Comprehensive Review of Virginia's Workforce Development System (Senate Document No. 8)
Summary
A report of the Virginia Secretary of Labor, Comprehensive Review of Virginia's Workforce Development System (Chapter 625, 2023), to the Governor and the General Assembly of Virginia, Senate Document No. 8, 2025. The executive summary states that the review addresses four primary topics: collaboration among programs, the organization and duties of the Department of Workforce Development and Advancement (Virginia Works), the operations of Local Workforce Development Boards (LWDBs), and the role of the Virginia Community College System (VCCS). It states that the workforce ecosystem encompasses over 60 programs and lists accomplishments and opportunities for Virginia Works, local boards and VCCS.
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REPORT OF THE VIRGINIA
SECRETARY OF LABOR
Comprehensive Review of
Virginia’s Workforce Development
System (Chapter 625, 2023)
TO THE GOVERNOR AND
THE GENERAL ASSEMBLY OF VIRGINIA
SENATE DOCUMENT NO. 8
COMMONWEALTH OF VIRGINIA
RICHMOND
2025
2
Table of Contents
Executive summary ................................................................................................................................................... 4
Context for this report............................................................................................................................... 8
Overview of workforce ecosystem ............................................................................................................11
Adequacy of collaboration among programs .............................................................................................31
Org, powers, duties of Dept. of Workforce Development and Advancement ..............................................42
Operations of LWDB and geog. areas served by boards .............................................................................53
Proper role of VCCS in supporting workforce development efforts ............................................................64
Conclusion ............................................................................................................................................................................ 70
Appendix ............................................................................................................................................................................... 72
3
Executive Summary
In accordance with 2023 legislation, this report provides • Improving program service delivery: Virginia Works
a comprehensive assessment of Virginia’s workforce has also been driving improvements to individual
development ecosystem, with the goal of improving workforce programs and tools, such as embedding
efficiency and effectiveness. The analysis addresses four Registered Apprenticeship consultants into
primary topics: (i) the adequacy of collaboration among American Job Centers (AJCs) to increase the
programs; (ii) the organization and duties of the number of apprentices and transitioning
Department of Workforce Development and Workforce Services Representatives (WSRs) to
Advancement (Virginia Works); (iii) the operations and Career Navigators to enhance Title III service
jurisdictions of Local Workforce Development Boards delivery.
(LWDBs); and (iv) the role of the Virginia Community
• Launching new job-seeker tools: Virginia Works has
College System (VCCS) in workforce development.
launched sites like Virginiaworks.gov to streamline
The workforce ecosystem in Virginia encompasses over 60 the Commonwealth’s workforce services and
programs administered by a complex array of state VirginiaHasJobs.com to improve job attainment
agencies, local entities, and educational institutions. and the job-seeker experience. VirginiaHasJobs has
Fragmentation, redundancy, and limited data integration been an instrumental resource in connecting
have historically hindered service delivery. However, the individuals to apprenticeships and jobs, especially
current administration and some of its key partners have those impacted by federal workforce changes and
made significant strides in improving the Commonwealth’s layoffs.
workforce development system, facilitating greater
• Serving residents with flexible job placement
collaboration across the ecosystem, standing up Virginia
services: At the local level, LWDBs continue to play
Works, improving operations of local workforce boards, and
a pivotal role in direct service delivery. Though
helping to scale some of VCCS’ most effective programs.
there is variation in capacity and resourcing across
Some notable accomplishments include:
Virginia’s 14 regions, boards play an important role
• Establishing Virginia Works: The administration in facilitating job placements (often for those with
established a new agency in 2024 to strategically barriers to employment), contributing to high
align workforce efforts, marking a significant step satisfaction among individuals who receive services
toward increasing the efficiency and effectiveness from local job centers. Many have expanded digital
of the Commonwealth’s workforce ecosystem. service delivery post-COVID and are participating in
Over the last year, the agency has focused on coalitions and supporting partnerships to align
centralizing coordination of programs and educational offerings with local labor market and
launching efforts to improve transparency, develop talent needs.
programmatic partnerships, and strengthen cross-
• Expanding VCCS programs that serve the labor
agency communication. Virginia Works has
market: VCCS remains a cornerstone of Virginia’s
established itself as a collaborative ecosystem
workforce training infrastructure, delivering both
leader, supporting individuals, local boards, and
credit and non-credit programs aligned with high-
employers alike.
demand occupations. Programs like Fast Forward
• Tracking programs, metrics, shared data: Virginia and G3 have demonstrated strong enrollment
Works has begun to advance this vision by creating growth and alignment to the Commonwealth’s
a public-facing program catalog, building a labor market. VCCS institutions often act as active
foundation for shared, standardized performance sponsors or intermediaries for apprenticeships and
metrics, and promoting integrated data usage via have expanded their role in work-based learning
the Workforce Data Trust. through partnerships with employers and state
agencies.
4
Nonetheless, several opportunities remain. To further integrated, seamless, omni-channel customer
promote collaboration: experience
• Virginia Works should lead a process, with • Continue to build internal agency capacity;
relevant Secretaries and agencies, to develop a further embed a culture of collaboration and
state-wide workforce development strategy for customer centricity demonstrated by leadership
the Commonwealth. Agencies should align throughout all levels of the organization, with
operating plans with this state-wide strategy, an initial focus on Title III Career Navigators
and continue cross-agency collaboration • Lead rollout and ongoing enhancement of
through implementation technology solutions across the ecosystem to
• Virginia Works should continue to collect improve reach and experience for individuals
metrics on workforce programs across systems, and employers
with agencies contributing their program data. At the local level, joint accountability between local
Over time, Virginia Works should enable use of boards and other actors can improve outcomes:
this data to inform strategic and programmatic
decisions, while providing ample context on • Virginia Works has established a robust
differences in programs’ objectives, target accountability framework for LWDBs through
populations, and constraints the adoption of statewide performance metrics
approved by the Virginia Board of Workforce
• Several ecosystem stakeholders (including
Development. These six core metrics—ranging
Virginia Works, VCCS, Virginia Department of
from job placements to wage growth—are now
Education (VDOE), State Council of Higher
being operationalized across all local areas.
Education for Virginia (SCHEV), Virginia
Virginia Works should continue to build on this
Economic Development Partnership (VEDP),
foundation by refining data collection, setting
intermediaries) should collaborate to market a
benchmarks, and strengthening annual
single menu of work-based learning
performance reviews to ensure consistent,
opportunities, and double participation in them
high-quality service delivery statewide.
• Virginia Works in partnership with Virginia
• Virginia Works should facilitate a process to
Office of Education Economics (VOEE) should
convene cross-sector, state and local
leverage the Commonwealth's data and
stakeholders to collaboratively define what an
analytics assets including the Workforce Data
effective local workforce development
Trust, VOEE, Virginia Longitudinal Data System
ecosystem looks like. Stakeholders can use this
(VLDS), and the Economic Information &
as a basis for constructive ongoing state-region
Analytics (EIA) team in Virginia Works to inform
dialogue that spans systems (e.g., economic
service delivery decisions and provide
development, workforce, education, social
increasingly consistent, timely, digestible, and
services in dialogue together)
actionable information to state and region-level
leaders across economic development, • Virginia Works and local boards can
workforce, education, and partner systems collaboratively support an integrated, seamless,
omni-channel customer experience for
Opportunities specifically for Virginia Works include: individuals and employers including integrated
• Continue to hone Virginia Works’ value proposition case management and service delivery, and
and brand, and articulate it clearly and consistently tech-enabled options
to partners and customers • Local boards should increase non-Workforce
• Develop mutually-reinforcing, trusting Innovation and Opportunity Act (WIOA) funding
partnership with LWDBs, supporting grant to fill service gaps, support innovation, and
applications, convenings, best practices and respond more flexibly to the evolving needs of
content, data and insights, and providing an individuals and employers
5
• Local actors that engage with employers high-value skills and credentials that align with
(including LWDB Business Services Teams, Title state workforce development priorities, while
III employees, community colleges, local continuing to improve outcomes
economic development entities, Virginia Works' • Deepen partnerships with other ecosystem
Rapid Response Team, and the Regional Talent players (e.g., Virginia Works, LWDBs) to deliver
Solutions & Business Outreach team of the end-to-end services for customers while
VEDP), should proactively drive coordinated fostering coordination to ensure services are
employer marketing, outreach, and support aligned and easy for customers to navigate
across actors through alignment, collaboration,
and transparency Addressing these opportunities will help the
Commonwealth achieve its workforce goals, including
Virginia Community College System should work to: making Virginia the top state for talent. 1i
• Expand Fast Forward and other workforce
training offerings to provide increased access to
1
VEDP Strategic Plan, FY25-29
6
Section 1:
Context for this report
7
Section 1:
Context for this report
Context for this report
In 2023, the Virginia General Assembly enacted topics above, including ways the system can collaborate
landmark legislation to enhance the Commonwealth’s more effectively, Virginia Works and local boards can
workforce development system. Central to this initiative partner more strategically, local boards can deliver better
was the establishment of a new Department of customer service, VCCS can align with local partners, and
Workforce Development and Advancement—publicly how the entire ecosystem can deliver high-quality talent
branded as Virginia Works—which officially launched in to employers, among others; these insights served as
mid-2024. This new agency consolidates key workforce invaluable inputs to this report. A full list of the
programs under a single umbrella while also serving as a participating stakeholders is included in the appendix.
central coordinator for over 60 workforce-related
This review comes at a time of both challenge and
programs operating across various state and local
opportunity. Nationally, the workforce landscape is
entities.
marked by uncertainty, but also potential. Federal
In tandem with this structural change, the same funding for workforce development, which is where
legislation ordered that “the Secretary of Labor shall most of the Commonwealth’s workforce funding comes
conduct a comprehensive review of the from today, is under scrutiny, with proposed
Commonwealth's workforce development programs consolidation of multiple workforce funding streams
and provide recommendations to address a wide range into a single block grant to each state. This change
of subjects relating to improving the effectiveness and would likely impact the current local model, potentially
efficiency of such programs, including: altering allocations to local boards and reducing federal
reporting requirements, while providing states more
• The adequacy of collaboration among such
flexibility to deliver integrated workforce services.
programs;
Concurrently, the emergence of generative artificial
• The organization, powers, and duties of the intelligence (GenAI) technologies is rapidly transforming
Department of Workforce Development and the labor market—disrupting industries, reshaping skills
Advancement, established pursuant to § 2.2- demands, and creating new opportunities for workforce
2035 of the Code of Virginia, as created by this development (both in terms of upskilling individuals in
act; GenAI and, for example, using the technology to create
• The operations of the local workforce customized training content). Locally, Virginia is
investment boards and the geographic areas experiencing workforce changes as well, particularly in
served by such boards; areas historically dependent on federal and contractor
• The proper role of the Virginia Community employment. These changes are influencing the
College System in supporting workforce composition of individuals seeking workforce services
development efforts and offer an opportunity to modernize service
delivery—through omni-channel models and enhanced
To fulfill this directive, the Secretary of Labor engaged a
digital platforms—to better meet evolving customer
diverse group of stakeholders, including leadership from
needs. The Commonwealth’s capacity to adapt with
Virginia Works, directors of all Local Workforce
agility and provide high-quality, user-centered services
Development Boards (LWDBs), representatives from VCCS,
will be crucial. Finally, with a gubernatorial transition in
senior officials from other state agencies involved in
2026, this report also serves a future-oriented purpose:
workforce programming, and leaders from the private
to document the progress made under the current
sector. These stakeholders provided perspectives on
administration and to outline steps necessary to
accomplishments to date and opportunities related to the
8
Section 1:
Context for this report
maintain and build upon recent reforms, ensuring that the legislative mandate. Each of these sections provides
momentum carries forward across administrations. relevant context, highlights recent accomplishments,
and delivers targeted recommendations to build on the
This report is organized into six parts. Following this
progress to date and further enhance the effectiveness
context (Section 1), Section 2 presents an overview of
and efficiency of Virginia’s workforce development
Virginia’s workforce development ecosystem. Sections 3
system.
through 6 correspond to the four focus areas outlined in
9
Section 2:
Overview of workforce ecosystem
Section 2:
Overview of workforce ecosystem
10
Section 2:
Overview of workforce ecosystem
Overview of workforce ecosystem
Virginia’s workforce development ecosystem supports both individuals and employers in order to
advance the economy and help Virginians thrive
The workforce development ecosystem in Virginia is a • Programs in the Commonwealth funded under
complex network of organizations that interact with job WIOA federal legislation which supports “job
seekers, employers, and each other in many ways at the seekers’ access to employment, education,
local, regional, and state levels. The ecosystem includes all training, and support services to succeed in the
those who are working toward one or both of two goals: labor market and to match employers with the
supporting individuals in advancing skills and finding, gaining, skilled workers they need to compete in the global
and retaining employment, and supporting employers in economy”5ii
their recruitment, development, and retention of talent. The
Another primary focus area for this report is the credit and
ecosystem’s objective is to “advance economic stability and
non-credit workforce training programs offered by VCCS,
growth by preparing and connecting job seekers with
intended to prepare students for immediate entry into the
employers who seek to hire through [the workforce
workforce and commonly referred to as its “workforce
development ecosystem’s] training providers and network of
development” functions that exist at each community
professional partners,”2 even as ecosystem actors may
college.
prioritize or focus on one of these two goals differently.
Virginia’s broader workforce ecosystem is inclusive of a
This report has a primary focus on what is commonly
number of state agencies that provide training, education,
considered to be the Commonwealth’s formal “workforce
and related support services in partnership with Virginia
system,” which includes:
Works (e.g., the Department for Aging and Rehabilitative
• The Department of Workforce Development and Services (“DARS”); Department of Veterans Services
Advancement (with the external brand of Virginia (“DVS”); the Department of Education (“VDOE”) which
Works) at the state level administers adult education services under Title II of WIOA
• Virginia Career Works as the network of workforce as well as overseeing the broader preK-12 education
development offices (also known as American Job system; economic development organizations at the local,
Centers (AJCs), 3 one-stop centers / offices, or regional, and state level; four-year higher education
Virginia Career Works Centers and participating institutions; community organizations focused on providing
partners) organized at the local level into 14 Local career navigation support and supportive services; and
Workforce Development Areas (LWDAs), each capacity-building entities like the Department for Housing
overseen by a board known as a Local Workforce and Community Development (through their GO Virginia
Development Board (LWDB).4 program) that provide significant financial support to launch
and scale efforts aligned to traded sectors on a regional
level.
2
Virginia Career Works Mission Statement, as of June 2024 4
See the Appendix for a map of LWDAs
3
Note that while these workforce development offices are 5
DOL Additional detail on WIOA may be found in Section 2.4
known by many names, they will be referred to in this report
as AJCs for standardization
11
Section 2:
Overview of workforce ecosystem
The Commonwealth is facing growing labor needs, which are largely, but not fully, met by its strong talent
pipeline
The Virginia Economic Development Partnership (VEDP), size (number of employees). These are overlaid in Exhibit 1.
the state-level economic development entity in Virginia, On balance, Virginia businesses are more likely to be Non-
categorizes businesses as Traded sectors, businesses selling Traded, and the vast majority of businesses have fewer than
all or most of their production to out-of-state customers6 or 50 employees. A small portion (~1%) are startups –
Non-Traded sectors, businesses that primarily serve local companies in the first stages of operations, with high
customers, competing with other non-trade employers for growth potential.
in-state sales.7 Another way to categorize businesses is by
Exhibit 1
Number of Virginia firms by size and sector, as of July 2024 8iii
Five occupational groups make up ~45% of all (7.8%). 9iv While the importance of each industry in local
employment in Virginia: Office and Administrative economies varies, the five industries are consistent
Support (10.5%), Business and Financial Operations across regions; for example, office and administrative
(9.7%), Sales and Related (8.8%), Food Preparation and support is the topmost occupational group for 6 of the
Serving (8.4%), and Transportation and Material Moving 14 LWDAs (see Exhibit 2).
6
Traded sectors include Agriculture, Forestry, Fishing, and and Remediation Services, Education Services, Retail Trade,
Hunting, Mining, Quarrying, and Oil and Gas, Manufacturing, Arts, Entertainment, and Recreation, Healthcare and Social
Wholesale Trade, Transportation and Warehousing, Assistance, Accommodation and Food Services, Other
Information, Finance and Insurance, Professional, Scientific, Services
and Technical Services, Management of Companies and 8
Statistics of U.S. Businesses
Enterprises 9
Virginia Works
7
Non-Traded sectors include Utilities, Construction, Real
Estate, Administrative and Support, and Waste Management
12
Section 2:
Overview of workforce ecosystem
Exhibit 2
Share of Virginia’s Employment by Industry and Top Industries by LWDA, as of
2024 10v
Like in other states, Virginia's workforce development to see a decline through 2030, including Secretaries and
ecosystem is also “proactively reactive” – looking ahead Administrative Assistants, Financial Clerks, Other Office
and preparing individuals to pivot in response to and Administrative Support Workers, Supervisors of
emerging skill needs and economic trends that change Sales Workers, and Legal Support Workers, partially due
employers’ needs. Five specific occupations are to Artificial Intelligence and automation. 12vii
projected to have the highest employment growth from
Labor needs are largely met by Virginia’s strong labor
2020-2030: Food and Beverage Workers (18% growth);
force that outperforms national averages on multiple
Business Operations Specialists (11%); Material Moving
fronts. Job openings as a percent of total employment
Workers (15%); Health Diagnosing and Treating
in the Commonwealth exceed the U.S. average and
Practitioners (13%); and Motor Vehicle Operators
have trended positively since 2020 (see Exhibit 3). Over
(15%). 11vi These occupations include specialized roles
the same time, unemployment rates in Virginia have
that require specific certifications, including American
declined and remained consistently below the U.S.
Heart Association CPR & First Aid, Commercial Driver’s
average (see Exhibit 4).
License, and Nursing. Other occupations are expected
10
Virginia Works - Virginia's Workforce Development Agency This analysis was initially conducted in July 2024, and thus may over or
underestimate the size of some segments compared to current estimates.
11
Virginia Works, Virginia Combined State Plan, 2024-2027
12
Virginia Works, Virginia Combined State Plan, 2024-2027
13
Section 2:
Overview of workforce ecosystem
Exhibit 3
Job openings as percent of employment for the U.S. and Virginia, seasonally adjusted, as of
July 2025 13viii
10%
8%
Job openings % of employment
6%
4%
2%
05/20 05/21 05/22 05/23 05/24 07/25
Virginia Total U.S.
Exhibit 4
Unemployment rate for the U.S. and Virginia, as of July 2025 14ix
14
Section 2:
Overview of workforce ecosystem
Exhibit 5
Virginia 2024 annual average unemployment rates by LWDA15x
Since the economic shock of COVID-driven job loss in surplus (see Exhibit 6), with more jobs available than job
2020, Virginia has developed and maintained a job seekers.
Exhibit 6
Virginia unemployed persons per job opening ratio, as of 2025 16xi
Virginia’s active labor force has remained relatively decrease between 2024 and 2025. Additionally, the
consistent over the past five years, with only a ~0.6% labor force participation rate in Virginia is above that of
annual growth rate over the past five years. This growth the U.S. overall (65.4% vs. 62.4% respectively) (see
has slowed down, however; experiencing a slight Exhibit 7).
15
Virginia Works
16
U.S. Bureau of Labor & Statistics
15
Section 2:
Overview of workforce ecosystem
Exhibit 7
Virginia total population 16 years and over vs. national average, labor force Participation, as of
2025 17xii
17
FRED Economic Data, 2025
16
Section 2:
Overview of workforce ecosystem
Every individual in Virginia has a unique relationship to the workforce – segmenting common phases,
experiences, and characteristics can help the Commonwealth’s workforce ecosystem actors better
serve their needs and opportunities
The Commonwealth’s population can be segmented familial environment, and other lived experiences).
based on current relationship to the workforce and Exhibit 8 presents five customer segments of the
some of the common experiences and characteristics of workforce and the estimated number of Virginians in
that relationship (i.e., employment status, education each.
level and skill development, barriers to participation,
Exhibit 8
Understanding the individual customer by relationship to workforce 18
This point-in-time snapshot captures how the workforce upskilling). However, the Commonwealth can begin to
development ecosystem typically offers workforce track the penetration rate across each of these
education and training, as well as supportive or segments and monitor the percent of individuals in each
“wraparound” services, to each segment or group. category being served over time (with the goal of
However, it is important to note that the picture is not increasing the penetration rate, but never reaching
static: individuals move, often non-linearly, across these 100%).
segments over the course of their lives and career
Young people preparing for the workforce
journeys. In addition, not all members of each of these
segments will be served by the workforce system for a The first segment of the population is the group of
variety of reasons (e.g., students going immediately to young people below the age of 24 who are preparing to
4-year higher education, professionals not pursuing enter the workforce for the first time, estimated at
18
This analysis was initially conducted in July 2024, and thus may over or underestimate the size of some segments compared to
current estimates. As of July 2024, note: Individuals in an archetype may belong to one or more of the subsegments; Sources: U.S.
Census; SCHEV; Strada Education Foundation; Virginia DOE; Public News Service; DataUSA.IO; Virginia Navigator; Education.gov;
Commonwealth Institute; WIOA; Talk Poverty, VDSS; Pew Research; Career Minds
17
Section 2:
Overview of workforce ecosystem
roughly 2.2 million Virginians, or 25% of the population. Adults who are unemployed (and looking for work)
It includes young people in both the preK-12 and
The second segment of the population is the group of
postsecondary education systems, including nondegree
adults who are experiencing unemployment and may be
certification / credential and 2- and 4-year degree
eligible for unemployment benefits: 124 thousand
programs. These systems serve ~1.5 million students
Virginians in May 2024, or ~1% of the population. 20xiv
through pre-K-12 public and private schools, ~400
This population typically includes adults with significant
thousand through public and private 4-year higher
barriers to employment, including childcare needs, lack
education institutions, and ~160 thousand students
of access to reliable transportation, low English
under the age of 24 through VCCS. The segment also
proficiency, lack of affordable housing, addiction and
includes 94 thousand disconnected youth (~9% of
mental health challenges, and educational gaps in
young people 19xiii in the state, as of 2023), or young
subjects like reading comprehension and basic math.
people aged 14-26 who are not engaged in the
While the size of the segment has varied (see Exhibit 9),
workforce but are also not engaged in an educational
the number of initial unemployment claims has stayed
system (i.e., have dropped out of high school, are not
fairly constant since January of 2022, reflecting the low
actively in any postsecondary education or training
rate of unemployment in Virginia and the “hot” job
programs, and do not yet have a job).
market with more vacancies than seekers.
Exhibit 9
Virginia Weekly Unemployment Insurance Claims Activity, as of July2025 21xv
Adults who are in low-wage, low-skill jobs purposes of this report, this segment has been defined
as Virginians earning below $70 thousand in annual
The third segment of the population is the group of
household income, based on the U.S. Department of
adults who are participating in the workforce, but are
Housing and Urban Development’s definition of low-
employed in low-wage, low-skill jobs: roughly 1.7
income as earning below 80% of the median income of
million Virginians, or ~19% of the population. For the
a county or metropolitan area. (Note that Virginia’s
19
The Annie E. Casey Founcation, Kids Count Data Center (but varies from the estimates in Exhibit 8). Source: Virginia
20
Since the analysis was initially conducted in 2024, this Works
estimate has increased to ~156k, which is reflected in the text 21
Virginia Works
18
Section 2:
Overview of workforce ecosystem
median household income is $87 thousand.) of Artificial Intelligence technologies and choose to
Subsegments of this population include Virginia upskill or reskill, while other “middle skill, mid-wage”
residents whose highest educational attainment is high earners (e.g., in certain trades) may have fewer
school or equivalent (or below), those living in poverty, immediate skilling needs – and both may seek support
ALICE (Asset Limited, Income Constrained, Employed) to access childcare if they also have young children.
households, those who are adult SNAP (Supplemental
Adults who are currently out of the workforce
Nutrition Assistance Program) and TANF (Temporary
Assistance for Needy Families) recipients, and migrant The fifth segment of the population is the group of adults
and seasonal farmworkers. Note that these who are currently out of the workforce, meaning not
subsegments are not mutually exclusive—an individual employed and not currently seeking employment, and are
may be represented by multiple of these experiences. therefore not considered as part of unemployment in
segment two: roughly 2.0 million Virginians, or ~23% of
Adults who are in mid- and high-earning jobs
the population. This population is largely comprised of
The fourth segment of the population is a broad group older adults not seeking to re-enter the workforce –
of adults who are participating in the workforce and are roughly 1.5 million Virginians who consider themselves
in mid- to high-earning jobs (for the purposes of this retired. Beyond retirees, there are four (not mutually
report, above $70 thousand in annual household exclusive) subsegments of people who, despite longer
income): roughly 2.7 million Virginians, or ~31% of the periods of unemployment, may be looking to enter the
population. The lower end of earners in this segment workforce:
would still be considered part of the ALICE population,
• Those not seeking a job due to challenges with
defined as households that earn above the Federal
their immigration status: ~200 thousand 23xvii
Poverty Level but cannot afford the basic cost of living
in their county. 22xvi • Those who currently provide unpaid services in
the home, such as stay-at-home parents: ~150
Given the large range of income and skill level across thousand 24 xviii
this segment, there is also a large range in services the
• Those who have a justice-involved background
group may seek from the workforce development
creating barriers to employment: ~50
ecosystem, and not a perfect correlation between
thousand 25xix
earnings and need. For example, some higher-wage
earners may be at risk of job obsolescence with the rise • Those who recently immigrated to the U.S.: ~25
thousand 26xx
22
United for Alice; United Ways for Virginia 25
Prison Policy Initiative
23
Migration Policy Institute 26
Cardinal News
24
Women Work
19
Section 2:
Overview of workforce ecosystem
The formal workforce development system plays an important but targeted role in serving these
segments
The actors that serve these segments form a complex Development (DHCD), Virginia Department for
workforce development ecosystem at the state and the Blind and Vision Impaired (VDBVI), Virginia
local level: Department of Labor and Industry (DOLI),
Virginia Department of Education (VDOE),
• Formal “Workforce system:” (1) Virginia Works
Veterans Education Transition and Employment
at the state level, (2) LWDBs at the local level
(VETE) within the Virginia Department of
(see the Appendix for their governance
Veteran Services, and the Department of
structure) and the AJCs they operate, and (3)
Corrections (VDOC)
Programs funded by WIOA
• VCCS: The credit and non-credit workforce At the local level: Exhibit 10 illustrates how the
training offered by VCCS intended to prepare workforce development ecosystem operates at the local
students for immediate entry into the level, where workforce system customers can access
workforce and commonly referred to as services through different entry points. Most of these
“workforce development” functions that exist entry points (e.g., AJCs, community colleges) serve both
at each community college individuals and employers, while some, such as
economic developers and business entities, provide
• Partners in the workforce development
only employer services. The AJCs are also noteworthy
ecosystem: Including but not limited to the
because they consolidate many different services into
Virginia Department of Social Services (VDSS),
one entry point, including access to WIOA programs,
Virginia Department for Aging and
any additional programs run by LWDB staff, Virginia
Rehabilitative Services (DARS), Virginia
Works programs, and many other programs hosted by
Economic Development Partnership (VEDP),
required partners.
Virginia Department of Housing and Community
20
Section 2:
Overview of workforce ecosystem
Exhibit 10
Workforce development ecosystem at the local level27
27
Interviews with stakeholders
21
Section 2:
Overview of workforce ecosystem
Overview of AJCs
American Job Centers (AJCs) are centers where workforce development services and activities are made available to
the citizens of the Commonwealth of Virginia. LWDBs are responsible for evaluating and certifying the centers in
their LWDA and managing the operators of the centers.
A host of programs are made available at the centers, largely from a set of required partners who deliver federally
mandated services. These programs include:
• Programs authorized under the WIOA Titles (see Section 1.4.1), including:
o Title I - Adults, Dislocated Workers, and Youth
o Title II - Adult Education and Family Literacy
o Title III - Wagner-Peyser Employment Services
o Title IV - Vocational Rehabilitation
• The Senior Community Service Employment Program (SCSEP)
• Carl D. Perkins Career and Technical Education Programs at the postsecondary level
• Trade Adjustment Assistance
• Jobs for Veterans State Grants
• Community Services Block Grant (CSBG) employment and training activities
• U.S. Department of Housing and Urban Development (HUD) employment and training activities
• Programs authorized under state unemployment compensation laws.
• Reentry Employment Opportunities (REG)
• Temporary Assistance for Needy Families (TANF)
• Job Corps; YouthBuild; Native American programs; and Migrant and Seasonal Farmworker programs
In addition to these programs, AJCs frequently host community-based organizations and provide additional
programs or services that the LWDB receives grant funding to carry out.
Overview of services provided by the formal workforce ~3.3 thousand new claims and ~19.6 thousand
system at the local level continued claims. 28 These are available to adults who
are short-term unemployed and are provided by the
This section of the report focuses on how individuals
Virginia Employment Commission.
access job seeker support through AJCs at the local
level, services that largely focus on job search and WIOA was signed into law by the federal government in
placement, career coaching, resume support, skills 2014 and supports “job seekers’ access to employment,
assessments, and access to education and training education, training, and support services to succeed in
funded by WIOA. It also briefly covers the latest the labor market and to match employers with the
unemployment insurance benefits received by residents skilled workers they need to compete in the global
of the Commonwealth.
Unemployment insurance: For the week ending June 7,
2025, residents of the Commonwealth filed roughly
28
Virginia Works
22
Section 2:
Overview of workforce ecosystem
economy.” 29xxi The federal legislation provides funding this program are overseen by DARS, but provide
for states and local areas to deliver these services. services through both DARS and DBVI.
There are four Titles under WIOA that provide funds to
This document focuses mostly on Titles I and III, which
serve these populations:
provide the most direct workforce and training services
• WIOA Title I, Employment and Training Services to the broadest population. Through these programs,
(5 thousand participants served in Virginia in job seekers who qualify can access job search
Program Year (PY) 2023): 30xxii Funds workforce assistance, 1:1 career development support, and other
development programs such as career services workforce preparation opportunities.
and job training, serving populations federally
It should be noted that the LWDBs and Virginia Works
described as Adult, Dislocated Worker, and
provide many other services beyond Titles I and III.
Youth. The LWDBs receive these funds to
LWDBs leverage other grant funding streams to serve
provide services in AJCs.
the needs of their communities, and Virginia Works
• WIOA Title II, Adult Education (20 thousand delivers other programs at the local level, including
participants in PY23): 31 xxiii Funds adult education Registered Apprenticeship, Jobs for Veterans (JSVG),
and literacy activities specifically for out-of- Trade Adjustment Assistance (TAA), and Reemployment
school youth and adults who are not proficient Services and Eligibility Assessment (RESEA).
in English or lack a high school diploma or the
Each Program Year (PY), the federal government
equivalent. Grants are given by VDOE to eligible
education providers to deliver these services. allocates funds to the Commonwealth to serve
individuals under each program. The total allocation for
• WIOA Title III, Wagner-Peyser (29 thousand
PY23 was approximately $60 million (which includes the
participants in PY23): 32xxiv 33 An amendment to
funding for the agency and the funding that passes
the Wagner-Peyser Act of 1933, this Title
through to local workforce boards). 35xxvi
supports job seekers and businesses looking to
hire through the provision of labor exchange • WIOA Title I Employment and Training Services
services and referrals. Virginia Works employs o Youth (ages 14-24): $14.6 million
staff who work in AJCs to provide services under o Adult (ages 18+): $13.6 million
Title III as a required partner.
o Dislocated Worker (defined as individuals
• WIOA Title IV, Rehabilitation (in FY24, DARS who have involuntarily lost their job due to
served ~24 thousand clients and DBVI served reasons beyond their control, e.g., a layoff):
over 1 thousand): 34xxvFunds vocational $13.0 million
rehabilitation services to individuals with
• WIOA Title III, Wagner-Peyser: $15.5 million
disabilities and visual impairments. Grants for
29
DOL establishes a nationwide system of public employment
30
DOL offices, known as the Employment Service (ES).
31
NRS 34
Estimates provided by Virginia Department for Aging and
32
DOL Rehabilitative Services DARS
33
The Wagner-Peyser Act of 1933, amended by the 35
Federal Register
Workforce Innovation and Opportunity Act (WIOA),
23
Section 2:
Overview of workforce ecosystem
Exhibit 11
WIOA Title I and III participants in PY23, by LWDA 36
These programs are open to individuals across customer 81% and 70% (by respective programs) employed. 37
segments (Exhibit 12). While there is no data available However, it is important to note that this includes
to show how participants are distributed across these lower-wage jobs, and not necessarily career roles to
segments, the total represents only a very small fraction support sustainable livelihoods.
of the population of each segment. Despite their limited
Data to substantiate longer-term retention in these jobs
reach, the programs are effective at getting individuals
or wage gains over time is limited.
into jobs. Two quarters after participating in and exiting
from WIOA Title I and III programs, individuals were
36
Virginia Works analysis of program year 2023-24 WIOA data conducted for the purpose of this report conducted in July 2024.
Note: 67 WIOA Title III participants were not matched to a region and 715 participants were co-enrolled in WIOA Title I and Title III
37
VAWC reports, PY 2022-23
24
Section 2:
Overview of workforce ecosystem
Exhibit 12
Individuals participating in workforce system, across segments38
WIOA Title I funds training opportunities for job across regions, with Northern Virginia having the most
seekers: participants are supported to receive training providers at 70, who delivered 379 programs in PY23.
from eligible training providers, including community Most regions have closer to 10 providers (see Exhibit
colleges, nonprofit organizations, and privately run 13). 39
programs. The number of eligible providers varies
Exhibit 13
Eligible training programs and providers, by region 40
38
Based on July 2024 when analysis was initially conducted, Source: VAWC reports, PY 2022-2023
39
Note that this is based on the Eligible Training Provider List, which is the list of approved providers, not those that are used.
LWDBs are also able to use providers outside of their regions.
40
Virginia Works analysis of program year 2023-24 WIOA data conducted for the purpose of this report in July 2024.
25
Section 2:
Overview of workforce ecosystem
Eligible training providers across the Commonwealth the program year trained eight WIOA participants and
are most likely to offer programs in Information 67 participants total. 41 Completion rates across WIOA
Technology, Healthcare, and Manufacturing (Exhibit and non-WIOA participants were effectively the same at
14). However, the industry focus can vary greatly across around 70%. However, this data has significant
regions to be responsive to local conditions. For limitations. The data available shows that half of eligible
example, Northern Virginia has few to no eligible training providers reported that all of their participants
programs in Manufacturing and Skilled Trades, whereas were WIOA-funded, but staff believe from interacting
West Piedmont and Crater have few or no eligible with providers that this number is likely significantly
programs in Information Technology. On average, lower.
programs with at least one WIOA-funded participant in
Exhibit 14
Eligible training programs broken down by industry, by region 42
Overview of services provided by VCCS non-credit programs, in which students are trained in
their field of interest and may work toward a recognized
Many individuals go directly to community colleges to
credential; they may also receive additional career
access workforce training and services, rather than
search and/or “wraparound” supports (e.g., some offer
entering through the workforce system and receiving a
free access to public transportation, mental health
referral to a local college. VCCS offers both credit and
support services) through the community college.
41
It is worth noting that 40% of eligible training providers did not have data about their number of total participants and 63% did not
have data on their WIOA participants, and the dataset treats providers that provided no data and providers that reported zero the
same
42
Virginia Works analysis of program year 2023-24 WIOA data conducted for the purpose of this report in July 2024.
26
Section 2:
Overview of workforce ecosystem
VCCS’s workforce development offerings include both credit and non-credit programs:
• Credit programs: Of the 207K students enrolled across VCCS for credit programs in 2023-2024, 51K were
enrolled in Career Technical Education (CTE)—which directly prepare students to enter the workforce. Of
this group, 26K were ages 24 or younger and fit into the young people category.
• Non-credit programs: 13K students were enrolled across VCCS in non-credit programs through Fast Forward
in 2023-2024. Of those, 4K were ages 24 or younger.
Exhibit 15 shows the distribution of credit and non-credit workforce students across the system. 20% are enrolled in
Northern Virginia, followed by 14% at Tidewater, 9% at Brightpoint, 7% at Reynolds, 6% at Germanna and all others
were less than 5%.
Exhibit 15
2023-2024 headcount of workforce enrollment by community college across VCCS43
As with the programs provided by the workforce VCCS represents a small fraction of the total population
system, the proportion of individuals served by in each segment (Exhibit 16).
43
VCCS provided data on CTE and Fast Forward completions provided for the purpose of this report. This analysis was initially
conducted in July 2024.
27
Section 2:
Overview of workforce ecosystem
Exhibit 16
Individuals enrolled in VCCS programs as of July 2024, across segments 44
Within VCCS’ suite of workforce offerings, the majority of construction, and phlebotomy technician.50xxxi 80% of
non-credit options are part of Fast Forward. Fast Forward is graduates from the 2019-20 Fast Forward cohort who
a state-funded, short-term training program that prepares obtained credentials were employed six months after
students to obtain third-party, industry recognized graduation.51 xxxii
credentials in high-priority sectors.45 In 2024, Fast Forward The Workforce Credentials Grant (WCG), which funds
served ~16 thousand students (including 43% students of FastForward grew during Governor Youngkin’s
color and an average age of 35 across all students).46 xxvii The administration between FY2021 and FY2026. The state’s
cost of attendance is shared by the state, students, and allocation for the grant increased by 76%, rising from $13.5
course providers, with course providers reimbursed fully million in FY2021 to $23.75 million in FY2026. This increase
only when the student successfully earns the reflects a continued commitment to building a skilled
credential.47 xxviii The program has a 94% program workforce aligned with Virginia’s economic development
completion rate and a 69% credential attainment rate48xxix, goals and supported expanded participation and stronger
with students seeing on average an increase in wages of program outcomes. Between FY2021 and FY2025,
$11,746.49xxx The top four training programs through Fast FastForward programs saw a 21 percent increase in total
Forward are commercial driver’s license, medical assistant, enrollment, a 27% rise in completions, and a 24% growth in
44
US Census 2022; Pew Research; Career Minds; VAWC reports, PY 2022-2023; Virginia Works. This analysis was initially conducted
in July 2024.
45
There are additional programs run by VCCS and SCHEV (State Council of Higher Education in Virginia) which are not profiled in this
document, and include Innovative Internship Program, Institutes of Excellence for Non-Credit Training and Instruction, NonCredit
Workforce Training, Postsecondary Career and Technical Education (Perkins).
46
Fast Forward
47
NCSL
48
VCCS
49
Fast Forward
50
VCCS
51
VCCS
28
Section 2:
Overview of workforce ecosystem
credentials awarded. These outcomes highlight the the Federal Poverty Level (roughly $100 thousand
programs' significant impact on Virginia’s workforce. From household income for a family of four). In 2023, 12,600
FY2021 to FY2024, more than 41,800 FastForward students across VCCS received $20.5 million in G3 tuition
completers employed in Virginia collectively earned over assistance,52 xxxiii which kicked in once federal and state aid
$4.9 billion in cumulative wages. This wage data were applied. Over 49% of students in 2022 were over the
underscores the strong return on investment FastForward age of 25, and 83% of students were retained semester
delivers for both individuals and the Commonwealth. after semester.53 xxxiv Data on employment outcomes from
Students in both credit and non-credit programs can also G3 is forthcoming.
receive financial support from G3, a tuition assistance Of students enrolled in credit programs (Career Technical
initiative for students enrolled in high demand careers Education) in 2022, 79.6% were employed within 18
programs who come from households that are 400% below months.54xxxv
52
VCCS 54
VCCS
53
VCCS
29
Section 3:
Adequacy of collaboration among programs
Section 3:
Adequacy of collaboration among
programs
30
Section 3:
Adequacy of collaboration among programs
Adequacy of collaboration among programs
Context / description
Virginia’s workforce development ecosystem is • Staff-level collaboration across state agencies
inherently complex, with numerous programs with a who deliver workforce development services
variety of administrators, funders, structures and rules, (e.g., Virginia Works-VEDP)
and target audiences. One of the foundational drivers • Collaboration between state and local level
behind the creation of Virginia Works in 2024 was a entities (e.g., Virginia Works-LWDB, VCCS-CC,
recognition that Virginia’s workforce system had VEDP-REDA, VDSS- LDSS)
become highly fragmented and decentralized. More
• Collaboration across local level actors (e.g.,
than 60 programs, housed across 20+ agencies and 6+
LWDB-county LDSS)
Secretariats, were operating in silos, which led to
duplication of effort, inefficient use of resources, and Effective collaboration is enabled by culture and
missed opportunities for strategic alignment. Virginia relationships. As described above, this requires
Works was envisioned not only as a consolidator of stakeholders at all levels to seek opportunities to
select workforce programs, but also as a coordinating partner with other entities rather than working in silos.
body with the responsibility to foster coherence across Virginia Works is playing and should play a unique role,
the broader ecosystem. The legislation that created supporting this collaborative culture by leading by
Virginia Works authorizes and empowers the agency to example and bringing the ecosystem together in a
strategically direct and coordinate workforce programs, facilitative way. Stakeholders can identify shared goals
with a central focus on collaboration across the and areas for joint initiatives, and support these with a
ecosystem. variety of collaboration tools (e.g., working groups,
codified shared goals, memoranda of understanding
The ambition behind greater collaboration is twofold: to
(MOUs)). Depending on the type of initiative groups are
improve outcomes and service delivery (creating a
collaborating on, the level of formality of a
seamless, high-value experience for a wide range of
collaboration tool will vary. For example, periodic cross-
individuals and employers) and to increase system
agency conversations may be sufficient for some efforts
efficiency (sharing information across players in the
(e.g., planning a joint event), while more formalized
ecosystem, minimizing duplication, and maximizing the
tools may be needed for others. When there is a need
use of scarce resources). When agencies and programs
to specify target outcomes or service levels from one
work in concert, services are easier to access and
agency to another, MOUs are helpful guiding
navigate, better aligned with individual and employer
documents to capture those commitments (e.g.,
needs, and more likely to produce meaningful
Virginia Works and VEC have successfully used an MOU
employment outcomes. Conversely, when coordination
to define goals and respective roles for “meaningful UI
is lacking, customers may encounter redundancy,
services” provided through the workforce system, an
confusion, and delays, discouraging them from future
MOU is currently in place for agencies contributing to
engagement with public workforce systems.
the Workforce Data Trust (which is a shared repository
Collaboration at different levels is necessary: of data across workforce agencies and programs)).
MOUs should be considered not as restrictive contracts,
• Collaboration across and among the Governor’s
but as documents to help set expectations and desired
Office, Cabinet Secretaries, and agency leaders
outcomes, while still providing flexibility for processes.
Despite broad agreement on the need for collaboration,
operationalizing a truly integrated workforce
31
Section 3:
Adequacy of collaboration among programs
development system remains a challenge. Structurally, In addition to structural barriers, systems-level
no single entity holds formal authority over the entire challenges persist, such as competing rules and
workforce development ecosystem. Numerous compliance systems (e.g., federal vs. state reporting
agencies-including those in workforce, education, requirements), and incompatible data and reporting
economic development, and social services- operate systems. Fiscal constraints create additional challenges,
independently, with distinct missions, stakeholders, with organizations prioritizing their own financial
regulations, governance structure, and priority stability in difficult funding environments. Many
populations. This fragmentation often results in organizations in the ecosystem are resource-
overlapping services and duplicative efforts, such as constrained and have limited capacity, which can also
multiple entities promoting work-based learning or lead to setbacks in collaboration when there is
employer engagement. employee turnover requiring re-establishing
relationships and operations.
Virginia Works was established to address this
fragmentation and serve as the central coordinating Virginia Works, by modeling inclusive leadership and
body for workforce development in the convening capacity, has a unique opportunity to unify
Commonwealth. As outlined in the Code of Virginia (§ the ecosystem around shared goals. This includes
2.2-2037), the Department is charged with developing a finalizing and implementing a strategic workforce
comprehensive, statewide strategic workforce development plan that is inclusive of all agencies,
development plan that aligns the efforts of all relevant promoting shared measurement systems, and investing
agencies and stakeholders. It is also responsible for in the capacity of partners at every level. With sustained
promoting interagency collaboration, facilitating data leadership and support, Virginia Works can unify the
sharing, and supporting performance evaluation across ecosystem around shared goals and drive toward a
programs. more integrated, responsive, and effective workforce
development system.
Accomplishments to date
Since its establishment, Virginia Works has made early Department of Education (VDOE), Virginia Office of
progress in fostering collaboration and enhancing Education Economics (VOEE), Virginia Economic
transparency across the Commonwealth’s workforce Development Partnership (VEDP), Virginia Community
development system. These efforts are foundational to College System (VCCS), Virginia Department of Veterans
building a more coherent, efficient, and outcomes- Services (VDVS), and others. These conversations have
driven ecosystem. Virginia Works has driven dialogue primarily focused on promoting transparency and
and collaborative momentum across agencies and gathering input for Virginia Works’ strategic planning
increased transparency of ecosystem programs, efforts, while opening lines of communication and
outcomes, and data by: building relationships among colleagues at different
agencies. In parallel, structured strategy sessions with
Engaging in cross-agency, strategic conversations
seven agency partners—including VDSS, VDVS, and
Virginia Works has prioritized cultivating dialogue and VCCS—have provided a space for mutual understanding
alignment across agencies, deploying informal of programmatic objectives and have laid the
mechanisms to foster recurring engagement and groundwork for identifying shared priorities and joint
deepen relationships among stakeholders. At the state initiatives.
level, Virginia Works regularly convenes informal cross-
Engaging the broader ecosystem
agency conversations involving entities such as the
Virginia Department of Social Services (VDSS), Virginia
32
Section 3:
Adequacy of collaboration among programs
Virginia Works has undertaken broader convening hosted the inaugural Virginia Works Together Summit,
efforts to build connectivity across all actors in the which brought together approximately 300
workforce ecosystem, including employers and industry stakeholders during National Workforce Development
leaders, and other state partners such as the Governor’s Month. A similar event, called the Together for Talent
Office, Department of Health, and Department of Summit, was held in September 2025 with
Transportation. Bimonthly statewide town halls, approximately 200 employer participants, and 10
routinely attended by more than 150 program staff, agency partners. Virginia Works also supports local
have become a valuable forum for sharing best engagement, including partnering on local job fairs,
practices, reviewing outcomes data, and strengthening which requires collaboration across state agencies, local
practitioner networks. In September 2024, the agency boards, and employers.
Exhibit 17
Number of apprentices and target, by year 55
Developing programmatic partnerships have driven increases in number of active apprentices
from ~10,000 to over 15,000 in the last three years.
Agencies are also fostering collaboration by supporting
Since 2022, there have been a total of over 17,000 net
individual programmatic partnerships across
new apprentices. 56
departments, including on work-based learning topics.
Notable examples include a reentry partnership Some examples of these partnerships to increase
between Virginia Works and the Department of apprenticeships include:
Corrections (VDOC) where Virginia Works provided over
• The Apprenticeship Academy pilot, launched in
3,000 supervisees with information on workforce
the Capital and Crater regions, where
services during probation and parole intake, and VEDP’s
Registered Apprenticeship Consultants
collaboration with community colleges on the
presented to ~100 Business Service Center
Technology Talent Investment Program (TTIP).
partners and colleagues at Brightpoint
There have also been joint efforts across state and local Community College, with the goal of ensuring
entities to expand apprenticeship opportunities, which business service centers and front facing Career
55
Internal briefing materials on Virginia Works’ accomplishments and goals’
56
Virginia Works provided data on net new apprentices for the purposes of this report
33
Section 3:
Adequacy of collaboration among programs
Navigators understand the core concepts of and target populations. Organized by service type,
Registered Apprenticeships and how to connect (workforce education and training, supportive services,
with their local Registered Apprenticeship business support services, and capacity-building)
Consultant (RAC) Secretariat, and geography, the inventory allows
• Virginia Works embedded Registered stakeholders to better understand who is doing what,
Apprenticeship consultants into American Job where, and why—both within their local area and
Centers (AJCs), streamlined the program statewide.
completion process—reducing processing time Increasing consistency of data and metrics tracking
by 98% 57—and launched near real-time tracking
of apprenticeship participation (which In parallel, Virginia Works has introduced a robust
metrics tracking framework. On a quarterly basis,
disaggregates data by race, ethnicity, gender,
Virginia Works collects and analyzes core performance
educational attainment, and occupation)
indicators from across participating programs. These
• The Apprenticeship Accelerator, developed with
include: job placements, people trained, total program
five industry associations to co-design
cost, cost per job placement, and progressed wage
registered programs in real-time for high-
growth. Seven quarterly cycles have been completed to
demand occupations; during these workshops,
date, with continuous improvements made to data
participants work to understand talent needs,
definitions, program participation, and alternative
the Registered Apprenticeship program, and
metrics (if the core performance indicators do not
design their own Registered Apprenticeship
measure a program’s intended outcomes the program
program. One Accelerator workshop was
may propose alternative metrics). While the goal is
conducted in May 2025, with plans to train
100% compliance, it has taken time for programs to
Registered Apprenticeship Consultants to
collect and report these metrics, but as seen in Exhibit
deliver the workshop in their regions
18, there has been progress; by the final quarter of FY
• The launch of the HIRED Apprenticeship Fund, 2024, approximately two-thirds of the programs
which provides $4,000 in employer incentives reported on three or more metrics. 59
for registered apprenticeship participants and
$2,000 for supportive services. Virginia Works aims to release the first public
dashboard by January 1, 2026, creating a new standard
Cataloguing and publishing a program inventory for transparency and evidence-based decision-making.
One of Virginia Works’s earliest accomplishments has Once fully operational, this data will empower the
been the development of a comprehensive workforce Commonwealth to: 1) Identify high-performing
program inventory for the Commonwealth. This catalog, programs for potential expansion; 2) Provide targeted
covering over 70 programs, 58 consolidates critical support to struggling programs; and 3) Allocate
details about each program’s scope, operating region, resources more strategically based on impact.
57
Internal briefing materials on Virginia Works’ metrics 59
Internal briefing materials on Virginia Works’ metrics
collection and reporting effort collection and reporting effort. Note that if an agency only
58
Note that more programs were initially included in this reports annual data, their metric is only counted as being
workforce ecosystem catalog than were included in the reported in the quarter in which it was reported.
metrics-tracking effort
34
Section 3:
Adequacy of collaboration among programs
Exhibit 18
Programs participating in metrics effort and percentage reporting 3 or more metrics for PY23,
by quarter 60
Increasing cross-agency data reporting and usage Complementing this initiative is VOEE—a division of
VEDP—created in 2021 to align local labor market
A cornerstone of these efforts is the Workforce Data
analysis with workforce and higher education planning.
Trust (WDT), which began in 2017 and was initially
VOEE relies on the WDT as a data source and
rolled out in 2020. This cross-agency repository serves
collaborates with VEDP on projects such as the High-
as a central hub for integrating data from 12
Demand Occupations List and related dashboards.
participating entities (e.g., VEC, DARS, VEDP, VDOC,
Together, these developments represent a major step
VDSS). It is designed to enhance information-sharing,
forward in modernizing the Commonwealth’s workforce
reduce fragmentation, and support more sophisticated
data infrastructure, enabling the Commonwealth to
analyses of education and labor market trends. The
make smarter, data-informed policy and investment
WDT is governed by a multi-agency council, led by
decisions, and fostering more effective collaboration.
Virginia Works, which has developed a comprehensive
data governance strategy encompassing privacy,
security, stewardship, and integration standards.
60
Internal briefing materials on Virginia Works’ metrics collection and reporting effort
35
Section 3:
Adequacy of collaboration among programs
Recommendations: Continue the evolution from cross-agency communication to collaboration on
joint strategy and initiatives
Recommendation 1: Develop a state-wide workforce development strategy for the Commonwealth as a collaborative
effort of the relevant Secretaries and agencies. Align agency operating plans with this state-wide strategy, and
continue cross-agency collaboration through implementation
As Virginia continues to modernize and strengthen its flexible service delivery and adjust physical
workforce development ecosystem, the next step as infrastructure, and developing an operational
detailed in the legislation is the creation of a unified, dashboard to identify where limited resources are most
statewide workforce development strategy. Virginia needed. Virginia Works continues to focus on building
Works should develop and facilitate a sustainable collaborative partnerships at the local and state level to
process for the relevant agencies to co-develop and streamline services and alleviate duplication of services.
execute a state-wide workforce development Virginia Works is working to incorporate AI into job
strategy. 61 This plan should build off the search and career coaching tools and implement mobile
administration’s economic development plan, with the service delivery to serve Virginians more effectively. The
agencies collectively executing against this plan, and agency is leading efforts to cross-train team members
each individual agency having its own strategy aligned to ensure it can quickly adapt to new program
to the broader plan. Ideally, this would commence at structures. Regardless of the funding model, Virginia
the start of a new administration, enabling the next set Works will prioritize training aligned with regional labor
of leaders to continue building on recent efforts and market needs and employer demands, including
promote continuity. This strategy is especially continuing to scale Registered Apprenticeship
important in the current environment given proposed programs. Success of this workforce strategy will also
budgetary changes and consolidation of workforce require support and leadership from the Governor’s
funds ( e.g., a recent U.S. budget proposal suggests Office and cabinet Secretaries, promoting greater
combining several workforce funding streams into a engagement amongst participating agencies.
single block grant for states to allocate as desired); if Development of this strategy will then spin up specific
states do have more flexibility over programs, it will be cross-agency initiatives and projects that this group can
essential to break down silos across agencies and collaborate on. For example, the strategy may identify
programs, coalesce around a single vision and strategy, opportunities to build out more robust partnerships
and provide integrated service. To this end, Virginia across educational and social service providers for
Works is taking preemptive steps to enable the agency wraparound supports, or educational institutions and
and local system to pivot quickly including finalizing a corrections for scaling training for incarcerated
comprehensive five year strategic plan for the individuals. Focusing on these initiatives will help
Workforce Ecosystem, holding regular convenings with ensure that agencies are concentrating efforts on the
all state partners, exploring approaches to enable more highest-priority, strategic partnerships.
61
Agencies involved in this process should include Virginia Department of Veterans Services, Virginia Department for the
Works, Virginia Employment Commission, Virginia Blind and Vision Impaired, Virginia Department of Health
Department of Professional and Occupational Regulation, Professions, Virginia State Council Of Higher Education,
Virginia Economic Development Partnership, Virginia Virginia Department of Education, Virginia Department of
Department for Housing and Community Development (and Corrections, Virginia Department of Agriculture and
the GO Virginia program), Virginia Community College Consumer Services, Virginia Marine Resources Commission
System, Virginia Department of Social Services, Virginia
36
Section 3:
Adequacy of collaboration among programs
Recommendation 2: Continue to collect metrics on workforce programs across systems. Over time, Virginia Works
should enable use of this data to inform strategic and programmatic decisions, while providing ample context on
differences in programs’ objectives, target populations, and constraints
Improving metrics collection • Tracking Longitudinal Data: Current tracking of
long-term outcomes often requires complex data
As Virginia seeks to build a more integrated and high-
sharing arrangements (e.g., paying the Virginia
performing workforce development ecosystem, robust
Employment Commission for job retention and
data collection and strategic data use must remain at
wage data). Automation through the WDT, where
the center of reform efforts. Virginia Works has taken
individuals would be tracked after the completion
important first steps through the launch of its cross-
of a program, could reduce this burden. However,
agency metrics initiative and the development of the
even using VEC Wage match data would still leave
WDT. Now, the Commonwealth has an opportunity to
gaps in employment data, including for out-of-state
further enhance these efforts—ensuring that data not
wages, self-employed wages, and federal wages.
only informs but drives decision-making across the
ecosystem. • Transparency: The forthcoming public
dashboards represent a significant milestone in
Improved metrics will not only inform Virginia’s broader
enhancing visibility across the system. Leaders
workforce strategy, but also help programs identify
should continue progress towards release of
other programs with similar goals, missions, and
these dashboards, which are on track to be
outcomes, highlighting potential partnerships or completed by January 1, 2026. When launched,
synergies. For example, an education and training
these dashboards will allow agencies,
program might use the metrics data to find a high-
stakeholders, and the public to examine
performing supportive services provider in a nearby
program performance on shared metrics for
region, and consider partnering with them for peers.
wraparound services.
Senior leadership support and sponsorship has been
To realize this vision, the metrics process must continue
critical in the success of the metrics collection and will
to mature in several key areas:
be required to ensure continued success; writing
• Quality and Consistency: Definitions must standard operating procedures (SOPs) related to the
continue to be standardized to produce reliable, metrics effort will also increase transparency and
comparable data. Over time, metrics collection success of the project so contributors know exactly
can be made more sophisticated by what to do, what to submit, and when. A webpage
incorporating local cost-of-living adjustments, containing this information is forthcoming.
reducing duplicative counts across overlapping Short and long-term use of metrics data
programs, and tailoring data collection to
reflect the unique goals of different program Virginia Works is progressively working towards improving
segments. the quality, ease, and transparency of metrics data. In the
short-term, this will enable the data to serve as a resource
• Ease of Reporting: Stakeholders report mixed
to the field, providing visibility to all agencies and programs.
experiences with the current reporting process.
While some say it aligns closely with existing In the long-term, this data should support periodic
(e.g., federal) reporting standards, others cite workforce program portfolio reviews. The Governor’s office,
variation in reporting requirements. General Assembly, Virginia Works, and state agencies’
Streamlining the reporting process while leaders can examine each program, the number of
continuing to allow for flexibility to individuals and employers served over time, respective
accommodate unique program needs. costs and return on investment (ROI) per program, and use
37
Section 3:
Adequacy of collaboration among programs
these data points as inputs (alongside other qualitative data conduct these reviews effectively (as they are beginning to
and contextual information) to support program decisions do with quarterly program reviews, where program
about investments to improve quality, support scaling or managers report on performance and fiscal health of their
downsizing, and ensure alignment to the Commonwealth's programs, along with key wins, risks, and areas they need
economic development goals and largest talent gaps. Led support), and then eventually expand to include the entire
by Virginia Works, stakeholders in Virginia’ s workforce portfolio of workforce programs across the
ecosystem-including state agency leaders- can help ensure Commonwealth. Virginia Works should also leverage
that the holistic portfolio of programs covers a variety of metrics to facilitate connections and best practice sharing
individual training needs (ranging from basic job skills to across programs (e.g., if two programs have similar goals
more advanced technical training) and a variety of training and focus populations, but one is producing substantially
durations (ranging from short-form courses to longer better outcomes, the higher performing program might
credentialing programs). share key success factors and lessons learned with the peer
program).
The goal would be to start internally with Virginia Works-
managed programs, taking the lead and showing how to
Recommendation 3: Collaborate across stakeholders (including Virginia Works, VCCS, VDOE, SCHEV, VEDP,
intermediaries) to market a single menu of work-based learning opportunities, and double participation in them
Virginia has made notable progress expanding This menu and its offerings should be shared with all system
registered apprenticeships—growing from 10,000 in actors, who can then provide the menu to their
2022 to over 14,000 in 2025—with a goal to reach constituents, relaying the range of options and creating a
20,000. 62 Achieving this goal will require stronger “no wrong door” approach, or one where anyone seeking
coordination, streamlined messaging, and more unified assistance with work-based learning receives timely support
outreach across the workforce system. and consistent resources, regardless of their initial point of
contact or entry point.
Single menu of work-based learning
While the menu of offerings will remain consistent,
Currently, multiple agencies engage employers separately
stakeholders will need to tailor marketing to different
about creating work-based learning opportunities,
personas and profiles of students and individuals to achieve
sometimes with inconsistent terminology and overlapping
the goal of doubling participation in work-based learning
offerings. This creates confusion and diminishes the impact
and apprenticeships. This will require using data to identify
of outreach. Instead, agencies should align around a shared
eligible groups, ensure messaging is clear and resonates
work-based learning (WBL) framework and menu of
with students, and that there is broad awareness of the
offerings, coordinate employer engagement, and use
breadth of different opportunities and pathways. For
consistent messaging that emphasizes value to businesses,
example, the messaging targeted to CTE participants
not just educational benefits to students. The single menu
considering skilled trade apprenticeships might focus on the
of work-based learning offerings, which Virginia Works has
average wage increase of program completers, whereas the
already begun working on, can be detailed in marketing
messaging tailored to undergraduate students seeking
materials that explain the different work-based learning
internships might emphasize the increased likelihood of full-
models and key contacts. This menu will help employers
time job offers for those who have internship experiences.
understand the different types of programs, in what
circumstances and why they would choose one over the
other, and how to proceed with offerings that are a good fit.
62
Internal briefing materials on Virginia Works’
accomplishments and
38
Section 3:
Adequacy of collaboration among programs
Starting with VTOP Commonwealth should activate a network of trusted
intermediaries to support employer engagement and
One potential starting point is the Virginia Talent and
program delivery.
Opportunity Partnership (VTOP), a program that connects
Commonwealth undergraduate students to paid and credit- Leveraging intermediaries
bearing internship and work-based learning experiences.
Virginia Works should leverage intermediaries to help scale
VTOP was previously fully housed at SCHEV, but recent
work-based learning and broaden impact. VCCS and
legislation changed the program so that SCHEV continues to
industry associations can serve as intermediaries for work-
handle educational components, VEDP covers marketing,
based learning given the wide breadth and depth of
and Virginia Works handles intermediaries and setting up
employer partnerships they already have for internships
the operational programs. These agencies should work
and apprenticeships (and VDOE for youth apprenticeships),
collaboratively to implement the new plan for VTOP,
and their own work-based learning programs in some cases.
engaging with employers in a seamless manner and
For example, Virginia’s Associated Builders and Contractors
presenting them with a range of engagement and work-
works with an educational affiliate to offer a robust
based learning models. VTOP’s success could be further
apprenticeship program in the construction trades. These
heightened if VEDP, SCHEV, and Virginia Works collaborate
partnerships can jointly market a full suite of WBL
to implement the Registered Apprenticeship model within
opportunities and encourage employers to offer both
the program. To fully realize VTOP’s potential and
internships and apprenticeships, even in non-traditional
ensure consistent, statewide implementation, the
fields.
Recommendation 4: Leverage the Commonwealth's data and analytics assets including the Workforce Data Trust,
VOEE, VLDS, and the EIA team in Virginia Works to provide increasingly consistent, timely, digestible, and actionable
information to state and region-level leaders across economic development, workforce, education, and partner
systems
Data and analytics assets aspects of the Commonwealth’s labor market, with a focus
on federally-required reporting. Where the roles of VOEE
The WDT, initially rolled out in 2020, represents a major
and EIA intersect, there is an opportunity to align these
opportunity to transform how workforce data is
activities.
integrated and how data is used to conduct meaningful
analyses that drive program decisions and The Virginia Longitudinal Data System (VLDS) is an effort
Commonwealth strategy. to merge administrative education, workforce, higher
education, and health data across participating
Alongside WDT there is VOEE, which is part of VEDP, and
agencies. VLDS is not a warehouse that collects and
was created in 2021 with the objective to report on the
stores data, but rather leaves it within its respective
alignment of higher education with workforce needs and
agencies and uses a technology to combine and de-
track emerging labor market trends across Virginia; VOEE
identify data before releasing it to researchers for
conducts analyses on high-priority topics and industries
analysis.
(e.g., manufacturing, data science, cybersecurity), creates
public-facing dashboards, and develops reports to inform More broadly, there is also a need to address the
the General Assembly on talent needs. confusion about the roles and functionalities of each of
these data components (WDT vs. VOEE vs. VLDS vs. EIA)
Virginia Works also has an EIA team (Economic Information
and how they complement one another (e.g., that VOEE
& Analytics), which is the official source of labor market
has analytical capacity for custom questions related to
information, census data, and economic information
education and workforce alignment, but is not a
(including economic impact analyses) in Virginia. EIA
database, VLDS also is not a repository / does not have
collects, analyzes, and disseminates data relating to all
39
Section 3:
Adequacy of collaboration among programs
direct access to data). A one-stop-shop, such as a To activate this vision, several near-term actions are
website, that explains the differences in these tools, the needed:
types of data, and intended users, would support public
• Link all relevant data: Agencies must ensure that
and policymaker understanding of these platforms. It
their education, employment, and workforce data
should be reinforced that WDT is the only one of these
are consistently integrated into the WDT. This
platforms designed to be a comprehensive data trust,
enables cross-agency analysis, tracking of long-
where users can easily pull cross-agency data, conduct
term participant outcomes, and identification of
analyses, and develop actionable insights.
barriers to program access or success. As of the
Enhancing Workforce Data Trust time of this publication, some agencies had not
signed their MOUs to contribute data to WDT; this
The longer-term vision for WDT is to serve three core
is important to guarantee compliance with the
functions:
law and ensure all relevant agencies’ data is
• Performance Insights: Use data to automatically included in the WDT.
populate metrics dashboards and provide • Advance analytic capability: Once centralized,
insight on reach, long-term outcomes,
data can be used to conduct new analyses on
effectiveness, and ROI for workforce programs.
high-priority research questions, such as new
• Labor Market Alignment: Provide a real-time work-based learning opportunities, training
view of employer skill demands and current program effectiveness, and barriers for
talent supply—identifying mismatches and underserved populations. Given most of the
priority training needs (VOEE is currently focus thus far has been on data aggregation and
piloting this with skilled trade jobs, but has governance, building out WDT’s analytics
noted the challenge of doing this more broadly capacity would likely require hiring additional
given data limitations, and accuracy of matching talent to provide these capabilities (either
supply data to specific occupations) within Virginia Works or via partnership with
• System Capacity and Efficiency: Provide a VOEE).
current view of capacity across the VA • Support stakeholder use: A critical success
workforce system (of people / talent, resources, factor is training and change management.
efficiency, etc.) to inform adjustments to Stakeholders across the workforce system need
capacity and resourcing across programs to to understand what data is available, how to
achieve desired outcomes (at least initially, access it, and how to turn it into actionable
within Virginia Works staff and programs) insights.
40
Section 3:
Adequacy of collaboration among programs
Section 4:
Organization, powers, duties of
Department of Workforce Development
and Advancement
41
Section 4:
Organization, powers, duties of Deptpartment of Workforce Development and Advancement
Organization, powers, duties of Department of Workforce Development and Advancement
Context / description
As referenced previously, Virginia Works was created in The creation of Virginia Works involved significant
2023 to improve coordination across the restructuring: 12 programs were consolidated into the
Commonwealth’s workforce development programs, agency during its formation [see Exhibit 19]. Virginia
enhance efficiency, reduce duplication, and streamline Works now directly delivers services for nine programs 63
service delivery for job seekers and employers. Its and oversees three programs (Title I Adult, Dislocated
mandate, outlined in Chapter 20.2 of the Code of Worker, and Youth). Virginia Works is also collecting
Virginia, includes engaging the business community, metrics data for an additional 52 programs operated by
collaborating with higher education institutions, tracking partner agencies. This blend of administration and
workforce metrics, and communicating system changes collaboration reflects its mission to act as both a
to the public and policymakers. programmatic leader and central coordinator across the
ecosystem.
Exhibit 19
Programs consolidated into Virginia Works 64 xxxvi
During this transition, four new functions [see Exhibit 20]
were established to expand capabilities: Internships,
63
These programs include Registered Apprenticeship, Outreach, Jobs for Veterans State Grants, and Employment
Reemployment Services and Eligibility, Work Opportunity Tax Services (Title III) / State Workforce Services
Credit, Foreign Labor Certification, Trade Adjustment 64
Virginia Works
Assistance, Rapid Response, Migrant and Seasonal Farmer
42
Section 4:
Organization, powers, duties of Deptpartment of Workforce Development and Advancement
work-based learning, and on-the-job training; Grants
development; Business engagement and outreach;
Research, metrics, and evaluation.
Exhibit 20
New functions added to Virginia Works65 xxxvii
The agency moved into its headquarters in October in February 2024), and the current fourth phase (March
2024 and is completing its transition in four phases, 2024 onward) as ongoing implementation work.
with the first three phases as agency launch (completed
65
Virginia Works
43
Section 4:
Organization, powers, duties of Deptpartment of Workforce Development and Advancement
Exhibit 21
Phases of Virginia Works transformation 66 xxxviii
Standing up Virginia Works has been a complex process. As additional context, Virginia Works receives very
The transition required merging the efforts of several minimal state funding (~$5.4 million total in FY26 from
programs who have their own activities, norms, and General and Special Funds) 67 and is largely funded by
operating cultures; ensuring alignment of programs federal funding (~$65 million in FY26), 68 which has been
across agencies (Virginia Works programs, programs at declining in recent years. The total discretionary dollars
other agencies), supporting the local boards, and available statewide each year is approximately $2
serving several different stakeholders (jobseekers, million, which enables the agency to implement new
employers, sister agencies, federal program managers, ideas, fund non-federal activities, (e.g., apprenticeship
policymakers). It is important to recognize that Virginia applications, branding, and provide grant opportunities
Works is still in its first year of full operation. As with to LWDBs). In addition, some of this funding must be
any major re-organization, realizing the full benefits of reserved for contingency plans. Given the constrained
integration will require time, continuous learning, and funding environment, it is important to note that many
ongoing investment in operational capacity. of the recommendations detailed below are contingent
on additional appropriations, either from state or
federal sources, to accomplish them.
66
Virginia Works
67
Virginia Works provided data on the 2026 budget for the Virginia Department of Workforce Development and Advancement for
the purposes of this report
68
Virginia Works provided data on the 2026 budget for the Virginia Department of Workforce Development and Advancement for
the purposes of this report
44
Section 4:
Organization, powers, duties of Deptpartment of Workforce Development and Advancement
Accomplishments to date • Each program team participated in employee-
led “process improvement sprints,” identifying
Virginia Works has made significant progress in its first pain points and implementing time-saving
year—not only completing the agency’s stand up ahead solutions (e.g., development of a Foreign Labor
of schedule and under budget, but also laying the Housing App resulted in a saving 704 hours per
groundwork for a more integrated, effective, and year)
customer-focused workforce development system. • The agency consolidated five roles in Veterans
Virginia Works was successfully stood up Services, reducing redundancy
• Several systems were automated, including the
Standing up a new state agency is a complex
federal 9130 reporting process (a financial
undertaking. Virginia Works achieved this in four distinct
report sent to the U.S. Department of Labor)
phases, beginning with passage of bipartisan legislation
and several reports for the Economic Info and
and then successfully transferring 12 existing programs
Analytics team. The team used Python to
and establishing four new functions. Key elements of this
automate three time-consuming, manual, and
transition included:
error-prone reports and press releases, saving
• Reorganizing programs into a functional, cross- nearly 100 hours per month of economists’
program structure, grouping them under 14 time.
operational “wards” to mirror the 14 Local • A shared resources model (for graphic design
Workforce Development Areas (and creating an and other services) was introduced across the
East and West division to help organize the agency to streamline internal support functions
state) 69
These efforts demonstrate Virginia Works’ early
• Clarifying roles and responsibilities of the
commitment to continuous improvement, employee
agency based on legislative mandates, including
engagement, and fiscal responsibility. Stakeholders have
strategy development, higher education
also noted positive momentum throughout the standup
collaboration, and workforce data tracking
and launch of Virginia Works:
• Updating leadership roles, onboarding new
staff, and providing transition support through Stakeholders have noted positive momentum,
comprehensive training (e.g., “Virginia Works including Virginia Works establishing a reputation as
101”), staff communications, and leadership collaborative ecosystem leader
development Amid the structural and operational transformation of
• Issuing a new employee handbook to unify Virginia’s workforce system, Virginia Works has begun
practices and expectations across the to establish itself as a collaborative and credible leader
reorganized workforce across the ecosystem. Despite its broad mandate,
Virginia Works has demonstrated a commitment to
Notably, throughout this reorganization, the agency
partnership—with state agencies, local boards,
maintained uninterrupted service delivery with no lapse
education institutions, and community-based
in individual and employer services.
stakeholders. Stakeholders, and particularly those from
In addition to structural changes, Virginia Works other state agencies and partners, report that this
prioritized operational efficiency of its own internal approach is beginning to foster stronger alignment and
operations: shared purpose across entities that had previously
operated more independently.
69
Previously under VEC there were 6 districts that did not Executive Directors. Given the county lines were not drawn
align to the 14 LWDAs. Under this structure, a district the same, there was some overlap.
manager would have to work with 2-3 different LWDB
45
Section 4:
Organization, powers, duties of Deptpartment of Workforce Development and Advancement
The agency has made a concerted effort to improve resource hub for federal workforce support
engagement with LWDBs. Through consistent, efforts. A centralized inbox and webinars have
structured communication, Virginia Works is supported field staff and job seekers—
strengthening relationships with local directors and particularly those affected by layoffs.
board leadership. These efforts include regular • Modernized the Virginia Workforce Connection
“Director Digest” communications, standing calls and customer relationship management tool to
check-ins with workforce directors, and joint planning enhance functionality for individuals and
and strategy sessions to align local and state priorities. employers alike. This has included improving
Virginia Works is also laying the groundwork for the user experience and navigation of the main
improved performance monitoring and transparency landing page, adding a Registered
across the ecosystem. Key initiatives include expanding Apprenticeship module, developing a VOS
participation in the Workforce Data Trust to enable Greeter that automatically checks visitors in as
more comprehensive data sharing, and standardizing they enter Virginia Workforce Centers, adding a
performance measurement across programs through remote electronic signature, and adding an
the statewide metrics framework (as referenced in eligibility explorer to allow individuals to
Section 3.2, Accomplishment #5, ‘Increasing consistency indicate program areas of interest and confirm
of data and metrics tracking’). eligibility (and upload required documentation).
Additional developments planned for the future
As described in Section 3 above, Virginia Works has include a mobile application and Job Seeker
been spearheading a lot of the progress around Engagement module to push alerts to job
ecosystem collaboration. Together, these efforts are seekers that have applied or may be interested
beginning to equip the workforce system with the tools in relevant roles.
and trust necessary for greater coordination, stronger
accountability, and improved outcomes. Growing employer engagement
The agency is conducting activities to the benefit of key Recognizing the importance of employer partnerships in
stakeholders, including: shaping a responsive workforce system, Virginia Works
has taken strategic steps to expand outreach and
Improving tools for individuals feedback loops with industry leaders:
To simplify navigation of and enhance access to
• Developed a sector strategy roadmap, building
workforce services, Virginia Works has modernized its
on the successful Blue Ridge Partnership
digital presence:
model, 70 to guide collaboration with statewide
• Launched VirginiaWorks.gov, consolidating actors within a given industry sector —starting
eight previously separate websites into a single, with the healthcare sector
user-friendly platform to reduce redirects and • Partnered with VEDP and the Virginia Chamber
improve usability. of Commerce to deliver employer webinars,
• Created VirginiaHasJobs.com, which has seen helping businesses understand and engage with
over 273,000 visits. The site provides job workforce services; the agency has conducted
postings, internship and apprenticeship listings, two employer-focused webinars to date in 2025
region-specific employer highlights, and a which had a combined attendance of ~250 (one
70
Blue Ridge Partnership was established in 2019 as a to their strategic goals focused on academic planning,
collective impact model by a core group of dedicated student engagement, advancing IT and workforce analytics,
employers, educators, and community leaders working in the and Carilion Clinic serves as the anchor institution, overseeing
health sciences sector in GO Virginia Region 2 (Roanoke, New efforts to align health sciences education in the region with
River Valley, Alleghany, Greater Lynchburg); today the workforce needs
partnership engages ~75 leaders across committees aligned
46
Section 4:
Organization, powers, duties of Deptpartment of Workforce Development and Advancement
on Registered Apprenticeship and one on tax economic disruptions and events, e.g., Hurricane
incentives) and has upcoming sessions on Helene, plant closures, and federal layoffs. In response
internships, veteran hiring, working parents, to federal layoffs the agency quickly stood up support—
and competing for in-demand talent through including webinars, resource toolkits, and the Virginia
the end of 2025 Has Jobs site, which supported nearly 10,000 impacted
• Strengthened apprenticeship engagement, now individuals and attracted participation from nearly 500
with over 1,900 registered employer sponsors 71 employers. 72 Separately, during natural disasters like
Hurricane Helene, the Rapid Response team
• Increased employer activity on the VA
coordinated with local offices and the Virginia
Workforce Connection (VAWC) platform for
Employment Commission to provide on-site support,
reviewing resumes, posting jobs, and posting
including employment guidance and unemployment
job orders, demonstrating engagement with the
insurance assistance. From July 2025 through June
Commonwealth’s tools for connecting
2025, Virginia Works has responded to over 160
employers and job-seekers
business closures, serving more than 9,000 displaced
Partnering with local boards employees through its Rapid Response efforts. 73
Virginia Works has also demonstrated agility in
supporting local boards, particularly in response to
Recommendations: Transition from early-stage agency standup and collaboration to engagement on
joint strategy and initiatives
Recommendation 5: Continue to hone Virginia Works’ value proposition and brand, and articulate it clearly and
consistently to partners and customers
Articulate agency’s value and priorities mandate, priorities, and services to stakeholders at all
levels—including individuals, employers, local boards,
A stronger public understanding of Virginia Works’ role,
and sister agencies. Outreach efforts must emphasize
authority, and impact is essential to maximizing its
how Virginia Works complements local and partner
effectiveness and ensuring alignment across the
agency efforts, helping to unify and enhance—not
workforce system. While the agency has taken steps to
replace—existing services. When the agency’s strategic
communicate its mission via a Directors Digest to 14
plan is completed (which is currently being drafted), it
LWDA, biweekly calls (virtual calls every other week
should be distributed to communicate the agency’s
with LWDBs, where meetings are led by LWDBs and
strategy and core priorities.
Virginia Works provides updates by functional areas),
and Director strategy sessions (hosted by Virginia Works A clear understanding of the agency’s value and
to hear from LWDBs and provide updates by functional strategy should also help address challenges of the state
area), some stakeholders still report a lack of clarity adding new individual workforce programs to other
about its purpose and value proposition. agencies. The General Assembly should maintain its
commitment to having Virginia Works serve its intended
To improve understanding across the workforce
role of strategic coordination.
ecosystem, Virginia Works should clearly articulate its
71
Internal briefing materials on Virginia Works’ 73
Virginia Works provided data on the number of individuals
accomplishments and goals’ and employers they served during business closures for the
72
Virginia Works provided data on the number of individuals purposes of this report
and employers that participated in Virginia Has Jobs events
for the purposes of this report
47
Section 4:
Organization, powers, duties of Deptpartment of Workforce Development and Advancement
Clarify branding looks like—and consistently measure and communicate
its impact across the workforce ecosystem. The
Brand confusion remains a persistent challenge,
agency’s first step should be to reference the agency’s
particularly between Virginia Works and VA Career
strategic plan (referenced above) to ensure any key
Works, the more widely recognized brand at American
performance indicators (KPIs) selected align to the
Job Centers (AJCs). Consistent nomenclature around
agency’s vision, mission, and long-term goals. From
state and local resources available to job seekers and
there, Virginia Works should identify a focused set of
employers is necessary to improve the customer
KPIs that reflect its contributions to:
experience. Limited investment in branding to date has
led to inconsistencies in how and where the Virginia • Individuals (e.g., number securing employment,
Works name is used. Today, job seekers experience time to employment, wage growth)
confusion on where to go for assistance and interpret • Employers (e.g., number served, jobs filled,
there to be differences in support offered across employer satisfaction / Net Promoter score)
differently-named destinations. For example, while AJCs
• The economy (e.g., high-priority talent gaps
(as defined earlier) across the Commonwealth have the
filled, economic ROI of services)
same mandate and serve the same functions, they are
known to their communities by a myriad of names, Tracking and reporting on these metrics will allow the
including but not limited to: agency to link its inputs (e.g., number and location of
personnel, facilities, programs, technology, funding /
• American Job Centers
spending) to outcomes, thereby showing its ROI.
• VA Career Works job centers Virginia Works should also develop an annual impact
• VA Career Works offices report to present this data alongside qualitative insights
• One-stop offices and customer success stories (and this report could be
incorporated into the required annual report to the U.S.
• Unemployment offices
Department of Labor and Virginia Board of Workforce
To address this Virginia Works and the Virginia Board of Development). This will help build transparency, foster
Workforce Development should lead the development public trust, and illustrate the agency’s evolving value
of a cohesive, statewide brand strategy, which Virginia proposition.
Works has already begun. This includes adopting a
This impact measurement framework would also
single brand identity, and applying it consistently across
strengthen alignment with VEDP’s “Top State for
all materials, websites, offices, and signage, which will
Talent” initiative. For example, tracking employer Net
reduce public confusion and build credibility. However,
Promoter Score (NPS) over time can help measure how
executing this strategy will require support from the
workforce services are improving employer satisfaction
General Assembly, including investment in design,
and perceptions of Virginia’s talent pipeline. This data
communication, and implementation to roll out
transparency can help the Commonwealth make
consistent branding across the Commonwealth.
continued investments in employer satisfaction, and
Track and report agency KPIs and impact help VEDP continue to attract businesses to the
To solidify its role and ensure ongoing support, Virginia Commonwealth.
Works must clearly define what success for the agency
Recommendation 6: Develop mutually-reinforcing, trusting partnership with LWDBs, supporting grant applications,
convenings, best practices and content, data and insights, and providing an integrated, seamless, omni-channel
customer experience
Virginia Works’ effectiveness depends not only on from LWDBs, which provide a feedback loop and
statewide strategy but also on alignment and buy-in transparency around local needs and are critical to
48
Section 4:
Organization, powers, duties of Deptpartment of Workforce Development and Advancement
implementing priorities on the ground. While both best practices, tools, and shared resources, and
Virginia Works and LWDB leaders report progress, there capture and disseminate best practices and
is an opportunity for enhanced partnership, with lessons learned across local boards.
Virginia Works clarifying its role and activities to • Actionable Insights: Leverage the
support local efforts, and local boards in parallel Commonwealth's data and analytics assets
building capacity to take advantage of Virginia Works’ including the Workforce Data Trust, VOEE,
offerings. VLDS, and the EIA team to provide consistent,
Partnership with local boards timely, digestible, and actionable information to
state and region-level leaders, and advisory
Virginia Works should deepen its role as a strategic support to inform strategy, programming, and
partner to local boards in several ways: partnerships
• Grant Application Support: Build on recent Grant Collaborating on employer-facing services
Opportunity Digests (compilations of funding
opportunities) to support boards with federal As referenced in the LWDB section below,
and philanthropic grant applications. This might Recommendation 4, there is also a role for Virginia
include sharing templates and offering technical Works to play in convening LWDBs (and their business
expertise, including trainings, to increase access services teams) and other state actors that support local
to funding. Virginia Works recently hired and players (e.g., VEDP, VCCS). The aim of this is to align
onboarded a Grants Development Manager, who across actors on which employer services to bring to the
will focus on supporting LWDBs (and others in table, create a unified set of marketing materials,
the ecosystem) with these activities. coordinate outreach on behalf of the entire group, and
refer employers to the appropriate actor for specific
• Convening and Knowledge Sharing: Host peer
services.
learning sessions to enable dissemination of
Recommendation 7: Continue to build internal agency capacity; further embed a culture of collaboration and
customer centricity demonstrated by leadership throughout all levels of the organization, with an initial focus on Title
III Career Navigators
Internal operations and culture • Improve retention through professional
development, visible career pathways, and a
As Virginia Works continues to mature, its long-term
culture of recognition and empowerment
success depends on strengthening internal operations
and cultivating a culture centered on customer service. Operationally, Virginia Works should continue to embed
Investing in people, process improvement, and front- cross-functional collaboration by coordinating how
line service delivery will enhance consistency and internal teams (program team, monitoring team, grant
credibility statewide. admin team, IT team, policy team, etc.) work together
to meet customer needs. Examples include the Rapid
To foster a cohesive, mission-driven workforce, Virginia
Response Program, which is currently developing a
Works should:
transformation plan (and beginning to examine data to
• Upskill staff in proactive, customer-centered measure the impact of this plan), rethinking how they
service delivery and support their evolution from will provide layoff aversion assistance, and considering
transactional roles to strategic partners how they can collaborate with the Registered
• Strengthen internal culture and connection to Apprenticeship program to provide business outreach.
the agency, especially among staff who remain In parallel, it can:
through leadership transitions—building a
strong foundation for continuity and innovation
49
Section 4:
Organization, powers, duties of Deptpartment of Workforce Development and Advancement
• Redesign procedures and systems using data ensure interaction with these Title III staff is a positive
and tech to drive consistency and efficiency experience. This can be accomplished via new hiring,
• Streamline key processes and management, training and professional development, and training
managers. Virginia Works should also increase
such as the Eligible Training Provider List (ETPL),
consistency of what Title I and Title III staff are asked to
inter-program referrals, and policy
do across the Commonwealth to minimize geographic
development variation.
• Establish standard operating procedures (SOPs) These front-line staff are the face of the agency for
and a clear, final organizational map to guide many job seekers. Ensuring every interaction is helpful,
internal alignment welcoming, and consistent will greatly shape the
Focus on Title III Career Navigators public’s perception of the Commonwealth’s workforce
development system.
Career Navigators (formerly Workforce Services
Representatives) are the most visible representatives of Focus on strategic collaboration over compliance
Virginia Works at the local level, typically working Virginia Works should also improve trust and
alongside LWDB staff and contractors. Therefore, it is collaboration by continuing to evolve beyond its prior
essential for the agency to invest time and resources in compliance-focused posture (largely carried over from
bolstering this program and boosting Career Navigators’ programs owned by other agencies before the Virginia
professional skills in order to enhance its reputation Works transition) towards one as a strategic partner.
across the Commonwealth and continue to improve The agency can achieve this by investing in customer
culture across the agency. Currently stakeholders report service and collaboration training for staff—many of
variation in quality of Career Navigators, but given they whom transitioned from legacy agencies; involving
are state employees, local leaders in centers have limited LWDBs early in new initiatives, from design through
influence in quality improvements. Career Navigators implementation; and responding quickly and
should work to deliver integrated concierge services to consistently to local board needs, reinforcing that
individuals, including via collaboration with other local Virginia Works is a partner, not just a regulator.
board and state agency staff, and Virginia Works should
Recommendation 8: Lead rollout and ongoing enhancement of technology solutions across the ecosystem to improve
reach and experience for individuals and employers
Tech for individuals employers—will help more individuals connect
with opportunities.
Technology plays a critical role in making workforce
services more accessible, efficient, and user-friendly for • Support local adoption of proven tools (e.g.,
both individuals and employers. Virginia Works has LinkedIn) by evaluating opportunities for
made strong initial progress in this area and now can statewide licensing or integration with Virginia
deepen and expand its digital strategy to further Works platforms.
modernize service delivery. • Further consolidate VirginiaWorks.gov into a
unified, easy-to-navigate platform. Minimizing
To make services more intuitive and impactful for job
redirects and eliminating site fragmentation will
seekers:
improve navigation for users.
• Continue enhancing Virginiahasjobs.com by • Continue modernizing VAWC with career
expanding content (adding information on navigation tools, resume builders, and emerging
internships, apprenticeships, local employers), modules like AI-powered upskilling, improving
improving usability, and increasing user traffic. both access and job readiness for users across
Additional resources—such as listings for
the Commonwealth. Completing plans to add
internships, apprenticeships, and region-specific digital signature and document upload
50
Section 4:
Organization, powers, duties of Deptpartment of Workforce Development and Advancement
functionality will also improve usability and identify shared leads. A unified system would also
value of the tool. support cross-regional collaboration—reducing
duplication and presenting employers with a seamless
Tech for partner agencies
experience across the Commonwealth. However, this
Current referrals between workforce programs and would require significant investment and change
partner agencies often rely on paper or email, limiting management.
follow-up and data tracking. To enhance tools for
A unified system for tracking individuals served would
partner agencies, Virginia Works should:
also provide significant benefits to the Commonwealth.
• Explore using VAWC to host a centralized, cross- Currently, while some programs use VAWC as their CRM
agency referral system for individuals, and it can track them once they are
• Ensure referrals are trackable and linked to registered, it is not universally adopted. This leads to
outcome data, especially for individuals gaps in understanding what services an individual has
referred across agencies received or which programs they have engaged with.
• Engage partners in the system design to ensure Additionally, the use of varied platforms and tools
broad participation and reduce service gaps across the workforce ecosystem makes it challenging to
determine the total number of unique individuals
Tech for local boards to track employers and served. Virginia Works has an opportunity to build on
individuals existing initiatives, including through the Workforce
Many local boards currently use inconsistent systems Data Trust, to integrate the data architecture and
(e.g., Excel, Salesforce) to track employer interactions, establish a single system of record across all programs.
limiting coordination. To leverage technology for Such a tool would allow agencies to access a
employer engagement, Virginia Works should lead comprehensive view of an individual’s service history,
adoption of a statewide employer CRM, standardizing enhancing coordination and improving service delivery
how boards log outreach, track engagement, and across the system.
51
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Operations of LWDB and geographic areas served by boards
Section 5:
Operations of LWDB and geographic areas
served by boards
52
Section 5:
Operations of LWDB and geographic areas served by boards
Operations of LWDB and geographic areas served by boards
Context / description
At the local level, customers can access services through market dynamics, institutions and number of
different entry points. Many of these entry points (e.g., community colleges, infrastructure, number and size of
American Job Centers, local boards, community employers, and industry / sector mix, have resulted in
colleges) serve both individuals and employers, while local workforce systems that vary substantially in terms
additional organizations, such as economic developers of capacity, capabilities, and scale of impact.
and business entities (e.g., chambers of commerce)
Some boards benefit from robust infrastructure, more
provide primarily employer-focused services.
diversified funding (vs. 100% reliance on WIOA),
Operations at the local level are complex given the experienced leadership, and strong employer networks.
multiple entry points and multiple services, including Others face limited resources, rural dispersion, and
access to WIOA programs, grant-funded programs run fewer institutional partners—making it more difficult to
by LWDB staff, programs administered by Virginia consistently deliver high-quality services. To ensure all
Works (e.g., Reemployment Services and Eligibility Virginians receive equitable support regardless of
Assessment, Rapid Response), and many other region, continued investment in board capacity,
programs provided by partners. Some programs are technology, and state-local alignment will be essential.
housed within one-stop AJCs, while others are part of However, it is important to emphasize that continued
the broader local ecosystem. This, coupled with regions investment in boards is reliant on increased state
that are very different in terms of geographic size, support and funding.
population, demographics, wealth, funding, labor
Accomplishments to date
LWDBs are not only central to the delivery of workforce employed two quarters after they conclude the
services across Virginia—they are demonstrating program, with median quarterly earnings of $7,550. The
progress in accomplishing job attainment goals while higher employment rate of Title I is likely attributable to
adapting services to meet the unique needs of their the fact that Title I participants have access to
communities. dedicated case managers and training programs,
whereas Title III provides a broader but “lighter touch”
At a system level, and among those who utilize local
set of services focused on finding a job, and support can
workforce services, local boards are helping individuals
be as one-off as a single resume review session.
secure employment and satisfaction is high
Notably, employment rates and median earnings vary
Recent analysis confirms that the local workforce little by race or education level, with exiters seeing
system is successfully helping most of the individuals it comparable outcomes regardless of background.
reaches find jobs. There are strong employment However, it is important to emphasize that these
outcomes across WIOA programs, with minimal earnings are primarily from low-wage jobs below the
variation based on participant background, and poverty line. In the future, it will be important to track
participants express high satisfaction among job seekers the system’s success in helping individuals secure jobs
utilizing AJCs, reflecting effective service delivery. at 150% to 200% of the poverty line (likely from
Approximately 81% and 70% of individuals who exit employment in long-term careers or skilled trades).
WIOA Title I and Title III programs, respectively, are
53
Section 5:
Operations of LWDB and geographic areas served by boards
The survey conducted for this report indicated that job webinars, digital job boards, and remote career
seekers who referenced that they used a state-run job counseling. Service modes are adapted based on local
center are also pleased with their experience, with infrastructure—for example, maintaining in-person
minimal variability across geographies. Survey offerings in areas with limited broadband. Some regions
respondents reported high overall satisfaction, with an go further by extending services into correctional
average score at 4.32 (on a scale of 1 for highly facilities, using resource fairs to inform incarcerated
dissatisfied to 5 for highly satisfied), and with individuals of opportunities available post-release. This
satisfaction levels tightly ranged across the different ability to customize service delivery based on local
types of services that job seekers received. One relative conditions is a critical strength of the decentralized
outlier was income level: lower-income job seekers model.
were slightly less satisfied with the services they
Some workforce boards are using innovative
received than their higher-income peers, though their
approaches to funding. For example, the Hampton
overall satisfaction level (4.0) was still high. Survey
Roads region is tapping into new, non-WIOA funding
respondents also indicated satisfaction with the roles
sources (which now comprises ~70% of their funding) 74
they received at the end of their search (average of
to support greater innovation and collaboration with
4.25, with minimal variability across regions).
the community college system. Others are participating
Post-pandemic, many LWDBs have retained or in local coalitions like WorkforceCoalitionRVA in the
expanded virtual service delivery. Most offer online Capital Region.
Recommendations: Support and enable partnership among LWDBs and others in local workforce
ecosystems to deliver the best possible experience for individuals and employers
Recommendation 9: Collaboratively define what an effective local workforce development ecosystem looks like. Use
this as a basis for constructive ongoing state-region dialogue that spans systems (e.g., economic development,
workforce, education, social services in dialogue together)
Developing a common framework institutional landscape, and population needs. This
process should enable the right balance of consistency
LWDBs are central to implementing workforce strategy,
across LWDBs and local ownership of the vision and its
yet the system currently lacks a shared definition of
execution. Rather than a prescriptive structure, the
what success looks like at the local level. Establishing a
framework should capture essential outcomes and
common framework for effective workforce
components that must be present in order to reach
development—while allowing local flexibility—would
those outcomes. It will be necessary to refresh this
improve consistency, collaboration, and accountability
process every few years to ensure that the definition
across the Commonwealth.
remains relevant to individuals and employers in the
To support clarity and alignment, Virginia Works should face of evolving workforce dynamics.
facilitate a process to convene state and local
The developed definition should include both outcomes
stakeholders from workforce agencies, higher
(performance today) and system enablers, which speak
education, economic development, and community
to a region’s ability to sustain and improve its
partners to build a framework for effective workforce
performance over time:
development. Virginia Works should then support each
Local Workforce Development Board in adapting this
framework to fit its unique economic conditions,
74
Expert interview conducted as part of report research
54
Section 5:
Operations of LWDB and geographic areas served by boards
• Outcomes (for the workforce ecosystem to understood and used across stakeholders in
achieve) the ecosystem
o Closing supply-demand talent gaps in the o High quality training options that are
region, with priority focus on high-demand responsive to labor market and employer
industries, specific skillsets, and/or “high needs, and support strong jobseeker
economic value” jobs or roles employment outcomes
o Building a pipeline of workers for the jobs of o Effective individualized support models
the future (e.g., adapting to forward- (e.g., case management, advising) that
looking needs and/or skilling / upskilling the reach all job seekers who need them
incumbent workforce) o Clear and accessible physical and virtual
o Successfully serving a large proportion of access points for customers and
job seekers with barriers to work (i.e., stakeholders
enabling individuals served by the
Tracking local KPIs
workforce development ecosystems to
overcome the barriers they face and find Once the characteristics of effective workforce
high quality, living-wage jobs); and a development are established, local Boards can track their
growing percentage of employers seeking region’s progress against those elements and KPIs.
talent Virginia Works should provide support and tools to
o Delighting customers with excellent service LWDBs to enable consistent and efficient measurement,
as a core part of the metrics effort described above. This
and a high-quality set of services, including:
framework also can serve as the basis for regular
Training and upskilling (job seekers)
dialogue between regions and the Commonwealth. This
Individualized advising / case dialogue should bring together state and local leaders
management and wraparound services across systems (e.g., education, workforce development,
(job seekers) economic development, social services). Virginia Works
Talent matching and development should collaborate with sister agencies to establish a
(employers) process for this regular dialogue with each region. The
• Enablers (to allow the system to achieve its objective of this dialogue is to hold regions accountable
goals over time) for progress and collaboration across systems, to enable
collaborative problem solving that unblocks barriers to
o An active coalition that prompts effective
more effective workforce development, and to provide
collaboration across all workforce
state leaders with actionable feedback on how the
development actors in the region, with
Commonwealth can more effectively enable local
clear roles and responsibilities for different
progress.
actors in the ecosystem
o Accessible localized data on workforce
needs and talent supply that is broadly
Recommendation 10: Support an integrated, seamless, omni-channel customer experience for individuals and
employers including integrated case management and service delivery, and tech-enabled options
Integrated, seamless, and consistent local job centers is high-quality and consistent across
sites. Individuals and employers, regardless of where
There is still opportunity to create a more seamless and
they are located across the Commonwealth, should
consistent experience for individuals across the
have a consistently high-quality experience interacting
Commonwealth, ensuring individuals’ experience with
with the workforce system.
55
Section 5:
Operations of LWDB and geographic areas served by boards
To ensure that all job seekers receive dependable, are a job seeker’s first point of contact and
professional service, Virginia Works and local boards make the judgment call about what other
should define and implement minimum service services or center partners the job seeker
expectations across all American Job Centers (AJCs), should engage. Title I and center operations
including: staff do not always have visibility when job
seekers are referred to other center-based
• Standardized and minimum weekly operating
staff, so they cannot verify if Title I services are
hours, with consideration for evening or
being offered to all eligible individuals or if
weekend availability where feasible, and staff
services are being duplicated. This inconsistency
working in-person to support customer needs
in services is the motivation behind the
(vs. teleworking).
recommendation in Section 4.3 for Virginia
• Streamlined intake and navigation, with low Works to prioritize improvements among Title
wait times and effective resolution by the first III Career Navigators, with the aim of providing
staff member a customer interacts with, as well more integrated concierge services.
as use of shared technology tools for client
onboarding, referrals, and data collection. The customer experience could be improved by
removing silos between Title I and Title III service
• As referenced in Section 4.3, Virginia Works
delivery, either through structural changes or
should provide support to ensure branding at the
realignment of ways of working across center-based
local level is consistent across centers.
staff (today, AJCs do the latter to varying degrees). As a
Within AJCs, staff funded by both Title I and Title III are structural change to enable more integrated support,
part of the broader team that delivers services to assist Virginia Works could explore having the same staff
individuals with their job search. In most regions, Title members deliver both Title I and Title III services by
III staff, who are employed directly by the state, are having them hired by and reporting through the same
more likely to sit in a resource room and work with chain of command, but in doing so, would need to
individuals with basic job search needs, such as resume recognize and accommodate federal regulations
review and accessing VA Workforce Connection. Title I governing the staffing of Title III. For revised ways of
employees, who are employed directly or via contract working: Virginia Works should partner with the LWDBs
by the LWDBs, tend to work as case managers to to explore opening new channels of communication and
connect eligible individuals with education and training collaboration across staff members, drawing on best
opportunities – but these roles may differ by center. It practices in certain LWDAs that already have a more
is possible that many job seekers could be eligible for integrated approach.
support from and benefit from the support of both
Wraparound supports
Titles as part of their job search.
Many Title I and III participants face at least one barrier
Title I and Title III staff have different reporting lines to
to employment. Simply enrolling these prospective
the LWDBs and Virginia Works, respectively, which in
workers in a training program or providing them with
some LWDAs have created silos that result in
job-search specific advice is insufficient; many also
fragmented experiences for individuals. Examples
require supports to address basic needs (e.g., access to
include:
childcare, professional clothing, transportation
• Job seekers must interface with several subsidies) that enable the (re)entry into the workforce.
different staff members to receive similar While the LWDBs can facilitate the provision of some of
services, increasing friction and delaying the these wraparound supports, they can also leverage the
relationship-building process. Commonwealth’s other social service agencies, which
• Individuals receive duplicated or inconsistent may already be engaging this population as well.
services. In many centers, Title III employees
56
Section 5:
Operations of LWDB and geographic areas served by boards
When staff do not have visibility into services received Tech-enabled options
across systems, case management across agencies and
Ensuring accessibility for all Virginians means providing
systems is not well-integrated. There are several major
multiple modes of service—in-person, online, hybrid,
downsides:
and mobile—tailored to community needs and
• Staff cannot coordinate across agencies to help capacities. In rural or transportation-limited regions,
jobseekers to work toward common goals local boards may explore mobile service delivery
• Staff may unknowingly replicate the same through vans, libraries, or community centers.
services Some LWDBs have the ability to administer WIOA Title I
• Job seekers need to share the same information services in a fully virtual manner. Other regions have
with different agencies, resulting in a elements of virtual support for WIOA participants (e.g.,
diminished customer experience online orientation videos, connection to a case
manager), but require in person meetings for certain
Some regions are starting to adopt a more integrated
paperwork or signatures. Areas that have not or have
approach to case management, with coordination
only partially scaled up virtual services for Title I have
happening beyond the intake process and throughout
shared several concerns, including:
service provision for job seekers. Many have cited
referrals from other agencies as one of the primary • They do not have a secure way to collect
reasons the centers receive inbound foot traffic, along sensitive information virtually
with physical proximity. For example, in Alexandria / • They have concerns around access, since there
Arlington, the AJCs are in the same building or nearby is limited broadband access in their region
other social service agencies, making it easy for
individuals to access other services if they are referred While in-person support should remain available to all
there. job seekers, the enhanced flexibility of the virtual
option enables LWDBs to better serve those who prefer
To promote more integrated case management, Virginia remote services – especially youth who are used to and
Works should explore several different angles, including frequently prefer virtual interfaces, and individuals with
encouraging affiliate and comprehensive site co- caregiving responsibilities. Regardless of location, all
location with other agencies or with community regions and centers should work to enhance digital
colleges, and recommending strategies and approaches options such as remote career counseling, virtual
to referrals among different social services agencies and workshops, and AI-driven resume tools.
community organizations (currently happening in
Alexandria / Arlington, where majority of their foot To make it more viable for regions to offer virtual
traffic is referrals from partner agencies). To facilitate options, the state could provide guidance on the most
greater communication and coordination while cases secure and effective ways to intake and process
are active, the state can explore technological solutions sensitive information through the web. In addition, the
that give agencies appropriate visibility into peers’ state could host trainings for local staff to increase
efforts. Any solution of this nature will require extensive familiarity and comfort with virtual options and
consultation across the relevant agencies to ensure that spotlight the learnings of regions already successfully
it is additive and fit-for-purpose. Virginia Works should offering virtual services. One such learning is that while
also help broker connections or formalize the process of broadband access may be limited in parts of the state,
connecting individuals across agencies to each other, so most individuals can still access the internet via
that, once they have a sense of how each plays a role in smartphone, so having a phone-based interface is
supporting certain individuals and/or populations, they crucial. The state may also consider subsidizing
can align on how best to coordinate. implementation of a secure virtual platform across all
regions.
57
Section 5:
Operations of LWDB and geographic areas served by boards
A flexible, omni-channel strategy—built on the right models, Virginia can offer a unified customer
technological and operational foundations—will extend experience that adapts to local realities while upholding
the reach and impact of the workforce system, shared expectations across the Commonwealth.
especially for underserved populations. By
implementing consistent standards, integrating
professional services, and scaling inclusive delivery
Recommendation 11: Increase non-WIOA funding to fill service gaps, support innovation, and respond more flexibly
to the evolving needs of individuals and employers
Diversifying funding devising a plan to spend the funds in the required
timeframe (to prevent the need for recapture by the
Sustaining high-quality, innovative services at the local
state). In a recent cycle, Virginia Works had allocated
level requires that workforce boards maintain strong
$1.8 million through two grants with the potential to
and diversified funding. However, many local boards
fund up to 12 proposals. Virginia Works received 18
currently face financial strain, with shrinking allocations
applications, but was only about to issue eight grants
and heavy reliance on WIOA funds. In some places this
because the remaining applicants did not meet the
has created unintended competition between local
terms of the application.
boards and community colleges for limited resources.
Consider other organizational and operational options
Some regions have demonstrated success in
to boost efficiency
overcoming these challenges by tapping into alternative
funding sources, including local, philanthropic, and If local boards are not able to tap into new funding
private-sector funds; partnering with community sources and diversify revenue, some Boards may need
colleges to jointly deliver programs and access shared to consider their viability as standalone entities and
resources; using braided funding models to combine voluntarily seek structural changes that would increase
sources strategically for aligned workforce goals; and the proportion of funds available for service delivery
piloting innovative programs through competitive and improve service quality, through decreased
grants. It is important that boards strengthen their overhead and greater scale. These options could include
financial position by diversifying funding streams consolidation of regions, or shared services with other
(beyond WIOA and state sources) and identifying workforce region(s) and/or sister agencies in the same
operational efficiencies, supported by grant application region (e.g., community colleges, local economic
services from Virginia Works, partnerships with development bodies).
community colleges, using braided funding, etc. Local
By strengthening their financial position and
boards should also dedicate more capacity to
operational efficiency, local boards can better
developing comprehensive plans before applying to
withstand funding fluctuations and continue to serve as
state discretionary funds to ensure they are complying
critical workforce anchors in their communities.
with grant requirements (in order to win the funds) and
Recommendation 12: Proactively drive coordinated employer marketing, outreach, and support across actors through
alignment, collaboration, and transparency
While many actors, including VCCS colleges and VEDP’s employers tend to access the “formal” workforce
Regional Talent Solutions & Business Outreach (RTSBO) system through two main channels.
team, engage with businesses on their talent needs,
a) LWDB Business Services: Per Virginia’s WIOA
Combined State Plan and as set in VBWD policy,
58
Section 5:
Operations of LWDB and geographic areas served by boards
each Local Workforce Development Area is not limited to consulting services, holding
required to have a Business Services Team hiring events for major industries and
whose responsibility it is to drive sector specific populations (e.g., teens), and
strategies within a region, provide local offering labor market information.
employers with human resources solutions, and There are also different approaches to engaging
identify methods to shrink local skills gaps. employers, which include:
Teams are intended to be cross-agency and
o Convening employer round tables or
cross-program, comprised of representatives of
“sector partnership” groups by industry, to
each of the core partner agencies, economic
surface common issues and facilitate
development, and other partners as
sector-wide dialogue and relationship-
appropriate. They are encouraged to help
building
businesses develop relationships with the AJCs,
o Organizing workshops and lectures on
and each partner agency in the AJC has
statutory requirements for creating topics of interest to employers in the region
relationships with businesses and assisting o Individual outreach and coordination on an
clients receiving services through their funding employer-by-employer basis
in finding employment opportunities. While b) Virginia Workforce Connection (VAWC): VAWC
there is no “single point of contact” that is an online portal that serves as a “gateway to
handles intake across all workforce services in employment and labor market information in
the region, Business Services Teams are Virginia. ” It offers many services to employers,
expected to manage relationships with including options to post job listings, search for
businesses in the community in a coordinated qualified employees through an advanced
manner. resume search, analyze labor market
Services offered to employers span the strategic information, and locate business services. Title
(e.g., strategic planning / economic III staff who work in the local regions (but
development, “light” HR consulting) to the report up through Virginia Works at the state
tactical of workforce recruitment (e.g., level) are responsible for adding employers and
accessing untapped labor pools) and retention their open roles to the portal.
(e.g., assessment, training). With only Across these channels, only a small fraction of
guidelines but no prescriptive direction on how employers in the Commonwealth are engaged or
to engage employers, Business Services Teams supported. The employer penetration rate for WIOA
deliver a wide range of service experiences. In funded programs is 6.5%, and 20,513 unduplicated
terms of scope: businesses (or 6.7%) were served by WIOA funded and
o Some regions have a narrow focus centered non-WIOA funded programs. 75 xxxix
on connecting Title I-supported jobseekers
While almost two-thirds of employer respondents were
with employers, such as setting up work-
aware of government run job boards, awareness was
based learning experiences for their Title I
much lower for WIOA programs; WIOA Title I had the
participants, and do not provide any
highest awareness and usage, at only 17% (see Exhibit
consulting services.
22).
o Others have a broad focus, providing a wide
range of employer support, including but
75
DOL
59
Section 5:
Operations of LWDB and geographic areas served by boards
Exhibit 22
Percentage of employer respondents who were aware of / used different resources and
programs76
Mixed feedback from employers on services at state recommend workforce services (see Exhibit 23) and
and local levels only 41% said that engagement from LWDBs and their
centers was helpful and effective (see Exhibit 24). One
Usage aside, employers provided mixed feedback on
contributing factor: only 20% of respondents perceived
the services they accessed at the local level from both
that candidates sourced through LWDA channels were
LWDBs and AJCs and through the Virginia Workforce
high-quality and/or better qualified than those sourced
Connection and other state-run job posting sites. Only a
through other channels.
third of respondents said they would be likely to
76
Question: When you have previously conducted an employee search were you aware of and/or used: Virginia Workforce
Connection, major online job boards, government run job boards, industry specific job boards.; Source: Boston Consulting Group VA
Job-seeker Survey
60
Section 5:
Operations of LWDB and geographic areas served by boards
Exhibit 23 Exhibit 24
Percentage of respondents by likelihood of Percentage of respondents who agree /
recommending government-provided disagree on helpfulness of LWDB Business
workforce services77 Services Teams78
Collaboration on employer outreach and marketing better coordinate marketing and outreach. Some
LWDBs are already doing this effectively with most local
LWDBs are well-positioned to deepen their impact on
actors, although all will benefit from assessing to ensure
employers by leveraging strong local relationships and
that the group is comprehensive and outreach is
aligning more closely with statewide resources. Building a
streamlined. This will enable the ecosystem to serve
more unified, strategic approach to employer
more unique employers and more effectively by
engagement, aligning state and local messaging and
bringing the expertise of all entities to bear.
offerings, and creating joint marketing and outreach
materials will improve outcomes for businesses and This process should also include specific focus on
create more efficient and consistent workforce solutions. employer engagement approaches. The state actors
that coordinate with the relevant local players (e.g.,
At the local level, actors who engage with employers
Virginia Works, VEDP, VCCS) can unite with LWDBs to
(including but not limited to LWDB Business Services
convene employer-facing staff across a comprehensive
teams, Title III employees, community colleges, local
set of actors in each region. Senior leadership buy-in
economic development entities, Virginia Works' Rapid
will be critical to generate the necessary momentum.
Response Team, and the Regional Talent Solutions &
Business Outreach (RTSBO) team of the VEDP) should
77
The question was “How likely are you to recommend state- effective and helpful; Note: Individuals who responded N/A
provided workforce services to your organization,” with a were not shown this question. Disagree is an aggregate of
score of 1 being least likely and 10 being most likely. Scores of strongly disagree and disagree responses. Agree is an
1-3 were collapsed into unlikely, 4-7 into neutral, and 8-10 aggregate of strongly agree and agree responses.; Source:
into likely Boston Consulting Group VA Employer survey
78
Question: The services and resource provided to our
company from local workforce development agencies are
61
Section 5:
Operations of LWDB and geographic areas served by boards
How this looks will vary region by region, but some employers, which could include providing a
aspects of effective coordination could include: comprehensive list of all services offered across
all entities for local employers to reference
• Specialization across actors on which employer
services they bring to the table, to minimize Whereas Virginia Works may focus on strategic
duplication and increase customer clarity relationships with large state employers and businesses,
• Alignment to conduct outreach on behalf of the local boards will concentrate efforts on engaging with
entire group and refer employers to the local employers and bring the best of state resources to
appropriate actor for specific services these companies.
• Creation of a unified set of marketing materials
(including website) to disseminate to
62
Section 6:
Proper role of VCCS in supporting workforce development efforts
Section 6:
Proper role of VCCS in supporting
workforce development efforts
63
Section 6:
Proper role of VCCS in supporting workforce development efforts
Proper role of VCCS in supporting workforce development efforts
Context / description
VCCS plays a foundational role in the Commonwealth’s college students in aggregate, in many regions
workforce development ecosystem. Community community colleges are the primary providers of WIOA-
colleges serve as a critical access point for individuals funded training programs. Their extensive infrastructure
seeking workforce training, operating both as a direct and robust programming position them as pivotal actors
provider of services and as a referral partner through in delivering quality workforce education and
the workforce system. VCCS institutions offer a diverse addressing local talent needs.
array of credit and non-credit programs that prepare
Given the prominence and strengths of VCCS
students for employment in high-demand sectors.
programming and more robust, diverse funding, VCCS
These programs often lead to industry-recognized
community colleges are often able to deliver high-
credentials and include wraparound supports such as
quality services independently with less reliance on
transportation assistance and mental health services to
other state and local workforce entities; this
enhance student success.
independence can sometimes result in less coordination
Stakeholders across Virginia recognize the central role with other state and local workforce partners,
of VCCS in workforce development due to its expansive presenting opportunities to strengthen integration and
reach and accessibility. While the workforce system alignment across the broader workforce ecosystem.
supplies a relatively small proportion of community
Accomplishments to date
VCCS community colleges are successfully and important to help them source and hire talent, and 46%
increasingly delivering upskilling and credential said they were important or very important to helping
attainment to better meet the Commonwealth’s talent them develop, upskill, and reskill talent. Notably,
needs employers referenced community colleges as the most
important actor for sourcing and hiring talent, and a
VCCS community colleges are widely regarded as
close second for developing talent (versus four-year
Virginia’s leading workforce training providers, both in
institutions, economic development organizations, and
terms of scale and quality. Across agencies and
LWDBs). This is underscored by the volume of WIOA
workforce programs, stakeholders consistently identify
Title I participants served by community colleges in
VCCS institutions as their preferred partners for
nearly every region, reflecting their entrenched role in
delivering training. Of employers surveyed, 51% said
the Commonwealth’s workforce landscape.
that community colleges were important or very
64
Section 6:
Proper role of VCCS in supporting workforce development efforts
Exhibit 25
WIOA Title I participants provided training through community colleges, by region 79
Two flagship state-funded programs—Fast Forward and million in tuition assistance, contributing to 95%
G3—have scaled rapidly and earned broad local increases in median wage from pre to post-
support. Fast Forward uses a pay-for-performance completion. 81xli
model (with costs shared across students, the
Program development at community colleges is
institution, and the Commonwealth) to provide short-
increasingly aligned to Virginia’s high-demand occupation
term training at community colleges in 40 high-demand
lists, drawing upon data from Virginia Office of Education
industries, and G3 provides tuition assistance (as a last-
Economics (VOEE). New Fast Forward programs typically
dollar scholarship program) for qualifying students who
require employer backing and approval from the State
are attending community college programs in six in-
Board for Community Colleges, ensuring labor market
demand industries. In 2024, Fast Forward enrolled
relevance. Community colleges are also active contributors
nearly 16,000 students, with a program completion rate
to Registered Apprenticeships, with two serving as
of 94% and a credential attainment rate of 69%.
program intermediaries (Central and Danville) and several
Participants experienced an average wage increase of
serving as active sponsors (Brightpoint, Central, Danville,
nearly $11,000 upon credential completion. 80xl G3,
Germanna, and Piedmont).
targeting high-demand careers for low-income
Virginians, supported nearly 12,600 students with $20.5
79
Note: Mountain Empire CC and Southwest VA CC are in Southwest; New River CC, Virginia Highlands CC, and Wytheville CC are in
New River/Mt. Rogers; Mountain Gateway CC and Virginia Western CC are in Blue Ridge; Blue Ridge CC and Laurel Ridge CC are in
Shenandoah Valley; Brightpoint CC is in Crater; Piedmont Virginia CC is in Piedmont; Central Virginia CC is in Central; Southside
Virginia CC is in South Central; Community College Workforce Alliance is in Capital; Danville CC and Patrick Henry CC are in West
Piedmont; Northern Virginia CC is in Northern; Eastern Shore CC, Germanna CC, and Rappahannock CC is in Bay Consortium; Paul D
Camp CC, Tidewater CC, and Virginia Peninsula CC is in Hampton Roads; Sources: VAWC reports, PY 2022- 2023. Analysis conducted
in July 2024.
80
VCCS
81
G3 Annual Report
65
Section 6:
Proper role of VCCS in supporting workforce development efforts
VCCS’s contributions extend to state-level initiatives, HCA Virginia to develop a new radiologic technology
working alongside four-year institutions on efforts like the degree program.84xliv
Tech Talent Investment Program, which is the
Beyond instruction, VCCS is actively shaping the broader
Commonwealth’s large-scale investment in tech talent,
workforce ecosystem. VCCS hosted the HIRE Ed
with the goal of doubling the number of graduates each
Conference to convene colleges and employers to
year in computer science and related fields. 82xlii The
exchange best practices and highlight successful
system has exceeded its goals in producing computer
partnerships. Many VCCS institutions also collaborate
science degrees, committing to 67 new degrees from 2020
closely with agencies like the Department of Social
to 2023, and producing 203 degrees (300%+ over its
Services to align TANF-funded education and training
target).83 xliii Additionally, colleges have secured targeted
with Fast Forward programming. In some regions,
funding to launch in-demand training programs tailored to
community colleges partner closely with LWDBs and
local workforce needs. For example, nine colleges are
even jointly pursue external funding. These productive
receiving a total of nearly $5 million from the Virginia
partnerships are seen as critical to aligning local
Department of Health to support accelerated nursing
strategies and scaling services to meet local labor
programs, and Brightpoint Community College secured
demands.
nearly $3 million in funding through a partnership with
Recommendations: Grow the reach of VCCS as Virginia's primary workforce training provider, and its
alignment and partnership with others in the workforce ecosystem
Recommendation 13: Expand Fast Forward and other workforce training offerings to provide increased access to high-
value skills and credentials that align with state workforce development priorities, while continuing to improve
outcomes
Increase production of high-value credentials employer demand and aligned with local economic
development goals.
Building on the strong foundation established by VCCS
and its individual community colleges, the Expansion of the Fast Forward and G3 programs
Commonwealth should continue to invest in expanding represents a particularly high-return opportunity. Virginia
access to high-value credentials that meet Virginia’s is home to over 1 million adults with some college but no
evolving talent demands. These credentials are central credential, 85xlv a significant population that could benefit
to enhancing economic mobility for residents and from short-term, workforce-aligned credentials. VCCS
achieving the Commonwealth’s broader workforce leaders report existing waitlists and estimate that with
priorities, particularly in sectors identified by VEDP and appropriate investment from the General Assembly, these
VOEE as most critical—such as healthcare, information programs could expand two- to threefold to meet latent
technology, and skilled trades. demand. Leveraging online and hybrid delivery models will
be essential to scaling these programs efficiently and
To align more closely with Virginia’s strategic workforce
extending their reach to more Virginians.
goals, the VCCS system should be further enabled and
resourced to scale credential offerings in high-demand Ensure continued equitable access
fields. This includes launching new programs in sectors
Importantly, as VCCS scales its workforce offerings,
with acute talent shortages—healthcare being a top
equitable access must remain a cornerstone of this
priority—ensuring that new offerings are backed by
expansion. Roughly 40% of Fast Forward credentials are
82
VEDP 84
VCCS
83
Tech Talent Investment Program 85
National Student Clearinghouse Research Center
66
Section 6:
Proper role of VCCS in supporting workforce development efforts
currently issued in rural areas, 86xlvi demonstrating the supporting broader goals of inclusion and economic
system’s vital role in serving geographically dispersed resilience.
populations. Maintaining—or ideally increasing—this
level of rural access will ensure the benefits of workforce
development are felt across the Commonwealth,
Recommendation 14: Deepen partnerships with other ecosystem players (e.g., Virginia Works, LWDBs) to deliver end-
to-end services for customers while fostering coordination to ensure services are aligned and easy for customers to
navigate
Increase connectivity with Virginia Works, local individuals and collaborates with both Fast Forward and
boards, and partner organizations G3 to cover the costs of workforce trainings for
participants.
To fully realize its potential in Virginia’s workforce
development ecosystem, VCCS must continue advancing Enhanced collaboration should also extend to agencies
its efforts in partnership integration and data like the Department for Aging and Rehabilitative
transparency, including with Virginia Works and other Services (DARS) and the Department for the Blind and
ecosystem players. While community colleges are Vision Impaired (DBVI), to elevate educational pathways
indispensable training providers in many regions, deeper and support for students with disabilities. This could
and more formalized collaboration with LWDBs and other entail these agencies partnering with VCCS disability
partners would enhance service coordination and overall offices to ensure that best practices for accessible
system effectiveness. learning are being implemented in classroom settings,
and that eligible community college students are
In some regions, LWDBs and VCCS institutions already
referred to these agencies for supplemental services
work closely together, but in others, they may operate
that cannot be delivered on campus.
parallel workforce efforts that, while complementary, can
result in redundancies and fragmented service delivery. Continue building local employer partnerships
Greater alignment of VCCS with other workforce
Community colleges must continue building robust, locally
organizations and local boards—through shared referral
relevant employer relationships to ensure programs reflect
protocols, co-developed wraparound supports,
real-world demands. Employers increasingly value
coordinated funding pursuits, and coordinated braiding of
involvement in curriculum development, program design,
funding—would reduce confusion for job seekers, reach
and student engagement, all of which contribute to
more individuals, and maximize shared capacity. Formal
stronger job placement and retention outcomes.
partnerships, underpinned by joint planning and clearly
Coordination between VCCS and local LWDBs’ Business
defined roles, could significantly improve outcomes and
Services Teams can prevent duplicative outreach and
ensure seamless experiences for Virginians navigating the
reinforce a unified approach to employer engagement.
workforce system. A strong example of this is the
Community College Workforce Alliance (CCWA), which is a Most employer relationships with the community
workforce development division of Brightpoint and college system, including industry association
Reynolds Community Colleges. CCWA provides training relationships, are owned by individual community
and certifications to individuals in 12 programs, coaching colleges. (There are a few relationships with major
and career services to promote employability, and training employers handled at the VCCS system level; one
solutions for business with a single front door to seek example is the U.S. Department of Labor grant with
talent and design customized training programs. CCWA Amazon Web Services, engaging seven community
prioritizes accessibility with several virtual options for colleges and coordinated centrally.) The way
86
VEDP
67
Section 6:
Proper role of VCCS in supporting workforce development efforts
relationships are managed is based in part on how • Understand and meet employer needs: The
colleges’ workforce and employer engagement community colleges are keen on maintaining an
functions are structured: evergreen picture of employer needs; often, they
will tour employer facilities and interview key
• More centralized approaches have a college-
leaders to identify workforce gaps and needs.
wide team responsible for coordinating
Colleges then try to fill those needs by curating
employer relationships for both credit and non-
learning experiences (credit, non-credit, or
credit pathways, often with individuals owning
customized to that employer) and/or modifying
specific course pathways (e.g., Career and
or refreshing curriculum for existing courses to
Technical programs). Some of the outreach to
ensure that it stays relevant. At times, some
employers is led by course instructors who have
community colleges will refer employers to other
industry connections. In smaller colleges, rather
actors within the workforce ecosystem, but this
than a college-wide team, the Deans of specific
varies greatly across regions. Understanding
disciplines (e.g., STEM) will drive outreach
employer needs also extends to demand for
across both credit and non-credit classes for the
hands-on learning; by understanding which
industries that fall under their purview.
employers, industries, and jobs value hands-on
• More decentralized approaches see credit and learning, community colleges can ensure
non-credit program leads reach out to students are connected to experiential learning
employers separately through emails, cold calls, opportunities in addition to classroom
and connecting at relevant events, even if instruction, and completing programs as work-
within the same industry. Two staff teams and ready graduates. Overall, VCCS should be directly
separate tracking systems can lead to engaged with business to understand their needs
confusion, though teams are trained to make and train students to business needs. They
referrals as needed. should also involve business, industry, and their
Strong relationships between colleges and employers associations directly in curriculum development
are mutually beneficial. By better understanding the to ensure there is no misalignment in training
skills and competencies desired by employers, and business needs.
community colleges can make their programming more • Connect students to employers: Some colleges
relevant for students and drive enrollment over the have explicit goals around student-employer
long-term; employers, in turn, can have a more active touchpoints (e.g., every student engages with at
hand in shaping their talent pipelines. More specifically, least one local employer before graduation).
strong employer-college partnerships: Practically, this can manifest in different ways:
• Grow awareness of programs: The community inviting employers into the classroom as
colleges conduct outreach to employers in their speakers, running job fairs, arranging
community to help them understand what interviews, curating internships.
programs are available at the college, especially Finally, increased reporting on medium- and long-term
for priority industries. In many cases, employers employment outcomes—such as sustained earnings,
are only familiar with the Associate’s degree industry retention, and career progression—would offer
and do not realize that there are students in invaluable insights for students, policymakers, and
non-credit programs, as well as ways the workforce leaders alike. Integrating this data into the
community college can support them with day- Workforce Data Trust would provide a more holistic view
long workshops or incumbent worker trainings. of workforce effectiveness and inform return-on-
The latter service is also offered by other actors investment assessments for training programs.
in the ecosystem, such as the LWDB Business
Services team.
68
Conclusion
69
Conclusion
identities, articulating a coherent vision for its oversight
Virginia has laid a strong foundation for a collaborative,
and service roles, and building a culture of customer-
modern, data-driven workforce development system
centric service delivery. Continued investments in
that supports individuals, employers, and the
employee training, technology modernization, and
Commonwealth’s economic growth more broadly. The
agency partnerships will be critical enablers of this
establishment and initial momentum of Virginia Works
work. At the local level, Virginia should promote
represents a critical step toward greater alignment,
integrated case management, omni-channel service
efficiency, and accountability across a highly complex
delivery, and coordinated employer marketing while
ecosystem. However, sustaining and expanding this
diversifying funding to support local innovation. VCCS
progress will require continued leadership investment
must also play a more connected role within the
in collaboration, and intentional investments in
ecosystem. This includes collaborating more
strategic planning, capacity-building, data, and tech
intentionally with local boards and continuing to align
infrastructure.
training offerings with the Commonwealth’s highest-
The recommendations offered in this report outline a priority economic sectors.
roadmap for advancing this transformation. These
Ultimately, by solidifying collaborative governance
include developing a cross-agency state workforce
structures, embracing data transparency, and
strategy, improving inter-agency coordination through
maintaining a focus on economic growth, Virginia can
shared performance metrics and digital platforms, and
position itself as a national leader in workforce
leveraging the Workforce Data Trust to generate
development. The work ahead is ambitious, but with
actionable insights. To fully realize the potential of
continued momentum and stakeholder alignment, the
Virginia Works, the agency must clearly communicate
Commonwealth is well-positioned to achieve its goal of
its role within the ecosystem—both to external
being the top state for talent.
stakeholders and internal staff. This includes
distinguishing the Virginia Works brand from legacy
70
Appendix
71
Appendix
Interviews
Group Total Example Organizations
Executive Directors and 29 Interviewed all LWDB Executive Directors twice, including interim Executive Directors
LWDBs
Partners 29 Virginia Works, DARS, DOE, VDSS, VEC, DOC, , DVS, DBVI, local economic development
entities, Goodwill Rappahannock, VEDP, WorkED Consulting, Virginia Chamber of
Commerce
VCCS and community 12 VCCS system office, Virginia Western CC, Virginia Peninsula CC, CCWA (joint venture of
colleges Reynolds and Brightpoint CCs)
Data 5 VAWC, Virginia Works staff
Employers 7 Amazon, BWX, Newport News Shipbuilding, Associated Builders and Contractors,
Virginia Manufacturers Association, Carilion Clinic, IEC Chesapeake
Job seekers 3 Individuals who visited AJCs
Site Visits
Group Total Sites
LWDAs 8 Alexandria / Arlington
Bay Consortium
Greater Roanoke
Capital
Crater
Hampton Roads
New River/ Mt. Rogers
Northern Virginia
Community Colleges 2 Brightpoint (Community College Workforce Alliance)
Virginia Western
72
Job-seeker and employer survey • Workforce development ecosystem staff and
stakeholders: ~300 individuals across all regions
This report references insights from three surveys
of the Commonwealth who deliver workforce
launched in June 2024 to inform this research effort.
development services to job seekers and
These surveys reached three critical populations:
employers, across both state and local actors
• Job seekers: ~1000 individuals who started a and programs. This includes but is not limited to
new role in Virginia in the last 5 years. 87 22% of LWDB Board Members, program staff across all
respondents lived outside Virginia at the WIOA Titles, local economic developers, VCCS,
beginning of their job hunt; the remainder that community-based organizations, and local
lived in Virginia at the time are representative elected officials.
of Virginia’s population on gender, age,
How workforce is governed at the state and local
geographic distribution, and educational
levels
attainment. The survey intentionally reached a
broader audience than only those who have The Commonwealth's workforce system is governed by
directly interacted with the workforce system the Governor, Virginia Board of Workforce
(through LWDBs / AJCs) in finding or preparing Development (VBWD), chief elected officials, the
for their job, with the intent of understanding Secretary of Labor, Virginia Works, and the LWDBs. The
the full range of job seeker perspectives across Governor receives federal funding for workforce
the Commonwealth and informing development programs and activities, which is then
opportunities to broaden awareness, outreach, allocated to the state or LWDBs based on Virginia's
engagement, and services provided by the Combined State Plan.
ecosystem as whole.
The VBWD, whose members are appointed by the
• Employers: ~300 employers across all regions of governor:
the Commonwealth, contacted through the
state and local workforce system, state and • Approve the state plan
local chambers of commerce, and state and • Review and improve existing statewide
local economic developers. As a result, it is a workforce policies and activities
reasonable assumption that respondents were • Organize within-state distribution of funds for
more likely than the average Virginia employer adult and youth programs
to be familiar with workforce services provided • Prepare some performance reports to DOL
at the local level through any or all of these
entities, positioning them to provide feedback
on how the system works today and how it can
improve. Most respondents were entirely based
in Virginia, roughly 40% of respondents had
fewer than 50 employees in the state, and
annual revenue spanned from small companies
earning less than a $1 million each year to those
earning over $1 billion. Roughly half of
respondents were company executives, with
the next biggest group serving in HR roles.
87
The survey was fielded by Dynata, a third-party company
which specializing in targeting surveys to particular
respondent profiles
73
By law, the majority of the state board’s members As detailed in the Code of Federal Regulations, once
represent businesses, with the remainder being chief appointed and certified, the LWDBs and chief elected
elected officials, labor representatives, and officials’ responsibilities and functions include:
apprenticeship program representatives.
• Delegate local workforce responsibilities
At the local level, the LWDBs and chief elected officials run between the two entities and jointly set policy
workforce development. Each LWDA has a LWDB that is for the local area
appointed by the chief elected officials. The LWDBs have a • Develop the 4-year local strategic plan
similar composition to the state board; members include
• Approve eligible training providers for the
at least 50% business representatives as well as local
eligible training providers list
educational institutions, training organizations, and
governmental and economic development organizations. LWDBs are independently responsible for soliciting and
obtaining grants other than federal funds, developing
one-stop-operator budgets, delivering WIOA Title I
services, and conducting local market analysis.
74
Endnotes
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U.S. Department of Labor. Workforce Innovation and Opportunity Act (WIOA). Employment and Training
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iii
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xvi
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xxiii
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xxv
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xxx
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xxxii
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xxxiii
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xxxiv
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xxxv
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xl
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xli
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Babb, J. (2024, September 25). VCCS construction, program expansions largely fueled by grants and philanthropy.
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grants-and-philanthropy/
xlv
National Student Clearinghouse Research Center. (2025, June 4). Some college, no credential: Student outcomes
2025 report for the nation and the states. https://nscresearchcenter.org/some-college-no-credential/
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Virginia Economic Development Partnership. (2019). It’s Fast Forward for workforce credential training in
Virginia. https://www.vedp.org/news/its-fast-forward-workforce-credential-training-virginia
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