Multiple Employment Training Programs: Overlap Among Programs Raises
Questions About Efficiency (Letter Report, 07/11/94, GAO/HEHS-94-193).
A strong internationally competitive economy depends, in part, on
effectively preparing workers to compete in the workforce. Over the
years, the federal government has invested considerable efforts and
resources in programs that facilitate entry into the workforce, help
workers overcome barriers that impede their ability to compete for jobs,
and assist dislocated workers in reentering the workforce. GAO found
that the multitude of existing government-run employment training
programs targeting the poor, dislocated workers, older workers, and
youth overlap considerably in their goals, clients, services, and
service delivery mechanisms. These redundancies foster inefficiencies
and make it hard to determine the effectiveness of specific programs or
the system as a whole. As Congress considers program consolidation, GAO
emphasizes that identifying the extent of similarity among programs is
only the first step. Determining which programs should be considered for
consolidation requires more extensive study and decisions on participant
eligibility and the level of services provided by any new program
resulting from consolidation.
--------------------------- Indexing Terms -----------------------------
REPORTNUM: HEHS-94-193
TITLE: Multiple Employment Training Programs: Overlap Among
Programs Raises Questions About Efficiency
DATE: 07/11/94
SUBJECT: Vocational education
Employment or training programs
Aid for training or employment
Program management
Disadvantaged persons
Elderly persons
Minors
Program evaluation
Eligibility criteria
Aid to families with dependent children
IDENTIFIER: National Performance Review
AFDC
Food Stamp Program
Medicaid Program
JTPA
DOL Employment Training Services for the Disadvantaged
Program
Job Opportunities and Basic Skills Training Program
Food Stamp Employment and Training Program
HUD Family Self-Sufficiency Program
Dept. of Education Vocational Education Program
Dept. of Education Educational Opportunity Centers Program
Dept. of Education Student Literacy and Mentoring Corps
Program
DOL Economic Dislocation and Worker Adjustment Assistance
Program
Trade Adjustment Assistance Program
DOD Transition Assistance Program
ETA Senior Community Service Employment Program
ACTION Foster Grandparents Program
ACTION Senior Companion Program
Job Training Partnership Act Program
JOBS Program
DOL Summer Youth Employment and Training Program
HUD Youthbuild Program
Upward Bound Program
HHS Transitional Living for Runaway and Homeless Youth
Program
Job Training Consolidation Act of 1994
Reemployment Act of 1994
Reemployment and Retraining Act of 1994
Local Flexibility Act of 1993
National Workforce Preparation and Development Reform Act
Workforce Education Act of 1994
Consolidated and Reformed Education, Employment, and
Retraining Systems Act
**************************************************************************
* This file contains an ASCII representation of the text of a GAO *
* report. Delineations within the text indicating chapter titles, *
* headings, and bullets are preserved. Major divisions and subdivisions *
* of the text, such as Chapters, Sections, and Appendixes, are *
* identified by double and single lines. The numbers on the right end *
* of these lines indicate the position of each of the subsections in the *
* document outline. These numbers do NOT correspond with the page *
* numbers of the printed product. *
* *
* No attempt has been made to display graphic images, although figure *
* captions are reproduced. Tables are included, but may not resemble *
* those in the printed version. *
* *
* A printed copy of this report may be obtained from the GAO Document *
* Distribution Facility by calling (202) 512-6000, by faxing your *
* request to (301) 258-4066, or by writing to P.O. Box 6015, *
* Gaithersburg, MD 20884-6015. We are unable to accept electronic orders *
* for printed documents at this time. *
**************************************************************************
Cover
================================================================ COVER
Report to the Chairman, Subcommittee on Labor, Health and Human
Services and Education, Committee on Appropriations, U.S. Senate
July 1994
MULTIPLE EMPLOYMENT TRAINING
PROGRAMS - OVERLAP AMONG PROGRAMS
RAISES QUESTIONS ABOUT EFFICIENCY
GAO/HEHS-94-193
Multiple Employment Training Programs
Abbreviations
=============================================================== ABBREV
ABE - adult basic education
AFDC - Aid to Families with Dependent Children
CAETA - Clean Air Employment Transition Assistance
DCA - Defense Conversion Adjustment
DDP - Defense Diversification Program
EDWAA - Economic Dislocation and Worker Adjustment Assistance
EOC - Educational Opportunity Centers
ESL - English as a second language
FS E&T - Food Stamp Employment and Training
FSS - Family Self-Sufficiency
GED - General Educational Development
HHS - Department of Health and Human Services
HUD - Department of Housing and Urban Development
JOBS - Job Opportunities and Basic Skills Training
JTPA - Job Training Partnership Act
SCSEP - Senior Community Service Employment Program
SDA - service delivery area
SDDA - School Dropout Demonstration Assistance
SIPP - Survey of Income and Program Participation
SLMC - Student Literacy and Mentoring Corps
TAA - Trade Adjustment Assistance
TAP - Transition Assistance Program
VOC ED - Vocational Education
Letter
=============================================================== LETTER
B-257662
July 11, 1994
The Honorable Tom Harkin
Chairman, Subcommittee on Labor, Health
and Human Services and Education
Committee on Appropriations
United States Senate
Dear Mr. Chairman:
A strong internationally competitive economy depends, in part, on
effectively preparing workers to compete in the workforce. Over the
years, the federal government has invested considerable effort and
resources in programs that (1) facilitate entry into the workforce,
(2) help workers overcome barriers that hamper their ability to
compete for jobs, and (3) assist dislocated workers in reentering the
workforce. When viewed individually, the many programs and funding
streams that provide employment training assistance have
well-intended purposes. However, collectively they also confuse
clients, employers, and program administrators as well as raise
questions about the efficient use of program resources.
Because of your concern about the efficiency and effectiveness of the
federal employment training system and your interest in identifying
overlapping programs that may be consolidated, you asked us to
provide you information on similar programs that target four specific
groups--the economically disadvantaged, dislocated workers, older
workers, and youth. To accomplish this we compared key program
characteristics, including goals, clients, services, service delivery
approaches, and federal funding mechanisms.
To identify the programs that target each of the four groups, we used
as our starting point the collection of programs and funding streams
identified in our previous reports\1 as providing employment training
assistance.\2 We found that 38 of the 154 programs specifically
target 1 of the 4 groups.\3 For each program, we identified specific
program goals and allowable services through a review of federal
statutes and regulations. We also consulted with program managers in
applicable federal departments or agencies to confirm allowable
services. In addition, we obtained information on clients and
service delivery approaches using a variety of sources--agency
reports, budget documents, the Catalog of Federal Domestic
Assistance,\4 and other GAO reports.
--------------------
\1 Multiple Employment Training Programs: Conflicting Requirements
Hamper Delivery of Services (GAO/HEHS-94-78, Jan. 28, 1994).
Multiple Employment Training Programs: Overlapping Programs Can Add
Unnecessary Administrative Costs (GAO/HEHS-94-80, Jan. 28, 1994),
and Multiple Employment Training Programs: Most Federal Agencies Do
Not Know If Their Programs Are Working Effectively (GAO/HEHS-94-88,
Mar. 2, 1994).
\2 As used in this report, "employment training assistance" refers to
any assistance that enhances individual skills or employment
opportunities. See appendix I for a listing of the target
populations, the number of programs and funding streams that
specifically target them, and proposed funding levels for fiscal year
1994.
\3 See appendix II for a list of the 38 programs by target group.
\4 1993 Catalog of Federal Domestic Assistance (Washington, D.C.:
Government Printing Office).
BACKGROUND
------------------------------------------------------------ Letter :1
The proposed budget for fiscal year 1994 included about $25 billion
for 154 programs or funding streams that (1) assist the unemployed,
(2) enhance skills or employability of workers, or (3) create
employment opportunities. These services are often provided through
parallel administrative structures involving 14 federal departments
and independent agencies. For example, five different
departments--Agriculture, Education, Health and Human Services,
Housing and Urban Development, and Labor--administer the nine
programs that target the economically disadvantaged. Similarly,
three departments administer dislocated worker programs, two
administer older worker programs, and five administer programs for
youth. Each department provides staff and incurs costs, both at
headquarters and at the state or local level, to plan and monitor
these programs. In addition, each has its own set of policies,
procedures, and requirements. Generally, their programs use the same
service delivery approaches and funding mechanisms. Most of them
provide grants to state and local agencies to identify clients,
provide basic or vocational training, and link clients with
employers.
Our prior work has shown that the current patchwork of employment
training programs hampers the delivery of services and creates
confusion for workers, employers, and administrators. In addition,
we found that numerous programs can add unnecessary administrative
costs and raise questions about the effectiveness of individual
programs, as well as the system as a whole.
Concerns about these problems in the current system have led the
administration and others to suggest the need for overhauling
programs that provide employment training to the same target
populations. For example, the 1993 report of the National
Performance Review\5 concluded that the current system of employment
training programs is inefficient and ineffective, and it recommended
several changes, including the consolidation of programs serving
dislocated workers.
The National Commission for Employment Policy and the Welfare
Simplification and Coordination Advisory Committee\6 also recommend a
major overhaul of the many federal employment training programs that
serve the economically disadvantaged. They expressed concern that
the existing program structures acted as barriers to clients trying
to gain access to services. The Welfare Simplification Committee
concluded that "eliminating duplicative bureaucracies will reduce
administrative costs, saving money that can be used, instead, for
client services."
In addition, several bills have been introduced in the Congress that
would significantly overhaul the employment training system.\7 These
bills take a variety of approaches to changing the system--program
consolidation and elimination, new commissions to identify
opportunities for overhauling programs, and using a "block grant"
approach to fund state and local programs. Another approach would
leave most programs intact, but consolidate service delivery through
"one-stop career centers" at the local level.
--------------------
\5 From Red Tape to Results: Creating a Government That Works Better
and Costs Less, Vice President Al Gore (Sept. 7, 1993).
\6 The National Commission for Employment Policy is an independent
federal agency funded through the Department of Labor. Its 15
members are appointed by the President to broadly represent cross
sections of the nation concerned with employment and training
matters. The Welfare Simplification and Coordination Advisory
Committee was established by the Congress in 1990 to examine barriers
to program participation and reasons for those barriers in four major
federal assistance programs--Aid to Families with Dependent Children
(AFDC), Food Stamps, Medicaid, and housing assistance programs.
\7 As of June 1, 1994, at least 10 bills that offer plans for
overhauling some or all of the programs that provide employment
training assistance have been introduced in the Congress. In the
Senate, three bills have been introduced: (1) the Job Training
Consolidation Act of 1994 (S.1943) introduced March 17, 1994, by
Senator Kassebaum; (2) the Reemployment Act of 1994 (S.1951)
introduced March 17, 1994, by Senator Moynihan; and (3) the
Reemployment and Retraining Act of 1994 (S. 1964) introduced March
24, 1994, by Senator Metzenbaum. In the House, seven bills have been
introduced: (1) the Training for Future Jobs Act of 1993 (H.R.
2825) introduced August 2, 1993, by Congressmen Conyers; (2) the
Local Flexibility Act of 1993 (H.R. 2856) introduced August 4, 1993,
by Congressman Conyers; (3) the National Workforce Preparation and
Development Reform Act (H.R. 2943) introduced August 6, 1993, by
Congressman Goodling; (4) the Workforce Education Act of 1994 (H.R.
3736) introduced January 26, 1994, by Congressman Andrews; (5) the
Reemployment Act of 1994 (H.R. 4040) introduced March 16, 1994, by
Congressman Rostenkowski; (6) the Reemployment Act of 1994 (H.R.
4050) introduced March 16, 1994, by Congressman Ford; and (7) the
Consolidated and Reformed Education, Employment, and Retraining
Systems Act (H.R. 4407) introduced May 12, 1994, by Congressman
Goodling. In addition, Senators Kassebaum and Kennedy recently
announced a bipartisan effort to reform and consolidate federal job
training programs.
RESULTS IN BRIEF
------------------------------------------------------------ Letter :2
Overlap among federal programs targeting each client group in our
analysis--the economically disadvantaged, dislocated workers, older
workers, and youth--raises questions concerning the efficient and
effective use of resources. For each target group, we found that
programs shared common goals, often served the same categories of
clients, offered overlapping services, and used parallel delivery
approaches despite having separate administrative structures and
funding mechanisms. We also found that programs operating at the
local level often shared resources and provided assistance to clients
while the clients were enrolled in other programs. In some
instances, the relationship between the programs was so close that it
was difficult to determine which program was providing which services
to the client.
Of the 38 programs in our analysis, we found that 30 shared common
goals, had comparable clients, provided similar services, and used
parallel delivery mechanisms and administrative structures with at
least one other program such that these programs could be described
as overlapping. We found that 7 of these programs targeted the
economically disadvantaged, 9 programs targeted dislocated workers, 4
programs targeted older workers, and 10 programs targeted youth. The
remaining programs shared some characteristics but were sufficiently
different to not be categorized as overlapping.
As the Congress considers areas where program consolidation may be
warranted, we want to underscore that identifying the extent of
similarity among programs is only the first step. Determining which
programs should be considered for consolidation requires more
extensive study and decisions concerning participant eligibility and
the level of services provided in any new program resulting from
consolidation.
SEVERAL PROGRAMS TARGETING THE
ECONOMICALLY DISADVANTAGED
OVERLAP
------------------------------------------------------------ Letter :3
Nine programs\8 with fiscal year 1994 funding of about $2.7 billion
specifically target employment and training assistance to the
economically disadvantaged. In 1991, over 18.7 million persons, from
ages 16 to 64, had incomes below the poverty level. While about half
of these people worked, most typically in only part-time jobs, many
received some form of public assistance such as AFDC, food stamps,
housing assistance, Medicaid, or some other form of welfare. Many of
these people lacked the skills needed to find meaningful employment.
For example, over half the AFDC recipients had fewer than 12 years of
education. Many of them also needed supportive services such as
child care and transportation while attending training or obtaining
meaningful work. Government intervention can play an important part
in improving the prospects for these people; however, numerous
concerns have been raised about the ability of the current system to
effectively and efficiently help the economically disadvantaged into
the mainstream labor market.
We found that seven of the nine federal programs that specifically
target assistance to the economically disadvantaged often share
common goals, serve the same categories of clients, provide
overlapping services, but are administered through five separate
federal agencies, each with its own structure. In many instances,
the same clients may receive different services from different
programs at the same time. For example, an AFDC recipient may
receive support services, such as funds for child care from the JOBS
program, while receiving vocational training from JTPA's Title IIA
Training Services--Adult Program or the Vocational Education (VOC ED)
Programs. The other two programs, while sharing some characteristics
with the other programs, offered fewer services and each used a
different service delivery approach.
--------------------
\8 The nine programs include three funding streams authorized by the
Job Training Partnership Act (JTPA): (1) the basic JTPA Title IIA
Training Services for the Disadvantaged--Adult Program, (2) JTPA
Title IIA State Education Program, (3) JTPA Title IIA Incentive
Grants Program, (4) Job Opportunities and Basic Skills (JOBS), (5)
Food Stamp Employment and Training Program (FS E&T), (6) Family
Self-Sufficiency Program (FSS), (7) Vocational Education-Basic State
Programs (VOC ED Basic), (8) Educational Opportunity Centers (EOC),
and (9) Student Literacy and Mentoring Corps (SLMC). For a
description of each program, see appendix III.
PROGRAMS SHARE COMMON GOALS
AND CLIENTS
---------------------------------------------------------- Letter :3.1
Many of the nine programs that target the economically disadvantaged
share common goals and clients. As shown in table 1, all nine
programs share the goal of enhancing workforce participation. For
example, one goal of the JTPA, as amended, applicable to JTPA's Title
IIA Training Services for the Disadvantaged--Adult Program is "to
prepare. . .adults for participation in the labor force."
Similarly, the purpose of FS E&T stated in the 1985 law creating the
program is "assisting members of households participating in the Food
Stamp program in gaining skills, training, or experience that will
increase their ability to obtain regular employment."
Six of the programs also share the goal of reducing welfare
dependency. For example, another purpose of JTPA is to help reduce
"welfare dependency." Likewise, JOBS, title IVF of the Social
Security Act, was created by the Family Support Act of 1988 to
"assure that needy families with children obtain the education,
training and employment that will help avoid long-term welfare
dependence."
Table 1
Many Programs Serving the Economically
Disadvantaged Have Similar Goals
Enhance
workforce Reduce
participat welfare
Program ion dependency
------------------------------------ ---------- ----------
JTPA IIA Training Services for the X X
Disadvantaged--Adult
JTPA IIA State Education X X
JTPA IIA Incentive Grants X X
JOBS X X
FS E&T X X
FSS X X
VOC ED Basic X
EOC X
SLMC X
============================================================
Total 9 6
------------------------------------------------------------
Given the common goals shared by many of these federal programs, it
is not unusual that they are closely intertwined, often serving the
same client groups and, in some instances, the same clients.\9 Many
clients receive assistance from more than one federal program. For
example, of the 10 million AFDC recipients, 90 percent receive food
stamps and 24 percent receive assisted housing.\10 Thus, it was not
surprising when our analysis showed that although the Department of
Health and Human Services' (HHS) JOBS program was created to help
recipients of AFDC, the Department of Labor's JTPA Program\11 also
served over 136,000 AFDC recipients in 1991. Similarly, while the
Department of Agriculture's FS E&T was created to help food stamp
recipients, Labor's JTPA Program served over 100,000 food stamp
recipients in 1991. Such overlap is likely to increase as the 1992
JTPA amendments are implemented, emphasizing services to more of the
hard-to-serve members of the economically disadvantaged
population.\12 Other programs are also intertwined in serving
economically disadvantaged clients. FSS targets persons residing in
public housing projects, who are likely to receive other forms of
public assistance, including AFDC and food stamps, and would be
eligible for other employment training programs. While VOC ED Basic
does not collect comparable client data, it also targets assistance
to similar clients, including AFDC and food stamp recipients.
The other two programs, EOC and SLMC, also serve clients that are
economically disadvantaged, but the client focus is narrower. EOC
emphasizes assistance to low-income and potential first-generation
college students, while SLMC focuses on persons residing in
economically distressed areas. We did not identify any data that
would disclose the extent, if any, that participants of either of
these two programs were being served by each other's program, or by
other programs such as JTPA's Title IIA--Adult or the JOBS program.
--------------------
\9 This is not meant to imply that clients are receiving the same
service, like classroom training, from two separate programs at the
same time.
\10 Time for a Change: Remaking the Nation's Welfare System, results
of the Survey of Income and Program Participation (SIPP), Wave 4 of
the 1990 panel (Jan. 1991). Since SIPP relies on self-reported
participation in programs, benefit receipt may be underreported.
\11 The JTPA data shown include both adult and youth populations.
Recent JTPA amendments split the Title IIA Program, starting in
program year 1993, into separate adult and youth programs.
\12 The 1992 JTPA amendments require that not less than 65 percent of
JTPA IIA participants be hard-to-serve individuals. The amendments
define hard-to-serve individuals as those meeting one or more of the
following conditions: basic-skill deficient; school dropout;
recipient of cash welfare payments, including AFDC; ex-offender;
disabled; or homeless.
OVERLAP IN PROGRAM SERVICES
AND SERVICE DELIVERY
APPROACHES
---------------------------------------------------------- Letter :3.2
We found that the nine programs targeting the economically
disadvantaged were further intertwined in the delivery of services,
often offering clients overlapping services and, in some instances,
providing clients services from more than one program at the same
time. Our analysis showed that seven programs offer clients services
in each of five service categories--(1) counseling and assessment,
(2) remedial or basic skills training, (3) vocational or job skill
training, (4) placement assistance, and (5) support services. Of the
27 possible types of services offered by federal employment training
programs for the economically disadvantaged, JTPA offers the
most--24.\13 However, the overlap in those 24 services by other
programs is considerable. As shown in table 2, the JOBS program
provides 17 of the same services as JTPA, and FS E&T overlaps with
JTPA on 18 services. These three programs account for about 72
percent of the funding for this target population.
Table 2
Extent to Which Other Federal Programs
Serving the Economically Disadvantaged
Overlap JTPA's 24 Services
Services that overlap JTPA's
Program services
------------------------------ ----------------------------
JOBS 17
FS E&T 18
VOC ED Basic 15
EOC 5
SLMC 6
FSS \a
------------------------------------------------------------
\a FSS is authorized to provide any of the same services as other
federal employment training programs; however, services are paid for
by other programs, such as JOBS and JTPA Title IIA--Adult. Federal
funds may be used to cover local administrative costs.
Table 3 illustrates the degree of overlap in one of the five main
service categories--vocational skill training. We found that eight
of the nine programs authorize classroom training, seven programs
authorize on-the-job training, and six authorize employer-specific
training.
We also found that some clients receive services from more than one
program at the same time. For example, while title IVA of the Social
Security Act provides child care mandated by the Family Support Act
for JOBS participants, it also provides an estimated $86.1 million in
additional child care funding for AFDC recipients enrolled in
training or education other than JOBS, such as JTPA or VOC ED
Basic.\14 Similarly, clients enrolled in FS E&T may receive their
vocational training from the JTPA or VOC ED Basic programs.
Table 3
Programs Serving the Economically
Disadvantaged Overlap in Vocational
Skills Training Activities
On-the- Employer-
Classroom job specific
Program training training training Workfare
---------------- --------- --------- --------- ---------
JTPA Title IIA X X X
Training
Services for
the
Disadvantaged-
-Adult
JTPA Title IIA X X X
State
Education
Programs
JTPA Title IIA X X X
Incentive
Grants
JOBS X X X
FS E&T X X X X
VOC ED Basic X X X
FSS X X X X
SLMC X
EOC
============================================================
Total 8 7 6 3
------------------------------------------------------------
Despite the overlap in services, the programs maintain separate yet
often parallel delivery systems. Although they were administered by
five different departments or agencies at the federal level, we found
that most programs use the same general approach and funding
mechanism to provide funds that support local services. In most
programs, the support for administration and the services provided
come from a federal grant to the local area through the state. Seven
programs distribute almost all of the funds (99 percent) using
formula grants. Two more programs distribute the remaining funds
using project grants. A remaining program, FSS, had planned to rely
on other programs like JTPA IIA--Adult or JOBS to provide employment
training services. (App. III provides detailed funding information
for these nine programs.)
At the local level, we found that despite being administered through
different agencies, each of the seven programs followed the same
general service delivery approach: identifying client needs,
offering basic and vocational training, linking clients with
employers, and providing placement assistance. For example, the JTPA
programs are administered through about 630 local service delivery
areas, while JOBS and FS E&T are generally administered through
numerous local offices, usually using networks of state and,
sometimes, county-run welfare offices. In some states, such as New
York, Massachusetts, Pennsylvania, Wisconsin, and Washington, these
two programs are linked under a "one-stop shopping" concept.
In contrast to the seven programs just described, we found that the
remaining two programs offer fewer services and that each program has
a unique service delivery approach. EOC focuses on counseling,
assessment, and support services to help participants gain access to
postsecondary education. These centers are generally affiliated with
institutions of higher education, where staff help participants
complete college applications and apply for financial aid. SLMC uses
students enrolled in postsecondary education institutions as
volunteers who provide basic skill training to the economically
disadvantaged. Student volunteers earn college credit for their
involvement in the program.
--------------------
\13 Appendix III provides more detail on the services offered in the
five main areas for the nine programs that target the economically
disadvantaged.
\14 For more information on JOBS and JTPA programs, see our
forthcoming report, JOBS and JTPA: Tracking Spending, Outcomes, and
Program Performance (GAO/HEHS-94-177).
PROGRAMS TARGETING DISLOCATED
WORKERS OVERLAP
------------------------------------------------------------ Letter :4
Nine federal programs, with estimated funding of $856 million for
fiscal year 1994, provide assistance to help dislocated workers make
a successful transition to new employment.\15 Each year, over 1
million workers lose their jobs because of business closures and
permanent layoffs. While most dislocated workers have the skills to
readily find new employment, others do not. Finding new jobs at
comparable wages is particularly difficult for women, older workers,
workers with less education, and those with lengthy job tenure. For
example, an analysis of national dislocated worker data compiled from
the Bureau of the Census' Current Population Survey found that
workers who had fewer than 12 years of schooling were unemployed more
than three times longer (39 weeks versus 12 weeks) than workers with
16 or more years of school.\16 In addition, when dislocated workers
do find jobs, the new jobs often pay less than their earlier jobs.\17
Employment training assistance can help dislocated workers find
better jobs in less time. However, questions have been raised about
the effectiveness and efficiency of the current system. According to
the Department of Labor, the current federal employment training
services system for dislocated workers is "fragmented and overly
bureaucratic."\18 Labor has proposed consolidating several dislocated
worker programs and establishing a comprehensive set of services for
permanently laid-off workers.
Our analysis of the nine programs targeting dislocated workers showed
that all nine programs share common goals, serve comparable clients,
offer overlapping services, and use parallel service delivery
approaches and funding mechanisms. Despite this overlap, however, we
found that administration for these programs was scattered across
several federal departments.
--------------------
\15 The nine dislocated worker programs are (1) JTPA Economic
Dislocation and Worker Adjustment Assistance Program (EDWAA)
(substate allotment), (2) JTPA EDWAA (governor's discretionary), (3)
JTPA EDWAA (Secretary's discretionary), (4) JTPA Defense Conversion
Adjustment, (5) JTPA Clean Air Employment Transition, (6) JTPA
Defense Diversification, (7) Trade Adjustment Assistance Program
(TAA) Workers, (8) Vocational Education-Demonstration Centers for
Training Dislocated Workers, and (9) Transition Assistance Program
(TAP). For the purpose of this report, we consider the extension of
TAA to include workers affected by the North American Free Trade
Agreement as a part of TAA. For a description of each program, see
appendix IV and table IV.2.
\16 Paul Swaim and Michael Podgursky, "Do More-Educated Workers Fare
Better Following Job Displacement?" Monthly Labor Review (Aug.
1989). Study based on a sample of 10,659 workers whose jobs were
eliminated between January 1979 and January 1986.
\17 Displaced Workers: Trends in the 1980s and Implications for the
Future, Congressional Budget Office (Feb. 1993).
\18 Reemployment Services: A Review of Their Effectiveness,
Department of Labor (Apr. 1994).
SIMILAR GOALS AND CLIENTS
---------------------------------------------------------- Letter :4.1
We found overlap in program goals and clients served by the nine
programs that target dislocated workers. As shown in table 4, each
program's goals included increasing employment opportunities for
dislocated workers. For example, the six programs authorized under
JTPA have a goal of "providing job training and other services that
will result in increased employment and earnings, increased
educational and occupational skills, and decreased welfare
dependency." Similarly, one goal of the Carl D. Perkins Vocational
and Applied Technology Education Act, which applies to Vocational
Education--Demonstration Centers for Retraining Dislocated Workers
(VOC ED Centers), is "developing more fully the academic and
occupational skill of all segments of the population" and providing
"employment opportunities" to program participants.
Seven programs--the six JTPA programs and TAA--also strive to enhance
worker skills, reduce the length of unemployment, and increase
earnings. VOC ED Centers also have the goal of enhancing worker
skills, but do not have two other goals--reducing the length of
unemployment or increasing earnings. TAP goals include reducing the
length of unemployment, but do not include enhancing skills levels or
increasing earnings.
Table 4
Programs Targeting Dislocated Workers
Have Similar Goals
Reduce Increase
Enhance length of employment
skill unemployme opportunit Increase
Program levels nt ies earnings
---------------- -------- ---------- ---------- --------
JTPA EDWAA X X X X
(substate
allotment)
JTPA EDWAA X X X X
(governor's
discretionary)
JTPA EDWAA X X X X
(Secretary's
discretionary)
JTPA Defense X X X X
Conversion
Adjustment
JTPA Clean Air X X X X
Employment
Transition
Assistance
JTPA Defense X X X X
Diversification
TAA Workers X X X X
VOC ED Centers X X
TAP X X
Summary (9 8 8 9 7
programs)
------------------------------------------------------------
We also found overlap in the categories of clients served by the nine
dislocated worker programs. The characteristics of dislocated
workers were remarkably stable during the 10-year period 1981-1990,
despite wide swings in the business cycle, changes in industrial
composition, and a broad array of government policies.\19 For
example, throughout that decade, slightly more than 20 percent of all
dislocated workers were 45 years of age or older. About 50 percent
had been with their previous employer for more than 3 years, and 60
percent were male. The percentage of dislocated workers with
schooling beyond high school increased from 30 percent to 40 percent,
mirroring the general increased level of education found in the
workforce overall. Workers in the service sector and in white-collar
occupations accounted for a rising proportion of dislocated workers.
On the whole, however, the rate of job loss is higher for workers in
manufacturing industries and in blue collar occupations.
Four "general purpose" programs are available to all dislocated
workers regardless of the reason for job loss--the three JTPA EDWAA
programs and the VOC ED Centers Program. Five other programs were
established to meet the adjustment needs of workers that lose their
jobs as a result of federal policies. Three programs help workers
adversely affected by reduced defense spending (the JTPA Defense
Diversification Program, the JTPA Defense Conversion Adjustment
Assistance Program, and TAP); the TAA program helps workers adversely
affected by competition from imported goods; and the Clean Air
Employment Transition Assistance Program helps workers that lose
their jobs as a result of a business's compliance with the Clean Air
Act.
This assortment of "general purpose" and special programs has
contributed to the overlap among program clients. For example, TAA
and the Clean Air program provide assistance to workers laid off from
manufacturing industries; however, many dislocated workers in the
"general purpose" programs are also from manufacturing. Similarly,
three special programs target persons affected by defense downsizing,
and these persons may also receive assistance from the four "general
purpose" programs.
--------------------
\19 Displaced Workers: Trends in the 1980s and Implications for the
Future.
SERVICES AND SERVICE
DELIVERY APPROACHES OVERLAP,
BUT ADMINISTRATIVE
STRUCTURES ARE SCATTERED
---------------------------------------------------------- Letter :4.2
We found that the nine dislocated worker programs offer many of the
same types of services using the same general delivery approaches and
funding mechanisms. However, the administrative structures are
scattered among three federal departments and more than five offices
within those departments. As shown in table 5, seven programs offer
services from each of five service categories: (1) counseling and
assessment, (2) remedial or basic skills training, (3) vocational or
job skills training, (4) placement assistance, and (5) support
services. Two programs--VOC ED Centers and TAP--do not offer
services in all five activity areas. VOC ED Centers offer all but
one of the five service activities--basic skills training. TAP does
not offer basic or vocational skills training.
Table 5
Overlapping Services Among the Nine
Programs That Target Dislocated Workers
Counseli Remedi
ng/ al or Vocation
assessme basic al Placemen Support
Program nt skills skills t services
------------ -------- ------ -------- -------- --------
JTPA EDWAA X X X X X
(substate
allotment)
JTPA EDWAA X X X X X
(governor's
discretiona
ry)
JTPA EDWAA X X X X X
(Secretary's
discretiona
ry)
JTPA Defense X X X X X
Conversion
Adjustment
Assistance
JTPA Clean X X X X X
Air
Employment
Transition
Assistance
JTPA Defense X X X X X
Diversifica
tion
TAA Workers X X X X X
VOC ED X X X X
Centers
TAP X X X
Summary (9 9 7 8 9 9
programs)
------------------------------------------------------------
\a See appendix IV for a detailed comparison of authorized employment
training services.
Looking at the overlap within one of the five main service areas,
vocational skills training, we found that seven of the programs
authorize several forms of vocational training--classroom training,
on-the-job training, and employer-specific training and technical
assistance (see table 6). The VOC ED Centers program offers only
classroom training, and TAP does not offer any vocational skills
training.
Table 6
Programs Serving Dislocated Workers
Overlap in Vocational Training
Employer-
specific
training and On-the-
Classroom technical job
Program training assistance training
-------------------- ---------- -------------- ----------
JTPA EDWAA (substate X X X
allotment)
JTPA EDWAA X X X
(governor's
discretionary)
JTPA EDWAA X X X
(Secretary's
discretionary)
JTPA Defense X X X
Conversion
Adjustment
Assistance
JTPA Clean Air X X X
Employment
Transition
Assistance
JTPA Defense X X X
Diversification
TAA Workers X X X
VOC ED Centers X
TAP
Summary (9 programs) 8 7 7
------------------------------------------------------------
Many of the dislocated worker programs we reviewed used comparable
service delivery approaches at the local level. For each program,
services are delivered through a local administrative agency in
conjunction with local service providers such as community-based
organizations, community colleges, or other training institutions.
Dislocated worker programs, by design, offer considerable flexibility
in the delivery of services. However, recent studies of the
implementation of JTPA EDWAA programs identified several common
threads in the state and local delivery systems.\20 The reports
indicate that most JTPA EDWAA services were administered through the
local JTPA service delivery area network. To a lesser extent,
plant-specific projects, initiated by the state or substate areas,
provided additional services and retraining opportunities to workers
affected by specific dislocations. Basic readjustment services were
a key component in the delivery of services. In many areas, these
services were provided before a layoff as part of on-site rapid
response activities or as part of services available to
plant-specific projects.
Three other JTPA programs--Defense Diversification, Defense
Conversion Adjustment Assistance, and Clean Air Employment Transition
Assistance--generally fund services delivered through plant- or
industry-specific projects that target large-scale dislocations,
including closings of military installations. VOC ED Centers deliver
services through dislocated worker assistance centers affiliated with
vocational training institutions and community colleges. The TAP
service delivery approach includes on-site assistance centers at
military installations, with assistance from local programs
administered by the Department of Labor and the Department of
Veterans Affairs. TAA uses a somewhat different approach to
delivering services. TAA is an entitlement program. Persons
certified by the Department of Labor as eligible for services receive
a notice of eligibility and are referred to local employment service
offices for program services.
While most of the programs that target dislocated workers have
comparable services and service delivery approaches, the
administration of these programs is scattered at the federal level
through three federal agencies and more than five offices within
those agencies. The Department of Labor's Employment and Training
Administration administers seven of the nine programs. Within the
Employment and Training Administration, the Office of Work-Based
Learning administers the six JTPA programs in conjunction with the
Office of Grants and Contract Management; the Office of Trade
Adjustment Assistance administers TAA. The Department of Education's
Office of Vocational and Adult Education, Division of National
Programs, administers VOC ED Centers. The Department of Defense's
Office of Under Secretary of Defense for Personnel and Readiness,
Transition Support and Services, administers TAP.\21
The federal practice of having several agencies and offices also is
seen in state and local program administration. For example,
mirroring the administrative split at the federal level, the JTPA
EDWAA programs are often administered by the same state and local
agencies, while TAA is administered by the state employment security
agency and local employment service offices. However, even JTPA
EDWAA programs create redundant administrative structures at the
local level. For example, while some states distribute the JTPA
EDWAA governor's discretionary funds through local agencies that
receive the JTPA EDWAA substate allotment, other states directly fund
local service providers. The SRI report on JTPA EDWAA programs
"found a general pattern of states and substate areas carving out
their own areas of authority under EDWAA rather than working together
to produce a coherent state-wide system. States tended to retain
control over 40 percent funded activities [governor's discretionary
program] and leave the design and delivery of formula-funded
activities [substate allotment program] to substate areas rather than
providing policy leadership for the entire dislocated worker program.
. . . As a result, dislocated workers had to find their own way
into local EDWAA services in many areas."\22
The nine programs we looked at also use comparable funding
mechanisms.\23
Seventy-five percent of the funds are distributed through grants--54
percent through formula grants and 21 percent through project
grants--to states and other eligible beneficiaries. TAA, an
entitlement program, distributes the remaining 25 percent of the
funds through the state employment security agency in each state,
which acts as an agent for the federal government. While less
funding is involved with project grants, they are distributed through
six programs that create redundant and burdensome administrative
structures. For example, a local agency that administers three JTPA
grants, each targeted at dislocated workers, must report on each
grant separately.
--------------------
\20 Study of the Implementation of the Economic Dislocation and
Worker Adjustment Assistance Act, SRI International, prepared under
contract for the Department of Labor, Employment and Training
Administration (1992); and Study of the Implementation of the
Economic Dislocation and Worker Adjustment Assistance Act--Phase II:
Responsiveness of Services, Social Policy Research Associates,
Berkeley Planning Associates, and SRI International, prepared under
contract for the Department of Labor, Employment and Training
Administration (1993).
\21 The Departments of Labor and Veterans Affairs also play a role in
TAP.
\22 Study of the Implementation of the Economic Dislocation and
Worker Adjustment Assistance Act.
\23 See appendix IV for the funding mechanism for each program.
OVERLAP EXISTS AMONG PROGRAMS
TARGETING OLDER WORKERS
------------------------------------------------------------ Letter :5
Four programs\24 with an estimated fiscal year 1994 budget of about
$568 million specifically target employment training assistance for
older workers. Over 5.9 million people aged 55 or over had incomes
below the poverty line in 1991. Although older workers are less
likely than younger workers to be unemployed, they take longer to
find work. Government assistance can play an important role in
helping older workers; however, concerns have been raised about the
current array of programs for older workers. In commenting on one
large program for older workers, the Congressional Budget Office\25
recently noted that opponents of the Senior Community Service
Employment Program (SCSEP) maintain that it offers few benefits aside
from income support, and question the value of the work experience
gained from the program in helping workers find unsubsidized
employment.
We found that the two programs administered by the Department of
Labor--SCSEP and the JTPA Training Programs for Older
Individuals--differ significantly from the two programs administered
by ACTION: the Foster Grandparent Program and the Senior Companion
Program. However, we found overlap between the two programs
administered by Labor. Similarly, overlap exists between the two
programs administered by ACTION.
Our analysis showed that all four programs recruit participants or
volunteers to work in various public service or private settings.
All four programs also focus on subsidized employment providing
participants a wage or stipend through a federal grant. However,
they differ as to how long program participants can stay in the
program. For example, the JTPA Training Programs for Older
Individuals emphasize on-the-job training not to exceed 6 months. In
contrast, participants in the Foster Grandparent and Senior Companion
programs become "permanent volunteers" and their goals do not include
moving participants toward unsubsidized employment. These
differences are reflected in the extent to which services are offered
by the two ACTION programs when compared with the two Labor programs.
--------------------
\24 The four programs are (1) Senior Community Service Employment
Program, (2) JTPA IIA Training Programs for Older Individuals, (3)
Foster Grandparent Program, and (4) Senior Companion Program. ACTION
has questioned the inclusion of the Foster Grandparent and Senior
Companion programs in our study because ACTION believes its programs
do not fit the scope of our analysis. However, because the
economically disadvantaged volunteers in these programs receive an
hourly stipend, these programs are considered to have provided
employment opportunities for the economically disadvantaged. This is
consistent with both the National Commission for Employment Policy
and the Congressional Research Service, which have included these
programs in their studies of employment training assistance. For a
description of each program, see appendix V.
\25 Reducing the Deficit: Spending and Revenue Options,
Congressional Budget Office (Mar. 1994).
SIMILAR PROGRAM GOALS AND
CLIENTS
---------------------------------------------------------- Letter :5.1
All four older worker programs shared the common goal of increasing
employment opportunities; however, they split along agency lines on
the goal of enhancing worker skills (see table 7). The two Labor
programs shared the goal of enhancing worker skill levels. According
to title IX of the Older Americans Act, as amended, SCSEP's purpose
is to "foster and promote useful part-time work opportunities."
Additionally, Labor's regulations state that the program is designed
to assist in acquiring or revitalizing job skills. Similarly, the
goal of the JTPA IIA adult training program, of which the Older
Individuals program is a part, is to
". . . prepare adults for participation in the labor force by
increasing their occupational and educational skills, resulting in
improved long-term employability, increased employment, and reduced
welfare dependency."
In contrast to the Labor older worker programs, the Foster
Grandparent Program has a goal of "afford[ing] low income individuals
an opportunity to provide supportive individualized service." In
addition, the regulations supporting the Senior Companion Program
indicate that one of the goals of the program is to "create part-time
stipened volunteer community service opportunities."
The overlap in older worker programs also extends to their clients.
Both Labor programs--SCSEP and JTPA Training Programs for Older
Individuals--target economically disadvantaged adults aged 55 or
older, while both ACTION programs--Foster Grandparent and Senior
Companion programs--target economically disadvantaged persons aged 60
and over.
Table 7
Programs Targeting Older Workers Have
Common Goals
Increase Enhance
employment skill
Program opportunities levels
------------------------------ ---------------- ----------
SCSEP X X
JTPA IIA Training Programs for X X
Older
Individuals
Foster Grandparent\a X
Senior Companion\a X
Summary (4 programs) 4 2
------------------------------------------------------------
\a While increasing employment opportunities is not an explicit goal,
economically disadvantaged volunteers in this program receive an
hourly stipend and are thus considered to have been provided
employment opportunities.
OVERLAP IN PROGRAM SERVICES
AND SERVICE DELIVERY
APPROACHES
---------------------------------------------------------- Letter :5.2
The contrast between the two Labor programs and the two ACTION
programs carried over into the services offered by the programs. As
shown in table 8, both of the Labor programs offer clients services
in each of five service categories--(1) counseling and assessment,
(2) remedial or basic skills training, (3) vocational or job skills
training, (4) placement assistance, and (5) support services. In
contrast, the two ACTION programs offer clients services in two of
the five service categories--counseling and assessment, and support
services.
Table 8
Programs Targeting Older Workers Offer
Comparable Services
Counselin
g/ Basic Vocation
assessmen skill al Placemen Support
Program t s skills t services
------------ --------- ----- -------- -------- --------
SCSEP X X X X X
JTPA IIA X X X X X
Training
Programs
for Older
Individuals
Foster X \b X
Grandparent
Senior X \b X
Companion
Summary (4 4 2 \2 2 4
programs)
------------------------------------------------------------
\a Appendix V provides more detail on the services offered in the
five main areas for the four programs that target older workers.
\b The Foster Grandparent and Senior Companion programs provide
preservice and in-service training to prepare participants for their
volunteer activities. However, this training is not considered job
training.
For one of the five main service categories--counseling and
assessment--we found that both Labor programs overlap in five of the
seven possible service activities analyzed (see table 9). Likewise,
the ACTION older worker programs also overlapped in providing
counseling and assessment services. Each of these two programs
offered the same three activities in this service category.
Table 9
Programs Serving Older Workers in
Counseling and Assessment
Pr
og Case Post Referral
ra Assessmen Employabili Monitorin managemen progress to
m Outreach t ty plan g t review services
-- --------- --------- ----------- --------- --------- --------- ---------
SC X X X X X
S
E
P
JT X X X X X X X
PA
I
I
A
T
r
a
i
n
i
n
g
P
r
o
g
r
a
m
s
f
o
r
O
l
d
e
r
I
n
d
i
v
i
d
u
a
l
s
Fo X X X
s
t
e
r
G
r
a
n
d
p
a
r
e
n
t
Se X X X
n
i
o
r
C
o
m
p
a
n
i
o
n
=================================================================================
To 4 4 2 3 1 2 2
t
a
l
---------------------------------------------------------------------------------
In addition to the overlap in services, we found that the two Labor
programs sometimes provide funds to the same service delivery
organizations within states. For example, in Michigan we found that
the state agency with responsibility for administering SCSEP had
provided SCSEP funds to 14 substate offices on aging. Six of these
14 substate offices also received funds from the JTPA Training
Programs for Older Individuals.
PROGRAMS TARGETING YOUTH
OVERLAP
------------------------------------------------------------ Letter :6
As with the other target groups, a myriad of programs target youth
for employment and training assistance. For fiscal year 1994, 16
programs with combined federal funding of over $4 billion help youth
make the transition into the workforce.\26 The proliferation of youth
programs is a relatively recent occurrence--6 of the 16 programs were
enacted in the last 5 years. This flurry of new programs illustrates
the Congress' growing recognition that many noncollege-bound youths
are inadequately prepared for the workplace. In 1993, the laborforce
included more than 16 million youths, ages 16 to 24, without a
college degree and not enrolled in school. Many of these youths lack
the basic academic and work skills necessary for a successful
transition from school to work. Unemployment rates are almost three
time higher among less educated youths--16 percent for persons with
12 or fewer years of schooling compared to 6 percent for persons with
a college degree. However, questions have been raised as to whether
employment training programs targeting youth are effective. In our
previous work we stated that second-chance programs for poorly
prepared youth are generally inadequate. They train less than 10
percent of the needy youth, tend not to devote much attention to
literacy skills, and usually only provide brief job skills
training.\27
As was the case with programs for other target populations, we found
many of the 16 programs that target youth serve the same client
groups, share common goals, and provide comparable services. For
example, while programs targeting youth differ considerably in their
lower and upper age limits, all 16 programs serve youth between the
ages of 16 and 19.\28 In addition, almost all of the programs
specifically target those youths who are economically disadvantaged
or are at risk. Many of the programs that target youth share the
same broad objectives--to enhance the ability of youth to become
productive members of the workforce. However, when we looked at
these programs in more detail, we found that they differ in their
emphasis and approach to accomplishing those broad objectives.
We found that the 16 programs targeting youth fell into 3
categories--9 programs focus on enhancing skill levels and increasing
employment opportunities, 4 focus on academic achievement, and 2
programs teach self-sufficiency. Another program, School-to-Work,
attempts to promote the linkage of several activities, such as skill
enhancement, work experience, and academic achievement, to achieve a
more comprehensive approach to school to work transition. Ten of
these programs--seven in the first category and three in the second
category--shared goals, had comparable clients, provided similar
services, and had parallel delivery mechanisms such that they could
be described as overlapping other programs in their category.
The nine programs that focus on skill enhancement and increasing
employment opportunities include
three JTPA IIC Disadvantaged Youth programs,
two JTPA IIB Summer Youth Employment and Training programs,
Youthbuild,
Federal Employment for Disadvantaged Youth--Summer,
JTPA Job Corps, and
Youth Fair Chance.
These nine programs emphasize remedial education, vocational
training, and work experience to facilitate entry into the labor
market. Some of these programs use a slightly different approach in
delivering these services. Three programs feature only summer
employment, others provide assistance throughout the year.
Youthbuild provides employment opportunities in public housing
projects. Job Corps provides assistance in a residential setting.
The four programs that focus on improving academic achievement in
either the secondary or postsecondary level are
Upward Bound,
Talent Search,
VOC ED Community-Based Organizations, and
SDDA.
These four programs encourage success in either secondary or
postsecondary education. However, they focus on clients at differing
achievement levels. Talent Search, Upward Bound, and VOC ED
Community-Based Organizations encourage youth with potential for
success in postsecondary education. In contrast, youth in SDDA have
experienced difficulties in secondary school. For example, Upward
Bound's purpose is to generate the skills and motivation necessary
for success in education beyond high school. Similarly, the VOC ED
Community-Based Organization program provides educational assistance
to youth enabling them to succeed in vocational education. SDDA
strives to reduce the number of children who do not complete
elementary and secondary school.
Two programs focus on increasing self-sufficiency--the Transitional
Living for Runaway and Homeless Youth and Independent Living
programs. While other programs, including JTPA programs, also strive
to increase self-sufficiency, these two programs provide assistance
to clients that have an imminent need to develop skills for
independence. For example, the Transitional Living program increases
the self-sufficiency of runaway and homeless youth to prevent
long-term dependency on social services. Similarly, the Independent
Living Program helps youth in foster care to make the transition to
independent living.
Another program, School-to-Work, provides a broader approach that
emphasizes school-to-work transition linked with skill enhancement,
work experience, and academic achievement. The School-to-Work
program was established to create a national framework within which
all states can develop "school-to-work opportunities systems" that
link academic learning with on-the-job experience to smooth the
transition form school to work. The program encourages skill
enhancement, work experience, and school completion.
--------------------
\26 Sixteen programs target youth: (1) JTPA IIB Training Services
for the Disadvantaged--Summer Youth Employment and Training Program
(regular), (2) JTPA IIB Training Services for the
Disadvantaged--Summer Youth Employment and Training Program (Native
American), (3) JTPA IIC Disadvantaged Youth, (4) JTPA IIC
Disadvantaged Youth Incentive Grants, (5) JTPA IIC Disadvantaged
Youth State Education Programs, (6) Youth Fair Chance, (7) Vocational
Education--Community-Based Organizations, (8) Youthbuild, (9) Upward
Bound, (10) Talent Search, (11) JTPA Job Corps, (12) Transitional
Living for Runaway and Homeless Youth, (13) Independent Living, (14)
Federal Employment for Disadvantaged Youth--Summer, (15) School
Dropout Demonstration Assistance (SDDA), and (16) School-to-Work.
For a description of each program, see appendix VI.
\27 Training Strategies: Preparing Noncollege Youth for Employment
in the U.S. and Foreign Countries (GAO/HRD-90-88, May 11, 1990).
\28 See appendix VI for more information on the differences in lower
and upper age limits for programs that specifically target youth.
PROGRAMS TARGETING YOUTH
SHARE COMMON GOALS
---------------------------------------------------------- Letter :6.1
Further analysis of the nine youth programs that focus on enhancing
skill levels and work experience showed that almost all the programs
shared four goals--enhancing skill levels, increasing employment
opportunities, advancing academic achievement, and encouraging
self-sufficiency (see table 10). In contrast, the four programs that
focus on academic achievement generally shared only two of those
goals--enhancing skill levels and advancing academic achievement.
The two youth programs that focus on self-sufficiency shared only one
goal--encouraging self-sufficiency.
Table 10
Youth Programs Fall Into Groups That
Emphasize Common Goals
Enhanc Increase Advance Encourage
e employment academic self-
skill opportunit achieveme sufficien
Program levels ies nt cy
------------------ ------ ---------- --------- ---------
Group #1 -Goals of X X X X
nine programs\
emphasizing skill
enhancement and
employment
opportunities
Group #2 -Goals of X X
four programs
emphasizing
academic
achievement
Group #3 -Goals of X
two programs
emphasizing self-
sufficiency
School-to-Work X X X
Program
------------------------------------------------------------
\a An X indicates that almost all of the programs in the group had
the goal as either a primary or secondary goal.
MANY PROGRAMS OFFER SIMILAR
SERVICES, BUT SOME DIFFER IN
SERVICE DELIVERY APPROACH
---------------------------------------------------------- Letter :6.2
We also found a pattern of overlapping services for the programs
within each of the three program groups (see table 11). The nine
programs that focus on enhancing skill levels and work experience
authorize services in all five service categories--counseling and
assessment, remedial or basic skills, vocational skills, placement,
and support services. In general, the four programs focusing on
academic achievement authorize services in only three
categories--counseling assessment, remedial or basic skills, and
support services. Because of their emphasis on academic achievement,
most do not authorize services in either the vocational skills or
placement assistance categories. The two programs in the third
group, emphasizing self-sufficiency, authorize services in four
categories--counseling/assessment, remedial or basic skills,
vocational skills, and support services.
Table 11
Program Groups Targeting Youth Offer
Similar Services
Counseli Remedi Suppor
ng/ al or Vocation t
assessme basic al Placemen servic
Program nt skills skills t es
-------------- -------- ------ -------- -------- ------
Group #1 - X X X X X
Services of
nine programs
emphasizing
skill
enhancement
and
employment
opportunities
Group #2 - X X X
Services of
four programs
emphasizing
academic
achievement
Group #3 - X X X X
Services of
two programs
emphasizing
self-
sufficiency
School-to- X X X X X
Work Program
------------------------------------------------------------
\a An X indicates that almost all of the programs in the group
authorized services within the category. See appendix VI for a
detailed comparison of authorized employment training services for
each program.
However, within each of the program groups we also found programs
with distinctively different service delivery approaches. In the
first group we found that the Job Corps differs in both the service
delivery approach and the intensity of services. Job Corps is
primarily a residential program for poor youth with severe
educational deficits and other employment barriers. Another program
in this group, Federal Employment for Disadvantaged Youth--Summer,
differs from the other programs because the Office of Personnel
Management serves as an administrative clearinghouse for federal
agencies that hire disadvantaged youth for summer employment. In the
second group, Talent Search, Upward Bound, and VOC ED Community-Based
Organizations are similar, but SDDA differs by focusing on at-risk
students and dropouts. The third group includes only two programs,
each distinctly different from the other. Independent Living targets
youth in foster care, while Transitional Living targets runaway and
homeless youth.
SIMILAR FUNDING MECHANISMS,
BUT SEPARATE ADMINISTRATIVE
STRUCTURES
---------------------------------------------------------- Letter :6.3
In addition to sharing common goals, serving the same general
categories of clients, and providing the same services, the youth
programs also have similar funding mechanisms. Federal funds for 15
of the 16 youth programs are distributed through grants--62 percent
through formula grants and 38 percent through project grants.
Funding for the Federal Employment for Disadvantaged Youth--Summer
Program is not separately identifiable.
Despite the similarities among youth programs, we found that they are
administered by five federal agencies--the Departments of Education
(five programs), Health and Human Services (two programs), Housing
and Urban Development (one program), Labor (seven programs), and the
Office of Personnel Management (one program). The School-to-Work
program is jointly administered by Education and Labor.
CONCLUSION
------------------------------------------------------------ Letter :7
Problems with the multitude of employment training programs have
prompted the administration and Members of Congress to suggest a
major overhaul and consolidation of employment training programs. We
found programs targeting the economically disadvantaged, dislocated
workers, older workers, and youth overlap considerably in their
goals, clients, services, and service delivery mechanisms. These
redundancies foster inefficiencies and make it difficult to determine
the effectiveness of individual programs or the system as a whole.
However, examining the extent of similarity among programs is only
the first step toward identifying programs that would lend themselves
to consolidation. Determining which programs should be consolidated
would require more extensive study and decisions concerning
participant eligibility and the level of services in any new program
resulting from consolidation.
Deciding who should be served and the extent of services they should
receive will require much consideration of not only the needs of
participants, but also the resources available. Many programs
serving the same general target population have different eligibility
requirements and levels of service. In many instances, these
differences are a way to ration the limited resources available
because both of these factors affect the overall costs of programs.
With program consolidation, new ways of allocating scarce resources
will be needed.
We did our work between March and June 1994 in accordance with
generally accepted government auditing standards. As requested, we
did not obtain written comments from the federal agencies responsible
for the programs discussed in this report. We will provide copies of
this report to each responsible federal agency and other
congressional committees. We will also make copies available to
other interested parties. Should you have any questions or wish to
discuss the information provided, please call me at (202) 512-7014.
Major contributors to this report are listed in appendix VII.
Sincerely yours,
Clarence C. Crawford
Associate Director, Education and
Employment Issues
FEDERAL EMPLOYMENT AND TRAINING
PROGRAMS BY TARGET GROUP AND
PROPOSED FUNDING LEVELS (FISCAL
YEAR 1994)
=========================================================== Appendix I
(Dollars in millions)
FY94 proposed
Target group Programs funding
-------------------- ------------------ ------------------
Veterans 18 $1,584.4
Youth 16 4,047.8
Native Americans 10 114.0
Economically 9 2,661.6
disadvantaged
Dislocated workers 9 855.5
Homeless 6 244.8
Women/minorities 6 89.8
Migrants 5 92.6
Older workers 4 568.2
Refugees 4 946.8
Programs not 67 13,632.2
classified\a
============================================================
Total 154 $24,837.7
------------------------------------------------------------
\a Programs not classified include (1) those that do not target any
specific group, such as the Employment Service, and (2) programs that
target geographic areas rather than populations or (3) other
miscellaneous programs, such as Labor's Federal Bonding Program,
which provides financial bonds as insurance to encourage employers to
hire high-risk applicants, such as ex-offenders or former drug
addicts.
FOUR TARGET GROUPS INCLUDED IN
ANALYSIS
========================================================== Appendix II
(Dollars in millions)
FY94
proposed
Target group Program funding
------------ ------------------------------------ --------
JTPA IIA Training Services for the $793.1
Economically Disadvantaged--Adult
disadvantag
ed
JTPA IIA State Education Programs 82.4
JTPA IIA Incentive Grants 51.5
Job Opportunities and Basic Skills 825.0
Program
Food Stamp Employment and Training 162.7
Family Self-Sufficiency Program \a
Vocational Education--Basic State 717.5
Programs
Educational Opportunity Centers 23.3
Student Literacy and Mentoring Corps 6.1
============================================================
Subtotal 2,661.6
Dislocated JTPA EDWAA (substate allotment) 229.5
workers
JTPA EDWAA (governor's 229.5
discretionary)
JTPA EDWAA (Secretary's 114.7
discretionary)
JTPA Defense Conversion Adjustment \b
Program
JTPA Clean Air Employment Transition \c
Assistance
JTPA Defense Diversification \d
Trade Adjustment Assistance-- 215.0
Workers
Vocational Education--Demonstration \e
Centers for the Training of
Dislocated Workers
Transition Assistance Program 66.8
============================================================
Subtotal 855.5
Older Senior Community Service Employment 421.1
workers Program
JTPA IIA Training Programs for Older 51.5
Individuals
Foster Grandparent Program 66.4
Senior Companion Program 29.2
============================================================
Subtotal 568.2
Youth JTPA IIC Disadvantaged Youth 563.1
JTPA IIC Disadvantaged Youth-- 34.3
Incentive Grants
JTPA IIC Disadvantaged Youth--State 54.9
Education Programs
JTPA IIB Training Services for the 1,688.8
Disadvantaged--
Summer Youth Employment and
Training Program (Regular)
JTPA IIB Summer Youth Employment and \f
Training
Program (Native American)
JTPA Job Corps 1,153.7
Youth Fair Chance 25.0
Transitional Living for Runaway and 11.8
Homeless Youth
Independent Living 16.2
School Dropout Demonstration 37.7
Assistance
Vocational Education--Community- 11.8
Based Organizations
Upward Bound 160.5
Talent Search 67.0
School to Work 135.0
Federal Employment for Disadvantaged \g
Youth--Summer
Youthbuild 88.0
============================================================
Subtotal 4,047.8
============================================================
Total (38 $8,133.1
programs)
------------------------------------------------------------
\a Family Self-Sufficiency Program: Job training, education, and
support services are paid for by other programs such as JOBS and
JTPA. Federal funds may be used to cover local administrative costs.
For fiscal year 1993, appropriations for operating subsidies permit
the payment of $25.9 million to cover the administrative costs of
operating the Family Self-Sufficiency Program.
\b JTPA Defense Conversion Adjustment Program: Funds allocated in
1991 are to be used to support programs in out years until funding is
depleted.
\c JTPA Clean Air Employment Transition Assistance: No funds were
appropriated for the Clean Air Act in fiscal year 1994.
\d JTPA Defense Diversification: Funds allocated in 1993 are to be
used to support programs in out years until funding is depleted.
\e Data not available at this time.
\f JTPA IIB Summer Youth Employment and Training Program (Native
American): Funding is included in JTPA IIB (Regular) program total.
\g Federal Employment for Disadvantaged Youth--Summer: Program is
coordinated by the Office of Personnel Management, but carried out by
numerous federal agencies. Obligations devoted to administration are
not separately identifiable.
INFORMATION ON NINE PROGRAMS THAT
TARGET THE ECONOMICALLY
DISADVANTAGED
========================================================= Appendix III
This appendix describes the nine federal employment and training
programs that target the economically disadvantaged. Each
description provides information on the purpose, eligibility
criteria, and administrative arrangements for the program.
Additional information on these programs' services and funding
mechanisms follows in tables III.1 and III.2, respectively.
PROGRAM DESCRIPTIONS
------------------------------------------------------- Appendix III:1
JOB TRAINING AND PARTNERSHIP
ACT TITLE IIA
----------------------------------------------------- Appendix III:1.1
JTPA, as amended, established the three title IIA programs. JTPA's
overall purpose is to establish and fund programs to improve the
quality of the workforce and enhance the productivity and
competitiveness of the nation. Three more specific objectives
include (1) to provide financial assistance to about 630 state and
local service delivery areas (SDA) to meet the training needs of
low-income adults and youth and to assist individuals in obtaining
unsubsidized employment, (2) to increase the funds available for
programs, thereby increasing the percentage of eligible populations
currently being served, and (3) to encourage the provision of longer,
more comprehensive education, training, and employment services to
the eligible population. JTPA's IIA programs target economically
disadvantaged adults aged 22 through 72. In general, not less than
65 percent of the participants served should be hard-to-serve
individuals, defined as individuals who are basic-skills deficient,
school dropouts, or recipients of cash welfare payments, among
others. Program administration is provided by the Department of
Labor in conjunction with state and local SDAs.
Title IIA provides three program funding streams: (1) The Adult
Program provides funds for preparing adults for labor force
participation by increasing their occupational and educational
skills, resulting in improved long-term employability, increased
employment and earnings, and reduced welfare dependency. (2) The
State Education Program funds state education agency projects, such
as school-to-work transition, literacy, and lifelong learning
opportunities, and coordinates statewide approaches to train, place,
and retain women in nontraditional employment. The program also
supports activities related to coordinating federal programs, such as
through state human resource councils. (3) The Incentive Grants
Program is funded with 5 percent of the JTPA title IIA formula grant.
Governors distribute the funds to local SDAs that exceed established
program performance standards, such as placing participants in
employment that exceeds performance criteria for postprogram
earnings.
JOB OPPORTUNITIES AND BASIC
SKILLS PROGRAM
----------------------------------------------------- Appendix III:1.2
The Family Support Act established the JOBS program to ensure that
needy families with children obtain the education, training, and
employment that will help them avoid long-term welfare dependency.
JOBS eligibility includes all applicants for and recipients of Aid to
Families with Dependent Children; however, JOBS targets specific AFDC
members, such as teenage parents and recipients about to exit the
program because their children are nearing adulthood. Program
administration is provided by the Department of Health and Human
Services, in conjunction with the states, through local welfare
offices that typically administer AFDC.
FOOD STAMP EMPLOYMENT AND
TRAINING
----------------------------------------------------- Appendix III:1.3
The Food Stamp Act, as amended, established employment training
requirements. Adult food stamp applicants are currently required to
register for work and training. The main thrust of FS E&T is to
ensure that nonexempt recipients fulfill some type of work, job
search, or training obligation. To carry this out, agencies may
require all work registrants to participate in one or more components
or, with the Department of Agriculture's approval, exempt individuals
because participation is judged "impractical" or not "cost
effective." Program administration is provided by Agriculture in
conjunction with the states and localities, typically with the human
service agency that provides the AFDC grant payment, but not always.
VOCATIONAL EDUCATION--BASIC
STATE PROGRAMS
----------------------------------------------------- Appendix III:1.4
Title II of the Carl D. Perkins Vocational and Applied Technology
Education Act, as amended, established the basic state programs to
make the United States more competitive in the world economy by
developing more fully the academic and occupational skills of all
segments of the population. However, VOC ED Basic participants are
typically low-income individuals. VOC ED Basic funds may be used for
a variety of activities aimed at improving vocational education
programs, including guidance and counseling, occupational training,
tech-prep education, remedial courses, upgrading curriculum, and
supplementary services for special populations. Program
administration is provided by the Department of Education in
conjunction with states and localities, including local educational
agencies and eligible educational institutions that offer
postsecondary and adult vocational programs. The Department of
Education, however, cannot determine how much of this program's funds
were split between in-school youth and out-of-school youth and
adults.
EDUCATIONAL OPPORTUNITY
CENTERS
----------------------------------------------------- Appendix III:1.5
The Higher Education Act, as amended, established EOC to provide
information, with respect to financial and academic assistance, for
individuals desiring to pursue a program of postsecondary education,
and to assist such persons in applying for admission, including
offering outreach, personal counseling, and tutoring. EOC targets
low-income individuals and first generation college students.
Program administration is provided by the Department of Education in
conjunction with institutions of higher education, and public and
private agencies and organizations.
STUDENT LITERACY AND
MENTORING CORPS
----------------------------------------------------- Appendix III:1.6
The Higher Education Act, as amended, established SLMC to provide
financial assistance to institutions of higher education to promote
the development of the student literacy corps and student mentoring
corps programs. Undergraduates receive class credits for tutoring or
mentoring SLMC participants who are typically educationally or
economically disadvantaged. Program administration is provided by
the Department of Education in conjunction with accredited
institutions of higher education.
FAMILY SELF-SUFFICIENCY
PROGRAM
----------------------------------------------------- Appendix III:1.7
The National Affordable Housing Act, as amended, established FSS to
promote the development of local strategies that coordinate use of
public housing and assistance, under section 8, with public and
private resources to enable eligible families to achieve economic
independence and self-sufficiency. FSS participation is voluntary
and contingent on living in a public housing program that
participates in FSS. Local public housing authorities must establish
plans to encourage program participation. One required incentive is
an escrow savings account for each participating family. For
families earning less than 50 percent of the area's median income,
any increase in income that the family would normally spend as rent
(assisted families generally spend 30 percent of their income for
rent) goes into the escrowed savings account. The contribution to
the escrow account is phased out as the family's income reaches 80
percent of the area's median income. Program administration is
provided by the Department of Housing and Urban Development (HUD),
which selects section 8 housing authorities to administer the
program. In turn, each public housing agency administering an
approved program may employ a service coordinator to run the local
program.
Table III.1
Comparison of Authorized Employment
Training Services by Five Main Areas for
Nine Programs That Target the
Economically Disadvantaged
Service
area/
activit JTPA FS VOC
y\a IIA\b JOBS E&T FSS\c ED EOC SLMC Total
------- ------- ------- ------- ------- ------- ------- ------- ========
I.Counseling/assessment
--------------------------------------------------------------------------------
Outreac X X X X 4
h
Assessm X X X X X X 6
ent
Employa X X X X 4
bility
plan
Monitor X X X X 4
ing
Case X X X X X 5
manage
ment
Postpro X X X X 4
gress
review
Referra X X X X X 5
l to
servic
es
II.Remedial/basic skills
--------------------------------------------------------------------------------
Adult X X X X \d X 5
basic
educat
ion
(ABE)
English X X X X \d X 5
as a
second
langua
ge
(ESL)
High X X X X X 5
school
equiva
lency
(GED)
III.Vocational skills
--------------------------------------------------------------------------------
Classro X X X X X X 6
om
traini
ng
Employe X X X X 4
r-
specif
ic
traini
ng
and
techni
cal
assist
ance
On- X X X X X 5
the-
job
traini
ng
Workfar X X X 3
e
IV.Job creation and placement
--------------------------------------------------------------------------------
Job X X 2
creati
on
Job X X X X X 5
search
Job X X X X X 5
search
traini
ng
Job X X X X X 5
placem
ent
Work X X 2
study
V.Support services
--------------------------------------------------------------------------------
Child X X X X X X 6
care
Transpo X X X X X 5
rtation
subsid
y
Life X X X X X X 6
skills
traini
ng
Medical X X X 3
assist
ance
Persona X X X X X 5
l
counse
ling
Needs- X X 2
based
paymen
ts
Transit X X X 3
ional
child
care
Transit X X 2
ional
medica
l
assist
ance
--------------------------------------------------------------------------------
Note: The programs shown may, in some instances, qualify when or how
a particular service may be provided. The programs may also
sometimes provide an additional service beyond the 27 activities
listed here.
\a Program service activity definitions are shown following this
table.
\b Includes the JTPA IIA State Education and Incentive Grants
Programs that authorize the same services as the JTPA IIA Adult
Program.
\c FSS is authorized to provide any of the same services as other
federal employment training programs; however, services are paid for
by other programs, such as JOBS and JTPA. Federal funds may be used
to cover local administrative costs.
\d The Department of Education did not consider that this program
offered remedial or basic skills training, as defined by GAO.
However, program funds are used for these activities, including
remediation of basic academic skills, tutoring, and ESL courses. See
Vocational Education: Status in 2-Year Colleges in 1990-91 and Early
Signs of Change (GAO/HRD-93-89, Aug. 16, 1993).
PROGRAM SERVICE ACTIVITY
DEFINITIONS
------------------------------------------------------- Appendix III:2
I. COUNSELING/ASSESSMENT
----------------------------------------------------- Appendix III:2.1
Outreach. Pertaining to an activity designed to identify potential
candidates for a program.
Assessment. An evaluation, typically in-depth, of a person's
employability skills, sometimes performed in the context of
employment counseling.
Employability Plan. A document that details a person's overall
(short-, medium-, and long-term) plans to become self-sufficient
through employment. It may or may not entail first performing an
assessment.
Monitoring. An activity designed to track an individual within or
between program activities.
Case Management. A group of activities, including assessment,
monitoring, and referral to services, designed to assist an
individual to become self-sufficient through employment.
Postprogress Review. Follow-up of clients after they have left the
program to determine their postprogram employability status.
Referral to Services. Assisting an individual to become
self-sufficient by guiding him/her to other available employment and
training services in the community.
II. REMEDIAL/BASIC SKILLS
----------------------------------------------------- Appendix III:2.2
Adult Basic Education. Direct educational assistance to improve
basic skills in one or more educational subjects, such as math or
English, including literacy training.
English as a Second Language. Instruction for non-English-speaking
people to improve their facility in English.
High School Equivalency (GED). Instruction or other course work
designed to aid in passing the General Educational Development
examination. A certificate is awarded upon successful completion.
III. VOCATIONAL SKILLS
----------------------------------------------------- Appendix III:2.3
Classroom Training. Classroom training to teach new skills or
upgrade vocational skills, including postsecondary vocational
education activities.
Employer-Specific Training and Technical Assistance. An activity
designed to provide occupational vocational training, as well as
technical assistance, to meet the human resource needs of a specific
employer or potential employer.
On-the-Job Training. Training provided to an employee in
occupational or other skills essential to performing a specific job
or group of jobs. Such training is generally used for entry-level
employment and skill upgrades.
Workfare. Performing work in a public service capacity as a
condition of welfare program eligibility. Its primary goal is to
improve employability by providing knowledge or skills needed to
perform a job or group of jobs.
IV. JOB CREATION AND
PLACEMENT
----------------------------------------------------- Appendix III:2.4
Job Creation. Retaining or creating jobs in a given economic or
geographic area (economic development). It may include activities
that revitalize or expand existing businesses as well as those that
generate new business enterprises or new construction.
Job Search. Making a predetermined number of inquiries of
prospective employers over a specified period. It may be mandatory
or optional.
Job Search Training. Providing instructions on job-seeking
techniques as well as on increased motivation and self-confidence.
Whether offered to individuals or groups, it includes instruction in
job-seeking skills, individualized job-search plans, labor market
information, and other specialized activities that facilitate the
transition to unsubsidized employment.
Job Placement. Identifying job openings in the public or private
employment sector and referring individuals to employers with
openings.
Work Study. Part-time employment provided in conjunction with course
work in order to finance postsecondary education.
V. SUPPORT SERVICES
----------------------------------------------------- Appendix III:2.5
Activities designed to assist individuals in overcoming barriers to
employability through training and, in some cases, postprogram
employment transitional services.
1. Regular Support Services
Child Care. Subsidizing the cost of child care to support an
individual's participation in remedial/basic skills training,
vocational training, or job placement.
Transportation Subsidy. Subsidizing the cost of transportation
needed to participate in remedial/basic skills training, vocational
training, or job placement activities.
Life Skills Training. Offering individual or group training in life
skills, motivation, or a related activity that supports and
facilitates participation in remedial/basic skills training,
vocational training, or job placement activities.
Medical Assistance. Financial support or reimbursement for medical
expenses incurred by an individual or the individuals's family,
thereby facilitating participation in remedial/basic skills training,
vocational training, or job placement activities.
Counseling. Professional guidance in areas such as substance abuse,
family conflicts, or other problems that may become a barrier to
training. Such guidance is intended to assist an individual in
participating in remedial/basic skills training, vocational training,
or job placement activities.
Needs-Based Payments. Cash or in-kind assistance that enables an
individual to participate in remedial/basic skills training,
vocational training, or job placement activities.
2. Transitional Support Services
Child Care. See "Child Care" above.
Medical Assistance. See "Medical Assistance" above.
Table III.2
Nine Programs That Target the
Economically Disadvantaged, by Funding
Mechanisms, Proposed Fiscal Year 1994
Funding, and Percentage of Funding
(Dollars in millions)
Proposed
FY94 Percentage
Funding mechanism/program funding of funding
------------------------------------ ---------- ----------
All programs (9) $2,661.6 100
Formula grants (6 programs) 2,632.2 99
JTPA IIA Training Services for the $793.1
Disadvantaged--Adult
JTPA IIA State Education Programs 82.4
JTPA IIA Incentive Grants 51.5
Job Opportunities and Basic Skills 825.0
Program
Food Stamp Employment and Training 162.7
Vocational Education--Basic State 717.5
Programs
Project grants programs (2 programs) 29.4 1
Educational Opportunity Centers 23.3
Student Literacy and Mentoring Corps 6.1
Other (1 program) 0
FSS Program \a
------------------------------------------------------------
\a FSS Program: Job training, education, and support services are
paid for by other programs such as JOBS and JTPA. Federal funds may
be used to cover local administrative costs. For fiscal year 1993,
appropriations for operating subsidies permitted the payment of $25.9
million to cover the administrative costs of operating FSS.
INFORMATION ON NINE PROGRAMS THAT
TARGET DISLOCATED WORKERS
========================================================== Appendix IV
This appendix describes the nine federal employment and training
programs that target dislocated workers. Each description provides
information on the purpose, eligibility criteria, and administrative
arrangements for the program. Additional information on these
programs' services and funding mechanisms follows in tables IV.1 and
IV.2, respectively.
PROGRAM DESCRIPTIONS
-------------------------------------------------------- Appendix IV:1
JOB TRAINING PARTNERSHIP ACT
TITLE III
------------------------------------------------------ Appendix IV:1.1
Title III of JTPA, as amended, provides employment and training
assistance to dislocated workers. Assistance includes career
counseling, occupational and remedial training, job placement
assistance, and support services, including job search and relocation
allowances. "Eligible dislocated workers" means individuals who (1)
have been terminated, laid off, or received notice of termination or
layoff from employment, are eligible for or have exhausted their
entitlement to unemployment compensation, and are unlikely to return
to their previous industry or occupation; (2) have been terminated or
received notice of termination of employment as a result of any
permanent closure or substantial layoff at a plant, facility, or
enterprise; (3) are long-term unemployed and have limited
opportunities in the same or similar occupation in their local area,
including individuals who may have substantial barriers to employment
because of age; or (4) were self-employed (including farmers and
ranchers) and are unemployed as a result of general economic
conditions in their local area or because of natural disasters.
Title III includes six program funding streams. The three basic
programs were established by JTPA, as amended by the Economic
Dislocation and Worker Adjustment Assistance Act of 1988. The other
three programs were established to meet the needs of workers
adversely affected by defense downsizing (two of the programs) and
the Clean Air Act.
The three basic EDWAA programs are (1) the substate allotment, (2)
the governor's discretionary programs, and (3) the Secretary's
discretionary program. Eighty percent of EDWAA funds are distributed
to states through an allocation formula for the first two programs.
Up to one-half of the EDWAA formula funds can go to the governor's
discretionary programs. In turn, Governors may reserve up to 80
percent of that allocation for state-level activities and up to 20
percent of that allocation can be reserved for distribution to local
areas with unforeseen need. At least 50 percent of a state's formula
allocation must be distributed directly to substate areas--the
substate allotment. Substate areas and the within-state distribution
formula are designated by the governor within statutory guidelines.
The remaining 20 percent of overall EDWAA funds are reserved for
distribution by the Secretary of Labor through Labor's discretionary
program. These funds are largely used for discretionary grant
projects serving workers displaced by mass layoffs and for multistate
or industrywide projects. States may administer this program through
designated substate grantees at the local level. These could
include, for example, a private industry council, a JTPA
administrative entity, a local government agency, or other public
agency such as a community college or area vocational school.
The Defense Conversion Adjustment (DCA) Program is designed to help
workers adversely affected by defense downsizing. A dislocated
worker is eligible only if the worker has been terminated or laid off
or received notice of termination or layoff as a consequence of
reductions in expenditures by the United States for defense or by
substantial reductions in force or closures of military facilities.
DCA was established by the Defense Economic Adjustment,
Diversification, Conversion, and Stabilization Act of 1990, which
amended title III of JTPA. DCA is funded with Department of Defense
appropriated funds, but is administered by the Department of Labor.
States, substate grantees, employers, employer associations, and
representatives of employees may apply for DCA project grants. Funds
may also be used to support demonstration projects to encourage and
promote innovative responses to dislocation, including projects to
assist retraining and reorganization efforts designed to avert
layoffs or to assist communities in addressing and reducing the
impact of economic dislocation.
The Defense Diversification Program (DDP) provides training,
adjustment services, and employment assistance to persons adversely
affected by defense downsizing, including certain members of the
armed forces, certain defense employees, and certain defense
contractor employees. DDP was established by the Defense Conversion,
Reinvestment, and Transition Assistance Act of 1992, which amended
title III of JTPA. Similar to DCA, DDP is funded with Department of
Defense appropriated funds, but is administered by the Department of
Labor. However, the Secretary of Defense may reserve 10 percent of
the funds appropriated for demonstration projects. The Department of
Labor may award project grants to states, JTPA substate grantees,
employers, representatives of employees, labor-management committees,
and other employer-employee entities.
The Clean Air Employment Transition Assistance (CAETA) Program
provides assistance to workers dislocated as a result of a firm's
compliance with the Clean Air Act. CAETA was established by the
Clean Air Act Amendments of 1990, which amended title III of JTPA.
The purpose of this program is to provide readjustment and training
assistance to help adversely affected workers return to the labor
force. Program funds are distributed through the Department of
Labor. States, JTPA substate grantees, employers, employer
associations, and representatives of employees may apply for CAETA
project grants.
TRADE ADJUSTMENT
ASSISTANCE--WORKERS
------------------------------------------------------ Appendix IV:1.2
The Trade Act of 1974, as amended, established TAA to help workers
who lose their jobs because of increased imports. TAA is an
entitlement program. The Department of Labor determines whether
groups of workers have been adversely affected by trade and certifies
that they are eligible for TAA benefits. The TAA certification
process begins when three or more workers from the same company (or
their representative) petition Labor to determine that their jobs
have been lost or will be lost because of imports. Labor then
conducts an investigation to determine if imports have contributed
importantly to the loss of employment. Determining factors in the
investigation include whether (1) a significant number of workers
have lost or are threatened with the loss of their jobs, (2) the
company's sales or production have decreased, and (3) imports of
articles "like or directly competitive" with the company's products
have increased and "contributed importantly" to the decline in its
sales or production.
The Employment Service, through its state and local offices,
administers the benefit provisions for TAA as an agent of the United
States. TAA benefits include job counseling, occupational and
remedial training, placement assistance, and support services,
including income support in the form of cash payments for up to 52
weeks after workers exhaust their basic 26 weeks of unemployment
insurance compensation.
VOCATIONAL
EDUCATION--DEMONSTRATION
CENTERS FOR THE TRAINING OF
DISLOCATED WORKERS
------------------------------------------------------ Appendix IV:1.3
Title IV of the Carl D. Perkins Vocational and Applied Technology
Education Act, as amended, provides financial assistance for
establishing demonstration centers for the retraining of dislocated
workers. Each center may use funds for the recruitment of unemployed
workers, vocational evaluation, assessment and counseling, support
services, or job placement assistance. Any private nonprofit
organization that is eligible to receive funding under JTPA is also
eligible for this program.
TRANSITION ASSISTANCE
PROGRAM
------------------------------------------------------ Appendix IV:1.4
TAP was established by the National Defense Authorization Act for
Fiscal Year 1991. TAP provides assistance to members of the armed
forces who are being involuntarily separated from active duty. The
program provides assistance in identifying employment and training
opportunities, help in obtaining employment and training, personal
counseling, and other related information and services. TAP is
administered by the Department of Defense.
Table IV.1
Comparison of Authorized Employment
Training Services by Five Main Areas for
Nine Programs That Target Dislocated
Workers
Se
rv
ic
e
ar
ea
/
ac
ti
vi EDWAA EDWAA EDWAA Defens
ty (substate) (gov)\ (Sec)\ Clean e VOC
\a \b c d DCA Air\e Div\f TAA ED\g TAP Total
-- ---------- ------ ------ ------ ------ ------ ---- ---- ---- ======
I.Counseling/assessment
--------------------------------------------------------------------------------
Ou X X X X X X X X 8
t
r
e
a
c
h
As X X X X X X X X X 9
s
e
s
s
m
e
n
t
Em X X X X X X X 7
p
l
o
y
a
b
i
l
i
t
y
p
l
a
n
Mo X X X X X X 6
n
i
t
o
r
i
n
g
Ca X X X X X X 6
se
m
a
n
a
g
e
m
e
n
t
Po X X X X X X 6
s
t
p
r
o
g
r
e
s
s
r
e
v
i
e
w
Re X X X X X X X X X 9
f
e
r
r
a
l
t
o
s
e
r
v
i
c
e
s
II.Remedial/basic skills
--------------------------------------------------------------------------------
AB X X X X X X X 7
E
ES X X X X X X X 7
L
GE X X X X X X X 7
D
III.Vocational skills
--------------------------------------------------------------------------------
Cl X X X X X X X X 8
a
s
s
r
o
o
m
t
r
a
i
n
i
n
g
Em X X X X X X X 7
p
l
o
y
e
r
-
s
p
e
c
i
f
i
c
t
r
a
i
n
i
n
g
On X X X X X X X 7
-
t
h
e
-
j
o
b
t
r
a
i
n
i
n
g
Wo 0
r
k
f
a
r
e
IV.Job creation and placement
--------------------------------------------------------------------------------
Jo 0
b
c
r
e
a
t
i
o
n
Jo X X X X X X X X 8
b
s
e
a
r
c
h
Jo X X X X X X X X 8
b
s
e
a
r
c
h
t
r
a
i
n
i
n
g
Jo X X X X X X X X X 9
b
p
l
a
c
e
m
e
n
t
Wo 0
rk
s
t
u
d
y
V.Support services
--------------------------------------------------------------------------------
Ch X X X X X X X 7
i
l
d
c
a
r
e
Tr X X X X X X X X 8
a
n
s
p
o
r
t
a
t
i
o
n
s
u
b
s
i
d
y
Li X X X X X X 6
fe
s
k
i
l
l
s
t
r
a
i
n
i
n
g
Me X X X X X X 6
d
i
c
a
l
a
s
s
i
s
t
a
n
c
e
Pe X X X X X X X 7
r
s
o
n
a
l
c
o
u
n
s
e
l
i
n
g
Ne X X X X X X X 7
e
d
s
-
b
a
s
e
d
p
a
y
m
e
n
t
s
Tr X X X X X X 6
a
n
s
i
t
i
o
n
a
l
c
h
i
l
d
c
a
r
e
Tr X X X X X X X 7
a
n
s
i
t
i
o
n
a
l
m
e
d
i
c
a
l
a
s
s
i
s
t
a
n
c
e
Jo X X X X X X X X 8
b
s
e
a
r
c
h
a
l
l
o
w
a
n
c
e
s
Re X X X X X X X X 8
l
o
c
a
t
i
o
n
a
l
l
o
w
a
n
c
e
s
--------------------------------------------------------------------------------
Note: The programs shown may, in some instances, qualify when or how
a particular service may be provided. The program may also sometimes
provide an additional service beyond the activities listed.
\a Program service activity definitions are shown following table
III.1.
\b JTPA EDWAA substate allotment
\c JTPA EDWAA governor's discretionary
\d JTPA EDWAA Secretary's discretionary
\e JTPA Clean Air Employment Transition Assistance
\f JTPA Defense Diversification
\g Vocational Education--Demonstration Centers for the Training of
Dislocated Workers
Table IV.2
Nine Programs That Target Dislocated
Workers, by Funding Mechanisms, Proposed
Fiscal Year 1994 Funding, and Percentage
of Funding
(Dollars in millions)
Proposed
FY94 Percentage
Funding mechanism/program funding of funding
------------------------------------ ---------- ----------
All programs (9) $855.5 100
Formula grants (2 programs) 459.0 54
JTPA EDWAA substate allotment 229.5
JTPA EDWAA governor's discretionary 229.5
Project grants (6 programs) 181.5 21
JTPA EDWAA Secretary's discretionary 114.7
JTPA DCA \a
JTPA Clean Air Employment Transition \b
Assistance
JTPA DDP \c
Vocational Education--Demonstration \d
Centers for the
Training of Dislocated Workers
Transition Assistance Program 66.8
Other (1 program) 215.0 25
Trade Adjustment Assistance-- 215.0
Workers
------------------------------------------------------------
\a JTPA DCA: Funds allocated in 1991 are to be used to support
programs in out years until funding is depleted.
\b JTPA Clean Air Employment Transition Assistance: No funds were
appropriated for the Clean Air Act in fiscal year 1994.
\c JTPA Defense Diversification: Funds allocated in 1993 are to be
used to support programs in out years until funding is depleted.
\d Data not available at this time.
INFORMATION ON FOUR PROGRAMS THAT
TARGET OLDER WORKERS
=========================================================== Appendix V
This appendix describes the four federal employment and training
programs that target older workers. Each description provides
information on the purpose, eligibility criteria, and administrative
arrangements for the program. Additional information on these
programs' services and funding mechanisms follows in tables V.1 and
V.2, respectively.
PROGRAM DESCRIPTIONS
--------------------------------------------------------- Appendix V:1
SENIOR COMMUNITY SERVICE
EMPLOYMENT PROGRAM
------------------------------------------------------- Appendix V:1.1
Title V of the Older Americans Act, as amended, established SCSEP to
provide, foster, and promote part-time work experiences, usually 20
hours per week, in community service activities for low-income
persons who are 55 or older. Program participants may be placed in
work assignments at local service agencies, including schools,
hospitals, day care centers, and park systems, or other community
service projects. A portion of project funds may be used to provide
participants with training, counseling, and other support services.
The program assists and promotes the transition of participants into
unsubsidized employment. SCSEP is administered by the Department of
Labor, which distributes funds to states and national public and
private nonprofit agencies.
JTPA TITLE IIA TRAINING
PROGRAMS FOR OLDER
INDIVIDUALS
------------------------------------------------------- Appendix V:1.2
The program's purpose is to ensure the training and placement of
older individuals in employment opportunities with private
businesses. Title IIA requires that 5 percent of the within-state
allocation be set aside for employment training assistance for
economically disadvantaged individuals aged 55 and older. Older
individuals who face significant barriers to employment and meet the
income eligibility requirements of SCSEP may also receive assistance
under this JTPA title IIA program. Program administration is
provided by the Department of Labor in conjunction with state and
local substate entities.
FOSTER GRANDPARENT PROGRAM
------------------------------------------------------- Appendix V:1.3
The Foster Grandparent Program was established by the Domestic
Volunteer Service Act, as amended. It has the dual purposes of
providing (1) part-time volunteer service opportunities for
low-income persons aged 60 and older and (2) person-to-person support
services in health, education, welfare, and related settings to help
alleviate the physical, mental, and emotional problems of infants,
children, and youth with special needs. ACTION administers the
program and awards funds to state and local governments and private
nonprofit organizations.
SENIOR COMPANION PROGRAM
------------------------------------------------------- Appendix V:1.4
The Senior Companion Program was established by the Domestic
Volunteer Service Act, as amended. Its purpose is to provide
volunteer opportunities for low-income people aged 60 and older. The
volunteers are eligible for stipends to provide community services,
to provide in-home or community-based support to adults in need, and
to extend formal and professional community-based long-term care
systems. ACTION administers the program and awards funds to state
and local governments and private nonprofit organizations.
Table V.1
Comparison of Authorized Employment
Training Services by Five Main Areas for
Four Programs That Target Older Workers
Senior
Communit JTPA
y IIA
Service Traini Foster Senior
Employme ng Grandpare Compani
Service area/ nt Progra nt on Tota
activity\a Program ms Program Program l
---------------- -------- ------ --------- ------- ====
I.Counseling/assessment
------------------------------------------------------------
Outreach X X X X 4
Assessment X X X X 4
Employability X X 2
plan
Monitoring X X X 3
Case management X 1
Postprogress X X 2
review
Referral to X X 2
services
II.Remedial/basic skills
------------------------------------------------------------
ABE X X 2
ESL X X 2
GED X X 2
III.Vocational skills
------------------------------------------------------------
Classroom X X \b \b 2
training
Employer- X X \b \b 2
specific
training
On-the-job X X 2
training
Workfare 0
IV.Job creation and placement
------------------------------------------------------------
Job creation 0
Job search X 1
Job search X X 2
training
Job placement X X 2
Work study 0
V.Support services
------------------------------------------------------------
Child care X 1
Transportation X X X X 4
subsidy
Life skills X X 2
training
Medical X X X X 4
assistance
Personal X X 2
counseling
Needs-based X X X 3
payments
Transitional X 1
child care
Transitional X 1
medical
assistance
------------------------------------------------------------
Note: The programs shown may, in some instances, qualify when or how
a particular service may be provided. The programs may also
sometimes provide an additional service beyond the 27 activities
listed here.
\a Program service activity definitions are given following table
III.1.
\b The Foster Grandparent and Senior Companion programs provide
preservice and in-service training to prepare participants for their
volunteer activities. However, this training is not considered job
training.
Table V.2
Four Programs That Target Older Workers,
by Funding Mechanisms, Proposed Fiscal
Year 1994 Funding, and Percentage of
Funding
(Dollars in millions)
Proposed
FY94 Percentage
Funding mechanism/program funding of funding
------------------------------------ ---------- ----------
All programs (4) $568.2 100
Formula grants (2 programs) 472.6 83
Senior Community Service Employment $421.1
Program
JTPA IIA Training Programs for Older 51.5
Individuals
Project grants (2 programs) 95.6 17
Foster Grandparent Program 66.4
Senior Companion Program 29.2
------------------------------------------------------------
INFORMATION ON 16 PROGRAMS THAT
TARGET YOUTH
========================================================== Appendix VI
This appendix describes the 16 federal employment and training
programs that target youth. Each description provides information on
the purpose, eligibility criteria, and administrative arrangements
for the program. Additional information on these programs' goals,
services, funding mechanisms, and age limits follows in tables VI.1
through VI.4.
PROGRAM DESCRIPTIONS
-------------------------------------------------------- Appendix VI:1
JTPA TITLE IIC YOUTH
TRAINING
------------------------------------------------------ Appendix VI:1.1
Title IIC of JTPA, as amended, established the year-round youth
training programs. The Job Training Reform Amendments of 1992 split
the JTPA IIA Disadvantaged Youth and Adults Program into the JTPA IIA
programs for adults and the IIC programs for youth. The title IIC
programs strive to help youth (1) improve long-term employability;
(2) enhance educational, occupational, and citizenship skills; (3)
encourage school completion; (4) increase employment and earnings;
(5) reduce welfare dependency; and (6) address problems that impede
the transition from school to work. Title IIC programs fund
activities for economically disadvantaged in-school and out-of-school
youth aged 16 to 21. In-school youth aged 14 and 15 are also
eligible if provided for in the local job training plan. However, at
least 50 percent of the program participants must be out-of-school
youth. In general, not less than 65 percent of out-of-school youth
should be hard-to-serve individuals, including individuals with basic
skills deficiencies, pregnant or parenting youth, school dropouts,
homeless or runaway youth, individuals with disabilities, and
offenders.
Title IIC provides three program funding streams. The basic
Disadvantaged Youth Program distributes funds through formula grants
to states. Local programs are administered by the SDAs. The State
Education Program is funded with 8 percent of the JTPA title IIC
formula grant. The program funds state education agency projects,
such as school-to-work transition, literacy, and lifelong learning
opportunities, and coordinates statewide approaches to train, place,
and retain women in nontraditional employment. The program also
supports activities related to coordinating federal programs, such as
through state human resource councils. The Incentive Grants Program
is funded with 5 percent of the JTPA title IIC formula grant.
Governors distribute the funds to local SDAs that exceed established
program performance standards. The Department of Labor administers
the JTPA IIC programs in conjunction with designated state agencies
and local JTPA SDAs.
JTPA TITLE IIB SUMMER YOUTH
EMPLOYMENT AND TRAINING
(REGULAR AND NATIVE
AMERICAN)
------------------------------------------------------ Appendix VI:1.2
Title IIB of JTPA, as amended, established two Training Services for
the Disadvantaged--Summer Youth Employment and Training Programs, the
regular program and a program for Native American youth. Both
programs operate in the summer months. Title IIB programs provide
eligible youth with exposure to the world of work, enhance basic
education skills, encourage school completion, and enhance
citizenship skills. The programs target economically disadvantaged
youth aged 14 to 21. The Department of Labor administers the
programs. The regular program distributes funds through formula
grants to states; local programs are administered by the SDAs. The
Native American program distributes funds to tribal organizations and
other eligible grantees.
YOUTH FAIR CHANCE
------------------------------------------------------ Appendix VI:1.3
The Job Training Reform Amendments of 1992 established the Youth Fair
Chance Program. The program's purpose is to (1) ensure access to
education and job training assistance for youth residing in high
poverty areas, (2) provide a comprehensive range of education,
training, and employment services to youth who are not being served
or are underserved by federal education and training programs, (3)
enable communities with high concentrations of poverty to establish
and meet objectives for improving opportunities for youth within the
community, and (4) facilitate the coordination of comprehensive
services for youth in such communities. The Department of Labor
administers the program through project grants to local SDAs where
the target communities are located. Participating communities that
have the highest concentrations of poverty are given funding
priority.
SCHOOL DROPOUT DEMONSTRATION
ASSISTANCE
------------------------------------------------------ Appendix VI:1.4
The School Dropout Demonstration Assistance Act of 1988 established
SDDA. The program's purpose is to reduce the number of youths who do
not complete their education. To accomplish this, SDDA identifies
potential dropouts and provides assistance to keep them in school,
and identifies and encourages youth who have dropped out to reenter
and complete school. The Department of Education administers SDDA in
conjunction with local education agencies, community-based
organizations, and educational partnerships.
VOCATIONAL
EDUCATION--COMMUNITY-BASED
ORGANIZATIONS
------------------------------------------------------ Appendix VI:1.5
The Carl D. Perkins Vocational and Applied Technology Education Act,
as amended, established the Vocational Education--Community-Based
Organization Program. The program's purpose is to provide
educational assistance through the collaboration of public agencies,
community-based organizations, and business concerns to disadvantaged
youth not being adequately served by regular vocational education
programs. The program targets youth aged 16 to 21 who are from the
inner city, non-English speaking, Appalachian, or from high-poverty
areas. The Department of Education administers the program. Funds
are distributed to states via formula grants. State boards of
education award funds to private nonprofit organizations and local
educational agencies.
SCHOOL-TO-WORK
------------------------------------------------------ Appendix VI:1.6
The School-to-Work Opportunities Act of 1994 established the
School-to-Work program to develop school-to-work transition systems
that enable youth to find productive roles in the workplace. The
program strives to improve the knowledge and skills of youth by
integrating academic and occupational learning through local
partnerships that link school with work and use the workplace as an
active learning center.
For this report, School-to-Work is considered a single program.
However, recently enacted legislation includes several funding
streams: System Development and Implementation Grants to States,
Federal Implementation Grants to Local Partnerships, and national
programs for research, demonstration, and other projects. The
program is jointly administered by the Departments of Education and
Labor.
YOUTHBUILD
------------------------------------------------------ Appendix VI:1.7
The National and Community Service Act of 1990 established the
Youthbuild Program to provide economically disadvantaged young adults
with opportunities for meaningful services to their communities.
Activities for youth include participating in public housing
rehabilitation projects to help meet the housing needs of homeless
individuals and low-income families. In turn, these activities help
participating youth obtain the education and employment skills
necessary for economic self-sufficiency. At least three-fourths of
the participants must be 16 to 24 years old, economically
disadvantaged, and high school dropouts whose reading and mathematics
skills are at or below the eighth-grade level. Program
administration is provided by HUD.
JTPA JOB CORPS
------------------------------------------------------ Appendix VI:1.8
The Job Corps was established by the Economic Opportunity Act of
1964. The program is currently authorized under title IVB of JTPA,
as amended. The purpose of the Job Corps is to assist young people
who need and can benefit from the program's multifaceted service
approach. The Job Corps is primarily a residential program for poor
high school dropouts; about 10 percent of the participants are
nonresidential commuters. The program targets youth aged 14 to 21
with severe educational deficits and other employment barriers. The
Job Corps provides intensive, long-term job training and remedial
education, as well as health care, counseling, and job placement.
The Department of Labor administers the program. Job Corps centers
are funded by project grants. The Departments of Agriculture and
Interior operate 30 centers; private for-profit organizations operate
most of the other 78 centers. In addition, Labor contracts with
state employment service offices and private organizations for
recruitment and placement.
UPWARD BOUND
------------------------------------------------------ Appendix VI:1.9
The Higher Education Act, as amended, established the Upward Bound
program to help youth generate the skills necessary for success in
education beyond high school. Specifically, the program strives to
increase the academic performance and motivation levels of
participants so that they can complete secondary school and
successfully pursue postsecondary education. Two-thirds of program
participants must be low-income individuals who are first-generation
college students. Participants must be between the ages of 13 and 19
or veterans. Upward Bound is administered by the Department of
Education in conjunction with institutions of higher education,
public and private agencies, and, in exceptional cases when no other
applicants exist in the area being targeted, secondary schools.
TALENT SEARCH
----------------------------------------------------- Appendix VI:1.10
The Higher Education Act, as amended, established Talent Search to
(1) identify disadvantaged youth with potential for postsecondary
education and to encourage them to graduate from secondary school and
enroll in postsecondary programs, and (2) encourage youth who have
not completed programs of secondary and postsecondary education to
re-enter such programs. Two-thirds of the participants must be
low-income individuals who are first-generation college students.
Participants must be between the ages of 11 and 27 or have completed
5 years of elementary education. Talent Search is administered by
the Department of Education in conjunction with institutions of
higher education, public and private agencies, and, in exceptional
cases when no other applicants exist in the area being targeted,
secondary schools.
TRANSITIONAL LIVING FOR
RUNAWAY AND HOMELESS YOUTH
----------------------------------------------------- Appendix VI:1.11
The Juvenile Justice and Delinquency Prevention Act, as amended,
established the Transitional Living Program to assist homeless youth
between the ages of 16 and 21 in making successful transitions toward
self-sufficiency. Transitional Living is administered by HHS; state
and local governments and nonprofit organizations receive project
grants to establish and operate transitional living projects.
INDEPENDENT LIVING
----------------------------------------------------- Appendix VI:1.12
Title IVE of the Social Security Act, as amended, established the
Independent Living Program to help states and localities design
programs to assist youth in foster care who are 16 years old or older
to make the transition to independent living. HHS administers the
program and distributes funds through formula grants to states.
States may provide services directly or use local government entities
or private nonprofit organizations to deliver services.
FEDERAL EMPLOYMENT FOR
DISADVANTAGED YOUTH--SUMMER
----------------------------------------------------- Appendix VI:1.13
The Civil Service Reform Act, as amended, established the Federal
Employment for Disadvantaged Youth--Summer Program. The program's
purpose is to provide meaningful work to needy youth 16 years old or
older who might not otherwise have summer jobs. The program is
coordinated by the Office of Personnel Management, but carried out by
numerous federal agencies. Participating federal agencies list job
openings at local employment service offices.
Table VI.1
Many Programs Targeting Youth Have
Comparable Goals
Enhan
ce Increase Advance Encourage
skill employment academic self-
level opportunit achieveme sufficien
Program s ies nt cy
------------------- ----- ---------- --------- ---------
JTPA IIC X X X X
Disadvantaged
Youth
JTPA IIC X X X X
Disadvantaged
Youth Incentive
Grants
JTPA IIC X X X X
Disadvantaged
Youth State
Education
Youth Fair Chance X X X X
JTPA Job Corps X X X X
JTPA IIB Summer X X X X
Youth Employment
and Training
(Regular)
JTPA IIB Summer X X X X
Youth Employment
and Training
(Native American)
Federal Employment X X
for Disadvantaged
Youth--Summer
Youthbuild X X X X
Talent Search X X
Upward Bound X X X
VOC ED--Community- X X X
Based
Organizations
School Dropout X X
Demonstration
Assistance
Independent Living X X
Transitional Living X
for Runaway and
Homeless Youth
School-to-Work X X X
------------------------------------------------------------
Table VI.2
Comparison of Authorized Employment
Training Services by Five Main Areas for
16 Programs That Target Youth
Service VOC School-
area/ JTPA JTPA Youth Fair ED to- Youth Job Up Tal Trans Ind Fed
activity\a IIB\b IIC\c Chance SDDA CBO\d Work build Corps Bound Srch Liv Liv Emp Total
------------ ---------- ---------- ---------- -------- ------- ------- ------- ------- ------- ------- ------- ------- ------- ========
I.Counseling/assessment
-----------------------------------------------------------------------------------------------------------------------------------------------------
Outreach X X X X X X X X X X X 14
Assessment X X X X X X X X X X X X 15
Employabilit X X X X X X X 10
y plan
Monitoring X X X X X X X X X 12
Case X X X X X X X X 11
management
Postprogress X X X X X X 9
review
Referral to X X X X X X X X X X X 14
services
II.Remedial/basic skills
-----------------------------------------------------------------------------------------------------------------------------------------------------
ABE X X X X X X X X X X X X 15
ESL X X X X X X 9
GED X X X X X X X X X X X 14
III.Vocational skills
-----------------------------------------------------------------------------------------------------------------------------------------------------
Classroom X X X X X X X X X 12
training
Employer- X X X X X X X 10
specific
training
On-the-job X X X X X X X 10
training
Workfare 0
IV.Job creation and placement
-----------------------------------------------------------------------------------------------------------------------------------------------------
Job creation X 2
Job search X X X X X 8
Job search X X X X X X X X 11
training
Job X X X X X X X 10
placement
Work study X X X\e 4
V.Support services
-----------------------------------------------------------------------------------------------------------------------------------------------------
Child care X X X X X 8
Transportati X X X X X X X 10
on subsidy
Life skills X X X X X X X X X X X 14
training
Medical X X X X X 8
assistance
Personal X X X X X X X X X X 13
counseling
Needs-based X X X X X X 9
payments
Transitional X X X 6
child care
Transitional X X 5
medical
assistance
-----------------------------------------------------------------------------------------------------------------------------------------------------
Note: The programs shown may, in some instances, qualify when or how
a particular services may be provided. The programs may also
sometimes provide an additional service beyond the 27 activities
listed here.
\a Program service activity definitions are given following table
III.1.
\b Two JTPA IIB programs--Summer Youth Employment and Training
Program (Regular) and Summer Youth Employment and Training Program
(Native American)--offer the same services.
\c Three JTPA IIC programs--Disadvantaged Youth, Disadvantaged Youth
(Incentive Grants), and Disadvantaged Youth (State Education
Program)--offer the same services.
\d Community-based organizations.
\e Program administrators describe the "career intern" service as a
work study program except that it is not specifically used to finance
postsecondary education.
Table VI.3
Sixteen Programs That Target Youth, by
Funding Mechanisms, Proposed Fiscal Year
1994 Funding, and Percentage of Funding
(Dollars in millions)
Proposed
FY94 Percentage
Funding mechanism/program funding of funding
------------------------------------ ---------- ----------
All programs (16) $4,047.8 100
Formula grants (8 programs) 2,504.1 62
JTPA IIC Disadvantaged Youth 563.1
JTPA IIC Disadvantaged Youth-- 34.3
Incentive Grants
JTPA IIC Disadvantaged Youth--State 54.9
Education Programs
JTPA IIB Summer Youth Employment and 1,688.8
Training Program (Regular)
JTPA IIB Summer Youth Employment and \a
Training Program (Native American)
Independent Living 16.2
Vocational Education--Community- 11.8
Based Organizations
School-to-Work 135.0
Project grants (7 programs) 1,543.7 38
JTPA Job Corps 1,153.7
Youth Fair Chance 25.0
Transitional Living for Runaway and 11.8
Homeless Youth
School Dropout Demonstration 37.7
Assistance
Upward Bound 160.5
Talent Search 67.0
Youthbuild 88.0
Other (1 program) 0
Federal Employment for Disadvantaged \b
Youth--Summer
------------------------------------------------------------
\a JTPA IIB Summer Youth Employment and Training Program (Native
American): Funding is included in JTPA IIB (Regular) program total.
\b Federal Employment for Disadvantaged Youth--Summer: Program is
coordinated by Office of Personnel Management, but carried out by
numerous federal agencies. Obligations devoted to administration are
not separately identifiable.
CORE AGE GROUP
-------------------------------------------------------- Appendix VI:2
Programs targeting youth serve a core age group that is 16 to 19
years old. However, as table VI.4 shows, the lower age limits can
range from 11 to 16, while upper age limits can range from 19 to 27.
Table VI.4
Lower and Upper Age Limits for Youth
Programs
11- 13- 14- 16- 16- 16-
Program 27 19 21 20 21 24
------------------------ ---- ---- ---- ---- ---- ----
JTPA IIC Disadvantaged X
Youth
JTPA IIC Disadvantaged X
Youth--Incentive Grants
JTPA IIC Disadvantaged X
Youth--State Education
Programs
JTPA IIB Summer Youth X
Employment and Training
Program (Regular)
JTPA IIB Summer Youth X
Employment and Training
Program (Native
American)
JTPA Job Corps\a X
Youth Fair Chance X
Transitional Living for X
Runaway and Homeless
Youth
Independent Living X
School Dropout
Demonstration
Assistance\b
Vocational Education-- X
Community-Based
Organizations
Upward Bound X
Talent Search X
School-to-Work\c
Federal Employment for X
Disadvantaged Youth--
Summer
Youthbuild X
------------------------------------------------------------
\a Job Corps allows participation by individuals aged 22 to 24, but
that group may not exceed 20 percent of total participation. Also,
youth aged 14 to 15 may be enrolled by specific determination of the
Job Corps Director.
\b Program requirements include a minimum age of 16, but no upper age
limit.
\c The School-to-Work Opportunities Act of 1994 was signed into law
on May 4, 1994. Age eligibility criteria have not been published
yet.
MAJOR CONTRIBUTORS TO THIS REPORT
========================================================= Appendix VII
Robert Rogers, Assistant Director, (313) 256-8011
Sarah Colsen
Gary Galazin
Barbara Moroski-Browne
James Owczarzak
David Porter
Lynda Racey
Doreen Swift
RELATED GAO PRODUCTS
=========================================================== Appendix 0
Multiple Employment Training Programs: Conflicting Requirements
Underscore Need for Change (GAO/T-HEHS-94-120, Mar. 10, 1994).
Multiple Employment Training Programs: Major Overhaul Is Needed
(GAO/T-HEHS-94-109, Mar. 3, 1994).
Multiple Employment Training Programs: Most Federal Agencies Do Not
Know If Their Programs Are Working Effectively (GAO/HEHS-94-88, Mar.
2, 1994).
Multiple Employment Training Programs: Overlapping Programs Can Add
Unnecessary Administrative Costs (GAO/HEHS-94-80, Jan. 28, 1994).
Multiple Employment Training Programs: Conflicting Requirements
Hamper Delivery of Services (GAO/HEHS-94-78, Jan. 28, 1994).
Multiple Employment Programs: National Employment Strategy Needed
(GAO/T-HRD-93-27, June 18, 1993).
Multiple Employment Programs (GAO/HRD-93-26R, June 15, 1993).
The Job Training Partnership Act: Potential for Program Improvements
but National Job Training Strategy Needed (GAO/T-HRD-93-18, Apr. 29,
1993).
Multiple Employment Programs (GAO/HRD-92-39R, July 24, 1992).