Indeed,  approximately $501 million (84 percent) of the $595 million identified by  offices at Labor as having been appropriated or allocated specifically for  green jobs activities since 2009 went toward efforts with training and  support services as their primary objective.million, or 12 percent of the total amount of funding for green jobs   In total, approximately $73  activities, was reported appropriated or allocated for data collection and  reporting efforts. 2). The Recovery Act directed federal agencies to spend the funds it made  available quickly and prudently, and Labor implemented a number of  relatively brief but high-investment green jobs efforts simultaneously. As a  result, in some cases, Recovery Act training programs were initiated prior  to a full assessment of the demand for green jobs. Several of Labor’s Offices Coordinate on Implementing Green Jobs Efforts within Labor or with Other Federal Agencies

Although funding for green jobs efforts at Labor has shifted and green  jobs efforts funded through the Recovery Act are winding down, a few of  Labor’s ongoing programs or efforts continue to emphasize green jobs or  skills, and Labor continues to incorporate green elements into existing  programs by coordinating internally on an as-needed basis. Selected Grantees Broadly Defined Green Jobs and Generally Added Green Elements to Existing Training Programs

To identify the potential demand for green jobs in their communities, all  (11 of 11) grantees we interviewed had broadly interpreted Labor’s  green jobs definitional framework to include as green any job that could  be linked, directly or indirectly, to a beneficial environmental outcome. All grantees we interviewed said they had worked closely with local  employers to align their training program with the green skills needs of  local employers. Outcomes of Green Jobs Training Remain Uncertain, with Grantees Citing Implementation Challenges

		Outcomes of Green Jobs Training Programs Remain Largely Unknown Due to Data Lags

The overall impact of Labor’s green jobs training programs remains  largely uncertain partly because some individuals are still participating in  training and are not expected to have outcomes yet, and because final  outcome data are submitted to Labor approximately 3 months after the  grant period ends. Our analysis of data reported  by Recovery Act-funded green jobs grantees with final outcome data  shows that these grantees collectively reported enrolling and training  more participants than they had proposed when setting their outcome  targets. Grantees Highlighted Green Jobs Training Benefits and Challenges

The grantees we interviewed were generally positive about Labor’s green  jobs training programs, with most speaking optimistically about the  potential value of the green skills obtained by the program participants. This may be especially true in light of changing state and local energy  policies. Labor Has Assisted and Monitored Grantees, but Has Provided Limited Guidance on Outcome Documentation Requirements

		Labor Has Provided Various Forms of Technical Assistance to Support Green Jobs Grantees

Labor has provided all green jobs grantees with technical assistance to  help them implement their grant programs and comply with relevant  federal laws and regulations. While Labor officials have not issued additional guidance to GJIF  grantees regarding how to document job placement and retention  outcomes, they said they have taken other steps that address the OIG’s  recommendation to improve the quality of grantee reported performance  data and utilize lessons learned from Recovery Act-funded green jobs  training programs for other discretionary grant programs. Conclusions

The Recovery Act funded multiple, substantial investments in training  programs targeted to a specific emerging industry—energy efficiency and  renewable energy. Recommendations for Executive Action

To enhance Labor’s ability to implement training programs in emerging  industries, GAO recommends that the Secretary of Labor identify lessons  learned from implementing the green jobs training programs. Labor agreed with our  recommendation. GAO staff who made key contributions to this report  are listed in appendix V.

Appendix I: Objectives, Scope, and Methodology

Our objectives were to determine: (1) what is known about the objectives  and coordination of the Department of Labor’s (Labor) green jobs efforts,  (2) what type of green jobs training grantees provided and how selected  grantees aligned their training to meet employers’ green jobs needs, (3)  what is known about program outcomes and what challenges, if any,  grantees faced in implementing their programs, and (4) what Labor has  done to assist and monitor its green jobs grantees. During each site visit we interviewed Labor’s green jobs training grant  officials, training providers, local employers, and, to the extent possible,  program participants.
Why GAO Did This Study

Labor received $500 million from the Recovery Act to help create, better understand, and provide training for jobs within the energy efficiency and renewable energy industries, commonly referred to as "green jobs." Since 2009, Labor has also "greened" existing programs and funded additional green jobs training grants and other efforts.
In light of the amount of funding targeted to green programs within Labor, GAO examined: (1) what is known about the objectives and coordination of Labor's green jobs efforts, (2) what type of green jobs training grantees provided and how selected grantees aligned their training to meet employers' green jobs needs, (3) what is known about program outcomes and what challenges, if any, grantees faced in implementing their programs, and (4) what Labor has done to assist and monitor its green jobs grantees. To conduct this work, GAO reviewed relevant federal laws and regulations; surveyed selected offices within Labor using two questionnaires--one for directly- funded green jobs efforts and one for other efforts; interviewed Labor officials and 11 out of 103 green jobs training grantees; and analyzed relevant Labor documents and data.

What GAO Found

Of the $595 million identified by Labor as having been appropriated or allocated specifically for green jobs activities since 2009, approximately $501 million went toward efforts with training and support services as their primary objective, with much of that funding provided by the American Recovery and Reinvestment Act of 2009 (Recovery Act). Because the Recovery Act directed federal agencies to spend funds quickly and prudently, Labor implemented a number of high-investment green jobs efforts simultaneously. As a result, in some cases, Recovery Act training programs were initiated prior to a full assessment of the demand for green jobs, which presented challenges for grantees. While Labor's internal agencies initially communicated with each other and with other federal agencies after the Recovery Act was passed, most Recovery Act grants have ended or are winding down.
Labor created its green jobs definitional framework to provide local flexibility, and grantees we interviewed broadly interpreted Labor's framework to include any job that could be linked, directly or indirectly, to a beneficial environmental outcome. Labor's training data show most participants were trained in construction or manufacturing. While the findings of our site visits are not generalizable, all grantees we interviewed said they had worked closely with local employers to align their training program with the green skills needs of local employers. Most grantees we interviewed also told us they had incorporated green elements into existing training programs aimed at traditional skills, such as teaching weatherization as part of a carpentry training program.
The outcomes of Labor's green jobs training programs remain uncertain, in part because data on final outcomes were not yet available for about 40 percent of grantees, as of the end of 2012. Analysis of grantees with final outcome data shows they collectively reported training slightly more individuals than they had projected, but job placements were at 55 percent of the target. Training-related job placement rates remain unknown because Labor's Office of Inspector General (OIG) found these data unreliable. Grantees we interviewed were generally positive about Labor's green job training programs, but most said they had faced challenges during implementation, including: (1) a lack of reliable green jobs labor market information, (2) insufficient time to meet grant requirements, (3) knowledge gaps surrounding green skills and changing energy policies, and (4) difficulty placing participants into green jobs, primarily due to the overall poor economy.
Labor has provided technical assistance and taken steps to monitor green jobs training grantees through on-site monitoring visits and quarterly reviews. During these visits and reviews, Labor officials assessed grantee performance, such as by comparing reported program outcomes, including job placements, to targeted performance levels. However, Labor provided only limited guidance on how to document reported job placements. Labor officials required grantees with lower than projected performance levels to implement corrective action plans. In addition, Labor officials told us they have taken steps to improve the quality of grantee reported data, such as by forming an internal workgroup to identify ways to improve the technical assistance they provide to grantees on reporting performance outcomes.

What GAO Recommends

GAO recommends that Labor identify lessons learned from the green jobs training programs to enhance its ability to implement such programs in emerging industries. Labor agreed with our recommendation.