ED 095 361

TITLEINSTITUTION

SPONS AGENCYPUB DATENOTE

EDRS PRICEDESCRIPTORS

IDENTIFIERS

DOCUMENT RESUME

CE 001 924

Everything You Ever Wanted to Know About Manpower.National Association of Counties, Washington, D.C.Research Foundation.Manpower Administration (DOL), Washington, D.C.7336p.

MF -$O.75 UC-$1.85 PLUS POSTAGECooperative Planning; Coordination; EvaluationTechniques; Federal Aid; *Federal Legislation;*Federal Programs; Flow Charts; ManagementDevelopment; *Manpower Development; Manpower Needs;*Manpower Utilization; Performance Criteria;Performance Specifications; *Program Planning;Regional PlanningComprehensive Employment and Training Act of 1973

ABSTRACTA brief guide to the ftnew profession,' of manpower

planning (the allocation of very limited resources for the deliveryof a wide range of possible services), this report containsinformation about the Comprehensive Employment and Training Act of1973 (CETA) and serves as an outline, or planner's primer, formanpower planning. Eligibility for CETA, the services offered, andforbidden activities under the 1973 Act are discussed. The planner'sprimer covers topics such as problem analysis, the planner's staffand its responsibilities, developing a plan, charter for multi-countyconsortia (counties banding together with a charter detailingorganization and duties), manpower delivery, a manpower planningevaluation formula, a list of planning sources a logical sequence ofplanning steps, and a three-year staff output schedule. Flowchartsare included. (NH)

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WhatDoes

The LawSay?

Ihartmnt el I.ahor re gulat..te;will interpret and de e-rile. normal

pr. we.efee re.; tor impl,ineting I lacof the ( .mprchen :try I. mph vrrient .ntel

Training 4, t tg".; (.141 . But indevel..pe local pr. eeram. man

power plamicr: mu:f he firmly .1Zr.)ionif..1in the Iti Itegielati1 aml

guidelines can he challenged it a proposaladhere: t.% ti.. imrr, I po,lost.

Of law. e.g.. exe"ptit.ns granted ft,prime pistr,ors.

whal thc pllipou of tETA?

"... to provide job training and employment opportunities foreconomically disadvantaged, unemployed and underemployed persons,and to assure that training and other services lead to maximumemployment opportunities and enhance self-sufficiency. . . "Section 2.

State and local programs funded under Title I are designed". . to provide comprehensive manpower services throughout thenation. Such programs shall include the development and creation ofjob opportunities an the training, education and other servicesneeded to enable individuals to secure and retain employment at theirmaximum capacity." Section 101.

How !till it be twilit(' out?0

". . . by establishing a flexible and decentralized system of federal.state and local programs." Section 2.

Irbo is eligible for program serrit-es*

I. The "Economically disadvantaged" (Section 2), also called"low-income" persons. "'Low- income level' means $7,000 with respectto income in 1969. and for any later year means that amountwhich bears the same relationship to $7000 as the Consumer ?riceIndex for chat year bears to the Consumer Price Index of 1969,rounded to the nearest $1000." Section 601(a)(4). To compute, theequation is as follows: X CP1 1975

S7,000 CPI 19692. The "unemployed." Section 2. Basically. the "unemployed"

includes people without jobs who are available and willing to work.Welfare or social security recipients and the working poor are alsoeligible program participants, though they may not be takeninto account in making Title I or Title II allocations.Section 601(0121.

3. The "underemployed" (Section 2), who include the following:(A) "persons who are working part-time but seeking full-time

work;(B) persons who are working full-time but receiving wages beltA

the poverty level determined in accordance with criteriaestablished by the Director of the Office of Manwment ;adBudget." Section 60I(a)(11).

Irhat eligible participants should Lvt.special attention from the prim 5601100*?

".. . to the maximum extent feasible manpower services, includingthe development of job opportunities, will be provided to those most inneed of them, including low income persons and persons of limitedEnglish-speaking ability . ." Section 105(a)(1).

Title I defines no other special target groups, but other parts ofthe Act mention the following groups. They are therefore probablyincluded in the Congressional definition of "those most in need."

1. ". . unemployed persons who served in the Armed Forces in

SW COW AVMINK k

Indochina or Korea on or after August 5. 1964. . 2'Section 205(0(5 ).

2. ". .. unemployed persons who are the most severely disadvantagedin terms of the length of time they have been unemployed andtheir prospects for finding employment without assistance.. ."Section 205(c)(7).

3. persons who have participated in manpower trainingprograms. . ." but have no immediate job prospects.Section 205(c)(9).

4. ". youth, offenders, persons of limited English-speakingability, older workers. .." Section 301(a).

5. American Indians. Section 302(c)(2).6. Migrant and seasonal farmworkers. Section 303.7. "students from low income families. .." Section 304(a)(1).8. ". . . middle-aged and older men and women . .. who are un-

employed as a result of the closing of a plant or factoryor a permanent large - scale reduction in the work force of alocality. .." Section 304(a)(6).

it ,t .111 /..)t offt 141/

; hi, Ill

The local program may include, but is not limited to, the followingactivities from Section 101:

(1) "out reach. . ." or recruitment(2) **assessment of the individual's needs, interests and potential

referral to appropriate employment, training, or otheropportunities."

(3) "orientation, counseling, education, and institutional skilltraining. . ."

(4) "training on the job."(5) "payments or other inducements to public or private employers

to expand job opportunities. .. "(6) "services to individuals to enable them to retain employment,"(7) "payment of allowances to persons in training...(8) "supportive services .. . including . .. health care, child care,

residential support . .. bonds ... etc.(9) "development of information concerning the labor market ..

(10) manpower activities " . . . conducted by community-basedorganizations,"

(11) "transitional public service employment . . .

(12) "any programs authorized by part A of Title III and byTitle IV of this Act."

Part A of Title 111 includes programs for persons of limited English-speaking ability (Section 301(b)): for offenders (Section 301(c));for Indians (Section 302); for migrant and seasonal farmworkers(Section 303): and programs similar to Neighborhood Youth CorpsIn-School, Out of School and Summer. Operation Mainstream,Public Service Careers. Section 304(a)(1.7). Title IV a thorizes JobCorps Civilian Conservation Centers, men's centers and women's

centers.

( md, pim, ipoliNor thlioNt Pi 111011dt.

el 113 tllIX Of 11,0c Ncrl'h:e.%:

"The Secretary shall not disapprove any plan solelybecause of the percentage of funds devoted to a particu-lar program or activity. Section 108(c).

II Ali Lit t /tit% art forbielthri?

"... maintaining a pattern or practice of discrimina-tion .. . Section 108(d)(1). Also see Section 603(1)and Section 612.

"... incurring unreasonable administrative costs ... "Section 108(d)(2).

... failing to give due consideration to continuedfunding of programs of demonstrated effectiveness "Section 108(d)(3).

Public service employment activities must not displacecurrently employed workers, nor ". . . impair existingcontracts for services," nor substitute " . .. Federal forother funds in connection with work that wouldotherwise he performed . nor " substitute publicservice jobs for other Federally assisted jobs."Section 208(a)(1 ).

. . political activities." Section 603(2), Section 610."participants.. .will not be employed on the con-

struction. operation or maintenance of so much of anyfacility as is used or to be used for sectarian instructionor as a place for religious worship." Section 603(3).

"Persons shall not be referred for training in an occu-pation which requires less than two weeks of preemploy-ment training unless there are immediate employmentopportunities available in that occupation."Section 603(8).

No persons will he referred to institutional skilltraining or on-the-job training " unless the Secretaryor the prime sponsor, as appropriate, shall have deter-mined that there is a reasonable expectation of employ-ment .. . " Section 603(10).

No program will be offered " ... in the lower wagei-idustries where prior skill or training is typically not aprerequisite to hiring . Section 604(a).

No program will " . .. assist in relocating establish-ments from one area to another ... " if it results in

. an increase in unemployment in the area of origi-nal location. " Section 604(a).

"Acceptance of family planning services ... shall notbe a prerequisite to eligibility for or receipt of any -

benefit... " Section 604(b)."No non-governmental individual, institution or or-

ganization shall evaluate any program ... " if they are. . . associated with that program as a consultant, tech-

nical advisor, or in any similar capacity." Section 604(c)."Theft or embezzlement from manpower funds; im-

proper inducement." Section 611.

3

A Planner's PrimerOn It three years ago, state and local governments were first offered grants for man-

power planning. T he economists, social scientists and program operators hired by thosegovernments created the now growing profession of manpower planning, The results reflect

AO styles and capabilities as well as varying local situations. Successful plannersmay be flamboyant politicians, careful statisticians, solid grantsmen or just goodborsetraders. It is tempting to say that a successful planner should he a little of each.

The new element in 1971. of course. is the potential for truly decategorizedprogramming. :Although manpower revenue sharing has been discussedfor years, 1971 has seen the first efforts to carry it out in the ninepilot Comprehensive Manpower Program iCMP1experiments.The Labor Department, moreover, has given the go-aheadfor the creation of new CMPs. Anticipatingfurther development of this concept. theLabor Department recently offered operationalmanpower planning grants to 155 countieswhich have had no previous federal planningsupport.

Veterans in the st stem as well as newplanners will have to create their own localtorsion of the overall manpower system.They will no longer have the restrictionsor the excuse of categorical programlimitations. "Planning is no longerisolated. It can he assumed that a county"manpower director" will he responsible, notonly for current planning, but eventually

( .,,woul( d ,t,

Planner's

Primer

cont.

for a full operations staff as well. Planning whether conductedby a single individual or a staff of eight can no longer be confinedto setting conceptual priorities. The "manpower director" must becomeconcerned with organizational and fiscal problems that go alongwith the coming operational responsibility.

The rough outline for "manpower planning" that begins below andwill be continued on page 26 of this report assumesthat the county's new staff and particularly its director is a curegroup preparing for an operational manpower program. It draws heavily onthe three years' experience of pioneer manpower planners and theirprojections of changes to come.

I. Definition of Manpower Planning

Fundamentally. manpower planning is the allocation of very limited resourcesfor the delivery of a wide range of possible services. Central to this process is thedesign and coordination of a total local delivery system The planner's role is tostudy, recommend and persuade: final decisions rest with the elected official.

Planning can be divided into two different, but closely related, kinds ofactivities:

A. Problem analysis includes the resolution of four basic issues:

I. Because the need tin manpower services in virtually any communityvastly exceeds the available resources, the planner must recommenda solution to the problem of who, among those in need, will actuallyreceive services. While most planners seek a middle ground in resol-ving this issue, there are two opposing approaches:

a. Equity. Services should be divided among all geographic and/ordisadvantaged groups of people in proportion to their needs.

b. Impact. One or two high priority groups should he selected,based on need and program operators' special abilities. All

manpower resources should then he directed to the specialtarget group in hopes of substantially altering the problem.

(Continued on page 23)

BEST CO AVAIL BLI

A decisive period of planning for manpower reve-nue sharing (MRS) has begun. Operational manpowerplanning grants have recently been offered by the De-partment of Labor to counties with population over150,000 (exclusive of any city of 100,000). Thesegrants provide funding for from two to eight staffpositions, depending on the size of the jurisdiction. Anumber of planning activities are mandated:

-Inventory and review of existing manpower pro-grams

-Cooperative planning with allied manpower agen-cies

-Participation with the Comprehensive AreaManpower Planning System (CAMPS) staff in area.wide planning activities

-Exploration of multi-jurisdictional arrangementswith adjacent jurisdictions

-Planning for consolidated, decategorized pro-gram operations and designing an appropriate deliverysystem

-Cooperative planning with state manpower plan-ners

-Development of local priorities-Staff recruitment and developmentCounties now have the opportunity, under this re-

cent funding, to prepare for the sponsorship of man-power programs that will take place under manpowerrevenue sharing. The transition to decategorized pro-grams requires substantial preliminary planning, Theplanning staff should first have an accurate picture ofarea population and employment, as well as the exist-ing network of manpower resources and service deliv-erers. Because decision-making responsibility will fallto the elected official under MRS, the major task ofthe manpower planner will be to serve that official aspolicy advisor. A comprehensive information basewill enable the planner to justify and/or defend hisrecommended allocation of resources.

A planning capability developed prior to MRSwill facilitate cooperation between the county man-power programs and the many other agencieswhich are involved in the manpower/human servicesarea. Institutions such as the Employment Service.and the Departments of Education. Vocational Edu-cation and Vocational Rehabilitation will not be di-

6

rectly affected by the shift to MRS. Contacts madewith these agencies at an early stage of planning willnot only benefit the planner, but will enhance thesuccess of the program itself after implementation.

Confronted with new responsibilities, and pro-vided with an unprecedented opportunity to res-pond, how then should counties proceed?

staff responsibilities

During the planning period, the staff should ulti-mately recommend a system of manpower resourceallocation to the elected officials with decision-making authority.

Whether he or she works alone, orthe heads up a specialized staff of eight,director one person must be given full-tiMe

responsibility for directing the workof the planning staff. As the person who recommendsthe allocation of resources and alternative programapproaches to the decision-making body, the directormust be able to gain the confidence of locally electedofficials.

He must be able to tie the manpower program tothe agencies in the area with interest in the manpower/human resources field. Unlike other informa-tion gathering functions, establishing the network ofgovernment and community relations is one taskwhich must be performed by the planning staff itself;it can not be left to the efforts of others.

Continuing involvement of the planning director iscritical to the success of the planning effort. Many ofthe existing players in the manpower game will feelthreatened by the shift from categorical programs toMRS. The planner must work with them from thebeginning. He can not afford to ignore their experi-ence in the manpower field. As the majority of jobsin any community are in the private sector, businessand labor have significant contributions to make.Their participation in the planning process should beenLouraged by the planning director. The success ofthe decategorized program will largely depend on thedirector's ability to pull together and coordinate theefforts of all kinds of players and resources.

(Continued on facing page)

A plann fer,s:ta7Noos.

con t.Because counties are relatively new

umbrella entrants to the manpower game,agency many will have an opportunity to

establish a single planning office.The universe of need will always be larger than the re-sources available to provide services, and duplicationof efforts and competition among service providersonly dilutes the impact of the programs. In manycases, counties are in the fortunate position of beingable to "start from scratch," and where they have thisluxury, care should be taken to avoid harmful com-petition and duplication.

The variety of skills needed to di-who rest an operation as complex andto select as politically sensitive as a com-

prehensive manpower program cannot be found in any personnel manual. What isneeded is a combination of charisma, dedication andluck. Although the director does not have to be fromthe area, he must be able to sense the pulse of thecommunity quickly. He should have a background ofdealing with the government and with communitybased groups, and should combine the skills of policyadvisor and salesman.

Although this is not a "political" position, theplanning director must be a "politician" in the bestsense of the word. He must be someone woo canreact to many sources of pressure and decide on acourse of action which is acceptable to a variety ofinterests while not compromising the goals of the pro-gram.

Since the DOL operational manpower planninggrants authorize an average of $15,000 annually foreach staff position. many counties may wish to con-sider supplementing the salary of the staff directorwith their own funds. They may wish to combine slotallocations to pay higher salaries to fewer people. Itwill not be easy to find an individual with the exper-tise needed for the position of planning director whois willing to accept the relatively low salary levelsallotted by the planning grants.

The director, in all but the one-manthe planning office. will he supported by fromstaff one to seven staff members. During

the planning period. the staff shouldconcentrate on information gathering and analysis t.

determine the needs and capabilities of the popula-tion, the current and predicted labor market, and theexisting network of programs and service deliverers.The testing of various allocation schemes and pip-gram alternatives on the collected information balewill permit the staff to arrive at their recommenda-tions for the decision makers. Staff should directtheir efforts at two major areas:

Labor Market /Population Information: Primarilythe work of an economist, this job entails the identifi-cation of social and economic trends governing thedevelopment and utilization of manpower resourcesin the area. Alternative strategies must also be devel-oped to promote optimum utilization of these resour-ces. Employment projections and demographic analysesand comparisons will enable the planning staff to sup-port their "gut feelings" about their area with harddata. A variety of existing information sources can betapped to provide this information. (See "A Planner'sLibrary" page 18.) In addition, any existing datacompilations or analyses by groups such as RegionalPlanning Comiyassions should be used to avoid repeti-tion of previous efforts. Counties should recognizethat the eye of Washington will continue to focus onthe local level after revenue sharing is implemented;they should be willing and able to justify their fund-ing decisions with solid statistical analysis.

Program Information, Monitoring and Evaluation:The planner's most important product will be the de-sign of a delivery system of training and support tomeet the manpower needs of the area's po?ulation.To do this, the planning staff must acquire consider-able knowledge about the existing network of man-power program operators and of resources availablefrom other human service agencies. The planner willrecommend not only services, but service deliverers aswell, and, in order to do this, he needs to evaluateexisting deliverers who might provide services to thecounty manpower program.

An inventory of resources available from otheragencies will facilitate the establishment of linkagesamong programs for a comprehensive system of ser-vice delivery. Wherever possible, the manpower pro-gram should use its money to provide those serviceswhich can not be obtained from existing agencies.The planner should collect information about cate-gorical programs that will phase into MRS and onrelated programs w.nich will not be brought underlocal sponsorship. He then will be more qualified todecide which services the program must provide,which should be acquired from other agencies, andwhich service deliverers he should recommend forsub-contracting.

By developing a detailed questionnaire for man-(Continued on page 34)

7

Developing

A Plan

8

An employability plan describes acourse of action developed jointly bythe manpower program enrollee andthe employability team (made upessentially of the counselors and jobdeveloper.). The plan states, cleatlyand concisely, the long and short rangeemployability goals the enrollee andthe steps necessary to implement theplan. These include the mix of skilltraining, work-experience, education,and supportive services that enable theenrollee to achieve his or her employ-ability goals.

Listed below are the five maim steps,intake, orientation, training, place-ment, and termination that will henecessary for most enrollees to gothrough in the process of implementingan employability plan. The process ofdoelopig an employability plan withan enrollee does not occur with theteam having just one contact withhim. but rsr continuous developmen-tal process. It is imperative that theenrollee he actively invoked in thepreparation of his employability plan.

Step One:The following occurs at intake:a. An assessment is made with the

enrollee to determine the consistencybetween his vocational goals and ob-jectives and his social, emotional,educational, and vocational skills andabilities.

h. If there is such a consistency asin item "a" above, then available jobsare discussed with him.

c. Theenrolleeindicates a preferencefor a position which meets his voca-tional goals and objectives, as well asone which he has the skills andabilities to perform.

d. The job developer describes theenrollee to the employer, rendering tothe employer valuable support regard-ing the enrollee's background.abilities,skills, as a means of insuring a success-ful placement.

Step Two:If theenrollee is found not to be job

ready and is placed in orientation, thefollowing occurs:

a. He attends classes dependingupon his specific needs, to gain know-ledge of himself and the world ofwork.

h. lie is exposed to an extensiveassessment piocess that may include:

I . standaidind tests(;ATB. NATB, Minnesota Interest In-ventoiy, ABLE, etc.);

2, work-sample techniques;3, observations by the team

menthe's, the teachers, and °ther em-ployees:

la) his relationship with staffmenthe' s:

(h) his relationship with otherenrollees;

(c) assessing the obstaclesthat the enrollee will have to overcometo be gainfully employed:

(d) determining the needs foradditional support services from othercommunity agencies;

4. discovering his interests, asthey relate to the world of work andto himself:

5. utilization of records and in-formation from other agencies.

c. The counselor and other mem-bers of the team have contact with theenrollee during the orientation pro-cess, utilizing the assessment datagathered and local labor market infor-mation to assist the enrollee to gaininsight into himself.

d. Towards the end of the orienta-tion period, one or more case con-ferences are held. All members of theteam attend the conference, utilizingall knowledge gained from and aboutthe enrollee during orientation. Thedata are used to develop Options forthe enrollee's consideration. Duringthe process of the case conference, theteam members will determine the nextappropriate action by them with theclient in light of the options developedfor his consideration.

e. If community agencies are assist-ing the enrollee, it is advisable toinvolve them in the case conference.

f. After the team meets, a con-ference is held with the enrollee '.y atleast one member of the team. Duringthis conference the options that havebeen developed in the case conferenceare offered to the enrollee for hisconsideration. This allows him todevelop insight concerning his skills,his abilities, and the obstacles as theyrelate to each option. The enrolleewith the assistance of at least onemember of the team, usually the coun-

(continued on page 14)

LANGUAGE

D.

ARDM - Assistant Regional Directorfor Manpower. Regional ManpowerAdministration executive officer.

Area of Substantial Unemployment -an area with an unemployment rate inexcess of 6.5%.

Balance of State those areas under astate, rather than a local primesponsor's jurisdiction.

CAA - Community Action Agency."CAP." Local War on Poverty office.It often sponsored NYC, CEP, andMainstream projects in the past.

CAMPS Cooperative Area ManpowerPlanning System. ..revious vehicle forlocal input into federal manpowerplanning.

CEP - Concentrated EmploymentProgram. Local projects which usemultiple approaches (counseling, basiceducation, OJT, etc.) forpreparation and placement.

job

CETA - Comprehensive Employmentand Training Act of 1973. Law whichreorganizes national system of jobservices to economicallydisadvantaged, unemployed andunderemployed. title I authorizesflexible bloc grantsto localgovernments of 100,000+ population.Title II provides special public serviceemployment funds for aim with morethan 6.5% unemployment. Title IIIauthorizes migrant, Indian, youth andother special national manpowerprograms through the Secretary ofLabor.

CMP - Comprehensive ManpowerProgram. Pilot project in selected sitesduring FY '74 to test decentralizationand decategorization concepts.

Community-based OrganizationsOrganizations which are representativeof segments of the community andwhich provide manpower services (forexample, OpportunitiesI ndustrialization Centers, Jobs forProgress, Mainstream, and CommunityAction Agencies).

Comprehensive Manpower Plan - Theprime sponsor's annual statement ofgoals, objectives and procedures for allmanpower programs under itsauthority. It is also the basis formeasuring P S performance.

Consortium Incentive - additionalgrant (bonus) for jurisdictions jointlyoperating manpower programscovering a substantial part of a labormarket area. (There must be at leastone eligible prime sponsorparticipating in the group.)

Decategorize - to remove regulationsand restrictions from federal funds.

Decentralize to return federal

program controls to local government.

DOL Department of Labor. Federalagency in charge of most manpowerprograms through its ManpowerAdministration (MA).

ES Employment Service (part ofState Employment Security Agency).This state agency runs parts of manymanpower programs, especiallyreferrals and selection of clients.

GAR - Government AuthorizedRepresentative. Your localDepartment of Labor grant officer andrepresentative. Works for the ARDM.

HEW - Department of Health,Education and Welfare. A federalagency responsible for many social andmanpowerrelated programs.

Hold-Harmless a minimum amount offunding, based on a percentage ofprevious year's allocation, which allprime sponsors receive. For CETA,90% of the previous year's money isthe hold harmless level.

Institutional *Pining - Job training,counseling, basic education, etc., givenin a classroom situation.

JOBS Job Opportunities in theBusiness Sector. OJT and jobsarranged by private business.

Labor Market an area within which aperson can ordinarily change jobswithout changing residence.

Manpower - activities (counseling,training, work experience, etc.)designed to place people in jobs or toimprove .the job opportunitiesavailable to them.

(Continued on page 10)

9

N

ER LANGUAGE

Manpower Allotment - Prime sponsorfunding level under Title I.

Manpower Services Council - new stateadvisory body created by CETA tomonitor and coordinate manpower ineach state. One-th :d of membershipmust be representatives of primesponsor local governments.

NAB - National Alliarute ofBusinessmen. Works with JOBS.

NYC - Neighborhood Youth Corps.Work experience and trainingprograms for young people.

OJT - On-the-job training.

Older Americans Act authorizes jobsfor senior citizens through nationalorganizations (e.g.. Green Thumbprojects).

OM . Operation Mainstream. Offerswork opportunities for unemployedadults aged 22 or olderbut mostparticipants are 55 or older.

Prime Sponsor - the unit or consortiaof units of government which receivefunds from DOL to implementmanpower programs. The PS canoperate manpower programs throughits own agencies and sub-contract withothers to deliver services.

10

Program Agent jurisdiction of morethan 50,000 population authorized torun Public Service Employmentprojects under CETA prime sponsors.P A 's must contain areas above 6.5%unemployment to qualify under TitleII.

Program Operating Plan (POP) - areporting form which summarizesprime sponsor expenditures,enrollments and client outcomes(successful or unsuccessfulterminations).

P.S.A.C. - Prime Sponsor AdvisoryCouncil - mandatory local policyadvisory group for prime sponsorsunder CETA. Should include business,labor and client representation.

Rehabilitation Act authorizes statevocational rehabilitation agencies toassist physically and soc:allyhandicapped persons interested inreemployment.

Social Security Act - authorizes WIN

Supportive Services - Transportationassistance, day-care, health care, etc.,in support of work training.

Underemployed - working full or parttime, but with inadequate income.

O . 1E16 :lb 40

CONTINUED

Unemployed - for Title II of CETA -out of work for 30 days.

Unit of General Local Government -for CETA a political subdivision withgeneral corporate and police powersand authority to levy taxes and spendfunds.

Wagner-Peyser Act - authorizes theEmployment Service.

WIN - Work Incentive Program.Authorized by the 1967 amendmentsto the Social Security Act,administered by the DOL. Provides jobplacement and training for members ofAFDC families. Referrals and supportservices are provided by welfareagencies.

YCC - Youth Conservation Corps -

special jobs for youth in nationalforestlands during the summer.Funded through USDA.

Consortium:Intergovernmental relations in practice

.?: ": :

Laming Tn.-Comm) Ifianpoluer artaPlanning Council Cliatter

bereasit the Congress of the ('nited States has enacted many programsdesigned to meet the complex of manpower problems and human resource developmentneeds of this nation; and

rrrag, these programs cannot be fully effective without interagencycoordination because these plans cut across departmental and .agency lines both inthe Federal sector and at the State and local levels; and

Tinerris t the City of Lansing%fichigan, and the adjacent Counties of Ingham,Eaton and Clinton desire to improve and coordinate the manpower planning of theLansing Tri-County area, therefore be it

ehthat the City of Lansing and the Counties of Ingham, Eaton andClinton hereby jointly establish a Atavower Area Planning Council to be governedby the following .4 rticks.

adult 31This organization shall be named the Lansing Tri-County Manpower Area Planning

Council. Its jurisdiction shall he the Tri-County Regional area which shall include the Cityof Lansing, Eaton County, Clinton County, and Ingham County, Michigan,

Zirtitte 301The powers of the Lansing Tri-County Manpower .4rea Planning Council shall be:I. To study the local area weds in the manpower sector and to establish recommendedpriorities that are relative to those needs.2. To assess local resources and programs so that it truly determine which local need;are now being met.3. To assist all local agencies in their nianning and to effect all necessary coordfqationof their activities, plans and programs.4. To develop an overall area plan which would have for its mirsion provisions tomeet area 'welt:.5. To develop and coordinate year-around planning for summer ;nuth programs.

(Continued on page 12)

11

6 tS1 COS giblata

sub.councitc to include a Sub-Council: Information Services; Sub-Council: Educational

Sub-Council: Youth Development.Development; Sub-Council: Evaluation and Analysis; Sub-Council: Supportive Services;

responsible to the Policy Committee.

Additional sub-councils may be created and abolished by the Policy Committee.

The organization shall consist of a Policy Committee, a Planning Council and five (5)

The Planning Council and the sub-councils shall operate under the direction of and be

article 31.11313

No manpower plan for the Lansing Tri-County Regional Area shall be adopted,amended or repealed, except by the two-thirds majority vote of all the regular membersof the Policy Committee.

The Policy Committee shall in all respects be the governing body of the LansingTri-County Manpower Area limning Council, except as may be expressly otherwisestated in these Articles.

article 31The regular members of the Policy Committee shall be the Mayor of Lansing or his

designee, the Mayor Pro-Tem of Lansing or his designee, the Chairman of the InghamCounty Board of Commissioners or his designee, the Chairman of the Eaton CountyBoard of Commissioners or his designee, the Chairmen of the Clinton County Board ofCommissioners or his designee, and the Chairman of the Tri-County Regional PlanningCommission or his designee; provided, that the Boards of Commissioners of said Countiesand said Regional Planning Commission may each by resolution determine upon adifferent method of selecting their respective member or designee.

There shall be such advisory members of the Policy Committee as it shall appoint toserve at its plea.cure. Advisory members shall have all the rights of regular members exceptthe rights to make motions and vote.

article isEach member or his proxy has the responsibility to attend, empowered with full

authority to participate at all meetings.

articieThe Policy Committee shall determine upon the location of the principal office of the

organization. The secretariat and staff, including the Manpower Coordinator, shalloperate under the direction of and be responsible to the Policy Committee and itsChairman, The decisions of the Policy Committee shall be binding.

article 1Y3131The Policy Committee shall establish the procedures by which all meetings are called.

article r313131The Mayor of the City of Lancing or his designee shall be Chairman of the Policy

Committee, preside at all meetings and have such other powers and duties as the PolicyCommittee may determine by majority vote.

.1 quorum for the purpose of holding a meeting of the Policy Committee shall be atleast one-third of the voting members.

.4 two-thirds vote of the voting members present shall be required to pass a motionexcept where expressly otherwise required by these articles.

Rules of Order shall follow the parliamentary procedures of Roberts' Rules of Order.

12

BEM COPS MAKABLE

The members of the Planning Council shall hn appointed by the Policy Committee tosem three-year terms, in accordance with the following principles:

1. Generally. Membership should be representative of the broadest spectrum of interestin the area.2. Client Sector Representatives. These council members should have the confidenceof the communities from which they are chosen and include manpower programclientele.3. Agency Sponsor Representatives. These council members will be chosen fromamong and be reprrsentative of the vendors of manpower and supportive services andshould be at a decision making level, competent to make commitments on behalf oftheir organizations.4. Business /Labor Sector Representatives. These council members will be representa-tive of business, labor and the general public and social welfare organizations, asappropriate, selected to insure a wide range of expertise in areas related to themanpower field.

.4 member is in good standing when his or her name has been approved by thePolicy Committee. The term of appointment shall be three years.The Chairman of the Planning Council or his designee shall preside at all meetings,

have general and actual management of business required by the Chairman and the PolicyCommittee: be general supervisor of all plans, programs, projects, and reports required.The Chairman and the Manpower Coordinator shall have the responsibility of prepar: tgthe agenda.

The Secretariat and staff of the organization, including the Manpower Coordinator,shall have the following did ties in addition to such other duties as the Policy Committe,may de wrmine by majority vote.

1. Shall be responsible for maintaining liaison with the Federal offices, State officerand all agencies involved in the areas of manpower planning and represent theCommittee at all necessary meetings.2. l'rovide technical assistance, training and management support whenever needed andimprove program operations, eliminate duplication and overlap and achieve maximumefficiency in the use of total manpower resources..3. Provide background data needed by members of the Policy Committee or PlanningCouncil and serve as a major sourc of continuity in MAPC operations.

2rticteThere shall be from time to time sub-committees and task forces appointed as required

by the Policy Committee.

article NilsThese Articles may be amended by mutual agreement of the City of Lansing and the

Boards of Commissioners of Ingham, Eaton and Clinton Counties.

artitit 3E331These Articles shall be effective upon their adoption by the City of Lansing and the

Boards of Commissioners of Ingham, Eaton and Clinton Counties, and upon the writtenapproval of the Michigan and Federal manpower authorities expressly confirming that nomanpower plan for the Lansing Tri-County Regional Area will be recognized by themexcept thence adopted according to these .4 rticles.

13

Dokelopitv,Continued

selor, determines which option wouldbe most appropriate to meet his voca-tional goals and objectives.

BES1

Step Three:Once the enrollee enters a com-

ponent either with or in lieu of orien-tation, the following occurs:

a. The team members continue towork individually with the client.

b. During the time the enrollee is ina specific component his broad voca-tional goals and objectives will becomemore specifically defined. It is possi-ble, as a result of being in a specificcomponent, for the client's primevocational goals and objectives to bemodified or changed.

c. While the enrollee is in thecomponent the team may feel thenecessity to hold case conferences todetermine his progress,his needs.and todevelop additional options for his con-sideration.

d. If community agencies are offer-ing additional support services to theenrollee, it is recommended that theybe involved in the case conference.

e. The team may feel that it would.ae advantageous to include employeesfrom the component in the case con-ference.

f. After each case conference, theoptions developed for the enrollee'sconsideration are discussed with himby at least one member of the team.The enrollee with the assistance of atleast one member of the team, usuallythe counselor, determines which op-tion he will pursue.

Step Four:Once the enrollee is employed the

following occurs:a. Employment does not mean the

enrollee has completely met his primevocational goals and objectives. Em-ployment may be one step towardattaining them.

h. A determination should be madeby the members of the team with theenrollee as to the need for furthertraining, education, and support ser-vices that will he needed for him tomeet his vocational goals and objec-tives.

c. It may be necessary after theenrollee is employed for the team tocontinue to meet in his behalf.

d. After each case conference theoptions developed for the enrollee'sconsideration are discussed with himby at least one member of the team.

14

AVAIIABLE

MANPO ER DELIVERYThere is general agreement among

people in the field on the elementswhich form the basis of a manpowerdelivery system. To assist individualsso that they can obtain, keep, andadvance in jobs which pay salariesequal to their needs and abilities isone. The other is to make available askilled work force that fulfills theneeds of the local economy.

With employment as the primarygoal, a manpower system emphasizesplacing individuals in suitable jobsaccording to their needs without dis-crimination because of race, color,religion, national origin, age, or sex. Increating employment for these in-dividuals I) jobs must be developedand employers persuaded to hire peo-ple receiving assistance from the man-power system; 2) job entry require-ments need to be modified in order toopen more employment opportunities,particularly for the disadvantaged; 3)employees should be upgraded

through training and promotion inorder to build career ladders and tocreate more entry level jobs; 4) newjobs must be established througheconomic development and public ser-vice employment; 5) incentives needto be provided to employers to hire,train and upgrade more disadvantagedpersons. This is shown pictorially inFigure 1.

Many of those desiring employmentneed skill training to qualify for work.There are several entrees to a jobthrough skill training which include:

1) Training new employees at theplace of work through on-the-jobtraining (OJT);

2) Providing skill training prior tojob placement that is linked toemployment opportu..ities;

3) Providing work experience eitheras direct preparation for a job orcombined with skill training; and

4) Providing basic education, a(Continued on lacing page.)

Figure 111,With the aid and assistance of at toastone member of the team, usually thecounselor, the enrollee decides whichoption he should pursue.

Step Five:Terminationa. The employability plan will be

terminated when the enrollee's skillsand abilities become consistent withhis final vocational goals and objec-tives.

As each step progresses, the record-ing of the enrollee's p: ogress andreasons for any changes in the planshould be made. In recording informa-tion the following should he consider-ed:

1. It is most important that contactby the team members with the en-rollee be recorded and an indicationmade by the person doing the record-ing.

2. In entering information into theenrollee's folder it is very important toinclude enough detail whereby theother members of the team will beable to determine what has happenedto the enrollee.

3. All else conferences should herecorded, giving a brief summary ofwhat took place, those present, theoptions developed, and the future in-volvement of the individual teammembers with the enrollee as a resultof the case conference.

LI

G.E.D. course, or English as a secondlanguage (E.S.L.) to complement askill training/work experience mix.

The type of training offered shouldbe determined on an individual basisand occur at a point of time when it isneeded by th.: trainee. The diagram inFigure 2 illustrates this mix.

Many individuals are successful infinding jobs or at least seek the train-ing necessary to prepare them foremployment. Some, however, needassistance in job placement. Others,excluded from employment by lack ofskills or general discouragement, needto be sought after and recruited. It isthe latter group that is dependent onthe services that a manpower systemprovides.

Once individuals are recruited, theprocess of interviewing, testing, assess-ing individual potential, counsel-ing, orientation, referral to training orjobs evolves. The process is pictured inFigure 3.

The follow-up function forms thelast step in a manpower system. Thismay mean visiting those placed in jobsat intervals of one, four, seven, and tenmonths during the first year and there-after tracing their progress to deter-mine if additional services are needed.Figure 4 illustrates this function.

Supporting the chain throughwhich a manpower system operates isa variety of services which include:

1) the provision of "coaches" whocounsel informally, arrange transporta-tion needs to and from training andjobs, and follow-up with necessaryservices;

2) Supplying basic services such aslegal aid, day care, financial planningand assistance, consumer education,family counseling, health aid, etc.;

3) assisting individuals to find im-proved transportation or suitablypriced housing and to help familiesrelocate near areas of employment;

4) develping efficient fiscal and

personnel management, which includescoordination of programs, staff train-ing and a current information system;and

5) calling on agencies and interestedgroups to form manpower policy.

The total process for a manpowerdelivery system is shown in Figure 5.

0411100815-sts

Figure 2

-111111-1:-.11-111111

Firm 3

:t. IF 11 1 . 1. %. it. ; . if

! . r " : , I).

Figure 5

111-wirmi

Figure 4

r -1 r --1 r 1I Job I 1 Job : l Employee :

i i iFinding 1 Creation i Upgrading iL. .J ir .J L- .1

I I iI I I

I Job I

'Modification'L dab I1 MI M.

ra.I Equali'Opportunity!I.-- --......J

r-- --Ii1 Employers' II Incentive I

SUPPORTIVE SERVICES: ADMINISTRATION POLICY

Coaching Legal Aid Fiscal PlanningDay Care Consumer Protection Information System OperationHealth Financial Acsistance Staff Training Evaluation .

Transportation Housing Relocation Personnel Funding

15

Every year the elected officialfaces hard decisions. He or shemust apply limited funds to un-limited problems. Determining ap-propriate finding levels for man-power programs is one of thesedecisions.

New York City's ManpowerArea Planning Council (MAPC)has developed an evaluating modelfor use in the manpower planningprocess. The City, in preparing itsComprehensive Manpower Plan forFiscal Year 1973, found that dataPr evaluating the performance ofprograms conducted in the pre-vious year were clearly lacking..4 performance wing system wastherefore devised to test all man-power programs used in the City.

.4s a note of caution, anyMAPC staff considering the adop-tion of a similar system should becareful to include members oftheir policy-making or advisorybodies in every step of develop-ment.. The New York MAPC'sSubcommittee on Program As-sessment was involved from thebeginning in defining assessmentcriteria. The Executive. Commit-tee made pertinent suggestionsand revisions, and the full MA PCmade raw suggestions beforereadoption of the scheme. It wasthis participation in the develop-mental process that insured theacceptance of the operational va-lidity of the PerfOrmance RatingSysten..

tht c).stern

By applying New York City'sMAPC Performance Rating Sys-tem, the operating data of bothinstitutional and on-job trainingcan he summarind to reveal therelative effectiveness of individualprograms. Program results can hemeasured against a number ofdifferent assessment criteria as

listed on this page. These criteriaare weighted on the basis of their

(Continued on facing page)

16

COVItklMIAS

Formula for EvaluationMiiiiMiiiMMMIIMEMMOMMOMMEMMONIMI

By Elwood Taub and Don Mezi

PERFORMANCE CRITERIA

1. Employment Rate (Ida** weight 4): The percentage of totalenrollees who obtain =subsidized employment after tunpieting all :publicly funded phases, of mining. (Total enrollment AVMs areadjusted to take =mug of any. "carry-over:" of trainees at thebegbudng and end of the assessinent period.),

2. Follow-Cp Rate (rdative wdght 16): The : percentage. ofprogram complaten effectively contacted to mastill their .amPlOy-meat status approximately three months after complatite.

3. Retention Rile. (rela(hit weight T. 36): The percent*, or..placements who are catilmusd as still emplord (either by litelrodglatkemployer or another ams) 90 days after placement.:

4. Memo Pod:Praising Ws, rs. Compared to OO ranietY Olden'for a Family of Four (tele** isdglit .1): The patient by which themedian post-trainbig Wage exceeds the OFDPovesty Index fa a farnilyof four (currently $4300/Yea If the mean patter iniSehi leathan this amount, points would be subtracted rather than add*

S. Tart =hoop Index (telethe weight 2): rA coMpOitCilidexgiving the average percentage enrollment of . those MA tartcategories for which data (or reliable estimates) ari

6. Mind versus Flaimal Perfesmenee Weave *44 2):. The .

program's actual plumes= as a percentage of odsinally plannedplacements. Where placement objectives woe- not odginilly specified,actual versus planned enrollments (cumulative or swap) May be Used.Where distdbution of paychecb is a Ornery object (a4, .

and In-School Neighboshood Youth Caps) actual yenta biActild.

enrollee costs may be used. .

r'

Note: The weighting scheme Prey adopted. represents a comproulitebetween the original factor weights and the mat* Imposed by thelack of some factor' Specific*. thase itreighttatiadre.d to firROWIIPretention were reduced to avoid penalising minims becatiseaf alga.of data rather than poor perfonnance. Once adetpurteibilow.tip and re-tentkm information retrieval systems are in place, the factors will begiven more weight. Other changes may be made as experience is accu-mulatal

The following abbreviations are usedthroughout:DOL U.S. Department of LaborOJT On-Job-TrainingJOP Jobs Optional ProgramWIN Work Incentive ProgramNYC Neighborhood Youth Corps(00$ Out -of- School)PSCP Public Service Careers ProgramJOBS Job Opportunities in theBusiness SectorMDTA Manpower DevelopmentTraining Act (Institutional)MCDA Manpower & Career Develop-ment Agency (Dept. of Employment)NYSES New York State Employ-Merit Service

relative contribution to theMAPC's overall definition of man-power program performance. Forexample. the relative weight ap-plied to the employment rate is 4.A program's performance on eachcriterion except unit cost is thenmultiplied by the weight attachedto that criterion. Effectiveness canrange from zero to a theoreticalmaximum of 100 percent. Usingour employment rate exampleagain. that figure 4 would bemultiplied by a figure from zeroto 100 that represents the effec-tiveness of the program.

The total points obtained byeach program are then compared tothe maximum possible points11000) theoretically attainable bya program with a 100 percentrating on every performance indi-cator. The 1000 possible pointsare obtained by multiplying therelative weights of the perfor-mance criteria times 100:

4 X 100 = 400V: X 100 = 50!'2. X 100 = 501 X 100= 1002 X 100 = 2002 X 100 = 200

Total 1000The result is a preliminary Effec-tiveness Rating, expressed as theprogram's pexentage of the maxi-mum attainable performancepoints.

A program's effectiveness is de-fined as the percentage of themaximum attainable percentagepoints on the above criteria thatare actually received by the pro-gram. A program receiving a totalof 750 points would receive anEffectiveness Rating of 750/1000or 75 percent.

cost factor

Each program's EffectivenessRating is then multiplied by aCost Factor. The Cost Factor re-duces the Effectiveness Rating bya fraction determined by the pro-gram's average cost per placement.The result is an overall Perfor-mance Rating that takes into ac-count both the results and thecosts of manpower training pro-grams.

The Cost Factor (F) has beendefined in such a way as to reduceany program's Effectiveness Rat-ing by 1/20 for each $1000 in itscost per placement. The actualformula for calculating the CostFactor is:

F Average Unit Cost$20,000

MAPC's eleven target categoriesare: prison inmates and ex-offenders:ex-narcotics addicts: welfare recipi-ents; youth (under 221; older men andwomen (over 45); veterans: high schooldropouts: the working poor and under-employed; heads of households; non-English speaking persons; and thephysically handicapped or mentally re-tarded.

A technical adjustment to the Tar-get Group Index is made allow forthe fact that it is impossible to enroll 100percent of both youth (under 22) andolder workers (45+1. This makes ittheoretically possible to obtain 100percent on this index, provided that allenrollees had multiole disadvantagesallowing them to be classed in everyMAPC target category.

stsi vii°°A

A program costing $10,000 perplacement would have its Effect-iveness Rating reduced by half.

10,000 . 0.520,000

A similar program operating at aunit cost of only $1,000 perplacement would receive 19/20 or,95 of its Effectiveness Rating onthe Performance Rating scale.

performance rating

Once the Cost Factor has beenapplied, a program's performancerelative to other programs withsimilar overall objectives can beascertained. As in the case ofeffectiveness, the theoretical max-imum performance rating is 100percent. This high a rating couldonly be obtained by a programthat enrolled only persons withmultiple disadvantages (handi-capped veterans who were alsohigh school drop-outs, on welfare,either under 22 or over 45. etc.),placed them all in unsubsidizedjobs paying at least $8,400 annu-ally, conducted follow-up onthem all and made sure that theyhad 100 percent retention on thejob for at least 90 days. met 100percent of its planning target, andaccomplished all this at zero costto the taxpayer. In practice, rat-ings of 50.60 percent representthe maximum observed Perfor-mance Rating among major De-partment of Labor administeredprograms in New York City.

(Continued on page 20)

17

The following list of planning sources is included here as a reference.This information was compiled by the manpower planning staff of theNorth Central Texas Council of Governments. An asterisk indicates thosedocuments considered to be essential to the planner's job.

USEBasicreferenceson nationalmanpowerpolicy andrecentdevelopmentsin manpoweror specificprograms

TITLE*Manpower Report of thePresident (yearly)

Manpower Data SourceHandbook (1 issue)

Manpower TechnicalExchange (semi-monthly)

PEP Talk: A TechnicalBulletin on the PublicEmployment Program(monthly )

Grant and Contract StatusReport (monthly)

Congressional Report(weekly)

Economic OpportunityReport (weekly)

*Manpower InformationService (bi-weekly)

Manpower InformationService -- Project Listings(monthly)

Manpower InformationService Reference File(monthly)

Community ManpowerServices for theDisadvantaged, byFrank C. Pierson (1 issue)

SOURCEU. S. Department of LaborManpower AdministrationOffice of Information

same

same

same

Dept. of Health, Education,& Welfare

Nat'l. League of Cities/U. S.Conference of Mayors

Office of EconomicOpportunity

Bureau of National Affairs, Inc.

Bureau of National Affairs, Inc.

same

Upjohn

USEBasic

referenceson nationalmanpowerpolicy andrecentdevelopmentsin manpoweror specificprograms(continued)

TITLEManpower and VocationalEducation Weekly (weekly)

Vets Reveille (bi-monthly)

Behavioral SciencesNewsletter (bi-weekly)

JACS Volunteer(vignettes on Job Corpsactivities) (bi-monthly)

New Human ServicesNewsletter (quarterly)

County News (weekly)

*County Manpower Report(bi-monthly)

*Manpower SpecialAnalysis of the Budget(FY '74) (yearly) ,

Demographicinformationfor analysis ofpopulationneeds andcharacteristics

ig

Employment Profiles ofSelected Low-Income Areas

1970 Census ofPopulation and HousingCensus Tracts (one issue --order as needed)

Current Population Reports(monthly)

Census DemographicInformation on Counties in(State)

*Annual Manpower PlanningReport (AMPR) (yearly)

SOURCEIEducation News Services

National League of Cities/U. S.Conference of Mayors

Roy W. Walters andAssociates

Joint Action in CommunityService. Inc. - 500 MadisonNat'l. Bank Bldg..1730 M St., N. W.Washington, D. C. 20036

New Careers DevelopmentCenter, 184 Fifth AvenueNew York, N. Y. 10010

NACo

NACo

Office of Management & Budget

USEDemographicinformationfor analysis ofpopulationneeds andcharacteristics(continued)

TITLE*1970 Census SummaryManpower Indicators (oneissue order as needed)

*Handbook for ManpowerPlanners, Part I (one issue --order as needed)

General Social andEconomic CharacteristicsPC (1) C (for specific area)

Detailed characteristicsPC(1) D (for specific area)

Concepts and Methods Usedin Manpower Statistics fromthe Current Population .

Survey. Report No. 313,Series P-23, #22 (oneissue)

SOURCECensus Service Facility109 Moses Hall, Berkeley, Calif.94720 (415) 642.5687

U. S. Dept. of LaborManpower Administration

U. S. Dept. of CommerceBureau of the Census

same

U. S. Department of LaborBureau of Labor Statistics

U. S. Dept. of CommerceBureau of the Census

same

same

same

State Employment SecurityAgency

Analysis ofeconomictrends andindustrialprojections

*Occupational OutlookHandbook (every otheryear)

Economic Review(monthly)

Federal Reserve Bank ofPhiladelphia BusinessReview (monthly)

Federal Reserve Bank ofAtlanta The MonthlyReview (monthly)

Business and FinancialLetter (weekly)

Major Programs 1972Bureau of Labor Statistics(yearly)

Monthly Labor Review(monthly)

Federal Reserve Bank ofChicago -- BusinessConditions (monthly)

Federal Reserve Bank ofDallas -- Business Review(monthly)

Quarterly Economic Trends(quarterly)

U. S. Department of LaborBureau of Labor Statistics

Federal Reserve Bank ofCleveland

Federal Reserve Bank ofPhiladelphia

Federal Reserve Bank of Atlanta

Federa' '` ,ve Bank of SanFrancisk..

U. S. Dept. of LaborBureau of Statistics

U. S. Dept. of LaborBureau of Statistics

Federal Reserve Bank of Chicago

Federal Reserve Bank of Dallas

Federal Reserve Bank of St. Louis(Continued on page 35)

19

Formula for evaluation cont.These steps are summarized

mathematically by the followingformula:

Performance Rating EqualsP Total Cost(1- MOM

ipplit- t io n to

DOL programs

) x 100

When each M APC assessmentcriterion is applied separately to

the major DOL categorical pro-grams. the following patternsemerge:

1. Employment Rate: OJT-type programs (PSCP I NewCareers, JOI' and JOBS) had high-er employment rates than institu-tional programs. The PSCP/NewCareers program did hest of all:75 percent of its enrollees wereable to obtain permanent unsub-sidized employment through the

program.2. Follow-Up: WIN was the

only program to include a manda-tory 90-day follow-up of place-ments as part of the very structureof the program. JOP. JOBS andNYC Out-ofSchool did no sys-tematic follow-up after comple-tion of training. (JOBS and JOPemployer invokes require infor-mation about terminated corn -pleters during the terms of therespective contracts only.) CEP.PSCP and MDTA were able tocontact from 60 to 90 percent oftheir placements.

(continued on facing page)

Employment KateEullowup RateRetention on JohWage Index %s. OLO Index,Target Group IndexActual vs. Planned EmlleesAverage Cost/Placement

DOL Program Poformasee &Wags

A B(Ay:* 75';O 80

INA INA20* 5534* 37

100* HO

$1.000 S10.500

C D30';59

INA

33

IOU

57.500

23';

94

72

59.900

1.1711, 50r; 2150 0 100

INA INA18* 30 2040* 34 47ig.)* !Q. 100

$9,300* $3.860 $ 12.500(57500)

Emplymeni RateFollovvup RateRetention On JohWage IndexTarget Group IndexActual vs. PlannedSubtotal

f fee went's!:4'; of maximum)Cost FactrPertormance Rating

Total Foists (program ratings tunes relative tveighb)

A B CD E240 300 120 112 125 200 5411441 400

(1 40 30 45 0 0(NOT APPLIED TO FY 1972 PR(GRAMS)

20 55 25 38 IS 30r18 74 tot 78 HO t8

200 IttO 200 144 1141 1114

12 441 417 401 462i=21= ==i am ma =nu

55r; tit; 47'; 43'; 43': 49'.

.95 .47 412 .51 .54 .51

52,: 3 ; 2t1' ; 22.; 23'i 40';

See text explanation of figures in parenthesis.*I-. minutes based partial data.

50 50

20 (0094 200

200 200424508) 95()

NO=

47'(53';) 100';

3144 .631

18';f33'.:

20

3. Wages: PSCP programs ob-tained the highest average wagefor their enrollees, averaging$6,500 or 55 percent over the0E0 Poverty Index for a four-person family. WIN and JOP wereat the lower end of the wagedistribution at approximately 20percent over the 0E0 PovertyIndex.

4. Target Groups: WIN scoredhighest on the target group index,with 47 percent of the maximumpossible points. The remainingprograms all fell within a narrowrange (3040 percent).

5. Actual versus Planned Activ-ity: CEP received the lowest rat-ing (72 percent) when actual ac-tivity levels (e.g., enrollments)were compared to those originallyplanned. JOBS and PSCP camenext, operating at about 80 per-cent of capacity. NYC-00Sachieved a 90 percent enrollmentlevel (according to official DOLfigures) and the rest (WIN, JOP.MDTA) operated at virtually 100percent capacity.

When the MAPC PerformanceRating System is applied to DOL'scategorical programs, OJT-typeprograms (JOP and JOBS) standas the most effective, with .10P in

first place (52 percent) because ofits combination of relatively goodemployment rates (60 percent)and comparatively low unit cost.

Among the four institutional-type programs. MDTA scoredhighest (32 percent) and WINlowest ( IS percent) with CEP (22percent) and NeighborhoodYouth Corps 00S (20 percent)falling in between. When WIN'sperformance is based on the num-ber who began job entry ratherthan the number completing threemonths of employment (which isWIN's own definition of a "coin-pleter"). the program's perfor-mance rating is increased to 33percent.

BM COPY AVAILABLE

-

Effectiveness!

Average Cost/,011:11

Performance; t

JOP 55% $ 1.000 .95 52%

JOBS 49% 3.800 .81 40%PSCP 66% 10,500 .47 31%MDTA 47% 7.500 .62 29%

NYC-00S 43% 9,300 .54 23%CEP 43% 9,900 .51 22%

WIN 47%(53%) 12.500 ($7.500) .38(.631 11396(3390

other factors

In addition to the criteria in-cluded in the MAPC assessmentsystem, certain factors should beconsidered:

1. Many jobs obtained throughJOP are in the lower-wage bluecollar sector, and do not representgenuinely new opportunities fordisadvantaged job workers. Servicessuch as remedial education or coun-seling are also not included. Thesecomponents are included in JOBS.

2. Most PSCP/New Careersprograms permit participants toobtain an Associate Arts (AA)degree and/or college credits.

3. MDTA is the only programwith projects specifically designedfor prison inmates (Rikers Island).Data on the MDTA Institutionalprogram are taken from projectscompleted during FY 1972. Re-cent changes in referral proce-dures are expected to result inhigher placement rates for currentMDTA projects.

4. CEP includes more "Englishas a Second Language" trainingthan other programs.

5. The Performance Rating ofNYC-00S treats it as an institu-tional training program, but in-cludes placements in school (fulltime) as well as job placements.

6. JOBS projects showed widevariations in completion rates."White Collar" projects had high-er-than-average rates (averaging60.65 percent). The overall aver-age was brought down by inclu-sion of a number of low-wage bluecollar projects with completionrates of less than 30 percent.

7. NYC Summer and In-Schooland the Public Employment Pro-gram were not rated, sincefew of MAPC's assessment criteriawere applicable to them.

8. The relatively low rates ofemployment of WIN and CEPenrollees persist despite the factthat many participants remain inthe programs for periods of 9 to12 months or more. Some PSCPprojects likewise involve participa-tion for more than one year, butPSCP still maintains high comple-tion rates.

9. Variations in unit cost perplacement are attributable to avariety of factors. Enrollees in allprograms listed receive either sti-pends or wages (some of whichare paid for through a reimburse-ment to employers). The amountsreceived by enrollees vary. Highwage (or stipend) programs (e.g.,NYSES' New Careers project)may still cost less than thosewhere enrollees receive lowerwages (e.g., MCDA's New Careers)due to other factors.

Programs with high dropoutrates (e.g., CEP and WIN) showhigh cost per placement($10,000412,000) even thoughthose actually placed receive con-siderably less than this in temis oftraining and supportive services.Much of the total cost goes totrain persons who never completetraining or who complete but arenot placed, thus raising the aver-age unit cost per placement.

Those programs in which parti-cipants may remain enrolled forup to two years (e.g., PSCP pro-

(Continued on page 22)

21

Formula for evaluation cont.

grams sponsored by NYSES,MCDA and the College for HumanServices) will have higher costs percompleter or placement thanshorter programs (e.g., JOP,JOBS). Average unit costs refer tothe total cost of producing an"end product" a placement inthe case of institutional training: acompleter employed in an unsub-sidized job for OJT-type programs

without regard to the length oftime it takes to accomplish this,For programs offering both pre-vocational and skill training com-ponents to enrollees, the cost ofboth components is included inunit cost figures, even thoughthese components are funded sep-arately (e.g., MDTA).

implications

After examining the recent per-formance of current manpowerprograms, certain conclusions canbe drawn. There is a "tradeoff"between assuring placement andenrolling target groups. A strongemphasis on assuring the employ-ment of program participantswhether through a shift to OJT orsubsidy of public employment -must be accompanied by strength-ened guidelines on participantcharacteristics if it is not to resultin the dissipation of dwindlingmanpower resources on thoseleast in need of special programs.

Conversely, a policy emphasison enrollment of those most diffi-cult to place must be accompa-nied by an increased stress on thejob development and placementcomponents of manpower pro-gram operations. Otherwise, fundswill be spent on training whichleaves the recipient little better

off than if he had spent his timelooking for a job on his own.

Under present conditions,there is a limit to most programs'capacity to use funds efficiently.Care must be taken not to "over-fund" programs beyond their po-tential to support high qualitytraining projects. There will al-ways be a demand for federalsubsidies, especially among em-ployers whose jobs require littleformal education or training,"Tight" money should lead toincreased emphasis on fundingonly high quality training pro-jects.

a planning tool

The Performance Rating Sys-tem is only one of the toolsavailable for manpower programplanning. Its usefulness lies in itsability to summarize excessive in-formation in a framework that ishighly useful to both planners anddecision-makers, It does not at-tempt to include all the factsneeded to make well-informedfunding decisions. In addition,considerations must be made tothe type of jobs for which trainingis provided, the duration and qual-ity of the training itself, the effi-ciency of the agencies' administra-tion, their ability to utilize addi-tional resources, the extra costs ofstarting up a new program (orextensively modifying an oldone), the underlying reasons forbelow-average performance andthe effect of improvements madesince the performance data werecollected.

Performance rating has proveduseful as a diagnostic tool. Assymptoms of poor performance

appear, the weaknesses of indivi-dual program components ortraining projects in otherwisesound programs can be identified.In addition, the detailed and com-prehensive program assessment re-ports, prepared by the MAPC staffmember assigned to each DOLprogram, cover all the availableinformation about the program'sactivities during the preceuing fis-cal year as well as recent changes.The individual program assess-ment reports, when reviewed bythe MAPC proposal review panels,should encourage participation bythe administrators of the pro-grams under assessment. This al-lows the administrators to answerany questions raised or correcterrors of fact or interpretation.

The full assessment processthus includes several components

performance rating, full-scalereports, and the face-to-face meet-ing of review panels with programoperators. The Performance Rat-ing System is a key element in thisprocess, but it is not the onlyassessment tool at MAPCs' dis-posal.

next steps

The system itself can be fur-ther refined. Additional factorssuch as administrative costs (as apercentage of total expenditures)can be incorporated into the over-all framework. The MAPC maywish to reorder its priorities formeasuring performance, placingmore stress on some factors anddecreasing the emphasis on othersover the coming year. Such refine-tnents can be part lof the ongoingprocess of applying performance

(Continued on facing page)

22

A Planner's

Printer

-cont.

Formula-cont.criteria to the programs operatingdata as they become available.

The criteria included in thesystem and the methods of col-lecting the necessary data can beincorporated into the design offuture programs. MAPCs' ultimateobjective should be the inclusionof ongoing performance assess-ment as an integral part of man-power program operations.

Standardized operational de-finitions of terms such asplacement, follow-up, retention,unit costs, and so forth, should hedeveloped in conjunction withboth manpower program opera-tors and the U.S. Department ofLabor's Operational Planning andControl System (OPCS) staff. Per-form:nue standards defining theexpected levels of performance onthe MAPC assessment criteriashould also be developed, takingaccount of national and regionalstandards (where they exist) andthe actual performance of man-power programs.

2. Once the target population group has been identified, the planner mustanticipate what jobs can be made available to them. This process ismore or less sophisticated guesswork, based on:

a. Inadequate projections of employment increases by industry andoccupation.

b. Pledges and information gathered from interested local employers.

3. Planners, in their proposals to the elected official, must recommend apackage of services designed to move the selected target population intoanticipated jobs. While a broad range of services is possible, selectionis based on one of two assumptions:

a. The client's employment problem is a personal one: change theclient and you change his or her job prospects. This fundamentalassumption underlies all educational and skill training activities,work experience and pre-job coaching.

b. The client's problem is institutional: remove institutional barriersand the client is employable. This assumption motivates job creation(e.g., public employment) and job re-structuring. It can point to thecreation of day care facilities, public health clinics, or transportationimprovements.

4. Finally, the planner must make key recommendations on how to or-ganize and deliver the selected services locally. He must assess thestrengths and weaknesses of existing local agencies, departments ofcounty government and individuals, and design a manpower agencycapable of the following functions:

a. Continuing planning, based on evaluation of the on-going programactivities, that results in cc astant feedback and adjustment of theservices being offered.

b. Fiscal management. Reception, distribution and audit of federalgrant dollars.

c. Oversight or operation of manpower service activities (this may beperformed directly by county employees or sub-contracted to otheragencies and organizations).

B. Policy advice and inter-organizational politics are an integral part of themanpower planner's job. In fact, the manpower staff director can expectto spend most of his time in this aspect of the planner's art. The following"outside" individuals and groups must be dealt with if allocation decisionsare to result in a functioning local manpower delivery system:

1. The county elected official must be prepared to make the necessarydecisions in any manpower planning effort. His support and influencecan be the over-riding factors in a successful local manpower system.The planner should he not only an analyst but also the electedofficial's principal manpower policy advisor.

(Continued on page 24)

23

1

MrP4 14112. Current manpower program operators are all threatened,to a certain extent, by the planner whose fund-

ing recommendations will directly affect certain manpower resources in the area and will impact, atleast indirectly, on all local manpower activities. They may have philosophical fears about the transferof manpower activities to county government. The planner needs to work with them despite theirdoubts because:

a.. They offer manpower expertise both for county staffing and potential subcontracts.

b. They have a local power base and constituency.

c. The transition from separate manpower program contracts to county prime sponsorship shouldbe orderly.

d. Most agencies have some financial support other than those funds that will come under the county'smanpower revenue sharing (MRS) allocation. Therefore, they will continue to operate programs thatshould be coordinated with county-run MRS activities.

3. Other parts of county government may operate programs that for whatever reason are not under theaegis of the central manpower office. Again, organizational jealousies must be overcome if coordinatedservices are to be delivered. Other county units planning commissions, payroll, personnel. industrial orlabor relations boards can provide support. information or contacts helpful to the planning effort.

4. Other local governments within and surrounding the planner's jurisdiction must he consulted. In manycases, they will formally join forces with the county to administer a single manpower program for theentire labor market area. Planners may need to insure that the needs of residents of unincorporated areasare not overlooked as towns, municipalities and villages clamour for the available services.

5. Local business and organized labor leaders often control the availability of jobs. They can make invalu-able contributions in terms of on-going private sector programs, job restructuring, expertise in trainingand up-grading, and information.

(). The state plays a crucial role in all local manpower systems through its control of certain manpowerresources. Crucial contact points will be:

a. The governor himself a personal appeal may be the only solution to some problems.

h. The state manpower planning staff can assist a local planner in obtaining information and supportfrom state operating agencies. In requesting assistance, it is sometimes useful to join with other localplanners to avoid a flood of similar requests. Some states have monthly or hi- monthly planners'technical meetings, sponsored by the state staff. to exchange problem-solving techniques or receivein-depth reports from state agencies.

c. The State Manpower Planniag Council members can influence state decisions that affect the localmanpower system.

d. The State Employment Security Agency. a major deliverer of manpower services through its localoffices, is a potential subcontractor fur local services under manpower revenue sharing and theprimary source of essential planning data through its Research and Analysis section.

e. The State MDTA operations committee controls the curriculum and must choose the deliverer ofskills/classroom training under existing legislation. The committee is composed of the heads of ESand the IIEW state education agreement agency (usually vocational education).

t' State vocational education, vocational rehabilitation, adult basic education and other agencies will beoutside of MRS but represent the hulk of manpower funds in most areas.

(Continued on J2ein &' page)

24

7. The Manpower Administration (MA) regional office is the funding

agent for operational manpower planning grants and, eventu-ally, manpower revenue sharing. The regional office, headedby the Assistant Regional Director for Manpower (ARDM)formerly known as the "RMA", may he slow to accept theloss of funding authority that the impending MRS portends.In addition, the national office's notorious inability to keepregional line staff informed of quickly changing policies maymake some regional staff defensive in dealing with local plan-ners.

On the other hand, regional MA staff will look to localplanners as the contact point for local programming deci-sions. The MA staff can be valuable manpower teachers inmonitoring, information systems and program content. If agood relationship with the "government authorized represen-tative" is developed, he or she can be an effectiveadvocate for local priorities within the federal agency.

MA organization varies somewhat from region to region,but fundamentally it includes the following:

a. Regional policy leadership ARDM. Deputy and SpecialAssistant. There may also he an OPCS/CAMPS coordina-tor or equal employment opportunity staff attached tothat office.

b. Support functions with specialized Offices of Administra-tion and Management Services (A & MS data systems.

contract specialists), Program and Technical Services

BO Car Waal

kt.g.k ),1.11

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Itit 3) .! ), ::101,, .1

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areas). Unemployment Insurance. Job Corps.(OPTS specialists in particular programs or functional ,Afi

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c. Line staff with geographic areas of responsibilities, orga-nized by area operations offices with responsibility forone. two or three states. These offices are headed by Assn-elate Regional Manpower Administrators, commonlycalled ARMAs. Deputy ARMAs (DARMAs) have singlestate responsibilities and are supported by governmentauthorized representatives or GARs. GARs are usually manpower generalists assigned to contract andmonitor all projects in a specified locality. They may have specific program specialties. however. Fre-quently a GAR has responsibility for state-wide programs.

DAf ev1A

A f

kleP. ,!!

S. IIEW distributes most non-DOL manpower funds for such activities as ABE, vocational education andvocational rehabilitation.

. In his role as policy adviser to the local elected official. the planner sometimes works with MA and HEW

national offices on proposed regulations and seeks exceptions to, or clarification of, regional decisions.

10. Through imaginative grantsmanship, funds from other federal agencies may be obtained to add certain

elements to the local manpower system.

C. Manpower planning. then. goes beyond conceptual analysis. A planner's day includes real world policy-makingand interorganizatiunal politics. Although much of his time will be spent in cajolery and compromise, he mustretain a strong, overall commitment to designing a system which delivers manpower services to his community.

25

stoos

A Planner's Primerthe Second Part

The first part of ".4 Planner's Primer" ,ppeared in the October, 1973issue of County Manpower Report. Attempting to define manpowerplanning, it divided the planner's lob into two kinds of activities. The first,problem analysis, includes the resolution of four basic issues related to theallocation of manpower resources. Secondly, but equally important, aseries of political and interorganizational relationships must be managed ifa comprehensive manpower program is to get underway. The following isan attempt to organize these two kinds of activities into a logical sequenceof planning steps.

Jerry Pikulinski

and his staff

at the North Central

Texas Council

of Governments

have been

especially generous

in supplying

ideas and

suggestions used

throughout

this article

if i1. sreiy of the Manpower Plannink, Process

During its first three years, manpower planning has been created anew each time another jurisdiction hires amanpower planning director. As planners meet during these developmental years, a number of commonapproaches emerge, yet, no two planners proceed in exactly the same way.

Three eariier attempts to describe the steps in the system are available. Attachment III of InteragencyCooperative Issuance No. 73-1 includes a brief description of goal setting that can still be used to spark ideas onthat difficult subject. The emphasis in ICI No. 74-1 is on the techniques of analyzing population and labor marketinformation. In addition, the Environmental Protection Agency's handbook on manpower planning forwastewater treatment plant operators includes a useful chapter on "macro" planning.

The description of manpower planning that follows builds on those efforts, but differs in its approach. Itfocuses on the seesaw of activity between policy direction and planning outputs which an balanced on a fulcrumof continuous, objective data gathering and analysis. It is this fulcrum of activity which is the task of themanpower planning staff. Although the steps are listed in sequence, the staff work should begin on Day I of theplanning process and continue throughout the life of the local manpower effort.

A. Define the scope of the manpower planning effort. At the start of the planning effort, the county'selected leadership must resolve a number of crucial issues that set, at least initially, the parameters of themanpower planning staff's task.

1. Overall manpower policy. The development and adoption of a county manpower policy statement,however general, is far more than an "exercise." Indeed, it is a vital first step because:

a. It clearly establishes the elected county officials' policy leadership role.

26

(Continued on page 28)

Poitcy DirectionI. ill 0111 I PI, 4, tit I I uPIPnM

Planning Output."..... .... ...... oual0.1.,aa.IWOUgnasImiliihhipmolONbuot110.mmuildiidinint10011111.11mthnull0011011NunbiliDHUUR IIHRPHOMMOUP11.11110401111w

CONTINUOUS DATA COLLECTION

AND ANALYSIS

A. Define the scope of the manpowerplanning effort in terms of

overall policygeographyprogram areasorganizationtime

B. Follow-up on geographic, organiza-tion decisions. Set up staff and workplan.

C. Develop planning base, includinginventory & assessment ofexisting programspopulation datalabor market analysislegal restrictions

D. Set tentative planning assump-tions, i.e., define "success."

E. Develop allocation options.

F. Select one option.

G. Set up mechanism to operateprogram, measure success, & makenecessary adjustments.

H. Approve/disapprove subse-quent changes in plan.

Publication of local wen-power policy.Creation of local manpowerplanning r..".1 operationsmechanism, including deci-sion-making procedures andcitizen advisory body.

Directory of available man-power services.Manpower needs profile.Job openings and employ-ment trends

proposal.Back -up data for funding

Publication of local man-power plan.Submission and funding.Achieve local manpowergoals, e.g.,

Match people with jobs.Increase earnings.

Supply needed skills tolocal employers.Offset disadvantages injob competition.Respond to lay-offs/industrial growth.

27

b. It identifies the various groups involved or interested in manpower and encourages them toarticulate their own policy positions early in the planning process.

c. It can be a testing ground for local community consultation or advisory procedures wherebytime is allowed for necessary adjustments prior to the crucial decisions of resource allocation.

2. Geographic scope. In most areas commuting patterns cross a number of jurisdictional lines, forcingthose political jurisdictions to inter-relate in terms of jobs and labor supply. It makes sense to planand operate manpower programs on this labor market area basis. Politically, however, such anapproach is seldom so simple. The manpower planning staff must raise two fundamental questionsfor the elected officials to resolve:

a. Should the county combine its manpower planning and/or operations with other areajurisdictions? No matter what decision is reached on broadening the planning/operational area,counties will certainly have to work wit!. those municipalities within their borders.

h. What structure should be set up to reach decisions on a multi-jurisdictional basis? Each areamust tailor the multi-jurisdictional agreement to its own needs; ideas followed by ether areas canbe found in previous issues of County Manpower Report. The mechanism for agreement, in any

Cf) case, should be in writing, whether in the form of concurrent resolutions, a joint powersagreement or the creation of an independent regional authority. Further decisions involve Liteformation of a decision-making policy council, voting and allocation pro cedurr.: id amechanism for grass roots input.

3. Program Scope. The manpower planning and operations effort can be as narrow as the manpowerrevenue sharing resources currently funded under MDTA and EOA, or as broad as the entirehuman resources field. Between those extremes, the options are limitless. The manpower staff may

C64 focus only on activities funded through the Manpower Administration or through the Department ofLabor; they may add HEW state grant programs, local social service activities, or even labor andindustrial relations. The planning function may cover a broad range of activities while operationsremain restricted to resources controlled by county governments. Further, program scope maychange each year as the staff lays the groundwork for inclusion of new program areas. Whateverdecisions are reached, the staff must have a clear understanding of their mission before the start ofeach period of activity.

4. Organizational scope. In counties new to manpower activities, the governing body has anopportunity to set up a unified manpower or human resources staff, with one "manpower czar"reporting its activities to the board. Most counties, however, have a number of departments orsemi-govemmental units already involved in fields related to manpower. They must decide not onlywhere to locate the manpower staff within county govemnient but also how to coordinate theactivities of existing organization with the new staff. At a minimum, formal lines ofcommunications must be set up wh. ; 4 out the relationships expected among the various staffunits. Further, the role of the citizen .,:ilsory council, which is likely to be a requirement towardprime sponsorship, must be clearly defined.

5. Scope in time. Any planning effort will have one of two basic temporal orientations:

a. Long-range. Traditionally, planners have looked to the future, making 5-, 10- or even 30-yearprojections. An attempt at long-range labor market management can be useful in forestallingfuture manpower problems.

b. Short -term. Manpower planners must give first priority to short term activities that have animmediate impact on the county's manpower problems. Their orientation combines grratsman-ship getting federal money for immediate problem-solving efforts and imaginative problemsolving on the local level. (Continued on facing page)

28

B.

sigi tort ogvati

Follow-up on geographical and organizational decisions; set up staff and work plan. As political deci-sions defining the scope of the manpower planning effort are made, the manpower planning staff must

devote its time to implementing those decisions.

I. Incorporating the parameters set by the county's elected leadership, the manpower director must de-fine staff functions and establish a work plan tailored to the charge received from policy leadership.Clearly, the submission of an MRS funding proposal will not be the only goal. The manpowerdirector must build purely local objectives into his work plan. For example, county leadership maymandate a broadly participatory decision-making process, which requires citizen education.

In developing a work plan, it is essetial to differentiate between long-range goals and immediatedemands. For instance, it is easy to become obsessed with the need for more and more accuratelabor market data. But the Department of Labor is likely to set a spring deadline for the submissionof a comprehensive manpower plan. Therefore, the freshman planner would be wise to gather,organize and digest as much readily available data as possible in a relatively short time-frame, andproceed to the hard tasks of setting priorities and developing allocation strategies. A sample workplan accompanies this article. It suggests that one useful way to organize the tremendous taskconfronting a manpower planning staff is in terms of:

a. Goals. The operational results expected from the manpower planning effort.

b. Strategy objectives. Broad functions that must be performed if the overall goals are to beattained.

c. Outputs. Specific tasks necessary to attain each strategy objective.

C. Develop a planning base. This step, crucial to the success of a manpower planning effort, is too oftenseen as the only function of the manpower planner. It involves the collection and analysis of four kindsof data:

1. Ongoing manpower and related activities. Because any change from the existing system will require apolitical decision, the planner must develop a complete inventory of ongoing manpower programswith some indication of their goals and accomplishments.

a. How to get it. For a start, the planner should contact the Manpower Administration regionaloffice for a complete listing of programs in the area. MA monitoring reports and Program DataCards (PDCs) on individual projects should be available for a rough assessment of the projects'success. And the Manpower Administration has authorized the inclusion of state and localplanners on some monitoring visits.

The State manpower planning steff may be helpful in obtaining information on stage agencyoperations and on state-wide programs that impact the area.

Finally, program operators themselves are possibly the most valuable source of information.Through meetings or written surveys, the manpower planning staff should solicit the operators'

own assessment of manpower pcoblems in the area and ideas for improvement, as well as anexplanation of their own goals and accomplishments.

b. What to get. Although some of the data items below will not be available for individual projects,manpower planners should try to obtain the following:

( 1) Name of project and operating agency.

(2) Source of funds.(Continued On page 30)

29

(3) Objectives of project.

(4) Funding dates.

(5) Amount of funds.

(6) Types of services delivered.

(7) Average time an individual is enrolled. (Is this a four month training project or a two yearwork experience program, for example?)

(8) Number of people served during the program year.

(1.)(9) Capacity of program at a given time.

(.10) Number of people currently enrolled.

awl (11) Characteristics (ethnic, age, sex, etc.) of people currently on-board and of total served foryear.

(.49)

(12) Number and average cost of successful completions. (What is a successful completion? Haveprogram operator define success, for example, placement in unsubsidized employment,return to school, skills necessary for promotion, etc.)

(13) If the program goal is job placement, what are the target jobs? What kinds of jobs are mostsuccessfully filled by program graduates? What is the wage scale? Is follow-up information

CIOavailable?

2. Population characteristics. By analysing the economic and social characteristics of the area'spopulation, the manpower planner can develop a useful tool for the selection of priority targetgroups and the types of manpower services they require. This data can also be used to support thecounty's request for funds.

This part of the planning process has been discussed extensively in other publications. "A Planner'sLibrary" in the October, 1973 issue of County Manpower Report includes a listing of data sourcesfor, and guides to, the analysis of population data.

3. Labor market trends. Projections of local job vacancies and employment patterns are essential to asuccessful manpower program. Again, "A Planner's Library" in the previous County ManpowerReport lists a number of aids to labor market analysis.

Manpower planners, however, must supplement data analysis with close contacts made in thebusiness community. By keeping alert to economic development activities and following up oncontacts with employers by all parts of county government, special arrangements and job pledges canbe worked out to feed manpower program enrollees into specific jobs. Because the energy crisis maycause unanticipated shifts in local employment patterns, planners may have to rely more heavilythan ever on this kind of informal information.

4. Legal restrictions. Federal regulations, guidelines and advice will not intimidate those planners whoare firmly grounded in the provisions of the law itself. This includes:

a. Knowing what activities are mandated or permitted by law.

b. Requesting exceptions to guidelines or regulations where the local situation demands it and thelaw allows. (Continued on faring page)

30

BES1 COP AVAIL ABLE

D. Set tentative planning assumptions, i.e., define "success." Midway be:ween the establishment of localmanpower policy and the choice of one strategy for resource allocation, the county decision-makersmust consider the results expected from the local manpower .system. Because of recent policy and datalimitations, the Department of Labor's judgment of program success often rests on a single criterion: costper placement in unsubsidized employment. This criterion, however useful, may not reflect local goals.

Part I of "A Planner's Primer" defined the problem-solving aspects of the planner's job in terms of fourfundamental questions. The planner must elicit tentative answers from the advisory body and the electedofficial.

1. Who is to be served? Should the county try to spread manpower funds equitably among those groupsand areas needing services, or concentrate on one or two priority groups? In serving any particulargroup, is there a point beyond which the cost is prohibitive? What is "success" relative to this factorof resource allocation? For instance, the simple fact that services are available for the first time to aforgotten segment of the community may be the point of a target group decision. Success, in suchan instance, might be measured as a percentage of participants or by the geographical location ofoutreach centers. On the other hand, success may be tied to the increased percentage of the targetgroup actually employed in particular industries or the local government itself.

What jobs should be targeted? Depending on local circumstances, the manpower program may focuson getting people whatever jobs are available, or the focus may be on breaking down employmentbarriers in particular types of work.

3. What services should be offered? Both staff data analyses and a discussion of local manpowerphilosophy can help answer this question. Shall we try to change people or institutions? Shall wefocus on the private or the public sector? Shall we try something new or maintain the old programforms?

4. Now shall services be delivered? Should the county run manpower programs or sub-contract withother organizations? If the latter, which organizations?

E. Develop allocation options. Using the parameters set by county leadership in the previous step, themanpower planning staff should try out a number of ways of allocating the area's manpower resources interms of probable program outcome. It can be useful to develop time and cost assumptions based onprevious local manpower program experience or even national averages from the annual ManpowerReport of the President. At any rate, the staff must estimate the relative cost of addressing particularservices and target groups in order to see how far the available monies will go.

Once cost estimates have been established, the staff should try to weight the priorities set by countyleadership. For example, the elected official may have indicated that Vietnam veterans were to receivetop priority. With some knowledge of the characteristics of local Vietnam veterans, the staff should workout possible allocation schemes. Perhaps 40% of all enrollees should come from this group. On the otherhand, an all-out effort to reach and serve every Vietnam veteran in the community is a possible, if costly,response to this priority. The choice of approaches depends on the relative weight assigned to each of theelected leader's priorities.

This approach to resource allocation is sometimes tedious and certainly time-consuming. Itis helpful, however, both to staff and to the elected official to compare possible spreads ofmanpower dollars based on different interpretations of agreed upon priorities. Both data and costestimates are open to question. With the figures before them, the elected officials may ask thatassumptions be changed or the options reworked.

Nevertheless, this approach provides a range of objective options for the final subjective decision on what"looks right." In addition, the assumptions are explicitly stated; if experience proves them wrong, theplan can be changed accordingly. (Continued on page 32)

31

F. Select one option. The final authority to allocate manpower resources lies with the elected official. He orshe, based on a unique knowledge of the county's population, may reject or accept any staff option andthe advice of the citizen advisory council. The manpower planning staff may study and recommend, butthe elected official decides,

G. Set up mechanism to operate program, measure success and make necessary adjustments. Once theelected official has chosen the locality's manpower strategy, the manpower staff must prepare andsubmit the appropriate documents to the Department of Labor for funding. As a part of the fundingproposal, the Department will probably ask that the administrative arrangements for the delivery ofservices be spelled out.

Upon acceptance of the plan, the manpower staff must set in motion a structure that can:

1. Deliver manpower services, either directly or by contract with the county. A crucial element of thisprocess is the development of specific performance goals for each segment of the total manpowereffort. In aggregate, these goals must conform to the overall goals agreed to in the funding proposal.

Manage funds, i.e., legally receive federal grant dollars and disburse them either through contracts ordirect wages,

3. Continue to plan, based on an input of actual performance data, and make adjustments to thesystem as dictated by that experience or changing local priorities.

H. Approve/disapprove subsequent changes to the plan. The involvement of elected county leadership musthe maintained throughout the life of the manpower system. Any change in the manpower plan nomatter how well justified in terms of program performance is a change in the published intentions ofthe elected official. The manpower planning staff must be sensitive to this point when making day-to-dayprogram adjustments. If minor adjustments accumulate, the elected official may be open to charges ofbad faith from affected local interest groups.

Finally, the process of monitoring program performance leads back to step one of the planning processand the development of local manpower policy. Throughout the program year, new data, nou...refinements and new situations demand a constant re-planning in response to an evolving manpo-Acrcapability and an ever-changing community of manpower need.

Each jurisdiction's manpower planning staff mustwork on the basis of goals and objectives tailored toits own circumstances even though general guidelinescan be followed. Jerry Pikulinski, Director ofManpower Planning at the North Central TexasCouncil of Governments, developed a framework ofgoals, strategy objectives and a three year staff output

GOALS YEAR 1

1. Relate jobs to people2. Relate training for jobs to people

STRATEGY OBJECTIVES

1. Informationa. Identification of agencies

and services

schedule that clearly recognizes the limitations onwhat a new manpower planning group can accomplishin its first year The output schedule is printed belowin hopes that it may suggest a useful technique forcoming to grips with the sometimes overwhelmingtask confronting the manpower planner.

THREE-YEAR OUTPUT SCHEDULE

in support ofRegional Ishanpower Planning Goals and

Objectives

Development and distribution of man-power program resources directory

Update and modification

(Continued on facing page)

32

COVY 4114001

THREE-YEAR OUTPUT SCHEDULE cont.

b. Review and evaluation ofpolicies, program procedures,methods, techniques of programadministration

2. Analysisa. Review and evaluation of

agency information systems andplanning procedures

b. Identification of manpowerresources and job needs

c. Collection and compilation ofexisting evaluations of cate-gorical programs and review withClient Services Evaluation Panel

d, Formulation of plan for consoli-dated program evaluation throughRegional Manpower PlanningCouncil

Identification of existing coordina-tion mechanisms

3. Cooperative Decision-Makinga. Formulation of program objec-

tives, methods, and techniqueswith assistance of ClientServices Evaluation Panel

b. Review and evaluation of publicand private sector involvementin formulation of plans

c. Collection and review of all pendingmanpower program proposals forFY 1973

d. Review and evaluation ofnumbers and types of client needsto arrive at criteria for optimumprogram mix

4. Implementation of Analysisa. Review and evaluation of

current methods of information,and problem exchange

b. Review and evaluation ofpolicies. organization, programsprocedures, methods, and tech-niques used by agencies in opera-tion of manpower programs

PLANS

1. Collection and compilation of in-formation describing unfilled jobsand requirements of jobs

2. Definition of employment relatedneeds of people and establishmentof service program structure relatedto supply of labor

3. Definition of employer require.ments for trained manpower (labordemand) and establishment ofservice program structure

4. Ideeeification of criteria forpproval of proposals and assign-

ment of programs to agencies

5. Approval and establishment ofproposed manpower programs

Development of policies, program pro-cedures, methods, techniques on programadministration

Development of a coordinated inter-agency planning procedure and schedule

Compilation and analysis of jobs filledby industry and occupational categoriesas a result of manpower programs

Analysis of results and effectiveness ofevaluation techniques

Development of criteria on a functionalbasis for evaluation of manpower pro-grams

Development of Regional ManpowerPlanning Council coordination model

Development of funding review processutilizing Client Service Evaluation Panel

Development of procedures for public andprivate sector involvement in formulationof plans

Development and implementation of guide-lines and procedures for submission ofFY 1974 manpower program proposals

Development of criteria to promoteoptimum program mix

Development of procedure for distribu-tion of proposals, reports, and memo-randa and implementationDevelopment of manual for the organi-zation and administration of manpowerprograms

Development of procedures for continu-ing dissemination of labor market demandinformation to manpower and manpower-related agencies

Requirement that all program proposalsbe submitted, written in program structure

Requirement that all program proposalsbe submitted, written in program structure

Development of interagency plan ofassignment of programs to agencies

Approval and establishment of proposedmanpower programs

Implementation of effective methods,techniques, program procedures usedin program administration

Implementation of interagencyplanning schedule

Development and implementation ofplan to expand numbers and typesof jobs to be filled through manpowerresources

Development of Methods Manual oncategorical program evaluation

Implementation of criteria :n annualplanning process

Implementation of coordinationmodel

Implementation of review processutilizing Client Services EvaluationPanel

Evaluation and modification of guide-lines and procedures for FY 1975

Inclusion of criteria in planning pro-cedures and program proposal reviewprocess

Review, evaluation, and modifica-tion of procedure

Installation of requirements con-tained in the organization and ad-ministration manual

Implementation of procedures

Review and modification of programstructure

Review and modification of programstructure

Implementation of such interagencyprogram schedule to agencies

Approval and establOw.ent of pro-posed manpower programs

33

ekSiPli0011

A

planner's

staff

cont.power program operators, the staff can see exactlywhat kinds and what levels of services are being fur-nished in the community. Contacts with other state,local and federal agencies should be established andmaintained to enable the staff to keep abreast ofchanging agency service plans as they relate to themanpower program.

A mechanism for monitoring and evaluating man-power program components should be built into theplanning system. After program implementation, on-going evaluation of the service deliverers will be nec-essary to demonstrate results to the local official andto Washington. The sponsor can also identify anyneeded changes. Staff should use the assessment tech-niques developed during the planning period as afoundation for a continuing evaluation system afterthe program is in operation.

The staff must be willing to per=who form the often tedious tasks ofto select gathering, compiling, and analysing

information about every aspect of thearea to be served. They will have to provide supportto the planning director and to the elected official asthey select the resource allocation scheme with thegreatest chance of success in their area.

The limited funding available for planning staffpositions must pay not only for salary, but for officespace, supplies and travel as well. Since much of thework to be done during the planning period requiresresearch and information gathering, younger peoplemay be able to perform these tasks well, and shouldbe considered as job candidates.

sources of staff

There are a number of sources a county may lookto for a planning staff, both for the director and as-sociate staff members.

34

At this time, the Public Employ-PEP ment Program is in its final period

of operation and is scheduled to bephased out by June 30, 1974. DOL

is urging its grantees to make use of PEP staffwherever possible. In a majority of counties, PEP wasthe first experience the county had in operating amanpower program. PEP staff members shouldhave developed valuable experiences in dealingwith the rest of county government andwith the Department of Labor. While theymay lack experience in dealing with private em-ployers and in serving the disadvantaged, the politicalconnections they have built up during the operationof PEP may make them a valuable source of staff forthe planning period.

Categorical Their experience in the complexProgram manpower field should not be ig-

Operators nored. Although categorical pro-gram operators may feel threatened

by the shift to MRS, many individuals have the ex-perience necessary to the operation of a manpowerprogram. An individual therefore, who hasworked with several categorical programs may be anextremely useful addition to the planning staff.

CommunityActionAgencies

Administrative personnel and man-power coordinators can bringknowledge of manpower programsand of community needs to thestaff.

Employment The Labor Market Analysts at theService Employment Service are anotherstaff source of staff. Although a relative-

ly junior staff position at the Em-ployment Service, these employees have a solid back-ground in gathering and analysing information aboutthe area to be served. In view of the low salary allot-ments authorized by the DOL planning grants, thesepeople may be a source of staff support to theplanning director.

Again because of the low salaryrecent ceiling, the county should not over-graduates look recent graduates from colleges

and universities who have not hadmanpower experience. A background in economics orthe other social sciences and experience in researchshould qualify many young people for the associatestaff positions.

USE

Analysis ofeconomictrends,occupationaland industrialprojections(continued)

TITLECommerce Today (bi-weekly)

Federal Reserve Bank ofSt. Louis Review (monthly)

Federal Reserve Bank ofBoston New EnglandEconomic Review (monthly)

Federal Reserve Bank ofSan Francisco MonthlyReview (monthly)

Federal Reserve Bank ofKansas City (monthly)

*Area Trends in Employmentand Unemployment(monthly)

Business Conditions Digest(monthly)

Monetary Trends (monthly)

U. S. Financial Data (weekly)

Federal Reserve Bank ofMinneapolis -- MonthlyStatistical Report for theNinth District (monthly)

U. S. Dept. of CommerceNews (monthly)

Advance BCD (monthly)

Area Wage Survey (monthly)

Monthly Summary --Employment and Earnings(monthly)

County Business PatternsCBP-7 1

How the GovernmentMeasures Unemployment(one issue)

New Definitions forEmployment andUnemployment (one issue)

Measuring Employment andUnemployment (one issue)

6101klittlifraki

SOURCEU. S. Dept. of Commerce

Federal Reserve Bank of S2. Louis

Federal Reserve .Bank of Boston

Federal Reserve Bank of SanFrancisco

Federal Reserve Bank of KansasCity

U. S. Dept. of LaborManpower Administration

U. S. Dept. of CommerceBureau of Economic Analysis

Federal Reserve Bank of St. Louis

Federal Reserve Bank of St. Louis

Federal Reserve Bank ofMinneapolis

U. S. Dept. of Commerce

U. S. Dept. of Commerce

U. S. Dept. of Labor

U. S. Dept. of LaborBureau of Labor Statistics

U. S. Dept. of ConmierceBureau of the Census

U. S. Dept. of LaborBureau of Labor Statistics

U. S. Dept. of LaborBureau of Labor Statistics

President's Committee to AppraiseEmployment and UnemploymentStatistics

(Continued on page 36)

USE

Ongoing planning or programevaluation data,guidance. etc.

00 Ott totkoeevt.

TITLE

*Interagency CooperativeIssuances (especially Nos,72-.2 & 74.1) (periodically)

*Operational Planning andControl System handbook(yearly revision)

CEP Sponsor's Ilandbook(one issue)

CAMPS Training Manual(January, 1973) (one issue)

*Plan of Service (yearly)

State Plan for VocationalEducation (yearly )

Annual Program Report ofAdult Basic EducationInformation (yearly)

Employment ServiceAutomated Reporting System(ESARS) reports (monthly)

Manpower Program SponsorReports (monthly)

SOURCE

U. S. Dept. of LaborManpower Administration

same

same

same

State Employment SecurityAgency

State Education Agency

State Education Agency

State Employment SecurityAgency

U. S. Dept. of Labor, ManpowerAdministration; regional officesor individual sponsors

PULIS HATEIt; POST AlAt

54e PAID.. h C )003tr.., 41968

JEAN BARABASBOX 40 COLUMBIA ..14IVTEACHERS COLLEGENEW YORK NY 10027

COUNTY MANPOWER PROJECTNational Association of Counties

Bernard F. Hillenbrand, Executive DirectorJon Weintraub Richard BartholomewManpower Project Director Manpower SpecialistDonald ermine Nancy ReMineA= Manpower Project Director Manpower Specialist

This report was prepared under contract with the Manpower Administration,points of view or opinions stated herein do not necessarily represent the officialof Labor.

Barbara B. HuntingManpower Specialist

Marilyn HanniganEditor

U.S. Department of Labor. However,position or policy of the Department