activities are those that provide readily available information
that does not require an assessment by a staff member of the individual’s skills, education, or
career objectives.
9. Period of Participation.
For all indicators, except measurable skill gains, a period of participation refers to the period
of time beginning when an individual becomes a participant and ending on the participant’s
date of exit from the program. States must count each participant’s exit during the same
program year as a separate period of participation for purposes of calculating levels of
performance. For all indicators, except the measurable skill gains indicator, a new period of
participation is counted each time a participant re-enters and exits the program—even if both
exits occur during the same program year. For the Measurable Skill Gains indicator, a new
period of participation is counted each time a participant enrolls—even if both enrollments
occur within the same program year. It is not necessary to wait until the participant exits the
program in order to count a measurable skill gain because the measurable skill gains
indicator is not an exit-based indicator. The skill gain may be counted as soon as it is earned
at any point during the participation period of the program year in which it was earned.
Attachment 5 illustrates the counting of periods of participation and its relation to each
performance indicator.
A person with more than one period of participation in a program year is counted separately
for each period of participation in both the numerator and denominator of each applicable
performance indicator. Therefore, the person is counted multiple times— once for each
period of participation. Specific examples of counting periods of participation are included
in Attachment 6.
State levels of performance on all primary indicators under WIOA are calculated as a
percentage of the number of outcomes achieved for each reporting period (whether quarterly
or annually, as applicable) by the number of periods of participation during the same
reporting period.
Reporting Unique Participants
The Departments have determined it necessary to calculate the unique number of participants
being served each program year, by each core program. As a result, it is likely that many
States and programs will need to modify their data systems and processes to be able to track
each period of participation (i.e., a duplicate count) while also retaining the ability to
calculate an unduplicated count of individual participants across multiple periods of
participation in any given program year.
To meet this requirement, States must:
1. Develop systems to track multiple periods of participation within a program year;
2. Calculate a unique count of individual participants across multiple periods of
participation in any given program year; and
3. Establish a unique identification number that will be retained by the same individual
across multiple programs.
Note that the Departments will not accept a SSN as a form of unique identifier, unless
specifically noted and required under the particular program.
10. Career Service and Training Service Guidance.
WIOA section 116(d)(2) specifies the data elements and outcomes to be included in the
Statewide Annual Performance report for WIOA core programs. One of those elements is:
“the average cost per participant of those participants who received career and training
services, respectively, during the most recent program year and the three preceding program
years” (sec. 116(d)(2)(F) of WIOA). WIOA provides specific definitions for career services
(sec. 134(c)(2)), training services (sec. 134(c)(3)), and administrative costs (sec. 3(1)).
Classifying Career Services and Training Services
When the definitions of career services and training services do not directly correlate to all of
the services provided by a core program, the Departments have developed separate tables in
Attachment 7, Tables A through D of this TEGL identifying which specific services are to
be classified as career services and which are to be classified as training services. When a
program service includes components of both career services and training services, the
programs must use those tables to determine which category will be used to ensure uniform
reporting among all States and agencies. It may not be possible to classify all of a program’s
services as either a career or a training service. In other words, a program may provide
services that go beyond the scope of career services and training services (e.g., follow-up
services, for participants in the title I Adult, Dislocated Worker, or Youth program, or
instructional or program services, for participants in the title II AEFLA program). In such
instance, the program must report only those services that satisfy the definition of career
services and training services for this particular reporting purpose.
Identifying Career Services and Training Service Costs
WIOA requires that the costs for career and training services be determined separately.
Given that WIOA defines “administrative costs” separately from the definitions of career
services and training services, the Departments made clear in the WIOA Performance ICR
that States must not include administrative costs when reporting costs for career services and
costs for training services.
Career and training costs include any career service or training service provided by a core
program, regardless of whether the service occurred “at” a one-stop center. Each of the data
elements required by section 116(d)(2) is presented in the context of activities performed and
services provided by the core programs, with no specificity that the activities or services be
provided in a one-stop center. Additionally, section 121(b)(1)(A)(i) of WIOA states that
one-stop partners must “provide access through the one-stop delivery system to such program
or activities carried out by the entity, including making the career services described in
section 134(c)(2) that are applicable to the program or activities available at the one-stop
centers (in addition to any other appropriate locations).”
Therefore, consistent with the statutory requirement, as least some career services must be
provided at the comprehensive American Job Center. However, not all partners must provide
career services at the American Job Center.
Calculating Career Service and Training Service Costs
Career Service Costs
The calculation for the cost of providing career services described in section 134(c)(2):
Title I Adult, title I Dislocated Worker, title I Youth, title III Employment Service,
and title IV VR programs:
Career Services Costs = Total Expenditures for Career Services / Total Participants
receiving Career Services in the Program
Title II AEFLA program:
Career Services Costs = Total Expenditures for Career Services / Total participants
receiving career services from the AEFLA One-stop Partner
Career Service Costs
Core programs define the numerator in the calculation of career service costs differently;
therefore, the numerator for each should be adjusted accordingly as follows:
Title I Adult, Dislocated Worker, and Youth8 programs:
Total Expenditures for Career Services is calculated by subtracting the sum of
administrative expenditures and training expenditures from total expenditures. It is
important to note that the costs incurred by these particular programs are categorized
only as costs for career services, training services, and administrative costs.
Title II AEFLA program:
Total Expenditures for Career Services is the sum of expenditures for career services
indicated in Attachment 7, Table C, provided by the AEFLA one-stop partner.
Title III Employment Service:
Total Expenditures for Career Services is calculated by subtracting the sum of
administrative expenditures from total expenditures. It is important to note that the
costs incurred by this particular program are categorized only as costs for career
services and administrative costs.
Title IV VR program:
Total Expenditures for Career Services is the sum of the total expenditures for
purchased career services as reported on the RSA-911 and the total expenditures for
career services provided directly by VR agencies as reported on the RSA-2. The
Total Participants Receiving Career Services in the Program is the total number of
participants receiving either purchased career services or career services provided
directly by the VR agency as reported on the RSA-911.
Training Service Costs
Average Cost of Training Services per Participant = Total expenditures for training
services (not including administrative costs) / the total number of participants
receiving such services.
Note: A participant who receives more than one career service during the participant’s
8
For title I adult, dislocated worker, and youth programs; DOL will issue future guidance explaining the calculation
of training expenditures.
period of participation is included in the denominator for the career services calculation
only one time. The costs of all of the career services the participant received are included
in the numerator. Similarly, a participant who receives more than one training service
during the participant’s period of participation is included in the denominator for the
training services calculation only one time. The costs of all of the training services the
participant received are included in the numerator. However, if a participant has multiple
periods of participation during a program year, the participant will appear in the
denominator of the career and training services calculations more than one time.
For WIOA title I Adult, Dislocated Worker and Youth programs and title III Employment
Service programs, a participant who receives career services or training services from
multiple programs (e.g., title I Adult and Dislocated Worker) will be counted in the
respective career services or training service denominator for all of the programs from which
they received services.
Each core program will establish a process for separating the administrative costs from career
service and training service costs. For example, in the VR program, the RSA-2 form requires
agencies to report separately the total administrative and direct service costs for VR staff
providing VR services. These administrative costs will not be included in the total
expenditures for career services or training services, but rather will be included only in the
administrative costs incurred by the program.
11. Incumbent Worker Training Under Title I.
For the WIOA title I Adult and Dislocated Worker programs, local WDBs may use up to 20
percent of their total Adult and Dislocated Worker formula allocation to provide incumbent
worker training (see WIOA sec. 134(d)(4)). However, the Departments do not consider
individuals who receive incumbent worker training to be participants required for inclusion
in the WIOA performance indicator calculations. Therefore, individuals who receive only
incumbent worker training are not included in WIOA performance indicator calculations for
the core programs.
The Departments do not consider individuals receiving incumbent worker training to be
participants for the purpose of inclusion in WIOA performance indicator calculations
because of WIOA sec. 134(d)(4)’s unique eligibility requirements. Unlike with other types of
training, incumbent worker eligibility is determined at the employer level by the local WDB,
which determines if the employer is eligible to have its employees receive incumbent worker
training. There is no separate determination of the eligibility of any particular employee to
receive incumbent worker training. Therefore, an incumbent worker does not have to meet
the eligibility requirements for career services and training services for the Adult and
Dislocated Worker programs under WIOA, unless he or she also is enrolled as a participant
as a result of receiving other services from the WIOA Adult or Dislocated Worker program,
or is a participant in a separate WIOA program.
Even though individuals receiving incumbent worker training are not participants for the
purpose of inclusion in WIOA performance indicator calculations, States and local areas are
still required to report certain participant and performance data on all individuals who receive
only incumbent worker training. The required elements for these incumbent worker
individuals are limited to demographic information and the elements needed to calculate
employment in the 2nd and 4th quarters after exit, Median earnings in the 2nd quarter after
exit, and Credential Attainment (see Attachment 8 for specific list of required elements).
For the purposes of calculating these metrics, the exit date for an individual who only has
received incumbent worker training will be the last date of training, as indicated in the
training contract.
State and local boards may require additional elements be reported to collect additional
information on incumbent workers, which, if collected, should also be reported through the
PIRL. All recipients of Incumbent Worker Training must be reported in the DOL-only PIRL
under data element number 907 (Recipient of Incumbent Worker Training), regardless of
whether they become a participant in one of the WIOA programs. Individuals that only
receive Incumbent Worker Training (who, therefore, are not participants in the Adult or
Dislocated Worker programs) should be reported with a “Date of Program Entry” in element
900, and a “0” in elements 903 “Adult” and 904 “Dislocated Worker.” The Departments also
encourage the collection of incumbent worker SSNs as part of the training contract with the
employer so that wage records will be available for these individuals. If no SSN is available,
the State or Local WDB may utilize supplemental wage information to verify the wages
reported.
Incumbent worker training that is funded with Statewide Rapid Response (data element 908
in the DOL-only PIRL) funds under WIOA section 134(a)(2)(A)(i)(I) must also be reported
under DOL-only PIRL data element 1501 (Most Recent Date Received Rapid Response
Services).
12. Average Indicator Score Calculation. See Attachment 9 for a brief overview. The
calculations and sanctions determination process will be discussed in greater detail in the
forthcoming guidance relating to sanctions.
13. Action Requested. States are requested to distribute this information to the appropriate State
and local staff.
14. Inquiries. Questions concerning this guidance should be directed to the appropriate regional
office.
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_1.pdf)
Attachment 1
Definitions of Terms Related to the Performance Accountability System
Common Exit – occurs when a participant, enrolled in multiple partner programs, has not
received services from any DOL-administered program in which the participant is enrolled,
to which the common exit policy applies, for at least 90 days, and no future services are
planned.
Competitive Integrated Employment – in general, for individuals with disabilities, work
performed by an individual on a part-time or full-time basis, including self-employment
within an integrated setting within the community. The individual must be compensated at
minimum wage or higher, using the higher of the Federal, State, or local rate, and at a rate
comparable to the wage paid to non-disabled workers performing the same tasks, including
receiving the same benefits and opportunities for advancement.
Customized Training – is training that:
a. is designed to meet the specific requirements of an employer (including a group
of employers);
b. is conducted with a commitment by the employer to employ an individual upon
successful completion of the training; and
c. for which the employer pays---(i) a significant portion of the cost of training,
as determined by the local board involved, taking into account the size of the
employer and such other factors as the local board determines to be appropriate,
which may include the number of employees participating in training, wage and
benefit levels of those employees (at present and anticipated upon completion of
the training), relation of the training to the competitiveness of a participant, and
other employer-provided training and advancement opportunities; and (ii) in the
case of customized training involving an employer located in multiple local areas
in the State, a significant portion of the cost of the training, as determined by the
Governor of the State, taking into account the size of the employer and such other
factors as the Governor determines to be appropriate.
Employment – Describes when an individual is working in a paid, unsubsidized job or, for
participants in titles I, II, or III, working 15 hours or more a week in an unpaid job on a farm
or business operated by a family member or participant. A participant enrolled in the title IV
VR program must be employed in a job that meets the definition of competitive integrated
employment, as defined in 34 CFR § 361.5(c)(9) (including customized employment, self-
employment, telecommuting, or business ownership), or supported employment, as defined
in 34 CFR 361.5(c)(53), in competitive integrated employment that is individualized and
customized, consistent with the unique strengths, abilities, interests, and informed choice of
the individual, and includes ongoing support services for individuals with the most
significant disabilities.
Exit – As defined for the purpose of performance calculations, exit is the point after which a
participant who has received services through any program meets the following criteria:
(1) For the adult, dislocated worker, and youth programs authorized under WIOA title I, the
AEFLA program authorized under WIOA title II, and the Employment Service program
authorized under the Wagner-Peyser Act, as amended by WIOA title III, exit date is the last
date of service.
(i) The last day of service cannot be determined until at least 90 days have elapsed since the
participant last received services; services do not include self-service, information-only
services, activities, or follow-up services. This also requires that there are no plans to
provide the participant with future services.
(2)(i) For the VR program authorized under title I of the Rehabilitation Act of 1973, as
amended by WIOA title IV (VR program):
(A) The participant’s record of service is closed in accordance with 34 CFR 361.56 because
the participant has achieved an employment outcome; or
(B) The participant’s service record is closed because the individual has not achieved an
employment outcome or the individual has been determined ineligible after receiving
services in accordance with 34 CFR 361.43.
(ii) Notwithstanding any other provision of this section, a participant will not be considered
as meeting the definition of exit from the VR program if the participant’s service record is
closed because the participant has achieved a supported employment outcome in an
integrated setting but not in competitive integrated employment.
(3)(i) A State may implement a common exit policy for all or some of the core programs in
WIOA title I and the Employment Service program authorized under the Wagner-Peyser Act,
as amended by WIOA title III, and any additional required partner program(s) listed in sec.
121(b)(1)(B) of WIOA that is under the authority of the Department of Labor (DOL).
(ii) If a State chooses to implement a common exit policy, the policy must require that a
participant is exited only when all of the criteria in paragraph (c)(1) of this section are met
for the WIOA title I core programs and the Employment Service program authorized under
the Wagner-Peyser Act, as amended by WIOA title III, as well as any additional required
partner programs listed in sec. 121(b)(1)(B) of WIOA under the authority of the DOL to
which the common exit policy applies in which the participant is enrolled.
Incumbent worker – To qualify as an incumbent worker, the individual worker needs to be
employed in a situation that meets the Fair Labor Standards Act requirements for an
employer-employee relationship, and have an established employment history with the
employer for 6 months or more, with the following exception: in the event that the incumbent
worker training is being provided to a cohort of employees, not every employee in the cohort
must have an established employment history with the employer for 6 months or more as
long as a majority of those employees being trained do meet the employment history
requirement. An incumbent worker does not have to meet the eligibility requirements for
career and training services for Adults and Dislocated Workers under WIOA, unless they
also are enrolled as a participant in the WIOA Adult or Dislocated Worker program.
Integrated Education and Training Program (IET) – a service approach that provides
adult education and literacy activities concurrently and contextually with workforce
preparation activities and workforce training for a specific occupation or occupational cluster
for the purpose of educational and career advancement.
Participant – For the WIOA title I Adult, title I Dislocated Worker, title II, and title III
programs, a participant is a reportable individual who has received services other than the
services described in 20 CFR § 677.150(a)(3) (or 34 CFR § 463.150(a)(3), as applicable),
after satisfying all applicable programmatic requirements for the provision of services, such
as eligibility determination.
As set forth in more detail in section 677.150 (or 34 CFR § 463.150, as applicable), the
following individuals are not participants:
a. Individuals in an AEFLA program who have not completed at least 12 contact
hours;
b. Individuals who only use the self-service system; and
c. Individuals who receive information-only services or activities, which provide
readily available information that does not require an assessment by a staff
member of the individual’s skills, education, or career objectives.
For the title I Youth program, a participant is a reportable individual who has satisfied all
applicable program requirements for the provision of services, including eligibility
determination, an objective assessment, and development of an individual service strategy,
and received 1 of the 14 WIOA Youth program elements identified in sec. 129(c)(2) of
WIOA.
For the title IV VR programs, a participant is a reportable individual who has applied and
been determined eligible for VR services, has an approved and signed IPE, and has begun to
receive services under the IPE.
Participant Individual Record Layout (PIRL) – the data layout that provides a
standardized set of data elements, definitions, and reporting instructions that will be used to
describe the characteristics, activities, and outcomes of WIOA participants.
Period of participation – for all indicators, except Measurable Skill Gains, a period of
participation refers to the period of time beginning when an individual becomes a participant
and ending on the participant’s date of exit from the program.
Reportable individual – an individual who has taken action that demonstrates an intent to
use program services and who meets specific reporting criteria of the program, including:
1) Individuals who provide identifying information;
2) Individuals who only use the self-service system;
3) Individuals who only receive information-only services or activities; or
4) For the purposes of the title IV VR program only, a student with a disability who
solely receives pre-employment transition services, and who has not applied or been
determined eligible for VR services and who does not have an approved and signed
IPE.
Secondary school diploma – a high school diploma recognized by a State and that is
included for accountability purposes under the Elementary and Secondary Education Act of
1965 (ESEA), as amended by the Every Student Succeeds Act (ESSA).
Unsubsidized employment – employment in the private sector or public sector for which the
employer does not receive a subsidy from public funds to offset all or a part of the wages and
costs of employing an individual.
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_2.pdf)
Attachment 2 – Table A
Exclusions (PIRL Data Element 923)
Attachment 2 – Table A
Exclusions – Apply To All Participants In
Title I Adult, Title I Dislocated Worker, Title II AEFLA,
Title III Employment Service, and Title IV VR Programs
The participant exits the program because he or she has become incarcerated in a correctional
institution or has become a resident of an institution or facility providing 24-hour support such as a
hospital or treatment center during the course of receiving services as a participant.
The participant exits the program because of medical treatment and that treatment is expected to
last longer than 90 days and precludes entry into unsubsidized employment or continued
participation in the program.
The participant is deceased.
The participant exits the program because the participant is a member of the National Guard or other
reserve military unit of the armed forces and is called to active duty for at least 90 days.
The participant, who was determined to be eligible for program services, is later determined not to
have met the program’s eligibility criteria. This exclusion applies only to the VR program, in which
participant eligibility is routinely revisited during the participation period. For example, in the VR
program, an individual may be presumptively eligible in accordance with program regulations and
later the individual is found to be too severely disabled to benefit from VR services. As another
example, a participant may decide, after receiving some services, to pursue sheltered employment.
Because an individual must pursue an employment outcome, and sheltered employment does not
meet the definition of an employment outcome for purposes of the VR program, this individual
would be determined to be no longer eligible for the VR program. For titles I, II, and III, program
eligibility is determined at the time an individual becomes a participant and such eligibility is not
revisited during the individual’s participation in the program.
Attachment 2 – Table B
Exclusions (PIRL Data Element 923)
Attachment 2 – Table B
Exclusions – Apply to Participants in Title I Youth Program
The participant exits the program because he or she has become incarcerated in a correctional
institution or has become a resident of an institution or facility providing 24-hour support such as a
hospital or treatment center during the course of receiving services as a participant.
The participant exits the program because of medical treatment and that treatment is expected to
last longer than 90 days and precludes entry into unsubsidized employment or continued
participation in the program.
The participant is deceased.
The participant exits the program because the participant is a member of the National Guard or other
reserve military unit of the armed forces and is called to active duty for at least 90 days.
The participant is in the foster care system as defined in 45 CFR 1355.20(a), and exits the program
because the participant has moved from the local workforce area as part of such a program or
system.
Attachment 2 – Table C
Exclusions: Sec. 225 of WIOA
Attachment 2 – Table C
Exclusions – Apply to Participants in Title II AEFLA Program
A Title II AEFLA participant, who is a criminal offender in a correctional institution, receives services
under sec.225 of WIOA. When these participants remain incarcerated after exit from the program,
they are excluded from the calculation of the following WIOA indicators of performance:
- Employment rate – 2nd quarter after exit;
- Employment rate – 4th quarter after exit;
- Median earnings – 2nd quarter after exit; and
- Credential attainment.
All sec. 225 participants are included in the Measurable Skill Gains indicator.
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_3.pdf)
Attachment 3
Wage Conversion Chart
(OMB Control 1205-0526, Expires: 06-30-2019)
Attachment 3 – Wage Conversion Chart
This is a guide to convert various wage and earnings inputs to a quarterly wage as required in PIRL
data elements 1703, 1704, 1705, and 1706.
Directions: Collect the hourly/weekly/bi-weekly/monthly/annual wages from the participant and
enter that value in the appropriate cell*. The example input values in red must be replaced with
the appropriate information collected from the participant to calculate the reportable quarterly
wage.
As previously published, this chart is intended to be used in a comma separated values file, such as Microsoft
Excel. It appears here in plain text as an informational reference.
Convert Hourly Rate to Quarterly Wages
Hourly hours worked
13 weeks per
Rate per week on average Quarterly Wages
quarter
($xxx.xx/hour) (xx.x)
$7.25 X 32.0 X 13 = $3,016.00
Convert Weekly Wages to Quarterly Wages
Weekly
Wages 13 weeks per quarter Quarterly Wages
($xxxxx.xx)
$290.00 X 13 = $3,770.00
Convert Biweekly Wages to Quarterly Wages
Biweekly
Wages 6.5 biweekly pay periods per quarter Quarterly Wages
($xxxxx.xx)
$580.00 X 6.5 = $3,770.00
Convert Monthly Wages to Quarterly Wages
Monthly
Wages 3 months per quarter Quarterly Wages
($xxxxx.xx)
$1,256.67 X 3 = $3,770.01
Convert Annual Wages to Quarterly Wages
Annual
Wages 4 quarters per year Quarterly Wages
($xxxxxx.xx)
$15,080.00 / 4 = $3,770.00
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_4.pdf)
Attachment 4 – Table A
Effectiveness in Serving Employers Data Elements and Specifications
(OMB Control: 1205-0526, Expires: 06-30-2019)
Attachment 4 – Table A
WIOA Effectiveness in Serving Employers Data Elements: Employer Penetration Rate & Repeat Business Customers
DATA TYPE/ FIELD
DATA ELEMENT NO. DATA ELEMENT NAME DATA ELEMENT DEFINITIONS/INSTRUCTIONS CODE VALUE
LENGTH
E1 Employer Penetration IN 8 Record the total number of establishments, as defined XXXXXXXX
Rate (Numerator) by the Bureau of Labor Statistics Quarterly Census of
Earnings and Wages program, that received a service
or, if it is an ongoing activity, are continuing to receive
a service or other assistance during the reporting
period.
E2 Employer Penetration IN 8 Record the total number of establishments, as defined XXXXXXXX
Rate (Denominator) by the Bureau of Labor Statistics Quarterly Census of
Earnings and Wages program, located within the State
during the final month or quarter of the reporting
period.
E3 Repeat Business IN 8 Record the total number of establishments, as defined XXXXXXXX
Customers by the Bureau of Labor Statistics Quarterly Census of
(Numerator) Earnings and Wages program, that received a service
or, if it is an ongoing activity, are continuing to receive
a service or other assistance during the reporting
period (E1), AND who utilized a service anytime within
the previous three years (E4).
E4 Repeat Business IN 8 Record the number of unique business customers XXXXXXXX
Customers (establishments, as defined by the Bureau of Labor
(Denominator) Statistics Quarterly Census of Earnings and Wages
program) who have received a service previously in
the last three years.
Note: Employee retention rate specifications are not mentioned here as that information is collected by individual participant and is part of the PIRL.
Attachment 4 – Table B
Effectiveness in Serving Employers Specifications
(OMB Control: 1205-0526, Expires 06-30-2019)
Employer Repeat Business Customers and Penetration Rate
Attachment 4 – Table B
B – Employer Services Reporting Specifications/Instructions
Employer Information and Enter the total number of establishments that, during the reporting period, received staff-assisted
Support Services services designed to educate them about and engage them in the local job market/economy and the
range of services available through the local One-Stop delivery system. Establishment information
services may be provided in a variety of service interventions including orientation sessions,
workshops, or other business consultations (e.g., initial site visits). Information and support services
that are delivered to establishments through mass mailings or communications, “cold” calling or other
follow-up contacts, and regular establishment newsletters, brochures, or publications are not
reportable services under this category.
These services include, but are not limited to, providing information on:
State and Federal tax credits or workforce investment incentives (State and Federal tax
credits (WOTC) or workforce investment incentives);
Customized workforce information on State, regional and local labor market conditions,
industries, occupations, and the characteristics of the workforce, skills businesses need, local
employment dynamics information such as workforce availability, worker supply and demand,
business turnover rates, job creation, and job identification of high growth and high demand
industries; and
Proactive linkage and referral of establishments to community resources that support their
workforce needs.
Workforce Recruitment Enter the total number of establishments that, during the reporting period, received workforce
Assistance recruitment assistance from staff or remotely through electronic technologies.
Activities include, but are not limited to, assisting employers to meet their human capital and skilled
workforce needs by:
B – Employer Services Reporting Specifications/Instructions
Supporting employers’ search for qualified candidates;
Securing information on job requirements and providing employers with One-Stop staff
support for candidate screening and pre-employment interviews at the One-Stop Career
Center (or affiliate site) or on site at the place of business;
Taking job order information and promoting the employment opportunities (e.g., advertising
the opening to the workforce);
Conducting special recruitment efforts including out-of-area or out-of-state recruitment for
candidates with special skills;
Organizing, conducting, and/or participating in job fairs;
Providing employers with meeting/work space at the One-Stop Career Center (or an affiliate
site) for screening or interviewing;
Conducting pre-employment testing, background checks and assistance in completion of the
I-9 paperwork; and
Providing employers with job and task analysis services, and absenteeism analysis.
Engaged in Strategic Enter the total number of establishments that, during the reporting period, were engaged in either
Planning/Economic workforce investment strategic planning or business growth and economic development strategic
Development planning. These activities could include, but are not limited to, participating in community based
strategic planning, sponsoring employer forums, securing information on industry trends, providing
information for the purpose of corporate economic development planning, and partnering in
collaborative efforts to identify workforce challenges and developing strategies to address those
challenges.
Accessing Untapped Labor Enter the total number of establishments that, during the reporting period, established pipeline
Pools activities in partnership with the public workforce system. Activities include, but are not limited to,
outreach to youth, veterans, individuals with disabilities, older workers, ex-offenders, and other
targeted demographic groups; industry awareness campaigns; joint partnerships with high schools,
community colleges, or other education programs to improve skill levels; and programs to address
limited English proficiency and vocational training.
Training Services Enter the total number of establishments that, during the reporting period, received publicly funded
training assistance, including customized training, OJT, and incumbent worker training.
Incumbent Worker Training Enter the total number of establishments that, during the reporting period, received publicly funded
Services incumbent worker training assistance.
B – Employer Services Reporting Specifications/Instructions
Rapid Response/Business Enter the total number of establishments that, during the reporting period, received an initial on-site
Downsizing Assistance visit or contact to either (a) discuss the range of rapid response services and other assistance available
to workers and employers affected by layoff, plant closures, or natural disasters, or (b), as required by
WIOA section 3(51) (A), plan a layoff response following notification of a current or projected
permanent closure or mass layoff, including natural or other disasters.
Planning Layoff Response Of the total number of establishments reported in Row C.6, enter the total number of establishments
that received an initial on-site visit or contact, as required by WIOA section 3(51)(A), to plan a layoff
response following notification of a current or projected permanent closure or mass layoff, including
natural or other disasters.
C – Performance Results
Employer Penetration Rate Employer Penetration Rate (Numerator) ÷ Employer Penetration Rate (Denominator) X 100
Repeat Business Customers Repeat Business Customers (Numerator) ÷ Repeat Business Customers (Denominator) X 100
Rate
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_5.pdf)
Attachment 5
Periods of Participation – Effects on Indicators of Performance
ATTACHMENT 5 – PERIODS OF PARTICIPATION – EFFECTS ON INDICATORS OF PERFORMANCE
INDICATOR OF PERFORMANCE EFFECT
nd th
2 and 4 Quarter Employment States9 must ensure follow-up with participants as necessary to report on the WIOA employment and
Indicators; median earnings indicators of performance. These data must be reported in the calendar quarters
nd th
2 and 4 Quarter Youth required by each measure according to the exit date of each period of participation.
Indicators; and
Median Earnings For example:
The State must report whether a participant who exits in November was employed in the second
(ending June 30th) and fourth (ending December 31st) quarters following this exit. If this individual
re-enters the program, becomes a participant and exits in the same program year, the State must
report the same post-exit data elements after the second exit during the same program year. The
State would follow-up again with the participant to determine employment in the second and
fourth quarters following the second exit (or to determine employment/education/training for
Youth participants).
Participants are included in the calculation of median earnings only if employed in the second quarter
after exit.
Credential Attainment States must ensure follow-up with participants as necessary to report this outcome for each period of
participation. Reporting on this indicator requires a full year of follow-up to determine if a credential
was attained within one year after exit and to determine employment or entry into postsecondary
education or training for those who attain a secondary school diploma or recognized equivalent.
States report periods of participation and outcomes, if achieved, for both periods when there is more
than one period of participation in the same program year.
9
For purposes of the VR program, the term State, in this context, refers to each individual grantee because each VR agency is responsible for collecting and
reporting data regarding its participants.
INDICATOR OF PERFORMANCE EFFECT
For example:
A participant who exits in November, re-enters and exits again in May must be provided follow-up
services for 4 quarters after exit for each period of participation (i.e., quarter ending December 31st
of the next program year for the first period of participation and the quarter ending June 30th of the
next program year for the second period of participation).
Measurable Skill Gains Indicator is not based on exit and, therefore; a participant with multiple enrollment dates is included in
this indicator for each program entry during a program year.
For example:
If a person has two program entry dates but only exits once within a program year, they are counted
twice for the measureable skill gains indicator, provided that they meet the definition and criteria
for measurable skill gains (i.e., enrolled in education or training leading to a recognized credential or
employment during both periods of participation).
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_6.pdf)
Attachment 6
Examples of Counting Periods of Participation for Exit-Based Indicators of Performance
Counting Periods of Participation: Examples for Exit-Based Indicators of Performance
Example 1
An individual:
1) becomes a participant in August 2016; and
2) exits in October 2017.
Participation Participation
Starts Ends
PY2016 PY2016
Starts Ends
Jul-16 Aug-16 Sep-16 Oct-16 Nov-16 Dec-16 Jan-17 Feb-17 Mar-17 Apr-17 May-17 Jun-17 Jul-17 Aug-17 Sep-17 Oct-17
Only Period of
Participation
In this example, the participant’s enrollment in the program spans across two program years. However, the period of participation does not
align with the program year.
Attachment 6
Examples of Counting Periods of Participation for Exit-based Indicators of Performance
Counting Periods of Participation: Examples for Exit-Based Indicators of Performance
Example 2
An individual:
1) becomes a participant in September 2016;
2) exits the program in November 2016;
3) re-enrolls and becomes a participant in March 2017; and
4) exits the program again in May 2017.
2nd 2nd
1st Participation 1st Participation Participation
Starts Participation Starts Ends
Ends
PY2016 PY2016
Starts Ends
Jul-16 Aug-16 Sep-16 Oct-16 Nov-16 Dec-16 Jan-17 Feb-17 Mar-17 Apr-17 May-17 Jun-17 Jul-17 Aug-17
1st PY2016 2nd PY2016
Participation period Participation period
In this example, the participant has two periods of participation during a single program year. Because both exit dates occurred within
the same program year (July 2016 – June 2017), the participant has two periods of participation for PY2016. Therefore, exit-based
performance indicators should be collected and calculated based off both periods of participation; two separate outcomes will be based
on the November 2016 exit and May 2017 exit, respectively.
Attachment 6
Example of Counting Periods of Participation for Exit-based Indicators of Performance
Counting Periods of Participation: Example for Exit-Based Indicators and the Measurable Skill Gains Indicator of Performance
Example 3
An individual:
1) becomes a participant in June 2015; and
Pa rti ci pation
2) exits the program in November 2016. Ends
PY2015 PY2015
Starts Ends
Jul-15 Aug-15 Sep-15 Oct-15 Nov-15 Dec-15 Jan-16 Feb-16 Mar-16 Apr-16 May-16 Jun-16 Jul-16 Aug-16 Sep-16 Oct-16 Nov-16 Dec-16
PY2015 PY2016
Pa rti ci pation
Pa rticipation period Pa rtici pation period
Sta rts
for MSG for MSG
Exi t-based Period of
Pa rtici pation
s pa nning a cross two
progra m years
In this example, the participant has one period of participation for the purpose of exit-based indicators which spans two program years
(PY2015 and PY2016), and two periods of participation for the purpose of the measurable skill gains indicator. The individual is counted
as a participant in both PY2015 and PY2016 because he/she continued to receive services after July 1, 2016. Exit-based performance
indicators should be collected and calculated based off of the November 2016 exit date. However, for the measurable skill gains
performance indicator calculation, the participant is counted for one reporting period in PY2015 and a different reporting period in
PY2016.
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_7.pdf)
Attachment 7 – Table A
Participation Level Services Chart
WIOA Title I Adult, Title I Dislocated Worker, and
Title III Employment Service Programs10
Attachment 7 – Table A
Adult/DW/ES Does this service Category of Service (i.e.
Applicable PIRL Data
Service Type trigger inclusion as a Basic, Individualized,
Element Number(s)
(WIOA Sec. 134 (c)) participant? Training)
Eligibility Determination No Basic Career Service N/A
Outreach, Intake, Orientation No Basic Career Service N/A
Initial assessment of skill
levels & supportive service Yes Basic Career Service 1003, 1004, 1102
needs
Job search assistance
No Basic Career Service N/A
(Self-directed)
Job search assistance
Yes Basic Career Service 1003, 1004, 1104
(Staff-assisted)
Placement assistance
1003, 1004, 1105,
(includes “Referred to
Yes Basic Career Service 1106, 1107, 1108,
Employment”)
1109, 1110, 1111
(Staff-assisted)
Career Counseling (includes
“Staff-assisted career Yes Basic Career Service 1003, 1004, 1102
guidance”)
Providing info on in-demand
sectors, occupations, or No Basic Career Service 1100, 1101
nontraditional employment
Provision of referrals and
associated coordination of 1100, 1101,
No Basic Career Service
activities with other programs 1113, 1115
and services
Provision of workforce and
labor market employment No Basic Career Service 1100, 1101, 1103
statistics information
10
Note this this chart does not include all available services that may be provided, but rather those services
specifically authorized under WIOA sec. 134(c)(2). Additionally, these services do not indicate whether or not an
individual is a participant, but rather which services trigger an individual to become a participant.
Adult/DW/ES Does this service Category of Service (i.e.
Applicable PIRL Data
Service Type trigger inclusion as a Basic, Individualized,
Element Number(s)
(WIOA Sec. 134 (c)) participant? Training)
Provision of info on job
No Basic Career Service 1100, 1101, 1103
vacancies
Provision of info on job skills
No Basic Career Service 1100, 1101, 1103
necessary to fill vacancies
Provision of info on local
demand occupations, with
earnings, skill requirements, No Basic Career Service 1100, 1101, 1103
and opportunities for
advancement for those jobs
Provision of performance and
program cost info for
No Basic Career Service 1100, 1101
providers of education and
training
Provision of info on local
No Basic Career Service 1100, 1101
performance
Provision of info on
availability of supportive No Basic Career Service 1100, 1101
services or assistance
Referral to supportive services No Basic Career Service 1113
Provision of information and
meaningful assistance filing Yes Basic Career Service 1003, 1004, 1112
for UI
Assistance establishing
Yes Basic Career Service 1003, 1004, 1116
eligibility for financial aid
Comprehensive and Individualized Career
Yes 1004, 1200, 1201
specialized assessments Service
Individualized Career 1004, 1200,
Development of IEP Yes
Service 1201, 1202
Individualized Career
Group Counseling Yes 1004, 1200, 1201
Service
Individualized Career
Individual Counseling Yes 1004, 1200, 1201
Service
Individualized Career
Career Planning Yes 1004, 1200, 1201
Service
Short-term prevocational Individualized Career 1004, 1200,
Yes
services Service 1201, 1210
Adult/DW/ES Does this service Category of Service (i.e.
Applicable PIRL Data
Service Type trigger inclusion as a Basic, Individualized,
Element Number(s)
(WIOA Sec. 134 (c)) participant? Training)
Internships and work
Individualized Career 1004, 1200, 1201,
experiences (including Yes
Service 1203, 1205, 1211
transitional jobs)
Workforce preparation Individualized Career
Yes 1004, 1200, 1201
activities Service
Individualized Career 1004, 1200,
Financial literacy services Yes
Service 1201, 1206
Out-of-area job search
Individualized Career
assistance and relocation Yes 1004, 1200, 1201
Service
assistance
English-language acquisition
Individualized Career 1004, 1200,
and integrated education and Yes
Service 1201, 1207
training programs
n/a (must be a
Follow up services participant first to Follow up Service 1503
receive)
1300, 1301, 1302,
1303, 1304, 1305,
Training services under Sec.
1306, 1307, 1308,
134(c)(3)(D) with exception of
Yes Training 1309, 1310, 1311,
Sec. 134(c)(3)(D)(iii)
1312, 1313, 1314,
(incumbent worker training)
1315, 1316, 1317,
1318, 1319
Incumbent Worker Training No11 Training 907
*Note: Receipt of any of the three types of services (Basic, Individualized, or Training) makes an individual a
“Reportable Individual” while it only takes the receipt of one service that triggers participation to be considered a
participant.
11
While Incumbent Worker Training is not a self-service or information-only service, individuals are not required to
meet eligibility requirements for the Adult or Dislocated Worker programs to receive Incumbent Worker Training.
Attachment 7 – Table B
Participation Level Services Chart
WIOA Title I Youth Program
Attachment 7 – Table B
Does this service
Youth Service Type Section Applicable PIRL Data
trigger inclusion Category of Service13
129(c)(2) Element Number(s)
as a participant?12
Tutoring, study skills training,
Yes Career Service 1402
dropout prevention
Alternative secondary school
Yes Career Service 1403
services
Paid and unpaid work
Yes Career Service 1205, 1405
experience
1300, 1302, 1303, 1306,
1307, 1308, 1309, 1310,
Occupational skills training Yes Training 1311, 1312, 1313, 1314,
1315, 1316, 1317, 1318,
Education offered
concurrently with workforce Yes Career Service 1407
preparation
Leadership development Yes Career Service 1408
Supportive Services Yes Career Service 1409
Adult mentoring Yes Career Service 1410
Follow-up services Yes Career Service 1412
Comprehensive guidance and
Yes Career Service 1411
counseling
Financial literacy education Yes Career Service 1206
Entrepreneurial skills training Yes Career Service 1413
Services that provide labor
Yes Career Service 1414
market information
Postsecondary preparation
Yes Career Service 1415
and transition activities
12
All youth program elements trigger participation following eligibility determination, objective assessment, and
completion of the individual service strategy.
13
Note that the categorization of career services and training services for the title I youth program differs from the
title I adult and dislocated worker programs.
Attachment 7 – Table C
Applicable Career and Training Services for
WIOA Title II AEFLA Program
Attachment 7 – Table C
Career and Training Services Applicable to AEFLA14 Category of Service
Outreach, intake, and orientation information Career Service
Initial assessment of skill levels including literacy, numeracy, Career Service
and English language proficiency, as well as aptitudes,
abilities, and supportive services needs
Referrals to and coordination of activities with other programs Career Service
and services
Provision of performance information and program cost Career Service
information on eligible providers of education, training, and
workforce services by program and type of provider
Provision of information on availability of supportive services Career Service
or assistance and appropriate referrals (including child care;
child support; medical or child health assistance available
through the State’s Medicaid program and CHIP; SNAP
benefits; EITC; assistance under TANF, and other supportive
services and transportation)
Integrated education and training (IET)programs15 Training Service
14
Sections 678.430(b)(8) and 678.430(b)(11) of the WIOA Joint Rule identify workforce preparation activities and
English language acquisition programs as applicable career services authorized to be provided through the one-stop
delivery system by required one-stop partners. However, these are also services specifically authorized by AEFLA
and provided by eligible providers as instructional or program services. Because of this, the program services and
career services costs do not lend themselves to differentiation. Therefore, on the WIOA Statewide and Local
Performance Report Template, workforce preparation activities and English language acquisition programs are not
included in the career services costs calculation.
15
If a program is using title II AEFLA funds to provide an IET program, the training component would be
categorized as a training service and should be included in the cost calculation of Training Services on the WIOA
Statewide and Local Performance Report Template.
Attachment 7 – Table D
Participation Level Services Chart
WIOA Title IV VR Program
Attachment 7 – Table D
RSA-911
Vocational Rehabilitation Service Category of Service
Data Element Number(s)
Job Exploration Counseling Career Service 97 - 102
Work Based Learning Experiences Training Service 103 - 108
Counseling on Enrollment Opportunities Career Service 109 - 114
Workplace Readiness Training Career Service 115 - 120
Instruction in Self Advocacy Career Service 121 - 126
Graduate College or University Training Service 129 - 135
Four-Year College or University Training Training Service 136 - 142
Junior or Community College Training Training Service 143 - 149
Occupational or Vocational Training Training Service 150 - 156
On the Job Training Training Service 157 - 163
Registered Apprenticeship Training Training Service 164 – 169
Basic Academic Remedial or Literacy Training Training Service 170 – 176
Job Readiness Training Training Service 177 – 183
Disability Related Skills Training Training Service 184 – 190
Miscellaneous Training Training Service 191 – 197
Randolph-Sheppard Entrepreneurial Training Training Service 198 – 204
Customized Training Training Service 205 – 211
Assessment Career Service 212 – 218
Diagnosis and Treatment of Impairment Career Service 219 – 225
Vocational Rehabilitation Counseling and Guidance Career Service 226 – 232
Job Search Assistance Career Service 233 – 239
Job Placement Assistance Career Service 240 – 246
Short Term Job Supports Career Service 247 – 253
Supported Employment Services Career Service 254 – 260
Information and Referral Services Career Service 261 – 267
Benefits Counseling Career Service 268 – 274
Customized Employment Services Career Service 275 – 281
Extended Services Career Service 282 – 286
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_8.pdf)
Attachment 8
Incumbent Worker Training Required Data Elements
REQUIRED DATA ELEMENTS – INCUMBENT WORKER TRAINING
Element # Element Name Primary Collection Method
100 Unique Individual Identifier Local/State
101 State Code of Residence Local/State
108 - A ETA-Assigned 1st Local Workforce Board Code Local/State
403 Occupational Code of Most Recent Employment Prior to Participation (if available) Employer
404 Industry Code of Employment 1st Quarter Prior to Participation Employer
907 Recipient of Incumbent Worker Training Local/State
If SSN – UI Wage records;
1600 Employed in 1st Quarter After Exit Quarter (WIOA) If SSN not provided –
employer follow-up
st
1601 Type of Employment Match 1 Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1602 Employed in 2nd Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1603 Type of Employment Match 2nd Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1604 Employed in 3rd Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1605 Type of Employment Match 3rd Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1606 Employed in 4th Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1607 Type of Employment Match 4th Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1618 Retention with the same employer in the 2nd Quarter and the 4th Quarter (WIOA) If SSN – UI wage records
1703 Wages 1st Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1704 Wages 2nd Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1705 Wages 3rd Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1706 Wages 4th Quarter After Exit Quarter (WIOA) If SSN – UI Wage records
1800 Type of Recognized Credential (WIOA) Employer follow-up
1801 Date Attained Recognized Credential (WIOA) Employer follow-up
1806 Date of Most Recent Measurable Skill Gains: Educational Achievement (WIOA) Employer follow-up
Date of Most Recent Measurable Skill Gains: Secondary Transcript/Report Card
1807 Employer follow-up
(WIOA)
Date of Most Recent Measurable Skill Gains: Post-Secondary Transcript/Report
1808 Employer follow-up
Card (WIOA)
1809 Date of Most Recent Measurable Skill Gains: Training Milestone (WIOA) Employer follow-up
1810 Date of Most Recent Measurable Skill Gains: Skills Progression (WIOA) Employer follow-up
1811 Date Enrolled in Education or Training Program Leading to a Recognized Employer follow-up
Element # Element Name Primary Collection Method
Postsecondary Credential or Employment During the Program (WIOA)
Most Recent Date Received Rapid Response Services
1501 Local/State
**Required for IW only if IWT funded with RR funds (WIOA sec. 134(a)(2)(A))
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_9.pdf)
Attachment 9
Calculation – Average Indicator of Performance
Average Indicator Score Calculation: A Practical Example
Given Information:
States and Federal agencies negotiate to one decimal place.
Actual Performance is calculated by dividing the numerator by the denominator. Actual Performance Values are
reported by the State for all primary indicators. In the reports, Actual Performance Values are represented by
rounding to the nearest tenth of a percent, but for the purpose of performing calculations, Actual Performance
Values and Adjusted Negotiated Values are neither rounded nor truncated. For example, use Title II AEFLA
Employment in the 2nd Quarter After Exit (highlighted in yellow):
Numerator = 16,244 (Total number of participants in the denominator that were also employed second
quarter after exit.)
Denominator = 24,000 (Total number of participants that exited during the reporting period.)
16,244
Numerator divided by Denominator = = 0.676833
24,000
Rate reported in Annual Report = 67.7%
Adjusted Negotiated Value = 75.2%
Employment Second Quarter After Exit Results by Program
Title II Title IV Title I Title I Title I Title III
Program Adult Rehabilitative Dislocated Wagner -
Adults Youth
Education Services Workers Peyser
Numerator 16,244 13,000 20,000 9,000 6,000 31,555
Denominator 24,000 18,000 30,000 15,000 12,000 42,000
Annual Report
Value
67.7% 72.2% 66.7% 60.0% 50.0% 75.1%
Adjusted
Negotiated 75.2% 72.5% 76.3% 79.7% 68.7% 65.4%
Value
What figures are used to determine how close performance was to the negotiated target?
Each Performance Score is calculated in a similar way. For those indicators reported as a percentage, use both
16,244
numerator and denominator in the next step =
24,000
The Performance Score is calculated by dividing the actual outcome by the Adjusted Negotiated Value.
16,244
( )
24,000
= = .90004(𝑟𝑒𝑝𝑟𝑒𝑠𝑒𝑛𝑡𝑒𝑑 𝑖𝑛 𝑡ℎ𝑒 𝑟𝑒𝑝𝑜𝑟𝑡 𝑎𝑠 90.0%)
75.2%
For those indicators not reported as a percentage, such as Median Earnings in the Second Quarter After Exit, use
the value in the Annual Report and divide by the Adjusted Negotiated Value.
How are the Average Indicator Scores calculated?
Each row and column of Performance Scores is then averaged and truncated to one decimal place.
nd
In this example, the average of the Employment 2 Quarter after Exit Performance Scores for the six programs
(highlighted in green) is 0.89985 and is truncated to one decimal place for an Average Indicator Score of 89.9%.
16,244 13,000 20,000 9,000 6,000 31,555
24,000 18,000 30,000 15,000 12,000 42,000
75.2% 72.5% 76.3% 79.7% 68.7% 65.4%
= + + + + + = .89985 = 89.9%
6 6 6 6 6 6
Title II Title IV Title I Title I Title I Title III Average
Indicator/
Adult Rehabilitative Dislocated Wagner - Indicator
Program Adults Youth
Education Services Workers Peyser Score
Employment 2nd
90.0% 99.6% 87.4% 75.3% 72.8% 114.9% 89.9%
Quarter After Exit
Employment 4th
Quarter After Exit
Median Earnings
2nd Quarter After 3
Exit
Credential
Attainment Rate
Measurable Skill
Gains
Effectiveness in
Serving Employers
Average Program
7 8 9 10 11 12 -
Score
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_10.pdf)
Attachment 10
Calculations – WIOA Indicators of Performance
Figure 1: Calculation: Employment Rate – Second Quarter After Exit Quarter (All non-youth
Participants)
The data for the numerator in this calculation is drawn from PIRL 1602 or RSA-911 Element 383): Employed in
Second Quarter After Exit Quarter.
Numerator
Of all participants in the denominator:
nd
Participants who were employed in the 2 quarter after program exit (PIRL 1602; code value #1, 2, or 3)
or (RSA-911 Element 383; code #1, 2, 3, or 4).
Denominator
Total # of Participants who exited during the reporting period from title I adult (PIRL 903; code value #1,
2, or 3), title I dislocated worker (PIRL 904; code value #1, 2, or 3), title II AEFLA (PIRL 910; code value #1),
title III Employment Service (PIRL 918; code value #1), and title IV VR (PIRL 917; code value #1, 2, or 3) or
(RSA-911 Element 355; code #13, 14, 16, 17, 18, or 19) programs, except those that exit for any of the
reasons listed in (PIRL 923; code value #1, 2, 3, 4, 5, 6, or 7) or (RSA-911 Element 355; code #1, 2, 3, 4, 5,
6, 7, 8, 9, 10, 11, 12, or 15).
Figure 2: Calculation: Title I Youth Education and Employment Rate – Second Quarter After Exit
Quarter (Not applicable to title II AEFLA and title IV VR)
The data for the numerator in this calculation is the unique count of records showing participants employed, which
nd
is drawn from PIRL 1602: Employed in Second Quarter After Exit Quarter and from PIRL 1900: Youth 2 Quarter
Placement (Title I).
Numerator
Of all participants in the denominator:
Youth employed in the 2nd quarter after program exit (PIRL 1602; code value #1, 2, or 3) or youth in
nd
training or education in the 2 quarter after program exit (PIRL 1900; code value #1, 2, or 3).
Denominator
Total # of participants who exited during the reporting period from title I youth program (PIRL 905; code
value #1, 2, or 3), except those that exit for any of the reasons listed in (PIRL 923; code value #1, 2, 3, 4,
5, 6, or 7).
Attachment 10
Calculations – WIOA Indicators of Performance
Figure 3: Calculation: Employment Rate – Fourth Quarter After Exit Quarter (All non-youth
Participants)
th
The data for the numerator in this calculation is drawn from PIRL 1606 or RSA-911 Element 389 (Employed in 4
Quarter After Exit Quarter).
Numerator
Of all participants listed in the denominator:
th
Participants who were employed in the 4 quarter after program exit (PIRL 1606; code value #1, 2, or 3)
or (RSA-911 Element 389; code #1, 2, 3, or 4).
Denominator
Total # of participants who exited during the reporting period from title I adult (PIRL 903; code value #1,
2, or 3), title I dislocated worker (PIRL 904, code value #1, 2, or 3), title II AEFLA (PIRL 910; code value #1),
title III Employment Service (PIRL 918; code value #1), and title IV VR (PIRL 917; code value #1, 2, or 3) or
(RSA-911 Element 355; code #13, 14, 16, 17, 18, or 19) programs, except those that exit for any of the
reasons listed in (PIRL 923; code value #1, 2, 3, 4, 5, 6, or 7) or (RSA-911 Element 355; code #1, 2, 3, 4, 5,
6, 7, 8, 9, 10, 11, 12, or 15).
Figure 4: Calculation: Title I Youth Education and Employment Rate – Fourth Quarter After Exit
Quarter (Not applicable to title II AEFLA and title IV VR)
The data for the numerator in this calculation is the unique count of records showing participants employed drawn
th th
from PIRL 1606: Employed in 4 Quarter After Exit Quarter and from PIRL 1901: Youth 4 Quarter Placement (Title
I).
Numerator
Of all participants in the denominator:
th
Youth employed in the 4 quarter after program exit (PIRL 1606; code value #1, 2, or 3) or youth in
training or education in the 4th quarter after program exit (PIRL 1900; code value #1, 2, or 3).
Denominator
Total # of participants who exited during the reporting period from title I youth program (PIRL 905; code
value #1, 2, or 3), except those that exit for any of the reasons listed in (PIRL 923; code value #1, 2, 3, 4,
5, 6, or 7).
Attachment 10
Calculations – WIOA Indicators of Performance
Figure 5: Calculation: Median Earnings Indicator
The median is the number that is in the middle of the series of numbers, so that there is the same quantity of
numbers above the median as there are below the median.
nd
The data for this calculation is drawn from PIRL 1704 or RSA-911 385: Wages 2 Quarter After Exit Quarter.
{(n + 1) ÷ 2} value, where n is the number of earnings for all participants who exited during the reporting
period employed in unsubsidized employment in the 2nd quarter after exit (PIRL 1704) or (RSA-911
Element 385), except those that exit for specified reasons listed in (PIRL 923; code value #1, 2, 3, 4, 5, 6,
or 7) or (RSA-911 Element 355; code #1, 2, 3, 4, 5, 6, 7, 8, 9, 10, 11, 12, or 15).
1. To calculate the median, wages must first be ranked (sorted in ascending order).
2. The median earnings value is the wage in the middle of the rank order list.
3. Median = the middle value of a set of ordered data.
If the list rank order of earnings contains an even number of values, sum the two middle values and divide by
two. Whether there is an odd or even number of entries in the list of earnings values, there will be an equal
number of records above and below the median value.
Example of Calculation of Median Earnings
If the series of values is 1, 2, 12, 22, 33, 43, 195, the median value is the number that is in the middle of
the series of numbers, so that there is the same quantity of numbers above the median as there is
below the median. In this example, the median value would be 22.
If there is an even number of values, such as 1, 2, 12, 22, 27, 33, 43, 195 the median value is the sum of
the two middle values divided by two. In this case the median value would be (22 + 27) / 2 = 24.5
Attachment 10
Calculations – WIOA Indicators of Performance
Figure 6: Calculation: Credential Attainment Rate Indicator
𝑨+𝑪
Credential Attainment Indicator =
𝑩+𝑫
Postsecondary Credential
Numerator A
Of all Participants included in the denominator:
The date on which a participant attains a credential (PIRL 1801) or (RSA-911 Elements 87, 88, 89, 90, 93, 94, 95, or
377) occurs during participation in, or within 1 year after Program Exit (PIRL 901) or (RSA-911, Element 353) AND
The type of credential attained (PIRL 1800; code value #2, 3, 4, 5, 6, 7, or 8) or (RSA-911 Elements 87, 88, 89, 90,
93, 94, 95, or 378) is recognized as a postsecondary credential.
Denominator B
Date of Program Exit (PIRL 901) or RSA-911 Element 353) is within the timeframe being reported (i.e., Jan 1, 2017
– Dec 31, 2017) AND
At least one type of training service (PIRL 1303, PIRL 1310, or PIRL1315; code value #2, 3, 4, 6, 7, 8, 9, or 10) or
(RSA-911 Elements 150, 151, 164, 170, 171, 177, 178, 184, 185, 191, 192, 198, 199) in which the participant was
enrolled is considered "Postsecondary" OR
The participant participated in postsecondary education (PIRL 1332; code value #1) or (RSA-911 Element 84; code
#1), except those that exit for specified reasons listed in (PIRL 923; code value #1, 2, 3, 4, 5, 6, or 7) or (RSA-911
Element 355, code # 1, 2, 3 ,4, 5, 6, 7, 8, 9, 10, 11, 12, or 15).
Attachment 10
Calculations – WIOA Indicators of Performance
Figure 6 (cont.): Calculation: Credential Attainment Rate Indicator
𝑨+𝑪
Credential Attainment Indicator =
𝑩+𝑫
Secondary Credential
Numerator C
Of all participants included in the denominator:
The date on which a participant attains a credential (PIRL 1801) or (RSA-911 Element 81 or 82) occurs during
participation in, or within 1 year after Program Exit (PIRL 901) or (RSA-911 Element 353) AND
The type of credential attained (PIRL 1800, code value #1) is recognized as a Secondary School Diploma/or
Equivalency AND
The participant enrolls in a post exit education or training program leading to a recognized postsecondary
credential (PIRL 1406) or (RSA-911 Element 376) within 1 year after program exit (PIRL 901) or (RSA-911 Element
353) OR
The participant is employed in the 1st Quarter (PIRL 1600; code value #1, 2, or 3) or (RSA-911 Element 379; code
nd rd
#1, 2, 3, or 4), 2 Quarter (PIRL 1602; code value #1, 2, or 3) or (RSA-911 Element 383; code #1, 2, 3, or 4), 3
th
Quarter (PIRL 1604; code value #1, 2, or 3) or (RSA-911 Element 386; code #1, 2, 3, or 4), or 4 Quarter (PIRL 1606;
code value #1, 2, or 3) or (RSA-911 Element 389; code #1, 2, 3, or 4) after program exit.
Denominator D
Date of Program Exit (PIRL 901) or (RSA-911 Element 353) is within the timeframe being reported (i.e., Jan 1, 2017
– Dec 31, 2017) AND
At least one type of training service in which the participant was enrolled (PIRL 1303, PIRL 1310, or PIRL 1315) is
considered “Secondary” [code value #4 for “ABE or ESL (contextualized or other) in conjunction with Training
(non-TAA funded)”] or (RSA-911 Elements 170 and 171) OR
The participant was "Enrolled in Secondary Education Program at Program Entry” (PIRL 1401, code value #1) or
(RSA-911 Element 78; code #1), except those that exit for specified reasons listed in (PIRL 923, code value #1, 2, 3,
4, 5 6, or 7) or (RSA-911 Element 355; Code #1, 2, 3, 4, 5, 6, 7, 8, 9, 10, 11, 12, or 15).
Attachment 10
Calculations – WIOA Indicators of Performance
Figure 7: Calculation: Measurable Skill Gains Indicator
Numerator
Of all the participants in the denominator:
[The unique count of the most recent date which on participants achieved a Measurable Skill Gains is in
the reporting period, via one of the following:
Educational Functioning Level (PIRL 1806) or (RSA-911 Element 343)
OR Postsecondary Transcript/Report Card (PIRL 1807) or (RSA-911 Element 345)
OR Secondary Transcript/Report Card (PIRL 1808) or (RSA-911 Element 344)
OR Training Milestone (PIRL 1809) or (RSA-911 Element 346)
OR Skills Progression (PIRL 1810) or (RSA-911 Element 347)]
Denominator
All participants enrolled in an education or training program leading to a recognized postsecondary
credential or employment (PIRL 1811) or (RSA-911 Element 85) except those that exit for specified
reasons listed in (PIRL 923; code value #1, 2, 3, 4, 5 or 6) or (RSA-911 Element 355; Codes #1, 2, 3, 4, 5, 6,
7, 8, 9, 10, 11, 12, or 15).
Attachment (official PDF: https://www.dol.gov/sites/dolgov/files/ETA/advisories/TEGL/2016/TEGL_10-16_Attachment_11.pdf)
Attachment 11
References – WIOA Operating Guidance
Workforce Innovation and Opportunity Act, Pub. L. 113-128
WIOA Joint Rule for United and Combined State Plans, Performance Accountability, and
the One-Stop System Joint Provisions, 81 Fed. Reg. 55791 (Aug. 19, 2016)
OMB Control Number 1205-0526, WIOA Participant Individual Record Layout
OMB Control Number 1205-0521, WIOA DOL-only Participant Individual Record
Layout
Elementary and Secondary Education Act, as amended by the Every Student Succeeds
Act, 20 U.S.C 6301, et seq.
http://www.ed.gov/AEFLA
http://www2.ed.gov/about/offices/list/osers/rsa/wioa-reauthorization.html
http://www.doleta.gov/wioa
http://www.doleta.gov/performance
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