WIOA State Plan Common Elements

(A) The State’s Workforce Development Activities

To provide a thorough overview of the current workforce development activities and delivery models taking place in Idaho, we have provided a program–by–program summary of core WIOA programs as well as for those programs who will be submitting as part of the Combined State Plan. Where possible, we have also solicited information from our One–Stop partners who are not submitting as part of the Combined State Plan and have included this information as well. A comprehensive discussion of strengths, weaknesses, and capacity will be covered in the subsequent sections (B) and (C).

Title I - Youth Programs (Idaho Department of Labor)

Funded by the U.S. Department of Labor (USDOL), WIOA Title I-B offers programs for Youth, Adult and Dislocated Workers in Idaho.  These programs help eligible individuals get good jobs and stay employed and help employers by improving the skills of Idaho’s workforce.

Idaho’s WIOA Title I-B Youth program serves out-of-school youth ages 16 to 24. Eligible young people work closely with a career planner to support them in achieving the education and skills necessary to enter the workforce. Services may include work-based learning opportunities through job shadowing, work experiences and internships, work skills training such as vocational classes or on-the-job training, and supportive services to help with the costs of transportation and other necessities.

The Idaho Department of Labor also administers a State-Operated Job Corps Demonstration Project in Nampa, Idaho, located in southwestern Idaho.  Like the youth program, it also serves youth from 16-24,  and is intended to increase access to and enrollment in education and work-based learning for out-of-school and at-risk Idaho youth by leveraging existing resources and programs to better serve Idaho youth in getting the education and training they need in high-demand fields.

Title I – Adult and Dislocated Worker Programs (Administered by the Idaho Department of Labor, operated by Equus Workforce Solutions)

The Adult and Dislocated Worker programs provide access to the same array of service categories as the state’s Title I Youth program: basic and individualized career, training, and supportive services.  Services are provided at the level needed to launch the adult or restore the dislocated worker to self-sufficient employment. Equus Workforce Solutions began providing these services in Idaho in October 2021.

For the Adult program, individuals lacking basic skills or receiving public assistance may be eligible. For the Dislocated Worker program, those who have lost their job through no fault of their own may be eligible. Dislocated Worker funds also support the Rapid Response program that provides immediate assistance to employers and workers for business closings and other mass layoff events.

Both Idaho Department of Labor and Equus staff provide these program services in the state’s nine American Job Centers. The Idaho Department of Labor staffs various mobile locations, providing access to 47 additional communities across the state .

Title II - Adult Education and Family Literacy (AEFLA) (Idaho Career Technical Education)

The Adult Education program supports efforts to improve the quality of life for adults with academic skill levels below the 12^th grade, and/or adults who need English language skills to succeed in their communities. Literacy, numeracy, and English language skills are fundamental for workforce success and personal and social well-being. Services provided under the Adult Education program are intended to lead to further education, training opportunities, and work.

The Adult Education program plays an integral role in the workforce development system by providing access to educational and training services for adult learners. The program seeks to increase opportunity in the educational and workforce development of adults as workers, parents, and citizens. While playing a critical role in adult attainment of a secondary school diploma, the program also aims to assist in the transition to postsecondary education and training.

Currently, the program is carried out locally, on a regional basis, via the state’s technical and community colleges, universities, as well as the State Department of Correction. Each local provider is responsible for offering Adult Education services, either through direct instruction or through distance learning models. Local programs conduct intake and assessment, ensure appropriate class placement, provide goal setting and education planning guidance, and follow up.

Title III - Wagner-Peyser/Employment Services (Idaho Department of Labor)

Employment services are designed to help connect job seekers and employers.  Self-service is available at idahoworks.gov, an online labor exchange system where job seekers can register for work, search for job openings, and access a variety of job search resources. Additionally, employers can list jobs, search resumes, and link to labor market information and other resources.

Staff are available to assist job seekers with job search consulting and workshops; aptitude, interest, and proficiency tests; career guidance; and referrals to other workforce development services.  Specialized services are available for veterans, migrant seasonal farm workers, and individuals with disabilities.

Employment services to employers include referring job candidates, promoting job openings, providing space at the American Job Centers for employers to conduct customized recruitment and hiring events; recruiting or matching applicants from local, state, and national labor pools; and organizing in-person or virtual job fairs. The Idaho Department of Labor provides these services in the same locations as its Title I-B offerings.

Title IV - Vocational Rehabilitation Services (Idaho Division of Vocational Rehabilitation and Idaho Commission for the Blind and Visually Impaired)

Vocational Rehabilitation services in Idaho are provided through two agencies: the Idaho Division of Vocational Rehabilitation (IDVR), and the Idaho Commission for the Blind and Visually Impaired (the Commission). Both agencies serve individuals with disabilities that constitute or result in substantial barriers to employment. IDVR works with a diverse array of disabilities to include, but not limited to individuals with mental health disorders, learning disabilities, developmental disabilities, diabetes, deafness, amputation, mobility impairments, and traumatic brain injury. The Commission specifically serves individuals whose primary disability is blindness or visual impairments, including those who may experience co-occurring disabilities.  Where co-occurring disabilities are present, the Commission partners with IDVR to the extent practicable.

IDVR and the Commission provide services which include counseling and guidance, assessment, vocational training, post-secondary education, transportation, personal assistance services, and job supports and placement. Through customer informed choice and in partnership with their VR counselor, individuals with disabilities are able to create an individualized plan for employment, maximize their potential, and reach the goal of competitive integrated employment.  Services unique to the Commission include an Assessment and Training Center, Low Vision Clinic Services, and regional Rehabilitation Teachers who provide low vison and blind skills training to individuals in all communities in the state.

Both programs provide services to students and youth with disabilities to ensure they have meaningful opportunities to receive training and other services necessary to achieve employment.  Pre-employment transition services for students and similar services for youth include job exploration counseling, work-based learning experiences (paid or unpaid), counseling on post-secondary enrollment opportunities, workplace readiness training, and instruction in self-advocacy. Students are supported by a VR counselor to determine which combination of pre-employment transition services may best meet their individual needs. Pre-employment transition services are designed to help students with disabilities begin to identify career interests that may be further explored through additional VR services.  Students must be receiving transition services through an Individualized Education Program (IEP) or be eligible for a section 504 accommodation to receive these services under the banner of Pre-ETS.  Similar services are available and are afforded to out-of-school youth under the age of 25.   

While the services provided by these two agencies to their specific customer base are similar, the delivery systems differ slightly. IDVR provides services through eight regional offices and a series of sub-offices. Through cooperative agreements, IDVR has several staff collocated in several state program offices, such as the Idaho Department of Correction. The Commission provides services through a central office in Boise, ID and five regional offices.

Combined Plan Partner - Jobs for Veterans State Grant Program (Idaho Department of Labor)

Veterans receive priority service for all U.S. Department of Labor workforce programs.  In addition, Idaho Department of Labor has dedicated staff located in select American Job Centers throughout the state to provide targeted support for veterans. 

Local Veterans Employment Representatives (LVER) program staff conduct outreach to employers on behalf of veteran customers.  The LVER works with employers to develop job opportunities for veterans and promote the value of hiring veterans within the larger workforce.

The Disabled Veterans Outreach Program (DVOP) staff serves veterans most in need of intensive employment and training assistance.  These staff focus on veterans with barriers to employment and other special workforce needs.  DVOPs offer a wide range of workforce services to veterans and other eligible persons coordinated through a case management approach.

Combined Plan Partner - OAA Title V - Senior Community Service Employment Program (Idaho Commission on Aging)

The Senior Community Service Employment Program (SCSEP) is funded by the USDOL and administered by the Idaho Commission on Aging (ICOA). Easterseals-Goodwill is the sub-recipient and serves seniors 55 and older, that are unemployed and have an income at 125% or less of the Federal Poverty Level. Services include paid employment training at community service assignments, employment training counselors to provide job skill training, computer skills training, paid supportive services to help overcome barriers to employment, development of an individual employment plan, and financial assistance with annual physical exams.

Enrollment priority is given to veterans and qualified spouses, then to individuals who are over 65, have a disability, have low literacy skills or limited English proficiency, reside in a rural area, are homeless or at risk of homelessness, have low employment prospects, or have failed to find employment after using services through the American Job Center system.  The program is designed to foster individual economic self-sufficiency and increase the number of people in unsubsidized employment.

SCSEP participants are placed in non-profit or government agencies called, "Host Agencies”. Host Agencies include senior centers, community action centers, and health clinics. These agencies agree to provide employment training through community service activities that provide the education identified in the participant’s individual employment plan. The program provides minimum wage, skill enhancement or acquisition of skills, personal and employment counseling, and assistance in obtaining unsubsidized employment.

Employment Training Counselors (ETC’s) assist seniors to develop Individual Employment Plans and teach job seeking skills such as; interviewing, job searching, setting goals, and resume building. Currently, the emphasis is to provide technology training that will assist seniors to build marketable skills that are essential to the present workforce. A participant can be in the program 48 months; however, 12-month extension waivers are allowed for specific groups.

The ICOA and Easterseals-Goodwill provide compliance, monitoring, statewide goal setting, federal reporting, and program reimbursement.

Combined Plan Partner - Trade Adjustment Program (Idaho Department of Labor)

The Idaho Department of Labor administers the state’s Trade Adjustment Assistance (TAA) Program, designed to assist U.S. workers who have lost or may lose their jobs because of foreign trade. This program seeks to provide affected workers with opportunities to obtain skills, credentials, resources, and support necessary to become re-employed.

Eligible workers are identified when a petition is filed with the US Department of Labor, which then investigates and determines whether the layoff meets program eligibility criteria. The petition identifies a specific worker group that may access TAA services.

Trade program services include: employment and case management services; skills assessments; individual employment plans; classroom training, on-the-job training, and apprenticeships; income support; job search cost allowance; and relocation allowance.

The Trade Adjustment Assistance Program is delivered by the Idaho Department of Labor in the American Job Centers and Idaho Department of Labor mobile locations.  The program co-location allows for seamless service delivery to individuals already receiving services from programs such as the Dislocated Worker program.

Combined Plan Partner - Unemployment Insurance (Idaho Department of Labor)

The Idaho Department of Labor administers the state’s Unemployment Insurance (UI) program, which provides temporary cash assistance to individuals experiencing hardship during periods of involuntary unemployment. 

Workers may file and check the status of UI claims through the Idaho Department of Labor’s website.  Direct in-person staff assistance is available in  the state’s AJCs. Claimants can also find help through the web portal’s “click to chat” feature or directly by telephone.

One-Stop Partner - TANF & SNAP (Idaho Department of Health and Welfare)

Both the Supplemental Nutrition Assistance Program (SNAP) and the Temporary Assistance for Needy Families (TANF) Programs are administered by the Idaho Department of Health and Welfare. Each program is discussed separately below.

Supplemental Nutrition Assistance Program

The Supplemental Nutrition Assistance Program (SNAP), also known as the Food Stamp Program, helps low-income families maintain good health and nutrition. SNAP benefits are federally funded, but the state shares the cost of administering the program with the federal government. Benefits are provided through an Electronic Benefits Transfer (EBT) card, which works like a debit card.

• Be an Idaho resident who is either a U.S. citizen or meets specific lawful residency criteria;
• Provide proof of identity;
• Meet income eligibility limits of 130% of poverty or less for family size;
• Meet resource limits;
• Meet stricter eligibility requirements if applicant is a student, legal immigrant or convicted felon; and
• Participate in a work search program, unless exempt.

For more information visit https://healthandwelfare.idaho.gov:

All eligibility requirements are verified through electronic interfaces or documentation provided by the family. Once approved for SNAP benefits, a family must participate in a semi-annual or annual reevaluation of their household circumstances. In the re-evaluation process, all elements of eligibility are re-verified using these same methods.

SNAP recipients, unless exempt, must either be employed 30 hours per week or participate in job search activities that will help them find or improve employment opportunities to continue receiving benefits. The primary focus of the work program is to help SNAP recipients get a job, keep a job, or find a better job. Failure to participate in this program results in the person losing his or her SNAP benefits.

The amount of SNAP benefits depends on a variety of circumstances, such as the number of people in the household, income, and other factors. Generally, larger household sizes or lower incomes result in higher benefit amounts. In June 2021, the average SNAP allotment per person in Idaho was $136, or approximately $1.51 per meal.

SNAP enrollment is responsive to economic conditions, expanding during recessions and contracting during improved economic times. Recently, during SFY 2021(Idaho’s state Fiscal Year mirrors the federal Program Year), Idaho’s SNAP caseload decreased, showing a decline in the number of individuals receiving SNAP benefits from 149,800 in June 2020 to 130,700 in June 2021. In 2021, nearly three out of four families eligible for SNAP received benefits the same day they applied. On average, eligible Idaho families receive benefits within three days of applying.

Temporary Assistance for Needy Families

The Temporary Assistance for Needy Families (TANF), or as known in Idaho Temporary Assistance for Families in Idaho (TAFI) program provides temporary cash assistance and work preparation services for families with children. The program serves an average of almost 1,800 households and 2,500 individuals.

TAFI beneficiaries receive a maximum of $309 per month, regardless of family size. These funds help pay for food, shelter, clothing, and other essentials. Idaho has a lifetime limit of 24 months of TAFI cash assistance for adults.

About 96 percent of households in the program are child-only cases. The remaining 4 percent are single or two-parent households. Child-only cases are usually relatives caring for a child whose parents cannot care for them. In order to receive TAFI benefits, Idahoans must meet the following eligibility requirements:

• Be an Idaho resident who is either a U.S. citizen or meets specific lawful residency criteria;
• Provide proof of identity;
• Meets income eligibility limits for family size;
• Meets personal asset limits;
• Cooperates with Child Support enforcement;
• Participates in a drug and alcohol abuse screening, and comply with a treatment plan if determined to need treatment; and
• Participate in the Enhanced Work Services program and meet strict participation requirements.

Idaho’s TAFI cash assistance program requires participation in work and education preparation activities that build or enhance the skills needed to increase participants’ income so they become self-sufficient. They are required to participate in 20-40 hours per week (depending on family composition) in approved activities, including, but not limited to: searching for a job, education directly related to employment, work experience opportunities, and treatment for substance use disorders. Failure to meet these required activities results in closure of the TAFI assistance and an additional penalty period during which the family is not eligible to receive TAFI cash. Child-only cases are not subject to work participation requirements.

(B) The Strengths and Weaknesses of Workplace Development Activities

As part of the state planning process, the partners conducted 16 public listening sessions throughout the state in the summer and fall of 2019. The partners reconvened in November 2019 to identify strengths and weaknesses of their programs, as well as for the workforce development system as a whole. Several themes emerged from that discussion. These themes, which are common across all (or most) programs, are discussed below. Several of the specific strengths and weaknesses of individual programs are discussed in more detail in subsequent sections of this plan.

COVID-19 most certainly had a significant impact on Idaho’s economy and workforce system; however, we were quick to rebound and achieved pre-pandemic employment levels by October 2020. That said, the challenges and opportunities of shifting to a virtual service delivery model have been incorporated into this section.

Strengths

The primary strengths identified in our activity analysis were program administration, alignment, and partnership. Currently, all the WIOA Title I-B programs, as well as the UI, Trade Adjustment Assistance, and Veterans’ Outreach programs are administered by the Idaho Department of Labor. The Carl D. Perkins, postsecondary workforce training, and WIOA Title II (Adult Education) programs are administered by Idaho Career Technical  Education (ICTE). Both ICTE and the Idaho Division of Vocational Rehabilitation are under the administrative umbrella of the State Board of Education. Idaho’s State Board of Education also offers a unique advantage as one of two states in the nation with K-20 governance under a single board. ICBVI and the Workforce Development Council are under the Office of the Governor.

Having the core WIOA programs—as well as several of the optional partners—clustered within a few agencies makes it easier to streamline planning and policy alignment and promote robust referral processes at the state level. Additionally, the Idaho Department of Labor, Idaho Career Technical  Education, and state Vocational Rehabilitation programs enjoy strong, positive, and constructive working relationships, which have contributed and will continue to contribute to the State Planning process.

All of these agencies are represented, by their senior leaders, on the Idaho Workforce Development Council. In addition, partner agencies such as Idaho Health and Welfare, the Idaho Department of Commerce, and the State Board of Education hold seats on the Council.

The successful establishment of data sharing agreements, specifically on wage matching, between Idaho’s core partners are due in large part to the strong relationships they have amongst themselves, each playing a significant role as Idaho signed on to the federal State Wage Interchange System to allow for the data sharing to take place. The Workforce Data Quality Initiative grant awarded to the state will do much to improve this effort as it enhances the state’s ability to automate data exchange processes within Idaho’s workforce development system.  The grant seeks to build upon the existing State Longitudinal Data System (SLDS) to build a secure, web-based interface, which ties together individual program participant information from workforce, education, and unique program data sets from Idaho’s WIOA Core Partners, the Idaho State Board of Education, and the Idaho Workforce Development Council.  The state was selected in October 2021 to participate in the Data Labs project, hosted by the Beeck Center for Social Impact + Innovation at Georgetown University. Our effort is focused on exploring the feasibility of a common intake process and data system. Through the project we are exploring what has, and what hasn’t, worked well in other states that have implemented common intake systems. By June 2022, we expect to make a decision as to whether we will move forward as a system.

In an effort to address the unique regional challenges that the system faces in our state, primarily with service accessibility in rural and remote areas and reductions in federal funds, in the summer of 2019 the Idaho Department of Labor implemented a new mobile service delivery model.  Face-to-face service can now be found in more than 47 communities around the state, a more than 100 percent increase from the agency’s previous brick and mortar offerings.  The new model modernizes how the department delivers services, with a focus on increasing IDOL staff presence across the state while decreasing costs associated with its physical footprint.  It is more adaptable to fluctuations in the economy and empowers staff to be more responsive to community needs.

The Idaho Commission for Libraries has been an active facilitator for promoting and expanding the One-Stop system across the state through Idaho's library network. Libraries partner locally with a variety of agencies within the workforce ecosystem to support the educational and employment needs of their communities. The Idaho Department of Labor partners with 17 libraries throughout Idaho as part of their mobile service delivery model. IDOL staff visit these libraries on a set day each month to assist clients with job searches, unemployment claims, labor market information, and community referrals. Additionally, there are nine libraries throughout the state that serve as outreach locations for Title II Adult Education providers. Finally, six libraries across the state serve as meeting locations for Vocational Rehabilitation counselors and clients, with the potential to expand to more locations.

Core and One-Stop partners offer regional training and quarterly collaboration for all One-Stop/AJC staff, ensuring participating staff gain awareness of the services and activities each partner makes available to residents in need across the state.  The first statewide partnership meeting will be held on February 22, 2022.

Finally, a strength coming out of the COVID-19 shutdowns is that the partners are better prepared to deliver virtual services which has increased the reach of the system in the most rural parts of the state.  The state’s Libraries are continuing to invest in building digital access spaces utilizing CARES and ARPA funds – providing even greater access.

Weaknesses/Challenges-

We have identified three major weaknesses/challenges for Idaho’s Workforce Development System. The first is in regard to staffing, the second is in regard to serving rural communities, which the state has sought to address by implementing the change in the Idaho Department of Labor’s service delivery model (see above) as a means of improving rural access to services, and the third is in regard to connecting programs with employers.

Several of our core and partner programs identified staff turnover, staff training, and staff retention as issues (this has worsened as Idaho’s economy continues to grow and improve)—especially those programs which provide direct services like education and counseling. Attracting, training, and retaining high quality, qualified staff can be difficult in a stagnant funding environment, as well as in a state like Idaho where wages are lower on average. For example, Vocational Rehabilitation Counselors are required to have master’s degrees, but the pay is not always commensurate with the education and training requirements. The State’s career and technical education programs have also experienced difficulty filling vacancies, as teachers are required to have both pedagogical and technical expertise and may have to take a pay-cut when moving from a career in industry to a career in teaching.

Attracting and retaining quality staff can be especially difficult in rural communities. The pool of local applicants is limited, with many qualified candidates seeking employment elsewhere. The pay is often low, and insufficient to bring in qualified labor from outside the community.

In fact, rural communities present several challenges for our workforce programs. A great deal of research links rural communities with higher instances of poverty and unemployment, lower education levels, and a generally higher need for services. In Idaho, these communities face the additional challenge of isolation, and are often separated by geographical barriers such as mountain ranges or large distances with few transportation options. As a result, bringing services to these communities can cost more, while at the same time serving fewer people. The majority of programs cited rural service provision as a significant challenge. Additional challenges in rural and remote communities for our participants include access to education, affordable housing, and public transportation.

Through the listening sessions introduced in the earlier Strengths section, and fully outlined in Section IV. The State Plan Development Process , it was noted that Idaho’s workforce and education system has a difficult time coordinating with employers at both the state and local level. In addition, Idaho’s employers could benefit from additional support in connecting with underserved populations such as older workers, Veterans, persons with disabilities, and those exiting the corrections system. With an increased focus on employer engagement, employer satisfaction, and employment outcomes for participants, it is vital that all the WIOA core programs, as well as partner programs, have the opportunity to develop meaningful relationships with employers. Idaho’s Workforce Development Council was reorganized in late 2017 to increase the presence of and partnership with employers and industry associations. The reorganization was implemented in direct response to this weakness in Idaho’s workforce development system, as identified by an independent, industry-led task force appointed by the Governor in January 2017. Included in the state goals section of this plan are specific steps to increase coordination of business services. 

Finally, an unexpected impact of the hiring challenges brought on by the pandemic is that employers are overlooking their previous GED requirements, which has contributed to retention issues with Title II programs. While it eliminates a barrier to employment in the short-term for individuals without high school diplomas or GEDs, Idaho is concerned about the long-term impact individuals may face if they don’t have this credential the next time the job market constricts.

 (C) State Workforce Development Capacity

The following table provides a summary of the funding and service levels of the programs previously described in Part (A) (where available). The service levels in Table 22 reflect the number of individuals served by each program. It is likely that many Idahoans participate in multiple workforce programs at any one time. However, Idaho is currently unable to produce an unduplicated count of the total unique individuals served across programs in the workforce development system. The figures below provide a sense of the service levels and capacity of individual programs as they exist today.

Funding amounts included in the table are as reported by each program and include both administrative costs and program costs. Federal Funding includes but is not limited to WIOA authorized funds. The table does not include local funding, employer contributions, user fees, or entitlement payments such as Social Security reimbursements.

Table 22: Workforce Program Capacity - Funding Levels and Participants Served by Program

^{Numbers are based on most recent annual–reporting data available for Program Year 2020 (July 1, 2020 through June 30, 2021). Those programs noted by an * show data by federal Fiscal Year 2021 (September 2020 through October 2021).}