CTE Policy Watch: A blog for CTE advocates

Agenda for the 2024 Lame Duck Session of Congress

Congress is not in session until after the November election, but when lawmakers return, they will be coming back to a long to-do list.  

The first and most important item on the list is government funding. Funding is currently authorized through a continuing resolution (CR) that lasts until December 20, and appropriators are actively negotiating a fiscal year (FY) 2025 spending package. The results of the election may determine if another CR into 2025 is needed or if the process can be wrapped up before the 119th Congress is sworn in. Many in both parties, including House Appropriation Chair Tom Cole (R-OK), would prefer that final appropriations bills are wrapped up in December. 

Other pieces of legislation that are considered “must pass” are the National Defense Authorization Act (NDAA) and the Farm Bill. The House passed their NDAA in June while the Senate has yet to bring a bill to the floor. Similar to the appropriations process, the leadership of the House and Senate Armed Services committees are negotiating a final package that will hopefully receive a vote in December. Not as much progress has been made on the Farm Bill, and some pieces of that bill have technically already expired. Lawmakers in both chambers have expressed concern over the lack of progress, and it is becoming more likely that Congress will need to pass an extension, similar to the extension that was passed in December 2023. Both the Farm Bill or extension and the NDAA could be targets for other, unrelated policies or programs to be attached as they move through Congress.  

In the Senate, the main focus for the chamber will be confirming appointments to the federal judiciary before a new presidential Administration succeeds the Biden Administration. That will not leave much time to take up legislation that is not considered “must pass.” Legislation that could fall victim to the tight schedule includes a reauthorization of the Workforce Innovation and Opportunity Act (WIOA). Chair Bernie Sanders (I-VT) and Ranking Member Bill Cassidy (R-LA) have been engaging with their House counterparts, Chair Virginia Foxx (R-NC) and Ranking Member Bobby Scott (D-VA) on negotiations around this bill. Even if these four leaders come to an agreement, there may not be enough floor time available in the Senate to pass a final package.  

As the lame duck session begins next month, ACTE will be sure to you in the loop as new developments

HELP Committee Holds Hearing on WIOA Reauthorization

On Wednesday, the Senate Health, Education, Labor and Pensions Committee held a hearing about reauthorizing the Workforce Innovation and Opportunity Act (WIOA). 

In his opening statement, Chair Bernie Sanders (I-VT) noted that in the 10 years since Congress passed WIOA, the country has experienced “monumental changes.” He added that “advancements in technology have displaced workers with one estimate showing the current shifts toward automation could put up to 39 million Americans out of work by 2030.” 

In their testimonies, the witnesses called for increased funding for training programs. Monty Sullivan, president of the Louisiana Community and Technical College System, said that both WIOA and Pell Grant funding are not keeping pace with the needs of employers, workers and communities.  

Additionally, David Bradley, senior director for workforce policy at Jobs for the Future, noted that in Fiscal Year (FY) 2023, programs and activities for adults, dislocated workers and youth under WIOA’s formula grants to state and local workforce areas were funded at $3.2 billion. He added that this funding level is not “adequate to meet all the promises in WIOA system, nor is the system currently designed to meet today’s extensive career navigation, skills development, and worker transition needs as a stand-alone program.” 

Short-term Pell was another major theme of the hearing with witnesses and members of the committee calling for the expansion of the Pell Grant. Sen. Tim Kaine (D-VA) used his time to talk about the importance of short-term Pell. In his opening, he noted, “Not everybody can access a four-year degree or even a two-year degree, but we also know that by 2031, more than 70 percent of jobs will require some form of postsecondary education or training beyond high school.” 

He later announced that the HELP Committee will have a mark-up of the JOBS Act this summer, which has a bipartisan group of 49 co-sponsors in the Senate. ACTE has been a long-time supporter of the JOBS Act and will continue to advocate for its passage. 

House Passes WIOA Reauthorization

On Tuesday, the House, in a 378-26 vote, overwhelmingly passed H.R. 6655, A Stronger Workforce for America Act. This bill would reauthorize the Workforce, Innovation and Opportunity Act (WIOA).  

Specifically, this bill requires that 50% of the adult and dislocated worker funding go toward upskilling workers through individual training accounts (ITAs), streamlines the eligible training provider list requirements to focus on outcomes and ensure eligible programs are aligned with the skill and hiring demands of employers, establishes a demonstration authority to provide several states and local workforce boards the flexibility to reimagine their workforce system, and facilitates skills-based hiring by validating workers’ competencies gained through prior experience and authorizing state and local boards to provide technical assistance to employers on implementing skills-based hiring practices. However, ACTE did have some concerns with the bill, notably the lack of mandatory inclusion of CTE leaders on workforce boards and lack of specific dedicated funding for the one-stop system.  

The ball is now in the Senate’s court, and lawmakers there are currently working on their own bipartisan legislation with the stated goal of a bill passing out of the Health, Education, Labor and Pensions committee by Memorial Day.  

The Senate is expected to craft its own legislation, though there may be many similarities between the two bills. Final enactment of a WIOA reauthorization bill this year will depend on the Senate acting, and the degree to which the Senate and House bills differ. It will be challenging for the chambers and parties to come to an agreement in an election year.  

ACTE recently participated in a briefing for Senate staff on the links between WIOA and CTE programs where we answered questions and outlined our WIOA priories. ACTE will continue to work with Senators on a WIOA proposal that builds more meaningful connections between CTE and workforce systems. 

House Education and Workforce Committee Approves WIOA Reauthorization Legislation

On December 7, Reps. Virginia Foxx (R-NC) and Bobby Scott (D-VA) introduced H.R. 6655, A Stronger Workforce for America Act. The legislation would comprehensively reauthorize the Workforce Innovation and Opportunity Act (WIOA) and make significant changes to core aspects of this legislation including eligible training provider lists and the provision of training services by the system. 

Specifically, this bill requires that 50% of the adult and dislocated worker funding toward upskilling workers through individual training accounts (ITAs), streamlines the eligible training provider list requirements to focus on outcomes and ensure eligible programs are aligned with the skill and hiring demands of employers, establishes a demonstration authority to provide several states and local workforce boards the flexibility to reimagine their workforce system, and facilitates skills-based hiring by validating workers’ competencies gained through prior experience and authorizing state and local boards to provide technical assistance to employers on implementing skills-based hiring practices. ACTE will providing more analysis of key provisions related to CTE, such as funding for community colleges, the youth funding streams and the infrastructure funding mechanism, over the coming weeks.  

The House Education and the Workforce Committee took this bill up on December 12 and approved the legislation in a bipartisan 44-1 vote. The bill now moves to the House floor. 

On the passage of the bill, Foxx said, “Today’s legislative package reflects our commitment to aligning the priorities of education and the workforce. To that end, we must continue to advocate for policies that develop vital workforce programs and help Americans move into in-demand jobs more quickly. I believe the measures passed today achieve this goal and ensure students and working Americans have the skills necessary for a changing economy.” 

An additional summary of the bill can be found here. A recording of the markup can be found here. 

DC Digest December 2-8:

This week, Congress was in session working to finish work on key issues ahead of the final days of the calendar year. There has been little progress on many of the “must pass” bills, including the FY 2024 funding bills. As things stand, funding is set to expire on January 19 for four of the 12 appropriations bills and on February 2 for the remaining eight, including the Labor, Health and Humans Services, and Education bill. More news and notes below:

• Short-Term Pell Proposal Unveiled by House of Representatives: Earlier this week Rep. Elise Stefanik (R-NY) along with Reps. Bobby Scott (D-VA), Virginia Foxx (R-NC) and Mark DeSaulnier (D-CA) introduced R. 6586, the Bipartisan Workforce Pell Act, a bill that would allow Pell Grant funding for short-term postsecondary degree programs with the goal of aligning education opportunities with workforce needs. Read more on the CTE Policy Watch Blog.
  
  
• House Releases Draft WIOA Reauthorization Bill: On Dec. 7, the House Education and the Workforce Committee introduced R. 6655, A Stronger Workforce for America Act. The bill would reauthorize the Workforce Innovation and Opportunity Act (WIOA). We are currently reviewing the comprehensive legislation and will have more information soon!

• Department of Education Announces Education Innovation and Research Funding to Help Address Academic Recovery: ED has announced $277 million in funding aimed at addressing academic recovery and educational equity and innovation through the Education Innovation and Research (EIR) grant program. The grant awards will be dispersed into the following sections: $90.3 million for STEM, $87.2 million for social emotional well-being, including student engagement and $76.5 for projects in rural areas.

• Department of Education Announces Additional Student Loan Debt Relief: ED has announced the approval of almost $5 billion in student loan debt relief for more than 80,000 student borrowers, bringing the total approved debt cancelation of the Biden-Harris Administration to over $130 billion for approximately 3.6 million Americans. This new round of debt cancellation comes from fixes made to ED’s income-driven repayment (IDR) forgiveness system and its Public Service Loan Forgiveness (PSLF) program, so could impact some educators

• Department of Education Announces Funding to Support Research and Development, Postsecondary Completion for Underserved Students: ED has announced over $90 million in grant awards for more than 20 colleges and universities, including some community and technical colleges, to support research and development at Historically Black Colleges and Universities (HBCUs), Tribally Controlled Colleges and Universities (TCCUs), and other Minority-Serving Institutions (MSIs). These new grants are focused on improving postsecondary student outcomes, including retention, transfer, credit accumulation and overall completion.

• National Skills Coalition (NSC) “Launches Expanding College and Career Possibilities: A Policy Action Initiative”: Close ACTE partner, NSC, has launched a new initiative that will gather skills advocates across 20 states with the goal of creating resources, supports and policy solutions for increasing college affordability, holistic supports, and completion of quality non-degree credentials that offer pathways to quality careers and further education. The initiative staff will do this by engaging in peer learning, policy action labs and tailored technical assistance, research and promotion.

House Oversight Committee Holds Hearing on Community Colleges and Apprenticeships

On October 25, the House Oversight and Accountability subcommittee on Economic Growth, Energy Policy and Regulatory Affairs held the hearing titled, “The Power of Apprenticeships: Faster, Better Paths to Prosperous Jobs and Less Waste in Higher Education.” This hearing discussed ways to draw more youth into exploring career options through CTE, apprenticeships and other work-based learning models.  

Those testifying were: 

• Paul Winfree, President and CEO of the Economic Policy Innovation Center 
• Erin Davis Valdez, Policy Director of the Texas Public Policy Foundation 
• Casey Sacks, President of Bridge Valley Community and Technical College (and former Deputy Assistant Secretary at OCTAE) 
• Tony Ewing, President of Advanced Fixtures, Inc. 
• Apryle Gladney, Associate Vice Chancellor for Human Resources at Washington University in St. Louis 

Sacks testified that one of the key strengths of community colleges is their ability to create tailored educational pathways for students. These pathways are designed in close collaboration with local industries, ensuring that the curriculum remains current and relevant. Sacks also noted the push among many community colleges and other workforce advocates to expand Pell Grant eligibility to cover short-term workforce education programs. And while she stated that the Workforce Innovation and Opportunity Act (WIOA) already provides vouchers known as individual training accounts (ITAs) that would cover those programs, she emphasized how challenging those ITAs are to use. “ITAs pay for what essentially short-term Pell would be, but it’s a lot more burdensome,” she said. 

On apprenticeships, Rep. Russell Fry (R-SC) asked Sacks how states could remodel their funding structures to better accommodate pre-apprenticeships. She stated that WIOA state plans are grounded in federal compliance when they should be focused on the needs of local communities and employers. 

A recording of the hearing can be found here. 

 

House Education and Workforce Committee Holds Hearing on Reauthorizing WIOA

On September 20, the House Education and Workforce Subcommittee on Higher Education and Workforce Development held a hearing titled “Strengthening WIOA: Improving Outcomes for Jobseekers, Employers and Taxpayers.” This hearing examined the issues at play at the heart of the Workforce Innovation and Opportunity Act (WIOA) as lawmakers work on reauthorizing the legislation. 

Those testifying were Mr. Scott Sanders, president and CEO of the National Association of State Workforce Agencies (NASWA); Ms. Rya Conrad-Bradshaw, vice president of corporate markets at the Cengage Group; Mr. Rick Beasley, executive director of the South Florida Workforce Investment Board; and Mr. Mason Bishop, nonresident fellow at the American Enterprise Institute. 

Subcommittee Chair Burgess Owens (R-UT) opened the hearing by identifying many issues in the economy that need reform. “In July of 2014, the United State had 4.8 million unfilled jobs. In July of this year, there were 8.8 million unfilled jobs, an increase of four million. Further, the labor force participation rate has not improved a bit since WIOA was enacted.” 

The witnesses stated that the law often stymies innovation among states and other organizations, dissuades employers from participating because of bureaucratic red tape and does not do enough to reach and encourage individuals to use the training services. “We are trying to operate in an iPhone economy with programs that were created and modeled from the New Deal and Great Society — and continue to do so,” said Bishop. “We must modernize this program and provide the governance and service delivery improvements and flexibility that will allow innovation and new ideas.”  

Several of the speakers also noted the need to provide more performance data on the programs and to make the information more accessible and less confusing for potential program participants and employers. Conrad-Bradshaw cited a Harvard study that finds there are more than 7,000 eligible training providers encompassing about 75,000 eligible programs in more than 700 occupational fields nationwide. 

Notably, Rep. Bobby Scott (D-VA), the ranking member of the full committee, used his time to talk about short-term Pell. In a question directed to Beasley, Scott asked, “If they had access to a Pell Grant, they’d be able to train a lot more people in your programs, is that right?” Beasley responded by saying that if Pell covered the training costs, his organization would use the other resources for support services to help individuals complete their programs. 

A recording of the hearing can be found here. 

Research Roundup: Guided Pathways, Job Training and Work-based Learning

Guided Pathways Adoption by Community Colleges: The Community College Research Center (CCRC) recently published a report on guided pathways implementation across community and technical colleges in Ohio, Tennessee and Washington. Researchers found that CTE pathways were the most likely to be mapped and scaled in all three states, regardless of the total level of guided pathways adoption in each state.

The following list details how community and technical colleges are implementing guided pathways:

• In Ohio, 89% of all colleges have mapped out requirements and course sequences for CTE program pathways.
• Colleges are increasingly organizing their programs by meta-majors to help students’ direct entry into the workforce or career advancement education.
• Advising and onboarding practices like students taking career-relevant courses early in their postsecondary education and mandatory education planning were usually adopted in tandem across each state.

Researchers recommend that any institutions interested in following the model discussed in this report design their practices, policies and systems parallel to the four pillars of the guided pathways system.

Reforming Government-supported Job Training: The American Enterprise Institute recently published a series of reports analyzing the effectiveness of federal programs funded through the Workforce Innovation and Opportunity Act (WIOA) and presenting options for experimentation at the local level. In the first of these reports, researchers share that job training programs are struggling to show positive outcomes for participants and that job training funding has been declining since the 1970s.

Researchers suggested the following changes to fix WIOA program operations for increased outcomes, success and efficiency:

• Reduce administrative red tape for participation in a WIOA program to improve opportunity for individuals who are in the reentry process following incarceration, are economically disadvantaged or have disabilities.
• Clarify which agencies must co-locate in a job center to share costs and provide local WIOA officials with the ability to enforce cost-sharing rules.
• Hold annual meetings at the start of each program year allowing local, state and federal workforce development administrators to provide input into setting goals and discuss systems improvements.
• Expand sector-based training programs, allowing workers without degrees to earn living wages and receive training for key sectors of the economy where labor demand is strong.

The report also suggests that increased WIOA funding would lay the groundwork for improving programs and lead to better outcomes.

Addressing Equity Blockers to Work-based Learning: A report recently published by the Education Strategy Group examined how leaders are identifying and effectively addressing equity blockers affecting students in work-based learning on the secondary and postsecondary levels. Researchers found that offering equitable work-based learning opportunities was a key focus area for each of the six communities within the New Skills Ready Network (NSRN) as leaders across the country increasingly look to erase barriers and improve meaningful experiences for all students.

The report highlights some of the following issues, barriers and circumstances limiting students’ participation in a work-based learning program:

• Geographic proximity and transportation challenges, with a lack of effective transit routes convenient enough for economically disadvantaged individuals.
• Scheduling constraints owing to existing part-time employment for students with financial needs as well as limited availability for students with caregiving responsibilities.
• Minimum requirements for participation that lead many types of students to self-select out of applying for a work-based learning experience.
• Lack of local staff capacity to identify, vet and engage industry partners; provide support; and collect data.

To combat these barriers and target increased access to students who need it most, researchers emphasize the importance of information sharing and recommend that districts ramp up their efforts to formalize and publish their policies, which may serve as examples to others.

Research Roundup: CTE at Community Colleges

Analysis of Community College Health Care Training Programs: The Community College Research Center at Columbia University recently published a report in which researchers used 2019-20 data from the U.S. Department of Education to examine community colleges’ contributions to the health care workforce.

The results showed that community colleges are responsible for much of the health care programs and graduates in allied health, nursing, mental health and clinical laboratory science. Additionally, researchers looked at the demographics of community colleges and earnings outcomes that students achieve upon completion. The following represent some of the most notable findings:

• Community colleges were cited as responsible for 76% of all postsecondary programs in mental/social health, 68% in allied health and 58% in practical nursing. They were also responsible for similar percentages of graduates in those programs across the postsecondary sector.
• Public health programs were noted for their diverse recruitment with Latinx and African American students comprising 22% and 20% of all graduates, respectively.
• For many health care programs, certificates are more common than longer-term awards.
• Median hourly wages vary by program and attainment level, with the highest wages associated with two-year degrees in dental support services.

Community Colleges: Achieving Their Potential for Workforce Development: A report recently published by the American Enterprise Institute analyzed the role of public community colleges in preparing learners to enter the workforce and meet labor demand.

Community colleges are facing many hurdles, including providing academic and career supports, purchasing equipment for in-demand fields, the lack of Pell Grant access for students in non-credit programs, and the transfer disconnect with four-year institutions, among other things. Researchers highlighted some of the following recommendations for policymakers and administrators to better support these institutions:

• Update recruitment and hiring practices to attract instructors with relevant industry experience.
• Use labor market information and employer engagement to improve labor market alignment and better integrate work-based learning with classroom instruction.
• Create flexible pathways and stackable opportunities in and among for-credit and non-credit programs.
• Invest in staff who specialize in building relationships with employers and community partners.

The publication highlights examples such as Project QUEST in San Antonio, Texas, which offers community college training that supports the certification of students in high-earnings fields such as health care, manufacturing and information technology as well as the Good Jobs Challenge, which has awarded $500 million in grants extending into 2027 to regional workforce training partnerships of industry, community colleges, training partners, community-based organizations and unions.

Strategies and Resources to Align Non-credit and Credit Programs: Education Strategy Group recently published a series of resources, which share research, strategies and examples of success aimed at supporting community colleges in the pursuit of more closely aligning non-credit workforce training and degree-focused credit programs. Despite this separation often being beneficial, having two different systems internally can cause content duplication, lack of communication, missed opportunities to build and collaborate and an inequitable student experience, particularly for non-credit students.

Researchers propose the following key tenets for framework alignment:

• Treat non-credit students the same as those in for-credit programs. Ensure every institutional decision or action is taken with both types of learners in mind.
• Do not make non-credit programs an educational dead end. Instead develop seamless transitions between non-credit programs and credentials and associate degree programs.
• Reorganize for joint leadership between non-credit and credit departments and be prepared to modify institutional curriculum development and design processes for better alignment.
• Ensure that industry-focused programs are credit worthy and credit based with bridge tools like credit matrices, articulation and equivalency agreements.

ACTION ALERT: Ask Your Members of Congress to Oppose Cuts to Education and Workforce Programs in FY 2024!

On July 14, the House Appropriations Subcommittee on Labor, Health and Human Services, Education and Related Agencies approved its Fiscal Year (FY) 2024 appropriations bill on a party-line vote. In some good news for CTE, the Perkins Basic State Grant is level funded in this bill. However, the bill reduces overall education funding, including rescissions to some funding that would become available to programs this fall and significant cuts to or complete eliminations of dozens of education and workforce programs, such as WIOA Youth and Adult programs, federal work-study, ESSA Title I and II and more.

The proposed cuts to major education and workforce development programs are deeply concerning, and will harm the ability of CTE programs to support learners and provide access to broader career and postsecondary opportunities. Education and workforce programs work hand-in-hand to develop a skilled workforce – CTE programs cannot be successful without the support of the entire system.

As the bill moves forward in the House and the Senate begins work on its bill as well, it is critical that Members of Congress understand the impact of these proposed cuts, and that you lend your voice in support of funding for the entire education and workforce development system.

ACTION NEEDED: CLICK HERE to tell your Members of Congress about the impact of proposed cuts to education and workforce programs in the FY 2024 Labor, Health and Human Services, and Education appropriations bill! 

You can send a message directly using the ACTE Action Center. You can also call or email directly any personal contacts that you have in your Members’ offices, such as from a meeting at NPS, or call the U.S. Capitol switchboard at (202) 224-3121, and an operator will connect you to your Member of Congress.