[Federal Register Volume 59, Number 244 (Wednesday, December 21, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-31436]


[[Page Unknown]]

[Federal Register: December 21, 1994]


=======================================================================
-----------------------------------------------------------------------

DEPARTMENT OF LABOR

Employment and Training Administration

 

Job Training Partnership Act, Title III, Demonstration Program: 
Health Care Workers Retraining Program

AGENCY: Employment and Training Administration, Labor.

ACTION: Notice of availability of funds and solicitation for grant 
application (SGA).
SUMMARY: All information required to submit a proposal is contained in 
this announcement. The U.S. Department of Labor (DOL), Employment and 
Training Administration (ETA), announces a demonstration program to be 
funded with the Secretary's National Reserve funds appropriated through 
Title III of the Job Training Partnership Act (JTPA). This notice 
describes the process that eligible entities must use to apply for 
demonstration funds, the subject area for which applications will be 
accepted for funding, how grantees are to be selected, and the 
responsibilities of grantees. It is anticipated that up to $3 million 
will be available for funding the demonstration projects covered by 
this solicitation.

DATES: Applications for grant awards will be accepted commencing 
December 21, 1994. The closing date for receipt of applications will be 
February 21, 1995, at 2:00 p.m. (Eastern Time) at the address below.

ADDRESSES: Applications shall be mailed to: U.S. Department of Labor, 
Employment and Training Administration, Division of Acquisition and 
Assistance, Attention: Charlotte Adams, Reference: SGA/DAA 94-025, Room 
S-4203, 200 Constitution Avenue, NW., Washington, DC 20210.

FOR FURTHER INFORMATION CONTACT: Charlotte Adams, Division of 
Acquisition and Assistance, Telephone: (202) 219-7300 (this is not a 
toll-free number).

SUPPLEMENTARY INFORMATION: This announcement consists of five parts. 
Part I describes the authorities and purpose of the demonstration 
program and identifies demonstration policy and topics. Part II 
describes the application process and provides detailed guidelines for 
use in applying for demonstration grants. Part III includes the 
statement of work for the demonstration projects. Part IV identifies 
and defines the selection criteria which will be used in reviewing and 
evaluating applications. Part V describes the reporting requirements.

Part I. Background

    The estimated 10 million workers involved in the delivery of health 
services in the U.S. are experiencing unprecedented displacement as the 
industry tries to reconfigure its operation in response to intense 
pressure to reduce costs. With a total annual payroll estimated to be 
over $270 billion nationwide, health care work force changes are bound 
to have significant effect on many local economies as well as on 
workers themselves. Current hospital inpatient occupancy rates are 
believed to be around 60 percent, down from 65 percent just five years 
ago. Projections are that at least 800 community hospitals--out of some 
4500 total--are likely to close over the next few years and that of the 
30 percent of all inpatient hospital beds currently not in use, many 
will be eliminated. A recent survey found that 51 percent of all 
hospitals of 500 beds or more are planning to reduce their work forces 
in the near future. With this notice, DOL is announcing a solicitation 
aimed at assisting health care workers who will be affected by current 
or projected restructuring in the health care industry.

A. Authorities

    Section 324 of the Job Training Partnership Act authorizes the use 
of funds reserved under Part B of Title III for demonstration programs 
of up to three years in length. Under Section 324, the Secretary is 
required to conduct or provide for an evaluation of the success of each 
demonstration program.
    The Department relies on applicants for grants to comply with all 
Federal and State laws in setting up their programs. For example, we 
expect that grantees shall comply with requirements for licensing and 
that they shall obtain necessary union concurrence when working within 
a labor agreement.

B. Purpose of the Demonstration

    Projects funded through this solicitation are to provide 
reemployment and retraining services--as described in sections 314(c) 
and 314(d) of JTPA--to non-managerial workers at risk of dislocation in 
the health care industry. The goals of this retraining program are to:
    (1) assist workers faced with dislocation to qualify for and secure 
new jobs in the most efficient and cost effective manner; and
    (2) provide assistance that is integral to necessary conversion of 
health care facilities in an effort to reduce or prevent closure or 
mass layoff.
    The purpose of this demonstration is to test early intervention for 
non-managerial health care workers whose jobs are being eliminated in 
order to qualify them for better jobs with their current employer or to 
increase their mobility within the health care industry, in increasing 
demand occupations, as an administratively feasible alternative for 
responding to worker dislocation resulting from broad restructuring in 
the health care industry.

C. Evaluation

    Under a separate announcement, DOL will select and fund separate 
evaluation contractors to: (1) provide technical assistance to selected 
grantees in establishing appropriate data collection methods and 
processes; and (2) conduct an independent evaluation of the outcomes, 
impacts and benefits of the demonstration projects. Grantees will be 
expected to make available participant records and access to personnel, 
as specified by the evaluation contractor.
    In addition, DOL will establish, for each demonstration project 
site, an oversight group made up of federal, State and substate staff.

Part II. Application Process--All Information Required To Submit a 
Proposal Is Contained in This Announcement

A. Eligible Applicants

    Eligible applicants for demonstration projects funded under this 
announcement are health care providers, unions, or other 
representatives of health care workers, or such entities or 
organizations that are directly involved with restructuring a health 
care facility or organization. While matching funds will not be 
required, applicants will have to demonstrate integration with other 
resources to maintain current levels of effort and to continue the 
restructuring process after the project has ended. Current levels of 
training and staff development resources cannot be reduced as a result 
of this project. Applicants will be expected to indicate how the 
demonstration activities fit within an overall effort to achieve 
restructuring goals, including efforts planned beyond the end of the 
demonstration period.
    DOL expects that, in such cases where more than one eligible entity 
(e.g., a hospital and a union) wishes to apply for a grant to serve the 
same target population, the eligible applicants will establish 
appropriate linkages and submit a single application under a single 
proposed administrative entity.
    Special consideration will be given to applicants who demonstrate 
coordination efforts between the employer(s) and the workers, such as 
an labor-management committee to oversee the implementation of the 
project.

B. Contents

    An original and three (3) copies of the proposal shall be 
submitted. The proposal shall consist of two (2) separate and distinct 
parts--Part I, the Financial Proposal, and Part II, the Technical 
Proposal.
    1. FINANCIAL PROPOSAL.--The Financial Proposal, Part I, shall 
contain the SF-424, ``Application for Federal Assistance'' (Appendix 
No. 1), and SF 424-A, ``Budget'' (Appendix No. 2). The Catalog of 
Federal Domestic Assistance number is 17.246. The budget shall include 
on separate pages: a cost analysis of the budget, identifying in detail 
the amount of each budget line item attributable to each of the Title 
III cost categories at Section 314 of JTPA for funds requested through 
this grant; an identification of the amount of each budget line item 
which will be covered by other funds, and the sources of those funds 
(including employer funds, in-kind resources, secured and unsecured 
loans, grants, and other forms of assistance, public and private); and 
a justification for the average cost of service per placement. This is 
to be computed by dividing the number of eligible workers who will not 
be laid off but will be placed into new jobs as a result of the 
project, into the total funds requested, and is to be compared to 
existing staff development costs and local dislocated worker program 
costs.
    Federal funds cannot be used to provide training which an employer 
is in a position to, and would otherwise, provide.
    Federal funds may not be used for acquisition of production 
equipment. The only type of equipment that may be acquired with Federal 
funds is equipment necessary for the operation of the grant. Grant 
funds may cover only those costs which are appropriate and reasonable. 
In the instance of a purchase, the cost of the equipment is to be 
prorated over the projected life of the equipment to determine the cost 
to the grant. EXPENDITURE OF FUNDS FOR EQUIPMENT REQUIRES PRIOR 
APPROVAL FROM DOL.
    Applicants may budget limited amounts of grant funds to work with 
technical expert(s) to provide advice and develop more complete project 
plans.
    2. TECHNICAL PROPOSAL.--The technical proposal shall demonstrate 
the offeror's capabilities in accordance with the Statement of Work/
Project Summary in Part III of this solicitation. NO COST DATA OR 
REFERENCE TO PRICE SHALL BE INCLUDED IN THE TECHNICAL PROPOSAL.

C. Submission

    Grant applications will be evaluated carefully by a panel of 
specialists convened by the Department after the closing date of this 
solicitation. Incomplete or nonresponsive proposals may be returned 
without evaluation. An application will be reviewed based upon the 
overall responsiveness of the application's content to the submission 
requirements and to the selection criteria found in Part IV, taking 
into consideration the extent to which funds are available.

D. Hand-Delivered Proposals

    Proposals should be mailed at least five (5) days prior to the 
closing date for the receipt of applications. However, if proposals are 
hand-delivered, they shall be received at the designated place by 2 
p.m., Eastern Time on the closing date for receipt of applications. All 
overnight mail will be considered to be hand-delivered and must be 
received at the designated place by the specified time and closing 
date. Telegraphed and/or faxed proposals will not be honored. Failure 
to adhere to the above instructions will be a basis for a determination 
of nonresponsiveness.

E. Late Proposals

    Any proposal received at the office designated in the solicitation 
after the exact time specified for receipt will not be considered 
unless it--
    (1) was sent by the U.S. Postal Service registered or certified 
mail not later than the fifth calendar day before the date specified 
for receipt of the application (e.g., an offer submitted in response to 
a solicitation requiring receipt of applications by the 30th of January 
must have been mailed by the 25th); or
    (2) was sent by U.S. Postal Service Express Mail Next Day Service--
Post Office to Addressee, not later than 5 p.m. at the place of mailing 
two working days prior to the date specified for receipt of proposals. 
The term ``working days'' excludes weekends and U.S. Federal holidays.
    The only acceptable evidence to establish the date of mailing of a 
late proposal sent either by the U.S. Postal Service registered or 
certified mail is the U.S. postmark both on the envelope or wrapper and 
on the original receipt from the U.S. Postal Service. Both postmarks 
must show a legible date or the proposal shall be processed as if 
mailed late. ``Postmark'' means a printed, stamped, or otherwise placed 
impression (exclusive of a postage meter machine impression) that is 
readily identifiable without further action as having been supplied and 
affixed by employees of the U.S. Postal Service on the date of mailing. 
Therefore, applicants should request the postal clerk to place a 
legible hand cancellation ``bull's eye'' postmark on both the receipt 
and the envelope or wrapper.
    The only acceptable evidence to establish the date of mailing of a 
late proposal sent by ``Express Mail Next Day Service--Post Office to 
Addressee'' is the date entered by the post office receiving clerk on 
the ``Express Mail Next Day Service--Post Office to Addressee'' label 
and the postmark on both the envelope and wrapper and on the original 
receipt from the U.S. Postal Service. ``Postmark'' has the same meaning 
as defined above. Therefore, applicants should request the postal clerk 
to place a legible hand cancellation ``bull's eye'' postmark on both 
the receipt and the envelope or wrapper.

F. Withdrawal of Proposals

    Proposals may be withdrawn by written notice or telegram (including 
mailgram) received at any time before award. Proposals may be withdrawn 
in person or by an applicant or an authorized representative thereof, 
if the representative's identity is made known and the representative 
signs a receipt for the proposal before an award.

G. Period of Performance

    The period of performance will be 12 months, with projects to be 
completed not later than 18 months from the date of award.

H. Funding

    DOL has set aside up to $3 million to be disbursed, contingent upon 
resources being available for this purpose. It is expected that grant 
awards will be between $300,000 and $500,000, with no award in excess 
of $700,000 each.

I. Grant Period and Option To Extend

    Projects are to include 12 months of performance, and must be 
completed not later than 18 months from the date of award. Applications 
must clearly describe project activities to be undertaken and goals to 
be achieved during the grant period. The grant(s) may be extended for 
up to one additional year beyond the initial grant period based on the 
availability of funds, effective program operation and the needs of 
DOL.

J. Page Count Limit

    Technical proposals are to be limited to 30 single-side 
pages,single-spaced (not including attachments).

K. Cost Limitations

    Demonstration grants are not subject to the cost limitations for 
formula-funded Title III grants at Section 315 of the JTPA. However, 
any offeror proposing administrative costs that exceed 15 percent of 
the budget and supportive services that exceed 25 percent of the funds 
requested in the application shall provide a narrative justification.

Part III. Statement of Work

    Each application must include in the appropriate section(s): (1) 
Information that responds to the requirements in this part; and (2) 
other information the offeror believes will address the selection 
criteria identified in Part IV. Each application should follow the 
format outlined here:

A. Target Group

    A description of the target group, including the process to 
identify workers whose jobs are to be eliminated, the criteria and 
process for selecting those workers to be served through this 
demonstration project from among the total number of eligible 
individuals, and an explanation of how this target group fits into the 
overall restructuring of the institution or organization.

B. Components of the Health Care Retraining Demonstration Program

    An identification of the major elements of the health care 
retraining demonstration project, including how this fits into the 
overall restructuring effort, and a description of how the project 
works in terms of the individual worker getting access to the 
reemployment and retraining services which the individual needs. 
Specifically:
    (1) How will new job openings and opportunities for the project 
participants be identified?
    (2) How will the retraining needs of the individual worker be 
determined?
    (3) What information will be available to the worker to identify 
and evaluate alternative employment opportunities? How will this 
information be developed? How will the worker be able to access this 
information?
    (4) What services will be covered by the retraining program?
    (5) How will qualified providers of retraining services be 
determined?
    (6) Will workers be given the choice of optional providers of 
services and training? How will these options be developed? How will 
the worker be able to access this information?
    (7) How will the amount of funds to be used for an individual's 
training be determined?
    (8) How will a participant's continuing participation in the 
program be monitored? At what point(s) will termination occur?

C. Administration Management and Continuity

    Identify the management structure, and demonstrate the means to 
ensure accountability for performance. Provide a description of the 
process and procedures to be used to obtain feedback from participants 
and other appropriate parties on the responsiveness and effectiveness 
of the services provided. The description should include an 
identification of the types of information to be obtained, the 
method(s) and frequency of data collection, and how the information 
will be used in implementing and managing the project. It is expected 
that grantees may employ focus groups and surveys, in addition to other 
methods, to collect feedback information.
    In addition, an explanation of how this project can be continued or 
expanded must be included. This explanation should also contain an 
assessment of the availability of funds from other sources.

D. Use of Existing Services and Resources

    An identification of the specific sources and amounts of other 
funds which will be used, in addition to funds provided through this 
grant, to implement the project. The application must include 
information on any non-JTPA resources committed to this project, 
including employer funds, secured and unsecured loans, grants, and 
other forms of assistance, public and private. The application shall 
also describe the training staff development otherwise available to 
workers without this project and assurances that this will be continued 
at or above the current level.

E. Coordination and Linkages

    A description of the consultation with relevant parties in 
developing the project design and of the role of these parties in 
implementing the project. Suggested consultation shall include: State 
JTPA Dislocated Worker Unit, Substate Title III grantee(s) and 
administrative entity(ies), and local organizations in the project 
service area providing education, training and supportive services.
    Special consideration will be given to proposals that demonstrate 
joint labor-management participation.

F. Participant Services

    A description of the services to be available and/or provided to 
workers who are project participants. The services supported with funds 
under this grant must be allowable under Section 314 of the Act. This 
description should include a participant service flowchart indicating 
the sequence in the participant service process and the critiera/
decision points which are used to determine the appropriateness of 
specific services for individual participants.

G. Outcomes

    A description of the project outcomes and of the specific measures, 
and planned achievement levels, that will be used to determine the 
success of the project. These outcomes and measures should include, but 
are not limited to:
    (1) The number of participants projected: to be enrolled in 
services, to successfully complete services through the project, and to 
be placed into new jobs;
    (2) Measurable effects of the services provided to project 
participants are indicated by gains in individuals' skills, 
competencies, or other outcomes;
    (3) Average wages of participants prior to and at completion of 
project;
    (4) Customer satification with the project, and at critical points 
in the service delivery; and
    (5) Other additional measurable, performance-based outcomes that 
are relevant to the proposed innervation and which may be readily 
assessed during the period of performance of the project, such as 
increased productivity of the health care organization, as a whole, or 
a reduction in layoffs that would have occurred in the absence of the 
project.

    Note: An explanation of how such additional measures are 
relevant to the purpose of the demonstration program shall be 
included in the application.

    The proposal shall also describe how outcomes achieved by 
individuals served under the project are related to the overall 
restructuring effort.

H. Replicability

    Include a description of how the applicant will provide information 
on their activities to allow for possible replication of the project.

I. Definitions

    Unless otherwise indicated in this announcement, definitions of 
terms used herein shall be those definitions found in the Job Training 
Partnership Act, as amended, particularly at Section 4 and Section 301.

J. Allowable Activities

    Grant funds awarded under this demonstration may be used to provide 
basic readjustment and retraining services. These services are 
described in JTPA Section 314(c) and Section 314(d). Skills training to 
eligible workers to qualify for new jobs with their current employer or 
for new jobs in the health care system is an allowable activity under 
these grants. Employers must agree to hire workers who successfully 
compete training under this project into new or different positions, 
and the old positions must be eliminated. Training to upgrade the 
skills of incumbent workers to maintain their current jobs, or training 
for workers whose jobs are not scheduled for elimination is not 
authorized under current legislation or under these grants.

Part IV. Evaluation Criteria

    Prospective offerors are advised that the selection of grantee(s) 
for award is to be made after careful evaluation of proposals by a 
panel of specialists selected by DOL. Panelists will evaluate the 
proposals for acceptability based on the various factors enumerated 
below.
    Evaluations will be made on the basis of both what the proposed 
offeror intends to do during the grant period, and on the usefulness of 
the demonstration after the end of the grant period. Special 
consideration will be given to applicants who demonstrate coordination 
efforts between employer(s) and workers, such as a labor-management 
committee to oversee the implementation of the project.
    The Department relies on applicants for grants to comply with all 
Federal and State laws in setting up their programs. For example, we 
expect that grantees shall comply with requirements for licensing and 
that they shall obtain necessary union concurrence when working within 
a labor agreement.

A. Technical Evaluation (80 percent)

    1. Services and Target Group. (20 percent) Must identify the 
eligible population, the process for selecting participants, the 
process that will assure placement for workers who successfully 
complete training, and the management structure and procedures that 
will ensure appropriate training and support for each participant from 
enrollment to 90 days following placement.
    2. Health Care Workers Retraining Project Design. (20 percent) Must 
identify the jobs being eliminating due to restructuring, the jobs that 
will be available for participants who successfully complete the 
program, the restructuring goal that this project will help accomplish, 
and include the program specifications and planned outcomes that will 
be used to monitor and measure performance.
    3. Management and Continuity. (20 percent) Must include a 
description of the management structure and the process for monitoring 
performance and customer satisfaction. Must include an explanation of 
how this project, if successful, can be continued or expanded, 
including an assessment of the availability of funds from other 
sources.
    4. Utilization of Resources (10 percent) Must include a commitment 
to hire completers into different jobs and to eliminate vacated 
positions. Must include a commitment to continue staff development and 
training without reduction as a result of this project.
    5. Coordination and Linkages (10 percent) Must identify the roles 
and responsibilities of the applicant and its partners including 
representatives of the employer(s), the workers and the unions, the 
State or local dislocated worker administrators, the training 
providers, and others. Must include comments from any labor 
organization which represents a substantial number of employees who are 
engaged in similar work as that covered under this project.

B. Cost Evaluation (20 per cent)

    Must include a discussion of the cost effectiveness of the project 
as indicated by the relationship of proposed costs compared to other 
staff development that is available or services available in the area, 
as well as a justification for the budget which supports the planned 
outcomes.
    Applicants are advised that discussions may be necessary in order 
to clarify any inconsistencies in their applications. Applications may 
be rejected and returned where the information required is not provided 
in sufficient detail to permit adequate assessment of the proposal.
    DOL will select applicants on the basis of merit, giving due regard 
to geographic diversity, size of project, and the best interest of the 
government in making awards to conduct demonstrations involving the 
retraining of at-risk non-managerial workers in the health care 
industry. The final decision on the award will be based on what is most 
advantageous to the Federal Government as determined by the ETA Grant 
Officer.

Part V. Reporting Requirements

A. Dislocated Worker Special Project Reports as required by the grant 
award documents.
B. Standard Form 269, Financial Status Report Form.
C. Quarterly Progress Reports.
D. Final Project Report including an assessment of project performance.

    Signed at Washington, D.C., the 14th day of December, 1994.
Janice E. Perry,
Grant Officer, Division of Acquisition and Assistance.

Appendices

No. 1--Application for Federal Assistance (Standard Form 424)
No. 2--Budget Form--Non Construction Programs (Standard Form 424-A)
BILLING CODE 4510-30-M

TN21DE94.000


TN21DE94.001


TN21DE94.002

[FR Doc. 94-31436 Filed 12-20-94; 8:45 am]
BILLING CODE 4510-30-C