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A Technical Assistance Guide
Illinois Department of Commerce and Economic Opportunity
Bureau of Workforce Development
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 i
Table of Contents: Page
1. Introduction………………….…………………………………..….......... 1
2. ARRA Background……………………………………………….............. 1
3. Training Contract Options............................................................ 5
4. Individual Training Accounts vs. Class-size Training Contracts...... 7
5. Bridge Program Overview……………………………………................. 10
6. Example Bridge Program Models and Funding Options…............... 15
a. Adult Education Healthcare bridge model……….…........... 16
b. Adult education Transportation, Distribution, and Logistics
(TDL) bridge model…………………………….......................... 19
c. Developmental education manufacturing model………........ 23
7. Discussion of Funding Options 24
8. Procuring Training Grants and Contracts…………………..……….... 28
9. Request for Proposal (RFP)................................................................ 28
10. Performance Management of Training Grants and Contracts…....... 32
11. Other Exceptions to ITAs…………………………………………........... 38
12. ATTACHMENTS................................................................................. 43
A: Assessing the Utility of Employing a Class-Size Training
Contract......................................................................................... 43
B: Checklist for Training Project Request for Proposal Content...... 45
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 1
Introduction
We have the perfect opportunity now to leverage new resources to invest with our
partners in the preparation of lower-skilled adults for new jobs. We will do this by
creating courses that bridge the gap between the current skills of these adult students
and the skills they need to be successful in college and work. A key part of this
initiative involves strengthening partnerships between community colleges, local
workforce investment boards and adult education providers. By doing this, we will
obtain better results for this often-neglected population which is so important to the
future growth of our economy.
-- The Illinois Shifting Gears Workgroup
The purpose of this guide is to provide a two-fold approach to understanding training options
available through Workforce Investment Act (WIA) funding. The guide is to assist Local
Workforce Investment Areas (LWIAs) in considering options for supporting bridge programs
in their communities. It is part of a technical assistance effort by DCEO and its partners to
encourage increased investment in these programs. While the guide is principally addressed
to WIA Title I administrators, it will also be of interest to community colleges, other Adult
Education providers, and other providers or partners with an interest in promoting the use of
bridge programs to improve student transitions to post-secondary instruction and
employment. The information can be used by those parties wishing to enter a contract with
the State (as the Grantee of Federal WIA funds) or with a sub-grantee of the State or it can
be used by those sub-grantees who seek the assistance of others to provide training or other
services.
The guide includes an overview of bridge programs and related policies in Illinois. It
discusses the impact of the American Recovery and Reinvestment Act (ARRA) on the use of
training contracts to support bridge programs. The advantages and disadvantages of using
class-size training contracts vs. Individual Training Accounts (ITAs) for bridge programs are
also discussed in addition to examples of career pathways that incorporate bridge
components, and potential funding options for each component. Suggestions are included
concerning the procurement of training contracts (specifically through the use of a Request
for Proposal (RFP)), and the management of performance of these contracts. Finally, an
overview is provided to outline other exceptions to the use of ITAs under WIA which may be
applicable to bridge program implementation.
American Recovery and Reinvestment Act (ARRA)
The President signed into law the American Recovery and Reinvestment Act of 2009 (ARRA
or the Recovery Act) on February 17, 2009. In addition to substantially increasing the WIA
resources available to states and LWIAs for training, ARRA makes other changes which
increase local flexibility for the use of these resources in support of bridge program
implementation.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 2
USDOL issued Training and Employment Guidance Letter No. 14-08 on March 18, 2009.
This letter provides guidance on the implementation of ARRA, including discussion of
changes to Title I of WIA that were included in the legislation. One of these changes gives
LWIAs the authority to by-pass the use of Individual Training Accounts (ITAs) and enter
directly into contracts with educational institutions to provide training:
―To increase the availability of training to workforce system customers, the Recovery
Act allows Local Workforce Investment Boards (LWIB) to award contracts to
institutions of higher education, such as community colleges, or other eligible
training providers, if the board determines it would facilitate the training of multiple
individuals in high-demand occupations and if the contracts do not limit customer
choice. This provision of the law is in addition to the current methods for providing
training and is intended to help increase education and training enrollments and
capacity in a time when many states and educational institutions are experiencing
budget shortfalls, by allowing LWIBs to pay for the full cost of training at the
beginning of the course. Direct contracts with institutions of higher education and
eligible training providers also allow LWIBs to quickly design training to fit the
needs of job seekers and employers.
Training services include the full range of occupational skills training, adult
education and literacy services, and customized training as described in WIA section
134 (d)(4)(D). Before (sic) entering into such contracts, ETA encourages LWIBs to
assess current training offerings to ensure that the contracts are not duplicating
existing training courses and curricula. These training contracts can be performance-
based to ensure that they result in real outcomes for the students.
As part of the contract, the institution of higher education or eligible training
provider could develop curriculum for emerging sectors and enhance the capacity of
the institutions to ensure quality training within limited timeframes. As such, the
development of curriculum by institutions of higher education can be considered a
training activity under WIA, if it is developed in the context of providing training to
WIA participants. To be consistent with the timely spending of Recovery Act funds,
curriculum activities should focus on adapting existing or creating new curriculum
that will result in a short-term increase in training capacity, rather than long-term
curriculum development activities.
Institutions of higher education, such as community colleges, need not be on a state
list of eligible providers of training services in order to be awarded a contract with
Recovery Act funds. Other providers of training that are not institutions of higher
education must be on the state list of eligible providers in order to be awarded a
contract.‖
A note on nomenclature: ARRA refers to the authority of LWIAs to ―…award contracts… if
the board determines it would facilitate the training of multiple individuals…‖ These direct
contracts with educational institutions for multiple students, rather than the use Individual
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 3
Training Accounts (ITAs) are often referred to as ―class-size contracts,‖ and are referred to as
such in DCEO policies and in this guide. However, they are not necessarily required to be
contracts which encompass an entire class of students. They could be for a portion of a class,
so long as an accepted method has been developed to allocate the costs of the class associated
with the WIA-registered students to the contract. Obviously, the fewer number of students
that are included in the training contract, the less distinct the arrangement becomes from a
standard ITA.
State of Illinois Policy
DCEO policy provides guidance on the provision of training under ARRA, including the
circumstances under which training contracts may be used. LWIAs and others interested in
developing training contracts should carefully review this policy.
The DCEO policy letter places the following additional limitations on the use of the training
contract vehicle:
1. Training contracts must be with an eligible training provider under Section 122;
2. Training contracts must be for programs on the approved list of training programs
for WIA;
3. Curriculum development is limited to six months;
4. Training contracts must be in high demand occupations as defined by State and local
policy;
5. Contract content requirements are specified; and
6. Special reporting requirements pertain to training contracts.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 4
Training Contract Options
Status of Illinois waiver requests and implications for training contracts:
As a supplement to the existing WIA training provisions as modified by ARRA, Illinois
presented several requests for waivers as part of its WIA and Wagner Peyser plan
modification. The state has now received a response from USDOL to these waiver requests.
USDOL has imposed two significant new limitations on the use of non-ITA training
mechanisms. First, it has restricted the authority of LWIAs to enter into contracts with
training providers to the ARRA funds. In other words, regular WIA Title I formula funds can
only be spent on training contracts if these contracts meet one of the exceptions to the use of
ITAs described in section 663.430 of the WIA Rules. It was hoped that since the ARRA
language itself did not specifically restrict the use of this training contract authority to the
ARRA funds, USDOL might take a more expansive view of this language, but it did not.
Second, while USDOL approved an expansion of the local waiver authority for incumbent
worker training (IWT) from 10 percent to 20 percent, it has limited the use of incumbent
worker training to dislocated worker funds only (no adult or youth funds) and will allow this
training to be done only in support of layoff aversion projects. In practice this means that
IWT cannot be done in support of general skills upgrading projects, such as an incumbent
worker bridge project for CNAs to move up to LPNs. These types of projects could still be
done with WIA funds, just not as IWT projects.
Finally, previous responses by USDOL to prior waiver requests had indicated that the local
statewide activities waiver authority under which the incumbent worker waiver had been
implemented also extended to other statewide activities (such as training contracts for
capacity-building). This interpretation would have allowed LWIAs to expend local funds on
class-size contracts, up to the ten percent waiver limit. USDOL has rescinded this
interpretation, and indicated that the (now) 20 percent waiver authority can only be used for
incumbent worker training as described above.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 5
Table 1 provides a summary of the guidance that Illinois has received from USDOL on the
status of waiver requests concerning the provision of training.
Table 1: WIA Title I Training Contract Options by Fund Source
Fund
Source:
Program: Permissible Contract Vehicles under ETA Guidance to
Illinois:
Individual
Training
Account (ITA)
Incumbent worker
training program
(IWT)
Class-size
contract (CSC)
Regular
WIA
Adult
Formula
Yes No Must meet
663.430
exception
Dislocated
Worker
Formula
Yes Yes for layoff aversion
only; restricted to 20
percent under waiver.
Must meet
663.430
exception
Youth
Formula
Yes under waiver No Yes
Statewide Yes Yes Yes
ARRA
WIA
Adult
Formula
Yes No Yes
Dislocated
Worker
Formula
Yes Yes for layoff aversion
only; restricted to 20
percent under waiver.
Yes
Youth
Formula
Yes under waiver No Yes
Statewide Yes Yes, but not with
Statewide Rapid
Response funds unless
approved by a waiver.
Yes
Due to the restrictions placed by USDOL on the use of local incumbent worker training, this
guide will not attempt to address how local IWT funds can be used to support bridge
programs.
Statewide WIA discretionary funds may still be expended on incumbent worker
training as well as training contracts. According to the state plan, DCEO will
―partner with industry organizations and employers and education and training
providers to utilize incumbent, customized, OJT, and class-sized training
mechanisms to accelerate training and provide transitional employment
opportunities for workers while in training where possible. State funds will be
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 6
targeted to incumbent worker training because of current limitations in the use of
LWIA funds for incumbent worker training. DCEO will work with LWIAs to
coordinate state and local accelerated pre-employment training in targeted sector. In
addition, Illinois will use regular state WIA funds to expand access to sector-based
bridge programs to provide opportunities for low-skilled workers to access
accelerated training opportunities in the targeted key sectors. This will be done
through the Shifting Gears initiative.‖
DCEO will be issuing a solicitation in relation to training projects in support of its overall
sector initiatives, but this project is outside the scope of this guide.
The bottom line for the use of local WIA Title I funding is as follows:
WIA Adult and Dislocated worker ARRA funds can be used to operate class-size
training contracts outside the requirements of Section 663.430 (exceptions to use of
ITAs).
Regular formula Adult and Dislocated Worker funds can be used for training
contracts if these contacts meet one of the requirements of Section 663.430.
Youth funds of any type can be used for training contracts, since these funds do not
fall under the requirements for use of ITAs. Such funds would have to meet the
youth program eligibility and program element requirements. ARRA WIA youth
funds can be used to serve clients through age 24.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 7
Individual Training Accounts vs. Class-size Training Contracts
Having the authority under ARRA to enter into training contracts with educational
institutions and other approved training providers does not necessarily mean that it
will always be a good idea to do so. There are advantages and disadvantages to this
new authority.
Advantages of class-size training contracts include:
For occupational program areas where there is inadequate capacity, class size
contracts can enable training providers to invest in increased capacity, because
training contract costs can be used for curriculum development and instructor costs,
as well as the variable costs of student tuition and fees. The ITA mechanism is not
well-suited to this type of training capacity investment, because the ITA is normally
restricted to the off-the-shelf tuition and fee costs of the course or program.
Class size contracts can allow the LWIA to secure entry into programs for its clients
in situations where they might otherwise have to wait, because a contract can be
used to add an additional section of a course or courses specifically for the WIA
registrants. The use of an ITA reimbursement vehicle generally does not gain an
advantage for entry of clients, because it is not increasing capacity.
Class size contracts can help LWIAs respond directly to employer requests for
significant numbers of persons trained in a particular occupation, because they will
be able to enter into a direct class-size contract with one or more training providers
to conduct the training. ITAs can be used in this way as well, but it is a less direct
method.
Under the Illinois definition of training for the minimum training expenditure
requirement, staff costs for case management can be incorporated in a training
contract, so long as these costs are exclusively on behalf of WIA registrants enrolled
in a training class at that provider. This allows the LWIA to expand capacity for case
management and other staff services without increasing its base staff costs. The
provision of this type of staff support has been shown to be of significant benefit to
students enrolled in bridge programs. ITA costs can also contain the general staff
costs incurred by the training provider, but it is more difficult to incorporate special
staff costs for the WIA clients, since ITAs normally only cover the off-the-shelf tuition
and fees of a course or program.
Class size contracts can have performance requirements for the WIA outcomes
(employment, retention and earnings) that are more enforceable than those that can
be imposed via the ITA mechanism. Although educational institutions which qualify
to be on the statewide list for redeeming ITAs are subject to basic performance
minimums, these are set very low, so as not to unfairly exclude providers who
specialize in programs for hard-to-serve students. As a result, LWIAs usually
assume most of the responsibility for making sure that their clients make sound
program choices, complete their programs, and enter employment. Under a class-
size contract, this performance management requirement can be shared with the
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 8
training provider by having realistic goals for program completion and entry into
employment.
In situations where there is adequate training capacity, but few providers, class size
contracts might be a more efficient vehicle for procuring and managing the delivery
of training. If there is only one training provider in the LWIA for nursing, it makes
little sense to run all the clients through the motions of a training provider selection
process that is designed to manage client choice among multiple providers.
Disadvantages of class-size training contracts include:
Class size contracts must be procured in a manner that meets the LWIA procurement
procedures. For ITAs, once the program is on the approved list, it can be purchased
on an individual basis without a separate procurement step.
Class size contracts require the LWIA to manage a relationship with a training
provider that has greater performance risk, since it may concentrate more of the
LWIA’s clients in a single provider or program. This situation would apply in a case
in which several training providers are available (e.g., truck driving schools) and the
WIA clients were spread across the schools. If the LWIA concentrated its truck
driving training in one or two providers via class size contracts, it might receive a
better deal, but it also would be taking on a greater performance risk.
Entry into a class-size contract must be accompanied by an agreement between the
CEO and board that the contract will be dissolved if it is not meeting contractual
requirements. This is an agreement that may be difficult to enforce in practice if
training institutions have significant influence on local boards.
The ARRA authority to enter into class-size contracts that do not meet the exceptions
under Section 663.430 of the WIA Rule, expires with the ARRA funds on June 30,
2011. Therefore these vehicles should probably not be used for training programs
that will last longer than this time, unless other mechanisms will be available to
complete the training sequences for clients (such as ITAs or contracts which meet one
of the Section 663.430 exceptions).
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 9
Table 2 provides a comparison between the use of Class-size training contracts and
Individual Training Accounts (ITAs)
Table 2: WIA Training Contract Vehicles Advantages and Disadvantages
Contract
vehicle
Class-size training contract
(CSTC)
Individual Training Account
(ITA)
Training
capacity
Can be used to increase training
capacity
Focused on purchasing slots in
existing capacity, but not generally an
effective way to increase training
capacity
WIA client
access
Can be used to obtain access for
WIA clients
WIA clients must wait in same line as
all students
Employer
response
Can be used to customize a
response to training needs by an
employer or group of employers
Focused on purchasing training in
existing courses, not development of
customized training
Staff services Specialized staff services can be
incorporated as part of the
contract and charged to training
category
Only staff services that are normally
incorporated by the provider into its
tuition and fees expense
Performance
risk
Greater ability to impose
customized performance
requirements
Potentially greater performance
exposure
Statewide performance minimums are
too low, requires higher LWIA
requirements, which may not be
appropriate in all situations
If multiple providers are used,
performance risk is reduced
Procurement Must be procured in accordance
with LWIA contracting
procedures
No procurement process beyond
approval under WIA eligible training
provider process
Longevity Must meet 663.430 exception
after 6/30/2011
No restriction
Attachment A: Assessing the Utility of Employing a Class-Size Training Contract is a tool to
assist in determining whether a Class-Size Contract is the best choice for providing training.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 10
Bridge Programs Overview
What are bridge programs? Bridge programs prepare adults with limited academic or
limited English skills to enter and succeed in credit-bearing postsecondary education and
training leading to career-path employment in high-demand, middle- and high-skilled
occupations. The goal of bridge programs is to sequentially bridge the gap between the
initial skills of individuals and what they need to enter and succeed in postsecondary
education and career-path employment.
Overview of bridge program development in Illinois. Illinois has been engaged in a
multi-year effort, with support from the Joyce Foundation Shifting Gears Initiative, to
develop the bridge program concept and foster the implementation of bridge programs in the
state. According to the WIA state plan:
―ICCB-Shifting Gears-Establish Sector Bridge Programs:
DCEO partners with ICCB to support the statewide deployment of bridge
programs to serve lower skilled individuals. The Shifting Gears program was
underway prior to the Recovery Act, but it will serve as the model for bridge
programs funded by the Recovery Act. The model has two main components:
Statewide Sector-based Bridge Program Curriculum Materials: Develop
statewide model sector-based bridge program curriculum materials for
healthcare, manufacturing, transportation and logistics, and information
technology for both blended on-line and regular classroom instruction and
make widely available to all eligible providers and provide free access to
employers and workers through Illinois workNet. Curriculum materials
already developed under CSSI and ICCB-funded curriculum materials will be
used as a starting point for programs.
Outreach and Training to LWIAs: Provide outreach and training to LWIAs
on how to use sector-based bridge programs as access points to occupational
skills training programs for adults with low language and literacy skills so
that they have access to stimulus training provided through WIA formula
funding and other funding sources.
For those individuals that are out of high school, but not quite qualified to
enter certain key sector training, we will promote the use of bridge programs.
These flexible programs will allow individuals to receive skill upgrades in
reading and math quickly so that they are able to enter bona fide training
and education programs and be on their way toward employability in higher
level occupations.‖
DCEO has incorporated support for bridge program development into its WIA policies, and
provision of technical assistance to LWIAs. Again, according to the state plan:
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 11
―DCEO and ICCB have recently partnered on innovative demonstration projects for
bridge programs. This is training that allows under-skilled clients to quickly improve
their reading and math skills so that they may enter bona fide training programs
that lead to meaningful, self-sustaining employment. These demonstration projects
have positioned Illinois to be ready to implement additional bridge programs using
Recovery Act funding, again increasing access to training to some of our harder to
serve clients. IWP has begun discussions with ICCB to expand the use of bridge
programs throughout the State. To assist the expansion of bridge programs and class
size training projects in general, DCEO is interested in helping streamline the
process for procuring contracted training services to the extent prudent and possible.
DCEO will also consider how reporting requirements on class size projects may
impact how quickly and widespread they are used by the LWIAs and community
colleges while keeping in mind federally mandated reporting requirements.‖
ICCB, the Bridge Program Task Force, and the Shifting Gears workgroup have collaborated
on the development of a bridge program definition, which begins below.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 12
FIGURE 1. BRIDGE DEFINITION AND CORE ELEMENTS
Bridge programs prepare adults with limited academic or limited English skills to enter and succeed
in credit-bearing postsecondary education and training leading to career-path employment in high-
demand, middle- and high-skilled occupations. The goal of bridge programs is to sequentially bridge
the gap between the initial skills of individuals and what they need to enter and succeed in
postsecondary education and career-path employment.
CORE ELEMENTS
Bridge programs assist students in obtaining the necessary academic, employability, and technical
skills through three required components—contextualized instruction, career development, and
support services. Required elements include:
Contextualized instruction that integrates basic reading, math, and language skills and
industry/occupation knowledge.
Career development that includes career exploration, career planning within a career area,
and understanding the world of work (specific elements depend upon the level of the bridge
program and on whether participants are already incumbent workers in the specific field).
Transition services that provide students with the information and assistance they need to
successfully navigate the process of moving from adult education or remedial coursework to
credit or occupational programs. Services may include (as needed and available) academic
advising, tutoring, study skills, coaching, and referrals to individual support services, e.g.,
transportation and child care.
o Note: Career development and transition services should take into account the needs
of those low-income adults who will need to find related work as they progress in their
education and career paths.
Eligibility
Bridge programs are designed for adults 16 years and older, who:
Have reading and math levels at or above the 6th grade through pre-college level or
English language proficiency at or above the low-intermediate ESL level
May or may not have a high school credential
May or may not be an incumbent worker
Specific eligibility requirements will depend upon the type of provider offering the bridge program and
program requirements. 1
1 Determination of WIA eligibility may be necessary to ensure the student meets the
minimum criteria as a WIA registrant. This is required of all students who are entered into a
training program funded in whole or partially by WIA Title I funds.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 13
FIGURE 1. BRIDGE DEFINITION AND CORE ELEMENTS
PROGRAM DESIGN OPTIONS
A bridge program may be designed as 1) a single course (for students at higher reading and math
levels) that moves students directly into credit-bearing courses, with the aim of eliminating the need
for remediation or 2) a series of courses, in which students first complete a lower-level bridge course
that prepares them to enter a non-credit occupational course or program that leads to an entry-level
job. In this case, the student can stop out for needed work/income and return to a higher-level bridge
course without having to repeat content.
The bridge program must prepare students to enter credit-bearing courses and programs within one of
the 16 nationally recognized career clusters (see: http://www.careerclusters.org/16clusters.cfm). That
is, the course content must contain the knowledge and skills common for entry-level occupations
within a broad cluster (e.g. health sciences, manufacturing, information technology, etc.). This
curriculum design element exposes the student to career information and to information about the
skills and knowledge required by a broad range of occupational options within a cluster. The bridge
program must be of sufficient duration and intensity to produce these transition results.
Education and Training Providers (and partnerships):
Bridge programs may be provided by: (1) an Illinois Community College Board-approved and funded
adult education program2; (2) the remedial credit or non-credit department(s) of a community college;
and (3) community-based organizations or other types of provider that offer non-credit workforce
training.
Bridge programs may be offered by a single entity (e.g., a community-based organization or a
community college) or by a partnership (e.g., a community-based organization and a community
college). Regardless of the provider, they:
May provide opportunities to earn college credit (such as through escrow credit accounts)
May offer dual enrollment in credit and non-credit programs
May offer a multi-level program that moves people from an adult education course offered by
one provider to a non-credit occupational course offered by the same or another provider.
All bridge program providers will use pre-skill assessments consistent with program requirements to
place students into the appropriate courses as well as post-skill assessments to measure progress, and
all providers will use data tracking systems to collect and analyze key information about bridge
program participants and graduates.
2 ICCB-approved adult education providers currently include community-based
organizations, community colleges, regional offices of education, public school districts, the
Illinois Department of Corrections, and a university.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 14
FIGURE 1. BRIDGE DEFINITION AND CORE ELEMENTS
Outcomes: Short-Term
1. Higher number of low-income working adults enroll in postsecondary education
2. Bridge program graduates who enroll in credit programs will succeed in their courses.
Long-Term
1. Higher proportion of low-income working adults attain degrees and/or certificates
2. Higher proportion of Adult Basic Education (ABE)/GED, English-as-a-Second-Language
(ESL), Adult Secondary Education (ASE), and developmental/remedial adult learners
transition into and completion of associates degrees and/or certificates
3. Increase in earnings and job quality for low-income adults engaged in career pathways work.
Source: Illinois Community College Board
Why bridge programs? Bridge programs offer several advantages over traditional forms of
academic remediation:
Academic instruction that is contextualized to a particular career cluster or career
pathway is more relevant to students, because it is more closely linked with the
student’s career objective.
Bridge programs are often delivered in an accelerated format (with ICCB approval)
relative to the amount of time that students would consume acquiring the same skills
via traditional methods.
Bridge programs are often accompanied by higher levels of staff support with
students, through a transition coordinator or case manager, which contributes to
program completion.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 15
Example Bridge Program Models and Funding Options
The purpose of this section is to give three examples of career pathway models that lead to a
program of study which incorporate bridge courses, and identify potential funding sources,
including WIA Title I as appropriate. The section also discusses these funding options and
the issues associated with using WIA Title I to fund bridge programs.
Each of the example career pathway models is presented in the following tables:
The Pathway Description, provides a description of each pathway component, the entrance
requirements, and the exit credential if applicable, including the occupational employment
target for students completing that component. This table is presented beginning with the
lowest-skilled components and proceeding to the most skilled components as you move down
the table. The next step(s) for students are also indicated by the numbered components.
The Funding Options, identifies potential funding options for each component, and
summarizes key considerations in the use of each funding option.
Following the tables, there is a discussion of the funding options and issues.
The idea behind this section is to give examples to promote discussion and planning, not to
specify the only allowable mechanisms for funding these bridge programs. Each LWIA
should work with its educational institutions and other partners to identify opportunities
and develop responses which meet local needs.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 16
Table 3. (Adult Education Healthcare Bridge Model)
Career Pathway Model for English as a Second Language (ESL) to the Registered Nurse (RN) Program of Study:
Carreras en Salud, Instituto del Progreso Latino
Pathway Description Funding Sources
Pathway
Component
Description Entry Qualifications Exit Credential/
Employment Target
Potential Funding
Sources*
Considerations
1. ESL in a
Health Careers
Context
16 week ESL course
contextualized to
health careers.
Greater than or equal to
grade level equivalent
(GLE) of 6.0 on Test of
Adult Basic Education
(TABE).
No specific exit credential, but
completers can go on to VESL
(Component 2).
Adult
Education ESL
WIA Title I
short-term
prevocational
intensive
service
WIA Title I
youth
Adult Education funding must be
at least 51 percent to qualify for
AE students.
WIA significant performance risk
for adults or dislocated workers.
WIA youth funds may be more
appropriate if students qualify.
2. Vocational
ESL in a
Certified
Nursing
Assistant
(CNA) Context:
16 week VESL course
contextualized to CNA.
Greater than or equal to
grade level equivalent
(GLE) of 7.0 on Test of
Adult Basic Education
(TABE).
No specific exit credential, but
completers can go on to the
CNA component (3), or Pre-
LPN Module A (Component 4).
Adult
Education ESL
WIA Title I
short-term
prevocational
intensive
service
WIA Title I
youth
Adult Education funding must be
at least 51 percent to qualify for
AE students
WIA significant performance risk
for adults or dislocated workers.
WIA youth funds may be more
appropriate if students qualify.
3. CNA in a
GED context:
8-10 week CNA course
contextualized
Greater than or equal to
English Reading 125 (64
points on Compass test
Certified Nursing Assistant
(CNA) certificate.
Completers may go on to Pre-
LPN Module A (Component 4)
Adult
Education ASE
WIA Title I ITA
WIA Title I
Class Size
Contract (CSC)
Adult Education funding must be
at least 51 percent to qualify for
AE students
WIA only if strong linkages to
subsequent components
WIA CSC if used to provide other
supports
IPL currently uses private
foundation funding for this
component
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 17
Table 3. (Adult Education Healthcare Bridge Model)
Career Pathway Model for English as a Second Language (ESL) to the Registered Nurse (RN) Program of Study:
Carreras en Salud, Instituto del Progreso Latino
Pathway Description Funding Sources
Pathway
Component
Description Entry Qualifications Exit Credential/
Employment Target
Potential Funding
Sources*
Considerations
4. Pre-Licensed
Practical
Nurse (LPN)
Module A
16 week intensive
academic remediation
course for students
wishing to meet
qualifications to enter
an LPN program.
Greater than or equal to
GLE of 8.0 on TABE.
.
GED
Completers may go on to Pre-
LPN Module B (Component 6),
or may take PCT course
(Component 5)
Students take Compass test
and may qualify to go directly
to LPN core prerequisites
(Component 7).
WIA Title I ITA
WIA Title I
CSC
WIA only if strong linkages to
subsequent components
WIA CSC if used to provide other
supports
IPL currently uses private
foundation funding for this
component
5. Patient Care
Technician
Optional 8 week course
covering EKG and
phlebotomy technician
requirements.
Completion of CNA
certificate
Enrollment in Pre-LPN
Module A
Patient Care Technician WIA Title I ITA
6. Pre-LPN
Module B
16 week intensive
academic remediation
course for students
wishing to meet
qualifications to enter
an LPN program.
Greater than or equal to
GLE of 10.0 on TABE, or
completion of Pre-LPN
Module A.
GED
Students take Compass test
and may qualify to go on to
LPN core prerequisites
(Component 7).
WIA Title I ITA
WIA Title I
CSC
WIA only if strong linkages to
subsequent components
WIA CSC if used to provide other
supports
IPL currently uses private
foundation funding for this
component
7. LPN Core
Prerequisites
[32] week academic
prerequisites for LPN
admission: Biology 226,
Mathematics 118,
English 101 and
Psychology 201.
GED
Placement into courses
based on COMPASS
scores
No specific exit credential, but
these courses are prerequisites
for entry into LPN program at
Wright College.
WIA Title I ITA
Pell Grant or
other student
assistance
WIA ITA if policy allows use for
prerequisite coursework
IPL currently uses private
foundation funding for this
component
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 18
Table 3. (Adult Education Healthcare Bridge Model)
Career Pathway Model for English as a Second Language (ESL) to the Registered Nurse (RN) Program of Study:
Carreras en Salud, Instituto del Progreso Latino
Pathway Description Funding Sources
Pathway
Component
Description Entry Qualifications Exit Credential/
Employment Target
Potential Funding
Sources*
Considerations
8. Licensed
Practical
Nurse (LPN)
program
12 months (three
semesters)
26 credit hours
Successful completion of
LPN core academic
sequence
Admission to the program
LPN certificate
NCLEX-PN
WIA Title I ITA
Pell Grant or
other student
assistance
WIA ITA may require policy to
permit use of more than one ITA
per client if ITA was used earlier
in sequence.
WIA CSC if used to address
capacity limitation.
9. Registered
Nurse (RN)
program
[12] months (three
semesters)
[26] credit hours
Successful completion of
LPN program
Associate Degree in Nursing
(RN)
NCLEX-RN
WIA Title I ITA
Pell Grant or
other student
assistance
WIA ITA may require policy to
permit use of more than one ITA
per client if ITA was used earlier
in sequence.
WIA CSC if used to address
capacity limitation.
Sources: Pathway description provided by Glenda Nicke, Black Hawk Community College, June, 2009.
(1) A Cross-Case Analysis of Career Pathway Programs that Link Low-Skilled Adults to Family-Sustaining Wage Careers National Research Center for Career and Technical
Education, University of Minnesota, October 2007, Debra D. Bragg, Christine D. Bremer, Marisa Castellano, Catherine Kirby, Ann Mavis, Donna Schaad, Judith Sunderman,
pp. 19-32.
(2) Carreras En Salud: A Chicago Bilingual Health Care Career Pathways Partnership, 2008, National Council of La Raza, Frank Mirabal.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
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Table 4. (Adult Education Transportation, Distribution, and Logistics Bridge Model)
Black Hawk College Warehouse Distribution Specialist Pathway to the AAS, AS, and/or BA Program(s) of Study
Pathway Description Funding Sources
Pathway
Component
Description Entry Qualifications Exit Credential/
Employment Target
Potential Funding
Sources*
Considerations
1. Adult
contextualized
ESL
16 week English as a
Second Language
instruction
contextualized to TDL
sector
CELSA scores at high
intermediate or advanced
level required (30-75 range).
Entry point for ESL
students
Entry into Components (3) or
(4). Adult
Education ESL
WIA Title I
short-term
prevocational
intensive
service
WIA Title I
youth
Adult Education funding must be
at least 51 percent to qualify for
AE students.
WIA significant performance risk
for adults or dislocated workers.
WIA only if strong linkages to
subsequent components
WIA youth funds may be more
appropriate if students qualify.
2. Adult
contextualized
GED
Variable week Adult
GED course using
PLATO
TABE of 9.0 reading
required. No high school
diploma or GED.
Entry point for ASE
students
Most achieve GED
Entry into Components (3) or
(4)
Adult
Education ESL
WIA Title I
short-term
prevocational
intensive
service
WIA Title I
youth
Adult Education funding must be
at least 51 percent to qualify for
AE students.
WIA significant performance risk
for adults or dislocated workers.
WIA only if strong linkages to
subsequent components
WIA youth funds may be more
appropriate if students qualify.
3. Warehouse
Distribution
Specialist,
Option 1
13 Week accelerated
certificate program
10 credit hours
For ESL, completion of
contextualized curriculum
(1) and recommendation of
their instructor served as
the entrance criteria. An
ESL student who had not
completed the
contextualized curriculum
would be required to score a
65 on both the Michigan
Warehouse Distribution
Specialist (WDS) certificate
and possibility of entry-level
employment.
The 10 credits earned for the
WDS certificate will apply to
the 34 credit Logistics and
Warehousing Certificate and
can also be applied to the
WIA Title I
ITA
WIA Title I
Class Size
Contract (CSC)
WIA CSC if used to address
capacity limitation.
WIA clients may require
accelerated option (1) or (2).
4. Warehouse
Distribution
Specialist,
Option 2
25 Week accelerated
certificate program
10 credit hours
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A Technical Assistance Guide
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Table 4. (Adult Education Transportation, Distribution, and Logistics Bridge Model)
Black Hawk College Warehouse Distribution Specialist Pathway to the AAS, AS, and/or BA Program(s) of Study
Pathway Description Funding Sources
Pathway
Component
Description Entry Qualifications Exit Credential/
Employment Target
Potential Funding
Sources*
Considerations
5. Warehouse
Distribution
Specialist,
Option 3
52 Week certificate
program
10 credit hours
Test of Aural
Comprehension (MTAC)
and the Michigan Test of
English Language
Proficiency (MTELP) and
score at least at the
Intermediate level in
composition OR complete
ESL Level 6 and 7
developmental classes. For
GED, completion of
contextualized curriculum
and recommendation of
GED instructor and case
manager required, GED
completion recommended.
Associate in Applied Science
General Occupational and
Technical Studies degree.
Students who qualify may
enter Components (6), (7),
(8), or (9).
Using WIA Title I to Support Bridge Programs
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Table 4. (Adult Education Transportation, Distribution, and Logistics Bridge Model)
Black Hawk College Warehouse Distribution Specialist Pathway to the AAS, AS, and/or BA Program(s) of Study
Pathway Description Funding Sources
Pathway
Component
Description Entry Qualifications Exit Credential/
Employment Target
Potential Funding
Sources*
Considerations
6. Logistics
and
Warehousing
Certificate
3 semester certificate
program which builds
on (4) with expanded
math, business and
economics courses
(Pending ICCB
approval)
24 credit hours
Math Compass score of 32
or above required. ESL
students must also score a
65 on both the Michigan
Test of Aural
Comprehension (MTAC)
and the Michigan Test of
English Language
Proficiency (MTELP) and
score at least at the
Intermediate level in
composition OR complete
ESL Level 6 and 7
developmental classes.
Logistics and Warehousing
Certificate
Students can apply credits
toward the Associate in
Applied Science General
Occupational and Technical
Studies degree. Some credit
would also transfer to the
Associate in Science in
Supply Chain Management
degree and ultimately to the
B. A. in Business Supply
Chain Management.
Students who qualify may
enter Components (7), (8), or
(9).
WIA Title I
ITA
WIA Title I
CSC
Pell Grant or
other student
assistance
WIA CSC if used to address
capacity limitation.
7. Inventory
Specialist
Certificate
3 Semesters
29-31 credit hours
Note: No classes from
the WDS certificate
apply to this
certificate.
Same as (6) Logistics and
Warehousing Certificate.
Inventory Specialist
Certificate
Some credit would also
transfer to the Associate in
Science in Supply Chain
Management degree.
Students who qualify may
enter Components (8) or (9).
WIA Title I
ITA
WIA Title I
CSC
Pell Grant or
other student
assistance
WIA CSC if used to address
capacity limitation.
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 22
Table 4. (Adult Education Transportation, Distribution, and Logistics Bridge Model)
Black Hawk College Warehouse Distribution Specialist Pathway to the AAS, AS, and/or BA Program(s) of Study
Pathway Description Funding Sources
Pathway
Component
Description Entry Qualifications Exit Credential/
Employment Target
Potential Funding
Sources*
Considerations
8. Associate in
Applied
Science
General
Occupational
and Technical
Studies
4 semester
64 credit hours
Students pursuing this
degree will have completed
certificates or may have
been involved in an
apprenticeship program.
Entrance criteria may vary
depending on certificates
and courses already
completed.
AAS in General Occupational
and Technical Studies
WIA Title I
ITA
Pell Grant or
other student
assistance
9. Associate in
Science in
Supply Chain
Management
4 semester
64 credit hours
Transfer program. To enter
without taking
developmental classes or
other prerequisites,
students must score at least
66 on Compass writing,
above 99 in reading, and at
least 46 in math. ESL
students would also need to
score above 80 on both the
MTAC and MTELP
components of the Michigan
and above the Advanced
Level of the Michigan
writing.
AS in Supply Chain
Management
Transfer to (10)
WIA Title I
ITA
Pell Grant or
other student
assistance
10. BA in
Business
4 semester
WIU BA in Business,
Supply Chain
Management
AS in Supply Chain
management or other
transfer credit.
BA WIA Title I
ITA
Pell Grant or
other student
assistance
WIA ITA may be appropriate for
students who need additional
financial support to complete the
program.
* Potential fund sources include allowable sources, not only sources currently in use for this model
Sources: Pathway description provided by Glenda Nicke, Black Hawk Community College, June, 2009.
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Table 5. (Developmental Education Manufacturing Bridge Model)
College of DuPage Project Right Start: A Bridge Project to Prepare Students for Postsecondary Education Leading to Careers in Manufacturing
Pathway Description Funding Sources
Pathway
Component
Description Entry Qualifications Exit Credential/
Employment Target
Potential Funding
Sources*
Considerations
1.
Fundamentals
of Product
Design and
Fabrication
24-week bridge course
10 credits
Test at developmental level
in [math] based on the
[compass?] test
Entry level assembly,
machining and quality
control.
WIA Title I
ITA
WIA Title I
Class Size
Contract (CSC)
WIA CSC if used to address
capacity limitation.
2.
Manufacturing
Technology
certificate
program
2 semester
34 credits
Appropriate Compass scores
in math, reading and
writing
Manufacturing Technology
Certificate based on
Manufacturing Skills
Standards Council (MSSC)
curriculum
Mid-level positions in quality
control, safety, and
machining.
WIA Title I
ITA
WIA Title I
Class Size
Contract (CSC)
WIA CSC if used to address
capacity limitation.
3. Associate in
Applied
Science
program
65 credits Appropriate Compass scores
in math, reading and
writing
AS degree/ Manufacturing
Technician
Entry level positions in
engineering, manufacturing
technician.
WIA Title I
ITA
4. Bachelors in
Science
program NIU
108 credits AS degree and appropriate
transfer credits
BS degree
Industrial engineer,
supervisor, lead technician.
WIA Title I
ITA
WIA ITA may be appropriate for
students who need additional
financial support to complete the
program.
* Potential fund sources include allowable sources, not only sources currently in use for this model.
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Discussion of Funding Options:
Adult Education (WIA Title II). Sections 201 through 251 of the Workforce Investment
Act of 1998 describe the program elements and requirements of WIA Title II. This title may
be cited as the "Adult Education and Family Literacy Act". It is the purpose of this title to
create a partnership among the Federal Government, States, and localities to provide, on a
voluntary basis, adult education and literacy services, in order to (1) assist adults to become
literate and obtain the knowledge and skills necessary for employment and self-sufficiency;
(2) assist adults who are parents to obtain the educational skills necessary to become full
partners in the educational development of their children; and (3) assist adults in the
completion of a secondary school education.
Adult Education is defined as instruction and support services below the postsecondary level
for individuals (A) who have attained 16 years of age; (B) who are not enrolled or required to
be enrolled in secondary school under state law; and (C) who:
• lack sufficient mastery of basic educational skills to enable the individuals to
function effectively in society;
• do not have a secondary school diploma or its recognized equivalent, and have not
achieved an equivalent level of education; or
• are unable to speak, read, or write the English language.
Adult Education Programs funded through the ICCB provide a variety of instruction to
individuals who meet the above criteria. These instructional categories include: English-as
a Second Language (ESL), Adult Basic Education (ABE), and Adult Secondary Education
(ASE), High School Credit (HSCR), and Vocational Training (VOC).
Adult Education must meet five performance measures as required under WIA-Title II Adult
Education. They include: Educational Attainment, Post-Secondary Transition, Retain
Employment, Obtain Employment, and GED/High School Completion. These measures are
reported annually to the Department of Education-Office of Vocational and Adult Education.
Bridge Program Development and Instruction
Bridge Programs have been added to the adult education instructional offerings under the
ESL, ABE, and ASE categories. Bridge Programs under these categories are an allowable
activity under adult education; however some restrictions may exist due to the intent of the
law. In addition, Adult Education Programs offering bridge programs must meet the criteria
as established under the statewide definition of a ―Bridge Program‖ as well as policies and
procedures outlined in the Adult Education Provider Manual.
The use of Adult Education Funding for Bridge Programs
All state and some federal adult education resources can be used in the development of
contextualized curriculum/instruction which integrates basic skills and
occupational/vocational specific terminology. This contextualized curriculum may be taught
in ESL, ABE, or ASE. This curriculum and the subsequent instruction will allow students to
Using WIA Title I to Support Bridge Programs
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September 2009 25
grasp the basic skills that are needed while gaining specific career pathway knowledge and
skills that will prepare them to enter postsecondary education and/or employment.
There are some restrictions. For example, Federal adult education funds cannot be used in
the delivery or the development of vocational training (VOC) and occupational programs.
Adult Education programs must consult the Illinois Community College Board (ICCB) for
other policies related to the development and delivery of Bridge Instruction.
WIA Title I Youth. WIA section 129(c) describes the program elements and requirements
for services to eligible youth. These programs are intended to provide:
―…(i) preparation for postsecondary educational opportunities, in appropriate cases;
(ii) strong linkages between academic and occupational learning; (iii) preparation for
unsubsidized employment opportunities, in appropriate cases; and (iv) effective
connections to intermediaries with strong links to (I) the job market; and (II) local
and regional employers.‖
Among the ten required local elements for WIA Title I youth programs are: ―(A) tutoring,
study skills training, and instruction, leading to completion of secondary school, including
dropout prevention strategies;‖ and …‖(E) occupational skill training, as appropriate.‖
There may be circumstances where WIA youth funds could be an appropriate source of
funding for bridge programs for younger adults. Outcomes for adult education bridge
programs, which include increased skill levels, completion of the GED, and entry into post-
secondary instruction, are more aligned with the performance requirements for WIA youth
programs than they are with WIA adult and dislocated worker programs, which emphasize
employment, employment retention and earnings. Therefore, using WIA youth funds for
these programs imposes a much lower performance risk.
PY 00 WIA Policy Letter No. 012 and associated materials describes the eligibility
requirements for WIA Title I, including youth program eligibility. These documents can be
accessed via the DCEO website.
Eligibility for WIA Title I youth funding is limited to youth who are 14 through 21 at
registration. ARRA expanded this age range to include youth from 14 through 24 for use of
ARRA funds.
Youth training activities may be procured with the use of an ITA under a waiver obtained by
Illinois, but they are not required to use an ITA. Bridge programs and other training
services funded with WIA Title I youth funds may be procured via the LWIA’s regular
procurement method for youth programs.
WIA Title I Adult and Dislocated Worker, Short-term Prevocational Intensive
Services. WIA section 134 (d)(3)(C) describes the types of intensive services that may be
provided to Adults and Dislocated Workers, including:
Using WIA Title I to Support Bridge Programs
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―Short-term prevocational services, including development of learning skills,
communication skills, interviewing skills, punctuality, personal maintenance skills, and
professional conduct, to prepare individuals for unsubsidized employment or training.‖
663.200 of the WIA Rules expands on the definition in WIA:
―The list in the Act is not all-inclusive and other intensive services, such as out-of-area
job search assistance, literacy activities related to basic workforce readiness,
relocation assistance, internships, and work experience may be provided, based on an
assessment or individual employment plan.‖
DCEO has included ―internships, literacy activities‖ in the definition of intensive services.
Chicago has included ―Basic language skills including English as a Second Language (ESL)
and other language or literacy skills not directly related to a specific occupation or
occupational skills training program.‖3
The main principle that justifies the use of WIA prevocational intensive services is the idea
that the literacy activity is preparing the person to enter subsequent vocational instruction.
Generally, bridge programs, particularly bridge programs in an adult education context,
have this as their primary objective. As long as the student is not obtaining an occupational
credential as a result of the instruction, the program could most likely be justified as
prevocational in nature.
LWIAs could therefore consider funding these activities as prevocational intensive services.
The advantage of doing this is that the provisions of WIA Section 134(d)(4)(G)(ii), which
requires the use of ITAs except in limited circumstances, only applies to training services as
described in Section 134(d)(4), not to intensive services. LWIAs are free to issue grants or
contracts for intensive services as described in Section 663.210 of the Rule:
―Intensive services may be provided directly by the One-Stop operator or through
contracts with service providers, which may include contracts with public, private for-
profit, and private non-profit service providers (including specialized service providers),
that are approved by the Local Board.‖
While the use of the intensive services category avoids the limitations imposed by the
requirement to use ITAs, the other requirements of WIA registered services still apply,
including eligibility and performance accountability. Therefore, the use of WIA Adult and
Dislocated Worker intensive services should only be used when the bridge program is part of
a larger career pathway opportunity that includes strong linkages between components, and
a commitment on the part of the training institution to support students through multiple
steps along a pathway, culminating in a training credential and entry into employment.
3 Other states have expanded on the definition of intensive services. Washington State and
Ohio have classified ―Literacy activities related to basic workforce readiness (20 CFR
663.200(a))‖ as an intensive service. Idaho DOL includes ―Basic skills training such as GED,
language, math or computer skills‖ as an intensive service.
Using WIA Title I to Support Bridge Programs
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WIA Title I Adult and Dislocated Worker, Individual Training Accounts. The ITA is
still probably the best mechanism to use for funding training components under the following
conditions:
The training is occupational in nature (i.e., it prepares students for employment in a
specific occupation or leads to an occupational credential, rather than preparing
students for entry into such a program);
The training is on the approved list of WIA eligible training programs (or can quickly
get on the list);
The training program is expected to last beyond June 30, 2011 (when the ARRA
authority to conduct class size contracts expires); and
There is not sufficient client interest in the program to justify the creation of a class-
size contract.
WIA Title I Adult and Dislocated Worker, Class Size Contracts. As described above,
ARRA provides LWIAs with expanded authority to enter into contracts for training with
educational institutions to train WIA clients for demand occupations. LWIAs should
consider the option of implementing a class size contract for training under the following
conditions:
The training is occupational in nature (i.e., it prepares students for employment in a
specific occupation or leads to an occupational credential, rather than preparing
students for entry into such a program);
The training program combines preparation and occupational instruction, or is too
long term to justify as a prevocational intensive service;
The training is not expected to last beyond June 30, 2011 or if so, it meets one of the
exceptions to ITAs listed in Section 663.430 of the WIA Rule; and
There is sufficient student interest in the training to justify the creation of a class-
size contract.
For LWIAs considering the use of a class size contract for bridge programs (or any form of
training, for that matter) the balance of this guide addresses two key aspects of this decision:
1) procurement of these contracts, and 2) managing the performance of these contracts.
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Procuring Training Grants and Contracts
LWIAs may award grants or contracts to institutions of higher learning or
other eligible training providers by following established procurement
guidelines and/or by taking advantage of any flexibility provided by Training
and Employment Guidance Letters that is passed on to local areas by the
State.
-- WIA State Plan modification
This section discusses procurement of training projects, and outlines a procedure for using a
Request for Proposal method. As previously discussed, the advantage of ITAs is that they do
not require separate procurement steps beyond the initial and subsequent certification of the
training provider and program. Non-ITA training contracts, including class-size contracts
under ARRA, must be procured in compliance with whatever procurement regulations apply
to your organization.
A good starting point for thinking about procurement of a class size contract it to complete
the Attachment A: Assessing the Utility of a Class-size Training Project tool.. This tool
will help the LWIA determine the following aspects of the procurement environment:
What are the training needs?
What types of training are most suitable for a non-ITA response?
Who can provide the desired training?
How can we use a grant or contract vehicle to leverage access for our clients?
How can we use a grant or contract vehicle to improve results?
Request for Proposal (RFP):
Background
Requests for Proposals may be initiated by the Grantee (the State of Illinois through a grant
received from the Federal Government) or by a Sub-Grantee (a community college, adult
education provider, local workforce investment board, or other entity who has received a
grant from the State and is wishing to secure services with these funds). An RFP should be
used if your organization is seeking to secure training or other services, conversely, an
application should be completed and submitted if you are interested in providing such
training or other services. Most importantly in either instance is determining eligibility. As
the developer of an RFP, it is critical that the eligible respondents are clearly listed in order
to address the appropriate potential applicants. As an applicant, you must ensure you
understand eligibility criteria prior to submitting an application.
The State will generally (but not always) utilize both public notification and a bidder's
conference to provide information potential applicants of their RFPs. The public notification
is an opportunity to provide the public with initial information about funding opportunities.
A bidder's conference is utilized to provide additional information to potential applicants and
Using WIA Title I to Support Bridge Programs
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allows an opportunity for interactive discussion amongst State representatives and bidders.
While not always mandatory to attend, participation may be critical to the success of an
application.
The RFP Process
This section describes the process that should be used to request submissions for training or
other services. More specifically, this guidance addresses a request for training services. It is
easily adapted to be used in developing an RFP for other services, as well.
Once a determination is made that the type of training to be provided would best be done
through a grant or contract, rather than an ITA, the next step is to determine what method
should be used to select the training provider.
A Request for Proposals (RFP) process should be used to procure class-size or other non-ITA
training projects if 1) procurement rules for your organization require an RFP process; or 2)
if management considers it advantageous to use an RFP process.
The general process for using an RFP and issuing a grant for a training project involves the
following steps, which are discussed in greater detail in the balance of this section: 1)
Authoring the RFP, 2) Reviewing and Selecting a Proposal, 3) Negotiating and Executing the
Grant, and 4) Post-Award Activities.
1. Authoring the Request for Proposals (RFP). Prior to writing the RFP, first
research the project idea sufficiently to specify the requirements of the RFP and
uncover any unanticipated implications of going forward with the project. This
should include consultation with management, contacting similar projects to learn
about their experiences, conducting internet searches, reviewing relevant statutes
and regulations, and making a final decision on doing an RFP.
Once this background research has been completed and management has decided to
go forward with an RFP, your goal should be to author an RFP that provides
potential applicants with contextual information surrounding the solicitation,
specifies the work requirements, provides guidance regarding how to submit a
proposal, and describes the criteria and procedures that will be used to select
applicants for funding.
Attachment B: Checklist for Training Project Request for Proposal Content
can be used to help organize the content of the RFP, and to ensure that all of the
critical elements of the RFP are included. Each organization’s environment differs,
of course, and individual training projects have unique requirements. This chceklist
should be adapted to serve the user's unique situation and needs.
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2. Reviewing and Selecting Proposals: The objectives of the RFP review process
should be as follows:
Ensure that all communication with potential respondents is consistent with the
information presented in the RFP and that the questions and your responses are
recorded.
Ensure that all proposals are reviewed by a qualified team in accordance with the
procedures outlined in the RFP and that the results of the review are
documented and records are retained.
Ensure that the review is well organized and proceeds according to a schedule
that allows for the timely obligation of grant awards.
Ensure that all proposals recommended for funding are analyzed for issues,
either programmatic or budgetary, that should be negotiated prior to making an
award.
Ensure that the results of the review are efficiently presented to management for
final funding decisions.
Ensure that the results of the review are communicated with all applicants.
3. Negotiate and Executing the Grant or Contract: Once the successful
proposal is identified, the next step is to negotiate and execute the grant or contract.
The objectives of this process should be as follows:
Ensure that grant requirements are clearly defined and can be monitored for
compliance by inclusion of a detailed work statement, budget, and
implementation schedule.
Ensure that the grant clearly identifies who is to conduct the work by inclusion of
a description of the grantee’s project team with specific activities associated with
team members.
Ensure that your organization receives the intended benefit from grant-
sponsored activities by inclusion of descriptions of deliverable products.
Ensure that your organization has a contractual basis to exercise the desired
level of control over implementation of grant-sponsored activities by inclusion of
appropriate programmatic and budgetary controls.
Ensure that all parts of the grant document (e.g., work statement, budget, and
boiler plate) are internally consistent.
Ensure that there is understanding and consensus between you and the grantee
regarding the grant requirements and ongoing grant-related procedures (e.g.,
cash management, grant modifications, and reporting).
4. Post Award Activities: Following execution of the grant or contract, several
post-award activities should be conducted to facilitate successful implementation of
the grant or contract. These include:
Establish Access to Reporting Systems: Ensure that arrangements are in place to
allow the grantee access to reporting systems.
Orient Grantees to Management Procedures: Ensure that the grantee is briefed
on grant requirements and procedures related to grants management, reporting,
corrective action, and technical assistance.
Participate in Monitoring: Coordinate desk monitoring of reports and
deliverables with on-site monitoring and request corrective action and technical
assistance, as needed.
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A Technical Assistance Guide
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Review Deliverables: Establish procedures to receive and review reports and
deliverable products.
Provide Other Grants Management Services: Provide ongoing grant management
services, such as processing requests for grant modifications, approval of cash
disbursements, and provide other information and technical assistance, as
requested.
Prepare Progress Reports: Prepare periodic reports for management regarding
grantee achievement of objectives.
Maintain Grant File: Maintain a file including all grant-related documents such
as: the executed grant; modifications; internal and external correspondence;
reports; deliverable products; and public relations (PR) materials.
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A Technical Assistance Guide
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Performance Management for Training Grants and Contracts
WIA Title I has significant performance management requirements, including tough
sanctions for LWIAs which fail to meet negotiated goals for one or more of the WIA Title I
measures. Therefore, it is important that LWIAs carefully assess the potential impact of any
training project on the overall LWIA performance. In addition, prospective bridge program
providers must be cognizant of these performance requirements and willing to design
programs in a manner that is consistent with success as defined by the applicable
performance measures.
The Illinois Department of Commerce and Economic Opportunity Bureau of Workforce
Development, Division of Performance Management is responsible for the implementation
and success in achieving the 9 federally-imposed performance goals and developing a
performance standards system to ensure compliance with the Workforce Investment Act.
The U.S. Department of Labor (USDOL) negotiates performance goals with Illinois for each
of the 9 performance measures on a bi-annual basis. In turn, the State negotiates
performance goals with each of the 26 local workforce investment areas (LWIA). Since the
State is responsible for meeting or exceeding its performance goals, the 26 LWIAs must
manage their performance in order for the state to be successful. Performance measures are
divided among funding streams which include adults (1A), dislocated workers (1D), and
youth (1Y) age 14-21 (under 22) at registration. (Eligibility for the ARRA youth funds
include youth up to age 24 at registration).
The State is rewarded with incentive money if all 9 performance measure outcomes meet or
exceed 90% of the negotiated goal and at least one performance measure outcome meets or
exceeds 100% of the negotiated goal. The incentive money is then awarded to the LWIAs
whose performance meets the criteria listed above and outcomes are at least 80% of their
negotiated goal. If an LWIA fails one performance measure they are precluded from
receiving any incentive money and will be subject to ongoing technical assistance by the
State. If the State fails one performance measure, sanctions could cause the loss of allocation
of funds.
Participants who are enrolled with statewide 15% funds to support a bridge program will
be included in statewide WIA performance outcomes. The Bureau will negotiate appropriate
goals with each of its 15% grantees based on the goals of the project, sector, and persons
being served. LWIAs that enroll participants using ARRA funds to support bridge
programs will be included in local performance measure outcomes. These participants must
meet WIA eligibility criteria and be enrolled as registrants in the Illinois Workforce
Development System (IWDS). Participants of an Incumbent Worker Training (IWT)
program are not included in statewide or local WIA performance measure outcomes.
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PY 2009 WIA Title I Performance Measure Definitions
Following are the nine (9) performance measures for which Illinois has negotiated
goals for Program year 2009 and a definition of each measure.
Youth Attainment of a Degree or Certificate (ADC): Of those youth enrolled in
education (at the date of participation or at any point during the program): the number of
youth participants who attain a diploma, GED, or certificate by the end of the third
quarter after the exit quarter divided by the number of youth participants who exit
during the quarter.
Youth Placement in Employment or Education (PEER): Of those youth who are not
in post-secondary education or employment (including the military) at the date of
participation: the number of youth participants who are in employment (including the
military) or enrolled in post-secondary education and/or advanced training/occupational
skills training in the first quarter after the exit quarter divided by the number of youth
participants who exit during the quarter.
Youth Literacy and Numeracy Gains (LNG): Of those out-of-school youth who are
basic skills deficient: the number of youth participants who increase one or more
educational functioning levels divided by the number of participants who have completed
a year in the youth program (i.e., one year from the date of the first youth program service
plus the number of participants who exit before completing a year in the youth program.
Adult Entered Employment Rate (AEER): Of all adults who were not employed at
registration: the number who enter employment in the quarter after exit divided by the
number who exit during the quarter.
Adult Employment Retention Rate (AERR): Of all adults who are employed in the
first quarter after exit: the number of adults who are employed in the second and third
quarter after exit divided by the number of adults who exit during the quarter.
Adult Average Earnings (AAE): Of all adults who are employed in the first, second,
and third quarter after exit: the total earnings in the second quarter plus total earnings
in the third quarter after the exit quarter divided by the number of adults who exit
during the quarter.
Dislocated Worker Entered Employment Rate (DEER): Of all dislocated workers:
the number of dislocated workers, who enter employment in the quarter after exit
divided by the number of dislocated workers who exit during the quarter.
Dislocated Worker Employment Retention Rate (DRR): Of all dislocated workers
who are employed in the first quarter after exit: the number of dislocated workers who are
employed in the second and third quarter after exit divided by the number of dislocated
workers who exit during the quarter.
.
Dislocated Worker Average Earnings (DAE): Of all dislocated workers who are
employed in the first, second, and third quarter after exit: the total earnings in the second
quarter plus total earnings in the third quarter after the exit quarter divided by the
number of dislocated workers who exit during the quarter.
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A Technical Assistance Guide
September 2009 34
This does not mean that all training projects must be expected to achieve the same
performance levels. Projects will vary in their outcomes based on the types of clients being
trained, the career objectives, and the program design, as well as other less predictable
factors such as staff interaction and client motivation. Local areas will need to ensure that
the overall performance of all of its training programs combined meet their locally agreed
upon goals. If projects are to be allowed to have different outcome goals, LWIAs will need to
be able to address the following issues:
Will the overall result of the mix of all projects yields an acceptable performance
result for each of the applicable measures?
Is there a practical and fair method to determining what the goals should be for each
project?
This section addresses these issues.
Assessing Impact: The following table (Table 6) is provided as an aid in estimating the
impact of a training project on the overall performance of the LWIA. In order to complete
this table, the LWIA must have estimates of the following for the planned project, and for the
balance of the LWIA:
Number of planned registrants,
Number of planned exiters,
Planned number entering employment,
Planned employment retention,
Estimated hourly earnings of persons who will enter employment, and
Estimated average hours per week expected to be worked.
With these estimates, and the instructions below, the LWIA can derive an expected
performance impact from the project. This can assist the LWIA in deciding what
performance levels must be achieved by the project in order for overall LWIA performance to
achieve required levels.
This tool shows that performance impacts are a product of the size of the project relative to
the balance of the LWIA activity, as well as the results of the project. The larger the project
becomes in terms of exiters, the more important it is that the project achieves acceptable
outcomes.
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A Technical Assistance Guide
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Table 6. Estimating Training Project Performance Impacts
(A)
Project
Results
(B)
Other LWIA-
level Results
(C)
Totals
(D)
Performance
Impact
[(C)-(B)]
(1) Registrants
(2) Exiters
(3) Entered Employment
(4) Entered Employment Rate
[(3)/(2)]
(5) Employment Retention
(6) Employment Retention Rate
[(5)/(3)]
(7) Estimated Avg. Hourly
Earnings
(8) Estimated Avg. Hours per
Week
(9) Estimated Avg. Earnings Level
[(7)*(8)*26]
Instructions for completion of the Estimating Training Project Performance Impacts table:
1. Registrants: Enter the estimate number of WIA registrants for the project (A), and
other LWIA registrants (B). Column C is sum of (A) and (B).
2. Exiters: Enter the estimate number of exiters for the project (A), and other LWIA
exiters (B). Column C is sum of (A) and (B).
3. Entered Employment: Enter the estimated number of exiters who will be employed
in the first quarter post-program for the project (A), and other LWIA exiters (B).
Column C is sum of (A) and (B).
4. Entered Employment Rate: Compute the percentage (3) of (2) for Columns (A), (B)
and (C).
5. Employment Retention: Enter the estimated number of exiters entering employment
who will remain employed in the second and third quarters post-program, for the
project (A), and other LWIA exiters (B). Column C is sum of (A) and (B).
6. Employment Retention Rate: Compute the percentage (5) of (3) for Columns (A), (B)
and (C).
7. Estimated Average Hourly Earnings: Enter the estimated average hourly earnings
for exiters who enter employment for the project (A), and other LWIA exiters (B).
Column C is obtained by the following calculation:
Multiply Column (A), Row (7) by Column (A), Row (5)
Multiply Column (B), Row (7) by Column (B), Row (5)
Add the values
Divide the sum by Column (C), Row (5)
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8. Estimated Average Hours per Week: Enter the estimated average hours worked per
week for exiters who enter employment for the project (A) and other LWIA exiters
(B). Column C is obtained by the following calculation:
Multiply Column (A), Row (8) by Column (A), Row (5)
Multiply Column (B), Row (8) by Column (B), Row (5)
Add the values
Divide the sum by Column (C), Row (5)
9. Estimated Average Earnings Level: Compute the values for Columns (A), (B), and
(C) as follows: Row (7) X Row (8) X 26 (the number of weeks in two quarters).
Performance Impact (Column D): Column (C) minus Column (B).
Table 7 – provides an example of this analysis for a hypothetical training project.
Table 7. Estimating Training Project Performance Impacts (Example)
(A)
Project
Results
(B)
Other LWIA-
level Results
(C)
Totals
(D)
Performance
Impact
(1) Registrants 20 200 220 20
(2) Exiters 15 120 135 15
(3) Entered Employment 10 100 110 10
(4) Entered Employment Rate
[(3)/(2)] 66.7% 83.3% 81.5% -1.85%
(5) Employment Retention 7 75 82 7
(6) Employment Retention Rate
[(5)/(3)] 70.0% 75.0% 74.5% -0.45%
(7) Estimated Avg. Hourly
Earnings $10.00 $12.00 $11.83 ($0.17)
(8) Estimated Avg. Hours per
Week 35.0 35.0 35.0 0.00
(9) Estimated Avg. Earnings Level
[(5)*(7)*(8)*26] $9,100.00 $10,920.00 $10,764.63 -$155.37
Setting expectations: LWIAs must set a reasonable performance expectation for any
training contract prior to its initiation. This should be done on an individual project basis if
at all possible. Attempting to impose identical goals on all contracts will tend to discourage
the use of these contracts for any situation involving hard-to-serve clients. Since lower-
skilled students are the focus of bridge programs, contracts which incorporate support for
bridge programs will by definition be reaching a harder to serve clientele.
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A Technical Assistance Guide
September 2009 37
Some of the factors to consider when setting performance expectations for a training contract
are:
Employability of the targeted population:
o Basic skill levels
o Educational levels
o Prior work experience
Career targets of the training program:
o Job opportunities for the occupation(s) for which students are prepared
o Earnings experience of students in the targeted occupation
Likelihood of successful completion:
o Duration of the training required prior to entry into employment
o Number of discrete steps
o Nature of support mechanisms that students will have along the way
To the extent possible, the LWIA should compare the proposed training program to past
results for programs serving similar clients, similar occupations, and similar educational
settings.
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A Technical Assistance Guide
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Other Exceptions to ITAs
This guide is focused on the use of training contracts to support bridge programs under WIA,
employing the class-size contract authority provided under ARRA. However, there are other
general exceptions to the use of ITAs under WIA. These exceptions include:
Customized training,
Limited service provider availability, and
Community Based Organizations (CBOs) and other private organizations of
demonstrated effectiveness in serving hard-to-serve clients.
Since the ARRA authority for class-size contracts is temporary, LWIAs should consider
whether training projects undertaken with ARRA funds might qualify under one of these
exceptions to ITAs. If so, they can be continued after ARRA funds expire. If not, students in
these programs will need to be transitioned to ITAs, if they are in programs considered
training under Section 134(d) of WIA. This section provides an overview of these exceptions.
The following tables (Tables 8 - 10) provide an overview of each of these ITA exceptions, and
their potential applicability to bridge program funding.
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A Technical Assistance Guide
September 2009 39
Table 8. ITA Exceptions: Customized Training
Definition: Customized Training is training: (A) that is designed to meet the
special requirements of an employer (including a group of employers);
(B) that is conducted with a commitment by the employer to employ
an individual on successful completion of the training; and (C) for
which the employer pays for not less than 50 percent of the cost of the
training.
Requirements: Customized Training Requirements
Employer contribution: Not less than 50% of training costs,
maybe cash or in-kind, must be documented, and is subject to
audit.
Commitment to hire upon training completion.
Customized training for employed workers:
Allowable if the incumbent worker is not earning a self-
sufficient wage
Employer must commit to retaining employee if training
is successfully completed
Training must relate to: introduction of new technologies,
introduction of new production or service procedures,
upgrading to new jobs requiring new skills/workplace
literacy, or other appropriate purposes identified by the
LWIB
Employers are excluded if there has been past failure to meet
customized training contract requirements
Management
Issues:
Convincing employer to pay half the costs of training a non-
employee
Who does the training? Who chooses the training provider –
employer or you?
For employed workers, ensuring that training is related to new
technologies, new production procedures, or new jobs requiring
additional skills or literacy.
How customized is it?
What happens if employer doesn’t hire?
Recruiting training providers
Applicability to
Bridge Programs:
Customized training may be an option to consider for a bridge
program for currently employed workers, if the workers and the
training meet the requirements for employed worker training.
This exception does not release the LWIA from the overall
requirement for at least 51 percent of its training to be funded
through ITAs, under Illinois policy.
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A Technical Assistance Guide
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Table 9. ITA Exceptions: Limited Training Service Providers
Definition: An exception to the ITA requirements if the local board determines
that there are an insufficient number of eligible providers of training
services in the local area involved (such as in a rural area) to
accomplish the purposes of a system of individual training accounts.
Requirements: Primarily rural areas but not limited to rural areas
Local plan must provide a description of reasons and extent of
requested waiver
Program-by-program basis possible – blanket approval not
required and unlikely
51% ITA requirements waived under this exception.
Management
Issues:
Justifying the insufficient number of eligible providers: This
should be based on specific programs in which there are capacity
problems.
Recruiting appropriate providers
Applicability to
Bridge Programs:
LWIAs which can justify this exception for specific programs will have
the authority to enter into grants and contracts for training without
having to be concerned about the requirement to use ITAs.
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A Technical Assistance Guide
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Table 10. ITA Exceptions: CBOs or Other Private Organizations
of Demonstrated Effectiveness
Definition: An exception to the ITA requirements if the local board determines
that there is a training services program of demonstrated
effectiveness offered in the local area by a community-based
organization or another private organization to serve special
participant populations that face multiple barriers to employment.
Requirements: Programs of Demonstrated Effectiveness Requirements:
Special low income population with multiple barriers: substantial
language or cultural barriers, offenders, homeless, and disabled
individuals
CBO or other private organization is the training provider
LWIB must develop criteria to determine effectiveness
Provider must be WIA eligible training provider under Section
122, under Illinois policy.
Programs of Demonstrated Effectiveness Criteria:
LWIB must develop criteria to determine effectiveness applicable
to each special population group. These Criteria may include:
Financial stability
Demonstrated performance with the special population, such
as, completion rates, skills or degrees provided, placement,
and retention
How the specific program relates to the workforce investment
needs in the plan
Specific local criteria should be developed
Management
Issues:
Three things should be present to justify this exception:
CBO that is an eligible training provider
Low income targeted group needing training in a class size
setting
A situation where it makes sense to use this exception versus an
ITA
Applicability to
Bridge Programs:
This exception may be an appropriate mechanism for funding a bridge
program operated by a CBO or other private organization, if the
training is targeted to low income persons with multiple barriers to
employment, and the LWIA can show that the organization has a good
track record in completion and placement for this population.
This exception does not release the LWIA from the overall
requirement for at least 51 percent of its training to be funded
through ITAs, under Illinois policy.
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Using WIA Title I to Support Bridge Programs
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ATTACHMENT A
Assessing the Utility of a Class-size Training Project
This form is a tool to assist in determining whether a Class-Size Contract is the best choice
for providing training.
Training Need: Describe the training need.
Demand Assessment: For which high-demand occupation(s) will this training prepare
students? Are there employers in the area who have expressed an interest in hiring persons
with these skills?
Target Group Assessment: Are there specific target groups that we are attempting to
reach with this training?
Curriculum Assessment: Does the curriculum currently exist? If not, how long will it take
to develop?
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A Technical Assistance Guide
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Providers: Are there educational institutions or other approved training providers
accessible to our clients who could provide this training?
Capacity Assessment: Is there adequate capacity for this training at present? If not, how
exactly would a training contract expand capacity?
Services Assessment: In addition to training, what other services should be provided to
the target group, and how should these services be provided?
Outcomes Assessment: What outcomes should we expect to obtain from this training, for
entry into employment, employment retention and average earnings?
Funding Assessment: In addition to WIA Title I, what other sources of funds, if any, could
be used to underwrite this training?
Using WIA Title I to Support Bridge Programs
A Technical Assistance Guide
September 2009 45
ATTACHMENT B
Checklist for Training Project Request for Proposal Content
This checklist can be used to help organize the content of an RFP and to ensure that all of
the critical elements of the RFP are included. It should be adapted to serve the users own
unique needs and situation.
Section I: General Information
Grantor Agency: Who is issuing this RFP?
Project Goal: What will be accomplished as a result of this project?
Source of Funds: What funds will be used for this project? What is the
timeframe for project expenditure?
Eligible Respondents: Who may respond to this RFP?
Schedule and Instruction for Submittal of Proposals: When are responses
due, and to whom must they be sent? When will awards be announced?
Bidder’s Conference: Will there be a bidder’s conference? If so, when and
where?
Agency Contact: Who in your organization should prospective respondents
contact if they have questions?
Section II: Program Description: Describe the work that you want
respondents to do in as much detail as possible.
Background: Briefly tell the reader about the training need being addressed,
what led up to the decision to issue the RFP, and who (e.g., which agencies)
has been involved in the effort, and what work has been completed to date.
Best Practices: Identify methods and techniques you will consider ―best
practice‖ in relation to the training to be provided.
Required Work: Tell the respondent exactly what work you expect them to do
in as much detail as you are prepared to discuss.
Project Team/ Staffing: Specify any requirements regarding the staffing and
qualifications of persons to work on the project.
Project Schedule: Describe the anticipated duration of the project, and the
timing of when any intermediate steps must be completed.
Allowable Costs: Specify any limit on the total size of the award, as well as
limits on particular types of costs (e.g., administrative, indirect).
Project Reporting: Specify any requirements for project participant and
financial reporting.
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Section III: Guidelines for Preparation of Proposals: Specify the
required content for responses to the RFP.
Cover Sheet: Basic identifying information for the proposal
Executive Summary: Summarizes key aspects of the project for reviewers
and management.
Table of Contents:
Applicant Information: Describe the related experience of the organization
responding to the RFP. If any of the work is to be subcontracted, describe the
relevant experience of the contractor(s).
Discussion of the Problem: Provide a brief discussion of the problem and/or
issue being addressed by this project in response to the narrative presented
in the Background, Best Practice, and Required Work sections of this RFP.
Work Plan and Schedule: Detailed period of performance, project activity
benchmarks, and schedule for delivery of required products.
Budget Request: Line item budget and supportive narrative.
Section IV: Review and Selection Procedures: Define the criteria for
review of proposals and selection of projects to be awarded.
Compliance with the requirements of the RFP;
Quality of the work plan;
Coordination with important partners (e.g., other agencies);
Experience and qualifications of the staff assigned to the project;
Proposed project costs in relationship to planned outcomes; and,
If required, the amount of matching contributions.
Source: Illinois Dept. of Commerce and Economic Opportunity, Grant-Related Business
Processes, Bureau of Workforce Development, January, 2006, Workforce Enterprise
Services, Inc.