[Federal Register Volume 61, Number 48 (Monday, March 11, 1996)]
[Notices]
[Pages 9722-9733]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-5718]



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DEPARTMENT OF LABOR

Job Training Partnership Act, Title III, Demonstration Program: 
High Wage Job Opportunities for Dislocated Workers Project

AGENCY: Employment and Training Administration, Labor.

ACTION: Notice of availability of funds and solicitation for grant 
application (SGA).

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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 
test the concept of the direct involvement of business associations and 
labor organizations as an avenue for dislocated workers to secure high 
wage jobs, to be funded with Secretary's National Reserve funds 
appropriated through Title III of the Job Training Partnership Act 
(JTPA). This notices describes the process that eligible entities must 
use to apply for demonstration funds, how grantees are to be selected, 
and the responsibilities of grantees. It is anticipated that up to $7 
million will be available for funding demonstration projects covered by 
this solicitation with no project being awarded more than $750,000. 
Funds cannot be used to duplicate services provided under another DOL 
agreement.

DATES: Applications for grant awards will be accepted commencing March 
11, 1996. The closing date for receipt of proposals is April 30, 1996 
at 2 p.m. (Eastern Time) at the address below.

ADDRESSES: Applications shall be mailed to: Division of Acquisition and 
Assistance, Attention: Brenda Banks, Reference: SGA/DAA 96-003, 
Employment and Training Administration, U.S. Department of Labor, Room 
S-4203, 200 Constitution Avenue, NW., Washington, DC 20210.

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

SUPPLEMENTARY INFORMATION: This announcement consists of four parts. 
Part I describes the authorities and purpose of the demonstration 
program and identifies the oversight policy. 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 I. Background

A. Authorities

    Section 324 of the Job Training Partnership Act authorizes the use 
of funds reserved under Title III, Part B for demonstration programs of 
up to three years in length.
    Applicants for grants must comply with all Federal and State laws 
in setting up their programs. For example, grantees must comply with 
requirements for licensing, funds may only be used for activities which 
are in addition to those which would otherwise be available, and they 
must obtain union concurrence when working within a labor agreement.
    In order to assure long-term high wage opportunities, grant 
participants receiving training prior to placement must qualify for the 
appropriate national or State occupational certifications/licenses 
indicating that a recognized level of occupational competency has been 
achieved.

B. Purpose of the Demonstration

    As authorized under Title III of JTPA, the Dislocated Worker 
Program provides a wide range of employment and training services to 
eligible dislocated workers to help them find and qualify for new jobs 
through an established service delivery network of States and substate 
grantees. This demonstration will look at how private-sector mechanisms 
and systems that have access to high wage job opportunities can offer 
an alternative response to the needs of the dislocated worker 
population.
    A continuing concern of workers facing dislocation is the erosion 
of earnings resulting from starting over in a new career. By 
identifying high wage job opportunities, and effective methods of 
accessing those opportunities, this project can provide alternative 
approaches to that concern. Projects funded through this solicitation 
are to provide reemployment and/or retraining services--as described in 
Sections 314(c) and 314(d) of JTPA--to dislocated workers. Participants 
must be eligible dislocated workers under Section 301(a) of JTPA. 
Possible target populations served under the grant could include 
dislocated workers who have previously received high wages and are 
seeking to maintain that wage level in their new job, or dislocated 
workers who have not had the skills or training necessary to earn high 
wages in their previous employment.
    The purpose of this demonstration is to test an alternative 
response to the needs of dislocated workers by utilizing the services 
of entities, other than States and Substate Grantees (SSGs), that have 
access to jobs at wages greater than the average placement wage for 
JTPA Substate areas (SSAs) as calculated for the 1994 JTPA Program 
Year. The direct involvement of private sector applicants that are 
eligible under this demonstration will promote the identification of 
high wage job opportunities and the provision of the necessary services 
including recruitment, eligibility determination, basic readjustment 
and retraining services to enable dislocated workers to be placed in 
the identified job opportunities.
    The following demonstration program goals will be required of the 
grantees: (1) the wage paid to the dislocated worker at placement must 
at a minimum exceed the SSA average wage at placement by 20 percent; 
(2) at least 80 percent of project participants must be employed at the 
targeted wage within 90 days after completing services under the 
project; and (3) at least 70 percent of the project participants will 
rate the services received as ``very'' or ``extremely'' helpful.
    In order to obtain high-wage jobs, a greater investment in training 
and program services for each worker may be necessary. Therefore, with 
appropriate documentation, the cost per participant may be higher than 
under Title III formula programs operated in the same local area.

C. Technical Assistance and Oversight

    DOL will provide technical assistance to grantees in establishing 
appropriate data collection methods and processes. In addition, DOL 
will establish, for each demonstration project site, an oversight group 
made up of Federal, State and other appropriate interested parties.

D. 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.

E. Contact With State JTPA Substate Grantees

    In order to ascertain the average wage at placement of the JTPA 
Title III Substate area where the grant applicant proposes to operate a 
demonstration, the 

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grant applicant may contact the State Dislocated Worker Unit (DWU) 
which administers the JTPA Title III program. A list of the phone 
numbers of the State DWUs can be found in Appendix C.

Part II. Application Process

A. Eligible Applicants

    Eligible applicants for demonstration projects are employer 
associations, unions, trade associations and other organizations and 
institutions that can document: (1) Their access to employment 
opportunities in occupations for which there is a demand and at wages 
at least 20 percent greater than the average placement wage for the 
local JTPA Title III program; (2) the ability to deliver the services 
proposed; and (3) the management structure necessary to ensure the 
integrity of the funds requested (by meeting the standards for 
financial management and participant data systems as outlined in 20 CFR 
627.425).
    Individual employers, and current JTPA State and substate formula 
program grantees are not eligible grantees for this demonstration 
program (although they may participate).
    Entities described in section 501(c)(4) of the Internal Revenue 
Code who engage in lobbying activities are not eligible to receive 
funds under this SGA. The new Lobbying Disclosure Act of 1995, Public 
Law No. 104-65, 109 Stat. 691, which became effective January 1, 1996, 
prohibits the award of federal funds to these entities if they engage 
in lobbying activities.

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 A). The applicant 
shall indicate on the SF 424 the type of organization for which it 
qualifies under the eligibility criteria in part II.A, paragraph one. 
The Federal Domestic Assistance Catalog number is 17.246. The Project 
Line Item Budget Estimates (Appendix B, pages 1 and 2) are provided to 
assist applicants in the preparation of their cost proposal. The budget 
shall include on separate pages detailed breakout of each budget line 
item, including detailed administrative costs and costs for one or more 
of the following categories as applicable: basic readjustment services 
[Section 314(c)(1-14, 16-18) of JTPA], supportive services [Section 
314(c)(15)], and retraining services [Section 314(d)] requested through 
this grant. For each budget line item, identify the source and amount 
of funds (if applicable) other than those requested by this application 
and include any restrictions that may apply to the use on these funds. 
(A suggested format is provided in Attachment 2).
    Grant funds may cover only those costs which are appropriate and 
reasonable determined by OMB Circular A-122, Cost Principles for 
Nonprofit Organizations and Title III of the JTPA Regulations. Federal 
funds cannot be used to provide training which an employer is in a 
position to, and would otherwise, provide, nor can they be used to 
provide salaries for program participants. They can however be used for 
employer reimbursement of the extraordinary costs associated with on-
the-job training (see 20 CFR 627.240 of the Job Training Partnership 
Act Regulations regarding used of JTPA grant funds for on-the-job 
training).
    Federal funds may not be used for acquisition of production 
equipment. Applicants may budget limited amounts of grant funds to work 
with technical expert(s)/consultants to provide advice and develop more 
complete project plans. However, the level of detail regarding the 
project plan may affect the amount of funding provided.
2. Technical Proposal
    The technical proposal shall demonstrate the offeror's capabilities 
in accordance with the Statement of Work in Part III of this 
solicitation. NO COST DATA OR REFERENCE TO PRICE SHALL BE INCLUDED IN 
THE TECHNICAL PROPOSAL.

C. Hand-Delivered Proposals

    Proposals should be mailed no later than 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. Proposals 
that fail to adhere to the above instructions will not be considered.

D. 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 wrapper.

E. 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 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. 

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F. Period of Performance

    The Period of Performance shall be 18 months from the date of 
execution by the Government. Delivery of services to participants will 
begin within 90 days of execution. Justification for later operation 
start date must be provided in the proposal.

G. Option to Extend

    The Department may elect to add funds to the Grant for an 
additional year of operation, based on the availability of funds, 
successful program operation, and the needs of the Department.

H. Page Count Limit

    Applications are to be limited to 25 single-side pages 8.5 in. x 11 
in., single-spaced, with a maximum of 10 pages of attachments.

I. Cost Limitations

    These demonstration grants are not subject to the cost limitations 
at Section 315 of JTPA. However, any offeror proposing administrative 
cost that exceed 15 percent of the budget and/or supportive services 
that exceed 25 percent of the funds requested in the application must 
provide a narrative justification.

J. Support of appropriate labor organization(s)

    Documentation of consultation and support for the project concept 
from applicable labor organizations must be provided in accordance with 
Part III., Item F. Below.

Part III. Statement of Work

    Each application should follow the format outlined below. For 
sections, A through G, the application should include: (1) information 
that responds to the requirements in this part; (2) information that 
indicates adherence to the provisions described in Parts I and II of 
this solicitation; and (3) other information the offeror believes will 
address the selection criteria identified in Part IV.

    Note: If the offeror intends to serve dislocated workers in more 
than one labor market area, information required under A and B below 
should be provided for each area. Similarly to the extent that the 
program design differs for different geographic areas, information 
must be provided relative to each geographic area to be served.

A. Description of the Target Population

    All project participants must be eligible dislocated workers as 
defined in Section 301(a) of the Job Training Partnership Act. Projects 
may target either or both of the two following groups of dislocated 
workers: (1) Low wage earners who are to trained for and placed high 
wage jobs, or (2) high wage dislocated workers who are to be trained 
and placed in jobs that maintain their earning levels. Describe the 
dislocated worker target population, including the size, location(s), 
and the documented needs of this population relative to services to be 
provided in order to ensure placement in proposed high wage jobs. 
Explain the basis for the selection of high or low wage dislocated 
workers as the demonstration's target population. If the workers 
represent a particular industry or occupation, it should be noted in 
the application.

B. Description of the Targeted High Wage Jobs

    1. Labor market condition--Documentation using labor market 
information appropriate to the geographic area to be served indicating 
that (a) the availability of a substantial number of job openings in 
targeted high wage occupations and that (b) a shortage of qualified 
workers exist to fill these documented openings.
    2. Supply of competing job applicants--Assurance that the number of 
individuals receiving training (from all source--JTPA, secondary and 
post secondary vocational schools, proprietary schools, union 
apprenticeship programs, etc.) for these occupations are not in excess 
of the number of job openings projected within the next 12 months.
    3. Identification of specific job openings--Applicants may document 
their access to firm job commitments by specific employers, or they may 
delineate a cogent job development strategy based on the 
characteristics of their organization and an analysis of the local 
labor market area. The degree to which this information is explicit 
will be taken into account in review of the proposal.
    If all jobs that are projected to be filled are not available at 
the onset of the project, and explanation of how new job openings will 
identified and developed must be included. Note: Special credit will be 
given to opportunities for jobs in nontraditional occupations.

C. Project Design for the High Wage Job Opportunities for Dislocated 
Workers Demonstration

    Describe the major project components listed below:
    1. Outreach and recruitment of project participants: A description 
of how eligible dislocated workers will be identified and recruited for 
the targeted high wage jobs. Recruitment efforts may address public 
service communications and announcements, use of media, staffing for 
this task, use of the Service Delivery Area and Community Based 
Organizations, etc., but must demonstrate successful experience in 
reaching the target population.
    2. Eligibility determination: The name of the entity responsible 
for determination of Title III eligibility for participants entering 
the program. If the entity to determine eligibility will not be the 
local title III substate grantee, describe steps that will be taken to 
ensure proper documentation of the participants' eligibility.
    3. Selection Criteria: A description of the criteria and process to 
be used in selecting those individuals to be served by the project from 
among the total number of eligible persons recruited for the project.
    4. Services to be Provided: A description of the services to be 
provided from the time of selection for the project through placement 
in the high wage job. The description must indicate a clear 
understanding of what services and support will be necessary for the 
participants to successfully be placed in the high wage jobs, including 
services not funded under the grant, and ways to address participant 
financial needs during periods of training. Grant funded activities can 
include any activities listed in Section 314 (c) and (d) of the Job 
Training Partnership Act and should include at a minimum, assessment, 
retraining, job placement, and supportive services as well as 
relocation assistance, if applicable. A description of the provisions 
made for referral of participants who are unsuccessful in the project 
to other appropriate employment and training service providers should 
be provided.
    Information must demonstrate that proposed training provider(s) are 
qualified to deliver training that meets appropriate employment 
standards and/or certification and licensing requirements. Such issues 
as past performance, qualifications of instructors, accreditation of 
certification of training curricula should be addressed where 
appropriate. In addition, describe how training will be customized to 
account for transferable skills and previous education. Costs of 
proposed retraining relative to the costs of similar training through 
other providers should be addressed.
    5. Participant flow: A flowchart and timeliness to illustrate how 
the project will assure access to the necessary and appropriate 
reemployment and retraining services required to place recipients in 
the targeted high wage jobs. A description of the sequence of services 
and the criteria used to 

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determine the appropriateness of specific services for specific 
participants should accompany the flowchart. Please note if service 
choice options will be available to the participant.

D. Project Management

    1. Structure--Describe the management structure for the project 
including a staffing plan which describes each position and the 
percentage of time assigned to this project.
    2. Program Integrity--Describe the mechanisms to ensure financial 
accountability of grant funds, and performance accountability relative 
to job placements.
    Specific references should be made to collecting information needed 
to: 1) determine the achievement of project outcomes as indicated in 
section F (including follow-ups of participants 90 days after leaving 
the program) and 2) the reporting of participants, outcomes, and 
expenditures.
    3. Monitoring--
    a. Establishment of Project Implementation and Progress Benchmarks: 
Describe how the project will keep records of its activities as 
required in 29 CFR Parts 95 and 97 and 20 CFR 631.63 as appropriate, 
including benchmarks to indicate the planned implementation of the 
project which will provide:

--Quarterly implementation schedule of participant activity and 
quarterly cumulative expenditure projections (see Attachment 3).
--Start-up implementation events for each month that are necessary to 
achieve a fully operational project status (assume accomplishments by 
the end of the month specified).

    b. Participant progress: A description of how a participant's 
continuing participation in the project will be monitored.
    c. Project performance: Provide the information on project 
performance that will be collected on a short-term basis (weekly, 
monthly, etc.) by program managers for internal project management to 
determine if the project is accomplishing its objectives as planned or 
if project adjustments are necessary.
    d. Customer satisfaction: 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.
    Technical assistance in the design and implementation of customer 
satisfaction data collection may be provided by the Department of 
Labor.
    4. Previous project management experience.--Provide an objective 
demonstration of the applicant's ability to manage the project, ensure 
the integrity of the funds, and deliver the proposed performance. 
Indicate the applicant's past experience in the management of grant-
funded projects similar to that being proposed, particularly regarding 
oversight and operating functions including financial management.

E. Outcomes

    Provide the following information for the project:
    1. Planned number of participants.
    2. Average Cost per participant (derived by dividing the amount of 
funds requested by the number of participants planned).
    3. Planned number of program completions (the number of 
participants who complete the services provided by the grant).
    4. Planned number of program-related placements (the number of 
participants who are placed in jobs related to the training or services 
funded by the grant).
    5. Average wage at placement (at a minimum, must exceed the JTPA 
Substate Area Title III average wage at placement by 20 percent).
    6. Placement rate (must achieve a placement rate of at least 80 
percent within 90 days of completing the project) [derived by dividing 
the number of participants placed in jobs by the number of project 
participants enrolled in the project].
    7. Cost per placement [derived by dividing the amount of the grant 
request by the number of placements].
    8. Average wage at 13-week follow-up.
    9. Job retention rate at 13-week follow-up.
    10. Percentage of participants rating the services of the project 
``very'' or ``extremely'' helpful.

F. Coordination

    Docmentationof consultation and support for the project concept 
from applicable labor organizations must be submitted when 20% or more 
of the targeted worker population are represented by a labor 
organization, or where the training is for jobs where a labor 
organization represents a substantial number of workers engaged in 
similar work.

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 selected by DOL. Panelists will evaluate the proposals for 
acceptability based upon the overall responsiveness to the Statement of 
Work, with emphasis on the various factors enumerated below, taking 
into consideration the extent to which funds are available. The panel 
results are advisory in nature and not biding on the Grant Officer.

1. Documentation of High Wage Occupational Demand (20 points)

    The documentation of demand for the targeted high wage job, at the 
present time and in the future, is based upon reliable, recognized, and 
timely sources of information. The analysis of the labor market 
indicates a general understanding of the labor market in the area(s) 
where the project will operate.
    Documentation that the supply of workers at the skill level for 
which training is to be provided is inadequate to meet the local labor 
market needs.

2. Description of the Target Population to be Served (20 points)

    The description of the characteristics of the target group is clear 
and meaningful and sufficiently detailed to determine the potential 
participants' service needs. Documentation is provided that a 
significant number of dislocated workers who meet these characteristics 
are available for participation in the project area. Sufficient 
rationale is provided to understand how the number of dislocated 
workers to be enrolled in the project was determined.
    The recruitment plan supports the number of planned enrollments.

3. Service plan (35 points)

    The scope of services to be provided is adequate to meet the needs 
of the target population given (1) their characteristics; (2) the 
occupation(s) in which they are to be trained and (3) the length of 
program participation planned prior to placement.
    The strategies of identifying job openings appear to be 
appropriate. Adequate provision has been made for job development and 
placement services are appropriate to the target population's needs.
    Note: Special Consideration will be given for: (1) Recruitment and 
placement plans providing jobs in 

[[Page 9726]]
nontraditional occupations and (2) specifically identified innovative 
approaches to training or other services.

4. Management Plan (15 points)

    The applicant has successfully managed grants in the past. The 
project workplan demonstrates the applicant's ability to effectively 
track the progress of the project with respect to planned performance 
and expenditures. Sufficient procedures are in place to use the 
information obtained by the project operator to take corrective action 
if indicated. The proposal provides for a grievance process. The 
project operator has a method of assessing customer satisfaction and 
taking into account the results of such assessment in the project 
operations. Review by the appropriate labor organizations, where 
appropriate, is documented.

5. Cost (10 points)

    Project costs are reasonable in relation to the characteristics of 
the target group, the services to be provided, and the jobs in which 
the project participants will be placed. Sufficient justification is 
provided for cost per participant. Other resources have been leveraged 
to supplement this grant and involve a broader constituency of 
interested parties.
    The proposed outcomes are cost effective, e.g., placement rate, 
cost per placement, wage replacement rate, wage level achieved in 
comparison to local median wage, at a minimum, meet the minimum 
standards stated in this announcement.
    Applicants are advised that discussions may be necessary in order 
to clarify any inconsistencies in their applications. 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. The 
Government may elect to award grant(s) without discussion with the 
offeror(s). Award would be based on the offeror's proposal without 
alteration. The offeror's signature on the SF-424 constitutes a binding 
offer.

    Signed at Washington, D.C., this 5th day of March, 1996.
Janice E. Perry,
ETA Grant Officer.

Appendices

1. Appendix A--Application for Federal Assistance (Standard Form 424)
2. Appendix B--Project Line Item Budget Estimates, Pages 1 and 2
3. Appendix C--State JTPA Dislocated Worker Units Telephone Listing

Suggested Format Attachments

1. Attachment 1--Implementation and Performance Benchmarks
2. Attachment 2--Service Plan Matrix

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[FR Doc. 96-5718 Filed 3-8-96; 8:45 am]
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