HOUSE OF REPRESENTATIVES STAFF ANALYSIS
BILL #: CS/CS/CS/HB 1507 Workforce Related Programs and Services
SPONSOR(S): Education & Employment Committee, Appropriations Committee, Post-Secondary Education
& Lifelong Learning Subcommittee, Yarborough, Melo and others
TIED BILLS: None IDEN./SIM. BILLS: None
REFERENCE ACTION ANALYST STAFF DIRECTOR or
BUDGET/POLICY CHIEF
1) Secondary Education & Career Development 15 Y, 0 N Sleap Sanchez
Subcommittee
2) Post-Secondary Education & Lifelong Learning 15 Y, 0 N, As CS Sleap Kiner
Subcommittee
3) Appropriations Committee 25 Y, 0 N, As CS Smith Pridgeon
4) Education & Employment Committee 18 Y, 0 N, As CS Sleap Hassell
SUMMARY ANALYSIS
To create a system-wide approach to improve the equity and access for all Floridians to have the opportunity to achieve
self-sufficiency, the bill:
 Authorizes the Governor to seek federal waivers to create greater flexibility and strategic investment in Florida’s
implementation of the Workforce Innovation and Opportunity Act (WIOA).
 Creates the Office of Reimagining Education and Career Help (Office) in the Executive Office of the Governor to
provide coordination and alignment in Florida’s workforce development system.
 Requires the Office to create a “no-wrong-door” entry strategy whereby Floridians may access services from any
workforce partner with a common intake form and case management system.
 Creates a publicly available online opportunity portal to provide Floridians with access to identify in-demand jobs,
the skills needed, where to obtain those skills, available services, and program performance employability and
economic mobility.
 Requires the DEO and the DCF to evaluate the impact of workforce services on participants receiving benefits
and welfare transition programs, to include performance reports on participant earnings.
 Requires local workforce development boards (LWDB) to be assigned a letter grade, which must be made public,
based on improvement of participant long-term self-sufficiency and return on investment.
 Charges the Labor Market Estimating Conference as the entity responsible for determining Florida’s real-time
supply and demand in the labor market.
 Requires the Talent Development Council to coordinate Florida’s efforts to meet state healthcare workforce
needs, by conducting a gap analysis and provide trend information on nursing programs.
 Requires the DEO to establish WIOA eligible training provider criteria focused on participant outcomes.
 Requires the CareerSource state board to appoint a Credentials Review Committee to identify degree and non-
degree credentials of value, develop a Master Credentials List for performance funding, and establish policy
direction for funding which prioritizes outcomes and leverages resources to support vulnerable populations.
 Creates the Open Door Workforce Grant Program to provide grants to school districts and Florida College
System (FCS) institutions to cover up to two-thirds of the cost of short-term, high-demand programs.
 Creates the Money-Back Guarantee Program, requiring each school district and FCS institution to refund the
cost of tuition to students who are not able to find a job within 6 months of completing select programs.
 Creates a new workforce performance funding model for school district and FCS institution workforce programs,
requiring one-third of performance funding to be based on rewarding student job placement and the remaining
two-thirds be based on student earnings, with a focus on increasing the economic mobility of underserved
populations.
 Requires that students entering a public postsecondary institution in 2022-2023, and thereafter, must be able to
earn nationally recognized digital credentials for competencies within the general education core courses which
demonstrate career readiness.
The bill has a significant, negative impact on state expenditures. See Fiscal Section for additional detail.
The bill provides an effective date of July 1, 2021.
FULL ANALYSIS
This document does not reflect the intent or official position of the bill sponsor or House of Representatives.
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 I. SUBSTANTIVE ANALYSIS
A. EFFECT OF PROPOSED CHANGES:
Florida’s Workforce Development System
Present Situation
The federal Workforce Investment Act of 1998 (WIA) was passed by Congress in an effort to improve
the quality of the nation’s workforce through implementation of a comprehensive workforce investment
system.1 WIA required each state to establish an investment board at the state level and to also
establish workforce investment boards to represent local service areas.2 WIA also called for the
delivery of workforce development services through a system of “one-stop” centers in local
communities.3 Some key principles of WIA were to better integrate workforce services, empower
individuals, provide universal access to participants, increase accountability, and improve youth
programs.4
In response to WIA, Florida established a workforce development system (WDS) under the Workforce
Investment Act of 2000.5 The act aimed to better connect the state’s economic development strategies
with its WDS and to implement the principles of the federal WIA.6
Federal Workforce Innovation and Opportunity Act of 2014
In 2014, Congress passed the Workforce Innovation and Opportunity Act (WIOA), which superseded
the Workforce Investment Act of 1998.7 WIOA requires each state to develop a single, unified plan for
aligning workforce services through the identification and evaluation of core workforce programs.8 In
general, WIOA maintains the one-stop framework of WIA, and encompasses provisions aimed at
streamlining services, easing reporting requirements, and reducing administrative barriers.9 WIOA
officially became effective on July 1, 2015, the first full program year after enactment.
Core Programs
WIOA identifies four core programs, Titles I – IV, which must coordinate and complement each other in
a manner that ensures job seekers have access to needed resources.10 The core programs are:
 Title I - Adult, Dislocated Worker and Youth Programs;
 Title II - Adult Education and Literacy Activities;
 Title III - Employment Services under the Wagner-Peyser Employment Act; and
 Title IV - Vocational Rehabilitation Services.
Performance Measures
In an effort to promote transparency and accountability, WIOA created a single set of common
measures, “primary indicators of performance,” for the evaluation of core programs.11 WIOA requires
1
Workforce Investment Act of 1998, 29 U.S.C. § 2801 (1998), repealed by Workforce Innovation and Opportunity Act, Pub. L. No.
113-128, H.R. 803, 113th Cong. (July 22, 2014)(codified at 29 U.S.C. § 3101, et seq.).
2
See 29 U.S.C. s. 2821 and 29 U.S.C. s. 2832 (1998).
3
See 29 U.S.C. s. 2841 (1998).
4
See 29 U.S.C. s. 2811 (1998).
5
Ch. 2000-165, Laws of Fla.
6
See s. 445.003, F.S.
7
Workforce Innovation and Opportunity Act, 29 U.S.C. § 3101 et seq. (2014).
8
See 29 U.S.C. s. 3112(a).
9
See 29 U.S.C. s. 3111.
10
See 29 U.S.C. s. 3102(13).
11
See 29 U.S.C. s. 3141.
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 performance reports to be provided at the state, local, and training provider levels. Performance
measures that apply across all core programs include:
 The percentage of participants in unsubsidized employment during second quarter after exit;
 The percentage of participants in unsubsidized employment during fourth quarter after exit;
 The median earnings of participants during second quarter after exit;
 The percentage of participants who obtain a postsecondary credential or secondary school
diploma within 1 year after exit;
 The achievement of measureable skill gains toward credentials or employment; and
 The effectiveness in serving employers.12
State Workforce Development Board and Plan
WIOA requires the Governor to establish a State Workforce Development Board13 to assist the
Governor in carrying out the duties and responsibilities required by WIOA.14 The bill requires state
board membership to represent diverse geographic regions of the state and include membership of the
Governor, members of the state legislature, a majority of representatives of business, including small
business, representatives of workforce within the state, and membership from state officials with
primary responsibility for the core programs.15 Among other duties, the state board is required to assist
in the development, implementation and modification of a 4-year state plan, review statewide policies,
programs, and recommendations on actions to align workforce development programs, and identify
and disseminate information on best practices.16
Using the common performance measures for core programs, WIOA requires each state to develop
and submit a unified state plan based on a 4-year strategy for workforce development.17 The state plan
must describe an overall strategy for the core programs and how the strategy will meet the needs of
workers, job seekers, and employers.18 WIOA also provides an option for states to submit a combined
plan that outlines plans for the core programs along with additional workforce programs.19
Regional Planning and Local Workforce Development Boards
WIOA requires states to identify regional planning areas for workforce development strategies.20 Within
each area, a local workforce development board (LWBD) must be established.21 Each LWDB is
required to coordinate planning and service delivery strategies within their area.22 Formulated
strategies are then used by the LWDB to develop and submit a local plan for the delivery of workforce
services.23
WIOA requires each Governor to designate local workforce development areas in consultation with the
state workforce development board, chief elected officials24 and LWDBs, and after consideration of
public comment.25 In making such designations, WIOA requires each Governor to consider, with limited
12
Id.
13
20 C.F.R. s. 679.110.
14
20 C.F.R. s. 679.130.
15
20 C.F.R. s. 679.110. See also United States Department of Labor, Employment and Training Administration Advisory System,
Training and Employment Guidance Letter WIOA No. 27-14 (April 15, 2015), available at
https://wdr.doleta.gov/directives/attach/TEGL/TEGL_27-14.pdf.
16
20 C.F.R. s. 679.130.
17
See 29 U.S.C. s. 3112(a).
18
See 29 U.S.C. s. 3112(b).
19
See 29 U.S.C. s. 3113.
20
See 29 U.S.C. s. 3121.
21
Id.
22
See 29 U.S.C. s. 3122.
23
See 29 U.S.C. s. 3123.
24
See Pub. L. 113-128, §. 3(9) (codified at 29 USC § 3102). The term, ‘chief elected official’ means “(a) the chief elected executive
officer of a unit of general local government in a local area; and (b) in a case in which a local area includes more than 1 unit of general
local government, the chief elected officials of such units.”
25
See Pub. L. 113-128, §. 106(a), (b) (codified at 29 U.S.C. § 3121)
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 exception26, the extent to which the areas: (1) are consistent with the labor market areas in the state;
(2) are consistent with regional economic development areas in the state; and (3) have available the
federal and non-federal resources necessary to effectively administer workforce investment activities
and providers and other applicable WIOA provisions, including whether the areas have the appropriate
education and training providers, such as institutions of higher education and area career and technical
education (CTE) schools.27
Governor’s Authority
WIOA grants the Governor broad oversight authority of both the state and local level workforce
development programs. Specifically related to LWDBs, the Governor is responsible for designating the
local workforce areas,28 certifying the LWDBs,29 and negotiating the performance measures required by
WIOA.30 The Governor has the additional authority to decertify a LWDB, and require its reorganization,
for fraud, abuse, or failure to carry out its statutory duties.31 If a LWDB fails to meet it’s agreed upon
performance measures in two consecutive program years, the Governor must decertify the LWDB and
implement a reorganization plan.32
Florida’s Implementation of WIOA
In 2016, Florida changed the WDS to conform to the new federal guidelines established by WIOA.33
Under the current WDS, the Department of Economic Opportunity (DEO), CareerSource FL, Inc.
(CareerSource), and 24 LWDBs act as partners in administering Florida’s comprehensive system for
the delivery of workforce strategies, services, and programs. Florida submitted its first Unified State
Plan in 2016, a 2-Year Modification in 2018, and most recently a plan for the period July 1, 2020-June
30, 2024.34 Florida’s plan includes the following required programs:
• Adult Program;
• Dislocated Worker Program;
• Youth Program;
• Adult Education and Family Literacy Act;
• Wagner-Peyser Act; and
• Vocational Rehabilitation Program, including Blind Services Program.35
The Unified Plan includes the required core partners of: CareerSource, the DEO, and the Department
of Education’s (DOE) Divisions of Career and Adult Education, Vocational Rehabilitation and Blind
Services.36
CareerSource Florida, Inc. (CareerSource)
26
Id. WIOA lists two exceptions: (1) during the first two years after WIOA’s enactment, the Governor of each state was required to
approve a request to designate a local workforce development area from any areas designated as such under the Workforce Innovation
Act of 1998 for the two-year period immediately preceding WIOA’s enactment that performed successfully and sustained fiscal
integrity; and (2) after the initial designation of such areas, the Governor of each state was further required to approve a subsequent
request to designate such areas if, over the two most recent program years, they performed successfully, sustained fiscal integrity, and
in the case of a local area planning region met additional requirements, including, but not limited to, the preparation of a regional plan.
27
Id.
28
See 29 U.S.C. s. 3121(b).
29
See 29 U.S.C. s. 3122(a).
30
See 29 U.S.C. s. 3121(c).
31
See 29 U.S.C. s. 3122(c).
32
See 29 U.S.C. s. 3141(g).
33
Ch. 2016-216, L.O.F.
34
Workforce Innovation and Opportunity Act, State of Florida Unified Plan July 1, 2020-June 30, 2024 (2020), at 9, available at
https://careersourceflorida.com/wp-content/uploads/2020/09/2020-2024-WIOA-Unified-Plan.pdf.
35
Id at 10.
36
Id.
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 Florida’s workforce system is led by the CareerSource state board.37 The Board of Directors includes
the Governor, 16 business representatives, six workforce representatives, and eight government
officials, including state representatives from the core programs, state legislative representatives and
chief elected officials.38 The state board conducts its work through a board of directors, two councils,
the Strategic Policy and Performance Council and the Finance Council, and an Executive Committee.39
Since Fiscal Year (FY) 2017-2018, CareerSource has allocated $792 million dollars in funding and
assisted 477,126 job seekers in obtaining employment.
CareerSource Allocated Funding 2017-2020
Fiscal Year Total Funds Allocated Job Seekers Assisted
2017-201840 $ 273 million 210,737
2018-201941 $ 269.6 million 136,328
2019-202042 $ 249.4 million 130,061
Total $ 792 million 477,126
The state board is responsible for the development of a 4-year plan that is consistent with the
requirements of WIOA43 and also provides state-level policy direction, planning, and performance
evaluation of the delivery of workforce services.44 The state board in partnership with state and local
workforce partners, develops strategic planning elements for the state plan to address strategies to
fulfil