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WIOA Performance Indicator Definitions
Please select an indicator from the timing chart to view its definition.
Exiters (Flow Indicators)
FutureWorks BI provides two flow indicators to display exiting participant counts.
Exited — WIOA exiters based on program year timing of 7/1 – 6/30.
Exited DOL — WIOA exiters based on USDOL annual report timing. USDOL Exiters lag one quarter, as shown in the timing chart. To isolate USDOL Exiters in data views, use the Exited DOL flow indicator under the Measures data dimension.
Exiters (Flow Indicators)
FutureWorks BI provides two flow indicators to display exiting participant counts.
Exited — WIOA exiters based on program year timing of 7/1 – 6/30.
Exited DOL — WIOA exiters based on USDOL annual report timing. USDOL Exiters lag one quarter, as shown in the timing chart. To isolate USDOL Exiters in data views, use the Exited DOL flow indicator under the Measures data dimension.
Employment Rate – 2nd Quarter After Exit
Adult / Dislocated Worker / AEFLA / Employment Service / VR
Employment Rate – 2nd Quarter After Exit is the percentage of program participants who are in unsubsidized employment during the second quarter after exit from the program.
Methodology:
Calculation includes all program participants except those in the title I Youth program:
The number of participants who exited during the reporting period who are found to be employed — either through direct UI wage record match, Federal or military employment records, or supplemental wage information — in the second quarter after the exit quarter DIVIDED by the number of participants who exited during the reporting period.
Operational Parameters:
When calculating levels of performance for this indicator, States must include all participants exiting the title I Adult, title I Dislocated Worker, title II AEFLA, title III Employment Service, and title IV VR programs, except States must not include (in either the numerator or denominator) those participants who exit during the reporting period for any of the reasons listed in Attachment 2, Table A or Attachment 2, Table C (PIRL 923) regarding exclusions.
Title I Youth – Education and Employment Rate, 2nd Quarter After Exit
Title I Youth Education and Employment Rate – 2nd Quarter After Exit is the percentage of title I Youth program participants who are in education or training activities, or in unsubsidized employment, during the second quarter after exit from the program.
Methodology:
Calculation includes all title I Youth program participants:
The number of title I Youth program participants who exited during the reporting period who are found to be employed — either through direct UI wage record match, Federal or military employment records, or supplemental wage information — OR found to be enrolled in secondary education, postsecondary education, or occupational skills training (including advanced training) in the second quarter after the exit quarter DIVIDED by the number of title I Youth program participants who exited the program during the reporting period. (See Attachment 10, Figure 2.)
Operational Parameters:
Calculations for determining levels of performance for this indicator include all participants who exit the title I Youth program except those that exit for any of the reasons listed in Attachment 2, Table B or Attachment 2, Table C. Title I Youth who are in the AmeriCorps program or Job Corps program in the second quarter after exit are counted as a success in the training portion of the indicator.
Median Earnings – 2nd Quarter After Exit
Median Earnings – 2nd Quarter After Exit is the median earnings of program participants who are in unsubsidized employment during the second quarter after exit from the program, as established through direct UI wage record match, Federal or military employment records, or supplemental wage information.
Methodology:
To calculate the median earnings for all participants employed in the second quarter after exit from any of the core programs, including the title I Youth program:
Total quarterly earnings for all participants employed in the second quarter after exit are collected by either direct wage record match or supplemental wage information. The collected quarterly wage values are listed in order from lowest to highest. The value in the middle of this list is the median earnings value — where the same quantity of numbers falls above the median as below it. (See Attachment 10, Figure 5.)
The Wage Conversion Chart (Attachment 3) is used to convert supplemental wage information values that do not represent the total amount a participant earned in the second quarter after exit. When using the Wage Conversion Chart it is important to distinguish between wage and earnings: wage is a ratio of earnings over a specific period of time. The Wage Conversion Chart should be used only when the wage rate — not earnings information — is available.
Operational Parameters:
The following participants and any associated earnings figures are excluded from the calculation for median earnings:
- Participants who have exited and are not employed in the second quarter after exit (PIRL 1602 – Employed in 2nd Quarter After Exit Quarter – with code value 0).
- Participants who have exited a program and for whom earnings information is not yet available:
- PIRL 1602 – Employed in 2nd Quarter After Exit Quarter – with code 09 (Information not yet available); or
- PIRL 1603 – Type of Employment Match 2nd Quarter After Exit Quarter – with code value 5 (Information not yet available); or
- PIRL 1704 – Wages 2nd Quarter After Exit Quarter – with code value 999999.99 or blank.
There is a two-quarter lag built into the reporting times for the wage- and employment-based indicators to allow time for reporting participant exit and conducting direct wage record match. After two quarters, if the information is still not available, wages will be converted to $0 permanently. Wages reported as $0 indicate that the participant was not employed in the second quarter after exit — counting as a negative outcome in the Employment Rate 2nd Quarter After Exit indicator and excluding that participant from the Median Earnings indicator.
- Participants who have exited from a program and who have $0 income. For purposes of the VR program, these include unpaid family workers and homemakers.
- Participants who have exited a program and are in subsidized employment.
- Participants who have exited for any of the reasons listed in Attachment 2, Tables A through C.
Employment Rate – 4th Quarter After Exit
Adult / Dislocated Worker / AEFLA / Employment Service / VR
Employment Rate – Fourth Quarter After Exit is the percentage of program participants who are in unsubsidized employment during the fourth quarter after exit from the program.
Methodology:
Calculation includes all program participants except those in the title I Youth program:
The number of participants who exited during the reporting period who are found to be employed — either through direct UI wage record match, Federal or military employment records, or supplemental wage information — in the fourth quarter after the exit quarter DIVIDED by the number of participants who exited during the reporting period. (See Attachment 10, Figure 3.)
Operational Parameters:
Calculation of levels of performance for this indicator includes all participants who exit from the title I Adult, title I Dislocated Worker, title II AEFLA, title III Employment Service, and title IV VR programs, except States must not include (in either the numerator or denominator) those who exit for any of the reasons listed in Attachment 2, Table A.
Title I Youth – Education and Employment Rate, 4th Quarter After Exit
Title I Youth Education and Employment Rate – Fourth Quarter After Exit is the percentage of program participants who are in education or training activities, or in unsubsidized employment, during the fourth quarter after exit from the program.
Methodology:
Calculation includes all title I Youth program participants who exit from the program:
The number of title I Youth program participants who exited the program during the reporting period who are found to be employed — either through direct UI wage record match, Federal or military employment records, or supplemental wage information — OR found to be enrolled in secondary education, postsecondary education, or occupational skills training (including advanced training) in the fourth quarter after the exit quarter DIVIDED by the number of title I Youth program participants who exited the program during the reporting period. (See Attachment 10, Figure 4.)
Operational Parameters:
Calculation of levels of performance for this indicator includes all participants who exit from the title I Youth program, except those who exit for any of the reasons listed in Attachment 2, Table B. Title I Youth who are in the AmeriCorps program or Job Corps program in the fourth quarter after exit are counted as a success in the training portion of the indicator.
Credential Attainment Rate
Credential Attainment is the percentage of those participants enrolled in an education or training program (excluding those in OJT and customized training) who attained a recognized postsecondary credential or a secondary school diploma, or its recognized equivalent, during participation in or within one year after exit from the program.
A participant who has attained a secondary school diploma or its recognized equivalent is included in the percentage only if the participant also is employed or is enrolled in an education or training program leading to a recognized postsecondary credential within one year after exit from the program.
Methodology:
Calculation includes all participants who exited from a program and were in either a postsecondary education or training program (other than OJT and customized training) OR in a secondary education program at or above the 9th grade level without a secondary school diploma or its equivalent:
The number of participants who exited during the reporting period who obtained a recognized postsecondary credential during the program or within one year after exit OR those who were in a secondary education program and obtained a secondary school diploma or its recognized equivalent during the program or within one year after exit and were also employed, or in an education or training program leading to a recognized postsecondary credential within one year after exit DIVIDED by the number of participants enrolled in an education or training program (excluding those in OJT and customized training) who exited during the reporting period. (See Attachment 10, Figure 6.)
Operational Parameters
Credential Attainment measures attainment of two types of credentials: either a recognized postsecondary credential, or a secondary school diploma or its recognized equivalent.
Definition of a Recognized Postsecondary Credential:
A recognized postsecondary credential is defined as a credential consisting of an industry-recognized certificate or certification, a certificate of completion of an apprenticeship, a license recognized by the State involved or Federal government, or an associate or baccalaureate degree (as well as graduate degrees for the VR program as required by section 103(a)(5) of the Rehabilitation Act of 1973, as amended by WIOA). A recognized postsecondary credential is awarded in recognition of an individual's attainment of measurable technical or industry/occupational skills necessary to obtain employment or advance within an industry/occupation. These skills are generally based on standards developed or endorsed by employers or industry associations.
Certificates awarded by workforce development boards (WDBs) and work readiness certificates are not included in this definition because neither type is recognized industry-wide, nor does either document the measurable technical or industry/occupational skills necessary to gain employment or advancement within an occupation.
Organizations and institutions that award recognized postsecondary credentials include (not all credentials from these entities meet the definition):
- A State educational agency or a State agency responsible for administering vocational and technical education within a State
- An institution of higher education (including community colleges, proprietary schools, and all other institutions eligible for Federal student financial aid programs)
- An institution of higher education formally controlled or chartered by the governing body of an Indian tribe or tribes
- A professional, industry, or employer organization or product manufacturer using a valid and reliable assessment of knowledge, skills, and abilities
- ETA's Office of Apprenticeship or a recognized State Apprenticeship Agency
- A public regulatory agency that awards a credential upon fulfillment of educational, work experience, or skill requirements legally necessary to use an occupational or professional title or practice a profession
- A program approved by the Department of Veterans Affairs to offer education benefits to veterans and other eligible persons
- Job Corps, which issues certificates for completing career training programs based on industry skills standards and certification requirements
Definition of a Secondary School Diploma or Recognized Equivalent:
A secondary school diploma (or alternate diploma) is one that is recognized by a State and included for accountability purposes under the Elementary and Secondary Education Act of 1965 (ESEA), as amended by the Every Student Succeeds Act (ESSA). Recognized equivalents that satisfy this indicator include those recognized by a State, such as:
- Certification of attaining passing scores on a State-recognized high school equivalency test
- A secondary school diploma or State-recognized equivalent through a credit-bearing secondary education program sanctioned by State law, code, or regulation
- Certification of passing a State-recognized competency-based assessment
- Completion of a specified number of college credits
Types of Acceptable Credentials:
The following count toward the credential attainment indicator:
- Secondary school diploma or recognized equivalent
- Associate's degree
- Bachelor's degree
- Graduate degree (VR program only)
- Occupational licensure
- Occupational certificate (including Registered Apprenticeship and Career and Technical Education certificates)
- Occupational certification
- Other recognized certificates of industry/occupational skills completion sufficient to qualify for entry-level or advancement in employment
Note: WIOA sec. 3(52) defines a recognized postsecondary credential as a credential consisting of an industry-recognized certificate or certification, a certificate of completion of an apprenticeship, a license recognized by the State involved or Federal Government, or an associate or baccalaureate degree. Graduate degrees do not count towards credential attainment, except for title IV VR programs.
Who Is Included:
Participants who exit and are in a postsecondary education or training program, or who are in a secondary education program (at or above the 9th grade level) without a secondary school diploma or equivalent, are included in the credential attainment indicator. Participants enrolled in work-based OJT or customized training are excluded because such training does not typically lead to a credential.
Special Rule Relating to Secondary School Diplomas:
As required in WIOA sec. 116(b)(2)(A)(iii), participants who obtain a secondary school diploma or its recognized equivalent must also be employed, or enrolled in an education or training program leading to a recognized postsecondary credential within one year following exit, before they are counted as a successful outcome.
Inclusion by Core Program:
- Title I Adult: All Adult participants who received training other than OJT or Customized Training.
- Title I Dislocated Worker: All Dislocated Worker participants who received training other than OJT or Customized Training.
- Title I Youth: All in-school Youth (ISY). Out-of-school Youth (OSY) are included only if they participate in: occupational skills training; secondary education at or above the 9th grade level; postsecondary education; Title II-funded adult education at or above the 9th grade level; YouthBuild; or Job Corps during participation in the title I Youth program.
- Title II AEFLA: Participants without a secondary school diploma enrolled in a secondary education program at or above the 9th grade level (for the secondary diploma credential); and participants co-enrolled in a postsecondary education or training program (for the postsecondary credential).
- Title IV VR: All participants who have participated in an educational or training program leading to a postsecondary credential; and all participants enrolled in secondary education who have attainment of a secondary school diploma identified on their Individualized Plan for Employment (IPE).
Exclusions:
Participants who exited a program and who were enrolled in the following are excluded:
- OJT only
- Customized training only
- The title III Employment Service program (Wagner-Peyser) only
Participants who exit for any of the reasons listed in Attachment 2, Tables A through C are also excluded.
Measurable Skill Gains
Indicator Definition
The Measurable Skill Gains indicator is the percentage of participants who, during a program year, are in an education or training program that leads to a recognized postsecondary credential or employment and who are achieving documented academic, technical, occupational, or other forms of progress towards such a credential or employment. (See 20 CFR sec. 677.155(a)(1)(v).)
This is a real-time indicator — not an exit-based measure. It captures interim progress of participants who are enrolled in education or training services during a specified reporting period, and is reported on a program year basis.
Depending upon the type of education or training program in which a participant is enrolled, documented progress is defined as one of the following five gain types. The first three typically apply to participants in education; types four and five typically apply to participants in training.
- Documented achievement of at least one educational functioning level of a participant who is receiving instruction below the postsecondary education level.
- Documented attainment of a secondary school diploma or its recognized equivalent.
- Secondary or postsecondary transcript or report card for a sufficient number of credit hours that shows a participant is meeting the State unit's academic standards.
- Satisfactory or better progress report towards established milestones (such as completion of OJT or completion of one year of an apprenticeship program or similar milestones), from an employer or training provider who is providing training.
- Successful passage of an exam required for a particular occupation, or progress in attaining technical or occupational skills as evidenced by trade-related benchmarks such as knowledge-based exams.
Documenting Progress for Each Gain Type
Gain Type 1 – Educational Functioning Level:
Programs may measure educational functioning level gain in one of four ways:
- (a) Compare the participant's pre-test and post-test educational functioning levels.
- (b) For adult high school programs leading to a secondary school diploma, measure and report educational gain through the awarding of credits or Carnegie units.
- (c) Report an educational functioning level gain for participants enrolled in a program below the postsecondary level who enroll in State-recognized postsecondary education or training during the program year.
- (d) Report an educational functioning level gain for participants who pass a subtest on a State-recognized high school equivalency examination.
Gain Type 2 – Secondary School Diploma or Equivalent:
Document attainment if the participant obtains certification of attaining passing scores on all parts of a State-recognized high school equivalency test, or obtains a diploma or State-recognized equivalent documenting satisfactory completion of secondary studies or an alternate diploma.
Gain Type 3 – Transcript or Report Card:
For secondary education: receipt of a secondary transcript or report card for one semester showing the participant is achieving the State unit's academic standards. For postsecondary education: demonstration of at least 12 credit hours per semester (or equivalent), or at least 12 hours over two completed semesters for part-time students within a 12-month period.
Gain Type 4 – Progress Report from Employer or Training Provider:
Documentation may vary based on the nature of services, but progress reports must document substantive skill development. Reports may include training milestone completion records as the individual masters required job skills, or steps to complete an OJT or apprenticeship. Increases in pay resulting from newly acquired skills also can document progress. Milestones must be established in advance of the education or training program or program year being measured.
Note: "Completion of one year of an apprenticeship" is just one example of a milestone timeframe and should not be construed as a required timeframe or the only way a participant in an apprenticeship can achieve a Measurable Skill Gain.
Gain Type 5 – Passage of Occupation-Required Exam:
Documentation may include passage of a component exam in a Registered Apprenticeship program, an employer-required knowledge-based exam, satisfactory attainment of an element on an industry or occupational competency-based assessment, or other completion test necessary to obtain a credential.
Methodology
Calculation includes all participants:
The number of program participants during the reporting period who are in an education or training program that leads to a recognized postsecondary credential or employment and are achieving measurable skill gains based on attainment of at least one type of gain DIVIDED by the number of program participants during the reporting period who are in an education or training program that leads to a recognized postsecondary credential or employment.
Denominator: Participants who, during any point in the program year, are in an education or training program that leads to a recognized postsecondary credential or employment — including both those who continue to receive services and those who have exited. Data is drawn from PIRL 1811 (Date Enrolled During Program Participation in an Education or Training Program) and PIRL 1813 (Date Completed). Participants where the date range between PIRL 1811 and PIRL 1813 (or the end of the report period if PIRL 1813 is null) overlaps with the program year being measured are included.
Numerator: The number of participants defined above who achieved at least one type of gain. A participant may have achieved more than one type of gain in a reporting period; however, only one gain per participant per reporting period may be used to calculate success.
Operational Parameters
All participants who, during a program year, are in an education or training program that leads to a recognized postsecondary credential or employment are counted in the calculation. Participants who exit for any of the reasons listed in Attachment 2, Tables A and B are excluded.
Included participants by program:
- Title I Adult and Dislocated Worker: All participants who are in a title I Adult- or Dislocated Worker-funded training program (including work-based training and secondary school program equivalent funding).
- Title I Youth: All ISY. Only OSY who are in one of the following are included: occupational skills training; education offered concurrently with workforce preparation; secondary education at or above the 9th grade level; postsecondary education; Title II-funded adult education at or above the 9th grade level; YouthBuild; or Job Corps during participation in the title I Youth program.
- Title II AEFLA: All participants in title II AEFLA programs, as they are considered to be in an education program leading to a recognized postsecondary credential or employment.
- Title IV VR: All VR program participants who are in an education or training program leading to a recognized secondary or postsecondary credential or employment identified on the individual's IPE.
Additional Operational Parameters:
- Participants are only included in the denominator and numerator once per reporting period (program year), regardless of how many skill gains they achieve — unless the individual has more than one period of participation in a given program year.
- A participant who exits and re-enrolls during the same program year while in an education or training program will be in the indicator twice for that program year (one per period of participation).
- The measurable skill gains indicator is not exit-based — a participant can achieve a measurable skill gain while still participating in a program.
- Programs should not delay enrollment or services to participants until a new program year, even if programs believe there is insufficient time for the participant to make any type of measurable skill gain by the end of that program year.
Operational Parameters by Core Program:
| Core Program | Type of Measurable Skill Gains |
|---|---|
| Title I – Adult and Dislocated Worker | Any of the 5 types; no specific type required |
| Title I – Youth | Any of the 5 types; type should be based on the youth's individual service strategy |
| Title II – AEFLA | Achievement of at least one educational functioning level, OR documented attainment of a secondary school diploma or its recognized equivalent |
| Title IV – VR | Any of the 5 types |
Example
Chris enters an American Job Center and becomes a participant on October 2, 2022 (PY22). He exits the program on February 10, 2023. During this time, Chris achieves two types of gain under the measurable skill gains indicator.
He re-enters the program on June 11, 2023 (PY22). By the end of the program year (June 30, 2023), he is still in his second participation period. During this time, Chris obtains an additional type of gain.
Chris has two periods of participation and two positive outcomes on the measurable skill gains indicator. Although two types of gain were achieved in the first period of participation, only one counts toward the indicator in the first participation period. During the second period of participation, another type of gain counts as an additional positive outcome.
Measurable Skill Gains in FutureWorks BI
MSG is a real-time indicator reported in the period(s) of occurrence, calculated on a program year basis.
Logic Overview:
MSG allows participants to enter the numerator and denominator in more than one quarter, but the result must be reported as a single event in the context of the program year. This means that a participant's skill gains can be counted in program year quarter one and separately in program year quarter three, but only once when looking at the data from the standpoint of a program year. FutureWorks BI reports MSG quarterly and yearly — it does not report MSG monthly.
Example — participant with gains in multiple quarters:
| Date | Num | Den |
|---|---|---|
| PY19 Q1 | 1 | 1 |
| PY19 Q2 | 0 | 1 |
| PY19 Q3 | 1 | 1 |
| PY19 Q4 | 0 | 0 |
| PY19 | 1 | 1 |
Reporting Overview:
FutureWorks BI reporting views display the MSG measure at both the quarterly and yearly level. Since monthly reporting of MSG is not supported, quarterly results are held in the first month of the quarter, and year-end results are held in the last month of the program year (June). MSG views default to either quarterly results or a year-to-date result. Users must be aware that when customizing views, they should avoid presentations of MSG that expose months.
Reminder: The MSG may be recorded in any month of the quarter, but will be held in the first month of the quarter (July, Oct., Jan., and Apr.). MSG for the year is held in the last month of the program year (June).
Program Year History:
For program years PY16–PY18, measurable skill gains numerators and denominators are only displayed at the yearly level; quarterly results are not computed.
Effectiveness in Serving Employers (Retention with Same Employer)
Effectiveness in Serving Employers is the percentage of participants in unsubsidized employment during the second quarter after exit who were employed by the same employer in the second and the fourth quarters after exit.
Methodology:
The number of participants who exit during the reporting period and are found to be employed by the same employer during the second quarter after exit and the fourth quarter after exit — either through direct UI wage record match, Federal or military employment records, or supplemental wage information — DIVIDED by the number of participants who exited during the reporting period and were employed during the second quarter after exit.
For this measure, States must report on data element 1618 (Retention with the Same Employer in the 2nd Quarter and the 4th Quarter) in the WIOA Joint PIRL. To count as a successful outcome, the participant's employer must have the same identifier (such as a Federal Employer Identification Number (FEIN) or State tax ID) in both the second and fourth quarters after exit.
Operational Parameters:
When calculating levels of performance for this indicator, States must include all participants exiting the title I Adult, title I Dislocated Worker, title I Youth, title II AEFLA, title III Employment Service, and title IV VR programs who were employed in unsubsidized employment in the second quarter after exit. States must not include (in either the numerator or denominator) those participants who exit for any of the reasons listed in Attachment II, Table A or Attachment II, Table C (PIRL 923) regarding exclusions.
Reporting as a Shared Indicator:
Unlike the other primary indicators of performance — which are reported separately for each core program — the Effectiveness in Serving Employers indicator is reported as a shared indicator: one value that combines the results for all the core programs in the State. Each State must designate a single agency to submit the State's unduplicated, aggregated annual results for all six core programs in the ETA-9169. While States have flexibility in determining each State agency's data collection responsibilities, the Departments encourage each State to centralize the coordination of data collection and reporting of this indicator into a single agency. Since the measure is largely dependent on UI wage data, the Departments recommend that States designate the State title I or title III agency for this responsibility.
Employer Penetration Rate
Employer Penetration is the percentage of employers using WIOA core program services out of all employers in the State.
Methodology:
The total number of establishments — as defined by the BLS QCEW program — that received a service or, if it is an ongoing activity, are continuing to receive a service or other assistance during the reporting period DIVIDED by the total number of establishments located within the State during the final month or quarter of the reporting period. This measure is a unique count of employers using WIOA core programs. If an establishment receives more than one service during the reporting period, that establishment should be counted only once.
For this measure, States must report data elements E3 and E4 found in "WIOA Effectiveness in Serving Employers' Data Elements and Specifications" (see Attachment 4, Table A for data elements and definitions). For employers with more than one physical location, the QCEW reports each work site as a separate establishment; the total number of business establishments receiving services should be counted accordingly.
Attachment 4, Table B includes definitions for the different categories of "Core Program Services" that may be counted when calculating this measure.
Overview of the BLS QCEW Program:
The QCEW program publishes a quarterly count of employment and wages reported by employers covering 98 percent of U.S. jobs, available at the county, MSA, State, and national levels by industry. The Departments consider this data to be an accurate count of the total work sites in a given State or county. For more information, see http://www.bls.gov/cew/.
TEGL 10-16, Change 3
Performance Accountability Guidance for WIOA Core Programs
Issuing Agency: U.S. Department of Labor, Employment and Training Administration
Date: June 11, 2024
Rescinds: TEGL 10-16, Change 2 (September 15, 2022)
Expiration: Continuing
From: José Javier Rodríguez, Assistant Secretary
1. Purpose
This guidance rescinds and replaces TEGL 10-16, Change 2, jointly developed by the U.S. Departments of Labor (DOL) and Education (ED).
Primary change: Incorporates the Workforce Innovation and Opportunity Act Effectiveness in Serving Employers Performance Indicator final rule (89 FR 13814, Feb. 23, 2024), effective March 25, 2024. The rule defines "Effectiveness in Serving Employers" as Retention with the Same Employer, reported as a shared indicator across all six WIOA core programs.
Also clarifies what qualifies as an Educational Functional Level gain type under the Measurable Skills Gain indicator.
2. Background
WIOA section 116 establishes performance accountability indicators for the six core programs:
| Program | Title | Administrator |
|---|---|---|
| Adult | WIOA Title I | DOL |
| Dislocated Worker | WIOA Title I | DOL |
| Youth | WIOA Title I | DOL |
| Adult Education and Family Literacy Act (AEFLA) | WIOA Title II | ED (OCTAE) |
| Employment Service (Wagner-Peyser) | WIOA Title III | DOL |
| Vocational Rehabilitation (VR) | Rehabilitation Act, amended by WIOA Title IV | ED (RSA) |
This guidance addresses:
- Methodology for calculating the six primary indicators of performance
- Definitions of reportable individual, participant, exit, and period of participation
- Guidance on career services vs. training services and incumbent worker training
3. Key Definitions
Common Exit — A participant enrolled in multiple DOL-administered programs has not received services from any applicable program for at least 90 days and no future services are planned.
Competitive Integrated Employment — For individuals with disabilities: paid work in an integrated community setting at minimum wage or higher, at rates comparable to non-disabled workers performing the same tasks.
Customized Training — Training designed to meet specific employer requirements, with a commitment to hire upon completion, and for which the employer pays a significant portion of the cost.
Employment — Working in a paid, unsubsidized job; or for Titles I–III participants, working 15+ hours/week unpaid on a family farm or business. VR participants must meet the competitive integrated employment standard.
Exit — For Titles I, II, and III programs: the last date of service, retroactively applied after 90 days have elapsed with no services received and no future services planned. For Title IV VR: closure of the service record per 34 CFR 361.56 or 361.43.
Incumbent Worker — An individual employed in an FLSA-compliant employer-employee relationship with at least 6 months of employment history with that employer.
Participant — A reportable individual who has received qualifying services after satisfying all applicable eligibility requirements. (Excludes those who only use self-service or receive information-only services, and AEFLA participants with fewer than 12 contact hours).
Period of Participation — The time from when an individual becomes a participant to the date of exit. Multiple exits in a program year create separate periods of participation.
Reportable Individual — An individual who has taken action demonstrating intent to use program services, including those who provide identifying information, use self-service systems, or receive information-only services.
Unsubsidized Employment — Employment in the private or public sector for which the employer receives no public subsidy to offset wages or employment costs.
4. Primary Indicators of Performance
Six primary indicators apply under WIOA section 116(b)(2)(A). Credential attainment and measurable skill gains do not apply to the Title III Employment Service program.
Employment status may be determined by: direct UI wage record match, Federal employment records, military employment records, or supplemental wage information. Military personnel and registered apprenticeship participants count as employed in unsubsidized employment.
A. Employment Rate — 2nd Quarter After Exit
Definition: Percentage of participants in unsubsidized employment during the second quarter after exit.
Formula: Participants employed in Q2 after exit ÷ Participants who exited during the reporting period
Applies to: Title I Adult, Title I Dislocated Worker, Title II AEFLA, Title III Employment Service, Title IV VR
Excludes: Participants who exited for reasons in Attachment II, Tables A and C
A-1. Title I Youth — Education and Employment Rate, 2nd Quarter After Exit
Definition: Percentage of Title I Youth participants in education, training, or unsubsidized employment during the second quarter after exit.
Formula: Youth employed OR enrolled in secondary/postsecondary education or occupational skills training in Q2 after exit ÷ Youth participants who exited during the reporting period
Note: Youth in AmeriCorps or Job Corps in Q2 after exit count as a successful training outcome.
B. Employment Rate — 4th Quarter After Exit
Definition: Percentage of participants in unsubsidized employment during the fourth quarter after exit.
Formula: Participants employed in Q4 after exit ÷ Participants who exited during the reporting period
Excludes: Participants who exited for reasons in Attachment II, Table A
B-1. Title I Youth — Education and Employment Rate, 4th Quarter After Exit
Same structure as A-1, measured at the fourth quarter after exit. Youth in AmeriCorps or Job Corps count as successful training outcomes.
C. Median Earnings — 2nd Quarter After Exit
Definition: Median quarterly earnings of participants employed in unsubsidized employment in the second quarter after exit.
Formula: Collect quarterly earnings for all employed participants; sort lowest to highest; take the middle value.
Key rules:
- Report actual wages paid, not projected wages
- If wage records are unavailable, states may use supplemental wage information with the Wage Conversion Chart (Attachment III)
- After a two-quarter lag, if no wage data is available, wages convert permanently to $0 (counts as negative employment outcome)
Excluded from calculation:
- Participants not employed in Q2 after exit
- Participants with pending wage data (PIRL 1602 code 09, PIRL 1603 code 5, or PIRL 1704 all-9s)
D. Credential Attainment
Definition: Percentage of participants enrolled in education or training (excluding OJT and customized training) who attain a recognized postsecondary credential or secondary school diploma during participation or within one year after exit.
Formula: Participants who attained a qualifying credential ÷ Participants enrolled in qualifying education or training who exited during the reporting period
Excluded: Participants in OJT only, customized training only, or Title III Employment Service only; participants exiting for reasons in Attachment II, Tables A–C.
Recognized Postsecondary Credentials include:
- Industry-recognized certificates or certifications
- Certificates of apprenticeship completion
- State- or federally-recognized licenses
- Associate or baccalaureate degrees
- Graduate degrees (VR program only)
Not included: Workforce development board certificates, work readiness certificates, or general safety/hygiene certificates.
Acceptable credential types:
- Secondary school diploma or recognized equivalent
- Associate degree
- Bachelor's degree
- Graduate degree (VR program only)
- Occupational licensure
- Occupational certificate (including Registered Apprenticeship and CTE)
- Occupational certification
- Other recognized certificates sufficient for entry-level employment or advancement
Secondary School Diploma Special Rule:
Participants who obtain a secondary school diploma or equivalent must also be employed or enrolled in a postsecondary credential program within one year after exit to count as a successful outcome.
Who is included in the denominator, by program:
- Title I Adult/DW: Participants in funded training programs (excluding OJT and customized training)
- Title I Youth: All in-school youth (ISY); out-of-school youth (OSY) only if in occupational skills training, concurrent education/workforce prep, secondary/postsecondary education, Title II adult education, YouthBuild, or Job Corps
- Title II AEFLA: Participants without a diploma enrolled in secondary education at or above 9th grade (for diploma); participants co-enrolled in postsecondary credential programs (for postsecondary credential)
- Title IV VR: All participants in educational/training programs leading to a postsecondary credential; all participants with a secondary diploma goal on their IPE
E. Measurable Skill Gains (MSG)
Definition: Percentage of participants in an education or training program leading to a recognized postsecondary credential or employment who achieve documented academic, technical, occupational, or other forms of progress during the program year.
Key characteristic: Not an exit-based measure — captures interim progress while participants are still enrolled.
Formula: Participants achieving at least one type of gain ÷ Participants in qualifying education or training during the reporting period
A participant may achieve multiple gain types, but only one gain per period of participation per program year counts toward the indicator.
Five Types of Measurable Skill Gains:
1. Educational Functioning Level (EFL) Gain (typically education participants below postsecondary level)
Documented by: pre/post-test comparison; credit or Carnegie unit awards in adult high school programs; enrollment in state-recognized postsecondary education; or passing a subtest on a state-recognized high school equivalency exam.
2. Secondary School Diploma or Recognized Equivalent
Documented by: passing all parts of a state-recognized high school equivalency test, or obtaining a diploma documenting satisfactory secondary completion.
3. Transcript or Report Card — Sufficient Credit Hours
- Secondary: one semester transcript/report card showing state academic standards met
- Postsecondary: at least 12 credit hours per semester (or 12 hours over two semesters for part-time students) during a 12-month period
4. Satisfactory Progress Toward Training Milestones
Documented by: employer or training provider progress reports showing substantive skill development; milestone completion toward OJT or apprenticeship goals; or pay increases from newly acquired skills. Milestones must be established in advance.
5. Passage of Occupation-Required Exam or Technical Benchmark
Documented by: component exam passage in a Registered Apprenticeship; employer-required knowledge-based exam; industry/occupational competency assessment; or other credential-required completion test.
Applicable Gain Types by Program:
| Program | Eligible Gain Types |
|---|---|
| Title I Adult and Dislocated Worker | All 5 types |
| Title I Youth | All 5 types (based on individual service strategy) |
| Title II AEFLA — General | EFL gain (type 1) or secondary diploma attainment (type 2) only |
| Title II AEFLA — Workplace literacy or IET | All 5 types |
| Title IV VR | All 5 types |
Who is included, by program:
- Title I Adult/DW: All participants in funded or partner training programs, including work-based training
- Title I Youth: All ISY; OSY only if in occupational skills training, concurrent education/workforce prep, secondary/postsecondary education, Title II adult education, YouthBuild, or Job Corps
- Title II AEFLA: All AEFLA participants
- Title IV VR: Participants in education or training programs identified on their IPE
Additional rules:
- Each participant counted once per period of participation, regardless of how many gains achieved
- Multiple periods of participation in the same program year each count separately
- Programs must not delay enrollment to avoid measuring skill gains in a short program year
F. Effectiveness in Serving Employers (Retention with the Same Employer)
Definition: Percentage of participants employed in the second quarter after exit who were employed by the same employer in both the second and fourth quarters after exit.
Formula: Participants employed by the same employer in Q2 and Q4 after exit ÷ Participants employed in Q2 after exit
Data element: PIRL 1618 (Retention with the Same Employer in the 2nd Quarter and the 4th Quarter). Match is confirmed when the employer's FEIN or State tax ID is identical in both quarters.
Excludes: Participants who exited for reasons in Attachment II, Tables A and C.
Reported as a Shared Indicator:
Unlike all other indicators, this one is reported as a single statewide value combining results across all six core programs. Each state designates one agency to submit the unduplicated, aggregated annual result. DOL recommends designating the Title I or Title III agency given their access to UI wage data.
5. Categories of Enrollment
Reportable Individual
An individual who demonstrates intent to use program services, including:
- Individuals who provide identifying information (including those determined ineligible)
- Individuals who only use the self-service system
- Individuals who only receive information-only services or activities
- For VR only: students with disabilities who solely receive pre-employment transition services without applying for VR
Reportable individuals are not included in performance indicator calculations. States are not subject to negotiations or sanctions based on reportable individual outcomes.
Period of activity: A new period begins when more than 90 consecutive days have elapsed since the last service or activity.
Participant
A reportable individual who has received qualifying services after satisfying all applicable program requirements.
Not a participant:
- AEFLA individuals with fewer than 12 contact hours
- Individuals using self-service only
- Individuals receiving information-only services
Trigger for participant status, by program:
| Program | What triggers participant status |
|---|---|
| Title I Adult/DW | Any training service or individualized career service; or a staff-assisted basic career service |
| Title I Youth | Eligibility determination + objective assessment + individual service strategy + one of 14 WIOA Youth program elements (except follow-up services) |
| Title II AEFLA | Completion of at least 12 contact hours |
| Title III Employment Service | Any individualized career service; or a staff-assisted basic career service |
| Title IV VR | Application + eligibility determination + approved/signed IPE + beginning services under the IPE |
Exit
Titles I, II, III programs: Exit date is the last date of service, applied retroactively after 90 days have elapsed with no services received and no future services planned. Follow-up services, self-service, and information-only services do not delay exit.
Title IV VR: Exit occurs when the service record is closed per 34 CFR 361.56 (employment outcome achieved) or 34 CFR 361.43 (no employment outcome or ineligibility determination). A supported employment outcome in an integrated but non-competitive setting does not constitute exit.
Common Exit (DOL-Administered Programs Only)
States may adopt a common exit policy covering WIOA Title I and III core programs and additional DOL-administered required partner programs. Under common exit, a participant exits only when all criteria are met across all applicable programs. H-1B Job Training Programs are excluded. States must identify common exit programs in their annual narrative reports.
6. Self-Service and Information-Only Activities
Self-service occurs when individuals independently access workforce program information and activities, either physically or remotely. Individuals receiving only self-service or information-only services are reportable individuals, not participants.
Virtual services are not automatically self-service — if a staff member provides individualized support beyond independent job or information-seeking, the individual qualifies as a participant.
7. Period of Participation
A period of participation runs from when an individual becomes a participant to the date of exit.
- Each exit in a program year is a separate period of participation
- For all indicators except Measurable Skill Gains, a new period is counted each time a participant re-enters and exits — even within the same program year
- For Measurable Skill Gains, both periods count even if the participant has not yet exited during the second enrollment
Multiple periods of participation: A person with more than one period in a program year is counted separately in both the numerator and denominator for each period.
States must develop systems to track multiple periods of participation while also maintaining an unduplicated count.
8. Career Service and Training Service Guidance
WIOA section 116(d)(2)(F) requires reporting of the average cost per participant for career services and training services separately.
Career Service Cost Formula:
- Title I Adult/DW/Youth, Title III ES, Title IV VR: Career Services Costs = Total Expenditures for Career Services ÷ Total Participants Receiving Career Services
Training Service Cost Formula:
- Average Cost = Total Training Service Expenditures (excluding admin costs) ÷ Total Participants Receiving Training Services
Special rules:
- Training costs spanning multiple program years: report as expended each year, or distribute evenly if total-only cost is known
- Co-enrolled participants with shared costs: each program reports only its own portion
- Administrative costs are never included in career or training service cost calculations
- A participant receiving multiple career or training services in one period of participation is counted only once in the respective denominator
Classification by Program:
- Title I Adult/DW/Youth: Career costs = total expenditures minus admin and training expenditures
- Title II AEFLA: Career and training costs are the sum of applicable service expenditures per Attachment VII, Table C
- Title III Employment Service: Career costs = total expenditures minus admin costs; no training costs
- Title IV VR: Career and training costs are the sum of purchased services and directly-provided staff services
9. Incumbent Worker Training (IWT) Under Title I
Local workforce development boards may use up to 20% of Adult and Dislocated Worker formula allocations for IWT.
IWT recipients are not participants in WIOA performance indicator calculations because eligibility is determined at the employer level — individual workers need not meet Adult or DW eligibility requirements. They are reportable individuals.
However, if an incumbent worker independently meets eligibility requirements and enrolls as a participant, their participation is reported under the applicable WIOA indicator.
Required data collection for IWT reportable individuals includes: employment outcomes in Q1–Q4 after exit, wages, retention with the same employer, measurable skill gains, and credential attainment (see Attachment VIII for full list).
States are encouraged to collect incumbent worker SSNs to enable UI wage record matching.
10. Exclusions from Performance Calculations
Attachment II, Table A — Applies to Title I Adult, DW, Title II AEFLA, Title III Employment Service, and Title IV VR:
- Participant incarcerated or institutionalized during services
- Participant in medical treatment expected to last 90+ days and precluding employment or participation
- Participant deceased
- Participant called to active military duty for 90+ days
- For VR only: participant later determined ineligible after initially receiving services
Attachment II, Table B — Applies to Title I Youth (same as Table A, plus):
- Participant in the foster care system who moves from the local workforce area as part of that system
Attachment II, Table C — Applies to Title II AEFLA:
- Criminal offenders in correctional institutions receiving services under WIOA section 225 who remain incarcerated after exit are excluded from employment rate, median earnings, and credential attainment indicators
- Section 225 participants are included in Measurable Skill Gains
Attachments Summary
| Attachment | Content |
|---|---|
| I | Definitions of Terms Related to the Performance Accountability System |
| II (Table A) | Exclusions — Title I Adult, DW, Title II AEFLA, Title III ES, Title IV VR |
| II (Table B) | Exclusions — Title I Youth |
| II (Table C) | Exclusions — WIOA Section 225 participants |
| III | Wage Conversion Chart (hourly/weekly/biweekly/monthly/annual to quarterly) |
| IV | Removed |
| V | Periods of Participation — Effects on Indicators of Performance |
| VI | Examples of Counting Periods of Participation for Exit-Based Indicators |
| VII (Table A) | Services Chart — Title I Adult, DW, and Title III Employment Service |
| VII (Table B) | Services Chart — Title I Youth |
| VII (Table C) | Applicable Career and Training Services — Title II AEFLA |
| VII (Table D) | Services Chart — Title IV VR |
| VIII | Incumbent Worker Training Required Data Elements |
| IX | Reporting on Reportable Individuals — Technical Details |
| X | References — WIOA Operating Guidance |
Questions should be directed to the appropriate ETA Regional office.