business transformation report

1

Table of Contents

Chapter

Page

1

Executive Summary 3

2

Introduction 17

3

Background 19

4 Scope

23

5 Review Findings

A. Interventions

1. Labour Market Development

2. Work Experience

3. Education, Training & Related Supports

4. Employment Supports

5. Income Assistance

6. Social Supports

B. Administrative Oversight

1. Education and External Liaison

2. Workforce Development

3. Corporate Services

25

26

58

133

196

224

253

276

311

331

6 Service Delivery Model and Recommendations

A. Administrative Oversight

B. Program Delivery

353

353

365

7 Next Steps

391

2

Table of Contents

Appendices

A Summary of Policy Issues

397

B Summary of Legislative Issues

417

C Summary of Business Process Issues

419

D Summary of Quick Wins

447

E

F

Summary of Streamlining & Consolidation Opportunities

Work Groups Terms of Reference and Timelines

453

465

Chapter 1

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Executive Summary

The current Department of Advanced Education and Skills is the

result of many changes in focus and programs going back over a

decade. Most significantly, during that time the Department has

seen a shift from a social focus of the Department of Social

Services to its current employment focus. Although there have

been many substantial changes to programs and services, there

have not always been changes to program integration,

realignment, streamlining and business processes necessary for

efficient and effective program delivery. This is not a startling

revelation; in fact, the executive team has known for quite some

time that there was a need to review the Department’s entire suite

of programs and services with a view to integrate and streamline

programs and services and identify improvements in program

delivery.

While there was no shortage of anecdotal evidence about such things as process inefficiencies and

program inconsistencies, there had never been any comprehensive coordinated review and analysis

of departmental programs. The scope of this review is to “Conduct a review of current programs

and services (e.g. OIM, IS, LMDA, CEYS, LMA, Advanced Skills) with the goal to streamline

(consolidate and/or merge) existing programs. Discontinue programs no longer meeting current and

future labour market needs, and identify new, responsive and innovative programs and services.”

As expected, the review has identified numerous issues with current programs and services, and

business practices. Some of the more significant issues identified include:

Strategic Positioning

For the most part, the department is not strategic in its decision making processes. There were a

number of issues identified as follows:

The department has not fully implemented the Workforce Development Secretariat which was

approved in budget 2012-13. With a mandate to ensure labour market policies and programs

are strategically aligned to develop and deploy a highly trained workforce, the Secretariat

would include a formalized and coordinated approach to gather, disseminate and distribute

strategic labour market information to staff.

Although AES currently has multiple staff (e.g., LMDOs, PDOs, CSOs, and Hotline staff) who

interact directly with employers and industry, the information gathered is not always shared

among staff nor are the employer or industry contacts coordinated. This can result in overlap

and duplication of work.

Although the department has significant information available on labour market supply and

demand, the information is not used to make strategic decisions with regards to how budgets

are allocated to programs, what programs are required to be delivered by the public and private

college systems and what initiatives are planned for the department to address current labour

market gaps.

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Executive Summary

Staff have indicated that the current labour market information does not provide adequate

localized labour market information to supplement current regional and provincial data. For

example, while labour market information on the Avalon peninsula may be considered

adequate, information on a particular community is not readily available.

There is no formal mechanism in place to ensure front-line staff are provided with the labour

market information they need to effectively perform their duties and ensure that they have the

proper strategic focus when dealing with clients. Furthermore, staff have limited expertise in

the interpretation and analysis of labour market information and reports provided.

The correlation of a number of programs and services to the department’s current mandate is

marginal at best – for some there clearly is no correlation. This is particularly true with many

of the programs for youth currently funded by AES. Strategic decisions will be required

concerning the continuation of the funding and delivery of a number of programs and services.

Information on labour market supply and demand is necessary to identify gaps (new and

emerging) in programs and services and ensure that appropriate programming is funded to

address the gaps. However, although the department has labour market information, the

information is not used in a strategic way to develop initiatives designed to address labour

market issues. Instead, the department approves new programs, for the most part, without

consideration of a labour market analysis.

Program Integration

The Office currently operates in 6 program silos (LMDA, CEYS, IS, AE, OIM, DPO). The

following chart shows the program distribution by current area of responsibility for the 70 programs

analyzed:

DPO, 2

OIM, 4

AE, 8

CEYS, 33IS, 9

LMDA, 14

Program Breakdown by Current Area of Responsibility

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Executive Summary

There are a number of issues that arise as a result of the current program silos:

service flow for clients is disjointed and unnecessarily cumbersome;

there are instances where clients have to provide the same information to multiple staff;

there is limited information sharing among the various silos and there is no formal

communication protocol; and

there are inconsistencies in client assessments which results in inconsistent benefits, and

inconsistencies in eligibility.

The 70 programs identified in the chart have been grouped into six service areas for program

delivery: Labour Market Development; Work Experience; Education, Training & Related Supports;

Employment Supports; Income Assistance; and Social Supports. Many of the programs have

significant similarities and, when consolidated and streamlined, eliminate the current program silos

and result in an improved service flow model. A proposed service delivery model is included in

Section 6 of this report and, after elimination and streamlining, the 70 programs have been reduced

to 43.

3rd

Party Service Providers

The department spends approximately $82 million annually on grants to 3rd

party service providers.

The following table shows entities which received $1 million or greater from AES and also how

much funding these entities received from other government departments for each of the last two

fiscal years.

Entity 2011-12 2010-11

Other

Depts AES Total

Other

Depts AES Total

Avalon Employment Inc 0 659,691 659,691 0 1,122,050 1,122,050

Bay St. George Community

Employment 0 333,664 333,664 0 1,014,421 1,014,421

Brother T I Murphy 624,150 1,907,566 2,531,716 624,000 730,418 1,354,418

Canadian Paraplegic Association 110,000 1,659,581 1,769,581 110,000 1,505,390 1,615,390

Celtic Business Development

Corporation 0 1,402,299 1,402,299 0 1,136,613 1,136,613

Choices for Youth Inc 452,585 1,171,601 1,624,186 342,694 2,108,934 2,451,628

Community Business

Development - Trinity

Conception 0 1,541,240 1,541,240 0 322,960 322,960

Community Education Network 102,200 1,892,957 1,995,157 265,700 1,526,447 1,792,147

Community Youth Network 38,938 1,880,541 1,919,479 77,700 1,100,436 1,178,136

Corner Brook Pulp and Paper 2,859,162 1,669,180 4,528,342 25,373,913 1,284,670 26,658,583

Random North Development

Association 0 824,303 824,303 0 1,429,988 1,429,988

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Executive Summary

Entity 2011-12 2010-11

Other

Depts AES Total

Other

Depts AES Total

Stella Burry Community

Services 772,163 3,031,833 3,803,996 291,876 1,895,487 2,187,363

Vera Perlin Society, Inc 5,526 1,213,381 1,218,907 2,096 1,771,378 1,773,474

WISE 45,000 1,250,123 1,295,123 47,514 1,384,245 1,431,759

YMCA - YWCA of Northeast

Avalon 18,793 1,679,024 1,697,817 1,915,731 1,334,018 3,249,749

Total 5,028,517 22,116,984 27,145,501 29,051,224 19,667,455 48,718,679

There were a number of issues identified with regards to 3rd

party service provider grants as follows:

The department does not strategically consider which services are required and whether those

services would be best delivered either internally or externally. As a result, the current use of

3rd

party service providers is not based on any strategic analysis; instead, it is ad hoc and

reactive to submissions from the service providers. This can result in a duplication of services

and inefficiencies (e.g. employment counseling).

Many of the same agencies are funded year after year without any call for proposals to

determine if there are others in the community who could deliver services more efficiently or

effectively and, for the most part, without any conclusion about whether required outcomes are

being achieved. There seems to be a “once you are in, you are in” funding mentality among

staff and service providers.

There is no formal cross departmental review or monitoring of total funding provided to a

particular agency. As a result, there could be an overlap of funding to some agencies and, given

that some agencies are provided with significant amounts of funding for “program

administration”, in many cases that funding could be reduced if the department was to

“package” programs.

In most instances, monitoring and evaluation of 3rd

party services is not adequate. While

activity levels are considered, there is no determination of either expected outcomes or actual

outcomes. Furthermore, the current Accountability Framework does not require funded

agencies to provide information necessary to assess whether the program is meeting the desired

outcomes.

Departmental Budget

The gross expenditure budget for AES for 2012-13 totaled $1.006 billion (2011-12 – $1.004 billion).

There were a number of issues identified with the budgetary process as follows:

Given the primary mandate of attaching individuals to the labour market, information on

labour market supply and demand is necessary to identify shortages and strategically allocate

funding to maximize initiatives designed to address labour market issues. However, current

annual budget allocation among programs is not based on such a strategic priority; instead,

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Executive Summary

programs are funded based on historical allocations and spending patterns. As a result, there is

a lack of strategic targeting of initiatives and/or programs designed to address labour market

issues.

The budget submitted for many departmental programs are knowingly inaccurate in that the

budget requests do not reflect the expected program activity. Staff indicated that they have to

artificially inflate certain programs in order to be able to “over-commit” as a way to

compensate for program slippage and ensure that the monies are expended. Once the expected

budget is expended, transfers are then made to other programs.

To illustrate:

Service Agreements for Youth (SAY) is budgeted at $675,000 while actual

expenditures are expected to total approximately $1.1 million. To fund SAY and other

programs such as Grants to Youth Serving Organizations (GTYO) and Graduate

Employment Program (GEP), the Youth and Student Services budget is monitored to

identify slippage which is then redirected to these programs. Slippage has traditionally

occurred in Student Work and Services Program (SWASP) – Paid and Student

Employment Program (SEP) - High School.

The Apprenticeship Division continues to spend in excess of its budget allocation. For

example, while the apprenticeship budget allocation is $5.8 million expenditures are

averaging approximately $7 million per year. The difference is funded through

slippages in other areas.

A review of the “budget” versus “actual” information at the beginning of each of the six

headings in Section 5 – Review Findings of this Report will also show some unusual variances,

many which result from this practice.

Budget practices in the CEYS division are inconsistent in that some programs have budgets

allocated and managed by head office while other programs have budgets allocated and

managed by the regions. In particular, the Employment Development Supports, NL Works,

Linkages, Supported Employment and Training Services programs are managed at the

Regional level. While regional staff believed that budgets managed at the regional level

without head office intervention provides them with a more efficient and effective way to run

programs, head office staff believed that it was more effective if they managed the budgets

from head office. Current departmental budget practices will have to be rationalized.

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Executive Summary

Information Systems

Currently, the department has multiple non-integrated systems in place for program delivery. While

not exhaustive, the following is a list of systems and the program areas where they are used:

IT System Program Area

CEYS IS LMDA OIM SFS SLC ALL A&TC IN -SER

CAPS

CSMS

CSGC

TRIM

FACTS

DACS

PNP FMS

VNPS Grants & Contributions DB

Galaxy

LaPro

SAMS

Service NL MVR

Simply Accounting

Resolve

Equifax

Perimeter

Private Training Admin System

ABE Database

Women Apprentice Database

Due to the number of different systems being used and the lack of integration, staff are not able to

share information electronically which, in some instances, requires staff to manually complete

paperwork in order to share information. Introducing additional manual steps increases the risk of

errors and omissions and contributes to inefficiencies. For the most part, information necessary to

manage programs and budgets is not readily available from the current systems.

Service Delivery Model

Although there have been many substantial changes to the Department, there has not always been the

required program realignment and streamlining initiatives necessary for efficient and effective

program delivery. There were a number of issues identified as follows:

Effectively, there are currently three separate organizations working under the umbrella of the

department (i.e. HRLE, LMDA and Advanced Education). To date, there has not been any

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Executive Summary

formal integration of these organizations which has undoubtedly contributed to the current

disjointed service delivery model.

The department does not have a formalized case management approach and, as a result, it does

not do a good job in case managing clients. In most instances, interventions are not monitored

to determine if they were successful in getting individuals attached to the labour market.

There is no standardized departmental-wide employment and training assessment tool to

determine the level and type of support required to facilitate access to the department’s

programs and services.

The department does not have an integrated approach for assessing financial need and

providing financial supports to clients. Currently there are varied assessment tools and

responses to requests for financial supports across the department.

Client service is not streamlined in that clients have to interact with multiple staff. As a result,

broader issues related to labour market attachment may not be resolved. A good example of

how the current approach is not working is evidenced by the minimal reduction in income

support caseload during the last four years and the fact that demographic information and

information on an individual’s skill set is not known. The department is reactive to the needs of

income support clients without a focus on labour market attachment.

The current service flow model results in clients having to deal with multiple departmental

staff and, in some instances, with multiple 3rd

party service providers. This causes frustration

for clients and staff and does not contribute to a coordinated approach to required client

interventions.

Adult Basic Education (ABE)

Annually, the department spends approximately $22 million related to ABE training for

approximately 2,000 students. There are a number of issues with the ABE program as follows:

Although the administration of ABE currently involves three divisions: LMD, CEYS and Adult

Learning and Literacy, there is no formal protocol in place regarding the sharing of information

and program coordination.

The department does not track ABE clients to determine whether the intervention resulted in

either the client transitioning through ABE or whether the client made a permanent attachment

to the labour market.

AES is required to transfer approximately $6 million annually to CONA for approximately

1,250 ABE seats, of which 349 seats are used by approximately 600 income support clients.

However, if any of the 349 seats are not occupied by income support clients and if clients from

Skills Development (LMDA) use any of the vacant seats, AES has to pay for the ABE seat

again (at a higher rate).

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Executive Summary

Currently, ABE Levels II and III are not available in an eLearning format and ABE level I

classroom instruction is only available during normal working hours i.e. 9am-5pm. As a result,

it limits accessibility for either those currently working or those with family circumstances

preventing them from completing the program.

There is a financial incentive for public and private colleges to maximize the duration of ABE

training. Staff expressed concerns that some of the assessments have clients rated lower than

necessary resulting in maximizing the duration and cost of ABE training. It was noted that

there was no justification for the inaccurate assessment.

The department does not apply a return on investment model in the determination of whether

an individual should be funded for ABE.

The ABE program is self paced and, in some instances, there is a limited requirement for

clients to progress at a predetermined rate. Also, training institutions do not always provide the

required attendance and progress reports making it difficult to monitor client progress.

LMDA - Skills Development

The program is designed to provide funding for education and training to EI eligible clients to assist

them with obtaining the skills necessary for employment. In 2011-12, a total of 9,281 clients were

served under this program. The budget for 2011-12 is $67.9 million. The current top 5 funded

individuals in the skills development program are identified in the following table.

ABE

Cost

Program

Cost

Total

Cost

Program

1 92,334 26,301 118,635 Heavy Equipment Operator

2 50,777 53,072 103,849 Accounting & Payroll Administrator

3 34,220 69,565 103,785 Accounting & Payroll Administrator

4 43,505 56,476 99,981 Accounting

5 38,814 58,710 97,524 Information Systems Specialist

There were a number of program issues identified as follows:

There is a lack of strategy with regards to the allocation of funding for Skills Development to

ensure the needs of the labour market are met; instead, budgets are based on historical

spending.

Currently, a financial assistance package is “negotiated” in response to individual needs. As a

result, there are differences in the financial assistance provided to individuals in similar

circumstances.

The amount and duration of financial supports provided for participation in education and

training programs varies significantly across the department depending on the client group

(CEYS, LMAPD, LMA, Student Aid and LMDA).

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Executive Summary

Family income is only considered against the Basic Living Allowance; therefore, families with

significant incomes and who could potentially contribute more towards the incremental costs

(e.g. tuition, books) are not required to contribute.

Apprenticeship

The budget for 2011-12 was $5.8 million for tuition and books and $1.98 million for incremental

costs and a total of 2,700 clients were served. There were a number of issues identified as follows:

The apprenticeship program is not integrated as part of the suite of programs and services

offered by AES.

The Apprenticeship Division does not track the status of its 5,800 apprentices to determine

whether they are participating as required. Although the division has a database, it cannot

readily provide information on an individual’s participation.

Although the department can provide funding to train pre-apprentices, they are not monitored

or provided any assistance (unless requested by the individual) to connect them to an employer.

Therefore, the department can spend significant amounts of funding to train individuals

without being proactive in getting them attached to the labour market.

Block training schedules are not posted on the Department’s web page. Instead, 6-8 weeks

prior to the commencement of block training, a letter is sent to the apprentice and the

employer. To illustrate, as of October, 2012 the department is aware of upcoming block

training scheduled up to June 2013. However, this information will not be released to

apprentices and employers until approximately 6-8 weeks prior to the commencement of the

block training.

The Apprenticeship and Trade Certification Division can work with the public and private

colleges and determine whether a college would be permitted to offer advanced level training

based on the division’s determination of capacity. The department also has an Institutional

Services Division responsible for oversight of all post secondary training institutions.

However, the two divisions do not have a formal communication process to ensure that the

Apprenticeship Division will recommend that its clients attend the location.

There is no formal case management process for pre-apprentices and apprentices; therefore,

there is less of a focus on addressing their needs with regards to training, employment and

obtaining a journeyperson status. As a result, pre-apprentices and apprentices may experience

difficulty in obtaining journeyperson status.

At an Apprenticeship Forum, it was indicated that the department was not responsive in a

timely manner to stakeholder requests for information. Furthermore, stakeholders indicated

that in many instances it took many calls or emails in order to make contact with departmental

staff.

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Executive Summary

The skill set of the eight PDOs located in the department’s Regional offices is not being

utilized effectively. Currently, PDOs (GS 42) are involved in administrative duties and as a

result do not spend a sufficient amount of their time working directly with employers and

apprentices.

There is no integration of PDOs within the department’s current program administration, which

results in a disjointed service delivery approach. For example, PDOs are not located in AES

offices across the province and do not have ongoing contact with other AES front-line staff.

Income Support

In 2011-12, a total of $228.7 million was budgeted for income support services. As at May 2012,

there were 24,794 income support cases. The department is not doing a good job transitioning

income support clients from income support to an attachment to the labour market. This situation can

be attributed to a number of issues:

The department has not adopted a formalized case management model to assist clients make a

labour market attachment. As a result, information required for a comprehensive screening and

assessment process to identify a client’s current barriers to employment is not obtained which

limits the ability to develop responsive programs to address those barriers and move income

support clients to the labour market.

The income support division currently does not refer all working income support clients to

CEYS staff where an assessment would be completed to identify the supports required for

them to obtain full-time employment and transition from income support. As at September

2012 there were 723 clients who, while currently working, required income support.

Furthermore, not all clients referred to CEYS are seen by CEYS staff. For example, during the

period October to December 2011 inclusive, there were 797 applications for income assistance

involving 873 adults. Ultimately, 670 individuals received income assistance. The following

occurred:

468 (70%) of the 670 individuals who received income assistance were not referred to

CEYS; however, 77 (16%) were already CEYS clients and 118 (25%) became new

CEYS clients - even without referral. Therefore, 273 (41%) of the 670 individuals were

neither referred to CEYS nor seen by CEYS staff.

202 (30%) of the 670 individuals were referred to CEYS; however, 55 (27%) were not

seen by CEYS staff, 102 (50%) became new CEYS clients and 45 (22%) were already

CEYS clients.

In summary, of the 670 individuals who received income assistance, 328 (49%) (273 not

referred to CEYS and 55 referred to CEYS) were not seen by CEYS staff.

There are issues with the Income and Employment Support Act which make it difficult for staff

to transition clients from income support to a labour market attachment. For example:

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Executive Summary

There is no authority for staff to make mandatory referrals;

Income Support clients who have a breach in assistance for more than 30 days are

required, by legislation, to reapply for benefits if they have to return to income support.

As a result, clients have to go through the intake process again which is considered a

disincentive to attempt a labour market attachment; and

There are no consequences for clients who do not attend scheduled appointments.

Recently, the office attempted a youth engagement initiative whereby income support

clients were contacted and asked to come into the office to discuss job prospects. The

following outlines the results:

Office Sample Contacted Responded Came to Office

Corner Brook 65 51 4 3

Gander 32 9 3 2

Duckworth Street 111 111 8 3

Grand Falls-Windsor 42 23 8 1

St. Alban’s 19 3 2 2

Happy Valley-Goose Bay 19 14 5 0

Wabush 6 6 2 0

Total 294 217 32 11

% of Sample 100% 73.8% 10.9% 3.7%

As the information shows, the results of the initiative were dismal.

There are inconsistent Supplementary benefits to income support clients within and across

regions as a result of interpretation of policy and procedure (e.g. staff indicated that the policy

on medical transportation is “grey” which results in inconsistent interpretations and

inconsistent benefits to clients) and differences in service delivery models between regions:

service based versus case based.

Staff indicated that there are clients who request emergency assistance on a regular basis and,

as a result, emergency assistance may be misused by providing benefits in excess of regular

benefits. Currently, there is no requirement for CSOs to meet with income support clients who

make multiple requests for emergency assistance and, because CSOs determine the amount of

emergency assistance and whether it should be considered as an overpayment and recovered,

even within existing guidelines there can be differences in the amounts provided to clients in

similar circumstances and whether a client has to repay the emergency assistance. The

Department is not monitoring the use of emergency assistance and could not readily provide

details on the use of emergency assistance.

Currently, only approximately 28% of income support clients are utilizing direct deposit. The

use of direct deposit would reduce workload, avoid mail disruption, improve delivery, and

reduce costs.

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Executive Summary

Staff indicated that Keep In View (KIVs) in the income support database continue to

accumulate without the required action because they do not have time to address them. As at 7

November 2012, the following KIVs were in the system and required staff action:

Income Support CEYS Total

With PAU waiting for verification 104,462 2,044 106,506

Pending CSO action 68,304 3,536 71,840

Total KIVs 172,766 5,580 178,346

It is noted that these numbers are steadily increasing as a result of the lack of staff action.

Summary

The business transformation review identified many issues that will need to be addressed in order to

streamline programs, improve business processes and provide responsive programs. A proposed

service delivery model and recommendations to address the identified issues are outlined in Chapter

6 of the Report while Section 7 outlines the required next steps to implement the model.

The proposed model is intended to be responsive through strategic partnerships, enhanced decision

making practices and streamlined programs and services to ensure the Department of Advanced

Education and Skills fulfills its mandate. The major focus will be on addressing the needs of

individuals to attach to the labour market and on addressing the labour market requirements of

employers.

I would like to acknowledge the contribution of all departmental staff who participated in the

review process.

JOHN L. NOSEWORTHY, CA

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Introduction

The Department of Advanced Education and Skills was created in response to rapid growth and

expansion in the provincial economy and the need to focus on supplying highly educated graduates

and skilled workers for our fast growing economy. This new Department will also house the

Workforce Development Secretariat.

As a new Department, the Minister and the Executive are charged with the responsibility to develop

a clear vision and direction for the Department and to utilize the substantial resources available to it.

This will ensure the province’s workforce is developed to capitalize on the economic opportunities

that are known and predicted for the next five to ten years and to further position the province to

pursue and achieve long-term economic success.

The mandate of the Department of Advanced Education and Skills is as follows:

Helps citizens obtain the necessary educational, financial, and social supports to achieve the

greatest benefit from the opportunities that exist in the province;

Ensures the province has skilled workers and highly educated graduates to support a fast-

growing economy, by collaborating with Memorial University of Newfoundland (MUN),

College of the North Atlantic (CNA) and private institutions; and

Works to meet labour market demands and increase labour force participation through a

variety or programs and services for citizens and under-represented groups such as

Aboriginal people, women and people with disabilities.

The department fulfills its mandate through the following five lines of business:

1. Employment supports and career services;

2. Labour market development;

3. Post-secondary education and learning;

4. Policy development, review and input on cross-government initiatives; and

5. Income supports and basic benefits.

The Province’s Labour Market Outlook 2020, which was released in July 2011, laid out a snapshot

of the anticipated labour market demands for the next ten years, based on known confirmed projects

and labour force projections at the time. The Outlook projected that the Newfoundland and

Labrador labour force will experience unprecedented pressures over the next ten years as a

consequence of economic growth and expansion, coupled with a substantial decline in labour force

participants as a result of attrition (retirements).

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Introduction

It has been projected that the province will need 53,000 workers to enter the labour force by 2015.

Approximately 23,000 of these workers will be required to address growth and expansion associated

with major project developments that were known and scheduled at the time. In addition, a further

30,000 will be required to replace workers who are projected to retire during the same period. From

2016 to 2020, the Outlook projects a contraction in the labour force of approximately 16,000

associated with the completion of major projects but an anticipated additional growth in attrition of

33,000 workers. On a ten year basis, the Outlook predicted the need to bring 70,000 workers into

the NL labour force.

The predictions of Labour Market Outlook 2020 were based on known projects. Since the release of

Outlook 2020, other projects have been announced or are in development which will expand the

labour market needs leading up to 2015 and will mitigate against the forecasted contraction in the

post 2015 period.

In order to meet the labour needs of the future, the Province will be working to maximize the

number of graduates exiting our post-secondary institutions, with a view to ensuring they are trained

in the occupational growth areas of the future. Opportunities will be pursued to actively repatriate

former Newfoundlanders and Labradorians who may have left in search of meaningful employment.

The Province will be seeking to attract and retain those workers who currently commute outside the

province for employment. The Department will work with business and labour to ensure there is

maximum mobility of workers within the province to gain access to the available jobs. Likewise,

efforts will be required to increase labour force participation, particularly amongst under-represented

groups including aboriginals, persons with disabilities and women. Immigration will be another key

source of specialized labour and the Department will need to work with business and industry to

maximize the opportunities for older workers to remain in the labour force for longer periods of

time.

Chapter 3

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Background

The current Department of Advanced Education and Skills is the result of many changes in focus

and programs going back some 15 years. During that time, the Department has seen a shift from a

social focus of the Department of Social Services to its current employment focus. In November

2009 there was the devolution of the LMDA Program from the Federal Government to the province

and in November 2011 the Advanced Education division of the Department of Education merged

with the Department of Human Resources, Labour and Employment to form the Department of

Advanced Education and Skills. To get a context to the extent of program changes it is necessary to

go back to 1997 and look at a chronology of some of the more significant events since that time:

In 1997, labour market programs were transferred from the Department of Rural Renewal

and the former Department of Social Services became the Department of Human Resources

and Employment;

In 1998, Child, Youth and Family Services and Family and Rehabilitative Services were

transferred to Health and Community Services;

In 2004, with the addition of the Labour Relations Agency, the department was renamed the

Department of Human Resources, Labour and Employment (HRLE). The Provincial

Government also transferred the mandate for youth services to the department and made the

department the first point of contact for immigration matters;

In 2005, the Department took on the lead role for a government-wide Poverty Reduction

Strategy and an Immigration and Multiculturalism Strategy;

In 2006, the Labour Market Development Division was formally established to provide

timely and accurate labour market information and services;

In 2007, the Office of Immigration and Multiculturalism was officially established to oversee

implementation of the Provincial Immigration Strategy;

In 2009, the Department established the Disability Policy Office and assumed the lead role

for developing a government-wide strategy on the inclusion of people with disabilities; In 2009, the Department also began delivering programs to EI Eligible individuals under the

Labour Market Development Agreement;

In 2010, the Department established the Office of Youth Engagement, responsible for

ensuring a coordinated approach among government partners and departments in the

implementation and ongoing development of youth public policies that affect youth and their

priorities; and

In 2011, the Provincial Government’s responsibility for advanced studies was transferred

from the Department of Education to HRLE, creating a new Department of Advanced

Education and Skills.

Chapter 3

18

Background

Although, as the chronology shows, there have been many substantial changes to the Department

since 1997, there has not always been the required program realignment and streamlining initiatives

necessary for efficient and effective program delivery. Furthermore, not all business practices have

been assessed to determine their adequacy and effectiveness. The Executive at the Department have

known for quite some time that there was a need to review the entire suite of programs and services

offered with a view to making significant changes in what programs are offered and also how they

are delivered. While there was no shortage of anecdotal evidence about such things as process

inefficiencies and inconsistencies, there has not been a comprehensive review and analysis of the

programs offered by the Department.

As a new Department, AES brings together substantial financial resources and human resources to

fulfill its current mandate. The Department has approximately 900 employees and the gross

expenditure budget for 2012-13 is $1.006 billion. The gross expenditure budget for each of the past

five years is included in Table 1.

Table 1

Departmental Gross Expenditure Budget

Fiscal years 2009 through to 2013

($Millions)

Program 2013 2012 2011 2010 2009

Executive and Support Services $ 16.4 $ 14.4 $ 13.5 $ 15.0 $ 13.8

Service Delivery 24.2 24.3 23.4 23.5 21.1

Income Support Services 234.6 229.5 218.2 214.0 215.4

Employment and LMD 165.9 178.3 215.0 163.2 38.7

Youth and Student Services 14.3 19.9 20.2 16.3 12.7

Office of Immigration and

Multiculturalism

2

2.4

2.3

2.5

2.0

Sub-total 457.4 468.8 492.6 434.5 303.7

% Change Year to Year (2.43%) (4.83%) 13.37% 43.07% -

% Cumulative Change 50.61% 54.36% 62.20% -

Advanced Studies 548.1 530.1 - - -

Labour Relations Agency - 3.7 3.4 3.4 3.0

Workplace Health and Safety - 1.1 0.9 1.0 1.0

Total $1,005.5 $1,003.7 $ 496.9 $ 438.9 $ 307.7

Source: Government Estimates Book

Chapter 3

19

Background

Currently, the department has the province divided into four regions for service delivery: Avalon,

Central, Western and Labrador. The Department has 27 service sites throughout the province and has

contracts with third-party employment assistance services (EAS) providers who operate in 115 sites

throughout the province. As Figure 1 shows, 22 of the 27 departmental service sites are on the

Island portion of the Province. The remaining 5 departmental service sites are in Labrador (Happy

Valley- Goose Bay, Wabush, Nain, Hopedale and Mary’s Harbour).

Figure 1

AES Locations and Third-Party EAS Service Provider Sites (Island Portion of the Province)

Chapter 3

20

Background

In the spring of 2012, the department commenced a comprehensive review and analysis of various

programs and services currently being administered either internally or through a third party service

provider. It was determined that the Department had reached a point where the integration and

streamlining of programs and the identification of business process issues was required.

Chapter 4

21

Scope

The purpose of this review and analysis is to “Conduct a review of current programs and services

(e.g. OIM, IS, LMDA, CEYS, LMA, Advanced Skills) with the goal to streamline (consolidate and/or

merge) existing programs. Discontinue programs no longer meeting current and future labour

market needs, and identify new, responsive and innovative programs and services.”

The scope of work was sanctioned by an Executive Steering Committee which, at that time, was

comprised of:

Marilyn Field, Deputy Minister;

Bruce Belbin, Assistant Deputy Minister;

Bill Duggan, Assistant Deputy Minister;

David Lewis, Assistant Deputy Minister; and

Roxie Wheaton, Assistant Deputy Minister.

The work is being coordinated by a Business Transformation Team comprised of:

John Noseworthy - Project Lead;

Sandra Bishop, Senior Manager; and

Keith Jewer, Manager.

A Review Team was established to identify current programs and services and to participate in the

review and analysis of those programs and services. The team was comprised of:

Daphne Bavis (LMDA);

Candice Ennis-Williams (AE & Core Mandate Review);

Bren Hanlon (Finance);

Janine Hynes (OIM);

Tina Murphy (IS);

Ken O’Brien (CEYS); and

David Pike (AE).

To make the task manageable and ensure there was an appropriate level of review and analysis

applied to the departmental programs and services, the work was scheduled in five phases as

follows:

Phase 1

On May 9, the team met and reached a consensus on scope, key deliverables and timelines. A draft

template for capturing relevant program information was presented and finalized by the review team.

On May 16, 23, & 30, the review team met to provide updates on the status of the program review

and analysis and to identify any problems or inconsistencies with capturing information.

On June 27 & 28, review team members met to present on their respective program areas and

provide an overview of their analysis. A second template was presented to the review team and

revisions were made as per the team’s recommendations.

Chapter 4

22

Scope

Team members agreed that the analysis of all programs would be completed by August 31, 2012.

Phase 2

From May 9 to July 16 team members went to their respective areas and gathered the required

information to populate the required templates.

Phase 3 Once the templates were populated and the required program information obtained, the

approximately 100 identified programs and services were categorized and divided into two: resulting

in approximately 50 programs and services for each of the two weeks which had been decided as

necessary to complete the team analysis.

The team met for two weekly sessions - July 16-20 and August 6-10.

Phase 4

Departmental Directors were provided with the Program Analysis Worksheets to ensure they were in

agreement with the findings and recommendations. A draft report, outlining all issues and

recommendations originating from the Phase 3 work, will be presented to the Executive Steering

Committee for their consideration. If the report is accepted, it will be issued in final format and the

department will move into Phase 5 – the final phase.

Phase 5 Phase 5 will be the implementation phase. From the findings and recommendations in the final

report, the Executive Steering Committee will establish priorities and ensure that all required work

and activities are planned for orderly completion. Work groups, some already constituted others to

be established, will work on specific areas to identify and coordinate the required changes and

modifications that will affect all facets of program and service delivery within the Department. A

listing of established work groups, their terms of reference, team members, and timelines are

included in Appendix F. The lead of each work group sits on an overarching Work Group Steering

Committee which meets every third week to ensure that all on-going work is coordinated.

Chapter 4

23

Review Findings

The Review Team identified a total of 70 programs (Interventions) for review and analysis. The

programs were then grouped based on similarities in the program’s intended purpose and included in

one of six broad service categories. In addition to the 70 departmental programs, the Review Team

also identified 25 services and/or functions (Administrative Oversight) for review and analysis.

These 25 services and/or functions have been included in one of three categories.

The categorization of programs and services forms the basis of the proposed service delivery model

as detailed in Section 6 of this report. The proposed service delivery model would result in a more

strategic approach to program development and funding, better integrate and streamline staff and

services, and improve service delivery to clients.

The programs and services, analysis and, findings and recommendations are included in the

following sections:

5 - A Interventions

1. Labour Market Development and Productivity 12

2. Work Experience 22

3. Education, Training & Related Supports 14

4. Employment Supports 8

5. Income Assistance 4

6. Social Supports 10

70

5 - B Administrative Oversight

1. Education and External Liaison 12

2. Workforce Development 6

3. Corporate Services 7

25

Chapter 5 5-A-1

24

Review Findings

5-A-1 Labour Market Development and Productivity

Labour market development and productivity involves the development and delivery of labour

market and career information to help improve employment outcomes for individuals supporting

economic growth and development throughout the province.

As the following table shows, a total of 12 programs and services with a cumulative budget of $10.4

million for 2011-12 were identified as being part of the “Labour Market Development and

Productivity” category.

1 Labour Market Development

11/12 Budget

($M's)

11/12 Actuals

($M's) Reference

1 JOBS in NL LMDA 0.096 0.096 5-A-1-1

2 Labour Market & Career Information Hotline LMDA N/A N/A 5-A-1-2

3 NL HR Manager LMDA N/A N/A 5-A-1-3

4 LMI Works LMDA N/A N/A 5-A-1-4

* 5 Smart Force NL LMDA 0.136 0.136 5-A-1-5

* 6 Labour Market Partnerships LMDA 6.645 3.976 5-A-1-6

* 7 Targeted Initiative for Older Workers (TIOW) CEYS 2.722 2.561 5-A-1-7

8 Multiculturalism Strategy OIM N/A N/A 5-A-1-8

9 NL Provincial Nominee Program OIM N/A N/A 5-A-1-9

10 NL Settlement & Integration Program (Grants & Contributions) OIM 0.705 0.683 5-A-1-10

11 International Graduate Retention Incentive Program (IGRIP) OIM 0.075 0.033 5-A-1-11

12 Youth Apprenticeship Program Pilot ATC N/A N/A 5-A-1-12

Advanced Studies Branch:

Apprenticeship & Trades Certification ATC 1 - -

Income, Employment & Youth Services Branch:

Career, Employment & Youth Services CEYS 1 2.722 2.561

Labour Market Development & Client Services Branch:

Labour Market Development Agreement LMDA 6 6.877 4.208

Office of Immigration & Multiculturalism OIM 4 0.780 0.716

Total Labour Market Development Programs 12 10.379 7.485

* 3rd Party Grants

Chapter 5 5-A-1

25

Review Findings

The following charts illustrate the proportion of the 12 Labour Market Development and

Productivity programs relative to the overall interventions budget and the 70 programs included in

the 6 categories used in the review and analysis process.

Labour Market

Development, 10.379

AES Interventions ($412.392M budget)

Labour Market

Development, 12

AES Interventions (70 programs)

The following charts outline 12 programs by current area of responsibility along with the

corresponding budgets.

AE, 1CEYS, 1

LMDA, 6OIM, 4

Labour Market Development Programs

by Current Area of Responsibility

CEYS, 2.722LMDA, 6.877

OIM, 0.780

Labour Market Development Budgets (in $M's)


A number of issues were identified during the review of the 12 programs in the Labour Market

Development and Productivity category as follows:

Issues related to lack of strategic positioning with programs and services, limited labour market

research, and disjointed processes and procedures in the administration of labour market programs

are categorized in the following four themes:

1. Workforce Development and Productivity;

2. Labour Market Research;

3. Program Development and Administration; and

4. Employer Services.

1. Workforce Development and Productivity

Budget 2012 - People and Prosperity had approved the establishment of a Workforce Development

Secretariat within the Department with a mandate to ensure labour market policies and programs are

strategically aligned to develop and deploy a highly trained and skilled workforce. To date, the

Secretariat has not been formally implemented.

Chapter 5 5-A-1

26

Review Findings

Without a formalized Workforce Development Secretariat, funding for the current programs and

services may not be allocated based on the department’s mandate and priorities. For example, the

current Labour Market Partnerships (LMP) program with a budget of $6.6 million has a goal to

provide funding to support employers, employer or employee associations, community groups and

communities in developing and implementing labour market strategies and activities for dealing with

labour force adjustments and meeting human resource requirements. However, the program is not

aligned with AES priorities. In addition, there is no request for proposal (RFP) process related to the

awarding of grants and, prior to the current fiscal year, there was no strategic approach with regard

to supporting projects in line with departmental priorities.

Prior to LMDA devolution (2009), there was a formal committee required to review, assess and

recommend proposals for LMP funding and decisions of the committee were documented. Since

LMDA devolution, there has neither been a formal committee nor has there been formal

documentation to support decisions on LMP proposals. Instead, there is a consultation process with

relevant departments and a meeting with the Deputy Minister of AES for project approval (project

recommendations are submitted to the Deputy in a standard format for approval decisions) – there is

no formal documentation.

2. Labour Market Research

Without the Workforce Development Secretariat, the Department cannot formally capture labour

market information to assist budget planning and approval processes. Instead, multiple labour

market research activities are taking place in both Advanced Education and Labour Market

Development with limited collaboration between the two, resulting in duplication of effort.

The provision of labour market information services is also currently distributed over multiple

divisions with little or no formal coordination and collaboration. For example, there is a duplication

of services in that AES currently has Hotline staff (GS-37) in its Labour Market and Career

Information Hotline while the Student Aid Information Officers (GS-30) and Income Support

Screeners (GS-34) are providing similar services.

While some labour market information is being captured and disseminated, the department has not

formally identified an integration approach for labour market information among departmental staff.

Furthermore, employees who receive labour market information on a regular basis have not been

provided with departmental direction on how to incorporate this as part of the overall approval of

training or employment programs to ensure funding is allocated on a priority basis.

Chapter 5 5-A-1

27

Review Findings

3. Program Development and Administration

Current approaches in the development, approval, and administration of AES labour market

programs are not reflective of strategic approaches to support long-term sustainable jobs in high

demand industries or sectors. Programs are currently developed and administered with no formal

strategy for implementation or analysis on how the new program integrates with existing programs

and services. For example:

The Apprenticeship and Trades Certification Division is currently administering the Youth

Apprenticeship Program with the goal to create a smoother transition from high school to post-

secondary training, retain disenfranchised students, have younger certified journeypersons entering

the workforce, and strengthen linkages between high schools, post-secondary, and industry. The

following program issues were identified:

although the Youth Apprenticeship Program has shown strong uptake in the 5 pilot schools

(Lab City, Corner Brook, Gander, St. Lawrence and Mt Pearl), there is no province wide

strategy to implement the program to all relevant schools. Instead, the department is in

consultation with school boards to select an additional 5 schools (Deer Lake, HV-GB, St.

John’s, Clarenville and Carbonear). As a result, an important source of labour market

participants may not be optimized;

currently the program does not provide incentives such as wage subsidies to employers similar

to those offered to other registered apprentices. As a result, employers may give preference to

hiring registered apprentices versus registered youth apprentices;

although the department has Student Aid Division staff and a Career Development Partnership

Initiative (CDPI) which includes Career Development Liaison Officers (CDLO) visiting high

schools throughout the province, neither group is involved in the promotion or coordination of

the Youth Apprenticeship Program. As a result of the lack of coordination, the department is

missing an opportunity to better promote and streamline services offered to students which

may impact participation;

the department has not developed a credit transfer matrix that could be used to identify all

credits available to a student attending post secondary training. As a result, registered youth

apprentices may not receive credit for completed courses within the high school system; and

the Apprenticeship Information Management System (AIMS) tracking system is not capable of

providing necessary tracking information such as statistics and reports.

Chapter 5 5-A-1

28

Review Findings

Other labour market program development and administration issues identified include:

a) JOBSinNL.ca

JOBSinNL.ca is a website which provides a mechanism for employers to post jobs and receive

applications directly from registered job seekers. It also allows job seekers to view and apply

for jobs specifically within Newfoundland and Labrador. Despite the benefits of an online job

site, there is a need for increased awareness of the website in order to increase participation of

both employers and employees. Although an advertising campaign has been developed, it has

not been launched in an effort to increase participation. Other issues identified include:

There are currently duplicate websites for job postings (JOBSinNL.ca and the PSC

website) which results in lack of coordination and increased administration costs;

Because the Public Service jobs are posted on the website maintained by the Public

Service Commission, AES staff have to key those jobs into JOBSinNL. This results in a

duplication of effort and unnecessary additional costs;

It is not possible to have automated matching of jobs to resumes; and

Larger companies such as Bull Arm, Nalcor and Vale do not use JOBSinNL and instead

maintain their own employment websites.

b) Targeted Initiative for Older Workers (TIOW)

The Targeted Initiative for Older Workers is a federal/provincial cost shared (70/30) initiative

providing support to unemployed older workers in communities affected by downsizing or

closures through programming aimed at reintegrating them into employment.

Federal funding for TIOW is scheduled to conclude in 2014 and, although the program has

been successful in meeting its objectives, there has not been any initiative to capture effective

program elements within the department’s suite of services.

c) Office of Immigration and Multiculturalism (OIM) programs

The OIM has three labour market programs operated from an office separate from other

departmental program staff. The rented space results in unnecessary costs and makes

interaction and program integration with other divisions difficult.

Chapter 5 5-A-1

29

Review Findings

Additional program specific issues were identified as follows:

Provincial Nominee Program (PNP)

The primary goal of the program is to provide Newfoundland and Labrador with a mechanism

to increase the economic benefits of immigration to the province based on economic priorities

and labour market conditions, including regional development and gender equity by permitting

Newfoundland and Labrador to nominate Provincial Nominees. The number of nominees for

the program continues to increase each year from 43 in 2007 to 250 in 2012. Given the

increase, it is expected that the current quota of 300 candidates per year as set by the Federal

Government will not be adequate to accommodate the activity level.

Also, while the program focuses primarily on a nominee’s intent to permanently settle in the

province, the division has not always placed significant weighting on addressing provincial

labour market demands when assessing applications. As a result, many recommended

nominees are not able to contribute to labour market shortages because they do not have the

skill set. Examples of some of the questionable skill set nominees in St. John’s are a pizza

maker, a cashier, and a nail technician.

International Graduate Retention Incentive Program (IGRIP) The program was created to provide a financial incentive (ranging from $1,000 to $2,500) to

eligible international students who have graduated from a recognized post-secondary

educational institution in the province. They must have been nominated by the province for

permanent residency, and remain living and working in the province a year after they receive

their permanent residency.

Given that many international students have the ability to pay for their education and seek out

this province to pursue their studies, it is questionable as to whether the level of the incentive

has any impact on whether they want to remain in the province. As well, the department does

not promote this program which may account for the low uptake by eligible international

students. For example, although the program was introduced in December 2010, only thirty

four students received a financial incentive up to April 2012.

The division does not have strong evidence to support whether the program is meeting the

intended objective of retention of eligible international students.

The program appears to be over resourced (number of staff and classification levels) given the

number of clients served per year (20-30). While staff have some other duties, currently there

are six staff involved in the processing of applications (4 staff at GS-40), the staff managing

files (2 Support staff GS-24 and GS-34) and the staff approving files (HL Manager and

Executive Director).

Chapter 5 5-A-1

30

Review Findings

4. Employer Services

While the department provides various types of support to employers to help increase workforce

participation, increase access to a skilled workforce and increase productivity, there is no formal

employer services strategy to guide staff in determining the type and level of supports available to

enhance labour market development initiatives. For example, the department has an ad-hoc

approach to employer’s requests for assistance with recruitment and retention issues. This issue was

also raised at a recent Apprenticeship Forum where it was identified that the department’s

engagement with stakeholders was “ad-hoc and often times reactive”.

The services currently provided to employers are neither integrated nor coordinated to ensure that

engagement is optimized. For example, there are multiple websites for employers providing

different types of labour market information (e.g. JobsinNL, NL HR Manager and LMI Works).

There are also multiple staff (e.g. Regional Managers, Managers, LMDOs, PDOs, CDSs, CSOs, and

Hotline staff) in multiple divisions responsible for employer engagement and interacting directly

with employers and industry. This results in overlap, duplication of effort and unnecessary

additional costs.

The following was identified in the SmartForce NL program:

SmartForce NL is part of the suite of Employer Services offered to provide comprehensive and

current recruitment and retention human resource information, resources, and tools to small

and medium sized businesses in NL. The province paid $1.6 million for the development of

forty custom courses and access to in excess of 5,000 off the shelf courses; however, while the

program is being promoted as “free” the free access to these courses will end in March 2013.

The exception to the cessation of free access relates to employers and individuals who register

prior to March 2013; and

The Centre for Learning and Development also offers training programs for government

employees similar to the off the shelf course content. As a result, the Centre for Learning and

Development has to incur costs associated with contract training while access to free training

exists.

Chapter 5 5-A-1-1

31

Review Findings

Program: JOBS in NL

Background:

Goals:

JOBSinNL.ca is Newfoundland and Labrador's comprehensive job search and posting website.

JOBSinNL.ca provides employers within Newfoundland and Labrador a mechanism through

which they can post their jobs and receive applications directly from registered job seekers.

JOBSinNL allows job seekers from around the world the opportunity to view and apply for jobs

specifically within Newfoundland and Labrador.

Objectives:

To provide both employers and job seekers with a mechanism to match current opportunities with

job seekers

Target Population:

Potential employers and job seekers.

Budget & Administration

$96,000 budget for IT related support and maintenance.

3 staff within provincial office Labour Market Division who also work on the LMCI Hotline; 2

other provincial staff (both as part of other regular duties) involved with technical and support

requirements

Nov 2009 to April 2012: # of Employers registered: 6071; # of job seekers registered: 58116

This service is based on an operating budget.

Governing Legislation & Directives

N/A

Findings & Recommendations

Policy Issues A need for increased awareness of the website in order to increase

participation of both employers and employees

Although an advertising campaign has been developed, it has not been

launched.

There are currently duplicate websites for job postings (JOBSinNL.ca and

the PSC website) which results in lack of coordination and increased

administration costs.

PSC not using the site - they launched a site at approx same time as

JobsinNL - currently 2 links on Govt home page to PSC & JobsinNL.

Currently, we copy (manually) job ads from PSC to JobsinNL Awareness

campaign in development.

Chapter 5 5-A-1-1

32

Review Findings

Recommendations AES should consider enhancing its awareness campaign for the

JOBSinNL.ca website.

AES should consider launching the previously developed advertising

campaign.

AES should consider whether the continuation of duplicate websites is

necessary.

Legislative Issues None identified.

Recommendations N/A

Business Process

Issues

The website does not have the ability for automated matching of jobs to

resumes.

Larger companies such as Bull Arm and Vale do not use JOBSinNL and

instead maintain their own employment websites.

Because the Public Service jobs are posted on the website maintained by

the Public Service Commission, AES staff have to key those jobs into

JOBSinNL. This results in a duplication of effort and unnecessary

additional costs.

Recommendations AES should consider its current policy of reviewing all job postings from

reputable employers before jobs can be posted and determine whether

access via password could be provided to trusted employers.

Consideration should be given to modifying the website so that job seekers

can post their resumes and quickly identify potential jobs that match their

skill sets.

AES should determine why some larger companies are not using

JOBSinNL to post job opportunities.

If two websites are going to be maintained, consideration should be given

to the electronic transfer of information from the PSC website to

JOBSinNL.

Current Status (Ongoing Activities)

A Systems/IT Support committee has been established and can consider the IT enhancements to

this website.

Staff have developed a plan to help improve the site including: targeted regional employer focus

groups (users of CareerBeacon) and non-users of either site; electronic survey of users; minor

modifications to frontpage of website to allow for a ready search of trades and skilled job

categories (currently only student and entry level jobs identified). AES executive have met with

major project proponents and are still in discussion re: partnership opportunities. One

recommendation that will be put forward to them will be opportunities to better leverage

JOBSinNL for their positions such as the creation of a "Major Project Employers" page that will

Chapter 5 5-A-1-1

33

Review Findings

allow users to directly explore the proponents sites and job opportunities from JOBSinNL and give

the companies a profile. A listing has been developed for LMDOs at regional level to better

target/approach potential employers who do not use JOBSinNL and who likely require skilled

positions.

If the Awareness Campaign proceeds, work had been completed on developing an integrated site

with JOBSinNL as the cornerstone of the site and with additional information features about living

and working in NL.

In the event the awareness campaign does not proceed, staff are currently exploring all sites (e.g.

LMI Works, HR Manager) to identify opportunities to integrate relevant information/tools into the

one JOBSinNL site.

Quick Wins

An interface between the two employment websites to allow for electronic transfer of job ads.

Including links on JOBSinNL.ca to the other AES employment related services, such as wage

subsidies, NL HR Manager, and Student Employment Programs.

Streamlining & Consolidation Opportunities:

Including links on JOBSinNL.ca to the other AES employment related services, such as wage

subsidies, NL HR Manager, and Student Employment Programs.

Electronic matching of resumes to job opportunities would provide job seekers with more

immediate and relevant potential job opportunities.

Allowing reputable employers to enter job postings can via password would allow jobs to be

posted more quickly and entice larger organizations to avail of the service, while reducing the

amount of required internal administration.

Chapter 5 5-A-1-2

34

Review Findings

Program: Labour Market and Career Information Hotline

Background:

Goals:

To provide information to individuals on labour market and career information through the use of a

1-800 number and community presentations.

Objectives:

Provide current labour market information directly to clients or to refer them to appropriate staff to

have inquiries addressed

Target Population:

Individuals, employers, community groups - 14,309 clients served through both telephone and

emails FY 2011-12

Budget & Administration:

Funded through operational budgets.

Administered by 3 staff supporting the LMCI Hotline located at Provincial Office in the Labour

Market Division.

14,309 clients served through both telephone and emails in fiscal year 2011-12


N/A


Policy Issues Although there are at least three distinct groups providing similar services

they are all classified at different salary levels, e.g., Student Aid

Information officers (GS-30), Income Support Screeners (GS-34), and

Hotline staff (GS-37).

Given the similarity of duties, there is a duplication of services within the

department.

Recommendations AES should ensure that staff performing similar functions are classified at

the same salary levels.

AES should consider consolidation of similar services across the

department.

Legislative Issues None identified

Recommendations N/A

Business Process

Issues

Contrary to established goals, Labour Market and Career Information

Hotline staff are not providing community presentations.

Recommendations AES should either ensure Labour Market and Career Information Hotline

staff provide community presentations or modify the goals of the service.

Current Status (Ongoing Activities):

Chapter 5 5-A-1-2

35

Review Findings

A Service Delivery Improvement committee will be reviewing all departmental telephone services.

Quick Wins:

None identified.


AES should consider consolidation of similar services across the department.

potential for combination with other 1-800 services

Potential to combine call centre functions from across dept.

Could this be the secondary service to the online service presence?

Chapter 5 5-A-1-3

36

Review Findings

Program NL HR Manager

Background

Goals:

A tool, in combination with other Departmental resources, to support small and medium sized

employers in addressing their recruitment and retention needs.

Objectives:

To provide a one stop access to online information that can be used to help businesses find, keep

and manage workers.

Target population:

Small and Medium enterprises in NL - launched in February 2010.


Funded through regular LMD divisional operational budgets administered by 1.5 employees for

NL HR Manager, regional employers services (as supported by Labour Market Development

Officers), and other resources for employers (e.g. course content for SmartForce NL). The

database is supported through an external service provider, BlueDrop.

HR Toolkit Annual users 2011/2012: 20,523 and averaging 3,000 users a month since January

2012 with the introduction of social media strategies (Twitter and Facebook). Through these

mechanisms, Departmental recruitment/retention resources are promoted to an average of 11,617

people on a weekly basis and 41,628 unique profiles exposed to the tweets at some point. A total

of 1,893 unique tweets posted since January 2012.


N/A


Policy Issues None identified.

Recommendations N/A


Recommendations N/A

Business Process

Issues

Gaps have been identified in the current services provided to employers. In

particular, there is limited information available on business and employee

succession planning.

Currently, there are multiple websites for employers (e.g. JobsinNL and

LMI Works) which results in a non-coordinated approach.

Recommendations Additional resources are required to retain and broaden the current services

provided to employers.

The department should consider streamlining access to the various

employer services websites by having a single entry point.


Chapter 5 5-A-1-3

37

Review Findings

The Department develops new tools and resources for the HR Manager on an ongoing basis, with

the most recent resource being a Diversity handbook for employers. Two new tools (an HR

Capacity Assessment and Workforce Skills Assessment) are currently being finalized. The

Department consults with relevant internal and external committees on the development of all tools

via the establishment of working groups as required.

Quick Wins:

None identified.


The department could consider the similarities of services being provided to employers by the

department and IBRD.

Chapter 5 5-A-1-5

38

Review Findings

Program SmartForce NL

Background

Goals:

SmartForce NL is part of the suite of Employer Services offered to provide comprehensive and

current recruitment and retention human resource information, resources and tools to small and

medium sized businesses in NL.

Objectives:

To develop and deliver an online learning management tool used to increase the professional

development and on the job related skills of NL employers and residents.

Target population:

Small and medium employers and individuals in NL.


$136,000 budget for 2011-12

$1.6M investment from LMDA over a three fiscal year period 2010 – 2013

The program is administered by 1.5 employees responsible for Employer Services (NL HR

Manager & Smartforce NL) and is supported by Labour Market Development Officers who are

based in the regions.

Total numbers of NL employers registered on Smartforce NL – 587, total number of individuals

registered 6930, Total number of courses enrolled – 12,182, Total number of custom developed

courses – 40.


N/A



Recommendations N/A


Recommendations N/A

Business Process

Issues

Although the province has paid $1.6 million for the development of 40

custom courses and access to in excess of 5000 off the shelf courses, the

free access to these courses will end in March 2013. The exception to the

cessation of free access relates to employers and individuals who register

prior to March 2013.

The Centre for Learning and Development also offers training programs

for government employees similar to the off the shelf course content. As a

result, the Centre for Learning and Development has to incur costs

associated with contract training while access to free training exists.

Chapter 5 5-A-1-5

39

Review Findings

Recommendations The department should determine whether it will continue to fund the

SmartForce NL.

The department should ensure that all government departments are made

aware of SmartForce NL.


There is a steering committee established to coordinate services provided.

Quick Wins:

The department could ensure that all government departments are made aware of SmartForce NL.


None identified.

Chapter 5 5-A-1-6

40

Review Findings

Program Labour Market Partnerships

Background

Goals

To provide funding to support employers, employer or employee associations, community groups

and communities in developing and implementing labour market strategies and activities for

dealing with labour force adjustments and meeting human resource requirements. Labour Market

Partnerships may be used to provide assistance for employed persons who are facing loss of

employment.

Objectives

LMP is a measure used by to encourage, support and facilitate labour force adjustments and human

resource planning activities which are in the public interest. The LMP support measure provides

funding to encourage and support employers, employee/employer associations and communities in

developing and implementing strategies for dealing with labour force adjustments and meeting

human resource requirements. The LMP support measure addresses labour market issues through

partnerships.

Target Population

Employers, employer or employee associations, community groups and communities.


Budget: $6,645,108 spent in fiscal year 2011/12.

Administered by the Labour Market Development Division (LMDD).

This program is delivered via grants.


LMDA Agreement EI Part II, EBSM Terms and Conditions, Policies and Guidelines



Recommendations N/A


Recommendations N/A

Business Process

Issues

Currently there is no request for proposal (RFP) process related to the

awarding of grants and, prior to the current fiscal year, there was no

strategic approach with regards to how projects were funded to ensure

departmental priorities were supported.

Chapter 5 5-A-1-6

41

Review Findings

Prior to LMDA devolution (2009), there was a formal committee required

to review, assess and recommend proposals for funding. Decisions of the

committee were documented. However, since LMDA devolution, there

has not been a formal committee nor has there been formal documentation

to support decisions on LMP proposals. Instead, there is a consultation

process with relevant departments and a meeting with the Deputy Minister

of AES for project approval (project recommendations are submitted to the

DM in a standard format for approval decisions) - there is no formal

documentation.

The current continual intake process does not facilitate the assessment of

projects relative to others to ensure projects provide maximum contribution

towards departmental priorities.

Recommendations An RFP process should be developed with a view of ensuring that

departmental strategic priorities are supported.

The department should consider whether a formal committee may be more

appropriate than a consultation process and all decisions related to project

proposals should be formally documented.

AES should determine whether the current continual intake process is the

most effective way to meet departmental priorities when assessing LMP

proposals.


The Department is currently working with IBRD to finalize their process recommendations. Once

completed, recommendations for final approval will be put forward to the DM/Minister.

Quick Wins

Establish a formal assessment committee and ensure that all decisions are formally documented.

Streamlining & Consolidation Opportunities

The department should consider having this program, along with other similar programs such as

Job skills/Essential Skills and community partnerships funding delivered by one group.

Chapter 5 5-A-1-6

42

Review Findings

Examples of Payments from Labour Market Partnerships

Organization Name Amount

Kruger Inc $1,669,180

NATI $879,280

Stella Burry Corp $534,225

Women in Resource Development $279,881

Canadian Homebuilders Association-Eastern Newfoundland $227,389

Town of Placentia $155,925

Women in Resource Development, Inc. $79,890

Aerospace and Defence Industry Association of Newfoundland and Labrador $49,500

Council of marine Professional Associates $44,195

NL Oil & Gas Industries Association $32,844

NL Association for Community Living $12,000

Landscape Newfoundland and Labrador $11,500

Chapter 5 5-A-1-7

43

Review Findings

Program Targeted Initiative for Older Workers (TIOW)

Background

Goals

The Targeted Initiative for Older Workers is a federal/provincial cost shared (70/30) initiative

providing support to unemployed older workers in communities affected by downsizing or

closures through programming aimed at reintegrating them into employment

Objectives

TIOW is indented to provide support to address the immediate employment needs of unemployed

older workers. In situations where there is little likelihood of immediate employment, TIOW may

also be aimed at increasing the employability of older workers and ensuring that they remain active

and productive labour market participants.

Target Population

Unemployed, 55-64 years of age lacking either skills needed for successful integration into new

employment or marketable skills living in a eligible community.


Budget: $2,722,000 for 2011-2012

Total clients served: Approximately 150 yearly.

This work is included as partial duties of Provincial Manager for Community Partners and one

Program Consultant in consultation with regional staff.



Federal Provincial Agreement signed by HRSDC, AES and IGA since 2007 which has been

extended to March 2014.


Policy Issues The demand exceeds the current budget. For example, in 2011-2012 there

were 45 proposals totally approximately $12 million while funding of $2.8

million funded only 13 projects. This year the federal government cut

funding to this program by approximately $1.6 M.

For 2012-2013 the department has not made a determination regarding

identification of projects as at September 2012 and as a result, time to

ensure completion of the projects within the current fiscal year is a

challenge.

Federal funding for TIOW is scheduled to conclude in 2014. Although the

program has been successful in meeting its objectives, there has not been

any initiative to capture effective program elements within the

department’s suite of services even though the federal government’s

contribution is scheduled to terminate in 2014.

Recommendations The department should determine whether the budget allocation or the

Chapter 5 5-A-1-7

44

Review Findings

program is sufficient to meet departmental priorities.

The department should ensure that decisions regarding program approval

are made to allow sufficient time for program delivery.

The department should consider capturing effective program elements

within TIOW and incorporate into departmental programming.


Recommendations N/A

Business Process

Issues

A number of 3rd

party agencies have multiple contracts with the

department. As a result, agencies receive administration fees for each

contract, staff have to process and monitor multiple contracts, and because

multiple staff may be involved in the process it is more difficult for the

department to ensure that no duplicate funding is provided e.g. bookkeeper

salary funded more than once.

There may be communities in the province with a need for the program;

however the community may not have the capacity to respond to a call for

proposals. As a result, there is a risk that high priority areas may not

receive necessary interventions.

Recommendations The department should develop a formalized process where all funding

provided to 3rd

party agencies is assessed to ensure that no duplicate

funding is provided.

The department should determine whether, based on demographic

information, high priorities areas are responding to calls for proposals. If

such priority areas are identified as not responding, the department should

determine a suitable course of action.


A Grants Review Committee has been established.

Quick Wins:

None identified.


None identified

Chapter 5 5-A-1-7

45

Review Findings

Examples of Payments from TIOW


CENTRAL DEVELOPMENT ASSOCIATION 275,000.00

TOWN OF HERMITAGE-SANDYVILLE 257,402.00

JACKSON'S ARM TOWN COUNCIL 248,005.00

SOUTHERN AVALON DEVELOPMENT ASSOCIATION 240,000.00

STRAITS DEVELOPMENT ASSOCIATION 227,100.00

BURIN PENINSULA CHAMBER OF COMMERCE 220,000.00

LOWER TRINITY SOUTH DEVELOPMENT ASSOC 202,601.00

WOMEN INTERESTED IN SUCCESSFUL EMPLOYMENT 193,809.00

LITTLE BAY ISLANDS HERITAGE SOCIETY LTD 175,000.00

TRINITY HISTORICAL SOCIETY 158,051.00

TOWN OF HARBOUR BRETON 137,496.00

TRAMORE PRODUCTIONS INCORPORATED 134,500.00

ISTHMUS AREA REGIONAL DEVELOPMENT 92,147.00

Chapter 5 5-A-1-8

46

Review Findings

Program Multiculturalism Strategy

Background

Goals

1.To encourage Newfoundlanders and Labradorians to view cultural diversity as a strength;

2. To welcome immigrants into our communities and promote cross cultural understanding;

3. To increase and enhance culturally sensitive settlement and integration services in the province

aimed at increasing the retention of immigrants and newcomers; and

4. To engage key partners in the implementation of the provincial policy on Multiculturalism.

Objectives

Ensure that relevant policies and procedures of the provincial programs and practices reflect,

promote and meet the changing needs of all cultural groups;

Lead in developing, enhancing and sustaining programs and services based on equality for all,

notwithstanding racial, religion, religious creed, colour or ethnic, national or social origin;

Provide a workplace that is free of discrimination and that promotes equality of opportunity for all

persons accessing employment positions within the Government of Newfoundland and Labrador;

Support multicultural initiatives by enhancing partnerships across provincial departments with

culturally-diverse communities;

Highlight through public awareness and education the importance of cultural diversity in the

province and facilitate life long learning that prepares individuals, especially youth to live and

work in a multicultural society; and

Through partnerships encourage community based programs that to foster two-way cross-cultural

understanding, provide diversity training in the workplace to meet changing composition of the

labour force.

Target Population

1. Multiculturalism activities reach thousands of people annually through the various partners.

Educators and K-12 School Students; International students attending MUN and College

2. RNC and RCMP

3. Health Care providers.

4. Business and Economic development organizations.

5. Municipalities.

6. Community Groups

7. Provincial Government Departments; and the general public.


Included in the Immigration Strategy funding.

The policy initiatives are administered by the 4 Settlement and Immigration staff.


Immigration Strategy


Policy Issues None identified

Recommendations N/A


Chapter 5 5-A-1-8

47

Review Findings

Recommendations N/A

Business Process

Issues

None identified

Recommendations N/A


None identified

Quick Wins

N/A


N/A

Chapter 5 5-A-1-9

48

Review Findings

Program Provincial Nominee Program (PNP)

Background

Goals

The primary goal of the program is to nominate immigrant candidates for permanent residency in

order to enhance the provincial labour market by their contribution to the economic needs of the

province.

Objectives

Nominate and retain immigrants who can positively contribute to the labour market needs of local

businesses (especially those in rural and remote areas), and who have the intent to live and work in

the province. The PNP is a key tool instrumental in the ongoing work of the provincial

Immigration Strategy.

Target Population

The target population is prospective immigrants with a specialized skill set or addressing a difficult

to fill position and willing to make a permanent commitment to contribute economically to the

province by living and working here. Often nominees are individuals currently working for a local

employer on a temporary work visa/permit (referred to as Temporary Foreign Workers), or with a

job offer from a local company. Often nominees are individuals currently working for a local

employer on a temporary work visa/permit (referred to as Temporary Foreign Workers) or

international graduates (individuals who have graduated from a Canadian or NL post-secondary

institution).


$550,000 of the $1.76 million of Immigration Strategy funding is allocated to the PNP.

Total number of clients served in 2012: 250 (The province has the authority to nominate up to 300

clients per year).

The program is administered by 7 staff located in St. John's: 1 Manager, 1Developmental Program

Coordinator, 4 Program Specialists and 1 Policy and Program Development Specialist.

The program funding is used solely to cover OIM operating costs.


Immigrant and Refugee Protection Act (IRPA) and Regulations.


Policy Issues The number of nominees for the program continues to increase each year

from 76 in 2007 to 289 in 2012. Given the increase, it is expected that the

current quota of 300 candidates per year as set by the Federal Government

will not be adequate to accommodate the activity level.

Recommendations The department should determine whether the quota set by the federal

government can be increased to accommodate the activity level.


Recommendations N/A

Chapter 5 5-A-1-9

49

Review Findings

Business Process

Issues

While the program focuses primarily on a nominee’s intent to permanently

settle in the province, the division does not place significant weighting on

addressing provincial labour market demands when assessing applications.

As a result, many recommended nominees are not able to contribute to

labour market shortages because they do not have the skill set. For

example, in St. John’s a pizza maker, a cashier, and a nail technician.

Having OIM located in isolation, in rented space results in unnecessary

costs and makes interaction with other divisions difficult.

Recommendations The division should give primary consideration to addressing the

province’s labour market needs when assessing PNP applications.

The department should consider moving OIM to one of the department’s

existing client service offices.


None identified

Quick Wins

The division could give primary consideration to addressing the province’s labour market needs

when assessing PNP applications.


The program could be delivered with other employment programs.

Chapter 5 5-A-1-10

50

Review Findings

Program NL Settlement & Integration Program - NLSIP (Grants & Contribution)

Background

Goals

The NLSIP is designed to provide support to organizations to increase immigration retention and

reduce gaps in settlement and integration services throughout the province; especially in rural

Newfoundland and Labrador.

Objectives

To provide funding to organizations to facilitate: welcoming, settling, integrating, and retaining

newcomers to the province, their communities and their places of employment. This objective is to

be achieved through various programs, initiative, projects and events which foster welcoming and

inclusive communities.

Target Population

Provincial Nominees and their spouses/dependents; International Students; immigrants who come

through federal immigration streams, Immigrant Service Providing Organizations, employers who

wish to attract and retain international employees; service providers who encounter newcomers as

clients; and, community organizations/groups who wish to attract and retain newcomers to their

communities.


$705,000 of the $1.76 million of Immigration Strategy funding is allocated to the NLSIP.

There are three main categories of the NLSIP:

1) NLSIP Grant - $30,000 per program/initiative;

2) Small Grants - maximum of $2,500.00 per project;

3) Multiculturalism Grants - maximum of $500.00 per event; and

4) Special Initiatives - the budget is determined by the demonstrated need and availability of OIM

funds.

In 2012, OIM had 3 Settlement and Integration Consultants. One administered the

financial/assessment of applications for the program and the other 2 positions’ role was promotion

of the program.

Provincial office oversees all grants and contributions. The regional Settlement and Integration

Consultants role is to provide information on the program and answer questions pertaining to the

agreement. One of the Setttlement and Integration staff at Provincial office provides oversight on

the program.


N/A



Recommendations N/A


Recommendations N/A

Business Process The demand for this program exceeds current budget allocation.

Chapter 5 5-A-1-10

51

Review Findings

Issues

Recommendations The department should determine whether the current budget allocation for

this program is adequate.


None identified.

Quick Wins

N/A


The department could consider consolidating the grants process into a grant administration

division.

Examples of Payments from Immigration Grants


ASSOCIATION FOR NEW CANADIANS 303,963.19

INTERNATIONAL STUDENT ADVISING OFFICE 51,000.00

CITY OF ST JOHN'S 45,000.00

MEMORIAL UNIVERSITY OF NL 44,925.50

MARINER RESOURCE OPPORTUNITIES 43,530.88

KITTIWAKE ECONOMIC DEVELOPMENT 40,500.00

MULTICULTURAL WOMEN'S ORGANIZATION OF 40,338.75

NORTHEAST AVALON REGIONAL ECO DEV BOARD 30,000.00


LA FEDERATION DES FRANCOPHONES DE 28,173.90

CENTRAL LABRADOR ECONOMIC 10,153.40

SHARING OUR CULTURES INCORPORATED 10,000.00

THE CITY OF CORNER BROOK 9,492.00

NORDIC ECONOMIC DEVELOPMENT CORPORATION 4,500.00

FORTUNE HEAD ECO FRIENDS INC 3,000.00

EXPLOITS VALLEY COMMUNITY COALITION INC 2,730.00

REFUGEE AND IMMIGRANT ADVISORY COUNCIL 1,500.00

GRENFELL COLLEGE STUDENT UNION 1,490.00

COLLEGE OF THE NORTH ATLANTIC (HV-GB) 1,000.00

TOWN OF GRAND FALLS-WINDSOR 720.00

NL ASSOCIATION OF SOCIAL WORKERS 500.00

TOWN OF ST ANTHONY 500.00

LABRADOR HERITAGE SOCIETY(NWR) 371.20

CORNER BROOK ABORIGINAL WOMENS 200.00

Chapter 5 5-A-1-11

52

Review Findings

Program International Graduate Retention Incentive Program (IGRIP)

Background

Goals

The program was created to provide a financial incentive to eligible international students who

have graduated from a recognized post secondary educational institution in the province. They

must have been nominated by the province for permanent residency, and remain living and

working in the province a year after they receive their permanent residency.

Objectives

Reward and retain international graduates who are still living and working in the province one year

after receiving their permanent residence and to make the province a destination of choice for

future international students.

Target Population

International students who have graduated from a recognized post secondary educational

institution in the province and who have lived as a permanent resident in NL for a period of 1 year

or more.


The 2011-2012 budget is $75,000 and is part of the Office of Youth Engagement.

Number of clients per year 20-30.

Individual payments range from $1,000 -$2,500 depending on level of postsecondary training and

the number of years studying in the province.

The program delivered by four Provincial Nominee Program Specialists (one of whom acts as the

IGRIP Lead Coordinator), the OIM Manager (approval), the OIM Executive Director (approvals) ,

the Departmental Programme Coordinator (vendor setup and payment requests), the Receptionist

(Clerk Typist III) ( application intake).

The program is offered via allowance and assistance.


Canada NL Agreement on Provincial Nominees.


Policy Issues Given that many international students have the ability to pay for their

education and seek out this province to pursue their studies, it is

questionable as to whether the level of the incentive has any impact on

whether they want to remain in the province.

The department does not promote this program which may account for the

low uptake by eligible international students. For example, only 34

students received a financial incentive from when the program was

introduced in December 2010 to April 2012.

Chapter 5 5-A-1-11

53

Review Findings

Recommendations The department should determine whether the program is meeting its

intended results.

The department should determine whether the program should be

promoted.


Recommendations N/A

Business Process

Issues

The division does not have strong evidence to support whether the program

is meeting the intended objective of retention of eligible international

students.

Given the number of clients served per year (20-30), the number and

classification of staff involved in the processing of applications (4 staff at

GS 40), the staff managing files (2 Support staff GS24 and 34) and the

staff approving files (HL Manager and Executive Director), this program is

over resourced.

Recommendations The division should have a process in place to gather the necessary

information to determine whether the program is meeting its intended

objectives.

If the department continues to offer the program, it should determine a

more efficient delivery system.


None identified

Quick Wins

Consolidate the program with other graduate incentive programs.


If the program continues it could be consolidated with other graduate incentive programs.

Chapter 5 5-A-1-12

54

Review Findings

Program Youth Apprenticeship Program Pilot

Background

Goals

Recruitment and retention strategies to increase labour supply and increase the Province's capacity

to fully maximize the benefits of planned major resource-based project developments, long-term

operations, and promote recruitment and retention for small and medium size enterprises.

Objectives

Create a smoother transition from high school to post-secondary training, retain disenfranchised

students, have younger certified journeypersons entering the workforce, strengthen linkages

between high schools, post-secondary, & industry.

Target Population

Currently, as a five year pilot, high school students in five schools (Lab City, Corner Brook,

Gander, St. Lawrence and Mt Pearl) throughout the province to provide work experience

opportunities in skilled trades occupations. A work-training program where students can gain paid

work experience & a guaranteed seat in a post-secondary skilled trades program while completing

high school.


The budget for this program is included in overall Apprenticeship budget with administrative

responsibility currently falling with Advanced Education, Apprenticeship & Trades Certification

Division.

Currently 1 PDO position (in Clarenville) working with this program.


Apprenticeship and Certification Act; Interprovincial Red Seal Program; Provincial

Apprenticeship and Certification Board


Policy Issues Although the program has shown strong uptake in the 5 pilot schools, there

is no province wide strategy to implement the program to all relevant

schools. Instead, the department is in consultation with school boards to

select an additional 5 schools (Deer Lake, HV-GB, St. John’s, Clarenville

and Carbonear). As a result, an important source of labour market

participants may not be optimized.

Currently the program does not provide incentives such as wage subsidies

to employers like those offered to other registered apprentices. As a result,

employers may give preference to hiring registered apprentices versus

registered youth apprentices.

There are currently no resources at the high school dedicated to the

coordination of the program. As a result, participation may be limited.

The department has not developed a credit transfer matrix that could be

Chapter 5 5-A-1-12

55

Review Findings

used to identify all credits available to a student attending post secondary

training. As a result, registered youth apprentices may not receive credit

for completed courses within the high school system.

Recommendations The department should consider a province wide strategy to implement the

program to all relevant schools.

The department should determine whether employer incentives such as

wage subsidies are required in order for this program to be competitive.

The department should determine whether a dedicated high school resource

to coordinate the program would be beneficial.

The department should determine whether a credit transfer matrix would

help ensure registered youth apprentices receive the appropriate course

credits.


Recommendations N/A

Business Process

Issues

The Apprenticeship Information Management System (AIMS) tracking

system is not capable of providing necessary tracking information such as

statistics and reports.

Although the department has Student Aid Division staff and a Career

Development Partnership Initiative (CDPI) which includes Career

Development Liaison Officers (CDLO) visiting high schools throughout

the province, neither group is involved in the promotion of this program.

As a result of the lack of coordination, the department is missing an

opportunity to better promote and streamline services offered to students.

Recommendations The department should consider the limitations of AIMS and determine

whether there is a solution.

The department should ensure that all initiatives are focused and

coordinated to ensure optimal services delivery.


None identified.

Quick Wins

The department could ensure that all initiatives (Student Aid, CDPI and this program) are focused

and coordinated to ensure optimal services delivery.


The department could ensure that all initiatives (Student Aid, CDPI and this program) are focused

and coordinated to ensure optimal services delivery.

Chapter 5 5-A-2

56

Review Findings

5-A-2 Work Experience

Work Experience involves programming to assist individuals make a labour market attachment.

This includes funding directly to employers to address recruitment and retention challenges and

funding to 3rd

party agencies to deliver work experience related programs and services.

As the following chart shows, a total of 22 programs and services with a cumulative budget of

$46.2 million for 2011-12 were identified as being part of the “Work Experience” category.

2 Work Experience

11/12 Budget

($M's)

11/12 Actuals

($M's) Reference

1 Graduate Employment Program CEYS 2.696 2.307 5-A-2-1

* 2 MUN-Graduate Transition to Employment (GTEP) Program CEYS 0.299 0.299 5-A-2-2

3 NL Works CEYS 1.596 1.257 5-A-2-3

4 NL Wage Subsidy LMDA 4.445 4.380 5-A-2-4

5 Wage Subsidy for Persons with Disabilities CEYS 0.200 0.019 5-A-2-5

6 Govt Hiring Apprentices Program (GHAP) ATC 2.225 0.764 5-A-2-6

7 Apprenticeship Wage Subsidy LMDA 6.080 5.884 5-A-2-7

8 Women in Trades ATC 0.400 0.200 5-A-2-8

9 Journeyperson Mentorship Program (JMP) ** LMDA N/A N/A 5-A-2-9

* 10 Conservation Corps/Green Team CEYS 0.635 0.635 5-A-2-10

* 11 Linkages CEYS 2.004 1.722 5-A-2-11

12 Employment Transitions CEYS 0.702 0.466 5-A-2-12

13 Job Creation Partnerships LMDA 10.557 10.350 5-A-2-13

14 CYN Employment Programs CEYS 0.400 0.296 5-A-2-14

15 Student Employment Programs (Level I, II, III) CEYS 0.906 0.883 5-A-2-15

16 Student Employment Programs (Non-Profit) ** CEYS N/A N/A 5-A-2-16

17 Student Work and Services Programs (SWASP & SWASP Paid) CEYS 2.237 1.900 5-A-2-17

* 18 Other Student Employment Programs (MUN/CNA SWASP & PACEE) CEYS 0.627 0.622 5-A-2-18

19 Co-op & Internship Employment Programs… CEYS 2.556 2.358 5-A-2-19

20 School to Work Transistion Supports for Persons with Disabilities CEYS 0.250 0.083 5-A-2-20

21 Supported Employment (Job Trainers) CEYS 6.905 6.367 5-A-2-21

22 Tutoring Programs (TFT, IT-TFT, TWEP) CEYS 0.495 0.392 5-A-2-22


Apprenticeship & Trades Certification ATC 2 2.625 0.964





Total Work Experience Programs 22 46.216 41.185

* 3rd Party Grants

** Programs were not administered by AES in fiscal year 11/12, therefore have no applicable budgets.

Chapter 5 5-A-2

57

Review Findings

The following charts illustrate the proportion of the 22 Work Experience programs relative to the

overall interventions budget and the 70 programs included in the 6 categories used in the review and

analysis process.

Work Experience,

46.216


Work Experience,

22




AE, 2

CEYS, 16 LMDA, 4

Work Experience Programs


AE, 2.625

CEYS, 22.509

LMDA, 21.082

Work Experience Budgets (in $M's)


A number of issues were identified during the review of the 22 programs in the Work Experience

category as follows:

Issues related to level of supports, types of benefits and administrative practices are categorized in

the following four themes:

1. Strategic Approaches;

2. Budget Management Practices;


4. Systems and Tracking.

Chapter 5 5-A-2

58

Review Findings

1. Strategic Approaches

Although the department’s mandate has changed from a social to an economic lens, the goals,

objectives and outcomes of the currently funded work experience programs have not been assessed

to determine their relevance under this new mandate.

Furthermore, work experience programs are not as responsive as they need to be to meet the

departmental mandate and to ensure clients maximize their employment opportunities. This is

evidenced by:

The lack of flexible funding programs to meet individual requirements to attach to the labour

market. Currently, the approval process through the CAPS system requires the identification

and transfer of sufficient funds which is a cumbersome process and sometimes results in delays

and lost opportunities for an individual in securing an attachment to the labour market;

The current income support administration results in disincentives such as loss of the 100%

coverage drug card (after six months), disruption in payment cycles, potential variation in work

hours/entitlements and impacts clients pursuit of employment under this and other programs.

One major disincentive is the current income support policy requiring clients to reapply for

income support after 30 days of a breach in assistance;

Many of the work experience programs designed to attract income support clients are not

achieving the intended participation rates. For example, while the Conservation Corps/Green

Team program receives a yearly budget of $634,600, only approximately 10% of the total

program participants are income support clients. Also, the department has limited involvement

in the identification and selection of Conservation Corps projects which impedes the ability to

strategically influence which projects are funded; and

Information on the participation rates of income support clients in the department’s

employment programs is not readily available or disseminated to staff. Currently, staff are

required to manually access client files to determine participation. As a result, participation

rates of income support clients are not monitored on a regular basis to determine if funded

interventions are assisting in a successful labour market attachment.

Chapter 5 5-A-2

59

Review Findings

2. Budget Management Practices

The current annual budget allocation among work experience programs is not based on a strategic

analysis of departmental priorities. Instead, programs are funded based on historical allocations and

spending patterns. This results in a lack of strategic targeting of initiatives and/or programs designed

to address labour market issues.

Budget issues noted within work experience programs include:

There are multiple program budgets for different client populations (e.g. Youth, Persons With

Disabilities) making the administration cumbersome with overlap and duplication;

Contrary to the program objectives, rural community groups have become dependent on

program funding to fund operations and infrastructure development;

Currently, there is no department wide process for identifying the appropriate administrative

costs for 3rd

party grants. As a result, the amount paid for the administration of programs varies

by program area. As well, while AES provides core funding to organizations such as

Community Youth Networks (CYNs), the department also pays many of the same

organizations a 15% administration fee to deliver other student employment programs;

The department offers wage subsidy programs where employers are required to submit payroll

information for reimbursement of wages. Currently, there is no enforced preset schedule to

obtain payroll information from employers. As a result, there are many examples where

payroll information is not submitted until after April 30, i.e., the end of the payment cycle for

the fiscal year. This results in program slippage and encumbered amounts from the next fiscal

years budget; and

Program slippage also occurs as a result of approved projects not commencing when expected

and minimal monitoring to identify dormant and inactive agreements (e.g. NL Wage Subsidy

Program) and a lack of monitoring and follow-up of grants (e.g. a $400,000 Women in Trades

grant to third party service providers).


Historically, the department has been more reactive and, as a result, has funded projects proposed by

3rd

party agencies versus being proactive and identifying the department’s priorities and having a call

for proposals to identify the most suitable 3rd

party agency to deliver work experience programs.

Chapter 5 5-A-2

60

Review Findings

Furthermore, with respect to the current process for approvals of work experience programs:

There is no formalized process for ensuring that funding is allocated to priority occupations;

AES does not have a formal mechanism in place to determine whether entities receive funding

for similar initiatives from different sources within the department;

There is no matching capability between employer applicants and employee applicants that is

in keeping with labour market supply and demand; and

AES funds employers over multiple periods without a requirement to demonstrate that funded

positions have resulted in successful attachment to the labour market.

From a Departmental perspective, there is a lack of integration and consistency of policy, procedures

and financial supports across all work experience programs. AES currently administers a multitude

of separate wage subsidy programs. Each of the programs differ from each other in the level of

funding available, client groups served, program duration, and type of funding provided (e.g. tuition

voucher, wage subsidy).

AES delivers a number of student employment programs with one of the larger programs being the

tuition voucher program designed as an incentive for participation and to assist students with costs

associated with post secondary education. In fiscal year 2011, there were a total of 2,725 vouchers

issued through the following 12 employment and tutoring programs:

Year Round SWASP;

Tutoring for Tuition;

Community Services Council SWASP;

Social Work Recruitment;

Tutoring/Work Experience;

IT Tutoring for Tuition;

Medical Student Employment Program;

CYN Summer SWASP;

Community Centre Alliance Value of Money – Value of Work;

Career Exploration Experience Income Support (CEEIS);

Community Services Council SWASP (Provincial Program); and

Paid Work SWASP.

Other issues noted in Student Employment Programs include:

Currently employers apply for funding for programs such as the Student Employment

Programs, Level I, II, III and arrange the placement of students. It may be more equitable to

have the program also available for students to apply;

Chapter 5 5-A-2

61

Review Findings

Students under SWASP Paid receive more funding ($3,600 based on 40 hours per week) than

students participating under other student programs such as SWASP-MUN, SWASP-C.N.A.

($2,800);

Income Support clients funded under the Career Exploration Experience Income Support

(CEEIS) program have reduced stipends to avoid negatively impacting Income Support

eligibility;

Although students earn tuition vouchers, if they are not redeemed AES does not provide any

payment to the student in lieu of redemption; and

AES does not adequately monitor student placements to determine the value of the work

placement to the student’s career goals. This is likely attributable to the high number of

placements operating within a short duration.

Based on the above, the current administration of student employment and tutoring programs is

complex with no evidence to conclude that the current tuition voucher structure is effective as a

means of achieving the intended program objectives.

There are also many variations in the delivery mechanisms of departmental work experience

programs (internal verses 3rd party), as well as the level and type of benefits received throughout the

province (among offices). For example, AES has Summer and Year Round SWASP programming

that would be available for the Community Youth Networks (CYN’s) to access; however, AES also

offers a separate program available only to CYN’s. As a result, there are potentially unnecessary

administrative costs and not all applications are assessed relative to all others. Also, benefit levels

provided under the NL Wage Subsidy Program are based on negotiated amounts at the district office

level and, therefore, inconsistencies in duration and level of funding exist across the province.

Without a planned approach in the approval and administration of programs, other unintentional

consequences emerge. The following issues were identified:

While programs are intended to assist individuals make a successful labour market attachment

and address recruitment and retention issues for employers, programs such as the Job Creation

Project (JCP) can sometimes create staffing difficulties for local businesses in areas where

labour supply is limited. Also, projects funded within the department or through other

departments compete with each other for participants;

The current policy for the NL Wage Subsidy program does not require the retention of all

employees upon completion of their respective subsidized periods. The policy supports the

provision of work experience without attachment to the employer which brings into question

the return on investment for this program which currently has an annual budget of $4.445

million;

Chapter 5 5-A-2

62

Review Findings

The appeal process for departmentally funded programs is not consistent. Currently, EI

eligible persons funded under the NL Wage Subsidy program are subject to the EI Act Part II

which does not have an appeal mechanism. All persons funded under other AES wage subsidy

programs are subject to the Income & Employment Support Act which provides a formalized

appeal process;

Even though the department’s career work centres are underutilized, AES continues to provide

funding to 3rd

party organizations to deliver employment services which could be provided by

staff at the career work centres. This results in duplication of services, unnecessary costs and

frustration for clients and departmental employees;

While there is duplication and overlap in current programming offered internally by AES and

those offered by 3rd

party service providers, there are gaps in programming required to meet

the departmental mandate. For example, currently there are limited programs for individuals in

the 30-54 year old range. As well, the Targeted Initiative for Older Workers (TIOW) is a

Federal/Provincial cost shared (70/30) initiative providing support to unemployed older

workers in communities affected by downsizing or closures through programming aimed at

reintegrating them into employment. Older workers have been identified as a vital source of

potential labour market participants to address current and future labour market needs. Federal

funding for TIOW is scheduled to conclude in 2014 and, although the program has been

successful in meeting its objectives, there has not been any initiative to capture effective

program elements within the department’s suite of services; and

There is no standardized Evaluation Plan currently in place. Instead, programs continue to be

funded year over year even when follow-up with participants indicates that the program had

limited success in creating attachments to the labour market (i.e. Job Creation Partnerships).

There are also no pre-determined measurable outcomes in order to assess whether the program

is achieving the desired results. Specifically, there is no formalized follow-up of participant

outcomes to determine whether program objectives were achieved.

4. Systems and Tracking

AES currently utilizes multiple systems to capture and track information on individuals and

programs with no mechanism to connect each system. As a result, staff cannot readily identify the

total supports an individual, employer or community agency is receiving which is an important

assessment component for future entitlement to departmental programs. For example, the

Apprenticeship Wage Subsidy program is not managed through either the CEYS or LMDA systems.

Instead, the program is managed by the use of microcomputer spreadsheets.

With respect to wage subsidy programs, currently each program has its own application, review,

assessment, recommendation, approval and monitoring process. A committee has been established

to streamline processes for wage subsidy programs and an online application is currently being

developed. Despite this streamlining potential, the application will have to be printed and manually

re-keyed into CAPS by Departmental staff.

Chapter 5 5-A-2

63

Review Findings

Student voucher reports are generated showing the total number of vouchers issued by program,

vouchers unexpired and un-cashed, and number of vouchers issued by school. Extensive monitoring

of these reports is required near year end to identify slippage and re-profiling funds to other priority

youth areas.

There are several known system and technical issues specific to the administration of student

voucher programs:

SWASP-paid vouchers are encumbered in CAPS even though these vouchers are paid through

FMS. As a result, CAPS encumbers approximately $450,000 in voucher funding each year

which cannot be expensed properly in CAPS;

CAPS maintains tuition voucher encumbrances after projects are cancelled;

CAPS encumbers funds even though vouchers are not declared (i.e. requested by employer and

employee) and therefore not printed;

given that there is no mechanism to de-commit voucher encumbrances, AES staff from CEYS

and finance have developed methods to mitigate these shortcomings; and

reconciliation back to CAPS is not effective other than on a case by case basis.

Chapter 5 5-A-2-1

64

Review Findings

Program Graduate Employment Program

Background

Goals:

Assist recent graduates find work in their field of study; critical to helping graduates make an

attachment to the labour force by having the opportunity to gain the experience they need for

future career advancement and opportunities. The impetus for the program was to address the no

work / no experience graduates were experiencing when trying to find employment upon

graduation.

Objectives:

Assist under/unemployed individuals secure employment for a 52 week period and gain valuable

work experience in their field of study based on their post-secondary accomplishments.

Target Population:

Recent graduates of post-secondary training who have been unable to secure employment in their

chosen field. Clients are primarily youth.


Budget for 2011-12 - $2,696,000

An estimated 130 new placements for graduates in 2012/13

Provincial Office - West Block: Provincial Manager - Wage Subsidies; Program Consultant and

Senior Manager - Youth Programs. Program administered regionally while the management and

approval functions are completed at Provincial Office.

The program is delivered via grants


Income & Employment Support Act


Policy Issues A need for increased awareness of the program in order to increase

participation of both employers and employees.

From a Departmental perspective, there is a lack of integration and

consistency of policy, procedures and financial supports across wage

subsidy programs. As a result, there are many variations in the delivery

approach throughout the province.

Currently, AES funds employers over multiple periods without a

requirement to demonstrate that funded positions have resulted in

successful attachment to the labour market.

No formalized process exists for ensuring that funding is allocated to

priority occupations.

Chapter 5 5-A-2-1

65

Review Findings

Recommendations AES should consider developing an awareness campaign for the Graduate

Employment Program.

A team should be established to review all wage subsidy programs with a

goal to streamline business processes and develop a standardized

evaluation plan.

AES should ensure business planning is conducted by regions/zones and

include priority sectors and a demographic profile of labour market supply.

Legislative Issues None Identified

Recommendations N/A

Business Process

Issues

Overlap and duplication exists related to the administration of the separate

wage subsidy programs within AES.

There is no matching capability between employer applicants and

employee applicants that is in keeping with labour market supply and

demand.

Currently the Department issues payments to employers as they submit

payroll information – there is no enforced preset schedule. As a result,

there are many examples of where the payroll information is not submitted

until after April 30, i.e., the end of the payment cycle for the fiscal year.

This results in encumbered amounts from the next fiscal years budget.

There is no standardized Evaluation Plan currently in place.

The benefit levels differ among the various wage subsidy programs offered

by the Department.

No priorities for targeted employment sectors are applied in the approval

process.

Although an online application is currently being developed, the

application will have to be printed and manually rekeyed into CAPS by

Departmental staff.

Information on the participation rates of income support clients in the

department’s employment programs is not readily available. Currently,

staff are required to manually access client files to determine participation.

As a result, participation rates of income support clients are not monitored

on a regular basis.

The program mirrors the Graduate Transition to Employment Program

(GTEP) and as such could be considered as duplication.

Chapter 5 5-A-2-1

66

Review Findings

Recommendations A team should be established to review all wage subsidy programs with a

goal of integrating, streamlining business processes and developing a

standardized evaluation plan.

A team should be established with a view to determining a process for

matching employer and employee applicants considering labour market

supply and demands.

AES should consider reducing the number of wage subsidy payments to

employers (e.g. from monthly to quarterly) and ensure that all amounts

owing in a fiscal year are paid in that fiscal year to avoid an encumbrance

on the following year’s funding.

The department should identify priority sectors based on labour market

supply and demand and approvals within the program should reflect those

priorities.

OCIO should be consulted as to the feasibility of developing an electronic

transfer of information from online applications to CAPS.

AES should consider developing and implementing a tracking mechanism

for employment programs to determine the participation rates of income

support clients.

AES should consider either including the GTEP as part of its Graduate

Employment Program or eliminating the GTEP.


A team has been established to review streamlining of wage subsidy programs. In addition, the

team is considering processes required for matching employer and employee applicants

considering labour market supply and demands.

Quick Wins

Online application process for wage subsidies (Graduate Employment Program, NL Works, NL

Wage Subsidy, Wage Subsidy for Persons with Disabilities).

The GTEP program can be either consolidated with the Graduate Employment Program or

eliminated in order to reduce unnecessary administration costs and simplify the services offered by

AES.


The committee is currently reviewing the following for all wage subsidy, voucher and stipend

programs:

client intake and assessment requirements;

funding supports; and

a single application with the possibility of an online application process

Chapter 5 5-A-2-1

67

Review Findings

Additional work will be required to:

streamline/standardize the level of funding supports provided to clients; and

develop a standardized Evaluation Plan

Cross training will be required for front line staff to assist in the administration of all wage subsidy

programs.

The recently developed Delegation of Authority proposal could be considered and implemented as

appropriate to streamline approval processes.

The frequency of the reimbursement schedule for employers could be reduced, ensuring that any

outstanding amounts are closed off at year end.

While a single wage subsidy application is currently under development, an electronic transfer of

information similar to the process in the Student Aid Management System would be a significant

improvement in business practices.

Examples of Payments from Graduate Employment Program


RESOURCE CENTRE FOR THE ARTS 29,680.92

GGD ELECTRICAL INC 24,039.20

ORPHAN INDUSTRIES LTD 23,755.23

BIT TRAP STUDIOS CANADA INC 23,438.71

BEYOND THE OVERPASS THEATRE COMPANY 22,155.20

TILLER ENGINEERING INC 22,068.51

MCDONALD & HOUNSELL LAW OFFICES 21,942.11

EASTER SEALS, NEWFOUNDLAND AND LABRADOR 21,537.52

KIDCORP INC 20,794.50

PILOT COMMUNICATIONS INC 20,674.40

BDO FINANCIAL SERVICES LIMITED 19,378.96

BREAKWATER BOOKS LTD 18,290.42

DOF SUBSEA CANADA CORP 18,204.02

SILVER SCISSORS UNISEX SALON LTD 16,447.51

OCEAN QUEST INC 16,195.99

BEST BOY PRODUCTIONS LIMITED 15,866.40

KILLICK TECHNOLOGY INC 15,400.41

BIG BROTHERS/BIG SISTERS ASSOCIATION 15,279.33

CORE ENGINEERING INC 14,758.28

JACCON ENTERPRISES 14,366.00

BFF ENTERPRISES INC 14,136.58

KRCA ENTERPRISES LTD 14,111.00

DR PATRICK D REDMOND 13,948.03

EDWARDS & ASSOCIATES LTD 13,789.62

Chapter 5 5-A-2-1

68

Review Findings


BRIDGER DESIGN ASSOCIATES LIMITED 13,625.04

TRIWARE TECHNOLOGIES INC 13,528.33

MCCARTHY'S MECHANICAL LIMITED 13,222.00

INDEPENDENT LIVING RESOURCE CENTRE 13,214.55

GARDNER & COOMBS INC 12,990.97

YOUTH 2000 CENTRE 12,792.70

YMCA-YWCA OF NORTHEAST AVALON 12,519.23

REC HOUSE COMMUNITY YOUTH NETWORK 12,519.20

DESIGNING REALITY AROUND YOU INC (DRAY) 12,500.00

NEWFOUNDLAND CHOCOLATE COMPANY INC 12,258.55

COMMUNITY THERAPY SERVICES 12,213.49

PHONETECH VOICE & DATA LTD 12,151.85

PIONEER ENTERPRISES LTD 12,134.56

STARLITE ELECTRIC LTD 12,021.40

DR GILLIAN E PETERS 12,020.00

C & W INDUSTRIAL FABRICATION & MARINE 11,934.36

DEW ENTREPRISES LTD 11,923.18

TRANQUILITY SPA 11,904.83

CANADA FITTINGS & FLANGES INC 11,860.02

PVA HAIR INC 11,809.00

TECH CONSTRUCTION LTD 11,797.63

ANASTASIA PARSONS 11,758.22

FIRE-TECH SYSTEMS LTD 11,539.20

MICRO-TECH COMPUTER CENTRE INC 11,538.40

NORTH ATLANTIC MARINE SUPPLIES 11,486.28

FORTUNE TOWN COUNCIL 11,447.30

NORTH RIVER HOLDINGS INC 11,438.02

SALON 1 (2010) INC 11,348.07

PHARMACISTS' ASSOCIATION OF NL 11,316.85

SCOTT OLDFORD 11,315.22

IMMACULATE HEART OF MARY SCHOOL 11,253.06

GROS MORNE SUMMER MUSIC FESTIVAL 11,206.80

HAIR SPA INC 11,143.20

DATA ENTERPRISES LIMITED 11,010.32

WATTON'S CONSTRUCTION LTD 10,992.31

BAST LIMITED 10,970.48

TOULON DEVELOPMENT CORPORATION 10,966.76

BENSON MYLES PLC INC 10,932.13

KTS SALES AGENCIES INC 10,837.20

MERLE NORMAN HAIR & SPA 10,798.38

AIRPORT USED CAR CENTRE LTD 10,720.73

JENCO LIMITED 10,715.83

Chapter 5 5-A-2-1

69

Review Findings


THE IDEA FACTORY 10,656.00

PLAY N LEARN PRESCHOOL 10,637.15

JASON BENGER 10,622.00

STEVE FRENCH 10,588.50

STRATTON AND WAREHAM FINANCIAL SERVICES 10,585.16

DENNIS ROSE INC 10,567.80

POWER, BOLAND LIMITED 10,512.00

PORT AU PORT ECONOMIC DEVELOP ASSOCIATON 10,447.60

CONTROLPRO DISTRIBUTORS INC 10,384.92

ORCHIDS SALON AND SPA LIMITED 10,344.50

RUMORS SPA AND SALON LIMITED 10,190.00

KEY ASSETS NEWFOUNDLAND LIMITED 10,145.98

LABRADOR NORTH CHAMBER OF COMMERCE 10,098.90

RADIANCE HAIR STUDIO & SPA 10,064.51

VISION THE ATLANTIC CANADA CO INC 10,055.00

Chapter 5 5-A-2-2

70

Review Findings

Program: MUN-Graduate Transition to Employment (GTEP) Program

Background:

Goals:

The goal of this program is to assist new Memorial graduates in the province in getting

employment related to their education. This program also assists employers in developing their

work force through a sustained wage subsidy to allow time to have the new graduate be trained on

the job.

Objectives:

The objectives are to have the new graduate placed in a position in a company in an occupation

related to their training. This will both develop the skills of the employee at this company and for

their future career. This opportunity will also enable the employer to have a enthusiastic new

graduate work in the company with a wage subsidy allowing them time to become trained and

effective.

Target Population:

This year, current funding will allow 15 new MUN graduates to be employed through this

program. New Memorial graduates who are having difficulty finding work related to their

education.


The budget for 2011-12 - $299,000. In fiscal 2012-13, the contract with MUN is for $200,000.

The money is from the Youth Services Budget Activity. YRAS funded this program an additional

$125,000 during the last two fiscal years and this money was used effectively to respond to

existing demand.

This program is the responsibility of the Manager of Wages Subsidies in Provincial Office with the

involvement of the Senior Manager - Youth Programs, Youth Program Consultant and other

members of the youth team as required. All are located at Provincial Office. Recommendations for

approval made by Youth Services Team in Provincial Office; approval by the Minister/Designate

(ADM) based on recommendations from the Youth Services Team.

The program is delivered via grants.




Policy Issues Demand for program exceeds available funding.

The program mirrors the current Graduate Employment Program and

therefore could be delivered by AES. The provision of separate funding to

MUN could be considered as not equitable for all graduates completing

post-secondary programs, i.e., C.N.A. and private training institutions.

Chapter 5 5-A-2-2

71

Review Findings

Recommendations Budget allocation of the program should be reviewed with a view to

determining whether amounts are adequate based on Departmental

priorities.

AES should consider whether the contract with MUN related to the

Graduate Transition to Employment Program should continue.


Recommendations N/A

Business Process

Issues

The current process results in duplication of administration.

Recommendations AES should consider whether the contract with MUN related to the

Graduate Transition to Employment Program should continue.


A team has been established to review the integration and streamlining of all wage subsidies. In

addition, the team is considering processes required for matching employer and employee

applicants considering labour market demands.

Quick Wins:

Merge the GTEP program with the existing GEP program.


This program could be administered through the AES Regional Offices as part of the parallel

Graduate Employment Program (GEP).

Chapter 5 5-A-2-3

72

Review Findings

Program NL Works

Background

Goals & Objectives:

To improve clients’ employment prospects and attachment to the labour market by providing profit

and not-for-profit employers with funding to create new positions.

Target Population:

Individuals in receipt of Income support or unemployed/underemployed individuals who are non-

EI eligible and actively seeking employment. The program serves approximately 260 clients

annually.


The budget for 2011-12 - $1,596,000.

Provincial Office – CEYS division: Provincial Manager - Wage Subsidies; Program Consultant

and Senior Manager - Youth Programs. Program administered regionally while the management

and approval functions are completed at Provincial Office. Wage Claims are submitted to the

District office usually on a monthly basis. Claim is reviewed by the CSO, Approved and then sent

to the PAU for verification before being sent to the department of Finance for payment.
















Recommendations AES should consider developing an awareness campaign for the NL Works

program.




AES should monitor outcomes of wage subsidy programs to determine

Chapter 5 5-A-2-3

73

Review Findings

whether they are meeting the department’s mandate of long-term labour

market attachment. In particular, AES should determine whether it is

appropriate to provide employers with wage subsidies year after year if the

employer is not hiring participants.




Recommendations N/A

Business Process

Issues





demand.


payroll information – there is no enforced preset schedule. As a result,






by the Department.


process.



Departmental staff.





on a regular basis.

Chapter 5 5-A-2-3

74

Review Findings






supply and demands.







priorities.





support clients.


A team has been established to review the streamlining of all wage subsidies. In addition, the team

is considering processes required for matching employer and employee applicants considering

labour market supply and demands.

Quick Wins



programs:








programs

Chapter 5 5-A-2-3

75

Review Findings








Examples of Payments from NL Works


PIPERS DEPARTMENT STORES LIMITED 16,810.00

LIGHTHOUSE PRODUCTIONS INC 15,088.00

LITTLE PEOPLE'S WORKSHOP LTD 13,696.25

CHRIS G WOOTTON 11,190.00

HAPPY VALLEY-GOOSE BAY SPCA 10,907.75

DUNFIELD PARK COMMUNITY CENTRE INC 10,666.00

SHAW VENTURES COMPANY LTD 10,400.00

62454 NEWFOUNDLAND & LABRADOR INC 10,042.50

LABRADOR INVESTMENTS LTD 9,896.00

TARA INVESTMENTS LTD 9,456.00

NEWFOUNDLAND MEAT PACKAGING CO LTD 9,400.00

DRIFTWOOD NURSERY 9,200.00

PLACENTIA TOWN COUNCIL 9,136.75

JIM PENNEY AUTOMOTIVE INC 8,690.00

AVALON RECYCLING SERVICES LTD 8,558.00

BARRY S CLARKE 8,450.00

THE ST JOHN'S NATIVE FRIENDSHIP CENTRE 8,216.20

CARE - A - LOT LEARNING CENTRES 8,195.45

BAY ST GEORGE STATUS OF WOMEN 8,050.00

SOUTH BROOK CONVENIENCE 8,000.00

CORNER BROOK BAY WASH LTD 8,000.00

L GIOVANNINI LTD 7,981.25

LAND & SEA WELDING LIMITED 7,972.50

CABOT HABITAT FOR HUMANITY 7,808.50

WEE GEMS DAY CARE 7,720.00

TOWN OF WABANA 7,682.00

SEAVIEW CAFE 7,640.00


A SIP ABOVE INC 7,602.50

TERRA INNS LIMITED 7,490.00

Chapter 5 5-A-2-3

76

Review Findings


TEZERS LOUNGE INC 7,430.00

WHALEN'S TRUCKING INC 7,400.00

OPTIMUM BUILDERS & RENOVATORS 7,227.50

K & E SERVICES LTD 7,200.00

A-1 CONVENIENCE LTD 7,172.50

CLARENVILLE AREA CO-OP LTD 7,067.50

THE GROOMING ZOO LTD 6,995.00

OMB PARTS & INDUSTRIAL LTD 6,970.00

CORNER BROOK MINOR SOCCER ASSOC 6,900.00

COMMUNITY YOUTH NETWORK 6,899.99

CLARENVILLE CAR CARE LTD 6,840.00

NORTHRIDGE DEVELOPMENTS LTD 6,800.00

WANDA'S LITTLE BAKE SHOP 6,755.00

HOLSON FOREST PRODUCTS LIMITED 6,725.00

FUNN FOOD FACTORY INC 6,715.00

TOWN COUNCIL OF LAWN 6,670.00

LUXURY ESTATES INC 6,665.00

CANADIAN CANCER SOCIETY 6,641.25

MILA FOODS INC 6,637.50

GROS MORNE TRADING POST LTD 6,621.25

AUTISM SOCIETY OF NEWFOUNDLAND 6,500.38

PAMELA RUSSELL 6,500.00

Chapter 5 5-A-2-4

77

Review Findings

Program NL Wage Subsidy

Background

Goals:

Provides funding to employers to encourage them to hire EI clients whom they would not normally

hire in the absence of a subsidy. Under this program, funding may also be provided related

employment supports to eligible individuals, including tools, equipment and short-term training.

Objectives:

To assist EI eligible clients make a successful attachment to the labour market

Target Population:

"Insured person" - an unemployed person: (a) For whom a benefit period is established or whose

benefit period has ended within the previous 36 months; or (b) for whom a benefit period has been

established in the previous 60 months and who (i)was paid special benefits under section 22 or 23

(maternity or parental claim) during the benefit period; (ii)subsequently withdrew from active

participation in the labour force to care for one or more of their new-born children or one or more

children placed with them for the purpose of adoption; and(III) is seeking into re-enter the labour

force.

Exceptions to the definition: as per Section 25 of the EI Act, Departmental staff may provide an

"Authorization to Quit" to an employed individual to support their participation LMDA

training/employment programs. This is the mechanism applied for all apprentices to avail of

advanced training. In some circumstances, this has also been applied to "underemployed"

individuals (e.g. working 20 weeks or less; working in a job that is not related to their

training/payscale).


The LMDA division currently holds the responsibility for the administration of the $4.445 million

budget

Number of interventions annually:

Fiscal Year 2010-11 - 738 new intervention (1,123 total interventions) - $6.670M expenditures

Fiscal Year 2011-12 - 562 new interventions (958 total interventions) - $4.381M expenditures

Front line CSOs located in the regions assess the applications with recommendations/approvals

completed at the appropriate level of delegated authority. All wage subsidy applications are

approved at the regional level within the current delegated authority.

Within the Department, there are currently 97 frontline positions (82 CSOs, 15 Admin) involved in

the delivery of LMDA programs. About 50% support the delivery of Skills Development, the

other 50% support the delivery of Programs (JCP, Wage Subsidies and EAS/SEA Contracts).



Chapter 5 5-A-2-4

78

Review Findings

Governing legislation includes: EI Act Part I; EI Act Part II; Financial Administration Act; and the

LMDA Agreement. Policy directives include: Employment Benefits and Support Measures Terms

and Conditions (and associated Similarities Test); and NL LMDA Policies, directives and

guidelines.








Current policy for NL Wage Subsidy does not require the retention of all

employees upon completion of their respective subsidized periods. The

policy supports the provision of work experience without attachment to the

employer.



Recommendations AES should consider developing an awareness campaign for the NL Wage

Subsidy program.




A review of the current policy for NL Wage Subsidies is needed to

determine whether departmental priorities are being addressed.



Legislative Issues Currently, EI eligible persons funded under this program are subject to EI

Act Part II which does not have an appeal mechanism. All persons funded

under the other AES wage subsidy programs are subject to the Income &

Employment Support Act which provides a formalized appeal process.

Recommendations AES should consider the inconsistency in the appeal process in these

programs and take the appropriate action.

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Review Findings

Business Process

Issues



There is limited matching capability between employer and employee

applicants that ensures labour market demands are adequately addressed.


Monthly Claim Forms. These claim forms are often not submitted

according to monthly schedules. This results in slippage of funding in the

current fiscal year, with a need for an encumbrance of funds from the

subsequent fiscal year.

This program has funding slippage as a result of approved projects not

commencing and minimal monitoring to identify any dormant or inactive

agreements.


Benefit levels provided under this program are based on negotiated

amounts at the district office level and therefore inconsistencies in duration

and levels of funding exist across the province.


by the Department.

Inconsistencies exist in the identification of targeted employment sectors

during the approval process.

The NL Wage subsidy application is not an electronic process. Therefore,

information needs to be manually rekeyed into CSGC by Departmental

staff.




A team should be established with a view to enhancing the process for


demands.



owing in a fiscal year are paid in that fiscal year to avoid current year

slippage and encumbrance on the following year’s funding.

Chapter 5 5-A-2-4

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Review Findings

AES should formalize the monitoring of wage subsidy agreements to

identify dormant files on a more timely basis and decommit funds where

approved projects have not commenced.

AES should identify a provincial approach to determining benefit levels

and funding duration for the NL Wage Subsidy program.



priorities.

The team should also consult with OCIO as to the feasibility of developing

an electronic transfer of information from online applications to CSGC.





Quick Wins

None identified



programs:








programs.





While a single on-line wage subsidy application is currently under development, an electronic

transfer of information similar to the process in the Student Aid Management System to reduce the

need for information to be rekeyed in the applicable payment systems would be a significant


Chapter 5 5-A-2-4

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Review Findings

Examples of Payments from NL Wage Subsidy

Vendor Name Amount

Newfoundland and Labrador Regional Council of Carpenters, Millrights and Allied

Workers 391,535.00

Design Manufacturing Inc. 38,832.00

Dallas Mercer Consulting 36,758.00

Beachside Manor Ltd. 35,320.00

Model Forest of Newfoundland & Labrador Inc. 30,430.00

Avalon Electrical Ltd. 30,079.00

Placentia Area Development Association 27,765.00

Heritage Run Tourism Assoc. Inc. 23,184.00

Sedna Nutraceutical Inc. 23,180.00

Ridge G & P Services Ltd. 22,698.00

O'Neill’s Gardenland 28,426.00

Premiere Atlantic Ltd. 21,768.00

Mom's Place Limited 21,728.00

Northwest Plumbing and Heating 21,296.00

Torngat Arts and Crafts Incorporated 20,685.00

Derek Sceviour 20,064.00

Gander Electrical & Mechanical Ltd 19,940.00

Argentia Management Authority 19,733.00

H. Collingwood & Co. Ltd 19,534.00

Kidcorp Inc. 19,344.00

Legacy Electric Ltd 18,757.00

Vision Electrical Limited 18,753.00

Paul Nolan Electrical Ltd. 17,505.00

Avalon Recycling Services Ltd. 17,195.00

Atlantic Safety Centre Inc. 17,169.00

Burtons Cove Logging and Lumber Ltd. 17,070.00

C & J Service Ltd. 17,049.00

Christophers Trucking Limited 17,040.00

Cape Race - Portugal Cove South Heritage Inc. 16,803.00

Tango Electric Inc 16,245.00

Crosbie Engineering Ltd 16,133.00

Brad Peddle Contracting Inc 16,010.00

L&M Electric 15,864.00

M & R Automotive Ltd 15,840.00

Abbott Developments Inc. 15,563.00

Brick & Tile Supplies (1999) Ltd. 15,480.00

The Repair Shop 14,890.00

Rodrigues Estate Development 14,800.00

West Coast Automotive 14,760.00

Chapter 5 5-A-2-4

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Review Findings

Vendor Name Amount

Eco Contracting Ltd 14,348.00

New Wire Solutions Ltd 14,164.00

Humber Community YMCA 14,093.00

Universal Construction 13,902.00

RED OCHRE REGIONAL BOARD INC. 13,846.00

Ocean Quest 13,834.00

Ecofoam Insulatin Ltd. 13,592.00

Bernard Farrell 13,440.00

Stuckless Custom Kitchens Inc. 13,200.00

Corner Brook Fabrication & Steel 13,111.00

NGR Electricial Ltd 13,104.00

OMB Parts & Industrial Ltd. 13,047.00

Ignite Media Corp 13,000.00

Buckle's Busing Ltd. 12,900.00

Wellsite Services Inc. 12,728.00

Literacy Coalition of NL Inc. 12,554.00

New Fun Land Ltd. 12,289.00

Jasmine Jewellery 12,288.00

Little People's Workshop Ltd. 12,204.00

Campbell's Place 12,141.00

Tacamor Holdings Inc. 12,105.00

Grand Concourse Authority 12,060.00

Hickeys Greenhouse & Nursery 12,000.00

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Review Findings

Program Wage Subsidy for Persons with Disabilities

Background

Goals:

To increase the participation rate of persons with disabilities in the labour market, reduce the levels

of poverty among this client group and decrease dependency on income support.

Objectives:

Per the Departmental Strategic Plan, provide incentives for private sector employers to hire recent

post-secondary graduates who have disabilities to provide them with the necessary experience to

increase their opportunity to make a labour market attachment.

Target Population:

Recent graduates of post-secondary institutions who have disabilities and who are receiving case

management services through AES, particularly those who have been supported under the Training

Services Program to complete post-secondary training.


The budget for 2011-12 - $200,000.

It is estimated that the funding will serve approximately 15 new clients and the carryover of 1

client from the previous year.

The program is delivered via grants and subsidies.

The program is delivered through regional CEYS services and there are two partial positions

within provincial office( 1 Provincial Manager of EAPD and 1 Program Consultant) involved with

monitoring client eligibility, expenditures, the overall uptake of the program budget and reporting

monthly on number of clients and approvals. Provincial Office also reports to the PRS on the

program.

There are 3 designated regional PRS CSO positions (1 in each of Avalon, Central & Western

regions) with responsibility for promotion of the Program.





participation of both employers and employees as the budget is not fully

used.






Chapter 5 5-A-2-5

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Review Findings





Recommendations AES should consider developing an awareness campaign for the Wage

Subsidy for Persons with Disabilities.




AES should monitor outcomes of wage subsidy programs to determine

whether they are meeting the department’s mandate of long-term labour

market attachment. In particular, AES should determine whether it is

appropriate to provide employers with wage subsidies year after year if the

employer is not hiring participants.




Recommendations N/A

Business Process

Issues





demand.


payroll information - there is no enforced preset schedule. As a result,






by the Department.


process.



Chapter 5 5-A-2-5

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Review Findings

Departmental staff.





on a regular basis.

Although AES provides significant resources to train individuals as part of

the LMAPD Training Services program, graduates of the program are not,

on a priority basis, attached to this wage subsidy program to facilitate a

long-term attachment to the labour market.






supply and demands.







priorities.





support clients.

A policy to align Training Services graduates to this program on a priority

basis should be formalized and complied with.


A team has been established to review the streamlining of all wage subsidies. In addition, the team

is considering processes required for matching employer and employee applicants considering

labour market supply and demands.

Quick Wins

The policy to align Training Services graduates to this program on a priority basis should be

Chapter 5 5-A-2-5

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Review Findings

formalized and strictly enforced.



programs:








programs

The Wage Subsidy for Persons with Disabilities program is a wage subsidy program for recent

graduates and therefore could be considered for consolidation with the Graduate Employment

Program.








Chapter 5 5-A-2-6

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Review Findings

Program: Government Hiring Apprentices Program (GHAP)

Background:

Goals:

This program is designed to enable government departments and agencies to hire apprentices/pre-

apprentices through reimbursement of payroll expenses. This allows apprentices to gain valuable

work experience while obtaining the hours they need to advance through their training, and

ultimately achieve journeyperson status.

Objectives:

• Increase access to work experience opportunities among apprentices and provide an opportunity

for pre-apprentices to become registered apprentices and gain required work experiences.

• Assist government departments and agencies in their human resource succession planning.

• Increase recruitment in skilled trades and in labour market supply.

• Improve progression and completion rates of apprentices.

• Increase the number of employers engaged in the apprenticeship system.

• Increase apprenticeship stakeholder participation and accountability (Employers, Advisory

Committee members).

• Increase access to financial supports/incentives for individuals and employers.

Target Population:

Those who have successfully completed an entry-level trade program or first or second year

apprentices in a provincially designated trade with focus on underrepresented groups: women,

Aboriginals, and persons with disabilities.


The budget for 2011-12 - $2,225,000.

The clients varies between 70 to 80 apprentices per year, depending on achievement to

journeyperson status and recruitment process time.

This program is delivered via an invoicing method which requires total payroll cost for each

apprentice hired, along with an update of their hours.





Policy Issues Demand exceeds available funding under the program.

Although Government enters into significant capital works projects with

external contractors, there is no mechanism for the placement of

apprenticeships on the projects. Currently, the program only has

apprentices at either a department or government agency. There was a

separate proposal put forward to address the hiring of journeypersons and

apprentices by outside contractors who obtain work via the tendering

method.

Recommendations AES should determine whether the current budget allocation is adequate

Chapter 5 5-A-2-6

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Review Findings

vis a vis Departmental priorities. A number of current participating

employers indicated they would hire additional apprentices if the funding

was available. Consideration should be given to expanding the program to

other governing bodies such as municipalities.

AES should determine the feasibility of having apprentices participate in

major capital works projects with external contractors. Consideration could

be given to incorporating stipulations in government tendering contracts to

ensure that government apprentices included as a resource.


Recommendations N/A

Business Process

Issues

None identified.

Recommendations N/A


Apprenticeship review committee has been established.

Quick Wins:

None identified


Wage Subsidy for Apprentices - Similar objectives and target population.

Could possibly be considered in next round of wage subsidy reviews for

streamlining/consolidation.

Examples of Payments from GHAP


NEWFOUNDLAND & LABRADOR HOUSING CORP 220,742.51

NOVA CENTRAL SCHOOL DISTRICT 95,108.27

EASTERN SCHOOL DISTRICT 87,956.81

CENTRAL HEALTH 71,671.21

WESTERN SCHOOL DISTRICT 70,070.49

EASTERN HEALTH 68,860.76

LABRADOR GRENFELL HEALTH 65,131.78

LABRADOR SCHOOL BOARD DISTRICT #1 59,519.44

WESTERN REGIONAL INTEGRATED HEALTH 47,304.24

Chapter 5 5-A-2-7

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Review Findings

Program Apprenticeship Wage Subsidy

Background

Goals:

The Apprenticeship Wage Subsidy Program was implemented to assist in building a qualified and

skilled workforce to help address the future demands of the province’s labour market. A financial

incentive is provided to employers to help offset salary costs of hiring underemployed and

unemployed apprentices. In turn, this provides apprentices with the opportunity to gain

apprenticable hours, especially for those in their first and second year blocks of training

Objectives:

Provide apprentices with job experience related to their trade that contributes to the hours required

for certification

Target Population:

First and second year apprentices; other under-represented groups such as women, aboriginals,

persons with disabilities, and youth


Governing legislation includes: EI Act Part I; EI Act Part II; Employment Benefits and Support

Measures Terms and Conditions; Financial Administration Act; LMDA Policies, directives and

guidelines. In addition, the Labour Market Agreement applies to Non-EI eligible apprentices.


The budget for 2011-12 - $6,080,000 (Combination of Departmental ($4.0M) and LMA ($2.08M)

funding)

Wage Subsidy maximum $14/hr

In fiscal 2011-12, 293 clients were served by this program.

Currently administered in Labour Market Development division. 1 Program Manager (Provincial

Office); 4 CSO (St. John's, Grand Falls, Corner Brook, Happy Valley Goose Bay), 4 PDO (St.

John's, Corner Brook, Clarenville, Grand Falls).



Policy Issues Demand for program exceeds available funding.

Funding shortages for 1st year apprentices will exist after LMA wage

subsidy funding expires in 2014 as 1st year apprentices are not entitled to

funding under LMDA



priorities.

Funding for 1st year apprentices subsequent to termination of LMA funding

Chapter 5 5-A-2-7

90

Review Findings

in 2014 should be addressed


Recommendations N/A

Business Process

Issues

The Apprenticeship Wage Subsidy program is not managed through either

the CEYS or LMDA systems. The program is managed by the use of

microcomputer spreadsheets.

There is no formalized no standardized evaluation plan to determine

whether the program is meeting Departmental objectives.

The Industrial Training Division is responsible for Apprenticeship. This

results in duplication and inefficiencies with respect to front-line staff

engagement with employers.

Recommendations Priorities must be established to fund within the budget allocation.

There needs to be a more robust and secure information management

system for tracking the Apprenticeship Wage Subsidy program.


goal to streamline business processes and develop a standardized

evaluation plan.


A committee has been established to review all wage subsidy programs within AES

Quick Wins

Transfer the management of the Apprenticeship Wage Subsidy program to the Industrial Training

Division.



programs:








programs

Chapter 5 5-A-2-7

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Review Findings

Examples of Payments from Apprenticeship Wage Subsidy


VISION ELECTRICAL LIMITED 18,606.00

EASTERN STAR GROUP CANADA INC 12,555.00

SUMMIT BUILDERS LIMITED 12,100.00

AIR-TITE SHEET METAL LIMITED 10,962.00

H J BARTLETT ELECTRIC INC 9,812.50

SPRINGDALE FOREST RESOURCES INC 9,800.00

CAPITAL CRANE LIMITED 9,643.00

DEREK SCEVIOUR 9,100.00

H & F ELECTRICAL LIMITED 9,053.00

ST JOHN'S INTERNATIONAL AIRPORT 8,272.00

PRECISION COLLISION AUTOMOTIVE 8,146.00

MCCORMACK'S ENTERPRISES LTD 6,966.00

SWITCH ELECTRICAL INC 6,714.00

YORK DEVELOPMENTS INC 6,566.00

C & R CONTRACTORS LTD 6,291.00

STELLA BURRY COMMUNITY SERVICES 6,048.00

C & J SERVICES LTD 5,663.00

SHANCO CONSTRUCTION INC 5,594.00

KELLOWAYS CONSTRUCTION LTD 5,261.00

SKYLINE CONTRACTING LTD 5,160.00

YOUNG'S FABRICATION LTD 4,820.00

METAL SPECIALITY LIMITED 4,484.00

PETER SIMMONS ENTERPRISES LTD 4,413.00

WESTERN STEEL WORKS INC 4,266.00

PORTOBELLO'S RESTAURANT 4,104.00

TOROMONT INDUSTRIES LTD 3,920.00

EXPLOITS ELECTRICAL LIMITED 3,744.00

CAST CONSTRUCTION INC 3,442.00

JASON GREENING 3,360.00

QUALITY CABINETRY & CARPENTRY LTD 3,169.00

LABRADOR INDUSTRIAL SUPPLIES LTD 2,940.00

BRICK & TILE SUPPLIES (1999) LTD 2,520.00

LABRADOR REWINDING INC 2,478.00


SOLAR WINDS ENERGY INC 2,414.00

JCL CONSTRUCTION INCORPORATED 2,003.00

LEE & SONS LTD 1,915.00

BENNETT'S LIMITED 1,733.00

IKM TESTING (CANADA) LTD 1,348.00

Chapter 5 5-A-2-8

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Review Findings

Program: Women in Trades

Background:

Goals:

Recruitment and retention strategies for women in the skilled trades to increase labour supply and

increase the Province's capacity to fully maximize the benefits of planned major resource-based

project developments, long-term operations, and promote recruitment and retention for small and

medium size enterprises.

Objectives:

• Increase access to work experience opportunities among new apprentices and "pre”-apprentices.

• Increased recruitment in skilled trades and labour market supply.

• Improved progression and completion rates of registered apprentices.

• Increase the number of employers engaged in the apprenticeship system, with an emphasis on

employing females in non-traditional occupations.

• Increase apprenticeship stakeholder participation and accountability (Employers, Advisory

Committee members).

• Increase access to financial supports/incentives for individuals and employers.


The budget for 2011-12 - $400,000 - from the departmental operational budget.

Program administered through two third party agencies (The Carpenter’s Millwright Union and

IBEW).

This program is delivered via an invoicing method which requires submission of progression

elements as per the terms of the contract.


Apprenticeship and Certification Act; Interprovincial Red Seal Program; Apprenticeship Training

Act.


Policy Issues AES does not have a formal mechanism in place to determine whether

entities receive funding for similar initiatives from different sources within

the department.

Although AES has placed emphasis on having women involved in

nontraditional occupations, it is not successful in having these women

attached to the labour market in their field of training.

Although departmental policy indicated support for each year of an

apprenticeship, the funding limitations resulted in priority support for first

and second year apprentices. This has resulted in a lack of continuous

support for apprentices in their senior years which, in many instances,

results in either layoffs or stalled first and second year apprentices.

Although Government enters into significant capital works projects with

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Review Findings

external contractors, there is no mechanism for the placement of

apprenticeships on the projects or requirements for the number of women

apprentices employed.

Recommendations A formal process should be established to ensure that entities do not

receive duplicate funding.

AES needs to determine whether current employer supports to have women

employed in nontraditional occupations are adequate.

Consideration should be given to provide support to 3rd and 4th

level

apprentices.

AES should determine the feasibility of having apprentices, including a

certain number of women, participate in major capital works projects with

external contractors.

Legislative Issues If the department proceeded with a requirement for tendered capital works

to include apprentices, there could be a conflict vis a vis the requirements

of the public tendering act.

Recommendations Keep the matter in view.

Business Process

Issues

AES does not have timely and consistent data on the progress of women

apprentices. While the Caprenter’s Millwright Union (CMU) does provide

information on a regular basis, IBEW does not. Furthermore, the

department’s AIM System, which would be required to provide

information on all women apprentices including CMU and IBEW, does not

provide the necessary information.

Recommendations The department needs to establish its reporting requirements and advise

CMU and IBEW accordingly.

The department should continue to work with the OCIO on a replacement

for the AIM System.


An apprenticeship review committee has been established.

Quick Wins:

Establish and enforce reporting requirements relating to female apprentices.


The wage subsidy committee is currently reviewing the following for all wage subsidy, voucher

and stipend programs:





Chapter 5 5-A-2-8

94

Review Findings




programs.



Chapter 5 5-A-2-10

95

Review Findings

Program Conservation Corps/Green Team

Background

Goals and Objectives

To provide a quality summer employment experience to youth throughout the province in areas of

environmental conservation, sustainable communities, and heritage preservation. The program

delivers up to 25 summer employment projects across the province in partnership with community

organizations and the corporate sector. The projects are focused on environmental conservation,

sustainable communities, and heritage preservation.

Target Population

Youth 30 and under.


The budget for 2011-2012 - $634,600 - through the Youth Services Budget.

Through this initiative, over 100 youth will be hired, primarily in rural communities. On average,

this program hires about 12 Income support clients of the 100 youth and students that are hired

each year. This program runs over the summer months. Each employment position lasts for 8

weeks but they vary in start and end time based on each individual community project.

The program is administered and managed by Provincial Manager of Youth Grants, Senior

Manager of Youth Programs and Program Coordinator.

Regional Offices and community partners are consulted to encourage Income Support Youth who

are qualified to apply for employment in Green Teams throughout the Province and to consult on

issues as required.

This program is delivered via grants and subsidies.


The authority to run this program stems from the MC (2001-0146) that created the SIOC (Student

Investment and Opportunities Corporation) back in 2001 and the MC (2008-0117) that allowed the

Dept. of HLRE to take over running the SIOC programs in 2008. In 2011-12, the Youth Services

budget activity moved along with most programs from the Dept. of HRLE to the new Dept. of

AES.


Policy Issues Currently the funding for student employment programs is delivered

through several options which includes various combinations of tuition

vouchers and paid employment.

Recommendations The department should determine the most effective approach to

compensate students and achieve the intended outcome of attachment to

the labour market.


Recommendations N/A

Chapter 5 5-A-2-10

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Review Findings

Business Process

Issues

Historically, the department has been more reactive than proactive and as a

result has funded many projects proposed by 3rd

party agencies vs. being

proactive and identifying the department’s priorities and having a call for

proposals to identify the most suitable 3rd

party agency to deliver a project.

Although one of the objectives of the program is to attract income support

clients, the program is attracting only approximately 10% of the total

program participants are income support clients.

Currently the department has limited involvement in the identification and

selection of projects. As a result, the department does not have any ability

to strategically influence which projects are funded.

Recommendations The department should be proactive in identifying programs required in

order to meet its mandate and have a call for proposal process to provide a

level playing field to all potential organizations and award the contract on a

merit basis.

The department should consider the low uptake by income support clients

and determine a course of action to improve uptake.

The department should determine whether the current level of involvement

in this program is appropriate.


None identified.

Quick Wins

N/A


The department could consider the similarities among other youth grant programs including SAY,

GTYO and CYN and determine whether there could be a consolidation of funding and service

delivery.

Chapter 5 5-A-2-11

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Review Findings

Program: Linkages

Background:

Goals

The goal is to assist youth who have not made a successful transition to the labour force and are

currently non EI eligible.

Objectives

Youth access career related employment with a private or not for profit employer; attend regular

scheduled career and employment planning sessions; receive help with establishing and pursuing

career and employment goals.

Target Population

18-30 year old youth, having completed at the minimum Level II and out of school for six months;

have not completed post-secondary; demonstrated difficulty entering the labour force; Non-EI

eligible.


The budget for 2011-12 - $2,004,000 Employment Development Programs - Grants and

Subsidies.

Regional Committee completes assessment of proposals and forwards recommendations to

Provincial Manager of Community Partners. Provincial office completes secondary review by

manager; recommendations are forwarded to a Senior Manager for review and then to the Director

for review and signing prior to files being forwarded to ADM for review and approval.

200 youth served annually.

This program is delivered via grants and subsidies.




Policy Issues Currently, there are no similar program options for clients in the 30-54 year

old age range. TIOW applies to clients from age 55.

While the current program operates year round the intake process occurs in

late summer or early fall. This may restrict some sectors from being able

to avail of funding.

Although there are income support clients in Labrador, there has been

decreasing uptake of this program.

Although AES may provide core funding to an entity, e.g., a CYN, the

department will also pay the entity a 15% administration fee to deliver this

program. Is the additional administration fee necessary or warranted?

Although career work centres are currently underutilized, AES continues to

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Review Findings

provide administration fees to third parties to deliver employment services

which could be provided by staff at the career work centres.

Recommendations AES should consider program alternatives to address the needs of clients in

the 30-54 age group.

AES should determine whether the intake process for the program should

be expanded to other periods in the year.

AES should determine whether this program can meet the needs of

Labrador clients.

AES should determine whether it is necessary to provide a 15%

administration fee to entities it is already funding.

AES should determine whether the program should be delivered internally.

Legislative Issues If Income Support and other AES programs are transferred to the Innu,

legislative changes may be required.

Recommendations Keep the matter in view.

Business Process

Issues

Need for more coordination in provision of funding to organizations.

Recommendations The administration of grants could be centralized.


Committee established to complete a grants review.

Quick Wins:

None identified.


The administration of grants could be centralized.

Chapter 5 5-A-2-11

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Review Findings

Examples of Payments from Linkages


CANADIAN PARAPLEGIC ASSOCIATION 290,914.53

WOMEN INTERESTED IN SUCCESSFUL 101,235.42

ST BARBE DEVELOPMENT ASSOC 98,924.58

EMPLOYMENT PREPARATION INC 84,948.84

PORT AUX BASQUES AND AREA CHAMBER 78,738.66


PLACENTIA AREA DEV ASSOCIATION 58,125.96

ALEXANDER BAY/TERRA NOVA DEVELOPMENT 55,219.32

COMMUNITY CENTRE ALLIANCE 48,974.14

ST MARY'S BAY NORTH DEVELOPMENT 46,016.10

THE HUMBER COMMUNITY "YMCA" 46,016.10

WHITE BAY CENTRAL DEVELOPMENT 46,016.10

BAY D'ESPOIR COMMUNITY YOUTH 40,903.20

JOHN HOWARD SOCIETY OF WESTERN NFLD 40,579.20

SMALLWOOD CRESCENT COMMUNITY CENTRE 38,974.70

BAY ST GEORGE SOUTH AREA DEVELOPMENT ASSOCIATION 36,812.88

CENTRAL COMMUNITY DEVELOPMENT 36,812.88

COMMUNITY YOUTH NETWORK - ISLES OF 36,812.88

GRAND LAKE CENTER FOR ECONOMIC 36,812.88

LABRADOR FRIENDSHIP CENTRE 36,812.88


JOHN HOWARD SOCIETY (ST JOHN'S) 33,584.40

LOWER TRINITY SOUTH DEVELOPMENT ASSOC 33,487.03

CAREER ASSESSMENT CENTRE 30,527.10

BAIE VERTE PENINSULA ECONOMIC 29,470.14

ABILITY EMPLOYMENT CORPORATION 29,075.32

BAYNET INC 27,609.66

SALVATION ARMY GANDER CORPS 24,829.92

GREEN BAY YOUTH CENTRE INC 23,270.94

GREEN BAY SOUTH EDUCATION CENTRE INC 22,496.76

HARBOUR BRETON COMMUNITY YOUTH 22,496.76

EXPLOITS VALLEY YMCA 21,969.51

CLARENVILLE & AREA COMMUNITY YOUTH 19,983.00

ISTHMUS AREA REGIONAL DEVELOPMENT 18,406.44

ST ANTHONY AREA BOYS AND GIRLS CLUB 18,406.44

Chapter 5 5-A-2-13

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Review Findings

Program: Job Creation Partnerships

Background:

Goals:

Financial support, in partnership with employers and/or community organizations, to projects that

provide EI clients with work experience to assist them in developing the skills needed to secure

ongoing employment.

Objectives:

JCP assists insured participants who need work experience to increase their chances

of successfully finding ongoing employment.

Target Population:

"Insured person" - an unemployed person: (a) For whom a benefit period is established or whose

benefit period has ended within the previous 36 months; or (b) for whom a benefit period has been

established in the previous 60 months and who (i)was paid special benefits under section 22 or 23

(maternity or parental claim) during the benefit period; (ii)subsequently withdrew from active

participation in the labour force to care for one or more of there new-born children or one or more

children placed with them for the purpose of adoption; and(III) is seeking to re-enter the labour

force.

Exceptions: As per Section 25 of the EI Act, Departmental staff may provide an "Authorization to

Quit" to an employed individual to support their participation LMDA training/employment

programs. This is the mechanism applied for all apprentices to avail of advanced training. In

some circumstances, this has also been applied to "underemployed" individuals (e.g. working 20

weeks or less; working in a job that is not related to their training/payscale).


The LMDA division currently holds responsibility for the administration of the $10,557,118

budget.

Number of interventions annually:

Fiscal Year 2010-11 – 1,907 new interventions (2,427 total interventions) - $14.75M expenditures;

1809 unique individuals were represented among the 1907 new interventions

Fiscal Year 2011-12 – 1,389 new interventions (1,592 total interventions) - $10.35M expenditures;

1309 unique individuals were represented among the 1,389 new interventions

323 (23%) of the unique individuals with "new" interventions in 2011/2012 also participated in

"new" interventions in 2010/2011.




This program is delivered via grants and allowances and assistance. In 2011/2012, 25% of the

total expenditures were "grants"; the remaining $7.8M were direct benefits to clients (each with

their own agreement).


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Governing legislation includes: EI Act Part I; EI Act Part II; Financial Administration Act; LMDA

Agreement. Policy directives includes: Employment Benefits and Support Measures Terms and

Conditions (and associated Similarities Test); NL LMDA Policies, directives and guidelines.


Policy Issues Demand for the program exceeds available funding, driven by community

organization dependency as opposed to client demands. In many cases,

particularly in the non-profit service sector and tourism sector, groups

apply for JCP because they cannot afford the cost contributions (usually

40%) under the Wage Subsidy program.

In some areas of the province, the JCP program has become a defacto

income support program for local residents who usually work in seasonal

industries. This is reflected in the "repeat" individuals among "new"

interventions year over year and within years. The standard JCP policy

does not support this type of "repeating" per se. There is a policy

"exception" that allows for repeating in depressed economic areas however

there is no standard definition for what constitutes this designation.

AES follow up with JCP participants has indicated that the program has

limited success in creating attachments to the labour market.

There is significant demand for JCP from community groups. However,

projects sometimes have difficulty in finding participants for the projects in

some areas of the province where other job opportunities exist including

insurable work programs such as Community Enhancement and

Employment Program. This is reflected in the "slippage" of the program.

In 2011/2012 over $13.6M was approved for JCP projects, yet only $10.35

was expended by year end as a result of project delays and/or cancellations,

primarily due to lack of participants.

JCP projects can sometimes create staffing difficulties for local businesses

in areas where the labour supply is limited.

Prior to the centralization/joint approval approach introduced in 2010/2011,

benefit levels provided under this program and levels for eligible overhead

costs were based on negotiated amounts at the district office level and

therefore inconsistencies in duration and levels of funding existed across

the province. Although a 30% overhead cap has been introduced and some

standardzation across benefit levels for types of JCP participants, there is

still some hang-over of inconsistency within/among regions when

negotiating final amounts.

Contrary to the program objectives, many rural community groups have

become dependant on program funding as a resource to fund operations

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Review Findings

and infrastructure development.

The JCP program is administratively burdensome as a result of the program

guidelines and application. For example, the initial approval process for a

JCP project application takes into account the proponent's request for

overhead and participants (# and costs). Subsequently, regional staff

negotiate a contract with the proponent to allow for overhead payments

under "Grants" and an agreement with each individual participant for either

payments under "allowances and assistance" or to allow them to continue

receiving EI or an EI top-up.. In effect, for one project approval that has

been approved for 10 participants requires staff to negotiation 11 different

agreements. In 2011/2012 there were 1389 new agreements negotiated for

303 unique projects which also required agreements. Due to the tie-in to

EI payments - the centralization of the "grants" portion will not necessarily

reduce administrative requirements for the program.



priorities.

A decision should be made as to the program priority of the JCP program

(i.e. work experience for significantly barriered clients or community

sustainability or income supplementation?)

AES should consider delivering the JCP program at a time that does not

compete with the Community Enhancement and Employment Program for

participants.

Consideration should be given to labour market issues of business before

approval of JCP projects.

AES should consider a review of community groups approved for JCP

funding to identify groups that receive recurring annual funding which may

be used to support ongoing operations.

Consideration could be given to development of a new wage subsidy policy

for non-profit service organizations to avail of the Wage Subsidy program

as opposed to JCP.


Recommendations N/A

Business Process

Issues

Currently, participants on JCP are required to develop a Return to Work

Action Plan. This process seems unnecessary given that JCPs are designed

to provide work experience and not an immediate attachment to the labour

market.

Recommendations AES should consider eliminating the need for a Return to Work Action

Chapter 5 5-A-2-13

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Review Findings

Plan for JCP participants.


Committee established to complete a grants review.

Quick Wins:

Eliminate the need for a Return to Work Action Plan for JCP participants.




Examples of Payments from Job Creation Partnerships

Vendor Name Amount

St. Barbe Development Association 103,965.00

Community Education Network (CEN) 69,104.00


Placentia Area Development Association 64,288.00

Festival of Flags Inc. 49,402.00

Bonavista Historic Townscape Foundation Inc. 48,881.00

Town of Bird Cove 43,324.00

Corner Brook Stream Development Corporation Inc 39,766.00

Stephenville Lions Club 38,355.00

ROYAL CANADIAN LEGION, BRANCH 38 37,606.00

Flat Bay Indian Band 37,544.00


Town of Reidville 33,284.00

Dalton Council #1448 30,707.00

Clarenville Yacht Club Inc. (CYC) 30,000.00

Town of Isle aux Morts 30,000.00

Long Cove Harbour Authority 25,900.00

BONNE BAY COTTAGE HOSPITAL HERITAGE CORPORATION 25,690.00

Port Au Port Economic Development Association 24,254.00

St. Michaels Church 23,620.00

Sandy Cove Lions Club 23,312.00

Straits Rural Development Association 22,961.00

Central Development Association 22,270.00

Clarenville Area Recreation Association 21,819.00

Glovertown Yacht Club Inc 21,586.00

White Bay Central Development Association 21,579.00

Town of Bonavista 21,150.00

Rec House CYN 20,298.00

Outer Bay of Islands Enhancement Committee 20,248.00

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Review Findings

Vendor Name Amount

Trinity Bay North 20,081.00

ASSOCIATION REGIONALE DE LA COTE OUEST 19,537.00

Anglican Parish of Harbour Grace 18,721.00

Placentia Area Theatre d'Heritage Inc. 18,662.00

Port aux Basques Parks & Recreation Department 18,560.00

Lower Trinity South Regional Development Association 18,443.00

La Scie Ambulance Service 18,300.00

Town of Grand Le Pierre 17,739.00

Town of Channel Port Aux Basques 17,600.00

Town of Carbonear 17,589.00

KITPU FIRST NATION INC. 17,553.00

Badger Town Council 17,420.00

Town Council of Chapel Arm 17,289.00

Our Lady of Lourdes Parish 16,920.00

St. Mary's Bay North Regional Development Association 16,890.00

Deep Cove Marina Inc. 16,795.00

Pasadena Ski and Nature Park 16,250.00

Town of Humber Arm South 16,085.00

Barbour Living Heritage Village 16,000.00

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Review Findings

Program: CYN Employment Programs (Summer SWASP, Year Round & CEEIS)

Background:

Goals and Objectives:

Summer SWASP Provide meaningful employment to youth in a non-profit organization and an opportunity for youth

to explore careers and pursue post-secondary.

Placements are for eight weeks. The participant receives a weekly stipend of $175/week as an

incentive and to offset costs associated with participation in the program and a $1,400 tuition

voucher upon completion of program.

Year Round SWASP and CEEIS

Year Round SWASP participants are presently in Level III or IV, may be a high school graduate or

drop out; may be enrolled in level III ABE. The criteria for CEEIS is the same except participants

would be considered entrenched generational dependent income support clients.

Participants are provided with a one-on-one assessment, career exploration and planning, and work

experience in their chosen field. The work experience is chosen by the CYN with a view to

developing the work readiness and skills of the youth.

Year Round SWASP – participating youth receive a stipend of $1,400 over the 8 week duration of

the program and a maximum post-secondary tuition voucher of $1,400. The combination of the

voucher and stipend amounts to the minimum wage of $10/hour.

CEEIS - participating youth earn a weekly stipend of $150.15 which amounts to $2,252.25 over a

15 week duration. In addition, participants earn up to $5.71 an hour towards a maximum post-

secondary tuition voucher of $3,000. The combination of voucher and stipend amounts to the

minimum wage of $10/hour.

Target Population: Youth16 to 29

Summer SWASP – youth presently enrolled in Level III or IV; maybe a high school graduate; can

be attending post-secondary or enrolled in Level 3 ABE

Year Round SWASP and CEEIS – youth who may have no specific career plan, no attachment to

the labour market and who demonstrate a financial need. The program focuses on youth on income

support or whose family is on income support.


The budget for 2011-12 - $400,000 – [CYN SWASP: $98,000; Year Round: $151,000; CEEIS:

$31,050 - all from Youth Services budget.]

60 placements were approved for Summer SWASP; 57 FOR Year Round SWASP; and 13 for

CEEIS

Provincial Manager - CYNs, Senior Manager - Youth Programs, Provincial Manager - Youth

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Review Findings

Grants, Youth Program Coordinator; all located at Provincial Office - West Block.

Stipend paid through CAPS with supporting documents in TRIM including program approval

signed by ADM. Vouchers recorded and paid through department's SVS (Student Voucher

System.)




Policy Issues There is a high demand for work experience placements every year and the

demand exceeds the budget.

Labrador region has low uptake with this and other employment programs.

There is no evidence to support that the current tuition voucher structure is

effective as a means of achieving the intended program objectives.

AES has Summer and Year Round SWASP programming that would be

available for the CYN’s to access; however, AES also offers a separate

program available only to CYN’s. As a result, there are potentially

unnecessary administrative costs and not all applications are assessed

relative to all others.

Inconsistencies exist between stipends issued among the various work

experience programs in AES.



priorities.

AES should determine either a strategy to attempt to increase uptake of

employment programs in Labrador or adjust budget allocations

accordingly.

The use of tuition vouchers in program delivery should be assessed to

determine whether it is the most effective means of achieving program

objectives.

A team should be established to determine whether the policy of separate

funding to CYN’s relating to Year Round and Summer SWASP

programming is appropriate.

AES should ensure that the amounts provided as stipends to all program

participants are consistent.

Legislative Issues Income Support clients funded under the CEEIS program have reduced

stipends to avoid negatively impacting Income Support eligibility.

Recommendations The Act should be reviewed to determine the amendments necessary to

Chapter 5 5-A-2-14

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Review Findings

ensure equitable stipends are provided to all participants.

Business Process

Issues

Inadequate monitoring of contract performances and outcome measures.

Specifically, there is no formalized follow-up of participant outcomes to

determine whether program objectives were achieved.

Recommendations Processes should be developed to monitor and evaluate the program to

determine its effectiveness in achieving its intended outcomes.


A team has been established to review wage subsidies, tuition vouchers and stipends.

Quick Wins

None identified.


Separate CYN funding for Year Round & Summer SWASP could be combined with the

Department’s existing SWASP programming.

Examples of Payments from CYN Employment Programs






TOWN OF WABANA 8,400.00

CHOICES FOR YOUTH INC 7,000.00

CENTRAL LABRADOR ECONOMIC 5,600.00


FOR THE LOVE OF LEARNING, INC 5,600.00


ADVOCATE YOUTH SERVICES CO-OPERATIVE 4,200.00

GANDER BOYS AND GIRLS CLUB 4,200.00



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Review Findings

Program Student Employment Programs (Level I, II, III)

Background


Provides funding to non profit organizations to create summer jobs for high school students, often

times their first job. It's an introduction to the work force for these students and opportunity to

gain work experience and build on both essential skills and life skills.

Target Population:

Target population are students in high school, Levels I, II and III; program supports approximately

680 placements for high school students in the non profit sector.


The budget for 2011-12 - $906,0000

In 2012, 816 applications were received; 371 approved based on available funding.

Provincial Office: Wage Subsidy Manager; Program Consultant and Senior Manager - Youth

Programs Regional staff play a role in program delivery in relation to data entry, assessment and

recommendation processes.

Program is administered via grant

Employer provides copy of the payroll when submitting the wage claim and the student must sign

the Wage Claim to verify the claim.


Income & Employment Support Act.


Policy Issues Demand far exceeds available funding. For example, in 2012, 816

applications were received; 371 approved based on available funding.

The MHA makes a recommendation from a list of potential employers

without any formalized decision making process.

Currently the employer applies for funding and they arrange the placement

of students. It may be more equitable to have the program also available

for students to apply.



Chapter 5 5-A-2-15

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Review Findings


vis a vis Departmental priorities.

All recommendations and decisions regarding funding should be based on

a transparent and accountable system so that upon an inquiry the decision

can be justified.

AES should determine whether it would be more equitable and open if

students could also apply for funding under this program.




Recommendations N/A

Business Process

Issues

None identified

Recommendations N/A



Quick Wins


The program can be consolidated with other employment/work experience initiatives targeted to

students using a common application. Consolidation would simplify the application process for

students and organizations.

Examples of Payments from Student Employment Programs (Level I, II, III)


VERA PERLIN SOCIETY, INC 15,310.00

HISTORIC SITES ASSOCIATION OF NF & LAB 8,041.38

MACMORAN COMMUNITY CENTRE 7,820.00

BAY ST GEORGE SOUTH AREA DEVELOPMENT ASS 6,842.50

TOWN OF NORTH WEST RIVER 5,635.00

WABANA BOYS & GIRLS CLUB 5,635.00


TOWN OF HARBOUR GRACE 5,520.00

TAMARACK GOLF CLUB 5,518.85


ST JOHN'S (NFLD) AMATEUR BASEBALL 4,968.00

BOY SCOUTS OF CANADA 4,830.00

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Review Findings


HOPEDALE INUIT COMMUNITY GOVERNMENT 4,830.00

KNIGHTS OF COLUMBUS COUNCIL 6638 4,830.00

LABRADOR WEST YOUNG PEOPLES 4,830.00

THE SALVATION ARMY (ST JOHN'S) 4,600.00

THE SALVATION ARMY BAYVIEW CORP 4,600.00

ST JOHN'S MINOR A BASEBALL 4,370.00

POSTVILLE INUIT COMMUNITY GOVERNMENT 4,347.00

CHAMPNEY'S EAST RECREATION ASSOCIATION 4,140.00

CHAMPNEY'S WEST RECREATION 4,140.00

HODGE'S COVE LOCAL SERVICE DISTRICT 4,140.00

PARADISE MINOR BASEBALL ASSOCIATION 4,140.00

PORTUGAL COVE-ST PHILLIP'S RECREATION 4,140.00

RANDOM WEST RECREATION ASSOCIATION INC 4,140.00

TOWN OF DEER LAKE 4,140.00

TOWN OF PORTUGAL COVE - ST PHILIPS 4,140.00

PARADISE YOUTH SOCCER ASSOCIATION 3,933.00

PORT BLANDFORD-WINTERBROOK DEVELOPMENT 3,910.00

WATERFORD VALLEY SPORTS 3,795.00

TOWN OF ST GEORGES 3,726.00


FRIENDS OF VICTORIA PARK 3,680.00

PETER BARRY DUFF MEMORIAL PARK DEVELOP- 3,680.00

SHEA HEIGHTS NEIGHBOURHOOD 3,680.00

THE WORSHIP CENTRE 3,680.00

TOWN OF FLATROCK 3,680.00

CORNER BROOK BASEBALL ASSOC. 3,450.00

EASTSIDE MINOR SOCCER 3,450.00

FLAT BAY BAND INCORPORATED 3,450.00


CANADIAN PARENTS FOR FRENCH 3,312.00

EASTERN GATE CHURCH 3,220.00

GOOSE BAY MILITARY RESOURCE CENTRE 3,220.00

HAPPY VALLEY-GOOSE BAY SPCA 3,220.00

LABRADOR HERITAGE SOCIETY(NWR) 3,220.00

QUIDI VIDI/RENNIES RIVER DEVELOPMENT 3,220.00

RABBITTOWN COMMUNITY CENTRE 3,220.00

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Review Findings


ST JAMES UNITED CHURCH 3,220.00

ST JOHN'S THERAPEUTIC RIDING 3,220.00

TOWN OF PARADISE 3,220.00

AMARUK GOLF & SPORTS CLUB 3,105.00

ENGLEE TOWN COUNCIL 3,105.00

RIGOLET INUIT COMMUNITY GOVERNMENT 3,105.00

EAGLE RIVER DEVELOPMENT ASSOCIATION 2,817.50

MARY'S HARBOUR CRAFT COUNCIL 2,817.50

SOUTHERN SHORE ARENA ASSOCIATION 2,817.50

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Review Findings

Program Student Employment Programs (Non-Profit)

Background

Goals:

Provide funding to non-profit organizations to create summer jobs for post secondary students to

assist in the delivery of the organization's mandate. Student employment opportunities provide the

ability to gain work experience as well as develop essential personal skills such as time

management, communication, interpersonal, organizational, and budgeting. These skills,

combined with the opportunity to acquire work experience, play a significant role in the overall

development of the student and their ability to market themselves for future employability.

Objectives:

To create student summer employment and provide work experience and personal skills

development that will lead to long-term attachment to the labour market.

Target Population:

Students planning to attend or return to post-secondary institutions. The program is also designed

to support the non-profit sector.


No budget for 2011-12 – program was not administered by AES. Budget for 2012-13 - $570,126

for 8 week placements.

The anticipated number of students served will be approximately 200.

Provincial Office: Provincial Manager - Wage Subsidies; Program Consultant and Senior Manager

- Youth Programs. Applications are submitted to AES; and include a deadline date for submission

of May 25, 2012. Staff from LMD (Youth Engagement Manager and Policy Analyst) have been

assigned to support program delivery for 2012. The non-profit organizations are responsible for

overseeing the placement and providing guidance and supervision to the student.




Policy Issues Currently there are no formalized policies and procedures in place for this

program.

The current budget only allows for approximately 50% of eligible

applicants to be approved.

AES has Summer and Year Round SWASP programming that would be

available for the CYN’s to access; however, AES also offers a separate

program available only to CYN’s. As a result, there are potentially

unnecessary administrative costs and not all applications are assessed

relative to all others.



Recommendations Formalized policies and procedures should be developed for this program.

Chapter 5 5-A-2-16

113

Review Findings

AES should determine whether the current budget allocation is adequate


A team should be established to determine whether the policy of separate

funding to CYN’s relating to Year Round and Summer SWASP

programming is appropriate.




Recommendations N/A

Business Process

Issues

None identified.

Recommendations N/A



Quick Wins

None identified.




Given that AES delivered this program internally for this first time in 2012, an analysis should be

completed to determine if any efficiencies and intended program outcomes have been achieved.

Based on the outcome of the review, if it is more effective for AES to deliver these programs,

consideration should be given to consolidate other employment/work experience initiatives

targeted to post-secondary students.

Chapter 5 5-A-2-18

114

Review Findings

Program: Student and Work Services Program (SWASP)

Background:

Goals & Objectives:

To create summer jobs for post secondary students. Student employment opportunities provide the

ability to gain work experience as well as develop essential personal skills such as time

management, communication, interpersonal, organizational, and budgeting. These skills,

combined with the opportunity to acquire work experience, play a significant role in the overall

development of the student and their ability to market themselves for future employability.

Target Population:

Students planning to attend or return to post-secondary; program supports approximately 1,100

placements for post-secondary students in the private sector and to a small degree, non-profit

sector.


The budget for 2011-12 - $2,237,000

In 2012, there were 1,382 applications received; 650 approved. Duration is 5 - 14 weeks.

Provincial Office: Wage Subsidy Manager; Program Consultant and Senior Manager - Youth

Programs Regional staff play a role in program delivery in relation to data entry, assessment and

recommendation processes. The employer submits a wage claim form at the end of the project,

including payroll documentation. The claim is reviewed by the CSO and sent to the PAU for

verification and then sent to AES Finance for payment.

Program is administered via grant




Policy Issues Demand exceeds available funding under the program.

No process in place to ensure that there is a correlation between the

student’s field of study and the work placement.





AES should adopt a policy to develop the matching process between

students and employers.




Chapter 5 5-A-2-18

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Review Findings

Recommendations N/A

Business Process

Issues

There are times when monitoring is not adequate. This situation may be

related to limited staff resources and the short program duration.

Recommendations The issue of inadequate monitoring should be reviewed and action taken to

ensure adherence to policy.



Quick Wins

None identified.


Given the similarities, this program could be consolidated with the Graduate Employment

Program.

Examples of Payments from SWASP


ECLIPSE STORES INC 18,082.50

KENNY ENTERPRISES LTD 18,057.50

TOWN OF GRAND FALLS-WINDSOR 14,142.50

COLEMANS FOOD CENTRE 12,682.40

NOTRE DAME AGENCIES LIMITED 12,180.00

LABRADOR-GRENFELL REGIONAL INTEGRATED 8,436.25

FIRST CHOICE HAIRCUTTERS 7,630.65

NEWFOUNDLAND & LABRADOR LEGAL AID 7,477.50

SCOTT FAMILY RESTAURANTS LTD 6,559.90

BAY ROBERTS TOWN COUNCIL 6,400.00

ENVIRONMENT RESOURCES MANAGEMENT 6,400.00

ABA HOLDINGS LTD (TIM HORTON'S) 6,316.25

FUTURITY LIMITED 5,600.00


GANDER INTERNATIONAL AIRPORT AUTHORITY 5,405.00

CLAYMOR HOLDINGS LTD 5,245.00

BEYOND THE OVERPASS THEATRE COMPANY 5,200.00

TOWN OF HAPPY VALLEY-GOOSE BAY 4,935.00

ATLANTIC LODGINGS INC 4,399.50

BRENKIR INDUSTRIAL SUPPLY LTD 4,330.00

ANOTHER NEWFOUNDLAND DRAMA COMPANY INC 4,200.00

HERITAGE FOUNDATION FOR TNNP 4,200.00

MUNICIPAL ASSESSMENT AGENCY 4,000.00

POWELLS SUPERMARKET LIMITED 4,000.00

GOOSE BAY MILITARY RESOURCE CENTRE 3,920.00

SINBAD'S LIMITED 3,736.25

P&B ENTERPRISES LTD 3,655.00

BATTLEFIELD EQUIPMENT RENTALS 3,600.00

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Review Findings


SUNRISE VENTURES INC 3,580.00

THE PERFORMING ARTS GROUP CORP 3,527.50

BARTLETT ENTERPRISES INC 3,255.00

BIRDHOUSE GARDEN MARKET INC 3,227.40

BAY GROUP INC 3,200.00

BUDDY'S NFLD INC 3,200.00

CARL PEACH LIMITED 3,200.00

JUDY ELIZABETH HARNUM 3,200.00

LINDCO ENTERPRISES LTD 3,200.00

LION MAX SIMMS MEMORIAL CAMP 3,200.00

O'NEILLS GARDENLAND 3,200.00

PLACENTIA SERVICE CENTER 3,200.00

THE COUNTRY CORNER 3,200.00

TOROMONT INDUSTRIES LTD 3,200.00

60178 NEWFOUNDLAND & LABRADOR 3,185.00

KELLY'S GAS BAR & CONVENIENCE-PETRO 3,185.00

TIZZARD'S QUICK STOP 3,090.00

NORTHERN BAY SANDS 3,050.00

SUBWAY SUBBAY INC 3,046.40

63517 NEWFOUNDLAND & LABRADOR LIMITED 2,800.00

ANGLICAN CEMETERY COMMITTEE 2,800.00

BOTWOOD HOME HARDWARE 2,800.00

BRIAN PIKE FINANCIAL GROUP INC 2,800.00

BURRY HEIGHTS CAMP 2,800.00

EAST-GLO ELECTRIC LTD 2,800.00

GANDER GOLF CLUB 2,800.00

HARBOUR GRACE TOURISM 2,800.00

LIGHTHOUSE PICNICS LTD 2,800.00

MARKS WORK WEARHOUSE 2,800.00


OCEAN QUEST INC 2,800.00

OCI HOLDINGS INC 2,800.00

PITCHERS POND GOLD COURSE INC 2,800.00

SHAKESPEARE BY THE SEA FESTIVAL INC 2,800.00

SUBWAY (GANDER) 2,800.00

ENTERPRISE HOLDINGS 2,790.00

FONG'S MOTEL & RESTAURANT 2,774.10

TOWN OF HARBOUR GRACE 2,730.00

WAL-MART PHARMACY LTD 2,728.30

Program Other Student Employment Programs (which includes MUN/CONA SWASP

and PACEE)

Chapter 5 5-A-2-18

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Review Findings

Background


Both the Student Work and Service Program (SWASP) and the Partnership in Academic and

Career Education and Employment Program (PACEE) programs provide student jobs in paid

positions at Memorial University and the College of the North Atlantic. Through these positions,

students earn money to defray the cost of post-secondary education often in areas relevant to their

fields of study. These positions provide students with relevant work experience to enhance their

marketability and labour market attachment.

Target Population:

Target - post secondary students in MUN and CONA. Students have to apply for these positions

within the respective institution and effort is made to employ learners at-risk (such as those with

disabilities).


The budget for 2011-12 – $627,000. Funding to MUN and CONA is done through a third party

contract. For 2012/13, contracts are in place for: SWASP MUN $331,680; SWASP CONA

$90,155; PACEE MUN 67,732; and PACEE CONA $57,232. All funds are from the Youth

Services Budget Activity.

Manager - Wage Subsidies oversees and manages these contracts. Senior Manager - Youth

Programs, Youth Program Consultant and other members of the youth team are involved in

review, assessment, recommendation, etc. All are at Provincial Office, West Block. Review,

assessment and recommendation - Provincial Office. Approval - Provincial Office.

For 2012-13, the total number of students to be employed in these programs will be 214 based on

the following breakdown: MUN-SWASP (143), CONA SWASP (32), PACEE MUN (21) and

PACEE CONA (18).





Policy Issues From a Departmental perspective, there is a lack of integration and




Students under SWASP Paid receive more funding ($3600 based on 40

hours per week) than students participating under other student programs

such as SWASP-MUN, SWASP-C.N.A. ($2800).

Although students earn tuition vouchers, if they are not redeemed AES

does not provide any payment to the student in lieu of redemption.


Chapter 5 5-A-2-18

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Review Findings



AES should consider how to address the liability to students who do not

redeem their tuition vouchers.


Recommendations N/A

Business Process

Issues

AES does not adequately monitor the student placements to determine the

value of the work placement to the student’s career goals. This is likely

attributable to the high number of placements operating within a short

duration.

Recommendations AES should determine the optimum use of limited staff resources in the

determination of an acceptable monitoring process for this program.





Quick Wins

None identified


Consideration could be given to moving from the provision of a voucher to a completion bonus,

i.e., a cheque to the student at the end of the employment contract.

There are currently four contracts, MUN-PACEE, CNA-PACEE, MUN-SWASP, CNA-SWASP;

however, AES could enter into just two contracts. In addition, opportunities may exist for

bundling of contracts with other similar grants and youth work experience/financial support

programs.


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119

Review Findings

Program Co-op and Internship Employment Programs for Post-Secondary

Background

Programs included under this umbrella are the Small Enterprise Co-op Placement Assistance

Programs (SECPAP) for MUN and CNA, Marine Institute Co-op, Faculty of Education Rural

Placement, Rural Practice Medical, Social Work Recruitment and ANVIL – Advancing Non-Profit

and Voluntary Investments in Learning Program.

Goals:

To enable post-secondary students to complete the requirements for their mandatory co-op work

terms and other employment internships.

Objectives: The objectives of the program vary somewhat based on the program and the targeted post-

secondary group:

SECPAP programs - the objective is to serve two groups:

1) Post-secondary co-op students at MUN and CNA who are in need of work terms to

complete their programs; and

2) Employers from small businesses in need of co-op students but who need a wage

subsidy to be able to hire the students. Specifically, the small businesses must have

fewer than 50 employees, have annual sales of less than $5 million and have a dedicated

person to supervising and evaluating the co-op students.

Marine Co-op - the objective is to assist post-secondary students at Marine Institute in

arranging work terms in a number of subject areas including Nautical Science, Marine

Engineering, and Marine Environmental. This funding is essential to enabling students to be

able to secure required work terms in larger mainland centers or vessels.

Faculty of Education Rural Recruitment - the objective is to assist to Education students to

take part in a comprehensive seminar-based instructional component as well as a four-week

placement in rural schools in the Province in the spring.

Rural Practice medical – NLHBA - the objective is to provide a minimum of 12 medical

students with a work placement in a rural setting.

Social Work Recruitment Program - the objective to provide social work placements for

twelve (12) 3rd year Social Work students in both rural and urban positions in the province

with Eastern Health in demand positions outside of child protection (CYFS).

Target Population:

Chapter 5 5-A-2-19

120

Review Findings

For SECPAP and Marine Co-op, the students must be registered co-op students at each institution.

For Faculty of Education – Rural Placement, the students must be 4th year Faculty of Education at

MUN students. For Social Work Recruitment, the students must be third year social work students

at MUN or from NL and for Rural Practice Medical, the students must be medial students are

MUN for from NL.


The budget for 2011-12 - $2,556,000. Budgets for 2012-13 are: SECPAP MUN $522,993,

SECPAP CNA $202,372, Marine Co-op $100,000, Faculty of Education – Rural Placement

$150,000, Social Work Recruitment $61,914, and Rural Practice Medical $27,358. Funding is

from Youth Services Budget Activity.

For 2012-13 fiscal, the total number of students to be employed in these programs will be 297

which is composed of SECPAP MUN 144, SECPAP CNA 52, Marine Co-op 30, Faculty of

Education – Rural Placement 47, Social Work Recruitment 12, and Rural Practice Medical 12.

SECPAP is the responsibility of the Manager of Wage Subsidies in Provincial Office. The other

programs are the responsibility of the Manager of Youth Grants. This is done with the involvement

of the Senior Manager - Youth Programs, Youth Program Consultant involved in such things as

review, assessment, and recommendation. Terms and conditions are specified in the contract.

Each proponent has its own set of criteria on what types of students can be supported as required

and which employers are eligible to hire people through these programs.

Regional Offices are not involved in the delivery of this program.






AES.


Policy Issues Inconsistencies exist between stipends issued among the various work


Recommendations AES should ensure that the amounts provided as stipends to all program



Recommendations N/A

Business Process

Issues

There are multiple budgets, one for each client population, making the

administration cumbersome.

Recommendations AES should consider either combining the AES budgets for student

placements or providing the funding to the institutions in the global grant.


A team has been established to review the streamlining of wage subsidies and other related

programs.

Quick Wins

Chapter 5 5-A-2-19

121

Review Findings

A single contract with each institution.


Currently AES enters into contracts with the institutions for each initiative. The process could be

streamlined if one contract was entered into with each institution covering all initiatives.

Alternatively, the funding could be integrated into the Departmental operating grant with each

institution administered by the Advanced Education branch.

Chapter 5 5-A-2-20

122

Review Findings

Program School to Work Transitions for Persons with Disabilities

Background

Goals

To assist High School Students with Developmental (Intellectual) disabilities make the transition

from school to work.

Objectives

Address Strategic Issues 1 and 2 of the Departmental Strategic Plan by providing funding for job

trainers to work with individuals with developmental disabilities to enable them to accept after

school and summer employment opportunities to expose them to the labour market.

Target Population

High school students who have developmental (intellectual) disabilities requiring support to enter

the labour market.


The budget for 2011-12 - $250,000.

Total number of clients served for 2011-2012: 29 clients.

There is a Provincial Manager, Program Consultant and regional staff involved in the

administration of the program.

This program is delivered via allowance & assistance.


Income & Employment Support Act & Regulations, Employability Assistance for Persons with

Disabilities (EAPD) School to Work Transitions Job Trainer Support Policy.



Recommendations N/A


Recommendations N/A

Business Process

Issues

The program is not as responsive as it needs to be to ensure that clients can

maximize their employment opportunities. For example, the approval

process through the CAPS system is cumbersome as a result of having to

identify sufficient funds which sometimes results delays and lost

opportunities for an individual in securing a job opportunity.

The current program delivery model results in duplication of effort by

departmental staff and 3rd

party agencies resulting in frustration from both

parties. For example, the department requests payroll information from the

3rd

parties and enter the information into CAPS to issue a payment for each

client.

Chapter 5 5-A-2-20

123

Review Findings

There are no pre-determined measurable outcomes in order to assess

whether the program is achieving the desired results.

Although the department’s mandate has changed from a social to an

economic lens, the goals, objectives and outcomes of the School to Work

Transitions for Persons with Disabilities program has not been assessed to

determine its relevance under this new lens.

Recommendations The department should determine a more effective mechanism for

identifying funding necessary to get clients to work.

The department should consider some of the program disincentives and

determine how they can be addressed. The choice of employment should

always be more advantageous than remaining on Income Support.

Given that the department is funding 3rd

party agencies to deliver this

program, consideration should be given to having the same agencies

administer the program and report on outcomes.

The department should ensure that all programs have pre-determined

measurable outcomes in order to assess whether programs are achieving

the desired results.

The department should consider a review of this program against the

department’s mandate.


N/A

Quick Wins

The department could consider the transfer of administration of individual supports currently being

completed by provincial and regional staff to 3rd

party agencies.




party agencies.

Consideration could be given to incorporating this program with either the Supported Employment

Job Trainers or the department’s student employment programs.

Chapter 5 5-A-2-20

124

Review Findings

Examples of Payments from School to Work Transitions for Persons with Disabilities


MRON Inc 29,340.00

Exploits Community Employment Corp 19,521.00

Visions Employment Plus Inc 19,152.00

Green Bay Community Employment 8,923.00

Ability Employment Corporation 8,699.00

Twillingate-New World Island Development 8,394.00

Bay St. George Community Employment Corporation 4,954.00

Gambo & Area Employment Corporation 4,337.00

Avalon Employment Inc 3,062.00

Sedler Community Employment – Baie Verte 2,519.00

Calypso Foundation 847.00

Sedler Community Employment – Deer Lake 245.00

Humber Valley Community Employment Corporation 129.00

Chapter 5 5-A-2-21

125

Review Findings

Program Supported Employment - Job Trainers

Background

Goals

To increase the participation rate of persons with developmental (intellectual) disabilities in the

labour market and inclusion in society overall, reduce the levels of poverty among this client group

and decrease dependency on income support.

Objectives

Address Strategic Issues 1 and 2 of the Departmental Strategic Plan by providing funding for job

trainers to work with individuals with developmental disabilities to help them learn and perform

the requirements of a competitive job in an inclusive community based setting.

Program is ongoing as long as support is required to maintain employment.

Target Population

Adults who have developmental (intellectual) disabilities and require support to learn and perform

the requirements of a job.


The budget for 2011-12 - $6,905,000.

544 clients accessed employment with the support of a job trainer in 2011-2012.

Job Trainer Support maximum of $12/hr plus MERC for non-unionized Job Trainers.

Unionized Job Trainers - maximum as per the collective agreement.

There is a Provincial Manager, Program Consultant and regional staff involved in the

administration of the program.

The program is delivered via allowance & assistance.


Income & Employment Support Act & Regulations



Recommendations N/A


Recommendations N/A

Business Process

Issues

The program is not as responsive as it needs to be to ensure that clients can

maximize their employment opportunities. For example:

The approval process through the CAPS system is cumbersome as a

result of having to identify sufficient funds which sometimes results

delays and lost opportunities for an individual in securing a job

opportunity; and

Chapter 5 5-A-2-21

126

Review Findings

The current income support administration results in disincentives

such as the loss of the 100% coverage drug card, disruption in

payment cycles, potential variation in work hours/entitlements and

impacts clients pursuit of employment under this and other programs.

The current program delivery model results in duplication of effort by

departmental staff and 3rd

party agencies resulting in frustration from both

parties. For example, the employment corporations enter information

regarding hours worked in ARMS and regional CSOs are required to

review this information to ensure it does not exceed the hours approved

and then enter the information into CAPS to issue a payment for each

client.

There are no pre-determined measurable outcomes in order to assess

whether the program is achieving the desired results.

Although the department’s mandate has changed from a social to an

economic lens, the goals, objectives and outcomes of the Supported

Employment Job Trainers program has not been assessed to determine its

relevance under this new lens.

Recommendations The department should determine a more effective mechanism for

identifying funding necessary to get clients to work.

The department should consider some of the program disincentives and

determine how they can be addressed. The choice of employment should

always be more advantageous than remaining on Income Support. Given that the department is funding 3

rd party agencies to deliver this

program, consideration should be given to having the same agencies

administer the program and report on outcomes.

The department should ensure that all programs have pre-determined

measurable outcomes in order to assess whether programs are achieving

the desired results.

The department should consider a review of this program against the

department’s mandate.


N/A

Quick Wins



party agencies.




party agencies.

Chapter 5 5-A-2-21

127

Review Findings

Examples of Payments from Supported Employment – Job Trainers



Visions Employment Plus Inc 51,283.00

Humber Valley Community Employment Corporation 48,019.00

Avalon Employment Inc 41,457.00

Vera Perlin Society 33,042.00

Exploits Community Employment Corp 29,027.00

Sedler Community Employment – Baie Verte 27,427.00

Bridges Employment Corporation 27,307.00

PAB Community Employment Corporation 26,043.00

Green Bay Community Employment 19,173.00

Three (L) Training and Employment Board 16,386.00

MRON Inc 12,872.00


Bay St. George Community Employment Corporation 10,570.00

Calypso Foundation 6,428.00

Burin-Marystown Community Training 6,231.00

Chapter 5 5-A-2-22

128

Review Findings

Program Tutoring Program (TFT, IT-TFT, TWEP)

Background

Goals

There are two main goals of this program:

To provide school year employment and work experience as tutors to a number of Level I, II

and III students throughout the province in the Tutoring for Tuition (TFT) and Information

Technology Tutoring for Tuition (IT-TFT programs) and similarly the Tutoring for Work

Experience Program (TWEP) program provides 6 weeks full-time summer employment for

postsecondary students tutoring in the high school environment; and

To enable a number of K-12 students who are in need of tutors to be tutored at no cost.

These programs help both the tutors (high school and post-secondary) and the tutees (K-12) in

need of tutoring. Objectives

The objectives follow from the goals. For the tutees, the objective is to increase there ability in K-

12 school subjects to make them understand and achieve better. For the tutors, the benefits of

employment in the program are many including career and work readiness, leadership

development, and employment experience in an educational environment.

Target Population

In 2011-2012 there were approximately 175 TWEP tutors, 890 TFT tutors and 43 IT-TFT tutors.

The number of students being tutored is not known precisely; however, it is believed to be in the

thousands.

The program is administered through both allowances and assistances and grants and subsidies:

TFT is paid for through Allowance and Assistance

TWEP and IT-TFT is paid for through Grants and Subsidies

TFT and IT-TFT tutors are paid equivalent to minimum wage for their work in the form of a post-

secondary tuition voucher. TWEP tutors are paid equivalent to minimum wage in the form of a

50% stipend (i.e. Wages) and 50% post-secondary tuition voucher. TFT and IT-TFT can work a

maximum of 120 hours per school year. TWEP tutors can work a maximum of 210 hours over the

6 week period of employment.


The budget for 2011-12 - $495,000

Total number of students served:

TFT - 3,000 ;

IT-TFT - 700 and;

TWEP - 1,000

The program is administered by a Manager of Youth Grants and a Youth Program Coordinator.

Chapter 5 5-A-2-22

129

Review Findings






AES.



Recommendations N/A


Recommendations N/A

Business Process

Issues

There is a lack of information gathered regarding the outcome of the

program related to tutors and students. As a result, it is not possible to

conclude with certainty that the program is achieving the intended

objectives.

Some students cannot avail of tutoring services at school because of

conflicts with transportation arrangements.

Some tutors are not available to provide their service to elementary and

junior high students when the students are available for tutoring because

the high school closes later than elementary and junior high schools.

Recommendations The department should determine whether schools should be required to

collect and provide outcome information for tutors and students to

determine whether the program achieved the intended objectives.

The department should consider engaging with the Department of

Education to discuss options for transportation for students requiring

tutoring services.


None identified.

Quick Wins:

N/A


The department could consider having the program delivered by the Department of Education.

All three tutoring programs could be merged into one for budgetary and administrative purposes.

Chapter 5 5-A-2-22

130

Review Findings

Examples of Payments from Tutoring Programs


EASTERN SCHOOL DISTRICT 101,002.50

NOVA CENTRAL SCHOOL DISTRICT 94,281.50


LABRADOR SCHOOL BOARD DISTRICT #1 21,835.00

Chapter 5 5-A-3

131

Review Findings

5-A-3 Education, Training & Related Supports

Education, Training and Related Supports provides assistance to eligible individuals to help them

acquire the skills, training and other required supports they need to find employment.

As the following table shows, a total of 14 programs and services with a cumulative budget of

$106.4 million for 2011-12 were identified as being part of the “Education, Training and Related

Supports” category. Three of the programs are for apprentices (Non-EI Eligible Apprentices, LMDA

Funding for Apprentices, Post Journey and Specialized Training) two are for ABE (ABE Program,

ABE Supports), one program (Job Skills / Essential Workplace Skills) is for working individuals,

one program (LMDA Skills Development) is for EI eligible individuals, one program (Student

Financial Services) is for students and one program (LMAPD Training Services) is for persons with

disabilities. The remaining five programs are client service programs as follows: Career and

Financial Counseling Services, PLAR / Essential Skills, Career Development Partnership Initiative

(CDPI), Employment Assistance Services (EAS) and Service Agreements for Youth (SAY).

3 Education, Training & Related Supports

11/12 Budget

($M's)

11/12 Actuals

($M's) Reference

Financial:

1 Job Skills/Essential Workplace Skills CEYS 0.800 0.210 5-A-3-1

2 Non EI Eligible Apprentices CEYS 0.100 0.077 5-A-3-2

3 Apprenticeship Program (LMDA Funding for Apprentice Training) LMDA 2.019 2.020 5-A-3-3

4 Skills Development LMDA program LMDA 85.697 86.862 5-A-3-4

* 5 ABE (incl Grants to Adult Literacy Organizations) ALL 7.149 7.012 5-A-3-5

6 Student Financial Services Division (SFSD) - Loans and Grants SFS NA NA 5-A-3-6

7 ABE Supports CEYS 0.600 0.580 5-A-3-7

8 LMAPD Training Services CEYS 2.767 2.536 5-A-3-8

9 Post-Journey & Specialized Training ATC 5.800 6.428 5-A-3-9

Client Services:

10 Career and Financial Counselling Services SFS NA NA 5-A-3-10

11 PLAR/Essential Skills ATC NA NA 5-A-3-11

12 Career Development Partnership Initiative CEYS 0.125 0.125 5-A-3-12

* 13 Employment Assistance Services LMDA 18.506 20.891 5-A-3-13

14 SAY CEYS 0.669 1.169 5-A-3-14



Student Financial Services SFS 2 - -

Adult Learning & Literacy ALL 1 7.149 7.012





Total Education, Training & Related Supports Programs 14 124.232 127.910

* 3rd Party Grants

Chapter 5 5-A-3

132

Review Findings

The following charts illustrate the proportion of the 14 Education, Training and Related Supports

programs relative to the overall interventions budget and the 70 programs included in the 6

categories used in the review and analysis process.

Education, Training &

Related Supports, 124.232


Education, Training &

Related Supports, 14




Numbers changed

AE, 5

CEYS, 6 LMDA, 3

Education, Training & Related Supports Programs


AE, 12.949

CEYS, 5.061LMDA, 106.222

Education, Training & Related Supports Budgets (in $M's)


A number of issues were identified during the review of the 14 programs in the Education, Training

and Related Supports category as follows:

Issues related to variations in the level and type of services provided, the mode of delivery as well as

inconsistencies in administration practices are categorized in the following four themes:


2. Program Development and Administration;

3. Budget Management Practices; and


Chapter 5 5-A-3

133

Review Findings


The department does not have a strategic approach to the allocation of funding for any of the

individual skills development/training programs to ensure the needs of the labour market are met.

As well, priority clients identified by the department are not factored into the approval process. As a

result, significant amounts of funding could be provided in support of skills development/training

initiatives that are not related to high demand sectors/industries or priority clients.

Presently, there is limited labour market information available at the local level which would include

current and upcoming large scale projects. New programs are developed and administered without

an analysis of the local labour market needs and programs are funded year over year based on

historical allocations and spending patterns. For example, the Apprenticeship and Trades

Certification Division works in partnership with training institutions and employers to deliver

training in key sectors which are related to upcoming capital projects in the province and to assist

journeypersons remain up to date with the latest technology in their field. However, the Department

does not proactively consider the workforce requirements (e.g. specialized trade procedures) for

large scale projects and the associated costs nor is there a budget allocation for this program.

The Post Journey and Specialized Training Program does not have a separate budget; instead,

funding is included as part of a $5.8 million budget allocation for apprenticeship training. As a

result of not having a specific budget allocation, there may be times when there are insufficient

funds available for identified training because the funds have been used to train apprentices.


Given the primary mandate of attaching individuals to the labour market, information on labour

market supply and demand is necessary to identify shortages and strategically allocate funding to

develop initiatives to address labour market issues.

There is a lack of coordination among the department’s divisions in the identification and

development of new employment programs. Programs with similar mandates, goals and objectives

are administered in different divisions with little or no formal connection. Staff are not always

apprised of new programs until after the programs are approved and publicly announced. As a

result, programs are being developed and approved without input from core departmental divisions.

Once programs are approved, the format for administration can be:

Internally by regional and/or provincial office staff;

3rd

party organizations; or

A combination of internal and 3rd

party administration.

Chapter 5 5-A-3

134

Review Findings

AES has not utilized a standardized approach to determine which education and employment related

programs should be administered internally verses those administered by 3rd

party agencies. Instead,

historical administrative practices continue year over year resulting in a disjointed approach with

overlap and duplication between internally administered programs and 3rd

party programs, and

among 3rd

party agencies.

The approval process for departmental programs is often reactive to proposals from 3rd

party

agencies and, in many cases, based on historical approvals. For example, the department provides

annual renewal funding ($1.15 million) to approximately eleven 3rd

party agencies offering ABE

level I and two organizations offering one-to-one literacy tutoring support. This is done without any

request for proposals process and, as a result, any new requests for funding to deliver the program

cannot be assessed on merit relative to other organizations being funded.

Another example of year over year funding is the current allocation for the Community Partners –

Employment Development Supports (EDS) grants. The program provides $4.3 million in grant

funding to 3rd

party organizations to deliver career and employment services to various client groups,

and to assist clients find and maintain employment. Program approvals have been, for the most part,

the same for the last five years with limited information on long-term outcomes.

It is also evident that AES grant funding has become a major source of core funding for 3rd

party

organizations to the degree that, if the department decided to not approve current programming,

some 3rd

party organizations may be forced to close.

Specific issues identified in program monitoring and evaluation include:

Program monitoring within and among divisions varies greatly resulting in duplication of effort

and costly approaches that will require significant analysis and streamlining. For example, the

current financial accountability requirements for all grants are the same and do not take into

consideration the value of the grant;

Although the Labour Market division has a risk based approach to determine the minimum

level of monitoring required for each EAS contract, the department has not assessed this

approach to determine its feasibility for expanding to all approved projects. Furthermore, there

is no mechanism for ensuring that the required monitoring was actually performed;

The department has not established base-line indicators necessary to determine evaluation

outcomes of funded programs. Instead, activity levels are used to determine the overall

success of a program. As a result, the department does not have a formal plan to evaluate 3rd

party activity and determine whether the service providers are meeting their objectives; and

The department does not have a formal plan to evaluate EAS activity and determine whether

the offices are meeting their objectives.

Chapter 5 5-A-3

135

Review Findings

An example of a disjointed approach regarding the use of 3rd

party service providers is the current

process for Skills Development funding. The case management component of this program is

handled through a 3rd

party EAS office while the financial management is handled internally within

the department. EI eligible clients are required to visit at least two different locations to obtain

services. As well, given the different physical locations, staff cannot readily interact and address

issues as they arise on client files.

During the review, 14 front-line positions were identified as being involved in program delivery with

a responsibility to assist individuals, employers and 3rd

party agencies. The positions are as follows:

1. Administrative staff

2. Client Services Officer - Income Support

3. Client Services Officer - CEYS

4. Client Services Officer - LMDA

5. Career Development Specialist (CDS)

6. Job Broker

7. Labour Market Development Officer (LMDO)

8. Student Aid Officers

9. Career Counseling Staff (Student Aid)

10. Career Development Liaison Officers (CDLO)

11. Program Development Officers (PDO)

12. Settlement and Immigration Consultants

13. Support Application Social Workers (SASW)

14. Liaison Social Workers (LSW)

The 14 positions are distributed over eight divisions: Income Support, LMD, CEYS, the

Apprenticeship and Trade Certification Division, Institutional Services Division, Adult Learning and

Literacy Division, Office of Immigration and Multiculturalism and the Student Aid Division. There

is a lack of formal protocol in place regarding the sharing of information and program coordination.

Staff have expressed frustration with the overlap in responsibilities and duties among the 14

positions which results in inefficient and ineffective services as clients, employers and 3rd

party

agencies “slip through the cracks.” To illustrate, although several groups (Career Development

Partnership Initiative - CDPI, Student Aid and Apprenticeship) have responsibility to visit schools to

promote youth departmental programs and services, there is no coordination of school visits.

Chapter 5 5-A-3

136

Review Findings

The lack of coordination also likely results in increased costs associated with the department’s

education and training programs. An example where coordination would be beneficial relates to the

Apprenticeship and Trade Certification Division (ATCD) and the Institutional Services Division

(ISD). Currently, the ATCD works with the public and private colleges to determine whether a

college is permitted to offer advanced level training based on the division’s determination of

capacity while the ISD is responsible for oversight of all post secondary training institutions which

includes approving training programs. However, the two divisions do not have a formal

communication process. Another example relates to the requirement of AES to transfer to the

College of the North Atlantic approximately $6 million annually for which AES receives

approximately 600 ABE seats. In the event that any of the 600 seats are not occupied by income

support clients, and clients from Skills Development (LMDA) use the vacant seats, the department

pays for the seat again (at a higher rate).

The Career Development Partnership Initiative (CDPI) is a program administered by 10 regional

staff with a goal to increase information, resources, and activities to supplement career development

activities including the infusion of stakeholder supports with the K-12 students and implement career

strategies to assist students build their career paths while living and earning in the province. The

following issues were identified:

The department has not yet determined how youth engagement activities currently funded by

the department will be included in the department’s new mandate;

Currently, the mandate of CDPI is not to specifically deal with children of income support

clients; instead, the focus is on all students. If the department requires a focus on children of

income support clients, the program would have to be revised; and

It is questionable whether this type of service should continue to be administered by 10 staff in

a ‘specialty’ approach. Consideration should be given to expanding this role to all Career

Development Specialists (CDSs) as part of their overall duties.

Currently, the Apprenticeship and Trade Certification Division’s regional staff and the Immigration

and Multiculturalism staff are not co-located with the Department’s other regional staff. As a result,

there is a lack of integration in the administration of AES services which can result in a client having

to deal with multiple staff to get the required services.

The department does not have a standard assessment method to assess financial or program

entitlements. Instead, each division has its own framework for program assessments and approval

within each program area. This leads to inconsistencies in programs approved, benefit levels

approved within programs, payments, monitoring and reporting, as well as duplicate payments

issued by different divisions with no overarching review of entitlement for the individual.

Chapter 5 5-A-3

137

Review Findings

Specific examples of benefit program entitlement variations and program administration issues

include:

The policy developed by the Institutional and Industrial Training Division’s incidental

allowance is $80 per week while a monthly stipend of $50 in the Employment Development

Supports Program is provided to income support clients to cover incidental expenses such as

daily lunch and supplies;

Depending on the client group, (CEYS, LMAPD, LMA, Student Aid and LMDA) the amount

and duration of financial supports provided for participation in education and training

programs can vary significantly across the department;

The current LMDA policies provide for a negotiated financial assistance package in response

to individual needs. There are variations with the application of how staff apply the negotiated

financial assessment. As a result, there are differences in the financial assistance approved for

individuals in similar circumstances;

Family income is only considered against the Basic Living Allowance (up to a maximum

weekly EI rate: $486) for LMDA Skills Development. As a result, families with significant

incomes and who could potentially contribute more (in addition to the 20% rule) towards the

incremental costs (e.g. tuition books) are not required to contribute;

Inconsistencies in the assessment of an individual’s skills and competencies which results in

different requirements for the completion of programs. For example, training institutions, with

a vested interest in maximizing revenues, assess clients to determine their needs for ABE

programming – often times at levels lower than expected. The department does not challenge

the assessment or the identified ABE requirements to ensure their appropriateness. As a result,

the department is likely paying for ABE training beyond the client’s requirements to participate

in either further training or employment;

Prior Learning Assessment and Recognition (PLAR) is a process of receiving credit for

learning acquired through previous experiences. Essential skills are identified for trade specific

occupations including the development of Plans of Training and are used as a resource to guide

and assist credits. A review of PLAR indicated that there can be inconsistencies in the

determination of an individual’s skills and competencies which results in different

requirements for the completion of approved training programs such as the Apprenticeship

Program. There are also inconsistencies in PLAR policy among institutions which currently

result in inconsistencies in the determination of an individual’s skills and competencies and

different requirements for the completion of the departmentally funded programs such as the

apprenticeship program;

Chapter 5 5-A-3

138

Review Findings

Non-EI eligible Apprentices is a program implemented by the Institutional and Industrial

Training Division to assist non-EI eligible apprentices in accessing funding, paid through

CEYS, to assist with block training. Staff indicated that they are not always provided with

sufficient time to process the financial requirements that would allow non-EI eligible

individuals to participate in block training. As a result, individuals are late in receiving their

financial supports; and

The regions are not involved, other than consultative, with the assessment of the Service

Agreements for Youth Program proposals. As a result, the input at a regional level is not as

significant as it should be.

Program administration issues were identified in the Student Financial Services Division - Loans and

Grants Program, and Financial Counseling Services and the department’s Labour Market Agreement

for Persons with Disabilities (LMAPD) Training Services Program as follows:

(a) Student Financial Services Division - Loans and Grants Program

The Division is responsible for administering student financial assistance under the Canada-

Newfoundland and Labrador Integrated Student Financial Assistance Program, including:

Newfoundland and Labrador Student Loans Program; Newfoundland and Labrador Up-front

Provincial Grants Program; Newfoundland and Labrador Debt Reduction Grants Program;

Newfoundland and Labrador Loan Forgiveness Program; Canada Student Loans Program; Canada

Student Grants Program; Canada Part Time Loans Program; and Transition Grant Program. Issues

identified include:

The department does not do an effective job of branding and promoting programs and services

resulting in individuals not being fully informed about programs and services;

Automated forms and letters issued to students are outdated and need to be revised to adapt

plain language and improve readability; and

Currently, persons with disabilities requesting financial assistance to attend post secondary

training can either apply for Federal or provincial assistance. However, there are differences

such as:

The definition of disability;

Provincial funding is not income tested or needs based; and

Provincial funding has no cap.

Chapter 5 5-A-3

139

Review Findings

(b) Career and Financial Counseling Services at Student Financial Services

Focuses on clients who are engaged within the student aid system but for any number of reasons are

not progressing within prescribed policies. Staff are responsible for reviewing a clients academic

and financial progress to date and to work with clients in making decisions going forward.

Currently, there is a lack of integration of career counseling and information services within the

department. For example:

The three person Career and Financial Counseling Services group (GS-38) at Student Aid

focus primarily on counseling clients within the student aid program, while the other Career

Development Specialists (GS-36) throughout the department focus on counseling a broader

client population; and

Career and Financial Counseling staff and Regional Information Officers (GS-30) at Student

Aid provide specialized services to high schools and educational institutions on the student aid

program. In addition, Career Development Liaison Officers (GS-40) in the CEYS division

provide general information to high schools on the department’s suite of services.

(c) The Labour Market Agreement for Persons with Disabilities (LMAPD) Training

Services

Provides funding for supports to allow persons with disabilities to complete their first post-

secondary certificate, diploma or degree and increase their opportunity of making a labour market

attachment using the skills they acquire. A review of the program identified that it is similar to the

Federal/provincial Student Loan Program available for all students wishing to participate in post

secondary education. However, persons with disabilities are not required to apply for the student

loan program. As a result, there is no requirement for parental contributions to be assessed as

required under the Student Loan Program, and there may be lost Federal funding (i.e. disability

grants) which is not being availed of. If persons with disabilities were required to apply for a student

loan it would likely address the waitlist. Other issues identified include:

There are individuals being assessed by staff and included in the program or waitlisted even

though the individuals do not meet the eligibility criteria for disability under this program. As

a result, some ineligible individuals may be either receiving funding for this program, or

waitlisted;

A case was identified whereby an individual, for the past 30 years, has been living outside the

province and receiving vocational therapy. The department also funds travel back to

Newfoundland and Labrador once per year along with a trip to another province (currently

costing approximately $150,000 per year);

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Review Findings

The approvals for this program are not aligned with strategic departmental priorities.

Therefore, education programs could be approved for funding that are not tied to labour market

needs; and

There are situations where the curriculum for a program has been modified to the degree that

the individual upon completion would not meet the credentials to work in the industry. As a

result, there are situations where an individual will not successfully attach to the labour market

in their field of study upon completion of a fully funded training program.

3. Budget Management Practices

Currently, budget management practices are not formalized with respect to strategically aligning

departmental financial resources with key sectors/industries. Furthermore, the current budget

monitoring practices for approved programs do not have a process for accurately forecasting and

monitoring budget expenditures to identify budget variances and take corrective action. As a result,

unspent committed funds may not be reallocated in a strategic way.

Other budget issues identified in the program review include:

The Apprenticeship and Trade Certification Division continues to spend in excess of its budget

allocation for apprenticeship training. For example, while the budget allocation is $5.8 million

for the Apprenticeship Program, expenditures are averaging approximately $7 million per year.

The difference is funded through slippages in other areas;

Although demand for the LMAPD program exceeds the budget allocation, given the attrition in

this program, the department ends up with slippage (e.g. approximately $300K in 2011-12).

Furthermore, commencing in fiscal year 2011 the CEYS Division received executive approval

to over-commit in the CAPS system in an attempt to be able to reduce the slippage associated

with program attrition and approve additional applicants on the waitlist by using the slippage.

As a result, the department assumed a risk whereby it could have committed to spend in excess

of its budget allocation for this program;

Up to fiscal 2012 there was a separate operational budget for the Career Development

Partnership Initiative (CDPI); however, in fiscal 2012 $110,000 of the $125,000 operational

budget for CDPI was included in the regional operating budget. As a result, CDPI staff have

indicated that they are not able to meet all their travel and resource requirements;

Although the department had a consultant develop promotional material for CDPI, the material

was neither approved nor distributed;

Funding to 3rd

party organizations is an expectation from year to year once approved. As a

result, new initiatives which may have more merit do not always be considered for approval

due to existing budget commitments;

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Review Findings

Funding for Labour Market Agreement (LMA) programs is scheduled to sunset in March 2014.

Without an alternate source of funding identified, there will be a gap in programs available to

non-EI eligible individuals; and

While EI eligible individuals can receive full funding through the LMDA programs for all

types of training, non-EI eligible clients can only receive funding for training less than 12

weeks after which they have to seek funding through the Student Loan Program. This results in

an inequity in entitlement to individuals.


AES currently uses multiple non-integrated systems to monitor and report on funded programs.

Without a single system in place to meet Federal and provincial reporting requirements and with

limited technology, the following issues were noted:

A combination of Excel and CAPS reports are being maintained to provide the required data;

Although the Job Skills/Workplace Skills Program could have been delivered through LMDA

where a similar program is offered for EI eligible clients, because LMDA staff do not have

access to the CAPS system and could not use the federal CSGC system for non-EI eligible

clients, the program was delivered through CEYS;

The ABE Program is currently delivered through three separate information systems (CAPS,

CSMS and CSGC). As a result, there is a lack of integration and information necessary to

manage the program;

Although many documents are already included in TRIM, correspondence with students is

currently printed, mailed and trimmed after the fact;

The current process to determine eligibility for the Debt Reduction Program is a manual

process for educational institutions and the Student Aid Division and requires significant

resources to administer;

Currently, the department does not have online capability whereby an individual can develop

their own action plan. As a result, all EI eligible clients must visit an Employment Assistance

Services (EAS) office and meet with a Case Manager to develop their Return to Work Action

Plan (RTWAP); and

The department is not fully utilizing social media to connect with students. For example, the

department is not using Twitter or Facebook and has not implemented any Smartphone

applications.

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Review Findings

Presently, the department does not track clients to determine whether an intervention resulted in

either an individual client transitioning through other education and training related supports or

whether they made a permanent attachment to the labour market. Specifically:

While the Apprenticeship and Trade Certification Division has a database, it cannot readily

provide information on an individual’s participation. As a result, The Apprenticeship Division

cannot track the status of its 5,800 apprentices to determine whether they are participating as

required;

Although the department may provide funding to train pre-apprentices, the department does not

monitor or provide any required assistance (unless requested by the individual) to connect them

to an employer. As a result, the department could spend significant amounts of funding to train

individuals without being proactive in providing any help they may need to get attached to the

labour market;

The current apprenticeship tracking system has limited capabilities and does not allow the

department to accumulate journeyperson skill sets at a subset level e.g. a welder certified for

titanium; and

The department issues approximately $82 million to 3rd

party services providers to administer

employment related programs and services. While these agencies provide reports on services

provided, the department does not track long-term outcomes to determine if funded

interventions led to labour market attachment.

In addition to the four preceding categorized themes, the following program specific issues were

identified (Adult Basic Education (ABE), Skills Development-LMDA, Apprenticeship Program and

Employment Assistance Services (EAS).

(a) Adult Basic Education (ABE)

ABE is a provincial program for adult learners and is made up of three levels - Level I refers to basic

literacy (similar to skills obtained in K-6), Level II is similar to the junior high school program and

Level III corresponds to grades 10-12 and requires the completion of a minimum of 36 credits in

order to graduate.

The department currently spends in excess of $22 million for ABE programming. This includes

funding for LMDA, Income Support and LMA clients as well as ABE supports to individuals.

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Review Findings

The following table outlines the current delivery mechanisms for ABE:

Level

CNA Sites

3rd

Party Service

Provider Sites

e-Learning

Contracts

I 10 12 4

II 17 2 -

III 17 2 -

As the table indicates, ABE Level l is currently available in an eLearning format for those who are

unable or unwilling to participate in a classroom-based program. Levels II and III are not available

in an eLearning format which may prevent some clients from participation in ABE due to

circumstances such as work or family commitments.

The department currently requires income support clients to attend ABE training through the public

college system. This is required even if it is more cost effective for the department and more

convenient for the individual to attend a private college that maybe closer to where they reside.

However, clients sponsored through LMDA have a choice as to where they complete ABE training.

As a result, the department may be spending more than it needs to on ABE for income support

clients and those clients may be inconvenienced by the current policy of having to use the public

college system and possibly increase barriers to labour market attachment.

Other issues identified in the ABE program include:

Currently, ABE level I classroom instruction is only available during normal working hours i.e.

9am-5pm. As a result, it limits accessibility for those either currently working or those with

family circumstances preventing them from attending day time programs;

Although ABE is “free” for the general population, the department is required to transfer to the

Department of Education approximately $6 million annually for which AES receives

approximately 600 seats at the College of the North Atlantic;

The current ABE program is self paced and, in some instances, there is a limited requirement

for clients to progress at a predetermined rate. Also, training institutions do not always provide

AES with the required attendance and progress reports making it difficult for staff to monitor

client progress;

Currently, ABE instructors are not provided with formal training in addressing the complex

needs of their students. As a result, instructors may not be able to appropriately refer or

respond to students as issues arise. This could possibly result in higher levels of student

attrition;

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Review Findings

Currently, ABE is recognized as the only method to attain high school equivalency. Other

methods such as GED, concurrent ABE and skills training, and workplace essential skills

training, which could expedite the attainment of basic educational requirements, are not

available; and

AES does not adhere to completion timeframes identified in client assessments and, as a result,

it is common for individuals to take considerably longer than expected to complete their ABE

training. Furthermore, AES does not consider a return on investment (ROI) model which

would include a cap on ABE funding.

(b) Skills Development – LMDA

The Department of Advanced Education and Skills delivers a range of employment and training

programs and services under the Canada-Newfoundland and Labrador Labour Market Development

Agreement (LMDA) to:

assist individuals to prepare for, find and maintain employment;

assist employers in accessing the workers they need; and

help ensure that communities and regions throughout Newfoundland and Labrador are well

equipped to respond to labour market opportunities and challenges.

LMDA funding, which totalled $130.4 million in 2012-13 forms the basis of the Newfoundland and

Labrador Benefits Measures (NLBM). This budget funds the following programs:

Program Budget ($M)

Skills Development 78.9

Job Creation Partnerships 13.7

Wage Subsidies 5.7

Self Employment Assistance 2.5

Employment Assistance Services 19.0

Labour Market Partnerships 8.0

Other 2.6

Total 130.4

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Review Findings

A review of the LMDA funding identified the following:

In 2009, the Federal government devolved responsibility for LMDA programming to the

province. However, the department continues to allocate program funding identified above

based on historical allocations; and

There has been only limited consideration given to new and emerging labour market needs

which could be addressed through the LMDA funding agreement.

The Skills Development program with a budget of $78.9 million (61% of LMDA funding) has a goal

to provide funding for education and training to EI eligible clients to assist with obtaining the skills

necessary for employment. A review of this program identified the following issues:

Currently, a financial assistance package is “negotiated” in response to individual needs. As a

result, there are differences in the financial assistance provided to individuals in similar

circumstances;

Consistent with existing LMDA policies that NL adopted upon devolution, training is limited

to programs offered by designated "provincial training institutions". In other jurisdictions,

training is available through other means (e.g. industry groups, non-profit groups and private

sector). This limitation may be prohibiting flexible, efficient and affordable access to training

that is required in the labour market (e.g. essential skills, workplace skills. short-term

customized training);

While there are provisions within existing policy to allow for alternative training mechanisms

(e.g. distance, online), generally these options are approved as exceptions and not promoted as

a viable (and perhaps more flexible, cost efficient and client responsive) alternative; and

During peak periods for clients seeking support to attend school, the wait times to see a case

manager through 3rd

party agencies (EAS offices) are quite long resulting in some clients not

being able to have their Skills Development application completed and submitted by the

deadline.

(c) Apprenticeship Program

The Apprenticeship Program funds tuition, books and other incremental costs (e.g. travel and

dependent care) for registered apprentices and trade qualifiers participating in apprenticeship

training. The budget for 2011-12 was $5.8 million for tuition and books and $1.98 million for

incremental costs and a total of 2,700 clients were served. There were a number of issues identified

as follows:

Currently, there is no funding available to assist apprentices and trade qualifiers to participate

in college level training on a part-time basis. As a result, these clients have no opportunity to

participate in training while working;

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Review Findings

The current location for in-class training for apprentices and trade qualifiers sometimes poses

problems with living accommodations, travel and reduced income. Sometimes courses are

only available in a particular location which could be a significant distance from where an

individual resides and it may be difficult to find accommodations in that area. Further, because

the individual has to attend in-class training they have to accept a lay-off and a reduced

income;

The department does not post block training schedules on its web page. Instead, 6-8 weeks


employer. To illustrate, as of October 2012 the department is aware of upcoming block

training scheduled up to June 2013; however, this information will not be released to


block training;

The apprenticeship program is not integrated as part of the suite of programs and services

offered by AES;


whether they are participating as required. Although the division has a database, it cannot

readily provide information on an individual’s participation;

Although the department can provide funding to train pre-apprentices, they are not monitored

or provided any assistance (unless requested by the individual) to connect them to an employer.

Therefore, the department can spend significant amounts of funding to train individuals

without being proactive in getting them attached to the labour market;





However, the two divisions do not have a formal communication process to ensure that that the

Apprenticeship Division will recommend that its clients attend the location;

There is no formal case management process for pre-apprentices and apprentices; therefore,

there is less of a focus on addressing their needs with regards to training, employment and

obtaining a journeyperson status. As a result, pre-apprentices and apprentices may experience

difficulty in obtaining journeyperson status;



that in many instances it took many calls or emails in order to make contact with departmental

staff;

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Review Findings

The skill set of the eight PDOs located in the Regional offices is not being utilized effectively.

Currently, PDOs (GS 42) are involved in administrative duties and as a result do not spend a

sufficient amount of their time working directly with employers and apprentices; and

There is no integration of PDOs within the department’s current program administration, which

results in a disjointed service delivery approach. For example, PDOs are not located in AES

offices across the province and do not have ongoing contact with other AES front-line staff.

(d) Employment Assistance Services (EAS)

Employment Assistance Services are provided to EI eligible individuals by 3rd

party agencies. The

budget for 2012-13 is $19 million for services such as assessment, employment counseling, job

search training, provision of labour market information and case management including a 12 week

follow-up with clients post intervention to identify their employment status. Some of the issues

identified include:

Currently, there are no standardized activities for EAS agreements nor is there a standardized

schedule of rates that could be provided to the service provider for the delivery of the program.

As a result, EAS 3rd

party service providers do not always offer the same services and may be

funded at different rates;

EI eligible clients are required to visit at least two offices to obtain employment services. This

arrangement causes frustration for clients who are required to provide similar information more

than once and for AES staff because of work duplication and overlap; and

The department does not a formalized plan to evaluate EAS activity to determine whether the

offices are meeting their objective.

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Review Findings

Program Job Skills/Essential Workplace Skills

Background

Goals

Program developed to assist small/medium size employers to recruit, retain, and advance present

and future employees with approved training (non EI eligible).

Objectives

Provide financial assistance to employers to develop and deliver training to existing or future

employees to enhance recruitment, retention, or advancement of a skilled workforce. To enable

individuals to gain training to maintain employment or advance within the workforce.

Target Population

Non EI Eligible individuals key groups, numbers depends on budget allocation.


The budget for 2011-12 - $800,000.

Total number of clients served in 2010-2011: 73 employers and 267 participants; due to delay in

approvals 2011-12 - 23 employers and 80 participants.

The program is administered by two client services officer (CSOs) and Provincial Manager, Provincial Office CEYS, regional input is requested at the recommendation level of individual

applications.

The program is delivered via Grants and Subsidies.


Income & Employment Support Act & Regulations, Federal / Provincial Labour Market

Agreement, Job Skills Essential Workplace Skills Development Program Policy.


Policy Issues Although it was expected to have a turnaround of 30 days for assessment,

recommendation and submission for approval, this has not happened

consistently. As a result, there are times when the program uptake is not as

high as it could have been.

Recommendations The department should ensure that project approval is provided on a timely

basis.


Recommendations N/A

Business Process

Issues

There is a lack of coordination among the department’s divisions in the

identification and development of new employment programs.

Furthermore, staff are not always apprised of new programs until after the

programs are approved and publicly announced. As a result, programs are

being developed without required input from divisions.

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Review Findings

The department does not have a standard assessment method. Instead, each

division (LMDA, CEYS, LMA, Advanced Education, Disability Policy

office) has its own framework for program assessment in the

administration of grants. As a result, there can be inconsistencies in benefit

levels, payments, monitoring and reporting, as well as duplicate payments.

LMA funding will end in 2014.

The department does not have a system in place to meet the reporting

requirements under this federal/provincial agreement. As a result, a

combination of Excel and CAPS reports are being maintained to provide

the required data.

The department does not currently consider approving projects on a

sectoral basis. As well, priority clients identified by the department are not

factored into the approval process.

Recommendations The department should ensure that all divisions participate in the

development of new programs and implementation plans.

The department should develop a common assessment to be used by all

divisions involved in the administration of grants.

The department should determine whether the program will be funded

beyond 2014.

The department should determine the feasibility of having an adequate

system to meet the reporting requirements of the program.

The department should consider, to the degree possible approving projects

on a sectoral basis, and taking into consideration identified priority clients.


None identified

Quick Wins

None identified


In addition to the Job Skills/Essential Workplace Skills, the department administers a number of

employer based training programs such as Post Journey Specialized Training, and Bridging the

Gap which could be consolidated for delivery purposes.

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Review Findings

Examples of Payments from Job Skills


TOWN OF HAPPY VALLEY-GOOSE BAY 28,172.36

HYDRAULIC SYSTEMS LTD 23,177.00

O'NEILLS GARDENLAND 21,690.90

MAURICE'S SERVICE CENTRE LIMITED 20,000.00

NEWFOUNDLAND WILDERNESS OUTFITTERS INC 8,830.00

THE PODIATRY ASSOCIATES INC 7,000.00

MDL ENTERPRISES 6,632.00

TURFMASTER LTD 5,780.00

63517 NEWFOUNDLAND & LABRADOR LIMITED 5,000.00

CENTRAL HYDRAULICS & SUPPLY LTD 5,000.00

LWJ ENTERPRISES LTD 5,000.00

PORT AU CHOIX PHARMACY 5,000.00

SUTREEN HARDWOODS & MOULDING LTD 5,000.00

JK2Z ENTERPRISES LIMITED 4,639.80

NORSEMAN CONTRACTORS INC 4,417.00

TOWN OF NORRIS ARM 4,367.05

MONA'S PLACE LIMITED 3,500.00

RANSTONE HOLDINGS LTD 3,500.00

RED BAY CONVENIENCE LTD 3,500.00

SEA ECHO MOTEL 3,500.00

MAYFLOWER OUTFITTERS INC 3,407.30

A-1 SAFETY TRAINING & CONSULTING LTD 2,734.94

PIANOWISE 2,618.00

L & H TUCKER HOLDINGS LIMITED 2,500.00

THISTLEDOWN LTD 2,400.00

ST ANTHONY COLD STORAGE LTD 1,971.63

TOWN COUNCIL OF LAWN 1,880.00

ABBYSHOT CLOTHIERS LTD 1,785.00

SEDNA NUTRACEUTICAL INC 1,621.18

CENTREVILLE-WAREHAM-TRINITY TOWN COUNCIL 1,512.00

BUDGELL'S MOTEL (2004) LTD 1,500.00

CREDIT BUREAU COLLECTIONS NFLD 2001 INC 1,500.00

T R T SERVICES LIMITED 1,500.00

THE GOLDEN YEARS ESTATE 1,500.00

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Review Findings


GEOTECH SERVICES INC 1,367.64

EXPLOITS REGIONAL CHAMBER OF 1,275.00


KEVIN DUNPHY CUSTOM WOODWORKING 900.00

MODERN HOME EXTERIORS LIMITED 899.00

MAS LIFESTYLE INC 859.70

CROSSWINDS ENTERPRISES LTD 777.00

SHAKTI YOGA STUDIO INC 500.00

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Review Findings

Program Non-EI Eligible Apprentices

Background

Goals

Program implemented by Institutional and Industrial Training Division to assist non EI

eligible Apprentices in accessing funding to assist with 'block training'.

Objectives

Increase the number of Apprentices in obtaining classification and red seal.

Target Population

Target population varies each year, key group non EI eligible apprentices.


The budget for 2011-12 - $100,000.

Total number of clients served for 2012-2013:25 individuals.

The program is delivered via allowance and assistance.


Income & Employment Support Act & Regulations, Federal / Provincial Labour Market

Agreement, Employment Development Supports Program Policy


Policy Issues The policy developed by the Institutional and Industrial Training

Division contains financial entitlements which exceed financial

entitlements in other departmental programs e.g. incidental

allowance is $80 per week and not offered in other similar CEYS

programs.

Recommendations The department should determine whether it is more appropriate

to have consistent financial entitlements for all students attending

block training for apprenticeships.


Recommendations N/A

Business Process

Issues

CEYS staff are not always provided with sufficient time to

process the financial requirements that would allow non-EI

eligible individuals to participate in block training. As a result, the

individuals are late in receiving their financial supports.

Federal program funding is scheduled to end in 2014.

Although the program could have been delivered through LMDA

where a similar program is offered for EI eligible clients, because

the LMDA do not have access to the CAPS system and could not

use the federal CSGC system for non-EI eligible clients, the

program was delivered through CEYS.

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Review Findings

Recommendations The department should determine how to inform CEYS staff of

funding requirements for non-EI eligible apprenticeship training

on a more timely basis.

The department will have to consider whether it will fund the

program after 2014.


A Unified client Service Flow team has been established.

Quick Wins

None identified.


The program could be administered through LMDA given the similarities with the

Apprenticeship block training for EI eligible clients.

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Review Findings

Program Apprenticeship Program

Background

Goals

Recruitment and retention strategies to increase labour supply and increase the Province's capacity

to fully maximize the benefits of planned major resource-based project developments, long-term

operations, and promote recruitment and retention for small and medium size enterprises.

To improve progression and completion rates of registered apprentices and trade qualifiers.

Objectives

To fund tuition and books for registered apprentices and trade qualifiers ($5.8M), and other

incremental costs (e.g. travel and dependent care) of participating in apprenticeship training.

Target Population

Registered NL apprentices and Trade Qualifiers.


The LMDA budget for 2011-12 – $2,019,000 [$5.8M for tuition and books]

The program is administered by employees in the Apprenticeship and Trade Certification Division

and LMDA.

Total number of clients served in 2011-2012: Approximately 2,700.

The program is delivered via allowances & assistance.



Apprenticeship and Certification Board, Federal E.I. Act


Policy Issues There is no funding currently available to assist apprentices and trade

qualifiers to participate in college level training on a part time basis. As a

result, these clients have no opportunity to participate in training while

working.

Currently the department does not require apprentices and trade qualifiers

to provide a deposit to acknowledge attendance for a scheduled block

training. As a result, an apprentice or trade qualifier can withdraw without

penalty and have a significant impact on whether a course can be delivered

based on the number of participants required to make it financial feasible.

Recommendations The department should consider whether it is feasible to provide college

level training on a part time basis to apprentices and trade qualifiers.

The department should determine whether it is necessary to require a

deposit from apprentices and trade qualifiers to acknowledge attendance

for a scheduled block training.

Legislative Issues None Identified

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Review Findings

Recommendations N/A

Business Process

Issues

The current in class training for apprentices and trade qualifiers sometimes

poses problems with living accommodations, travel and reduced income.

Sometimes courses are only available in a particular location which could

be a significant distance from where an individual resides and it may be

difficult to find accommodations in that area. Further, because the

individual has to attend in class training they have to accept a lay off and a

reduced income.

The Apprenticeship and Trade Certification Division can work with the

public and private colleges and determine whether a college would be

permitted to offer advanced level training based on the division’s

determination of capacity. The department also has an Institutional

Services Division responsible for oversight of all post secondary training

institutions. However, the two divisions do not appear to have a formal

communication process to ensure that that the Apprenticeship Division will

recommend that its clients attend the location.

The department does not post block training schedules on its web page.

Instead, 6-8 weeks prior to the commencement of block training, a letter is

sent to the apprentice and the employer. To illustrate, as of October, 2012

the department is aware of upcoming block training scheduled up to June

2013. However, this information will not be released to apprentices and

employers until approximately 6-8 weeks prior to the commencement of

the block training.

The Apprenticeship Division does not track the status of its 5,800

apprentices to determine whether they are participating as required or

whether they stopped participating. Although the division has a database,

it cannot readily provide information on an individual’s participation.

Furthermore, the division has eight Program Development Officers (PDOs)

responsible for all client service aspects of the apprenticeship program.

Currently the Apprenticeship Division’s regional staff are not co-located

with the Department’s other regional staff. As a result, there is a lack of

integration of services which can result in a client having to deal with

multiple staff to get the required services.

Although the department may provide funding to train pre-apprentices, the

department does not monitor or provide any required assistance (unless

requested by the individual) to connect them to an employer. As a result,

the department could spend significant amounts of funding to train

individuals without being proactive in providing any help they may need to

get them attached to the labour market.

The Division continues to spend in excess of its budget allocation. For

example, while the budget allocation is $5.8 million expenditures are

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Review Findings

averaging approximately $7 million per year. The difference is funded

through slippages in other areas.

Recommendations The department should determine whether alternate delivery methods for

training would reduce the issues identified by individuals such as travel,

accommodations and reduced income.

The department should ensure that formal lines of communication are in

place between The Apprenticeship and Trade Certification Division and

The institutional Services Division so that apprentices and trade qualifiers

will be directed to programs and locations approved by the Institutional

Services Division.

The department should consider posting scheduled block training on its

web page.

The department should consider the issues with the current data base and

determine whether the PDOs have sufficient time to adequately monitor

apprentices.

The department should consider co-locating regional apprenticeship staff

with other existing departmental staff in career work centres.

The department should determine whether pre-apprentices should be

monitored and provided with additional assistance to help them attach to

the labour market.

The department should consider whether the current budget allocation

should be increased to a more reasonable level.


There is currently a committee established to review the program.

Quick Wins

The department could consider creating a formal line of communication between The

Apprenticeship and Trade Certification Division and The institutional Services Division to assist in

the provision of appropriate services for apprentices and trade qualifiers.

The department could post scheduled block training on its web page.


The department should consider co-locating regional apprenticeship staff with other existing

departmental staff in career work centres.

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Review Findings

Program Skills Development (LMDA Program)

Background

Goals

To provide funding for education and training to EI clients to assist them with obtaining the skills

necessary for employment.

Objectives

Assist eligible individuals to obtain the skills they need for employment, ranging from basic to

advanced skills. Direct assistance to individuals is provided to cover living expenses, daycare,

disability supports and transportation as well a books, tuition and other incremental training costs,

except in the case of a define program list for public institutions and public and private institutions

that offer advanced apprenticeship training. In this latter circumstance, contributions are made

directly to the institutions to help cover some of the tuition and book costs.

Target Population

Insured person - an unemployed person:

(a) For whom a benefit period is established or whose benefit period has ended within the

previous 36 months; or

(b) for whom a benefit period has been established in the previous 60 months and who

(i)was paid special benefits under section 22 or 23 (maternity or parental claim) during the

benefit period;

(ii)subsequently withdrew from active participation in the labour force to care for one or more

of their new-born children or one or more children placed with them for the purpose of

adoption; and

(iii) is seeking to re-enter the labour force.


The budget for 2011-12 is approximately $86 million ($68 million related to 9,281 clients, in

addition to contribution agreements of approximately $11 million, $1 million, and $6 million with

C.N.A, Marine Institute, and Industrial Training, respectively).

This program is administered by LMDA Client Services Officers (CSOs) in the region as per the

department’s financial delegation of authority.

This program is delivered via allowance and assistance and grants (for the direct payments to

institutions).




This program is administered by LMDA Client Services Officers (CSOs) in the region as per the

department’s financial delegation of authority.


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Agreement. Policy directives include: Employment Benefits and Support Measures Terms and

Conditions (and associated Similarities Test); and NL LMDA Policies, directives and guidelines.


Policy Issues The department does not have a strategic approach to the allocation of

funding for Skills Development to ensure the needs of the labour market

are met. As a result, significant amounts of funding could be provided in

support of skills development initiatives not related to labour market needs.

The current policies provide for a negotiated financial assistance package

in response to individual needs. As a result, there are differences in the

financial assistance provided to individuals in similar circumstances.

Depending on the client group,(CEYS, LMAPD, LMA, Student Aid and

LMDA) the amount and duration of financial supports provided for

participation in education and training programs can vary significantly

across the department.

Family income is only considered against the Basic Living Allowance (up

to a maximum weekly EI rate: $486). As a result, families with significant

incomes and who could potentially contribute more (in addition to the 20%

rule) towards the incremental costs (e.g. tuition books) are not required to

contribute.

Consistent with existing LMDA policies that NL adopted upon devolution,

training is limited to programs offered by designated "provincial training

institutions". In other jurisdictions, training is available through other

means (e.g. industry groups, non-profit groups and private sector). This

limitation may be prohibiting flexible, efficient and affordable access to

training that is required in the labour market (e.g. essential skills,

workplace skills. short-term customized training).

While there are provisions within existing policy to allow for alternative

training mechanisms (e.g. distance, online), generally these options are

approved as exceptions and not promoted as a viable (and perhaps more

flexible, cost efficient and client responsive) alternative.

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Review Findings

Recommendations The department should consider developing a strategic plan to be used in

the allocation of Skills Development funding to ensure labour market

requirements are addressed.

The department should determine if variances in negotiated financial

assistance practices should continue across the province. Furthermore, the

department should determine if the negotiated financial assistance model of

funding Skills development clients under LMDA is appropriate.

The department should determine whether inequities across client groups

should continue.

The department should determine whether income testing against just the

Basic Living Allowance is appropriate.

The department should review the client contribution for clients to make

the process more equitable.


Recommendations N/A

Business Process

Issues

Unlike other programs in the department the case management component

of this program is handled through a 3rd

party EAS office. As a result,

clients are required to visit at least 2 different locations to obtain services.

As well, given the different physical locations staff cannot readily interact

on client files. Although there is sufficient budget available to meet all eligible client

requests, the current budget is determined, for the most part, based on

historical expenditures. As a result, the budget allocation process is not

strategically aligned to ensure departmental priorities are met with regards

to addressing labour market demands.

Currently budget management practices are not formalized with respect to

accurate forecasting and monitoring of budget expenditures to identify

budget variances and take corrective action. As a result, unspent

committed funds may not be reallocated in a strategic way.

Although training institutions, with a vested interest in maximizing

revenues, assess clients to determine their needs with regards to the ABE

program, the department does not challenge the identified ABE

requirements to ensure their appropriateness. As a result, the department is

likely paying for ABE training beyond the client’s requirements to

participate in either further training or employment.

The current ABE program is self paced and, in some instances, there is a

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Review Findings

limited requirement for clients to progress at a predetermined rate. Also,

training institutions do not always provide the required attendance and

progress reports making it difficult to monitor client progress.

The department does not have an integrated approach for assessing

financial need and providing financial supports to clients. As a result, there

are varied assessment tools and responses to requests for financial supports

across the department.

Under current process, all Skills Development Clients (excluding

Apprentices) are required to complete a Return-to-Work Action Plan.

Recommendations The department should review its current case management process for EI

eligible clients and determine whether a more efficient process could be

implemented.

The budget allocation for the Skills Development program should be

aligned with the strategic priorities of the department with regards to

addressing labour market demands.

The department should review the current assessment processes being used

by training institutions for ABE clients to ensure that clients receive the

most appropriate training.

The department should ensure that training institutions identify milestones

for ABE clients and provide attendance and progress reports for monitoring

purposes.

The department should develop an integrated approach to assessing

financial need and providing financial supports to clients.

Minimize requirements for Return to Work Action Plans.

Introduce online applications.


A Skills Development Working Group has been established.

A review of the ABE program is currently underway.

Quick Wins


The department could develop an integrated approach to assessing financial need and providing

financial supports to clients.

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Review Findings

Examples of Payments from Skills Development LMDA program


COLLEGE OF THE NORTH ATLANTIC 2,227,000.00

THE COMMUNITY EDUCATION NETWORK FOR

SOUTHWESTERN NF 1,701,994.00

Kruger Inc 1,669,180.00

YMCA-YWCA OF NORTHEAST AVALON 1,632,947.00

Community Business Development Corporation - Trinity Conception 1,434,632.00

Celtic Business Development Corporation 1,402,299.00

Canadian Paraplegic Association 1,124,074.00

NATI 879,280.00

Random North Development Association 824,303.00

WORKERS' COMPENSATION COMMISSION 694,646.82

Mariner Resource Opportunities Network Inc 693,655.00

CENTRAL COMMUNITY DEVELOPMENT CORPORATION 691,553.00

Newfoundland and Labrador Organization of Women Entrepreneurs 676,062.00

Avalon Employment Inc. 659,691.00

Women Interested in Successful Employment (WISE) 545,510.00

Stella Burry Corp 534,225.00

Burin Peninsula Chamber of Commerce 486,586.00

Women in Resource Development Inc. 414,456.00

Newfoundland and Labrador Regional Council of Carpenters,

Millrights and Allied Workers 391,535.00

NunatuKavut Community Council 385,105.00

The Employment Preparation Centre Inc. 367,829.00

Visions Employment Inc. 336,258.00

BAY ST. GEORGE COMMUNITY EMPLOYMENT

CORPORATION 333,664.00

Cape Freels Dev. Assoc. 324,595.00

Gander & Area Chamber of Commerce 322,695.00

Labrador Friendship Centre 314,448.00

Br. T. I. Murphy Learning Resource Centre Inc. 303,970.00

Twillingate - New World Island Development Association 302,103.00

Humber Valley Community Employment Corp. 300,171.00

South Coast Community Development Corporation 297,680.00


Employment Connection Centre 284,922.00

Lewisporte Area Chamber of Commerce 281,306.00

Women in Resource Development 279,881.00

Avalon West Community Development Corporation 274,472.00

Community Centre Alliance 274,403.00

Metro Business Opportunities Corp. 266,761.00


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Review Findings


Burin Peninsula Supported Employment Services 245,039.00

Genesis Employment Corporation 241,755.00

Canadian Homebuilders Association-Eastern Newfoundland 227,389.00

Fogo Island Co-operative Society Ltd. 223,289.00

Alexander Bay Terra Nova Dev. Assoc. 216,370.00

Exploits Community Employment Corporation 215,921.00

Emerald Business Development Corporation 214,152.00



Port aux Basques Community Employment Corporation 204,874.00

Fortune Community and Youth Centre 193,127.00

SEDLER Community Employment Corporation 180,527.00

White Bay South Management Committee 177,694.00

John Howard Society of Newfoundland 173,311.00

Town of Placentia 155,925.00


Green Bay Community Employment Corporation 140,817.00

Green Bay South Education Committee 139,371.00

Fortune Bay East Development Association 138,760.00

Labrador West Employment Corporation 134,015.00

St. John's Native Friendship Centre Association 133,719.00

Gander Area Community Dev. Corp. 132,920.00

Southern Labrador Development Association 128,001.00

Deer Lake Community Learning Centre 118,370.00

Association for New Canadians, AXIS 113,759.00

BURGEO TOWN COUNCIL 112,713.00

PORT AU PORT ECONOMIC DEVELOPMENT ASSOCIATION 108,728.00

Lake Melville Community Employment Inc. 105,893.00

St. Barbe Development Association 103,965.00

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Review Findings

Program ABE

Background

Goals

Adult Basic Education (ABE) is a provincial program for adult learners and is made up of three

levels: Level I refers to basic literacy (similar to skills obtained in K-6); Level II is similar to the

junior high school program; Level III corresponds to grades 10-12 and requires the completion of a

minimum of 36 credits in order to graduate. ABE Levels I/II/III are all currently classroom-based

programs that operate on a full-time basis. Levels II/III are also offered in classrooms on a part-

time basis. Level I is also available in an eLearning format in four regions of the province.

The goals of the ABE program include:

1) to provide a second chance educational program for adults to achieve a high school

equivalency graduation diploma;

2) to increase literacy rates in NL;

3) to increase participation in post-secondary education programs;

4) to better prepare people in NL for employment; and

5) to better develop a skilled work force in NL to participate in our expanding economy.

Objectives

The objectives of the ABE program are as follows:

1) to increase number of participants transitioning from Levels I to II to III;

2) to deliver a high school equivalent curriculum to adults in NL;

3) to increase access to ABE in NL; and

4) to reduce barriers hindering ABE participation in NL.

Target Population

The main target for this program is adults who are least 18 years of age (college 17 years), out of

school for at least one year and who have not graduated from high school. Some students who

have graduated from high school and wish to upgrade their educational credentials for post-

secondary admissions also enroll in this program.


The budget for 2011-12 - $7,149,000. [$6 Million grant-in-aid to College of the North Atlantic to

deliver the ABE program (Level I at 11 campuses and Level II and III in 17 campuses); The

department also provides $1,047,113 in grants to 13 community-based organizations to deliver the

ABE program (mostly Level I but two sites also offer Levels II and III)].

Annually, the department provides approximately $22.1 million related to ABE programming as

follows:

$6 Million grant-in-aid to College of the North Atlantic to deliver the ABE program (Level I

at 11 campuses and Level II and III in 17 campuses);

The Department provides approximately $1.1M in grants to 13 community-based

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Review Findings

organizations to deliver the ABE program (mostly Level I but two sites also offer Levels II

and III). The Department also provides approximately $166,000 in grants to two community-

based organizations to deliver basic literacy services through one-to-one tutoring.

ABE operational supports through the Adult Learning and Literacy Division total

approximately $460,000.

The Department also provides $13.5M in client funding annually via Income Support and

LMDA/LMA.

Approximately 2,000 students per year participate in ABE.

The program is administered by staff located at provincial office.


N/A


Policy Issues AES is required to transfer to the College of the North Atlantic

approximately $6 million annually for which AES receives approximately

1250 seats. However, in the event any of the 600 seats are not occupied by

income support clients, if clients from Skills Development (LMDA) use

any of the vacant seats, the department pays for the seat again (at a higher

rate).

Currently the administration of ABE involves three divisions: LMDA,

CEYS and Adult Learning and Literacy (ALL). However, there is no

formal protocol in place regarding the sharing of information and program

coordination. As a result, there are likely inefficiencies and increased

costs associated with the ABE program.

The department currently requires income support clients to attend ABE

training through the public college system. This is required even if it is

more cost effective for the department and more convenient for the client

to attend a private college that maybe closer to where the client lives.

However, if the client is sponsored through LMDA, they have a choice as

to where they complete ABE training. As a result, the department may be

spending more than it needs to and clients may be inconvenienced by the

current policy.

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Review Findings

Recommendations The department should consider whether it is appropriate to be transferring

funding to “buy” ABE seats and whether it should be paying for seats

multiple times.

The department should develop a formal protocol for the three divisions

involved in the ABE program to ensure that they communicate and

coordinate activities to optimize service delivery and reduce overall costs.

The department should consider whether the current policy of having

income support clients limited to the public college system for ABE

training is appropriate.


Recommendations N/A

Business Process

Issues

ABE Level l is currently available in an eLearning format for those who

are unable or unwilling to participate in a classroom-based program;

however, Levels II and III are not available in an eLearning format. As a

result, some clients are unable to complete ABE level II and III in an

eLearning format which may accommodate current working and family

circumstances.

Currently ABE level I classroom instruction is only available during

normal working hours i.e. 9am-5pm. As a result, it limits accessibility for

either those currently working or those with family circumstances

preventing them from attending day time programs.

The department provides annual renewal funding ($1.2 million) to

approximately thirteen 3rd

party agencies offering ABE level I and two

organizations offering one-to-one literacy tutoring support. This is done

without any RFP and, as a result, any new requests for funding to deliver

the program cannot be assessed on merit relative to other organizations

being funded.

Decisions regarding ABE clients (income support, LMDA and LMA) and

ABE program delivery are made by three divisions within AES: Adult

Learning and Literacy, LMDA and CEYS. There is no formal

communication protocol and as a result, interaction among the three

divisions has been only when an issue emerges.

The department does not track ABE clients to determine whether the

intervention resulted in either the client transitioning through the three

levels of ABE or whether the client made a permanent attachment to the

labour market.

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Review Findings

Currently ABE instructors are not provided with formal training in

addressing the complex needs of their students. As a result, instructors

may not be able to appropriately refer or respond to students as issues arise

possibly resulting in higher levels of student attrition.

Similar to other provincial grant funding, ABE funding can become a

major source of core funding for 3rd

party organizations. As a result, if the

department decided to not fund ABE, some 3rd

party organizations may be

forced to close.

There is a financial incentive for public and private colleges to maximize

the duration of ABE training. Staff expressed concerns that some of the

assessments have clients rated lower than necessary resulting in

maximizing the duration and cost of ABE training. It was noted that there

was no justification for the inaccurate assessment. As a result, the

department is paying more than necessary for clients to complete ABE

training.

The department does not apply a return on investment model in the

determination of whether an individual should be funded for ABE.

Recommendations The department should consider exploring multiple and flexible delivery

formats for ABE to increase participation and completion rates and to

reduce overhead costs associated with classroom based learning.

The department should continue with its efforts to establish the most

appropriate and cost effective approach to deliver ABE.

The department should consider a formal communication protocol among

CEYS, LMDA and Adult Literacy divisions.

The department should implement a process to track transitioning of ABE

clients through school and work.

The department should determine whether ABE instructors should be

provided with formal training on how to deal with complex needs clients.

The department should determine whether the use of an RFP process

would reduce the dependency of 3rd

party organizations on ABE funding.

The department should take immediate action to ensure that ABE

educational assessments are completed accurately.

The department should determine whether a return on investment model

should be used in the determination of sponsorship of ABE.

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Review Findings


An ABE review committee has been established.

Quick Wins

The department should consider a formal communication protocol among CEYS, LMDAand Adult

Literacy divisions


The department could develop a formal protocol for the three divisions involved in the ABE

program to ensure that they communicate and coordinate activities to optimize service delivery

and reduce overall costs.

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Review Findings

Program Student Financial Services Division (SFSD) – Loans and Grants

Background

Goals

The Government of Canada and the Government of Newfoundland and Labrador work together

through an integration agreement to provide student financial assistance to eligible residents of the

province.

Objectives

The Department of Advanced Education and Skills (AES) mission is to improve the quality and

the delivery of supports and services to its clients. The Student Financial Assistance program

assists by making available to residents, both loans and non-repayable grants which aid in ensuring

post-secondary education is accessible and affordable.

Target Population

The target population for the Student Financial Assistance program is new and returning post-

secondary students who are eligible residents of the province.


The budget is $2,172,800 gross and $1,153,300 net of Federal revenue and part of operating

budget.

During the 2010-2011 academic year, 8,714 post-secondary students applied for assistance with

96% of them applying online. Of those, 7,433 students (85% of those who applied) were approved

for assistance. Of the 2010/11borrowing population, 48% attended Memorial University, 21%

attended the College of the North Atlantic, 16% attended private colleges within NL and the

remaining 15% attended institutions that are out of the province.

Departmental staff 29 distributed as follows :

25 at the main office for the division is located at Coughlan College,

4 located in Career Work Centres at the four regional offices.

Stakeholders include educational institutions, students, the Student Loan Corporation, HRSDC -

Canada Student Loans Program, the National Student Loans Service Centre and Institutional

Services Division.

Program funding is disbursed by the Student Loan Corporation (grants and subsidies) to the

National Student Loans Service Centre who then distributes approved Federal/ Provincial Student

Financial Assistance to students and educational institutions.


Canada Student Loans Act and Regulations;

Canada Student Financial Assistance Act (CSFAA) and Regulations;

Newfoundland and Labrador Student Financial Assistance Act and Regulations; and

Student Financial Assistance Act and Regulations.


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Review Findings

Policy Issues The department does not do an effective job of branding and promoting

programs and services resulting in individuals not being fully informed

about programs and services.

Currently, persons with disability requesting financial assistance to attend

post secondary training can either apply for federal or provincial assistance.

However, there are differences such as:

The definition of disability differs;

Provincial funding is not income tested or needs based; and

Provincial funding has no cap.

Recommendations The department should determine whether it needs to undertake a branding

and promotion campaign.

The department should determine whether benefits available to persons

with disabilities should be consistent among programs.


Recommendations N/A

Business Process

Issues

Although many documents are already included in TRIM, correspondence

with students is currently printed, mailed and trimmed after the fact.

Automated forms and letters issued to students are outdated and need to be

revised to adapt plain language and improve readability.

The current process to determine eligibility for the Debt Reduction

program is a manual process for educational institutions and the Student

Aid division and requires significant resources to administer.

The department is not fully utilizing social media to connect with students.

For example, the department is not using Twitter or Facebook and has not

implemented any Smartphone applications. Two other provincial

jurisdictions have recently adopted these applications.

There may be a duplication of functions between Student Loan

Corporation, Student Aid and the department’s Corporate Services

Division.

Recommendations Email correspondence should be generated through Student Aid

Management System (SAMS) and trimmed automatically to student files

(could be delivered to students via e-mail). This is the preferred delivery

mechanism among students. All forms and letters could then be available

on the students’ online account at the time of mailing.

Automated forms and letters should be revised.

The department should consider developing a web based interface with

educational institutions to more efficiently confirm eligibility for the Debt

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Review Findings

Reduction Program.

The department should consider the use of social media and Smartphone

applications to connect with students.

The department should consider whether there is a duplication of

functional areas that could be combined.


None identified

Quick Wins:

Automated forms and letters and the students online account could be revised. Infrastructure with

modifications is currently in place to support these enhancements.

A Smartphone application could be implemented.


The department should consider having one application and a common assessment for all programs

and services (including persons with disabilities) that utilizes both federal and provincial funding.

A review of SFA operations and administrative functions should be undertaken if it is determined

that the Student Loan Corporation is a practical fit with the suite of financial services offered by

the department’s corporate service division.

There could be a common financial assessment tool used to determine the level of benefits clients

are entitled to receive.

The department could consider developing service standards for all divisions. In this regard,

current service standards in place at the Student Aid Division, which appear to be effective, could

be considered.

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Review Findings

Program ABE Supports

Background

Goals

To assist Income Support eligible clients access and continue their participation in ABE Level II

and III.

Objectives

To provide additional individual support to IS eligible clients to access and continue their ABE

Level II and III program participation Note: For clients of income support and those eligible for

service under the Dept.'s regulations additional monetary supports are recognized as needed to

assist clients prepare to engage and to maintain their participation in the ABE program, specifically

individual financial supports beyond those offered under the income support program which tend

to focus on the provision of basic life substance such as food and shelter.

Target Population

IS eligible and those eligible under the Dept regulations and those under the Labour Market

Agreement.


The budget for 2011-12 - $600,000.

The total number of clients served in 2011-12 = 659

The program is administered by regional staff involved in CEYS programming and the partial

work of two staff at provincial office (Manager of Client Services and Program Consultant).



The Income and Employment Supports Act, the Department Regulations, and Employment

Development Support Policy.


Policy Issues The monthly stipend of $50 provided to income support clients to cover

incidental expenses such as daily lunch and supplies is not adequate.

Although ABE is “free” for the general population, AES is required to

transfer to the Department of Education approximately $1.5 million

annually for which AES receives approximately 349 seats annually at the

College of the North Atlantic.

In the event any of the 349 seats are not occupied by income support

clients, if clients from Skills Development (LMDA) use any of the vacant

seats, the department pays for the seat again (at a higher rate).

Recommendations The department should determine whether the monthly stipend to cover

incidental expenses needs to be increased.

The department should consider whether it is appropriate to be transferring

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Review Findings

funding to “buy” ABE seats and whether it should be paying for seats

multiple times.


Recommendations N/A

Business Process

Issues

The program is currently delivered through three separate information

systems (CAPS, CSMS and CSGC). As a result, there is a lack of

integration and information necessary to manage the program is not readily

available.

Although income support ABE clients are supposed to be case managed by

the CEYS CSOs, it is not always being done. As a result, the department

has limited information on client progress, and overall outcomes of the

program.

Recommendations The department should consider options for providing staff with

information to adequately manage the ABE program.

Income support ABE clients should be adequately monitored to determine

their progress in the program.


A team has been established to review the ABE program.

Quick Wins

Income support ABE clients should be monitored to determine their program progress.

The department should consider the current differences in stipends for clients participating in

employment/education interventions with a view to ensuring a more consistent approach.


Currently participation in ABE is funded and administered by LMDA, CEYS and AE. As an

alternative, there could be one mechanism for the administration of ABE for all AES clients.

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Review Findings

Program LMAPD Training Services

Background

Goal

To assist individuals with significant disability related challenges make a labour market

attachment.

Objective

Address Strategic Issues 1 and 2 of the Departmental Strategic Plan by providing funding for

supports to allow persons with disabilities to complete their first post-secondary certificate,

diploma or degree and increase their opportunity of making a labour market attachment using the

skills they acquire.

Target Population

Persons with a disability and accompanying significant disability related challenges to accessing

post-secondary training, education or employment.


The budget for 2011-12 - $2,767,100.

The program is administered and monitored by regional office staff.

Total number of clients served in 2011-2012: 310



Income & Employment Support Act & Regulations, Labour Market Agreement for Persons with

Disabilities (LMAPD) Training Services Policy.


Policy Issues This program overlaps with the Federal/Provincial student loan program

available for all students wishing to participate in post secondary

education. It provides funding in grant form to cover 100% of reasonable

costs. However, persons with disabilities are not required to apply for the

student loan program. As a result, there is no requirement for parental

contributions to be assessed as required under the student loan program,

and there is lost federal funding (i.e. Canada-NL Study Grants for Persons

with Disabilities of $8,000 per year and Access Grants of $2,000 per year.)

which is not being availed of. If persons with disabilities were required to

apply for a student loan it would likely address the waitlist.

Recommendations The department should consider requiring individuals with disabilities to

apply for a student loan for post secondary education prior to accessing this

program.


Recommendations N/A

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Review Findings

Business Process

Issues

Although demand for the program exceeds the budget allocation given the

attrition in this program the department ends up with slippage (e.g.

approximately $300,000 in 2011-2012).

Commencing in fiscal year 2011 the division received executive approval

to over commit in the CAPS system in an attempt to be able to reduce the

slippage associated with program attrition and approve additional

applicants on the waitlist by using the slippage. As a result, the department

assumed a risk whereby it could have exceeded its budget allocation for

this program.

There are individuals being assessed by staff and included in the program

or waitlisted even though the individuals do not meet the eligibility criteria

for disability under this program. As a result, some ineligible individuals

may be either receiving funding for this program, or waitlisted.

A case was identified whereby an individual, for the past 30 years, has

been living outside the province and receiving vocational therapy. The

department also funds travel back to Newfoundland and Labrador once per

year along with a trip to another province (currently costing approximately

$150k per year).

The approvals for this program are not tied to strategic departmental

priorities. Therefore, programs could be approved for funding that are not

tied to labour market needs.

There are situations where the curriculum for a program has been modified

such that the individual upon completion would not meet the credentials to

work in the industry. As a result, there are situations where an individual

will not successfully attach to the labour market in their field of study.

Recommendations The department should consider introducing processes to improve budget

forecasting and monitoring to reduce slippage and the need for over

committing in the program.

The department should consider the introduction of additional training to

ensure staff are complying with the eligibility policy requirements of the

program.

The department should look to transfer responsibility for the support of

residential programming to the Department of Health and Community

Services.

The department should ensure that the appropriate labour market

information is available to support and promote the selection of career

options which align with the strategic priorities of the department.

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Review Findings

The department should ensure that staff are supporting clients in pursuing

and achieving realistic and attainable career goals.


The Policy and Planning division is completing a review in 2012-2013 fiscal year using client

surveys.

There is a committee established to review the compatibility between the Canada Student Loan

Program and this program.

In addition provincial office is reviewing the files of all clients funded under training services to

capture outcomes including whether individuals completed their post-secondary program, are

currently working and, if so, whether they are employed in the field of study.

Quick Wins

None Identified


Program in line with Student Aid - both have agreements with HRSDC

Both programs could complement each other. Student Aid is purely Federal up to $10K in grants,

LMAPD funding exceeds that with a provincial-federal agreement that could be provided in

addition.

Looking towards Student Loan program for possible coordination of services in order to better

meet demand. Disability related grants available thru Student Aid. There may be benefits for the

department defining permanently disabled in the same way as student aid for this program.

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Review Findings

Examples of Payments from LMAPD Training Services


VERA PERLIN SOCIETY, INC 1,042,350.00


CANADIAN PARAPLEGIC ASSOCIATION 244,592.10

CALYPSO FOUNDATION 173,972.00

PAB COMMUNITY EMPLOYMENT CORPORATION SENL 167,714.82

AUTISM SOCIETY OF NEWFOUNDLAND 143,000.00

CANADIAN NATIONAL INSTITUTE FOR THE 114,000.00

NEWFOUNDLAND & LABRADOR ASSOC OF THE DEAF 104,000.00

NFLD ASSOC FOR COMMUNITY LIVING 65,000.00

NEWFOUNDLAND COORDINATING COUNCIL ON 44,100.00

COALITION OF PERSONS WITH DISABILITIES 14,000.00

ARMS-ACCOUNTABILITY RESOURCE MANAGEMENT 9,375.00

DENNIS FUDGE CONTRACTING LIMITED 8,651.60

ABILITY EMPLOYMENT CORPORATION 6,404.00

BLUE RIDGE INC 5,047.20

EXPLOITS COMMUNITY EMPLOYMENT CORP 2,500.00

PREMIERE ATLANTIC LTD 2,304.00

Chapter 5 5-A-3-9

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Review Findings

Program Post Journey and Specialized Training

Background

Goals

The Apprenticeship and Trades Certification Division works in partnership with training

institutions and employers, to deliver training in key sectors which are related to upcoming capital

projects in the province and to keep journeypersons up to date with the latest technology in their

field.

Objectives

To provide EI eligible Journeypersons with training to upgrade their skills, learn new techniques or

unique skills for a particular capital project.

Target Population

EI eligible certified Journeypersons.


The budget for 2011-12 - $5,800,000.

The program is administered by the Apprenticeship and Trades Certification Division.

Number of clients served annually: approximately 500


Apprenticeship and Certification Act


Policy Issues The department does not proactively consider the workforce requirements

(e.g. specialized trade procedures) for large scale projects and the

associated costs. As a result of operating on a more reactive basis, it is

difficult to budget for the identified need.

Recommendations The department should proactively plan and budget for training required

for large scale projects.


Recommendations N/A

Business Process

Issues

There is no budget allocation for this program; instead, it is part of the $5.8

million budget allocation for apprenticeship training. As a result, there

may be times when there are insufficient funds available for identified

training because the funds have been used to train apprentices.

The apprenticeship training budget allocation is $5.8 million annually each

of the last five years; however, actual expenditures have been

approximately $6.5 to $7 million with the additional funding obtained from

slippages in other LMDA programs. As a result, the current budget

allocation is not sufficient.

The current tracking system has limited capabilities and does not allow the

department to accumulate journeyperson skill sets at a subset level (e.g. a

welder certified for titanium).

Chapter 5 5-A-3-9

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Review Findings

Recommendations The department should determine whether it is appropriate to have a

separate budget allocation for post journey and specialized training.

The department should consider the current budget allocation for the

apprenticeship training program with a view to ensuring it is sufficient to

meet ongoing demand.

The department should consider options for increasing the search

capabilities of the current information system in order to obtain

information necessary for workforce planning.


There is a committee currently reviewing the Apprenticeship Program.

Quick Wins

None identified.


All programs approved for post journey training specific to the skilled trades should be posted on

the Apprenticeship and Trades Certification Website via an Apprenticeship Training Calendar.

The calendar would consist of annual post journey and specialized training registration dates, the

enrollment form, training schedules, and time critical updates regarding registration and technical

training. KIV: This could result in significant uptake increases and result in increased costs.

Chapter 5 5-A-3-10

179

Review Findings

Program Career and Financial Counseling Services

Background

Within the continuum of services available at Student Financial Services, this area of the operation

primarily focuses on clients who are engaged within the student aid system but for any number of

reasons are not progressing within prescribed policies. Staff are responsible for reviewing a clients

academic and financial progress to date and to work with clients in making decisions going

forward. In addition, staff are responsible for ensuring provincial post-secondary institutions offer

career/financial counseling programs at the institutional level. This unit also ensures post-

secondary institutions (public and private) are in compliance with the federal/provincial

Designation Policy.

Goals

To provide services to students and post-secondary institutions on specialized work related to the

counseling of individuals seeking financial assistance to pursue post-secondary study.

Objectives

To ensure students are progressing satisfactorily within their chosen field of study; to ensure post-

secondary institutions provide career and financial counseling services; to ensure post-secondary

institutions are in compliance with the federal/provincial Designation Policy

Target Population

1) Students who have been identified via internal referral procedures who are not progressing

satisfactorily within chosen field of study, are choosing to pursue a supplemental field of study or

scenarios which fall outside of normal operating procedures but require a more

intensive/confidential level of communication.

2) All provincial post-secondary institutions - provision of career/financial counseling services

and compliance with federal/provincial Designation Policy.


Budget is approximately $190,000 and is included within the divisional salary and operating

budget.

Total number of clients served is approximately 8,700.

3 FTE staff - located at Coughlan College, St. John's.


Student Financial Assistance Act and Regulations – Federal and Provincial



Recommendations N/A


Recommendations N/A

Chapter 5 5-A-3-10

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Review Findings

Business Process

Issues

There is a lack of integration of counseling and information services within

the department. For example:

The three staff in the Career and Financial Counseling Services group

(GS-38) at Student Aid primarily focus on clients within the student

aid program, while the other 40 Career Development Specialists (GS-

36) throughout the department focus on a broader client population,

approximately 12 Labour Market Development Officers (GS-40) are

primarily employer focused; and

Career and Financial Counseling staff and Regional Information

Officers (GS-30) at Student Aid provide specialized services to high

schools and educational institutions on the student aid program. In

addition, 12 (GS-40) Career Development Liaison Officers (GS 40) in

the CEYS division provide general information on the department’s

suite of services.

Recommendations The department should determine how to share information and services

among counselors, specialists and officers that leads to an improved level

of service.

The department should review activities and determine whether there is an

opportunity to integrate Career and Financial Counseling staff and

Regional Information Officers at Student Aid with Career Development

Liaison Officers in the CEYS division.


None identified

Quick Wins

None identified


The department could have more integration and sharing of information and services among career

counselors which could lead to an improved level of service.

The department could integrate Regional Information Officers at Student Aid with Career

Development Liaison Officers in the CEYS division to provide a more coordinated approach to

service delivery.

Chapter 5 5-A-3-11

181

Review Findings

Program PLAR/Essential Skills

Background

Goals:

PLAR is a process of receiving credit for learning acquired through previous experiences;

Essential Skills are identified for trade specific occupations - including in development of Plans of

Training; used as a resource to guide and assist credits.

Objectives:

PLAR assists individuals to identify personal strengths and goals; prove knowledge, skills and

abilities for employment; gain academic credit; attain occupational licensing or certification; to

reduce the overall time it takes to complete an apprenticeship or become certified via the Trade

Qualifier route.

Target Population: Apprentices, Employees, Skilled Workers, and Foreign workers seeking recognition of work

experiences and certifications obtained outside of Canada.


Apprenticeship and trades certification operating budget.

Lead responsible for PLAR is a PDO located at Corner Brook Regional Office. PDO leads process

development; training workshop and in-service. Trade specific instructors are key to conducting

the PLAR evaluation process with individuals who apply for credit.

There were 75 clients assessed by PLAR/Essential Skills in 2011-12.


Apprenticeship Training Act.


Policy Issues There can be inconsistencies in the determination of an individual’s skills

and competencies which results in either different requirements for the

completion of the apprenticeship program or assessment of seasoned

skilled workers (possible trade qualifiers).

Recommendations Policies and procedures should be more clearly defined and designated

assessors should be provided with appropriate training to ensure

consistency in policy interpretation.


Recommendations N/A

Business Process

Issues

There are inconsistencies in PLAR policy among the institutions which

currently result in inconsistencies in the determination of an individual’s

skills and competencies which results in either different requirements for

the completion of the apprenticeship program or assessment of seasoned

skilled workers (possible trade qualifiers).

Recommendations AES should work with the institutions and coordinate a process which will

increase consistency in the assessment standards related to apprenticeship

programs.

Chapter 5 5-A-3-11

182

Review Findings


Committees established looking at all apprenticeship issues. In addition, the Advanced Studies

branch has completed a jurisdictional review of best practices in PLAR as well as developed an

action plan.

Quick Wins

Increased consistency across colleges involved in the PLAR process. Identification of practical

skills where competency has been achieved and identify gaps and required training needed to fill

those gaps. Reduce number of attempts an individual will need on a certification exam to achieve

journeyperson certification.


The PLAR concept could be applied to all AES clients to ensure formal and informal qualifications

are appropriately recognized in the determination of their employment plans.

Chapter 5 5-A-3-12

183

Review Findings

Program Career Development Partnership Initiative

Background

Goals

Through an increase in information, resources, and activities provided by CDPI to supplement

other career development activities including the infusion of stakeholder supports K-12 students,

within the Province, will increase their career development capacity; increase their understanding

for the labour market opportunities within Newfoundland and Labrador; and implement career

strategies that see them build their career paths while living and earning in the Province.

Objectives:

Program objectives include:

Increase awareness of labour market information and employment trends especially as they relate

to NL;

Awareness of skilled trade opportunities; awareness of non-traditional occupations;

Awareness of the relationship between school subjects and education, and career choices;

awareness of educational opportunities and how educational choices impact on future career

options;

Awareness of financial (student loans, scholarships etc) and other supports to assist with

educational choices and off setting the cost of training and education;

Awareness of job search goal setting, job search strategies; resume writing, interviewing and

success on the job;

Awareness of employability and essential skills; and

Awareness of opportunities to build and develop ones careers while living and working in

Newfoundland and Labrador.

Target Population:

Career Development Liaison Officers (CDLO's) work with students, parents, schools, district staff,

community, industry and others as needed.


The budget for 2011-12 - $125,000. [plus salaries in the regional operating budget]

The program is administered by 10 Career Development Liaison Officers (CDLOs), Client

Services Manager and a Lead at provincial office. Regional CDLO staff work with Client Services

Managers (CSMs ) to track and monitor usage of allocated budget.


Income and Employment Support Act



Recommendations N/A


Recommendations N/A

Chapter 5 5-A-3-12

184

Review Findings

Business Process

Issues

Upon fiscal 2012 there was a separate operational budget for CDPI;

however, in fiscal 2012 $110,000 of the $125,000 operational budget for

CDPI was included in the regional operating budget. As a result, CDPI

staff have indicated that they are not able to meet all their travel and

resource requirements.

Although the department spent approximately $4,500 on the development

of promotional material for CDPI, the material was neither approved nor

distributed.

The department has not yet determined how youth engagement activities

currently funded by the department will be included in the department’s

new mandate.

Currently the mandate of CDPI is not to specifically deal with children of

income support clients; instead the focus is on all students. If the

department requires a focus on children of income support clients, the

program would have to be refocused.

Although the department has several groups (CDPI, Student Aid and

Apprenticeship), visiting schools and funds several entities (e.g. CNA,

MUN), there is no formalized approach to coordinate the activities. As a

result, the information may not be delivered as efficiently or effectively as

it could be.

Recommendations The department should determine whether a separate operating budget

should be re-established for CDPI.

The department should determine what it wants to do with the promotional

material developed for CDPI.

The department should determine and clearly define how youth

engagement activities currently funded by the department are aligned with

the department’s new mandate.

The department should determine whether it wants CDPI to have a specific

focus on the children of income support clients.

The department should consider a formalized approach to coordinate the

activities of groups responsible for visiting schools.


None identified. Quick Wins

The department could determine what it wants to do with the promotional material developed for

CDPI.


Chapter 5 5-A-3-12

185

Review Findings

The department could consider a formalized approach to coordinate the activities of groups

responsible for visiting schools.

Chapter 5 5-A-3-13

186

Review Findings

Program Employment Assistance Services

Background

Goals

Services provided to EI eligible individuals by 3rd

party agencies. Services may include

assessment, employment counseling, job search training, provision of labour market information

and case management including a 12 week follow-up with clients post intervention to identify their

employment status.

Objectives

To provide funding to organizations to enable them to offer employment assistance services to

unemployed persons. These services can be provided on an individual basis or in a group setting.

Target Population

EAS provides employment services for unemployed persons who are legally entitled to work in

Canada. For purposes of EAS, "unemployed" is defined as individuals who meet any of the

following criteria:

1. are not working at all and actively seeking employment;

2. are working less than an average of 20 hours per week; and are actively seeking full-time

employment or, in the case of persons with disabilities who are unable to work full-time, and are

actively seeking increased employment;

3.in receipt of a notice of imminent lay-off; or

4.must leave their current occupation due to medical reasons.


The budget for 2011-12 - $18,506,000.

Total number of new clients served annually: 12,100.

The program is administered by regional staff with three contracts administered at provincial level

given provincial scope of service delivery for the organization. Approval of agreements is

normally in accordance with delegated authorities. This past year, as a result of the review of EAS,

all approvals were at Provincial Office. Within the Department, there are currently 97 frontline

positions (82 CSOs, 15 Admin) involved in the delivery of LMDA programs. About 50% support

the delivery of Skills Development, the other 50% support the delivery of Programs (JCP, Wage

Subsidies and EAS/SEA Contracts).

The program is delivered via grants to 3rd

party agencies


LMDA Agreement; Program policies, directives and guidelines, terms and conditions.



Recommendations N/A


Recommendations N/A

Chapter 5 5-A-3-13

187

Review Findings

Business Process

Issues

Currently, there are no standardized activities for EAS agreements nor is

there a standardized schedule of rates that could be provided to the service

provider for the delivery of the program. As a result, EAS 3rd

party service

providers do not always offer the same services and may be funded at

different rates;

Although the division has a risk based approach to determine the minimum

level of monitoring required for each EAS contract, it does not have any

mechanism for ensuring that the required monitoring is actually performed.

As a result, the division cannot readily conclude that the identified

monitoring took place.

The department does not have a formal plan to evaluate EAS activity and

determine whether the offices are meeting their objectives.

During peak periods for clients seeking support to attend school, the wait

times to see a case manager are quite long resulting in some clients not

being able to have their Skills Development application completed and

submitted by the deadline.

Currently, the department does not have online capability whereby an

individual can develop their own action plan. As a result, all clients,

except apprentices, must visit an EAS and meet with a Case Manager to

develop their RTWAP.

The Department uses CSGC for LMDA program management. The 3rd

party agencies use ARMS. There are significant issues with existing

interfacing between these systems that results in significant error rate.

Recommendations The department should use standardized contracts with EAS offices to

ensure consistency of services and funding.

The department should implement a process to ensure that required

monitoring of EAS contracts is performed.

The department should develop a formal plan and evaluate EAS activity

and determine whether objectives are being met.

The department should consider developing online capability for

individuals to complete action plans.


A Unified Client Service Flow team has been established.

Efforts are underway to develop standardized EAS agreements.

Chapter 5 5-A-3-13

188

Review Findings

Quick Wins

The department could develop standardized EAS agreements which include standardized rates,

eligible costs and ratios of clients served.


Redirect all AES funded services currently offered through EAS to AES offices.

Determine whether it is necessary for all individuals to complete the RTWAP.

Develop a common assessment tool to streamline the client intake process and enhance the

integration of client services.

The Department could consider an integrated case management system for itself and 3rd party

agencies.

Examples of Payments from Employment Assistance Services

Vendor Name Amount

THE COMMUNITY EDUCATION NETWORK FOR SOUTHWESTERN NF 1,701,994.00

YMCA-YWCA OF NORTHEAST AVALON 1,632,947.00

Celtic Business Development Corporation 1,338,079.00

Community Business Development Corporation Trinity Conception 1,321,020.00

Canadian Paraplegic Association 1,129,263.00

Random North Development Association 824,303.00

Mariner Resource Opportunities Network Inc 691,387.00

Avalon Employment Inc. 659,691.00

CENTRAL COMMUNITY DEVELOPMENT CORPORATION 603,732.00

Women Interested in Successful Employment (WISE) 545,500.00

The Burin Peninsula Chamber of Commerce 486,120.00

Women in Resource Development Inc. 414,456.00

NunatuKavut Community Council 385,105.00

The Employment Preparation Centre Inc. 367,829.00

Visions Employment Inc. 336,258.00

BAY ST. GEORGE COMMUNITY EMPLOYMENT CORPORATION 333,664.00

Cape Freels Dev. Assoc. 324,595.00

Gander & Area Chamber of Commerce 322,695.00

Labrador Friendship Ctr. 314,448.00

Br. T. I. Murphy Learning Resource Centre Inc. 303,970.00

Twillingate - New World Island Development Association 302,103.00

Humber Valley Community Employment Corp. 300,171.00

South coast Community Development Corporation 297,680.00

Employment Connection Centre 284,922.00


Chapter 5 5-A-3-13

189

Review Findings

Vendor Name Amount

Lewisporte Area Chamber of Commerce 279,481.00

Community Centre Alliance 273,423.00

Burin Peninsula Supported Employment Services 245,039.00

Genesis Employment Corporation 241,755.00

Fogo Island Co-operative Society Ltd. 223,289.00

Avalon West Community Development Corporation 222,279.00

Alexander Bay Terra Nova Dev. Assoc. 216,370.00

Exploits Community Employment Corporation 215,921.00

Emerald Business Development Corporation 214,152.00



Port aux Basques Community Employment Corporation 204,874.00

Fortune Community and Youth Centre 193,127.00

SEDLER Community Employment Corporation 180,527.00

white Bay South Management Committee 177,694.00

John Howard Society of Newfoundland 173,311.00



Green Bay Community Employment Corporation 140,817.00

Green Bay South Education Committee 139,371.00

Labrador West Employment Corporation-EAS: 2011-2012 134,015.00

St. John's Native Friendship Centre Association 130,719.00

Fortune Bay East Development Association 130,589.00

Southern Labrador Development Association 128,001.00

Deer Lake Community Learning Centre 118,370.00

Association for New Canadians, AXIS 113,759.00

BURGEO TOWN COUNCIL 112,713.00

PORT AU PORT ECONOMIC DEVELOPMENT ASSOCIATION 108,728.00

Lake Melville Community Employment Inc. 105,893.00

JOHN HOWARD SOCIETY (STEPHENVILLE) 95,425.00

Gateway Status of Women Council 83,961.00

RAMEA ECONOMIC DEVELOPMENT CORPORATION 31,067.00

Chapter 5 5-A-3-14

190

Review Findings

Program Service Agreements for Youth (SAY)

Background

Goals

To fund organizations that support young people in their pursuit of post-secondary education

and/or employment opportunities.

Objectives

To strategically support young people in their pursuit of post-secondary education and/or

employment opportunities by providing financial resources to successful existing initiatives

and to identify new requirements;

To complement the Province's student debt reduction strategies;

To focus on youth in rural areas of Newfoundland and Labrador.

Along with the Department of Advanced Education and Skills, act as a coordinating agency

with respect to student employment programs, enhanced career opportunities and priority

youth related programs and services within line departments; and

Since this budget moved from the old Department of Youth Services and Post-Secondary

Education to the Department of Advanced Education and Skills, there has also been some

emphasis on helping youth/students on or at risk of being on Income Support in their transition

to post-secondary and to employment.

Target Population

Youth/students in their transition to post-secondary education and to employment with some

emphasis on helping youth on or at risk of being on income support in this regard.


The budget for 2011-12 - $669,000. Additional programs are funded through slippage from other

programs which increases the overall funding to $1.1M.

Total number of clients served: over 6,000 youth and students are served by this budget in over 35

different programs run by community agencies province wide.

The program is administered and managed by provincial office staff which includes Provincial

Manager - Youth Grants; Senior Manager - Youth Programs and Program Coordinator.

The program is administered via Grants & Subsidies.






AES.

Chapter 5 5-A-3-14

191

Review Findings

Findings & Recommendations Policy Issues The department has not yet determined how youth engagement activities


new mandate.

The financial accountability requirements are the same for all grants and do

not take into consideration the value of the grant.

The department has not established base line indicators necessary to

determine outcomes under the program. Instead activity levels are used to

determine the success of projects funded under the program along with

individual information on youth with complex needs.

The demand for this program exceeds current budget allocation.

Funding to organizations is an expectation from year to year once

approved. As a result, new initiatives which may have more merit do not

always be considered for approval due to existing budget commitments.

Recommendations The department should determine and clearly define how youth



The department should determine whether financial accountability

requirements should remain the same for all grants.

The department should determine how success can be measured within this

program.

The department should determine whether the current budget for this

program is sufficient.

The department should determine whether the approval of applications

should continue to be driven by historical commitments or whether all

applications should be assessed on their merit relative to all other

applications.


Recommendations N/A

Business Process

Issues

Currently the Youth and Student Services budget is monitored to identify

slippage which is redirected to either SAY, GTYO or GEP to meet ongoing

demand. Slippage has traditionally occurred in SWASP Paid, SEP-High

School, SEP-NPC, GEP and a number of other youth services programs

(often involving un-cashed vouchers). In 2012-2013 the slippage will be

approximately $430,000. The budget requests do not reflect the expected

program activity.

The regions are not involved, other than consultative, with the assessment

Chapter 5 5-A-3-14

192

Review Findings

of proposals. As a result, the input at a regional level may not be as

significant as it could be.

Recommendations The department should consider how budgets are currently established and

develop an acceptable solution which would support the development of

more accurate budget submissions.

The department should determine the input required from regions during

the review, assessment and recommendation process.


None identified.

Quick Wins

N/A


The department could consider the similarities among the SAY, GTYO and CYN and consolidate

the funding and service delivery.

Examples of Payments from Service Agreements for Youth


COMMUNITY YOUTH NETWORK (24 Hub & 12 Satellite sites) 210,770.90


FOR THE LOVE OF LEARNING, INC 110,000.00

NEWFOUNDLAND AND LABRADOR ASSOC 75,000.00




SKILLS CANADA-NEWFOUNDLAND AND LABRADOR 55,000.00

CBDC TRINITY CONCEPTION 52,500.00

WAY POINTS INC 45,000.00

EASTERN REGIONAL INTEGRATED HEALTH 41,320.54

WOMEN IN SCIENCE & ENGINEERING(WISE) 40,500.00



COMMUNITY SECTOR COUNCIL OF 15,300.00

KANGIDLUASUK STUDENT PROGRAM INC 10,000.00

MADD CANADA 10,000.00

BAYNET INC 9,850.00

EXPLOITS COMMUNITY ASSOC INC 7,000.00


Chapter 5 5-A-3-14

193

Review Findings


BRIDGES EMPLOYMENT CORPORATION 5,000.00

COMMUNITY EDUCATION NETWORK 5,000.00

SMALLWOOD ERA DEVELOPMENT CORPORATION 3,406.40

EXPLOITS VALLEY ECONOMIC DEVELOPMENT 3,141.66

EASTER SEALS, NEWFOUNDLAND AND LABRADOR 3,000.00

Chapter 5 5-A-4

194

Review Findings

5-A-4 Employment Supports

Employment Supports provide employment counseling to assist individuals make a successful

labour market attachment. It also involves financial supports for training, job search, and expenses

related to commencing employment.

As the following table shows, a total of 8 programs with a cumulative budget of $14.5 million for

2011-12 were identified as being part of the “Employment Supports” category. Three of the

programs (Employment Development Supports (EDS), EDS Expansion and Employment

Counseling are for non-EI eligible individuals, two programs are for persons with disabilities

(Disability Related Supports and Internships to Promote Technology for Persons with Disabilities),

one program (Community Partners) is for persons 18 years and older, one program (Self

Employment Assistance) is for EI eligible individuals, and one program (Employment Related

Benefits) is for income support clients.

4 Employment Supports

11/12 Budget

($M's)

11/12 Actuals

($M's) Reference

Financial:

1 Employment Development Supports CEYS 0.800 0.835 5-A-4-1

2 EDS Expansion - LMA CEYS 0.640 0.441 5-A-4-2

3 Employment Related Benefits IS 1.496 1.295 5-A-4-3

4 Disability Related Supports CEYS 0.250 0.078 5-A-4-4

* 5 Internships to Promote Technology for Persons with Disabilities CEYS 0.350 0.350 5-A-4-5

6 Self Employment Assistance LMDA 5.369 5.300 5-A-4-6

Client Services:

7 Employment Counseling CEYS N/A N/A 5-A-4-7

* 8 Community Partners CEYS 5.600 6.648 5-A-4-8



Income Support IS 1 1.496 1.295



Total Employment Supports Programs 8 14.505 14.949

* 3rd Party Grants

Chapter 5 5-A-4

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Review Findings

The following charts illustrate the proportion of the 8 Employment Supports programs relative to the


analysis process.

Employment Supports , 8


Employment Supports ,

14.505




CEYS, 6

IS, 1

LMDA, 1

Employment Supports Programs


CEYS, 7.640

IS, 1.496

LMDA, 5.369

Employment Supports Budgets (in $M's)


A number of issues were identified during the review of the 8 programs in the Employment Supports


Issues related to variations in the level and type of services provided, the mode of delivery as well as

inconsistencies in administration practices are categorized in the following four themes:


2. Budget Management;



Chapter 5 5-A-4

196

Review Findings


In the current context, employment counseling is offered internally by departmental staff and is also

offered via a contracted service through 3rd

party agencies. There has not been any formal

determination as to which client population will be served externally and which clients will be the

responsibility of departmental staff. Furthermore, the department has neither developed a

standardized approach to employment counseling for all client populations nor has it determined a

minimum service standard required for employment counseling to help ensure a consistent approach.

The lack of direction has resulted in duplication of services, overlap in duties and confusion for

clients and staff.

For example, the work performed for non-EI eligible individuals by departmental staff is the same as

the work performed by staff at EAS offices for EI eligible individuals. This results in AES clients

having to go to multiple service sites to access services and, because AES staff are only responsible

for the funding component of a return to work action plan for EI eligible individuals, counselors do

not have the opportunity to ensure labour market priorities are considered.

2. Budget Management

The demand for employment development supports exceeds the current allocated budget. As well,

LMA funding, which is scheduled to sunset in March 2014, is currently being used to fund

employment supports for non-EI eligible individuals. Without an alternate source of funding, there

will be a gap in employment development supports available to this client population. This issue

needs to be considered as the department implements new approaches to address current and future

labour market demands.


AES currently funds approximately $14.5 million annually for employment related supports. The 8

programs included in this category are managed in three different divisions (CEYS, LMDA and

Income Support) and serve multiple client groups (persons with disabilities, income support clients,

and EI and non-EI eligible clients) with little or no collaboration between the divisions. Due to the

lack of a single Employment Supports program for all of the department’s clients, the following

issues exist:

Because the department does not have a formalized process to capture labour market

information on supply and demand to determine funding priorities, staff are unable to formally

consider labour market priorities during the employment counseling process.

Chapter 5 5-A-4

197

Review Findings

Employment development supports is a service offered internally through departmental staff

and externally through 3rd

party service providers. Without a formal determination as to the

role of 3rd

party agencies in employment development supports, a number of 3rd

party agencies

have multiple contracts with the department. As a result, agencies receive administration fees

for each contract, staff have to process and monitor multiple contracts and, because multiple

staff may be involved in the process, it is more difficult for the department to ensure that

duplicate funding is not provided e.g. bookkeeper salary funded more than once, as well as

duplicate services (internally and externally).

Although the CEYS Employment Development Supports Program was originally designed to

provide necessary supports to income support clients, there are numerous requests for funding

from EI eligible individuals because a policy regarding the LMDA funding prohibits providing

additional supports. The implications are:

funding to EI eligible individuals is counted towards their required contribution;

duplication of work because two separate CSOs have to be involved (CEYS and LMDA);

there appears to be a contradiction in policy between CEYS and LMDA; and

funding LMDA clients restricts access to income support clients for whom the program

was originally intended to serve.

While EI eligible individuals can receive full funding through LMDA programs for all types of

training, non-EI eligible clients can only receive funding for training less than 12 weeks after

which they have to seek funding through the student loan program. This results in an inequity

in entitlement to individuals.

The department does not attempt to provide training and information sessions in innovative and

responsive ways such as through the use of the internet, group format or in the evening.

Instead, services are provided during normal working hours on an individual basis. As a result,

the department is not as responsive as it could be in providing its services.

The department has 12 certified trainers in career counseling who have trained 68 front-line

staff to date. However, without formalized employment counseling standards, a formalized

training plan with staff and external providers cannot be developed. As a result, the type, level

and amount of counseling provided to clients continue to vary.

Other issues identified with the administration of employment supports include:

a) The Internships to Promote Technology for Persons with Disabilities Program

Although the department provides $350,000 to the Independent Living Resource Centre

(ILRC) to train and mentor up to 10 individuals with disabilities, the department does not

Chapter 5 5-A-4

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Review Findings

prorate the budget if the uptake is less than 10. As a result, the department may be

paying for services for which it did not receive;

In one year when there were only eight interns hired, the ILRC used funding originally

provided for the other two positions to fund their required portion of a department’s wage

subsidy program. As a result, ILRC used program funding inappropriately; and

The department does not issue a Request for Proposal (RFP) for this program. As a

result, there is not equal access for other organizations and the department may not be

receiving optimum value for money.

b) The Self Employment Assistance Program

To get funding under the program, clients have to visit three separate service providers

(EAS office, SEB Coordinator and AES). As a result, the current client service model is

not efficient and is not convenient for clients; and

Because there are multiple service providers involved in program delivery, the

monitoring is not integrated - EAS monitors the client, SEB Coordinator monitors the

business, AES monitors the financial supports. As a result of the lack of integration of

monitoring, the determination of the adequacy of the program outcomes is more difficult.

c) The Disability Related Supports Program

The disability related supports program is not needs tested. As a result, individuals who may have

the ability to pay for disability supports may receive funding.


The department uses multiple systems to administer employment supports and, due to lack of

integration, information necessary to determine program outcomes is not readily available. It is also

difficult to track the total amount of employment supports by individual. A client can receive

employment supports from LMA, EDS, and employment related benefits from the income support

program on an as needed basis without a review to determine other interventions aimed at addressing

issues preventing the individual from making a successful labour market attachment.

Another example of systems and tracking issues include situations where two Return To Work

Action Plans (RTWAP) may be prepared for an individual to access funding. For example, although

a RTWAP may be prepared for an LMDA client and recorded in the Federal CSGC system, if that

individual requires funding from a CEYS program another RTWAP has to be prepared because

CEYS staff do not have access to the CSGC system and vice versa. This results in frustration for

clients and duplication of effort for staff.

Chapter 5 5-A-4

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Review Findings

Chapter 5 5-A-4-1

200

Review Findings

Program Employment Development Supports (EDS)

Background

Goals

Employment Development Supports to assist income support eligible clients access such services

as: specialized assessments; short-term training; job search; workplace adjustment/requirements

such as work place clothes and workplace modifications.

Overall goal is to assist clients prepare for, obtain and maintain employment.

Objectives

To provide additional support to income support eligible clients to access and continue in training

programs to prepare for employment.

Target Population

Target population: Income support eligible clients and other non-EI eligible individuals.


The budget for 2011-12 - $ 800,000

Total clients served in 2011-12 - 1,527.

The program is delivered by Client Service Officers (CSO) and Career Development Specialists

(CDS) province-wide, Client Service Managers (CSM) and Provincial Office - Program

Consultants and Provincial Mangers.

This program is delivered via allowance & assistance.




Policy Issues Although the program was originally designed to provide necessary

supports to income support clients, there are numerous requests for funding

from EI eligible individuals because a policy regarding the LMDA funding

prohibits providing additional supports. The implications are:

Funding to EI eligible individuals is counted towards their required

contribution;

Duplication of work because two separate CSOs have to be involved

(CEYS and LMDA); and

There appears to be a contradiction in policy between CEYS and

LMDA.

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Review Findings

The demand for the program exceeds the allocated budget, therefore

funding LMDA clients restricts access to income support clients for whom

the program was originally intended to serve.

Recommendations The department should determine whether it is appropriate for EI eligible

clients to access funding for a program designed for non-EI eligible clients.

In the context of the current policy the department should determine

whether the current $800,000 budget is sufficient to meet the objectives of

the program.


Recommendations N/A

Business Process

Issues

Because the CSMS and CAPS systems are not integrated, information

necessary to determine the program outcomes is not readily available.

There are situations where two Return To Work Action Plans (RTWAP)

may be prepared for an individual to access funding. For example,

although a RTWAP may be prepared for an LMDA client and recorded in

the federal CSGC system, if that individual requires funding from a CEYS

program another RTWAP has to be prepared because CEYS staff do not

have access to the CSGC system and vice versa. This results in frustration

for clients and duplication of effort for staff.

The department does not attempt to provide training and information

sessions in innovative and responsive ways such as through the use of the

internet, group format and in the evening. Instead services are provided

during normal working hours on an individual basis. As a result, the

department is not as efficient and effective as it could be in providing its

services.

Recommendations The department should explore options on how sufficient information is

available to staff in order to determine the outcomes of funded programs.

The department should consider allowing staff access to all systems to

ensure that duplication of work and effort is minimized.

Consideration should be given to providing training and information in a

more responsive manner including electronic, web based, and conducting

evening group sessions.



Quick Wins

Program information could be made available on line.

The department should take the initiative to introduce more innovative and responsive ways to

interact with clients e.g. email, videoconferencing, web based and group sessions.


Chapter 5 5-A-4-1

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Review Findings

To reduce administrative burden, the department should continue with its efforts to develop a

common assessment tool and ensure information is shared among all staff in the department.

Where possible a single point of response should be offered.

Examples of Payments from Employment Development Supports Program


COLLEGE OF THE NORTH ATLANTIC-CORNER BRK 37,033.52

JACKIE HEAD'S TAXI 26,555.97

CENTRAL TRAINING ACADEMY 23,723.00

R HAYES BUS & CHARTER SERVICE 19,800.00

CANADIAN TRAINING INSTITUTE 17,500.00

DR HASSAN KHALILI PHD & ASSOC 15,750.00

G HUNT PSYCHOLOGICAL SERVICES 15,400.00


STANLEY HODDER 14,354.81

FISHERIES & MARINE INSTITUTE OF MEMORIAL 14,125.00

NORTH ATLANTIC SUPPLIES INC 9,065.72

REGINALD FREAKE 7,727.20

ROY PITTMAN 4,972.98


PROFESSIONAL APPAREL MARKETING INC 4,747.37

MARITIME DRILLING SCHOOLS LTD 4,200.00

MATTHEW'S TAXI AND BUS SERVICE LTD 4,087.50

MARITIME TRAVEL INC 3,772.62

VICKER'S MINI BUS 3,185.85

NATIONAL SAFETY EQUIP 2,858.45

CITY CABS (2008) INC 2,455.75

EAST COAST BEAUTY INC 2,438.00

KEYIN TECHNICAL COLLEGE LTD 2,325.00

ARTLIN SALES LTD 2,261.04

HARVEY'S TRAVEL LIMITED 2,223.19

HOUSEHOLD MOVERS & SHIPPERS LTD (GANDER) 2,187.88

WESTERN COLLEGE 2,165.52

CARPENTERS MILLWRIGHTS COLLEGE INC 2,075.00

ACADEMY CANADA 2,057.70

W H DALLEY (SPRINGDALE) 1,846.81

ST JOHN COUNCIL FOR NEWFOUNDLAND 1,733.12

G L MOVING & STORAGE 1,700.00

PATRICK MATTHEWS 1,612.46

HOUSEHOLD MOVERS & SHIPPERS LTD 1,609.64

SINGLE PARENTS ASSOCIATION OF 1,476.00

Chapter 5 5-A-4-1

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Review Findings


HARVEYS TRAVEL 1,422.24

ALLISTER GEORGE & JASON GEORGE 1,400.00

O'KEEFE AGENCIES LIMITED 1,370.00

MARKS WORK WEARHOUSE 1,312.48

STELLA BURRY COMMUNITY SERVICES 1,241.81

RIDEOUT TOOL & MACHINE INC (STJ) 1,103.35

BRENKIR INDUSTRIAL SUPPLY LTD 1,016.97

COMMUNITY YOUTH NETWORK 980.00

NUGENT'S TAXI 950.00

HAZMASTERS INC 906.00

CORONA COLLEGE 892.00

RIDEOUT TOOL AND MACHINE INC 855.57

CERTIFIED GENERAL ACCOUNTANTS ASSOC NL 830.00

NATIONAL SHOE LIMITED 821.43

THE ASSESSMENT & THERAPY CENTRE 800.00

MUN BOOKSTORE 782.68

WOODFORD TRAINING CENTRE INC 750.00

JAMES RANDELL & SONS LIMITED 728.47

MERCER'S MARINE EQUIPMENT LTD 680.59

CAPSC SAFETY SERVICES NEWFOUNDLAND 680.00

VOGUE OPTICAL (GANDER) 638.00

INTERPRETING SERVICES OF NEWFOUNDLAND & 605.00

EMERGENCY RESPONSE CONCEPTS 595.00

MARK'S WORK WEARHOUSE LTD 558.69

ISLAND WIDE TAXI 528.00

COMPUSULT LIMITED 514.00

GATEWAY ENTERPRISES 510.64

COMFORT INN AIRPORT 489.68

THE NEWFOUND CAB COMPANY 407.96

BRIAN BRODERICK 400.00

PRINCESS AUTO LTD 392.79

FRENCHIE'S SERVICE CENTRE LIMITED 388.77

BUGDEN'S TAXI (1970) LIMITED 379.64

MURPHY BROTHERS LTD 372.00

C J CABS 325.57

IRONWORKERS EDUCATION & TRAINING CO INC 305.00

RIFF'S (LAB) 288.25

Chapter 5 5-A-4-2

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Review Findings

Program Employment Development Supports (EDS) Expansion – Labour Market

Agreement

Background

Goals

To support non EI eligible individuals to reach their employment and career goals enhancing their

ability to make a labour market attachment.

Objectives

Assistance to non EI eligible clients to access non student aid interventions and support in job

search/ employment preparation on an approved employment plan.

Target Population

Non EI Eligible individuals, number depends on budget allocation


The budget for 2011-12 - $640,000. Total clients served: 2011-12 - 727 individuals.

The program is delivered by the regional office and monitored through the Provincial Manager

CEYS LMA Initiatives.

This program is administered via allowance & assistance.


Income & Employment Support Act; Labour Market Agreement


Policy Issues Funding for this program is scheduled to sunset in March 2014. Therefore,

there will be a gap in programs available to non-EI eligible individuals

without an alternate source of funding.

While EI eligible individuals can receive full funding through the LMDA

programs for all types of training, non-EI eligible clients can only receive

funding for training less than 12 weeks and after which they have to seek

funding through the student loan program. This results in an inequity in

entitlement to individuals.

Recommendations The department should consider an alternate funding source for LMA

funded programs.

The department should determine how to address the inequity in

entitlement which currently exists between EI eligible and non-EI eligible

clients with regards to funding for training.


Recommendations N/A

Business Process

Issues

Having to rely on a variety of systems to determine and assess the program

outcome (i.e. CAPS; CSMS; Trim) information necessary to determine the

program outcomes is not readily available and can be time consuming

Chapter 5 5-A-4-2

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Review Findings






services.








Quick Wins:


The department should take the initiative to introduce more innovative and responsive ways to

interact with clients e.g. email, videoconferencing, web based and group sessions.




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Review Findings

Program Employment Related Benefits

Background

Goals

To remove barriers to employment for income support clients.

Objectives

To provide financial assistance to income support clients and help them attach to labour market.

Target Population

Income Support clients.


The budget for 2011-12 - $1,496,000 and is included in the overall income support budget. The

budget funds Jobstart Allowance, Earned Income Supplement (EIS) and childcare. The budget

does not include the 30 day overlap, earnings exemption and extended drug card.

During the period October to December 2011 inclusive, there were a total of 1,400 applications for

income assistance. Ultimately, 1,105 individuals received income assistance. We found:

797 (72%) of the 1,105 individuals who received income assistance were not referred to

CEYS; however, 98 (12%) were already CEYS clients and 134 (17%) became new CEYS

clients – even without referral. Therefore, 565 (71%) of the 1,105 individuals were neither

referred to CEYS nor seen by CEYS staff.

308 (28%) of the 1,105 individuals were referred to CEYS; however, 137 (45%) were not

seen by CEYS staff, 117 (38%) became new CEYS clients and 54 (17%) were already CEYS

clients.

In summary, of the 1,105 individuals who received income assistance, 682 individuals [565 not

referred to CEYS + 137 referred to CEYS] (62%) were not seen by anybody in the CEYS

Division.

The program is administered by income support staff province wide.



Income Support Act


Policy Issues Currently there are approximately 24,500 income support clients

provincially who have not made a successful attachment to the labour

market. The department has no formal plan in place to assess the

employability of existing income support clients.

Recommendations The department should undertake an assessment of the existing pool of

income support clients and determine their employability and supports

needed to make a labour market attachment.

Chapter 5 5-A-4-3

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Review Findings

Legislative Issues There is no legislative requirement for income support recipients to

participate in either the department’s suite of training/employment services,

or participate in the labour market. Furthermore, there is no remedy under

the Act if they refuse the training/employment services or acceptance of

employment.

Currently Income Support clients who work for more than 30 days are

required, by legislation, to reapply for benefits if they have to return to

income support. As a result, clients have to go through the intake process

again which is considered a disincentive and CSOs have to process the

application again.

There appear to be situations (e.g. single father with two children) where it

does not make economical sense for income support clients to accept full-

time employment at minimum wage. As a result of the current income

entitlements and lack of employment support incentives, the department

will not achieve its ultimate goal of having individuals attach to the labour

market.

Recommendations The department should consider whether legislative changes would provide

a positive result and assist in achieving the department’s mandate of labour

market attachment.

The department should undertake an analysis of scenarios to determine

instances where there is a financial disincentive to work.

Business Process

Issues

Although the department has developed an internet reporting system, The

Online Mailback System (TOMS) for clients to provide verification of

income necessary to determine the amount of income support the client

may be eligible for. However, TOMS is not currently being used to

manage clients with fluctuating non-employment income (e.g. child

support), and clients with no income on non-recurring pay (e.g. persons

waiting to obtain necessary documentation). Furthermore, TOMS has not

been assessed for its applicability to other programs such as Employment

Transitions.

The information currently obtained during the intake process by the income

support division focuses mainly on the financial eligibility for income

support. Information on such things as employment barriers, employment

history and job searches they have completed is not captured. Furthermore,

there is no mandatory referral to the department’s employment/training

services for clients considered employable. As a result, there may be

income clients who, while employable, may not receive the interventions

required to attach to the labour market.

Chapter 5 5-A-4-3

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Review Findings

Although the income support division refers clients for

employment/training services, there is no information provided back to the

income support division as to the final outcome of the referral.

The income support division currently does not refer all working income

support clients to CEYS staff where an assessment would be completed to

identify the supports required for them to obtain full-time employment and

come off of income support.

Recommendations The department should consider the feasibility of expanding the availability

of TOMS to include such groups as working clients with casual earnings

and working clients with two jobs.

The department should continue the implementation of a standard

assessment form and ensure that all employable income support clients are

referred to employment/training services.

Information on referrals from the income support division should be

reported back to the division to ensure that staff are aware of the outcome

of the referral.

The department should consider mandatory referral to CEYS for all

working income support clients to ensure that they receive the appropriate

supports that lead to a full-time attachment to the labour market.


None identified

Quick Wins

The department should consider the feasibility of expanding the availability of TOMS to include

such groups as working clients with fluctuating earnings and clients on non-recurring pay awaiting

transfer to recurring pay.

Information on referrals from the income support division should be reported back to the division

to ensure that staff are aware of the outcome of the referral.


The department should continue the implementation of a standard assessment form and ensure that

all employable income support clients are referred to employment/training services.

Chapter 5 5-A-4-4

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Review Findings

Program Disability Related Supports

Background

Goals

To respond to the disability related support needs of adults with disabilities wishing to participate

in or maintain employment.

Objectives

Address Strategic Issues 1 and 2 of the Departmental Strategic Plan by providing funding for

disability related support needs such as work place accommodations, work place adaptation,

assistive devices such as hearing aids, visual scanners, readers, technical equipment, and assistive

technology such as computer aids or software.

Target Population

Persons who have disabilities who are experiencing barriers to employment as a result of their

disability. With the $5,000 maximum funding approximately 50 clients can be served annually.


The budget for 2011-12 - $250,000 (maximum of $5,000 per client).

The program is administered by regional staff; however, the budget is managed from provincial

office.

Total clients served in 2011-2012: approximately 30 clients.

The program is administered via allowances & assistance.


Income & Employment Support Act & Regulations; Employability Assistance for Persons with

Disabilities (EAPD) Work Related Disability Supports Policy


Policy Issues The program is not needs tested. As a result, individuals who may have

the ability to pay for disability supports may receive funding.

Recommendations The department should determine whether the program should be needs

tested.


Recommendations N/A

Business Process

Issues

None identified

Recommendations N/A


None identified.

Quick Wins

N/A


N/A

Chapter 5 5-A-4-5

210

Review Findings

Program Internships to Promote Technology for Persons with Disabilities

Background

Goals & Objectives

The program provides funding to the Independent Living Resource Centre (ILRC) who are tasked

with providing up to ten internships targeted at individuals with disabilities. ILRC provides a

twelve week training program followed by on the job support to the interns. Upon completion of

the training the interns provide services throughout the province to organizations and other

individuals promoting the use of technology.

Target Population

Individuals with disabilities.


The budget for 2011-12 - $350,000. [grant to ILRC]

The program is administered through a 3rd

party grant.

Total number of clients served in 2011-2012: 1,000

The program is funded via Grants & Subsidies.





Recommendations N/A


Recommendations N/A

Business Process

Issues

Although the department provides $350K to train and mentor up to ten

individuals with disabilities, the department does not prorate the budget if

the uptake is less than ten. As a result, the department may be paying for

services for which it did not receive.

In one year when there were eight interns hired, the ILRC used program

funding to pay their required portion of a department’s wage subsidy

program. As a result, the department funded two intern positions twice.

The department does not issue a Request for Proposal (RFP) for this

program. As a result, there is not equal access for other organizations and

the department may not be receiving optimum value for money.

Chapter 5 5-A-4-5

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Review Findings

Recommendations The department should determine whether it is appropriate to provide full

funding in instances where the target number identified has not been met.

The department should not fund a service twice.

The department should consider issuing a Request for Proposals for the

Internships to Promote Technology for Persons with Disabilities program.


There is a committee established to review departmental grants.

Quick Wins

The department could prorate funding in stances where the target number of clients to be served

has not been met.

The department could consider issuing a Request for Proposals for the Internships to Promote

Technology for Persons with Disabilities program.


The department could consider offering this service internally.

Chapter 5 5-A-4-6

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Review Findings

Program Self-Employment Assistance

Background

Goals

Self Employment Assistance assists eligible clients in establishing their own businesses and

becoming self-employed by providing self-employment services, such as entrepreneurship

training, customized coaching, and ongoing advice and client supports, as well as financial support

for living allowances (or extensions to EI regular benefits) and related living expenses during the

initial year of implementation.

Objectives

To assist EI eligible individuals to create jobs for themselves by starting a business.

Target Population

Insured person - an unemployed person:

(a) For whom a benefit period is established or whose benefit period has ended within the

previous 36 months; or

(b) for whom a benefit period has been established in the previous 60 months and who

(i)was paid special benefits under section 22 or 23 ( maternity or parental claim) during the

benefit period;

(ii)subsequently withdrew from active participation in the labour force to care for one or more

of their new-born children or one or more children placed with them for the purpose of

adoption; and

(iii) is seeking to re-enter the labour force.

Exceptions: as per Section 25 of the EI Act, Departmental staff may provide an "Authorization to

Quit" to an employed individual to support their participation LMDA training/employment

programs. This is the mechanism applied for all apprentices to avail of advanced training. In

some circumstances, this has also been applied to "underemployed" individuals (e.g. working 20

weeks or less; working in a job that is not related to their training/payscale).


The budget for 2011-12 - $5,368,937 [52 week maximum; 78 weeks for Persons with Disability]

The number of interventions in 2011/2012: - 341 (183 carry over interventions; 158 new

interventions; $3.184M direct client expenditures; 337 unique individuals).




The program is delivered via grants and allowance & assistance.



Agreement. Policy directives includes: Employment Benefits and Support Measures Terms and

Conditions (and associated Similarities Test); NL LMDA Policies, directives and guidelines.


Chapter 5 5-A-4-6

213

Review Findings


Recommendations N/A


Recommendations N/A

Business Process

Issues

Clients have to visit three separate service providers (EAS office, SEB

Coordinator and AES) in order to obtain funding under this program. As a

result, the current client service model is not efficient and is not convenient

for clients.

Because there are multiple service providers involved in program delivery

the monitoring is not integrated - EAS monitors the client, SEB

Coordinator monitors the business, AES monitors the financial supports.

As a result of the lack of integration of monitoring, the determination of the

adequacy of the program outcomes is more difficult.

Recommendations The department should consider alternate service delivery models which

may be more efficient and more convenient for clients.


None identified.

Quick Wins

None identified.


The department offers support for EI eligible and income support clients to start a business. The

Department of Innovation, Business and Rural Development (IBRD) has the expertise to develop

and/or assess business plans, and could deliver this program. In addition to a more effective

service delivery model, it would also result in savings currently being paid to SEB Coordinators.

Examples of Payments from Self Employment Assistance


NLOWE $676,062

Metro Business Opportunities Corp. $266,761

Gander Area Community Dev. Corp. $116,129

Community Business Development Corporation Trinity Conception $113,612

Humber Community Development Corporation $93,079

Cabot Community Business Development Corp $92,251

CBDC BURIN PENINSULA $78,363

Emerald Business Development Corporation $66,752

Gateway Community Business Development Corporation $66,247

Eastern Initiatives Community Business Development Corporation Inc. $66,008

Celtic Business Development Corporation $64,220

LONG RANGE COMMUNITY BUSINESS DEV. CORPORATION $63,956

Chapter 5 5-A-4-6

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Review Findings


South coast Community Development Corporation $63,652

CENTRAL COMMUNITY DEVELOPMENT CORPORATION $58,290

Community Business Dvelopment Corporation Labrador $52,451

Avalon West Community Development Corporation $52,193

Nortip Development Corporation $45,321

CENTRAL COMMUNITY DEVELOPMENT CORPORATION $29,531

Emerald Business Development Corporation $25,894



Chapter 5 5-A-4-7

215

Review Findings

Program Employment Counseling

Background

Goals

To provide employment counseling where individuals participate in a client centred employment

planning process through which they may access a continuum of employment readiness, job search

and employment maintenance interventions (programs and services) both internal and external to

support their increased attachment to the labour market.

Objectives

To provide employment counseling services.

Target Population

Non EI Eligible individuals.


Regional services budget allocation.

Approximate number of clients served in 2011-12:

Enhanced Screening and Assessment: 3,284; and

Minimum of one counseling session: 3,000.

The program is delivered by:

Career Development Specialists province-wide for counseling only;

For employment planning both Client Service Officers and Career Development Specialists

Province-wide; and

Client Service Managers approve all plans and Provincial Office - Program Consultants and

Provincial Mangers provide program development and policy support.



Policy Issues The work performed for non-EI eligible individuals by departmental staff is

the same as the work performed by staff at the EAS offices for EI eligible

individuals. This results in:

AES clients having to go to multiple service sites to access services;

and

Because AES staff are only responsible for the funding component of a

RTWAP for EI eligible individuals, they do not have the opportunity to

ensure labour market priorities were considered.

Chapter 5 5-A-4-7

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Review Findings

AES has not determined a minimum service level required for

employment counseling. Furthermore, there is no mechanism in place to

determine the level of service provided by EAS offices relative to the

service offered by the department with regards to employment

counseling.

Recommendations The department should consider the use of EAS offices and whether this

service is required.

The department should determine a minimum service level required for its

employment counseling and ensure an appropriate level of service is offered

by EAS offices.


Recommendations N/A

Business Process

Issues

Because the CSMS and CAPS systems are not integrated, information

necessary to determine the program outcomes is not readily available.

Although AES has responsibility to offer employment counseling services

to individuals through its various divisions, the department has not

developed a standard approach to employment counseling for all client

populations to help ensure consistency within the department. As a result,

employment counseling services may vary among department divisions.

The department does not have a formalized process to capture labour market

information on supply and demand and determine departmental funding

priorities which should then be communicated during the employment

counseling process.

There are situations where two Return To Work Action Plans (RTWAP)

may be prepared for an individual to access funding. For example, although

a RTWAP may be prepared for an LMDA client and recorded in the federal

CSGC system, if that individual requires funding from a CEYS program

another RTWAP has to be prepared because CEYS staff do not have access

to the CSGC system and vice versa. This results in frustration for clients and

duplication of effort for staff.






services.

Although the department has 12 certified trainers in career counseling who

Chapter 5 5-A-4-7

217

Review Findings

have trained 68 front line staff to date, because the department has not

developed a formalized training plan, it is not possible to determine if the

extent of training provided is adequate.



The department should consider development of a common, coordinated

employment counseling process.

The department should capture up to date and anticipated labour market

information on supply and demand and provide it to staff to use in the

employment counseling process.

The department should consider allowing staff access to all systems to

ensure that duplication of work and effort is minimized.




The department should develop a formal training plan for staff and ensure

that the certified career practitioners who are trained as trainers are utilized

effectively.



Quick Wins

The department has a team of trainers who are able to provide the training necessary for staff to be

certified as career practitioners. Currently, 80 staff are certified and it would be necessary to

identify other staff requiring this training and to what extent.




Chapter 5 5-A-4-8

218

Review Findings

Program Community Partners – Employment Development Supports (EDS)

Background

Goals

Funding provided to not for profit agencies to deliver career and employment services to various

client groups. To assist clients attain and maintain employment.

Objectives

Assist individuals to prepare for, attain and maintain employment. Initiatives respond to gaps in

services and individuals identified needs and barriers to participation. Projects support labour

market and strategic directions of government.

Target Population

29 agencies funded to service client groups age 18 and over.


The budget for 2011-12 - $5,600,000. Anticipated clients served annually 2,100.

This program is delivered via grant based funding. Funded expenditures can include salary, rent,

utilities, and stipends.

Departmental staff:

Provincial office: 2 staff, a Manager and a Consultant. Regionally, Avalon region: 1. Other

regions have a combined position for CEYS programs.




Policy Issues Although the mandate of the department has changed, because 3rd

party

agencies continue to be funded annually without reference to the current

mandate and as a result funding is provided for initiatives which no longer

align with the current mandate.

The current Accountability Framework does not require funded agencies to

provide information necessary to assess whether the program is meeting

the desired outcomes.

Recommendations Programs funded to 3rd

party agencies should be aligned with the

department’s current mandate.

The Accountability Framework should be revised to ensure that 3rd

party

agencies provide the information necessary to assess outcomes.

The department should undertake a review on a contract by contract basis

to determine if the contract meets the current departmental mandate.


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Review Findings

Recommendations N/A

Business Process

Issues

Historically, the department has been more reactive than proactive and as a

result has funded many projects proposed by 3rd

party agencies vs. being

proactive and identifying the department’s priorities and having a call for

proposals to identify the most suitable 3rd

party agency to deliver a project.

Once a 3rd party agency is approved for funding, historically the

department continues to provide funding on an annual basis to that agency

without regard for the continued need for the program. Therefore, new

initiatives which may have more merit cannot be funded because the

existing budget is committed to maintain current contracts. Currently

funding is provided in the context of “Once you’re in, you’re in.”

A number of 3rd

party agencies have multiple contracts with the

department. As a result, agencies receive administration fees for each

contract, staff have to process and monitor multiple contracts, and because

multiple staff may be involved in the process it is more difficult for the

department to ensure that no duplicate funding is provided e.g. bookkeeper


Recommendations The department should be proactive in identifying programs required in

order to meet its mandate and have a call for proposal process to provide a

level playing field to all potential organizations and award the contract on a

merit basis.

The department should take into consideration its current mandate to assess

the relevance of programs. Furthermore, programs should be assessed

relative to each other to determine which ones are to be funded on a

priority basis.

The department should develop a formalized process where all funding

provided to 3rd

party agencies is assessed to ensure that no duplicate

funding is provided.


A committee has been established to review all 3rd

party grants.

Quick Wins

Additional contract requests could be incorporated into existing contracts via amendments to avoid

duplicate administration funding.


An analysis of all contractual agreements will be required to determine if there are similar or

duplicate mandates, goals and objectives with contracts administered by other divisions within the

department as well as by other government departments.

The department should consider having one contract per 3rd

party agency and add any additional

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Review Findings

programs through a mechanism such as either an amendment to the contract or creating an

oversight role to ensure efficient administration and avoid duplication of funding for the same

service.

Examples of Payments from Community Partners


STELLA BURRY COMMUNITY SERVICES 2,430,819.00

BR T I MURPHY LEARNING RESOURCE CENTRE 1,603,596.00

CHOICES FOR YOUTH INC 1,142,446.00

SINGLE PARENTS ASSOCIATION OF 642,863.00

ST JOHN'S STATUS OF WOMEN COUNCIL 562,802.00

WOMEN INTERESTED IN SUCCESSFUL 400,415.00

LABRADOR FRIENDSHIP CENTRE 329,637.25

METRO BUSINESS OPPORTUNITIES 323,187.00






TRANSITION HOUSE ASSOCIATION OF NL 161,727.00

COMMUNITY MENTAL HEALTH INITIATIVE 147,370.00

VICTORIAN ORDER OF NURSES 134,000.00

EASTERN REGIONAL INTEGRATED HEALTH 131,372.00


WOMEN IN RESOURCE DEVELOPMENT 106,881.00

BURIN PENINSULA CHAMBER OF COMMERCE 104,460.00

EVERGREEN ENVIRONMENTAL CORP 104,400.00

CENTRAL WEST COMMITTEE AGAINST 80,000.00

HOPE HAVEN 74,675.00

EMPLOYMENT PREPARATION INC 67,195.00

REGIONAL ACTION COMMITTEE ON HOUSING 67,060.00

BURIN PENINSULA BRIGHTER FUTURES 64,230.00


MARINER RESOURCE OPPORTUNITIES 61,340.00

COMMUNITY EDUCATION NETWORK 61,235.00

EXPLOITS VALLEY COMMUNITY COALITION INC 60,070.00


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Review Findings


CBDC TRINITY CONCEPTION 52,500.00


EXPLOITS COMMUNITY ASSOC INC 50,000.00

LONGSIDE CLUB 20,000.00

STATUS OF WOMEN-CENTRAL INC 10,000.00

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Review Findings

5-A-5 Income Assistance

Income assistance is designed to provide financial benefits to eligible low income people to assist in

meeting daily living expenses.


2011-12 were identified as being part of the “Income Assistance” category.

5 Income Assistance

11/12 Budget

($M's)

11/12 Actuals

($M's) Reference

1 Income Support Program Administration IS 1.210 1.245 5-A-5-1

i) Basic Benefits IS 195.201 190.718 5-A-5-1-i

ii) Emergency Assistance IS 2.055 2.055 5-A-5-1-ii

iii) Special Needs/Other Benefits IS 13.434 12.711 5-A-5-1-iii

2 Health Related Benefits IS 15.823 13.130 5-A-5-2

3 Mother Baby Nutritional Supplement IS 0.420 0.303 5-A-5-3

4 Newfoundland and Labrador Child Benefit IS 0.600 0.600 5-A-5-4



Total Income Assistance Programs 4 228.742 220.762

* 3rd Party Grants

The following charts illustrate the proportion of the 4 Income Assistance programs relative to the


analysis process.

Income Assistance,

228.742


Income Assistance,

4


Chapter 5 5-A-5

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Review Findings



IS, 4

Income Assistance Programs


IS, 228.742

Income Assistance Budgets (in $M's)


A number of issues were identified during the review of the 4 programs in the income assistance

category. The issues related to level of supports, types of benefits and administrative practices are

categorized in the following three themes:





As at May 2012, there were 24,794 income support cases – details of the distribution of case load by

individual and region is included in the following charts:

Income Support Caseload

By Individual Type

As at May of Each Year

Category 2012 % 2011 % 2010 % 2009 %

Single Person 16,290 66 16,356 65 15,852 63 15,073 62

Couple without Children 2,323 9 2,411 10 2,514 10 2,562 11

Couple with Children 1,217 5 1,335 5 1,495 6 1,410 6

Single Parent 4,963 20 5,172 20 5,312 21 5,132 21

Refugees 1 - 1 - 1 - 3

Total 24,794 100 25,275 100 25,174 100 24,180 100

As the table shows, while the overall caseload has been fairly constant over the past four years, the

number of single persons on the caseload is increasing.

Income Support Caseload

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Review Findings

By Region

As at May of Each Year

Region 2012 % 2011 % 2010 % 2009 %

Avalon 12,609 51 12,893 51 12,908 51 12,437 51

Central 6,537 26 6,727 27 6,614 26 6,322 26

Labrador 833 3 754 3 773 3 734 3

Western 4,815 20 4,901 19 4,879 20 4,687 20

Total 24,794 100 25,275 100 25,174 100 24,180 100

As the table shows, the regional distribution of caseload has been fairly constant over the past four

years.

While the current Income Support Program provides incentives for individuals to commence work,

there are no incentives for individuals to make a full attachment to the labour market and

subsequently terminating reliance on income support benefits. This has been evidenced by clients

indicating that it does not make economical sense for them to accept full-time employment at

minimum wage. (e.g. single father with two children). Until the current income entitlements and

employment support incentives are addressed, the department will continue to experience difficulties

with achieving its ultimate goal of attaching income support clients to the labour market.


Presently there is no province wide standard approach to the administration of income support

benefits. Instead, AES has a combination of case based and service based delivery models. In a

service based model, the needs of an individual are not assessed and monitored by a particular

person; instead, the client can be served by any one of a particular group assigned responsibility for a

program. In a case based model, it would be expected that a client’s needs be addressed by one

individual and that there is an intervention plan developed for each client.

Details on regional income support administration are as follows:

Avalon Region

The region operates primarily from a service based delivery model with case based delivery for

specific client populations such as individuals with complex needs and working income support

clients.

With the use of a service base delivery model, there is no requirement for a plan to address the

clients barriers to employment and identify interventions to assist individuals make a labour market

attachment. With a service based delivery model no one employee is accountable for the benefits

provided to income support clients.

When documentation or other information is not available at the time of processing a transaction, the

system allows for the recording of a Keep in View (KIV) designed to make note of the issue and

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Review Findings

ensure that it is followed up. However, in a service based delivery model, no one person is

responsible for a client file which reduces accountability and undoubtedly contributes to the large

number of KIVs which currently remain unresolved in the CAPS system.

Central and Western Region

These regions operate primarily from a case based delivery model with service based delivery for

specific client populations. For example, the Central Region utilizes a service based model for

medical transportation requests while the Western Region uses service based for EAS. The regions

also utilize Screeners (CSO GS-34) to handle general inquiries from income support clients and

either address the inquiry or forward the call to another CSO (GS-34) to resolve.

Although these regions use a cased based delivery model which should include an intervention plan,

no such plan is developed. It is questionable as to whether the CSO resource is being appropriately

utilized in the screening and transfer of client inquiries to another CSO.

Labrador

The region operates primarily from a case based delivery model based on geography. The region

utilizes (1 Administrative Officer [GS-30], 6 Clerk Typist III [GS-24]) to handle general inquiries

from income support clients and either address the inquiry or forward the call to the case manager

(CSO GS-34) to resolve. Although the region uses a case based delivery model which should

include an intervention plan, no such plan is developed.

Other program administration issues identified during the review of Income Assistance Programs are

as follows:

With the exception of the email account which has a standard 24 hour turn around time, the

department does not have any formalized service standards. As a result, it is not possible to

determine the efficiency of services provided.

Staff indicated that KIVs in the income support database continue to accumulate without the

required action because they do not have time to address them. As at 7 November 2012, the

following KIVs were in the system and required staff action:

Income Support CEYS Total

With PAU for waiting verification 104,462 2,044 106,506

Pending CSO action 68,304 3,536 71,840

Total KIVs 172,766 5,580 178,346

It is noted that these numbers are steadily increasing as a result of the lack of staff action.

The use of CSOs (GS-34) for telephone screeners in two regions (Central and Western) results

in the lack of utilization of the CSO skill set.

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Review Findings

The department has not been effective in transitioning income support clients from income support

to an attachment to the labour market. This situation can be attributed to a number of factors:

The department has not adopted a formalized case management model to assist clients make a

labour market attachment.



them to obtain full-time employment and either transition from income support or reduce

income support requirements. As at September 2012 there were 723 clients who, while

currently working, required income support. Furthermore, not all clients referred to CEYS are

seen by CEYS staff. For example, during the period October to December 2011 inclusive, there

were 797 applications for income assistance involving 873 adults. Ultimately, 670 individuals

received income assistance. The following occurred:

468 (70%) of the 670 individuals who received income assistance were not referred to

CEYS; however, 77 (16%) were already CEYS clients and 118 (25%) became new

CEYS clients – even without referral. Therefore, 273 (41%) of the 670 individuals were

neither referred to CEYS nor seen by CEYS staff.

202 (30%) of the 670 individuals were referred to CEYS; however, 55 (27%) were not

seen by CEYS staff, 102 (50%) became new CEYS clients and 45 (22%) were already

CEYS clients.

In summary, of the 670 individuals who received income assistance, 328 (49%) (273 not

referred to CEYS and 55 referred to CEYS) were not seen by CEYS staff.

There is no formal connection between the income support programs and the department’s

employment/training services. Currently, when referrals are sent from the Income Support

Division to the CEYS Division for employment assistance, the Income Support Division is not

made aware of the results of the referrals (e.g. whether a referral was actioned, the planned

intervention and the outcome). As a result, there is a disjointed approach to assisting income

clients to make a labour market attachment.

When a client applies for income support, the division currently completes a financial needs

assessment to determine eligibility for financial supports. The division does not capture

information that would be expected for a more comprehensive screening and assessment

process whereby the client’s current barriers to employment are identified. As a result, the

department has limited ability to identify barriers to employment and develop responsive

programs to address those barriers and move income support clients to the labour market.

This situation also results in a potential duplication of effort and frustration for the client when

they are referred to another departmental program e.g. CEYS or LMDA and have to provide

basic information again.

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Review Findings

There are issues with the Income and Employment Support Act which make it difficult for staff to

transition clients from income support to a labour market attachment. For example:

there is no authority for staff to make mandatory referrals;

income Support clients who have a breach in assistance for more than 30 days are required, by

legislation, to reapply for benefits if they have to return to income support. As a result, clients

have to go through the intake process again which is considered a disincentive to attempt a

labour market attachment; and

there are no consequences for clients who do not attend scheduled appointments. Recently, the

office attempted a youth engagement initiative whereby income support clients were contacted

and asked to visit the local office to discuss job prospects. The following outlines the results:

Office Sample Contacted Responded Visited Office

Corner Brook 65 51 4 3

Gander 32 9 3 2

Duckworth Street 111 111 8 3

Grand Falls-Windsor 42 23 8 1

St. Alban’s 19 3 2 2

Happy Valley-Goose Bay 19 14 5 0

Wabush 6 6 2 0

Total 294 217 32 11

% of Sample 100% 73.8% 10.9% 3.7%

As the information shows, the results of the initiative were dismal.

There are inconsistent Supplementary benefits to income support clients within and across regions,

as a result of:

interpretation of policy and procedure (e.g. staff indicated that the policy on medical

transportation is “grey” which results in inconsistent interpretations and inconsistent benefits to

clients); and

differences in service delivery models among regions. While the Avalon region operates on a

service based model for the majority of its clients, the other three regions operate on a case

based model for the majority of their clients. In a service based model there is no client

ownership and, as a result, there is no particular staff accountable.

Staff indicated that there are clients who request emergency assistance on a regular basis and, as a

result, emergency assistance may be misused by providing benefits in excess of regular benefits. It

was identified that:

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Review Findings

income support CSOs determine the amount of emergency assistance to be provided and

whether the amount should be considered as an overpayment and recovered from the

individual. As a result, even within existing guidelines, there can be differences in the

amounts provided to clients in similar circumstances and whether a client has to repay the

emergency assistance;

there is no requirement for CSOs to meet with income support clients who have multiple

requests for emergency assistance. Such a meeting would determine underlying issues and

possible interventions required to address the numerous requests for emergency assistance;

the department is not monitoring the use of emergency assistance and could not readily provide

details on the use of emergency assistance; and

the department is responsible for providing dietary supplements (e.g. Boost) to income support

clients and is required to obtain the products from Eastern Health. The arrangement sometimes

results in clients not receiving their dietary supplements when they are required because the

Corporation has set delivery schedules. When clients do not receive their dietary supplements

they contact AES staff who are then required to issue emergency assistance. This can be a

cumbersome process which can also result in poor client service and unnecessary costs.

The department has a Service Delivery Improvement Team to review items such as business

processes and make recommendations. Staff indicated that income support recommendations of the

Team are not always implemented on a timely basis. Furthermore, when recommendations are

actioned, there is no formal process for monitoring the effectiveness of the change.


Significant systems and tracking issues were identified during the income assistance review and are

summarized as follows:

Because CAPS has a dollar threshold which cannot be exceeded, CSOs are required to

complete multiple service authorizations in order to commit the appropriate funds. This results

in a waste of CSO time.

Client Service Managers (CSMs) are required to run reports to monitor programs; however,

there is no automated process to provide managers with the reports they require. This is a

complicated and time consuming process and impacts the manager’s ability to adequately

monitor programs. There is also an increased risk that managers, due to competing demands,

may miss a report deadline which can result in reduced client service.

The department has to provide eligibility confirmation to the Department of Health on a

number of benefits because the Department of Health does not have access to CAPS. As a

result, staff at AES are involved in a time consuming confirmation process that could be

handled by staff at the Department of Health.

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Review Findings

The department has developed an internet reporting system, The Online Mailback System

(TOMS), for clients to provide verification of income necessary to determine the amount of

income support the client may be eligible for. However, TOMS is not currently being used to

manage clients with fluctuating non-employment income (e.g. child support), and clients with

no income on non-recurring pay (e.g. persons waiting to obtain necessary documentation).

Furthermore, TOMS has not been assessed for its applicability to other programs such as

Employment Transitions.

Currently, CSOs in the Avalon Region have to use a Taxi Confirmation Number (TCN) to

authorize a client’s medical transportation with a service provider because they cannot obtain a

service authorization from CAPS. A service authorization number from CAPS can only be

generated after a Pay Authorization Unit (PAU) person verifies the request in CAPS. As a

result, there is a duplication of effort in obtaining a TCN and the service authorization number.

The current process/workflow is complicated and service providers often have to wait for

payment of services provided. For example, a CSO in the Avalon Region can authorize a taxi

with the issuance of a Taxi Confirmation Number (TCN) and at the same time request a service

authorization in CAPS that has to be approved by the Pay Authorization Unit (PAU). The

service authorization is then printed and mailed to the taxi company and returned by the

company along with the TCN and invoice for payment. The TCN is required because a CSO

cannot readily obtain a service authorization number.

The current policy and procedure manual does not have an electronic search engine to assist

staff in the work.

The department’s current telephone system has limitations in that:

calls cannot be transferred across regions and in some instances within regions; and

there is no ability to have multiple skill set transfers among the phone queues.

Currently, only approximately 28% of income support clients are utilizing direct deposit. The

use of direct deposit would reduce workload, avoid mail disruption, improve delivery, and

reduce costs.

CAPS is not being used to administer the Mother Baby Nutritional Supplement (MBNS)

benefit. As a result, separate cheques have to be issued for the benefit even though it could be

included, for income support clients, on their bi-weekly cheques.

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Review Findings

MBNS overpayments are not recorded as recoverable amounts. This situation can be attributed

to payments for the prenatal component being made outside of CAPS and, therefore, there is no

readily available mechanism to record and collect overpayments.

AES has an “on-call” system for after hours income support client service. The overnight on

call (12am-8am) staff do not have access to AES systems, i.e., CAPS and TRIM. As a result,

information is not available when assessing requests and any requests approved have to be

entered in CAPS on the following business day. AES is uncertain whether the current model

for on-call is the most efficient and effective means of delivering 24 hour service to clients.

The current telephone model for on-call involves costs for two systems, i.e., Telelink and Bell

ACD (Automatic Call Distribution) technology. It appears that both are not required to deliver

the on-call service.

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Review Findings

Program Income Support – Program Administration (Monthly Benefits)

Background

Goals

To provide financial support and services to individuals and families with low or no income to

meet their basic needs for food, shelter and health related support. The goal is also to identify and

address barriers to employment and provide positive conditions from which income support

recipients become employed or acquire other income sources to maintain themselves and their

families.

Objectives

Income Support Program provides:

Financial assistance with daily living

Assistance to move from Income Support to employment

Assistance to secure spousal and child support

Assistance to provide a safe and secure environment for persons leaving violent family

situations

Financial support to low income families/individuals through the Newfoundland and

Labrador Child Benefit and the Mother Baby Nutrition Supplement

Flexibility through health, additional, emergency and special needs benefits to meet the needs

of recipients who require special consideration due to exceptional circumstances

Determination of financial eligibility for other services such as hearing aids, drug card and

dental coverage, medical supplies and equipment for clients provided by partner departments

Response to emergency and disaster situations in partnership with FES-NL and community

agencies

Target Population

Any Canadian citizen, including a temporary resident or a refugee protection claiment; who is an

adult (18 and over) residing in Newfoundland and Labrador, regardless of the length of time, may

apply for Income Support benefits.

Total income support cases:

May 2012 - 24,794

Distribution of cases May 2012:

Single person - 16,290

Couple without children - 2,323

Couple with children - 1,217

Single parent - 4,963

Refugees - 1

Distribution of income support cases by regions May 2012:

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Review Findings

Avalon - 12,609 percentage 50.9%

Central - 6,537 percentage 26.4%

Labrador - 833 percentage 3.4%

Western - 4,815 percentage 19.4%


The Income Support Program administrative budget for 2011/12 - $1,210,000.

The Income Support budget is demand driven and notional budget allocations are assigned to

benefits and service components. If expenditure demand for a particular benefit extends beyond

the allocation, a review is conducted to review the application of the policy and when confirmed,

funding is reallocated from other budget areas.

Provincial Budget for the Income Support Program 2012/13 - $233,093,500.

The Income Support budget is demand driven and notional budget allocations are assigned to

benefits and service components based on program expenditures and caseload dynamics. If

expenditure demand for a particular benefit extends beyond the allocation, a review is conducted to

review the application of the policy and when confirmed, funding is reallocated from other budget

areas.

In addition to basic benefits for food, clothing, utilities and shelter, there are supplementary

benefits available depending upon eligibility criteria such as: Drug Cards, Medical Transportation,

Vision Care, Hearing Aids, Medical Equipment, Blind Persons Supplement, Orthotic/Prosthetic

Items, Medical Supplies, Food distribution program, Medical gases/respiratory therapy, Artificial

eye, Diets, Burials, Furniture, Housekeepers allowance, Paternity testing, Fumigation, Medical

alert bracelets, Special clothing, Coastal Labrador supplement, Septic tank cleaning,

Employment/training benefits, Non medical transportation, and Refugee claimants benefits.

Administered by 375 regional staff and 16 provincial office staff (7 are related to EAS

administration).


Income Support Act and Regulations.


Policy Issues There may be opportunities to improve the current policy related to

entitlements such as vision care and medical transportation which could

improve and streamline the delivery of benefits.

Recommendations AES should review all policies related to the delivery of benefits and

ensure that the most streamlined process is in place.

Legislative Issues Income Support rates are legislated and reviewed annually as part of the

department’s budget process. However, staff have identified issues with

such things as the current maximum rates for rent ($522 maximum monthly

family rate), allowable rate for security deposits can also cause issues for

clients in today’s rental market.

The legislation distinguishes between an applicant and a recipient, when

initially accessing the program in that benefits such as additional rent and

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Review Findings

special diets are not factored into the eligibility assessment, though a 40%

eligibility adjustment is provided.

Although the department can refer clients for employment services, the

current legislation has the following limitations:

It does not provide the authority to require clients/applicants to

participate as a condition of receiving benefits; and

There are no consequences for clients who do not attend scheduled

appointments/participate in these services.

Recommendations AES should have legislative capacity and budgeting flexibility to ensure

that rates for such expenditures as rent are adequate in the context of

current market conditions. This is subject to the budgetary process and

there is no provision to increase funding for shelters unless approved. One

recommendation could be to implement a rental rate structure based on

regional market rates – other jurisdictions don’t have this, remember costs

more to rent in St. John’s as opposed to Picadilly.)

The department should consider whether it is appropriate to permit the

inclusion of other ongoing requirements in the determination of eligibility

upon application. This will mean more people being eligible; the 40% was

supposed to simplify this.

The department should consider the adequacy of the current legislation and

determine whether changes are required to ensure more active measures

towards training and employment.

Business Process

Issues

There are inconsistent Supplementary benefits to income support clients

within and across regions, as a result of different interpretation of policy

and procedure.

Differences in service delivery models between regions. While the Avalon

region operates on a service based model for the majority of its clients, the

other three regions operate on a case based model for the majority of their

clients. In a service based model there is no client ownership and as a

result there may be an issue with accountability. However in the current

case base model found throughout the province with caseloads of 400+,

accountability may also be an issue.

The current policy and procedure manual should have an electronic search

engine.

The department has not aggressively promoted moving income support

clients from income support to an attachment to the labour market. There

are a number of contributing factors; traditionally employment

opportunities were limited in many communities, there has been no

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Review Findings

legislation mandating clients to participate, and the current process has

been a passive response in all areas.


Offices within and across regions cannot share queues/calls as a result

we cannot share resources to support incoming call traffic.

Calls cannot be routed to staff based on staff skill sets, calls are routed

to queues where they are answered by the next available worker who

may not be best skilled for that call.

Staff can only be assigned to one queue at a time, a worker could be

waiting for a call to come into their queue while in another queue there

may be calls waiting to be answered.

Assigning staff to different queues is a manual process and requires

close monitoring and manual intervention.

Limited self-management capability, we are still dependent on the

vendor for many changes to our phone configuration eg. Changes to

menu options and schedules for office closures. Each change

requested in the system requires a work order and is an additional cost

to the department.

Limited call monitoring capability, no ability to record calls for quality

assurance or training purposes.

With the exception of the email account which has a standard 24 hour turn

around time, the department no longer has formalized service standards. It

is critical that standards are developed and are measureable to determine

efficiency of service provided.

KIVs in the income support database continue to accumulate unactioned

because staff do not have time to address them.

The use of screeners (CSO - GS 34) in two regions (Central and Western)

results in the lack of utilization of the CSO skill set.

The current application for income support is a financial assessment for

income support eligibility and does not assess the client’s employability. A

separate process is in place to determine this need and the two processes

should be combined into one application for service.

Currently, only 28% of income support clients are utilizing direct deposit.

The use of direct deposit would reduce workload, avoid mail disruption,

improve delivery, and reduce costs.

Recommendations of the Service Delivery Improvement Team relating to

Income Support are not always approved and/or implemented on a timely

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Review Findings

basis.

The current process/workflow around payment of invoices is complicated

and service providers often have to wait for payment of services provided.

For example, approval for a taxi trip in Avalon requires a manual

authorization number (TCN) while awaiting a verified SA # in order to

ensure the timely approval of transportation for a client. This is additional

work required by staff.

Recommendations AES should ensure that staff interprets policies and procedures consistently

in order to provide consistent benefits to income support clients. A

communication process for clarifying policy to all regions would also assist

with providing consistent service to clients.

The department should consider a standardized approach for the delivery of

income support in all regions, i.e. service based or case based or a

combination of both.

The implementation of an electronic search engine for policy and

procedure manual would assist in ensuring consistency.

The department should ensure that there is adequate communication and

direction to all staff to ensure a team based approach is applied to promote

an attachment of all appropriate clients to the labour market.

New telephone system is required to allow for more flexibility and a

contingency plan for service in cases of unexpected events.

The department should consider developing consistent service standards

and a process for monitoring and reporting on results.

The department should consider the ability of current staff to action KIVs

and determine whether either more resources are required, or whether the

KIV process could be modified. The department needs to decide on an

appropriate response protocol for callers; whether CSO’s or other staff

should be providing these services

The department should review the current application for income support

in view of developing and application for service approach, to include

capturing information on client’s employability.

The department should take initiatives to increase the utilization of direct

deposit.

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Review Findings

Recommendations should be reviewed on timely basis and where

appropriate monitored to determine whether they are operating as intended.

The department should consider ways to make payment processing less

complex and address the use of such things as a Taxi Confirmation

Number (TCN) – can CAPS generate a service authorization number prior

to being approved by PAU.


There is a Service Delivery Improvement Team in place which includes divisional and regional

representation.

Quick Wins

Improve communication and sharing of information between income support and other

departmental divisions.

Implement mandatory direct deposit for new and reopened cases as Phase 1 which is currently

underway. Phase 2 would target existing cases.

Implement a search engine for the current policy and procedure manual.

Elimination of any unnecessary phone systems currently in use for on call services.


There is an opportunity to streamline operations for certain benefits/services such as a centralized

provincial application unit, medical transportation, and health unit.

The current payment processing cycle for invoices (particularly time sensitive requests for medical

transportation) is complex and could be considered for streamlining.

AES should determine whether on call services from 12am-8am are required and whether they

could be outsourced.

Program Basic Benefits

Background

Goals & Objectives:

Provide financial assistance for daily living expenses.

Target Population:

Any Canadian citizen, including a temporary resident or a refugee protection claimant; who is an



Total income support cases: May 2012 - 24,794





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Review Findings


Refugees - 1







Part of the Income Support budget for 2011-12 - $195,201,000.

Program is delivered by 20 offices located in all four regions of the province.

This program is delivered via allowances & assistance.


Income Support Act and Regulations


Policy Issues None identified specific to Basic Benefits.

Recommendations N/A

Legislative Issues Current rental rates may not meet clients’ requirements given the current

economic environment.

Recommendations AES should review the adequacy of the current rental benefits rates.

Business Process

Issues

None identified specific to Basic Benefits.

Recommendations N/A


None identified

Quick Wins

None identified.


None identified.

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Review Findings

Program Emergency Assistance

Background

Goals

To address situations when emergency income support benefits can be provided to an

applicant/recipient to address an emergency situation.

Objectives

Emergency Income Support Benefits can be provided to recipients/applicant to meet an immediate

need, or where there is otherwise no eligibility for basic income support benefits. Emergency

income support benefits can be provided to stranded and homeless individuals, victims of violence,

those awaiting determination of eligibility or current clients who have exhausted all resources.

Target Population

Any individual in an emergency situation or to ensure the immediate health, safety or well-being

of an individual or family.


The budget for 2011-12 - $2,055,000

4,275 clients served in 2011

The program is administered by CSOs across the province

This program is delivered via Allowances and Assistance




Policy Issues Emergency assistance may be misused by providing benefits in excess of

the regular benefits. Staff have indicated that there are clients who request

emergency assistance on a regular basis.

Income Support CSOs determine the amount of emergency assistance to be

provided and whether the amount should be considered as an overpayment

and recovered from the individual. As a result, even with existing

guidelines, there can be differences in the amounts provided to clients in

similar circumstances and whether a client has to repay the emergency

assistance.

Recommendations Staff have to continue to be mindful of patterns by individuals requesting

emergency assistance.

The department should determine whether there is a more consistent

approach to determine the amount of emergency assistance to be provided

to a client and whether the amount has to be repaid.

Legislative Issues Clients have indicated that the income support rates are not always

sufficient to meet their basic needs and are therefore forced to seek


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Review Findings

Recommendations The department should consider whether the current income support rates

are sufficient to meet client basic needs.

Business Process

Issues

There is no requirement for CSOs to meet with income support clients who

have multiple requests for emergency assistance. Such a meeting would

determine underlying issues and possible interventions required to address

the numerous requests for emergency assistance.

Recommendations A review of emergency assistance usage should be undertaken to determine

the extent to which it is issued, any patterns of use by client, by

circumstances and if it is issued during regular business hours, by regular

on call staff, or by overnight on call staff.


There is a Program Integrity team and Service Delivery Improvement team.

Quick Wins

The department should determine whether there is a more consistent approach to determine the

amount of emergency assistance to be provided to a client and whether the amount has to be

repaid.


None identified

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Review Findings

Program Special Needs/Other Benefits

Background

Goals:

Additional items of Special needs to support the well being of an applicant or recipient.

Objectives:

Flexibility through additional, emergency and special needs benefits to meet the needs of

recipients who require special consideration due to exceptional circumstances. Services provided:

i) Burials

ii) Furniture

iii) Housekeeping allowance

iv) Paternity testing

v) Fumigation

vi) Medical Alert bracelets

vii) Special clothing/bedding

viii) Coastal Labrador supplement

ix) Septic tank cleaning

Target Population:

Any Canadian citizen, including a temporary resident or a refugee protection claimant; who is an



Total income support cases: May 2012 - 24,794






Refugees - 1







The budget for 2011-12 - $13,434,000.

Program is delivered by 20 offices located in all four regions of the province.

This program is delivered via allowances & assistance.


Chapter 5 5-A-5-1-iii

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Review Findings



Policy Issues Childcare can only be paid if a client is either working or attending

training. As a result, there is no means to provide childcare benefits to

income support clients who, for whatever reason, e.g. job search or surgery

are not capable of caring for their child(ren).

Recommendations AES should review policy to determine whether childcare needs could be

addressed for income support clients.

Legislative Issues Some rates may not provide sufficient funds to meet client’s special needs,

one example of this is the $298 monthly allowance for housekeeping which

often does not meet the needs for clients. Recommendations AES should review the adequacy of the current special needs rates,

specifically, the allowance for housekeeping.

Business Process

Issues

The housekeeping allowance has had issues in that amounts paid are not

consistent across regions.

Recommendations The department should ensure that staff are aware of the application of the

housekeeping allowance and the amount that can be provided.


None identified

Quick Wins

None identified.


None identified.

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Review Findings

Program Health Related Benefits

Background

Goals & Objectives

To provide financial assistance and /or confirmation of eligibility for health related benefits.

Health related benefits for income support clients* (paid by the AES Budget) include:

Medical transportation (within and out of province);

Vision care;

Special Diets;

Blind persons supplements; and

Dietary Supplements (e.g. Boost);

*Non income support clients can also apply for medical transportation and vision care and be

assessed by AES

Health related benefits provided by HCS to income support clients include:

Prescription Drug coverage;

Dental Services

Dentures

Medical Supplies;

Oxygen;

Medical Equipment; and

Food distribution program

In addition to the above list, HCS also provides the following items to income support clients

without a further financial assessment, but AES is required to complete the financial assessment

for non IS clients:

Hearing Aids

Orthotic/Prosthetic items

Target Population

These benefits are available to all income support clients who meet the criteria for the items listed.

Non-income support clients can apply to AES and undergo a needs test for vision care, medical

transportation, prosthetics, orthotics and hearing aids. Non-income support clients requiring

medical equipment and supplies, or the food distribution program apply directly to HCS via an

income test. Denture services for non-Income Support clients are based on eligibility for specified

NLPD programs.


The program budget for 2011-12 - $15,823,000.

Total income support cases as of May 2012:24,794

The program is administered by income support CSOs.

Chapter 5 5-A-5-3

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Review Findings

This program is delivered via allowances and assistance.




Policy Issues The department has a Service Delivery Improvement Team to review items

such as business processes and make recommendations. Staff indicated that

income support recommendations of the Team are not always implemented

on a timely basis. Furthermore, when recommendations are actioned, there

is no formal process for monitoring the effectiveness of the change.

The policy on medical transportation is “grey” which results in inconsistent

interpretations and inconsistent benefits to clients. The policy is not

standardized and takes into account regional differences in terms of

available public transportation, location of medical facilities and other

factors. While this provides some flexibility, it also results in inconsistent

interpretations and application of policy to clients across the province.

Each region is responsible to determine which trips are covered in their

area, and to also determine the most economical means.

Recommendations The department should ensure that recommendations of the Service

Delivery Improvement Team are considered and implemented on a timely

basis.

The department should consider whether inconsistent interpretation and

inconsistent benefits relating to medical transportation is acceptable.

Legislative Issues N/A

Recommendations N/A

Business Process

Issues

The department has to provide eligibility confirmation to the Department

of Health and Community Services (HCS) on a number of benefits because

certain field staff within HCS do not have access to CAPS. As a result,

staff at AES are involved in a confirmation process that could be handled

by the Department of Health staff.

Currently in the Avalon region CSOs have to use a Taxi Confirmation

Number (TCN) to authorize a client’s medical transportation with a service

provider because they cannot obtain a service authorization from CAPS. A

service authorization number from CAPS can only be generated after a

PAU verifies the request in CAPS. As a result, there is a duplication of

effort in obtaining a TCN and the service authorization number.

AES is responsible for providing dietary supplements (e.g. Boost) to

income support clients and is required to obtain the products from the

Chapter 5 5-A-5-3

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Review Findings

Health Care Corporation. The arrangement sometimes results in clients not

receiving their dietary supplements when they are required because the

Corporation has set delivery schedules. When clients do not receive their

dietary supplements they contact AES staff who are then required to issue

emergency assistance. This can be a cumbersome process which can also

result in poor client service and unnecessary costs.

Because CAPS has a dollar threshold which cannot be exceeded, CSOs are

required to complete multiple service authorizations in order to commit the

funds. This results in a waste of CSO time.

AES continues to be responsible for determining financial eligibility for

non IS clients who require hearing aids, prosthetics and orthotics. In 2009,

HCS changed the parameters of their Special Assistance Program (SAP)

and now the public can apply directly to HCS for approval (previously

AES completed the financial eligibility test for these non clients).

However, the three pieces as outlined remained, as these were considered

to be separate programs from the SAP. This is additional work for AES

staff and requires that residents of the province with no affiliation to the

department, must apply to AES in order to be funded by HCS.

AES is also providing supplementary benefits (medical transportation and

vision care) to HCS clients (usually home support clients or those in long

term care facilities) who are not in receipt of IS. This was an agreement

from the split of the Dept of Social Services many years ago. Again, these

are clients with no attachment to AES who are seeking services because of

their HCS eligible status. Significant work effort by staff, and poses some

issue with remaining compliant with our Regulations.

AES currently pays for all ambulance bills (patient fee portion) for IS and

HCS clients. From a business process point of view, this is cumbersome

and bureaucratic. Eastern Health pays the ambulance providers the full

eligible amount upon receipt of the invoices. EH then bills AES for their

portion by region (IS and HCS clients), who then pays the 4 separate

RHA’s the required amounts. AES has no way to verify the eligibility for

HCS clients and simply takes the invoices at face value. The last analysis

showed that 65-70% of the clients receiving ambulance services were

strictly HCS clients with no affiliation to AES.

Chapter 5 5-A-5-3

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Review Findings

Recommendations AES should consider providing the Department of Health read only access

to CAPS in order to confirm client’s eligibility for health related benefits

for which they deliver.

The department should consider the duplication of effort which currently

exists in the Avalon region with regards to authorizing medical

transportation.

The Department should consult with Department of Health officials and

determine if there is a more effective way to meet the demands of income

support clients.

The current dollar threshold in CAPS related to authorization of health

related benefits should be reviewed to determine whether it is appropriate.

Government should consider moving the financial eligibility test for non IS

clients for hearing aids, prosthetics and orthotics to HCS/RHA’s as they

did with the SAP.

The transfer of supplementary benefits to HCS has been attempted on 2

occasions in 2010 and 2012, but has yet to take place due to HCS’s

requests to delay. No firm commitment to transfer is currently in place.

The budget for ambulance patient fees should be transferred to HCS. The

RHA’s can then manage the payment of these invoices without submitting

subsequent invoices to us as middle men. IS clients have cards which

verify their eligibility for ambulance coverage and the billing system that

EH uses have access to this info for confirmation of eligibility.


Service Delivery Improvement Team developed a report with staffing models attached for a health

benefit unit.

Quick Wins

The current dollar threshold in CAPS related to authorization of health related benefits should be

reviewed to determine whether it is appropriate.


AES should consider providing the Department of Health read only access to CAPS in order to

confirm client’s eligibility for health related benefits for which they deliver.

The department should consider the duplication of effort which currently exists in the Avalon

region with regards to authorizing medical transportation.

The current dollar threshold in CAPS related to authorization of health related benefits should be

reviewed to determine whether it is appropriate.

Program Mother Baby Nutritional Supplement

Chapter 5 5-A-5-3

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Review Findings

Background

Goals

To provide information and financial benefit to low-income pregnant women and families with

children under 1 year of age. The financial benefit is to assist with the additional costs of eating

healthy during pregnancy and during the child’s first year.

Objectives

To promote healthy eating for pregnant mothers and children are under the age of one.

Target Population

Low-income pregnant women and families with children under 1 year of age.


The budget for 2011-12 - $420,000.

Approximately 300 clients receive the pre-natal component of the MBNS per month, while 939

families received the post-natal component of the MBNS.

One CSO delivers pre-natal component provincially located in St. John's, CRA delivers post natal

component in conjunction with other federal and provincial child benefits.

This program is delivered via allowances and assistance.





Recommendations N/A


Recommendations N/A

Business Process

Issues

Overpayments are not recorded as recoverable amounts. This situation can

be attributed to payments for the prenatal component being made outside of

CAPS and therefore there is no readily available mechanism to record and

collect overpayments.

CAPS is not being used to administer the MBNS benefit. As a result,

separate cheques have to be issued for the benefit even though it could be

included, for income support clients, on their bi-weekly cheques.

Recommendations The department should determine whether overpayments for the prenatal

component should be set up as an overpayment.

For income support clients, the department should consider including the

MBNS benefit on the cheques issued through CAPS.


None identified

Quick Wins

Chapter 5 5-A-5-3

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Review Findings

None identified


For income support clients, the department should consider including the MBNS benefit on the

cheques issued through CAPS.

Chapter 5 5-A-5-4

248

Review Findings

Program Newfoundland and Labrador Child Benefit (NLCB)

Background

Goals

To assist low-income families; including families with additional financial support to help raise

children under 18 years of age.

Objectives

To provide additional income to low income families with children.

Target Population

Families with a net family income (previous taxation year) equal to or less than $17,397 will

receive the full amount, if the family income is between $17,397 and $24,183 they will receive a

reduced amount.


The budget for 2011-12 - $600,000.

Total number of families served in 2011-12 - 13,102.

No departmental staff are involved in the administration because the program is delivered by the

Canada Revenue Agency (CRA), as part of the Canada Child Tax Benefit (CCTB). However, the

Child Benefit Adjustment (CBA) can be provided by AES to families in receipt of income support

benefits who are not receiving the maximum NLCB or the National Child Benefit Supplement. In

some cases the payments made by the department are recovered from the client when retroactive

payments are issued by CRA to the client

The program is delivered via Allowances and Assistance.


Income Support and Employment Act and Regulations; Child and Parental Benefits Regulations

Income Tax Act 2000.



Recommendations N/A


Recommendations N/A

Business Process

Issues

Client Service Managers (CSM) are required to get a report from the CAPS

system in order for the manager to ensure that staff are assessing clients for

continued eligibility of financial benefits. The managers are required to also

run reports on other aspects of program delivery. However, there is no

automated process to provide managers with the reports they require. As a

result, there is an increased risk that managers, due to competing demands,

may miss a report deadline which can result in reduced client service.

Chapter 5 5-A-5-4

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Review Findings

There are issues with the reports (currently being worked on) but based on

the MOU which identifies the fields which can be shared - this poses some

problems.

Although staff are required to consider retroactive payments provided by

CRA to determine the impact on income support, the “covering periods”

required for that determination are not indicated on the CRA reports.

Recommendations The department should consider implementing an automated process (e.g.

email) to assist managers in obtaining the reports required to ensure quality

service for clients.

The department should consider whether the interface information available

from CRA could include the “covering periods” of the retroactive payments.


None identified

Quick Wins

The department should consider implementing an automated process (e.g. email) to assist managers

in obtaining the reports required to ensure quality service for clients.

The department should consider whether the interface information available from CRA could

include the “covering periods” of the retroactive payments.


The department should consider implementing an automated process (e.g. email) to assist managers

in obtaining the reports required to ensure quality service for clients.



Chapter 5 5-A-6

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Review Findings

5-A-6 Social Supports

Social supports involve programming to enhance an individual’s quality of life. Social support

programs also assist with adverse life events.


2011-12 were identified as being part of the “Social Supports” category. Four of the programs,

Jumpstart, Allied Youth, Grants to Youth Organizations and CYN are aimed at youth, two of the

programs, DPO: Accessibility Grants Program and DPO: Accessible Vehicle Grants Program are

aimed at persons with disabilities, three relate to emergencies, Emergency Shelter Services,

Emergency Social Services (Disaster Services) and Services to Persons Who Are Victims of

Violence while one program, Social Work Services relates to assessment, crisis counseling and

referral services.

6 Social Supports

11/12 Budget

($M's)

11/12 Actuals

($M's) Reference

Financial:

1 Jumpstart CEYS 0.350 0.350 5-A-6-1

2 Emergency Shelter Services IS 1.560 1.560 5-A-6-2

3 Emergency Social Services (Disaster Services) IS N/A N/A 5-A-6-3

4 Services to Persons who are Victims of Violence IS 0.075 0.053 5-A-6-4

Client Services:

5 Allied Youth CEYS 0.030 0.030 5-A-6-5

6 CYN CEYS 2.977 2.975 5-A-6-6

7 Grants to Youth Serving Organizations CEYS 0.739 0.739 5-A-6-7

8 DPO: Accessibility Grants Program DPO - - 5-A-6-8

9 DPO: Accessible Vehicle Grants Program DPO - - 5-A-6-9

10 Social Work Services IS N/A N/A 5-A-6-10




Disability Policy Office DPO 2 - -

Total Social Supports Programs 10 5.731 5.707

* 3rd Party Grants

Chapter 5 5-A-6

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Review Findings

The following charts illustrate the proportion of the 10 Social Supports programs relative to the


analysis process.

Social Supports,

5.731


Social Supports, 10




CEYS, 4

DPO, 2 IS, 4

Social Supports Programs


CEYS, 4.096

IS, 1.634

Social Supports Budgets (in $M's)


A number of issues were identified during the review of the 10 programs in the Social Supports


Issues related to level of supports, types of benefits and administrative practices are categorized in

the following two themes:

1. Strategic Approaches; and

2. Program Development and Administration.

Chapter 5 5-A-6

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Review Findings


The department has not yet determined the degree to which social supports will be a focus for the

newly created Department of Advanced, Education and Skills. Specifically, the department will

need to identify the level of social supports it is able to provide to individuals and how these

supports relate to a labour market attachment. For example:

the following youth engagement activities, which are currently funded by the department:

Jumpstart, Allied Youth, Grants to Youth Organizations and CYN programs with a total budget

of $4.1 million for 2011-12 are aimed at youth and, at best, have a marginal fit to the

department’s current mandate; and

the department provides a $100,000 grant to the School Lunch Program each year; however,

the program does not align with the department’s current mandate.


A number of program development and administration issues were identified in the department’s

current social support programs.

Issues identified with Emergency shelter included:

currently, CSOs have authority to approve emergency shelter stays for up to three nights after

which a CSM approval is required for any additional nights. Given that the average stay at

shelters exceed three nights, this creates additional administrative work for CSMs;

although the department sometimes requires the use of a private shelter (some averaging

approximately $157,000 annually) the department does not issue a formal call for services to

determine whether other individuals may wish to provide this service. As a result, it is not

known whether the service could be provided by others and at what cost; and

although the department funds shelters for homeless individuals, these shelters may refuse

certain individuals due to known behavioral issues that could result in damage to the shelter

and possible safety issues for the staff and other residents. As a result of initially funding the

shelter, the department effectively pays twice for shelter when an individual has to be placed

elsewhere (e.g. hotel).

Disaster services issues included:

currently, the department does not have an arrangement to care for pets during emergency

evacuation. As a result, there is a gap in the services provided to citizens during emergencies;

and

Chapter 5 5-A-6

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Review Findings

the department does not have a contingency plan in place to clearly outline how either regular

duties of staff assigned to ESS will be completed or how any backlog of work will be

addressed.

Social services work issues included:

although the role of Liaison Social Workers (LSW) is defined, the scope of services they are

required to provide appears to be too broad to address clients’ needs. As a result, some clients’

needs may not be addressed; and

although 20 AES social workers are currently working with the Department of Justice to work

on AES client files, it appears their time is being consumed more with court cases than with

income support cases.

Other program administration issues included:

the department has not established base line indicators necessary to determine outcomes of the

Grants to Youth Organizations Program. Instead, activity levels are used to determine the

success of the program. Furthermore, financial accountability requirements are the same for all

grants and do not take into consideration the value of the grant;

CYNs are provided with 100% of their funding (totaling $2.97 million in 2011-12) in advance

and is the only program funded this way;

up until 2011-12, surplus funds were reallocated to CYNs on a mathematical basis without

identification of specific need; and

A report prepared by Goss Gilroy in November 2010 on CYNs has not been signed off by the

department and not all of the recommendations have been implemented.

Chapter 5 5-A-6-1

254

Review Findings

Program Jumpstart

Background

Goals

In partnership with the Canadian Tire Foundation for Families, to support children and youth of

low income families participate in physical recreation activities to promote and contribute to a

healthier lifestyle, facilitate increased self-esteem and confidence, provide an opportunity to learn

important leadership skills, contribute to improved school performance and future education

expectations, and create more positive relationships and strengthened support networks.

Objectives

Support only those children that would not have been able to participate in a physical activity

without financial assistance.

Support participation in activities that are longer term in duration. Strike a balance between

funding children of each gender and ethnicity, as well as, inclusion of all interests and abilities.

Strike a balance between funding the same children and new children from submission period to

submission period or year to year.

Target Population

Children aged 4 - 18


The budget for 2011-12 - $350,000. Activities must be in an organized sport or recreational

activity and be provided to those who are unable to pay.

Total number of clients served in 2011-2012: 4,548.

The program is administered by provincial office staff which includes: a Provincial Manager -

CYN, Senior Manager - Youth Programs, Program Coordinator, Director – CEYS.

This program is administered via Grants and Subsidies.






AES.


Policy Issues It is difficult to determine how this program aligns with the current

mandate of the department.

Recommendations The department should determine whether it should continue to fund this

program or whether it could be administered by another department.


Recommendations N/A

Business Process

Issues

None identified.

Chapter 5 5-A-6-1

255

Review Findings

Recommendations N/A


None identified.

Quick Wins

N/A


The Jumpstart Program could be considered for transfer to a more appropriate department.

Chapter 5 5-A-6-2

256

Review Findings

Program Emergency Shelter Services

Background

Goals & Objectives

Provide shelter to applicants/clients when needed in times of crisis, as a result of medical needs, or

in cases of a stranded person, those released from institutions, and those who are homeless.

Target Population

Clients finding themselves without appropriate shelter.


The budget for 2011-12 - $1,560,000.

Total number of clients served in 2011-2012:

The program is administered by departmental staff in the Income Support division.


Income Support Act


Policy Issues Currently CSOs have authority to approve shelters up to three nights after

which a CSM approval is required for any additional nights. Given that the

average stay at shelters exceed three nights, this creates additional

administrative work for CSMs.

Recommendations The department should consider increasing the shelter approval level for

CSOs.


Recommendations N/A

Business Process

Issues

Although the department sometimes requires the use of a private shelter

(some averaging $157,000 per year) the department does not issue a formal

call for services to determine whether other individuals may wish to

provide this service.

Although the department funds shelters for homeless individuals, these

shelters may refuse certain individuals due to known behavior issues that

could result in damage to the shelter and possible safety issues for the staff.

As a result of initially funding the shelter, the department effectively pays

twice for shelter when an individual has to be placed elsewhere (e.g. hotel).

The department has block funding arrangements with some service

providers and per diem funding arrangements with others. Some of the per

diem rates appear high.

Chapter 5 5-A-6-2

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Review Findings

Recommendations The department should consider issuing a formal call for private shelter

services.

The department should consider working with shelter providers to develop

a MOU which would require the shelter to provide services to difficult

clients.


None identified

Quick Wins

None identified


None identified

Chapter 5 5-A-6-3

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Review Findings

Program Emergency Social Services – ESS (Disaster Services)

Background

Goals

To provide assistance to individuals in the case of a disaster or emergency in a community as

determined by the Minister.

Objectives

Emergency Social Services is to provide the following services to citizens: operation of a reception

center, registration and inquiry, lodging, food, clothing and personal services. The services are

normally provided in response to large scale disasters such as floods, fires, and storms.

Target Population

Residents of the province affected by a disaster or emergency.


No budget assigned, in some instances expenditures can be reimbursed through the Disaster

Financial Assistance Arrangements (DFAA).

The program is administered by Client Service Managers/Regional Managers for Income Support

in consultation with the Director of Income Support/Emergency Social Services.


Emergency Services Act


Policy Issues Currently the department does not have an arrangement to care for pets

during emergency evacuation. As a result, there is a significant gap in the

services provided to citizens during emergencies.

Recommendations The department should consider developing a formal plan for pet care

during emergency evacuation.


Recommendations N/A

Business Process

Issues

The department does not have a contingency plan in place to clearly outline

how either regular duties of staff assigned to ESS will be completed or how

any backlog of work will be addressed.

Recommendations The department should consider the development of a contingency plan.


None identified

Quick Wins

None identified


None identified

Chapter 5 5-A-6-4

259

Review Findings

Program Services to Persons who are Victims of Violence

Background

Goals

To provide emergency accommodations (transition house or alternate) and/or emergency

transportation to a safe place for any individual who self identifies as a victim of violence.

Objectives

To assist individuals who identify themselves as a victim of violence travel to and find safe

accommodations. Eligible income support clients may also continue to receive individual/family

benefits and a Start-up Allowance if they find new accommodations.

Target Population

Any individual, not just a person in receipt of income support, who identifies as a victim of

violence.


The budget for 2011-12 - $74,516.

The program is delivered by regional staff.




Policy Issues Currently CSOs have authority to approve shelters up to three nights after

which a CSM approval is required for any additional nights. Given that the

average stay at shelters exceed three nights, this creates additional

administrative work for CSMs.

Recommendations The department should consider increasing the shelter approval level for

CSOs.


Recommendations N/A

Business Process

Issues

None identified.

Recommendations N/A


None identified

Quick Wins

None identified


Consideration could be given as to whether Victim Services would have the capacity to deliver this

service.

Chapter 5 5-A-6-5

260

Review Findings

Program Allied Youth (AY)

Background

Goals

Through this program, youth are provided opportunities to develop leadership, interpersonal and

communication skills as well as self-awareness through sports activities, leadership opportunities,

educational sessions, social activities, and community projects. This program is active in a

number of sites throughout the province.

Objectives

Increase youth in grades 7-12 self awareness, leadership and interpersonal skills and community

involvement

Target Population

There are currently 450 participating youth in 14 schools/communities across the province. The

youth are from grade 7-12 in high school.


The budget for 2011-12 - $30,000.

The program is administered by half time services of the Youth Program Consultant who-operated

as a Provincial Coordinator for AY.

The program is administered via grants.





Recommendations N/A


Recommendations N/A

Business Process

Issues



new mandate.





None identified.

Quick Wins

N/A


N/A

Chapter 5 5-A-6-6

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Review Findings

Program Community Youth Network (CYN)

Background

Goals

Facilitate access to information on available services to youth (workshops, posters and

pamphlets);

Create a means by which agencies are aware of each other’s existence and have an

understanding of the programs offered;

Facilitate partnerships between community agencies and services (e.g. Health, Justice and

Community Services);

Share information and coordinate services;

Develop and integrate a coordinated approach to youth services;

Connect with youth that have not traditionally used available services i.e. at-risk youth;

Compile a list of solutions to successful outreach practices and share them with youth- serving

agencies; and

Identify and attempt to fill gaps in youth services.

Objectives

Promote the healthy development of youth and their communities;

Serve youth who are experiencing significant barriers to achieving education and employment

goals;

Improve social environments by building upon individual organization and community assets to

meet identified needs; and

Build upon existing groups’ efforts through partnership. (Not to duplicate existing community

services)

Target Population

The target population is at risk youth aged 12-18.

There are currently 24 hub sites and 12 satellite sites in the province.


The budget for 2011-12 - $2,977,000.

Client participation will vary depending on region but an average of 1500 youth access CYN

programming on a daily basis with approximately 16,000 on a yearly basis.

The program is administered by Provincial Office staff: Manager - CYN, Senior Manager - Youth

Programs, Program Coordinator; Director - CEYS.


CYN Policy and Procedures Manual



Chapter 5 5-A-6-6

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Review Findings

Policy Issues The department has not established base line indicators necessary to

determine outcomes of the program. Instead activity levels are used to

determine the success of the program.


currently funded by the department will be included in the department’s new

mandate.

Although CYNs have identified underfunding as an issue, the department

has not undertaken an analysis of the revenue sources of the CYNs and the

costs of delivering their programs.

CYNs are provided with 100% of their funding in advance and is the only

program funded this way.

Recommendations The department should determine how success can be measured within this

program.

The department should determine and clearly define how youth engagement

activities currently funded by the department are aligned with the

department’s new mandate.

The department should undertake a review of the CYNs and determine if

they are underfunded.

The department should determine whether CYNs should continue to be paid

100% of their funding in advance.


Recommendations N/A

Business Process

Issues

The Goss Gilroy report of November 2010 has not been signed off by the

department and as a result all of the recommendations have not been

implemented.

Up until the 2012 fiscal year surplus funds were reallocated to CYNs on a

mathematical basis without identification of specific need.

Recommendations The department should determine the status of the Goss Gilroy report and

any required action.

The department should ensure that funds provided to 3rd

party organizations

are provided on the basis of an identified need.


None identified

Quick Wins

N/A


Chapter 5 5-A-6-6

263

Review Findings

The program could be considered for delivery by another department, such as the Department of

Tourism, Culture & Recreation or the Voluntary Non-Profit Secretariat.



Examples of Payments from CYN


COMMUNITY YOUTH NETWORK (24 Hub & 12 Satellite sites) 1,266,138.00

LABRADOR-GRENFELL REGIONAL INTEGRATED 706,913.00





ADVOCATE YOUTH SERVICES CO-OPERATIVE 65,000.00



REC HOUSE COMMUNITY YOUTH NETWORK 65,000.00


TOWN COUNCIL OF CAPE BROYLE 65,000.00

YOUTH 2000 CENTRE 65,000.00

COMMUNITY SECTOR COUNCIL OF 60,000.00

Chapter 5 5-A-6-7

264

Review Findings

Program Grants to Youth Organizations

Background

Goals

The goal of this program is to support youth-serving organizations whose focus is on self-reliance,

leadership and citizenship development.

Objectives

The objective of this grant money is to either support the administration of the organization or fund

a specific service or event to a defined target group. Groups funded must serve a broad age group

up to age thirty; reach sufficient numbers of youth to justify the funding levels and have an ability

to include youth who may experience challenges to participation.

Target Population

Individuals 30 and under.


The budget for 2011-12 - $739,000. Due to demand exceeding available funding slippage from

other program areas have been used to fund other programs.

The program is administered by Youth Services staff at Provincial office which includes a

Provincial Manager - Youth Grants, Senior Manager - Youth Programs and a Program

Coordinator.

There are approximately 30,000 youth from a variety of groups focused on self-reliance, leadership

and citizenship development who are served by the 35 (approx.) organizations that are funded by

this program.

The program is administered via Grants & Subsidies.




Policy Issues The department has not yet determined how youth engagement activities


new mandate.

The financial accountability requirements are the same for all grants and do

not take into consideration the value of the grant.

The department has not established base line indicators necessary to

determine outcomes of the program. Instead activity levels are used to

determine the success of the program.

The department provides $100,000 to the School Lunch Program each

year. It is not clear how funding this program aligns with the department’s

mandate.

Chapter 5 5-A-6-7

265

Review Findings




The department should determine whether financial accountability

requirements should remain the same for all grants.

The department should determine how success can be measured within this

program.

The department should determine why it continues to fund the School

Lunch Program.


Recommendations N/A

Business Process

Issues


Funding to organizations is an expectation from year to year once

approved. As a result, new initiatives which may have more merit do not

always be considered for approval due to existing budget commitments.

Recommendations The department should determine whether the current budget for this

program is sufficient.

The department should determine whether the approval of applications

should continue to be driven by historical commitments or whether all

applications should be assessed on their merit relative to all other

applications.


None identified.

Quick Wins

N/A


The School Lunch Program could be considered for transfer to a more appropriate department such

as The Department of Health or the Department of Education.



Chapter 5 5-A-6-7

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Review Findings

Examples of Payments from Grants to Youth Organizations


BIG BROTHERS/BIG SISTERS ASSOCIATION 105,000.00

ST JOHN'S SCHOOL LUNCH ASSOCIATION 100,000.00

ST JOHN'S BOYS & GIRLS CLUB/ 80,000.00

DUKE OF EDINBURGH'S AWARD PROGRAM 59,800.00

BOYS AND GIRLS CLUB OF CANADA-NL 57,500.00

JAMES HORNELL BOYS & GIRLS CLUB 41,600.00


GIRL GUIDES OF CANADA (STJ) 36,600.00

BOY SCOUTS OF CANADA 31,206.00

NORRIS ARM BOYS AND GIRLS CLUB INC 17,000.00


LABRADOR WEST YOUNG PEOPLES 15,000.00



BOTWOOD BOYS & GIRLS CLUB 10,000.00

ENGLEE YOUTH CENTRE 10,000.00

EXPLOITS VALLEY YMCA 10,000.00

P4 YOUTH CENTRE 10,000.00


WABUSH TEEN CENTER 10,000.00

ALLIED YOUTH OF NEWFOUNDLAND & 5,000.00

NEWFOUNDLAND & LABRADOR YOUTH 5,000.00

ST JACQUES-COOMBS COVE TOWN COUNCIL 5,000.00

TOWN OF CHARLOTTETOWN 5,000.00

TOWN OF POOL'S COVE 5,000.00

UPPER ISLAND COVE BOYS & GIRLS 5,000.00

ST JAMES UNITED CHURCH 3,200.00

THE ARMY CADET LEAGUE OF CANADA 3,000.00

THE NL DIVISION OF THE NAVY LEAGUE OF 3,000.00

RABBITTOWN COMMUNITY CENTRE 2,600.00

CHURCH LADS' BRIGADE 2,500.00

PUBLIC LEGAL INFORMATION ASSOCIATION OF 2,100.00

NF & LAB SCHOOL CHESS ASSOCIATION 1,300.00

THE AIR CADET LEAGUE OF CANADA 1,000.00

Chapter 5 5-A-6-8

267

Review Findings

Program DPO: Accessibility Grants Program

Background

Goals

A program that provides grants to non-profit, community-based organizations to support the

participation of persons with disabilities through 1) removal of barriers in the built environment

(ex’s: installation of ramps, automated door openers, visual alarms) or 2) provision of disability-

related accommodations at specific events, meetings, gatherings, etc. (ex: sign language

interpretation, closed captioning).

To enhance the inclusion of persons with disabilities through the removal of barriers to

participation in community opportunities.

Objectives

Grants are available to non-profit community-based organizations to support the participation of

persons with disabilities as follows

Accessibility Grants - to create or improve the accessibility of the built environment

Accommodation Grants - provide disability-related accommodations to support participation in

events and meetings.

Grant payments for approved projects will be issued as follows: 80% of grant amount upon

approval of application. Remaining 20% upon completion of project.

Accessibility Grants: Up to a maximum of $25,000.

Accommodations Grants: Up to maximum of $5000.

Target Population

Non profit, community-based organizations in Newfoundland and Labrador.


The budget for 2011-12 - $0; 2012-13 - $275,000.

The program will be delivered from Provincial office.



Access. Inclusion. Equality. The Provincial Strategy for the Inclusion of Persons With Disabilities

in Newfoundland and Labrador


Policy Issues As this is a new program, policies are currently being developed.

Recommendations N/A


Recommendations N/A

Chapter 5 5-A-6-8

268

Review Findings

Business Process

Issues

The objectives of the program are not aligned with the core mandate of

AES.

Although the office is designed to develop and implement policy across all

departments, it is currently responsible for delivering this program even

though there are no program staff.

Recommendations The department should determine whether it should continue to deliver this

program.

If it is determined that the Office will continue to deliver this program,

appropriate program staff should be allocated.


The policies, processes, administration procedures, and forms have been developed. The intention

is to commence the program mid October, 2012.

Quick Wins

None identified.


Consideration should be given to explore potential opportunities for transferring the program to

another department.

Chapter 5 5-A-6-9

269

Review Findings

Program DPO: Accessible Vehicle Grants program

Background

Goals

A program that grants financial assistance to individuals and families to adapt personal vehicles,

including the purchase and installation of equipment, vehicle modifications, as well as the repair

and maintenance of equipment if no longer covered by warranty, and cost of inspection or

assessment fees, if required.

To offset the cost of disability and increase accessible transportation options through the

development of a program enabling modifications to personal vehicles to accommodate persons

with disabilities affecting mobility.

Objectives To provide a grant and/or subsidy to individuals and families towards the cost of supporting and/or

installing eligible accessibility features for a new or existing vehicle.

Funding limit is set at $25,000. The income ceiling is $46,500 for full funding and $64,000 for

partial funding. Eligible features include but not excluded to the following: hand controls; steering

devices; left-foot gas pedals; wheel chair ‘tie-down’ systems; customized seating; vehicle

wheelchair lifts and ramps; roof, floor and door alterations; scooter lifts. Eligible features to

include items from a cross-disability perspective (i.e. audio adaptations for individuals who are

hard of hearing).

Target Population

Individuals with disabilities impacting mobility.


The budget for 2011-12 - $0; 2012-13 - $375,000.

Total number of clients to be served: To be determined

The program will be delivered from Provincial office.



Access. Inclusion. Equality. The Provincial Strategy for the Inclusion of Persons With Disabilities

in Newfoundland and Labrador


Policy Issues As this is a new program, policies are currently being developed.

Recommendations N/A


Recommendations N/A

Chapter 5 5-A-6-9

270

Review Findings

Business Process

Issues

The objectives of the program are not aligned with the core mandate of

AES.

Although the office is designed to develop and implement policy across all

departments, it is currently responsible for delivering this program even

though there are no program staff.

Recommendations The department should determine whether it should continue to deliver this

program.

If it is determined that the Office will continue to deliver this program,

appropriate program staff should be allocated.


The policies, processes, administration procedures, and forms have been developed. The intention

is to commence the program mid October, 2012.

Quick Wins

None identified


Consideration should be given to explore potential opportunities for transferring the program to

another department.

Chapter 5 5-A-6-10

271

Review Findings

Program Social Work Services

Background

Goals

Currently there are two components of Social Work Services delivered by AES:

1. Liaison Social Workers (LSW) – 9;

Primary Roles:

Serving as a liaison with community agencies/other government departments (e.g. NLHC,

Regional Health Authorities, advocacy groups, shelters) regarding programs and services that

impact the clientele of this Department.

Strengthening the linkages between key departments.

Providing short term intervention and support, including the completion of a social work

assessment, advocacy and referrals; to clients with complex social issues.

2. Support Applications Social Workers (SASW) – 20;

Primary Roles:

Assist clients with obtaining child/spousal support.

Provide services relating to custody and access, as well as social work services to single

parents.

Objectives

Liaison Social Workers provide assessment, short term counseling, and referral to support AES

clients with complex needs as well as act as a community liaison with agencies and other

departments.

Support Application Social Workers provide education and support to single parents on matters of

child support/custody and access and parenting).

Target Population LSW - Clients with complex social issues, community agencies and other departments.

SASW - Single parents with child support/custody and access issues.


The budget for this program is included in the Income Support operational budget.

The program is administered by Social Workers across the province.





Recommendations N/A


Recommendations N/A

Chapter 5 5-A-6-10

272

Review Findings

Business Process

Issues

Although the role of LSWs is defined, the scope of services they are

required to provide appears to be too broad to address clients’ needs. As a

result, some clients’ needs may not be addressed.

Twenty AES Social Workers are currently working in partnership with the

Department of Justice to provide services to residents seeking support or

assistance with custody and access. There is some concern that AES

clients may not get priority. As well, this arrangement is currently

undergoing some transitions and staff are awaiting the outcome of these

changes.

Recommendations The department should consider whether the current scope of services

provided to complex needs clients is appropriate.

The department should determine whether the 20 AES Social Workers

should remain with the Department of Justice.


None identified

Quick Wins

N/A


None identified.

Chapter 5 5-B-1

273

Review Findings

5-B-1 Education and External Liason

A total of 12 programs were categorized as being part of the department’s Education and External

Liaison oversight responsibility. Three of the programs related to oversight responsibility for the

province’s training institutions: Memorial University of Newfoundland (MUN); College of the

North Atlantic (CNA); and Private Training Institutions via the Private Training Institutions Act and

Regulations. The remaining 9 programs provide either policy, planning and research support to the

Department around post-secondary education or are required to advance and monitor international

education.

1 Education & External Liaison

11/12 Budget

($M's)

11/12 Actuals

($M's) Reference

1 Curriculum ATC N/A N/A 5-B-1-1

2 Distance Learning Pilot ATC 0.095 0.095 5-B-1-2

3 Instructor Certification InstS N/A N/A 5-B-1-3

4 MUN InstS 368.719 361.973 5-B-1-4

5 College of the North Atlantic (CNA) InstS 107.355 105.235 5-B-1-5

6 Private Training Unit InstS N/A N/A 5-B-1-6

7 InterProvincial Red Seal Program/Apprenticeship Program ATC 0.058 0.058 5-B-1-7

8 Power Engineering ATC N/A N/A 5-B-1-8

9 Foreign Qualifications Recognition SD N/A - 5-B-1-9

10 International Education InstS N/A - 5-B-1-10

11 Labour Mobility SD 0.002 0.002 5-B-1-11

12 Trade Qualifier ATC N/A N/A 5-B-1-12



Skills Development SD 2 0.002 0.002

Institutional Services InstS 5 476.074 467.208

Total Education & External Liaison Functions 12 476.229 467.363

A number of issues were identified during the review of the 12 Education and External Liaison

programs and can be categorized as follows: strategic positioning and program development and

administration.

Strategic Positioning

The administration of 10 of the 12 programs categorized as part of the Education and External

Liaison oversight responsibility currently takes place in two divisions - the Apprenticeship and

Trade Certification Division and the Institutional Services Division. While there is regular

communication among the divisions, having different divisions responsible for the administration of

Education and External Liaison programs has created a disjointed approach with overlap and

duplication in business processes and gaps in responsive programming to assist with labour market

attachment. For example:

Chapter 5 5-B-1

274

Review Findings

The Institutional Services Division has oversight responsibility for all of the province’s public and

private training institutions. This oversight responsibility includes providing strategic support to the

public and private college system and supporting the development of policy, planning and research

around post-secondary education.

The Apprenticeship and Trade Certification Division has an Industrial Training Unit which is

responsible for implementation of policies approved by the Provincial Apprenticeship and

Certification Board (PACB). This requires liaising with training institutions, employers and other

industry stakeholders to ensure that the quality of training is maintained. The Apprenticeship and

Trade Certification Division also has a Standards and Curriculum section whose responsibilities

include, but are not limited to, administering Federal funding for public and private training

institutions to offer apprenticeship, post-journeyperson and skills enhancement training in response

to labour market needs.

As this demonstrates, there are two Divisions responsible for liaising with training institutions and,

given that the apprenticeship program is just one of many programs being administered by CNA, it

is questionable whether there is a requirement for the continuation of two separate divisions to

administer the apprenticeship programs. It appears as though the Apprenticeship and Trade

Certification Division could be merged with the Institutional Services Division.

Program Development and Administration

Program development and administration issues were identified as follows:

1. Institutional Services Division

The Institutional Services Division provides support to MUN and the College of the North Atlantic

and is responsible for the regulation and monitoring of private training institutions, which includes

meeting legislated responsibilities identified within applicable Acts. Issues identified are included in

the following areas:

a) College of the North Atlantic (CNA)

CNA is Newfoundland and Labrador’s only public college, and one of the largest post-secondary

educational and skills training centers in Canada.

AES works with CNA to further the mandate of both AES and CNA and provide quality, labour

market relevant training to the people of Newfoundland and Labrador. Due to historic vacancy

issues associated with the President’s office, the department has taken on a role in excess of what

would normally be expected. For example, the department is heavily involved in the college’s

budgetary submission process. As a result, the college has become dependent on the department in

many of its decision making processes.

Chapter 5 5-B-1

275

Review Findings

The college is not currently fully responsive to government’s identified labour market needs. As a

result, the private training industry has gained increased market share in the delivery of required

programs (e.g. trades).

The college appears to respond more to profit outcomes versus key labour market needs. For

example, the college’s Happy Valley-Goose Bay campus has reduced its mining training capacity to

expand seat capacity in its academic and applied arts program (Adult Basic Education and

Comprehensive Arts and Science). This was largely driven in response to significant LMDA

funding for these programs.

The department has not formalized its overall approach as to how labour market supply and demand

information will inform and influence training and related funding priorities. For example, training

programs are not always provided in the areas where the demand is highest e.g. plumbing offered in

Bonavista. Furthermore, the department has not clearly articulated its position with regards to the

roles and responsibilities of the public and private colleges which has resulted in duplication of

programs, gaps in training and over expenditure in certain LMDA programs.

b) Memorial University of Newfoundland (MUN)

MUN is Newfoundland and Labrador’s only public university, and one of the largest post secondary

educational and skills training centers in Atlantic Canada. The department works to ensure the

Province has highly educated graduates and skilled workers for a fast-growing economy. AES also

works with MUN to further the mandate of both AES and the university and provide quality, labour

market relevant training to the people of Newfoundland and Labrador.

Because MUN has operational autonomy and academic freedom, in most cases, they make the

determination as to whether or not they will fully participate in any proposed initiatives. As a result,

there are instances where the department is not able to fully implement identified initiatives (e.g.

core mandate review where MUN declined to submit the required phase 2 proposals).

c) Private Training Institutions (PTIs)

The goal of the department’s Private Training Unit is to ensure that post-secondary students receive

training in industry relevant programs delivered by qualified instructors. A number of issues related

to PTIs were identified as follows:

The Private Training Institutions Act and Regulations severely limit the ability of private

training institutions to operate in Labrador. Specifically, the Act requires PTIs to obtain a

$50,000 bond for each campus. As a result, any industry requirements for training in

Labrador are, in the vast majority of cases, completed at the College of the North Atlantic.

Although the department accumulates labour market supply and demand information in

various divisions (e.g. LMDA, Advanced Education) the information is not formally shared

to facilitate effective decision making around private post secondary offerings.

Chapter 5 5-B-1

276

Review Findings

The department does not publicly post issues of non-compliance by PTIs to better inform the

general public. As a result, the general public may not have adequate information on the

operations of a private training institution to make an informed decision.

The Operations Manual for Standards and Guidelines for PTIs is in need of updating. As a

result, there is a discrepancy between current practice and the document as it currently exists.

A number of issues related to the oversight responsibilities within the Private Training Unit were

identified as follows:

Although the Student Aid Division requires private training institutions to submit annual

improvement plans to address repayment rate issues, there is no formal protocol which

requires the information to be shared with the Superintendent of Training Institutions. As a

result, the department is at risk of providing inconsistent direction in that, while the

Superintendent may have concerns with a particular campus, the Director of Student Aid at

the same time may approve a campus for student aid designation.

There are situations where, although the Division requires an industry expert from the

Apprenticeship and Trade Certification Division (ATCD), the ATCD refuses to provide the

experts because the program in question is not currently an apprenticeable trade. As a result,

site visits are conducted without industry assurance that the program curriculum and

resources meet industry requirements.

Currently, the Division does not have either an electronic record tracking system (e.g. TRIM)

or an information management protocol to allow more efficient file management. As a

result, much of the staff’s time is consumed with administrative functions such as file

management.

Policies and procedures related to staff duties have not been formally documented.

Specifically, there is no consolidated source of material to guide staff in the performance of

their work.

d) Instructor Certification

The goal of the instructor certification policy is to provide instructors (private, CNA and Marine

Institute) with a Teacher Training Program that aids in the delivery of training to students in post-

secondary education in the province.

Although the legislation requires instructors at private training institutions to comply with the

current teacher training model, instructors at the public colleges are not required to complete the

prescribed courses. This has created inconsistencies in instructor certification and results in a system

that is perceived as unfair by private training institutions.

Chapter 5 5-B-1

277

Review Findings

The public and private training institutions have determined that the current Teacher Training

Program model, which requires the completion of six university courses, is not appropriate. They

have indicated that another model should be developed which would offer different pathways to

instructor certification. The current training model has resulted in instances of non-compliance (71

as of July 2012) because instructors at institutions refuse to complete the courses. The department

has not de-registered the private institutions as a result of the non-compliance.

e) International Education

The program is designed to work with the Federal government, other jurisdictions and other

provincial stakeholders with regards to strategic initiatives aimed at the attraction and retention of

international students. AES does not have a business plan as it relates to international education

initiatives and pursuits. As a result:

The department is not aware of provincial educational institutions engagement with other

countries. The department is often reactionary when issues concerning labour mobility,

immigration and the safety of international students attending local institutions arise;

The department is not aware of the number of Newfoundland and Labrador students

currently attending foreign education institutions which may result in challenges such as

when international safety issues emerge; and

Unlike other jurisdictions, the department does not take initiative in the identification and

pursuit of international education opportunities (e.g. MOU with other countries concerning

student exchange and export of curriculum). As a result, the province may be losing

potential revenues.

There is no direct institutional monitoring of international students at the post secondary level.

However, the changes being put forward by Citizenship and Immigration Canada (CIC) will result in

a significant increase in the level of monitoring, reporting and evaluation required.

The department has not identified specialized training programs already established in other

countries that could be accessed by Newfoundland and Labrador students to address the current and

upcoming skill gaps.

There is no formalized communication protocol among the divisions of Institutional Services

(International Education), OIM (Immigration), Skills Development (Foreign Qualification

Recognition and Labour Mobility) and LMDA (labour market supply and demand). As a result,

information necessary to make optimum decisions regarding international education may not be

considered.

Chapter 5 5-B-1

278

Review Findings

2. The Apprenticeship and Trade Certification Division

The Apprenticeship and Trade Certification Division includes the Industrial Training Unit

responsible for implementation of policies approved by the Provincial Apprenticeship and

Certification Board and the Curriculum and Standards section responsible for such things as

developing and updating provincial and inter-provincial Red Seal occupational standards through the

involvement of trade advisory committees and administering a program accreditation process to

support quality control of apprenticeship programs offered by public and private training institutions.

Issues identified are included in the following areas:

a) Curriculum

The goal is to provide individuals with a method to receive certification in trades that meet industry

standards. The department relies on subject matter experts to provide advice on industry

requirements. These individuals are required to provide their time either by taking time from work

or meeting after regular work hours. Currently, these individuals are compensated at $10 per hour.

As a result, the department is having difficulty recruiting experienced subject matter experts for this

important piece of work.

The current database requires manual input of all approved curriculum into the Apprenticeship

Information Management System (AIMS). Other information such as an individual’s practical skill

progress towards Journeyperson status cannot be readily obtained in AIMS. As a result, the

department does not do a good job monitoring the status of apprentices.

b) Distance Learning Pilot

The intent of the program is to develop online course material for apprenticeship trades people as an

alternate method to access required courses. Although CNA has an Office of Distributed Learning

which is responsible for online program delivery, the department did not request the college to

develop the required program as part of the college’s online services. Instead, the department

provided additional funds to the college to support online access to advanced level components of

the electrical programs which the college already offers in class.

c) Interprovincial Red Seal Program

The goal of the program is to provide skilled workers mobility across Canada by encouraging the

standardization of training certification of programs. Of the 53 Red Seal endorsed apprenticeship

trades in Canada, 33 are designated for apprenticeship training in this province; however, only 4 of

the trades are designated as compulsory. As a result, there could be health and safety issues along

with consumer protection issues because of the lack of compulsory certified trades.

Due to the lack of mandatory certification of many trades, unions determine the qualifications

required and suitability of individuals for placement on job sites, often times with significant priority

based on seniority and not qualifications.

Chapter 5 5-B-1

279

Review Findings

Although the province is required to participate in the ongoing development of national red seal

products, there are situations where the required travel approval is not granted. As a result, the

province’s access to red seal certified products could be impacted.

d) Power Engineering

The overall goal of the program is to approve the curriculum required to meet certification standards

and administer testing for each of the four levels of proficiency of individuals working with pressure

vessels (e.g. boiler rooms and heating plants).

The current information system (microcomputer based) provides limited tracking information,

statistics and reports.

e) Trade Qualifier (TQ)

This program allows an individual, based solely on work experience in an occupation, to challenge

the certification examination in any of the designated trades. There were a number of issues

identified as follows:

The department is not doing a good job promoting the Trade Qualifier program. As a result,

there are many individuals who, if they were aware of the program, may have completed the

program and obtained trade certification thus improving their employment opportunities.

The Apprenticeship Information Management System (AIMS) used to track clients, does not

have the capability to inform staff of a required future action e.g. monitoring certificate

renewal which would provide information on whether clients made a long-term attachment to

their certified trade and information about the total participation in a particular trade.

The TQ assessment process is currently separate from other client assessment processes

within the department. As a result, TQ clients may not be availing of other departmental

programs to support their employment and education needs.

Although the division has set a standard of a five day turnaround time for the completion of

application assessment, this standard is seldom met.

3. Skills Development Division

The Division is responsible for accelerating the skills and learning agenda of the province through

the Labour Market Development Agreement (LMDA) including the Contribution Agreement as well

as overseeing the implementation of the Skills Task Force recommendations. The Division is also

responsible for providing information, and stimulating the development of policies, strategies, and

initiatives that support Chapter 7 of the Agreement on Internal Trade and foreign qualification

recognition in Newfoundland and Labrador. Issues identified are included in the following areas:

Chapter 5 5-B-1

280

Review Findings

a) Foreign Qualifications Recognition (FQR)

The goal of the FQR is to articulate a new joint national vision, guiding principles and desired

outcomes for improving the assessment and recognition of foreign qualifications.

Many of the province’s regulatory bodies are small, with little capacity, resources or knowledge to

address matters along the pathways to recognition of foreign qualifications such as assessing the

credentials and training obtained outside Canada. In general, the degree of support and services

offered by regulatory bodies may vary across both occupation and jurisdiction. As a result, the

province is at risk of either not attracting or not retaining immigrants who may opt to move to

provinces with a formalized approach to foreign qualification recognition.

Government has not established a strategic process for the identification of priority occupations that

could be addressed through foreign workers.

Although the Federal government allocated $800,000 to the province in 2009 for a foreign

qualification recognition initiative, the department has still not received the funding because of on-

going negotiations with the Federal government. It is important to note that other jurisdictions have

received the funding and are proceeding with the initiative.

Although the province is invited to participate in the ongoing development of foreign qualifications

recognition, there are situations where the required travel approval is not granted. As a result, the

province is not able to present its views with regard to foreign qualification recognition.

b) Labour Mobility

The Agreement on Internal Trade (AIT) is an intergovernmental trade agreement signed by

Canadian First Ministers that came into force in 1995. Its purpose is to reduce and eliminate, to the

extent possible, barriers to the free movement of persons, goods, services and investments within the

country. Chapter 7 of the AIT deals with labour mobility. The purpose of Chapter 7 is to enable any

worker certified for an occupation by a regulated authority of one Province to be recognized as

qualified for that occupation by all other Provinces, by eliminating or reducing measures adopted or

maintained by the Provinces that restrict or impair labour mobility in Canada.

Although the province is invited to participate in Labour Mobility Coordinating Group meetings,

there are situations where the required travel approval is not granted. As a result, the province is not

able to present its views with regard to labour mobility issues.

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Program Curriculum

Background

Goals

To provide individuals with a method to receive certification in trades that meet industry

standards.

Objectives

To state the theoretical and practical requirements for an individual to be eligible for certification

examination. It includes elements such as entrance requirements, apprenticeship term, duration of

in-school and on-the-job training, course content, and tools and equipment list. Other supporting

documents include logbooks, matrixes and record of work experience sheets.

Target Population

Individuals who wish to become certified in a trade.


The budget for this program is included in the department’s operational budget for Apprenticeship

and Trades Certification division.

The program is administered by 4 staff members within the Apprenticeship and Trades

Certification division.


Apprenticeship & Certification Act



Recommendations N/A


Recommendations N/A

Business Process

Issues

The department relies on subject matter experts to provide advice on

industry requirements. These individuals are required to provide their time

either by taking time from work or meeting after regular work hours.

Currently, these individuals are compensated at $10 per hour. As a result,

the department is having difficulty recruiting experienced subject matter

experts for this important piece of work.

The current data base requires manual input of all approved curriculum

into the Apprenticeship Information Management System (AIMS). Other

information such as an individual’s practical skill progress towards

Journeyperson status cannot be readily obtained in AIMS.

Invest in database capable of providing necessary tracking information,

statistics and reporting mechanisms.

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Review Findings

Recommendations The department should determine whether the $10 per hour compensation

currently being provided is reasonable.

The department should determine whether AIMS is adequate to provide

information necessary to adequately manage the program.


An Apprenticeship Review Committee has been established.

Quick Wins

The department could determine whether the $10 per hour compensation currently being provided

is reasonable.


The department could consider increased cooperation among the Atlantic provinces and have

different jurisdictions lead curriculum development in specific areas. This would reduce the effort

required and potential duplication of like products.

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Review Findings

Program Distance Learning Pilot

Background

Goals

To develop online course material for apprenticeship trades people as an alternate method to

access required courses.

Objectives

To provide an alternate delivery option to reduce time away from home.

Target Population

Currently electrical apprentices.


The budget for 2011-12 - $95,000. The amount is allocated for development of online curriculum

for each of the 3 advanced blocks of training for the Electrical Program. To date, a total of

$285,000 has been allocated.

The program is delivered by College of the North Atlantic with oversight responsibility through

the Apprenticeship and Trade Certification Division.

Total number of clients served: Approximately 60


Apprenticeship Training Act; Provincial Apprenticeship and Certification Board


Policy Issues Although the College of the North Atlantic has an Office of Distributed

Learning which is responsible for on line program delivery, the department

did not request the college to develop the required program as part of the

college’s online services. Instead, the department provided additional funds

to the college to support online access to advanced level components of the

electrical programs which the college already offers in class.

Recommendations The department should determine whether additional funds should continue

to be provided to the college for the development of online programs

currently offered by the college in a classroom format.


Recommendations N/A

Business Process

Issues

None identified.

Recommendations N/A


None identified.

Quick Wins

None identified.


None identified.

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Review Findings

Program Instructor Certification

Background

Goals

The goal of the instructor certification policy is to provide instructors (private, CNA and Marine

Institute) with a teacher training program that aids in the delivery of training to students in post-

secondary education in the province.

Objectives

As per the Private Training Institutions Act & Regulations, and the collective agreements for

College of the North Atlantic and Marine Institute, all instructors must complete a teacher training

program as prescribed by the minister. This teacher training program consists of the completion of

6 courses through Memorial University which also allow individuals to continue on and complete

the diploma or degree in Post-Secondary Education.

Target Population

The target population is instructors of vocational programs at College of the North Atlantic,

Marine Institute and private training institutions.


The budget for this program is part of the department’s overall budget for the Institutional Services

Division.

In 2011, 81 certificates were issued and 52 as of July, 2012.

Prior to May 2011, this process was cared for by the administrative assistant for the division of

Institutional & Industrial Education. With divisional restructuring, this was moved to the division

of Institutional Services and has been cared for by the Manager of Private Training. The

monitoring of completion of courses for PTI instructors is conducted by the program consultant

responsible for specific institutions.


Private Training Institutions Act & Regulations

Collective agreements in place for both CNA and Marine Institute


Policy Issues The current Teacher Training program model, as prescribed by the

Minister, which requires the completion of six university courses is not

appropriate. The public and private training institutions have agreed that

another model should be developed which would provide different

pathways to certification.

Although the legislation requires instructors at private training institutions

to comply with the current teacher training model, instructors at the public

colleges are not required to complete the prescribed courses. This has

created inconsistencies in instructor certification and resulted in a system

that is perceived as unfair by private training institutions.

The current training model has resulted in instances of non-compliance (71

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Review Findings

as of July 2012) because instructors at institutions refuse to complete the

courses and the department has not de-registered the private training

institutions.

The department currently has responsibility for monitoring compliance

with the instructor certification requirements for private training

institutions. As a result, this takes a significant amount of time and staff

resources.

Recommendations The department should undertake a review of the current Teacher Training

model and determine if there is a more appropriate approach.

The department should determine whether it is appropriate to allow

instances of non-compliance with regards to non-certification of instructors

at private training institutions.

The department should consider having the public and private training

institutions responsible for the instructor certification process.


Recommendations N/A

Business Process

Issues

The current data base does not readily provide all information necessary to

manage the program. Furthermore, although as part of the red tape

reduction initiatives, an electronic transfer process from the private training

institutions was proposed, it was never implemented.

Recommendations The department should consider the limitations with the current data base

and consider an appropriate course of action.


None identified

Quick Wins

N/A


The department could consider having the public and private training institutions responsible for

the instructor certification process.

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Review Findings

Program Memorial University

Background

Goals

The Department of Advanced Education and Skills (AES) works to ensure the Province has highly

educated graduates and skilled workers for a fast-growing economy. Memorial University (MUN)

is Newfoundland and Labrador’s only public university, and one of the largest postsecondary

educational and skills training centers in Atlantic Canada.

AES works with MUN to further the mandate of both AES and MUN and provide quality, labour


Objectives

AES provides support to MUN related to policy development and implementation, budget

initiatives and processes, infrastructure planning and approvals, various legal issues and

relations/agreements with other Governments where required, Departments and Agencies. AES

assists MUN in furthering their priorities while respecting the priorities of this Government and the

University's autonomy.

Target Population

MUN has 5,406 employees as of March 31, 2011 (latest data available) including 2,662 permanent

employees (1,108 staff and 1,554 faculty) and 2,744 contractual employees (1,548 staff and 1,196

faculty). Staff includes 979 bargaining, 258 non-bargaining, 161 management, 7 executive, 148

professional and 1 unclassified permanent employees; and 654 bargaining, 438 non-bargaining, 27

management, 1 executive, 109 professional and 319 unclassified contractual employees. Faculty

includes 867 bargaining, 141 non-bargaining, 84 department heads, and 16 administrative

executive permanent employees; and 407 bargaining, 11 non-bargaining, 552 clinical, 207 adjunct,

1 department head and 18 other contractual employees.

Fall 2012 enrolment included 19,128 students (Fall 2011 enrolment included 18,955 students) in

undergraduate and graduate programming, including certificate, diploma and post-graduate

certificate and diploma programs.


The budget for 2011-12 - $368,719,000.

(Current 7.2.01 - $307.9M and capital 7.2.02 - $73.6M) to MUN. Funding is used to maintain

current administration standards and program offerings and fund new initiatives approved through

Government's Cabinet process. Funding to MUN for Grant-In-Aid has increased 162.6% since

2003-2004 (from $145.3M in 2003/04 to $381.5M in 2012/13). Operational (current) funding has

increased 113.7% and capital funding has increased 6033.3% over the same time period. MUN's

budget is reviewed annually with no imposed maximums.

The program is delivered by the department’s Institutional Services Division.


Memorial University Act; Degree Granting Act; Intergovernmental Affairs Act, Financial

Administration Act; Transparency and Accountability Act.


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Review Findings


Recommendations N/A


Recommendations N/A

Business Process

Issues

Because MUN has operational autonomy and academic freedom, in most

cases they make the determination as to whether or not they will fully

participate in any proposed initiatives. As a result, there are instances

where the department is not able to fully implement identified initiatives

(e.g. core mandate review where MUN declined to submit the required

phase 2 proposals.

Recommendations The department should continue to work with MUN to facilitate initiatives

where MUN and government can collaborate further to advance

departmental priorities.


None identified.

Quick Wins

None identified.


None identified.

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Review Findings

Program College of the North Atlantic (CNA)

Background

Goals

The Department of Advanced Education and Skills (AES) works to ensure the Province has highly

educated graduates and skilled workers for a fast-growing economy. College of the North Atlantic

(CNA) is Newfoundland and Labrador’s only public college, and one of the largest post-secondary

educational and skills training centers in Atlantic Canada.

AES works with CNA to further the mandate of both AES and CNA and provide quality, labour


Objectives

AES provides support to CNA related to policy development and implementation, budget

initiatives and processes, infrastructure planning and approvals, various legal issues and

relations/agreements with other Governments, Departments and Agencies. AES assists CNA in

furthering their priorities while respecting the priorities of this Government.

Target Population

CNA has 1,524 employees including 545 Support Staff, 858 Faculty, 102 Management and 19

Non-Union Non-Management positions (as of March 31, 2012). Note: This does not include

employees of CNA-Q.

2011/12 annual enrolment included 10,335 students in regular programming (2010/11 - 10,285

students) and 21,157 students in contract training and continuing education.


The budget for 2011-12 - $107,355,000.

In 2012/13, Government allocated $94.1M (Current 7.3.01-$84.3, Capital 7.3.02 -$7.1) to CNA.

Funding is used to maintain current administration standards and program offerings and fund new

initiatives approved through Government's Cabinet process. Overall funding to CNA has increased

71.2% since 2003/04 (from $53.4M in 2003/04 to $94.1M in 2012/13). Operational (current)

funding has increased 66.6% and capital funding has increased 153.6% over the same time period.

CNA may, at any point throughout the fiscal year, propose new funding initiatives or reallocation

of current funding requiring approval from Cabinet, Treasury Board etc.

The program is administered in the Institutional Services Division.


College Act, 1996; Work, Services and Transportation Act; Intergovernmental Affairs Act;

Financial Administration Act; Transparency and Accountability Act.


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Review Findings

Policy Issues Historic vacancy issues associated with the President’s office has resulted

in the department assuming a role in excess of what would normally be

expected. For example, the department has had to become heavily

involved in the college’s budgetary submission process with regards to the

development of a business case and policy analysis. Consequently, the

college has become increasingly dependent on the department in many of

its decision making processes limiting responsiveness and strategic

thinking required of this type of entity.

The college is not currently fully responsive to industry’s/government’s

identified labour market needs. As a result, the private training industry

has gained increased market share in the delivery of required programs

(e.g. trades). CNA has been focused on maintaining the viability of all 17

campuses rather than rationalizing services to meet demand.

The college also appears to respond more to revenue generating outcomes

vs. key labour market needs. For example, the college’s LW campus has

reduced its mining training capacity to expand seat capacity in its trades

and Office Administration. This was largely driven by reduced demand in

the Labrador City area for mining training. CNA could have developed

mining capacity at a different campus with higher demand for this program

(i.e. near other mining developments).

Recommendations The department needs to clarify its role and responsibilities in relation to

college decision making and activities.

The department should work with the college to ensure that it appropriately

responds to labour market needs identified by government and industry.


Recommendations N/A

Business Process

Issues

The department has not formalized its overall approach to how labour

market supply and demand information will inform and influence training

and related funding priorities. As a result, government has not clearly

articulated its position around the roles and responsibilities of the public

and private colleges, which has resulted in duplication of programs, gaps in

training and over expenditure in certain LMDA programs.

Although the department accumulates labour market supply and demand

information various divisions (e.g. LMDA, Advanced Studies) the

information is not formally shared to facilitate effective decision making.

Recommendations The department needs to be more strategic in determining the role of public

and private colleges in order to address the labour market priorities of

industry/government.

The department should consider developing a formalized approach to the

dissemination of labour market supply and demand information.

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Review Findings


The college’s core mandate submissions have identified some ways that have the potential to

address some of the issues raised if explored fully (i.e. Government/College relationship and

Governance.

Quick Wins

AES Executive to meet with CNA Executive to define expectations and set meaningful goals and

targets.

The department could develop a formalized approach to the distribution/dissemination of labour

market supply and demand information.


The department could consider the merging of Institutional Services and Apprenticeship and Trade

Certification divisions.

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Review Findings

Program Private Training Unit

Background

Goals

The goal of the Private Training Unit is to ensure that post-secondary students attending private

training institutions in the province receive training in industry relevant training programs

delivered by qualified instructors.

Objectives

The Private Training Unit was created to regulate and monitor all private training institutions in the

province that offer vocational training 50 hours or greater as per the Private Training Institutions

Act & Regulations.

Target Population

Target population is two-fold. The Private Training Unit administers the legislation governing

operation of private training institutions, so direct clients are owners/operators of private training

institutions, but ultimately, the clients are the students who complete training programs at these

institutions. There are currently 24 registered private training institutions who train approximately

2,500 – 3,000 students annually in a broad range of occupational areas. These institutions have

approximately 300 programs registered with the Department and approximately 500 registered

instructors.


The budget is part of the department’s Institutional Services division. The Private Training

Corporation oversees financial aspects of registered Private Training Institutions (PTI) and manage

the train-out fund.

There are seven staff supporting this unit. The Director of the Institutional Services division is the

superintendent of private training institutions as per the legislation along with one manager, one

clerk/typist III, three program consultants responsible for daily interaction with assigned private

training institutions and one program consultant assigned to program review. Two positions are

located in regional offices - one in Grand Falls-Windsor (currently vacant), and one in Corner

Brook.


Private Training Institutions Act & Regulations.



Recommendations N/A

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Review Findings

Legislative Issues The Private Training Regulations currently require any training institution

wishing to set up a new campus in the province to post security (minimum

of $50,000 and held for two years) for that campus. A campus is currently

defined by proximity; current policy defines any two or more premises

within a municipality as one campus. As a result, private training

institutions are limited in their response to provide quick community based

training to meet short-term community and/or industry needs without

incurring significant financial costs and long-term liability (security is

required to be held for two years after completion of training).

The Regulations were modified in 2009 to allow only currently registered

private training institutions to use their existing bonds to deliver training in

Labrador solely for the purposes of training through the Labrador

Aboriginal Training Partnership. The definition of campus was also

modified to allow communities under the Nunatsiavut Government and the

Innu Nation to be considered one for bonding purposes which would allow

new institutions to post one security to also conduct training under LATP.

Recommendations The department should consider whether the Regulations need to be

amended to allow currently registered private training institutions to deliver

short-term community based training in communities where they are

currently not set up as a campus and in the case of Labrador, operate

outside of LATP.

The department should reconsider current policy which defines a campus

in the same municipality as one for security purposes.

Business Process

Issues

The department has not formalized its overall approach to how labour

market supply and demand information will inform and influence training

and related funding priorities. As a result, government has not clearly

articulated its position around the roles and responsibilities of the public

and private colleges, which has resulted in duplication of programs, gaps in


Although the department accumulates labour market supply and demand

information via various divisions (e.g. LMDA, AS) the information is not

formally shared to facilitate effective decision making.

The department does not publicly post issues of non-compliance by PTIs to

better inform the general public. As a result, the general public may not

have adequate information to make an informed decision.

Currently the division does not have either an electronic record tracking

system (e.g. TRIM) or an information management protocol to allow more

efficient file management. As a result, much of the staff’s time is tied up

with file management.

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Review Findings

Policies and procedures related to staff duties have not been formally

documented. As a result, there is no consolidated source of material to

guide staff in the performance of their work.

The Operations Manual for PTIs is in need of updating. As a result, there

is a discrepancy between current practice and the document as it currently

exists.

There are situations where, although the division requires an industry

expert from the Apprenticeship and Trade Certification division (ATCD),

the ATCD refuses to provide the experts because the program in question

is not a currently apprenticeable trade. As a result, site visits are conducted

without industry assurance that the program curriculum and resources meet

industry requirements.

Although the Student Aid division requires private training institutions to

submit annual improvement plans to address repayment rate issues, there is

no formal protocol which requires the information to be shared with the

Superintendent of Private Training Institutions. Although there are

references within the 2011 SFS Designation Policy to private training

institutions being required to adhere to legislative requirements under the

Private Training Institutions Act and Regulations, there has been no

consultation between divisions on the information provided to SFS by

private training institutions or the outcomes of related SFS audits. As a

result, the department is at risk of providing inconsistent direction in that,

while the Superintendent may have concerns with a particular campus, the

Director of Student Aid at the same time may acknowledge continued

student aid designation for that campus. Furthermore, although the

Apprenticeship and Training Certification division requires private training

institutions to voluntary adhere to an accreditation process which includes

site visits, student surveys, and submission of annual reports, there is no

formal protocol which requires the information to be share with the

Superintendent of Private Training Institutions. As a result, the department

currently has three different divisions contacting private training

institutions for information with no consultation to ensure there is no

overlap.

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Review Findings

Recommendations The department needs to be more strategic in determining the role of public

and private colleges in order to address the labour market priorities of

government.

The department should consider developing a formalized approach to the

dissemination of labour market supply and demand information.

The department should consider publicly posting non-compliance by PTIs.

The department should consider establishing a file management process for

the division.

The division should continue with its efforts to formally consolidate

policies and procedures for staff.

The division should continue with its effort to update the Operations

Manual for PTIs.

The department should consider developing a protocol which requires

industry expert involvement in the assessment of non-apprenticeable but

trades related programming.

The department should ensure that protocols are in place to clarify what

information various AES divisions require from private training institutions

and to share information across divisions to avoid the risk of duplication

and inconsistent decisions concerning private training institutions.


None identified.

Quick Wins

The department could consider publicly posting non-compliance by PTIs.

The division should continue with its efforts to formally consolidate policies and procedures for

staff and upgrade its standards and guidelines for PTIs.

The division should continue with its effort to update the Operations Manual for PTIs.

The department should ensure that protocols are in place to clarify what information various AES

divisions require from private training institutions and to share information across divisions to

avoid the risk of duplication and inconsistent decisions concerning private training institutions.


The department could consider the merging of Institutional Services and Apprenticeship and Trade

Certification divisions.

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Review Findings

Program Interprovincial Red Seal (Apprenticeship) Program

Background

Goals

To provide skilled workers mobility across Canada by encouraging the Standardization of training

certification of programs.

Objectives

Red Seal Certified workers can work anywhere in Canada where their trade is designated. They

have qualified by passing industry developed interprovincial examinations that are based on

nationally validated occupational analyses.

Target Population

Red Seal Program Policies; Provincial Apprenticeship Certification Board.


The budget for 2011-12 - $58,000 The province must pay an Interprovincial Computerized Exam Management System (ICEMS)

annual usage fee of approximately $58,000.

HRSDC supports jurisdictions' involvement in developing and maintaining products and services

covering costs for Program Development Officers to travel to Item Banking workshops; Subject

Matter Experts (Journeypersons) to travel to Interprovincial Program Guide workshops, National

Occupation Analysis workshops, and Item Banking workshops. The Canadian Council of

Directors of Apprenticeship (CCDA) meet three times per year, one of which is paid by HRSDC.

The Manager of Standards and Curriculum, as Interprovincial Standards Examining Committee

(ISEC) representative, attends one Annual General Meeting.

Budget is prorated based on usage among 14 jurisdictions, federal, provincial and the territories are

partners.

The program is delivered by the CCDA Director, St. John's; ISEC Representative: Manager S &

C, Clarenville; PDOs of Curriculum Development, one in Corner Brook and three in St. John's.


The Provincial Apprenticeship and Certification Act


Policy Issues Of the 53 Red Seal endorsed apprenticeship trades in Canada 33 of these

trades are designated for apprenticeship training in this province; however,

only 4 of the trades are designated as compulsory. As a result, there could

be health and safety issues along with consumer protection issues as a

result of the lack of compulsory certified trades.

Currently, because of the lack of mandatory certification of many trades,

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Review Findings

unions determine the qualifications required and suitability of individuals

for placement on job sites, often times with significant priority based on

seniority.

Recommendations The department should consider whether more red seal designated trades

should be designated as compulsory.


Recommendations N/A

Business Process

Issues

Although the province is required to participate in the ongoing

development of national red seal products, there are situations where the

required approval is not granted. As a result, the province’s access to red

seal certified products could be impacted.

Recommendations The department should consider its level of participation in the national red

seal certification program to ensure that access to programs continues and

there is an opportunity to participate and influence national standards.


None identified.

Quick Wins

None identified.


None identified.

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Review Findings

Program Power Engineering

Background

Goals & Objectives

To approve the curriculum required to meet certification standards and administer testing for each

of the four levels of proficiency of individuals working with pressure vessels (e.g. boiler rooms

and heating plants).

Target Population

Power Engineers.


The budget for this program is included in overall Apprenticeship Budget.

The program is administered through The Apprenticeship and Trade Certification Division.

Number of clients served annually: 890, with 92 new registrations and there have been on average

300 exam writings over a 12 month period.


Standardization of Power Engineer’s Examination Committee (SOPEEC) Regulations,

Interprovincial Power Engineering Curriculum Committee (IPECC), Boiler, Pressure Vessel and

Compressed Gas Regulations under the Public Safety Act.



Recommendations N/A


Recommendations N/A

Business Process

Issues

The current information system (microcomputer based) provides limited

tracking information, statistics and reports.

Recommendations The department should determine whether the current system is adequate

for managing the program.


None identified.

Quick Wins

None identified.


The department could consider having the College of the North Atlantic perform testing and

certification along with the training.

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Review Findings

Program Foreign Qualifications Recognition

Background

Goals

The Pan-Canadian Framework for the Assessment and Recognition of Foreign Qualifications

describes the steps and processes that governments aspire to implement to foster successful

immigrant labour market integration, and address current gaps in foreign qualification recognition;

it represents a collaborative approach by federal, provincial, and territorial governments. It is

based on the guiding principles of fairness, transparency, timeliness, and consistency.

Governments will work towards improvements along the pathways to recognition in Canada,

which include pre-arrival services, assessments, recognition (varying degrees), individual and

employer supports, and workforce participation services.

The Framework represents a joint commitment by federal, provincial, and territorial governments

to work together to improve foreign qualification assessment and recognition systems in Canada.

The goal is that within one year, an individual will know whether their qualifications will be

recognized, or be informed of the additional requirements necessary for registration, or be directed

toward related occupations commensurate with their skills and experience.

Objectives

The objective of the Framework is to articulate a new joint national vision, guiding principles and

desired outcomes for improving the assessment and recognition of foreign qualifications.

The Foreign Qualifications Recognition Working Group has been working with regulatory bodies

to implement the Framework across Canada on an occupation by occupation basis. Target

occupations for 2009-2010 included architects, engineers, financial auditors and accountants,

medical laboratory technologists, occupational therapists, pharmacists, physiotherapists, and

registered nurses. Occupations with a target date of December 31, 2012, include dentists,

engineering technicians, licensed practical nurses, medical radiation technologists, physicians, and

teachers (K-12).

The process followed by the FQRWG, in collaboration with stakeholders, to foster continuous

improvement, includes: analysis; stakeholder engagement; priority setting and action planning;

implementation and follow-up; and evaluation and reporting. In addition to the work of the overall

FQRWG, task teams (sub-committees) work with specific occupations to provide

guidance/analysis, hold consultations, identify priority actions/opportunities, and advise on follow-

up activities.

Target Population

The initial eight occupations that were the focus of the implementation of the Framework were:

• Architects

• Engineers

• Financial Auditors and Accountants

• Medical Laboratory Technologists

• Occupational Therapists

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Review Findings

• Pharmacists

• Physiotherapists

• Registered Nurses

Target occupations for the implementation phase of the Framework ending December 2012

include:

• Dentists

• Engineering Technicians

• Licensed Practical Nurses

• Medical Radiation Technologists

• Physicians

• Teachers (K-12)

Work has commenced to identify the third set of occupations.

The Foreign Qualifications Recognition Working Group engages regulatory bodies, post-

secondary institutions, and other key partners, to implement the Framework. There is a

commitment to ongoing collaboration, building upon successes and lessons learned, and

continuing to take concerted action to meet the objectives of the Framework.

Each jurisdiction has the right to adopt occupational standards and, thus, ensure the protection of

the public. Under Chapter 7, once an internationally-trained person is certified by a

province/territory, they must be treated the same as a Canadian-trained worker for certification.

The Department of Innovation, Business and Rural Developments consults with the Skills

Development Division to obtain a labour mobility/foreign qualifications recognition perspective on

matters related to trade agreements. For example, feedback is provided in relation to the Canada -

European Union Comprehensive Economic and Trade Agreement, and the Canada - India

Comprehensive Partnership Agreement. The Manager of Special Projects and the Director, Skills

Development Division, are members of the interdepartmental working group.


The budget for this program is part of the department’s operational budget.

The program is administered by the Manager of Special Projects, Skills Development Division.

They represent NL on the Foreign Qualifications Recognition Working Group (FQRWG); this also

involves participation in sub-committees of the FQRWG. For example, NL is currently a member

of both the Teachers Task Team and the Licensed Practical Nurses Task Team.

The Skills Development Division has lead responsibility for foreign qualifications recognition and

works with regulatory bodies regarding occupational regulation, and Chapter 7 of the Agreement

on Internal Trade. The Division is supported by the Office of Immigration and Multiculturalism

(OIM) in the work related to the FQRWG; the Division works with OIM to ensure all views are

addressed and presented in relation to foreign qualifications recognition agenda items.


Chapter 5 5-B-1-9

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Review Findings

N/A


Policy Issues Many of NL’s regulatory bodies are small, with little capacity, resources or

knowledge to address matters along the pathways to recognition of foreign

qualifications such as assessing the credentials and training obtained

outside Canada. In general, the degree of support and services offered by

regulatory bodies may vary across both occupation and jurisdiction. As a

result, the province is at risk of either not attracting or not retaining

immigrants who may opt to move to provinces with a formalized approach

to foreign qualification recognition.

Government has not established a strategic process for the identification of

priority occupations that could be addressed through foreign workers.

Recommendations The province should consider developing a formalized approach to foreign

qualification recognition.

The department should consider developing a strategic process for the

identification of priority occupations that could be addressed through

foreign workers.


Recommendations N/A

Business Process

Issues

Although the federal government had allocated $800,000 in 2009 to be

spent by the province related to foreign qualification recognition initiative,

the department has still not received the funding because it is still in

negotiations with the federal government. It is important to note that other

jurisdictions have received the funding and are proceeding with the

initiative.

Although the province is invited to participate in the ongoing development

of foreign qualifications recognition, there are situations where the required

approval is not granted. As a result, the province is not able to present its

views with regard to foreign qualification recognition.

Recommendations The department should ensure that all federal funding is obtained as soon

as possible to develop the foreign qualification recognition program for the

province.

The department should consider its level of participation in the foreign

qualification recognition program to ensure that its views are represented,

and ensure provincial capacity in foreign qualification assessment and

recognition expands.


None identified.

Quick Wins

Chapter 5 5-B-1-9

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Review Findings

None identified.


While the Skills Development Division has lead responsibility for foreign qualifications

recognition and works with regulatory bodies regarding occupational regulation, it is supported by

the Office of Immigration and Multiculturalism (OIM) to ensure all views are addressed and

presented in relation to foreign qualifications recognition agenda items. As a result, there is

possibility for integration.

Chapter 5 5-B-1-10

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Review Findings

Program International Education

Background

Goals

To provide policy support to educational institutions in their attraction and retention of

international students.

Objectives

To work with the federal government, other jurisdictions and other provincial stakeholders with

regards to strategic initiatives aimed at the attraction and retention of international students.

Target Population

International students


The budget for this program is part of the department’s operating budget for Institutional Services.


IGA Act

Private Training Institutions Act

College Act

Memorial University Act


Policy Issues Government does not have a business plan as it relates to international

education initiatives and pursuits. As a result:

Currently government’s awareness of provincial educational

institutions engagement with other countries is limited. As a result,

the province is often reactionary when issues concerning labour

mobility, immigration and the safety of international students

attending local institutions arise;

Government is not aware of the number of NL students currently

attending foreign education institutions which may result in

challenges such as when international safety issues emerge; and

The province does not currently take initiative like other jurisdictions in the

identification and pursuit of international education opportunities (e.g.

MOU with other countries concerning student exchange and export of

curriculum). As a result, the province has lost revenues.

Recommendations The department should consider developing a business plan to clarify its

international education initiatives and pursuits.


Recommendations N/A

Chapter 5 5-B-1-10

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Review Findings

Business Process

Issues

Currently there is no direct institutional monitoring of international

students at the post secondary level. However, the changes being put

forward by Citizenship and Immigration Canada (CIC) will result in a

significant increase in the level of monitoring, reporting and evaluation

required.

The department has not established a strategic process for the identification

of priority occupations that could be addressed through the targeted

recruitment of international students.

The department has not identified specialized training programs already

established in other countries that could be accessed by NL students to

address the current and upcoming skill gaps.

Currently there is no formalized communication protocol among the

divisions of Institutional Services (International Education), OIM

(Immigration), Skills Development (Foreign Qualification Recognition and

Labour Mobility) and LMDA (labour market supply and demand).

Recommendations The department should consider the level of resources required to meet

CICs new requirements.

In the development of its business plan, the department should consider a

strategic process for the identification and communication of priority

occupations that could be addressed through the targeted recruitment of

international students.

The department should determine whether there would be benefit in

identifying specialized training opportunities in other countries that could

be accessed to assist with the current and upcoming skill gaps.


None identified.

Quick Wins

N/A


The department could develop and implement a formalized communication protocol among the

divisions of Institutional Services (International Education), OIM (Immigration), Skills

Development (Foreign Qualification Recognition and Labour Mobility) and LMDA (labour market

supply and demand).

Chapter 5 5-B-1-11

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Review Findings

Program Labour Mobility

Background

Goals

The Agreement on Internal Trade (AIT) is an intergovernmental trade agreement signed by

Canadian First Ministers that came into force in 1995. Its purpose is to reduce and eliminate, to

the extent possible, barriers to the free movement of persons, goods, services and investments

within the country. Chapter 7 of the AIT deals with labour mobility. The purpose of this Chapter

is to enable any worker certified for an occupation by a regulated authority of one Party to be

recognized as qualified for that occupation by all other Parties, by eliminating or reducing

measures adopted or maintained by the Parties that restrict or impair labour mobility in Canada.

The Forum of Labour Market Ministers established the Labour Mobility Coordinating Group

(LMCG) to coordinate implementation of Chapter 7. Essentially, a national co-operative process,

led by the LMCG, is in place and governments, regulatory bodies and other stakeholders are

working to ensure certified workers are recognized across provinces and territories and common

inter-provincial/territorial standards are adopted where possible and practical.

The work of the LMCG supports positive labour market outcomes and fosters labour market

participation; this helps in the supply of workers for a fast growing economy.

Objectives

The role of the Labour Mobility Coordinating Group is to:

• advise regulatory bodies of their obligations and provide support and advice throughout the

process;

• oversee recognition and reconciliation processes;

• develop policy options to address recurring mobility barriers;

• monitor and evaluate results of negotiations to assess whether compliance to Chapter 7 of

the AIT has been met; and

• respond to worker inquiries.

Target Population

Regulators: There are approximately 400 regulatory authorities in Canada with varying degrees of

capacity and resources; approximately 18-20% of all workers are regulated. Compliance with the

obligations of the Chapter by occupational regulatory authorities with delegated authority is

mandatory, since governments have agreed to “ensure” their compliance. While some regulated

occupations benefit from a high level of commonality in their provincial/territorial standards and

enjoy a high level of labour mobility, the need to continue dialogue among professions across

jurisdictions is clear. Collaboration in the development and maintenance of common occupational

standards can help to achieve labour mobility objectives. Each province/territory has the right to

adopt occupational standards and, thus, ensure the protection of their public at the level they

consider appropriate.

Workers: Chapter 7 of the Agreement on Internal Trade aims to remove barriers to the movement

Chapter 5 5-B-1-11

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Review Findings

of workers within Canada so that employers can hire the people they need and workers can avail of

opportunities. Workers experiencing barriers (other than those deemed exceptions based on

legitimate objectives) may contact their Labour Mobility Coordinator to look into the matter and

consult with the Labour Mobility Coordinator in the receiving jurisdiction, to help resolve any

issues. Individuals applying to be certified for the first time in Canada are subject to all entry to

practice requirements required by the regulator.

The Department of Innovation, Business and Rural Developments consults with the Labour

Mobility Coordinator/Skills Development Division to obtain a labour mobility/foreign

qualifications recognition perspective on matters related to trade agreements. For example,

feedback is provided in relation to the Canada - European Union Comprehensive Economic and

Trade Agreement, and the Canada - India Comprehensive Partnership Agreement. The Manager

of Special Projects and the Director, Skills Development Division, are members of the

interdepartmental working group.


The budget for 2011-12 - $1,767.

The program is administered by the Manager of Special Projects (Labour Mobility Coordinator),

Skills Development Division.


Labour Mobility Implementation Act



Recommendations N/A


Recommendations N/A

Business Process

Issues

Although the province is invited to participate in Labour Mobility

Coordinating Group meetings, there are situations where the required

approval is not granted. As a result, the province is not able to present its

views with regard to labour mobility issues.

Recommendations The department should consider its level of participation in the Labour

Mobility Coordinating Group meetings to ensure that its views are

represented.


None identified

Quick Wins

N/A

Streamlining & Consolidation Opportunities None identified

Chapter 5 5-B-1-12

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Review Findings

Program Trade Qualifier

Background

Goals

This is a program which allows an individual, based solely on work experience in an occupation to

challenge the certification examination in any of the designated trades.

Objectives

This is part of the department’s recruitment and retention strategy to increase labour supply in the

skilled trades and increase the province's capacity to fully maximize the benefits of planned major

resource-based project developments. The program should also increase the number of employers

engaged in the apprenticeship system and increase apprenticeship stakeholder participation and

accountability (Employers, Advisory Committee members).

Target Population

A person who has been employed in a designated occupation for a length of time not less than one

year in excess of the apprenticeship term as specified in the Conditions Governing Apprenticeship

Training for that occupation and subsequently wishes to become certified.


The budget for this program is included in overall Apprenticeship budget

The program is administered by the same nine staff administering the Apprenticeship Program.

Number of clients served annually: In the 2011 calendar year there was 416 registered active TQ’s,

of which 322 were registered during that year. There were 207 trade Qualifiers receiving their

Certificate of Qualification that year.


Apprenticeship and Certification Act


Policy Issues Currently the department is not doing a good job in promoting the TQ

program. As a result, there are many individuals who could complete the

program and obtain their trade certification and improve their employment

opportunities.

Recommendations The department should consider promoting the TQ program.


Recommendations N/A

Business Process

Issues

The AIMS system used to track clients does not have the capability to

inform staff of a required future action such as monitoring certificate

renewal after five years to determine the trade activity. As a result, the

department is not aware of whether clients made a long term attachment to

their certified trade.

Chapter 5 5-B-1-12

307

Review Findings

The TQ assessment process is currently separate from other client

assessment processes within the department. As a result, TQ clients may

not be availing of other departmental programs to support their

employment and education needs.

Although the division has set a standard of a five day turn around time for

completion of application assessment, the standard is seldom met. As a

result, client services is not at its optimum.

Recommendations The department should consider a tracking system capable of providing

information necessary to monitor the program.

The department should consider integrating the TQ assessment process

with other departmental assessments.

The department should consider turn around time and determine if

additional resources is required.


There is a committee currently reviewing the Apprenticeship Program.

Quick Wins

The department could consider integrating the TQ assessment process with other departmental

assessments.


The department could consider integrating the TQ assessment process with other departmental

assessments.

Chapter 5 5-B-2

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Review Findings

5-B-2 Workforce Development

A total of six programs were categorized as being part of the department’s Workforce Development.

Two of the programs (Strengthening Partnerships and Employer/Apprenticeship Recognition

Awards) related to apprenticeships, two programs (Labour Market Research and Skills Task Force)

related to labour supply and demand, one program related to a review process of large proposed

projects from a socioeconomic perspective while one provides a review of the department’s Career

Work Centres.

2 Workforce Development

11/12 Budget

($M's)

11/12 Actuals

($M's) Reference

1 Career Work Centres PD N/A N/A 5-B-2-1

2 Labour Market Research LMD N/A N/A 5-B-2-2

3 Strengthening Partnerships ATC N/A N/A 5-B-2-3

4 Environmental Assessment LMD N/A N/A 5-B-2-4

5 Skills Task Force SD 0.100 - 5-B-2-5

6 Employer/Apprentice Recognition Awards ATC 0.030 0.020 5-B-2-6


Apprenticeship & Trades Certification ATC 2 - -

Skills Development SD 1 - -


Labour Market Development LMD 2 - -

Program Delivery PD 1 - -

Total Workforce Development Functions 6 - -

The following issues were identified by program area:

1. Strengthening Partnerships

The purpose of the initiative is to increase apprenticeship and certification opportunities in the area

of skilled trades and power engineering by building partnerships and increasing engagement in

Apprenticeship and Trades Certification Programs. A number of issues were identified as follows:

At an Apprenticeship Forum, it was identified that:

the department’s engagement with stakeholders is ad-hoc and often times reactive.

This results in an uncoordinated approach to information gathering on stakeholder’s

apprenticeship needs; and

the department is not responsive in a timely manner to stakeholder requests for

information and in many instances it took many calls or emails in order to make contact

with departmental staff.

Chapter 5 5-B-2

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Review Findings

The skill set of the eight PDOs (GS-42) in the Regional offices is not being utilized

effectively as they are responsible for apprenticeship administrative duties. Furthermore,

apprentices do not have online access to departmental information necessary to determine

their apprenticeship status. As a result, PDOs have to respond to individual inquiries which

is not an optimal utilization of their skill set.

There is no integration of PDOs within the department’s current program administration,

which results in a disjointed service delivery approach. For example, PDOs are not located

in AES offices across the province and do not have ongoing contact with other AES front-

line staff.

The department does not strategically plan and administer apprenticeship block training. As

a result, the uptake on advance level apprenticeship training is not as high as would be

expected. This can be attributed to:

Lack of knowledge of apprenticeship training requirements. The Apprenticeship

Information Management System (AIMS) is not adequate in providing information

necessary to track, monitor and report on the apprenticeship training requirements;

Lack of planning and collaboration with training institutions to deliver the identified

training in relevant areas of the province. The department does not consider where the

pools of apprentices are currently located with a view to ensuring that the necessary

advanced level training for certification is available within the area they work. As a

result, there are situations where the advanced training is only available in areas outside

the apprentice’s place of work e.g. plumbing available only in Bonavista; and

Ad-hoc approaches to working with employers and apprentices in the scheduling and

funding of required training. Because block training funding is on an individual basis

through LMDA, when the uptake is lower than anticipated for the class, the training can

be either cancelled or rescheduled by the training institution. This has a negative

impact for both the employer and apprentice, reduces confidence in the program and

likely results in fewer apprentices obtaining journeyperson certification.

While some suppliers have indicated a desire to have a “direct entry” path as a way to train

for a trade or industry career, the department has not pursued this method. Having a direct

entry system could result in an increase in apprentices in certain occupations.

Not all employers receive funding through the Apprenticeship Wage Subsidy Program

because there are insufficient funds. As a result, there may not be as many apprentices hired.

The department does not match apprentices with prospective employers to facilitate

attachment to the labour market. As a result, there may be apprentices who cannot find

employment and vice versa.

Chapter 5 5-B-2

310

Review Findings

The department has not been clear on the expectations of outcomes regarding interactions

with key stakeholders. As a result, it is not possible to determine whether the department has

been effective in its partnership with stakeholders.

Although there are multiple divisions within the department responsible for employer

engagement, they are not integrated or coordinated to ensure that engagement with

employers is optimized.

2. Employer/Apprenticeship Recognition Awards

The program is designed to promote public regional recognition of successes in the apprenticeship

program, and recognition of journeyperson graduates, employers and support staff. The following

issues were identified:

Although the department awards certain companies for their participation in the

apprenticeship program, the criteria for selection of employers is not clearly defined. As a

result, the selection of companies for awards may not be consistent.

The program is currently funded under the LMA budget which is scheduled to end in March

2014.

Although the department has other employer recognition awards, there is no consideration

given to coordinating the initiatives.

3. Labour Market Research

Comprehensive, current and accurate labour market information is required for departmental

strategic policy and planning activities. A number of issues were identified with regards to current

process as follows:

Staff indicated that the current labour market information does not provide adequate


example, while labour market information on the Avalon Peninsula maybe considered


There has not been any rationalization as to either the type of labour market information

required or the resources necessary to collect, analyze and disseminate the information.

Relevant staff have limited expertise in the interpretation and analysis of labour market

information and reports provided.

Chapter 5 5-B-2

311

Review Findings

Although AES currently has multiple staff (e.g., LMDOs, PDOs, CSOs, and Hotline staff)

who interact directly with employers and industry, the information gathered is not always

shared among staff nor are the employer or industry contacts coordinated. This can result in

overlap and duplication.

Although current labour market information is available within AES, it is not provided to all

staff who require the information as part of their duties.

AES currently has multiple labour market research activities (Advanced Skills Division and

Labour Market Division) with limited interaction, resulting in limited sharing of information

and duplication of effort.

4. Skills Task Force

The Skills Task Force (2007) was created to identify future skills requirements (labour supply and

demand) for the economy, particularly those associated with large-scale development projects;

identify skills gaps and the potential impact of these gaps on attracting large-scale development

projects; and assess the Province’s ability to respond to these requirements. In particular, the Skills

Task Force considered labour market requirements for large-scale development projects including

Hibernia, Terra Nova and White Rose offshore petroleum projects, the Iron Ore Company’s mining

operations in Labrador City, Voisey's Bay nickel mining and refining projects, the Hebron offshore

oil development and the Lower Churchill hydroelectric project.

The Skills Development Division coordinates, monitors, evaluates and reports on the Skills Task

Force Action Plan and provides support to the Industry Coordinating Committee (ICC). The

following issues were identified:

Given the creation of the Workforce Development Secretariat, it is unclear what role the ICC,

under the Skills Task Force, will play. The ICC is inactive and, as a result, little work has

been performed relative to the skills trade component of a progressive human resource

strategy as envisaged in the Skills Task Force report. Furthermore, as a result of the ICC

inactivity, there has been inadequate stakeholder engagement to gather and disseminate

current information around labour market needs and skill requirements used to determine

post secondary academic planning; and

There are currently limited formal mechanisms in place to quickly respond to the labour

market training requirements of employers in order to appropriately coordinate funding

requirements and program delivery logistics.

5. Environmental Assessment

Environmental assessments are required to protect the environment and quality of life of the people

of the province, and facilitate the wise management of the province’s natural resources. The

department is responsible to review project registrations submitted to the provincial government

from a departmental socioeconomic perspective. The following issues were identified:

Chapter 5 5-B-2

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Review Findings

Although the LMD division reviews these potential projects, the information is not shared

across AES to ensure that the implications on the labour market related to proposed projects

is strategically considered; and

Although the LMD division is currently responsible to provide input into environmental

assessments, it may be more appropriate for the Workforce Development Secretariat to lead

this review.

6. Career Work Centres

Career Work Centres (CWC) are community-based resource centres linking job seekers and

employers. All Centres have resources, tools and supports such as public access computers, printed

resources and a Business Service Centre (e.g. free access to phone, photocopying and fax) to assist

clients make a labour market attachment. A number of issues were identified as follows:

In locations where 3rd

party service providers also operate, it may be that individuals go to

those offices to access services instead of accessing services at a CWC. This may be most

prevalent in areas where 3rd

party service providers were established prior to the CWC (e.g.

Dunville).

The department has provided limited marketing of the CWC for the supports and services

offered. This has likely resulted in limited usage, especially in some of the more rural CWC

locations.

Although the department may consider the number of in-person visits to the CWC as an

indicator of success, given the increase use of technology in obtaining access to departmental

services, individuals do not necessarily need an in-person visit. There is evidence to support

this position. In particular, a specific initiative (2012 high school flyer) undertaken in an

attempt to increase on site utilization had limited success indicating that young people may

prefer alternate service delivery methods.

There is no formalized business model for the CWC and, as a result, there are variances in

the organization structure, the services offered and front-line staff responsibilities across

CWCs. For example, there is a student aid presence in only four CWCs.

Chapter 5 5-B-2-1

313

Review Findings

Program Career Work Centres

Background

Goals

Career Work Centres are community-based resource centres, linking job seekers and employers.

Available in all Centres are resources, tools and supports to facilitate that connection such as

public access computers, printed resources, training rooms and a Business Service Centre (e.g. free

access to phone, photocpying and fax).

Objectives

To link job seekers and employers, provide a one stop access point for clients who are seeking

information on the labour market, employment and education and access to supports.

Target Population Individuals, employers and community partners.


The majority of expenditures are covered under the department’s operating budget. There is

another approximately $200,000 allocated under Labour Market Division for specific CWC related

initiatives.

Total number of clients served for 2011-12: 61,458 (In person visits)

Of the 27 AES offices across the province, 14 have designation as Career Work Centres (CWC).

Provincial office, through the Labour Market Development Division, provides oversight and

guidance to Career Work Centre activity. The service is delivered with the following regional

staff: Labour Market Development Officers (LMDO), Client Service Officers (CSO).

Administrative Support staff, and Career Development Specialists (CDS). LMDOs provide local

guidance and leadership to staff of the CWC.


Employment and Income Support Act



Recommendations N/A


Recommendations N/A

Business Process

Issues

In locations where LMDA funded 3rd

party service providers also operate,

it may be that individuals go to those offices to access services instead of

accessing services at a CWC, in particular where 3rd

party service providers

were established prior to the CWC (e.g. Dunville).

The department has provided limited marketing of the CWC for the

supports and services offered which has resulted in limited usage, in

particular, in some of the more rural CWC locations.

Although the department may consider the number of in person visits to

Chapter 5 5-B-2-1

314

Review Findings

the CWC as an indicator of success, given the increase use of technology

obtaining access to departmental services, individuals do not necessarily

need an in person visit.

A significant number of the "in-person" visits (~80%) are associated with

Income Support clients who are coming into the sites for administrative

reasons related to Income Support. There are no Income Support staffing

resources assigned to the CWC front-end reception. Due to the high

volume of such clients, this results in a lot of interaction/responding to IS

client caseload issues as opposed to the provision of/access to employment

and training resources and supports at the Centers.

There is no formalized business model for the CWC, and as a result there

are variances in the organization structure, the services offered and front

line responsibilities across CWCs. For example, student aid has presence

in four CWCs. Furthermore, upon initial set-up, there were no designated

resources assigned for the CWCs which further compounds regional/CWC

differences as the regions attempt to provide CWC services within existing

resource base.

Recommendations The department should consider the client base that it intends to serve and

identify initiatives to maximize utilization of CWCs in relation to the

services offered by other 3rd party service providers.

The Department should consider reorganizing the structure and staffing

resources assigned to the CWCs to better respond to the actual client

groups targetted (i.e. ensure Income Support staff are available for IS

clients while employment staff should be focused on employment/training

supports and services.

The department should consider a marketing campaign for CWCs.

Furthermore, the department should develop a province wide strategy to

improve visibility of the CWCs including appropriate signage.

The department needs to recognize that individuals do not require an on

site visit to access information given today’s technology and as such

should determine other ways to measure CWC success. To illustrate,

although there have been specific initiatives (2012 high school flyer)

undertaken in an attempt to increase on site utilization, it was of limited

success indicating that young people may prefer alternate service delivery

methods.

The department should consider developing a formalized business model

for the CWCs to ensure a consistent service delivery network.


Chapter 5 5-B-2-1

315

Review Findings

The Labour Market Division is reviewing its LMI-focused on line services.

Quick Wins

Signage for Career Work Centres.


The department should consider which services can be offered from the CWC ( e.g.

apprenticeship, student aid and immigration).

Chapter 5 5-B-2-2

316

Review Findings

Program Labour Market Research

Background

Goals:

To provide labour market research and analysis for both internal and external audiences.

Objectives:

To provide current and accurate labour market information and support to internal/external

audiences and for departmental strategic policy and planning activities.

Target population:

Any person, organization, employer, job seeker, researcher, or government official seeking labour

market information.


This service is based on an operating budget administered by 3.5 departmental staff located in

provincial office’s Labour Market Division.


N/A



Recommendations N/A


Recommendations N/A

Business Process

Issues

Staff have indicated that the current labour market information does not

provide adequate localized labour market information to supplement

current regional and provincial data. For example, while labour market

information on the Avalon peninsula may be considered adequate,

information on a particular community is not readily available.

There has not been any rationalization as to either the type of labour market

information required or the resources necessary to collect, analyse and

disseminate the information.

Relevant staff have limited expertise in the interpretation and analysis of

labour market information and reports provided.

Although AES currently has multiple staff (e.g., LMDOs, PDOs, CSOs,

and Hotline staff) who interact directly with employers and industry, the

information gathered is not always shared among staff nor are the employer

or industry contacts coordinated. This can result in overlap and

duplication.

Although current labour market information is available within AES, it is

not provided to all staff who require the information as part of their duties.

Chapter 5 5-B-2-2

317

Review Findings

AES currently has multiple labour market research activities (advanced

skills division and labour market division) with limited interaction,

resulting in limited sharing of information and duplication of effort.

Recommendations AES should ensure that relevant local, regional, and provincial level labour

market information is collected and analyzed consistently and disseminated

using a standardized process. Distribution and strategic usage protocols

need to be developed to enhance links at the regional level.

AES should develop a strategic plan to identify the department’s priorities

for labour market information.

AES should provide training to management and staff in order to enhance

understanding and interpretation of labour market information.

At a regional level, all planned contacts with employers should be

coordinated and common information shared.

AES should determine which staff require labour market information and

ensure that current information is provided in a timely manner.

AES should determine whether it is necessary to have multiple divisions

involved in the collection, analysis and dissemination of labour market

information.


LMD staff are curently developing strategy to collect information on "hard-to-fill" positions. The

Division continues to disseminate the following products:

PPSOL (Provincial Post Secondary Offerings Listing), available through LMIworks.nl.ca

Monthly analysis of the Labour Force Survey results distributed to Departmental

executive

Monthly flashsheet containing a variery of labour market indicators distributed to select

managers and staff within the department

Monthly overview of provincial Job Vacancy Data sent to Departmental Executive,

Managers and select staff

LMInews distributed to an ever increasing audience both internal and external to

government

Quick Wins

Labour market information should be provided to all relevant staff along with an overview on

appropriate usage.


Opportunities may exist for various labour market information research functions throughout the

department to be centralized.

Chapter 5 5-B-2-3

318

Review Findings

Program Strengthening Partnerships

Background

Goals

To increase apprenticeship and certification opportunities in the area of skilled trades and power

engineering.

Objectives

To build partnerships and increase engagement in Apprenticeship and Trades Certification

Programs.

Target Population

The primary stakeholder group is employers providing information and employing apprentices.

Secondary stakeholders would include such groups as students, construction associations, home

builders associations, unions, sector councils, training institutions, aboriginal groups, and special

interest groups.


No specific budget associated with this activity. Primary activities administered by Apprenticeship

& Trades Certification division with support from Skills Development and Institutional Services.

There are currently eight Program Development Officers province wide (Regional office)

responsible for approximately 6,000 comprised of 5,200 apprentices and 800 trade qualifiers.





Policy Issues At an Apprenticeship Forum, it was identified that the department’s

engagement with stakeholders is adhoc and often times reactive This

results in a lack of a coordinated approach to information gathering on

stakeholder’s apprenticeship needs.

Recommendations The department should consider being more proactive and coordinate

engagement among stakeholders in order to ensure that information is

shared on an ongoing basis.

The department should consider developing a targeted communications

strategy with a focus on educating and improving the connection with all

stakeholders.


Recommendations N/A

Business Process

Issues

At an Apprenticeship Forum, it was indicated that the department was not

responsive in a timely manner to stakeholder requests for information.

Furthermore, stakeholders indicated that in many instances it took many

calls or emails in order to make contact with departmental staff.

Chapter 5 5-B-2-3

319

Review Findings

The skill set of the eight PDOs is not being utilized effectively. Currently,

PDOs (GS 42) are involved in administrative duties and as a result, do not

spend an adequate amount of their time working directly with employers

and apprentices.

There is no integration of PDOs within the department’s current program

administration, which results in a disjointed service delivery approach. For

example, PDOs are not located in AES offices across the province and do

not have ongoing contact with other AES front line staff.

The Apprenticeship Information Management System (AIMS) is not

effective, timely or efficient in providing information necessary to track,

monitor and report on the apprenticeship program.

Apprentices do not have online access to departmental information

necessary for them to determine their apprenticeship status. As a result

PDOs have to respond to the inquiries which is not an optimal utilization of

their skill set.

The department does not currently post its apprenticeship block training

schedule so that employers and apprentices can plan in advance to allow

apprentices to attend block training toward Journeyperson certification. As

a result, the uptake on advance level apprenticeship training is not as high

as would be expected.

Because block training funding is on an individual basis through LMDA,

when the uptake is lower than anticipated for the class, the training can be

either cancelled or rescheduled by the training institution. This has a

negative impact for both the employer and apprentice, reduces confidence

in the program and likely results in fewer apprentices obtaining


The department does not consider where the pools of apprentices are

currently located with a view to ensuring that the necessary advanced level

training for certification is available within the area they work. As a result,

there are situations where the advanced training is only available in areas

outside the apprentice’s place of work e.g. plumbing available only in

Bonavista.

Although some suppliers have indicated a desire to have a “direct entry”

path as a way to train for a trade or industry career, the department has not

pursued this method. Having a direct entry system could result in an

increase in apprentices in certain occupations.

Not all employers receive funding through AWS because there are

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Review Findings

insufficient funds for all employers to receive this subsidy. As a result,

there may not be as many apprentices hired.

The department does not match apprentices with prospective employers to

facilitate attachment to the labour market. As a result, there may be

apprentices who cannot find employment and vice versa.

The department has not been clear on the expectations of outcomes

regarding interactions with key stakeholders. As a result, it is not possible

to determine whether the department has been effective in its partnership

with stakeholders.

Although, there are multiple divisions within the department responsible

for employer engagement, they are not integrated or coordinated to ensure

that engagement with employers is optimized.

Recommendations The department should consider developing a client service framework and

a realignment of human resources within the Apprenticeship and Trade

Certification division.

The department should undertake a workload analysis of the PDOs to

determine whether the administrative work they are currently doing should

be transferred to departmental support staff.

The department should consider co-locating PDOs and other

apprenticeship support staff with other front-line staff and develop an

integrated service delivery model.

The department should consider the inadequacies in AIMS and determine a

solution to track, monitor and report on the apprenticeship program.

The department should investigate the use of online self service tools for

apprentices and employers.

The department should post its block training schedule.

The department should consider where the majority of apprentices reside

by trade area as well as equitable regional access when annually planning

advance level training.

The department should consider consultations with employers to determine

whether the direct entry approach is another option to train apprentices.

The department should consider whether providing financial incentives to

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Review Findings

employers to hire apprentices would assist in achieving labour market

goals.

The department should consider an online mechanism whereby registered

apprentices and employers can be matched.

The department should determine the required outcomes of the program

and gather the necessary information to make a determination.


An Apprenticeship Review committee has been established.

There is a Trade Advisory Committee (employers, employees, and training institution) in place for

each designated apprenticeship occupations.

Quick Wins

Post the apprenticeship block training schedule to the department’s website.


The apprenticeship initiatives currently funded through LMDA could be combined with

apprenticeship initiatives in the Apprenticeship Training Certification Division.

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Review Findings

Program Environmental Assessment

Background

Goals:

To protect the environment and quality of life of the people of the province, and facilitate the wise

management of the natural resources of the province

Objectives:

Review project registrations submitted to the provincial government from a departmental

perspective and review from a socioeconomic perspective.

Target Population:

N/A


Budget - N/A

1 staff - LMD - participates in the Environment Assessment Committee; review each project

submitted from a socioeconomic viewpoint particularly as it relates to the labour supply and

submit recommendations to the Department of Environment and Conservation. Also reviewed by

Advanced Education division.

2011 - 2012 - 68 projects reviewed; and

2012 - Present -24 projects reviewed.


N/A



Recommendations N/A


Recommendations N/A

Business Process

Issues

Although the LMD division reviews these potential projects, the

information is not shared across AES to ensure that the implications on the

labour market related to proposed projects is strategically considered.

Currently the LMD is responsible to provide input into the environmental

assessment; however, it may be more appropriate for the Workforce

Development Secretariat to lead this review.

Recommendations The department should consider the merits of having the Workforce

Development Secretariat lead the environmental assessment reviews and

ensure that the information is shared and strategically considered.


None identified.

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Review Findings

Quick Wins

The department could consider the merits of having the Workforce Development Secretariat lead

the environmental assessment reviews and ensure that the information is shared and strategically

considered.


The internal function could be consolidated as two departmental divisions are involved in this

function.

Currently, there are 2 divisions of the department involved in this function - LMD and Advanced

Education. There may be some streamlining possible.

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Review Findings

Program: Skills Task Force

Background:

Goals:

The task force was created to:

• identify future skills requirements (labour supply and demand) for the economy, particularly

those associated with large-scale development projects;

• identify skills gaps and the potential impact of these gaps on attracting large-scale development

projects; and

• assess the Province’s ability to respond to these requirements.

Objectives:

Within government, the Skills Development Division of the Department of AES coordinates,

monitors, evaluates and reports on the Skills Task Force Action Plan and provides support to the

Industry Coordinating Committee (ICC).

Target population:

▪ High School Students

▪ Unskilled Labour

▪ Pre-Apprentices

▪ Apprentices

▪ Journeypersons

▪ Post secondary students and graduates

▪ Under-represented groups

▪ Employers

▪ Post secondary institutions


N/A


The budget for 2011-12 - $100,000.

1 FTE - Skills Development Division.


Policy Issues Given the creation of the Workforce Development Secretariat, it is unclear

what role the Industry Coordinating Committee, under the Skills Task

Force, will play.

There are currently limited formal mechanisms in place to quickly respond

to the labour market training requirements of employers in order to

appropriately coordinate funding requirements and program delivery

logistics.

Recommendations AES should determine the role of the Industry Coordinating Committee.

AES should establish a formal mechanism and protocol relating to

employer requests for skilled workers and supporting training and funding

programs.

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Review Findings


Recommendations N/A

Business Process

Issues

The Industry Coordinating Committee is inactive and as a result little work

has been performed relative to the skills trade component of a progressive

HR strategy as envisaged in the Skills Task Force report. Furthermore, as a

result of its inactivity, there has been inadequate stakeholder engagement to

gather and disseminate current information around labour market needs and

skill requirements used to determine post secondary academic planning.

Recommendations AES should determine whether the ICC should reconstitute and meet or

whether the Workforce Development Secretariat should perform that

function.


N/A

Quick Wins

Decide whether the ICC should be reconstituted or whether the Workforce Development

Secretariat should perform that function.


The Workforce Development Secretariat could coordinate the work of the ICC and the Labour

Market Committee of the Strategic Partnership Initiative.

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Review Findings

Program Employer/Apprentice Recognition Awards

Background

Goal

Public regional recognition of successes in the apprenticeship program, and recognition of

journeyperson graduates, employers and support staff.

Objective

To improve progression and completion rates of registered apprentices, increase the number of

employers engaged in the apprenticeship system and increase apprenticeship stakeholder

participation and accountability (Employers, Advisory Committee members).

Target Population

Employers and newly certified journeypersons each year.


The budget for 2011-12 - $30,000.

The program is administered by 6 Advanced Education, Apprenticeship & Trades Certification

Division staff (4 PDO’s & 2 support staff)

- grants (include breakdowns via grants review) vs allowance & assistance

Total number of clients served in 2011-2012: Approximately 600



Apprenticeship and Certification Board.


Policy Issues Although the department awards certain companies for their participation

in the apprenticeship program, the criteria for selection of employers is not

clearly defined. As a result, the selection of companies for awards may not

be consistent.

The program is currently funded under the LMA budget which is scheduled

to end in March 2014.

Recommendations The department should establish clear criteria for the selection of

employers to receive an award.

The department should determine whether the program should continue

beyond LMA funding scheduled to conclude in March 2014.


Recommendations N/A

Business Process

Issues

Although the department has other employer recognition awards, there is

no consideration given to coordinating the initiatives.

Recommendations The department should consider coordinating all employer recognition

award initiatives.

Chapter 5 5-B-2-6

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Review Findings


None identified.

Quick Wins

The department could establish clear criteria for the selection of employers to receive an award.


The department could consider coordinating all employer recognition award initiatives.

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Review Findings

5-B-3 Corporate Services

A total of seven programs and services were reviewed as part of the Corporate Services category.

The Corporate Services Branch of the department provides financial management, internal auditing,

and policy, planning and evaluation services to Provincial Office and to regional offices. The Branch

is also responsible for matters relating to human resources and information technology which are

delivered by the Division of Strategic Human Resource Management for the Social Sector and the

Office of the Chief Information Officer.

3 Corporate Services

11/12 Budget

($M's)

11/12 Actuals

($M's) Reference

1 Student Loan Corporation of NL SLC N/A N/A 5-B-3-1

2 Finance - Document Processing Unit / Records Management FGO N/A N/A 5-B-3-2

3 Finance-A/P FGO N/A N/A 5-B-3-3

4 Finance-A/R FGO N/A N/A 5-B-3-4

5 Finance-Client Payment Services FGO N/A N/A 5-B-3-5

6 Eligibility Assurance Services Unit IS N/A N/A 5-B-3-6

7 PAU FGO N/A N/A 5-B-3-7


Student Loan Corporation of NL SLC 1 - -


Income Support IS 1 - -

Corporate Services Branch:

Finance & General Operations FGO 5 - -

Total Corporate Services Functions 7 - -

The following issues were identified by program area:

1. Student Loan Corporation

The Student Loan Corporation is responsible for the disbursement of loan and grant funding and

repayments. It is currently administered by 27 staff within the Student Loan Corporation as part of

the Advanced Studies Branch and the net budget for 2012-13 is $33.6 million. The goal is to

improve its repayment services for student borrowers and believes that with enhanced and increased

communications, students in repayment will become more knowledgeable about their loan and better

prepared to manage their debt.

In 2012-13, the Corporation will serve approximately 40,000 loans in different stages. The Student

Financial Services Act and Regulations, Federal/provincial integration agreement, loan portfolio

size, segmentation and maturity of the loan portfolio is currently administered separate from the

Corporate Services division and will need to be considered with other collection services within

Advanced Education & Skills as part of the department’s streamlining approach.

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Review Findings

2. Document Processing Unit (DPU)

The DPU is part of the Corporate Services Branch and is responsible for scanning CEYS and Income

Support documents and placing them in TRIM folders. The DPU is also responsible for ensuring all

records are maintained according to Government standards. The DPU is staffed by 20 people (18

DPU staff and 2 supervisors) located at Metro Place.

While document flow should be a simple process, factors such as differences in how work is

assigned in regions/units and the shear volume of documents, create complexity and inefficiency in

the work flow and service delivery. Examples are as follows:

DPU must manually sort mailed documents by geographical origin to ensure the documents

are transferred to the correct TRIM folders. This is quite a time consuming process.

DPU must search CAPS to attempt to identify documents without case numbers written on

them. Those documents that cannot be identified are placed in "district" TRIM folders and

must be sorted by district office staff. Some documents may never be identified

and can remain in this folder indefinitely.

DPU must work with a variety of TRIM folders based on case based and service based

services where multiple staff maintain caseloads by alphabet, geography, or assigned duties

which can result in confusion and misfiled documents.

When documents are misfiled, clients have to resend the documentation creating delays in

service and duplication of documents in the system.

Scanned and faxed documents are at times poor quality (i.e. difficult to read, scanned upside

down, or edges cut-off). Documents containing shading or highlighting are sometimes

illegible when faxed. As a result, clients are sometimes required to resubmit documents.

Documents received at the DPU are date stamped. On occasion the date stamp is

inadvertently placed over essential information rendering the document illegible.

Multiple paged documents scanned by staff at district offices and emailed to the DPU must

be printed and rescanned by DPU in order to get them into TRIM. This is a software-related

issue and creates duplication of work.

Documents received at District offices have to be forwarded to the DPU to be filed into

TRIM. Depending on the practice at each district office there is inconsistency in how

documents are forwarded to the DPU (scanned, faxed or mailed). Mailing documents creates

a further delay.

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Review Findings

Staff must wait until documents are in TRIM before they can action many request types

as PAU is required to view supporting documents prior to verification.

Delay in the document flow may lead to additional calls from clients inquiring about the

status of their documentation and request for service.

Although the department has an information management function, it does not have capacity

to address all of the information management needs of the department. For example there is

no TRIM folder for executive correspondence.

Given that no information has ever been purged or archived from CAPS, it is likely that the

department is not in full compliance with the legislation regarding record retention. It should

be noted that a report with recommendations prepared by OCIO approximately four years

ago regarding archiving was never actioned.

3. Accounts Payable

The accounts payable group is responsible to process invoices in as short a time frame as possible.

For the most part, they process 3rd

party payments through CAPS. The program is administered by

nine departmental staff from Provincial Office and the budget for 2011-12 is $450,000. There are

inconsistencies between how CAPS and non-CAPS invoices are processed. Non-CAPS invoices

recorded in Oracle are processed by the Controller Generals Office, while CAPS invoices are

processed in the department.

4. Accounts Receivable

The goal of the accounts receivable group is to collect as much as possible related to Departmental

overpayments. The program is administered by 13 Departmental staff: 10 at Provincial Office & 3 at

Stephenville and the budget for 2011-12 is $540,000. The following issues were identified:

The department has not established reasonable thresholds with regards to the amounts to be

reported as collectable. Current policy is that all amounts over $20 are to be collected.

There are policies which authorize payments that are immediately recorded as a recoverable

amount e.g. income support security deposits. This can result in significant resources to

recover the amount if the individual leaves income support.

Income support clients who do leave the system while still owing money are not aggressively

pursued in order to fully recover the amount owing. For example, AES does not file

Certificates of Judgment or prosecute individuals for failure to repay amounts owing.

The current collections system is dated and does not provide information necessary to

adequately manage the program.

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Review Findings

Currently, collections are completed in two different divisions, Finance and Student Loan

Corporation with different systems to capture the information.

The department could increase its focus on activities such as Federal setoff, Motor

Registration Division (MRD), and Government Services which result in increased payments.

LMDA overpayments have to be identified by LMDA staff and communicated to the

accounts receivable group via email. Accounts receivable staff enter the overpayment in

CAPS for monitoring and follow-up. As a result, there is an increased risk that an

overpayment could go undetected.

The LMDA business process of providing upfront funding and requiring a subsequent receipt

results in more overpayments than the CEYS business process model of issuing service

authorizations and paying the invoices.

5. Client Payment Services

The client payment service is part of the finance division and its purpose is to coordinate the

efficient and effective delivery of cheques (both IS and CEYS - mostly IS). There are six

individuals involved in the service delivery 1 Manager - vacant, 1 Supervisor and 4 clerical staff all

at provincial office. In 2011-12 the cost for this function was $350,000. The following issues were

identified:

Only approximately 28% of income support clients avail of direct deposit and, as a result, the

department has to issue approximately 50,000 payments via mail each month resulting in

unnecessary staff time, possible delays which often results in the issuance of immediate

cheques (DACS, FACTS and CAPS) and increased costs.

The issuance of immediate payments from a separate bank account requires staff to perform

bank reconciliations. This results in increased costs to the department.

Currently, in order to ensure that all clients receive income support by the required date,

cheques are issued such that, in most instances, they are received a day before the due date.

This has been identified by staff as a potential disincentive for income support clients to

accept direct deposit because, in their opinion, clients would not want to receive their

payment a day later which would be the case with direct deposit.

The department has committed to have 80% of income support payments on direct deposit

for recurring cheques by March 2014.

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Review Findings

6. Eligibility Assurance Unit (EAU)

The EAU covers a broad range of services to ensure, to the extent possible, that income support

clients receive benefits and services they are entitled to under current legislation. The program is

administered by 2 provincial office staff and 24 regional CSOs (Avalon:11, Central: 7, Western:5

and Labrador:1). The following issues were identified:

According to legislation, investigations not actioned within four months of the assignment of

the possible issue are required to be closed. As a result, possible abuse of the income support

program may go unresolved.

Although issues identified during the interface process (e.g. CRA, EI and WHSCC) require

resolution, staff have not been provided with clear procedures to ensure consistency in the

documentation necessary for resolution. As a result, the documentation on file to support a

resolution can vary significantly.

When staff obtain information necessary to resolve an issue identified during the interface

process the resulting adjustment can vary depending on the interpretation of the staff. The

inconsistent interpretation can be attributed to lack of training and guidance.

Some EAU CSOs in the Central and Western regions may also be responsible for issuance of

non-recurring income support (mailback). This impacts their ability to focus on EAU

responsibilities.

Although there are policies and procedures to assist staff in the calculation of overpayments,

a team currently established to review the process has identified significant issues relating to

the consistency in the determination of recoverable amounts. As a result, it is possible that

some of the amounts set up as recoverable from clients are incorrect – either over or under.

Although EAU CSOs record anticipated savings in the Investigator Tracking System (ITS),

there is no automated checking with other systems to identify subsequent required

adjustments to the anticipated savings. As a result, the anticipated savings identified are

likely not accurate.

Although anticipated savings of EAUs is recorded, the information is not currently used in a

determination of the cost benefit of the EAU initiative.

Although the Telephone Eligibility Confirmation (TEC) staff (administrative staff) perform

similar duties as the EAU cycle review staff, they do not have the ability to action required

changes. Instead, the TEC staff send the required change request to a CSO for action. As a

result, the process is not as streamlined as it could be.

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Review Findings

7. Pay Authorization Unit (PAU)

The PAU role is to review all payments through the CAPS system with a view to detect errors and

ensure they are corrected, ensure the pay system is functioning as it should, detect and prevent fraud,

and provide management with suggestions on ways to improve the system.

This program is administered by 13 regional staff and a Manager in the Income Support Division at

an annual cost of approximately $1 million for salaries and operating expenses. The 13 staff are

located as follows: Avalon - 6 CSOs (5 Carbonear, 1 St. John's); Central - 4 CSOs (3 Grand Falls, 1

Springdale) 1 Manager; and Western - 3 CSOs (Corner Brook). The following issues were

identified:

Although the PAU was originally intended to check the accuracy of income support

payments, the function has evolved to include a review of all CEYS payments processed

through the CAPS system. However, CEYS payments are checked by a Manager before they

are released and a daily summary report is also certified at provincial office and forwarded to

the Office of the Comptroller General (OCG). Therefore, PAU involvement in the CEYS

payments is not necessary and is a waste of departmental resources.

The PAU staff check all income support payments issued without consideration of the dollar

value or the nature of the payment. There is no statistical sampling methodology applied to

obtain reasonable assurance of the accuracy of the payments. As a result, the PAU staff are

not utilized as effectively as they could be.

The 13 PAU staff are currently administered in three regions with the Manager located in

Marystown (no other PAU staff are located there). A review of work statistics of PAU staff

indicated significant variances in the productivity of CSOs and in error detection rates among

regions and staff. These variances may be attributed to such things as lack of training, lack

of coordination and inadequate supervision because of the current placement of the manager

and the distribution of staff among regions.

There is no clear definition of the role of the PAU function as evidenced by the

inconsistencies in the identification of issues among PAU workers. For example, some PAU

workers only identify financial issues while others review client entitlement.

The PAU returns an average of 16% of all requests they receive; however, the rate of return

for some types of requests is much higher e.g. applications for income support which is

approximately 35%. The rates of return by individual PAU staff also vary ranging from 2%

to 36% and staff who submit requests to the PAU also show varying rates of return.

Chapter 5 5-B-3

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Review Findings

Although the PAU has taken on a financial compliance role, staff in the PAU are CSOs

(GS-34) and not compliance auditors which would require a different skill set. As a result,

the department is not matching the role of the staff with the required competencies.

Currently, the PAU staff report to an Income Support Manager even though they also review

CEYS payments in CAPS. From an oversight and departmental compliance perspective, it

may be more appropriate to have the function administered from the Internal Audit Division

at provincial office. This would assist in ensuring consistency among the PAU staff,

facilitate the implementation of a risk based sampling approach, and allow deployment of

PAU staff in other expenditure areas.

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335

Review Findings

Program Student Loan Corporation

Background

Goals

To improve its repayment services for student borrowers. The Corporation believes that with

enhanced and increased communications, students in repayment will become more knowledgeable

about their loan and better prepared to manage their debt. Furthermore, the disbursement of loan

and grant funding should be as efficient and client friendly as possible.

Objectives

To improve communication with clients through an online account and promote the Corporation’s

online billing payment option.

Target Population

Student borrowers


The 2012-2013 budget is $35 million gross and $33.6 million net.

Total number of clients served in 2012-2013: approximately 40,000 loans in different stages

The program is administered by twenty seven staff within the Student Loan Corporation.


Student Financial Assistance Act, Financial Administration Act, Transparency and Accountability

Act, Student Financial Assistance Regulations, ATIPPA.



Recommendations N/A


Recommendations N/A

Business Process

Issues

Student Financial Services Act & Regulations, federal/provincial

integration agreement, loan portfolio size, segmentation and maturity of the

loan portfolio will need to be considered with other collection services

within Advanced Education & Skills.

Recommendations The department should consider including Collections Services in the

Corporate Services division while recognizing the unique attributes of the

Student Loan program.


None identified.

Quick Wins

N/A


Student Financial Services Act & Regulations, federal/provincial integration agreement, loan

portfolio size, segmentation and maturity of the loan portfolio will need to be considered with

other collection services within Advanced Education & Skills.

Chapter 5 5-B-3-1

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Review Findings

The Student Loan Corporation/Student Financial Services division have developed an integrated

external and internal electronic interface which may prove to be beneficial to other departmental

programs.

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337

Review Findings

Program Document Processing Unit (DPU) – Records Management

Background

Goals

Efficient management of all departmental records

Objectives

Process documents in a timely manner

Ensure all records are maintained according to Government standards

Target Population

Client base is internal CEYS and Income Support staff.


The budget is part of the operating budget – the allocation for 2011-12 - $1,200,000.

The function is administered by 20 staff at Metro Place. This includes 18 DPU staff and 2

supervisors.


Rooms Act


Policy Issues Given the change in technology whereby it is relatively easy and quick for

staff to scan their own documents, the requirement for a centralized DPU is

questionable for internally generated documentation. This is evidenced by

a recommendation of the OCIO that LMDA files should be scanned by

LMDA staff which is also supported by Regional Directors. With the

elimination of the DPU, the Department could potentially save in excess of

$1 million in salaries in addition to postage costs.

Centralization of the document processing function does make sense where

the documentation is coming from an outside source. It would be difficult

for the client to determine which office to send correspondence to so

centralization may be more efficient for Income Support.

Although the department has an information management function, it does

not have capacity to address all of the information management needs of

the department. For example there is no TRIM folder for executive

correspondence.

Recommendations The department should consider whether the centralized DPU function

continues to be necessary.

The department should consider the implementation of an Information

Management division.

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338

Review Findings

Legislative Issues Given that no information has ever been purged or archived from CAPS, it

is likely that the department is not in full compliance with the legislation

regarding record retention. It should be noted that a report with

recommendations prepared by OCIO approximately four years ago

regarding archiving was never actioned.

Recommendations The department should ensure compliance with the legislation regarding

record retention.

Business Process

Issues

Currently email correspondence over one page cannot be directly exported

to TRIM. Instead staff are required to print the email and then scan it. As

a result, the process is inefficient and results in a waste of staff’s time.

Recommendations The department should continue with its efforts to modify software so that

emails can directly exported to TRIM.


There is currently a review by OCIO on the LMDA request to TRIM documents.

Quick Wins

None identified.


The department could eliminate the DPU function and move the TRIM function responsibility to

staff and have the document scanning completed at the local offices.

Chapter 5 5-B-3-3 339

Review Findings

Program Finance – Accounts Payable (A/P)

Background

Goals

Process invoices in an efficient manner.

Objectives

Process invoices in as short a time frame as possible.

Target Population

Any 3rd

party payments through CAPS.


The budget is part of the operating budget – the allocation for 2011-12 - $450,000

The program is administered by nine departmental staff from Provincial Office.


Financial Administration Act and the Income and Employment Support Act



Recommendations N/A


Recommendations N/A

Business Process

Issues

There are inconsistencies between how CAPS and non-CAPS invoices are

processed. Non-CAPS invoices recorded in Oracle are processed by the

Controller Generals Office, while CAPS invoices are processed in the

department.

Recommendations The department could consider providing the Controller Generals Office

with access to CAPS and allow them to process invoices for payment.


None identified.

Quick Wins

N/A


The department could consider providing the Controller Generals Office with access to CAPS and

allow them to process invoices for payment.

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340

Review Findings

Program Finance – Accounts Receivable (A/R)

Background

Goals

Collect Departmental Overpayments.

Objectives

Collect as much as possible related to Departmental overpayments

Target Population

All Departmental Clients


The budget is part of the operating budget – the allocation for 2011-12 - $540,000.

The program is administered by 13 Departmental staff: 10 at Provincial Office & 3 at Stephenville.


Financial Administration Act and the Income and Employment Support Act


Policy Issues The department has not established reasonable thresholds with regards to

the amounts to be reported as collectable. Current policy is that all amounts

over $20 are to be collected.

There are policies which authorize payments that are immediately recorded

as a recoverable amount e.g. income support security deposits. This can

result in significant resources to recover the amount if the individual leaves

income support.

Income support clients who do leave the system while still owing money

are not aggressively pursued in order to fully recover the amount owing.

For example, AES does not file Certificates of Judgment or prosecute

individuals for failure to repay amounts owing.

Recommendations The department should determine a reasonable threshold with regards to

the minimum amount to record as recoverable.

The department could consider some items such as income support security

deposits as non-recoverable and incorporate it as part of basic assistance.

The department should consider filing Certificates of Judgment and

prosecuting individuals for failure to repay amounts owing.


Recommendations N/A

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341

Review Findings

Business Process

Issues

The current collections system is dated and does not provide information

necessary to adequately manage the program.

Currently, collections is completed in two different divisions, Finance and

Student Loan Corporation with different systems to capture the

information.

The department could increase its focus on activities such as federal setoff,

MRD, and Government Services which result in increased payments.

LMDA overpayments have to be identified by LMDA staff and

communicated to Accounts Receivable via email. A/R staff enter the

overpayment in CAPS for monitoring and follow up. There is an increased

risk that an overpayment could go undetected.

The LMDA business process of providing upfront funding and requiring a

subsequent receipt results in more overpayments than the CEYS business

process model of issuing service authorizations and paying the invoices.

Recommendations The department should determine whether it should replace the current

collections system.

The department could consider consolidating collections into one division.

The department should consider expanding its interface with other systems

(e.g. MRD, and Government Services) to improve its collection results.

The department should consider limitations in the current LMDA

overpayment recording process.

The department should consider whether the two different business models

currently in place for LMDA and CEYS should be changed.

The department should determine whether the three Collectors in

Stephenville should be separate or combined with Provincial Office

Collectors.


N/A

Quick Wins

None identified



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Review Findings

Program Client Payment Services

Background

Goals

To coordinate the efficient and effective delivery of cheques (both IS and CEYS–mostly IS).

Objectives

Solve any problems related to cheque delivery.

Target Population

Income Support and CEYS clients.


The budget is part of the operating budget – the allocation for 2011-12 - $350,000.

Departmental staff: 1 Manager – vacant, 1 Supervisor and 4 clerical staff all at provincial office.


N/A


Policy Issues Only approximately 28% of income support clients avail of direct deposit

and as a result the department has to issue approximately 50,000 payments

via mail each month resulting in unnecessary staff time, possible delays

which often results in the issuance of immediate cheques (DACS, FACTS

and CAPS) and increased costs.

The issuance of immediate payments from a separate bank account requires

staff to perform bank reconciliations. This results in increased costs to the

department.

Recommendations The department should introduce mandatory direct deposit.


Recommendations N/A

Business Process

Issues

Currently, in order to ensure that all clients receive income support by the

required date, cheques are issued such that, in most instances, they are

received a day before the due date. This has been identified by staff as a

potential disincentive for income support clients to accept direct deposit

because, in their opinion, clients would not want to receive their payment a

day later which would be the case with direct deposit.

The department has committed to have 80% of income support payments

on direct deposit for recurring cheques by March 2014.

For one time payments, it is not currently possible to pay clients via direct

deposit because Government’s Financial system (FMS) can’t capture direct

deposit information for one time vendors, it is a system limitation. Unless

the client is on recurring pay or set up as a vendor, direct deposit is not

possible.

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Review Findings

Recommendations The department should continue with efforts to get income support clients

to avail of direct deposit.


There is a pilot project in the Central region requiring all new income support clients to avail of

direct deposit.

Quick Wins

The department could, effective immediately, not issue income support payments until they are

due. By introducing this measure, it may be seen as an incentive by clients to move to direct

deposit.


If the department introduced mandatory direct deposit, it would not be necessary to have 5 staff

involved in client payment services.

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Review Findings

Program Eligibility Assurance Unit (EAU)

Background

Goals

To ensure program integrity.

EAU includes:

Telephone Eligibility Confirmation Process

Semi annual review process (basic benefits)

Annual Mortgage review process

Interface Management

Investigations

Early Detection and Prevention

Objectives

EAU covers a broad range of services to ensure, to the extent possible, that income support clients

receive benefits and services they are entitled to under current legislation.

Target Population

Income support applicants and recipients.


The budget for this program is part of the department’s Income Support operational budget.

The program is administered by 2 provincial office staff and 24 regional CSOs (Avalon:11, Central:

7, Western:5 and Labrador:1).


Income and Employment Support Act and Regulations



Recommendations N/A

Legislative Issues According to legislation, investigations not actioned within four months of

the assignment of the possible issue are required to be closed. As a result,

possible abuse of the income support program may go unresolved.

Recommendations The department should consider its policy related to cessation of

investigation allegations to determine whether the current four month policy

is appropriate.

Business Process

Issues

Although issues identified during the interface process (e.g. CRA, EI and

WHSCC) require resolution, staff have not been provided with clear

procedures to ensure consistency in the documentation necessary for

resolution. As a result, the documentation on file to support a resolution can

vary significantly.

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Review Findings

When staff obtain information necessary to resolve an issue identified

during the interface process the resulting adjustment can vary depending on

the interpretation of the staff. The inconsistent interpretation can be

attributed to lack of training and guidance.

Some EAU CSOs in the Central and Western regions may also be

responsible for issuance of non-recurring income support (mailback). This

impacts their ability to focus on EAU responsibilities.

Although there are policies and procedures to assist staff in the calculation

of overpayments, a team currently established to review the process has

identified significant issues relating to the consistency in the determination

of recoverable amounts. As a result, it is possible that some of the amounts

set up as recoverable from clients are incorrect – either over or under.

Although EAU CSOs record anticipated savings in the Investigator

Tracking System (ITS), there is no automated checking with other systems

to identify subsequent required adjustments to the anticipated savings. As a

result, the anticipated savings identified are likely not accurate.

Although anticipated savings of EAUs is recorded, the information is not

currently used in a determination of the cost benefit of the EAU initiative.

Although the Telephone Eligibility Confirmation (TEC) staff

(administrative staff) perform similar duties as the EAU cycle review staff,

they do not have the ability to action required changes. Instead, the TEC

staff send the required change request to a CSO for action. As a result, the

process is not as streamlined as it could be.

There is no deterrent for clients who defraud the department; overpayments

are set up on clients files where the maximum that can be recouped is 5% of

their regular benefits regardless of the amount of the accounts receivable.

While legislation and policy provide for penalties for non-compliance, it has

primarily focused on overpayment creation and recovery. Very few cases

have been prosecuted in recent years, even when the non-compliance dollar

value is high or where there are significant repeat offenders.

Recommendations The department should consider developing clear procedures to ensure

consistency in the documentation necessary for resolution identified through

interfaces.

The department should consider inconsistencies in the interpretation of

documentation among staff and determine an appropriate course of action.

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Review Findings

The department should continue with its efforts to gain access to the MRD

data base.

The Income Support division should determine whether the issuance of non-

recurring income support (mailback) should continue within the EAU.

The department should review the current process for setting up

overpayments and develop a standardized approach for overpayment

calculations which includes training and ongoing monitoring for

consistency.

The department should consider whether it is possible to implement an

automated check with other systems to identify required adjustments to

anticipated savings identified by the EAU.

The department should use the EAU anticipated savings and determine the

return on investment for this initiative.

The department should review possible options that could be put in place

that would serve as a deterrent to clients defrauding the department. The

non-compliance of clients should be considered in the context of

prosecution or other penalties.


The Service Delivery Review team and provincial office staff are currently reviewing EAU.

Quick Wins

The Income Support division could determine whether the issuance of non-recurring income

support (mailback) should continue within the EAU.


The department could combine the duties of TEC staff with the EAU to improve business

processes.

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Review Findings

Program Pay Authorization Unit (PAU)

Background

Goals & Objectives:

The Pay Authorization Unit (PAU) role is to review all payments through the CAPS system with a

view to detect errors and ensure they are corrected, ensure the pay system is functioning as it

should, detect and prevent fraud and provide management with suggestions on ways to improve

the system.

Target population:

N/A


The budget is part of the operating budget – the allocation for 2011-12 - $1,000,000 for salaries

and operating expenses.

Regional Departmental staff : This program is administered by regional staff in the Income

Support Division as follows:

Avalon - 6 CSOs (5 Carbonear, 1 St. John's);

Central - 4 CSOs (3 Grand Falls, 1 Springdale) 1 Manager; and

Western - 3 CSOs (Corner Brook)




Policy Issues Although the PAU was originally intended to check the accuracy of income

support payments, the function has evolved to include a review of all

CEYS payments processed through the CAPS system. However, CEYS

payments are checked by a Manager before they are released and a daily

summary report is also certified at provincial office and forwarded to the

OCG. Therefore, PAU involvement in the CEYS payments should be

reviewed to determine if it is necessary and not a waste of departmental

resources.

The PAU check all income support payments issued without consideration

of the dollar value or the nature of the payment. There is no statistical

sampling methodology applied to obtain reasonable assurance of the

accuracy of the payments. As a result, the PAU staff are not utilized as

effectively as they could be.

The 13 PAU staff are currently administered in three regions with the

Manager located in Marystown (no other PAU staff are located there). A

review of work statistics of PAU staff indicate significant variances in the

error detection rates among regions and staff. As a result, the current

placement of the manager and the distribution of staff among regions may

contribute to these issues.

There is no clear definition of the role of the PAU function as evidenced by

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Review Findings

the inconsistencies in the identification of issues among PAU workers. For

example, some PAU workers only identify financial issues while others

review client entitlement.

Although the PAU has taken on a financial compliance role, staff in the

PAU are CSOs (GS 34) and not compliance auditors which would require a

different skill set. As a result, the department is not matching the role of

the staff with the required competencies.

Recommendations The department should consider the merits of consolidating the PAU

function in the Internal Audit Division and introduce a risk based strategic

model for the deployment of staff resources relating to compliance.

The department should ensure that the skill sets of the PAU staff are

matched with the duties and responsibilities.


Recommendations N/A

Business Process

Issues

Currently the PAU staff report to an Income Support Manager even though

they also review CEYS payments in CAPS.

Recommendations From an oversight and a departmental compliance perspective, it may be

more appropriate to have the function administered from the Internal Audit

Division at provincial office. This would assist in ensuring consistency

among the PAU staff, facilitate the implementation of a risk based

sampling approach, and allow deployment of PAU staff in other

expenditure areas.


The Service Delivery Improvement Team is currently reviewing the PAU.

Quick Wins

The department should determine whether there is a need for the PAU staff to review CEYS

payments.


The department should consider the merits of consolidating the PAU function in the Internal Audit

Division and introduce a risk based strategic model for the deployment of staff resources relating

to compliance.

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Service Delivery Model and Recommendations

The proposed service delivery model is intended to align programs with the department’s mandate,

integrate programs and services, improve client service, and streamline service delivery processes.

Specifically, the proposed model will enhance strategic decision making through the following:

development of formal communication protocols;

introduction of structured business planning;

enhanced budget management practices;

implementation of a formal case management model;

program development and required outcomes based on labour market information;

a monitoring and outcome based evaluation process; and

the introduction of a staff accountability framework.

The proposed model consists of two components: Administrative Oversight and Program Delivery. It

is proposed that the Administrative Oversight component would consist of five core functions while

the Program Delivery component would consist of six service types. As outlined in Section 5 of this

report, a total of 25 programs and services were reviewed as part of Administrative Oversight and 70

programs and services were reviewed as part of Program Delivery. Many of the 95 programs

reviewed have significant similarities and, when consolidated or streamlined, eliminate the current

program silos and result in an improved service flow model.

The following outlines details on the proposed service delivery model:

1. Administrative Oversight

As depicted in Figure 1, the Administrative Oversight is comprised of five core functions with

existing oversight programs aligned to each function. Detailed information on each function is

provided after the figure.

Figure 1

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Proposed Administrative Oversight

Workforce Development

and Productivity

Corporate

Services

Education &

External Liaison

Program Policy

& Evaluation

Program

Delivery

Workforce Development & Productivity Secretariat

OIM

Labour Market Research

Workforce Planning Boards / Sector Councils

Strengthening Partnerships

Environmental Assessment

Skills Task Force

MUN / CONA / Private Colleges

ABE

Curriculum

Distance Learning Pilot

Instructor Certification

Study Guides

Red Seal Program / Apprenticeship

Power Engineering

Foreign Qualification Recognition

International Education

Labour Mobility

Trade Qualifier

Accounting Services

Internal Audit

Payment Authorization Unit

ATIPPA

Student Loan Corporation

Systems Support

Document Processing Unit

Information Management (NEW)

Program & Policy Development

Program / Service Evaluation

Legislative Review

Central Agency Requests

Federal/Provincial Agreements

3rd Party Grant Oversight (NEW)

Quality Assurance (NEW)

Regional Service Delivery for Service & Benefit Plans

Employment Centered Services

Employment Counseling & Supports

Income Support

Eligibility Assurance Services Unit

Disability Policy Office

Poverty Reduction Strategy

Student Financial Services

Administrative Oversight

Executive Oversight

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The business transformation review identified the need for formalized business processes to be

developed within the executive team as follows:

formalize relationships and communication protocols among the executive to ensure appropriate

sharing of information;

identify program need based on labour market information and regional analysis;

budget allocation decisions should be strategically determined in the context of programs

required to address labour market needs;

in consultation with the Policy, Planning and Evaluation group, determine the most effective

program delivery approach for all departmental programs;

communicate the approved departmental budget to the senior management team;

collaborate with the senior management team to develop regional business plans which would

assist in the development of a departmental business plan;

formalize a reporting structure between the Executive team and the senior management team to

facilitate regular review of regional business plans which includes measuring progress on

outcome driven goals and objectives and the associated budget to ensure accountability for

results;

coach the senior management team on strategies to effectively work with their respective teams

in meeting the goals and objectives of the business plan;

standardize processes to ensure appropriate review of program evaluations which will provide

direction on continuation of existing programs and identify new and emerging needs; and

ensure executive members collaborate in a coordinated manner with the senior management

team to provide relevant information.

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Administrative Oversight

For the proposed model to be effective, relationships among the Administrative Oversight Branches

will need to be formalized and, in order to align with the proposed service delivery model, the current

organization structure will need to be modified. It is essential that a formal communication protocol

be developed whereby decision making relating to all aspects of departmental operations is made in a

strategic and collaborative manner. The executive team should also consider the current vision and

mission statement and ensure alignment with the department’s current mandate.

Information gathered by the Workforce Development and Productivity Branch should form the basis

in determining what programs are to be offered, the Program Policy and Evaluation Branch should

determine how programs should be delivered, the budget allocation should be finalized by members

of the Executive team with Corporate Services Branch as the lead. Once the budget is approved, the

Executive decisions should be clearly communicated to staff.

Based on program needs and the approved budget, each Region would develop a business plan for

which would feed into a departmental business plan. A formalized monitoring process for budgets

and program objectives should be developed. The monitoring and evaluation of budgets and program

outcomes (return on investment analysis) should be part of the Executive team’s motus operandi.

The Education and External Liaison Branch will be required to work with all Administrative

Oversight Branches to ensure training programs are responsive and accessible.

Recommendations

The current organization structure will need to be modified in order to align with the proposed

service delivery model.

A formal communication protocol should be developed to ensure Executive team decisions are made

in a collaborative and strategic manner.

The department’s vision and mission should be reviewed and aligned with the current mandate.

Decisions regarding the types of programming required, how programs are to be delivered and

budget allocations should be determined in the context of comprehensive labour market information

and analysis.

Executive decisions on budgets and programs should be communicated to staff.

Based on program needs and the approved budget, each Region should develop a business plan

which would feed into a departmental business plan.

A formalized monitoring process for budgets and program objectives should be developed.

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Workforce Development and Productivity Branch

Although Budget 2012 - People and Prosperity had approved the establishment of a Workforce

Development Secretariat within AES, to date, the Secretariat has not been formally implemented.

The mandate of the Secretariat is to ensure labour market policies and programs are aligned to

develop and deploy a highly trained and skilled workforce.

It is recommended that AES finalize the establishment of the Workforce Development Secretariat to

ensure the mandate envisaged is developed. The inclusion of a focus on workforce productivity

should also be considered when developing the mandate. The Secretariat should develop a Workforce

Development Strategy with a goal to ensure labour market investments are strategically directed to

maximize employment outcomes. To the degree possible, research information from local, regional,

and provincial level labour markets should be collected, analyzed consistently and disseminated using

a standardized process. Distribution and strategic usage protocols will need to be developed to

enhance links at the regional level. The development of regional industry and occupational

projections will assist in the budget planning and allocations to support training and employment

programs in high growth and priority occupations identified by the department with particular focus

on large scale projects.

It is expected that the Secretariat would engage key stakeholders including government, industry,

labour, and training institutions to ensure the province has the skills required to meet current and

future labour market needs. Also, current departmental labour market strategies such as the

Immigration and Multiculturalism Strategy (Office of Immigration and Multiculturalism) should be

aligned to maximize outcomes designed to help address labour market challenges, and increase labour

market participation and productivity. Other initiatives that should be considered include:

Workforce Planning Boards

The main objective is to address labour market issues at a zonal or regional level that is

responsive to regional priorities and challenges. Workforce planning boards, comprised of

representation from each industry sector council, also work together to address labour market

issues from a province-wide perspective; and

Sector Councils

Sector councils are non-profit, industry-led partnership organizations that help address skills

development and HR issues in their industries. AES should identify key sectors requiring

assistance with training, human resources, recruitment and retention.

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It is expected that the Secretariat would also have responsibility for the following existing

programs/functions currently administered by other divisions in the Department:

Environmental Assessments

These assessments relate to potential large scale projects whereby proponents register a plan

with the provincial government. AES reviews the proposed plans from a socioeconomic

perspective. The information derived from the review is important and should be shared with

the senior management team and considered in departmental planning. Currently, the

assessments are completed by the LMD and the information is not shared across AES to ensure

labour market implications related to the projects are strategically considered.

The Skills Task Force

This task force was created to: identify future skill requirements, particularly those associated

with large-scale development projects; identify skill gaps and the potential impact of these gaps

on attracting large-scale development projects; and assess the Province’s ability to respond to

these requirements. Currently, responsibility for the Skills Task Force rests with the Skills

Development Division of the Advanced Studies Branch.

Although an Industry Coordinating Committee (ICC) comprised of industry stakeholders was

established, they do not meet. Given the inactivity of the ICC, little work has been performed

relative to the skills trade component of a progressive HR strategy as envisaged in the Skills

Task Force report. Furthermore, as a result of its inactivity, there has been inadequate

stakeholder engagement to gather and disseminate current information around labour market

needs and skill requirements used to determine post secondary academic planning.

The above programs will require further analysis to broaden the scope from the current divisional lens

to a departmental lens. As well, each of the programs identified under Workforce Development and

Productivity have specific recommendations to enhance overall administration and can be found in

the program templates in Section 5 of the Report.

Recommendations

AES should finalize the establishment of the Workforce Development Secretariat and develop a

Workforce Development Strategy which includes:

engaging key stakeholders;

the creation of Workforce Planning Boards and Sector Councils; and

collect relevant labour market information and develop distribution and strategic usage

protocols.

AES should ensure labour market investments are strategically directed to maximize employment

outcomes.

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The environmental assessment process should be transferred to the Workforce Development and

Productivity Branch and the resulting labour market implications should be shared among the senior

management team and considered in departmental planning.

Responsibility for the Skills Task Force should be transferred to the Workforce Development and

Productivity Branch and the future role of the Industry Coordinating Committee should be

considered vis a vis the role of the Workforce Planning Boards and the Sector Councils.

The department should consider merging the OIM staff with other frontline departmental staff.

Program Policy and Evaluation Branch

AES currently has a Policy Planning and Evaluation Division responsible for coordinating

departmental activities related to developing new policies, evaluating programs and planning for the

department. However, its current scope is limited and needs to be broadened. The proposed model

would have policy specialists currently in various divisions throughout the department (e.g. IS,

LMDA, CEYS) merged into this Branch. It is expected that this would facilitate a more coordinated

and efficient approach to policy planning and evaluation.

It is envisaged that the proposed Program Policy and Evaluation Branch would:

Develop programs as identified by the Workforce Development Secretariat and related policy

development based on best practice research and analysis. This will require all policy related

functions currently taking place in various divisions to merge as one departmental policy

division.

Develop and implement a 3rd

party grant oversight function. Responsibilities would include

coordinating Request for Proposals, assessments, approvals and contracting to ensure programs

funded are aligned with departmental priorities.

Determine whether a program should be offered internally or whether it should be delivered via

a 3rd

party service delivery arrangement and allocate funding to programs based on strategic

priorities as determined by the Executive team.

Develop outcome based program performance monitoring and evaluation indicators for both

internally and externally delivered programs.

It is expected that the proposed Quality Assurance team would be included in this Branch. While the

scope of the Quality Assurance Team has not been finalized, it is recommended that this function

include:

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Service effectiveness;

Increased accountability;

Efficiency; and

Risk Management.

With better information about how services are being provided in terms of what works, whether

standards are met, the return on investment, and where the program gaps are, AES will be able to

tailor service delivery to meet client needs and ensure service excellence.

It is also proposed that the Access to Information and Protection of Privacy Act (ATIPPA)

responsibilities would transfer to the proposed Information Management team in the Corporate

Services Branch for a more functional alignment.

Recommendations

Policy specialists currently in various divisions throughout the department (e.g. IS, LMDA, CEYS)

should be merged into the Program Policy and Evaluation Branch.

A 3rd

party service delivery oversight should be developed and included as part of the Branch.

A quality assurance function should be developed and included as part of the Branch.

The current Access to Information and Protection of Privacy Act (ATIPPA) responsibilities of the

Division should be transferred to the Corporate Services Branch.

Education and External Liaison Branch

As part of the realignment and integration of programs and services, it is proposed that an Education

and External Liaison Branch be created. The current Apprenticeship and Training Certification

Division should be absorbed by the Institutional Services Division to form part of the proposed

Education and External Liaison Branch. The goal of the proposed Branch is to enhance

communication and reduce overlap and duplication of multiple staff working with training

institutions to ensure responsive training programs that: meet the needs of employers and students;

are reflective of the province’s current and future labour market needs with a proactive approach to

address training requirements for large scale projects; and are administered in applicable locations

with evidenced based outcomes and formalized monitoring protocols.

The new Branch would also be responsible for current duties such as working with MUN, CNA and

private training institutions in the context of strategic labour market requirements to ensure that

institutions are offering programs individuals require to make a successful attachment to the labour

market. The Education and External Liaison Branch would also have oversight responsibility for the

following existing programs:

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Curriculum;

Distance Learning Pilot;

Instructor Certification;

Study Guides;

Inter-provincial Red Seal Program/Apprenticeship Program;

Power Engineering;

Foreign Qualifications Recognition;

International Education;

Labour Mobility; and

Trade Qualifier.

The Workforce Development and Productivity Branch will be instrumental in assisting in the

identification of training needs and will need to work closely with the Education and External Liaison

Branch in the development of responsive training programs.

Recommendations

An Education and External Liaison Branch should be created to streamline processes in working

with training institutions.

The current Apprenticeship and Training Certification Division should be absorbed by the

Institutional Services Division to form part of the proposed Education and External Liaison Branch.

Program Delivery Branch

Program delivery currently takes place in multiple divisions throughout the department. This

approach results in a lack of coordination, program inequities, gaps in programming and increased

costs for program administration. The current environment has also created a complex navigation

system for clients to access services.

The proposed Program Delivery Branch will address the issues with the current delivery approach.

The Branch will have oversight responsibility for regional service delivery throughout the province

which includes: oversight responsibility for all departmentally administered programs including

income support, career counseling and the Career Work Centres.

To ensure an effective and efficient approach to service delivery, it is recommended that the Program

Delivery Branch:

Develop a formalized financial monitoring function. This will require staff with expertise in

financial monitoring to work with program delivery oversight staff to ensure regional financial

reports are consolidated into departmental updates appropriate for executive review. An

example is the current LMDA financial Manager.

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Work with regional/zonal managers to assist in the development of regional business plans.

This will require facilitating collaboration with the department’s Workforce Development and

Productivity Branch, the Education and External Liaison Branch, regional Workforce Planning

Boards, and Sector Councils to identify regional supply and demand information. The goal is to

develop a formal plan to address training and employment needs for each region (including

regional large scale projects) which includes setting targets for specific client populations.

Coordinate the development of a departmental (provincial) business plan to be derived from

regional business plans.

Assist with the development of quarterly reports that will be reviewed by the Executive team to

ensure:

the Executive team has an opportunity to provide continued input on all programs and

services administered in the department – not just programs in their respective area;

programs and services are being administered as per the departments strategic goals and

objectives;

any necessary adjustments to budget allocations are reviewed by all members of the

Executive team; and

members of the Executive team are aware of new and emerging program gaps for future

departmental planning.

Develop formalized monitoring protocols for regional and departmental business plans. This

includes a minimum of quarterly reviews of the plan with each regional/zonal manager to

determine whether goals and objectives approved in the business plan are being met, and new

and emerging program gaps are identified.

Develop a collaborative working relationship with the Quality Assurance team to:

improve processes designed to better meet customer and stakeholder expectations;

improve efficiency in service delivery;

formalize information flow and ensure decision making processes and authority levels

between the regional offices and provincial office are clear; and

identify new service standards to support client needs and ensure formalized monitoring

to meet departmental goals to achieve desired outcomes.

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This Program Delivery Branch would also be responsible for the:

Disability Policy Office

The main purpose of the Disability Policy Office is to: promote the inclusion of people with

disabilities in all aspects of society; engage people with disabilities and advocates in developing

ways to identify and remove barriers; help government departments make sure their policies and

programs do not exclude people with disabilities; promote positive attitudes; and raise

awareness of disability issues. The Disability Policy Office works with all government

departments and agencies to develop policies and programs that include people with disabilities

and that are barrier free.

The Poverty Reduction Strategy

The primary focus of the Poverty Reduction Strategy is to lead the implementation and ongoing

development of a comprehensive, integrated, government – wide poverty reduction strategy

which is overseen by a committee of nine Ministers. Poverty reduction is about both improving

the well-being and quality of life of people living in poverty and ensuring a prosperous future

for our province. In order to address poverty, a long-term, comprehensive and integrated

approach that engages community partners and well as all orders of government is necessary.

The Eligibility Assurance Services Unit (EAU)

The EAU covers a broad range of services to ensure, to the extent possible, that income support

clients receive benefits and services they are entitled to under current legislation.

Recommendations

To ensure an effective and efficient approach to service delivery, a Program Delivery Branch should

be established and tasked with oversight responsibility for all departmentally administered programs

including income support, career counseling and the Career Work Centres.

The Branch will need to work with regional/zonal managers to assist in the development of regional

business plans and monitoring protocols, necessary to address training and employment needs for

each region (including regional large scale projects) and includes setting targets for specific client

populations.

The Branch will need to coordinate to the development of a departmental (provincial) business plan

to be derived from regional business plans.

The Program Delivery Branch should assume responsibility for the Disability Policy Office, the

Poverty Reduction Strategy and the Eligibility Assurance Services Unit.

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Corporate Services Branch

In the proposed model, the Corporate Services Branch would continue to be responsible for all

departmental financial services including budget preparation and oversight, bill payments, human

resource budgeting and monitoring and the internal audit function.

It is recommended that this Branch:

Assume responsibility for the Payment Authorization Unit (PAU). A review of the PAU will be

required to determine whether there is a more efficient and effective approach to completing

financial transactions. It will need to incorporate all financial transactions for the department

(currently just CEYS and Income Support) and consider how the new process aligns with future

IT systems, as well as authority levels which currently impede quality service.

Assume responsibility for the proposed Information Management team. A proposal has been

drafted for the development and implementation of new Information Management team which

includes the current Document Processing Unit. It is also recommended that the current Access

to Information and Protection of Privacy Act (ATIPPA) function currently within the Policy,

Planning and Evaluation Division be transferred to the Information Management team.

Take responsibility for The Student Loan Corporation. The Student Financial Services Act &

Regulations, Federal/provincial integration agreement, loan portfolio size, segmentation and

maturity of the loan portfolio will need to be considered with other collection services within

Advanced Education & Skills.

Recommendations

The Payment Authorization Unit, the proposed Information Management function and the Student

Loan Corporation should be brought under the auspices of the Corporate Services Branch.

The Corporate Services Branch should consider current IT system limitations and identify possible

solutions to provide program functionality for processes such as:

on-line capability for individuals and employers to apply for programs and track the progress

of their application;

electronic interface to facilitate data uploading;

tracking capability to capture total funding provided by client and employer;

reports providing information required to properly manage programs; and

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capturing program performance information necessary to determine if programs are meeting

expected outcomes.

2. Program Delivery

The focus of the new program delivery model is to assist individuals make a permanent labour market

attachment. The model identifies two client groups: individuals and employers and consists of a

formalized assessment process and a case managed approach to working with clients. Depending on

the assessment outcome, a Service and Benefit Plan is developed with monitoring and follow-up

protocols established.

Seventy existing departmental programs and services were reviewed to determine their correlation to

the department’s mandate and to identify streamlining opportunities. As a result of the review, it is

recommended that the 70 programs and services be reduced to 43 and that the current service delivery

structure be transformed from the current divisional approach (e.g. CEYS, LMDA, IS, ATC) to six

service elements which formulates a functional model for program delivery. Effectively, the

proposed service delivery model recommends that the department offer the following six service

types:

1. Income Assistance;

2. Social Supports;

3. Work Experience;

4. Employment Supports;

5. Education, Training and Related Supports; and


The proposed program delivery model is outlined in Figure 2. Detailed information on components

of the model is provided after the figure.

Figure 2

Proposed Program Delivery Model

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A. Individuals

With the exception of either a need for immediate financial assistance where an individual would be

directed to the income assistance group or a request for information, individuals would go through the

following process:

Employment and Training Assessment (ETA)

Under the new model, it is recommended that all clients complete an Employment and Training

Assessment (ETA). The ETA is designed to collect: identifying information; education, training and

skills; work experience and job search experience; employment barriers and special needs. It will

highlight both strengths and barriers and lead to the development of a client profile which will

ultimately determine the service and benefit type required.

Individuals Employers

Click / Call / Come In Click / Call / Come In

Assessment Assessment

Level 1,2,3 or 4 Level 1,2 or 3

Income Assistance

[4]

Social Supports

[6]

Work Experience

[11]

Employment Supports

[4]

Education Training & Related Supports

[9]

Labour Market Development

[9]

Service and Benefit Plans

Monitoring and Follow - Up

Case Close - Out

Program Delivery

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A detailed ETA assessment will form the foundation for interventions as staff will have the

information necessary to determine an employment readiness categorization (Level-1, 2, 3 or 4).

Details on each of the four levels of categorization are as follows:

Level 1

This level indicates an individual’s high level of readiness to successfully and independently pursue a

defined employment goal. Service level response:

Clients can independently work on goals without staff involvement; and/or

Clients may utilize resource and information services to support activities.

Level 2

This level indicates an individual’s fairly high to moderate level of readiness to pursue employment

goals. Service level response:

Minimum to moderate level of assistance from staff is required; and/or

Information based support required to verify directions

Level 3

This level indicates an individual’s need for further employment assessment and planning,

employment counseling and access to interventions to enhance career planning, employment

readiness, skills development and job search skills. Service level response:

A high level of staff involvement is required for case management, employment planning and

counseling.

Level 4

This level indicates barriers and/or issues with employment readiness. Service level response:

Need for additional assessment of barriers and or issues;

Need for multi-disciplinary approaches to address needs; and/or

More in depth supports required to address needs.

Recommendation

The department should finalize the completion of the Employment and Training Assessment (ETA)

tool and develop an implementation strategy with associated business processes.

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B. Employers

With the exception of a need for information, employers would go through the following assessment

process:

Employer Recruitment and Retention Assessment (ERRA)

Similar to the ETA for individuals, employers would be required to complete an Employer

Recruitment and Retention Assessment (ERRA). The ERRA is designed to highlight both strengths

and barriers and lead to the development of an employer profile which will ultimately determine the

level of service (Level-1, 2 or 3) and benefit type required. Details on each of the three levels of

categorization are as follows:

Level 1

This level indicates an employer’s high level of readiness to successfully and independently pursue

defined recruitment and retention goals. Service level response:

Clients can independently work on goals without staff involvement; and/or

Clients may utilize resource and information services to support activities.

Level 2

This level indicates an employer’s fairly high to moderate level of readiness to pursue recruitment

and retention goals. Service level response:

Minimum to moderate level of assistance from staff is required; and/or

Information based support required to verify directions and benefits.

Level 3

This level indicates an employer’s need for further assessment, planning, and supports to address

recruitment and retention needs. Service level response:

A high level of staff involvement is required for supporting an employer or an AES client

placed with an employer.

Recommendation

The department should finalize the completion of the Employer Recruitment and Retention

Assessment (ERRA) tool and develop an implementation strategy with associated business processes.

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Financial Assessment Tool

The development and implementation of a standardized department-wide financial assessment tool

will be required. This tool will provide a streamlined process to assist staff in the determination of the

level and type of financial benefits required and aligns financial supports with the interventions

identified in the ETA and ERRA. The financial assessment tool will also improve consistency in the

application of financial benefits paid to individuals while enhancing efficiencies for frontline staff.

This tool will also assist with a need determination based on income levels and should be applied to

all departmental programs to ensure those most in need receive departmental programs and services.

Recommendations

The department should develop a Financial Assessment Tool and an implementation strategy along

with business processes.

All programs should be income tested.

Service and Benefit Plans / Monitoring and Follow-up

The new program delivery model recommends a formalized case managed approach for clients

requiring assistance to attach to the labour market. Case management is considered a collaborative

process of assessment, planning, coordination and facilitation to identify cost effective options and

services to meet an individual’s requirements as confirmed through the Employment and Training

Assessment (ETA) tool. The goal of case management is to empower clients and ensure that they are

involved in all aspects of the planning and service arrangement to make certain the plan is developed

appropriately, clearly contracted and monitored for effective service and financial accountability.

Within the program delivery model, the ETA is designed to identify the level of assistance required

which then forms the basis of an individualized Service and Benefit Plan - an underlying principle of

case management.

In a case managed approach, one employee will be responsible to oversee the administration and

monitoring of the service and benefit plan. This includes monitoring within specific time-frames as

identified in the assessment. This also ensures that clients are either progressing satisfactorily or

action is taken to assist clients achieve identified goals which lead to successful case close out.

Similar to the monitoring and follow-up recommendations for individuals, employers will also

receive case managed services to ensure that services are relevant to their assessed need, and there is

monitoring to ensure services are received within specific time frames which lead to successful case

close out.

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Recommendations

The department should move to a case management model for all departmental clients. It is expected

that the model would include components such as:

Standardized employment counseling approach;

Documentation standards; and

Monitoring and follow-up requirements.

The department should research best practices and select the most appropriate case management

model for its clientele.

Once a model is selected, staff will require training and on-going support.

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Service Areas

Through the business transformation review, 70 programs were assessed and have been streamlined

to 43 through either program elimination or merging. The 43 programs have been categorized into

the following six broad service areas:

1. Income Assistance;

2. Social Supports;

3. Work Experience;

4. Employment Supports;

5. Education Training and Related Supports; and

6. Labour Market Development.

Details pertaining to the transition from 70 programs to 43 along with recommendations related to

enhancing legislation, policy and business processes resulting from the business transformation

review are outlined in each of the six broad service areas as follows:

1. Income Assistance

Income assistance is designed to provide financial benefits to eligible low income people to assist in

meeting daily living expenses.

Current Programs Eliminated Merged Proposed Programs

Income Support Program

Administration:

- Basic Benefits

- Emergency Assistance

- Special Needs/Other

Benefits

1 Income Support Program

Administration:

- Basic Benefits

- Emergency Assistance

- Special Needs/Other Benefits

Health Related Benefits 2 Health Related Benefits

Mother Baby Nutritional

Supplement

3 Mother Baby Nutritional

Supplement

Newfoundland and Labrador

Child Benefit

4 Newfoundland and Labrador

Child Benefit

Total 4

As the table shows, there would be no recommended change for either eliminating or merging these

programs. However, recommendations to enhance legislation, policy and business processes for

programs included in the Income Assistance service area are as follows:

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Recommendations

Employee culture with regards to the purpose of income support for those considered employable will

need to shift to a concept of temporary support during the transition to employment.

The department should consider a case management model for the delivery of income support in all

regions, thus eliminating the current service delivery variations.

All working income support clients who have not fully transitioned from income support dependency

(there were 723 clients as of September 2012) should be referred to a case manager for appropriate

interventions.

The department should continue with efforts to amend legislation which will require employable

income support clients to participate in employment programming.

To support a case managed approach, the income support program will need to be integrated with

the department’s suite of employment interventions.

The department should undertake an assessment of the existing pool of income support clients and

determine their employability and supports needed to assist with a transition into the labour market.

The department should undertake an analysis of financial disincentives (e.g. loss of the 100%

coverage drug card – after six months) currently experienced by certain income support clients and

which negatively impact their willingness to make a labour market attachment. This should include

programs for individuals which provide an incentive for them to make a full-time labour market

attachment.

To facilitate the integration of income support with the department’s employment interventions and

reduce the administrative burden currently placed on front-line delivery staff, consideration should

be given to having a separate administrative unit deliver such programs as the Special Needs/Other

Benefits program, the Health Related Benefits programs, and the Mother Baby Nutritional

Supplement.

The department should adopt a family centered approach in working with income support clients and

develop ways to “break the cycle” of income support dependency. This could include:

working with all members of an income support family to ensure they are aware of the benefits

of employment and the supports available for them to reach their goals;

shifting supports from income support exemptions to full-time employment incentives; and

developing responsive programming for all members of an income support family with

formalized tracking on participation rates.

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The department should develop mechanisms to help staff interpret policy and procedures and

improve consistency in benefit administration.

The department should develop consistent service standards and a process for monitoring and

reporting on results.

The department should consider the ability of current staff to action KIVs and determine whether

either more resources are required, or whether the KIV process could be modified.

The department should undertake a review of the Eligibility Assurance Unit and the Pay

Authorization Unit to determine if there is a more cost effective way to obtain the assurance being

provided by these functions.

The department needs to decide on what classification of staff should be answering calls e.g. whether

Client Service Officers (CSO’s) or other staff should be providing these services.

The department should take action to increase the uptake of direct deposit by income support clients.

The department should develop a policy to identify the amount an individual can receive through

emergency assistance and whether the payment will be considered as an overpayment for recovery.

Staff should monitor patterns of individuals requesting emergency assistance to ensure there is no

program abuse and, as part of the case managed approach, meet with clients who routinely request


The delegation of authority recommendations should be considered for implementation.

The following administrative issues were identified and should be considered for action:

the department should determine whether it is appropriate to distinguish between an applicant

and a recipient when determining initial income support eligibility;

an electronic search engine for the policy and procedure manual should be developed;

a new telephone system to allow for increased flexibility and improve productivity should be

researched;

The department should ensure that recommendations of the Service Delivery Improvement

Team are considered and implemented on a timely basis;

the department should consider providing the Department of Health read only access to CAPS

in order to confirm client’s eligibility for health related benefits for which they deliver;

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the department should determine whether overpayments for the prenatal component of the

Mother Baby Nutritional Supplement (MBNS) should be set up as an overpayment;

for income support clients, the department should consider including the MBNS benefit on the

cheques issued through CAPS;

the department should consider implementing an automated process (e.g. e-mail) to assist

managers in obtaining the reports required to ensure quality service for clients; and

the department should consider whether the interface information available from CRA could


2. Social Supports

Social supports involve programming to enhance an individual’s quality of life. Social support

programs also assist with adverse life events.


Jumpstart x

Emergency Shelter Services 1 Emergency Shelter Services

Emergency Social Services

(Disaster Services)

2 Emergency Social Services

(Disaster Services)

Services to Persons who are

Victims of Violence

3 Services to Persons who are

Victims of Violence

Allied Youth x

CYN x

Grants to Youth

Organizations

x

DPO: Accessibility Grants

Program

4

DPO: Accessibility Grants

Program

DPO: Accessible Vehicle

Grants Program

5

DPO: Accessible Vehicle Grants

Program

Social Work Services 6 Social Work Services

Total 6

As the table shows, 4 programs are recommended for elimination because they do not align with the

department’s current mandate. Recommendations to enhance legislation, policy and business

processes for the remaining programs included in the Social Supports service area are as follows:

Recommendations

The department should consider the following with regards to shelter services:

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increase the shelter approval level for CSOs in the context of the delegation of authority

recommendations;

issue a formal call for private shelter services; and

develop an MOU with shelter providers which would require the shelter to provide services to

difficult clients.

The department should consider the following with regards to emergency social services:

develop a contingency plan to address the matter of ongoing regular staff duties; and

determine whether a formal plan for pet care during an emergency evacuation is required.

The department should determine whether it should continue to deliver:

the Accessibility Grants Program; and

the Accessible Vehicle Grants Program.

The department should consider the role of Social Workers within the continuum of supports

provided to clients. In particular, the department should determine whether the 20 AES Social

Workers should remain with the Department of Justice.

3. Work Experience

Work Experience involves programming to assist individuals make a labour market attachment. This

includes funding directly to employers to address recruitment and retention challenges and funding to

3rd

party agencies to deliver work experience related programs and services.


Graduate Employment

Program

1 1 Wage Subsidy

MUN-Graduate Transition to

Employment (GTEP) Program x

NL Works 1 1 Wage Subsidy

NL Wage Subsidy 1 1 Wage Subsidy

Wage Subsidy for Persons

with Disabilities 1 1

Wage Subsidy

Govt Hiring Apprentices 1 1 Wage Subsidy

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Program (GHAP)

Apprenticeship Wage Subsidy 1 1 Wage Subsidy

Women in Trades 2 Women in Trades

Journeyperson Mentorship

Program (JMP) 3 Journeyperson Mentorship

Program (JMP)

Conservation Corps/Green

Team 4 Conservation Corps/Green Team

Linkages 5 Linkages

Employment Transitions 6 Employment Transitions

Job Creation Partnerships 7 Job Creation Partnerships

CYN Employment Programs 8

Student Employment

Programs (Level I, II, III) 1 1 Wage Subsidy

Student Employment

Programs (Non-Profit) x

Student Work and Services

Programs (SWASP &

SWASP Paid)

1 1 Wage Subsidy

Other Student Employment

Programs (MUN/CNA

SWASP & PACEE)

x

Co-op & Internship

Employment Programs 1 1 Wage Subsidy

School to Work Transition

Supports for Persons with

Disabilities

x

Supported Employment (Job

Trainers)

9 Supported Employment (Job

Trainers)

Tutoring Programs (TFT, IT-

TFT, TWEP)

1 1 Wage Subsidy

From – Labour Market

Development & Productivity

10 Youth Apprenticeship Program

Pilot

From – Labour Market

Development & Productivity

11 Targeted Initiative for Older

Workers (TIOW)

Total 11

As the table shows, 4 programs are recommended for elimination because they do not align with the

department’s current mandate and 11 programs are recommended to merge into 1 Wage Subsidy

Program because of their similarities (would require the elimination of student vouchers).

Recommendations to enhance legislation, policy and business processes for the remaining programs

included in the Work Experience service area are as follows:

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Recommendations

The department should consider expanding the scope of the current wage subsidy review team to

incorporate all work experience programs.

To respond to employer’s requests, the department should consider a formalized program which

includes assistance with recruitment and retention, workforce planning and work experience

supports. The employer program will also require clear policies and procedures on the type and level

of support along with training for front-line staff in working with employers.

The department should consider incorporating assessments related to workplace skills, literacy, and

essential skills to its suite of programs and services in order to facilitate direct entry into the labour

market.

The department should develop customized and sector skills training to assist employers with

recruitment and retention issues.

The department should consider implementing flexible funding programs to assist individuals make a

labour market attachment.

The department should develop support programs for job brokering/job matching, job maintenance,

career progression and career laddering. The programs could include a suite of incentives for both

the individual and the employer with incremental funding rates e.g. the longer an employer retains an

employee the higher the benefits. These arrangements would require long-term work plans between

the individual and the employer along with job maintenance assistance.

The department should determine whether it is appropriate to provide employers with wage subsidies

year after year if the employer is not hiring the sponsored participants.

The department should consider a review of work experience programs currently funded under LMA

to determine a funding source subsequent to termination of LMA funding in 2014.

The department should eliminate the use of student vouchers and combine the student employment

programs into a wage subsidy program.

The department should strengthen the uptake of income support clients in work experience programs

to facilitate labour market attachment.

The following administrative issues were identified and should be considered for action:

the department should consider reducing the number of wage subsidy payments to employers

(e.g. from monthly to quarterly) and ensure that all amounts owing in a fiscal year are paid in

that fiscal year to avoid an encumbrance on the following year’s funding;

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the department should consider developing an awareness campaign for work experience

programs;

the department should consider developing and implementing a tracking mechanism for

employment programs to determine the participation rates of income support clients;

the department should formalize the monitoring of wage subsidy agreements to identify dormant

files on a more timely basis and de-commit funds where approved projects have not

commenced;

the department should consider standardizing benefit levels and funding duration of work

experience programs;

graduates of the Training Services Program should be a priority under the Wage Subsidy for

Persons with Disabilities to facilitate a labour market attachment; and

the department should ensure that the amount of funding allocated for administrative costs for

3rd

party agencies administering work experience programs is reasonable. For example, the

department will need to consider whether it is necessary to provide an additional 15%

administration fee to entities it is already funding.

4. Employment Supports

Employment Supports provide employment counseling to assist individuals make a successful labour

market attachment. It also involves financial supports for training, job search, and expenses related to

commencing employment.


Employment Development

Supports

1 1 Employment Supports

EDS Expansion - LMA 1 1 Employment Supports

Employment Related Benefits 1 1 Employment Supports

Disability Related Supports 1 1 Employment Supports

Internships to Promote

Technology for Persons with

Disabilities

x

Self Employment Assistance 2 Self Employment Assistance

Employment Counseling 3 Employment Counseling

Community Partners 4 Community Partners

Total 4

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As the table shows, 1 program is recommended for elimination because the need for this service is no

longer required and 4 programs are recommended to merge into 1 Employment Supports Program

because of their similarities. Recommendations to enhance legislation, policy and business processes

for the remaining programs included in the Employment Supports service area are as follows:

Recommendations

The department should consider implementing a common, coordinated employment counseling

process including the determination of how the service should be delivered i.e. internal versus

external.

The following should be included as part of the department’s suite of career planning and

employment readiness services:

Pre-employment skills development;

Specialized needs assessments;

Personal aptitudes interests;

Work exploration which includes occupational research, occupational interviews, and career

decision making; and

Entrepreneurship/Self Employment.

Prior Learning Assessment and Recognition (PLAR) should be expanded to include all AES clients to

ensure formal and informal qualifications are appropriately recognized in the determination of an

individual’s employment plans.

The department should determine whether it is appropriate for EI eligible clients to access funding

from the Employment Development Supports Program which is designed for income support clients.

The department should consider providing training and information in a more responsive manner

including the use of the internet, group sessions, and evening sessions.

The department should consider the feasibility of expanding the availability of The On-line Mail-back

System (TOMS) to include such groups as clients with fluctuating non-employment income (e.g. child

support), and clients with no income on non-recurring pay (e.g. persons waiting to obtain necessary

documentation).

The department should determine whether all programs should be income tested.

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The department should develop a formal training plan for staff and ensure that the certified career

practitioners who are trained as trainers are utilized effectively.

5. Education, Training & Related Supports

Education, Training and Related Supports provides assistance to eligible individuals to help them

acquire the skills, training and other required supports they need to find employment.


Job Skills/Essential

Workplace Skills x

Non EI Eligible Apprentices 1 1 Apprenticeship Training

Apprenticeship Program

(LMDA Funding for

Apprentice Training)

1 1 Apprenticeship Training

Skills Development LMDA

program 2 Skills Development LMDA

program

ABE (incl Grants to Adult

Literacy Organizations) 3 ABE (incl Grants to Adult

Literacy Organizations)

Student Financial Services

Division (SFSD) - Loans and

Grants

4 Student Financial Services

Division (SFSD) - Loans and

Grants

ABE Supports 5 ABE Supports

LMAPD Training Services 6 LMAPD Training Services

Post-Journey & Specialized

Training 1 1 Apprenticeship Training

Career and Financial

Counselling Services –

Student Loan Division

x

PLAR/Essential Skills 7 PLAR/Essential Skills

Career Development

Partnership Initiative x

Employment Assistance

Services

8 Employment Assistance Services

SAY 9 SAY

Total 9

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As the table shows, 3 programs are recommended for elimination – Job Skills/Essential Workplace

Skills and Career Development Partnership Initiative programs are not meeting expectations while

the Career and Financial Counseling Services – Student Loan Division can be absorbed by the

department’s career development specialists. Three of the programs are recommended to be merged

because of their similarities. The new service area is intended to streamline and integrate

opportunities for clients to access funding for training including, for example, a blending of current

funding sources such as LMDA and student loans to meet an individual’s needs. This service area

will also assist in identifying and responding to employer training needs.

Recommendations to enhance legislation, policy and business processes for the remaining programs

included in the Education, Training and Related Supports service area are as follows:

Recommendations

The department should determine how to address the inequity in entitlement which currently exists

between EI eligible and non-EI eligible clients with regards to funding for training.

The department should develop a formalized approach to foreign qualification recognition and

include it in the suite of Skills Development services. There should also be a strategic process for the

identification of priority occupations that could be addressed through foreign workers.

The department should develop on-line training modules and/or group based programming to assist

individuals with identified needs move along the continuum to employment. The programming

required would vary by the assessed level of need (Level-1, 2, 3 or 4). For example, individuals

assessed as Level 1, considered self directed, could avail of a series of on-line modules while

individuals assessed at Level 2 and 3, requiring more intensive supports, would receive in-person

group and one-on-one sessions.

The department should revise and streamline training programs (ABE, Apprenticeship, LMDA funded

programs, and Student Financial Services) to ensure they are responsive to labour market demands.

For example, ABE should have sectoral and employer based modules.

Adult Basic Education (ABE)

Currently, the responsibility for ABE takes place in three divisions: LMD, CEYS and Adult Learning

and Literacy. It is recommended that responsibility for the administration of ABE be assumed by the

Education, Training and Related Supports group to ensure a coordinated approach to ABE program

delivery with an emphasis on labour market attachment. To address other issues identified during the

review, it is also recommended that the department consider:

working to change the current staff mindset of “all individuals require traditional ABE to make

a labour market attachment”;

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applying a return on investment model in the determination of whether an individual should be

funded for ABE;

a “work first model” which includes working and completing ABE simultaneously; and

alternative approaches to ABE such as GED, essential skills and workplace literacy

assessments to identify current skills which will facilitate a labour market attachment.

For individuals requiring ABE as a primary intervention to attach to the labour market, it is

recommended that the department consider:

determining the most cost effective and appropriate delivery model for all ABE clients i.e.

public, private or community based;

reviewing the current assessment approach conducted by training institutions to ensure

individuals are placed in the most appropriate ABE levels;

establishing ABE progress requirements at a predetermined rate (case management plan).

Training institutions should be required to provide the department with the required attendance

and progress reports for ABE clients and they should be tracked to determine the results of the

intervention;

determining more responsive approaches such as having ABE Levels II and III available in an

eLearning format. Also, determining whether ABE level I classroom instruction can be made

available outside normal working hours i.e. 9am-5pm so that those currently working or those

with family commitments can complete the program;

working with training institutions to ensure ABE instructors have formal training on how to

assist complex needs clients; and

whether it is appropriate to be transferring funding to “buy” ABE seats from the College of the

North Atlantic and whether it should be paying for ABE seats multiple times.

Skills Development

Currently, there are multiple skills development programs being delivered in multiple divisions. It is

recommended that responsibility for the administration of all skills development programming be

assumed by the Education, Training and Related Supports group. To address other issues identified

during the review, it is also recommended that the department consider:

combining the Skills Development Division (Advanced Education) with the Labour Market

Development Division to streamline processes;

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programming reflective of current and future labour market requirements as identified by

Workforce Planning Boards and Sector Councils;

the identification of priority client populations;

responsive funding arrangements that include pre-defined benefit levels; and

income testing to ensure that families with significant incomes would be required to contribute

more towards incremental costs (e.g. tuition, books).

Apprenticeship

Currently, there are multiple apprenticeship type training programs being delivered in multiple

divisions. It is recommended that responsibility for the administration of the apprenticeship

programs be assumed by the Education, Training and Related Supports group. To address other

issues identified during the review, it is also recommended that the department consider:

combining the Apprenticeship and Trade Certification Division with the Institutional Services

Division to streamline processes and address communication issues;

changing the focus of Program Development Officers (PDOs) from addressing just industry

needs to also addressing the needs of pre-apprentices and apprentices;

a strategic approach to responding to the training needs of apprentices. This will require

planning with colleges to ensure programs offered are responsive (e.g. on a part-time basis)

and delivered on a timely basis in relevant areas of the province with sufficient notice for both

the employer and the apprentice;

integrating the eight PDOs with regional staff and review their current responsibilities for

possible workload redistribution;

implementing a formal case management process for pre-apprentices and apprentices with a

focus on addressing their needs with regards to training, employment and obtaining a

journeyperson status;

addressing the limitations with AIMS and introduce a tracking policy for the approximately

5,800 apprentices;

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determining whether it is more appropriate to have consistent financial entitlements for all

students attending block training for apprenticeships; and

posting block training schedules on the Department’s web page.

The following recommendations relate to the Post Journey and Specialized Training Program:

the department should consider allocating a separate budget for this program which would also

help address the budget shortfall in the apprenticeship training program;

the department should proactively plan and budget for training required for large scale

projects; and

the department should consider options for increasing the search capabilities of the current

information system to obtain information necessary for workforce planning e.g. how many

titanium welders are currently in the province.

The department should review all funding sources and determine the most appropriate for individuals

and employers. This could include a blending of current funding sources such as LMDA and student

loans to meet an individual’s needs.

The department should determine whether alternate delivery methods for training would reduce the

issues identified by individuals such as travel, accommodations and reduced income.



The department should determine whether pre-apprentices should be monitored and provided with

additional assistance (i.e. case management) to help them attach to the labour market.

The department could address current funding variations for EI eligible versus non-EI eligible

individuals by implementing innovative training approaches such as workplace learning and literacy

programs instead of the traditional training programs currently offered.

The following recommendations relate to the Labour Market Agreement for Persons with Disabilities

(LMAPD) - Training Services Program:

the department should consider requiring individuals with disabilities to apply for a disability

grant under the student loan program which would reduce the demand for LMAPD funding;

the department should ensure that staff are supporting clients in pursuing and achieving

realistic and attainable career goals;

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to reduce slippage and the need for over committing in the program, the department should

improve budget management practices including forecasting and monitoring; and

the department should ensure staff are complying with the eligibility policy requirements of the

program.

With regards to the Prior Learning Assessment and Recognition (PLAR)/Essential Skills program, the

department should consider implementing a more responsive assessment designed to capture prior

learning and essential skills and facilitate an individual’s direct entry into the labour market. This

will include policies and procedures to ensure consistency in interpretation.

If Employment Assistance Services (EAS) contracts continue, the department will need to consider the

following:

standardizing contracts to ensure consistency of services and funding;

implementing a process to ensure an appropriate level of monitoring of EAS contracts; and

creating a formal plan and evaluate EAS activity to determine whether the required outcomes

are achieved.

The department should determine whether the approval of applications for Service Agreements for

Youth (SAY) should continue to be driven by historical commitments or whether all applications

should be assessed on their merit relative to all other requests for funding.


Labour market development involves the development and delivery of labour market and career

information to help improve employment outcomes for individuals supporting economic growth and

development throughout the province.


Jobs In NL 1 Jobs In NL

Labour Market & Career

Information Hotline

2 Labour Market & Career

Information Hotline

NL HR Manager 3 NL HR Manager

LMI Works 4 LMI Works

Smart Force NL 5 Smart Force NL

Labour Market Partnerships 6 Labour Market Partnerships

Targeted Initiative for Older

Workers (TIOW)

To Work Experience

Multiculturalism Strategy 7 Multiculturalism Strategy

NL Provincial Nominee 8 NL Provincial Nominee Program

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Program

NL Settlement & Integration

Program (Grants &

Contributions)

9 NL Settlement & Integration

Program (Grants &

Contributions)

International Graduate

Retention Incentive Program

(IGRIP)

x

Youth Apprenticeship

Program Pilot

To Work Experience

Total 9

As the table shows, 1 program is recommended for elimination because it does not align with the

department’s current mandate. Recommendations to enhance legislation, policy and business

processes for the remaining programs included in the Labour Market Development service area are as

follows:

Recommendations

The department should incorporate workplace skills, literacy, and essential skills assessments to the

suite of programs and services, and should work with priority sectors to adopt a process for

capturing essential skills which may facilitate direct entry into the labour market. This, along with

customized and sector skills training will be required to assist employers with recruitment and

retention issues.

The department should consult with government to determine whether it requires two web sites for

job postings (JOBSinNL and the PSC website).

The department should consider increasing the public awareness of its programs and services under

the current mandate. This could include, for example, launching the previously developed advertising

campaign for the JOBSinNL.

With regards to JOBSinNL, the department should:

consider issuing a pass-code to trusted employers and eliminate the requirement of reviewing

job postings before they are posted;

determine whether the web-site could be modified so that job seekers can post their resumes

and quickly identify potential jobs that match their skill sets;

determine why large companies such as Bull Arm, Nalcor and Vale do not use JOBSinNL and

instead maintain their own employment websites; and

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determine whether an electronic transfer of information from the PSC website to JOBSinNL is

possible if the two websites are going to be maintained,.

The department should ensure that staff performing similar functions are classified at the same salary

levels. An example of possible inequity relates to student aid officers (GS-30), income support

screeners (GS-34) and Hotline staff (GS-37) – all providing similar services.

With regards to SmartForce NL, the department should ensure that all government departments are

made aware of this program before the free registration expires in March 2013. The department

should also determine whether it will continue to fund this program.

The department should consider a more strategic approach to the administration of the Labour

Market Partnerships Program (2011-12 - $6.6 million). For example, the proposed Workforce

Planning Boards and Sector Councils could be funded through this program. Other projects funded

through this initiative should be selected via a request for proposals process.

With regards to the Labour Market Partnerships Program, the department should consider

reinstituting the assessment committee which would include formal documentation rather than the

current consultation process and approval of recommendations by the Deputy Minister.

The department should establish a process for the executive review and approval of program

recommendations. This would include timeframes for final decisions that facilitates sufficient time for

program delivery.

The department should consider a province-wide strategy to implement the Youth Apprenticeship

Program Pilot program to all relevant schools. Consideration should also be given to:

providing employer incentives such as wage subsidies in order for this program to be

competitive;

determining whether a dedicated high school resource to coordinate the program would be

beneficial;

determining whether a credit transfer matrix would help ensure registered youth apprentices

receive the appropriate course credits; and

implementing a coordinated approach for staff promoting programs and services in the

provinces’ school system.

New Programs and Services

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To meet the department’s new mandate and ensure responsive services for individuals and employers,

additional programs are required through realignment of existing departmental budgets (e.g. LMDA,

LMA). While not necessarily an exhaustive list, the following outlines some of the current program

gaps:

Through strategic partnerships with workforce planning boards and sector councils, the

department will require information on career opportunities in various industries throughout the

province, the types of occupations available, and the skills and training required to meet labour

market demands. With comprehensive information, the department will be in a position to

develop programs to meet the needs of industry and provide the supports necessary for

individuals to make a labour market attachment and maintain employment.

On-line training modules and/or group based programming will be required to assist individuals

with identified needs move along the continuum to employment. The programming required

would vary by the assessed level of need (Level - 1, 2, 3 or 4). For example, individuals

assessed as Level 1, considered self directed, could avail of a series of on-line modules while

individuals assessed at Level 2 and 3, requiring more intensive supports, would receive in-

person group and one-on-one sessions.

A formal process to ensure a comprehensive dissemination of program information to

individuals and employers will need to be instituted. Upcoming training sessions, referrals to

other program areas, and information on funding options are some examples of information

required to be regularly disseminated.

The following should be included as part of the department’s suite of career planning and

employment readiness services:

Pre-employment skills development;

Specialized needs assessments;

Personal aptitudes interests;

Work exploration which includes occupational research, occupational interviews, and

career decision making; and

Entrepreneurship/Self Employment.

Training programs (ABE, Apprenticeship, LMDA funded programs, and Student Financial

Services) which are part of the Education Training and Related Supports group will require

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revision and streamlining to ensure they are responsive to labour market demands. For example,

ABE should have sectoral and employer based modules.

Prior Learning Assessment and Recognition (PLAR) should be expanded to include all AES

clients to ensure formal and informal qualifications are appropriately recognized in the

determination of an individual’s employment plans.

A formalized program to respond to employer’s requests, which includes assistance with

recruitment and retention, workforce planning and work experience supports, will be required.

This will also require clear policies and procedures on the type and level of support along with

training for front-line staff in working with employers.

The department should incorporate workplace skills, literacy, and essential skills assessments to

the suite of programs and services, and should work with priority sectors to adopt a process for

capturing essential skills which may facilitate direct entry into the labour market. This, along

with customized and sector skills training will be required to assist employers with recruitment

and retention issues. The Test of Workplace Essential Skills (TOWES) is an example of an

assessment model that has proven successful.

A formalized approach to foreign qualification recognition should be included in the suite of

Skills Development services. There should also be a strategic process for the identification of

priority occupations that could be addressed through foreign workers.

The department requires support programs for job brokering/job matching, job maintenance,

career progression and career laddering. Little or no incentives are available for employers to

hire, train and assist clients to progress on the job. The programs could include a suite of

incentives for both the individual and the employer with incremental funding rates e.g. the

longer an employer retains an employee the higher the benefits. These arrangements would

require long-term work plans between the individual and the employer along with job

maintenance assistance.

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Next Steps

While the proposed service delivery model is intended to align programs with the department’s

mandate, improve client service, and streamline processes, it is important to note that there are

uncertainties within the department that, if realized, would add additional organizational and

operational challenges not reflected in this report. In particular, the proposal to integrate EAS offices

within the department’s current suite of services, the replacement of the IT system currently used for

LMDA and the current budget reductions and staff downsizing. If any of these events materialize,

they will undoubtedly have a significant impact on how the proposed model will be implemented.

The following outlines a proposed sequence of events required for a successful business

transformation:

1. Review and accept the proposed service delivery model. If accepted, it will be necessary to

inform all staff of what the new model entails. This will require a formalized communication

plan and staff information sessions.

2. Assemble a business transformation team to oversee and guide the business transformation

process. The team should be led by a departmental executive to demonstrate to staff the

significance of the work and add credibility to the process.

3. Develop a comprehensive implementation plan for all change related activities.

4. Finalize the organization structure and include clear duties and responsibilities which are

aligned with the new service delivery model. Review the classification of all staff to address

current inconsistencies. The organization structure will also need to include the three newly

identified functions - Information Management, Grants Administration and Quality Assurance.

5. Review the department’s vision and mission and align with the current mandate.

6. Create a Workforce Development and Productivity Branch to include:

Office of Immigration and Multiculturalism;

Environmental assessments; and

The Skills Task Force.

7. Establish Workforce Planning Boards and Sector Councils.

8. Establish a Workforce Development Strategy in consultation with Workforce Planning Boards

and Sector Councils.

9. Establish a formal process to distribute labour market information to applicable regional staff

for use in client counseling and case management.

10. Merge the Office of Immigration and Multiculturalism (OIM) staff with other frontline

departmental staff.

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Next Steps

11. Expand the Program Policy and Evaluation Branch to include:

all policy functions currently being administered throughout various divisions (e.g. IS,

LMDA, CEYS) in the department;

3rd

party grant oversight - this oversight function would determine whether programs and

services should be delivered internally or through 3rd

party service providers, coordinate the

request for proposal (RFP) process and the approval, contracting, monitoring and evaluation

of 3rd

party grants; and

Quality Assurance – this oversight function would develop consistent service standards and

a process for monitoring and reporting on results.

12. Create an Education and External Liaison Branch and:

merge the current Apprenticeship and Training Certification Division with the Institutional

Services Division;

transfer the administration of skills development programming to the Program Delivery

Oversight group; and

include the Adult Learning and Literacy Division.

13. Expand the Corporate Services Branch to include:

Information Management;

ATIPPA;

Student Loan Corporation; and

Payment Authorization Unit.

14. Create a Program Delivery Branch to include:

Responsibility for all six service areas;

Disability Policy Office;

Eligibility Assurance Services Unit; and

Poverty Reduction Strategy.

15. Implement the proposed six service areas as detailed in Section 6.

16. Transfer all apprenticeship training programs, currently being delivered in multiple divisions, to

the Program Delivery Branch as part of the Education, Training and Related Supports service

area.

17. Transfer all ABE programs, currently being delivered in multiple divisions, to the Program

Delivery Branch as part of the Education, Training and Related Supports service area.

18. Implement the proposed new programs to address current gaps as identified in Section 6.

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Next Steps

19. Develop a formal governance structure to guide executive decision making. This would include:

working with the Program Delivery group and Regional management teams to develop

Regional business plans which will form the basis for a departmental business plan;

developing performance targets in consultation with senior management;

implementing a formal reporting structure between executive and the regional management

teams to ensure that executive are kept apprised of progress towards established

performance targets, are provided with budget management information and informed of

any significant regional issues impacting on programs and service delivery;

developing monitoring protocols for departmental and regional business plans;

having the budget process defined and decisions made on a strategic basis with regards to

how funds are allocated to program areas; and

implementing a formalized budget monitoring process to ensure consistent budget status

information (e.g. standardized template) is compiled and communicated to the executive

team on a scheduled basis (e.g. quarterly).

20. Establish a process for the executive review and approval of program recommendations. This

would include timeframes for final decisions that allow sufficient time for program delivery.

21. Incorporate workplace skills, literacy, and essential skills assessments to the suite of programs

and services.

22. Review the Eligibility Assurance Unit and the Pay Authorization Unit to determine if there is a

more cost effective way to obtain the assurance being provided by these functions.

23. Required legislative changes to the Income and Employment Support Act should be pursued

and, new and revised policies and procedures developed.

24. Implement the following:

the Employment and Training Assessment (ETA) tool;

the Employer Recruitment and Retention Assessment (ERRA) tool; and

the Financial Assessment tool.

25. Implement a case management model.

26. Redesign Regional offices to represent the new service delivery model approach and reporting

structure.

27. Create a separate administrative unit in the Income Assistance service area to deliver such

programs as the Special Needs/Other Benefits program, the Health Related Benefits programs

and the Mother Baby Nutritional Supplement.

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Next Steps

28. Implement the delegation of authority recommendations.

29. Revise departmental policies and procedures, and develop business processes and workflows to

support the proposed business transformation model.

30. Develop a formal comprehensive program monitoring and evaluation process to assess and

report on all departmental programs and services as per performance targets established by the

executive and senior management.

31. The department has significant information systems issues which require a decision prior to the

implementation of the new service delivery model. Examples include:

the CSGC Federal system used for LMDA programming will terminate in December 2013;

the new ETA and ERRA require on-line access to enhance accessibility and to streamline

processes; and

programs such as wage subsidies require on-line access to streamline current processes.

32. Implement a human resource management plan including:

identifying required core competencies for a position;

identifying an individual’s skill gaps and providing required training;

developing employee work plans and monitoring staff performance; and

providing feedback and job coaching.

33. Address the current backlog of KIVs in the CAPS system.

34. Increase the uptake of direct deposit by income support clients.

35. Implement an electronic search engine for all policy and procedure manuals.

36. Implement required modifications to the telephone system to accommodate the proposed

service delivery model.

37. Develop on-line training modules, group based programming including evening sessions, to

assist individuals with identified needs move along the continuum to employment.

38. Introduce a needs test for all departmental programs and a return on investment model in the

determination of what should be reasonably funded for an individual.

39. Develop a formal training plan for staff and ensure that the certified career practitioners who are

trained as trainers are utilized effectively.

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Next Steps

40. Implement a Prior Learning Assessment and Recognition (PLAR)/Essential Skills program and

related policies and procedures to ensure consistency in interpretation.

41. Increase public awareness of programs and services under the current mandate. This could

include, for example, launching the previously developed advertising campaign for the

JOBSinNL.

42. Re-institute the assessment committee for the Labour Market Partnerships Program.

Appendix A

391

Appendix A - Summary of Policy Issues

5-A-1 Labour Market Development

5-A-1-1 JOBS in NL

A need for increased awareness of the website in order to increase participation of both

employers and employees

Although an advertising campaign has been developed, it has not been launched.

There are currently duplicate websites for job postings (JOBSinNL.ca and the PSC website)

which results in lack of coordination and increased administration costs.

PSC not using the site - they launched a site at approx same time as JobsinNL - currently 2

links on Govt home page to PSC & JobsinNL. Currently, we copy (manually) job ads from

PSC to JobsinNL

5-A-1-2 Labour Market and Career Information Hotline

Although there are at least three distinct groups providing similar services they are all

classified at different salary levels, e.g., Student Aid Information officers (GS-30), Income

Support Screeners (GS 34), and Hotline staff(GS 37)

Given the similarity of duties, there is a duplication of services within the department.

5-A-1-7 Targeted Initiative for Older Workers (TIOW)

The demand exceeds the current budget. For example, in 2011-2012 there were 45 proposals

totalling approximately $12 million while funding of $2.8 million funded only 13 projects.

This year the federal government cut funding to this program by approximately $1.6 M.

For 2012-2013 the department has not made a determination regarding identification of

projects as at September 2012 and as a result, time to ensure completion of the projects

within the current fiscal year is a challenge.

Federal funding for TIOW is scheduled to conclude in 2014. Although the program has been

successful in meeting its objectives, there has not been any initiative to capture effective

program elements within the department’s suite of services even though the federal

government’s contribution is scheduled to terminate in 2014.

5-A-1-9 Provincial Nominee Program (PNP)

The number of nominees for the program continues to increase each year from 76 in 2007 to

289 in 2012. Given the increase, it is expected that the current quota of 300 candidates per

year as set by the Federal Government will not be adequate to accommodate the activity

level.

5-A-1-11 International Graduate Retention Incentive Program (IGRIP)

Given that many international students have the ability to pay for their education and seek

out this province to pursue their studies, it is questionable as to whether the level of the

incentive has any impact on whether they want to remain in the province.

The department does not promote this program which may account for the low uptake by

eligible international students. For example, only 34 students received a financial incentive

from when the program was introduced in December 2010 to April 2012.

Appendix A

392


5-A-1-12 Youth Apprenticeship Program Pilot

Although the program has shown strong uptake in the 5 pilot schools, there is no province

wide strategy to implement the program to all relevant schools. Instead, the department is in

consultation with school boards to select an additional 5 schools (Deer Lake, HV-GB, St.

John’s, Clarenville and Carbonear). As a result, an important source of labour market

participants may not be optimized.

Currently the program does not provide incentives such as wage subsidies to employers like

those offered to other registered apprentices. As a result, employers may give preference to

hiring registered apprentices versus registered youth apprentices.

There are currently no resources at the high school dedicated to the coordination of the

program. As a result, participation may be limited.

The department has not developed a credit transfer matrix that could be used to identify all

credits available to a student attending post secondary training. As a result, registered youth

apprentices may not receive credit for completed courses within the high school system.

Appendix A

393



5-A-2-1 Graduate Employment Program

A need for increased awareness of the program in order to increase participation of both

employers and employees.

From a Departmental perspective, there is a lack of integration and consistency of policy,

procedures and financial supports across wage subsidy programs. As a result, there are many

variations in the delivery approach throughout the province.

Currently, AES funds employers over multiple periods without a requirement to demonstrate

that funded positions have resulted in successful attachment to the labour market.

No formalized process exists for ensuring that funding is allocated to priority occupations.

5-A-2-2 MUN-Graduate Transition to Employment (GTEP) Program

Demand for program exceeds available funding.

The program mirrors the current Graduate Employment Program and therefore could be

delivered by AES. The provision of separate funding to MUN could be considered as not

equitable for all graduates completing post-secondary programs, i.e., C.N.A. and private

training institutions.

5-A-2-3 NL Works









5-A-2-4 NL Wage Subsidy






Current policy for NL Wage Subsidy does not require the retention of all employees upon

completion of their respective subsidized periods. The policy supports the provision of work

experience without attachment to the employer.


5-A-2-5 Wage Subsidy for Persons with Disabilities


employers and employees as the budget is not fully used.




Appendix A

394




No formalized process exists for ensuring that funding is allocated to priority occupations..

5-A-2-6 Government Hiring Apprentices Program (GHAP)

Demand exceeds available funding under the program.

Although Government enters into significant capital works projects with external contractors,

there is no mechanism for the placement of apprenticeships on the projects. Currently, the

program only has apprentices at either a department or government agency. There was a

separate proposal put forward to address the hiring of journeypersons and apprentices by

outside contractors who obtain work via the tendering method.

5-A-2-7 Apprenticeship Wage Subsidy

Demand for program exceeds available funding.

Funding shortages for 1st year apprentices will exist after LMA wage subsidy funding

expires in 2014 as 1st year apprentices are not entitled to funding under LMDA

5-A-2-8 Women in Trades

AES does not have a formal mechanism in place to determine whether entities receive

funding for similar initiatives from different sources within the department.

Although AES has placed emphasis on having women involved in nontraditional

occupations, it is successful in having these women attached to the labour market in their

field of training.

Although departmental policy indicated support for each year of an apprenticeship, the

funding limitations resulted in priority support for first and second year apprentices. This

has resulted in a lack of continuous support for apprentices in their senior years which, in

many instances, results in either layoffs or stalled first and second year apprentices.

Although Government enters into significant capital works projects with external contractors,

there is no mechanism for the placement of apprenticeships on the projects or requirements

for the number of women apprentices employed.

5-A-2-10 Conservation Corps/Green Team

Currently the funding for student employment programs is delivered through several options

which includes various combinations of tuition vouchers and paid employment.

5-A-2-11 Linkages

Currently, there are no similar program options for clients in the 30-54 year old age range.

TIOW applies to clients from age 55.

While the current program operates year round the intake process occurs in late summer or

early fall. This may restrict some sectors from being able to avail of funding.

Although there are income support clients in Labrador, there has been decreasing uptake of

this program.

Appendix A

395


Although AES may provide core funding to an entity, e.g., a CYN, the department will also

pay the entity a 15% administration fee to deliver this program. Is the additional

administration fee necessary or warranted?

Although career work centres are currently underutilized, AES continues to provide

administration fees to third parties to deliver employment services which could be provided

by staff at the career work centres.

5-A-2-13 Job Creation Partnerships

Demand for the program exceeds available funding, driven by community organization

dependency as opposed to client demands. In many cases, particularly in the non-profit

service sector and tourism sector, groups apply for JCP because they cannot afford the cost

contributions (usually 40%) under the Wage Subsidy program.

In some areas of the province, the JCP program has become a defacto income support

program for local residents who usually work in seasonal industries. This is reflected in the

"repeat" individuals among "new" interventions year over year and within years. The

standard JCP policy does not support this type of "repeating" per se. There is a policy

"exception" that allows for repeating in depressed economic areas however there is no

standard definition for what constitutes this designation.

AES follow up with JCP participants has indicated that the program has limited success in

creating attachments to the labour market.

There is significant demand for JCP from community groups. However, projects sometimes

have difficulty in finding participants for the projects in some areas of the province where

other job opportunities exist including insurable work programs such as Community

Enhancement and Employment Program. This is reflected in the "slippage" of the program.

In 2011/2012 over $13.6M was approved for JCP projects, yet only $10.35 was expended by

year end as a result of project delays and/or cancellations, primarily due to lack of

participants.

JCP projects can sometimes create staffing difficulties for local businesses in areas where the

labour supply is limited.

Prior to the centralization/joint approval approach introduced in 2010/2011, benefit levels

provided under this program and levels for eligible overhead costs were based on negotiated

amounts at the district office level and therefore inconsistencies in duration and levels of

funding existed across the province. Although a 30% overhead cap has been introduced and

some standardzation across benefit levels for types of JCP participants, there is still some

hang-over of inconsistency within/among regions when negotiating final amounts.

Contrary to the program objectives, many rural community groups have become dependent

on program funding as a resource to fund operations and infrastructure development.

The JCP program is administratively burdensome as a result of the program guidelines and

Appendix A

396


application. For example, the initial approval process for a JCP project application takes into

account the proponent's request for overhead and participants (# and costs). Subsequently,

regional staff negotiate a contract with the proponent to allow for overhead payments under

"Grants" and an agreement with each individual participant for either payments under

"allowances and assistance" or to allow them to continue receiving EI or an EI top-up.. In

effect, for one project approval that has been approved for 10 participants requires staff to

negotiation 11 different agreements. In 2011/2012 there were 1389 new agreements

negotiated for 303 unique projects which also required agreements. Due to the tie-in to EI

payments - the centralization of the "grants" portion will not necessarily reduce

administrative requirements for the program.

5-A-2-14 CYN Employment Programs (Summer SWASP, Year Round & CEEIS)

There is a high demand for work experience placements every year and the demand exceeds

the budget.

Labrador region has low uptake with this and other employment programs.

There is no evidence to support that the current tuition voucher structure is effective as a

means of achieving the intended program objectives.

AES has Summer and Year Round SWASP programming that would be available for the

CYN’s to access; however, AES also offers a separate program available only to CYN’s. As

a result, there are potentially unnecessary administrative costs and not all applications are

assessed relative to all others.

Inconsistencies exist between stipends issued among the various work experience programs

in AES.

5-A-2-15 Student Employment Programs (Level I, II, III)

Demand far exceeds available funding. For example, in 2012, 816 applications were

received; 371 approved based on available funding.

The MHA makes a recommendation from a list of potential employers without any

formalized decision making process.

Currently the employer applies for funding and they arrange the placement of students. It

may be more equitable to have the program also available for students to apply.


in AES.

5-A-2-16 Student Employment Programs (Non-Profit)

Currently there are no formalized policies and procedures in place for this program.

The current budget only allows for approximately 50% of eligible applicants to be approved.

AES has Summer and Year Round SWASP programming that would be available for the

CYN’s to access; however, AES also offers a separate program available only to CYN’s. As

a result, there are potentially unnecessary administrative costs and not all applications are

assessed relative to all others.


in AES.

5-A-2-17 Student and Work Services Program (SWASP)

Appendix A

397


Demand exceeds available funding under the program.

No process in place to ensure that there is a correlation between the student’s field of study

and the work placement.


in AES.

5-A-2-18 Other Student Employment Programs (including MUN/CONA SWASP & PACEE)




Students under SWASP Paid receive more funding ($3600 based on 40 hours per week) than

students participating under other student programs such as SWASP-MUN, SWASP-C.N.A.

($2800).

Although students earn tuition vouchers, if they are not redeemed AES does not provide any

payment to the student in lieu of redemption.

5-A-2-19 Co-op and Internship Employment Programs for Post-Secondary


in AES.


Appendix A

398


5-A-3-1 Job Skills/Essential Workplace Skills

Although it was expected to have a turnaround of 30 days for assessment, recommendation

and submission for approval, this has not happened consistently. As a result, there are times

when the program uptake is not as high as it could have been.

5-A-3-2 Non-EI Eligible Apprentices

The policy developed by the Institutional and Industrial Training Division contains financial

entitlements which exceed financial entitlements in other departmental programs, e.g.,

incidental allowance is $80 per week and not offered in other similar CEYS programs.

5-A-3-3 Apprenticeship Program

There is no funding currently available to assist apprentices and trade qualifiers to participate

in college level training on a part time basis. As a result, these clients have no opportunity to

participate in training while working.

Currently the department does not require apprentices and trade qualifiers to provide a

deposit to acknowledge attendance for a scheduled block training. As a result, an apprentice

or trade qualifier can withdraw without penalty and have a significant impact on whether a

course can be delivered based on the number of participants required to make it financial

feasible.

5-A-3-4 Skills Development (LMDA Program)

The department does not have a strategic approach to the allocation of funding for Skills

Development to ensure the needs of the labour market are met. As a result, significant

amounts of funding could be provided in support of skills development initiatives not related

to labour market needs.

The current policies provide for a negotiated financial assistance package in response to

individual needs. As a result, there are differences in the financial assistance provided to

individuals in similar circumstances.

Depending on the client group,(CEYS, LMAPD, LMA, Student Aid and LMDA) the amount

and duration of financial supports provided for participation in education and training

programs can vary significantly across the department.

Family income is only considered against the Basic Living Allowance (up to a maximum

weekly EI rate: $486). As a result, families with significant incomes and who could

potentially contribute more (in addition to the 20% rule) towards the incremental costs (e.g.

tuition books) are not required to contribute.

Consistent with existing LMDA policies that NL adopted upon devolution, training is limited

to programs offered by designated "provincial training institutions". In other jurisdictions,

training is available through other means (e.g. industry groups, non-profit groups and private

sector). This limitation may be prohibiting flexible, efficient and affordable access to

training that is required in the labour market (e.g. essential skills, workplace skills. short-

term customized training).

While there are provisions within existing policy to allow for alternative training

Appendix A

399


mechanisms (e.g. distance, online), generally these options are approved as exceptions and

not promoted as a viable (and perhaps more flexible, cost efficient and client responsive)

alternative.

5-A-3-5 ABE

AES is required to transfer to the College of the North Atlantic approximately $6 million

annually for which AES receives approximately 600 seats. However, in the event any of the

600 seats are not occupied by income support clients, if clients from Skills Development

(LMDA) use any of the vacant seats, the department pays for the seat again (at a higher rate).

Currently the administration of ABE involves three divisions: LMD, CEYS and Adult

Learning and Literacy (ALL). However, there is no formal protocol in place regarding the

sharing of information and program coordination. As a result, there are likely inefficiencies

and increased costs associated with the ABE program.

The department currently requires income support clients to attend ABE training through the

public college system. This is required even if it is more cost effective for the department

and more convenient for the client to attend a private college that maybe closer to where the

client lives. However, if the client is sponsored through LMDA, they have a choice as to

where they complete ABE training. As a result, the department may be spending more than

it needs to and clients may be inconvenienced by the current policy.

5-A-3-6 Student Financial Services Division (SFSD) – Loans and Grants

The department does not do an effective job of branding and promoting programs and

services resulting in individuals not being fully informed about programs and services.

Currently, persons with disability requesting financial assistance to attend post-secondary

training can either apply for federal or provincial assistance. However, there are differences

such as:

- The definition of disability differs;

- Provincial funding is not income tested or needs based; and

- Provincial funding has no cap.

5-A-3-7 ABE Supports

The monthly stipend of $50 provided to income support clients to cover incidental expenses

such as daily lunch and supplies is not adequate.

Although ABE is “free” for the general population, AES is required to transfer to the

Department of Education approximately $1.5 million annually for which AES receives

approximately 600 seats annually at the College of the North Atlantic.

In the event any of the 600 seats are not occupied by income support clients, if clients from

Skills Development (LMDA) use any of the vacant seats, the department pays for the seat

again (at a higher rate).

5-A-3-8 LMAPD Training Services

Appendix A

400


This program overlaps with the Federal/Provincial student loan program available for all

students wishing to participate in post-secondary education. It provides funding in grant

form to cover 100% of reasonable costs. However, persons with disabilities are not required

to apply for the student loan program. As a result, there is no requirement for parental

contributions to be assessed as required under the student loan program, and there is lost

federal funding (i.e. Canada-NL Study Grants for Persons with Disabilities of $8,000 per

year and Access Grants of $2,000 per year.) which is not being availed of. If persons with

disabilities were required to apply for a student loan it would likely address the waitlist.

5-A-3-9 Post Journey and Specialized Training

The department does not proactively consider the workforce requirements (e.g. specialized

trade procedures) for large scale projects and the associated costs. As a result of operating

on a more reactive basis, it is difficult to budget for the identified need.

5-A-3-11 PLAR/Essential Skills

There can be inconsistencies in the determination of an individual’s skills and competencies

which results in either different requirements for the completion of the apprenticeship

program or assessment of seasoned skilled workers (possible trade qualifiers).

5-A-3-14 Service Agreements for Youth (SAY)


the department will be included in the department’s new mandate.

The financial accountability requirements are the same for all grants and do not take into

consideration the value of the grant.

The department has not established base line indicators necessary to determine outcomes

under the program. Instead activity levels are used to determine the success of projects

funded under the program along with individual information on youth with complex needs.


Funding to organizations is an expectation from year to year once approved. As a result, new

initiatives which may have more merit do not always be considered for approval due to

existing budget commitments.


Appendix A

401


5-A-4-1 Employment Development Supports (EDS)

Although the program was originally designed to provide necessary supports to income

support clients, there are numerous requests for funding from EI eligible individuals because

a policy regarding the LMDA funding prohibits providing additional supports. The

implications are:

- Funding to EI eligible individuals is counted towards their required contribution;

- Duplication of work because two separate CSOs have to be involved (CEYS and

LMDA); and

- There appears to be a contradiction in policy between CEYS and LMDA.

The demand for the program exceeds the allocated budget, therefore funding LMDA clients

restricts access to income support clients for whom the program was originally intended to

serve.

5-A-4-2 Employment Development Supports (EDS) Expansion – Labour Market Agreement

Funding for this program is scheduled to sunset in March 2014. Therefore, there will be a

gap in programs available to non-EI eligible individuals without an alternate source of

funding.

While EI eligible individuals can receive full funding through the LMDA programs for all

types of training, non-EI eligible clients can only receive funding for training less than 12

weeks and after which they have to seek funding through the student loan program. This

results in an inequity in entitlement to individuals.

5-A-4-3 Employment Related Benefits

Currently there are approximately 24,500 income support clients provincially who have not

made a successful attachment to the labour market. The department has no formal plan in

place to assess the employability of existing income support clients.

5-A-4-4 Disability Related Supports

The program is not needs tested. As a result, individuals who may have the ability to pay for

disability supports may receive funding.

5-A-4-7 Employment Counseling

The work performed for non-EI eligible individuals by departmental staff is the same as

the work performed by staff at the EAS offices for EI eligible individuals. This results

in:

- AES clients having to go to multiple service sites to access services; and

- Because AES staff are only responsible for the funding component of a RTWAP for

EI eligible individuals, they do not have the opportunity to ensure labour market

priorities were considered.

AES has not determined a minimum service level required for employment counseling.

Furthermore, there is no mechanism in place to determine the level of service provided

by EAS offices relative to the service offered by the department with regards to

employment counseling.

5-A-4-8 Community Partners – Employment Development Supports (EDS)

Appendix A

402


Although the mandate of the department has changed, because 3rd party agencies continue to

be funded annually without reference to the current mandate and as a result funding is

provided for initiatives which no longer align with the current mandate.

The current Accountability Framework does not require funded agencies to provide

information necessary to assess whether the program is meeting the desired outcomes.


Appendix A

403


5-A-5-1 Income Support – Program Administration (Monthly Benefits)

There may be opportunities to improve the current policy related to entitlements such as

vision care and medical transportation which could improve and streamline the delivery of

benefits.

5-A-5-1-ii Emergency Assistance

Emergency assistance may be misused by providing benefits in excess of the regular

benefits. Staff have indicated that there are clients who request emergency assistance on a

regular basis.

Income Support CSOs determine the amount of emergency assistance to be provided and

whether the amount should be considered as an overpayment and recovered from the

individual. As a result, even within existing guidelines, there can be differences in the

amounts provided to clients in similar circumstances and whether a client has to repay the


5-A-5-1-iii Special Needs/Other Benefits

Childcare can only be paid if a client is either working or attending training. As a result,

there is no means to provide childcare benefits to income support clients who, for whatever

reason, e.g. job search or surgery, are not capable of caring for their child(ren).

5-A-5-2 Health Related Benefits

The department has a Service Delivery Improvement Team to review items such as business

processes and make recommendations. Staff indicated that income support recommendations

of the Team are not always implemented on a timely basis. Furthermore, when

recommendations are actioned, there is no formal process for monitoring the effectiveness of

the change.

The policy on medical transportation is “grey” which results in inconsistent interpretations

and inconsistent benefits to clients. The policy is not standardized and takes into account

regional differences in terms of available public transportation, location of medical facilities

and other factors. While this provides some flexibility, it also results in inconsistent

interpretations and application of policy to clients across the province. Each region is

responsible to determine which trips are covered in their area, and to also determine the most

economical means.


Appendix A

404


5-A-6-1 Jumpstart

It is difficult to determine how this program aligns with the current mandate of the

department.

5-A-6-2 Emergency Shelter Services

Currently CSOs have authority to approve shelters up to three nights after which a CSM

approval is required for any additional nights. Given that the average stay at shelters exceed

three nights, this creates additional administrative work for CSMs.

5-A-6-3 Emergency Social Services – ESS (Disaster Services)

Currently the department does not have an arrangement to care for pets during emergency

evacuation. As a result, there is a significant gap in the services provided to citizens during

emergencies.

5-A-6-4 Services to Persons who are Victims of Violence

Currently CSOs have authority to approve shelters up to three nights after which a CSM

approval is required for any additional nights. Given that the average stay at shelters exceed

three nights, this creates additional administrative work for CSMs.

5-A-6-6 Community Youth Network (CYN)

The department has not established base line indicators necessary to determine outcomes of

the program. Instead activity levels are used to determine the success of the program.



Although CYNs have identified underfunding as an issue, the department has not undertaken

an analysis of the revenue sources of the CYNs and the costs of delivering their programs.

CYNs are provided with 100% of their funding in advance and is the only program funded

this way.

5-A-6-7 Grants to Youth Organizations



The financial accountability requirements are the same for all grants and do not take into

consideration the value of the grant.

The department has not established base line indicators necessary to determine outcomes of

the program. Instead activity levels are used to determine the success of the program.

The department provides $100,000 to the School Lunch Program each year. It is not clear

how funding this program aligns with the department’s mandate..

5-B-1 Education & External Liaison

Appendix A

405


5-B-1-2 Distance Learning Pilot

Although the College of the North Atlantic has an Office of Distributed Learning which is

responsible for on line program delivery, the department did not request the college to

develop the required program as part of the college’s online services. Instead, the department

provided additional funds to the college to support online access to advanced level

components of the electrical programs which the college already offers in class.

5-B-1-3 Instructor Certification

The current Teacher Training program model, as prescribed by the Minister, which requires

the completion of six university courses is not appropriate. The public and private training

institutions have agreed that another model should be developed which would provide

different pathways to certification.

Although the legislation requires instructors at private training institutions to comply with

the current teacher training model, instructors at the public colleges are not required to

complete the prescribed courses. This has created inconsistencies in instructor certification

and resulted in a system that is perceived as unfair by private training institutions.

The current training model has resulted in instances of non-compliance (71 as of July 2012)

because instructors at institutions refuse to complete the courses and the department has not

de-registered the private training institutions.

The department currently has responsibility for monitoring compliance with the instructor

certification requirements for private training institutions. As a result, this takes a significant

amount of time and staff resources.

5-B-1-5 College of the North Atlantic (CNA)

Historic vacancy issues associated with the President’s office has resulted in the department

assuming a role in excess of what would normally be expected. For example, the

department has had to become heavily involved in the college’s budgetary submission

process with regards to the development of a business case and policy analysis.

Consequently, the college has become increasingly dependent on the department in many of

its decision making processes limiting responsiveness and strategic thinking required of this

type of entity.

The college is not currently fully responsive to industry’s/government’s identified labour

market needs. As a result, the private training industry has gained increased market share in

the delivery of required programs (e.g. trades). CNA has been focused on maintaining the

viability of all 17 campuses rather than rationalizing services to meet demand.

The college also appears to respond more to revenue generating outcomes vs. key labour

market needs. For example, the college’s LW campus has reduced its mining training

capacity to expand seat capacity in its trades and Office Administration. This was largely

driven by reduced demand in the Labrador City area for mining training. CNA could have

developed mining capacity at a different campus with higher demand for this program (i.e.

near other mining developments).

5-B-1-7 Interprovincial Red Seal (Apprenticeship) Program

Of the 53 Red Seal endorsed apprenticeship trades in Canada 33 of these trades are

Appendix A

406


designated for apprenticeship training in this province; however, only 4 of the trades are

designated as compulsory. As a result, there could be health and safety issues along with

consumer protection issues as a result of the lack of compulsory certified trades.

Currently, because of the lack of mandatory certification of many trades, unions determine

the qualifications required and suitability of individuals for placement on job sites, often

times with significant priority based on seniority.

5-B-1-9 Foreign Qualifications Recognition

Many of NL’s regulatory bodies are small, with little capacity, resources or knowledge to

address matters along the pathways to recognition of foreign qualifications such as assessing

the credentials and training obtained outside Canada. In general, the degree of support and

services offered by regulatory bodies may vary across both occupation and jurisdiction. As a

result, the province is at risk of either not attracting or not retaining immigrants who may opt

to move to provinces with a formalized approach to foreign qualification recognition.

Government has not established a strategic process for the identification of priority

occupations that could be addressed through foreign workers.

5-B-1-10 International Education

Government does not have a business plan as it relates to international education initiatives

and pursuits. As a result:

- Currently government’s awareness of provincial educational institutions

engagement with other countries is limited. As a result, the province is often

reactionary when issues concerning labour mobility, immigration and the safety of

international students attending local institutions arise;

- Government is not aware of the number of NL students currently attending foreign

education institutions which may result in challenges such as when international

safety issues emerge; and

The province does not currently take initiative like other jurisdictions in the identification

and pursuit of international education opportunities (e.g. MOU with other countries

concerning student exchange and export of curriculum). As a result, the province has lost

revenues.

5-B-1-12 Trade Qualifier

Currently the department is not doing a good job in promoting the TQ program. As a result,

there are many individuals who could complete the program and obtain their trade

certification and improve their employment opportunities.


5-B-2-3 Strengthening Partnerships

Appendix A

407


At an Apprenticeship Forum, it was identified that the department’s engagement with

stakeholders is adhoc and often times reactive This results in a lack of a coordinated

approach to information gathering on stakeholder’s apprenticeship needs.

5-B-2-5 Skills Task Force

Given the creation of the Workforce Development Secretariat, it is unclear what role the

Industry Coordinating Committee, under the Skills Task Force, will play.

There are currently limited formal mechanisms in place to quickly respond to the labour

market training requirements of employers in order to appropriately coordinate funding

requirements and program delivery logistics

5-B-2-6 Employer/Apprentice Recognition Awards

Although the department awards certain companies for their participation in the

apprenticeship program, the criteria for selection of employers is not clearly defined. As a

result, the selection of companies for awards may not be consistent.

The program is currently funded under the LMA budget which is scheduled to end in March

2014.


5-B-3-2 Document Processing Unit (DPU) – Records Management

Appendix A

408


Given the change in technology whereby it is relatively easy and quick for staff to scan their

own documents, the requirement for a centralized DPU is questionable for internally

generated documentation. This is evidenced by a recommendation of the OCIO that LMDA

files should be scanned by LMDA staff which is also supported by Regional Directors. With

the elimination of the DPU, the Department could potentially save in excess of $1 million in

salaries in addition to postage costs.

Centralization of the document processing function does make sense where the

documentation is coming from an outside source. It would be difficult for the client to

determine which office to send correspondence to so centralization may be more efficient for

Income Support.

Although the department has an information management function, it does not have capacity

to address all of the information management needs of the department. For example there is

no TRIM folder for executive correspondence.

5-B-3-4 Finance – Accounts Receivable (A/R)

The department has not established reasonable thresholds with regards to the amounts to be

reported as collectable. Current policy is that all amounts over $20 are to be collected.

There are policies which authorize payments that are immediately recorded as a recoverable

amount e.g. income support security deposits. This can result in significant resources to

recover the amount if the individual leaves income support.

Income support clients who do leave the system while still owing money are not aggressively

pursued in order to fully recover the amount owing. For example, AES does not file

Certificates of Judgment or prosecute individuals for failure to repay amounts owing.

5-B-3-5 Finance – Client Payment Services

Only approximately 28% of income support clients avail of direct deposit and as a result the

department has to issue approximately 50,000 payments via mail each month resulting in

unnecessary staff time, possible delays which often results in the issuance of immediate

cheques (DACS, FACTS and CAPS) and increased costs.

The issuance of immediate payments from a separate bank account requires staff to perform

bank reconciliations. This results in increased costs to the department.

5-B-3-7 Pay Authorization Unit (PAU)

Although the PAU was originally intended to check the accuracy of income support

payments, the function has evolved to include a review of all CEYS payments processed

through the CAPS system. However, CEYS payments are checked by a Manager before

they are released and a daily summary report is also certified at provincial office and

forwarded to the OCG. Therefore, PAU involvement in the CEYS payments should be

reviewed to determine if it is necessary and not a waste of departmental resources.

The PAU check all income support payments issued without consideration of the dollar value

or the nature of the payment. There is no statistical sampling methodology applied to obtain

reasonable assurance of the accuracy of the payments. As a result, the PAU staff are not

Appendix A

409


utilized as effectively as they could be.

The 13 PAU staff are currently administered in three regions with the Manager located in

Marystown (no other PAU staff are located there). A review of work statistics of PAU staff

indicate significant variances in the error detection rates among regions and staff. As a

result, the current placement of the manager and the distribution of staff among regions may

contribute to these issues.

There is no clear definition of the role of the PAU function as evidenced by the

inconsistencies in the identification of issues among PAU workers. For example, some PAU

workers only identify financial issues while others review client entitlement.

Although the PAU has taken on a financial compliance role, staff in the PAU are CSOs (GS

34) and not compliance auditors which would require a different skill set. As a result, the

department is not matching the role of the staff with the required competencies.

Appendix C

410

Appendix B - Summary of Legislative Issues



Currently, EI eligible persons funded under this program are subject to EI Act Part II which

does not have an appeal mechanism. All persons funded under the other AES wage subsidy

programs are subject to the Income & Employment Support Act which provides a formalized

appeal process.


If the department proceeded with a requirement for tendered capital works to include

apprentices, there could be a conflict vis a vis the requirements of the public tendering act.

5-A-2-11 Linkages

If Income Support and other AES programs are transferred to the Innu, legislative changes

may be required.


Income Support clients funded under the CEEIS program have reduced stipends to avoid

negatively impacting Income Support eligibility.



There is no legislative requirement for income support recipients to participate in either the

department’s suite of training/employment services, or participate in the labour market.

Furthermore, there is no remedy under the Act if they refuse the training/employment

services or acceptance of employment.

Currently Income Support clients who work for more than 30 days are required, by

legislation, to reapply for benefits if they have to return to income support. As a result,

clients have to go through the intake process again which is considered a disincentive and

CSOs have to process the application again.

There appear to be situations (e.g. single father with two children) where it does not make

economic sense for income support clients to accept full- time employment at minimum

wage. As a result of the current income entitlements and lack of employment support

incentives, the department will not achieve its ultimate goal of having individuals attach to

the labour market.



Income Support rates are legislated and reviewed annually as part of the department’s budget

process. However, staff have identified issues with such things as the current maximum

rates for rent ($522 maximum monthly family rate), allowable rate for security deposits can

also cause issues for clients in today’s rental market.

The legislation distinguishes between an applicant and a recipient, when initially accessing

the program in that benefits such as additional rent and special diets are not factored into the

eligibility assessment, though a 40% eligibility adjustment is provided.

Appendix C

411

Appendix B - Summary of Legislative Issues

Although the department can refer clients for employment services, the current legislation

has the following limitations:

- It does not provide the authority to require clients/applicants to participate as a

condition of receiving benefits; and

- There are no consequences for clients who do not attend scheduled

appointments/participate in these services.

5-A-5-1-i Basic Benefits

Current rental rates may not meet clients’ requirements given the current economic

environment.


Clients have indicated that the income support rates are not always sufficient to meet their

basic needs and are therefore forced to seek emergency assistance.


Some rates may not provide sufficient funds to meet client’s special needs, one example of

this is the $298 monthly allowance for housekeeping which often does not meet the needs for

clients.


5-B-1-6 Private Training Unit

The Private Training Regulations currently require any training institution wishing to set up a

new campus in the province to post security (minimum of $50,000 and held for two years)

for that campus. A campus is currently defined by proximity; current policy defines any two

or more premises within a municipality as one campus. As a result, private training

institutions are limited in their response to provide quick community based training to meet

short-term community and/or industry needs without incurring significant financial costs and

long-term liability (security is required to be held for two years after completion of training).

The Regulations were modified in 2009 to allow only currently registered private training

institutions to use their existing bonds to deliver training in Labrador solely for the purposes

of training through the Labrador Aboriginal Training Partnership. The definition of campus

was also modified to allow communities under the Nunatsiavut Government and the Innu

Nation to be considered one for bonding purposes which would allow new institutions to

post one security to also conduct training under LATP.



Given that no information has ever been purged or archived from CAPS, it is likely that the

department is not in full compliance with the legislation regarding record retention. It should

be noted that a report with recommendations prepared by OCIO approximately four years

ago regarding archiving was never actioned.

5-B-3-6 Eligibility Assurance Unit (EAU)

According to legislation, investigations not actioned within four months of the assignment of

the possible issue are required to be closed. As a result, possible abuse of the income support

program may go unresolved.

Appendix C

412

Appendix C - Summary of Business Process Issues

5-A-1 Labour Market Development

5-A-1-1 JOBS in NL

The website does not have the ability for automated matching of jobs to resumes.

Larger companies such as Bull Arm and Vale do not use JOBSinNL and instead maintain

their own employment websites.

Because the Public Service jobs are posted on the website maintained by the Public Service

Commission, AES staff have to key those jobs into JOBSinNL. This results in a duplication

of effort and unnecessary additional costs.


Contrary to established goals, Labour Market and Career Information Hotline staff are not

providing community presentations.

5-A-1-3 NL HR Manager

Gaps have been identified in the current services provided to employers. In particular, there

is limited information available on business and employee succession planning.

Currently, there are multiple websites for employers (e.g. JobsinNL and LMI Works) which

results in a non-coordinated approach.

5-A-1-5 SmartForce NL

Although the province has paid $1.6 million for the development of 40 custom courses and

access to in excess of 5000 off the shelf courses, the free access to these courses will end in

March 2013. The exception to the cessation of free access relates to employers and

individuals who register prior to March 2013.

The Centre for Learning and Development also offers training programs for government

employees similar to the off the shelf course content. As a result, the Centre for Learning

and Development has to incur costs associated with contract training while access to free

training exists

5-A-1-6 Labour Market Partnerships

Currently there is no request for proposal (RFP) process related to the awarding of grants

and, prior to the current fiscal year, there was no strategic approach with regards to how

projects were funded to ensure departmental priorities were supported.

Prior to LMDA devolution (2009), there was a formal committee required to review, assess

and recommend proposals for funding. Decisions of the committee were documented.

However, since LMDA devolution, there has not been a formal committee nor has there been

formal documentation to support decisions on LMP proposals. Instead, there is a

consultation process with relevant departments and a meeting with the Deputy Minister of

AES for project approval – there is no formal documentation.

The current continual intake process does not facilitate the assessment of projects relative to

others to ensure projects provide maximum contribution towards departmental priorities.

Appendix C

413


5-A-1-7 Targeted Initiative for Older Workers (TIOW)

A number of 3rd

party agencies have multiple contracts with the department. As a result,

agencies receive administration fees for each contract, staff have to process and monitor

multiple contracts, and because multiple staff may be involved in the process it is more

difficult for the department to ensure that no duplicate funding is provided e.g. bookkeeper


There may be communities in the province with a need for the program; however the

community may not have the capacity to respond to a call for proposals. As a result, there is

a risk that high priority areas may not receive necessary interventions.


While the program focuses primarily on a nominee’s intent to permanently settle in the

province, the division does not place significant weighting on addressing provincial labour

market demands when assessing applications. As a result, many recommended nominees are

not able to contribute to labour market shortages because they do not have the skill set. For

example, in St. John’s a pizza maker, a cashier, and a nail technician.

Having OIM located in isolation, in rented space results in unnecessary costs and makes

interaction with other divisions difficult.

5-A-1-10 NL Settlement & Integration Program - NLSIP (Grants & Contribution)



The division does not have strong evidence to support whether the program is meeting the

intended objective of retention of eligible international students.

Given the number of clients served per year (20-30), the number and classification of staff

involved in the processing of applications (4 staff at GS 40), the staff managing files (2

Support staff GS24 and 34) and the staff approving files (HL Manager and Executive

Director), this program is over resourced.


The Apprenticeship Information Management System (AIMS) tracking system is not capable

of providing necessary tracking information such as statistics and reports.

Although the department has Student Aid Division staff and a Career Development

Partnership Initiative (CDPI) which includes Career Development Liaison Officers (CDLO)

visiting high schools throughout the province, neither group is involved in the promotion of

this program. As a result of the lack of coordination, the department is missing an

opportunity to better promote and streamline services offered to students.

Appendix C

414




Overlap and duplication exists related to the administration of the separate wage subsidy

programs within AES.


in keeping with labour market supply and demand.

Currently the Department issues payments to employers as they submit payroll information –

there is no enforced preset schedule. As a result, there are many examples of where the


the fiscal year. This results in encumbered amounts from the next fiscal years budget.


The benefit levels differ among the various wage subsidy programs offered by the

Department.

No priorities for targeted employment sectors are applied in the approval process.

Although an online application is currently being developed, the application will have to be

printed and manually rekeyed into CAPS by Departmental staff.


employment programs is not readily available. Currently, staff are required to manually

access client files to determine participation. As a result, participation rates of income

support clients are not monitored on a regular basis.

The program mirrors the Graduate Transition to Employment Program (GTEP) and as such

could be considered as duplication.


The current process results in duplication of administration.

5-A-2-3 NL Works











Department.




Appendix C

415









There is limited matching capability between employer and employee applicants that ensures

labour market demands are adequately addressed.

Currently the Department issues payments to employers as they submit Monthly Claim

Forms. These claim forms are often not submitted according to monthly schedules. This

results in slippage of funding in the current fiscal year, with a need for an encumbrance of

funds from the subsequent fiscal year.

This program has funding slippage as a result of approved projects not commencing and

minimal monitoring to identify any dormant or inactive agreements.


Benefit levels provided under this program are based on negotiated amounts at the district

office level and therefore inconsistencies in duration and levels of funding exist across the

province.


Department.

Inconsistencies exist in the identification of targeted employment sectors during the approval

process.

The NL Wage subsidy application is not an electronic process. Therefore, information needs

to be manually rekeyed into CSGC by Departmental staff.












Department.




Appendix C

416






Although AES provides significant resources to train individuals as part of the LMAPD

Training Services program, graduates of the program are not, on a priority basis, attached to

this wage subsidy program to facilitate a long-term attachment to the labour market.


The Apprenticeship Wage Subsidy program is not managed through either the CEYS or

LMDA systems. The program is managed by the use of microcomputer spreadsheets.

There is no formalized no standardized evaluation plan to determine whether the program is

meeting Departmental objectives.

The Industrial Training Division is responsible for Apprenticeship. This results in

duplication and inefficiencies with respect to front-line staff engagement with employers.


AES does not have timely and consistent data on the progress of women apprentices. While

the Caprenter’s Millwright Union (CMU) does provide information on a regular basis, IBEW

does not. Furthermore, the department’s AIM System, which would be required to provide

information on all women apprentices including CMU and IBEW, does not provide the

necessary information.


Historically, the department has been more reactive than proactive and as a result has funded

many projects proposed by 3rd party agencies vs. being proactive and identifying the

department’s priorities and having a call for proposals to identify the most suitable 3rd party

agency to deliver a project.

Although one of the objectives of the program is to attract income support clients, the

program is attracting only approximately 10% of the total program participants are income

support clients.

Currently the department has limited involvement in the identification and selection of

projects. As a result, the department does not have any ability to strategically influence

which projects are funded.

5-A-2-11 Linkages

Need for more coordination in provision of funding to organizations.


Currently, participants on JCP are required to develop a Return to Work Action Plan. This

process seems unnecessary given that JCPs are designed to provide work experience and not

an immediate attachment to the labour market.


Inadequate monitoring of contract performances and outcome measures. Specifically, there

is no formalized follow-up of participant outcomes to determine whether program objectives

were achieved.

Appendix C

417



There are times when monitoring is not adequate. This situation may be related to limited

staff resources and the short program duration.


AES does not adequately monitor the student placements to determine the value of the work

placement to the student’s career goals. This is likely attributable to the high number of

placements operating within a short duration.


There are multiple budgets, one for each client population, making the administration

cumbersome.

5-A-2-20 School to Work Transitions for Persons with Disabilities

The program is not as responsive as it needs to be to ensure that clients can maximize their

employment opportunities. For example, the approval process through the CAPS system is

cumbersome as a result of having to identify sufficient funds which sometimes results delays

and lost opportunities for an individual in securing a job opportunity.

The current program delivery model results in duplication of effort by departmental staff and

3rd party agencies resulting in frustration from both parties. For example, the department

requests payroll information from the 3rd parties and enter the information into CAPS to

issue a payment for each client.

There are no pre-determined measurable outcomes in order to assess whether the program is

achieving the desired results.

Although the department’s mandate has changed from a social to an economic lens, the

goals, objectives and outcomes of the School to Work Transitions for Persons with

Disabilities program has not been assessed to determine its relevance under this new lens.

5-A-2-21 Supported Employment – Job Trainers

The program is not as responsive as it needs to be to ensure that clients can maximize their

employment opportunities. For example:

- The approval process through the CAPS system is cumbersome as a result of having

to identify sufficient funds which sometimes results delays and lost opportunities for

an individual in securing a job opportunity; and

- The current income support administration results in disincentives such as the loss of

the 100% coverage drug card, disruption in payment cycles, potential variation in

work hours/entitlements and impacts clients pursuit of employment under this and

other programs.

The current program delivery model results in duplication of effort by departmental staff and

3rd party agencies resulting in frustration from both parties. For example, the employment

corporations enter information regarding hours worked in ARMS and regional CSOs are

required to review this information to ensure it does not exceed the hours approved and then

enter the information into CAPS to issue a payment for each client.

There are no pre-determined measurable outcomes in order to assess whether the program is

achieving the desired results.

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Although the department’s mandate has changed from a social to an economic lens, the

goals, objectives and outcomes of the Supported Employment Job Trainers program has not

been assessed to determine its relevance under this new lens.

5-A-2-22 Tutoring Program (TFT, IT-TFT, TWEP)

There is a lack of information gathered regarding the outcome of the program related to

tutors and students. As a result, it is not possible to conclude with certainty that the program

is achieving the intended objectives.

Some students cannot avail of tutoring services at school because of conflicts with

transportation arrangements.

Some tutors are not available to provide their service to elementary and junior high students

when the students are available for tutoring because the high school closes later than

elementary and junior high schools.



There is a lack of coordination among the department’s divisions in the identification and

development of new employment programs. Furthermore, staff are not always apprised of

new programs until after the programs are approved and publicly announced. As a result,

programs are being developed without required input from divisions.

The department does not have a standard assessment method. Instead, each division (LMDA,

CEYS, LMA, Advanced Education, Disability Policy office) has its own framework for

program assessment in the administration of grants. As a result, there can be inconsistencies

in benefit levels, payments, monitoring and reporting, as well as duplicate payments.

LMA funding will end in 2014.

The department does not have a system in place to meet the reporting requirements under

this federal/provincial agreement. As a result, a combination of Excel and CAPS reports are

being maintained to provide the required data.

The department does not currently consider approving projects on a sectoral basis. As well,

priority clients identified by the department are not factored into the approval process.


CEYS staff are not always provided with sufficient time to process the financial

requirements that would allow non-EI eligible individuals to participate in block training. As

a result, the individuals are late in receiving their financial supports.

Federal program funding is scheduled to end in 2014.

Although the program could have been delivered through LMDA where a similar program is

offered for EI eligible clients, because the LMDA do not have access to the CAPS system

and could not use the federal CSGC system for non-EI eligible clients, the program was

delivered through CEYS.

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419



The current in class training for apprentices and trade qualifiers sometimes poses problems

with living accommodations, travel and reduced income. Sometimes courses are only

available in a particular location which could be a significant distance from where an

individual resides and it may be difficult to find accommodations in that area. Further,

because the individual has to attend in class training they have to accept a lay off and a

reduced income.





However, the two divisions do not appear to have a formal communication process to ensure

that that the Apprenticeship Division will recommend that its clients attend the location.

The department does not post block training schedules on its web page. Instead, 6-8 weeks


employer. To illustrate, as of October, 2012 the department is aware of upcoming block

training scheduled up to June 2013. However, this information will not be released to


block training.


whether they are participating as required or whether they stopped participating. Although

the division has a database, it cannot readily provide information on an individual’s

participation. Furthermore, the division has eight Program Development Officers (PDOs)

responsible for all client service aspects of the apprenticeship program.

Currently the Apprenticeship Division’s regional staff are not co-located with the

Department’s other regional staff. As a result, there is a lack of integration of services which

can result in a client having to deal with multiple staff to get the required services.

Although the department may provide funding to train pre-apprentices, the department does

not monitor or provide any required assistance (unless requested by the individual) to

connect them to an employer. As a result, the department could spend significant amounts of

funding to train individuals without being proactive in providing any help they may need to

get them attached to the labour market.

The Division continues to spend in excess of its budget allocation. For example, while the

budget allocation is $5.8 million expenditures are averaging approximately $7 million per

year. The difference is funded through slippages in other areas.


Unlike other programs in the department the case management component of this program is

handled through a 3rd party EAS office. As a result, clients are required to visit at least 2

different locations to obtain services. As well, given the different physical locations staff

cannot readily interact on client files.

Although there is sufficient budget available to meet all eligible client requests, the current

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budget is determined, for the most part, based on historical expenditures. As a result, the

budget allocation process is not strategically aligned to ensure departmental priorities are met

with regards to addressing labour market demands.

Currently budget management practices are not formalized with respect to accurate

forecasting and monitoring of budget expenditures to identify budget variances and take

corrective action. As a result, unspent committed funds may not be reallocated in a strategic

way.

Although training institutions, with a vested interest in maximizing revenues, assess clients

to determine their needs with regards to the ABE program, the department does not challenge

the identified ABE requirements to ensure their appropriateness. As a result, the department

is likely paying for ABE training beyond the client’s requirements to participate in either

further training or employment.

The current ABE program is self paced and, in some instances, there is a limited requirement

for clients to progress at a predetermined rate. Also, training institutions do not always

provide the required attendance and progress reports making it difficult to monitor client

progress.

The department does not have an integrated approach for assessing financial need and

providing financial supports to clients. As a result, there are varied assessment tools and

responses to requests for financial supports across the department.

Under current process, all Skills Development Clients (excluding Apprentices) are required

to complete a Return-to-Work Action Plan.

5-A-3-5 ABE

ABE Level l is currently available in an eLearning format for those who are unable or

unwilling to participate in a classroom-based program; however, Levels II and III are not

available in an eLearning format. As a result, some clients are unable to complete ABE level

II and III in an eLearning format which may accommodate current working and family

circumstances.

Currently ABE level I classroom instruction is only available during normal working hours

i.e. 9am-5pm. As a result, it limits accessibility for either those currently working or those

with family circumstances preventing them from attending day time programs.

The department provides annual renewal funding ($1.20 million) to approximately thirteen

3rd party agencies offering ABE level I and two organizations offering one-to-one literacy

tutoring support. This is done without any RFP and, as a result, any new requests for

funding to deliver the program cannot be assessed on merit relative to other organizations

being funded.

Decisions regarding ABE clients (income support, LMDA and LMA) and ABE program

delivery are made by three divisions within AES: Adult Learning and Literacy, LMD and

CEYS. There is no formal communication protocol and as a result, interaction among the

three divisions has been only when an issue emerges.

The department does not track ABE clients to determine whether the intervention resulted in

either the client transitioning through the three levels of ABE or whether the client made a

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permanent attachment to the labour market.

Currently ABE instructors are not provided with formal training in addressing the complex

needs of their students. As a result, instructors may not be able to appropriately refer or

respond to students as issues arise possibly resulting in higher levels of student attrition.

Similar to other provincial grant funding, ABE funding can become a major source of core

funding for 3rd party organizations. As a result, if the department decided to not fund ABE,

some 3rd party organizations may be forced to close.

There is a financial incentive for public and private colleges to maximize the duration of

ABE training. Staff expressed concerns that some of the assessments have clients rated

lower than necessary resulting in maximizing the duration and cost of ABE training. It was

noted that there was no justification for the inaccurate assessment.

As a result, the department is paying more than necessary for clients to complete ABE

training.


Although many documents are already included in TRIM, correspondence with students is

currently printed, mailed and trimmed after the fact.

Automated forms and letters issued to students are outdated and need to be revised to adapt

plain language and improve readability.

The current process to determine eligibility for the Debt Reduction program is a manual

process for educational institutions and the Student Aid division and requires significant

resources to administer.

The department is not fully utilizing social media to connect with students. For example, the

department is not using Twitter or Facebook and has not implemented any Smartphone

applications. Two other provincial jurisdictions have recently adopted these applications.

There may be a duplication of functions between Student Loan Corporation, Student Aid and

the department’s Corporate Services Division.


The program is currently delivered through three separate information systems (CAPS,

CSMS and CSGC). As a result, there is a lack of integration and information necessary to

manage the program is not readily available.

Although income support ABE clients are supposed to be case managed by the CEYS CSOs,

it is not always being done. As a result, the department has limited information on client

progress, and overall outcomes of the program.


Although demand for the program exceeds the budget allocation given the attrition in this

program the department ends up with slippage (e.g. approximately $300,000 in 2011-2012).

Commencing in fiscal year 2011 the division received executive approval to over commit in

the CAPS system in an attempt to be able to reduce the slippage associated with program

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attrition and approve additional applicants on the waitlist by using the slippage. As a result,

the department assumed a risk whereby it could have exceeded its budget allocation for this

program.

There are individuals being assessed by staff and included in the program or waitlisted even

though the individuals do not meet the eligibility criteria for disability under this program.

As a result, some ineligible individuals may be either receiving funding for this program, or

waitlisted.

A case was identified whereby an individual, for the past 30 years, has been living outside

the province and receiving vocational therapy. The department also funds travel back to

Newfoundland and Labrador once per year along with a trip to another province (currently

costing approximately $150k per year).

A case was identified whereby an individual, for the past 30 years, has been living on a farm

in Nova Scotia for vocational therapy. The department also funds travel back to the province

each year and a trip to PEI (currently costing approximately $150,000 per year).

The approvals for this program are not tied to strategic departmental priorities. Therefore,

programs could be approved for funding that are not tied to labour market needs.

There are situations where the curriculum for a program has been modified such that the

individual upon completion would not meet the credentials to work in the industry. As a

result, there are situations where an individual will not successfully attach to the labour

market in their field of study.


There is no budget allocation for this program; instead, it is part of the $5.8 million budget

allocation for apprenticeship training. As a result, there may be times when there are

insufficient funds available for identified training because the funds have been used to train

apprentices.

The apprenticeship training budget allocation is $5.8 million annually each of the last five

years; however, actual expenditures have been approximately $6.5 to $7 million with the

additional funding obtained from slippages in other LMDA programs. As a result, the

current budget allocation is not sufficient.

The current tracking system has limited capabilities and does not allow the department to

accumulate journeyperson skill sets at a subset level (e.g. a welder certified for titanium).

5-A-3-10 Career and Financial Counseling Services

There is a lack of integration of counseling and information services within the department.

For example:

- The three staff in the Career and Financial Counseling Services group (GS-38) at Student

Aid primarily focus on clients within the student aid program, while the other 40 Career

Development Specialists (GS-36) throughout the department focus on a broader client

population, approximately 12 Labour Market Development Officers (GS-40) are

primarily employer focused; and

- Career and Financial Counseling staff and Regional Information Officers (GS-30) at

Student Aid provide specialized services to high schools and educational institutions

on the student aid program. In addition, 12 (GS-40) Career Development Liaison

Appendix C

423


Officers (GS 40) in the CEYS division provide general information on the

department’s suite of services.


There are inconsistencies in PLAR policy among the institutions which currently result in

inconsistencies in the determination of an individual’s skills and competencies which results

in either different requirements for the completion of the apprenticeship program or

assessment of seasoned skilled workers (possible trade qualifiers).

5-A-3-12 Career Development Partnership Initiative

Upon fiscal 2012 there was a separate operational budget for CDPI; however, in fiscal 2012

$110,000 of the $125,000 operational budget for CDPI was included in the regional

operating budget. As a result, CDPI staff have indicated that they are not able to meet all

their travel and resource requirements.

Although the department spent approximately $4,500 on the development of promotional

material for CDPI, the material was neither approved nor distributed.



Currently the mandate of CDPI is not to specifically deal with children of income support

clients; instead the focus is on all students. If the department requires a focus on children of

income support clients, the program would have to be refocused.

Although the department has several groups (CDPI, Student Aid and Apprenticeship),

visiting schools and funds several entities (e.g. CNA, MUN), there is no formalized approach

to coordinate the activities. As a result, the information may not be delivered as efficiently or

effectively as it could be.

5-A-3-13 Employment Assistance Services

Currently, there are no standardized activities for EAS agreements nor is there a standardized

schedule of rates that could be provided to the service provider for the delivery of the

program. As a result, EAS 3rd

party service providers do not always offer the same services

and may be funded at different rates;

Although the division has a risk based approach to determine the minimum level of

monitoring required for each EAS contract, it does not have any mechanism for ensuring that

the required monitoring is actually performed.

As a result, the division cannot readily conclude that the identified monitoring took place.

The department does not have a formal plan to evaluate EAS activity and determine whether

the offices are meeting their objectives.

During peak periods for clients seeking support to attend school, the wait times to see a case

manager are quite long resulting in some clients not being able to have their Skills

Development application completed and submitted by the deadline.

Currently, the department does not have online capability whereby an individual can develop

their own action plan. As a result, all clients, except apprentices, must visit an EAS and meet

with a Case Manager to develop their RTWAP.

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The Department uses CSGC for LMDA program management. The 3rd party agencies use

ARMS. There are significant issues with existing interfacing between these systems that

results in significant error rate.


Currently the Youth and Student Services budget is monitored to identify slippage which is

redirected to either SAY, GTYO or GEP to meet ongoing demand. Slippage has

traditionally occurred in SWASP Paid, SEP-High School, SEP-NPC, GEP and a number of

other youth services programs (often involving un-cashed vouchers). In 2012-2013 the

slippage will be approximately $430,000. The budget requests do not reflect the expected

program activity.

The regions are not involved, other than consultative, with the assessment of proposals. As a

result, the input at a regional level may not be as significant as it could be.



Because the CSMS and CAPS systems are not integrated, information necessary to

determine the program outcomes is not readily available.

There are situations where two Return To Work Action Plans (RTWAP) may be prepared for

an individual to access funding. For example, although a RTWAP may be prepared for an

LMDA client and recorded in the federal CSGC system, if that individual requires funding

from a CEYS program another RTWAP has to be prepared because CEYS staff do not have

access to the CSGC system and vice versa. This results in frustration for clients and


The department does not attempt to provide training and information sessions in innovative

and responsive ways such as through the use of the internet, group format and in the evening.

Instead services are provided during normal working hours on an individual basis. As a

result, the department is not as efficient and effective as it could be in providing its services.


Having to rely on a variety of systems to determine and assess the program outcome (i.e.

CAPS; CSMS; Trim) information necessary to determine the program outcomes is not

readily available and can be time consuming






Although the department has developed an internet reporting system, The Online Mailback

System (TOMS) for clients to provide verification of income necessary to determine the

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425


amount of income support the client may be eligible for. However, TOMS is not currently

being used to manage clients with fluctuating non-employment income (e.g. child support),

and clients with no income on non-recurring pay (e.g. persons waiting to obtain necessary

documentation). Furthermore, TOMS has not been assessed for its applicability to other

programs such as Employment Transitions.

The information currently obtained during the intake process by the income support division

focuses mainly on the financial eligibility for income support. Information on such things as

employment barriers, employment history and job searches they have completed is not

captured. Furthermore, there is no mandatory referral to the department’s

employment/training services for clients considered employable. As a result, there may be

income clients who, while employable, may not receive the interventions required to attach

to the labour market.

Although the income support division refers clients for employment/training services, there

is no information provided back to the income support division as to the final outcome of the

referral.



them to obtain full-time employment and come off of income support.

5-A-4-5 Internships to Promote Technology for Persons with Disabilities

Although the department provides $350K to train and mentor up to ten individuals with

disabilities, the department does not prorate the budget if the uptake is less than ten. As a

result, the department may be paying for services for which it did not receive.

In one year when there were eight interns hired, the ILRC used program funding to pay their

required portion of a department’s wage subsidy program. As a result, the department

funded two intern positions twice.

The department does not issue a Request for Proposal (RFP) for this program. As a result,

there is not equal access for other organizations and the department may not be receiving

optimum value for money.

5-A-4-6 Self-Employment Assistance

Clients have to visit three separate service providers (EAS office, SEB Coordinator and

AES) in order to obtain funding under this program. As a result, the current client service

model is not efficient and is not convenient for clients.

Because there are multiple service providers involved in program delivery the monitoring is

not integrated - EAS monitors the client, SEB Coordinator monitors the business, AES

monitors the financial supports. As a result of the lack of integration of monitoring, the

determination of the adequacy of the program outcomes is more difficult.


Because the CSMS and CAPS systems are not integrated, information necessary to

determine the program outcomes is not readily available.

Although AES has responsibility to offer employment counseling services to individuals

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426


through its various divisions, the department has not developed a standard approach to

employment counseling for all client populations to help ensure consistency within the

department. As a result, employment counseling services may vary among department

divisions.

The department does not have a formalized process to capture labour market information on

supply and demand and determine departmental funding priorities which should then be

communicated during the employment counseling process.

There are situations where two Return To Work Action Plans (RTWAP) may be prepared for

an individual to access funding. For example, although a RTWAP may be prepared for an

LMDA client and recorded in the federal CSGC system, if that individual requires funding

from a CEYS program another RTWAP has to be prepared because CEYS staff do not have

access to the CSGC system and vice versa. This results in frustration for clients and






Although the department has 12 certified trainers in career counseling who have trained 68

front line staff to date, because the department has not developed a formalized training plan,

it is not possible to determine if the extent of training provided is adequate.


Historically, the department has been more reactive than proactive and as a result has funded

many projects proposed by 3rd party agencies vs. being proactive and identifying the

department’s priorities and having a call for proposals to identify the most suitable 3rd party

agency to deliver a project.

Once a 3rd party agency is approved for funding, historically the department continues to

provide funding on an annual basis to that agency without regard for the continued need for

the program. Therefore, new initiatives which may have more merit cannot be funded

because the existing budget is committed to maintain current contracts. Currently funding is

provided in the context of “Once you’re in, you’re in.”

A number of 3rd party agencies have multiple contracts with the department. As a result,

agencies receive administration fees for each contract, staff have to process and monitor

multiple contracts, and because multiple staff may be involved in the process it is more

difficult for the department to ensure that no duplicate funding is provided e.g. bookkeeper




There are inconsistent benefits to income support clients within and across regions, as a

result of different interpretation of policy and procedure.

Differences in service delivery models between regions. While the Avalon region operates

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427


on a service based model for the majority of its clients, the other three regions operate on a

case based model for the majority of their clients. In a service based model there is no client

ownership and as a result there may be an issue with accountability. However in the current

case base model found throughout the province with caseloads of 400+, accountability may

also be an issue.

The current policy and procedure manual should have an electronic search engine. (Currently

being actively worked upon)

The department has not aggressively promoted moving income support clients from income

support to an attachment to the labour market. There are a number of contributing factors;

traditionally employment opportunities were limited in many communities, there has been no

legislation mandating clients to participate, and the current process has been a passive

response in all areas.


- Offices within and across regions cannot share queues/calls as a result we cannot share

resources to support incoming call traffic.

- Calls cannot be routed to staff based on staff skill sets, calls are routed to queues where

they are answered by the next available worker who may not be best skilled for that call.

- Staff can only be assigned to one queue at a time, a worker could be waiting for a call to

come into their queue while in another queue there may be calls waiting to be answered.

- Assigning staff to different queues is a manual process and requires close monitoring and

manual intervention.

- Limited self-management capability, we are still dependent on the vendor for many

changes to our phone configuration eg. Changes to menu options and schedules for office

closures. Each change requested in the system requires a work order and is an additional

cost to the department.

- Limited call monitoring capability, no ability to record calls for quality assurance or

training purposes.

With the exception of the email account which has a standard 24 hour turn around time, the

department no longer has formalized service standards. It is critical that standards are

developed and are measureable to determine efficiency of service provided.

KIVs in the income support database continue to accumulate unactioned because staff do not

have time to address them. (Some analysis and recommendations have been completed on

this issue)

The use of screeners (CSO - GS 34) in two regions (Central and Western) results in the lack

of utilization of the CSO skill set.

The current application for income support is a financial assessment for income support

eligibility and does not assess the client’s employability. A separate process is in place to

determine this need and the two processes should be combined into one application for

service.

Currently, only 28% of income support clients are utilizing direct deposit. The use of direct

deposit would reduce workload, avoid mail disruption, improve delivery, and reduce costs.

Appendix C

428


(Currently, there is a pilot in central region to increase the take up of direct deposit for new

and reopened cases, this will be province wide by Nov. 1, 2012)

Recommendations of the Service Delivery Improvement Team relating to Income Support

are not always approved and/or implemented on a timely basis. (This may be due to a

number of reasons including system changes, as well as staff and financial resources). In

addition when recommendations are implemented, there is no formal process for monitoring

the effectiveness of the change.

The current process/workflow around payment of invoices is complicated and service

providers often have to wait for payment of services provided. For example, approval for a

taxi trip in Avalon requires a manual authorization number (TCN) while awaiting a verified

SA # in order to ensure the timely approval of transportation for a client. This is additional

work required by staff.


There is no requirement for CSOs to meet with income support clients who have multiple

requests for emergency assistance. Such a meeting would determine underlying issues and

possible interventions required to address the numerous requests for emergency assistance.


The housekeeping allowance has had issues in that amounts paid are not consistent across

regions.


The department has to provide eligibility confirmation to the Department of Health and

Community Services (HCS) on a number of benefits because certain field staff within HCS

do not have access to CAPS. As a result, staff at AES are involved in a confirmation

process that could be handled by the Department of Health staff.

Currently in the Avalon region CSOs have to use a Taxi Confirmation Number (TCN) to

authorize a client’s medical transportation with a service provider because they cannot obtain

a service authorization from CAPS. A service authorization number from CAPS can only be

generated after a PAU verifies the request in CAPS. As a result, there is a duplication of

effort in obtaining a TCN and the service authorization number.

AES is responsible for providing dietary supplements (e.g. Boost) to income support clients

and is required to obtain the products from the Health Care Corporation. The arrangement

sometimes results in clients not receiving their dietary supplements when they are required

because the Corporation has set delivery schedules. When clients do not receive their dietary

supplements they contact AES staff who are then required to issue emergency assistance.

This can be a cumbersome process which can also result in poor client service and

unnecessary costs.

Appendix C

429


Because CAPS has a dollar threshold which cannot be exceeded, CSOs are required to

complete multiple service authorizations in order to commit the funds. This results in a waste

of CSO time.

AES continues to be responsible for determining financial eligibility for non IS clients who

require hearing aids, prosthetics and orthotics. In 2009, HCS changed the parameters of their

Special Assistance Program (SAP) and now the public can apply directly to HCS for

approval (previously AES completed the financial eligibility test for these non clients).

However, the three pieces as outlined remained, as these were considered to be separate

programs from the SAP. This is additional work for AES staff and requires that residents of

the province with no affiliation to the department, apply to AES in order to be funded by

HCS.

AES is also providing supplementary benefits (medical transportation and vision care) to

HCS clients (usually home support clients or those in long term care facilities) who are not in

receipt of IS. This was an agreement from the split of the Dept of Social Services many years

ago. Again, these are clients with no attachment to AES who are seeking services because of

their HCS eligible status. Significant work effort by staff, and poses some issue with

remaining compliant with the Regulations.

AES currently pays for all ambulance bills (patient fee portion) for IS and HCS clients. From

a business process point of view, this is cumbersome and bureaucratic. Eastern Health pays

the ambulance providers the full eligible amount upon receipt of the invoices. EH then bills

AES for their portion by region(IS and HCS clients), who then pays the 4 separate RHA’s

the required amounts. AES has no way to verify the eligibility for HCS clients and simply

takes the invoices at face value. The last analysis showed that 65-70% of the clients

receiving ambulance services were strictly HCS clients with no affiliation to AES.

5-A-5-3 Mother Baby Nutritional Supplement

Overpayments are not recorded as recoverable amounts. This situation can be attributed to

payments for the prenatal component being made outside of CAPS and therefore there is no

readily available mechanism to record and collect overpayments.

CAPS is not being used to administer the MBNS benefit. As a result, separate cheques have

to be issued for the benefit even though it could be included, for income support clients, on

their bi-weekly cheques.

5-A-5-4 Newfoundland and Labrador Child Benefit (NLCB)

Client Service Managers (CSM) are required to get a report from the CAPS system in order

for the manager to ensure that staff are assessing clients for continued eligibility of financial

benefits. The managers are required to also run reports on other aspects of program delivery.

However, there is no automated process to provide managers with the reports they require.

As a result, there is an increased risk that managers, due to competing demands, may miss a

report deadline which can result in reduced client service.

Appendix C

430


There are issues with the reports (currently being worked on) but based on the MOU which

identifies the fields which can be shared - this poses some problems.

Although staff are required to consider retroactive payments provided by CRA to determine

the impact on income support, the “covering periods” required for that determination are not

indicated on the CRA reports.


5-A-6-2 Emergency Shelter Services

Although the department sometimes requires the use of a private shelter, (some averaging

$157,000 per year) the department does not issue a formal call for services to determine

whether other individuals may wish to provide this service.

Although the department funds shelters for homeless individuals, these shelters may refuse

certain individuals due to known behavior issues that could result in damage to the shelter

and possible safety issues for the staff. As a result of initially funding the shelter, the

department effectively pays twice for shelter when an individual has to be placed elsewhere

(e.g. hotel).

The department has block funding arrangements with some service providers and per diem

funding arrangements with others. Some of the per diem rates appear high.


The department does not have a contingency plan in place to clearly outline how either

regular duties of staff assigned to ESS will be completed or how any backlog of work will be

addressed.

5-A-6-5 Allied Youth (AY)




The Goss Gilroy report of November 2010 has not been signed off by the department and as

a result all of the recommendations have not been implemented.

Up until the 2012 fiscal year surplus funds were reallocated to CYNs on a mathematical

basis without identification of specific need.



Funding to organizations is an expectation from year to year once approved. As a result, new

initiatives which may have more merit do not always be considered for approval due to

existing budget commitments.

5-A-6-8 DPO: Accessibility Grants Program

The objectives of the program are not aligned with the core mandate of AES.

Although the office is designed to develop and implement policy across all departments, it is

currently responsible for delivering this program even though there are no program staff.

5-A-6-9 DPO: Accessible Vehicle Grants program

The objectives of the program are not aligned with the core mandate of AES.

Although the office is designed to develop and implement policy across all departments, it is

Appendix C

431


currently responsible for delivering this program even though there are no program staff.

5-A-6-10 Social Work Services

Although the role of LSWs is defined, the scope of services they are required to provide

appears to be too broad to address clients’ needs. As a result, some clients’ needs may not be

addressed.

Twenty AES Social Workers are currently working in partnership with the Department of

Justice to provide services to residents seeking support or assistance with custody and access.

There is some concern that AES clients may not get priority. As well, this arrangement is

currently undergoing some transitions and staff are awaiting the outcome of these changes.


5-B-1-1 Curriculum

The department relies on subject matter experts to provide advice on industry requirements.

These individuals are required to provide their time either by taking time from work or

meeting after regular work hours. Currently, these individuals are compensated at $10 per

hour. As a result, the department is having difficulty recruiting experienced subject matter

experts for this important piece of work.

The current data base requires manual input of all approved curriculum into the

Apprenticeship Information Management System (AIMS). Other information such as an

individual’s practical skill progress towards Journeyperson status cannot be readily obtained

in AIMS.

Invest in database capable of providing necessary tracking information, statistics and

reporting mechanisms.


The current data base does not readily provide all information necessary to manage the

program. Furthermore, although as part of the red tape reduction initiatives, an electronic

transfer process from the private training institutions was proposed, it was never

implemented.

5-B-1-4 Memorial University

Because MUN has operational autonomy and academic freedom, in most cases they make

the determination as to whether or not they will fully participate in any proposed initiatives.

As a result, there are instances where the department is not able to fully implement identified

initiatives (e.g. core mandate review where MUN did not submit the required phase 2

proposals).


The department has not formalized its overall approach to how labour market supply and

demand information will inform and influence training and related funding priorities. As a

result, government has not clearly articulated its position around the roles and responsibilities

of the public and private colleges, which has resulted in duplication of programs, gaps in


Although the department accumulates labour market supply and demand information various

Appendix C

432


divisions (e.g. LMDA, Advanced Studies) the information is not formally shared to facilitate

effective decision making.


The department has not formalized its overall approach to how labour market supply and

demand information will inform and influence training and related funding priorities. As a

result, government has not clearly articulated its position around the roles and responsibilities

of the public and private colleges, which has resulted in duplication of programs, gaps in


Although the department accumulates labour market supply and demand information via

various divisions (e.g. LMDA, AS) the information is not formally shared to facilitate

effective decision making.

The department does not publicly post issues of non-compliance by PTIs to better inform the

general public. As a result, the general public may not have adequate information to make

an informed decision.

Currently the division does not have either an electronic record tracking system (e.g. TRIM)

or an information management protocol to allow more efficient file management. As a

result, much of the staff’s time is tied up with file management.

Policies and procedures related to staff duties have not been formally documented. As a

result, there is no consolidated source of material to guide staff in the performance of their

work.

The Operations Manual for PTIs is in need of updating. As a result, there is a discrepancy

between current practice and the document as it currently exists.

There are situations where, although the division requires an industry expert from the

Apprenticeship and Trade Certification division (ATCD), the ATCD refuses to provide the

experts because the program in question is not a currently apprenticeable trade. As a result,

site visits are conducted without industry assurance that the program curriculum and

resources meet industry requirements.

Although the Student Aid division requires private training institutions to submit annual

improvement plans to address repayment rate issues, there is no formal protocol which

requires the information to be shared with the Superintendent of Private Training Institutions.

Although there are references within the 2011 SFS Designation Policy to private training

institutions being required to adhere to legislative requirements under the Private Training

Institutions Act and Regulations, there has been no consultation between divisions on the

information provided to SFS by private training institutions or the outcomes of related SFS

audits. As a result, the department is at risk of providing inconsistent direction in that, while

the Superintendent may have concerns with a particular campus, the Director of Student Aid

at the same time may acknowledge continued student aid designation for that campus.

Furthermore, although the Apprenticeship and Training Certification division requires

private training institutions to voluntary adhere to an accreditation process which includes

site visits, student surveys, and submission of annual reports, there is no formal protocol

which requires the information to be share with the Superintendent of Private Training

Institutions. As a result, the department currently has three different divisions contacting

Appendix C

433


private training institutions for information with no consultation to ensure there is no

overlap.

5-B-1-7 Interprovincial Red Seal (Apprenticeship) Program

Although the province is required to participate in the ongoing development of national red

seal products, there are situations where the required approval is not granted. As a result, the

province’s access to red seal certified products could be impacted.

5-B-1-8 Power Engineering

The current information system (microcomputer based) provides limited tracking

information, statistics and reports.


Although the federal government had allocated $800,000 in 2009 to be spent by the province

related to foreign qualification recognition initiative, the department has still not received the

funding because it is still in negotiations with the federal government. It is important to note

that other jurisdictions have received the funding and are proceeding with the initiative.

Although the province is invited to participate in the ongoing development of foreign

qualifications recognition, there are situations where the required approval is not granted. As

a result, the province is not able to present its views with regard to foreign qualification

recognition.


Currently there is no direct institutional monitoring of international students at the post

secondary level. However, the changes being put forward by Citizenship and Immigration

Canada (CIC) will result in a significant increase in the level of monitoring, reporting and

evaluation required.

The department has not established a strategic process for the identification of priority

occupations that could be addressed through the targeted recruitment of international

students.

The department has not identified specialized training programs already established in other

countries that could be accessed by NL students to address the current and upcoming skill

gaps.

Currently there is no formalized communication protocol among the divisions of Institutional

Services (International Education), OIM (Immigration), Skills Development (Foreign

Qualification Recognition and Labour Mobility) and LMDA (labour market supply and

demand).

5-B-1-11 Labour Mobility

Although the province is invited to participate in Labour Mobility Coordinating Group

meetings, there are situations where the required approval is not granted. As a result, the

province is not able to present its views with regard to labour mobility issues.


The AIMS system used to track clients does not have the capability to inform staff of a

required future action such as monitoring certificate renewal after five years to determine the

trade activity. As a result, the department is not aware of whether clients made a long term

Appendix C

434


attachment to their certified trade.

The TQ assessment process is currently separate from other client assessment processes

within the department. As a result, TQ clients may not be availing of other departmental

programs to support their employment and education needs.

Although the division has set a standard of a five day turn around time for completion of

application assessment, the standard is seldom met. As a result, client services is not at its

optimum


5-B-2-1 Career Work Centres

In locations where LMDA funded 3rd party service providers also operate, it may be that

individuals go to those offices to access services instead of accessing services at a CWC, in

particular where 3rd party service providers were established prior to the CWC (e.g.

Dunville).

The department has provided limited marketing of the CWC for the supports and services

offered which has resulted in limited usage, in particular, in some of the more rural CWC

locations.

Although the department may consider the number of in person visits to the CWC as an

indicator of success, given the increase use of technology obtaining access to departmental

services, individuals do not necessarily need an in person visit.

A significant number of the "in-person" visits (~80%) are associated with Income Support

clients who are coming into the sites for administrative reasons related to Income Support.

There are no Income Support staffing resources assigned to the CWC front-end reception.

Due to the high volume of such clients, this results in a lot of interaction/responding to IS

client caseload issues as opposed to the provision of/access to employment and training

resources and supports at the Centers.

There is no formalized business model for the CWC, and as a result there are variances in the

organization structure, the services offered and front line responsibilities across CWCs. For

example, student aid has presence in four CWCs. Furthermore, upon initial set-up, there were

no designated resources assigned for the CWCs which further compounds regional/CWC

differences as the regions attempt to provide CWC services within existing resource base.

5-B-2-2 Labour Market Research

Staff have indicated that the current labour market information does not provide adequate


example, while labour market information on the Avalon peninsula may be considered


There has not been any rationalization as to either the type of labour market information

required or the resources necessary to collect, analyse and disseminate the information.

Relevant staff have limited expertise in the interpretation and analysis of labour market

Appendix C

435


information and reports provided.

Although AES currently has multiple staff (e.g., LMDOs, PDOs, CSOs, and Hotline staff)

who interact directly with employers and industry, the information gathered is not always

shared among staff nor are the employer or industry contacts coordinated. This can result in

overlap and duplication.

Although current labour market information is available within AES, it is not provided to all

staff who require the information as part of their duties.

AES currently has multiple labour market research activities (advanced skills division and

labour market division) with limited interaction, resulting in limited sharing of information

and duplication of effort.




that in many instances it took many calls or emails in order to make contact with

departmental staff.

The skill set of the eight PDOs in the Regional offices is not being utilized effectively.

Currently, PDOs (GS 42) are involved in administrative duties and as a result, do not spend

an adequate amount of their time working directly with employers and apprentices.

There is no integration of PDOs within the department’s current program administration,

which results in a disjointed service delivery approach. For example, PDOs are not located

in AES offices across the province and do not have ongoing contact with other AES front

line staff.

The Apprenticeship Information Management System (AIMS) is not effective, timely or

efficient in providing information necessary to track, monitor and report on the

apprenticeship program.

Apprentices do not have online access to departmental information necessary for them to

determine their apprenticeship status. As a result PDOs have to respond to the inquiries

which is not an optimal utilization of their skill set.

The department does not currently post its apprenticeship block training schedule so that

employers and apprentices can plan in advance to allow apprentices to attend block training

toward Journeyperson certification. As a result, the uptake on advance level apprenticeship

training is not as high as would be expected.

Because block training funding is on an individual basis through LMDA, when the uptake is

lower than anticipated for the class, the training can be either cancelled or rescheduled by the

training institution. This has a negative impact for both the employer and apprentice,

reduces confidence in the program and likely results in fewer apprentices obtaining


The department does not consider where the pools of apprentices are currently located with a

view to ensuring that the necessary advanced level training for certification is available

within the area they work. As a result, there are situations where the advanced training is

only available in areas outside the apprentice’s place of work e.g. plumbing available only in

Appendix C

436


Bonavista.

Although some suppliers have indicated a desire to have a “direct entry” path as a way to

train for a trade or industry career, the department has not pursued this method. Having a

direct entry system could result in an increase in apprentices in certain occupations.

Not all employers receive funding through AWS because there are insufficient funds for all

employers to receive this subsidy. As a result, there may not be as many apprentices hired.

The department does not match apprentices with prospective employers to facilitate

attachment to the labour market. As a result, there may be apprentices who cannot find

employment and vice versa.

The department has not been clear on the expectations of outcomes regarding interactions

with key stakeholders. As a result, it is not possible to determine whether the department has

been effective in its partnership with stakeholders.

Although, there are multiple divisions within the department responsible for employer

engagement, they are not integrated or coordinated to ensure that engagement with

employers is optimized.

5-B-2-4 Environmental Assessment

Although the LMD division reviews these potential projects, the information is not shared

across AES to ensure that the implications on the labour market related to proposed projects

is strategically considered.

Currently the LMD is responsible to provide input into the environmental assessment;

however, it may be more appropriate for the Workforce Development Secretariat to lead this

review.


The Industry Coordinating Committee is inactive and as a result little work has been

performed relative to the skills trade component of a progressive HR strategy as envisaged in

the Skills Task Force report. Furthermore, as a result of its inactivity, there has been

inadequate stakeholder engagement to gather and disseminate current information around

labour market needs and skill requirements used to determine post-secondary academic

planning.


Although the department has other employer recognition awards, there is no consideration

given to coordinating the initiatives.


5-B-3-1 Student Loan Corporation


portfolio size, segmentation and maturity of the loan portfolio will need to be considered

with other collection services within Advanced Education & Skills.


Currently email correspondence over one page cannot be directly exported to TRIM. Instead

staff are required to print the email and then scan it. As a result, the process is inefficient and

results in a waste of staff’s time.

Appendix C

437


5-B-3-3 Finance – Accounts Payable (A/P)

There are inconsistencies between how CAPS and non-CAPS invoices are processed. Non-

CAPS invoices recorded in Oracle are processed by the Controller Generals Office, while

CAPS invoices are processed in the department.


The current collections system is dated and does not provide information necessary to

adequately manage the program.

Currently, collections is completed in two different divisions, Finance and Student Loan

Corporation with different systems to capture the information.

The department could increase its focus on activities such as federal setoff, MRD, and

Government Services which result in increased payments.

LMDA overpayments have to be identified by LMDA staff and communicated to Accounts

Receivable via email. A/R staff enter the overpayment in CAPS for monitoring and follow

up. There is an increased risk that an overpayment could go undetected.

The LMDA business process of providing upfront funding and requiring a subsequent receipt

results in more overpayments than the CEYS business process model of issuing service

authorizations and paying the invoices.

5-B-3-5 Finance – Client Payment Services

Currently, in order to ensure that all clients receive income support by the required date,

cheques are issued such that, in most instances, they are received a day before the due date.

This has been identified by staff as a potential disincentive for income support clients to

accept direct deposit because, in their opinion, clients would not want to receive their

payment a day later which would be the case with direct deposit.

The department has committed to have 80% of income support payments on direct deposit

for recurring cheques by March 2014.

For one time payments, it is not currently possible to pay clients via direct deposit because

Government’s Financial system (FMS) can’t capture direct deposit information for one time

vendors, it is a system limitation. Unless the client is on recurring pay or set up as a vendor,

direct deposit is not possible.


Although issues identified during the interface process (e.g. CRA, EI and WHSCC) require

resolution, staff have not been provided with clear procedures to ensure consistency in the

documentation necessary for resolution. As a result, the documentation on file to support a

resolution can vary significantly.

When staff obtain information necessary to resolve an issue identified during the interface

process the resulting adjustment can vary depending on the interpretation of the staff. The

inconsistent interpretation can be attributed to lack of training and guidance.

Some EAU CSOs in the Central and Western regions may also be responsible for issuance of

Appendix C

438


non-recurring income support (mailback). This impacts their ability to focus on EAU

responsibilities.

Although there are policies and procedures to assist staff in the calculation of overpayments,

a team currently established to review the process has identified significant issues relating to

the consistency in the determination of recoverable amounts. As a result, it is possible that

some of the amounts set up as recoverable from clients are incorrect – either over or under.

Although EAU CSOs record anticipated savings in the Investigator Tracking System (ITS),

there is no automated checking with other systems to identify subsequent required

adjustments to the anticipated savings. As a result, the anticipated savings identified are

likely not accurate.

Although anticipated savings of EAUs is recorded, the information is not currently used in a

determination of the cost benefit of the EAU initiative.

Although the Telephone Eligibility Confirmation (TEC) staff (administrative staff) perform

similar duties as the EAU cycle review staff, they do not have the ability to action required

changes. Instead, the TEC staff send the required change request to a CSO for action. As a

result, the process is not as streamlined as it could be.

There is no deterrent for clients who defraud the department; overpayments are set up on

clients files where the maximum that can be recouped is 5% of their regular benefits

regardless of the amount of the accounts receivable. While legislation and policy provide for

penalties for non-compliance, it has primarily focused on overpayment creation and

recovery. Very few cases have been prosecuted in recent years, even when the non-

compliance dollar value is high or where there are significant repeat offenders.


Currently the PAU staff report to an Income Support Manager even though they also review

CEYS payments in CAPS.

Appendix D

439

Appendix D - Summary of Quick Wins

5-A-1 LabourMarket Development

5-A-1-1 JOBS in NL

An interface between the two employment websites to allow for electronic transfer of job

ads.

Including links on JOBSinNL.ca to the other AES employment related services, such as

wage subsidies, NL HR Manager, and Student Employment Programs.

5-A-1-5 SmartForce NL

The department could ensure that all government departments are made aware of SmartForce

NL.


Establish a formal assessment committee and ensure that all decisions are formally

documented.


The division could give primary consideration to addressing the province’s labour market

needs when assessing PNP applications.


Consolidate the program with other graduate incentive programs.


The department could ensure that all initiatives (Student Aid, CDPI and this program) are

focused and coordinated to ensure optimal services delivery.



Online application process for wage subsidies (Graduate Employment Program, NL Works,

NL Wage Subsidy, Wage Subsidy for Persons with Disabilities).

The GTEP program can be either consolidated with the Graduate Employment Program or

eliminated in order to reduce unnecessary administration costs and simplify the services

offered by AES.


Merge the GTEP program with the existing GEP program.


The policy to align Training Services graduates to this program on a priority basis should be

formalized and strictly enforced.


Transfer the management of the Apprenticeship Wage Subsidy program to the Industrial

Training Division.


Establish and enforce reporting requirements relating to female apprentices.



Appendix D

440



A single contract with each institution.


The department could consider the transfer of administration of individual supports currently

being completed by provincial and regional staff to 3rd

party agencies.




party agencies.



The department could consider creating a formal line of communication between The

Apprenticeship and Trade Certification Division and The Institutional Services Division to

assist in the provision of appropriate services for apprentices and trade qualifiers.

The department could post scheduled block training on its web page.

5-A-3-5 ABE

The department should consider a formal communication protocol among CEYS, LMD and

Adult Literacy divisions


Automated forms and letters and the students online account could be revised.

Infrastructure with modifications is currently in place to support these enhancements.

A Smartphone application could be implemented.


Income support ABE clients should be monitored to determine their program progress.

The department should consider the current differences in stipends for clients participating in

employment/education interventions with a view to ensuring a more consistent approach.


Increased consistency across colleges involved in the PLAR process. Identification of

practical skills where competency has been achieved and identify gaps and required training

needed to fill those gaps. Reduce number of attempts an individual will need on a

certification exam to achieve journeyperson certification.


The department could determine what it wants to do with the promotional material developed

for CDPI.


The department could develop standardized EAS agreements which include standardized

rates, eligible costs and ratios of clients served.

Appendix D

441





The department should take the initiative to introduce more innovative and responsive ways

to interact with clients e.g. email, videoconferencing, web based and group sessions.



The department should take the initiative to introduce more innovative and responsive ways

to interact with clients e.g. email, videoconferencing, web based and group sessions.


The department should consider the feasibility of expanding the availability of TOMS to

include such groups as working clients with fluctuating earnings and clients on non-recurring

pay awaiting transfer to recurring pay.

Information on referrals from the income support division should be reported back to the

division to ensure that staff are aware of the outcome of the referral.


The department could prorate funding in instances where the target number of clients to be

served has not been met.

The department could consider issuing a Request for Proposals for the Internships to

Promote Technology for Persons with Disabilities program.


The department has a team of trainers who are able to provide the training necessary for staff

to be certified as career practitioners. Currently, 80 staff are certified and it would be

necessary to identify other staff requiring this training and to what extent.


Additional contract requests could be incorporated into existing contracts via amendments to

avoid duplicate administration funding.



Improve communication and sharing of information between income support and other

departmental divisions.

Implement mandatory direct deposit for new and reopened cases as Phase 1 which is

currently underway. Phase 2 would target existing cases.

Implement a search engine for the current policy and procedure manual.

Elimination of any unnecessary phone systems currently in use for on call services.


The department should determine whether there is a more consistent approach to determine

the amount of emergency assistance to be provided to a client and whether the amount has to

be repaid.

Appendix D

442



The current dollar threshold in CAPS related to authorization of health related benefits

should be reviewed to determine whether it is appropriate.


The department should consider implementing an automated process (e.g. email) to assist

managers in obtaining the reports required to ensure quality service for clients.





The department could consider identifying core staff to be part of an emergency team.


5-B-1-1 Curriculum

The department could determine whether the $10 per hour compensation currently being

provided is reasonable.


AES Executive to meet with CNA Executive to define expectations and set meaningful goals

and targets.

The department could develop a formalized approach to the distribution/dissemination of

labour market supply and demand information.


The department could consider publicly posting non-compliance by PTIs.

The division should continue with its efforts to formally consolidate policies and procedures

for staff and upgrade its standards and guidelines for PTIs.

The division should continue with its effort to update the Operations Manual for PTIs.

The department should ensure that protocols are in place to clarify what information various

AES divisions require from private training institutions and to share information across

divisions to avoid the risk of duplication and inconsistent decisions concerning private

training institutions.


The department could consider integrating the TQ assessment process with other

departmental assessments.


5-B-2-1 Career Work Centres.

Signage for Career Work Centres.


Labour market information should be provided to all relevant staff along with an overview

on appropriate usage.

Appendix D

443



Post the apprenticeship block training schedule to the department’s website.


The department could consider the merits of having the Workforce Development Secretariat

lead the environmental assessment reviews and ensure that the information is shared and

strategically considered.


Decide whether the ICC should be reconstituted or whether the Workforce Development

Secretariat should perform that function.


The department could establish clear criteria for the selection of employers to receive an

award.


5-B-3-5 Client Payment Services

The department could, effective immediately, not issue income support payments until they

are due. By introducing this measure, it may be seen as an incentive by clients to move to

direct deposit.


The Income Support division could determine whether the issuance of non-recurring income

support (mailback) should continue within the EAU.


The department should determine whether there is a need for the PAU staff to review CEYS

payments.

Appendix D

444


Appendix E

445

Appendix E - Summary of Streamlining & Consolidation Opportunities

5-A-1 LabourMarket Development

5-A-1-1 JOBS in NL

Including links on JOBSinNL.ca to the other AES employment related services, such as

wage subsidies, NL HR Manager, and Student Employment Programs.

Electronic matching of resumes to job opportunities would provide job seekers with more

immediate and relevant potential job opportunities.

Allowing reputable employers to enter job postings via password would allow jobs to be

posted more quickly and entice larger organizations to avail of the service, while reducing

the amount of required internal administration.


AES should consider consolidation of similar services across the department.

Potential for combination with other 1-800 services

Potential to combine call centre functions from across dept.

Could this be the secondary service to the online service presence?

5-A-1-3 NL HR Manager

The department could consider the similarities of services being provided to employers by

the department and IBRD.


The department should consider having this program, along with other similar programs such

as Job skills/Essential Skills and community partnerships funding delivered by one group.


The program could be delivered with other employment programs.

5-A-1-10 NL Settlement & Integration Program - NLSIP (Grants & Contribution)

The department could consider consolidating the grants process into a grant administration

division.


If the program continues it could be consolidated with other graduate incentive programs.


The department could ensure that all initiatives (Student Aid, CDPI and this program) are

focused and coordinated to ensure optimal services delivery.



The committee is currently reviewing the following for all wage subsidy, voucher and

stipend programs:

- client intake and assessment requirements;

- funding supports; and

- a single application with the possibility of an online application process


- streamline/standardize the level of funding supports provided to clients; and

- develop a standardized Evaluation Plan

Appendix E

446


Cross training will be required for front line staff to assist in the administration of all wage

subsidy programs.

The recently developed Delegation of Authority proposal could be considered and

implemented as appropriate to streamline approval processes.

The frequency of the reimbursement schedule for employers could be reduced, ensuring that

any outstanding amounts are closed off at year end.

While a single wage subsidy application is currently under development, an electronic

transfer of information similar to the process in the Student Aid Management System would

be a significant improvement in business practices.


This program could be administered through the AES Regional Offices as part of the parallel

Graduate Employment Program (GEP).

5-A-2-3 NL Works


stipend programs:








subsidy programs










stipend programs:








subsidy programs

Appendix E

447











stipend programs:








subsidy programs








5-A-2-6 Government Hiring Apprentices Program (GHAP)

Wage Subsidy for Apprentices - Similar objectives and target population.

Could possibly be considered in next round of wage subsidy reviews for

streamlining/consolidation.



stipend programs:








subsidy programs

Appendix E

448




stipend programs:








subsidy programs




The department could consider the similarities among other youth grant programs including

SAY, GTYO and CYN and determine whether there could be a consolidation of funding and

service delivery.

5-A-2-11 Linkages








5-A-2-15 Student Employment Programs (Level I, II, III)

The program can be consolidated with other employment/work experience initiatives

targeted to students using a common application. Consolidation would simplify the

application process for students and organizations.

5-A-2-16 Student Employment Programs (Non-Profit)



Given that AES delivered this program internally for this first time in 2012, an analysis

should be completed to determine if any efficiencies and intended program outcomes have

been achieved. Based on the outcome of the review, if it is more effective for AES to deliver

these programs, consideration should be given to consolidate other employment/work

experience initiatives targeted to post-secondary students.


Given the similarities, this program could be consolidated with the Graduate Employment

Program.

Appendix E

449



Consideration could be given to moving from the provision of a voucher to a completion

bonus, i.e., a cheque to the student at the end of the employment contract.

There are currently four contracts, MUN-PACEE, CNA-PACEE, MUN-SWASP, CNA-

SWASP; however, AES could enter into just two contracts. In addition, opportunities may

exist for bundling of contracts with other similar grants and youth work experience/financial

support programs.



Currently AES enters into contracts with the institutions for each initiative. The process

could be streamlined if one contract was entered into with each institution covering all

initiatives.

Alternatively, the funding could be integrated into the Departmental operating grant with

each institution administered by the Advanced Education branch.



being completed by provincial and regional staff to 3rd party agencies.

Consideration could be given to incorporating this program with either the Supported

Employment Job Trainers or the department’s student employment programs.




party agencies.

5-A-2-22 Tutoring Program (TFT, IT-TFT, TWEP)

The department could consider having the program delivered by the Department of

Education.

All three tutoring programs could be merged into one for budgetary and administrative

purposes.



In addition to the Job Skills/Essential Workplace Skills, the department administers a number

of employer based training programs such as Post Journey Specialized Training, and

Bridging the Gap which could be consolidated for delivery purposes.


The program could be administered through LMDA given the similarities with the

Apprenticeship block training for EI eligible clients.





Appendix E

450


The department could develop an integrated approach to assessing financial need and

providing financial supports to clients.

5-A-3-5 ABE

The department could develop a formal protocol for the three divisions involved in the ABE

program to ensure that they communicate and coordinate activities to optimize service

delivery and reduce overall costs.


The department should consider having one application and a common assessment for all

programs and services (including persons with disabilities) that utilizes both federal and

provincial funding.

A review of SFA operations and administrative functions should be undertaken if it is

determined that the Student Loan Corporation is a practical fit with the suite of financial

services offered by the department’s corporate service division.

There could be a common financial assessment tool used to determine the level of benefits

clients are entitled to receive.

The department could consider developing service standards for all divisions. In this regard,

current service standards in place at the Student Aid Division, which appear to be effective,

could be considered.


Currently participation in ABE is funded and administered by LMDA, CEYS and AE. As an

alternative, there could be one mechanism for the administration of ABE for all AES clients.


Program in line with Student Aid - both have agreements with HRSDC

Both programs could complement each other. Student Aid is purely Federal up to $10K in

grants, LMAPD funding exceeds that with a provincial-federal agreement that could be

provided in addition.

Looking towards Student Loan program for possible coordination of services in order to

better meet demand. Disability related grants available thru Student Aid. There may be

benefits for the department defining permanently disabled in the same way as student aid for

this program.


All programs approved for post journey training specific to the skilled trades should be

posted on the Apprenticeship and Trades Certification Website via an Apprenticeship

Training Calendar. The calendar would consist of annual post journey and specialized

training registration dates, the enrollment form, training schedules, and time critical updates

regarding registration and technical training. KIV: This could result in significant uptake

increases and result in increased costs.

5-A-3-10 Career and Financial Counseling Services

Appendix E

451


The department could have more integration and sharing of information and services among

career counselors which could lead to an improved level of service.

The department could integrate Regional Information Officers at Student Aid with Career

Development Liaison Officers in the CEYS division to provide a more coordinated approach

to service delivery.


The PLAR concept could be applied to all AES clients to ensure formal and informal

qualifications are appropriately recognized in the determination of their employment plans.


The department could consider a formalized approach to coordinate the activities of groups

responsible for visiting schools.


Redirect all AES funded services currently offered through EAS to AES offices.

Determine whether it is necessary for all individuals to complete the RTWAP.

Develop a common assessment tool to streamline the client intake process and enhance the

integration of client services.

The Department could consider and integrated case management system for itself and 3rd

party agencies.


The department could consider the similarities among the SAY, GTYO and CYN and

consolidate the funding and service delivery.





Where possible a single point of response should be offered.





The department should continue the implementation of a standard assessment form and

ensure that all employable income support clients are referred to employment/training

services.


The department could consider offering this service internally.

5-A-4-6 Self-Employment Assistance

Appendix E

452


The department offers support for EI eligible and income support clients to start a business.

The Department of Innovation, Business and Rural Development (IBRD) has the expertise to

develop and/or assess business plans, and could deliver this program. In addition to a more

effective service delivery model, it would also result in savings currently being paid to SEB

Coordinators.





An analysis of all contractual agreements will be required to determine if there are similar or

duplicate mandates, goals and objectives with contracts administered by other divisions

within the department as well as by other government departments.

The department should consider having one contract per 3rd party agency and add any

additional programs through a mechanism such as either an amendment to the contract or

creating an oversight role to ensure efficient administration and avoid duplication of funding

for the same service.



There is an opportunity to streamline operations for certain benefits/services such as a

centralized provincial application unit, medical transportation, and health unit.

The current payment processing cycle for invoices (particularly time sensitive requests for

medical transportation) is complex and could be considered for streamlining.

AES should determine whether on call services from 12am-8am are required and whether

they could be outsourced.


AES should consider providing the Department of Health read only access to CAPS in order

to confirm client’s eligibility for health related benefits for which they deliver.

The department should consider the duplication of effort which currently exists in the Avalon

region with regards to authorizing medical transportation.

The current dollar threshold in CAPS related to authorization of health related benefits

should be reviewed to determine whether it is appropriate.

5-A-5-3 Mother Baby Nutritional Supplement

For income support clients, the department should consider including the MBNS benefit on

the cheques issued through CAPS.


The department should consider implementing an automated process (e.g. email) to assist

managers in obtaining the reports required to ensure quality service for clients.




5-A-6-1 Jumpstart

Appendix E

453


The Jumpstart Program could be considered for transfer to a more appropriate department.

5-A-6-4 Services to Persons who are Victims of Violence

Consideration could be given as to whether Victim Services would have the capacity to

deliver this service.


The program could be considered for delivery by another department such as either the

Department of Tourism, Culture & Recreation or the Voluntary Non-Profit Secretariat.




The School Lunch Program could be considered for transfer to a more appropriate

department such as The Department of Health or the Department of Education.



5-A-6-8 DPO: Accessibility Grants Program

Consideration should be given to explore potential opportunities for transferring the program

to another department.

5-A-6-9 DPO: Accessible Vehicle Grants program

Consideration should be given to explore potential opportunities for transferring the program

to another department.


5-B-1-1 Curriculum

The department could consider increased cooperation among the Atlantic provinces and have

different jurisdictions lead curriculum development in specific areas. This would reduce the

effort required and potential duplication of like products.


The department could consider having the public and private training institutions responsible

for the instructor certification process.


The department could consider the merging of Institutional Services and Apprenticeship and

Trade Certification divisions.


The department could consider the merging of Institutional Services and Apprenticeship and

Trade Certification divisions.

5-B-1-8 Power Engineering

The department could consider having the College of the North Atlantic perform testing and

certification along with the training.


While the Skills Development Division has lead responsibility for foreign qualifications

Appendix E

454


recognition and works with regulatory bodies regarding occupational regulation, it is

supported by the Office of Immigration and Multiculturalism (OIM) to ensure all views are

addressed and presented in relation to foreign qualifications recognition agenda items. As a

result, there is possibility for integration.


The department could develop and implement a formalized communication protocol among

the divisions of Institutional Services (International Education), OIM (Immigration), Skills

Development (Foreign Qualification Recognition and Labour Mobility) and LMDA (labour

market supply and demand).


The department could consider integrating the TQ assessment process with other

departmental assessments.


5-B-2-1 Career Work Centres.

The department should consider which services can be offered from the CWC ( e.g.

apprenticeship, student aid and immigration).


Opportunities may exist for various labour market information research functions throughout

the department to be centralized.


The apprenticeship initiatives currently funded through LMDA could be combined with

apprenticeship initiatives in the Apprenticeship Training Certification Division.


The internal function could be consolidated as two departmental divisions are involved in

this function.

Currently, there are 2 divisions of the department involved in this function - LMD and

Advanced Education. There may be some streamlining possible.


The Workforce Development Secretariat could coordinate the work of the ICC and the

Labour Market Committee of the Strategic Partnership Initiative.


The department could consider coordinating all employer recognition award initiatives.


5-B-3-1 Student Loan Corporation


portfolio size, segmentation and maturity of the loan portfolio will need to be considered

with other collection services within Advanced Education & Skills.

The Student Loan Corporation/Student Financial Services division have developed an

integrated external and internal electronic interface which may prove to be beneficial to other

Appendix E

455


departmental programs.


The department could eliminate the DPU function and move the TRIM function

responsibility to staff and have the document scanning completed at the local offices.

5-B-3-3 Finance – Accounts Payable (A/P)

The department could consider providing the Controller Generals Office with access to

CAPS and allow them to process invoices for payment.



5-B-3-5 Client Payment Services

If the department introduced mandatory direct deposit, it would not be necessary to have 5

staff involved in client payment services.


The department could combine the duties of TEC staff with the EAU to improve business

processes.


The department should consider the merits of consolidating the PAU function in the Internal

Audit Division and introduce a risk based strategic model for the deployment of staff

resources relating to compliance.

Appendix F

456

Appendix F - Works Groups Terms of Reference and Timelines

Business Transformation

Support Group John Noseworthy - Lead

Sandra Bishop

Keith Jewer

John

Noseworthy

Sandra Bishop

Keith Jewer

1. One Wage Subsidy

Ken O’Brien – Lead

Jennifer Meadus

Walt Mavin

Ken

O’Brien(Lead

)

Jennifer

Meadus

Walt Mavin

3. Unified Client Service Flow

Sharon Knott – Lead

Cheryl Penney Denise Jackman

Daphne Bavis Jeannie Martin

Sharon Knott

(Lead)

Jeannie

Martin

Cheryl

Penney

Denise

2. Streamlined Skills Development Daphne Bavis – Lead

Paul Dinn Jennifer Meadus

Jeannie Martin Rob Kinden

Ken O’Brien Rob Feaver

Daphne

Bavis(Lead)

Rob Feaver

Paul Dinn

Jennifer

Meadus

Jeannie

Martin

Rob Kinden

Ken O’Brien

4. Employment Centre Model Pam Toope - Lead

Jennifer Meadus Walt Mavin

Dan Gulliver Cynthia King

Loreli Loder Roberts Lori Rose

Jeannie Martin Rob Feaver Janine Hynes

Jennifer

Meadus

Apprenticeship Program Review

Cliff Mercer - Lead

Paul Dinn

5. Income Support Donna O’Brien - Lead - Program Integrity

Measures

Ros Strickland – Lead - Service Delivery

Improvement Team

Grants

Alicia Sutton – Lead

Bren Hanlon Sean Hanrahan

Aisling Gogan Sandra Bishop

CMA

Candice Ennis-Williams - Lead

6. ABE

Daphne Bavis - Lead

Paul Dinn

Cindy Christopher

1. Wage Subsidy Review Team

Appendix F

457


Objective 1:

To integrate departmental wage subsidy programs within a new online application for

employers/clients wishing to avail of a departmentally delivered Wage Subsidy Program

Activities Lead and

resources Timeline Status

Comments/

Considerations

a) develop a single

online wage subsidy

application

Ken

Walt

Jennifer

Nov 30th

Review work done

previously and update

as necessary

Work with OCIO

To confirm system

requirements

b) develop a training

and implementation

plan to be utilized for

this initiative

Ken

Walt

Jennifer

Work Group

Nov 30th

Work commenced

under previous working

group

c) Identify Wage

subsidies to be

considered in Phase 2

and 3 of this project.

Ken

Walt

Jennifer

Oct 15 th

Initial list of

programs identified

by previous

working group

Objective 2:

To streamline and standardize financial benefits and supports for employers/clients participating in

wage subsidy programs

Activities Lead and


Comments/

Considerations

a) review of all financial

benefits and supports

currently being provided

to employers/clients

participating in wage

subsidy programs

Ken

Walt

Jennifer

Jan 31st.

Work

commenced

under previous

working group

Update to

include any

programs not

previously

reviewed

b) recommend a

standardized set of

financial benefits and

supports for employers/

clients participating in

wage subsidy programs

Ken

Walt

Jennifer

Jan 31st.

Work

commenced

under previous

working group

Update to

include any

programs not

previously

reviewed

2. Streamlined Skills Development Program Working Group

Appendix F

458


Members

Considerations

Current ABE review

In reviewing education and training programs, will this work include broad- based education and

training, over and above programs offered through post-secondary institutions, i.e. work place

based training, formal and informal programs, short term training (<12 weeks), alternative

training (on-line)

Goal

To develop a streamlined departmental skills development program for the provision of supports

to clients participating in education and training programs

Objectives

To integrate departmental skills development programming for clients participating in education

and training programs

To standardize financial benefits and supports for clients participating in education and training

programs

To integrate and streamline program administrative processes for clients applying for support to

participate in education and training programs

To develop a process to ensure strategic investment of funding responsive to labour market

demand and in support of priority clients

Activities

To identify all departmental programs providing financial support to clients participating in

education and training programs

To identify current programming to be integrated under the streamlined skills development

program

To review all financial benefits and supports currently being provided to clients participating in


To review all current processes for assessment of financial need for clients requesting financial

support to participate in education and training programs

To recommend a standardized set of financial benefits and supports for clients participating in


To recommend a standardized financial assessment methodology for clients requesting support to

participate in education and training programs

To recommend a streamlined process for application intake, assessment, recommendation and

approval of clients requesting financial supports to participate in education and training programs

To identify an evaluation plan for the streamlined departmental skills development program

Daphne Bavis (Lead) Ken O’Brien

Rob Feaver Jeannie Martin

Paul Dinn Rob Kinden

Appendix F

459


To develop a streamlined NL Skills Development (LMDA) application in response to the Unified

Client Assessment process

To conduct ongoing policy review and recommended revisions to enhance current programming

for clients being funded to participate in education and training programs

To recommend a process for ongoing direction for the allocation of program budgets for skills

development activity to ensure departmental priorities are addressed

Timelines

For the period September 10, 2012 – November 30, 2012

Governance

Meetings facilitated by the Lead and decisions of the Working Group made based on consensus/

majority

Recommendations from this Working Group to be vetted through respective Divisional Directors

3. Unified Service Flow

(ETA)

Appendix F

460


OBJECTIVES ACTIVITIES TIME LINES NOTES

#1:

To lead the development of

a IN PERSON client

screening and assessment

tool (ETA ) for Individuals

to determine the level and

type of support required to

facilitate access to

employment programs and

services

Conduct literature review,

review current practices,

identify information

requirements,

conduct consultations,

develop a draft tool,

solicited feedback on draft

tool in individual and group

sessions

First Five

Bullets

complete

pilot individual screening and

assessment tool to various

client groups ( in person ) for

tool utilization.

Develop computerized data

management tool to support

the pilots

provided staff orientation to

the tool,

developed staff guide for tool

implementation,

hold focus groups to review

implementation of the tool in

pilots and implement changes.

October 2012

to January

2013

#2:


an INTERNET client







services

Consult with OCIO /Finance

on the

development/modification of

the ETA for internet use

Work with OCIO/Finance to

implement modifications in

electronic format

Identify options for internet

versions in a phased approach

Identify supporting

requirements and processes to

support implementation.

Pilot online ETA to inform

implementation.

Make recommendations

around data management for

the on line tool

November 2012

to February

2013

Appendix F

461



Modify the Staff user guide to

reflect on line processes.

#3:


a TELEPHONE client







services

November 2012

to February

2013

#4:


a Tool ( ERA ) to assess

Employer Benefit and

Service needs and facilitate

access to programs and

services

Conduct literature review,

review current practices,

identify information

requirements,

Review common wage

subsidy application and

applications for other

employer services

conduct consultations

develop a draft tool,

solicit feedback on draft tool

in individual and group

sessions,

pilot ERA tool

Develop computerized data

management tool,

provide orientation to the tool,

develop staff guide for tool

implementation,

hold focus groups to review

implementation of the tool in

pilots and implement changes.

November 2012

to

March 2013

ERA-

Employer

Registration

and

Assessment

(???)


#5:

To identify and recommend To identify categories of

services and benefits to

October 2012

to November

Appendix F

462


associated services to be

provided at each service level

for individual

respond to various individual

service levels

Assess current program and

services against service levels

for individuals

Identify gaps in current

programs and services

To make recommendations to

guide program and service

development.

2012

#6:

To define how technological

systems will be used to

support the implementation

of the use of the screening

and assessment tool (ETA)

To identify short term data

system capture approaches to

support the ETA pilot.

To consult and review the

results of the pilot to inform

systems requirements.

To inform IT representatives

of information/data capture

requirements.

Work with IT to identify

options to support he

utilization of the tool within

current system and future

systems.

November 2012

to

March 2013

#7

To define the competencies

required in the administration

and utilization of the


tool.

Review experiences of the

staff piloting the ETA

Identify core skills needed to

administer the ETA.

October 2012

to November

2012

#8A:

To develop client flow

pathways for Individuals.

Develop pathway models and

options considering client

group, service level access

methods

October 2012

to December

2012

#8B:

To develop a client flow

pathways for Employers.

Develop pathway models and

options considering employer

need.

November 2012

to March 2013

4. Employment-Centered Model Committee

Introduction:

Appendix F

463


The Department of Advanced Education and Skills is currently undertaking a business transformation

process to better position the Department to fulfill its mandate of ensuring access to the highly skilled

graduates and skilled workers needed to meet the demands of a growing economy and to help

improve employment outcomes for individuals.

The implementation of an effective and efficient employment-centered service delivery system will

be an essential component of this process.

Purpose of the Committee:

To develop recommendations for an effective and efficient employment-centered service delivery

framework (model) to support the delivery of programs and services offered by the Department of

Advanced Education and Skills.

Key Deliverables, Activities and Timelines:

September 2012 to December 2012:

1. Conduct an inter-jurisdictional review to identify best practices for the delivery of effective

and efficient public employment and training programs. This would include a review of

relevant research and evaluation reports where available.

2. Develop a profile of current and emerging provincial/regional service delivery demands based

on an assessment of local labour market conditions and socio-economic considerations (e.g.

demographic trends, planned industry/project developments).

3. Develop a profile of the existing service delivery system for employment and training

programs offered by the Department of AES. This profile would include a summary of

current:

a. Service delivery inputs

i. human resources (e.g. number and types of positions and their roles and

responsibilities);

ii. service delivery processes and their associated tools and technologies (e.g. in-

person, telephone, web, systems);

iii. service delivery structure (e.g. local offices/regional/provincial); and

iv. associated financial requirements.

b. Service delivery outputs (e.g. nature and number of clients served)

c. Service delivery outcomes (e.g. client outcomes if available)

d. Service delivery gaps as identified through recent evaluations, staff and community

consultations and the work of the other committees supporting the business

transformation process

e. Labour market related services offered by other public entities.

4. Identification of service delivery needs of priority target groups

a. Background research barriers to participation

b. Discussion/validation process with priority target groups

Appendix F

464


January 2013 to Mid February 2013:

5. Conduct a fit-gap analysis of the Department’s existing service delivery system relative to the

best practices and service delivery demands identified as well as recommendations from the

other committees supporting the business transformation process (e.g. recommendations for

integrated employment and training programs, client flow model).

6. Develop recommendations for an effective and efficient service delivery framework that:

a. best supports the Department’s mandate;

b. maximizes opportunities and help address gaps identified in the fit-gap analysis;

c. can feasibly be implemented with the Department’s existing resource allocations; and

d. includes recommendations for regional/provincial organizational structures and

required position types, roles and responsibilities.

Committee Membership:

Pam Toope (Lead)

Jennifer Meadus

Lorelei Roberts-Loder

Dan Gulliver

Walt Mavin

Cynthia King

Lori Rose

Jeannie Martin

Janine Hynes

Rob Feaver

Logistics/Reporting:

1. The Committee will meet bi-weekly. Summary notes will be taken for each session outlining

key decision points and/or emerging issues as appropriate and distributed to members.

2. Activity/Progress reports will be provided to the Business Transformation team as per

schedule outlined by that group.

Considerations/Limitations:

1. A number of committees have been established to support the Business Transformation

process. Strong linkages between the various committees will be essential to minimize

duplication and facilitate the timely exchange of critical findings/recommendations as

appropriate. For example, under 3.a.11 and 3.a.iii above, work is already being carried out

with respect to systems development, service delivery technologies and the organizational

structure. The Employment-Centered model team and its final recommendations will be

informed by this work and related recommendations (and vice versa) and would not be

initiating work in these areas.

2. The Employment-Centered Model Committee will establish formal liaison/communication

process with the Client Flow Committee. The work of that Committee will play a significant

role in the final recommendations for the Employment-Centered Service Delivery framework.

Appendix F

465


3. The fit-gap analysis will be dependent on recommendations for the Integrated

Employment/Training programs and may be impacted by findings and recommendations from

the other Committees. As such, the timelines identified for the key activities may be subject

to change.

4. Front-line staff will play a significant role in the provision of information and in the validation

of findings/recommendations throughout the process. As such, a coordinated communication

process and formal communiqué with respect to the Department’s overall business

transformation process will greatly assist the process.

5. It is the intent of the Committee to invite “content experts” to meetings as required to help

inform its work and recommendations. This measure will help ensure all aspects of the

Department’s business are considered. For example, while there is a representative for the

Advanced Education and Skills branch and a representative of Income Support Regional

Delivery on the committee, it is expected that staff from the Industrial Training division or

Income Support division at provincial office would be invited to provide information and

input as may be necessary. This will also help minimize resource constraints that may arise

from time to time in light of the various activities underway across the Department.

5. Program Integrity Measures

Government must ensure that mechanisms are in place to ensure to the extent possible, that benefits

and services are provided only to those deemed eligible to receive them. A range of measures have

been put in place over the years, but these have not been reviewed singularly or collectively in terms

Appendix F

466


of their effectiveness in optimizing compliance. A review of the full suite of current program

compliance/integrity measures related to the administration of the current income support program is

currently underway. Opportunities to identify quick wins will be explored and regardless of

timeframes identified, changes will be implemented where appropriate. This review will include

analysis and recommendations to improve efficiency and effectiveness (including gaps) related to all

policies, procedures and practices of the current suite of initiatives including:

Early Detection and Prevention Interventions (intake enhanced verification procedures)

Interface/Data Matching Interventions

Eligibility Review Processes which include: Cycle Review Process, Telephone Eligibility

Reviews and Mortgage Reviews and other ad hoc verification activities currently in place

Investigations Interventions which also include Prosecution.

Objective 1:

To review current policies and procedures related to program compliance

Activities Lead and


Comments/

Considerations

a) Review EDP and

Investigations policies

(including prosecutions) and

legislation for relevance,

consistency and

application/compliance

Don

Nov 30th

Review Commenced.

Next Step: regional

input

b) Review Interface, TEC,

and Eligibility Review

policies and legislation for

relevance, consistency and

application/compliance

Stewart Nov 30th

Review underway.

Next Step: regional

input

c) Conduct jurisdictional

review of initiatives related

to fraud detection: best

practice approaches

Don Dec 15 the

Requests for

information

completed to all

provinces/territories

d)Recommend policies and

legislative changes as

required to improve policy

and its application

Don/

Stewart

Mar 31,

2013

Pending

e)Identify training need/gaps

related to policy and its

Mar 31,

2013

Pending

Appendix F

467


Activities Lead and


Comments/

Considerations

application

Objective 2:

To conduct analysis of the timeliness of actions on data dissemination to regions

Activities Lead and


Comments/

Considerations

a)Review all current reports

developed and distributed to

regions for relevancy and

compliance, timeliness

Stewart Dec 31 Review Commenced

b)Recommend options to

improve, and streamline data

(Lean) and report layouts and

distribution and identify

areas of non-compliance

impacting program integrity

Stewart

Mar 31,

2013

Review Commenced

c)Identify training needs to

improve compliance

Don/

Stewart

Mar 31,

2013

Pending

Objective 3:

To review current delivery model approach in regions for various EAS measures in place and identify

the most efficient model(s) to improve compliance and maximize efficiencies

Activities Lead and


Comments/

Considerations

Appendix F

468


a)Complete work flow of

service delivery models in

each region for the

administration of current

suite of EAS services and

identify delivery issues/gaps

where applicable related to

accountability and

compliance

Ros

/Stewart

Dec 15,

2012.

Work

commenced

b)Identify human resource

implications of the current

model of services in

addressing compliance

expectations

Stewart/Do

n

Feb 2013 Pending

c)Recommend delivery

options for approaches to

improve the workflow and

overall provincial

administration of EAS

services

Don/Donna

Jan 31,

2013

Pending

d)Identify training needs to

improve compliance

Stewart/Do

n

Mar 31,

2013

Pending

Phase Two: This phase will focus on a review of the broader suite of benefits/services/interventions

within AES. A work plan will be developed when a new organizational structure is identified and

when decisions are made regarding the AES offerings that will be made available to the public on a

go forward basis. (As a result of program review and CMA review). The review is expected to

commence in April 2013.

Appendix F

469


6. ABE Review Team

Project Team:

Daphne Bavis - Senior Manager - LMDA

Deon Perry - Program Consultant - ABE Levels II and III

Heather Legge - Program and Policy Development Specialist - Adult Learning and Literacy

Joseph Hudon - Program Consultant - Adult Learning and Literacy

Janet Short - Provincial Manager - Career Employment and Youth Services

Lana Bannister - Regional Manager, LMDA - Western Region

Goal: To identify innovative practices that will result in cost effective delivery of, and financial

support for, Adult Basic Education (ABE) in support of providing workers for a fast-growing

economy.

Scope: This work will review the delivery of the ABE program, including the processes used in the

assessment of clients to determine the required credits to achieve high school equivalency.

Inefficiencies with the current assessment and program delivery procedures will be highlighted and

recommendations put forward to address same. Student progress, retention and outcomes will be

reviewed as well.

The General Education Development (GED) program will also be reviewed to determine its

effectiveness in meeting clients’ needs in pursuing employment and training. An inter-jurisdictional

review of the delivery models for Adult Basic Education will be conducted, and as well, highlights of

previous evaluations of the ABE program will be provided. The review will examine the ABE

database being used to capture information on all ABE clients in the public and private training

institutions and community agencies.

The review will also examine the financial supports being provided to organizations and ABE clients

across various departmental programs including Labour Market Development Agreement, Labour

Market Agreement, Career Employment and Youth Services and Income Support, to identify

variances in funding supports and recommend a standardized response to the financial supports being

provided for ABE across the department.

Reporting and monitoring practices of organizations and clients being supported for ABE will be

reviewed and recommendations made on best practices for reporting and monitoring to increase

retention in, and successful completion of, the ABE program.

Deliverables:

To provide an overview of current Adult Basic Education participation, retention and

successful completion in NL

Appendix F

470


To provide information on current ABE program delivery practices and highlight programming

issues to be addressed

To provide information on ABE delivery models in other jurisdictions and highlights of

previous evaluations of ABE programming

To recommend alternative approaches to the current program delivery model that will result in

more efficient and effective delivery of ABE programming

To provide information on the GED process and its application for addressing high school

equivalency requirements

To provide information on the financial supports being provided to organizations and

individuals from the various departmental programs

To recommend a standardized response to the needs of individuals in the provision of supports

across departmental programs for participation in ABE programming, including a Return on

Investment model for ABE programming that considers labour market attachment.

To identify best practices in reporting and monitoring practices of ABE clients to enhance

student retention and increase the level of successful completion of the ABE program and

labour market attachment; and

To develop an implementation plan for recommendations made for enhancements to ABE

programming.

Time Frames – reporting

Regular Updates – submission of minutes of meetings of Working Group

Interim report – December 15, 2012

Review completed and final report prepared by January 15, 2013

Meetings

Working Group – Weekly scheduled meetings

Business Transformation Working Group – John Noseworthy lead– every three weeks

Directors - LMD, Adult Learning and Literacy and Institutional Services – at call of Directors

Deputy Minister – at call of Deputy Minister

Appendix F

471
