State Leadership Funds (Adult education and family literacy act Section 223 (AEFLA))
AEFLA Section 223(1)(a)
On February 14, 2020, the Iowa Department of Education, Division of Community Colleges and Workforce Preparation released a request for proposals for a five-year federal grant to provide adult education and literacy Section 231 activities and services as well as a proposal for Section 243, Integrated English Literacy and Civics Engagement. Local workforce development areas participated in the review process and provided feedback on the alignment of eligible applications with their local plans under section 108 of Workforce Innovation and Opportunity Act (WIOA). Award recipients completed the first renewal period on June 30, 2022. Also in 2022, as part of the on-site monitoring process, the Department began including tours of one-stop centers. The addition of these tours and introduction of state staff to local core partners during on-site monitoring further promotes the alignment of adult education and literacy activities with the one-stop required partners.
The Iowa State Core Partner Working Group, made up of state policy makers from the Iowa Department for the Blind, Iowa Department of Education, Iowa Vocational Rehabilitation Services, and Iowa Workforce Development, published initial guidance on requirements for local MOUs. In November 2021, local areas submitted MOUs and updated local plans to the state core partners for review and scoring. The state working group delivered technical assistance and guidance for recommended revisions to the plans. At the conclusion of this process all local plans were approved. The MOUs were routed to the Iowa Department of Education for review and signature as the state agency has maintained responsibility for one-stop Title II activities.
The Iowa State Core Partner Working Group under the direction of the State Workforce Development Board (SWDB) completed the one-stop certification standards. The one-stop certification establishes standard expectations for the quality and consistency of customer-focused services provided by partners. The development and presentation of the one-stop certification standards to the SWDB focused on effectiveness, accessibility and continuous improvement. Local Workforce Development Boards will begin the initial round of certifying their centers October 2022 through September 2023.
AEFLA Section 223(1)(b)
Iowa's professional development system is designed to coordinate state-level high quality professional development activities within Section 223(a). The projected impact of professional development on instruction and adult learner outcomes is evaluated by the following criteria:
- Potential for statewide implementation and adoption into AEL instructional strategies, methodologies, and curriculum;
- Long-term improvement in program outcomes measured by the state and local programs’ ability to continually meet negotiated benchmark levels; and
- Capacity to effectively meet participant and program literacy goals.
The state professional development system is managed in coordination with AEL administrators, instructors, and trainers representing all funded programs. A data-driven planning process is used to identify professional development needs and to set priorities for each program year. Iowa emphasized key areas of training in adult education standards, digital literacy, distance education, and English language instruction. Highlights from PY 2021-22 include:
STudent Achievement in Reading (STAR) - STAR continues to assist Iowa’s implementation of evidence-based practices to provide adults with the reading skills they need to achieve their goals in school, the workplace, and their daily lives. STAR training was delivered to 13 participants representing five (33%) of Iowa’s AEL programs.
Teaching Skills That Matter (TSTM) – TSTM trains teachers to integrate important skills using researched based approaches in crucial topics for adult learners. Iowa’s TSTM teacher trainers conducted face to face training at three local programs, presented three workshops at the winter virtual conference and delivered a TSTM strand at the summer AEL conference. All of Iowa’s AEL programs have been able to participate in TSTM training opportunities.
Canvas Training - Upskilling AEL instructors in online course development and delivery in Iowa’s learning management system continues to be a priority. Two cohorts of AEL instructors (26) completed a five part webinar series and created research based content in a sandbox course.
IDEAL Teacher Training - The IDEAL teacher training was built to support teachers using the Iowa Distance Education Adult Literacy (IDEAL) online courses. Participants were immersed in the course content, completed a getting started checklist, learned how to monitor online student progress, and navigated the course assessments. 15 mentor trainers completed the course and are working with AEL providers to deliver the training to local instructors.
Introduction to Assessment for Adult Basic Education - Three local programs participated in targeted assistance asynchronous online training offered through LINCS. It covered formative assessment in writing and formative assessments in math.
Standards-in-Action 2.0 - Instructors and state staff who participated in SIA 2.0 experienced, examined and reflected on instructional models of core academic content in literacy and math for English learners. Instructors explored researched based approaches and were coached on evaluating and adapting their lesson plans to promote collaborative opportunities, scaffolding, and better supporting ELs learning. Instructors from nine (60%) providers completed the training.
Future Directions 2022-2023
Several high-quality professional development activities are planned including:
- SIA 2.0 Curriculum Review for ELA and Math - Participants will learn how to ensure that the content of instruction is aligned to content standards but utilizing a curriculum that is utilized in the state. The interactive training will be offered to all programs.
- Canvas and Online Instructor Training - Canvas and IDEAL training prepare instructors to adapt course content, learn virtual classroom management, and distance education strategies.
- Standards-in-Action 2.0 - Instructors and state staff will examine and reflect on instructional models of core academic content in literacy and math for English learners.
- Teaching Skills That Matter - Iowa will continue to implement TSTM by delivering a TSTM strand at the 2023 summer conference and statewide webinars. The instructor coaches will train an additional 2 instructors to assist in the delivery of the training across the state.
AEFLA Section 223(1)(c)
State leadership funds support the following activities and initiatives in providing technical assistance (TA) to AEL-awarded providers, core partners, and the education and workforce community.
AEL Coordinators - Each year state staff update the Coordinator Handbook, including key areas of WIOA implementation, Iowa AEL policies and best practices in instructional services and program management. The Department conducted the annual training for new and experienced program coordinators in October 2021. Program leaders meet on a bi-monthly basis throughout the calendar year.
Data Specialist - Each year state staff update the data specialist handbook. The handbook is a comprehensive reference on entering data into the Iowa AEL management system (TOPspro Enterprise). In addition, a Data Dictionary is provided to set a statewide standardization of instructions and definitions for the data management system. Data specialists meet with a state consultant every other month to discuss topics such as registration, updates to the data management system, NRS guidelines, year-end performance and assessment policies.
AEL Instructors - AEL instructors participated in TA organized by the Department on Northstar, an online digital literacy program. The TA covered digital literacy standards, assessments, curriculum, self-directed online learning, and how to start incorporating and implementing digital literacy using the Northstar features.
Education and Workforce Community - Iowa AEL is responsive to requests from sector partnerships, Regional Planning Partnerships, and economic development committees. These collaborations expand AEL’s participant pipeline and help connect students to meaningful pathways toward education and careers.
The Department developed and disseminated practices and guidance through multiple statewide targeted webinars. The webinars were based on the Department’s review of monitoring outcomes and on an analysis of key data points associated with provider effectiveness. Targeted TA included :
- A review of IET and IELCE program requirements, measurable skills gain, models of workforce training, eligible training costs, qualifying credentials, and the program approval form for new and existing IETs and IELCE.
- A four part webinar series on AEL strategic approaches to student recruitment and retention. Topics included the student journey to enrollment; social media marketing strategies, student centered approaches for assessment testing, and providing wrap-around student services.
- Pre-monitoring meetings with providers, sometimes referred to as monitoring orientation meetings, include a review of the purpose of monitoring, the monitoring process, guidance documents, submission of supporting documentation, and associated timeline.
Future Directions in 2022-2023
- The Department identified areas for statewide continuous improvement which will be addressed through various activities including the continuation of a series of webinars.
AEFLA Section 223(1)(d)
State staff assess providers’ implementation of the Iowa Program Standards Framework with on-site and virtual monitoring. The risk-based monitoring process allows staff to gauge compliance with WIOA provisions, identify areas of improvement, determine technical assistance needs, and note innovative or promising practices.
In PY2021-22 state staff employed an updated risk analysis tool that incorporated new data elements related to performance, fiscal management, services, assessment, data quality, and Integrated Education and Training (IET). The results help the Department identify which local programs are at high, moderate, or low risk of noncompliance and to administer strategies appropriate for each tier, including virtual monitoring and the development of improvement plans (high risk), virtual monitoring (moderate risk), and consultation with state staff to select and disseminate noteworthy practices (low risk).
The Department conducts an on-site visit to each program during the five-year federal grant cycle (PY21-25), regardless of risk, for a total of three every year. While virtual monitoring involves a targeted review of select standards, on-site visits address all program standards. State staff expanded the on-site schedule to three days, with providers presenting a virtual program overview on the first day, the site visit on day two, and a virtual exit meeting for the preliminary report and discussion on the third day.
The team met its goal of conducting a full monitoring of three programs: Southeastern Community College (3/29-31/2021), Iowa Valley Community College District (4/26-28/2021), and Western Iowa Tech Community College (5/24-26/2021). Nine of the 12 programs received targeted virtual monitoring based on areas of need identified by the annual risk assessment. The remaining three programs consulted with the Department to identify and share a best practice or model with the Iowa AEL community. The ultimate goal for the Department’s monitoring process, regardless of strategy, is continuous program improvement.
AEFLA Section 223(a)(2)
In addition to working closely with the core and required one-stop partners, Iowa’s AEL consultants forged partnerships with organizations whose missions are aimed at improving the outcomes of underserved populations, such as Iowa Literacy Council and United Way among others. The State has used funds for permissible activities including:
- Professional Growth - A web-based professional development platform was used to track that providers are participating in high quality professional development. The system captures, tracks, and reports in the areas of individual professional development plans; completed hours of training; and classroom observations. The observation component is used by local providers to identify professional development needs.
- Virtual Conference - In February 2022 the Department held the Iowa Adult Education Virtual Conference. The two day virtual conference was an opportunity for AEL providers to learn innovative practices in adult education. Providers engaged in sessions about TSTM, integrated digital literacy, cultivating a workplace education program, and expanding the skilled trade pipeline.
- Iowa Adult Education and Literacy Conference – In July 2021 the Department held its annual AEL summer conference. The conference was delivered virtually for the second year in a row. Topics of note were leadership, career essentials for adult learners, innovative classroom strategies, TSTM, and IDEAL. The conference objectives were to strengthen leadership skills, build understanding of state initiatives, expand online instruction, and bring together the AEL community. All sessions were recorded and disseminated to programs for future use as needed.
Performance Data Analysis
Performance Data Analysis
In PY 2021-22, a typical adult education and literacy student served was female (52.4%), employed (50%), a minority (67.8%), averaging 25-44 years of age (51.0%), with the highest year of school completed 9-12th grade (69.8%).
Iowa had a post test rate of 60% this program year with nine of twelve educational functional levels meeting the target and an overall measurable skill gain rate of 49%. We also had an increase in high school equivalency completers with a total of 1,549. Our participants' median program hours is 63 with those making a gain having 94 hours. Both fall within the recommended hours from CASAS, our assessment vendor.
Covid-19 Impact on Performance
Enrollment increased this program year with 9,328 participants and has yet to reach pre-pandemic levels of 11,039.
Distance education participants declined from 30.5% of participants last program year to only 12.8% of participants this program year. That said, it is higher than pre-pandemic levels. Also, the measurable skill gain rate was higher at 51.4% compared to our statewide average of 48.8% this program year and to the 40.0% rate last program year.
Iowa’s Adult Education and Literacy Enrollment
Overall enrollment has decreased 4.6 percent over the past five years with ABE enrollment decreasing 4.8 percent and ESL decreasing 4.3 percent. Participants increased 26.4 percent in PY 2022 with 9,328 participants compared to PY 2020-21 with 7,501 participants. Of the total number of participants that met the NRS guidelines, students in ABE, including ABE Levels 1-6, comprised the largest group by program type with 57.1 percent of the total learners served. Students enrolled in ESL, including ESL Levels 1-6, increased to 42.9 percent from 34.1 percent enrolled. This is a return to pre-pandemic levels in PY 2019-2020 with ABE at 56.1 percent and ESL at 43.9 percent.
Participant Enrollment
|
2018 |
2019 |
2020 |
2021 |
2022 |
|
|
Adult Basic Education |
6,486 |
6,507 |
5,319 |
4,942 |
5,328 |
|
English as a Second Language |
4,761 |
4,532 |
4,159 |
2,559 |
4,000 |
|
Total |
11,247 |
11,039 |
9,478 |
7,501 |
9,328 |
Retention
Student retention is critical to the process of assessing progress. Persistence and sufficient hours increased slightly with 74.5 percent of the 12,529 individuals seeking services persisted for a minimum of 12 or more hours of instruction and a pre-test. Average hours of instruction for the 9,328 enrollees federally reported increased again this year to 74 hours which is up from 67 last program year. This remains less compared to the PY 2018-2019 where the average was 124 hours. ESL averaged the highest with 90 hours while ABE also increased to 62. Using ABE Level 1-5 and ESL levels 1-6, the posttest rate was 60%.
Of the 5,198 post tested, 70.0 percent achieved a measurable skill gain, up from 65.0 percent in program year 2020-21. Of the 663 participants at ABE Level 6, 70.5 percent achieved a measurable skill gain.
Measurable Skill Gains
Of the 9,328 participants, Iowa had 9,492 periods of participation. Of the 9,492 periods of participation, 48.8 percent (4,636) made a measurable skill gain. This is a 10.0 percent increase over PY 2020-2021 and exceeded our overall target of 47 percent.
Measurable Skill Gains
|
Functioning Level |
PY18 MSG |
PY19 MSG |
PY20 MSG |
PY21 MSG |
PY22 MSG |
PY22 Goal |
|
ABE Beginning Literacy |
43% |
36% |
26% |
36% |
39% |
38% |
|
ABE Beginning Basic |
44% |
35% |
31% |
34% |
46% |
45% |
|
ABE Intermediate Low |
44% |
36% |
32% |
37% |
42% |
43% |
|
ABE Intermediate High |
42% |
42% |
39% |
43% |
51% |
45% |
|
ASE Low |
60% |
60% |
48% |
49% |
55% |
60% |
|
ASE High |
69% |
61% |
69% |
70% |
68% |
|
|
ESL Beginning Literacy |
54% |
54% |
36% |
53% |
46% |
45% |
|
ESL Low Beginning |
52% |
50% |
39% |
50% |
53% |
51% |
|
ESL High Beginning |
54% |
47% |
36% |
47% |
45% |
51% |
|
ESL Low Intermediate |
47% |
41% |
33% |
46% |
46% |
46% |
|
ESL High Intermediate |
49% |
48% |
36% |
46% |
49% |
48% |
|
ESL Advanced |
33% |
30% |
26% |
31% |
35% |
30% |
Primary Indicators of Performance
Iowa utilizes a data match process to determine if performance targets have been met for the follow-up core measures. Employment the 2nd quarter after exit was down slightly to 52.3 percent from 53.0 percent the previous program year. Median quarterly wage earnings for 2nd quarter after exit were also down to $6,069 compared to last reporting year at $6,681. IELCE participants continue to have the highest quarterly earnings with $12,773 while IET participants have a high rate of employment at 73.7 percent. Distance learners were employed at 52.3 percent earning a quarterly wage of $5,156. Overall employment in the 4th quarter after exit is 54.5 percent.
Improvements
Quarterly reports have been implemented as an additional check. Our focus on achieving measurable skill gains with managed enrollment and instruction target to EFL proved successful. We exceeded our target of 47 percent measurable skill gains with 48.8 percent.
Future Directions in PY 2022- 2023
- We will continue to focus our attention on managed enrollment and instruction targeted to EFL. Programs are also working on using a statewide student management system to enroll and communicate with students.
Integration with One-stop Partners
The Iowa Department of Education is the state-level entity responsible for Title II. The Department is a member of the SWDB and is represented on all state-level WIOA working groups and committees. Working in collaboration with core WIOA partners, the Iowa State Core Partner Working Group has been engaged in fulfilling the strategic goals of the Unified State Plan. The Working Group continues to work with other partners around service integration to reduce duplication and ensure effective collaboration.
Local AEL providers offer career services at one-stop centers and/or via direct linkages. These include outreach, intake, and orientation; skills and supportive services needs assessment; program coordination and referral; training provider performance and cost information; and information on the availability of supportive services and referrals. Some providers offer direct access to such services as workforce preparation and training at one-stops or nearby classes but have had services interrupted due to the pandemic and in-person restrictions. The applicable career services provided in the one-stop system are documented with WIOA partners and tracked locally to help identify duplication, streamlining efforts, and cost sharing information needed for the MOU. Title II providers have been able to implement remote assessment to determine basic skill needs and have pivoted many services to an online delivery for participants.
Infrastructure costs are not currently supported by local agreements. MOU guidance released in PY 2021-22 did not include Infrastructure Funding Agreement (IFA), as this is still under development and will be published at a later date. State agencies responsible for WIOA have been working together in recent months to develop IFA policy and guidance for local areas. The state AEL team has provided and will continue to offer technical assistance on WIOA laws and regulations.
Future Directions in PY 2022-2023
- Title II will launch a shared statewide distance education curriculum and provide digital literacy instruction and career services accessible at the one-stop centers; and
- Title II will continue to expand career services remotely through the implementation of a new statewide student management system.
- WIOA Core partners will finalize the IFA policy and guidance and provide local implementation training.
Integrated English Literacy and Civics Education
IELCE Funds and grants
On February 14, 2020, the Department released a request for proposals for a five-year federal grant to provide adult education and literacy Section 231 activities and services as well as a proposal for Section 243, Integrated English Literacy and Civics Engagement. During PY 2021-22 five (5) Iowa AEL providers continued to carry out IELCE services with allocations ranging from $25,204 to $70,612. Each year, providers set targets for the number of IELCE participants to be served in the upcoming program year.
Training activity
The Department instituted a statewide steering committee to support continued IELCE and IET implementation. Over the course of 12 meetings, providers and community college leadership clarified state IELCE/IET needs, identified implementation issues, and collaborated on a common model for implementing IELCE and IET services. The steering committee recommended a mentorship committee which will be advising IELCE and IET providers on:
- Assessment of local program needs;
- Professional development and training about employer engagement and addressing in-demand industry needs;
- Marketing IELCE/IET cohorts using data driven strategies; and
- Curriculum and training specific to regional and community needs.
The state also employed professional development as a key strategy for supporting local programs’ efforts to deliver IELCE services in combination with integrated education and training activities. These opportunities ensured the dissemination of information and strategies to program staff for the development and delivery of quality IELCE service.
IET/IELCE Design Camps- Iowa enrolled two cohorts of AEL providers, including some that are funded to offer IELCE services, in the LINCS IET Design Camps conducted in fall 2021 and summer 2022.
IELCE Technical Assistance- The Department provided TA with an emphasis on local employer needs, employer engagement, partnerships, and best practices from successful IELCE providers. Topics included:
- Strategies for providing services and instruction to different EFLs for English language learners;
- Aligning curriculum and training with regional employer needs for in-demand industries; identifying entry to career pathways in sectors such as manufacturing, food processing and construction that correspond with learner’s abilities to improve proficiency and employability;
- The importance of inclusivity and culture to a positive experience for learners and employers;
- How to complete the new IECLE/IET submission approval form which ensures WIOA regulations are being followed for all of our IET/IELCE programs; and
- Guidance on documenting milestone progress to achieve MSGs.
Summer Conference- July 2021 all IELCE providers had the opportunity to attend two pre-conference sessions on the IET design process and the development of a single set of learning objectives.
Future Directions in PY 2022-2023
- Present the IELCE/IET implementation model to the leadership of IELCE provider institutions in December 2022.
- The mentorship committee will continue to advise IELCE/IET providers in collaboration with the Department.
IELCE Section 243(c)(1)
The Department supported services to prepare and place IELCE program participants in unsubsidized employment in in-demand industries through the efforts of a statewide IELCE/IET steering committee (discussed above), collaboration with community college continuing education and career and technical education programs that work closely with employers, and by maintaining strong ties to the workforce system.
IELCE Section 243(c)(2)
Providers are represented on local workforce boards or their standing committees, and have established referral processes with local one-stop centers. Iowa’s Integration with local workforce development systems presents valuable opportunities to promote IELCE as an avenue to address regional workforce needs through program updates to the LWDB and consistent engagement with workforce partners about regional workforce needs.
Adult Education Standards
The Common Core State Standards (Iowa Core Standards) were adopted for all K-12 grade levels in 2010. All federally funded adult education programs in Iowa are required by Iowa’s Administrative Rule 23.7(1), adopted January 14, 2015, to align reading, writing, speaking, mathematics, English acquisition, distance education, and staff training practices with content standards for adult education. These standards include the College and Career Readiness Standards (CCRS), 21st Century Skills, and English Language Proficiency standards. The FY21- 25 Competitive Grant Application for AEFLA (WIOA, Sec 231 and Sec 225) required that all grantees are required to adopt and align instruction to the standards.
The Department organizes professional development activities and carries out an enhanced monitoring process to ensure federally funded adult education programs implement the adult education standards. The monitoring structure includes analysis and observation of the adult education standards in lesson plans, curriculum, and assessment for preparation in transitioning participants to further education or employment.
A challenge to the implementation process is the continuous need for training on the adult education standards. Providers are requesting training on the basics and while also wanting to enhance teacher’s knowledge of the standards through training such as SIA 2.0. This creates a need for both basic and enhanced standards training to be scheduled every year.
Future Directions in PY 2022-2023
- The Department will utilize its enhanced monitoring and technical assistance process to review standard aligned lesson plans for courses, curriculum, and assessments; and
- The Department will continue to deliver technical assistance and professional development by creating asynchronous online courses for basic standard training and for enhanced SIA 2.0.
Programs for Corrections Education (AEFLA Section 225)
The Association of State Correctional Administrators (ASCA) developed definitions and terms used in Iowa’s reporting on recidivism to establish standard performance measures. They defined a measure of recidivism—the return rate to prison—as the percent of offenders released from prison who return within three years. The releases tracked include parole; discharges due to end of sentence; and sex offender releases to special sentence supervision. The recidivism rate for FY 2022 in Iowa was 37.0 percent — a lower recidivism rate than observed in FY 2021 (38.7 percent). Iowa’s AEFLA funded providers enroll participants at state correctional institutions and local correctional and institutionalized facilities. Based on the terms of an MOU and the use of shared state leadership funds, all correctional education programs are accountable to the required WIOA performance, except when excluded, and they are subject to Iowa’s assessment policies.
Corrections and institutionalized individuals constituted 1,421 of the total periods of participation in adult education reported in Iowa and 61.6% of them achieved a measurable skill gain. Access to post testing opportunities due to closures during the pandemic continued to impact performance.
Future Directions in PY 2022-2023
- The Department will continue to work with the Iowa Department of Corrections as part of Ascendium Optimizing Post Secondary Education in Prison initiative to prioritize access to educational services which will include funding for education navigators;
- Clear pathways from basic skills to in-demand industry credentials will be developed expanding access to concurrent services with models of IET/IELCE piloted.