TEN 19-22 Change 1 (Accessible PDF).pdf

ETA Advisory File Text

TRAINING AND EMPLOYMENT NOTICE NO. 19-22 Change 1 DATE March 31 2023 EMPLOYMENT AND TRAINING ADMINISTRATION U.S. DEPARTMENT OF LABOR WASHINGTON D.C. 20210 TO STATE AND LOCAL STAKEHOLDERS IN THE WORKFORCE INNOVATION AND OPPORTUNITY ACT STATE WORKFOR CE AGENCIES STATE WORKFORCE ADMINISTRATORS STATE WORKFORCE LIAISONS H-1B SKILLS TRAINING PROGRAM GRANTEES INDIAN AND NATIVE AMERICAN INA PROGRAM GRANTEES JOB CORPS CONTRACTORS JOBS FOR VETERANS STATE GRANTS JVSG GRANTEES OFFICE OF UNEMPLOYMENT INSURANCE OUI NATIONAL FARMWORKER JOBS PROGRAM GRANTEES NATIONAL DISLOCATED WORKER GRANTEES STATE APPRENTICESHIP AGENCIES OFFICE OF APPRENTICESHIP OA STATE DIRECTORS APPRENTICESHIP GRANT RECIPIENTS OA-MANAGED REENTRY EMPLOYMENT OPPORTUNITIES REO GRANTEES SENIOR COMMUNITY SERVICE EMPLOYMENT PROGRAM SCSEP GRANTEES TRADE ADJUSTMENT ASSISTANCE TAA LEADS YOUTHBUILD GRANTEES STRENGTHENING COMMUNITY COLLEGES TRAINING SCC GR ANTEES FROM BRENT PARTON s Acting Assistant Secretary SUBJECT Change 1 to Training and Employment Notice No. 19-22 Reporting Training in the U.S. Department of Labor s DOL Participant Individual Record Layout PIRL 1.Purpose. To correct an error in Attachment I of Training and Employment Notice TEN No. 19-22 and rescind TEN No. 19-22. TEN No. 19-22 Change 1 provides clarification and alignment of the reporting of training types in the Participant Individual Record Layout PIRL and promotes consistent and reliable data analysis across the DOL s employment and training programs. 2.Action Requested. The Department of Labor s Department Employment and Training Administration ETA requests grant recipients distribute this information to the appropriate staff grant partners and other stakeholders as appropriate. 2 3. Summary and Background. a. Summary This Change 1 to TEN No. 19-22 corrects an error in Attachment I of TEN No. 19-22 clarifying that On-the-Job Training OJT is an allowable type of training for the WIOA Dislocated Worker program and rescinds TEN No. 19-22. TEN No. 19-22 Change 1 provides common language for interpreting reporting definitions types of training reporting multiple trainings and identifying areas where the various ETA programs differ. This enables more consistent tracking of trainings across grantees and across programs to facilitate making this data readily comparable. b. Background The Department recognizes that there are significant variations across states and grantees in how training is reported for performance purposes. This is likely due to differing interpretations of what constitutes training how to report multiple trainings or how to differentiate training types when reporting performance outcomes. ETA has provided specific performance guidance and technical assistance through recent guidance such as Training and Employment Guidance Letter TEGL No. 10-16 Change 2 TEGL No. 14-18 TEGL No. 23-19 and other grant specific individualized technical assistance. However there are no cross-program materials regarding how to interpret these reporting requirements. This notice is intended to supplement existing policy guidance and encourage more consistency in performance reporting as well as identify where specific grant programs differ. Consistent performance data allows ETA and grantees to accurately measure program progress and impact. 4. Training Reporting Clarifications for the DOL PIRL The reporting clarifications provided in this notice provide general guidelines for understanding reporting of training in the DOL PIRL. However a number of program- specific notations and differences can be found in Attachment II of this notice. a. D efinitions Regarding Reporting Training This section provides some common definitions for understanding the scope of training in the PIRL such as the definition of training when enrollment entry and training ending occurs and other important definitions around training. These definitions are intended only to align reporting within the PIRL and does not change program-specific requirements for the provision of benefits or services. i. Training The Department s various workforce development programs all broadly define training as programs that have the purpose of developing skills and qualifications to attain employment. However based on the needs of individual programs there may be differences which are spelled out in Attachment I. This definition only applies to the reporting of training services in participant reporting and does not change individual program requirements. Activities such as short-term task-oriented skills development or that are related to general skills within one or more industries or occupations such as 3 writing leadership resume workshops or health and safety certifications etc. are not considered training as they do not prepare individuals with the competencies required to perform a specific occupation. Similarly short-term work experience internships or job shadowing experiences that do not have a formal skills development curriculum leading towards an occupational goal are not considered training. Note that certain services such as Adult Basic Education ABE English as a Second Language ESL or Job Readiness Training do not generally meet the definition of training but should be reported as a separate training type when provided in conjunction with training services as described in Section b. ii. Enrollment in Training The enrollment date in a training program is considered the first day that a participant attends the training either virtually or in person for the purposes of reporting Training Leading to an Associate s Degree PIRL 1331 and Date Enrolled During Program Participation in an Education or Training Program Leading to a Recognized Postsecondary Credential or Employment PIRL 1811 as applicable. If the training meets the additional criteria in the enrollment element the enrollment date will be the same as the training entry date. iii. Training Entry Training entry occurs on the first day that a participant attends a training program. This date should be reflected in Date Entered Training 1 PIRL 1302 Date Entered Training 2 PIRL 1309 and Date Entered Training 3 PIRL 1314 as applicable. iv. End of Training The date on which a training program ends is the last date the participant attended any service provided as part of that training including the dates of examinations if they were provided as part of the service. This date should be reflected in Date Completed or Withdrew from Training 1 PIRL 1308 Date Completed or Withdrew from Training 2 PIRL 1313 Date Completed or Withdrew from Training 3 PIRL 1318 . Date Completed During Program Participation an Education or Training Program Leading to a Recognized Postsecondary Credential or Employment PIRL 1813 if applicable should be populated on completion of the last planned training that meets the requirement in the participation. v. Program of Study Consistent with TEGL No. 08-19 Workforce Innovation and Opportunity Act WIOA Title I Training Provider Eligibility and State List of Eligible Training Providers ETPs and Programs a program of study is defined as one or more courses or classes or a structured regimen that provides job- driven training services and leads to a recognized post-secondary credential 4 which includes an industry-recognized certificate or certification a certificate of completion of a registered apprenticeship a license recognized by the state involved or Federal Government secondary school diploma or its equivalent employment or measurable skill gains toward a recognized postsecondary or secondary school diploma or its equivalent credential or employment. These training services may be delivered in person online or in a blended approach. vi. Incumbent Worker Training IWT IWT is a training provided to incumbent workers TEGL No. 19-16 Guidance on Services provided through the Adult and Dislocated Worker Programs under the Workforce Innovation and Opportunity Act WIOA and the Wagner-Peyser Act Employment Service ES as amended by Title III of WIOA and for Implementation of the WIOA Final Rules to either help avert a potential layoff or provide the skills necessary to retain employment such as increasing the skill levels of employees so they can be promoted within the company and create backfill opportunities for less-skilled employees. If provided the training should be reported under the appropriate funding source in Recipient of Incumbent Worker Training PIRL 907 . vii. Pre-Apprenticeship A pre-apprenticeship program is considered a type of work experience and should be reported in Type of Work Experience PIRL 1205 as a pre- apprenticeship program 3 if collected. If the pre-apprenticeship program includes an occupational skills training component that is separate from the work experience the occupational skills training component should also be reported in the PIRL as a training in using Type of Training Service 1 WIOA PIRL 1303 Type of Training Service 2 WIOA PIRL 1310 or Type of Training Service 3 WIOA PIRL 1315 as applicable. b. Training Types The PIRL collects information on the types of training provided to each participant in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 and Type of Training Service 3 PIRL 1315 . These elements are critical to tracking training provided to participants in DOL programs and this section attempts to clarify when to report various training types. Training types available in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 and Type of Training Service 3 PIRL 1315 are as follows 01 On the Job Training non-WIOA Youth . 02 Skill Upgrading 03 Entrepreneurial Training non-WIOA Youth 04 ABE or ESL contextualized or other in conjunction with Training 05 Customized Training 06 Occupational Skills Training non-WIOA Youth 5 07 ABE or ESL contextualized or other NOT in conjunction with training funded by Trade Adjustment Assistance only 08 Prerequisite Training 09 Registered Apprenticeship 10 Youth Occupational Skills Training 11 Other Non-Occupational-Skills Training 12 Job Readiness Training in conjunction with other training 00 No Training Service Please note that these training types are not applicable to all ETA programs and specific programs may not report all these code values. Grantees should refer to the performance guidance provided by their specific program and Attachment I to this guidance. i. Explanations of Training Types The following explanations are intended to aid grantees in selecting the appropriate training types for the purposes of reporting in the PIRL. It does not affect the definitions available types of trainings or conditions for providing these types of training established for the program that is reporting. 1. On the Job Training OJT An OJT is a work-based training provided under contract with an employer that provides knowledge or skills to become proficient in the occupation for which they are being trained. Trainings may include both a paid work-based learning component and instructional component which may be provided at the employment site at educational institutions other locations or virtually. Participants receiving this type of training should be reported with On the Job Training non-WIOA Youth 01 in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. 2. Skills Upgrading Training Skills Upgrading training type should be reported for training that provides additional skills or certifications within the participant s specific occupational field and where no more specific training type is applicable. Skills Upgrading 02 is differentiated from Occupational Skills Training 06 because the occupational goal is within a field for which the participant already has experience or training. Participants receiving this type of training should be reported with Skills Upgrading 02 in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. 3. Entrepreneurial Training Entrepreneurial Training is training focused on developing the skills for starting and operating small businesses or self-employment. Participants receiving this type of training should be reported with Entrepreneurial Training non-WIOA Youth 03 in Type of Training Service 1 PIRL 6 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. 4. Adult Basic Education ABE or English as a Second Language ESL in Conjunction with Training When ABE or ESL is provided in conjunction with other training such as occupational skills training this training should be reported as a separate training as described in Section c to allow for tracking of the ABE or ESL component. That training should be reported with ABE or ESL contextualized or other in conjunction with Training 04 in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. 5. Customized Training Customized training is designed to meet the special requirements of a single employer or a group of employers and is provided by that those employer s with a commitment to employ the worker upon successful completion of the training. Participants receiving this type of training should be reported with Customized Training 05 in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. 6. Occupational Skills Training Occupational Skills training type should be reported for training that provides skills or certifications for a participant to move into a new or different occupation from one that the participant previously had experience or training. Occupational Skills Training 06 is differentiated from Skills Upgrading 02 because the occupational goal is outside of a field for which the participant already has experience or training. Participants receiving this type of training should be reported with Occupational Skills Training non-WIOA Youth 06 in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. Please note that for WIOA Youth YouthBuild and REO Youth and Jobs Corp program participants youth occupational skills training should be selected for youth in occupational skills training rather than this code value. 7 7. Adult Basic Education ABE or English as a Second Language ESL Not in Conjunction with Training ABE or ESL training provided not in conjunction with another training component such as occupational skills training should be reported as ABE or ESL contextualized or other NOT in conjunction with training funded by Trade Adjustment Assistance only 07 in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. ABE or ESL not in conjunction with other training is only available within the Trade Adjustment Assistance TAA program. 8. Prerequisite Training Prerequisite training consists of a separate distinct training as described in Section c that satisfies requirements for participating in a subsequent planned training. Prerequisite training may be the only training at certain times during participation or if the participant discontinues receiving training services but typically participants have two or more trainings reported in the PIRL if a prerequisite training is provided. Participants receiving this type of training should be reported with Prerequisite Training 08 in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. 9. Registered Apprenticeship Training Registered Apprenticeship is a training provided under the National Apprenticeship Act 29 U.S.C. 50 et seq. . These trainings include both a structured paid work-based learning component and required related educational or instructional component. Participants receiving this type of training should be reported with Registered Apprenticeship 09 in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. 10. Youth Occupational Skills Training Occupational skills training provided under WIOA Youth YouthBuild and Reentry Employment Opportunities REO Youth should be reported with Youth Occupational Skills Training 10 in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. 11. Other Non-Occupational-Skills Training Other Non-Occupational-Skills Training 11 is a coding value that should only be selected if no other training type is applicable to the provided training service. 12. Job Readiness Training in Conjunction with Other Training Job Readiness Training provides for fundamental skills for finding a job and meeting general job requirements that are not specific to an 8 occupation. Many job readiness services do not meet the definition of training for the purposes of PIRL reporting as described in Section a but when provided in conjunction with other training such as occupational skills training this training should be reported as a separate training as described in Section c to allow for tracking of these services. That training should be reported with Job Readiness Training in conjunction with other training 12 in Type of Training Service 1 PIRL 1303 Type of Training Service 2 PIRL 1310 or Type of Training Service 3 PIRL 1315 as applicable. ii. More than One Applicable Training Type If more than one training type can characterize a single training grantees should report the most specific code that best categorizes the training and the training should be reported consistently for all participants. The following list of priorities is intended to help determine what is considered the most specific code On the Job Training 01 Customized Training 05 and Registered Apprenticeship 09 are all considered more specific than other training types because of the narrower definition of these trainings. Registered Apprenticeship 09 is considered the most specific type of training. Customized Training 05 is considered more specific than On the Job Training 01 due to the specific needs of the employer or group of employers. ABE or ESL Trainings 04 and 07 are considered more specific than Prerequisite Training 08 . Skills Upgrading 02 Occupational Skills Training 06 and other Non-Occupational-Skills Training 11 are considered the least specific types of training and should only be selected if more specific types are not applicable. Examples 1. If a participant is receiving training that is a prerequisite for another program of study that includes occupational skills the training should be reported with the more specific Prerequisite Training 08 code. 2. If a participant is receiving ESL training that is a prerequisite for another program of study the training should be reported as ABE or ESL contextualized or other in conjunction with Training 04 . 3. If a non-WIOA Youth participant is receiving one program of study that includes some courses that are prerequisites before further occupational skills training the training should be reported as Occupational Skills Training non-WIOA Youth 06 because prerequisite does not describe the training broadly. 9 c. Multiple Trainings for the Purposes of Reporting The PIRL allows for the collection of information on up to three different trainings in the data elements using Type of Training Service 1 WIOA PIRL 1303 Type of Training Service 2 WIOA PIRL 1310 or Type of Training Service 3 WIOA PIRL 1315 . This section provides a general framework for understanding when to report in a subsequent set of training elements. DOL recognizes that training models vary extensively and may not cleanly fit in what is provided. i. Same Training The following factors would generally not result in the utilization of a new set of training elements More than one training provider used to complete the training A training occurs across multiple academic calendar periods Multiple sources of funding are used to fund the training Participant is co-enrolled in multiple programs Training includes multiple formats modalities or delivery methods or Gaps of time between instruction in the same training course. Examples 1. A participant is in a Registered Apprenticeship program which includes components that lead to several interim credentials. 2. A training provider shuts its doors and the grantee helps the participant transfer to a different provider to complete the training. ii. Different Training The following factors should generally result in the utilization of a new set of training elements A new program of study is started leading to a new credential Development of a new occupational goal accompanied with meaningful modifications to the participant s training plan Start of a new program of study after an initial training has been completed or Concurrent programs of study with different training types. Examples 1. A participant takes a grant-sponsored Information Technology IT classroom training leading to a recognized credential. The participant completes the training and receives a credential but later decides to take a second grant-sponsored training leading to an additional credential to move further along a career pathway. 2. A participant is receiving occupational skills training while simultaneously receiving Adult Basic Education ABE or English as a Second Language ESL training. 10 iii. Reporting Order If a participant receives more than one training the training that the participant attended earliest should be added as the first training with the remaining training in the order that the participant attended them. When the participant receives more than three trainings then the first second and final trainings should be reported. 5. Inquiries. Please direct inquiries to the appropriate Regional Office. 6. References. Workforce Innovation and Opportunity Act WIOA Pub. L. 113-128 National Apprenticeship Act as amended 29 U.S.C. 50 et seq. Section 414 c of the American Competitiveness and Workforce Improvement Act of 1998 Div. C Title IV of Pub. L. 105-277 as amended 29 U.S.C. 3224a Trade Act of 1974 as amended 19 U.S.C. 2271 et seq. including specifically but without limitation amendments enacted in the Trade Adjustment Assistance Reauthorization Act of 2015 Title IV of Pub. L. 114-27 Elementary and Secondary Education Act as amended by the Every Student Succeeds Act 20 U.S.C 6301 et seq. 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 Workforce Investment and Opportunity Act Final Rule 81 Fed. Reg. 56071 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 TEN No. 25-19 Understanding Postsecondary Credentials in the Public Workforce System dated June 8 2020 TEGL No. 23-19 Change 1 Guidance for Validating Required Performance Data Submitted by Grant Recipients of U.S. Department of Labor DOL Workforce Programs dated October 25 2022 TEGL No. 14-18 Aligning Performance Accountability Reporting Definitions and Policies Across Workforce Employment and Training Programs Administered by the U.S. Department of Labor DOL dated March 25 2019 TEGL No. 10-16 Change 2 Performance Accountability Guidance for Workforce Innovation and Opportunity Act WIOA Core Programs dated September 15 2022 TEGL No. 13-16 Guidance on Registered Apprenticeship Provisions and Opportunities in the Workforce Innovation and Opportunity Act WIOA dated January 12 2017 TEG L No. 18-16 Change 1 Change 1 to Training and Employment Guidance Letter 18-16 Program Eligibility and Enrollment Guidance for the National Farmworker Jobs Program dated July 12 2021 11 TEGL No. 19-16 Guidance on Services provided through the Adult and Dislocated Worker Programs under the Workforce Innovation and Opportunity Act WIOA and the Wagner-Peyser Act Employment Service ES as amended by title III of WIOA and for Implementation of the WIOA Final Rules dated March 1 2017 TEGL No. 21-16 Change 1 Change 1 to Training and Employment Guidance Letter TEGL 21-16 Third Workforce Innovation and Opportunity Act WIOA Title I Youth Formula Program Guidance dated July 30 2021. TEGL No. 21-16 Third Workforce Innovation and Opportunity Act WIOA Title I Youth Formula Program Guidance dated March 2 2017 TEGL No. 26-16 Guidance on the use of Supplemental Wage Information to implement the Performance Accountability Requirements under the Workforce Innovation and Opportunity Act dated June 1 2017 TEGL No. 07-16 Data Matching to Facilitate WIOA Performance Reporting dated August 23 2016 TEGL 03-18 Eligible Training Provider ETP Reporting Guidance under the Workforce Innovation and Opportunity Act WIOA dated August 31 2018 TEGL 05-18 Workforce Innovation and Opportunity Act WIOA Annual Statewide Performance Report Narrative dated November 7 2018 TEN No. 44-11 Encouraging Enhanced Partnerships and Collaboration between the Workforce Investment System and Registered Apprenticeship Programs dated May 10 2012 TEN No. 08-16 Implementation of an Integrated Performance Reporting System for Multiple Employment and Training Administration ETA and Veterans Employment and Training Service VETS Administered Programs dated August 24 2016 and TEGL No. 08-19 Workforce Innovation and Opportunity Act WIOA Title I Training Provider Eligibility and State List of Eligible Training Providers ETPs and Programs dated January 2 2020. 7. Attachment s . Attachment I Allowable Training Types by Program Attachment II Program-Specific Differences and Notations