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The Critical and Emerging Role of Workforce Investment 
Boards: How Federal Policy Can Incite  
Workforce Innovation  
Corporation for a Skilled Workforce 
 

 

 

 

 

 

 

 
 
 
 
 
Created by Corporation for a Skilled Workforce, including: 
    Jeannine M. La Prad, President & CEO 
    Larry Good, Chairman 
    Larry Fitch, Senior Policy Fellow 
    Kristin Wolff, Director of Community Initiatives 
    Rebecca Cohen, Policy Associate 
 
Written in partnership with the following: 
    Capital Workforce Partners (Hartford, CT) 
    Central Pennsylvania Workforce Development Corporation  
    Chicago Workforce Investment Council  
    Chicago Housing Authority  
    Kentuckiana Works  
    Northwest Michigan Council of Governments  
    NYC Workforce Investment Board  
    Ramsey County Workforce Investment Board (St. Paul, MN) 
    San Diego Workforce Partnership, Inc.  
    The Center of Workforce Innovations (Valparaiso, IN) 

 
 




January 19, 2010 
Executive Summary 
Today, there are few areas of public policy more important to the nation’s economic 
competitiveness than the skills, ingenuity, and health of its 139‐million person workforce. 
 
But workforce development is diffuse – resources, expertise and experience are the domain of 
colleges and universities, industry leaders, private placement firms and public programs. Workforce 
leaders in communities must collaborate across multiple sectors, organizations and systems, 
convening the right stakeholders for the right reasons, at the right times around strategies that help 
people and firms thrive – all guided by thoughtful public policy. 
 
The reauthorization of the Workforce Investment Act (WIA) provides an opportunity to reflect on a 
decade of experiences and consider changes that will encourage results we all want: innovative 
policy, programs, and practices capable of meeting evolving community needs and contributing to 
the overall prosperity of our nation.  
 
The following brief is offered from the collective experiences of the Workforce Innovators Network,1  
a community of practice comprised of Executive Directors from local Workforce Investment Boards 
across the country convened by the Corporation for a Skilled Workforce.  
 
We challenge the notion that local WIBs’ primary role is to manage WIA grants. In our communities 
we are valued organizers of people who care about developing talent– with a decade’s worth of 
experience developing proven strategies to address talent needs. Federal policy could help us do this 
better and more systemically.  
 
Using WIA as a foundation, future legislation should clearly articulate the role of local WIBs as 
strategic policy boards working as catalysts and coalition builders; this is among the most important 
work we do. While many Boards already convene stakeholders around common economic strategies, 
changes to federal legislation could help make this standard practice.  
 
Additional policy changes that could make a dramatic difference and provide useful tools for greater 
impact in service of people, firms, and communities include: 
 
        Aligning federal level agencies around a common goal of increasing economic 
         competitiveness and community prosperity; 
        Enabling more effective community‐focused Boards; 
        Creating a national data system accessible and transparent to the public; 
        Mandating coordinated funding streams across state systems; and  
        Transforming the state five‐year plans into a strategic planning document. 
                          
These recommendations are not meant to supplant or displace the work or formal submissions of 
public interest groups or individual WIBs. We support their efforts and their recommendations for 
specific changes to the law. Yet we also believe that Congress, the Administration, and other law and 
policy makers would benefit from the context and broader picture we provide. The stakes are high. 
Investing well – in support of an effective, innovative, and transparent system that can adapt to 
future challenges – will pay dividends far into the future. 

                                                            
1
  Please refer to page 10 for a full list of member Boards. 


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Big Changes at Work 
When the Workforce Investment Act (WIA) was enacted in 1998, the world was a much different 
place. Though we were beginning to recognize the impact of globalization, technology, and 
demographic change on jobs and workers, these and other socioeconomic trends have since 
wrought profound changes on our communities and our nation. 
 
     Growth Minus Jobs. While economists debate the causes and implications of the trend, job 
         growth following the last two recessions has been far lower than what was expected. In our 
         current “job‐less recovery,” the seven million private sector jobs lost in the 20 months 
         between December 2007 and August 2009 are returning at a lackluster pace, while the labor 
         force continues to grow by 1.3 million people per year. 
          
     Generations Collide.  For the first time in our history, it is commonplace for three or four 
         generations to occupy the workplace at the same time, challenging traditional hierarchies, 
         management practices, and raising serious equity issues as baby boomers delay retirement 
         and firms resist taking on new (younger) full‐time employees who are far more racially, 
         ethnically, and linguistically diverse than their seniors. 
          
     Life‐long Learning. The demand on all workers to develop new and more diverse skills 
         throughout their working lives – as the baseline required for good jobs increases – raises 
         complex challenges for employers and government, difficult decisions for workers, and 
         disrupts assumptions about what it means to be a student. 
          
These demographic and economic shifts represent only a subset of those currently in motion. Many 
are accelerating and will likely alter their course dramatically over time, resulting in significantly 
different implications for workers and businesses. Coming health care legislation, for instance, has 
the potential to lure baby boomers into retirement, reversing the second trend cited above, and 
produce a shortage of experienced and skilled talent.  
 
These trends also serve as a backdrop for the critical challenge of growing prosperity, which depends 
on our ability to employ key environmental, physical, financial, and intellectual assets productively. 
Communities that invest in policies, practices, and platforms that emphasize talent –people with the 
knowledge, skills, and capacity to adapt – and continuous learning will thrive in an evolving and 
increasingly knowledge‐based economy.   
 
None of the fundamental challenges that communities face are the charge of the workforce system 
alone. Workforce development, economic development, and education systems do not (and should 
not) act in isolation. In addition to stabilizing federal funding for workforce development, much can 
also be accomplished through the re‐alignment of federal resources from the U.S. Departments of 
Labor, Health and Human Services, Commerce, Education, and individual programs like those 
provided under Title I of the Workforce Investment Act. Federal systems must move away from 
siloed budgets and programs to an integrated model with common eligibility requirements and 
definitions supported by statute. 
 
Public policy, like the economy, must change with the times. Policies, programs, and practices must 
be sensitive to global and regional economic and social changes.  
 



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Community Systems Respond – and Evolve 
The Workforce Development System, comprising nearly 600 Workforce Investment Boards, together 
with 50+ State Employment Agencies, and a network of hundreds of public and private colleges and 
training providers, labor unions, and community‐and faith‐based organizations, is the U.S. 
Department of Labor’s field operation. In the past ten years, it has weathered at least three major 
economic cycles, the most recent of which has generated greater economic hardship than at any 
time since the great depression.  
 
The system’s strengths lie in its ability to organize assets and resources around distinct, diverse, and 
changing regional needs and community priorities.  But the size and scale of need varies from 
community to community, as do the availability of resources and quality of community partnerships, 
making it difficult to characterize the system as a whole. 
 
The workforce system demonstrates varying levels of coherence across the country, in part as a 
result of the silence in WIA around local WIBs’ responsibility for policy creation.  In some areas, we 
stepped into a catalytic role to invest in and organize innovative approaches to human capital, 
industry, and community challenges that inform policy development moving into the next decade. 
Our focus on state and local public policy decisions has led to the creation of innovative and effective 
programs that enhance the community’s capacity to meet larger policy goals.   
 
The Workforce System is not in one business, but many. Despite what appeared to be an impossible 
task, many of us have slowly, diligently, and effectively built relationships with industry, education, 
and economic development and now play key roles in developing and facilitating a range of public 
policies intended to help our communities prosper. In partnership with networks of public programs, 
colleges, and community‐based organizations, we: 
 
   Organize responses to industry needs: addressing hiring needs, skills gaps, downsizing, and a 
    whole range of training and professional development needs.  
 
        Since 2006, the Central Pennsylvania Workforce Investment Board has engaged over 260 
        employers in Industry Partnerships supported by $3.25M in state grants. Convened by WIB 
        staff and directed by industry, these Partnerships focused initially on their own training 
        needs, but now play a broader stewardship role, encouraging collaboration among member 
        firms aimed at strengthening the region’s key industries and creating employment and 
        advancement opportunities for students and workers.  
              
   Help people transition out of old jobs and into new ones. In good economic times, the focus 
    tends to be on placement; in a downturn, it’s training, because a tight labor market often 
    requires laid‐off workers to increase their skills to compete for jobs that do exist and, 
    increasingly, helping workers who want to start their own businesses find the resources they 
    need to become entrepreneurs. 
 
        The Northwest Michigan Workforce Development Board saw a problem: large numbers of 
        adults lacked basic math, reading, and communications skills, limiting their economic 
        mobility. Board staff connected workforce and education agencies, engaged business 
        representatives, and co‐invested in a network of community‐based Learning Labs, expanding 
        access to development opportunities in their ten‐county rural area. Today, 2,000 people 


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annually access the flexible, no‐fee learning modules – many of them together with post‐
       secondary education and occupational training.  

 
   Engage with economic development, education and other partners in helping cities, regions, and 
    states recruit new firms and grow new industries (or new specialties in existing industries). 
    From renewable energy to bioinformatics to open‐source web‐platforms, industries exist today 
    that were not even dreamed of a decade ago. Each community is home to a unique combination 
    of such industries, and we aim to help them continue to grow. 
 
       Though San Diego had a thriving life sciences industry, many K‐16 students living in the area 
       were not able to break into that work. Through a deep relationship with BIOCOM (one of the 
       largest regional life sciences associations in the world), San Diego Workforce Partnership 
       created programs to expose students and teachers to practical, hands‐on laboratory 
       experience and inform guidance counselors of career opportunities. To date, up to 40,000 
       students have been touched by the internship program, industry‐driven curriculums, and 
       guidance counselor boot camps. While initiated through DOL leveraged funding, the 
       program is now sustained with industry partner and philanthropic funds and operated with 
       virtually no WIA funding. 
 
   Engage communities on a myriad of workforce‐related priorities that shift with time (and with 
    local elections), convening partners around: high school graduation rates, K‐12 school reform, 
    career pathways, curriculum development, sector‐based strategies, adult basic skills 
    development (e.g., bridge programs), ESL or workplace ESL program development, workplace‐
    based skills development, green jobs, prosperity and competitiveness studies, resource 
    development, neighborhood‐based employment strategies, tax‐increment financing (TIF) 
    programs, prisoner reentry programs, migrant and seasonal farm worker supports, substance 
    abuse recovery, public housing workforce supports, community development programs, 
    transportation policy (e.g., ensuring bus routes connect jobs and workers), apprenticeships, 
    internships and externships, teacher‐training, STEM skills development, enterprise and 
    entrepreneurship – and more.   
 
       In 1998, facing major construction projects and a dearth of skilled workers, Connecticut 
       invested in The Hartford Jobs Funnel (HJF) – a training initiative led by the Capital Workforce 
       Partners in collaboration with union, private‐sector, and state and municipal leaders – as an 
       alternative to outsourcing the work. Over a decade later, the program has helped over 2,000 
       hard‐to‐serve individuals acquire skills and certifications in the building trades and establish 
       careers. Connecticut realized new roads and a skilled workforce.   
            
       In the mid‐size city of Gary, IN, only 32 percent of 18‐24 year‐olds had a high school diploma or 
       equivalent in 2007. In response, The Center of Workforce Innovations and the Northwest 
       Indiana Workforce Board led in the development of a Federal Multiple Education Pathway 
       Blueprint grant to turn around the disproportionately high drop‐out rates and number of 
       disconnected youth. As a result of a multi‐stakeholder convening and planning process, the 
       Blueprint serves as the city’s strategic plan to reconnect youth to alternative learning 
       environments, post‐secondary education opportunities, and workforce preparation.    



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   Aggregate data about our labor markets, make sense of it, and share the implications with 
    communities through publications, events, and specific engagements. 
 
        The Chicago Workforce Investment Council (CWIC) needed a better way to assess and 
        improve its programs. Together with Chapin Hall (University of Chicago), they created 
        CWICstats to collect, analyze, and disseminate information on the performance of the 
        Chicago area workforce development programs. By matching program data with wage data, 
        CWICstats reveals which programs and interventions were most effective with which 
        individuals, helping stakeholders make better investment decisions and people find the 
        programs and services most suited to them.   
     
   Leverage funding from a variety of public and private sources to reach hard‐to‐serve 
    populations. Not all funding is equal. We help leverage funding to apply flexible resources to 
    bolster innovative programs. 
     
“The key advantage we benefit from is the diversification of funding.  Many WIBs, like ours, are not 
entirely dependent on Federal or State resources, so they can be more flexible and adjust to current 
needs. Government funding represents the “core” of WIB business, but the WIB will seek out what it 
needs to enhance that core, particularly in this challenged economy. As a result of leveraged funding 
from our industry partners, we nearly doubled the number of youth who were able to find summer 
jobs through the American Recovery and Reinvestment Act. ” 
                                       ‐Thomas Phillips, President & CEO, Capital Workforce Partners    
 
     
   Experiment. Each community faces at least one complex, intractable, and long‐term problem for 
    which a solution has not been found: for example, chronically high middle‐ and high‐school drop‐
    out rates, recurring homelessness, employment for ex‐offenders, rural unemployment, 
    broadband connectivity, etc. We look for solutions on a small scale that can inform change on a 
    larger scale. This experimentation has led to countless innovations that communities now take 
    for granted, like various Individual Development and Savings Accounts, Career Pathway 
    Programs, and Sector Strategies.  
 
        Recognizing growing demand for transportation, health care, and manufacturing workers, 
        the NYC Workforce Investment Board opened three sector‐based one‐stop career centers, 
        bringing a sector initiative to scale. Staff works closely with companies to develop 
        customized solutions to meet their hiring and training needs and connect incumbent workers 
        to training opportunities to upgrade their skills. The deep relationships formed with industry 
        have enabled the Center to exceed program goals despite the current economic challenges. 
        Sector‐based programs create a highly qualified pipeline of workers that make businesses in 
        that sector more competitive.   
             
Organizing partners, stakeholders, and resources around shared priorities, developing action plans, 
and holding each other accountable is important work; this is how positive change in communities 
happens. We are well‐positioned to work with public and private systems simultaneously and can 
serve to build coalitions and connections across multiple entities. We can be catalysts for changing 
how communities do business – to integrate missions, allocate resources, and incite transformation 
to happen across public systems in a more effective, faster way.  


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While focused on our communities, we are also connected to each other. We work in rural and urban 
areas (sometimes simultaneously) in every state (and the territories). We have developed different 
specialty areas and conduct business in different ways. Some WIBs have not adopted the broader 
community‐organizing mission that we see as our most important function – there are laggards in 
every sector. Although our specific priorities and approaches may vary, we share an unwavering 
commitment to the competitiveness of our key industries and firms, the talent, skills, and agility of 
our residents, and the prosperity of our communities.  
 
We have learned much since WIA was introduced in 1998. Our experience could inform both the 
reauthorization of legislation guiding public investments in workforce, as well as the development of 
policies within the U.S Department of Labor and its partner agencies – Commerce, Education, and 
Housing in particular. 
 
The Ramsey County Workforce Investment Board (RCWIB) in Minnesota launched a Healthcare 
Initiative so that low‐skilled adults could qualify for entry‐level jobs in a growing industry. Blended 
instruction emphasizing basic skills and those required for occupational certification have helped 
keep completion rates high. Now, low‐income adults are building careers in the medical field and 
RCWIB has convened workforce agencies, public schools, colleges, adult basic education programs 
and community organizations to explore the potential of this approach for other high‐growth 
occupations in key industries.    
 

Recommendations to Help the System Help Firms, Workers, and 
Communities More Effectively  
The anticipated reauthorization of the Workforce Investment Act provides an opportunity to set a 
strategic policy framework and encourages the blending of evidence‐based practice with innovation 
in a way that helps people, firms, and communities – and in turn, the nation – thrive. Legislative and 
regulatory changes to WIA, as well as clear definitions delineating the roles of state and local boards, 
can incentivize increased collaboration and relationship building, and encourage disparate economic 
development, education, and workforce systems to come together under a common goal of 
preserving or generating regional and global economic competiveness and greater prosperity.  
 
Federal legislation should clearly articulate a role for local WIBs as conveners of stakeholders around 
common economic (non‐WIA) strategies in conjunction with WIA management roles. This change 
supports and validates the work that many of us already do, lends credibility to that role, and 
encourages more WIBs to take on that work. The law should set expectations for fulfilling the work 
described in the previous sections as a primary role and hold us accountable for effectively aligning 
community assets. To help meet our goals and inform broader statewide policy and planning, 
legislation should incentivize state WIBs to create mechanisms and communication pathways 
between state and local WIBs. 
 
The following critical leverage points have been identified where policy changes could make a 
dramatic difference in serving as community catalysts:  




                                                                                                      7 
 
             Align federal level agencies around a common goal of increasing economic competitiveness 
              and community prosperity.  
              This would help program managers find ways to leverage their funding in support of 
              coordinated community economic development, shared sector strategies, and identified 
              populations within the community. 
 
             Enable more effective community‐focused Boards. 
              This will create nimble working Boards that can identify and assess community issues at a 
              policy level. Current law requires mandated program partners to sit side‐by‐side with private 
              sector executives. This results in large, less‐than strategic Boards that have little incentive to 
              collaborate. In addition to strategic‐level representatives from higher education, primary and 
              secondary education, organized labor, and economic development agencies, the majority of 
              the Board membership must continue to be business members that provide key leadership 
              to the community. Federal legislation should: 
               
                      Create flexibility to reduce the number of representatives on the Board;  
                      Allow for representation from public programs to be consolidated to work on a 
                       strategic level; 
                      Require elected officials to appoint representation from leadership positions to sit on 
                       the Board; 
                      Encourage members of the Board to contribute resources (time, talent, treasury) to 
                       the local workforce system when and where appropriate; and 
                      Build deliberate interconnections between state and local Boards to provide 
                       community representation and encourage strategic alignment (local WIB chairs could 
                       be given preference to sit on state Boards, for example).  
 
             Create a national data system accessible and transparent to the public. 
              Data should drive decision making around policy, programs, and practices. Currently, there is 
              no national system that tracks expenditures, outcomes or fiscal data. Some of us cannot 
              even access simple wage data about our program participants. Moreover, processes and 
              definitions across federal systems differ, making it problematic to determine how 
              participants access multiple programs or what occurs as a result. Neither is there a consistent 
              method for tracking participants in programs, making it impossible to aggregate accurate 
              data up to a national level to inform subsequent policy or program decisions. Building off 
              investments from the U.S. Department of Education’s State Longitudinal Data Systems grant 
              program authorized in 2002, WIA should promote aggressive use of data warehouses that 
              integrate K‐12, adult education and training, and post‐secondary education data. A handful of 
              states have implemented integrated data systems (e.g., Florida’s Integrated Education Data 
              Systems2) that could inform a national effort. The national data system should: 
               
                      Exist in an easily accessible site and form; 
                      Create clarity around the derivation of data; 

                                                            
2
  Florida’s Integrated Education Data System combines the state’s pre‐K‐20 Education Data Warehouse and the Florida 
Education and Training Placement Information Program data to track students longitudinally and across delivery systems. 
Together, the integrated data systems provide comprehensive information about students who access public systems and 
their workforce outcomes. 


                                                                                                                      8 
      Identify participant outcomes to track; 
                            Track participant outcomes and fiscal data; 
                            Identify clear and consistent data measures used nationwide; 
                            Engage local WIBs in implementing common outcomes at local levels;  
                            Be informed by accessible statewide data systems administered by states that collect 
                             and manage local data; 
                            Establish common definitions across federal systems; and 
                            Allow for alignment and integration of other national data systems such as the 
                             Integrated Postsecondary Education Data System (IPEDS) and the U.S. Department 
                             of Education’s National Reporting System. 
 
             Mandate coordinated funding streams across state systems. 
              Some aspects of the current workforce system are siloed and disconnected from long‐term 
              career development programs, leaving participants without a clear picture of their overall 
              progress and goals. Coordinating and aligning resources at the federal and state levels would 
              create a more seamless system for participants and create opportunity to leverage multiple 
              private, public, and nonprofit funding sources. Leveraged dollars from non‐federal sources 
              should remain flexible to accomplish program goals, and regulation should be clear and 
              consistent. Leveraging funding that is not connected to the Workforce Investment Act also 
              suggests that WIBs must employ a non‐WIA engagement strategy that includes additional 
              stakeholders that impact community economic vitality. Recommendations for legislative 
              action include: 
               
                     Forming a strategic role to integrate funding across several agencies, including non‐
                      WIA agencies that impact participants in the system at the state and local levels;   
                     Encouraging local WIBs to leverage non‐Workforce Investment Act resources. Non‐
                      federal funding should not be regulated under WIA rules and regulations; 
                     Allowing non‐government resources to be spent in a more flexible manner and 
                      remain guided by the funder; and 
                     Changing the state WIB role and clearly articulating it as a coordinating entity for 
                      leveraging and aligning state funding streams. 
               
             Transform the state five‐year plans into a strategic planning document. 
              Under current law, State Workforce Investment Boards help to develop five‐year state plans 
              for the Governor and report to a single state department. The mix of strategy and program 
              centric planning is not adequate to reflect our rapidly changing economy. The document 
              should be dynamic and reflect the depth of issues at the speed that communities change, 
              better informing broad state workforce policy and coordinating with state‐level interests. 
              Federal legislation should give state WIBs a policy making role across state departments that 
              impact workforce. Legislation should reframe the plan in the following way: 
               
                     Require annual evaluation and updating of the plan; 
                      Emphasize holistic workforce strategies and encourage resource alignment through 
                      a focus on linkages with education, economic development, and community 
                      development on a regional3 level; and 
                                                            
3
  Regions can be defined in a multitude of ways to describe physical, human, or functional characteristics, including 
broad labor market areas, work areas, or a collection of counties. We prefer to leave the definition flexible.  


                                                                                                                  9 
    Create feedback mechanisms that assist local WIBs to inform state WIB policy and 
                 planning. Not only should state WIBs develop this strategic plan with local WIB input, 
                 but they must also have a strategic role in developing state workforce policy and 
                 coordinating with state‐level taskforces.  

About the Innovators 
Corporation for a Skilled Workforce currently facilitates two Workforce Innovators Networks, which 
provide  a  safe  and  private  space  for  members  to  discuss  ideas,  successes,  and  challenges  in  their 
work. The focus of these Networks is to bring together pioneers who are implementing innovative 
workforce  development  strategies  in  both  governance  and  service  arenas.  Network  members  are 
bringing  new  approaches  to  the  workforce  system—they  are  “outside  the  box”  thinkers;  they  are 
committed to seeing their ideas implemented; and they both “think big” and “do big.” 
 
Members  of  the  Workforce  Innovators  Network  are  leaders  in  workforce  development  who  are 
consistently experimenting with and implementing new ideas. Membership in the Network includes: 
 
 Nathaniel Buggs, Vice President and Chief Operating Officer, San Diego Workforce Partnership, Inc. 

   (San Diego, CA)  
 Mark  Cafferty,  President  and  Chief  Executive  Officer,  San  Diego  Workforce  Partnership,  Inc.  (San 

   Diego, CA)  
 Evelyn Diaz, Chief Executive Director, Chicago Workforce Investment Council (Chicago, IL) 

 Mary Jo Gardner, Chief Executive Officer, Ramsey County Workforce Investment Board (St. Paul MN) 

 Joanna  Greene,  Vice  President,  Finance  and  Operations,  Chicago  Workforce  Investment  Council 

   (Chicago, IL) 
 Michael  Gritton,  President,  Workforce  Development  Council,  USCM  and  Executive  Director, 

   Kentuckiana Works (Louisville, KY) 
 Lisa  Hostetler,  Interim  Director,  Northwest  Workforce  Investment  Board/North  Central  Missouri 

   College (Trenton, MO) 
 Jasen Jones, Executive Director, Workforce Investment Board of Southwest Missouri (Joplin, MO)  

 Linda Kaiser, Executive Vice President, Chicago Housing Authority (Chicago, IL) 

 Eric Miller, Assistant Director, Kentuckiana Works (Louisville, KY) 

 Shannon  Miller,  Executive  Director,  Central  Pennsylvania  Workforce  Development  Corporation 

   (Lewisburg, PA) 
 Kellie  O’Connell‐Miller,  Director  –Research,  Reporting,  and  Communications,  Chicago  Housing 

   Authority (Chicago, IL) 
 Thomas Phillips, Second  Vice President, Workforce Development Council, USCM and President and 

   CEO, Capital Workforce Partners (Hartford, CT) 
 Becky  Steele,  Retiring  Director,  Northwest  Workforce  Investment  Board/North  Central  Missouri 

   College (Trenton, MO) 
 J.William Ward, President & CEO, Regional Employment Board of Hampden County, Inc (Springfield, 

   MA) 
 Philip Weinberg, President, NYC Workforce Investment Board (New York, NY) 

 Linda Woloshansky, President, The Center of Workforce Innovations (Valparaiso, IN) 

 Elaine  Wood,  Chief  Executive  Officer,  Northwest  Michigan  Council  of  Governments  and  Northwest 

   Michigan Works (Traverse City, MI) 


                                                                                                             10 

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