Trade Adjustment Assistance for Workers
Benjamin Collins
Analyst in Labor Policy
March 5, 2014
Congressional Research Service
7-5700
www.crs.gov
R42012

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Trade Adjustment Assistance for Workers

Summary
Trade Adjustment Assistance for Workers (TAA) provides federal assistance to workers who have
been adversely affected by foreign trade. It was most recently authorized by the Trade Adjustment
Assistance Extension Act of 2011 (TAAEA; Title II of P.L. 112-40). Under TAAEA, the program
operated under one set of eligibility and benefit provisions from enactment through December 31,
2013, and then reverted to a more restrictive set of provisions on January 1, 2014.
To be eligible for TAA, a group of workers must establish that they were separated from their
employment either because their jobs moved outside the United States or because of an increase
in directly competitive imports. Workers at firms that are suppliers to or downstream producers of
TAA-certified firms may also be eligible for TAA benefits. Under current law, only production
workers are eligible. Under the TAAEA provisions that were in place through December 31,
2013, both production and service workers were eligible.
To establish eligibility for TAA benefits, a group of affected workers must petition the
Department of Labor (DOL) and a DOL investigation must verify the role of foreign trade in the
workers’ job loss. Once a petition is certified by DOL, covered workers may apply for individual
benefits. These benefits are funded by the federal government and administered by the states
through their workforce systems. The specific group of benefits and services to which a worker is
entitled is determined by the date of the petition that covers the worker. Benefits include a group
of benefits and services to assist workers in returning to work.
• Training subsidies are available if no suitable employment is available and a
certified worker meets other criteria. Eligible training options include a variety of
public and private programs.
• Employment services are provided to TAA-certified workers through state
workforce agencies. These can include case management, career counseling, job
search assistance, and other non-training services.
• Job search and relocation allowances are available to workers who seek
employment outside of their commuting area.
• Trade Readjustment Allowance (TRA) is an income support for TAA-certified
workers who have exhausted their unemployment insurance (UI) and are enrolled
in an eligible training program. TRA payments are equal to the workers’ final UI
benefit. Workers may receive UI and TRA for a combined total of 117 weeks and
130 weeks under certain circumstances.
• Wage insurance is available to certified workers age 50 and over who obtain
reemployment at a lower wage. The wage insurance program provides a cash
payment equal to 50% of the difference between the worker’s new wage and
previous wage, up to a two-year maximum of $10,000.
This report provides background on the TAA program. It begins with descriptions of eligibility
and benefits under both the current and previous provisions. The report then presents information
on application activity, benefit usage, and participants’ outcomes.
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Contents
Background and Current Status ....................................................................................................... 1
FY2014 Appropriations ............................................................................................................. 2
Eligibility and Application Process .................................................................................................. 2
TAA Group Eligibility Criteria .................................................................................................. 2
TAA Group Petition and Certification Process .......................................................................... 3
TAA Individual Eligibility ......................................................................................................... 4
Alternative Trade Adjustment Assistance Eligibility ................................................................. 4
Benefits ............................................................................................................................................ 6
Reemployment Services ............................................................................................................ 6
Training Assistance ............................................................................................................. 6
Employment Services .......................................................................................................... 8
Job Search and Relocation Allowances ............................................................................... 8
Trade Readjustment Allowance ................................................................................................. 8
Alternative Trade Adjustment Assistance ................................................................................ 10
Financing and Administration ........................................................................................................ 12
Certification and Participation Data .............................................................................................. 13
Applications and Certification Activity ................................................................................... 13
Participation Data .................................................................................................................... 14
Post-TAA Outcome Data for Program Exiters ........................................................................ 17
Impact Analysis ................................................................................................................. 17

Tables
Table 1. TAA Group Certification Requirements in Effect During Different Time Periods
Under the Provisions Adopted in the Trade Adjustment Assistance Extension Act of
2011 .............................................................................................................................................. 5
Table 2. TAA Benefits in Effect During Different Time Periods Under the Provisions
Adopted in the Trade Adjustment Assistance Extension Act of 2011 ......................................... 11
Table 3. Applicable Periods of Trade Adjustment Assistance Legislation ..................................... 13
Table 4. Petitions and Certifications, FY2003-FY2012 ................................................................. 14
Table 5. Trade Adjustment Assistance Participation, FY2003-FY2014 ........................................ 16
Table 6. Employment Outcomes for TAA Exiters, FY2009-FY2012 ............................................ 17

Appendixes
Appendix. Legislative History ....................................................................................................... 19

Contacts
Author Contact Information........................................................................................................... 20
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Background and Current Status
Trade Adjustment Assistance for Workers (TAA) provides federally-funded benefits to dislocated
workers who are adversely affected by foreign trade.1 Benefits under TAA include training
subsidies and income support for workers who have exhausted their unemployment insurance
(UI). TAA-eligible workers who are age 50 and over and obtain reemployment at a lower wage
may be eligible for a wage insurance program. To be eligible for TAA benefits, separated workers
must petition the Department of Labor (DOL) to establish that foreign trade contributed
importantly to their job loss.
TAA for Workers is authorized under Title II of the Trade Act of 1974, as amended. It was last
reauthorized by the Trade Adjustment Assistance Extension Act of 2011 (TAAEA; Title II of P.L.
112-40).2 TAAEA specified that TAA would operate under one set of provisions through
December 31, 2013, and then revert to more restrictive eligibility and benefit provisions
beginning January 1, 2014.3 This report will refer to the expired expanded provisions as “the 2011
provisions” and the current reduced provisions as “the 2014 provisions.”4 Workers currently
receiving TAA benefits had their eligibility and benefits determined by whichever set of
provisions were in effect when the petition covering them was filed.
The first section of this report describes eligibility criteria for TAA under current law as well as
criteria that were recently in effect. This section also describes the process through which a group
of workers petitions DOL and becomes TAA-certified. Table 1 at the end of the section compares
eligibility criteria under the current 2014 provisions to the broader eligibility criteria that were in
place under the 2011 provisions that expired after December 31, 2013.
The second section describes benefits available to workers who are covered by a certified group
petition. This report discusses benefits for workers who are covered by petitions that were
certified under both the 2011 and 2014 provisions. A comparison of the two sets of benefits is in
Table 2.

1 Other Trade Adjustment Assistance programs target different recipients: TAA for Firms (see archived CRS Report
RS20210, Trade Adjustment Assistance for Firms: Economic, Program, and Policy Issues) and TAA for Farmers (see
CRS Report R40206, Trade Adjustment Assistance for Farmers, by Remy Jurenas). TAA for Workers is the largest
TAA program. In some cases where the Workers program is discussed alongside these other TAA programs, it is
referred to with the acronym TAAW. This report will refer to the Workers program as TAA.
2 A brief legislative history of TAA is in the Appendix. A more detailed legislative history is in archived CRS Report
R41922, Trade Adjustment Assistance (TAA) and Its Role in U.S. Trade Policy.
3 Specifically, Section 233 of P.L. 112-40 specifies that on January 1, 2014, the TAA provisions of the Trade Act of
1974, as amended, revert to the provisions that were in place February 13, 2011. February 13, 2011, was the date that
the expanded eligibility and benefits for TAA under the American Recovery and Reinvestment Act (ARRA, P.L. 111-
5) expired and the program reverted to the more restrictive eligibility and benefit criteria that were in place prior to
ARRA. Section 233 of P.L. 112-40 then makes several amendments to the reverted, pre-ARRA law, resulting in the
2014 provisions that are described in this report.
4 Identifying each group of provisions by its year of enactment follows the protocol used by DOL in many of its TAA
documents. The 2011 provisions of TAA are similar, but not identical to, “the 2009 provisions” that were enacted as
part of the American Recovery and Reinvestment Act of 2009 (P.L. 111-5). The 2014 provisions of TAA are similar,
but not identical to, “the 2002 provisions” of TAA that were enacted as part of the Trade Act of 2002 (P.L. 107-210).
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The third section of the report presents program data on participation and benefit usage. The data
in this section include workers certified under the 2011 provisions as well as prior TAA
provisions that were enacted in 2002 and 2009.
FY2014 Appropriations
Division H of the Consolidated Appropriations Act of 2014 (P.L. 113-76) appropriated
$656,000,000 for TAA in FY2014.5 Due to the timing of the change from the 2011 provisions to
the 2014 provisions, this appropriation covered three months of TAA under the 2011 provisions
and nine months under the 2014 provisions.
TAA is a direct spending (also referred to as “mandatory”) program and subject to sequestration
under the Budget Control Act of 2011 (P.L. 112-25). The initial appropriation was reduced by
7.2%, leaving a final appropriation of $608.8 million. DOL allotted $306.3 million of the final
appropriation to TAA reemployment activities and allotted the remainder to TAA income support
and wage insurance programs.6
Eligibility and Application Process
Obtaining TAA benefits is a two-stage process. First, a group of workers must petition DOL to
establish that foreign trade “contributed importantly” to their job losses and become TAA
certified. Once a group has been certified, individual workers covered by the group’s petition
apply for state-administered benefits at a local One-Stop Career Center. TAA is available to
workers in the 50 states, the District of Columbia, and Puerto Rico.
This section describes TAA eligibility criteria under the current law 2014 provisions. Table 1
compares the current 2014 provisions to the now-expired 2011 provisions.
TAA Group Eligibility Criteria
To be eligible for TAA group certification, a group of workers from a firm (or a subdivision of a
firm) must have become totally or partially separated from their employment or have been
threatened with becoming totally or partially separated.7 Under current law, only production
workers (i.e., workers that produce an “article”) are eligible to be certified. Workers who produce
a service are not eligible to be certified under the current provisions.
The petitioning workers must establish that foreign trade contributed importantly to their
separation.8 The role of foreign trade can be established in one of several ways:

5 TAA is appropriated under the “Federal Unemployment Benefits and Allowances” heading of the DOL
appropriations bill.
6 A detailed description of DOL’s treatment of the FY2014 appropriation is in DOL Training and Employment
Guidance Letter (TEGL) No. 12-13, available at http://wdr.doleta.gov/directives/attach/TEGL/TEGL_12_13.pdf.
7 Partial separation is defined as hours of work and wages being reduced to less than 80% of the worker’s weekly
average. See 20 C.F.R. 617.3(cc).
8 The term “contributed importantly” means a cause that is important but not necessarily more important than any other
cause. See 19 U.S.C. 2272(c)(1).
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• An increase in competitive imports. The sales or production of the petitioning
firm have decreased and imports of articles like or directly competitive with
those produced by the petitioning firm have increased.
• A shift in production to an eligible country. The workers’ firm has moved
production of the goods that the petitioning workers produced to a foreign county
with which the United States has a free trade agreement (FTA).9
• Adversely affected secondary workers. The petitioning firm is a supplier or a
downstream producer10 to a TAA-certified firm and either (1) the sales or
production for the TAA-certified firm accounted for at least 20% of the sales or
production of the petitioning firm or (2) a loss of business with a TAA-certified
firm contributed importantly to the workers’ job losses.
As noted previously, the certification criteria under the current 2014 provisions are narrower than
the criteria under the 2011 provisions. A comparison of these two sets of provisions is in Table 1.
The change in eligibility criteria is not retroactive. As such, workers certified under the expanded
2011 provisions may continue to receive benefits after the enactment of the 2014 provisions.
TAA Group Petition and Certification Process
To establish TAA eligibility, a group of workers (or its union, firm, or state) must complete a two-
page petition and submit it, along with any supporting documentation, to DOL. An additional
copy of the TAA petition must also be filed with the governor of the state in which the affected
firm is located. After receiving the petition, DOL investigates to determine if the petition meets
any of the criteria outlined in the previous subsection of this report. Determinations of TAA
petitions are published in the Federal Register and on the DOL website.
If a petition is certified, DOL will also determine an impact date on which trade-related layoffs
began or threatened to begin. This date can be as early as one year prior to the petition. A certified
petition will cover all workers laid off between the impact date and two years after the
certification of the petition. For example, if a petition was certified on June 1, 2010, and the
impact date was found to be March 1, 2010, all members of the certified group laid off between
March 1, 2010, and June 1, 2012, would be eligible for TAA benefits.
If a petition is denied, the group who was denied certification may request administrative
reconsideration by DOL. Reconsideration requests must be mailed within 30 days of the
publication of the initial denial in the Federal Register. Workers who are denied certification may
seek judicial review of DOL’s initial petition denial or denial following administrative
reconsideration. Appeals for judicial review must be filed with the U.S. Court of International
Trade within 60 days of Federal Register publication of the initial denial or the administrative
reconsideration denial.

9 Shifts in production to countries that are beneficiaries under certain non-FTA trade agreements may also be covered.
See 19 U.S.C. 2272(a)(2)(B)(ii)(II) for details.
10 19 U.S.C. 2272(c)(3) defines a downstream producer as “a firm that performs additional, value-added production
processes or services directly for another firm.”
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TAA Individual Eligibility
After DOL certifies a group of workers as eligible, the individual workers then apply to their local
One-Stop Career Center for individual benefits. To be covered under a certified petition, a worker
must meet all of the following conditions: (1) separation from the firm on or after the impact date
specified in the certification but within two years of DOL certification, (2) employment with the
affected firm in at least 26 of the 52 weeks preceding layoff, (3) entitlement to state UI benefits,
and (4) no disqualification for extended unemployment benefits. Additionally, to receive the
Trade Readjustment Allowance (TRA) benefit, workers must also be enrolled in an approved
training program or have received a waiver from training.11
Group-certified workers who are denied individual benefits can appeal the decision. The
determination notice that individual workers receive after filing their applications for each benefit
explains their appeal rights and time limits for filing appeals.
Alternative Trade Adjustment Assistance Eligibility
Alternative Trade Adjustment Assistance (ATAA) is a wage insurance program that provides a
cash payment to qualified TAA-certified workers age 50 and over who obtain new employment at
a lower wage. ATAA is authorized by the 2014 provisions. A similar program called
Reemployment Trade Adjustment Assistance (RTAA) was authorized by the 2011 provisions.
ATAA is designed as a program for older trade-affected workers who likely have limited time
remaining in the labor force and for whom comprehensive retraining may not be a cost-effective
option. To be eligible for ATAA wage supplements, the worker’s new annual wage must be lower
than his or her certified job and less than $50,000.12 Under the 2014 provisions, a group of
workers must request consideration for ATAA in addition to eligibility for regular TAA benefits.13
The age requirements are the same under the 2011 RTAA and 2014 ATAA provisions. Several
other eligibility criteria are different. Under ATAA, a worker must secure reemployment within
26 weeks of separation from the worker’s TAA-certified job. Under RTAA, there was no time
limit for securing reemployment. To be eligible for ATAA benefits, a worker must be reemployed
on a full-time basis and may not receive TAA-funded training. Under RTAA, an eligible worker
had the additional option of receiving wage insurance benefits while being reemployed on a part-
time basis and being enrolled in a TAA-approved training program.


11 19 U.S.C. 2291(c) defines three waiver requirements: (1) a worker is unable to participate in training due to health
reasons, (2) suitable training is not available, or (3) enrollment in training is not available within 60 days.
12 See 19 U.S.C. 2318.
13 See 19 U.S.C. 2318(a)(3) for more information on group eligibility.
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Table 1. TAA Group Certification Requirements in Effect During Different Time
Periods Under the Provisions Adopted in the
Trade Adjustment Assistance Extension Act of 2011
Eligibility Requirements from October 21, 2011,
Eligibility Requirements Effective from January 1,
to December 31, 2013 (“2011 Provisions”)
2014, to December 31, 2014 (“2014 Provisions”)
In All Cases

A significant number or proportion of workers at a
A significant number or proportion of workers at a
production or service firm have become totally or partially
production firm have become total y or partial y separated.
separated.
Workers Adversely Affected by an Increase in Imports
The sales or production of the firm decreased; and
The sales or production of the firm decreased; and
There has been an increase in imports of either (1)
There has been an increase of imports of articles directly
articles or services directly competitive with the firm’s
competitive with articles the petitioning firm produces,
articles or services, or (2) articles that are competitive
and
with articles in which the firm’s products or services are
component parts; and
The increased imports have contributed importantly to
the decline in sales or production and the workers’
The increased imports have contributed importantly to
separation.
the decline in sales or production and the workers’
separation.
Workers Adversely Affected by a Shift in Production
The petitioning workers’ firm has shifted the production of The petitioning workers’ firm has shifted production of
articles or services directly competitive with those
articles directly competitive with those produced by the
produced by the petitioning workers to any foreign
petitioning workers to a foreign country with which the
country.
United States has a free trade agreement.a

Adversely Affected Secondary Workers
The workers’ firm is a supplier or downstream producer
The workers’ firm is a supplier or downstream producer
to a TAA-certified firm; and
to a TAA-certified firm; and
Either (1) the TAA-certified firm accounted for at least
Either (1) the TAA-certified firm accounted for at least
20% of the sales or production of the petitioning firm, or
20% of the sales or production of the petitioning firm or
(2) the loss of sales to the TAA-certified firm
(2) the loss of business with the TAA-certified firm
contributed importantly to the petitioning workers’ job
contributed importantly to the petitioning workers’ job
losses.
losses.
Wage Insurance Program for Workers Age 50 and over
Group application for TAA also functions as an
TAA applicants must request consideration for
application for Reemployment Trade Adjustment
Alternative Trade Adjustment Assistance.
Assistance.
Source: CRS analysis of P.L. 112-40 and P.L. 107-210.
a. Workers who are separated as a result of shifts in production to countries that are beneficiaries under
certain other trade agreements may also be eligible for TAA benefits. See 19 U.S.C. 2272(a)(2)(B)(i )(II).
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Benefits
TAA benefits include training subsidies and income support for workers who have exhausted their
UI benefits and are enrolled in training. Workers age 50 and over may participate in a wage
insurance program.
Workers are entitled to a set of benefits and services based on the effective provisions under
which the petition that covers them was certified. For example, a worker who is covered by a
petition that was certified under the 2011 provisions would still be able to receive the benefits
specified in the 2011 provisions even if the worker did not receive benefits until after the 2014
provisions had taken effect. Table 2 at the end of this section compares benefits and services
available to workers who are covered by petitions certified under the 2011 and 2014 provisions.
Due to the two-year period that a certification remains active and the length of the time that a
worker may receive TAA benefits and services, workers certified under pre-2011 provisions may
also currently be eligible for other sets of benefits authorized by previous TAA provisions.14
Reemployment Services
TAA-certified workers are eligible for training assistance as well as other employment services.
Total appropriations for TAA reemployment services and related administration in FY2014 were
$306.3 million. Due to the timing of transition from the 2011 provisions to the 2014 provisions,
FY2014 appropriations contained partial-year funding for both sets of provisions.15
Training Assistance
Eligible workers request training assistance through their local One-Stop Career Centers (also
known as American Job Centers).16 Once approved, training can be paid on the worker’s behalf
directly to the service provider or through a voucher system. To receive funding, the worker must
be qualified to undertake the requested training, the training must be available at a reasonable
cost, and there must be a reasonable expectation of employment following the completion of
training.17

14 In December 2013, DOL issued Training and Employment Guidance Letters (TEGL) No. 7-13, which provided
guidance to state agencies on providing services to workers who were covered by petitions certified under the 2011 and
2014 provisions as well as workers who were covered by petitions that were certified under prior iterations of TAA that
had been enacted in 2002 and 2009. A summary of the 2002, 2009, 2011, and 2014 provisions is available from DOL at
http://www.doleta.gov/tradeact/pdf/side-by-side.pdf.
15 A detailed description of the allotment of funds under each set of provisions is in Training and Employment
Guidance Letter (TEGL) No. 12-13, available at http://wdr.doleta.gov/directives/attach/TEGL/TEGL_12_13.pdf.
16 In addition to TAA, One-Stop Career Centers administer other employment-related programs. There are
approximately 3,000 One-Stop Centers nationwide. For more information on One-Stop Centers, see CRS Report
R41135, The Workforce Investment Act and the One-Stop Delivery System, by David H. Bradley.
17 “Reasonable cost” considers the cost of similar training from a different provider and the cost of training relative to
the expected employment outcome. See 19 U.S.C. 2296(a)(1) for legislative language and 20 CFR 617.22 for expanded
definitions of terms.
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The range of approved training includes a variety of governmental and private programs.18 There
is no federal limit on the amount of training funding an individual can receive, though some states
have a cap.
Due to the range of acceptable activities and the decentralized nature of job training, a concise
summation of TAA training programs is difficult. Data from DOL and partner researchers,
however, offer some insight into the nature and duration of TAA-sponsored training programs. In
FY2012, approximately 92% of TAA training participants received what DOL describes as
occupational skills training: training in a specific occupation, typically provided in a classroom
setting. The remainder of training was classified as remedial, prerequisite, on-the-job, or other
customized training. Among the 73% of training participants who completed a program, the
average duration of training was 509 days.19
DOL does not require the states to track the type of institutions that provide training to TAA
participants.20 Some data exist on this topic, however, from a 2012 report by Mathematica Policy
Research that was commissioned by DOL.21 The study found that, among participants who
enrolled in occupational skills programs, training was provided by a community or two-year
college in 55% of cases and a vocational training center in 23% of cases. Other providers
included private companies and four-year colleges or universities. The same study found that the
average cost of TAA-sponsored occupational training was approximately $8,500, though
programs varied considerably, with 41% of programs costing less than $5,000 and 31% costing
more than $10,000.22
TAA does not require training programs to lead to a degree or other credential. In its FY2012
annual report, DOL reported that 67% of workers who completed training earned a credential.23
The 2011 and 2014 provisions are similar in the types of training they approve. The funding of
training under each set of provisions is somewhat different. Under the 2014 provisions, training
subsidies receive a dedicated appropriation that only supports training activities. Under the 2011
provisions, training was funded out of a reemployment services fund that also funded
employment services and job search and relocation assistance (discussed below).

18 Eligible programs include (but are not limited to) employer-based training, any training program provided by a state
under Title I of the Workforce Investment Act of 1998, any program of remedial education, any program of
prerequisite education or coursework required to enroll in an approved training program, any training program or
coursework at an accredited institution of higher education, or any other training program approved by the Secretary of
Labor. See 19 U.S.C. 2296(a)(5) for legislative language.
19 U.S. Department of Labor, “Trade Adjustment Assistance for Workers: Fiscal Year 2012 Report to the Committee on
Finance of the Senate and Committee on Ways and Means of the House of Representatives,” p. 29,
http://www.doleta.gov/tradeact/docs/AnnualReport12.pdf.
20 The 2009 Trade Activity Participant Report Handbook from DOL outlined reporting requirements for state agencies.
It requires data collection on the type, duration, and cost of training, as well as if participants earned a credential.
21 The data for this study were collected in 2008 and 2009. Respondents were covered by the Trade Act of 2002
provisions of TAA. As such, the findings may not be comparable to the data in recent DOL reports or generalizable to
the current provisions of TAA.
22 Characteristics of Trainees and Training Programs in the Trade Adjustment Assistance (TAA) Program Under the
2002 Amendments. Mathematica Policy Research, August 2012, Table 13 and Table 14, http://wdr.doleta.gov/research/
FullText_Documents/ETAOP_2013_15.pdf.
23 U.S. Department of Labor, “Trade Adjustment Assistance for Workers: Fiscal Year 2012 Report to the Committee on
Finance of the Senate and Committee on Ways and Means of the House of Representatives,” p. 29,
http://www.doleta.gov/tradeact/docs/AnnualReport12.pdf.
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Employment Services
The 2014 provisions specify DOL should “make every reasonable effort” to provide counseling,
placement, and other services to TAA-certified workers. The 2014 provisions do not, however,
provide funding for these services, noting that states may use other federal workforce funding,
such as funding under the Workforce Investment Act.
The 2011 provisions specify a series of case management and employment services to which all
TAA-certified workers are entitled. These services include a comprehensive assessment of the
worker’s skills and needs, assistance in developing an individual employment objective and
identifying the training and services necessary to achieve that goal, and guidance on training and
other services for which the worker may be eligible.24 Under the 2011 provisions, states were
required to use at least 5% of their reemployment services allotments for case management and
employment services.
Job Search and Relocation Allowances
Both the 2011 and 2014 provisions authorize funding for job search and relocation allowances.25
This program targets workers who are unable to obtain suitable employment within their
commuting areas. Certified workers can receive an allowance equal to 90% of each of their job
search and relocation expenses, up to a maximum of $1,250 for each benefit.26
• A Job Search Allowance may be available to subsidize transportation and
subsistence costs related to job search activities outside an eligible worker’s local
commuting area. Subsistence payments may not exceed 50% of the federal per
diem rate and travel payments may not exceed the prevailing mileage rate
authorized under federal travel regulations.
• A Relocation Allowance may be available to workers who have secured
permanent employment outside their local commuting area. The benefit covers
90% of the reasonable and necessary expenses of moving the workers, their
families, and their household items. Relocating workers may also be eligible for a
lump sum payment of up to three times their weekly wage, though the total
relocation benefit may not exceed $1,250.
Trade Readjustment Allowance
Trade Readjustment Allowance (TRA) is an entitlement that provides income support to certified
workers who are in approved training and whose UI benefits have been exhausted. It is funded by
the federal government and administered by the states through their unemployment insurance
systems.

24 Full requirements are outlined in Section 1826 of P.L. 111-5.
25 Under the 2011 provisions, funding for these benefits is part of the broader reemployment services fund. Under the
2014 provisions, these benefits received a final appropriation of $3.9 million in dedicated funding in FY2014.
26 Job search and relocation allowance benefits are subject to certain time restrictions relative to workers’ certification
and separation. See 20 C.F.R. 617.31(c) and 20 C.F.R. 617.41(c) for details.
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TRA benefit levels are equal to the worker’s final UI benefit. UI benefit levels are based on
earnings during a base period of employment (typically, the first four of the last five completed
calendar quarters). UI benefits typically replace 50% of a worker’s wages up to a statewide
maximum. Since states each administer their own UI programs, there is some variation in
calculations in benefit levels. In July 2013, the highest maximum weekly UI benefit for a worker
with no dependents was $674 in Massachusetts and the lowest was $240 in Arizona.27
There are three stages of TRA:
• Basic TRA. The weekly basic TRA payment begins the week after a worker’s UI
eligibility expires. To receive the basic TRA benefit, workers must be enrolled or
participating in TAA-approved training, have completed such training, or have
obtained a waiver from the training requirement.28 The total amount of basic
TRA benefits available to a worker is equal to 52 times the weekly TRA benefit
minus the total amount of UI benefits. For example, assuming a constant benefit
level, a worker who received 39 weeks of UI benefits would be eligible for 13
weeks of basic TRA. In cases where a worker is entitled to UI for 52 or more
weeks, UI benefits may offset the entirety of basic TRA.
• Additional TRA. After basic TRA has been exhausted, workers who are enrolled
in a TAA-approved training program are eligible for an additional 65 weeks of
income support for a total of 117 weeks of benefits. As is the case with basic
TRA, UI benefits (including any benefit extensions) also offset additional TRA.
Additional TRA is limited to workers who are enrolled in a training program;
workers who have received a training waiver are not eligible for additional TRA.
• Completion TRA. In cases where a worker has collected 117 weeks of combined
TRA and UI and is still enrolled in a training program that leads to a degree or
industry-recognized credential, the worker may collect TRA for up to 13
additional weeks (130 weeks total), if the worker will complete the training
program during that time.
TAA participants may only collect additional TRA as long as they remain enrolled in a qualified
training program. In cases where a worker’s training program is shorter than the maximum TRA
duration, the worker is not entitled to the maximum number of TRA weeks.
The 2011 and 2014 provisions of TAA provide the same level and duration of TRA benefits. The
timeline for enrolling in training, however, is narrower under the 2014 provisions. To be eligible
for TRA under the 2014 provisions, a worker must enroll in training within 8 weeks of
certification or within 16 weeks of layoff, whichever is later. Under the 2011 provisions, a worker
must have enrolled in training within 26 weeks of either certification or layoff, whichever is later.

27 For a more detailed discussion of UI calculations and programs, see CRS Report RL33362, Unemployment
Insurance: Programs and Benefits, by Julie M. Whittaker and Katelin P. Isaacs.
28 A worker may obtain a training waiver if (1) a worker is unable to participate in training due to a health condition,
(2) enrollment in a training program is not available within 60 days, or (3) no suitable training is available. Workers
who receive a training waiver may only collect Basic TRA.
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Alternative Trade Adjustment Assistance
Alternative Trade Adjustment Assistance (ATAA) is an entitlement that provides a wage
supplement for workers age 50 and over who are certified for TAA benefits and pursue
reemployment at a lower wage. The program provides a cash payment to an eligible worker equal
to 50% of the difference between the worker’s old wage and new wage. The maximum benefit is
$10,000 over a two-year period.
The age requirement, benefit calculation, and maximum benefit are the same under the 2011 and
2014 provisions. Under the 2011 provisions, the wage insurance program is known as
Reemployment Trade Adjustment Assistance (RTAA) and there are several differences between
the ATAA and RTAA programs. Under ATAA, workers must secure full-time reemployment
within 26 weeks of separation from their TAA-certified job. Under RTAA, workers who are
reemployed at least 20 hours per week are eligible for the program and there is no time limit on
securing reemployment. Under ATAA, workers who receive ATAA payments may not participate
in TAA-funded training. Under RTAA, workers who are reemployed on a part-time basis may
participate in TAA-funded training while receiving RTAA payments.
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Table 2. TAA Benefits in Effect During Different Time Periods Under the Provisions
Adopted in the Trade Adjustment Assistance Extension Act of 2011
Funding Under 2011 Provisions
Funding under 2014 Provisions
Funding for all reemployment services, including
Each reemployment service is funded discretely. Funding
administration, is capped by statute at $575 million per
for training is capped by statute at $220 million.
year.
Congress may appropriate additional funds for case
management, administration, and job search and
Funding for Trade Readjustment Al owance is uncapped
relocation al owances.
for qualified individuals.
Funding for Trade Readjustment Al owance is uncapped
for qualified individuals.
Benefits for Workers Certified Under 2011
Benefits for Workers Certified under 2014
Provisions
Provisions
Reemployment Services

Training may be approved on a ful -time or part-time
Training may only be approved on a ful -time basis.
basis, although full-time training is required for TRA
eligibility.
States must make every reasonable effort to provide
TAA-certified workers with case management and
Case management is funded out of TAA reemployment
employment services, though TAA legislation does not
services funding.
provide funds for this purpose.
Job Search and Relocation Allowances

For each benefit, states may provide a cash payment
For each benefit, states may provide a cash payment
equal to 90% of al owable costs, up to a maximum
equal to 90% of al owable costs, up to a maximum
benefit of $1,250.
benefit of $1,250.
Benefits are funded out of each state’s reemployment
States may receive dedicated funding for these benefits.
services allotment.
Trade Readjustment Allowance (TRA)a

Up to 117 weeks of cash payments for all workers
Up to 117 weeks of cash payments for all workers
concurrently enrol ed in full-time training; it can be
concurrently enrol ed in full-time training; it can be
extended to a total of 130 weeks under certain
extended to a total of 130 weeks under certain
circumstances.
circumstances.

Worker must be enrol ed in training 26 weeks after
Worker must be enrol ed in training 8 weeks after
certification or layoff, whichever is later, to receive TRA.
certification or 16 weeks after layoff, whichever is later,
to receive TRA.
Alternative Trade Adjustment Assistance Wage Insurance
Available to workers age 50 or older and earning less
Available to workers age 50 or older and earning less
than $50,000 per year in reemployment.
than $50,000 per year in reemployment.
Provides a wage supplement equal to 50% of the
Provides a wage supplement equal to 50% of the
difference between a worker’s reemployment wage and
difference between a worker’s reemployment wage and
wage at the worker’s certified job with a maximum
wage at the worker’s certified job with a maximum
benefit of $10,000 over a period of up to two years.
benefit of $10,000 over a period of up to two years.
Source: CRS analysis of P.L. 112-40 and P.L. 107-210.
Notes: The group of benefits for which a worker is eligible is determined by the provisions in effect when the
petition that covers the worker was filed, not the provisions that are in effect when the worker receives
benefits. In FY2014 training funding was prorated under the 2011 and 2014 provisions.
a. TRA benefits are offset by unemployment insurance (UI) benefits and a worker may not begin to col ect
TRA until the worker has exhausted UI. Maximum durations refer to combined weeks of UI and TRA.
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Financing and Administration
TAA for Workers is funded by the federal government and administered jointly by the federal
government and the states. Group eligibility is determined by DOL and individual benefits are
administered by cooperating state agencies.
In FY2014, funding for training and other reemployment services was $306.3 million. This
funding included prorated funds under both the 2011 and 2014 provisions.29 Funds for training
and other reemployment services are allotted to the states by formula. The allotment formula
considers30
• the weighted average of certified workers in the state during the past four
quarters, with the greatest weight on the most recent quarter;
• the weighted average of workers participating in training during the previous four
quarters, with the greatest weight on the most recent quarter;
• the number of workers estimated to be participating in training during the
forthcoming fiscal year as determined by the previous factor and DOL estimates;
and
• the amount of funding estimated to be necessary to provide approved training as
determined by per-trainee expenditures in the past four quarters.
At the beginning of the fiscal year, 65% of the year’s reemployment service funds are distributed
to the states using the formula. The remaining 35% is held in a reserve fund. States with
emergencies or unforeseen training burdens may apply for these reserve funds. Any reserve funds
that are not allocated through the emergency funding process are allocated to the states using the
original formula throughout the fiscal year.31 Regulations specify that no state’s initial allocation
may be less than 25% of its allocation in the preceding fiscal year.32
The TRA income support and ATAA wage insurance program are uncapped entitlements that are
funded by the federal government and administered by state unemployment offices. Annual
congressional appropriations for these programs typically reflect the request in the President’s
budget. Any funds from these allocations that are unobligated at the end of the fiscal year expire
and are returned to the Treasury.

29 A detailed description DOL’s treatment of the FY2014 appropriation is DOL Training and Employment Guidance
Letter (TEGL) No. 12-13, available at http://wdr.doleta.gov/directives/attach/TEGL/TEGL_12_13.pdf.
30 This is the formula process as specified in 19 U.S.C. 2296 and subsequently clarified in several Training and
Employment Guidance Letters, including TEGL No. 12-13 referenced in the prior footnote.
31 See 20 C.F.R. 618.900-930. At least 90% of the funds must be distributed by July 15. The remaining 10% can be
distributed at any point during the remainder of the fiscal year.
32 See 20 C.F.R. 618.910(c).
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Certification and Participation Data
This section presents certification and participation data for TAA through FY2012. The data begin
in FY2003 to correspond with the changes made to TAA by the Trade Act of 2002.33
Eligibility requirements and benefit levels are determined by the TAA provisions in effect on the
date on which the petition that covers the individual was filed. A summary of dates and
corresponding provisions that determine benefits is in Table 3.
Since a worker’s benefits are determined by the provisions that were in place when the petition
covering the worker was filed and not when the worker actually receives the benefits, workers
participating in TAA at the same time may be covered by different provisions. For example, in its
FY2012 annual report, DOL noted that program participants in that year included individuals
covered under the TAAEA, TGAAA, and Trade Act of 2002 provisions. As such, while variations
in policy should be considered when interpreting the data, it is not possible to easily identify
which program provisions align with program data from recent years.
Table 3. Applicable Periods of Trade Adjustment Assistance Legislation
Law
Applies to Petitions Filed
Trade Act of 2002 (P.L. 107-210,
November 4, 2002, through May 18, 2009, or
“2002 provisions”)
February 15, 2011, through October 20, 2011a
Trade and Globalization Adjustment
May 18, 2009, through February 14, 2011
Assistance Act of 2009 (TGAAA;
part of the American Recovery and
Reinvestment Act; P.L. 111-5, “2009
provisions”)
Trade Adjustment Assistance
October 21, 2011, through December 31, 2013 (“2011
Extension Act of 2011 (TAAEA; Title provisions”), or
II of P.L. 112-40)
January 1, 2014, through December 31, 2014 (“2014
provisions”)
Source: CRS analysis of relevant statutes and DOL summary at http://www.doleta.gov/tradeact/statutesregs.cfm.
a. Petitions that were filed during this period and denied were automatical y reconsidered under the 2014
provisions of TAAEA.
Applications and Certification Activity
Table 4 presents data on TAA petitions and certifications from FY2003 to FY2012. In some
cases, a petition may be filed in one year and be determined in the subsequent year. For example,
the large increase in petitions filed in FY2009 created a backlog and many of the petitions were
not determined until FY2010. The reduction of the backlog in FY2010 explains why the number
of petitions certified in FY2010 exceeds the number of petitions filed. The filing and
determination of petitions in different years also means that it is not possible to calculate the

33 The provisions of the Trade Act of 2002 first applied to TAA petitions filed on or after November 2, 2002.
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certification rate in a fiscal year by dividing the number of certified petitions by the number of
filed petitions.
In FY2012, DOL certified 1,134 petitions. Among these petitions certified in FY2012, 619 (or
55%) were from production firms. These firms accounted for 71% of the workers certified for
TAA during the fiscal year. The remaining 45% of certified petitions and 29% of certified
workers were from service firms.34
Petitions certified in FY2012 covered approximately 81,500 workers. This was the lowest number
of newly certified workers in a fiscal year since at least FY2003 and was less than a third of the
287,000 workers who were certified in FY2010.
Table 4. Petitions and Certifications, FY2003-FY2012
Petitions
Estimated Certified
Fiscal Year
Petitions Filed
Certified
Workers
2003 3,567 1,894 197,748
2004 2,992 1,812 149,705
2005 2,644 1,561 118,022
2006 2,465 1,444 119,602
2007 2,272 1,444 146,838
2008 2,224 1,471 126,633
2009 4,889 1,888 201,774
2010 2,543 2,809 287,026
2011a 1,358 1,205 104,743
2012 1,439 1,134 81,510
Source: Data from 2010 to 2012 are from the 2012 TAA Annual report, available at http://www.doleta.gov/
tradeact/docs/AnnualReport12.pdf. Data from 2003 to 2009 are from the U.S. Department of Labor and were
published in table 6-1 of the 2011 Ways and Means Committee Green Book at
http://greenbook.waysandmeans.house.gov/2011-41.
Note: Petitions filed during one fiscal year may not be determined until the subsequent fiscal year. As such, it is
not possible to determine the portion of petitions that were certified in a given year by dividing the number of
certified petitions by the number of filed petitions.
a. Data from 2011 include petitions that were initial y denied but then reconsidered under the expanded
provisions of TAAEA.
Participation Data
Not all workers who are covered by a certified TAA petition choose to pursue benefits under the
program. Certified workers may pursue reemployment without assistance from the program,
retire, or simply not pursue benefits.

34 Full data are available in Tables 2-5 of the FY2012 TAA Annual Report at http://www.doleta.gov/tradeact/docs/
AnnualReport12.pdf.
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Table 5 presents data on the number of workers who enrolled in training or received an initial
TRA payment by fiscal year. Since workers can be enrolled in training and receive TRA for more
than one year, the number of workers receiving benefits in a year may be greater than the number
of new participants listed in the table.
Benefit usage in a particular fiscal year can be influenced by a number of factors.
• TAA policy varied throughout the period covered in Table 5. Varied eligibility
and benefit provisions likely impacted certifications and subsequent benefit
usage. For example, the year with the highest number of new training participants
is FY2009, which coincides with the expanded eligibility and benefits under the
2009 provisions of TAA.
• Non-TAA policy provisions may influence the use of TAA benefits. For example,
during the FY2009-FY2012 period, Congress had enacted unemployment
insurance extensions. Since TRA benefits are offset by UI, demand for TRA was
reduced during this period.
• Economic conditions may affect certified workers’ decisions to pursue training
and other benefits. For example, during a period of low unemployment, a worker
covered by a certified TAA petition may forego training benefits and pursue
immediate reemployment.
Table 5 does not provide data on the number of TAA-certified workers who received non-training
employment services such as case management and career counseling. Under the 2009 and 2011
provisions, these services were an entitlement for certified workers and funding for these services
was included in states’ allotments for reemployment services. Under the 2002 and 2014
provisions, states must make every reasonable effort to provide these services, but did not receive
dedicated funding to provide them.
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Table 5. Trade Adjustment Assistance Participation, FY2003-FY2014
Training
Trade Readjustment Allowance
Fiscal Year
New
Funding
New
Outlays
Participants
(in millions)a
Participants
(in millions)b
2003 43,672 $259
44,000 $352
2004 50,929 $259
81,000 $528
2005 38,207 $259
55,000 $589
2006 37,426 $259
53,000 $514
2007 49,339 $260
47,000 $540
2008 38,189 $260
42,000 $523
2009 58,190 $685
11,111 $128
2010 46,552 $685
14,711 $94
2011 23,493 $425c 18,524 $207
2012 13,041 $575
13,343 $213
2013 n/a
$534d n/a n/a
2014 n/a
$306e n/a n/a
Sources: FY2003-FY2013 training funding data are from DOL budget justifications. FY2014 training funding data
are from TEGL 12-13. FY2010-FY2012 data on new training participants and new TRA participants were
obtained on the DOL website in February 2014 at http://www.doleta.gov/tradeact. Participation data prior to
FY2010 are from the Ways and Means Committee Green Book at http://greenbook.waysandmeans.house.gov/
2012-green-book/chapter-6-trade-adjustment-assistance/additional-tables-and-figures. TRA outlay data were
obtained directly from DOL.
Note: FY2013 participation data and TRA outlays were not available at the time of publication.
a. Training funds reflect annual appropriations and include any additional funds that were appropriated for
administration, case management, or job search and relocation allowances.
b. Outlays include TRA benefits actual y paid and may be lower than the estimated TRA funds appropriated.
c. FY2011 funding data include three disbursements to the states under three separate authorizations: $143.8
million for the final three months of the TGAAA authorization; $66.5 million for the extension of TGAAA-
level funding through February 12; and $138.6 million for the remainder of the year (prorated amount of
the $220 million statutory limit when the program reverted back to the levels set by the Trade Act of
2002.) Supplementary funds for administration, case management, and job search and relocation al owances
increased funding to $425 million.
d. FY2013 funding is final appropriation after sequestration.
e. FY2014 funding includes prorated funding under both the 2011 and 2014 provisions of TAA. Funding level in
table is final appropriation after sequestration. For more information, see the “FY2014 Appropriations”
section earlier in this report.
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Post-TAA Outcome Data for Program Exiters
Table 6 presents data on post-TAA outcomes for program exiters using DOL’s Common
Measures, a metric that DOL uses across its workforce programs.35 In the table, entered
employment rate (EER) refers to the percentage of workers who were employed in the quarter
after program exit. The employment retention rate (ERR) is the share of these employed workers
who were also employed in the second and third quarters after exit. Average earnings (AE) are
recorded in the second and third quarters after exit among workers who were employed in the
first quarter after exit.
Table 6. Employment Outcomes for TAA Exiters, FY2009-FY2012
Entered Employment
Employment Retention
Average Six-Month
Year
Rate (EER)
Rate (ERR)
Earnings (AE)
2009 69% 88%
$15,117
2010 58% 87%
$14,906
2011 66% 90%
$18,184
2012 69% 91%
$18,966
Source: U.S. Department of Labor, FY2009, FY2010, FY2011, and FY2012 TAA annual reports, available at
http://www.doleta.gov/tradeact/.
Notes: DOL implemented changes to reference periods in FY2010 and data from prior years may not be strictly
comparable. See annual reports for specific details.
EER data are for all exiting workers. TAA classifies a program participant as an exiter once 90
days have passed since the worker received services or case management. DOL does not
disaggregate its outcome data by which provisions of TAA an exiter received benefits under. As
such, it is not possible to compare the employment outcomes of beneficiaries under different
provisions (e.g., 2002 provisions vs. 2011 provisions)
In FY2012, DOL reported that the EERs for TAA exiters who participated in training or received
a credential were higher than the overall average rate for the TAA program listed in Table 6.
Among workers who participated in training, the EER was 74% and among workers who earned
an industry-recognized credential from training, the EER was 79%. The EER for TAA
participants who did not participate in training was 61%.
Impact Analysis
While outcome data can offer some insights on participants’ post-participation activities, such
data offer a limited perspective on the impact of TAA benefits and services. For example, while
the data in the previous section shows that 69% of program exiters in FY2012 met the “entered
employment” criteria, we do not know how many of the same workers would have entered
employment if TAA were not available and the workers either (1) simply sought reemployment

35 In addition to these common measures, DOL also reports TAA participants’ outcomes using “Trade Act Measures,”
a series of metrics that are similar to common measures but use somewhat different reference periods. All data
discussed in this report are common measures.
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with no government intervention or (2) utilized other employment and training programs that are
available to all unemployed workers. As such, it is not possible to use outcome data to easily
estimate the impact of or value added by TAA participation.
To estimate the impact of TAA, DOL commissioned a series of studies to estimate the short and
medium-term impact of the TAA for Workers program. These studies were released throughout
2012 and considered a cohort of TAA-eligible workers who were laid off between November 1,
2005, and October 31, 2006. Since TAA is an entitlement program for certified workers, the
studies were not able to use a random assignment methodology in which some TAA-eligible
workers receive services while others do not. Instead, the studies compared TAA participants to a
comparison group of UI claimants with similar observable characteristics such as age, race,
education, employment history, and prior earnings.36
The study compared the employment status and earnings of TAA participants and the comparison
group for 16 quarters (48 months) after initial job loss. It found that early in the reference period,
TAA participants were more likely to participate in training, less likely to be employed, and had
lower earnings than the comparison group. This is an expected finding since TAA generally
emphasizes training over immediate reemployment. In the 16th quarter, the study found that TAA
participants’ employment rate and earnings were both statistically significantly lower than the
constructed comparison group.37
The study offered a number of caveats with regard to these findings and their generalizability.
Among these were that a four-year follow up period may be insufficient to fully evaluate the
returns to TAA-funded training and that, while the study compared TAA participants to UI
claimants with similar observable characteristics, it is possible that there were unobservable
differences between the groups that influenced employment and earnings outcomes. The analysis
also noted that, due to the timing of the study, many TAA participants who participated in training
returned to the labor market during an economic recession, whereas many members of the
comparison group (which spent less time in training) returned to the labor market before the
recession.
When considering the generalizability of the study, it is also worthwhile to note that the
populations considered in the studies were eligible under and received benefits according to the
2002 provisions of TAA. These provisions, while similar to current law, were decidedly different
from the eligibility and benefit provisions that were in place under 2009 and 2011 versions of the
program.

36 Mathematica Policy Research and Social Policy Research Associates, Estimated Impacts for Participants in the
Trade Adjustment Assistance (TAA) Program Under the 2002 Amendments, available at http://wdr.doleta.gov/research/
FullText_Documents/ETAOP_2013_10_Participant_Impact_Report.pdf. Full details on the selection of the comparison
group are available in section II.2. A comparison of characteristics is available in table II-5.
37 Difference in employment rate was statistically significant at the 90% level of confidence. Difference in earnings was
statistically significant at the 99% level of confidence. See tables VII-2 and VII-3 in the report referenced in the prior
footnote.
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Appendix. Legislative History38
TAA was formally established by the Trade Expansion Act of 1962 (P.L. 87-794) but was little
used until the Trade Act of 1974 (P.L. 93-618) expanded benefits and eligibility. Except for a
lapse between December 1985 and March 1986, a variety of legislative vehicles kept TAA
authorized through the end of FY2001. Authorization then lapsed for 11 months, but the program
remained funded through appropriations.
The Trade Act of 2002 (P.L. 107-210) reauthorized TAA, expanded benefits, and established a
wage insurance program for older workers. Authorization expired on December 31, 2007, but the
Consolidated Appropriations Act of 2008 (P.L. 110-161) funded TAA for FY2008. The
Consolidated Security, Disaster Assistance, and Continuing Appropriations Act, 2009 (P.L. 110-
329) funded TAA through March 6, 2009, and specified that the programs would continue
through that date.
The Trade and Globalization Adjustment Assistance Act of 2009 (TGAAA), part of the American
Recovery and Reinvestment Act (ARRA, P.L. 111-5), was signed on February 17, 2009. TGAAA
reauthorized TAA and temporarily expanded both eligibility and benefit levels.
Authorization for the TGAAA changes was set to expire on December 31, 2010, but the Omnibus
Trade Act of 2010 (P.L. 111-344) extended them through February 12, 2011.39 After that date,
TAA reverted back to the pre-expansion provisions that were in place prior to TGAAA and
defined by the Trade Act of 2002.
2011 Reauthorization
TAA operated under the pre-expansion provisions until October 21, 2011, when the Trade
Adjustment Assistance Extension Act of 2011 (TAAEA; Title II of P.L. 112-40) was signed into
law. TAAEA reauthorized TAA through December 31, 2014, and expanded eligibility and benefits
to near-TGAAA levels through December 31, 2013. The law was retroactive and groups who
were denied certification under the prior provisions were automatically reconsidered under the
provisions enacted by TAAEA. Groups who were certified under the prior provisions were
eligible to reapply under the new expanded benefit provisions.
The expanded provisions of the TAAEA expired after December 31, 2013, and eligibility criteria
and benefit levels largely reverted to the levels set by the Trade Act of 2002. These provisions
will remain in place for one year before authorization of appropriations for the TAA for workers
program expires after December 31, 2014.


38 A more detailed legislative history is available in archived CRS Report R41922, Trade Adjustment Assistance (TAA)
and Its Role in U.S. Trade Policy.
39 Because February 12, 2011, was a Saturday, DOL considered applications filed through February 14, 2011, under the
TGAAA provisions.
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Author Contact Information

Benjamin Collins

Analyst in Labor Policy
bcollins@crs.loc.gov, 7-7382


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