Minnesota's Comprehensive Local Needs Assessment Guide - CLNA

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About This Guide

This document provides Minnesota Perkins Consortia Leaders context on how to conduct the Comprehensive Local Needs Assessment (CLNA). This guide translates language of the law into concrete, actionable steps for conducting a rigorous needs assessment that meets the Strengthening Career and Technical Education (CTE) for the 21st Century Act (Perkins V) requirements.

Part One: The Requirement

Comprehensive Local Needs Assessment (CLNA) Under Perkins V

One of the most significant changes introduced in the Strengthening Career and Technical Education for the 21st Century Act (Perkins V) is the new Comprehensive Local Needs Assessment (CLNA).

Specifically, the law states:

“To be eligible to receive financial assistance under this part, an eligible recipient shall—(A) conduct a comprehensive local needs assessment related to career and technical education and include the results of the needs assessment in the local application submitted under subsection (a); and (B) not less than once every 2 years, update such comprehensive local needs assessment.” SEC 134(c)

What Are the Benefits to the Consortium?

When the CLNA is complete, a consortium will have a set of findings that paints an accurate picture of local CTE programs. This creates an incredible opportunity to:

  • Better help all students achieve career success
  • Align Perkins budget with priorities and make certain programs are aligned with and validated by local/regional workforce needs and economic priorities
  • Ensure that consortium programs are serving all learners equitably and to enable you to better direct resources toward programs that lead to high-skill, high-wage, or in-demand occupations and activities that address equity and opportunity gaps
  • Build on other process improvement efforts [Every Student Succeeds Act (ESSA), Workforce Innovation and Opportunity Act (WIOA) planning, World’s Best Workforce (WBWF), and others]
  • Provide a structured way to engage key stakeholders regularly around the quality and impact of consortium CTE programs and systems

Ultimately, the local needs assessment process is about helping applicants make a formal shift from merely collecting and reporting information to using information strategically to drive decisions about consortium CTE programs that help create success for students, employers, and the community.

How Often Do You Conduct a CLNA?

The law requires a local recipient to conduct a CLNA every two years. The CLNA lends itself well to devising a multi-year plan that has an annual plan of work. Minnesota requires recipients to submit an annual budget application and plan of work documenting major changes/edits, including any program of study (POS) changes, to the two-year application. In the diagram below, you will see that the CLNA spans a two-year time frame with annual budget requests and updates on the second year. Your first CLNA is represented in the orange inserts; your second CLNA is represented with the green shading.

CLNA Timeline and Application Cycle

  1. July 1, 2019

    Transition application received/approved

  2. May 1, 2020

    Two-year local application, including the Comprehensive Needs Assessment, submitted

  3. May 1, 2021

    Annual local budget and work plan updates submitted

  4. May 1, 2022

    Two-year local application, including new CLNA, submitted

  5. May 1, 2023

    Annual local budget and work plan updates submitted

What is Meant by Comprehensive?

A successful needs assessment leads to actionable priorities and meaningful, long-term change. Achieving these results requires more than just one or two people completing a form behind closed doors. It requires active, meaningful engagement of concerned stakeholders in a process to examine, identify, and diagnose the challenges that need to be addressed for improvement to occur.

Four essential features make a needs assessment comprehensive:

Needs-Driven and Context-Specific Approach

Thorough Data Collection and Analysis

Stakeholder Engagement

Collaborative Identification of Improvement Needs

A Closer Look at the Essential Features

Needs-Driven and Context-Specific Approach

A successful needs assessment is both needs-driven and context-specific. To be needs-driven, the needs assessment design and scope should be built around an organizing framework that defines the problems, topics, and questions to be addressed. To be context-specific, the design and data inputs of the needs assessment must reflect the local characteristics of the consortium. Who are your partners? Who are your learners? What are the biggest needs in your community? What are your points of pride? Do you describe yourselves as rural, urban, an agriculture community, first-generation students, older than average students? What’s your elevator speech when you explain the environment or context of your community?

Thorough Data Collection and Analysis

A successful needs assessment utilizes thorough data collection and analysis, including diverse and high-quality data that is both qualitative and quantitative and that reflects multiple viewpoints.

Data might include:

  • Input data: Information related to improvement plans, curriculum materials and supplies, training, resource allocation, and intervention programs
  • Output data: Information that illustrates outcomes or results and could include student and teacher retention and persistence, student achievement, program reviews, classroom observations, etc.
  • Demographic or community context data: Important contextual factors that the consortium likely does not have the power to change but that may affect implementation of plans. Such information includes student subgroup populations and demographics, local economic trends, student mobility, and overall enrollment patterns

Stakeholder Engagement

A needs assessment is a process that should be undertaken by regional stakeholders, rather than completed entirely by a small group of leaders or an outside entity. Engaging school staff, parents, a diverse assortment of education, business, and community leaders, and external support providers (including students) during each phase of the needs assessment—not just in the delivery of results—ensures that the planning, data collection, identified needs, and consideration of underlying causes incorporate the input of a broad knowledge base, including diverse local perspectives.

Consultation with “a diverse body of stakeholders” is at the heart of ensuring a rigorous and meaningful needs assessment process. Some of the required stakeholders may not be as familiar with CTE programs as others. Nevertheless, their involvement is critical to identify program priorities as well as gaps and barriers to participation. In addition, the process allows stakeholder involvement from the beginning, leading to buy-in and support and giving a voice to those who feel they have none. Information (and the specific language from the law) on legislatively required engagement of various stakeholders is found in the Consortium Local Needs Assessment Planning Framework.

Collaborative Identification of Improvement Needs

The primary outcome of a needs assessment is a set of needs, or prioritized areas of focus, that will inform the Consortium Perkins Application. Collaborative identification of those needs means that stakeholder ownership and understanding increases and fosters a team that is invested in moving forward together on solutions to address local challenges.

The CLNA and Its Connection to the Local Application

The law’s intended purpose for the comprehensive local needs assessment is to foster and support data-driven decision-making and more aligned planning, spending, and accountability under Perkins V. The results of the CLNA must form the foundation of the local application and drive spending decisions. There should be a clear connection between the strengths and challenges identified in the CLNA and the strategies and activities outlined in the local application.

A Closer Look at the Essential Features

Needs-Driven and Context-Specific Approach

A successful needs assessment is both needs-driven and context-specific. To be needs-driven, the needs assessment design and scope should be built around an organizing framework that defines the problems, topics, and questions to be addressed. To be context-specific, the design and data inputs of the needs assessment must reflect the local characteristics of the consortium. Who are your partners? Who are your learners? What are the biggest needs in your community? What are your points of pride? Do you describe yourselves as rural, urban, an agriculture community, first-generation students, older than average students? What’s your elevator speech when you explain the environment or context of your community?

Thorough Data Collection and Analysis

A successful needs assessment utilizes thorough data collection and analysis, including diverse and high-quality data that is both qualitative and quantitative and that reflects multiple viewpoints.

Data might include:

  • Input data: Information related to improvement plans, curriculum materials and supplies, training, resource allocation, and intervention programs
  • Output data: Information that illustrates outcomes or results and could include student and teacher retention and persistence, student achievement, program reviews, classroom observations, etc.
  • Demographic or community context data: Important contextual factors that the consortium likely does not have the power to change but that may affect implementation of plans. Such information includes student subgroup populations and demographics, local economic trends, student mobility, and overall enrollment patterns

Stakeholder Engagement

A needs assessment is a process that should be undertaken by regional stakeholders, rather than completed entirely by a small group of leaders or an outside entity. Engaging school staff, parents, a diverse assortment of education, business, and community leaders, and external support providers (including students) during each phase of the needs assessment—not just in the delivery of results—ensures that the planning, data collection, identified needs, and consideration of underlying causes incorporate the input of a broad knowledge base, including diverse local perspectives.

Consultation with “a diverse body of stakeholders” is at the heart of ensuring a rigorous and meaningful needs assessment process. Some of the required stakeholders may not be as familiar with CTE programs as others. Nevertheless, their involvement is critical to identify program priorities as well as gaps and barriers to participation. In addition, the process allows stakeholder involvement from the beginning, leading to buy-in and support and giving a voice to those who feel they have none. Information (and the specific language from the law) on legislatively required engagement of various stakeholders is found in the Consortium Local Needs Assessment Planning Framework.

Collaborative Identification of Improvement Needs

The primary outcome of a needs assessment is a set of needs, or prioritized areas of focus, that will inform the Consortium Perkins Application. Collaborative identification of those needs means that stakeholder ownership and understanding increases and fosters a team that is invested in moving forward together on solutions to address local challenges.

The CLNA and Its Connection to the Local Application

The law’s intended purpose for the comprehensive local needs assessment is to foster and support data-driven decision-making and more aligned planning, spending, and accountability under Perkins V. The results of the CLNA must form the foundation of the local application and drive spending decisions. There should be a clear connection between the strengths and challenges identified in the CLNA and the strategies and activities outlined in the local application.

Five Elements of the Comprehensive Local Needs Assessment

A thoughtfully implemented, data-driven needs assessment provides a powerful opportunity to engage stakeholders in a common understanding and vision for the future of CTE within a community. The CLNA requires applicants to evaluate, in consultation with a wide range of stakeholders, how the consortium’s overall CTE offerings measure up in several areas.

FIVE KEY ELEMENTS:

  1. Element One: Student performance on federal accountability indicators
  2. Element Two: Program size, scope, quality, and alignment to labor market
  3. Element Three: Progress towards implementation of CTE programs of study
  4. Element Four: Improving recruitment, retention, and training of CTE professionals, including underrepresented groups
  5. Element Five: Progress toward implementation of equal access to and equity within CTE programs

The five key elements of the needs assessment outlined in the law can be divided into three main categories: student performance, labor market alignment, and program implementation. It is important to remember that no single area in the law is more important than any other. To meet federal requirements, your needs assessment must cover all the key elements well.

A Caution About Data Interpretation

There are some common mistakes that people can make when conducting needs assessments, and it is important to be aware of these issues from the beginning.

Disregarding Issues

This is usually not intentional, but it is easy to disregard issues that surface during needs assessments for several reasons. First, you might not feel the issue is important. Second, the issue might be controversial. Third, it could be an issue that you are not familiar with.

Allowing Undue Influence

Certain people or groups can be very outspoken, but their contributions should be balanced with those of smaller or less outspoken groups so no single group has undue influence over the process. It is important to talk with a broad audience and not just focus on a few key stakeholders. By talking to several people throughout the consortium, you will get a more accurate reflection of what is going on in your consortium. Even more important than talking with a broad audience is listening to diverse perspectives. This serves two objectives: uncovering new problems and ideas specific to your CTE work and strengthening the relationship between your work and diverse stakeholders, bolstering legitimacy.

Focusing Too Narrowly or Too Broadly

A common problem is focusing the needs assessment on only one topic, often in an area with which you have the most knowledge. However, it is important to look at other issues when conducting the assessment—even issues that might not be addressed by the Perkins Consortium. This will give you a better understanding of factors that might unintentionally impact your programs and the Consortium. It is also important to not look too broadly. For example, it is important to look at county-level statistics, not just at statewide or national data. For counties with large populations, it is helpful to look at specific communities. Countywide data can sometimes hide issues that affect different subpopulations within the county.

Relying Only on One or Two Data Sources

A needs assessment has to consist of data collected using several methods. Only looking at secondary and postsecondary student data does not give enough information about what is going on in the regional workforce. All data gathering methods have limited value if they are performed in isolation. A good needs assessment starts with a plan, including the different methods that will be used to gather data.

All data gathering methods have limited value if they are performed in isolation. A good needs assessment starts with a plan, including the different methods that will be used to gather data.

PART TWO: Conducting a Comprehensive Local Needs Assessment

The following sections of this guide will translate language in Perkins V related to the local needs assessment into meaningful action steps: Prepare, Explore, Assess, Prioritize, Communicate, and Evaluate. This section of the guide also offers suggestions on materials and data to review, stakeholders to consult, and questions to ask to further your analysis.

These steps are applied to an assessment of the five key elements of the Minnesota needs assessment (as outlined in the law).

STEP
ONE Prepare
STEP
TWO Explore
STEP
THREE Assess
STEP
FOUR Prioritize
STEP
FIVE Communicate
STEP
SIX Evaluate

Step Two: Conduct the Needs Assessment

Once preparation is complete, the next step is to conduct the needs assessment. This involves gathering and analyzing data, engaging stakeholders, and identifying key findings.

Collect Data

Data collection should include both quantitative and qualitative sources to provide a comprehensive understanding of program performance and needs. Multiple data sources should be used to ensure a well-rounded analysis.

Engage Stakeholders

Stakeholder engagement should occur throughout the needs assessment process. This includes gathering input, validating findings, and ensuring that multiple perspectives are considered when identifying needs.

Analyze Data

Data analysis involves examining the information collected to identify trends, gaps, and areas for improvement. This step should focus on understanding root causes and not just surface-level issues.

Identify Key Findings

The results of the data collection and analysis should be used to identify key findings. These findings will form the basis for determining priorities and informing the local application.

Step Three: Assess

Actions and Decisions During Step Three:

  • Meet with stakeholders to review and discuss data
  • Use the questions offered in this guide to shape discussion and analysis
  • Consider if outside resources or consultation is needed to analyze or interpret data

While the needs assessment process may seem daunting at first, it is important to keep in mind that you can leverage this process to work within your consortium. Ultimately, the local needs assessment process is about helping you make a more formal shift from merely collecting information and data to using systematic ways to collect and examine information to ensure your local CTE programs help create success for students and employers. The Perkins V Comprehensive Local Needs Assessment Reporting Framework provides the structure for you to gather and analyze your data, record strategies, and identify partners. It will be submitted on a biennial cycle with your Perkins application of the consortium.

The activities of this step of the CLNA will likely be the biggest shift under Perkins V and should become a regular part of your overall consortium’s data-driven decision-making and program improvement cycles—not merely an additional activity every two years.

The law’s emphasis on stakeholder engagement means engagement in data collection and analysis. When preparing and organizing data to present, consider all stakeholders who will have a role in interpreting information and prioritizing needs, as well as the processes that will be used to complete these later steps. It is important to ensure that data presentation is clear and accessible for the intended audience.

Guidance to Assess Element One: Student Performance

This element focuses on evaluating student performance on federal accountability indicators. Consortia must examine how students are performing across required measures and identify gaps in performance.

To complete this element of the needs assessment, consortia should review available data on student performance and consider how different groups of students are performing across indicators. This includes identifying disparities and determining potential root causes.

Guiding Questions

  • How are students performing on federal accountability indicators?
  • Are there gaps in performance among different student groups?
  • What trends can be identified over time?
  • What factors may be contributing to performance gaps?
  • What strategies could be implemented to improve student performance?

Guidance to Assess Element Two: Size, Scope, Quality, and Alignment to Labor Market

Materials to Review

Size:

  • Total number of program areas, number of courses within each program area
  • Total number of students who could be served by the eligible recipient, aggregate and disaggregated CTE course enrollments, and CTE participant and concentrator enrollments for the past several years, aggregate and disaggregated
  • Number of students applying to your programs, if applicable
  • Number of students on waiting lists, if applicable
  • Survey results assessing student interest in particular CTE programs

Scope:

  • Documentation of course sequence and aligned curriculum
  • Credit transfer agreements
  • Data on student retention and transition to postsecondary education within a program of study (POS)
  • Descriptions of dual/concurrent enrollment programs, and data on student participation
  • Data on student attainment of credentials and articulated credit
  • Curriculum standards that show depth and breadth of programs
  • Opportunities for extended learning within and across POS

Quality:

  • A wide variety of materials can inform this: the materials listed throughout this document, curriculum standards and frameworks, lesson plans, assessments, partnership communications and engagement activities, safety requirements, work-based learning procedures, Career and Technical Education Student Organizations (CTSO) activities and alignment, data collection mechanisms, and program improvement processes

Labor Market:

  • Results of any available gap analysis on educational outcomes and employment needs (from the state or separately commissioned)
  • State- and local-defined lists of in-demand industry sectors and/or occupations
  • State and local LMI
  • Real-time job postings data from online search engines, possibly with analytics
  • Support from a data firm
  • Input from business and industry representatives, with particular reference to opportunities for special populations
  • Alumni employment and earnings outcomes from a state workforce agency or state longitudinal data system, or findings from a follow-up survey of alumni

Digging in to Understand Equity and Access

After examining data to identify significant differences in performance between subpopulations and across programs, the next step is to consider the root causes of these inequities so that you can later identify corresponding practices that can combat inequity in your CTE programs.

National Alliance for Partnerships in Equity (NAPE) resources can support this process.

The following resources, data dashboards, and other tools can be found here: napequity.org/public-policy/frontline-legislation/strengthening-career-and-technical-education-for-the-21st-century-act/

The Equity Gap Analysis

  • The Equity Gap Analysis: Local tool provides more information on conducting an equity gap analysis to assist in meeting the provisions of Perkins V for supporting special population learners.

The NAPE Nontraditional Career Preparation

  • The NAPE Nontraditional Career Preparation: Root Causes and Strategies tool summarizes the research into root causes of inequality and the strategies for addressing these root causes, in relation to nontraditional career pathways. See more here: napequity.org/root

The PIPEline to Career Success for Students with Disabilities

  • The PIPEline to Career Success for Students with Disabilities: Root Causes and Strategies Tables offer a simplified review of root causes or barriers that students with disabilities face to accessing high-quality education, including career and technical education experiences. See more here: napequity.org/nape-content/uploads/NAPE_Students_wDisabilities_RootCauses_Table_2019-04-04_cac.pdf

Stakeholders to Consult: Size, Scope, and Quality

  • All participants required by law, particularly administrators, secondary teachers, postsecondary faculty, career guidance and advisement professionals, representatives of special populations, and parents and students
  • Data staff

Stakeholders to Consult: Labor Market Alignment

  • All participants required by law, particularly secondary and postsecondary administrators, career guidance and advisement professionals, business and community partners, local workforce investment/economic development boards, and representatives of special populations

Guidance to Assess Element Three: Progress Toward Implementation of Programs of Study (POS)

Materials to Review

  • Program of Study (POS) documentation
  • Course sequences and aligned curriculum
  • Articulation agreements and dual enrollment opportunities
  • Student participation and concentrator data
  • Credential attainment and postsecondary transition data
  • Work-based learning participation
  • Advisory committee input and documentation

Key Considerations

Programs of Study are central to the Perkins V framework and should provide students with a clear pathway from secondary to postsecondary education and into careers. Consortia should assess the extent to which Programs of Study are fully developed, implemented, and aligned with workforce needs.

When reviewing Programs of Study, consider whether programs:

  • Include a coherent sequence of courses
  • Align with postsecondary education and training opportunities
  • Lead to industry-recognized credentials or degrees
  • Provide opportunities for dual or concurrent enrollment
  • Incorporate work-based learning experiences

Program Quality and Implementation

Consortia should examine the quality of Programs of Study and the extent to which they are being implemented with fidelity. This includes reviewing curriculum alignment, instructional practices, and the availability of resources needed to support high-quality programs.

Stakeholders to Consult

  • Secondary and postsecondary educators
  • Administrators
  • Career guidance and advisement professionals
  • Business and industry partners
  • Representatives of special populations
  • Students and parents

Guidance to Assess Element Four: Recruitment, Retention, and Training of CTE Staff

Materials to Review

  • CTE teacher and faculty staffing data
  • Information on teacher shortages and hard-to-fill positions
  • Professional development participation records
  • Licensure and certification data
  • Staff retention and turnover data
  • Data on representation of special populations within CTE staff

Key Considerations

This element focuses on the recruitment, retention, and training of CTE educators and faculty. Consortia should examine whether there is an adequate supply of qualified instructors and whether those instructors have access to ongoing, high-quality professional development.

When assessing this element, consider whether:

  • There are shortages in specific CTE program areas
  • Recruitment strategies are effective in attracting qualified instructors
  • Retention strategies are in place to support and keep high-quality staff
  • Professional development opportunities are relevant and aligned with program needs
  • Staff reflect the diversity of the student population and community

Professional Development and Support

Consortia should evaluate the availability and effectiveness of professional development for CTE staff. This includes training related to instructional practices, industry standards, work-based learning, and serving special populations.

Stakeholders to Consult

  • Secondary and postsecondary administrators
  • CTE teachers and faculty
  • Human resources personnel
  • Professional development providers
  • Business and industry partners
  • Representatives of special populations

Guidance to Assess Element Five: Progress Toward Improving Equity and Access

Materials to Review

  • Promotional materials
  • Recruitment activities for special populations
  • Career guidance activities for special populations
  • Processes for providing accommodations, modifications, and supportive services for special populations
  • Information on accelerated credit and credentials available for special populations
  • Procedures for work-based learning for special populations
  • Data on participation and performance for students from special populations
  • Findings from the root causes and strategies analysis from the student performance component
  • Findings from surveys/focus groups with students, parents (if applicable), and community organizations that represent special populations

Stakeholders to Consult

  • All participants required by law, particularly administrators, secondary teachers, postsecondary faculty, career guidance and advisement professionals, representatives of special populations, and parents and students

Questions to Ask

  • Which population groups are underrepresented in consortium CTE programs overall and in particular program areas? Overrepresented?
  • Are there additional enrollment discrepancies related to high-wage, high-skill occupations?
  • What barriers currently exist that prevent special population groups from accessing consortium programs?
  • How are special population groups performing in consortium programs?
  • What accommodations, modifications, and supportive services do consortium member institutions currently provide to ensure the success of special population groups? Which ones are most effective? Which ones are underutilized?
  • What additional accommodations, modifications, and supportive services would help ensure access and equity for all students within consortium programs?

Step Four: Prioritize

Once the needs assessment has been completed and findings have been identified, the next step is to prioritize those needs. Not all needs can be addressed at once, so it is important to determine which areas should be addressed first.

Prioritization should be based on data, stakeholder input, and the potential impact on student outcomes and program quality. This step requires thoughtful consideration of available resources and the feasibility of addressing identified needs.

Actions and Decisions During Step Four

  • Review findings from all elements of the needs assessment
  • Engage stakeholders in prioritizing needs
  • Consider the root causes of identified challenges
  • Evaluate which needs have the greatest impact on student success
  • Determine which needs are feasible to address within available resources

The outcome of this step is a clear set of prioritized needs that will guide the development of the local application and inform funding decisions.

Step Five: Communicate Results

Once priorities have been identified, the next step is to communicate the results of the comprehensive local needs assessment. Clear communication ensures that stakeholders understand the findings and the rationale for selected priorities.

Communication should be transparent and accessible to a wide range of stakeholders, including educators, administrators, business and industry partners, students, and community members. Sharing results helps build understanding, support, and alignment around next steps.

Actions and Decisions During Step Five

  • Share findings and prioritized needs with stakeholders
  • Explain how data informed decisions
  • Ensure communication is clear and accessible
  • Gather feedback and refine understanding as needed
  • Document results for inclusion in the local application

The results of the CLNA should clearly connect to the strategies and activities outlined in the Perkins local application.

Step Six: Evaluate

Actions and Decisions During Step Six:

  • Determine who will lead the evaluation
  • Define the process, frequency, and documentation required
  • Identify actions that will occur as a result of the evaluation
  • Ensure the evaluation is consistent and ongoing as required by Perkins V

Evaluate Your CLNA Process

The process is not complete until you conduct an evaluation. Take the necessary steps to complete a thorough self-assessment of the CLNA process that was used. Be sure to request feedback from your work team and process stakeholders and document results of your evaluation.

Remember: now is the time to begin preparing for the next comprehensive local needs assessment!

Key Questions to Consider:

  • What went well in your CLNA process?
  • What could have been done differently to achieve better results?
  • What was the level of support of the work team members/stakeholders?
  • What individuals or groups could have participated as stakeholders, but did not?
    • Why didn’t they participate? What future steps will you take to engage them?
  • What were the challenges faced during the needs assessment?
    • What can be done to mitigate these challenges during the next CLNA?
  • What resources were not available? Why?
  • What resistance did you experience during the process?
  • What feedback, both positive and constructive, did you receive from those who were involved in the CLNA, including stakeholders and work team members?
  • On what established schedule will your team continue to meet and work together?
  • How will you demonstrate collective commitment to ongoing engagement?

Part Three: Gratitude

The development of this guide was made possible through the contributions of many individuals and organizations committed to strengthening career and technical education.

Minnesota State extends appreciation to the following partners and contributors for their support in developing this resource:

  • Minnesota Department of Education
  • Minnesota State Colleges and Universities
  • Local consortium leaders and stakeholders
  • National partners and technical assistance providers

We are grateful for the continued collaboration and commitment to improving outcomes for all learners through high-quality career and technical education programs.

The original PDF from 2019 was created into these web resources in April 2026.