WIOA State Plan Common Elements

The State’s Workforce Development Activities

In early 2017, Governor Scott launched a series of initiatives refocus its workforce development efforts to meet the more modern needs of Vermont’s workers, employers, and service provider partners. The primary focus of this work was to increase the number and skill level of available workers in Vermont.  As the designated workforce leader of the state, the Vermont Department of Labor (VDOL) has been tasked with strengthening partnerships among public and private education, training, and service delivery providers and aligning federal and state workforce program services with one another to meet the needs of Vermont’s employers.

Over the past two years, the state has intensified its efforts to serve Vermonters with the highest economic need and those facing barriers to employment, including people with disabilities, out-of-school young adults, new Americans, women in poverty, ex-offenders, and Vermonters in recovery. A stronger relationship and collaboration between VDOL and Vocational Rehabilitation (VR) has helped meet employers’ needs faster and maximize the successful participation of customers in education and training programs that will result in employment or advancement in employment. Working together and with other workforce partners, regional leadership and staff have improved program referrals, co-enrollments, support service funding and delivery, and co-case management to support participant success. In several regional offices, VDOL and VR have physically co-located in order to provide more seamless service delivery.

The state has worked to expand the availability of occupational skills training programs in manufacturing, construction, and health care through apprenticeships, internships, class-based training, and other on-the-job learning opportunities. These are priority industry sectors with occupations in high-demand that pay strong wages. In partnership with the Agency of Education (AOE), Adult Education and Literacy (AEL) programs, and Adult Career and Technical Education (ACTE) providers, Vermont has helped ensure that under skilled youth and adults are connected to postsecondary training and education programs that result in a credential of value and lead to long-term, unsubsidized employment.

In 2019, VDOL, and AEL providers focused on increasing the labor participation rate of young adults in partnership with other local service providers. Demonstration projects like Real Careers at Rutland County, VT Youthworks, Vermont Barn Painting Initiative, and grants through the Vermont Internship Program helped many Vermonters access workplace readiness trainings, job coaching, on-the-job work experiences, and skill development needed to help them successfully land full-time employment. Vermont has greatly expanded apprenticeship program enrollment and opportunities over the two years – increasing the number by approximately 650 participants.

Vermont has also prioritized activities that retrain and retain older workers in the labor force after traditional retirement or temporary exit from the workforce. In December of 2018, the state launched a new Returnship Program that connects individuals who have work experience, but have been out of the labor force, with support and short-term work experiences to aid in successful re-employment. In its first year, this program has helped over 100 Vermonters and the network of employment service providers fine-tune the way that experienced workers are reconnected to the labor force. The Returnship Program is a unique partnership between Associates for Training and Development (A4TD, Vermont’s Sr. Community Service Employment Program Provider), VDOL, and VR.

In partnership with the Department of Corrections (DOC), state and community workforce partners are working to strengthen relationships and understanding of program requirements between regional workforce staff, case managers, DOC leadership, and local probation and parole staff. DOC and VDOL have facilitated meetings for staff to learn about one another’s work, provided training material and information to each other, participated in Regional Summits, and created a plan for extended communication and training between local service providers. In addition, VDOL, DOC, AOE, VR, Career and Technical Education (CTE) leaders, and Vermont State Colleges are working on an adult re-entry employment support system that will be the foundation for focused work over the coming years.

State and community workforce partners will be working increasing more with the Agency of Commerce and Community Development (ACCD) to create and promote strategies to convert visitors, tourists, out-of-state college students, and Vermonters living outside of the state to full-time residents and workers. In 2019, the VDOL began designing and implementing the Vermont Relocation Assistance Program (VRAP), a system to connect, support, and respond to prospective new Vermonters as they consider making Vermont their new home. In considering how the state supports successful employment placements for out-of-state jobseekers, there is opportunity to bolster and expand information about middle and higher-level jobs available that can be of value to Vermonters seeking career growth.

In 2018, using Career Technical Education (CTE) Center catchment areas, VDOL’s workforce development division and labor market information division partnered to begin reporting local labor market information differently. Historically, labor market information had been presented by county or economic development subdivision. By shifting how information is presented to focus on CTE catchment areas, it’s easier to see and act on opportunities to better align workforce needs with delivery education and occupational skill trainings. The reports highlighted large industries by employment and relative concentration in these sub-state areas. Similar to statewide tools, this report was meant to steer discussions of support towards certain well-represented industries as well as identify opportunities by highlighting under-represented industries. From this work, several localized opportunities to connect trainings with employers were developed. 

With approximately 95% of Vermont’s workforce development services provided through federally funded programs, the state departments and agencies implementing the programs are highly focused on finding ways to work collaboratively to meet the aims of the programs while working together to better support the specific needs of Vermont’s workers and employers. What follows are descriptions of the specific One-Stop services provided by the core partners: VDOL (Title I & III), AOE (Title II), and VR & DBVI (Title IV).

Vermont Department of Labor (VDOL)

VDOL offers Vermont businesses, jobseekers, and workers several comprehensive services. Businesses work with staff to register jobs into our Vermont Job Link (VJL) system, search for and screen applicants, conduct hiring events and job fairs, access current labor market information, hire interns, apprentices and OJTs, access information about tax credits, find support to avoid layoffs, tap rapid response services, learn about grants for job training for new and incumbent workers, and gain assistance with employment and labor law questions. For job seekers, services include skill assessment, skill training, labor market information, career counseling, and job placement assistance. VDOL serves all Vermonters.

WIOA basic and career services are provided, with programs focusing on at-risk out-of-school youth, disadvantaged adults, and dislocated workers under Title I. The Wagner-Peyser Program under Title III provides all customers with employment services, labor market information, referrals to job opportunities, workshops and occupational skills development activities. Title I and III services are very often blended with information and resources related to registered apprenticeships, Jobs for Veterans Grant (JVSG) services and referrals, Trade Adjustment Assistance (TAA) registration and referrals, and, to a very high degree, SNAP and TANF employment and training programs.

All services are provided through the One-Stop American Job Center (AJC) Network which includes the state’s only comprehensive center in Burlington, 11 One-Stop Career Centers operated by the VDOL throughout the State, and dozens of other sites where WIOA partner programs deliver services.

The VDOL is the State’s One-Stop Operator in addition to administering  the following federal programs: WIOA Title I, and III, JVSG, TAA, Unemployment Insurance (UI) and Re-employment Services and Eligibility Assessment (RESEA), Foreign Labor Certification (FLC) support, Labor Market Information (LMI), Work Opportunity Tax Credit (WOTC), the Registered Apprentice (RA) program, Migrant and Seasonal Farmworker (MSFW) outreach, and the Mine Safety and Health Administration (MSHA) grants.

The VDOL is working to establish more comprehensive “business needs” programs, teaming up with employers, chambers, regional workforce development and investment boards, trade associations, training and education partners, state agencies, the Agency of Commerce and Community Development and others to support existing businesses. Assistance can range from providing technical assistance on programs, guiding them to resources, assisting with labor law explanation and compliance, helping with job development, advertising and recruitment for their vacancies, and assisting with specialized needs.

Agency of Education (AOE)

Adult Education and Literacy (AEL). AEL programs serve adults who are 16 years old or older and not enrolled in school, and who lack a high school diploma or an equivalent, or who are basic skills deficient; or who are English language learners. Instruction is provided from the lowest skill level in adult basic education to adult secondary education, as well as English to speakers of other languages in the basic skills of reading, writing, math, and speaking/listening. The purposes of the program are to assist individuals to increase their academic skills, to obtain a high school diploma or GED, to obtain employment, and to successfully enter post-secondary education or training. Services are funded by federal and state grants awarded to eligible agencies via open funding competitions.

Under WIOA, AEL providers are awarded through the competitive process to provide services in every county via full-service adult learning centers and additional satellite offices. AEL students develop and engage in a personalized learning plan, with career exploration included as a central component. Variable levels of instructional intensity are available to students, dependent on their skill level and specific educational needs. AEL instruction is offered in applied contexts and the programs are flexible to accommodate learners’ barriers so that they can persist in their studies (e.g., evening hours, group and individual instruction). Grant-funded AEL providers will be required to develop and implement Integrated Education and Training programs in the program year beginning July 1, 2020.

Students are eligible to earn a regular high school diploma from their town of residence through the flexible and innovative Vermont High School Completion Program. Students who come to adult education with a 9th grade equivalent in skills (as determined by Federally-approved assessments) take, on average, ten months to earn their high school diploma. Alternatively, students have the option of preparing to earn a GED certificate, which has been revised to align with the College and Career Readiness Standards.  The GED is a useful educational option for some adult learners, as completing a computer-based test requires that they have developed basic technology skills.

Vermont Division of Vocational Rehabilitation (DVR)

Vocational Rehabilitation (DVR) provides employment services for individuals with disabilities in order to offset barriers to their employment. DVR serves individuals with any disability, with the exception of people with visual disabilities who are served by the Division for the Blind and Visually Impaired (DBVI). Services provided by DVR are highly individualized and can include a wide range of activities as long as they support an employment goal. After a determination of eligibility, DVR and the consumer develop an Individual Plan for Employment (IPE) which outlines the employment goal, the services to be provided, and the responsibilities of the consumer. A consumer is determined to have achieved an employment goal when they have been employed a minimum of 90 days and are stable on the job.

While all DVR services are highly individualized, DVR has developed some specific programs and initiatives to better meet workforce needs. DVR uses a dual customer approach that promotes meeting the needs of both employers and consumers. DVR’s primary interface with the business community is through its business outreach program called Creative Workforce Solutions (CWS). CWS consists of 13 business account managers housed in twelve Agency of Human Services’ districts, who coordinate with local employer outreach teams. DVR funds or partners with over 200 community non-profit staff who provide placement services for individuals with disabilities. Employer outreach by these providers is coordinated through the CWS business account managers.

In response to the WIOA Common Performance Measures, in 2017 DVR launched its Careers Initiative. The Careers Initiative is designed to shift DVR practice and services to achieve higher levels of career outcomes for DVR consumers. Prior to WIOA, DVR’s federal measures were focused on quantity of employment outcomes. WIOA has shifted that focus to the quality of outcomes and promoting higher wage careers rather than entry level employment. DVR is a strong supporter of the WIOA Common Performance Measures.  New measures support consumers in their career goals,  promote higher wages and more sustainable employment. However, the WIOA measures are extremely lagging, meaning most of the desired outcomes occur well after services end. For example, the measure of median earnings occurs two full quarters after case closure. As a result, the measures are not very useful in guiding the work of frontline staff on a day-to-day basis. Therefore, DVR decided to establish leading measures of activities expected to improve the longer-term WIOA outcome measures. The section below outlines these lead measures and how they are expected to influence the lagging outcome measures.

• Leading Measure One: The
• Leading Measure Two: The involvement of other team members (employment placement staff, benefits counselors and others) strengthens consumer engagement in completing their employment goal
• Leading Measure Three: Career focused education and training leads to higher wages and higher quality employment.
• Leading Measure Four: VR counseling with an emphasis on career focused plans will lead to higher wages and higher quality employment.

• Leading Measure Five: Continued support and encouragement after job placement results in better job retention and career advancement.

DVR has formed a series of charter groups to support staff to align practice with  the leading indicators. Each charter group has developed tools and practice guidance to help staff meet the new expectations. DVR has also created a dashboard that can provide staff and managers with real time data on how they are doing with each of the lead indicators. Over time, DVR will have high quality information on how practice impacts outcomes and will be able to make adjustments based on solid data. DVR staff have embraced the new focus on careers and are fully engaged in the process. Frontline staff have participated in all the charter groups.

In addition to the core program, DVR operates a number of special programs to meet the unique needs of our customers. These include the following: 

1. Pre-Employment Transition Services (Pre-ETS). In order to meet the requirements of Pre-ETS, DVR has established a cadre of fourteen VR counselors assigned to work exclusively with students in high school. Each counselor has an assigned Youth Employment Specialist to develop real work-based learning experiences. DVR has the capacity to provide PETS services for eligible students in all 57supervisory unions.
2. Supported Employment for Youth and Adults. DVR partners with the Division of Developmental Services and the Department of Mental Health to provide supported employment services for adults with developmental disabilities and youth with emotional behavioral disabilities.
3. Rehabilitation Services for the Deaf (RCD). DVR has four Rehabilitation Counselors for the Deaf to provide specialized employment services to adults and students who are deaf or have hearing impairments.
4. Work Incentive and Benefits Planning. Approximately 30% of individuals in the DVR caseload receive Social Security Disability Insurance (SSDI) or Supplemental Security Income (SSI). Individuals on SSDI or SSI often need assistance understanding and managing the effects of earned income on their benefits. DVR Benefits Counselors provide this guidance to beneficiaries and assist them in taking advantage of available work incentives.
5. Short Term Industry Recognized Training. DVR data has indicated that consumers who complete industry recognized short-term certification programs achieve higher wage employment outcomes. DVR therefore sets aside a portion of the overall case service budget for consumers interested in these training programs.
6. Progressive Employment. Progressive Employment allows individuals to make incremental steps towards employment through graduated experiences. These experiences range from job shadows and company tours to On the Job training agreements. DVR makes extensive use of work experiences in competitive settings to assist individuals in building their skills and gaining real work experience. Progressive Employment is also an excellent tool for employers to get to know potential employees before committing to a hire.

Vermont Division for the Blind and Visually Impaired (DBVI)

The Vermont Division for the Blind and Visually Impaired (DBVI) provides specialized services for people who are blind or visually impaired using a rehabilitation model that starts when the person experiences vision loss. DBVI offers an array of services specifically designed for people who have lost visual function and independence. Given appropriate adaptive skills training and assistive technology instruction, many limitations due to blindness can be overcome. Quality of life, employment, dignity, and full integration are the focus of the program. DBVI practices a rehabilitation model that takes a holistic approach to working with the individual at the time of vision loss.

The process begins with the individual and the DBVI counselor working together to develop an individualized plan for employment to achieve the highest level of independence and employment possible. DBVI services help people reestablish control and ability to complete independent living tasks necessary to access employment and the community. The overall goal is to help individuals gain economic independence by obtaining satisfying, well-paying jobs. This is accomplished through specialized instruction to build adaptive skills related to blindness and by building employment skills through vocational training and higher education.

An individual has achieved an employment goal when they have been employed a minimum of 90 days and are stable on the job. The goal of DBVI’s vocational rehabilitation services is to help people with vision loss to retain, return, or secure employment. Individual meet with a DBVI counselor to identify goals and develop a plan to reduce the limitations that result from a vision loss.

1. Transition Services. DBVI transition services provide high school students with opportunities for learning independent living and job skills. DBVI collaborates with several partners including the Division of Vocational Rehabilitation, Vermont Associates for the Blind and Visually Impaired (VABVI), Vermont Youth Conservation Corps, ReSource, and the Gibney Family Foundation. One specific transition program called LEAP (Learn, Earn, and Prosper) provides paid summer employment for youth in a residential setting. This program empowers students to take charge of their employment future by gaining early employment success that can be carried into future employment pursuits. The goal is for all graduates to enter college, obtain future training, or join the world of work. A new addition to the summer work experience is the requirement for students to secure internships in their local community. The goal of the internships is to make connections in the local community where jobs will eventually develop and to expand a summer experience into year-long career exploration. LEAP has completed its seventh successful year.
2. Technology. Maximizing the power of assistive technology is critical to people with vision loss. DBVI invests significant effort in staying current about new assistive technology, which will revolutionize employment access and eliminate other barriers caused by vision loss. Assistive technology plays a critical role in allowing an individual with a visual impairment to be connected with society, continue employment, and pursue a tremendous range of careers in mainstream society. In most situations, assistive technology is the key to opening the door for employment. Specialized software and hardware are often needed to access print, and specialized skills, including the use of specialized magnification and lighting, are needed to use the technology successfully. The combination of technology and the skills to use the technology helps individuals return to their jobs and community activities.

One-Stop delivery system partners provide services through the Burlington American Job Center (AJC) as follows: All of the required career services and programs and activities carried out by one- stop partners are available at the Burlington AJC through walk-in appointments, scheduled one-on- one appointments, group orientations, and self-service resources. Where appropriate, partners who provide the same career services deliver those services in a coordinated manner and involve the One-Stop Operator in the design of the process as needed. At least one VDOL staff person is physically present during regular business hours and customers have access to all programs, services, and activities described in this section. “Access” means that a program staff member or a staff member from a different program who is appropriately trained, is physically present at the Burlington AJC, or a direct connection via phone or real-time web-based communication is available at the Burlington AJC to connect a customer with a program staff member who can provide information or services to the customer, within a reasonable time.

In addition, some programs are coordinating delivery of services both in and outside of the Burlington AJC. The following list provides some examples of inter-program service delivery collaboration:

• Local Adult Education Literacy (AEL) staff attend group orientations and other information sharing meetings with job seekers and other clients, as appropriate, to describe services available through adult education. AEL staff meets with individual clients at the AJC by appointment to facilitate access to services. Local adult education centers also make space available on at least a bi-weekly, half-day basis for partner staff to meet with co-enrolled clients.
• DBVI provides vocational rehabilitation services to individuals who are blind or visually impaired through Blind Services Counselors in four regional offices, available by referral and appointment.
• Participants in the Senior Community Service Employment Program (SCSEP) receive eligibility determination, supportive service referrals, and enrollment assistance at local Mature Worker Resource Centers (several of which are co-located with One-stop career centers in VT). "On-site" training services are received at nonprofit partner locations in the general community, and "off-site" training services are received either virtually or at the facilities local training providers (community colleges, local libraries, etc.).
• The Unemployment Insurance (UI) program offers virtual services through a direct connection to the VDOL UI Claims Center for initial claims and online access to file additional claims. RESEA services are offered directly through the Burlington AJC through a dedicated full-time staff member.
• Burlington AJC intake specialists are trained by CVOEO on their Micro-Business Program and Community Kitchen Academy. Staff can assist customers in connecting with these programs through a specially arranged referral system.
• The Vermont Educational Opportunity Center program is a Federal TRIO program at VSAC with full statewide reach for adults looking to improve their employability. Through individual counseling and group workshops in the Burlington AJC, other career resource centers, and other community locations, participants receive assistance through career exploration activities, financial aid and admission applications, and postsecondary enrollment. Staff are available at the Burlington AJC and co-located at many other career resource centers.
• Economic Services staff trains VDOL staff to screen for Reach Up/3SquaresVT eligibility and makes off-site Economic Services staff available to accommodate an immediate referral via Skype.
• One-Stop Career Center staff are oriented to the CCV and VTC brochures and degree/certificate program listings; websites; contact information for admissions personnel so that they may assist customers in appropriate outreach.
• A VR counselor is on-site in the Burlington AJC part time on a regular basis. When a counselor isn’t present, referrals are made via Skype where customers are provided with an overview of services and given the date of the next orientation to VR services.

The Strengths and Weaknesses of Workforce Development Activities

Vermont sees the following as strengths to the workforce development system in the state:

Structural Familiarity. For the most part, core WIOA services are managed by staff at the state and local level who have collaborated closely for a long time and have experienced constriction and expansion of resources together. The smallness of the state and the tightness of communities helps to ensure that program and service delivery decisions are made with deep awareness of how customers and colleagues will be impacted.

Intimate, Individualized Services. Core partner programs are highly accessible to individuals and program participants would rarely encounter wait times in program centers across the state.

Program Accessibility. Many One-Stop partners are already collocated in accessible offices across the state. Over the past year, VR and VDOL have continued to collocate locally, and other WIOA partners have increased their service time in locations convenient to customers (local career centers, recovery centers, correctional institutions, educational institutions, etc.).

State Support. Three significant workforce system improvement bills have been passed by the Vermont General Assembly and signed by the Governor in the last three years. Stakeholders are united in focus around quality and ease of service delivery, expansion of the state’s labor force, access to services for jobseekers and employers, responsiveness to employment demands, and building better supports for individuals with barriers to employment.

Education Opportunities. Vermont is ranked at or near the top for the quality of its education system. Not only has the State made significant investments in promoting flexibly pathways for pk-12 students, but it has ensured that Adult Education and Literacy programs are available free of charge to participants in every corner of the state. These programs provide career services, including access to core partner programs and Integrated Education and Training programs. Additionally, there are 20 colleges and universities in Vermont, including one research university, twelve conferring master’s degrees, an art school, a culinary school, a law school, and 20 undergraduate colleges conferring associate’s and bachelor’s degrees. These colleges are considered national leaders and this has resulted in a net positive migration of college-age people into Vermont.

Strong Employer Partnerships. The state workforce programs have a strong emphasis on the employer as a customer. These business services are offered directly to employers, and promoted through intentional engagement with economic development partners, and community organizations and leaders. The state has taken active steps to better aligning its economic development and workforce development supports for businesses and is poised to make more progress in the next four years.

Plan alignment. Over the last four years, state partners and key stakeholders have worked intentionally to align required plans (e.g. Perkins V), strategies, priorities, and activities related to workforce development with one another and the WIOA state plan. The AOE, VDOL, VR, and DBVI have tailored policy initiatives (e.g. Act 189, Act 80) to promote coherence in areas of oversight and responsibility.

Vermont sees the following as weaknesses of the workforce development system in the state:

Declining Labor Force. As mentioned above, Vermont’s population is aging and getting smaller. A labor force shortage stresses the state’s workforce development system because the resources and program services that are available, as a 95% federally-funded system, aren’t always the ones that employers and jobseekers need in this market.

Rural Landscape. Although workforce services are highly accessible, some areas of the state still suffer from a lack of physical and technological infrastructure that makes serving customers in these areas more difficult. Additionally, outside of the larger municipalities, it can be difficult to amass populations with a common employment need or focus.

Communication. Communication can be very smooth when partners have longstanding working relationships. Staff turnover, however, can unveil substantial knowledge deserts that successors need time and technical assistance to remedy. Additionally, unequal access to technology infrastructure, database systems, and IT programs can make upscaling a successful collaboration much more challenging.

Scale. As a single-area state with formula funds set at the “small state minimum,” the State must dedicate a disproportionally higher amount of funding to ensuring that activities like data collection and reporting, performance management, program and system monitoring, compliance and regulatory oversight, technical assistance, and specific outreach activities occur.

State Workforce Development Capacity

Vermont’s workforce partners have consistently and effectively provided their services to Vermont’s jobseekers and employers. Despite the individual successes of Vermont’s WIOA partner programs, the state faces demographic shifts and ongoing funding constraints that challenge partners in further meeting the more specialized needs of Vermont businesses, employers, employees, and job seekers.

In the last three years, workforce partners have focused extensively on breaking down silos, building trust, finding areas of philosophical agreement, developing shared priorities, and piloting joint projects to work more efficiently and effectively together. Some areas of great success and laudable progress are in developing and expanding apprenticeships, jointly providing SNAP E&T services through the Individual Career Advancement Network (ICAN), developing and offering customized trainings for specific employers focusing on braiding core program services, expanding outreach and programing with the Department of Corrections and regional Career and Technical Education Centers, and piloting joint programs (Title I, II, and IV) serving disadvantaged young adults.

While the Vermont workforce development system still has silos, our small size and status as a single-area state has helped improve connections between the partner programs under WIOA.

We’ve expanded coordination and collaboration and are coming together to ensure every Vermonter has the support they need to participate in the state’s labor force, and advance along a career pathway at their own pace.

The core partners would like to expand capacity to develop and implement innovative partnerships that better leverage the offerings of each program. As we mature into the operation of our one-stop centers and network, we expect to discover opportunities to do this. Program administrators are judicious in selecting the number and types of collaborations to pursue at one time, recognizing the ongoing demands of time, regulatory compliance, and continuous improvement activities.