[Federal Register Volume 64, Number 157 (Monday, August 16, 1999)]
[Notices]
[Pages 44543-44554]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-21143]
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DEPARTMENT OF LABOR
Employment and Training Administration
Solicitation for Grant Applications (SGA) H-1B Technical Skill
Training Grants
AGENCY: Employment and Training Administration (ETA), Labor.
ACTION: Notice of availability of funds and solicitation for grant
applications (SGA).
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SUMMARY: This notice contains all of the necessary information and
forms needed to apply for grant funding. The Employment and Training
Administration (ETA), U.S. Department of Labor (DOL), announces the
availability of grant funds for skill training programs for unemployed
and employed workers. Funding for these grants is coming from the user
fee mandated for applicants for new H-1B nonimmigrant visa workers and
established under the American Competitiveness and Workforce
Improvement Act of 1998 (ACWIA).
Eligible applicants for these grants will be private industry
councils (PICs) established under Section 102 of the Job Training
Partnership Act (JTPA), local Workforce Investment Boards (WIBs)
established under section 117 of the Workforce Investment Act (WIA)
that will carry out such programs or projects through one-stop delivery
systems established under section 121 of WIA, or regional consortia of
PICs or local boards. Regional consortia may be interstate.
WIA provides a framework for a national workforce investment and
employment system designed to meet both the needs of the nation's
businesses and the needs of job seekers and workers who want to further
their careers. ACWIA will provide resources for skill training in
occupations that are in employer demand; one measure of this demand is
employer H-1B applications for workers. In particular, industries that
appear to generate the most H-1B demand include information technology
and health. Appendix A to this Solicitation provides information on the
kinds of occupations certified under the H-1B program by the Department
of Labor for Fiscal Year 1999 (Oct.1, 1998 to May 1999), and the number
of job openings certified in each occupation.
This notice describes the application submission requirements, the
process that eligible entities must use to apply for funds covered by
this solicitation, and how grantees will be selected. It is anticipated
that about $25 million will be available for funding the projects
covered in this first-round solicitation, that approximately fifteen to
twenty projects will be selected for funding, and that the maximum
grant award will not exceed $1.5 million. There is a 50 percent non-
Federal matching requirement.
DATES: Applications for grant awards will be accepted commencing August
16, 1999. The closing date for receipt of applications shall be 75 days
after date of publication in the Federal Register at 4:00 p.m. (Eastern
Time) at the address below.
ADDRESSES: Applications shall be mailed to the U.S. Department of
Labor, Employment and Training Administration, Division of Federal
Assistance, Attention: Diemle Phan, SGA/DFA 99-019, 200 Constitution
Avenue, NW, Room S-4203, Washington, D.C. 20210.
FOR FURTHER INFORMATION CONTACT: Questions should be faxed to Diemle
Phan, Grants Management Specialist, Division of Federal Assistance, Fax
(202) 219-8739. This is not a toll free number. All inquiries should
include the SGA number (DFA 99-019) and a contact name, fax and phone
number. This solicitation will also be published on the Internet on the
Employment and Training Administration's Homepage at http://
www.doleta.gov. Award notifications will also be published on this
Homepage.
BACKGROUND: This initiative will build on recent ETA initiatives,
specifically the June 1998 dislocated worker technology demonstration
and the new dislocated worker technology demonstration. These two
recent efforts were intended to strengthen linkages between employers
experiencing skill shortages in specific occupations and the publicly
funded workforce development system. In June 1998, $7.5 million in JTPA
Title III dislocated worker funds was awarded to 11 organizations
throughout the country to train workers in skills related to the
information technology industry. In June 1999, over $9.57 million was
awarded to 10 grantees to train dislocated workers in the skills
necessary to obtain work requiring advanced skills in occupations in
manufacturing industry settings, including computers and electronics
manufacturing, machinery and motor vehicles, chemicals and petroleum,
specialized instruments and devices, and biomedics.
SUPPLEMENTARY INFORMATION: ETA is soliciting proposals on a competitive
basis for the conduct of demonstration projects to provide technical
skills training for workers, including both employed and unemployed
workers.
This announcement consists of three parts:
Part I discusses the procedures for eligible applicants
who wish to apply for these funds.
Part II provides the detailed Statement of Work together
with applicable reporting requirements.
Part III describes the selection process/criteria for
award.
Legislative Mandate
The relevant portions of ACWIA dealing with the establishment of a
fund for implementing a program of H-1B skill training grants state:
``Section 286(s)--H-1B Nonimmigrant Petitioner Account
(1) In General--There is established in the general fund of the
Treasury a separate account, which shall be known as the ``H-1B
Nonimmigrant Petitioner Account.'' Notwithstanding any other section of
this title, there shall be deposited as offsetting receipts into the
account all fees collected under section 214(c)(9).
(2) Use of Fees for Job Training--56.3 percent of amounts deposited
into the H-1B Nonimmigrant Petitioner Account shall remain available to
the Secretary
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of Labor until expended for demonstration programs and projects
described in section 104(c) of the American Competitiveness and
Workforce Improvement Act of 1998.''
Section 104(c) Demonstration Programs and Projects To Provide
Technical Skills Training for Workers.--
(1) In General--In establishing demonstration programs under
section 452(c) of the Job Training Partnership Act (29 U.S.C. 1732(c)),
as in effect on the date of the enactment of this Act, or demonstration
programs of projects under section 171(b) of the Workforce Investment
Act of 1998, the Secretary of Labor shall use funds available under
section 286(s) to establish demonstration programs or projects to
provide technical skills training for workers, including both employed
and unemployed workers.
(2) Grants--The Secretary of Labor shall award grants to carry out
the programs and projects described in paragraph (1) to--
(A)(i) private industry councils established under section 102 of
the Job Training Partnership Act (29 U.S.C.1512), as in effect on the
date of the enactment of this Act; or
(ii) local boards that will carry out such programs or projects
through one-stop delivery systems established under section 121 of the
Workforce Investment Act of 1998; or
(B) regional consortia of councils or local boards described in
subparagraph (A).
The Immigration and Nationality Act (INA)(section 101(a)(15)( H)(i)
(b)) defines the ``H-1B alien as one who is coming temporarily to the
United States to perform services in a specialty occupation or as a
fashion model.''
The INA (Section 214(i)) sets criteria to define the term
``specialty occupation:''
(1) For purposes of section 101(a)(15)(H)(i)(b) and paragraph 2, a
``specialty occupation'' means an occupation that requires--
(A) theoretical and practical application of a body of highly
specialized knowledge and,
(B) attainment of a bachelor's or higher degree in the specific
specialty (or its equivalent) as a minimum for entry into the
occupation in the United States
(2) For purposes of section 101(a)(15)(H)(i)(b)), the requirements
of this paragraph with respect to a specialty occupation are--
(A) full state licensure to practice in the occupation, if such
licensure is required.
(B) completion of the degree described in paragraph (1)(B) for the
occupation, or (C)(i) experience in the specialty equivalent to the
completion of such degree, and (ii) recognition of expertise in the
specialty through progressively responsible positions relating to the
specialty.
Part I--Application Process
A. Eligible Applicants
ACWIA specifies under Section 104(c)(2) that the Secretary shall
award grants to private industry councils (PICs) established under
section 102 of the Job Training Partnership Act (JTPA), or local boards
that will carry out such programs or projects through one-stop delivery
systems established under section 121 of the Workforce Investment Act
(WIA) of 1998, or regional consortia of councils or local boards.
While the statute is quite specific about the fact that only PICs,
local boards and consortia may apply for and receive these grant
awards, it does not preempt the participation of other concerned
entities which are integral to the process of planning for and
conducting skill training in skill shortage areas. The Department of
Labor is requiring that eligible applicants must demonstrate that they
have the involvement of a wide representation of the business community
in their region. They are also strongly encouraged to reach out widely
and involve a broad spectrum of other organizations such as labor
unions, community colleges and other postsecondary educational
institutions, and community based organizations in a partnership or
consortium arrangement. Applicants are encouraged to associate with
entities which possess a sound grasp of the job marketplace in the
region and which are in a position to address the issue of skill
shortage occupations. Such organizations would include private, for
profit businesses--including small- and medium-size businesses;
business, trade, or industry associations such as local Chambers of
Commerce and small business federations; and labor unions. Also, those
entities should include businesses and business associations which have
experienced first hand the problems of coping with skill shortages and
which employ workers engaged in skill shortage occupations. This
Solicitation will not prescriptively define the roles of individual
entities within the partnership beyond requiring, as ACWIA states, that
the PICs, local workforce investment boards, or consortia be the
applicant and the recipient of grant funds. It is anticipated, however,
that the proposal will provide a detailed discussion of participating
organizations' respective responsibilities. The proposal should
describe a consortium of several employers that will lead the
consortium and provide matching funds and who intend to employ workers
participating in the technical skills training.
Based on Department of Labor experiences, regional partnerships
that actively engage a wide range of participation from community
groups--particularly with strong private employer involvement--appear
to be successful. In general, applicants will be encouraged to include
a broad spectrum of stakeholder groups, including such employers, in
their partnership effort. Also, PICs or local workforce investment
boards or consortia thereof representing more than one region that
share common economic goals may band together as one applicant rather
than applying individually.
A signed certification of the authorized signatory for a PIC or a
local workforce investment board, or the authorized signatory for each
PIC or local board in the case of a consortium, is required. The
attestation must identify who the grant recipient is and describe its
capacity to administer this project; it shall also indicate that the
project is consistent with and will be coordinated with the workforce
investment system(s) that are involved in technical skills activities
in the region(s) encompassed by the applicant.
Part III of this announcement enumerates and defines in depth a
series of criteria that will be utilized to rate applicant submissions.
Briefly, these criteria are:
Statement of Need
Service Delivery Strategy
Target Population
Linkages with Key Partners/Sustainability
Outcomes
Cost Effectiveness
B. Submission of Proposals
Applicants must submit four (4) copies of their proposal, with
original signatures. The proposal must consist of two (2) separate and
distinct parts, Parts I and II.
Part I of the proposal shall contain the Standard Form
(SF) 424, ``Application for Federal Assistance'' (Appendix B) and the
Budget Information Form (Appendix C). The individual signing the (SF)
424 on behalf of the applicant shall represent the responsible
financial and administrative entity for a grant should that application
result in an award. The individual who signs the application should be
the same individual who signs the certification discussed in the
previous section. According to the
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Lobbying Disclosure Act of 1995, Section 18, an organization described
in Section 501(c)4 of the Internal Revenue Code of 1986 which engages
in lobbying activities shall not be eligible for the receipt of federal
funds constituting an award, grant, or loan.
In preparing the Budget Information Sheet, the applicant must
provide a concise narrative explanation to support the request. The
statutory language of ACWIA is specific and exclusive in stating that
grant resources are to be expended for programs or projects to provide
technical skills training. Therefore, no ACWIA grant resources may be
utilized for the costs of administration. The budget narrative should
discuss precisely how the costs of necessary administration are being
borne by non-ACWIA resources. To the extent that these resources are
non-Federal in nature, they may comprise part of the match.
Part II must contain a technical proposal that demonstrates the
Offeror's capabilities in accordance with the Statement of Work
contained in this announcement. A grant application is limited to
twenty (20) double-spaced, single-side, 8.5 inch x 11 inch pages with
1-inch margins. The Offeror may provide statistical information and
related material in attachments. Attachments may not exceed fifteen
(15) pages. Letters of commitment from partners or from those providing
matching resources may be submitted as attachments; however, letters of
support are not required. Such letters will not count against the
allowable maximum page total. The Applicant must briefly enumerate
those entities in the text of the proposal. Text type shall be 11 point
or larger. Applications that do not meet these requirements will not be
considered. Each application must include a Time Line outlining project
activities and an Executive Summary not to exceed two pages. The Time
Line and the Executive Summary do not count against the 25 page limit.
No cost data or reference to price is included in the technical
proposal.
C. Hand Delivered Proposals
If proposals are hand delivered, they must be received at the
designated place by 4:00 p.m., Eastern Time [insert date x number of
days after date of publication in the Federal Register]. All overnight
mail will be considered to be hand delivered and must be received at
the designated place by 2:00 on the specified 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.
D. Late Proposals
A proposal received at the designated office after the exact time
specified for receipt will not be considered unless it is received
before award is made and it:
Was sent by registered or certified mail not later than
the fifth calendar day before the date specified for receipt of
applications (e.g., a proposal submitted in response to a solicitation
requiring receipt of applications by the 20th of the month must be
mailed by the 15th);
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 proposals.
The term ``working days'' excludes weekends and U.S. Federal holidays.
The only acceptable evidence that an application was sent in
accordance with these requirements is 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 or affixed on the date of mailing by employees of the U.S.
Postal Service.
E. Period of Performance
The initial period of performance will be up to 24 months from the
date of execution of the grant documents. It is anticipated that about
$25 million will be disbursed. It is also anticipated that 15-20 grant
awards will be made for up to $1.5 million. Based on successful
performance and the availability of resources, these grants may be
extended for an additional period not to exceed 36 months in total.
F. Definitions
For purposes of this solicitation:
Technical skills training includes occupational skills
training--that may combine academic and work-place learning and related
instruction, customized training with a commitment of an employer or
group of employers to employ an individual upon successful completion
of training, and that may be tailored to meet the needs of the
individual participant. Section 134 (d)(4)(D) of WIA provides a
definition of training services that shall be viewed as generally
applicable to the term ``technical skills training'' in this
Solicitation. This definition of technical skills training specifically
allows the use of grant funds to provide necessary books.
Region means an area which exhibits a commonality of
economic interest. Thus, a region may comprise a few labor market
areas, one large labor market, one labor market area joined together
with a couple of adjacent rural districts, a few special purpose
districts, or a few contiguous PICs or local boards. Clearly, if the
region involves multiple economic or political jurisdictions, it is
essential that they be contiguous to one another. A region may be
either intrastate or interstate. Although the rating criteria will
provide more detail, it is the applicant's responsibility to
demonstrate the regional nature of the area which that application
covers. Also, a region may be coterminous with a single PIC or local
board.
Younger workers (ages 18-24) who may have fewer
educational or occupational credentials means those individuals who
have the educational or occupational credential level enumerated in
Sec. 101 (33) of WIA (which, in another context, is employed to
describe an ``out of school youth''). Specifically, that definition
refers to a school dropout or someone who has received a secondary
school diploma or its equivalent but is basic skills deficient,
unemployed or underemployed.
G. Matching Requirement
No applicant may receive a grant unless that applicant agrees to
provide resources equivalent to at least 50 percent of the grant award
amount as a match. That match may be provided in cash or in kind. In
view of the fact that the singular focus of grant resources is to
provide skill training, ETA particularly encourages the provision of
essential capital equipment, such as computer equipment, as part of the
match. The match will not be tied to the drawdown of funds, however,
the amount and nature of it must be clearly described in the
application.
Part II--Statement of Work/Reporting Requirements
A. Principles
Six basic key principles underlie this effort:
Local Board (or PIC) Participation: The initiative should
help local boards achieve the goals of their strategic plans
established under WIA. While this legislation requires that the local
board or PIC or a regional consortium of boards or PICs be the eligible
applicant, this Solicitation encourages local boards or PICs to move
beyond simply being the applicant and become actively engaged in the
design and implementation of this grant and, thus, reinforce and
strengthen the delivery systems emerging under the Workforce Investment
Act of 1998. This concept ties in clearly to two rating criteria:
Service Delivery Strategy (What is the
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range of potential training providers?; How will the types of training
planned for project participants be determined?) and Links with Key
Partners/Sustainability (What role each partner in the endeavor will
play).
Partnership Sustainability: The grant awards will be of
relatively short duration--up to 24 months. Although the primary focus
of these awards is technical skill training, ETA intends that regional
partnerships sustain themselves over the long term--well after the
federal resources from this initiative have been exhausted. The 50
percent non-Federal matching requirement is an integral part of
ensuring sustainability; matching resources will help sustain the skill
shortages training effort beyond the term of the grant. This concept
relates to Links with Key Partners/Sustainability (What resources does
each partner bring to the table and how does this contribution assist
in building the foundation for a permanent partnership?)
Business Involvement: Business is an essential partner. It
articulates skill requirements, hires skilled workers, and provides
support for lifelong learning. Under WIA, business plays a critical
role in planning and overseeing training and employment activities. WIA
requires that the majority of the membership of State and local boards
be business representatives, and that the State and local board chairs
be drawn from business. For the purpose of these grants, it is
imperative that businesses represented include businesses with current
skill shortages who intend to hire graduates of the technical skills
training. This concept relates to three Rating Criteria: Statement of
Need (Assists in determining what skill shortage occupations are in
demand in the region), Linkages with Key Partners/Sustainability (What
private sector involvement is there in the partnership; what resources
does each of the partners bring to the table; how do contributions
assist in building the foundation for a permanent partnership?), and
Outcomes (Businesses involved in the partnerships will provide a key
resource in hiring/upgrading workers who have been trained).
Current Skills Gap: Current skill shortages are the
immediate focus of this initiative. Training investments should be
targeted in occupational areas that have been identified on the basis
of H-1B occupations as skill shortage areas. This concept relates to
Statement of Need (The most important issue to be addressed under this
section is identifying the particular skill shortages that manifest
themselves in the region . . .) and Service Delivery Strategy (How will
skill training meet the skill needs of the region.)
Innovative and Effective Tools: The grantees will use
innovative or proven tools and approaches to close particular skills
gaps and provide strategies for training that promote regional
development. This concept relates to Service Delivery Strategy (There
can be innovation in the way training services are provided.) and Cost
Effectiveness (Innovative tools and approaches may more effectively
deliver training services to individual participants thereby resulting
in better employment outcomes and higher levels of skill achieved by
those participants for the same cost.)
Target Population: This initiative should reach out widely
to include all segments of the workforce--for example, high- and low-
skilled workers, minorities, women, and people with disabilities. The
primary emphasis of the ACWIA technical skills training will be to
focus on workers who can be placed directly in the highly skilled H-1B
occupations. However, linked resources under WIA, JTPA, and other
similar programs will be used to train individuals so they can secure
immediate jobs that launch them on H-1B occupation-related career
paths. This relates to the rating criterion, Target Population
(Discussion of who the targeted workers are.)
B. Skills Shortages
Section 104(c) of ACWIA mandates that the grants awarded under this
authority be used for technical skill training to employed and
unemployed workers. The basis of the funding for the grants, however,
is a user fee paid by an employer seeking nonimmigrant alien workers
(H-1B) that possess qualifications in occupations with skill shortages
at high skill levels in American industry. Thus, training conducted
under these auspices should be in occupations that have been
demonstrated to be in short supply.
What is a labor shortage? In the simplest terms possible, shortages
occur in a market economy when the demand for workers for a particular
occupation is greater than the supply of workers who are qualified,
available, and willing to do that job. Although, some of the
explanations for why this demand or supply disequilibrium exists are
fairly complex, the basic concept is straightforward. In many
instances, labor markets adjust quickly and the skill shortage is
resolved.
Problematic skills shortages occur when there is imbalance between
worker supply and demand for an unusual period of time. The H-1B visa
program is a response to those shortages, and this skill training grant
program helps alleviate such shortages. It should be noted that the
concept of skill shortages also may include an imbalance between the
demand and supply of workers at some definable skill level.
C. Skills Standards
As noted earlier, the definition of the minimum proficiency level
required to be considered an H-1B occupation, contained in section 214
(i) of INA, speaks to a very high skill level for these ``specialty
occupations'' (8 U.S.C. 1184 (i)). To reiterate, these are occupations
that require ``theoretical and practical application of a body of
highly specialized knowledge,'' and full state licensure to practice in
the occupation (if it is required). These occupations also must require
either completion of at least a bachelor's degree or experience in the
specialty equivalent to the completion of such degree and recognition
of expertise in the specialty through progressively responsible
positions relating to the specialty.
In examining the occupational goals to target the training, it may
be appropriate for applicants to identify intermediate occupational
skill-level steps that linked resources will assist in addressing. To
the extent that applicants target younger workers (age 18-24) or low
wage workers who may have fewer educational and occupational
credentials, it is important that the applicant spell out career paths
which will help individuals acquire the high proficiency levels
explicitly and implicitly contained in the H-1B occupations.
Skill standards represent a benchmark by which an individual's
achieved competence can be measured. Much work has been done in this
area--some by private industry and trade associations, some by
registered apprenticeship training systems, some by public and private
partnerships, including local School-to-Work partnerships, and the Job
Corps. Succinctly stated, well-defined skill standards can be a useful
tool in matching training goals to targeted occupational areas.
Applicants are encouraged to survey the progress to date in developing
occupational skill standards in their communities. Do companies that
will be seeking skilled workers for H-1B occupations have a clearly
defined set of expectations for the requisite capabilities of those
workers?
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D. Regional Planning
Applicants must describe the local area or region that will be
served. The proposal must also identify the political jurisdictions to
be included as well as provide an enumeration of the specific local
areas under JTPA or WIA. This description should include a discussion
of skill shortages in the local area or region. Although comprehensive
occupational vacancy data do not exist, current H-1B applicant data
should be utilized to the extent feasible to describe occupational
shortages. Attachment A to this Solicitation is a listing by occupation
of the most current H-1B applicant data. Applicants may take into
consideration that occupations listed in high demand among those for
which H-1B visas were sought nationally also might be in short supply
in their region.
However, applicants should avail themselves of all available local
data including data provided by area businesses and business
associations in making determinations as to shortages. They are
encouraged to research widely and be inclusive in utilization of labor
market information. In addition to the sources already described,
applicants are encouraged to analyze data made available by the Bureau
of Labor Statistics and through the local One-Stop delivery system.
E. Service Delivery and Supportive Services
Applicants should carefully describe skill training in context of
the goals that are to be achieved by participants. These goals should
be expressed in terms of targeted occupations. The Statement of Work
should provide a detailed discussion of the kinds of training to be
provided and the mechanisms to be used to provide it. Applicants also
should build linkages to the One-Stop system established under WIA to
reach out, inform, and recruit individuals to participate in the H-1B
financed training. It is expected that the applicant's work statement
will include a discussion of the types of skills being trained for, the
necessary skill levels that are targeted, how they will be measured,
and how skill shortages in the local area or region will be met through
this training
The central role of the local boards or PICs in the planning and
policy activity surrounding these grants is critical. WIA requires the
local board to prepare a strategic workforce investment plan for the
area that it embraces. The local board also designates One-Stop service
center operators and selects eligible training providers. In short,
local boards are already engaged in much of the necessary work that
could provide a solid foundation for the training activities to be
undertaken in ACWIA. The PIC under JTPA is very much in a similar role
except that the PIC may provide direct services; under WIA however, the
presumption is that local boards only provide services under certain
circumstances and for a limited time period.
ACWIA requires that grant resources be used solely for technical
skills training. However, ETA anticipates that applicants may need to
make available a range of supportive services to enhance the quality
and effectiveness of the skill training provided under the grant. Grant
funds may not be used to provide supportive services. Appropriately
focused services, however--such as transportation or child care and
others defined by section 4(24) of JTPA and section 101(46) of WIA--
could be viewed as an important factor enhancing the technical skills
training package. To the extent that these services are provided
utilizing non-Federal resources, applicants may present them as part of
the proposed matching requirement. Federal resources such as
coenrollment in WIA or JTPA while participating in ACWIA training for
supportive services clearly cannot be counted toward the matching
requirement; however, such coordinated coenrollment and services are
clearly desirable features of these projects. Successful applicants are
encouraged to leverage such Federal resources as part of making the
technical skills training more effective.
F. Reporting Requirements
The Grantee is required to provide the reports and documents listed
below:
Quarterly Financial Reports. The grantee must submit to
the Grant Officer's Technical Representative (GOTR) within the 30 days
following each quarter, two copies of a quarterly Financial Status
Report (SF269) until such time as all funds have been expended or the
period of availability has expired.
Progress Reports. The grantee must submit brief narrative
quarterly reports to the GOTR within the 30 days following each
quarter. Two copies are to be submitted; the report provides a detailed
account of activities undertaken during that quarter including:
a. A discussion of occupational areas for which skill training is
being provided,
b. Job placements in skill shortage occupations, and
c. An indication of any current problems which may affect
performance and proposed corrective action.
Final Report. A draft final report which summarizes
project activities and employment outcomes and related results of the
demonstration shall be submitted no later than the expiration date of
the grant. The final report shall be submitted in 3 copies no later
than 60 days after the grant expiration date.
G. Evaluation
ETA will arrange for or conduct an independent evaluation of the
outcomes, impacts, and benefits of the demonstration projects. Grantees
must agree to make available records on participants and employers and
to provide access to personnel, as specified by the evaluator(s) under
the direction of ETA.
Part III--Review Process & Rating Criteria
A careful evaluation of applications will be made by a technical
review panel who will evaluate the applications against the criteria
listed below. The panel results are advisory in nature and not binding
on the Grant Officer. The Government may elect to award the grant with
or without discussions with the offeror. In situations without
discussions, an award will be based on the offeror's signature on the
(SF) 424, which constitutes a binding offer. Awards will be those in
the best interest of the Government.
A. Statement of Need (20 Points)
The underlying statute authorizing this competitive grant program--
ACWIA--is a response to skill shortages around the country in specific
occupations. ETA has provided the most recent H-1B application data as
an attachment to this solicitation. The most important issue to be
addressed under this section is identifying, to the extent possible,
the particular skill shortages that manifest themselves in the region
that is encompassed by the application. Applicants are encouraged to
utilize all available data resources--H-1B applications, newspaper want
ads, expressed employer consortium hiring desires, and One Stop
system's labor market information--in responding to this criterion.
To provide a focused backdrop for the discussion of skill
shortages, applicants should describe clearly the region for which
services are to be provided. What are the characteristics that make
this area a cohesive region? What are the particular characteristics of
the local political, economic and administrative
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jurisdictions--PICs, local workforce investment boards, labor market
areas, special district authorities--that caused them to associate for
the purpose of this application?
There are several useful items of information that could be
provided to enhance the description of the region. A general discussion
of the region should include socioeconomic data--with a particular
focus on the general education and skill level prevalent in the area.
Also, it is useful to include such items as transportation patterns,
demographic information (such as age and general income of residents).
Judicious use of statistical information is encouraged. Other pertinent
questions that will provide greater depth of description include: What
is the general business environment? What industries and occupations
are growing, and which ones are contracting? What are the
characteristics of the major employers in the region? What is the
particular situation of the consortium member companies?
B. Service Delivery Strategy (22 points)
Applicants must lay out a comprehensive strategy for providing the
technical skills training that is mandated as the core activity of
these grant awards. Concomitantly, there needs to be a discussion of
how this skill training will meet the skill needs of the region.
Several specific issues must be focused on as part of this section.
Those issues include:
What is the range of potential training providers, what kinds of
skill training will be offered, how will that meet the regional skill
needs, and how will training be provided? How will the types of
training planned for project participants be determined? Also, although
there is a separate section on outcomes, it is strongly recommended
that some brief mention in context of the service delivery strategy, be
made of them here. Such outcomes would include job placements in skill
shortage occupations, increased salary, and measurable skill gains or
certificates obtained that demonstrate how the training will alleviate
skill shortages.
Supportive services, per se, are not an allowable activity with
grant funds. However, making such services available on an as needed
basis (utilizing other available resources) is encouraged.
Innovation in the context of service delivery can represent a wide
variety of items. There can be innovation in the way training services
are provided--e.g., distance learning to provide instruction,
interactive video self-instructional materials, and flexible class
scheduling (sections of the same class scheduled at different times of
the day to accommodate workers whose schedules fluctuate). Creativity
in developing the service strategy is also encouraged.
C. Target Population (18 Points)
The eligibility criterion for skill training enumerated in ACWIA is
extremely broad--employed and unemployed workers. This section should
include an extensive focused discussion of who the targeted workers
are, including their characteristics, and why they are being targeted.
A discussion of what assessment procedures are to be used is integral.
In the case of employed workers, there should be some articulation
of what is to be accomplished. The applicant should address some
specific issues relating to the target employed worker population such
as:
--How many employed workers will be targeted for services and why?
--What are the technical skills training needs of those workers to
fulfill skill shortage occupations?
In the case of unemployed workers, there needs to be an extensive
discussion of criteria to be used to assess and enroll individuals. It
is true that the target occupations and specific jobs to be trained for
within the H-1B rubric are statutorily geared to a very high skill
standard.
However, applicants are encouraged to identify intermediate skill
level steps (or in the words of the INA--``progressively responsible
positions relating to the specialty'' (8 U.S.C. 1184(i)(2)(c)(2)) so
that linked resources--e.g., from WIA, JTPA, and other similar
programs--may be used to train younger less skilled workers to ``back
fill'' those positions.
In this light, ETA is interested in opening opportunities for these
positions to younger workers (ages 18-24) who may have fewer
educational or occupational credentials, individuals with disabilities,
or low-wage workers. ETA also is very interested in serving
underrepresented communities and populations, particularly those that
may reside in Empowerment Zones and Enterprise Communities (EZ/ECs).
Applicants are strongly encouraged to describe in detail how linked
resources will meet the needs of individuals in these groups.
Applications are also strongly encouraged to target one or more of
these groups and describe in realistic terms the training goals that
can be attained by that group(s). The businesses that will employ these
individuals do not need to be located in the EZ or EC.
D. Linkages With Key Partners/Sustainability (17 Points)
The applicant should enumerate who the partners are in this
endeavor and how they will link together--i.e., what role each will
play. In particular, this section should articulate ties to the private
sector, including ties with small- and medium-sized businesses and
small business federations.
The Service Delivery Strategy section of the Statement of Work
described the role each of the actors would play in providing services.
This section looks at the linkages from a somewhat different more
structural perspective with particular emphasis on the employers in the
consortium that are experiencing skill shortages. What resources does
each partner bring to the table? The application will specify a
management entity (together with a staffing pattern and resumes of
major staff members) and will articulate with some precision the roles
of various actors. A short portion of this discussion should dwell upon
the organizational capacity and track record of the primary actors in
the partnership.
There is a 50 percent matching requirement. To what extent does any
of these partners provide matching funds or services and how does this
contribution assist in building the foundation for a permanent
partnership, i.e., sustainability?
As noted earlier, Federal resources cannot be counted against the
matching requirement; however, it is important that such resources be
provided as part of the project because they certainly support and
strengthen the quality of the technical skills training provided in the
project and contribute materially toward sustainability. Because ACWIA
resources are limited to training individuals to fill high skill H-1B
jobs, it is vitally important that applicants link job training
resources under JTPA, WIA and other similar programs so that
individuals possessing lesser levels of educational and/or occupational
skills may also benefit from this initiative. For example, local boards
could commit through One-Stop centers such valuable participant
services as participant assessment and case management. Applicants are
encouraged to enumerate these leveraged resources under this section as
examples of leveraged resources. This section should also enumerate any
specific existing contractual commitments.
Briefly stated, the sustainability issue can be addressed by
providing concrete evidence that activities supported by the
demonstration grant will be continued
[[Page 44549]]
after the expiration date of the grant using other public or private
resources.
E. Outcomes (15 Points)
Applicants must describe the predicted outcomes resulting from this
training. It is posited that the projected results will be somewhat
varied given the broad range of people that will probably be served.
For example, employed workers may be trained to achieve a higher skill
level than most unemployed workers. Their success could manifest itself
through job placements in H-1B skill shortage occupations, increased
wages, or skill attainment in H-1B occupations.
By contrast, using linked WIA or JTPA resources, unemployed
workers, particularly those in the underrepresented groups discussed
above, might be trained to ``backfill'' the jobs previously occupied by
the incumbent workers whose skills have been upgraded. These unemployed
individuals may be measured in terms of gaining employment as well as
skills attainment. There also could be an effort to project target
salary levels for them as a result of the training received.
There are, however, unemployed workers who may well already possess
a very high skill level. They could receive refresher technical skills
training to update their skills. The outcomes for this group may also
be projected in terms of gaining employment and skills attainment;
those outcomes would simply be at a somewhat higher level than for
those unemployed workers who do not possess similar skills at the
outset.
Ideally, the applicant's outcomes section will describe some
version of a relatively cohesive mosaic that weaves together the
outcomes for both employed and unemployed workers in the context
described in the preceding three paragraphs. Additionally, the outcomes
section should focus very specifically on the changes that occur
because of the training. Thus, an applicant might state that a certain
skill level is projected for a given group; but the applicant should
couch that outcome in context of what the initial pre-training skill
level had been for the group.
F. Cost Effectiveness (8 Points)
Applicants will provide a detailed cost proposal including a
discussion of the expected cost effectiveness of their proposal in
terms of the expected cost per participant compared to the expected
benefits for these participants. Applicants should address the
employment outcomes and the levels of skills to be achieved (such as
attaining State licensing in an occupation) relative to the amount of
training that the individual had to receive to achieve those outcomes.
Benefits can be described both qualitatively in terms of skills
attained and quantitatively in terms of wage gains. Cost effectiveness
may be demonstrated in part by cost per participant and cost per
activity in relation to services provided and outcomes to be attained.
This section must contain a detailed discussion of the size,
nature, and quality of the non-Federal match. Proposals not presenting
a detailed discussion of the non-Federal match or not meeting the 50
percent match requirement will be considered nonresponsive.
Applicants are advised that discussions and/or site visits may be
necessary in order to clarify any inconsistencies in their
applications. The reviewers' evaluations are only advisory to the Grant
Officer. The final decisions for grant award will be made by the Grant
Officer after considering the panelists' scoring decisions. The Grant
Officer's decisions will be based on what he or she determines is most
advantageous to the Federal Government in terms of technical quality
and other factors.
Signed in Washington, D.C. , this 10th day of August 1999.
Laura Cesario,
Grant Officer.
Appendix A--Selected H-1B Professional, Technical and Managerial
Occupations, and Fashion Models: Number of Job Openings Certified
by the U.S. Department of Labor, Fiscal Year 1999 (Oct. 1, 1998-May
31, 1999)
------------------------------------------------------------------------
Number of
Occupational code Occupational title openings
certified
------------------------------------------------------------------------
030..................... Occupations In Systems 360,745
Analysis And Programming.
076..................... Therapists................. 181,665
160..................... Accountants, Auditors, And 35,665
Related Occupations.
039..................... Other Computer-Related 28,529
Occupations.
003..................... Electrical/Electronic 16,859
Engineering Occupations.
070..................... Physicians And Surgeons.... 11,264
019..................... Other Occupations In 11,175
Architecture, Engineering
And.
090..................... Occupations In College And 9,028
University Education.
199..................... Miscellaneous Professional, 8,964
Technical, And Manager.
189..................... Miscellaneous Managers And 8,824
Officials.
007..................... Mechanical Engineering 7,115
Occupations.
050..................... Occupations In Economics... 5,608
163..................... Sales And Distribution 5,368
Management Occupations.
033..................... Occupations In Computer 4,573
Systems Technical Support.
161..................... Budget And Management 4,263
Systems Analysis
Occupations.
169..................... Other Occupations In 4,135
Administrative Occupations.
031..................... Occupations In Data 4,121
Communications And
Networks.
041..................... Occupations In Biological 3,981
Sciences.
079..................... Other Occupations In 3,764
Medicine And Health.
012..................... Industrial Engineering 2,725
Occupations.
186..................... Finance, Insurance And Real 2,624
Estate Managers And Off.
020..................... Occupations In Mathematics. 2,599
001..................... Architectural Occupations.. 2,490
141..................... Commercial Artists: 2,371
Designers & Illustrators,
Graphics.
297..................... Fashion Models............. 2,367
092..................... Occupations In Preschool, 2,359
Primary, Kindergarten Ed..
187..................... Service Industry Managers 2,347
And Officials.
022..................... Occupations In Chemistry... 2,345
005..................... Civil Engineering 2,186
Occupations.
032..................... Occupations In Computer 1,595
System User Support.
[[Page 44550]]
091..................... Occupations In Secondary 1,579
School Education.
110..................... Lawyers.................... 1,353
029..................... Other Occupations In 1,306
Mathematics And Physical
Sciences.
131..................... Interpreters and 1,270
Translators.
166..................... Personnel Administration 1,229
Occupations.
165..................... Public Relations Management 1,216
Occupations.
185..................... Wholesale And Retail Trade 1,183
Managers And Officials.
008..................... Chemical Engineering 1,075
Occupations.
168..................... Inspectors And 974
Investigators, Managerial
& Public.
142..................... Environmental, Product And 955
Related Designers.
119..................... Other Occupations In Law 882
And Jurisprudence.
099..................... Other Occupations In 841
Education.
023..................... Occupations In Physics..... 836
010..................... Mining And Petroleum 777
Engineering Occupations.
164..................... Advertising Management 773
Occupations.
132..................... Editors: Publication, 748
Broadcast, And Script.
078..................... Occupations In Medical And 699
Dental Technology.
183..................... Manufacturing Industry 681
Managers And Officials.
184..................... Transportation, 659
Communication, And
Utilities Management.
049..................... Other Occupations In Life 612
Sciences.
162..................... Purchasing Management 604
Occupations.
040..................... Occupations In Agricultural 574
Sciences.
074..................... Pharmacists................ 508
159..................... Other Occupations In 506
Entertainment And
Recreation.
------------------------------------------------------------------------
Technical Note: The Immigration and Nationality Act (Act)
assigns responsibility to the Department of Labor with respect to
the temporary entry of foreign professionals to work in specialty
occupations in the U.S. under H-1B nonimmigrant status. Before the
Immigration and Naturalization Service will approve a petition for
an H-1B nonimmigrant worker, the employer must have filed and had
certified by the Department a Labor Condition Application. The
employer must indicate on the application the number of H-1B
nonimmigrant workers sought, the rate of pay offered to the
nonimmigrants, and the location where the nonimmigrants will work,
among other things.
The Act limits the number of foreign workers who may be assigned H-
1B status in each fiscal year, however, there is no limit on the number
of job openings that may be certified by the Department. Historically,
the actual number of job openings certified by the Department each year
far exceeds the number of available visas. This excess in the number of
certified openings is due to a number of factors: extension of status
filings that are not subject to the annual cap; openings certified for
anticipated employment that does not transpire; or movement from one
employer to another (again, not subject to cap).
The occupational codes in the left-hand column represent the three-
digit occupational groups codes for professional, technical and
managerial occupations from the Dictionary of Occupational Titles
(DOT).
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[FR Doc. 99-21143 Filed 8-13-99; 8:45 am]
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