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WIOAPL 15-08 (Career Services for Adults and Dislocated Workers)
Workforce Innovation and Opportunity Act Policy Letter No. 15-08
July 15, 2015
TO: Workforce Innovation and Opportunity Act (WIOA) Local Workforce Development Boards (WDBs), Fiscal Agents, and OhioMeansJobs Center Operators
FROM: Cynthia C. Dungey, Director
SUBJECT: Career Services for Adults and Dislocated Workers

I.Purpose

This purpose of this policy is to communicate guidance in the provision of career services to adults and dislocated workers.

II.Effective Date

July 1, 2015

III.Background

The OhioMeansJobs delivery system is the foundation of the workforce system. Pursuant to section 134 (c)(1) of the Workforce Innovation and Opportunity Act (WIOA), funds allocated to the local area for adults and dislocated workers shall be used to establish an OhioMeansJobs delivery system, to provide career services to adults and dislocated workers, to provide training services to adults and dislocated workers, to establish and develop relationships with large and small employers and their intermediaries, and to develop, convene, or implement industry and sector partnerships. Local workforce development boards (WDB) determine the most appropriate mix of these services, but both career and training services must be available for eligible adults and dislocated workers.

Career and training services, tailored to the individual needs of jobseekers, form the backbone of the OhioMeansJobs delivery system. While some jobseekers may only need self-service or other basic career services, others will need services that are more comprehensive and tailored to their individual career needs.

The WIOA adult and dislocated worker programs are designed to provide services, employment, and training opportunities to those who can benefit from, and who are in need, of such services. A wide range of activities and services must be available to assist individuals in obtaining the skills and credentials necessary to secure and advance in employment.

IV.Definitions

Appropriateness: the possession of qualities that is right, needed, or suitable for career services.

Basic skills deficient: an individual who is unable to compute or solve problems, or read, write, or speak English, at a level necessary to function on the job, in the individual's family, or in society.

Career counseling: facilitated exploration of occupational and industry information that will lead to a first, new, or better job for the job seeker.

Career planning: the provision of client-centered approach in the delivery of services designed to:

  • Prepare and coordinate comprehensive employment plans, such as service strategies, for participants to ensure access to necessary workforce investment activities and supportive services, where feasible, computer-based technologies; and
  • Provide job, education, and career counseling, as appropriate during program participation and after job placement.

Financial literacy services: activities provided to gain an understanding of basic financial information which is necessary to become self-sufficient, and includes the following:

  • Supporting the ability of participants to create household budgets, initiate savings plans, and make informed financial decisions about education, retirement, home ownership, wealth building, or other savings goals;
  • Supporting the ability to manage spending, credit, and debt, including credit card debt, effectively;
  • Increasing awareness of the availability and significance of credit reports and credit scores in obtaining credit, including determining their accuracy;
  • Supporting the ability to understand evaluate, and compare financial products, services, and opportunities; and
  • Supporting activities that address the particular financial literacy needs of non-English speakers.

Follow-up services: activities to monitor adults or dislocated workers' success during their transition to employment and further education and to provide assistance as needed for a successful transition.

In-demand occupation: an occupation that currently has or is projected to have a number of positions (including positions that lead to economic self-sufficiency and opportunities for advancement) in an industry sector so as to have a significant impact on the State, regional, or local economy as listed on the State In-Demand Occupations list or as defined by the local area per the Workforce Innovation and Opportunity Act Policy Letter (WIOAPL) No. 15-11, Use of Individual Training Accounts (ITA).

In-demand industry sector: an industry sector that has a substantial current or potential impact (including through jobs that lead to economic self-sufficiency and opportunities for advancement) on the State, regional, and local economy, as appropriate, and that contributes to the growth or stability of other supporting businesses, or the growth of other industry sectors as listed on the State In-Demand Occupations list or as defined by the local area per the WIOAPL No. 15-11.

Individual employment plan: an individualized career service joint development by the participant and staff that includes an ongoing strategy to identify employment goals, achievement objectives, and an appropriate combination of services for the participant to obtain these goals and objectives.

Integrated education and training: 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.

Internship: a system of gaining on-the-job experience by placement in a work environment for a period of time with the goal to build technical and job awareness skills. Internships may be paid or unpaid.

Job club: group of job seekers who meet for mutual support and networking while looking for employment.

Lower living standard income level: As defined in section 3 (36)(b) of WIOA, income level (adjusted for regional, metropolitan, urban, and rural differences and family size) determined annually by the Department of Labor based on the most recent lower living family budget issued by the Secretary.

Low-income individual: As defined in section 3 (36)(a) of WIOA, an individual who -

a.Receives, or in the past 6 months has received, or is a member of a family that is receiving or in the past 6 months has received, assistance through the supplemental nutrition assistance program (SNAP), temporary assistance for needy families (TANF), or the supplemental security income (SSI) or local income-based public assistance;

b.Is in a family with total family income that does not exceed the higher of -

  • The poverty line; or
  • 70% of the lower living standard income level.

c.Is a homeless individual;

d.Receives or is eligible to receive a free or reduced price lunch;

e.Is a foster child on behalf of whom the State or local government payments are made; or

f.Is an individual with a disability whose own income meets the eligibility income requirement of clause (b) but who is a member of a family whose income does not meet this requirement.

Meaningful assistance: providing assistance on-site using staff who are well-trained in unemployment compensation claims filing and the rights and responsibilities of claimants or providing assistance by phone or other technology, as long as the assistance is provided by trained and available staff and within a reasonable time.

Participation: the point at which the individual has been determined eligible for program services and has received or is receiving a career or training service, other than basic career services and is the point at which an individual is to be included in calculations for performance measures.

Public assistance: as defined in section (3)(50) of WIOA, federal, state, or local government cash payments for which eligibility is determined by a needs or income test. This includes temporary assistance for needy families (TANF), supplemental nutrition assistance program (SNAP), or supplemental security income (SSI).

Registration: the process of collecting information to support determination of eligibility for the WIOA adult and dislocated worker programs. This information may be collected through methods that include electronic data transfer, personal interview, or an individual's application.

Supportive services: services such as transportation, child care, dependent care, housing, and needs-related payments, that are necessary to enable an individual to participate in activities authorized under WIOA.

Underemployed individual: an individual who is one of the following:

  • Employed less than full-time who are seeking full-time employment;
  • Employed in a position that is inadequate with respect to their skills and training;
  • Employed and meet the definition of a low-income individual; or
  • Employed, but whose current job's earning are not sufficient compared to their previous job's earning from their previous employment per local policy.

Work experience: a planned, structured learning activity that takes place in a workplace setting for a limited period of time (refer to Workforce Innovation and Opportunity Act Policy Letter (WIOAPL) No. 15-12, Work Experience for Adults and Dislocated Workers).

V.Requirements

Career Services

Career services must be made available through the OhioMeansJobs delivery system to individuals who are adults or dislocated workers. Career services may be broken into three sets of activities: basic career services available to all individuals seeking services served in the OhioMeansJobs delivery system; individualized career services deemed necessary for an adult or dislocated worker to obtain or retain employment; and follow-up services available for an adult or dislocated worker after unsubsidized employment is obtained. There is no order in which services are provided; service delivery is based on the individual needs of the participant. Therefore, an individual does not need to attempt a career service to demonstrate a failure to secure employment prior to receiving training services.

Career services must be provided by the OhioMeansJobs center operator or through contracts with service providers procured through and approved by the local WDB. The WDB and the OhioMeansJobs center operator should review career services to determine if any of these services are being provided or may be provided by a partner (i.e., Wagner-Peyser program) at the OhioMeansJobs center. The local WDB, OhioMeansJobs center operator, and the partner program should discuss strategies to reduce duplication and to appropriately utilize resources when providing services to universal customers. The memorandum of understanding should address how WIOA self-service or informational career services will be coordinated with other partner programs.

Basic Career Services

Basic career services are available to the universal customer, who is anyone coming to an OhioMeansJobs center seeking assistance. These services are informational services and may require limited to no assistance for OhioMeansJobs center staff. Provision of these services does not require registration into the WIOA adult or dislocated worker programs. Those services available to the universal customer include:

1.Determinations of whether the individual is eligible to receive WIOA services;

2.Outreach, intake (which may include worker profiling), and orientation to the information and other services available through the workforce development delivery system;

3.Initial assessment of skill levels, including literacy, numeracy, and English language proficiency, as well as aptitudes, abilities (including skills gaps), and supportive service needs;

4.Labor exchange services, including:

  • Job search and placement assistance, and when needed by an individual, career counseling, including:
  • Provision of information on in-demand industry sectors and occupations; and
  • Provision of information on nontraditional employment

5.Provision of workforce and labor market employment statistical information, which may be found on OhioMeansJobs.com. This service includes the provision of accurate information relating to local, regional, and national labor market areas, including:

  • Job vacancy listings in such labor market areas;
  • Information on job skills necessary to obtain the vacant jobs; and
  • Information relating to local occupations in demand and the earnings, skill requirements, and opportunities for advancement for such occupations;

6.Provision of performance information and program cost information on the eligible providers of training services by program and type of providers;

7.Provision of referrals to and coordination of activities with other programs and services, including programs and services within the OhioMeansJobs delivery system and, in appropriate cases, other workforce development programs;

8.Provision of information regarding how the local is performing on the local performance accountability measures and any additional performance information with respect to the OhioMeansJobs delivery system in the local area;

9.Provision of information relating to the availability of supportive services or assistance, and appropriate referrals to those services and assistance, including:

  • Child care;
  • Child support;
  • Medical or child health assistance available through the State's Medicaid program and Children's Health Insurance Program;
  • Supplemental Nutrition Assistance Program (SNAP);
  • Assistance through the earned income tax credit;
  • Temporary Assistance to Needy Families (TANF);
  • Other supportive services and transportation available in the local area;

10.Provision of information and assistance regarding filing claims for unemployment compensation, by which the OhioMeansJobs center must provide meaningful assistance to individuals seeking assistance in filing a claim for unemployment compensation;

11.Assistance in establishing eligibility for programs of financial aid assistance for training and education programs not funded through WIOA; and

12.Group workshops (e.g., interviewing, job search, and resume writing).

Individualized Career Services

Per section 134 (c)(2)(A)(xii) of WIOA, some career services are available to adults and dislocated workers if determined to be appropriate in order obtain or retain employment. These career services involve staff making a determination on needs of an individual and arranging those services to be provided to the participant. Individualized career services require enrollment in the WIOA program and include short-term pre-vocational services. These career services include:

1.Comprehensive and specialized assessments of the skill levels and service needs of adults and dislocated workers, which may include:

  • Diagnostic testing and use of other assessment tools; and
  • In-depth interviewing and evaluation to identify employment barriers and appropriate employment goals.

2.Development of an individual employment plan (IEP) to identify all of the following:

  • Employment goals;
  • Appropriate achievement objectives;
  • Appropriate combination of services for the participant to achieve the employment goals, including providing information on eligible training providers and career pathways to attain career objectives.

IEPs are one of the most effective ways to serve individuals with barriers to employment and to coordinate the various services, including training services they may need to overcome these barriers. Therefore, all participants who receive an individualized career service or a training service pursuant to WIOAPL No. 15-09, Training Services for Adults and Dislocated Workers, must receive an IEP.

3.Group counseling;

4.Individual counseling;

5.Career planning;

6.Short-term prevocational services to prepare individuals for unsubsidized employment or training, which include:

  • Development of learning skills;
  • Communication skills;
  • Interviewing skills;
  • Punctuality;
  • Personal maintenance skills;
  • Professional conduct.

7.Internships and work experiences that are linked to careers;

8.Workforce preparation activities;

9.Financial literacy services;

10.Out-of-area job search assistance and relocation assistance;

11.English language acquisition and integrated education and training programs; and

12.Provision of job club activities.

Follow-Up Services

Appropriate follow-up services must be made available to a participant placed in unsubsidized employment for a minimum of 12 months following the participant's first date of employment. Follow-up services can be useful for participants in order to maintain employment. WIOA staff can provide workplace information and tips for success in the workplace environment.

Additionally, follow-up services provide the continuing link between the participant and workforce system. These services allow the WIOA staff to assist with other services the participant may need once he or she obtains employment. Examples may include assistance with employer benefits, health insurance, and financial literacy and budgeting assistance.

Supportive Services

Supportive services are services, such as transportation, child care, dependent care, housing, and needs-related payments, that are necessary to enable an individual to participate in career and training services. Referral to supportive services is a career services that may be available to adults and dislocated workers through the workforce development system.

Supportive services may only be provided to participants who are in career or trainings services, unable to obtain supportive services through other programs providing supportive services, and that they must be provided in a manner necessary to enable individuals to participate in career and/or training services.

To provide supportive services, the local workforce development board (WDB), in consultation with the OhioMeansJobs partners and other community service providers, must develop a policy on supportive services that ensures resources and service coordination in the local area. The policy must address procedures for referral to such services, including how such service will be funded when they are not otherwise available from other sources.

Use of Previous Assessments

When determining the services needed for an individual to obtain or retain employment, the local area or an OhioMeansJobs center partner shall not be required to complete a new interview, evaluation, or assessment of a participant if the local area or OhioMeansJobs center partner determines it is appropriate to use a recent interview, evaluation, or assessment (within six (6) months) of the participant conducted pursuant to another education or training program. This may include evaluations completed by a secondary school, Vocational Rehabilitation, ABLE, Veteran program, or other education or training providers.

Priority for the Adult Program

Priority for career services funded by and provided through the adult program shall be given to recipients of public assistance, other low-income individuals, and individuals who are basic skills deficient for receipt of those career services determined appropriate to obtain or retain employment. Individuals who are underemployed and meet the definition of a low-income individual may receive career services under the Adult program on a priority basis.

The emphasis in WIOA is to prioritize services to those individuals who have the most barriers to employment and to provide those individual with the opportunity to benefit from employment and training services.

Priority for Veterans and Eligible Spouses

Additionally, the Jobs for Veterans Act, Public Law 107-288 establishes priority of service for veterans and eligible spouses. Veterans and eligible spouses must first meet any and all of the statutory eligibility criteria in order to be considered for: a) enrollment in the program; b) receipt of priority for enrollment in the program; and c) priority of receipt of services. Priority means that veterans and eligible spouses take precedence, with all other qualifying eligibility requirements being equal, over non-veteran and eligible spouses in obtaining services and program enrollment.

VI.Reporting Requirements

Registration is the process for collecting information to support a determination of eligibility. Program participation begins occurs after the registration process of collecting information to support an eligibility determination and begins when the individual receives an individualized career service or training service which is funded by the adult or dislocated worker program. Pursuant to rule 5101:9-30-04 of the Administrative Code, the local board shall ensure the timely and accurate reporting of WIOA participants, activities, and performance information by using the Ohio Workforce Case Management System (OWCMS).

VII.Monitoring

At the local level, the local area must conduct oversight of the implementation of the WIOA adult and dislocated worker programs to ensure that participants are enrolled in the programs and have been provided identified services.

Through the state's monitoring system, program monitors will review the local area's implementation of the WIOA adult and dislocated worker programs, including a participant file review, during the annual onsite monitoring review for compliance with federal and state laws and regulations. Any issues will be handled through the state's monitoring resolution process.

VIII.Technical Assistance

For additional information, you may send your questions to the Office of Workforce Development: OWDPOLICY@jfs.ohio.gov.

For technical assistance, you may send your request to the Office of Workforce Development: WIAQNA@jfs.ohio.gov.

IX.References

Workforce Innovation and Opportunity Act, Pub. L. 113-128

20 C.F.R. Parts 603 et al.

29 U.S.C. 3101 et seq.

USDOL, Training and Employment Guidance Letter WIOA N0. 3-15 Operating Guidance for the Workforce Innovation and Opportunity Act, Guidance on Services Provider through the Adult and Dislocated Worker Program under the Workforce Innovation and Opportunity Act (WIOA or Opportunity Act) and Wagner-Peyser, as Amended by WIOA, and Guidance for the Transition to WIOA Services, (July 1, 2015).

Ohio Administrative Code rule 5101:9-30-04, Mandated Use of Ohio Workforce Case Management System (OWCMS).

ODJFS, Workforce Innovation and Opportunity Act Policy Letter (WIOAPL) No. 15-12, Work Experience for Adults and Dislocated Workers, (July 1, 2015).

ODJFS,Workforce Innovation and Opportunity Act Policy Letter (WIOAPL) No. 15-11, Use of Individual Training Accounts (ITAs), (July 1, 2015).

Rescission

ODJFS, Workforce Investment Act Transmittal Letter No. 14, WIA Core, Intensive and Training Services, (November 15, 2004).