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

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)

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