DOCUMENT RESUME

ED 330 379JC 910 151

AUTHOR Visdos, Robert J.; Malley, Mary R.

TITLE Report on U.S. Department of Labor Programs and

Funding through the Job Training Partnership Act

(JTPA), 1990.

INSTITUTION NETWORK: America's Two-Year Coll. Employment,

Training, and Literacy Consortium, Cleveland, 01-1.

PUB DATE 22 Jan 90

NOTE 25p.

PUB TYPE Reports - Descriptive (141)

EDRS PRICE MF01/PC01 Plus Postage.

DESCRIPTORS Basic Skills; *College Role; Community Colleges;

Delivery Systems; Dislocated Workers; *Employment

Programs; Federal Aid; *Federal Programs; Financial

Support; *Job Training; Labor Force Development;

*Labor Legizlation; Minority Groups; Postsecondary

Education; Resource Allocation; Secondary Ed:cation;

Two Year Colleges; Veterans Education; Vocational

Education; Youth Employment

IDENTIFiERS *Job Training Partnership Act 1982

ABSTRACTDesigned to assist two-year colleges in increasing

their level of involvement in the delivery of services under the Job

Training Partnership Act (JTPA), this report describes the JTPA,

reviews the role of two-year colleges in JTPA service delivery, and

provides information on fiscal year (FY) 1991 JTPA funding

availability and levels. Following a letter directed to potential

community college service providers, section I describes JTPP.

legislation, reviewing the speuific title authorizations and FY91

funding available for summer youth employment and training programs;

employment and training assistance for dislocated workers; programs

for Native Americans, and Alaskan and Hawaiian natives; training

programs for migrant farm workers; and employment programs for

veterans. Section II presents two United States Department of Labor

fact sheets reviewing program highlights for the JTPA and the

Economic Dislocation and Worker Adjustment Assistance Act (EDWAA).

Section III contains a copy of a training and employment guidance

letter from the Assistant Secretary of Labor which reviews the

purposes of, background to, and guidelines for participation in the

JTPA and the Job Opportunities and Basic Skills (JOBS) programs.

Included in this section are reference materials and information on

the JOBS program, including features that affect activities and

respons_bilities under the JTPA. In addition, this section provides

policy guidance regarding the role that JTPA providers, the State Job

Training Coordinating Councils, and private industry councils should

play in JOBS. (JMC)

********************************************** ***** ********************Reproductions supplied by EDRS are the best that can be made

from the original document.

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NETWORK:

AMERICA'S TWO-YEAR COLLEGE

EMPLOYMENT, TRAINING AND LITERACY CONSORTIUM

"REPORT ON U.S. DEPARTMENT OF LABOR PROGRAMS AND FUNDING

THROUGH THE JOB TRAINING PARTNERSHIP ACT (JTPA) 1990"

U.5 DCPANTIMENT OF EDLICATONOffrc,! of Educ'atonal Research and Improvment

EDUCATIONAL RESOURCES INFORMATIONCEN'TR (ERIC}

TWlis document has ben reproduced asrece,ed from the person or orgarnzationar.spnatro9SAnor changes ha,,e Coen mad. to "provereProduCtrOrt quat.15

Pomts ot vrew 0 opmronsStatechrOMstiocumen! do nof nocessarrIy represent ottrcrioOE RI posrtwon or pobcy

Prepared by

Robert J. VisdosNETWORK President

Cuyahoga Community College

Mary R. MalleyClark County Community College

January 22, 1990

BIST COPY MAILABLE

-PERMISSION TO REPRODUCE THISMATERIAL HAS BEEN GRANTED BY

R. J. Visdos

TO THE EDUCATIONAL RESOURCESINFORMATION CENTER (ERIC)."

Midway Building3030 Euclid AvowClavaind, OM 44115(215) 287-4208

Dear Employment and Training Colleague:

NETWORK's "Report on U.S. Department of Labor Programs andFunding through the Job Training Partership Act (JTPA) 1990",

is intended to assist you in understanding %TWA and how toactively involve your two-year college in delivering servicesunder JTPA. This past October, for the third consecutive year,NETWORK representatives visited with administrators at theDepartment of Labor to discuss the role of two-year colleges inJTPA service delivery and also to confirm funding availabilityand levels.

The results of those discussions are represented within thisreport, as are the actual funding levels which are availableduring JTPA Program Year (PY) 1990 (FY°91). Unfortunately, thisyear NETWORK was unable to obtain state-by-state fundingallocations for JTPA Title II, Parts A and Br and Title III

(EDWAA). Hopefully, state-by-state funding charts will onceagain be included in.NETWORK's 1991 Report on STIPA

The NETWORK Board of Directors sincerely hopes that theinformation contained within this report will be useful to youin helping your two-year college increase its level ofinvolvement in JTPA service delivery.

"AMER/CA'S TWOYEAR COLLEGE EMPLOYMENT ANO TRAINING CONSORTIUM"

SECTIOF I

TABLE OF CONTENTS

JOB TRAINING PARTNERSHIu ACT (JTPA)

FUNDING REPORT FOR PY'90 (FY'91)

SECTION II DEPARTMENT OF LABOR FACT SHEETS

JTPA AND EDWAA

SECTION III - TRAINING AND EMPLOYMENT GUIDANCE

LETTER NO. 6-89 - COVERING

JTPA AND JOBS PROGRAM COORDINATION

SECTION I JOB TRAINING PARTNERSHIP ACT ( LITPA)

FUNDING REPORT FOR PY'90 (FY'9I)

DEPARTMENT OF LABOR

JOB TRA:.:NING PARTNERSHIP ACT (JTPA)

AUTHORIZATION: The Job Training Partnership Act of 1982, asamended in 1986 and 1988, provides funding under Titles II IIParts A (Subparts 78%, 8%, and 3%) and B, III, ry Parts A, B, C,and D. Proposed amendments by the Bush Administration, SenatorSimon, and Representative Hawkins did not occur in 1990-91 asoriginally expected and it is highly unlikely that any changeswill occur in PY"91-92.

JOB TRAINING PARTVERWUP ACT (JTPA)

The Job Training Partnership Act is a federally fundedemployment and training program that is awarded to each Governorfor formula and/or discretionary allocation to local ServiceDelivery Areas (SDAs), as designated by local demographics/population and unemployment statistics.

Each state establishes a State Job Training Coordinating Council(SJTCC), which provides strategic leadership, guidance, policyoversight, and establishes performance measures. Similarly,esch SDA through its local elected officials appoints a PrivateIndustry Council (PIC) composed of representatives frombusiness, industry, education, government, labor, and communitybased organizations. The local PICs provide strategic planning,policy development/guidance, and program oversight to the localSDA, especially in terms of the development of the local JobTraining Plan which covers a two-year period. The local plan issubmitted to the Governor for review and approval prior toprogram implementation.

Each of the local SDA Job Training Plans are consolidated intothe Governor's Coordination and Special Services Plan which isforwarded to the Secretary of Labor, describing the use of allJTPA resources provided to the State and its service deliveryareas for a two-year period. The State Plan also evaluates thesuccess of the program over the previous two-year period.

The Local SDA and State Plans are public access documents andare generally available for inspection through either the localSDA office, the designated State JTPA Agency, or the Governor'sOffice. It is strongly recommended that these documents bereviewed prior to undertaking any resource development effortsin the JTPA area.

Title I - Job Training Partnership

Authorizes the establishment of the SJTCC, Service DeliveryAreas, Private Industry Councils and the Administrative Entitystructures. This Title establishes funding allocationguidelines in the areas of administration (15%), training (70%),and supportive services (15%). Provisions are also made forstate and local planning, policy guidance, monitoring, programevaluation and oversight under this title.

Title II -lart A - Suboors 7a$, 0%. ang_21

Authorizes and sets requirements for training, placement, andother training related services for economically disadvantagedyouth and adults. The programming which is authorized throughthis Title and its subparts is established on a local levelthrough the Local Job Training Plan and is approved by theGovernor. Services under Title II-A are targeted ateconomically disadvantaged individuals, however, up to 10% ofthe participants served may be excluded from economic guidelinesbased upon identifiable barriers to employment.

Each state allocates 78% of its Title II-A funds to the localSDAs for the delivery of training and placement services toyouth ages 14 through 21 (both in-school and out-of-school) andadults ages 22 through 54. The SDAs in conjunction with theirrespective PICs subcontract with local agencies, includingcommunity and technical colleges for the delivery ofpre-employment skill and occupational training, literacy,customized training, counseling, exemplary youth programming,job search and job placement services. Specific service needsare established by the PIC and SDA and are identified in theLocal Job Training Plan. It should be noted that identifiedtraining needs are generally based upon local labor marketdemands, and that under Title II-A, the "bottom line" measure ofsliccess, as is the case in all of JIM is job placement. Thetotal Title II-A allocation (actual) for JTPA ProgrwA Year (PY)1990 is $1,744,808,000, of which $1,360,950,240 is for Subpart78%. PY'91 funding levels under Title II, Part A, are not yetavailable.

A total of 8% of each state's Title II-A allocetion is utilivadfor the purposes of state and local education coordination.Training, literacy ana placement services are provided toeligible participants (ages 22 through 54) through cooperativeagreements between State education agencies, administrativeentities in the local SDAs and local educational agencies.Community and technical colleges are highly recommended topursue the availability of this funding through their local SDAsor the State Education Agencies. The actual 8% allocation forPY'90 is $139,584,640. The PY'91 proposed 8% allocation levelis not yet available.

Each state allocates 3% of its Title II-A funds for theprovision of services to Older Individuals. Funds that areavailable under this Subpart are depicted in the Local JobTraining Plan, and are to be used for the training and placementof older individuals for employment opportunities with localprivate business concerns. Services under this Subpart arerestricted to economically disadvantaged individuals who are atleast 55 years of age. Community and technical colleges arestrongly encouraged to pursue funding opportunities under thisSubpart. The actual 3% allocation for PY'90 is $52,344,24Z.The 3% allocation for PY'91 is not available at this time.

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Title_Ii Part B S ..11 P 11 al Train I +

Authorizes and sets requirements for the establishment andoperation of programs that are designed to enhance the basiceducational skills of youth, encourage school completion (orenrollment in alternative educational settings), and provideeligible youth with exposure to the world of work. Fundsavailable under this Part may be used for bosic and remedialeducation, work experience, employment counseling,pre-amployment skills and occupational classroom training,placement services, job search assistance and other approvedactivities. Programming under this Part is depicted in theLocal Job Training Plan and is based upon the written programgoals and objectives that have been established by the localPIC.

Services are restricted to the summer months, however, theDepartment of Labor has been seeking changes in the legislationwhich would allow the delivery of year-round youth programsunder Title II, Part B. While these changes were originallyproposed in the amendments to the Act, which ultimately were notsigned intu law, the administration may still seek to make thesechanges through regulatory action in late PY'90 or early PY'91.The total allocation for Title II Part B in PY'90 was$709,433,000. The projected PY'91 allocation was unavailable inJanuary, 1991, at the time this report was finalized.

The proposed amendments to JTPA would have eliminated youthservices under Title II, Part A, Subpart 78% and would haveestablished Title II, Part B as a year-round program with avariety of activities being authorized for services to a targetpopulation of out-of-school and at-risk youth, ages 16 to 21(and possibly through age 24). As previously indicated, theadministration may still attempt to implement these changesthrough regulatory changes during late PY'90 or early PY'91.

A DislWorkerf

As part of the Omnibus Trade and Competitiveness Act (OTCA) of1988, Title III of the JTPA Act was amended to establish a newworker adjustment program, and substantially revised theexisting Trade Adjustment Assistance (TAA) program under Chapter2 of Title II of the Trade Act of 1974. In addition, theamendment established the Worker Adjustment and RetrainingNotification Act (WARN), which requires mandatory advance noticein certain cases of plant closings and mass lay-offs.

The Economic Dislocation and Workers Adjustment Assistance(EDWAA) Program, amended Title III by creating new trainingprograms and employment services for eligible workers.Signi%cant provisions, as compared to the earlier Title IIIprogrLm, included a new delivery system, a system of rapidresponse units to provide assistance to workers and communitiezundergoing major lay-offs, and a number of new and innovativeapproaches to serving dislocated workers. Regulations for this

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program were established in late 1988, with EDWAA beingimplemented on July 1, 1989. The PY'90 allocation is$463,603,000 of which $91,734,814 is held in the Secretary'sReserve account. Under the previous Title III provisionsmatching funds were required, EDWAA eliminates all matching fundrequirements.

The Trade Adjustment Assistance (TAA) Program is primarilyadministered through each state's Employment Security System,and was amended through Part 3, Subtitle D of Title I in OTCA.The program provides benefits and services for workers displacedfrom their jobs due to imports. Significant changes includedrequirements for active participation in training, expansion ofpotential eligibility for certain gao- id oil industry workers,and provisions for increased coord!..n.aLion with other trainingand employment programs.

Community and technical colleges are strongly encouraged to meetwith local employment security agency representatives regardingthis program, as training vouchers are often issued to eligibleworkers which allow them to seek training or retrainingservices. A total of $5,692,000 in funds will funds will beavailable through this program during FY'91.

The Worker Adjustment and Retraining Notification (WARN) Actrequires that, with certain exceptions, companies with at least100 workers give 60 days or more advance notice of a plantclosing that would affect 50 or more full-time workers, or d sixmonth or longer lay-off that would affect at least one-third ofthe workforce (or 500 workers). It should be noted that as aresult of this enactment, each state must establish a "RapidResponse Team" tnat will immediately begin to design services tomeet the employment, training, education, and supportiveservices needs of the affected employees prior to the occurrenceof the actual dislocation. WARN does not provide any funds forthese activities and no funds are authorized nor allocated forthe program. Effective in PY'89 Rapid Response Team activitiesare covered through the amended JTPA Title III program with upto 40% of each st.ate's allocation being used at the governor'sdiscrltion for rapid response activities.

For further information regarding these programs contact:

Hugh Davies, Acting DirectorOffice of Employment and Training Programs(202) 535-0525

IIILLE=IY_z_ast_A_=_Native American Proarams

Authorizes employment, training, and other related activitiesfor economically disadvantaged Indian, Alaskan Native, andHawaiian Native communities and individuals. In PY'90 a totalof $58,996,000 is available under this Part, little of which isprojected for use by community or technical colleges.

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ntle IV - Part A - Miqralit Farm yorkers

Authorizes employment, training, and other related activitiesfor seasonal and migrant farm workers. In PY'90 a total of $70million is available, with no direct funding being madeavailable to community or technical colleges.

Title iy - -art B ;oho Coro

Allocates $813,609,000 for 107 centers throughout the country toprovide residentlal educational/vocational training programs fordisadvantaged youth between tha ages of 16 and 21. Communityand technical colleges should contact their local center todevelop contracts for the educational/vocational trainingcomponents. This agency accepts unGolicited proposals for anynew, innovative Job Corps projects which may strengthen theoverall program.

Rs 11tr-

Authorizes services to meet the employment and training needs ofservice-connected disabled veterans, veterans of the Vietnamera, and veterans who are recently separated from the militaryservice. A total of $9,474,000 in funds is authorized forPY'90. Funds may increase in this program at the conclusion ofthe military's Operation Desert Storm activities in the MiddleEast, as large numbers of veterans return to the States.Community and technical colleges should contact their State JobTraining Coordinating Council (SJTCC) for more informationregarding this program and fund availability within the state.

v (R- hpilgt And Demonstration programs)

Amthorizes research, evaluation, pilot and demonstrationprojects. The current plans are to implement approximately15-20 new projects during PY'90. These projects will addressspecific issues related to enhancing the quality of work, theproductivity of workers, and labor market efficiency into the21st century. Among the subject areas that have been identifiedfor PY'90 are Workforce 2000, Youth Services, WorkplaceLiteracy, Worker Adjustment/Adult Programs, Homeless Servicesand overall improvements to the Employment and Training System.The PY'90 allocation for Title IV Part D is $30,887,000.

SECTION I 1 - DEPARTMENT OF LABOR FACT SHEETS

JTPA AND EDWAA

BEST COPY AVAILABLE

U.S. Department of LaborProgram Highlights

Fact Sheet No. ETA 90-6

JOB TRAMINb PARTNERSHIP ACT

What la the Job TrainingPartnership lot?

The Job Training Partnership Act(JTPA) provides job and trainingservices for economicallydisadvantaged adults and youth,dislocated workers, and others whoface significant eaploymntbarriers. The Act, which beganoperation on October 1, 1983, aimsto move the jobless into porsanentself-sustaining employment.

State and local governsents haveprimary responsibility for themanagement and administration ofjob training programs under JTPA.Governors have approval authorityover locally developed plans andare responsible for monitoringprogram cospliance. tn addition,public/private partnerships designtraining programs and deliver joband training servics.

What is meant by soPartnership?

Title I of JTPN's five titlesdescribes the coordination whichtakes place between stategvvarnments and the businesscommunity in order to producepartnerships between those whoadminister the Act and those whoknow about private sector jobrequirements. The coordinationincludes the following elements:

State Job Trainplo Condinating- formed bY

governors to providerecommendations on trainingcomponents of the Act and to playa critical role in planning

12

employment services authoriied bythe Wagner-Peyser Act.

auxiclailimmiauta_UUMILL -designated by governors to receivefederal job training funds. Amongthe areas automatically eligibleto be SDAs are units of localgovernment with populations of200,000 or more.

Er.intli,..121thilia -appointed by local electedofficials to plan job training andesployment programs at the SDAlevel. PICs serve as keymechanisms for bringingrepresentatives from varioussegments of the private sectorinto the active management of jobtraining programs.. PIC membershipincludes representatives frombusiness, oducational'agencies,organized labor, rehabilitationagencies, community basedorganizations, economicdevelopment agencies and publicesployment services. The sajorityof a PIC's me_ers must representbusiness and industry within theMI and the PIC chairperson mustbe a business representative.

What Training Services areAvailabl?

Title II-A provides for trainingservices for the disadvantagedthrough block grants to states tosupport local training andemployment programs. States areresponsible for further allocatingfunds to SDAs in their states andfor overseeing the planning andoperation of local program.

This is orte of a series of fact sheets highlighting US. Department of Label Progisms. If Is infentiodas a gor.vai doscron onlyand dots netcarry Ihe force of legal opinion.

Title provides economicallydisadvzntaged youth withemployment and training servicesduring the summer months. Theseservicss include basic andremedial education, institutionaland on-the-job training, work-experience programs, andsupportive employment services.

Title III provides employment andtraining assistance for dislocatedworkers. Workers who lose theirjobs duo to mass layoffs or plantclosings, long-term unemployedpersons, or workers who haver losttheir jobs due to imports can taksadvantage of the followingservices: Early interventionprograms, training, job searchassistance, support services, andrelocation assistance. Statematching funds are required underthis Title except where the stateunemployment rats exceeds thenational average.

In August 195S, Congress passedseveral pieces Gf legislationaffecting Title III and providinga comprehensive approach to workerdislocation.

First, the Worker Adjustment andRetraining Notification (WARN) Actrequires advance notice of plantclosings or mass layoffs. Suchnotice allows affected workers,their unions, local governments,and state dislocated worker unitsto begin the process of returningthese workers to productive jobsin a timely manner.

The Economic Dislocation andWorker Adjustment Assistance(EDWAA) Act replaces the previousTitle III of JTPA. It providesfor improved service-deliverysystems and rapid response unitsin each state.

Finally, related changes were madeto Trade Adjustment Assistance(TAA), which is authorised by theOmnibus Trade Act to providebenefits and services to workersdislocated due to imports. Thesechanges require that such servicesinclude training and that there becloser coordination with otheremployment and training programs.

Title VW - authorises federalprograms for Native Americans,migrant and seascmal farm workers,and veterans. This title alsoauthorises the Job Corps; theNational Commission for EMploymentPolicy; and nationallyadministered programs of technicalassistance, labor-merketinformation, research andevaluation, and pilots anddemonstrations.

Title - amends the Wagner-PeyserAct of 1933, which authorizesPederal-Stato Employment Serviceprograms.

Itow Can I Get Farther Information?

Write to Offide of Employment andTraining Programs, Room N-4469,U.S. Department of Labor, 200Constitution Ave., N.W.,Washington, D.C. 20210; or callthe appropriate state governmentlistings in your telephonedirectory under such names asZsployment end Training, RumenResources, Esployment Service, JobService, or Employment SecurityCommission.

BEST COPY AVAILABLE

U.S. Department of LlborProgram Highlights

"FalShmetNo. 89-15

ECONOMIC DISLOCATION AND WORICE11. ADJUSINENTASSISTANPE ACT (EDWAA)

The Economic Dislocation andWorker Adjustment Assistance Act .

(EDWAA) replaces Title I/I of theJob Training Partnership Act(7TPA). It is'part of acomprehensive approach toassisting dislocated workers thatalso includes provisions of theWorker Adjustment and RetrainingNotification Act (WARN) and theTrade Adjustment Assistance (TAA)program. .

ELIGIBILITY: Dislocated workerswhose employment loss means theyare unlikely to return to theirprevious industries or occupationsare eligible for assistance underEDWAA. This.includes workers wholoss their jobs because of plantclosings or mass layoffs; long-term unemployed persons withlimited local opportunities forjobs in their fields; and farmers,ranchers and other self-employed .

persons who become (3231..ess due to

general economic conditions ornatural tisasters; 'Under certaincircumstances, displacedhomemakers may also be eligibletor EDWAA assistance.

SERVICE 0TRUCTURE: EDWAA has alocal arvice-deliyery systemthrough which substate areas andgrantees are designated.gor thepurpose of proViding assisfance todislocated workers under Title IIIof JTPA.

The Governor of each state isresponsible for overalladministration and management Ofthe program, including the ,

establishment of systems to.respond rapidly to major workerdislocations.

SERVICES PROVIDED: EDWAAemphasizes a comprehensive, timelyarray of retraining and re-employment services, tailored toworkers' individual needs,including long-term jobpreparation. Major activities andservices under EDWAA include:

. ,

* 24i7id Resuonse. This is theprimary responsibility of thes ate's Dislocated Worker Unit(DWU), which must be alerted tothe p,ant closings and masslayoffs covered under WARN6 Whenthe DWU obtains information aboutmajor dislocations, it respondswith on-site services to assistworkers facing job losses. TheDWU may also help to setup alabor-management committee at theworksite (and/or assist in effortsto avoid job losses).

* getrainina Services. Theseinclude classroom, occupationalskills and/or on-the-job training.Basic and remedial education, -

e ntrepreneurial training andinstruction in literacy orEnglish-as-a-second-language maybe provided.

AimmE1011.

TNis is one of a series of fact sheets highlighting US. Depanment of Labor programs:it is intended as a general description onlyand does not carry the force of legal opinion.

* feeds Related Pavments. If

eligible for EDWAik assistance,dislocated workers who haveexhausted their unomploymer'insurance (UI) may receive needs-related payments to help themcomplete training. Payments maynot exceed the imlividual's UIbenefits or the poverty level,whichever is higher.

To qualify, participants must beenrolled in training by the end of.the 13th week of their initial UIbenefit poriod.(or6 by the end ofthe eighth week after beimginformed that a supposed short-term layoff will.exceed sixmonths). An eligible/worker whodoes not qualify fo UI must baparticipating in a training oreducation program in order toreceive needs-related payments.

JRk

* 2artitigAtms_a_gantinuinaEligibility. Substate granteesmay issue these certificates toEDWAA-eligible workers for us* in

two distinct ways: (1) to deferthe start of retraining, or (2) topermit workers to seek out andobtain their own retraining. Thealternative training.must be ;

approved by the substate grantee.

* Beemalcurment Services. Theseinclude: outreach and intake;development of individual'readjustment plini; labor marketinformation; jo4 development:lob .

seardh and placement; SUPPortiv.services; relocation assistanceand pre-dislocation readjustmentprograms.

FOR FURTHER INFORMATION: Contactthe local government agency in

your area that administers hi JobTraining Partnership Act (JTPA),your nearest state Job Serviceoffice, or any of the U.S.Department of Labor's 10 regionalEmployment and Training

AdiatAistration (ETA) offices inBoston, New York, Philadelphia,Atlanta, Chicago, Dallas, EansasCity.(Mo.), Denver, San Franciscoand Seattle.

Information about EDWAA is alsoavailable from the Office ofEmployment and Training Programs,ETA, U.S. bepartment cf Labor,Washington, D.C. 20210 (Phone 202-

535.,.0577. This.is not a toll-freenumber.)

BEST COpy AVAILAVI

SECTION III - TRAINING AND EMPLOYMENT GUIDANCE

LETTER NO. 6-89 - COVERING

JTPA AND JOBS PROGRAM COORDINATION

U.S. Department of LaborEmployment and Training Administration

Washington, D.C. 20210

MANWICATONJTPA/JOES

CORRESPONDENCE SYMBOL

MDCPDATE

April 10, 1990

TRAINING AND EMPLOYMENT GUIDAN E LETTER NO.6-89

:ROM: ROBERTS T. JOAssistant Se ry of Labor

SUBJECT: Job Training P nership Act ProgramCoordination wi h the Job Opportunitiesand Basic Skills Ttaining Program

1. Purpcsses. To provide: (a) information and referencematerials on the Job Opportunities and Basic Skills(JOBS) program, including features that impact onactivities and responsibilitie under the Job TrainingPartnership Act (JTPA); and (b) policy guidanceregarding the role that the JTPA community, particu-larly the State job training coordinating councils(SJTCCs) and private industry councils (PICs), shouldplay in JOBS.

2. References.

a. Family Support Act (FSA) of 1988, Sections 203,482, 483, 484, 485 and 486.

b. Job Tra.:.ning Partnership Act, as amencled.

c. Training and Employment Guidance Letter (TEGL)No. 2-89, dated January 12, 1990.

d. Final JOBS regulations published in the apier.11&gig= on October 131 1989 (copy attached).

e. Proposed Joint Department of Labor (DOL)-Department of Health and Human Services (MIMS)JOBS regulations published in the Federal Registeron April 19, 1989 (copy attached).

f. JTPA-Welfare Linkages chapter of the JTPA AdvisoryCommittee's Final Report, "Working Capital:Coordinated Human Investment Directions for the90's," dated October 1989 (copy attached).

EXP1RATK*4 DATE

CDntinuing

DISTRNIUTION

17

3. Bezkground. Final regulations for the JOBS programwere published in the Federal Mgister on October 13,1989, one year after the President's signing of theFamily Support Act (FSA) of 1988. To date 27 Stateshave implemented the JOBS program, with implementationin all remaining States mandated by October 1, 1990.The JOBS program is designed to assure that familiesreceiving Aid to Families with Dependent Children(AFDC) obtain education, training, and employment thatwill help them achieve self-sufficiency. While manyRegions and States are already involved to differingdegrees in JOBS implementation, the Department isproviding this guidance in recognition of the need tostress its commitment to cooperative implementation.Attached to this TEGL for your reference is a copy ofthese JOBS regulations, as well as two documents whichdescribe and highlight the major provisions ofthis program.

Administered by the Assistant Secretary for FamilySupport in the Department of Health and Human Services(DHHS), the JOBS program includes a number of specificareas for collaboration between DHHS and DOL, as wellas for coordination at the State and local levels byagencies administering JOBS programs, JTPA, EmploymentService (ES), and other employment and trainingprograms. Attached to this TEGL for your reference isthe JTPA-Welfare Linkages chapter of the JTPA AdvisoryCommittee's final report which discusses coordinationand linkages with the welfare system.

In addition, Secretary Dole has met with SecretariesSullivan and Cavazos and assured them of her commit-ment to the coordination of human resource developmentprograms and the commitment of the Department'semployment and training system to work as an activepartner with the welfare system and the educationsystem in the implementation and operation of the JOBSprogram. To this end, the Employment and TrainingAdministration (ETA) Regional Administrators havebeen asked to work closely with their Family SupportAdministration (FSA) Regional Office counterparts.

As part of its overall commitment to coordination, theDepartment has also executed an interagency agreementwith DHHS, and the Department of Education (ED) forcoordinated JOBS technical assistance (TA). (A copy

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of this agreement is attached.) This agreement alsoauthorizes joint funding and shared responsibilityof IDOL, DHHS, and ED for competitive contracts to pro-vide TA and training to States and to Indian Tribesand Alaska Native Organizations in implementing or im-proving their JOBS programs. The primary mechanismfor the above mentioned TA will be this 3-year con-tract, funded in part by the Department. Currently,bids on this contract are being solicited by arequest for proposal.

4. Coordination and Consultation. The JOBS legislationcontains a number of provisions designed to assure thecoordination of JOBS with JTPA in order to providecomprehensive services to welfare recipients whilepreventing duplication of services. For exanple, theGovernor must assure that program activities underJOBS are coordinated with the JTPA programs. Appro-priate components of the State JOBS plan which relateto job training and work preparation must be consis-tent with the coordination criteria specified in theGovernor's Coordination and Special Services Plan(GCSSP) under JTPA. The JOBS plan must also containa description of the State IV-A agencies' efforts tocoordinate with other agencies including, but notlimited to, JTrA, the Employment Service, basic andadult education programs, programs under the Carl D.Perkins Vocational Education Act and other vocationalservices, and other human development programs.

a SJTCC_Ficqe. The State JOBS plan must be reviewedby the SJTCC at least 60 days prior to its submis-siOn to the DHHS Secretary. In addition, StateIV-A agencies which administer the JOBS programshave been encouraged by DHHS to meet regularlywith the SJTCC regatding the planning and imple-mentation of JOBS to identify common JOBS-JTPAactivities and services, and to develop a coordi-nated, or ideally an integrated, strategy whichensures that eligible AFDC recipients receivetraining and employment services in an effective,non-duplicative manner. Once such coordinationis implemented in the planning period, it isimportant that these regular meetings are con-tinued during the implementation phase in orderto respond to operational problems.

The SJTCC should initiate contacts with the StateIV-A agency if it has not already done so in orderto establisn this kind of on-going institutionalcoordination. The establishment of coordinationat the State level will set an important examplefor local JTPA and JOBS agencies and will encour-age coordination at the local level. It will alsoserve as a basis both for building trust and forexploring ways in which joint activities canachieve joint objectives. SJTCCs are also encour-ragsd to add the State IV-A agency director totheir membership if this is not presently thecase.

b. PIC Role. The Family Support Act assigns InCs afundamental role in local JOBS programs. The PICsconsult with the IV-A agency about the developmentof arrangements and contracts under JOBS and iden-tify and provide advice on the,types of jobs thatare available, or are likely to become available,in the service delivery area (SDA). The provisionof this labor market information will assist theIV-A agency to ensure that JOBS provides trainingfor the types of jobs which are, or are likely tobecome, available in the area, and that resourcesare not expended on training for jobs which arenot likely to be available.

The local relationship between the PIC and thewelfare agency at the county or local level is keyto the success of the coordination efforts withinthe SDA. Since, pursuant to the legislation,the PIC must be consulted on the development ofarrangements and contracts under JOBS, the PICplays a crucial role in promoting a successfullocal JOBS program. As an example, given itsexperience with employment and training contrac-tors in the area, the PIC can provide invaluab]eguidance to the local welfare agency in theselection and evaluation of service providers.PICs should also provide available labor marketinformation either through the Job Service ordirectly to the local welfare agency. In order tofacilitate JOBS/JTPA coordination, the PIC shoulddevelop a JOBS strategy in cooperation with thelocal IV-A agency and incorporate this strategy inits Job Training Plan submitted to the State aswell as provide a copy of this Plan to the localwelfare agency. In order to further facilitatecoordination, PICs are encouraged to include thelocal or county IV-A JOBS administrators asmembers of the PIC.

5 Maintenance-of-Effort. The JOBS legislation andregulations clearly provide that Federal JOBS fundsare not to be used to replace non-Federal funds topay for services and activities (including education,training, and employment activities) that are other-wise available on a non-reimbursable basis. Stateand local funding for the purpose of the JOBS programmust not be less than expenditures incurred in FiscalYear 1986 for education, training, employment activi-ties, and related supportive services dedicated toassist AFDC individuals to become self-sufficient.In addition, the State IV-A agency may not contractto pay for services which are already available at nocost. It can pay for additional services which areadded to the existing range of sfrvices available orfor completely new services. Because of this provi-sion, the State IV-A agency will need to assess thetypes of services previously provided before deter-mining how to proceed with contracting.

Therefore, in seeking JOBS-funded contracts, JTPAadministrators need to evaluate the nature and levelof services provided to welfare recipients in previousyears as well as in the current program year. Admin-istrators also will need to assess.whether theservices they are providing or propose to provide areappropriate for the target populations identified inthe Family Support Act. Further, the JTPA agency mustassure compliance with Section 203(b) (3 of the Actregarding equitable service to welfare recipients.The JTPA program is not to be considered as a presump-tive deliverer of JOBS services. Instead, like anyother service provider in -he community, the JTPAagency must approach the IV-A agency with proposednew or expanded services for welfare recipients inorder to receive JoBS funds.

6. Program Contracting. The IV-A agency may contract awide range of services and activities such as orienta-tion, testing and JOBS employment and training compo-nent activities and services. The decisions whetherto procure services or not, and the parameters of suchprocurements are State or county decisions, dependingupon the extent to which contracting authority hasbeen delegated to counties by the State. Accordingly,the extent to which contracting is used will differfrom State to State and/or county to county.

The State IV-A agency must maintain overall respon-sibility for the design and operation of the programand may not delegate to other than its own officialsfunctions involving discretion in the administrationor supervision of the program. Certain JOBS func-tions and activities which involve decisionmakingwith regard to individual participants, such asassessment and case management, may be performed byentities other than the IV-A agency, so long as it isundertaken according to policies, rules and regula-tions of the State IV-A agency. While, they may notreview, change, or otherwise substitute their judgmentfor that of the IV-A agency, the other entities mayhave broad responsibilities regarding the operationof these programs within the parameters establishedby the IV-A agency.

7 Misinformation vs, Fact. As discussed in the JTPA-Welfare Linkages chapter of the JTPA AdvisoryCommittee's final report, "Working Capital:Coordinated Human Investment Directions for the 90's,"managers and staff in both the JTPA and welfarecommunities may have negative and often incorrectviews of the goals, practices, and constraints of theother system. They may also be unfamiliar with orcautious regarding the ability and objectives of theother system. Moreover, much of the information thatthey do have may be negative, inaccurate and based onstereotypes, and misperceptions rather than fact.Before a productive cooperative working relationshipcan be developed between the JTPA and welfare commu-nities4 these misperceptions must be replaced withfacts concerning welfare and JTPA programs andparticipants. The JTPA and JOBS programs sharesimilar formal goals: eliminating barriers toemployment; increasing employment and earnings;reducing welfare dependency; and upgrading basic andvocational skills, with the objective of gettingpeople better jobs and reducing long-term poverty.JTPA does provide long-term intensive services anddoes serve welfare recipients. On the other side,JOBS participants are not unemployable individuals whodo not want to work. They have similarcharacteristics and have the same employment andtraining needs as the JTPA participants.

The attached JTPA-Welfare Linkages chapter of theAdvisory Committee's final report "Working Capital"contains a number of specific recommendations tofacilitate coordination between the JTPA and welfaresystems. It discusses the key steps which should betaken at the local, State, and Federal levels tofacilitate collaborative planning.

8. Timetable for JOBS and JTPA Planning. The remainingStates which have not yet implemented the JOBS programmay submit JOBS plans anytime prior to October 1,1990, for implementation to begin the first of anyfiscal year quarter.

FOr the 27 States which are currently operating JOBSprograms/ interim JOBS plans have been reviewed bythe SJTCCs and approved by DHHS. These States arerequired to submit new JOBS plans within 90 days ofthe date that JOBS plan preprints (the printed JOBSplan formats) are issued by DHHS. However, these planpreprints will only be reviewed by the SJTCCs if therearft substantial changes to the interim plan. For theStates which implement JOBS after the plan preprintsbecome available, these plans will have to be reviewedby the SJTCCs prior to their submittal to DHHS.

Following the initial implementation of JOBS, Statesmust submit a biennial update of the JOBS plan. Thebiennial update, which must be submitted to DHHS forapproval 90 days prior to the date it is to becomeeffective, is considered to be a new plan and mustalso be reviewed by the SJTCC. Each State must submitits first biennial update by July 1, 1992/ for theperiod beginning October 1, 1992. Alternatively, aState may submit its first update by April 1, 1992,for the period beginning July 1, 1992. This wouldput JOBS on the same 2-year operating cycle as JTPA.

The decision to allow the States flexibility to chooseto operate their programs on other than a fiscal yearbasis removes an administrative barrier to cooperationbetween JOBS and JTPA. If the State does determine tooperate JOBS on a program year basis, the SJTCC andPICs should be prepared to provide any necessaryassistance in the planning process during the latterpart of 1991 since the final plan is due to theSJTCC for review by February 1/ 1992. This will meanthat the GCSSP for PY 1990 and PY 1991 should be

shared with the State IV-A agency early in theJOBS update planning process as well as the revisedcoordination criteria which will be incorporated inthe GCSSP for PY 1992 and PY 1993. This timetablewill also ensure that JOBS-JTPA coordination canbe clearly described in the GCSSP which will besubmitted to DOL May 1, 1992.

9. Inquiries. Direct inquiries to Hugh Davies at(202) 535-0580.

10. Attacrynnts.

NETWQRK BOARD or DIRECTORS

Robert J. Visdos - PresidentCuyahoga Community College

Jeffrey G. Oliver - Vice PresidentFlorida Community College at Jacksonville

David B. Canine - SecretaryEastern Iowa Community College District

Dr. Lawrence J. Simpson - TreasurerCuyahoga Community College

P. Michael CareyCatonsville Community College

Roberi CummingYorba Linda Assessment Center

Nancy ElhajjCumberland County College

Cheryl Flax-HymanGulf Coast Community College

Dr. Stephen G. KatsinasOklahoma State University

Sharon KearnesMiles Community College

Suzanne LaCheyDallas County Community College District

Darcie A. LincolnHarrisburg Area Community College

Morton E. MattsonLansing Community College

Frank MenselAmerican Association of Community and Junior Colleges

Kathleen A. OglesbyIllinois Community College Board

Nan PoppeMt. Hood Community College

Perry StoreyCleveland State Community College

-1-M4+:444*Ki ZZ f144,1044-eiMilftlteld+1114:42+:443-0+MIZ+3:1-: f-Z

ERIC Clearinghouse forJunior Colleges

y 2 4 1991