WIOA State Plan Common Elements

Michigan’s economic growth is largely dependent on the talent of its citizens to provide the labor supply to meet talent production demand.  A person’s individual talent is critical to their ability to obtain employment and provide a self-sufficient family income.  While Michigan’s unemployment is steadily decreasing and is close to the national unemployment rate, there still remains a challenge to match the supply of talent with employer demand.  Looking ahead, continued demographic changes and rapidly advancing technology will bring continued change for our state, meaning many opportunities and challenges are ahead to fill the high-paying jobs that remain unfilled.  Individuals who are interested in such jobs frequently do not have sufficient basic foundation literacy and/or job skills to qualify for entry-level jobs and in turn are not able to benefit from training opportunities through the One-Stop centers that lead to better jobs. Pathways to prosperity is key on growing a highly-educated workforce that will give Michigan the edge in the global economy. 

 Michigan is in a unique position to address the needs of individuals, employers and communities to address the educational and economic means to reach their full potential.  All four Workforce Innovation and Opportunity Act (WIOA) core programs (Titles I, II, III, and IV) are newly positioned within the Department of Labor and Economic Opportunity (LEO).  Under Executive Order 2019-13, Vocational Rehabilitation (VR) (Title IV) was positioned under LEO and provides all four WIOA Core programs under one State department to allow for greater transparency and partnership.  VR continues to closely partner with the State’s One-Stop system and partners on strategic planning, and ways to collaboratively service our mutual customers (businesses and individuals with disabilities).  Colocation at the state level provides effective and efficient services to both employers, job seekers, and others who partner and participate within the workforce system.  Our demand-driven strategy involves people, business and community efforts that not only include “smart” partnerships and multiple training career pathways but is measured by “results-driven” data to ensure continued progress towards expanding the economic opportunity and prosperity for all.

 Michigan’s greatest challenge is ensuring that employers have access to the talent they need and enabling Michigan’s businesses to grow and thrive.  Michigan will become more and more dependent on migration for our population and workforce and we must review how our workforce will fit into the work of the future.  To address the challenges of meeting employer talent needs, tomorrow’s high-demand, high-wage jobs will require education and training beyond high school.  Collaborative efforts at both the State and local levels focus on employing several strategies across core programs to boost the education and skill levels of workers, to reach Michigan’s long-term unemployed and populations with barriers to employment, to ultimately connect them with available job vacancies.

 Based on the economic and workforce analyses, Michigan continues to build upon identifying existing demand industry sectors and occupations, emerging demand industry sectors and occupations, employers’ employment needs and identification of apparent skills gaps.  Michigan will continue to implement new strategies and build upon strategies as previously identified in the Governor’s 2019 State of the State address. 

 Michigan’s vision and guiding principles for success are broken down into three “North Stars”:

• ALICE Rate – Driving down working poverty.
   
• Post-Secondary Attainment (60x30 program) – Giving people tools for a better life.
   
• Good/Promising Job Creation – Creating pathway jobs.

 Effective collaboration with State, local, and other partners beyond state government is imperative to build coalitions to effectively drive our strategic focus areas.  Several strategies and initiatives work towards achieving Michigan’s vision and goals to address both equity and skills gaps, and meeting employer demands.  These strategies involve cross coordination and collaboration across several core programs and other partners.  Examples include, but are not limited to:

•  Adult Education.  Adult education serves the segment of the population that does not have the basic skills necessary to gain or secure family-supporting employment, or to succeed in occupational training that leads to such employment.  The term “basic skills” refers to the levels of reading, writing, mathematics, and digital literacy that are associated with the attainment of a high school diploma or equivalency and the ability to speak English proficiently.  These skills are the foundation for building career-specific occupational skills that are in-demand by the job market.  While many adults without a high school diploma or equivalent have deficiencies in one or more of these skill areas, some high school graduates also lose these skills over time or may not have completely mastered them while in high school.  Adult education serves both sets of individuals.  Low-skilled adults with barriers to employment, English language learners, and inmates in correctional institutions are the target groups for Michigan adult education and literacy efforts.  Adult education is focused on enrolling more adult learners in occupational training in in-demand industries or occupations.  The participants may be co-enrolled in Title I and Title II services under WIOA, or dual enrolled in adult education and Career and Technical Education (CTE).  Michigan has awarded an additional $4 million in State School Aid, Section 107 funds to support the Adult Education and CTE Special Programs.  The intent of the programs is to prepare adult education participants for employment by enrolling participants in adult education, career and technical skills training, and workforce development activities. 
• Sixty by 30 - The Governor’s statewide post-secondary education goal:  60 percent of Michigan residents complete a post-secondary certificate or degree by the year 2030.  Established statewide goal to increase the number of Michiganders between the ages of 16 and 64 with a post-secondary credential/obtainment to 60 percent by 2030.  
• Going PRO Talent Fund.  The Going PRO Talent Fund (Talent Fund) makes awards to employers to assist in training, developing and retaining current and newly hired employees.  Training funded by the Talent Fund must be short-term and fill a demonstrated talent need experienced by the employer.  Training must lead to a credential for a skill that is transferable and recognized by industry.  Funds are awarded to employers through The Michigan Works! Agencies (MWAs).  The MWA Business Services staff conduct fact-finding sessions with employers to assess their talent skill gaps, suitable training providers, and availability of federal funding sources.  The MWA Business Services staff then determines whether Talent Fund awards are appropriate to help close the skills gap, and grant employers access to a convenient new online application submission process.
• Michigan Industry Cluster Approach (MICA) 2.0.  A demand-driven workforce system is Michigan’s primary workforce development strategy focusing on aligning all efforts, initiatives, programs, and funding – around industry clusters.  An industry cluster is a geographic concentration of related employers, industry suppliers, and support institutions in a product or service field.  MICA’s employer-led collaboratives will develop and implement strategies to develop a qualified pool of talent and address the skill gaps.  MICA creates a framework in which many employers within a single industry jointly engage with the workforce system to identify their talent demand and challenges.  In this approach, talent issues may be handled more efficiently though multi-company, industry-focused employment and training programs.  As industry clusters are established, the focus shifts emphasis on talent issues to an industry basis, rather than working with a single employer at a time.  Utilizing the MICA strategy, Talent Development Liaisons (TDL) are assigned a specific industry cluster (i.e. Agriculture, Business, Construction, Energy, Information Technology, Health Care, Hospitality, Manufacturing and Mobility).
• Perkins Post-secondary Career and Technical Education Program (CTE).   This program is a partnership between the State of Michigan and community colleges and universities, offering two-year occupational degrees.  The program provides resources and technical assistance to community colleges and universities receiving Perkins Career and Technical Education annual awards in order to meet the occupational career goals of students and the needs.  Funding supports workforce development by improving the academic and technical achievement of CTE students, strengthening the connections between secondary and post-secondary education and improving accountability. 
• Partnership.Accountability.Training.Hope. (PATH).  PATH provides job assistance and training to parents receiving cash assistance.  PATH is a robust, results oriented work participation program designed to identify barriers and help clients connect to the resources they need to obtain employment.  The TANF funded program is administered by the LEO through the MWA One-Stop centers.  Individual participants may also be referred to education and training activities funded through the WIOA to maximize the effectiveness of resources. 
• Pure Michigan Talent Connect (Talent Connect).  The Talent Connect web site is Michigan’s launchpad for new jobs, careers and talent.  It is a tool connecting Michigan’s job seekers and employers and serves as a central hub linking all public and private stakeholders who support Michigan’s workforce.  Talent Connect serves as our state’s labor exchange system.  This tool attempts to address the skills gap by quickly and effectively connecting employers to the talent they need.  It serves as a One-Stop resource for career planning, employment connections, business growth, and economic development.  The State’s Eligible Training Provider List (Michigan Training Connect), is included as part of this resource.  
• Summer Young Professionals Program.  Michigan aligns with the WIOA in support of an increased focus on work experience for youth and envisions a public-private partnership designed to reduce youth unemployment by introducing under-represented young adults ages 14-24 to the world of work while providing participants and their families with income.  Combined services will place young adults on the right path to gain the skills necessary to achieve lifelong economic self-sufficiency.
• Jobs for Michigan’s Graduates (JMG).  The JMG program equips youth with the skills to overcome their barriers and win in education, employment, and as citizens.  As the state affiliate of the national Jobs for America’s Graduates organization, the programming has 40 years of demonstrated outcomes in ensuring our country’s most at-risk youth graduate from high school, enter post-secondary education, and/or transition into meaningful employment.  The JMG specialists deliver engaging and outcomes-based services to youth, giving them a reason to stay in or return to school.  Core program components include competency education, leadership development, mentoring, post-secondary education and training placement, and follow-up services.  JMG has proven a strong complement to WIOA Youth programming, providing a service delivery model that drives positive outcomes for Michigan’s most in-need youth.  
• Vocational Rehabilitation (VR), has jointly created a blueprint for government and business to work together to develop business solutions, identify best practices, and outline steps that can be put in place to increase the employment and retention of individuals with disabilities.  Hidden Talent Tours and Workshops, which are part of this strategy, educate area businesses about the skills/strengths of persons with disabilities and how such individuals are a valuable talent pool for employers to tap into across the state.  State VR serves as a resource and as a single point of contact to connect the business community with individuals with disabilities including on-going support services to promote a diverse and inclusive company culture.
• Reemployment Services and Eligibility Assessment (RESEA):  RESEA is a program that provides customized services to Unemployment Insurance (UI) claimants deemed most likely to exhaust their UI benefits.  Early intervention with a proactive approach should result in retuning the unemployed back to work sooner.  Only claimants referred from the UI may receive services through the RESEA program.
• Pathfinder.  An online career planning tool that addresses the need to increase the number of Michigan residents with high-quality, in-demand degrees and credentials.  The tool provides information to students, their parents, and guidance staff to make informed choices about educational and career options, as well as to help with creation of educational development plans.  This free tool uses current labor market information, longitudinal wage data, and other institutional data and metrics, allowing improved skills-matching to career paths and jobs.  Pathfinder helps users make more informed decisions about their options for successful futures, using real-time, value-added information to show return on investment on education and training opportunities, using data from educational providers and other state agency partners, including the Michigan Departments of Management and Budget, Education, and the Center for Educational Performance and Information.

NOTE:  Through technical assistance DOL identified that the State should identify workforce development activities of the following required one-stop partners: JVSG, CSBG, Indian and Native American, HUD, Job Corps, NFJP, SCSEP, TAA and YouthBuild. 

Response:  We have taken the comment under advisement and will be responding to the request for additional information in our Plan’s mid-cycle modification. 

Vocational Rehabilitation (VR) – Michigan Rehabilitation Services (MRS) and Bureau of Services for Blind Persons (BSBP)

 Vocational Rehabilitation (VR).  VR in Michigan is administered by MRS and the BSBP under the authority of the Rehabilitation Act of 1973, as amended.  MRS and BSBP provide access to services in all One-Stop centers and affiliate locations to ensure effective service to individuals with disabilities through skills training which enhances employment opportunities and meets the talent needs of business.  MRS and BSBP continues to renew and revise existing local cooperative agreements, as applicable, with state and local education agencies and institutions of higher education. 

 VR (Title IV) continues to be a valued partner and is represented at Michigan Works! Director’s Council meetings; senior managers serve on local workforce development boards; and senior managers are included in local and regional planning.  VR continues to closely partner with the State’s One-Stop system and partners on strategic planning, and ways to collaboratively service our mutual customers (businesses and individuals). 

 Community-based training through the Michigan Career and Technical Institute (MCTI) Community Expansion Program.  VR, in partnership with the Workforce Development Association, Michigan Works! Association, Department of Health and Human Services, and Local Education Agencies, collaborated on expansion of their training programs.  During this initial collaboration, the MCTI worked with individuals to provide a community-based Certified Nursing Assistant (CNA) program targeting PATH program participants with disabilities, with the Department of Health and Human Services paying for the training.  Since 2014, MCTI has delivered CNA training programs in Battle Creek, Benton Harbor, Detroit, Grand Rapids, Kalamazoo, and Muskegon.  Continued program expansion includes exporting the CNA training program as well as other MCTI trade training programs along with an array of remedial services. 

 These strategies, along with additional strategies and initiatives, are further discussed in Section III (a) (2), State Strategy Implementation.

Michigan’s strengths include: 

• Through Executive Order 2019-13, the Governor changed the organization of various state agencies and created a new State Department, Department of Labor and Economic Opportunity (LEO).  This new agency includes 16 constituent sub-agencies under one umbrella (LEO); these sub-agencies are mission-critical to helping us drive the right outcomes and strategies for the state.  Streamlining workforce programs will help to provide greater efficiencies and opportunities to engage with job seekers and employers.  LEO will benefit from greater coordination and focus on every Michigander having the opportunity through a path to skills that lead to a good job.  Combining economic development and job creation efforts/program areas under one department will allow Michigan to leverage its ability to build talent that possesses in-demand skills while helping our state’s businesses grow.  Under this newly developed structure, the three pillars of economic development — talent development, community development, and business development — are all part of one organization sharing the same vision and goals. 
• The LEO ensures that the state can efficiently and effectively develop, administer, and coordinate Michigan’s talent initiatives and programs.
• Our continued collaboration between all of the Workforce Innovation and Opportunity Act (WIOA) funded core programs at both the State and local level in addition to coordination of other U.S. Department of Labor (USDOL), State, and locally funded programs operated within the One-Stop system.
• Similarly, collaborations between adult education providers and post-secondary institutions, the Michigan Works! Agencies (MWAs), Michigan Rehabilitation Services (MRS), and career and technical education are strengthening as more partnerships and promising practices emerge.
• Our continued partnership and collaboration with educational partners and State agencies outside of LEO to implement the Workforce Longitudinal Data System.  The system aligns and links data from Michigan’s workforce and educational training programs to assist with analyzing the impact of education, workforce development, and job training services on employment outcomes by helping to collect key data that tracks the achievement of students and workers through programs and into the workforce to better inform policy and programming decisions.
• Memorandums of Understanding with local and state partners, and Infrastructure Agreements with local partners are completed.
• Core partners share information and resources in regard to the collaborative delivery of business services.  While all core partners have reason to do business with employers, it will be done in a collaborative way.  The WIOA Core Partners will serve as the lead as providers of services to business, particularly in each programs’ area(s) of expertise.  Business partner input will be an important consideration in the collaboration and alignment of services and no core partner will be excluded from direct interaction with the business customer, as needed and appropriate.  When necessary, collaboration and alignment will drill down to the local level and will consider recommendations from each core partner, as appropriate. 
• Continued development of leveraging resources and services among the core WIOA partners including; Title I Workforce and One-Stop centers, Title II Adult Education, Title III Wagner-Peyser, and Title IV Vocational Rehabilitation, on how we will collectively measure and track for WIOA purposes, effective partnerships and common goals. 
• The Vocational Rehabilitation (VR) program employs staff statewide and has specialty counselors and consultants trained to meet the unique employment needs of individuals with disabilities and the talent needs of business.  MRS and Bureau of Services for Blind Persons (BSBP) are able to provide the full range of VR services to all eligible individuals in the state who apply for services. 
• The adult education system in Michigan is comprised of quality programs with dedicated and highly qualified staff experienced in providing services to low skilled adults.  Adult education services are available in each planning region and nearly all areas of the state.  The vast majority of adult education providers are local education agencies, however, a number of community colleges, universities, community and faith-based organizations, literacy councils, and workforce programs deliver adult education services under WIOA Title II. 
• In 2014, the state funding for adult education, Section 107 of the State School Aid Act, was regionalized with funding distributed to one Intermediate School District (ISD) identified as the fiscal agent for the region.  The most significant outcome of the regionalization is that all ten regions meet regularly to discuss challenges and potential solutions for gaps in services, declining enrollment, retention and performance, and regional professional development needs.  There is a better understanding of the other programs and services in the region, and greater collaboration among providers.  Similarly, collaborations between adult education providers and Michigan Works!, community colleges, MRS, and career and technical education are strengthening as more partnerships and promising practices are emerging.

Weaknesses or Challenges include:

• Michigan’s education system is heavily decentralized which has at times been a barrier in implementing major changes.  True collaboration and regional service delivery cannot come from a state policy or top-down approach but rather from the ground up. The role of the state is to lead and drive movement as well as to share promising practices, promote current research and resources, fund innovation, and facilitate conversations as needed.
• Michigan lacks a unified data management system across the board for all core, non-core, and system program partners.  While headway has been made and efforts continue to move forward, the use of multiple and complex customer employer data systems by State agencies administering WIOA programs persists.  Due to confidentiality provisions and the complexity of merging data systems, this continues to be a challenge for partners as we move forward.  Workforce Development, Michigan Rehabilitation Services, and Bureau of Services for Blind Persons have engaged a technical assistance provider through an Office of Disability Employment Policy (ODEP) grant to assist in identifying areas where data can be shared across data systems to enhance performance reporting as well as services to customers.
• Measures of Success - that share commonality between workforce and economic efforts and are also comparable across different regions – continues to be a challenge for partners. 
• Professional Development – State workforce system employees and MWA staff need continuous professional development to be educated on current market conditions, as well as the latest initiatives and strategies.  In addition, with the creation of LEO, internal and external cross agency staff training would allow for increased knowledge of partner programs, creating a more holistic system.
• Consistency in Service Delivery -There are opportunities to establish more consistency around elements of the service delivery strategies, so customers can more easily navigate services within the system.  Programmatic reviews and continuation of data validation will assist with consistency in service delivery; however, there is still a need for continued technical assistance and training, sharing of local best practices and successful strategic implementation review to appropriately implement in consistent ways throughout the state. 

State Workforce Development Capacity:

Michigan’s capacity to provide workforce development activities takes into consideration program funding, customer-provided services, and the number and location of One-Stop centers and satellite offices to better serve our customers.

 Previously, some of our Vocational Rehabilitation (VR) partners were relocated to state–owned buildings in an effort to reduce operational costs; however, with the change to our State department structure of placement with VR under the Department of Labor and Economic Opportunity (LEO), we are encouraged that many VR staff will be relocated back to One-Stop centers for greater outreach and partnership opportunities.   While some partners are located within One-Stop centers, other partner programs may only be available at the One-Stop centers on an itinerant basis.

 The capacity for virtual services, i.e. on-line tools, resources and options for customers to easily navigate system and basic requirements for services, etc. must progress for Michigan moving forward.  Michigan’s capacity to expand these services has been limited but will have a greater focus on moving forward with efforts toward development and statewide expansion of these virtual services, including expansion of mobile One-Stop services.  These efforts are critical to carry out required workforce investment activities throughout all areas of the state, including a greater focus on rural areas and those who wish to perform requirements utilizing on-line technology. 

 As some federal and state funds become scarcer, the ability to leverage resources is tantamount to compete locally in an increasing global economy.  The talent development efforts with the reorganization of multiple State agencies to create the LEO, local and regional partners working in collaboration to better leverage resources in ways most beneficial to customers within planning regions, including increased utilization of technology within the One Stop centers, will all play a vital role in the capacity of providing workforce development activities.

 In 2004, State funding for adult education in Michigan was cut from $75 million to $20 million.  Since then, it has increased slightly to $30 million.  Because of the drastic decline in funding, there has been a natural reduction in the number of adult education providers in the state and adult learners served.  Prior to 2004, enrollment in adult education was over 70,000 annually.  In recent years enrollment has been just under 30,000, whereas there are about 900,000 adults in Michigan without a diploma or equivalency or that speak English less than very well based on 2014 American Community Survey data.  The participation rate in adult education is about three percent of those adults in need of adult education services so Michigan’s challenge has been to expand the reach of adult education services and increase the numbers served. Enrollment in adult education is down almost eight percent over the last five years, primarily because of the strong economy and ability for low-skilled adults to find employment in the current job market.  There are currently about 120 state and/or federally funded adult education providers in Michigan, so there is capacity to support higher enrollment.

 In spite of limited funds, all core programs coordinate and collaborate to meet the needs of our dual customers.  Referrals between programs, dual enrollments, and coordinated referrals of participants to services provided within or outside of the One-Stop system maximizes limited resources.

 Vocational Rehabilitation (VR) – Michigan Rehabilitation Services (MRS) and Bureau of Services for Blind Persons (BSBP)

 Vocational Rehabilitation (VR) – Michigan Rehabilitation Services (MRS) and Bureau of Services for Blind Persons (BSBP).  The VR program recognizes the need for individualized services and tailors employment plans/services to fit each unique individual.  Strengths, resources, priorities, concerns, abilities, capabilities, and interests are all fully explored to ensure services are appropriate and beneficial.  Individuals exercise informed choice in determining their service providers and are encouraged to provide feedback and recommendations for improving future services.  Employment plans and services are adapted throughout the VR process to ensure the individual’s needs and goals are continually being addressed.

 The VR program employs staff statewide and has specialty counselors and consultants trained to meet the unique employment needs of individuals with disabilities and the talent needs of business.  MRS and BSBP are able to provide the full range of VR services to all eligible individuals in the state who apply for services.