Narrative: II. b.

(1)  VISION

Colorado’s vision for its workforce development system is that every Colorado employer has access to a skilled workforce and every Coloradan has the opportunity for meaningful employment, resulting in individual and statewide economic prosperity. 

As Governor Polis enters his second term, his administration is focused on four key issues that affect all aspects of talent development in Colorado: quality, equity, access and affordability. As a state we are working to enhance each of these domains in relation to all programs that connect Coloradans to in-demand careers and pathways to prosperity. The north star focus is that every learner can attain the skills and knowledge needed to find a job that supports themselves and their family. 

The Colorado Workforce Development Council (CWDC) is charged with aligning the efforts of economic development, education, workforce development, government, and business stakeholders at the local, regional, and state levels. The CWDC ensures the strategic vision for the workforce system remains relevant by convening partners, leveraging resources, and working to remove communication and regulatory barriers in order to help businesses create jobs, retain jobs, and access a highly competitive workforce. 

During the next four years, Colorado’s talent development network will focus on enhancing quality, equity, access, and affordability of all programs that connect Coloradans to in-demand careers and pathways to prosperity. Through the leadership of Governor Polis, we will create a Colorado where every learner can attain the skills and knowledge needed to find a job that supports themselves and their family. Investments under WIOA will be directed to meet our state’s unique workforce needs and include the flexibility for local areas to enhance wrap-around services to solve for challenges including transportation and child care. Investments will also focus on meeting regional needs and expanding business-led strategies for enhancing our state’s talent pipeline.

(2) GOALS

Create a workforce development ecosystem that is highly fluid, dynamic and accessible– allowing Coloradans to learn and earn throughout the course of their lives. Models that emphasize skills-based hiring, work-based learning, on-the-job training, upskilling opportunities, career exposure, economic mobility, and return on investment are keen areas of interest for the state. These approaches will be applied across all core programs under WIOA through local workforce centers, adult education providers, vocational rehabilitation staff, and secondary and postsecondary education systems. 

Further, Colorado hopes to be a national example for how to bridge gaps across the workforce development ecosystem by aligning State and Federal investments—such as the Infrastructure Investment and Jobs Act, known as the Bipartisan Infrastructure Law (BIL), Creating Helpful Incentives to Produce Semiconductors (CHIPS) and Science Act, and the Inflation Reduction Act (IRA)—to build quality opportunities that are demand-driven. 

In order to achieve this goal, the talent development network will focus on four strategic priorities and engage in action steps for each priority.

Priority One: INCREASE AFFORDABILITY OF CAREER CONNECTED EDUCATION AND TRAINING for Coloradans of all skill levels who have completed or left the K-12 education system.

The population groups targeted under this priority include adult learners without a high school diploma who are supported by Title II providers, opportunity youth who have completed high school but are not connected to work or education, individuals with disabilities, and adults whose skills do not match the demands of the labor market. 

Action Step A: Connect Coloradans to zero-cost in-demand credentials. 

Action Step B: Expand and promote apprenticeships and zero-cost upskilling opportunities.

Action Step C: Expand awareness of and adoption of skills-based hiring.

In order to prepare workers for today and tomorrow’s economy, the Colorado workforce development system needs to pool existing resources, expertise, and funding—including from the federal opportunities mentioned above in addition to WIOA and Perkins funds— to ensure that all Coloradans have equitable and affordable access to training, educational, and employment opportunities. We will focus on connecting workforce development center customers to the zero-cost credentials provided through area technical and community colleges, school districts, and accelerated up-skilling programs. Progress towards this priority will be gauged by the increase in individuals connected to programs at community colleges and in apprenticeships. 

We will work to build interest in skills-based approaches by bridging employers, education partners and workforce development centers. Through our sector partnerships, we will expand Colorado’s talent pool by educating employers on the importance of apprenticeships and skills-based approaches that place greater value on job-specific skills in job postings rather than just educational attainment and degree completion. We will support employers through technical assistance, communities of practice and apprenticeship programs  as they work to embrace skills-based hiring, micro- and stackable credentials, and the development of skills-based job descriptions that allow qualified, non-degree candidates to be considered for job opportunities. Progress will be indicated by the adoption of skills-based hiring or engagement of employers in training sessions.

Priority Two: INCREASE THE QUALITY OF UPSKILLING OPPORTUNITIES, JOBS, AND CAREER PATHWAYS

Action Step A: Affirm definitions of quality in our state and align stakeholders in the understanding  and implementation of Colorado’s job quality framework.

Action Step B: Publish and examine the return on investment of programs.

Action Step C: Build the evidence-base to direct funding into programs that work and make a tangible impact for individuals, businesses, and communities.

Partners in the TalentFOUND network collaborated and produced the Colorado Job Quality Framework to outline features of a quality job and practical steps local communities, employers, and leaders can take to improve job quality in Colorado. Similar steps can be taken to affirm what quality means for credentials, training programs, and supportive services offered throughout our network while leveraging state and federal resources to ensure that all Coloradans have equitable and affordable access to training, educational, and employment opportunities. 

In partnership with the Colorado Department Department of  Higher Education, we will publish return on investment data for training and academic programs, and use that data to guide Coloradans towards informed choices about their career paths. As more data is collected, analyzed, and shared, Colorado will be able to create a catalog of evidence-based programs and approaches that can be deployed through workforce centers, adult education providers, vocational rehabilitation offices, human services programs, and other partners of the talent development network. 

We will work to educate employers and employees about what training opportunities are of quality and of value in Colorado’s economy. We will also work with these stakeholders to promote job quality across the economy.

Priority Three:  INCREASE EQUITABLE ECONOMIC OPPORTUNITY FOR INDIVIDUALS WHO EXPERIENCE BARRIERS BASED ON RACE, ETHNICITY, GENDER, ABILITY, AGE, ZIP CODE, AND/OR SOCIOECONOMIC STATUS. 

Action Item A: Promote Higher Education affordability and transparency

Action Item B: Update the Colorado Talent Equity Agenda to support everyone regardless of gender, race, ethnicity, religion, national origin, age, sexual orientation, gender identity, citizenship status, education, disability, and/or socio-economic status

Action Item C: Raise awareness of and promote equitable access for concurrent enrollment opportunities

Action Items D: WIOA partners and local/regional plans will detail strategies for strengthening education, training, and hiring initiatives to boost equitable economic outcomes

The Colorado Department of Personnel & Administration issued a Universal Policy in September 2020 that provides a definition of Equity used by state entities. In the context of this WIOA state plan, we approach Equity as: 

When everyone, regardless of who they are or where they come from, has the opportunity to thrive. Equity recognizes that some individuals have an advantage because of their identity, while others face barriers. Unlike equality, which suggests giving the same thing to everyone, equity works to provide opportunities to those facing barriers by providing additional resources to those who do not have these advantages. This requires eliminating barriers like poverty and repairing systemic injustices.”

Our approach to Equity work will adapt in response to any future changes made to the Universal Policy by the Department of Personnel & Administration. 

Throughout the years, racial,  ethnic, geographic, ability-status, and educational disparities have been identified in unemployment and attainment rates in Colorado. Historically, the white population typically has lower unemployment rates than the Hispanic or Black or African American populations. This gap has significant implications and spotlights a critical need to strengthen how we educate, train, hire, and promote our current workforce. The Talent Equity Agenda was created in 2020 to make the case for targeting resources, raising awareness, and accelerating shared strategies to close racial economic disparities in the state and measure the results. To accomplish our goal, we will operationalize talent development efforts through a racial equity lens as a means to restructure and align education, training, hiring practices, and advancement opportunities by aligning with the work of key partners to create intentional and active work to ensure Colorado’s workforce systems are serving all Coloradans. 

In addition to addressing racial disparities, our system will work to close the Digital Divide by increasing digital equity through expanding broadband access and providing digital skill development in both rural areas and underserved urban areas. We will enhance career navigation support and the systems available for students and workers, and promote equitable hiring, compensation, and promotion practices as we engage with employers. Efforts to support individuals with disabilities through the vocational rehabilitation program will be increased with a continued investment in employment first practices and a deeper data analysis of the challenges faced by this population in attaining and retaining employment.

Priority Four: ENHANCE ACCESS TO PROGRAMMING BY CREATING MORE SEAMLESS CONNECTIONS BETWEEN HIGH SCHOOL, POSTSECONDARY EDUCATION, AND THE WORKFORCE

Action Item A: Expand early credential attainment and postsecondary opportunities for all high school students.

Action Item B: Raise awareness of and promote concurrent enrollment.

Action Item C: Support employer and community needs through expansion of work-based learning opportunities, encouraging students to participate.

Building on our commitment to create an economy that works for all, we will work to erase the dividing line between high school, postsecondary education and training, and the workforce. In partnership with educational leaders who have been working through a two-year, legislatively sponsored task force, we will increase opportunities for all students to participate in apprenticeships, access early credential attainment options in high school, and engage in work-based learning programs. The final report of that task force authorized through Colorado House Bill 22-1215 can be accessed via the CDE website. We will leverage the TalentFOUND Network of partners, align state and federal funding—including the Infrastructure Investment and Jobs Act, known as the Bipartisan Infrastructure Law (BIL), Creating Helpful Incentives to Produce Semiconductors (CHIPS) and Science Act, and the Inflation Reduction Act (IRA)— and encourage employers and educational institutions to identify innovative ways to collaborate and offer programs to help learners gain skills and earn money in the process. 

Keys to Success

There are several factors that influence the ability of both individuals and our state systems to realize the goals listed above. Affordable and accessible childcare, transportation, housing, and quality jobs, are the among most important determinants of one’s quality of life. These determinants are inextricably intertwined and each one influences the others. Therefore we will continue to work on strengthening organizational capacity and partnerships to address aspects of workers’ lives that influence their ability to access training, educational, and employment opportunities leading to economic mobility, such as connecting individuals with career pathways in infrastructure as supported by recent federal legislation. Additionally, the success of our state systems in these endeavors is directly dependent upon the skill level of staff working in the network. We will therefore continue to expand staff training opportunities and organizational development plans so that one-stop centers and program partners can engage effectively in all aspects of our work, and adapt when needed as circumstances require to meet the needs of customers. The ongoing technical assistance offered by the CWDC support staff working on all titles under WIOA and allow for vocational rehabilitation counselors, adult education providers, and human services program staff to learn with title I-B program staff so that partnerships are strengthened and customers receive a seamless experience. 

We will do so by strengthening alignment and information-sharing across in-person and virtual programs; supporting local boards in engaging businesses and key employers to address community issues including childcare, transportation, and affordable housing; implementing expanded staff training and organizational development plans so that one-stop centers and program partners can adapt when as circumstances require to meet the needs of customers; increasing digital equity by supporting expanded broadband access and providing digital skill development; and leveraging existing resources, expertise, and funding to ensure that all Coloradans have equitable and affordable access to training, educational, and employment opportunities.

A cross-functional work group of state and local staff was convened to identify and implement strategies for achieving the above stated goal. Colorado has utilized, and will continue to utilize, the following strategies for identification, outreach, recruitment, and service delivery for individuals with barriers to employment: 

• Data Quality - It is imperative that processes for the collection and reporting of relevant data are functioning effectively in order for Colorado to reliably demonstrate service to targeted groups. The aforementioned work group reviewed the functionality of Colorado’s data management and reporting system to ensure its capacity to accurately gather and report this information. 
• Streamlining Intake - The work group studied the various intake processes in Colorado’s local workforce areas with an eye toward maximizing customer value and minimizing waste. The group recommended that unnecessary steps, forms, and functions be discontinued. 
• Partnerships - Reaching and serving our state’s most vulnerable populations requires strong, effective working relationships among the programs and agencies that make up Colorado’s talent development system. State staff has worked, and will continue to work, to foster these partnerships in order to build referral systems and collaborative service delivery platforms that allow for quality wraparound services. 

The following charts detail Colorado’s progress in serving the agreed-upon population groups:   

(3) PERFORMANCE GOALS

Using the table provided in Appendix 1, include the State's expected levels of performance relating to the performance accountability measures based on primary indicators of performance described in section 116(b)(2)(A) of WIOA. (This Strategic Planning element only applies to core programs.) 

Performance measurements are negotiated annually with the US Departments of Labor and Education. Colorado will develop proposed targets for the applicable performance measurements for PY 24 and PY 25. This state plan will be updated as performance targets are negotiated in each program year based on the negotiation process with the federal departments. 

(4) ASSESSMENT

Describe how the State will assess the overall effectiveness of the workforce development system in the State in relation to the strategic vision and goals stated above in sections (b)(1), (2), and (3) and how it will use the results of this assessment and other feedback to make continuous or quality improvements. 

Colorado is focused on enhancing its use of evidence to inform workforce development strategies and to influence the design and execution of initiatives. The vision and goals discussed above are theory-informed. By measuring progress and the results of implementation, we will be able to collect data that can move our work along an evidence continuum. The CWDC is tasked with assessing the results of programs and promoting continuous improvement. External evaluation partners are in place to examine the results of title I-B programs and specific partnerships with other titles. The Office of Adult Education Initiatives and the Division of Vocational Rehabilitation also examine program outcomes to assess results and make adjustments in their approaches as needed.  Assessment plans will be developed by the CWDC in partnership with the state-level leadership of core programs, workforce centers, title II programs, and title IV staff.  The assessment plans will include measurable goals, progress benchmarks, and specific indicators that will be used to monitor progress against each of the priorities identified in this plan. Key metrics will include utilization of the existing programs, the development and publication of quality standards, issuance of reports, and participation in system programs by individuals and by employers. Reports on the progress towards these objectives are shared at the regular meetings of the CWDC so that improvements can be made in real time during the course of this 4-year plan. For title II, the assessment results influence how funding is awarded in the grant making process. For all titles and partner programs the results of assessments inform the technical assistance offered by the state to ensure it is responsive to immediate needs.

In addition to the regular meetings of the CWDC and its steering committees, a WIOA Implementation Team meets regularly to discuss progress on the state plan. Strategies are assessed for their performance and the implications of that performance on the system overall in relationship to the overarching goals and specific program performance measurements. These meetings allow for adjustments to be made in the implementation plan so that challenges can be resolved and improvements can be realized. The negotiated performance metrics are one data point that is looked at to determine success, and these are paired with input and process measures of awareness, enrollment, and training level of staff.