The Workforce Innovation and Opportunity
Act and the One-Stop Delivery System
Updated September 26, 2022
Congressional Research Service
https://crsreports.congress.gov
R44252

The Workforce Innovation and Opportunity Act and the One-Stop Delivery System

Summary
The Workforce Innovation and Opportunity Act (WIOA; P.L. 113-128), which succeeded the
Workforce Investment Act of 1998 (P.L. 105-220) as the primary federal workforce development
law, was enacted in July 2014 to bring about increased coordination among federal workforce
development and related programs. Most of WIOA’s provisions went into effect July 1, 2015.
WIOA authorizes appropriations for each of FY2015 through FY2020 to carry out the programs
and activities authorized in the legislation. Authorization of appropriations for WIOA programs
and activities expired after FY2020 but was extended through the annual appropriations process,
most recently for FY2022 by the Consolidated Appropriations Act, 2022 (P.L. 117-103).
Workforce development programs provide a combination of education and training services to
prepare individuals for work and to help them improve their prospects in the labor market. They
may include activities such as job search assistance, career counseling, occupational skill training,
classroom training, or on-the-job training. The federal government provides workforce
development activities through WIOA’s programs and other programs designed to increase the
employment and earnings of workers.
WIOA includes five titles: Workforce Development Activities (Title I), Adult Education and
Literacy (Title II), Amendments to the Wagner-Peyser Act (Title III), Amendments to the
Rehabilitation Act of 1973 (Title IV), and General Provisions (Title V). Title I, whose programs
are primarily administered through the Employment and Training Administration (ETA) of the
U.S. Department of Labor (DOL), includes three state formula grant programs, multiple national
programs, and Job Corps. Title II, whose programs are administered by the U.S. Department of
Education (ED), includes a state formula grant program and National Leadership activities. Title
III amends the Wagner-Peyser Act of 1933, which authorizes the Employment Service (ES). Title
IV amends the Rehabilitation Act of 1973, which authorizes vocational rehabilitation services to
individuals with disabilities. Title V includes provisions for the administration of WIOA.
The WIOA system provides central points of service via its system of around 3,000 One-Stop
centers nationwide, through which state and local WIOA employment and training activities are
provided and certain partner programs must be coordinated. This system is supposed to provide
employment and training services that are responsive to the demands of local area employers.
Administration of the One-Stop system occurs through Workforce Development Boards (WDBs),
a majority of whose members must be representatives of business and which are authorized to
determine the mix of service provision, eligible providers, and types of training programs, among
other decisions. WIOA provides universal access (i.e., an adult age 18 or older does not need to
meet any qualifying characteristics) to its career services, including a priority of service for low-
income adults. WIOA also requires Unified State Plans (USPs) that outline the workforce
strategies for the six core WIOA programs—adult, dislocated worker, and youth programs (Title I
of WIOA), the Adult Education and Family Literacy Act (AEFLA; Title II of WIOA), the
Employment Service program (amended by Title III of WIOA), and the Vocational Rehabilitation
State Grant Program (amended by Title IV of WIOA). WIOA adopts the same six “primary
indicators of performance” across most of the programs authorized in the law.
This report provides details of WIOA Title I state formula program structure, services, allotment
formulas, and performance accountability. In addition, it provides a program overview for
national grant programs. It also offers a brief overview of the Employment Service (ES), which is
authorized by separate legislation but is an integral part of the One-Stop system created by
WIOA.

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Introduction and Current Status
The Workforce Innovation and Opportunity Act (WIOA; P.L. 113-28), which succeeded the
Workforce Investment Act of 1998 (P.L. 105-220), is the primary federal legislation that supports
workforce development. WIOA was enacted to bring about increased coordination and alignment
among federal workforce development and related programs.
WIOA replaced WIA in the 113th Congress after passing the Senate on June 25, 2014, by a vote of
95-3 and the House on July 9, 2014, by a vote of 415-6, and being signed into law on July 22,
2014. Most of its provisions went into effect on July 1, 2015. P.L. 113-128 authorizes
appropriations for WIOA programs from FY2015 through FY2020. Authorization of
appropriations for WIOA programs and activities expired in FY2020 but was extended through
the annual appropriations process, mostly recently for FY2022 by the Consolidated
Appropriations Act, 2022 (P.L. 117-103).
In the 117th Congress, the House passed the Workforce Innovation and Opportunity Act of 2022
(H.R. 7309), which would reauthorize WIOA and authorize appropriations through FY2028.1
Following a description of the statute’s major titles and a brief history of federal workforce
development programs, this report provides a discussion of the provisions and characteristics of
WIOA Title I programs and services. Next, there is a description of the One-Stop delivery system
and Workforce Development Boards (WDBs), previously called Workforce Investment Boards
(WIBs). This section includes an overview of the Employment Service. The report then covers
the services provided by the state formula grant programs and the national programs authorized
under Title I of WIOA. The section on Title I concludes with a discussion of funding and
performance accountability. Appendix A provides a glossary of selected key terms in WIOA. The
tables in Appendix B provide appropriations for programs authorized under Titles I, II, III, and
IV of WIOA from FY2015 through FY2022.
Titles of WIOA Statute
WIOA includes five titles:
 Title I—Workforce Development Activities: authorizes job training and related
services to unemployed or underemployed individuals and establishes the
governance and performance accountability system for WIOA;
 Title II—Adult Education and Literacy: authorizes education services to assist
adults in improving their basic skills, completing secondary education, and
transitioning to postsecondary education;
 Title III—Amendments to the Wagner-Peyser Act: amends the Wagner-Peyser
Act of 1933 to integrate the U.S. Employment Service (ES) into the One-Stop
system authorized by WIOA;
 Title IV—Amendments to the Rehabilitation Act of 1973: authorizes
employment-related vocational rehabilitation services to individuals with
disabilities, to integrate vocational rehabilitation into the One-Stop system; and
 Title V—General Provisions: specifies transition provisions from WIA to WIOA.

1 For more information, see CRS Report R47099, Workforce Innovation and Opportunity Act of 2022 (H.R. 7309).
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Workforce development programs provide a combination of education and training services to
prepare individuals for work and to help them improve their prospects in the labor market. In the
broadest sense, workforce development efforts include secondary and postsecondary education,
on-the-job and employer-provided training, and the publicly funded system of job training and
employment services.2 This report focuses on the workforce development activities that the
federal government supports through WIOA, which are designed to increase the employment and
earnings of workers. This includes activities such as job search assistance, career counseling,
occupational skills training, classroom training, and on-the-job training.
The primary focus of this report is on Title I of WIOA, which authorizes programs to provide job
search, education, and training activities for individuals seeking to gain or improve their
employment prospects, and which establishes the One-Stop delivery system. In addition, Title I of
WIOA establishes the governing structure and the performance accountability for all programs
authorized under WIOA. The programs and services authorized under Title I are covered in detail
in this report, while the programs and services authorized under Titles II and IV are not discussed
in this report. Title III, which amends the Wagner-Peyser Act of 1933, is discussed briefly in this
report because of the integral role that the Employment Service (ES) plays in the One-Stop
system.
Title II of WIOA is the Adult Education and Family Literacy Act (AEFLA). AEFLA supports
educational services, primarily through grants to states, to help adults become literate in English
and develop other basic skills necessary for employment and postsecondary education, and to
become full partners in the education of their children.3
Title III amends the Wagner-Peyser Act of 1933, which authorizes the Employment Service (ES),
to make the ES an integral part of the One-Stop system as amended by WIOA. Because the ES is
a critical part of the One-Stop system, it is discussed briefly in this report even though it is
authorized by separate legislation.
Title IV of WIOA amends the Rehabilitation Act of 1973 and authorizes funding for vocational
rehabilitation services for individuals with disabilities. Most programs under the Rehabilitation
Act are related to the employment and independent living of individuals with disabilities.4
Brief History of Federal Workforce Development Programs
The first substantial federal training programs in the postwar period were enacted in the
Manpower Development Training Act (MDTA; P.L. 87-415) in 1962, although federal
“employment policy,” broadly defined, had its origin in New Deal era programs such as

2 It is possible to include numerous programs under the general label of “workforce development” or “job training.” For
example, a recent GAO study identified 43 employment and training programs administered across nine agencies with
a combined appropriation of $14.0 billion spent on employment and training activities (in FY2017). See U.S.
Government Accountability Office, Employment and Training Programs: Department of Labor Should Assess Efforts
to Coordinate Services Across Programs, GAO-19-200, March 2019, p. 12, https://www.gao.gov/assets/700/
698080.pdf. For many of the programs in the GAO study (e.g., Temporary Assistance for Needy Families), however,
the primary focus and the vast majority of funding are dedicated to activities other than training and employment.
3 For more detailed information on the Adult Education and Family Literacy Act, see CRS Report R43789, Adult
Education and Family Literacy Act: Major Statutory Provisions, by Benjamin Collins.
4 For more detailed information on programs and activities authorized under Title IV, see CRS Report R43855,
Rehabilitation Act: Vocational Rehabilitation State Grants, by Benjamin Collins.
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Unemployment Insurance (UI) and public works employment. Starting with MDTA, there have
been four main federal workforce development programs.5
The MDTA provided federal funding to retrain workers displaced because of technological
change. Later in MDTA’s existence, the majority of funding went to classroom and on-the-job
training (OJT) that was targeted to low-income individuals and welfare recipients. Funding from
the MDTA was allocated by formula to local communities based on factors of population and
poverty. Grants under MDTA were administered through regional DOL offices and went directly
to local service providers.6
The Comprehensive Employment and Training Act (CETA; P.L. 93-203), enacted in 1973, made
substantial changes to federal workforce development programs. CETA transferred more
decision-making authority from the federal government to local governments. Specifically, CETA
provided funding to about 470 “prime sponsors” (sub-state political entities, such as city or
county governments; consortia of governments) to administer and monitor job training activities.
Services under CETA—which included on-the-job training, classroom training, and public
service employment (PSE)—were targeted to low-income populations, welfare recipients, and
disadvantaged youth. At its peak in 1978, the PSE component of CETA supported about 755,000
jobs and accounted for nearly 60% of the CETA budget.7 CETA was amended in 1978 in part to
create private industry councils (PIC) to expand the role of the private sector in developing,
implementing, and evaluating CETA programs. The composition of PICs included representatives
of business, labor, education, and other groups.
In 1982, changes to federal workforce development policy were made by enactment of the Job
Training Partnership Act (JTPA, P.L. 97-300). Major changes implemented under JTPA, which
provided classroom and on-the-job training to low-income and dislocated workers, included
service delivery at the level of 640 “service delivery areas,” federal funding allocation first to
state governors and then to PICs in each of the service delivery areas (unlike CETA, which
provided allocations directly to prime sponsors), prohibition of the public service employment
component, and a new emphasis on targeted job training and reemployment. With a new
emphasis on training (rather than public service employment), JTPA required that at least 70% of
funding for service delivery areas be used for training. Although this percentage was dropped to
50% in the 1992 amendments to JTPA, the emphasis on training remained.
The Workforce Investment Act of 1998 (WIA; P.L. 105-220) replaced JTPA and continued the
trend toward service coordination by establishing the One-Stop system through which state and
local WIA training and employment activities were provided and in which certain partner
programs were required to be colocated. WIA replaced PICs with Workforce Investment Boards
(WIBs), which were responsible for the design of services for WIA participants. In addition to
these changes, WIA enacted changes that included universal access to services (i.e., available to
any individual regardless of age or employment status), a demand driven workforce system

5 Except as noted, the material in this section draws on Christopher J. O'Leary, Robert A. Straits, and Stephen A.
Wandner, “U.S. Job Training: Types, Participants, and History,” in Job Training Policy in the United States
(Kalamazoo, MI: W.E. Upjohn Institute for Employment Research, 2004).
6 Although not considered one of the four main job training programs, Job Corps was established during this period.
Created by the Economic Opportunity Act of 1964, the Job Corps program is a largely residential educational and job
training program for disadvantaged youth.
7 The growth in employment supported by PSE reflected changes in eligibility criteria that expanded the eligible
population, as amendments were made to CETA to make PSE more of a countercyclical program. Robert F. Cook,
Charles F. Adams, Jr., and V. Lane Rawlins, “The Public Service Employment Program,” in Public Service
Employment: The Experience of a Decade (Kalamazoo, MI: W.E. Upjohn Institute for Employment Research, 1985), p.
12; and Gordon Lafer, The Job Training Charade (Ithaca, NY: Cornell University Press, 2002), p. 163.
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responsive to the demands of local area employers (e.g., the requirement that a majority of WIB
members must be representatives of business), a work-first approach to workforce development
(i.e., placement in employment was the first goal of the services provided under Title I of WIA as
embodied in the “sequence of services” provisions), and the establishment of consumer choice for
participants who were provided with Individual Training Accounts (ITAs) to choose a type of
training and the particular provider from which to receive training.
Title I—Workforce Development Activities
Title I of WIOA authorizes programs and activities that support job training and related services
to unemployed and underemployed individuals. Title I programs are administered by the U.S.
Department of Labor (DOL), primarily through its Employment and Training Administration
(ETA). WIOA authorizes appropriations for WIOA programs from FY2015 through FY2020.
Authorization of appropriations for WIOA programs was extended through FY2022 by P.L. 117-
103.
In FY2022, programs and activities authorized under Title I of WIOA were funded at $5.3 billion,
comprising 53% of all WIOA appropriations. Title I funding includes
 $3.2 billion for state formula grants for youth, adult, and dislocated worker
training and employment activities;
 $1.7 billion for the Job Corps program; and
 $360 million for national programs.8
Characteristics of WIOA Title I Programs
Title I of WIOA authorizes several state and national programs to provide employment and
training services and continues the One-Stop system as a means of delivering and coordinating
workforce development activities. This section of the report provides details of the WIOA Title I
state formula grant program’s structure, services supported, allotment formulas, and performance
accountability provisions. In addition, it provides a program overview for national grant
programs. At the outset it is worth highlighting elements of WIOA that collectively are intended
to comprise a “workforce development system.”
 WIOA is designed to be a demand driven workforce development system. This
system is supposed to provide employment and training services that are
responsive to the demands of local area employers. The demand driven nature of
WIOA is manifested in elements such as Workforce Development Boards
(WDBs), a majority of whose members must be representatives of business, and
in the requirement for local plans to identify existing and emerging in-demand
industry sectors and occupations.
 WIOA emphasizes coordination and alignment of workforce development
services, through provisions such as a required Unified State Plan for core
programs and a common set of performance indicators across most programs
authorized by WIOA. In addition, WIOA requires regional planning across local
areas.
 WIOA provides local control to officials administering programs under it. Under
the state formula grant portion of WIOA, which accounts for nearly 60% of total

8 For program-level funding, see Table B-1 in Appendix B.
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WIOA Title I funding, the majority of funds are allocated to local WDBs (after
initial allotment from ETA to the states) that are authorized to determine the mix
of service provision, eligible providers, and types of training programs, among
other decisions.9
 The WIOA system provides central points of service through its system of One-
Stop centers. The concept of a One-Stop center is to provide a single location for
individuals seeking employment and training services, thus making the process
of locating and accessing employment services more efficient and seamless.
WIOA requires certain programs to be “partners” in the One-Stop center, either
by physical colocation or other accessible arrangements. Notably, WIOA requires
the colocation of Employment Service offices with One-Stop centers.
 WIOA provides universal access to its career services to any individual
regardless of age or employment status, but it also provides priority of service for
career and training services to low-income and skills-deficient individuals.
 WIOA emphasizes sector partnerships and career pathways workforce
development strategies by requiring local WDBs to lead efforts to develop career
pathways strategies and to implement industry/sector partnerships with
employers.
 WIOA provides consumer choice to participants. As explained later in this report,
participants determined to be eligible for training services are provided with
Individual Training Accounts (ITAs), with which they may choose a type of
training and the particular provider from which to receive training.
 WIOA implements a performance accountability system based on primary
indicators with state-adjusted levels of performance resulting from negotiations
between each state and the Secretary of Labor and revised based on a statistical
adjustment model. The performance accountability system applies across all titles
of WIOA.
The One-Stop Delivery System: Structure and
Governance
One-Stop Delivery System Structure
Because the initial point of contact for WIOA participants is frequently at a One-Stop center, it is
worthwhile to explain the “One-Stop delivery system” established by WIOA before describing
the services available at and accessible through the One-Stop centers.10
WIOA continues the central role of One-Stop centers that was established in WIA of 1998 to
provide access to employment and training services. WIOA continues the requirements of WIA
for each state to establish a One-Stop delivery system to
 provide “career services” and access to “training” services (see “Structure—
Local Activities” in the next section for a description of these services provided
for in Title I);

9 The governor of each state determines the list of eligible providers; however, these decisions are supposed to be made
with the input of local officials.
10 The One-Stop delivery system is established by Section 121(e) of WIOA.
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 provide access to programs and activities carried out by One-Stop partners (see
below); and
 provide access to all workforce and labor market information, job search,
placement, recruitment, and labor exchange services authorized under the
Wagner-Peyser Act.11 WIOA requires the colocation of the Employment Service
with One-Stop centers (colocation was optional under WIA).
Each local workforce investment area in a state is required to have at least one physical
comprehensive One-Stop center in which the aforementioned programs and services are
accessible.12 Services may be colocated or available through a network of affiliated sites or One-
Stop partners linked electronically.
One-Stop Partner Programs
As noted, one of the characteristics of the WIOA One-Stop system is the establishment of a
central point of service for those seeking employment, training, and related services. To this end,
WIOA requires that certain partner programs provide access to career services in the One-Stop
system and allows additional programs to operate in it. The required partner programs are listed
in Table 1.
Table 1. Required Partners in One-Stop Centers under WIOA
Program
Program Authorization
Federal Agency
Youth Workforce Investment
WIOA—Title I, Section 126
Department of Labor
Activities
Adult Employment and Training
WIOA—Title I, Section 131
Department of Labor
Activities
Dislocated Worker Employment
WIOA—Title I, Section 131
Department of Labor
and Training Activities
Job Corps
WIOA—Title I, Subtitle C
Department of Labor
Native American Programs
WIOA—Title I, Section 166
Department of Labor
Migrant and Seasonal
WIOA—Title I, Section 167
Department of Labor
Farmworker Programs
YouthBuild Program
WIOA—Title I, Section 171
Department of Labor
Employment Service
Wagner-Peyser Act of 1933
Department of Labor
Adult Education and Literacy
WIOA—Title II
Department of Education
Activities
Vocational Rehabilitation State
Title I of the Rehabilitation Act of
Department of Education
Grant Programs
1973, as amended (WIOA Title IV)
Senior Community Service
Title V of the Older Americans Act
Department of Labor
Employment Program
of 1965

11 Enacted in 1933, the Wagner-Peyser Act funded the transformation of state and local employment service offices
into a unified national public labor exchange.
12 A “local workforce investment area” is defined in Section 106 of WIOA. These areas are designated by governors
and are based on factors such as consistency with labor market areas and availability of educational institutions. See
Appendix A for a full definition.
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Program
Program Authorization
Federal Agency
Postsecondary Career and
Carl D. Perkins Vocational and
Department of Education
Technical Education
Applied Technology Education Act of
2006
Trade Adjustment Assistance
Title II of the Trade Act of 1974, as
Department of Labor
amended
Jobs for Veterans State Grant
38 U.S.C. Chapter 41
Department of Labor
programs
Employment and Training
Community Services Block Grant
Department of Health &
Activities carried out under the
Act (42 U.S.C. 9901)
Human Services
Community Services Block Grant
Employment and Training
—a
Department of Housing and
Activities carried out by the
Urban Development
Department of Housing and
Urban Development
State Unemployment
Social Security Act of 1935 (Titles III,
Department of Labor
Compensation programs
IX, and XII) and Federal
Unemployment Tax Act 1939
Reintegration of Offenders
Second Chance Act of 2007, Section
Department of Justice
Programs
212
Temporary Assistance for Needy
Social Security Act, Part A of Title IV
Department of Health &
Families (TANF)
Human Services
Source: CRS analysis of P.L. 113-128.
Notes: The list of required partners, including references to the authorizing statutes for each program, is in
Section 121(b)(1)(B) of WIOA.
a. When WIA was first authorized, HUD was responsible for the administration of the YouthBuild
employment and training program. In 2006, YouthBuild was transferred to the Department of Labor. Today,
HUD does not administer any direct employment and training programs. However, some HUD programs
allow funds to be used for employment and training activities, among other uses. Further, some HUD
programs and activities are subject to employment and training related requirements, particularly the
Section 3 Economic Opportunities requirement (12 U.S.C. 1701u; 24 C.F.R. 135). Under the Section 3
requirement, certain recipients of HUD funding are required to provide employment and training
opportunities to residents of HUD-assisted housing and other low-income members of the surrounding
community. For more information about Section 3, see http://www.hud.gov/offices/fheo/section3/
section3.cfm.
In addition to the required partner programs listed in Table 1, WIOA specifies that One-Stop
centers may incorporate other partner programs, including
 employment and training programs administered by the Social Security
Administration (e.g., Ticket to Work);
 employment and training programs carried out by the Small Business
Administration;
 any employment and training activities required of recipients under the
Supplemental Nutrition Assistance Program (SNAP, formerly known as the Food
Stamp program) and work programs for those recipients who are able-bodied
adults without dependents;
 the Client Assistance Program authorized under section 112 of the Rehabilitation
Act of 1973;
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 programs authorized under the National and Community Service Act of 1990
(e.g., AmeriCorps); and
 other appropriate government or private-sector programs.
The Employment Service
Because the Employment Service (ES), which is authorized by the Wagner-Peyser Act of 1933
(29 U.S.C. 49 et seq.), is the central component of most states’ One-Stop delivery systems, it is
discussed briefly here, as ES services are universally accessible to job seekers and employers.
Reflecting this central role, WIOA requires ES offices to be colocated with One-Stop centers and
prohibits standalone ES offices.13 Although the ES is one of 19 required partners in the One-Stop
delivery system, its central mission—to facilitate the match between individuals seeking work
and employers seeking workers—makes it critical to the functioning of the workforce
development system under WIOA.14
The two major categories of activities performed by the ES are the administration of State Grants
and National Activities.15 Services provided by the ES State Grants include
 labor exchange services (e.g., counseling, job search and placement assistance,
labor market information);
 program evaluation;
 recruitment and technical services for employers;
 work tests for the state unemployment compensation system; and
 referral of unemployment insurance claimants to other federal workforce
development resources.
As noted, WIOA amends the Wagner-Peyser Act to make the ES a central part of the workforce
development system under the One-Stop system by requiring colocation of services. To this end,
one of the key functions played by the ES is to deliver many of the “career services” established
by WIOA, since Wagner-Peyser Act-funded ES services are available at all comprehensive One-
Stop centers and many affiliated sites. ES staff often are the first to assist individuals seeking
employment assistance and refer individuals to other programs in the One-Stop system of
partners.16 States provide labor exchange services through three tiers of service delivery:17

13 An ES office may operate as an affiliated One-Stop site but only if another partner program’s staff is physically
present at least 50% of the time that the One-Stop center is open.
14 For additional information on the Employment Service, see CRS Report RL30248, The Employment Service: The
Federal-State Public Labor Exchange System (available to congressional clients upon request); Christopher J. O'Leary
and Randall W. Eberts, The Wagner-Peyser Act and U.S. Employment Service: Seventy-Five Years of Matching Job
Seekers and Employers, W.E. Upjohn Institute for Employment Research, Kalamazoo, MI, December 2008,
http://research.upjohn.org/reports/29/; and Joyce Kaiser, “Wagner-Peyser Employment Services,” in The American
Recovery and Reinvestment Act: The Role of Workforce Programs, ed. Burt S. Barnow, Richard A. Hobbie
(Kalamazoo, MI: W.E. Upjohn Institute for Employment Research, 2013), pp. 99-120.
15 ES National Activities include the Work Opportunities Tax Credit (WOTC), Technical Assistance and Training, and
State Workforce Agencies Retirement System payments. These programs are not discussed in this report because it is
the ES State Grants that provide the majority of funding and the types of services most relevant to the workforce
development system.
16 The ES program may have different staffing models than other programs in the WIOA system. For more information,
see CRS In Focus IF12144, The U.S. Employment Service: Service Delivery and Merit Staffing.
17 Career services defined in WIOA Section 134(c)(2) can be delivered through any of the three methods described
here. The delivery of labor exchange services is described in 20 C.F.R. §652.207. In addition, ES services are also
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 Self-Service. These services, which are typically electronic databases of job
openings, are accessed without staff assistance. Not only are these services
available to job seekers and employers without ES staff assistance, but typically
customers can access these electronic resources away from the local One-Stop
center and outside normal business hours (e.g., via the internet);
 Facilitated Self-Help. Resources of this type are typically available in local One-
Stop offices and include access to self-service tools (e.g., computers, resume-
writing software, fax machines, photocopiers, and internet-based tools). The
resource-room staff interacts with the customers to facilitate usage of the
resources.
 Staff-Assisted Service. These services are provided to customers both one-on-one
and in groups. One-on-one services for job seekers often include assessment,
career counseling, development of an individual service plan, and intensive job
search assistance. One-on-one services for employers may include taking a job
order or offering advice on how to increase job seeker interest in a job opening.
Group services for job seekers include orientation, job clubs, and workshops on
such topics as resume preparation, job search strategies, and interviewing. Group
services for employers may include workshops on such topics as state UI laws or
use of labor market information. Other staff-assisted services that benefit both
job seekers and employers include screening and referring job seekers to job
openings. Staff-assisted services must be provided in at least one physical
location in each workforce investment area.
The vast majority of funds (97%) for Employment Service activities are allotted to states on the
basis of each state’s relative share of the following two factors: civilian labor force (CLF) and
total unemployment.18 Specifically, two-thirds of the ES state funding is allotted on the basis of
the relative share of CLF and one-third on the basis of the relative share of total unemployment.
The remaining 3% of total funding is distributed to states with civilian labor forces below 1
million and to states that need additional resources to carry out ES activities.19
Of the total allotment to states, 90% may be used for labor exchange services such as job search
and placement assistance, labor market information, and referral to employers. The remaining
10% (Governor’s Reserve) of the state allotment may be used for activities such as performance
incentives and services for groups with special needs.20
One-Stop Operators
As the local administrative agent of WIOA programs and activities, local WDBs are authorized to
designate or certify, as well as terminate, One-Stop operators. To be eligible to serve as a One-

described in detail in Christopher J. O'Leary and Randall W. Eberts, The Wagner-Peyser Act and U.S. Employment
Service: Seventy-Five Years of Matching Job Seekers and Employers, W.E. Upjohn Institute for Employment Research,
Kalamazoo, MI, December 2008, http://research.upjohn.org/reports/29/.
18 ES appropriations fund state allotments (discussed above) and National Activities. Because the focus of this report is
on workforce development and the One-Stop system, only the state allotment formula funding is covered in this
section.
19 The 3% allotment provides funding for this subset of small states to result in an allotment equal to at least 100% of
the state’s relative share of prior-year funding. For ES allotment formula details, see http://www.doleta.gov/budget/
docs/FormDesc15.pdf.
20 For a detailed list of activities, see Sections 7(a) and 7(b) of the Wagner-Peyser Act.
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Stop operator, an entity must be designated or certified through a competitive process and must
be one of the following (or consortia of these):21
 an institute of higher education;
 an Employment Service state agency;
 a nonprofit organization;
 a for-profit entity;
 a government agency; and/or
 other interested entities.
WIOA precludes elementary or secondary schools from eligibility to serve as One-Stop operators,
but allows nontraditional public secondary schools and area career and technical education
schools to compete for certification.
Memorandum of Understanding and Infrastructure Funding
The local WDB is required to enter into a memorandum of understanding (MOU) with all One-
Stop partners that describes the operation of the One-Stop delivery system in the local area.
Specifically, the MOU must enumerate the services to be provided, specify the division of
operating costs among partners, describe methods of referral of individuals to partner programs,
describe the methods to ensure accessibility to services, and indicate the duration of the
memorandum and the procedures to amend the memorandum.
A key component of the MOU is the system for funding infrastructure costs of One-Stop centers.
Unlike its predecessor, WIA, WIOA provides greater detail on funding One-Stop infrastructure
costs, which include nonpersonnel costs such as rent and utilities.22 Specifically, WIOA provides
for a “local” method and a “state” method.
 The local method of infrastructure funding occurs through the inclusion of an
agreement in the MOU between the chief elected local officials, the local WDB,
and the One-Stop partners on the relative share of infrastructure cost coverage by
each party.
 In the absence of consensus on a local method of funding, the state method is
used for each program year in which a local agreement does not exist. The state
method directs each required One-Stop partner program to contribute a portion of
its administrative funds, up to a statutory cap set in WIOA, to the governor. The
state WDB then develops an allocation formula that the governor uses to disburse
infrastructure funding to local areas.23

21 The competitive process requirement was optional under WIA as part of the One-Stop certification.
22 The division of infrastructure costs was a source of some issues in the operation of One-Stop centers under WIA and
created a reliance on one or two programs for the majority of funding for these costs. See U.S. Government
Accountability Office, Workforce Development: Community Colleges and One-Stop Centers Collaborate to Meet 21st
Century Workforce Needs, GAO-08-547, May 1, 2008, http://www.gao.gov/new.items/d08547.pdf; and U.S.
Government Accountability Office, Workforce Investment Act: One-Stop System Infrastructure Continues to Evolve,
but Labor Should Take Action to Require That All Employment Service Offices Are Part of the System, GAO-07-1096,
September 2007, http://www.gao.gov/new.items/d071096.pdf.
23 Section 121(h) of WIOA specifies the details of the infrastructure funding mechanisms.
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Workforce Development Boards
WIOA amends the state and local governance structure for programs that form the workforce
development system under WIOA in part through changes to the state and local Workforce
Development Boards (previously Workforce Investment Boards under WIA).
This section provides information on state and local WDB membership requirements and
functions. For both the state and local WDBs, WIOA specifies the composition, but does not
specify the number, of board members.24 In addition, WIOA maintains the WIA-established
requirement that the majority of board members, as well as the board chairs, be representatives of
private business.
State and Local WDB Composition
State WDBs, appointed by the governor of each state, and local WDBs, appointed by the chief
local elected official(s) in local workforce development areas, consist of representatives from the
required categories in Table 2:
Table 2. Workforce Development Board Composition Under WIOA
Minimum Number of Required Members by Category of Representation
State WDB Membership under WIOA
Local WDB Membership under WIOA
Minimum Size = 33 Members
Minimum Size = 19 Members
Business = 17
Business = 10
Governor = 1
Workforce = 4, including
Members of State Legislature = 2
 2 labor representatives
Chief Elected Local Official = 2
 1 apprenticeship program representative
Workforce = 7, including
Education and Training Organizations = 2
 2 labor representatives
Governmental and Economic Development = 3,

including
1 apprenticeship program representative
Core Programs (staff representing these) = 4
 1 economic and community development
representative
 1 Employment Service representative
 1 Vocational Rehabilitation representative
Source: CRS analysis of P.L. 113-128, Section 101(b)(1) and Section 107(b)(2).
Notes: Core programs in WIOA consist of Youth Workforce Investment Activities, Adult and Dislocated
Worker Employment and Training Activities, Adult Education and Literacy activities (Title II), Employment
Service activities, and Vocational Rehabilitation State Grant Program activities (Title IV).
This list of members is the minimum required under Section 101(b)(1) for state WDBs and Section 107(b)(2) for
local WDBs. In each category of required membership (e.g., the workforce), WIOA allows additional members
to be appointed.
WIOA changed the State WDB membership requirements from a minimum of 61 under WIA to
33 under WIOA and changed the local WDB membership requirements from a minimum of 51
under WIA to 19 under WIOA. These shifts are primarily due to reducing the required
representatives from One-Stop partner programs. The minimum number of WDB representatives
is not specified in WIOA; rather, the minimum number is derived by the combination of

24 More specifically, WIOA does not specify a number but it contains a series of “shall” and “may” clauses that can be
used to derive a minimum number of members. See Section 101(b)(1) and Section 107(b)(2) of WIOA.
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requirements for a business majority, a workforce representation of at least 20%, and a number of
other required members.
The chief elected local official for each local workforce development area appoints local WDB
members in accordance with criteria established by the governor and state WDB. In areas with
multiple units of local government, the relevant chief officials may establish an agreement for
appointing WDB members and carrying out WIOA responsibilities. In the absence of such a
voluntary agreement, the governor may appoint members to a local WDB. While the local elected
official appoints members to a local WDB, the governor must certify one local WDB once every
two years. In addition, the governor is authorized to decertify local WDBs for fraud, failure to
function, or nonperformance.
State WDB Functions
The state WDB is responsible for assisting the governor in the following activities:25
 development and implementation of a Unified State Plan;
 review of statewide policies, programs, and recommendations that would align
workforce programs to support a streamlined workforce development system;
 development and continuous improvement of statewide workforce activities,
including coordination and nonduplication of One-Stop partner programs and
strategies to support career pathways;
 designation of local workforce investment areas and identification of regions;
 development of formulas for within-state distribution of adult and youth funds;
 development and updating of state performance accountability measures;
 identification and dissemination of best practices of workforce development
policy;
 development of strategies to improve technology in facilitating access to and
delivery of One-Stop services;
 preparation of annual reports to DOL on performance measures; and
 development of the statewide workforce and labor market information system.
Local WDB Functions
The local WDB performs multiple functions in carrying out the programs and services authorized
under WIOA, including the following:26
 development of a local plan for workforce investment activities;
 analysis of regional labor market conditions, including needed knowledge and
skills for the regional economy;
 engagement of regional employers to promote business participation on the WDB
and to coordinate workforce activities with needs of employers;
 development and implementation of career pathways;
 identification and promotion of proven and promising workforce development
strategies;

25 State WDB functions are authorized in WIOA Section 101(d).
26 Local WDB functions are authorized in WIOA Section 107(d).
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 development of strategies to use technology to increase accessibility and
effectiveness of the local workforce system;
 oversight of all programs for youth, adult, and dislocated workers;
 negotiation of local performance measures with the governor;
 selection of One-Stop operators and eligible providers of training;
 coordination of WIOA workforce development activities with local education
providers;
 development of a budget and administration of funding to service providers;
 assistance in development of a statewide employment statistics system; and
 assessment of accessibility for disabled individuals at all local One-Stop centers.
State and Local Plans
A major, if not the major, responsibility of state and local WDBs is the development of plans.
Plans describe multi-year approaches that communicate to DOL the state and local WDB
workforce development goals and strategies to achieve those goals.
Unified State Plan
WIOA requires that states submit a unified state plan (USP) to the Secretary of Labor every four
years, no later than 120 days before the end of the four-year period covered by the prior USP. The
initial USP for WIOA is required to be submitted by states 120 days prior to the start of the
second full program year after WIOA’s enactment.27 States must submit USP modifications at the
end of the first two years of the four-year USP period but may also submit modifications at any
other time.
Unified State Plans, which were optional under WIA, must outline the workforce strategies for
the six core WIOA programs—adult, dislocated worker, and youth programs (Title I of WIOA),
the Adult Education and Family Literacy Act (AEFLA; Title II of WIOA), the Employment
Service program (amended by Title III of WIOA), and the Vocational Rehabilitation State Grant
Program (amended by Title IV of WIOA). The contents of USPs are organized around “strategic
planning elements” and “operational planning elements.”28
Strategic planning elements consist of an overall vision and goals for preparing a skilled
workforce, including
 analysis of existing and emerging industries and occupations and the human
capital required in those industries and occupations;
 analysis of the current labor market and workforce;
 analysis of the capacity of the state to meet skills needs of the workforce and
employment needs of employers;
 a description of the goals for indicators of performance and a plan for assessing
system effectiveness; and

27 WIOA (P.L. 113-128) was enacted July 22, 2014, which was just after the start of Program Year (PY) 2014. This
means that PY 2015 (July 1, 2015 – June 30, 2016) is the first full year after WIOA’s enactment. Thus, the initial USPs
are due to the Secretary of Labor 120 days prior to July 1, 2016, which is the start of PY 2016 and the second full
program year after enactment.
28 The full list of required USP contents is in WIOA Section 102(b).
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 a strategy for aligning core programs to achieve the strategic plan.
Operational planning elements consist of activities to implement the strategic plan and the
functions of the state WDB. These elements include
 a description of how the entities carrying out the core programs will align and
coordinate with other parts of the workforce and economic development systems;
 a description of the state operating systems, such as assessment procedures and
priority of service provisions;
 a description of how activities are carried out for specifically authorized
programs in WIOA; and
 assurances that the state has policies and procedures to comply with the
requirements of WIOA.
Under WIOA, states also have the option of submitting a Combined State Plan (CSP). A CSP is
combination of a USP, which covers the core programs, and one or more of the One-Stop partner
programs (see Table 1).
Local Plan
WIOA requires that local WDBs submit a comprehensive four-year plan to the governor. Local
WDBs must submit local plan modifications at the end of the first two years of the four-year
planning period. In general, a local plan documents how a local WDB will support the state
strategy specified in the USP. Highlights of the contents of a local plan include descriptions of
how local WDBs will
 develop strategic planning elements (see elements in “Unified State Plan” section
above);
 align workforce development programs;
 expand access to career pathways and recognized postsecondary credentials;
 develop and implement a service mix that will best meet the workforce needs of
local employers;
 coordinate workforce development activities with economic development
activities;
 design and implement the One-Stop system in the local area;
 provide workforce activities authorized under Title I and coordinate these
activities with other programs authorized by WIOA;
 negotiate local levels of performance; and
 provide training services in the local area.
State Formula Grant Programs
Title I of WIOA—Workforce Development Activities—authorizes job training and related
employment services to unemployed or underemployed individuals and provides the governing
structure for all titles of WIOA.
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Overview and Purpose
Funds authorized under Subtitle B of WIOA (“Workforce Investment Activities and Providers”)
are allotted by formula and are used for workforce development activities. As stated in WIOA,
the purpose of workforce systems is to “increase the employment, retention, and earnings of
participants, and increase attainment of recognized postsecondary credentials by participants, and
as a result, improve the quality of the workforce, reduce welfare dependency, increase economic
self-sufficiency, meet the skill requirements of employers, and enhance the productivity and
competitiveness of the Nation.”29
The three state formula grant programs in Title I—youth, adults, and dislocated workers—
authorize funding for employment and training activities available through the national system of
One-Stop centers and provided by service providers in local communities. The majority of
funding for WIOA Title I programs is provided through state formula grants.
Adult and Dislocated Worker Employment and Training Activities
Overview and Purpose
The adult and dislocated worker programs both provide employment and training services to
individuals ages 18 and older. The programs are funded through formula grants allotted to states,
which in turn allocate the majority of those funds to local entities. These two programs are
discussed together because the services provided are the same. However, the two programs have
different eligibility criteria and different allotment formulas (see “Allotment of Funds for Title I
State Formula Grant Programs and Activities,” below, for the differences in allotment formulas).
Any individual age 18 or older is eligible for services funded by the Adult Activities program. An
individual is generally eligible for services under the provisions for dislocated workers in WIOA
if the person
 has been terminated or laid off, or has been notified of a termination or layoff;
 is sufficiently attached to the workforce, demonstrated either through eligibility
for/exhaustion of unemployment compensation or through other means; and
 is unlikely to return to the previous industry or occupation.
There is some breadth in the definition of a “dislocated worker” under WIOA. For instance,
eligibility is afforded in cases of anticipated facility closings and for self-employed workers.
However, the core eligibility requirement is displacement due to termination or facility closing.
There is no eligibility requirement under WIOA related to the cause of the dislocation.30 From the
perspective of the individual, however, the classification of “adult” or “dislocated” will not make
a difference in the services received under WIOA.
Structure—Statewide Activities
After funds are allotted from ETA to individual states by formula, the governor of each state may
reserve not more than 15% of the Adult Activities state allotment, not more than 15% of the
Dislocated Worker Activities state allotment, and not more than 15% of the Youth Activities

29 WIOA Section 2(6) states the purpose of all statewide and local workforce development systems, so this applies to
the youth, adult, and dislocated worker programs.
30 The definition of a “dislocated worker” is in WIOA Section 3(15).
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allotment for “statewide workforce investment activities.”31 This allowable 15% set-aside is often
referred to as the “Governor’s Reserve.” Specifically, funds in the 15% reserve must be used for
“required” activities and may be used for “allowable” activities. In addition, of the state allotment
for dislocated worker activities, the governor of each state must also reserve not more than 25%
for dislocated worker rapid response activities. In sum, not more than 15% of Adult Activities
state allotments, not more than 15% of Youth Activities state allotments, and not more than 40%
of Dislocated Worker Activities state allotments are reserved at the state level for statewide
activities; the remainder of these three funding streams are allocated to local areas within each
state.
Required statewide employment and training activities, which are funded by the 15% reserve
funds from each of the youth, adult, and dislocated worker state allotments, include32
 dissemination of the state list of eligible providers of training services (including
performance and program cost information for these providers) and eligible
providers of youth activities;
 evaluations of state workforce investment programs for the purpose of
“continuously improving” state activities to “achieve high-level performance”
within the workforce development system and “high-level outcomes” from the
workforce development system;
 assistance to local areas for regional planning, local coordination of activities,
and development of exemplary program activities;
 technical assistance to local areas not meeting required performance
accountability measures;
 assistance to local areas in establishing One-Stop delivery systems;
 assistance to local areas with high concentrations of eligible youth; and
 operation of a fiscal and management accountability system in order to report on
and monitor the use of WIOA funds.
Allowable statewide employment and training activities include33
 administration of state activities;34
 provision of incentive grants to local areas for performance;
 research and demonstration projects;

31 Youth Activities are included in this section because governors may expend the three 15% funds on statewide
activities for youth, adults, and dislocated workers regardless of the source of the funds. Specifically, WIOA Sections
128(a)(1) and 133(a)(1) require the governor of each state to reserve not more than 15% of the total state allotment for
each of the three formula grants—Youth, Adult, and Dislocated Workers—to fund “statewide workforce investment
activities.” Governors have the discretion to pool the three 15% funds and expend the funds on any statewide
workforce investment activities regardless of the source of the funding. For example, funds from the Adult formula
grant may be spent on statewide activities for youth and vice versa.
32 Required statewide activities are described in Sections 129(b)(1) and 134(a)(2)(B) of WIOA.
33 Allowable statewide activities are described in Section 129(b)(2) and 134(a)(3) of WIOA.
34 As part of the 15% that states may reserve, up to 5% of the total state formula grant may be spent on statewide
program administration. For example, if the total state formula grant for youth, adult, and dislocated workers is $300
million ($100 million for each funding stream) for a given state, the governor of that state may reserve up to $45
million for statewide activities (15% of each funding stream). Of this $45 million, up to $15 million (5% of $300
million) may be spent on administrative costs for the provision of statewide activities and programs.
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 supporting financial literacy;
 implementation of innovative training programs, such as layoff aversion
strategies and sector and industry partnerships; and
 technical assistance to local areas implementing pay-for-performance strategies.
Rapid Response Activities
From the 25% reserve from the dislocated worker state allotment, states are required to carry out
rapid response activities to assist workers who have been dislocated in obtaining reemployment
as quickly as possible. A dislocation event is typically defined as a permanent closure or mass
layoffs at a facility or a disaster (natural or otherwise) resulting in mass job dislocation. The
services funded under this reserve may include35
 establishment of onsite contact with employers and employee representatives
immediately after the dislocation event;
 provision of information and access to employment and training programs
through the WIOA dislocated worker program;
 assistance in establishing a labor-management agreement to determine the
employment and training needs of the affected workers;
 provision of emergency assistance; and
 provision of assistance to the affected local community to develop a coordinated
response in seeking state economic development aid.
Structure—Local Activities
Following the reservation of funds for the Governor’s Reserve at the state level (for the adult and
dislocated worker programs), the remaining funds are allocated to local areas to carry out
“required” and “permissible” training and employment activities.36 At the local level, funds are
required to be used for five main purposes:
 establishing a One-Stop delivery system;
 providing career services;
 providing training services;
 establishing relationships with employers; and
 developing industry or sector partnerships.
Table 3 provides information on the required local activities for each of the two main service
types of WIOA adult and dislocated worker programs.
Table 3. Services Provided to Adult and Dislocated Workers Under Title I of WIOA
Career Services
Training Services
Eligibility Determinations
Occupational Skil s (e.g., classroom training)
Outreach, Intake, Orientation, and Referrals
On-the-Job Training

35 Required rapid response activities are described in Section 134(a)(2)(A) of WIOA. The term “rapid response
activity” is defined in Section 3(51) of WIOA.
36 Required local employment and training activities are detailed in Section 134(c) of WIOA and allowable activities
are detailed in Section 134(d) of WIOA.
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Career Services
Training Services
Assessment of Skil s and Needs
Incumbent Worker Training
Labor Exchange Services, including Job Search
Combined Workplace Training with Related Instruction
Assistance and Information on In-Demand
Occupations
Workforce and Labor Market Information
Skil Upgrading and Retraining
Performance and Cost Information for Eligible
Entrepreneurial Training
Training and Education Providers
Performance Measurement Data for Local Area
Transitional Jobs
Information On and Referral To Supportive Services
Job Readiness Training
Information on Filing for Unemployment
Adult Education and Literacy Combined with Training
Compensation
Assistance in Establishing Eligibility for Financial Aid
Customized Training in Conjunction with an Employer
for non-WIOA Training and Education Programs
Services to Obtain or Retain Employment (see note)

Fol ow-Up Services for at least One Year to

Participants Who are Placed in Unsubsidized
Employment
Source: P.L. 113-128 (Section 134(c)(2) and Section 134(c)(3)(D)) and 20 C.F.R. §678.430.
Note: “Services to Obtain or Retain Employment” include comprehensive and specialized assessments of skil s
and needs, development of an Individual Employment Plan (IEP), group and/or individual counseling, career
planning, case management, prevocational services to prepare individuals for employment or training, work
experiences linked to careers, financial literacy services, and English language acquisition.
Service Provision
The program for adult and dislocated worker participants in WIOA is structured around two main
levels of services: career services and training. On an operational level, career services are
categorized as “basic” and “individualized.”37 Basic services include services such as labor
market information and job postings, while individualized services include services such as skills
assessment and case management (a detailed list of career services is in Table 3).
In WIOA service at one level is not a prerequisite for service at the next level.38 The workforce
development system designed by WIOA is premised on universal access, such that an adult age
18 or older does not need to meet any qualifying characteristics to receive career services. While
basic career services are available to all adults, individualized career services are to be provided
as appropriate to help individuals obtain and retain employment.
To be eligible to receive training, an individual, rather than being required to receive career
services first, must39

37 20 C.F.R. §678.430.
38 That is, there is no “sequence of services” requirement in WIOA. Under WIA, the predecessor to WIOA, an
individual was required to move through each set of services before accessing the next level (i.e., “core” before
“intensive” and “intensive” before training).
39 These determinations are made by a One-Stop operator through an assessment or evaluation, including a recent
evaluation or assessment conducted pursuant to another education or training program. See WIOA Section
134(c)(3)(A).
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 be unlikely or unable to obtain or retain employment that leads to economic self-
sufficiency;40
 be in need of training services to obtain or retain employment that leads to
economic self-sufficiency;
 have the “skills and qualifications” to participate successfully in training;
 select a training service linked to an occupation in the local area (or be willing to
relocate to another area where the occupation is in demand); and
 be unable to obtain other grant assistance (e.g., Pell grants) for the training
services.
Section 134(c)(3)(E) of WIOA stipulates that for funds allocated to a local area for adult
employment and training activities, priority is to be given to recipients of public assistance, other
low-income individuals, and individuals who are basic skills deficient for career and training
services. It is left to the discretion of the local WDB, in consultation with the state’s governor, to
determine this prioritization.
Training—Eligible Providers and Individual Training Accounts
Following the decision of a One-Stop operator to provide an individual with access to training
services, the implementation of training in WIOA is built on the concept of consumer choice,
which involves two main components: eligible providers of training and Individual Training
Accounts (ITA).41
The governor and the state WDB in each state are responsible for establishing criteria and
procedures for eligible providers of training services to receive funding in the local workforce
investment areas. The purpose of having a list of eligible providers, as opposed to the One-Stop
centers contracting directly with a training provider of its choosing, is to provide choice to
“customers” who are accessing WIOA services.
Generally, eligible training providers include
 an institution of higher education (i.e., is eligible to receive federal funds under
Title IV of the Higher Education Act of 1965) offering programs leading to a
recognized postsecondary credential;
 an entity that provides apprenticeship programs registered under the National
Apprenticeship Act (i.e., registered apprenticeships); or
 another public or private training provider.
There are two types of provider eligibility: initial and continued. Training providers not
previously eligible under WIOA or WIA, except registered apprenticeship programs, must apply
to the governor and the local WDB (according to a procedure established by the governor) for
initial eligibility of one fiscal year.

40 “Economic self-sufficiency” is not defined in WIOA. However, Section 134(d)(1)(A)(x) of WIOA allows local funds
to be used to adjust the economic self-sufficiency standards for local factors or to calculate and adopt local self-
sufficiency standards.
41 Other training is allowed under WIOA that may not involve an ITA, such as on-the-job training or customized
training.
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To maintain continued eligibility, existing training providers must follow procedures established
by the governor and implemented by the local WDB. Training providers that were eligible under
WIA as of July 21, 2014, are subject to the continued eligibility requirements of WIOA.42
In addition to requiring the governor to establish continued eligibility procedures for training
providers, WIOA also specifies particular information that eligible providers must submit to be
considered for continued eligibility. Specifically, training providers must submit to the governor
the following “appropriate, accurate, and timely” performance and cost information for
participants receiving training under Title I of WIOA:43
 percentage of program participants in unsubsidized employment in the second
and fourth quarters after program exit;
 median earnings of program participants who are in unsubsidized employment
during the second quarter after program exit;
 percentage of program participants who obtain a recognized postsecondary
credential, or secondary school diploma or equivalent, during participation or
within one year of program exit;
 information on the type of recognized postsecondary credentials received by
program participants;
 information on cost of attendance, including tuition and fees, for program
participants; and
 information on program completion rates for program participants.
When an individual is deemed eligible to receive training services, that individual, in consultation
with a case manager, may choose training services from a list of eligible providers (discussed
above). At that point, an Individual Training Account (ITA) is established, from which payment is
made to the eligible training provider for training services. Local WDBs have the authority to set
limits on the type and duration of training.44 In addition, local WDBs may choose to set limits on
the amount of an ITA, based on individual circumstances or on an across-the-board level.
While training is typically carried out through the ITA model, WIOA does allow for other
mechanisms to deliver training services to eligible participants.45 Specifically, local WDBs may
provide training through a contract for services if
 the consumer choice requirements of WIOA are met;
 the services are on-the-job training, customized training, incumbent worker
training, or transitional employment;
 the local WDB determines there are an insufficient number of training providers
in a local area to meet the ITA requirements;
 the local WDB determines there is a local training program of “demonstrated
effectiveness” to serve individuals with barriers to employment;

42 Specifically, WIOA Section 122(i) allows the governor of each state to permit training providers eligible under WIA
to continue through December 31, 2015, as providers, after which those providers become subject to the continuing
eligibility requirements.
43 WIOA Section 122(b)(2).
44 Training must be for occupations that are in demand in the local area or region, are in demand in an area to which the
trainee is willing to relocate, or are deemed (by the local WDB) to have “high potential” for sustained demand and
growth in the local area. See WIOA Section 134(c)(3)(G)(iii).
45 The alternative mechanisms are authorized under WIOA Section 134(c)(3)(G)(ii).
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 the local WDB determines that it is “most appropriate” to contract training
services to train multiple individuals in in-demand occupation or industry sectors;
or
 the training service is a pay-for-performance contract.
Youth Activities
Overview and Purpose
In addition to the formula grants for Adult and Dislocated Worker Employment and Training
Activities, WIOA authorizes a formula grant program for Youth Workforce Investment Activities
(although individuals ages 18 or older are also eligible for services provided through the Adult
Employment and Training Activities program). WIOA, unlike its predecessor WIA, does not
specify general purposes for the Youth Activities program; however, WIOA retains many of the
same program elements that were in WIA, such as providing assistance to youths in achieving
successful academic and employment outcomes.
Eligibility and Structure
Eligibility for the Youth Activities program is different depending on whether the individual is an
“out-of-school” youth or an “in-school” youth.
An eligible out-of-school youth is not attending any school, is between the ages of 16 and 24, and
is one or more of the following:46
 a school dropout;
 a student who has not attended school for the most recent quarter;
 a recipient of a secondary school diploma who is low-income but is basic skills
deficient or an English language learner;
 involved with the juvenile or adult justice system;
 homeless or in an out-of-home placement;
 pregnant or parenting;
 disabled; or
 a low-income individual requiring additional assistance to complete an
educational program or to secure and hold employment.47
An eligible in-school youth is attending school, is between the ages of 14 and 21, is low-income,
and is one or more of the following:48
 basic skills deficient;
 an English language learner;
 an offender;49

46 See WIOA Section 129(a)(1)(B).
47 Up to 5% of out-of-school youth participants in a local area may be individuals who do not meet the low-income
criteria, but meet certain other criteria. See WIOA Section 129(a)(3) for specific criteria.
48 See WIOA Section 129(a)(1)(C).
49 The term “offender” is defined in WIOA Section 3(38) as an adult or juvenile who is or has been subject to the
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 homeless or in an out-of-home placement;
 pregnant or parenting;
 disabled; or
 an individual requiring additional assistance to complete an educational program
or to secure and hold employment.
WIOA changes the priority of service established under WIA from in-school to out-of-school
youth by requiring that at least 75% of all Youth Activities formula grant funds must be used for
activities for out-of-school youth (compared to 30% under WIA).50
Services
WIOA youth funding is allocated to local areas to design and carry out programs that51
 provide an objective assessment of the educational, skill, and service needs of
program participants;
 develop service strategies for each participant;
 provide activities leading to attainment of a secondary school diploma or
recognized postsecondary credential, preparation for postsecondary education or
training, preparation for unsubsidized employment, and effective connections to
employers; and
 implement a pay-for-performance contract strategy.
Generally, local WDBs competitively award funds to local organizations and other entities to
provide employment and job training services to youth.52
To support the attainment of education and career readiness for youth, local programs must
provide the following 14 activities or “elements” to youths:53
 tutoring, study skills training, instruction, and evidence-based dropout prevention
and recovery strategies leading to completion of secondary school;
 alternative secondary school services, as appropriate;
 paid and unpaid work experiences that have an academic and occupational
education component, including summer employment opportunities and pre-
apprenticeship programs;

criminal justice process or who requires assistance in overcoming barriers to employment resulting from an arrest or
conviction.
50 A state may request a reduction of this minimum to no less than 50% for a local area if the Secretary of Labor
approves an application showing that a local area will be unable to meet the 75% requirement due to a low number of
out-of-school youth.
51 WIOA Section 129(c)(1) provides additional details about the scope of these required activities. For example,
Section 129(c)(1)(A) enumerates required elements of assessments such as prior work experience, employability, and
aptitudes.
52 Under WIA, each local WIB was required under law to establish a local youth council (WIA Section 117(h)).
Together, the WDB and the youth council oversaw a local youth program funded by Youth Activities. The purpose of
the youth council was to provide expertise in youth policy and to assist the local board in developing portions of the
local plan relating to eligible youth. Under WIOA, however, local WDBs are not required to establish youth councils.
Rather, a local WDB may establish a standing committee to provide information and assist with planning, operational,
and other issues related to providing youth services (WIOA Section 107(b)(4)(A)(ii)).
53 Program elements for Youth Activities are at WIOA Section 129(c)(2).
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 occupational skill training, as appropriate;
 education offered with training for a specific occupation or cluster;
 leadership development opportunities;
 supportive services;
 adult mentoring for the period of participation and a subsequent period, for a total
of not less than 12 months;
 follow-up services for not less than 12 months after the completion of
participation, as appropriate;
 comprehensive guidance and counseling, which may include drug and alcohol
abuse counseling and referral, as appropriate;
 financial literacy education;
 entrepreneurial skills training;
 labor market and employment information; and
 activities to prepare youth to transition to postsecondary education and training.
Although local WDBs must make all 14 program elements available to youths, each individual
youth does not need to participate in all elements. However, local areas must spend at least 20%
of the allocated funds to provide both in-school and out-of-school youths with paid and unpaid
work experiences that have an academic and occupational education component.54
Allotment of Funds for Title I State Formula Grant Programs and
Activities
Allotment Formulas
Funding for the state and local workforce investment activities authorized under Title I—Adult
Activities, Dislocated Worker Activities, and Youth Activities—is allotted by formula from ETA
to states. The funding streams for each of the three sets of activities are allotted by a three-factor
formula based on each state’s relative share of each formula factor. A state’s relative share of any
formula factor is calculated by dividing the factor population (e.g., number of unemployed
individuals) in the state by the factor population in the United States as a whole. After the
allotments are made to states, within-state allocations are made based on formulas as well (see
below for details). WIOA allows, with the governor’s approval, local WDBs to transfer up to
100% of the local fund allocation between Adult and Dislocated Worker Activities.55 This is an
increase from the maximum of 20% transfer allowed under WIA.
After funds are allotted from ETA to individual states by formula, the governor of each state must
reserve not more than 15% from each of three formula grant allotments for statewide youth, adult,
or dislocated worker activities.56

54 This requirement is at WIOA Section 129(c)(4).
55 Section 133(b)(4) of WIOA allows this transfer.
56 Section 128(a)(2) of WIOA specifies that regardless of which funding stream the funds were initially reserved from,
the reservation can support statewide activities for youth, adults, or dislocated workers.
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Adult Activities
Funds for adult employment and training activities are allotted to states on the basis of the
following factors:57
 one-third of the funds are allotted on the basis of each state’s relative share of
total unemployment in areas of substantial unemployment (ASU);
 one-third of the funds are allotted on the basis of each state’s relative share of
excess unemployment; and
 one-third of the funds are allotted on the basis of each state’s relative share of
economically disadvantaged adults.
Key features of the state formula allocation for WIOA Adult Activities include the following:
 A reservation for the outlying areas58 of not more than 0.25% of the total Adult
Activities appropriation (this is reserved prior to state allocations).
 A minimum grant amount equal to 0.25% of the total allotment to all states in a
given program year.59 For example, in PY2015 the state minimum allotment
under the adult funding stream was $1,931,641, which is 0.25% of the total
allotted to all states ($772,656,517).
 “Hold harmless” and “stop gain” provisions such that individual states will not
experience large swings in year-to-year funding for this stream. Specifically, a
state may not receive less than 90% of its relative share of prior-year funding nor
more than 130% of its relative share of prior-year funding.60
After funds are allotted from ETA to individual states by formula, the governor of each state can
reserve not more than 15% of the Adult Activities state allotment for statewide “employment and
training activities.” Specifically, funds in the 15% reserve must be used for “required” activities
and may be used for “allowable” activities (see the “Structure—Statewide Activities” section,
above, for Adult and Dislocated Worker activities).
The remainder of the Adult Activities funding stream is allotted to local workforce investment
areas within the state on the basis of either
 the same three-factor formula used for state allotments but with substitution of
local area relative share of state total; or
 the same three-factor formula used for state allocations for at least 70% of the
allocation and a state-derived formula using measures of excess poverty and
unemployment within the state for the remaining allocation.

57 See Appendix A for complete definitions of formula factors for all three funding streams.
58 In WIOA, the term “outlying area” includes American Samoa, the Commonwealth of the Northern Mariana Islands,
Guam, the United States Virgin Islands, and Palau.
59 More precisely, WIOA Section 132(b)(1)(B)(iv)(II) describes two methods for calculating the minimum annual state
allotments, depending on the total amount allotted to states. The method described in the text is based on a total annual
state allotment of no more than $960 million, which is the dividing point between the two methods. It is worth noting
that the level of appropriations authorized for adult activities in WIOA does not exceed $960 million through FY2020.
60 In the event that either the 90% or the 130% calculation is less than 0.25% of the total state allotment, the state would
receive the 0.25% minimum.
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The within-state allocation requirements include a “hold harmless” provision for local areas, such
that a local area must receive an allocation percentage of not less than 90% of the average
allocation percentage of that area for the two preceding fiscal years.
Dislocated Worker Activities
Funding for the dislocated worker program in WIOA consists of two parts: the National Reserve
and state formula grants. From total funding appropriated for the Dislocated Workers Activities
program in a fiscal year, WIOA Section 132(a)(2)(A) specifies that 20% is to be used for a
National Reserve account, which provides for National Dislocated Worker Grants (NDWG) and
other services for dislocated workers.61
The remaining 80% of the Dislocated Worker allotment is for state formula grants and is allotted
to states on the basis of the following factors:
 one-third of the funds are allotted on the basis of each state’s relative share of
total unemployment;
 one-third of the funds are allotted on the basis of each state’s relative share of
excess unemployment; and
 one-third of the funds are allotted on the basis of each state’s relative share of
long-term unemployment.
Unlike the dislocated worker funding formula in WIA, the WIOA dislocated workers’ formula
adds provisions for minimum and maximum allotments. Similar to the adult and youth formula
grants, starting in PY2016 the Dislocated Worker formula grant program includes “hold
harmless” and “stop gain” provisions such that individual states will not experience large swings
in year-to-year funding for this stream. Specifically, a state may not receive less than 90% of its
relative share of prior year funding nor more than 130% of its relative share of prior year funding.
Unlike the Adult and Youth formula grants, however, WIOA does not include a small-state
minimum for the Dislocated Worker formula grants.
After funds are allotted from ETA to individual states by formula, the governor of each state must
reserve not more than 15% of the Dislocated Worker Activity state allotment for statewide
“employment and training activities.” In addition, of the state allotment for Dislocated Worker
Activities, the governor of each state must also reserve not more than 25% for rapid response
activities. In sum, not more than 40% of dislocated worker state allotments are reserved at the
state level for statewide activities.
The remainder of the Dislocated Worker Activities funding stream must be allocated to local
areas based on a state-developed formula that takes into account the following data:
 insured unemployment (i.e., individuals receiving unemployment insurance
benefits);
 unemployment concentrations;
 plant closings and mass layoffs;

61 WIOA Section 132(a)(2)(A) requires that 20% of the amount appropriated for Dislocated Worker Employment and
Training Activities is to be used for four purposes: reservation for outlying areas for Dislocated Worker Employment
and Training Activities (Section 132(b)(2)(A)), dislocated worker technical assistance (Section 168(b)), dislocated
worker projects (Section 169(c)), and National Dislocated Worker Grants (Section 170). The reservation for outlying
areas is not more than 0.25% of the total Dislocated Worker Activities appropriation and is funded from the National
Reserve reservation.
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 declining industries;
 farmer-rancher economic hardship; and
 long-term unemployment.
WIOA adds a “hold harmless” provision to the within-state allocation requirements for local
areas, such that a local area must receive an allocation of not less than 90% of the average
allocation percentage of that area for the two preceding fiscal years. Under WIA, there was no
hold harmless provision for local area allocations.
Youth Activities
Funds for youth employment and training activities are allotted from ETA to states on the basis of
the following factors:62
 one-third of the funds are allotted on the basis of each state’s relative share of
total unemployed in areas of substantial unemployment (ASU);
 one-third of the funds are allotted on the basis of each state’s relative share of
excess unemployed; and
 one-third of the funds are allotted on the basis of each state’s relative share of
economically disadvantaged youths.
Key features of the state formula allotment for WIOA Youth Activities include the following:
 A reservation equal to 4% of the amount by which Youth Activities
appropriations exceed $925 million to support youth migrant and seasonal
farmworker workforce activities.
 A reservation of not more than 1.5% of the total Youth Activities appropriation
for youth Native American workforce activities.
 A reservation for outlying areas of 0.25% of the total Youth Activities
appropriation.
 A minimum grant amount equal to 0.25% of the total allocation to all states in a
given program year.63 For example, in PY2015, the state minimum allotment
under the youth funding stream was $2,037,653, which is 0.25% of the total
allotted to all states ($815,061,036).
 “Hold harmless” provisions such that individual states will not experience large
swings in year-to-year funding for this stream. Specifically, a state may not
receive less than 90% of its relative share of prior-year funding nor more than
130% of its relative share of prior-year funding.64
The remainder of the Youth Activities funding stream is reallocated to local areas within the state
on the basis of either

62 See Appendix A for complete definitions of formula factors for all three funding streams.
63 More precisely, WIOA Section 127(b)(1)(C)(iv)(II) describes two methods for calculating the minimum annual state
allotments, depending on the total amount allocated to states. The method described in the text above is based on a total
annual state allocation of no more than $1 billion, which is the dividing point between the two methods.
64 In the event that either the 90% or the 130% calculation is less than 0.25% of the total state allocation, the state
would receive the 0.25% minimum.
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 the same three-factor formula used for state allocations but with substitution of
local area relative share of state total; or
 an allocation formula to local areas equal to not less than 70% of the funds they
would have received using the unemployment and poverty factors, with the
remaining portion of funds allocated on the basis of a formula that incorporates
additional factors relating to excess youth poverty in urban, rural, and suburban
local areas and excess unemployment above the state average in these areas.65
The within-state allocation requirements include a “hold harmless” provision for local areas, such
that a local area must receive an allocation of not less than 90% of the average allocation
percentage of that area for the two preceding fiscal years.
Job Corps66
Overview and Purpose
The purpose of Job Corps is to provide disadvantaged youth with the skills needed to obtain and
hold jobs, enter the Armed Forces, or enroll in advanced training or higher education. Job Corps
participants must be ages 16 through 24, low-income, and facing one or more of the following
barriers to education and employment: (1) basic skills deficient; (2) a school dropout;
(3) homeless, a runaway, a foster child, or aged out of foster care; (4) a parent; or (5) an
individual who requires additional education, career and technical education or training, or
workforce preparation skills to be able to obtain and retain employment that leads to economic
self-sufficiency.67 In addition to receiving academic and employment training, young people also
engage in social and other services to promote their overall well-being. Funds for the Job Corps
program are appropriated annually to DOL, which administers the program and contracts with
private organizations to run centers (see next section).
Structure
Currently, 126 Job Corps centers operate throughout the country and are mostly operated for DOL
by private companies through selective competitive contracting processes.68 Of the 126 centers,
27 sites are known as Civilian Conservation Corps Centers, which are jointly operated by DOL
and the Department of Agriculture or the Department of the Interior. Programs at these sites focus
on conserving, developing, or managing public natural resources or public recreational areas.
Most Job Corps centers are located on property that is owned or leased long term by the federal
government.
Job Corps centers may be operated by a federal, state, or local agency; an area career and
technical education school, or residential vocational school; or a private organization.
Authorization for new Job Corps centers is specified in appropriations law. DOL initiates a
competitive process seeking applicants that are selected based on their ability to coordinate

65 Such a formula must be developed by the state WDB and approved by the Secretary of Labor as part of the state
plan. Section 128(b)(3) of WIOA.
66 For more information on Job Corps, see CRS Report R47208, Job Corps: A Primer.
67 A veteran is eligible if he or she meets the eligibility criteria, except that the income requirement does apply if
income earned from the military within the six-month period prior to applying for the program would exceed the
income limit.
68 These centers are operated in 50 states, the District of Columbia, and Puerto Rico.
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activities in the workforce system for youth, their ability to offer career and technical training
opportunities that reflect local employment opportunities, past performance, proposed costs, and
other factors. Center operators must meet or exceed performance indicators if their contracts are
to be renewed. In addition, center operators considered “high-performing,” as defined under
WIOA, may be considered in any competitive selection process carried out to operate the center.
This enables such centers to compete in any procurement that is underway, including any
procurement that has been set aside for a small business. Centers may also be subject to closure if
they are low-performing.
Services
Students may participate in the Job Corps program for up to two years, though some may stay
longer under specified circumstances. While at a Job Corps center, students receive the following
services and assistance:
 academic, employment, and social skills training;
 work-based learning, which includes career and technical skills training and on-
the-job training; and
 counseling and other residential support services, including transportation, child
care, recreational activities, and living and other allowances.
Job Corps centers provide services both onsite and offsite, and they contract some of these
services. Centers rely on outreach and admissions contractors to recruit students to the program.
These contractors may include a One-Stop center, community action organizations, private for-
profit and nonprofit businesses, labor organizations, or other entities that have contact with youth.
Contractors seek out potential applicants, conduct interviews with applicants to identify their
needs and eligibility status, and identify youth who are interested and likely Job Corps
participants. Similarly, centers rely on placement agencies—organizations that enter into a
contract or other agreement with Job Corps—to provide placement services for graduates and, to
the extent possible, former students. Services such as vocational training are sometimes provided
by outside organizations.
National Programs
In addition to state formula grant programs and Job Corps, WIOA authorizes a number of
competitive grant-based programs to provide employment and training services to special
populations.
Native American Programs (Section 166)
This competitive grant program provides comprehensive workforce investment activities—
academic, occupational, and literacy—to assist Indian, Alaska Native, and Native Hawaiian
participants preparing to enter, reenter, or retain unsubsidized employment leading to self-
sufficiency and to promote economic and social development of Native American communities.
In addition, supplemental services are provided to Indian, Alaska Native, and Native Hawaiian
youth on or near Indian reservations and in Oklahoma, Alaska, or Hawaii.
The Secretary of Labor distributes funding authorized under WIOA Section 166 every four years
through a competitive grant process or through contracts or cooperative agreements with Indian
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tribes, tribal organizations, Alaska Native entities, Indian-controlled organizations, or Native
Hawaiian organizations.69
Migrant and Seasonal Farmworker Program (Section 167)
This competitive grant program, also referred to as the National Farmworker Jobs Program,
provides training and related services (including housing services), and technical assistance, to
disadvantaged migrant and seasonal agricultural workers and their dependents. The goal of the
Migrant and Seasonal Farmworker Program is to enhance the ability of the eligible population to
obtain or retain unsubsidized employment or to stabilize unsubsidized employment. The program
was first authorized by the Economic Opportunity Act of 1964.
The Secretary of Labor distributes funding authorized under WIOA Section 167 every four years
through a competitive grant process or through contracts with entities with an understanding of
the problems faced by the migrant and seasonal farmworker population and a familiarity with the
area served.
Technical Assistance (Section 168)
Section 168 of WIOA requires that the Secretary of Labor provide three types of technical
assistance.
First, the Secretary must provide general technical assistance, such as training, coordination, and
staff development, to support activities such as the replication of programs of demonstrated
effectiveness, the training of state and local WDBs, and the transition from WIA to WIOA.
Authorized technical assistance may be implemented through competitive grants or cooperative
agreements or contracts.
Second, from the Dislocated Worker National Reserve (a statutorily required reservation of 20%
from the Dislocated Worker Employment and Training Activities grant program allotment), the
Secretary of Labor must reserve no more than 5% (of the National Reserve) to provide technical
assistance to states that do not meet the performance accountability measures for dislocated
workers.
Third, the Secretary is required to establish a system through which states may share information
on promising and proven workforce development practices.
Evaluations and Research (Section 169)
Section 169 of WIOA authorizes the Secretary of Labor to conduct three categories of evaluation
and research activities.
First, the Secretary, through grants, contracts, or cooperative agreements, must provide continuing
evaluation of WIOA programs and activities. Evaluations are required to use “appropriate and
rigorous methodology and research designs” that address the general effectiveness and impact of
WIOA-authorized programs.
Second, the Secretary is required every two years to publish a plan that describes the Department
of Labor’s priorities for research, studies, and multistate projects in the subsequent five-year
period, with the following parameters:

69 WIOA Section 166(k) also authorizes appropriations for a separate competitive grant program to improve workforce
investment activities for unique populations in Alaska or Hawaii.
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 research projects must contribute to solving employment and training problems
identified in the planning process;
 studies may include a range of topics on employment and training but the
Secretary is required to conduct studies on career pathways for health care
providers or providers of early education and child care and on equivalent pay for
men and women; and
 multistate projects may include addressing specialized employment and training
needs of particular subpopulations, industry-wide skill shortages, or
dissemination of best practices.
Third, from the Dislocated Worker National Reserve (a statutorily required reservation of 20%
from the Dislocated Worker Employment and Training Activities grant program allotment), the
Secretary of Labor must use no more than 10% (of the National Reserve) to carry out
demonstration and pilot projects, multiservice projects, and multistate projects related to
dislocated worker employment and training needs.
National Dislocated Worker Grants (Section 170)
From total funding appropriated for the Dislocated Worker Employment and Training Activities
program in a fiscal year, WIOA Section 132(a)(2)(A) specifies that 20% is to be used for a
National Reserve account, which provides for National Dislocated Worker Grants (NDWG) and
other services for dislocated workers.70 Specifically, WIOA Section 132(a)(2)(A) provides that
the 20% reservation is to be used for four purposes:
 reservation for outlying areas for Dislocated Worker Employment and Training
Activities (WIOA Section 132(b)(2)(A));
 dislocated worker technical assistance (WIOA Section 168(b));
 dislocated worker projects (WIOA Section 169(c)); and
 National Dislocated Worker Grants (WIOA Section 170).
The majority of the National Reserve funding is used for NDWG activities.
These NDWGs are awarded primarily to states and local WDBs to provide services for eligible
individuals, including dislocated workers, civilian employees of the Departments of Defense or
Energy employed at an installation that is being closed within 24 months of eligibility
determination, employees or contractors with the Department of Defense at risk of dislocation
due to reduced defense expenditures, or certain other members of the Armed Forces.
Services include job search assistance and training for eligible workers. In addition, NDWG
funding may be used to provide direct employment (“disaster relief employment”) to individuals
for a period of up to 12 months for work related to a disaster.
YouthBuild Program (Section 171)
YouthBuild is a competitive grant program that provides funding to support disadvantaged youth
in developing occupational and educational skills. Specifically, the purpose of the YouthBuild
grant program is to

70 In practice, the amount provided for each of these activities is often specified in appropriations legislation.
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 enable disadvantaged youth to obtain the education and employment skills
necessary to achieve economic self-sufficiency in occupations in demand and
post-secondary education and training opportunities;
 provide disadvantaged youth with opportunities for meaningful work and service
to communities;
 foster the development of employment and leadership skills and a commitment to
community development among youth in low-income communities;
 expand the supply of permanent affordable housing for homeless individuals and
low-income families by utilizing the energy of disadvantaged youth; and
 improve the quality and energy efficiency of community and public facilities.
Services include a range of education and workforce investment activities, including instruction,
occupational skills training, alternative education, mentoring, and training in the rehabilitation or
construction of housing. Notably, any housing unit that is rehabilitated or reconstructed as part of
a YouthBuild-funded project may be available only for rental by, or sale to, homeless individuals
or low-income families, or for use as transitional or permanent housing to assist homeless
individuals achieve independent living. In addition to construction activities, programs offered
within a YouthBuild program can support career pathway training targeted toward other high-
demand occupations and industries.
An individual is eligible for the YouthBuild program if he or she is between the ages 16 and 24, a
member of a low-income family, a youth in foster care, a youth offender, an individual with a
disability, a child of an incarcerated parent, or a migrant youth, and a school dropout. However,
youth who do not meet the income or dropout criteria may also be eligible, so long as they are
basic skills deficient despite having earned a high school diploma, GED, or the equivalent; or
they have been referred by a high school for the purpose of obtaining a high school diploma. A
maximum of 25% of participants may qualify for eligibility according to these latter criteria.
Performance Accountability in WIOA
Section 116 of WIOA sets forth state and local “performance accountability measures” that apply
“across the core programs to assess the effectiveness of States and local areas in achieving
positive outcomes for individuals served by those programs.” The WIOA performance
accountability system is designed around the “primary indicators” of performance for the “core
programs” and took effect starting in PY2016 (July 1, 2016–June 30, 2017).71
The performance accountability system in WIOA consists of two main components—indicators
of performance and levels of performance. Performance indicators are the objective variables on
which states and localities must report and are specified in statute, while performance levels are
the numerical score for indicators and are negotiated between states, localities, and the
Departments of Labor and Education.

71 WIOA Section 506(b)(1) authorizes the performance accountability system under Section 136 of WIA to remain in
effect until July 1, 2016. For information on the WIA performance accountability system, see CRS Report R41135, The
Workforce Investment Act and the One-Stop Delivery System, by David H. Bradley (available to congressional clients
upon request).
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Indicators of Performance in WIOA
Under WIOA, “primary indicators of performance” consist of the required measures described in
Section 116(b)(2)(A) and any additional indicators identified by individual states.72
The six primary indicators of performance in WIOA are
 the percentage of program participants who are in unsubsidized employment
during the second quarter after exit from the program;
 the percentage of program participants who are in unsubsidized employment
during the fourth quarter after exit from the program;
 the median earnings of program participants who are in unsubsidized
employment during the second quarter after exit from the program;
 the percentage of program participants who obtain a recognized postsecondary
credential (or secondary school diploma or equivalent) during participation or
within one year after program exit;
 the percentage of program participants who are in an education or training
program that leads to a recognized postsecondary credential or employment and
who are achieving measurable skill gains toward such a credential or
employment; and
 the indicators of effectiveness in serving employers established by the Secretaries
of Labor and Education.
Programs that use the primary indicators of performance are listed in Table 4 below.
Table 4. WIOA Programs Using Primary Indicators of Performance
Applicable Program
Program Authorization
Adult Employment and Training Activities
WIOA Title I, Subtitle B, Chapter 3
Dislocated Worker Employment and Training
WIOA Title 1, Subtitle B, Chapter 3
Activities
Youth Activitiesa
WIOA Title I, Subtitle B, Chapter 2
Job Corpsb
WIOA Title I, Subtitle C
Native American Programsc
WIOA Title I, Section 166
Migrant and Seasonal Farmworker Programs
WIOA Title I, Section 167
YouthBuildd
WIOA Title I, Section 171
Adult Education and Literacy Activities (AEFLA)
WIOA Title II
Employment Servicee
Sections 1-13 of the Wagner-Peyser Act
Vocational Rehabilitation State Grant Program
Title I of the Rehabilitation Act of 1973
Source: The Workforce Innovation and Opportunity Act, P.L. 113-28.
a. For the two primary indicators related to employment, Youth Activities program participants are allowed
to be in education or training activities, or in unsubsidized employment.

72 The discussion in this section on performance indicators is based on the requirements for states. The indicators for
local areas are the same.
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b. For the two primary indicators related to employment, Job Corps program participants are allowed to be in
education or training activities, or in unsubsidized employment. WIOA further specifies performance
indicators for Job Corps recruiters and transition service providers.
c. Activities authorized under the Native American Programs section use additional indicators developed by
the Secretary of Labor.
d. For the two primary indicators related to employment, YouthBuild program participants are allowed to be
in education or training activities, or in unsubsidized employment.
e. The two indicators related to credentials are not used for the activities authorized by the Employment
Service.
In addition to the indicators listed in Table 4, states may identify additional indicators of
performance and identify these in the state plan required under Section 102.
Levels of Performance in WIOA
For each of the primary indicators of performance described above, each state is required to
establish a “state adjusted level of performance” in the state plan. That is, the indicators are
identified in WIOA Section 116, but the levels are determined through negotiation between states
and the Secretaries of Labor and Education. In the state plan, states must identify the expected
(adjusted) level of performance for each of the primary indicators for the first two program years
of the state plan, which covers four program years.73 These agreed-upon levels then become the
“state adjusted level of performance” that is incorporated into the plan.74
The negotiation between governors and the Secretaries that leads to an agreement on adjusted
levels of performance must be based on the following four factors:75
 the relative levels across states;
 the application of an objective statistical model developed by the Secretaries of
Labor and Education that helps make adjustments for actual economic conditions
and characteristics of program participants;
 the impact of agreed-upon levels on promoting “continuous improvement” in
performance and ensuring “optimal return on investment”; and
 the extent to which the adjusted levels of performance assist states in meeting
performance goals set by the Secretaries of Labor and Education.
As part of the process for determining adjusted levels of performance, WIOA requires the
development and use of a statistical adjustment model.76 The objective statistical model is
intended to assist states in setting performance levels and in revising state adjusted levels of
performance by taking into account the differences among states in actual economic conditions
and the characteristics of participants served. In practice, this means an individual state sets its
performance goals based on the relative (to other states) economic conditions and characteristics

73 For program years 3 and 4, each governor must also reach an agreement again with the Secretaries of Labor and
Education for the adjusted levels of performance. The factors for consideration in the agreement, however, are the same
as for the program years 1 and 2. The expected levels for program years 3 and 4 are submitted as a modification to the
state plan.
74 Though not discussed here, WIOA also requires local performance measures, but these consist of the same primary
indicators required for states. The local levels of performance are determined by negotiation between the local
workforce development board (LWDB), the chief local elected official, and the governor and are supposed to take into
account specific economic, demographic, and other characteristics of locally served populations.
75 The factors are specified in WIOA Section 116(b)(3)(A)(v).
76 WIOA Section 116(b)(3)(A)(viii).
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of participants and revises its performance levels at the end of a program year based on the actual
economic conditions and characteristics of participants served.
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Appendix A. Glossary of Selected WIOA Terms
Areas of Substantial Unemployment (ASU)—This concept is used in the Title I state formula
grants for Youth and Adult Activities. As defined in Sections 127(b)(2)(B) and
132(b)(1)(B)(v)(III), an ASU is “any area that is of sufficient size and scope to sustain a program
of workforce investment activities carried out under this subtitle and that has an average rate of
unemployment of at least 6.5 percent for the most recent 12 months.” States submit potential
ASU designations and DOL approves ASUs once each fiscal year.
Additional guidance from the Employment and Training Administration defines an ASU as a
“contiguous area with a current population of at least 10,000 and an average unemployment rate
of at least 6.5 percent for the 12-month reference period.”77 If a state has a statewide
unemployment rate of at least 6.5%, the entire state will be designated as an ASU for allocation
purposes.78
Economically Disadvantaged—This concept is used in one of the factors for the Title I state
formula grants for Youth and Adult Activities. For the state formula grants for Youth Activities, a
“disadvantaged youth” is defined (in Section 127(b)(2)(C)) as an “individual who is age 16
through 21 who received an income, or is a member of a family that received a total family
income, that, in relation to family size, does not exceed the higher of the poverty line or 70
percent of the lower living standard income level.”79 Similarly, a “disadvantaged adult” is defined
(in Section 132(b)(1)(B)(v)(IV)) in the same way as a disadvantaged youth with the exception
that the individual is age 22 through 72.
Excess Unemployment—This concept is used in one of the factors for the Title I state formula
grants for Youth, Adult, and Dislocated Worker Activities. For the state formula grants for Youth
and Adult Activities, excess unemployment is defined (in Sections 127(b)(2)(D) and
132(b)(1)(B)(v)(VI)) as the higher of “the number that represents the number of unemployed
individuals in excess of 4.5 percent of the civilian labor force in the state” or “the number that
represents the number of unemployed individuals in excess of 4.5 percent of the civilian labor
force in areas of substantial unemployment in such state.” For the state formula grant for
Dislocated Worker Activities, excess unemployment is defined (in Section 132(b)(2)(B)(iii)) as
“the number that represents the number of unemployed individuals in excess of 4.5 percent of the
civilian labor force in the state.” For example, in a state with a civilian labor force of 100,000 and
an unemployment rate of 8.0% (which would equal 8,000 unemployed individuals), the “excess
unemployment” would be 3,500 (8.0% - 4.5% = 3.5%; 3.5% of 100,000 is 3,500).
Long-Term Unemployment—This concept is used in one of the factors for the Title I state
formula grants for Dislocated Worker Activities. For these grants, long-term unemployment is
defined (in Section 132(b)(2)(B)(ii)(III)) as the number of individuals in a state who have been
unemployed (as measured by the Bureau of Labor Statistics) for at least 15 weeks.
Relative Number/Share—This concept is used in the state formula grants for Youth, Adult, and
Dislocated Worker Activities. Each formula consists of three equally weighted factors. The
factors themselves are based on the concept of the “relative number” or “relative share” of that
factor compared to the analogous number in all of the states. An example from the Dislocated

77 Jane Oates, Assistant Secretary, Area of Substantial Unemployment Designation under the Workforce Investment Act
(WIA) for Program Year (PY) 2010, Employment and Training Administration, U.S. Department of Labor, TEGL No.
4-09, Washington, DC, September 3, 2009, http://wdr.doleta.gov/directives/attach/TEGL/TEGL04-09.pdf.
78 Ibid.
79 “Poverty line” and “lower living standard income level” are defined in WIOA Sections 3(49) and 3(36), respectively.
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Worker Activities formula—based on the factors of regular unemployment, excess
unemployment, and long-term unemployment—will demonstrate this. In the PY2015 state
formula allotments for Dislocated Workers, Nevada had the following factor values:
 Regular Unemployment = 112,565;
 Excess Unemployment = 50,878; and
 Long-Term Unemployment = 64,000.
For each of these factors, Nevada’s “relative share” was calculated by dividing the number of
individuals in Nevada by the number of individuals in all states. For example, Nevada’s relative
share of regular unemployment was 1.10% (112,565/10,231,705); its share of excess
unemployment was 1.58% (50,878/3,212,642); and its share of long-term unemployment was
1.25% (64,000/5,128,900). Multiplying each of these individuals by 1/3 and summing the results
would give Nevada a total share of 1.31% ((1.10%*1/3) + (1.58%*1/3) + (1.25%*1/3)). Finally,
multiplying Nevada’s share, 1.31%, by the total Dislocated Worker state funding for all states
($1,012,728,000) yields $13,272,377, which Nevada received in PY2015.
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Appendix B. Appropriations for Programs
Authorized Under WIOA
Table B-1, Table B-2, Table B-3, and Table B-4 below show the appropriations for every program
authorized in WIOA. Unlike its predecessor, the Workforce Investment Act, which authorized
“such sums as may be necessary” for its programs, WIOA sets specific authorization levels for
FY2015 through FY2020. Actual appropriations may differ from the levels authorized in P.L.
113-128, which are not shown in the tables. While authorization of appropriations for WIOA
programs and activities expired after FY2020, authorization was extended through the
appropriations process, most recently for FY2022 by the Consolidated Appropriations Act, 2022
(P.L. 117-103)

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Table B-1. WIOA Title I, Workforce Development Activities:
Appropriations—FY2015 to FY2022
(dollars in thousands)
Program
FY2015
FY2016
FY2017
FY2018
FY2019
FY2020
FY2021
FY2022
State Formula Grant Programsa
$2,844,967
$2,930,691 $2,855,691 $3,110,191 $3,010,691 $3,435,691 $3,126,191 $3,180,191
Youth Workforce Investment
$831,842
$873,416
$873,416
$903,416
$903,416
$913,130
$921,130
$933,130
Adult Employment and Training
$776,736
$815,556
$815,556
$845,556
$845,556
$854,649
$862,649
$870,649
Dislocated Worker Employment and Trainingb
$1,236,389
$1,241,719
$1,166,719
$1,361,219
$1,261,719
$1,667,912
$1,342,412
$1,376,412
Dislocated Worker Formula
$1,015,530
$1,020,860
$1,020,860
$1,040,860
$1,040,860
$1,052,053
$1,061,553
$1,075,553
Dislocated Worker National Reserve
$220,859
$220,859
$145,859
$320,359
$220,859
$615,859
$280,859
$300,859
Job Corpsc
$1,688,155
$1,689,155 $1,704,155 $1,749,555 $1,718,655 $1,743,655 $1,748,655 $1,748,655
National Programs
$293,745
$313,740
$313,008
$330,509
$332,009
$345,509
$352,009
$359,509
Native American
$46,082
$50,000
$50,000
$54,000
$54,500
$55,000
$55,500
$57,000
Migrant and Seasonal Farmworker
$81,896
$81,896
$81,896
$87,896
$88,896
$91,896
$93,896
$95,396
YouthBuild
$79,689
$84,534
$84,534
$89,534
$89,534
$94,534
$96,534
$99,034
Technical Assistance
$0
$3,232
$2,500
$0
$0
$0
$0
$0
Evaluations and Researchd
$86,078
$94,078
$94,078
$99,079
$99,079
$104,079
$106,079
$108,079
Reintegration of Ex-Offenders
$82,078
$88,078
$88,078
$93,079
$93,079
$98,079
$100,079
$102,079
Workforce Data Quality Initiative
$4,000
$6,000
$6,000
$6,000
$6,000
$6,000
$6,000
$6,000
Total Title I
$4,826,867
$4,933,586 $4,872,854 $5,190,255 $5,061,355 $5,524,855 $5,226,855 $5,288,355
Source: Department of Labor Congressional Budget Justifications, Department of Labor Operating Plans for FY2015 to FY2022, accessible at
https://www.dol.gov/general/budget/archive. Figures include supplemental appropriations, which occurred in FY2018 and FY2020.
a. For state formula grant allotments, see http://www.doleta.gov/budget/statfund.cfm.
b. The Dislocated Worker Employment and Training program authorization requires the Secretary of Labor to reserve 20% of the appropriation for a National
Reserve that funds national dislocated worker activities, prior to allotting the remaining 80% of the appropriation to states.
c. Job Corps funding includes administration, operation, and construction.
d. WIOA Section 169 (“Evaluations and Research”) does not include specifically titled programs but rather authorizes the Secretary of Labor to carry out evaluations,
research, studies, and multistate projects.
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Table B-2. WIOA Title II, Adult Education and Family Literacy Act:
Appropriations—FY2015 to FY2022
(dollars in thousands)
Program
FY2015
FY2016
FY2017
FY2018
FY2019
FY2020
FY2021
FY2022
Total, Title II
$582,667
$595,667
$595,667
$630,667
$655,667
$670,667
$688,667
$704,167
State Grants
$568,955
$581,955
$581,955
$616,955
$641,955
$656,955
$674,955
$690,455
National
$13,712
$13,712
$13,712
$13,712
$13,712
$13,712
$13,712
$13,712
Leadership
Activities
Source: Compiled by CRS from Department of Education Budget Tables.
Notes: 29 U.S.C. §3275 authorizes a single amount of funding for all activities under AEFLA/Title II of WIOA. From the total Title II appropriation, 2% is reserved for
National Leadership Activities (29 U.S.C. §3291(a)(1), fol owed by a 12% reservation for English Language-Civics grant ((29 U.S.C. §3291(a)(2). The remainder after these
two reservations is allotted as state grants. Fol owing the convention of the source document (Department of Education Budget Tables), totals are reported for State
Grants and National Leadership Activities, but not for English Language-Civics grants. Funding for subcomponents of AEFLA reflect actual funding, which may differ from
reservations specified in law.
Table B-3. WIOA Title III, Amendments to the Wagner-Peyser Act:
Appropriations—FY2015 to FY2022
(dollars in thousands)
Program
FY2015
FY2016
FY2017
FY2018
FY2019
FY2020
FY2021
FY2022
Workforce and
$60,153
$67,653
$67,653
$62,653
$62,653
$62,653
$62,653
$62,653
Labor Market
Information
System
Source: Compiled by CRS from the Workforce Innovation and Opportunity Act (P.L. 113-128), Department of Labor Congressional Budget Justifications, Department
of Labor Operating Plans for FY2015 to FY2022.
Notes: Appropriations for the Employment Service are authorized through the Wagner-Peyser Act and are not included here.
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Table B-4. WIOA Title IV, Amendments to the Rehabilitation Act of 1973:
Appropriations—FY2015 to FY2022
(dollars in thousands)
Program
FY2015
FY2016
FY2017
FY2018
FY2019
FY2020
FY2021
FY2022
Department of Education

Vocational Rehabilitation
$3,091,614
$3,161,130
$3,164,054
$3,225,038
$3,303,627
$3,397,048
$3,458,195
$3,507,131
State Grants
Client Assistance
$13,000
$13,000
$13,000
$13,000
$13,000
$13,000
$13,000
$13,000
Program
Training
$30,188
$30,188
$29,388
$29,388
$29,388
$29,388
$29,388
$5,796
Demonstration
$5,796
$5,796
$5,796
$5,796
$5,796
$5,796
$5,796
$3,500
Protection and
$17,650
$17,650
$17,650
$17,650
$17,650
$17,650
$18,150
$19,150
Advocacy
Supported Employment
$27,548
$27,548
$27,548
$22,548
$22,548
$22,548
$22,548
$22,548
Independent Living–
$33,317
$33,317
$33,317
$33,317
$33,317
$33,317
$33,317
$33,317
Services to the Blind
Department of Health and Human Services

National Institute on
$103,970
$103,970
$103,731
$104,710
$108,592
$111,970
$112,970
$116,470
Disability, Independent
Living, and Rehabilitation
Research
Independent Living–
$22,878
$22,878
$22,826
$24,848
$25,352
$25,378
$25,378
$25,378
Services
Independent Living–
$78,305
$78,305
$78,125
$88,054
$90,712
$90,805
$90,805
$92,805
Centers
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Program
FY2015
FY2016
FY2017
FY2018
FY2019
FY2020
FY2021
FY2022
Independent Agencies

National Council on
$3,250
$3,250
$3,250
$3,250
$3,250
$3,350
$3,350
$3,500
Disability
Access Board
$7,548
$8,023
$8,190
$8,190
$8,400
$9,200
$9,200
$9,750
Total Title IV
$3,435,064
$3,505,055
$3,506,875
$3,575,789
$3,661,632
$3,759,450
$3,822,097
$3,878,233
Source: Compiled by CRS from the Workforce Innovation and Opportunity Act (P.L. 113-128), Department of Education Budget Tables, Department of Health and
Human Services Congressional Budget Justifications, and P.L. 117-103.
Notes: Vocational Rehabilitation Grants to States are mandatory spending and subject to sequestration. Funding levels in the table reflect post-sequestration
appropriation levels.
a. WIOA authorized $3,302,053,000 per year for FY2015 through FY2020. Funding for these mandatory grants, however, is determined by a formula in the
Rehabilitation Act that specifies that each year’s funding will equal at least the prior year’s funding plus an increase equal to inflation. WIOA did not amend this
formula, thus funding for grants in FY2015 and subsequent years wil be above the authorized level.

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Author Information

Benjamin Collins
David H. Bradley
Analyst in Labor Policy
Specialist in Labor Economics

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
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Congressional Research Service
R44252 · VERSION 6 · UPDATED
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