In our most recent report in 2011, we  identified 47 E&T programs and found that 44 of them overlapped with at  least one other program in that they provided similar services to a similar  population. We also found that due to the American Recovery and  Reinvestment Act of 2009 (Recovery Act), both the number of—and  funding for—federal E&T programs had increased since our 2003 report,  but little was known about the effectiveness of most programs because  only five programs had conducted impact evaluations. For fiscal year 2017, we identified 43 programs, four  fewer than we reported in 2011. For example,  in 2014, the Workforce Innovation and Opportunity Act (WIOA) eliminated  at least four of our identified E&T programs. Federal Obligations for Employment and Training Programs Decreased, Due in Part to the End of Recovery Act Funding

Our survey results showed that the federal government obligated nearly  $14 billion to the E&T components of its programs in fiscal year 2017, a  decrease of about $5.4 billion or 30 percent, adjusting for inflation, from  the amount in our 2011 review (which reported fiscal year 2009  obligations). According to our analysis of survey data, much of the  decrease in E&T obligations can be explained by the expiration of  Recovery Act funding. For example, all of the five youth programs  reported providing similar E&T services, such as employment counseling  and assessment and job readiness training (see fig. Overlap among program services may have benefits, but it may also  suggest opportunities for coordination or efficiencies in service delivery. For example:
A 2018 GAO report on USDA’s SNAP E&T program found that 20  states’ SNAP E&T programs did not partner with workforce agencies  to provide E&T services. Almost All Agencies Reported Actions to Address Program Fragmentation and Overlap, but Effectiveness of these Actions Remains Uncertain

		Employment and Training Program Officials Reported Taking Actions to Address Fragmentation and Overlap

In response to our survey of agency officials for the 43 E&T programs,  almost all (38) reported taking at least one action to manage  fragmentation, overlap, and/or potential duplication. However, of the six completed studies we identified that examined more  than one E&T program, only one study assessed how any coordinated or  integrated activities benefited the population served. After  WIOA was enacted, these agencies formed the WIOA Evaluation  Workgroup with the intent of establishing greater collaboration among federal agencies on E&T program evaluation. DOL E&T programs make  up over a third of all federal E&T programs, and some of these programs  under WIOA coordinate or align their services with programs  administered by other agencies. Since 2013, DOL has not published a 5-year strategic research plan for  E&T programs. Recommendation for Executive Action

We are making the following recommendation to DOL:  The Secretary of DOL should develop and publish a multi-year strategic  research plan for evaluation of its employment and training programs that  includes assessing the completeness and results of efforts to coordinate  among E&T programs to address overlap and fragmentation. In  developing this plan, DOL should also consult with other federal agencies  and key stakeholders on ways to address gaps in information on how  multiple programs are serving the employment and training needs of  specific populations, such as Native Americans, youth, and refugees. DOL agreed with our recommendation that it develop and publish a multi- year strategic research plan for evaluation of its E&T programs consistent  with the purpose of aligning and coordinating these programs. Appendix I: Objectives, Scope, and Methodology

This appendix discusses our scope and methodology for our three  research objectives examining (1) how participation in and obligations for  federal employment and training programs have changed since our 2011  report, (2) the extent to which employment and training programs  continue to provide similar services to similar populations, and examples  of potential effects, and (3) the extent to which agencies have taken  actions to address previously identified fragmentation and overlap among  the programs and lessons learned.
Why GAO Did This Study

Federally funded employment and training (E&T) programs help job seekers enhance their job skills, identify job opportunities, and obtain employment. In 2011, GAO identified overlap and fragmentation among E&T programs administered by nine federal agencies. The Workforce Innovation and Opportunity Act (WIOA) was enacted in 2014, in part, to improve coordination and integration among these programs.
This report examines (1) how the number of and obligations for federal E&T programs have changed since GAO's 2011 review, (2) the extent to which E&T programs continue to provide similar services to similar populations and examples of potential effects, and (3) the extent to which agencies have taken actions to address previously identified fragmentation and overlap among E&T programs and what agencies have learned about the results. To address these objectives, GAO surveyed E&T program administrators, reviewed relevant reports and studies, and interviewed federal agency officials.

What GAO Found

The number of federal employment and training (E&T) programs and program obligations have declined since GAO's 2011 report. In that review, GAO identified 47 E&T programs and found that 44 had overlap with at least one other program in that they provided similar services to a similar population. In fiscal year 2017, the most recent year data are available, GAO identified 43 E&T programs, or 4 fewer than in 2011 (see figure). From fiscal year 2009 to 2017, federal agencies' annual obligations for E&T programs decreased from about $20 billion to $14 billion. GAO analysis of survey data found the decrease in obligations was largely due to the expiration of funding from the American Recovery and Reinvestment Act of 2009, which had provided additional funding for selected E&T programs during and after the Great Recession.
Survey results from federal administrators of the 43 E&T programs show that the programs continue to span nine agencies and generally overlap by providing similar services, such as employment counseling and assessment services (39 of 43) and job readiness training (38 of 43). Further, programs targeting a specific population, such as Native Americans, veterans, or youth, also provided similar services. In some cases, such overlap may be appropriate or beneficial, but it may also suggest opportunities for greater efficiency.
Almost all (38 of 43) E&T programs reported at least one action to manage fragmentation or overlap, such as co-locating services and sharing information. However, the agencies were not able to consistently provide information on the results of these actions and few evaluations encompassed multiple programs. Among studies GAO identified, six examined more than one E&T program, but only one assessed how any coordinated activities benefited the population served. None of the six studies focused on Native Americans, youth, or refugees. The Workforce Innovation and Opportunity Act (WIOA) encourages agencies to conduct evaluations, and specifically requires the Department of Labor (DOL) to publish a 5-year plan describing certain E&T priorities, consistent with the purpose of aligning and coordinating certain programs. While DOL reported it took some steps, it continues to lack a strategic plan for E&T evaluations over a multi-year period. As a result, DOL does not know whether actions to manage overlap are successful.

What GAO Recommends

GAO recommends that DOL, in consultation with other federal agencies, develop and publish a multi-year strategic plan for its evaluations of employment and training that includes assessing the completeness and results of efforts to coordinate among E&T programs. DOL agreed with our recommendation.