TECHNICAL ASSISTANCE
MANUAL
Training
and
Employment
in
Environmental
Service
Region 9
ENVIRONMENTAL PROTECTION AGENCY
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TECHNICAL ASSISTANCE MANUAL
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for
use
in
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training
and
employment
of
people
for
environmental
service
occupations
ENVIRONMENTAL PROTECTION AGENCY
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TECHNICAL ASSISTANCE MANUAL
Based on the experience gained in the implementation of
the WIN/EPA/DOL Interagency Agreement for the training
and employment of people in environmental service occu-
pations during the year 1974.
* *
Prepared and published by
SKILLS DEVELOPMENT, INC.
Phoenix Dallas Norman
for the
Office of Education and Manpower Planning
Environmental Protection Agency
Washington, D. C. 20460
November 1974
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EPA REVIEW NOTICE
This report has been reviewed by the Environmental
Protection Agency and approved for publication. Approval
does not signify that the contents necessarily reflect the views
and policies of the Environmental Protection Agency, nor
does mention of trade names or commercial products consti-
tute endorsement or recommendation for use.
# * * * * *
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CONTENTS
Section
LIST OF ILLUSTRATIONS ...................... "
ACKNOWLEDGMENTS ........................ '"
FOREWORD ............................ iv
PREFATORY NOTES ......................... v
I. INTRODUCTION ....................... 1
II. PILOT PROJECT CONCEPT ................... 3
Basic Plan of the Project ..................... 3
Dissemination of Information About the Project ........... 4
III. PILOT PROJECT ORGANIZATION AND ADMINISTRATION ..... 7
Interagency Agreement ..................... 7
National Project Organization ................... 8
State Program Organization ................... 13
Coordination With Federal Work Incentive Program .......... 16
Summary .......................... 26
IV. ENVIRONMENTAL MANPOWER DEVELOPMENT .......... 27
Scope of Manpower Development ................. 27
Job Development ....................... 28
Recruitment ......................... 39
Support Services ........................ 42
Job Training Components .................... 46
Supervised Work Experience ................... 49
Permanent Employment ..................... 50
Evaluation .......................... 51
Summary .......................... 52
V. NEW MANPOWER DESIGN ................... 55
CETA ............................ 55
Changes in WIN ........................ 59
Summary .......................... 60
VI. MODELS OF PROPOSALS, PROGRAMS, AND AGREEMENTS FOR
TRAINING AND EMPLOYMENT ............... 62
Introduction ......................... 62
Project Proposal ........................ 63
Program for Training and Employment ............... 75
Subagreement for Training .................... 85
Subagreement With WIN ..................... 89
VII. MAJOR CONCERNS AND ACHIEVEMENTS IN TRAINING AND
EMPLOYMENT PROGRAMS ................. 93
VIII. USE OF THIS MANUAL .................... 97
Job Development
Trainee Recruitment
IX. ANNOTATED REFERENCES .................. 1°3
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LIST OF ILLUSTRATIONS
Page
National Organization for Training and Employment Project 10
Local Organization for Training and Employment Program 15
Flow Chart—How an AFDC Recipient Moves from Welfare Status into the
Work Force 18
Example of Recruitment Mailing Piece—Maryland 31
Example of Recruitment Mailing Piece—Colorado 33
Example of Public Information Piece—EPA 35
Example of Bulletin Board Poster-EPA 37
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ACKNOWLEDGMENTS
The Environmental Protection Agency wishes to acknowledge and thank the Denver
Regional Council of Governments, the North Central Texas Council of Governments, the
Louisiana State Department of Education, the Maryland State Department of Natural
Resources, and the South Carolina State Board for Technical and Comprehensive Education
for their contributions and cooperation as Prime Sponsors in the WIN/EPA/DOL project
from which this Technical Assistance Manual stems. The Project Directors and other staff
personnel with each of the five organizations made specific and substantial contributions to
the development of the information contained herein.
The EPA also acknowledges and thanks the Employment Service organizations and the
Work Incentive Program agencies in each of the five states for the technical help, advice, and
direct assistance given in the implementation of the training and employment programs. Too,
it was from the contacts with people in these organizations that much information for this
document was obtained.
The material in this document is representative of training and employment in some of
the many facets of environmental control. Recognition is hereby given to the units of
government, professional associations, and other agencies that are supporting training
efforts in environmental control, in particular, and public employment, in general.
Dissemination of information by means of this Manual should be most helpful in the
continuing programs in fields such as water utility and solid waste disposal. It is expected,
also, that with appropriate adaptations and interpretations the information will be useful in
other occupational fields such as pest control which is now of so much concern to state
departments of agriculture.
in
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FOREWORD
In 1973, a joint project was developed by the Manpower Administration of the Depart-
ment of Labor and the Office of Education and Manpower Planning of the Environmental
Protection Agency for the purpose of training some 700 welfare recipients for environmental
service jobs. In this project training and employment are now being offered in a wide range
of jobs in water purification and distribution, sewage treatment, garbage disposal, air pol-
lution control, and pest extermination. The trainee-workers are the employable recipients of
Aid to Families with Dependent Children (AFDC) enrolled in the Work Incentive (WIN)
Program. To make the experience gained in the pilot project available nationwide, this
Technical Assistance Manual was prepared for distribution to state and local officials. It is a
comprehensive manual for setting up and administering community programs to train welfare
recipients for environmental protection jobs.
This Manual deals with the training and employment of a unique group of people-
individuals from families who have been receiving Aid for Dependent Children. It presents
information derived from the experiences of employers, caseworkers, trainers, job developers,
and others who have been involved in the training and employment of people from the
rolls of WIN. The material herein is being made available to others in the hope that the
development of new programs of a similar nature will be made easier and more effective.
George Pratt, Director
Office of Education and Manpower Planning
U. S. Environmental Protection Agency
IV
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PREFATORY NOTES
The aim of this Technical Assistance Manual is to tell the unvarnished truth about a
unique and challenging program of employment and training. In effect, it is the story of how
welfare recipients are being converted to wage earners by means of the VVIN/EPA/DOL
interagency project. The valid and practical information in this Manual will take on value
when used by people engaged in the development and implementation of similar programs.
In some ways, this Manual is an antidote for too little understanding of the problems
that challenge people who administer or otherwise work in such programs. It is an attempt
to spell out which techniques really work and which are likely to backfire.
Problems of training and employing people constantly change. They demand new
techniques and new tools to achieve manpower development goals. The organizations in
which people work, the training and hiring methods, the workers who are trained, all differ
markedly from decade to decade. The external forces such as national economics, levels of
employment, energy crises, and consumer prices exert strong influences on the workers, the
trainers, and the employers. Some of these changing variables are integrated in the explana-
tions and descriptions contained in this manual.
With a view toward realistic helpfulness, practicality based upon experience, integration
of change, and coverage of the whole job of training and employment, this Manual should
aid:
* * * The Administrator—as foundational information useful in day-to-day operation
and control of a program.
* * * The Training Coordinator or Instructor—as a guide for offering training in
employment relationships and in related job abilities and skills.
* * * The Welfare Caseworker—as a pilot approach to job development and recruit-
ment of people to train for and work in new environmental service jobs.
* * * The Supervisor or Foreman—as a reference of methods for handling new work-
ers and helping them to succeed in environmental jobs.
In varying circumstances and in diverse kinds of training and work climates, caseworkers,
instructors, and work supervisors endeavor to guide and help people. They perform a vital
and unique role in the job recruitment-training-employment interface. In programs such as
the one dealt with in this Technical Assistance Manual, they do their work under difficult
and complex circumstances.
For these and other reasons, it is hoped that this Manual will add new insights into such
urgent problems as dealing with women in the environmental work force, helping people who
have been hindered from engaging in work, enticing employers who have need for workers
but hedge on hiring welfare recipients, eliminating the obstacles that appear to exist in
certain career ladders, and providing transportation to work when the public system is not
adequate.
John M. Ropes, Assistant Director
Office of Education and Manpower Planning
U. S. Environmental Protection Agency
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SECTION I
INTRODUCTION
In the United States, in the past several years, there has developed a solid realization
that pollution of the environment is an urgent national problem. Continued industrialization,
increased population, and urbanization provide ever-mounting evidence that pollution will
become more critical even in the face of some rather substantial efforts to alleviate the
problem. Environmental pollution control systems, equipment, and facilities are being up-
graded and new equipment and facilities are being built at a rapid rate. Meaningful efforts
to protect the environment are underway at local, state, regional, and national levels.
There are major obstacles, however, in the way of solving the problem of pollution
control. One of these is the shortage of trained manpower. The technical aspects of treating
water and wastewater, collecting and disposing of solid waste, controlling and exterminating
pests, cutting down the ill effects of automobile emissions, and so forth have resulted in a
need for trained people that is not now being met. In part the lack of trained manpower is
due to circumstances in which the kinds and patterns of job training have not been clearly
developed.
The training and employment of people for environmental protection occupations
should take three significant directions. First, there must be pre-employment or job-readiness
training to be followed by immediate employment in which there is continuing in-service
training. Second, there must be upgrade kinds of technical training to enable people to take
steps up career ladders. Third, there must be training by which people may acquire the
special and unique skills required for effective leadmanship, foremanship, and supervision.
Without these kinds of training for employment in environmental service occupations it is
unlikely that the labor force can be developed to adequately control and protect our water,
land, and air resources.
There is importance attached to environmental manpower planning and development.
This is recognized by environmental control and regulatory agencies, by state and national
associations, by educational agencies, and by both private and public organizations either
directly or indirectly involved with the operation and maintenance of environmental control
facilities. Large numbers of people are getting involved in the many activities required in the
accomplishment of national environmental control objectives. Yet, the total effort lacks
cohesion and is falling far short of meeting the need. This is largely true because the ap-
proach remains piecemeal with efforts going off on tangents because there is no unified
approach.
In manpower planning today there is understanding that the problem must be identified
and the objectives must be established. Then, it is necessary to examine alternatives and
select the best approach to manpower development. When the approach is determined, it
becomes a matter of implementation with proper monitoring, evaluating, and modifying of
programs. These are the classic steps toward manpower planning and development. These
steps and the techniques required to execute them are fundamentally the same for man-
power development in any field and at local, state, and national levels. They are about the
same for the private company involved with pest control as they are for the city government
that is much concerned about wastewater treatment.
The far-reaching nature and scope of the environmental service needs for skilled man-
power has only recently become apparent. Thus, it should be expected that relatively few
people are truly concerned about meeting those needs. An adequate nationwide plan is
lacking and certainly the funding of training progams for substantial numbers of people
will be slow in coming.
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It was a small group of people, working at the national level, who came up with the
WIN/EPA/DOL project on which this Manual is based. The outreach of the project has been
felt in twenty or more states, in larger and lesser degrees. It will take much more training
and the development of many more employment opportunities to bring about the desired
results in environmental manpower development. Perhaps, under the provisions of the
Comprehensive Employment and Training Act (CETA) there will be substantial gains. In a
few states, such as Connecticut and Louisiana, the possibilities under CETA are now be-
coming apparent. In those states CETA funds for the fiscal year 1975 are being directed
toward solving environmental manpower problems. But, in accomplishing training and
employment of people in any field, under the auspices of CETA, the work must be done by
state or local prime sponsors. The prime sponsors have no political power of their own. They
must depend for influence upon the governors, mayors, and county officials to whom they
are ultimately responsible. With "politics," the name of the game, nationwide results in
terms of environmental manpower development may be slow in coming. In some states,
however, major programs with major outcomes will be in operation during 1975.
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SECTION II
PILOT PROJECT CONCEPT
A systematic plan with nationwide implications is needed to provide unemployed,
underemployed, and otherwise disadvantaged people with the basic general abilities and
some of the specific skills required for entry into jobs in the environmental service fields.
Such a plan should be rooted in a unified conceptual approach to training for environmental
jobs. Of fundamental concern must be the opening up of opportunities for employment in
non-traditional types of jobs. Too, there must be concern for keeping disadvantaged people
from being "tested out" of jobs or in other ways being hindered from taking jobs in
environmental work units.
The WIN/EPA/DOL Interagency Agreement, under which training is now being given
in five states and under which this Technical Assistance Manual was produced, is an example
of a systematic plan such as is prescribed above. The Agreement was developed with nation-
wide implications. It was aimed at the training and employment of disadvantaged persons in
environmental service jobs. The "pilot" nature of the project became abundantly clear as
the interface relationships were established with potential employers, WIN caseworkers,
WIN administrative personnel, AFDC recipient trainee-workers, training instructors, admin-
istrators, on-the-job supervisors, and others. The multiple challenges took shape early and
the solving of many problems became the daily routine in each of the program sites.
The pilot project concept was defined at the outset and has been fundamental to all
program operations. That concept is: To prepare AFDC recipients by means of innovative
curriculums and methodology for permanent employment in environmental service occupa-
tions that are in most instances new or alien to the trainee-workers.
Basic Plan of the Project
The Interagency Agreement stipulated that the development and control of the project
should be at the national level, stemming from the Environmental Protection Agency. It was
the WIN/DOL National Office that established the makeup of the target population that
should benefit from the training and employment opportunities. In terms of operation of
the program, it was state and/or local prime sponsors who became responsible. In effect,
this was a unified conceptual approach from the outset.
Prime sponsors in five states were initially chosen to provide geographic representation
and difference in types of organizations. Both state and local types of organizations are
among the prime sponsors. Also, there are many different characteristics of people in the
target populations drawn from the five states.
Fundamental to the operational development of the program in each state is the
belief that "welfare" does not alleviate the despair and resentment of society which result
from unemployment, whatever the cause of that lack of wage earning may be. Welfare
provides the necessities of life but adds nothing to a person's stature, nor does it relieve the
frustrations that grow. In short, the price of public assistance, such as AFDC, is loss of
human dignity. Doing something about this became the task of each state or local prime
sponsor organization. The "doing" now consists of providing a wide variety of training and
employment opportunities wherein the AFDC recipients are matched up with existing
environmental service jobs.
As implemented in the five states, the training and employment programs are similar
in most respects yet substantially different in certain ways. To illustrate: in one state the
major problem is locating and recruiting AFDC recipients to enter training and take
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environmental jobs. In sharp contrast, in another state, the major problem is development of
job opportunities for the significant numbers of AFDC recipients who are available. In the
first instance, much time and effort is required in working through the WIN organization to
"entice" people into accepting training and entering into employment. In the second in-
stance, much time and effort is required in working through public and private employing
units to "entice" employers to accept the AFDC recipients in non-traditional employment
circumstances. In both instances, people interactions, usually based on emotions rather than
reasoning, are at the crux of the problem.
Uniquely, in this project, the original intent of training and placement of people in jobs
became relatively easy to accomplish but only after the other aspects, job development and
recruitment, were implemented through much hard work and perseverance on the part of
numerous individuals. As the challenges in job development and recruitment became appar-
ent, so did the realization that the WIN/EPA/DOL project is unlike other training and
employment programs. The program involves much more than pre-job training with the
hope of placement. In contrast, each job has to be found—each trainee-worker has to be
recruited—the training has to be new and innovative—people have to be factored into
supervised work experiences—follow-up has to be done to ensure permanent employment.
Both the nature and the scope of this project extend far beyond the limits of programs of
the past, such as those under the auspices of the Manpower Development and Training
Act (MDTA).
Dissemination of Information About the Project
This Technical Assistance Manual was prepared for the purpose of providing detailed
information covering the implementation of a WIN training and employment program. This
Manual contains pertinent instructions and guidelines for implementing all phases of a WIN
program. The material for it was derived from the five ongoing state and local programs
growing out of the national program under a WIN/EPA/DOL Interagency Agreement.
The experiences in five states are the basis for material herein that is descriptive of the
ongoing program. Those same experiences constitute the basis for suggestions and recom-
mendations relative to future programs for training WIN people to fill environmental service
jobs. The intent of this document, then, is to show how the goals of both WIN and EPA can
be achieved through joint efforts with a unified approach.
There are a variety of funding arrangements that may be developed through the use of
federal, state, and local monies. There are many kinds of linkages that can be formed through
state agencies such as environmental quality control councils, state departments of health,
state departments of agriculture, state departments of education, vocational-technical
training units, WIN groups, state employment service units, and CETA units. In particular,
funding for job slots, such as the WIN-OJT and WIN-PSE programs provide, may become
extremely valuable in making training under CETA useful where environmental service jobs
are available.
The Office of Education and Manpower Planning of the EPA, through its representa-
tives and special consultants, has had contacts during 1974 with approximately 25 of the
States. People in environmental control agencies, departments of health, and other agencies
were contacted with reference to the need for environmental training, job opportunities,
and general interest in the ways and means of better controlling the environment.
During the visitations to various states certain discoveries were made relative to the
WIN/EPA approach to training and employment in environmental service jobs. Certain
selected findings include the following:
1. State, county, and local environmental quality agencies are generally not knowledge-
able concerning the WIN program.
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2. Conference meetings, that included state environmental quality agency and WIN
officials, were productive because questions and problems were resolved to the
mutual satisfaction of the various officials.
3. The various state environmental quality agency directors expressed interest in having
WIN program clients join the environmental labor force.
4. The state and local environmental quality agency officials expressed the need for
assessment studies and job development work in their respective governmental units.
They stressed that funds must become available to staff the organization and admin-
istration of joint WIN/EPA efforts.
Twelve states made up the group from which letters professing interest in WIN/EPA pro-
grams were sent to the EPA. The letters also requested additional information and, in
particular, sought sources of money for use in developing administrative arrangements under
which CETA training funds might be combined with WIN-OJT and WIN-PSE job slot funds
to make a joint WIN/EPA program work.
Because this Technical Assistance Manual contains references to many of the problems
and challenges that have already been raised in numerous states, it is perhaps a good vehicle
for dissemination of information about the WIN/EPA concept of training and employment.
The Manual is comprehensive and it is directed toward enabling local program officials to
solely promote, develop, and administer a WIN program. The remainder of this document,
then, is devoted to a description of the pilot project organization and administration, to how
environmental service manpower may be developed, to ways and means of establishing new
programs such as through CETA coordination with WIN, and, finally, to models of programs
and devices required to make training and employment programs effective.
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SECTION III
PILOT PROJECT ORGANIZATION
AND ADMINISTRATION
The U. S. Environmental Protection Agency (EPA) is responsible for execution of the
Federal environmental pollution control and abatement program. In exercising this responsi-
bility, the EPA has had to come to grips with the problem of building and maintaining skilled
manpower for the operation of pollution control facilities. To help in solving the manpower
problem, the EPA has made its Office of Education and Manpower Planning (OEMP) the
focal and coordinating unit for developing training and employment programs. The OEMP
played a major role in the development of the WIN/EPA/DOL Interagency Agreement
No. 99-4-0001-021.
It should be noted that the OEMP is now encouraging environmental control agencies
in all of the states to lead the way in developing a broad base for training and employment
of people in environmental service occupations. In particular, the OEMP effort is directed
toward providing guidelines and assistance to CETA, WIN, Department of Health, Depart-
ment of Agriculture, and other state agencies who may be providing training and employ-
ment required to meet the need for entry and upgrade workers in environmental jobs.
Interagency Agreement
The Environmental Protection Agency, as the National Grant Agency (NGA), in
cooperation with the Department of Labor (DOL) agreed to establish and operate a project
to provide job training and placement assistance to welfare recipients enrolled in the Federal
Work Incentive Program. The participants in this project are those receiving Aid to Families
with Dependent Children. The primary objective of this co-effort is to provide able-bodied
AFDC recipients with opportunities for full-time career employment in the environmental
pollution control and abatement fields. Training programs were established and operated
initially in five states (Colorado, Louisiana, Maryland, South Carolina, and Texas). These five
programs got underway in 1974 with classes formed at several metropolitan locations during
the months of February through June. Information is accumulating concerning the results,
mostly good, that are being achieved in the current operation of these programs.
In this interagency project, the two principal participants, the EPA and the DOL, are
seeking the achievement of identical goals in training and employment of disadvantaged
people. The EPA and the DOL, at the national level, establish the basic guidelines for train-
ing and employment. The EPA and the DOL also define the parameters of funding and
exercise control over costs.
Environmental Protection Agency
The EPA became the National Grant Agency and the administration of the total pro-
gram was delegated to its Office of Education and Manpower Planning. The OEMP has
initiated and is performing the following functions:
1. Selecting grant recipients who shall be the state or local sponsoring agencies.
2. Assisting in development and execution of grant agreements between the NGA and
the selected grant recipients in accordance with requirements of the WIN/DOL
National Office.
3. Furnishing the technical personnel to promote, develop, and administer the training
program for adult AFDC recipients for jobs in environmental services.
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4. Providing technical assistance, as needed, to the state/local sponsoring grantees in
carrying out the objectives of the WIN program, including guidance in setting up
systems in financial control and reporting, as required by the WIN/DO L National
Office.
In particular, the OEMP accepted responsibility for establishing needed methods of main-
taining solid accountability for all relevant aspects of the training and employment to be
provided for approximately 700 trainee-workers.
The broad role of the OEMP under the Interagency Agreement has involved the pro-
motion, development, and administration of the "national" program with training and
employment centered in five states. The more specific duties of the OEMP are:
1. Monitoring the individual grant programs bimonthly.
2. Providing EPA/WIN representatives to function at local levels.
3. Submitting summary monthly narrative activity reports to the WIN/DO L National
Office staff by the 15th of each month.
4. Submitting regular financial reports to the DOL, as designated by the WIN/DOL
National Office.
In the performance of these duties, the OEMP staff has engaged in much communication
with personnel in each of the five states, has traveled extensively in monitoring activities,
and has conducted quarterly conferences to expedite the overall implementation of the
training and employment program. The span of control of the OEMP staff currently extends
to more than 75 instructors, counselors, caseworkers, coordinators, data assistants, clerical
workers, and project directors in the five states.
WIN/DOL National Office
To round out the cooperative aspects of this national project, the Federal Work
Incentive Program organization of the Department of Labor agreed to encourage its local
units in the five states to recruit trainee-workers for training and employment in environ-
mental occupations. The trainee-worker recruits are people receiving financial help and
other services rendered by the WIN II organization through Aid to Families with Dependent
Children. It was the DOL that agreed to initially fund this project for the training and
employment of 700 persons in five states. The expectation was that, as the pilot project
shaped up and good results could be verified, funding would be provided for similar pro-
grams in additional states and for continuation of all programs into the years ahead. Toward
that end, two additional programs have been funded and are underway in Connecticut and
Montana.
The WIN/DOL National Office has initiated and is performing the following functions:
1. Programmatic reviewing of the individual state project proposals and modifications.
2. Monitoring of the National Grant Agency's individual grants.
3. Providing technical assistance to both the NGA and its local sponsoring grantees.
Along with other tasks the performance of these functions has required maintenance of
channels of communication and WIN/DOL representation at quarterly conferences of
national and local staff personnel.
National Project Organization
The EPA (National Grant Agency), through its Office of Education and Manpower
Planning, has promoted, developed, and is now administering through local grant recipients
the environmental training and employment program designed to:
1. Provide remedial education and skill training to approximately 700 adult welfare
recipients (entry enrollees).
2. Ensure the placement of these 700 individuals in established budgeted positions
located in selected public and quasi-public agencies performing environmental
services.
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The OEMP has selected for training grants those state and/or local project sponsors who, by
evaluation, met the criteria to effectively carry out the goals and objectives of the WIN/
EPA/DOL program. The OEMP has conveyed copies of negotiated state and/or local grant
proposals to the Office of Work Incentive Programs, Manpower Administration, U. S.
Department of Labor.
Objective of Office of Education and Manpower Planning
The edict under which the OEMP was organized indicates that the objective of the
Office is:
.... to assure the continuing availability of an adequate number of trained peo-
ple to meet the present and projected needs of a national work force for pollution
abatement and control.
Generally, the OEMP role is to stress planning, policy guidance, and assistance to states and
localities to staff their pollution control agencies and operating units, upgrade the skills of
environmental employees, and assist in developing state and local training programs.
The promotion, development, and administration of the WIN/EPA/DOL project for
the training and employment of 700 people constitutes a major effort toward fulfillment of
the objective of the OEMP. In specific ways, the OEMP provides a management overview of
this national project. The OEMP monitors and evaluates the resources brought to bear on
environmental manpower problems in the local grant areas. The OEMP provides leadership
in the planning, coordination, and evaluation of the manpower development activities. Of
much importance is the help rendered by the OEMP staff in assessing needs, formulating
policies, developing guidelines, and identifying imbalances and critical need areas.
WIN/EPA Project Staff
Although this WIN/EPA/DOL project is extensive in nature and broad in scope, it is
administered by a relatively small staff in Washington, D. C. The staff is indicated on the
organization chart on the next page. The Director and the Assistant Director of the Office of
Education and Manpower Planning in the Environmental Protection Agency are, of course,
directly responsible for the project. They exercise authority over it. It is responsibility for
the actual operation of the project that is delegated or assigned to the WIN/EPA Project
Director. It is the Project Director who really "runs with the project" in all of its detail. To
more clearly define the national administration applied to this project, the following pages
include descriptions of each of the staff positions involved.
Project Director—The national Project Director is responsible for developing, coordina-
ting, monitoring, and evaluating all phases of the program within the established guidelines.
The Project Director receives general administrative guidance from the OEMP. The major
responsibilities of the Project Director are:
1. Developing and implementing instruction and guidelines for program administration
in cooperation with the WIN/DOL National Office.
2. Initiating program adjustments and refinements to meet new developments and
unforeseen requirements.
3. Providing direct technical guidance and assistance on-site to state and local authori-
ties in the administration and implementation of program goals.
4. Developing, coordinating, and supervising program accounting procedures and fiscal
controls, including the collection, tabulation, and analysis of program reports.
5. Making regular reports, as required, to the WIN/DOL National Office on program
progress, program evaluation, and financial summaries.
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National Organization
for WIN/EPA/DOL
Employment and
Training Project
NATIONAL GRANT AGENCY
(Office of Education and Man-
power Planning, Environmental
Protection Agency)
WIN/EPA PROJECT DIRECTOR
PROGRAM MONITORS
(2)
ADMINISTRATIVE ASSISTANT
PROGRAM
REPRESENTATIVES (2)
CLERK-TYPISTS
(3)
(Organization of prime sponsors in seven states
for field training and WIN support personnel)
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6. Developing fiscal controls to ensure valid expenditures of public monies allocated to
program administration.
7. Representing, with approval of the OEMP Director, the OEMP in WIN/DOL meet-
ings concerning program appraisal, new developments, and requirements.
8. Initiating recommendations to higher officials for use in developing or modifying
NGA policy and instructions.
Under guidance of the OEMP Director and Assistant Director, the national Project Director
supervises a staff consisting of an Administrative Assistant, three Program Monitors, two
Program Representatives, and three Clerk-Typists.
Administrative Assistant—Under the direct supervision of the national Project Director
the prime responsibilities of the Administrative Assistant are:
1. Tabulating and maintaining all project data submitted to the OEMP headquarters,
such records to include enrollee and training data, by individual, and all budget and
fiscal data, by program.
2. Preparing monthly project training summaries and financial data.
3. Preparing and submitting program reports and data as requested or required by the
National Grant Agency, Department of Labor, Federal Work Incentive Program,
Separate Administrative Units, IMU, and/or Employment Service.
An important aspect of the work of the Administrative Assistant is the development of
arrangements and coordination of the activities for the quarterly conferences of local and
national staff personnel.
Program Monitors—Under the supervision of the national Project Director, two Program
Monitors are assigned to ensure fiscal and program compliance. Their primary duties entail
reviewing all phases of project operation and effectiveness, providing technical assistance
when required, and recommending and implementing changes for improvement. Unless
otherwise directed, on-site, bimonthly monitoring visits are made to each ongoing project.
After each monitoring visit, a narrative report is prepared and submitted to the national
Project Director.
Program Representatives—To acquaint state and local officials with the objectives and
merits of the WIN/EPA approach to training, Program Representatives were employed
through the University of Oklahoma. Essentially, they fulfilled two goals: (1) to "sell" the
WIN/EPA plan for training to state and local communities and U. S. employment agencies
where WIN-OJT funds were available and (2) to obtain commitments from local employers
to place WIN recipients in vacant environmental service jobs. These Program Representatives
were not responsbile for administering subcontracts per se. They did provide assistance,
guidance, and encouragement to local organizations that were considering how to most
effectively utilize available funds for training and employment.
In the performance of their functions, the Program Representatives were given consid-
erable latitude with respect to visiting various states and localities nationwide. Continuous
travel was involved since their prime responsibilities were performed at the local level.
These Program Representatives made regular monthly progress reports and special
reports to the OEMP staff and the WIN/DOL National Office. Their reports reflected the
strong interest in training WIN recipients for environmental service occupations that exists
in the nineteen states they visited over the six-month period.
Clerk-Typists—The Clerk-Typists assigned to the WIN/EPA/DOL project provide
necessary secretarial, clerical, typewriting, filing, and other office support services. In partic-
ular, their duties entail clerical service support to the OEMP staff who have project
responsibilities.
Management of the National Project
Management of this WIN/EPA/DOL training and employment project is the direct
responsibility of the Office of Education and Manpower Planning of the Environmental
11
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Protection Agency. It is the OEMP that must at all times exert leadership in terms of plan-
ning, operating, and controlling the various aspects of the total project. These aspects of the
required leadership permeate the project from the national level, to the state level, to the
classroom, to the job itself. In most instances, the leadership takes on person-to-person
relationships with good communications and full understanding becoming vital in each of
the functional aspects.
The personnel of OEMP responsible for this project cannot have person-to-person
relationships with each trainee-worker. The leadership of the OEMP staff has its effect,
however, and is usually discernible in the contacts with trainee-workers that are made by the
job developers, the WIN caseworkers, the training instructors, the on-site work supervisors,
and others.
Three levels and several sublevels of management are evident in this WIN/EPA/DOL
project. The top level of management is exercised by the OEMP, the middle level by the
state or local program grantee, and the operating level of management by the people directly
charged with the training and employment. Make no mistake, however, in comparing these
levels of management. The only difference in the managerial requirements between the top
level exercised in Washington, D. C., and the operating level exercised in the classroom or on
the job is one of degree. The managerial cycle in this project has three functional elements,
all of which are performed by all managers or coordinators. The functional elements are
planning, operating, and controlling.
Planning—Planning involves looking ahead and formalizing a course of action both for
the immediate problems and for those on the horizon. Planning is important at all of the
levels of management in this project, but planning and the policy making associated with it
are of more concern to the top level managers than to those on the operations level. The
planning by the staff of OEMP began with formulation of the Interagency Agreement. That
planning has continued into the establishment of programs in seven states. It now involves
considerations relating to continuation of ongoing programs and the establishment of
additional programs in other states.
The results of the planning by the OEMP staff are evident in the ongoing programs.
Adaptations and modifications in the planning by the national staff are effected through
on-site visitations and in the quarterly meetings of the national and local staff groups. To
date the adaptions and modifications have been relatively few in number and rather easy to
make. Policies established by the national staff have been easy to follow at the state and
local levels.
Operating—Operations in this project consist primarily of the person-to-person contacts
and the directions required for getting things done—the training and employment of AFDC
recipients. Once the plan was laid down hi Washington, the job of carrying out the plan
became one of organizing the operations at the local grant level. The operating processes
established through cooperative actions are easy to understand and appreciate. It is making
those operations work through people that becomes difficult in this project. There are
multiple person-to-person contacts required. Each contact must be carefully established and
nurtured over a period of time.
While the OEMP staff has primary concern for the planning that went into this project,
the staff concern for operations is not so immediate nor so deep. Through the planning and
controlling management elements, the OEMP staff tends to work around operations. The
staff helps in every way possible to guide the local person-to-person contacts but is more or
less helpless when it comes to doing much about such contacts. On the other hand, however,
the OEMP staff has performed extremely well in maintaining the basic operations contacts
between the national office and the administrative personnel in the local programs. The
national office staff only infrequently and informally has contacts with the AFDC recipient
trainee-workers, with instructors, and with work-site supervisors.
12
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Con trolling—Controlling in the WIN/EPA/DOL project is the process of observing
when things are out of line and taking the necessary action to bring them back under control.
The necessary action usually involves measuring, restraining, or changing. The OEMP staff
has done these things very well in this project. The organizational structure of the project
has allowed for the delegation of authority for control to individuals at the top, middle, and
operational levels of management. At the top level, the OEMP staff has been concerned
with guiding the development of local programs of training and employment and funding of
them. The staff has properly maintained relations and good communications with the
WIN/DOL groups in Washington.
In each state or local program, there has been concern for control of costs, numbers of
trainee-workers, effectiveness of instruction, and so forth. At the national level, of course,
such concern has been multiplied by the number of programs and thus the nature of that
concern is intensified and the scope of it is extended. One of the primary control concerns
involves the current success or failure of the program and, at the same time, there is concern
for the future funding and maintenance of operations. In these regards, only the national
organization, the OEMP staff, has direct influences upon the outcomes.
State Program Organization
In each of the states there are now groups having responsibilities connected with the
development of manpower and training programs. In each of the states there is at least one,
and often more, group(s) having particular responsibility for the coordination of resources
and programs for the development of environmental manpower. It is through some of these
groups that state and local programs were established under the WIN/EPA/DOL national
project.
The seven state programs that have been established under the Interagency Agreement
were formulated either through state or local agencies with intent to provide the necessary
labor force to enhance and preserve the quality of air, water, and land through prevention,
control, and abatement of pollution. In the seven states the organizations now performing
as state or local grantees are:
Colorado—Denver Regional Council of Governments
Connecticut—State Department of Environmental Protection
Louisiana—State Department of Education
Maryland—State Department of Natural Resources
Montana—State Department of Health and Environmental Sciences
South Carolina—State Board for Technical and Comprehensive Education
Texas—North Central Texas Council of Governments
It is apparent that four different kinds of agencies have the responsibility for developing
and operating the WIN/EPA programs in the seven states. Only in Colorado and Texas can
it be assumed that the organizations are similar in terms of the bases from which the pro-
grams stem.
Each of the states or local grantees indicated above is a significant and busy agency in
its own right. In each case, the WIN/EPA training and employment program is only one,
perhaps relatively small, facet of the business of the agency. The program comes under the
scrutiny and control of the head of the agency, but the operational management is delegated
to the local Program Director. The program takes on significance, is given direction, and
becomes effective in relation to the efforts and leadership skills of that Program Director.
State or Local Program Staff
The head of the state or local program grantee agency is likely to keep informed about
the WIN/EPA training and employment program. (S)he may place an immediate assistant in
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general charge of the program and in control over the use of the funds provided for it; but,
the task of making the program fully operative is assigned to an individual designated as the
"Program Director." The Program Director then proceeds to employ a small staff, arranges
through subagreements to get the training done, and supervises the placement of the trainee-
workers in environmental jobs. The organization chart on the next page shows the deploy-
ment of personnel in the local grant program. The techniques and procedures for getting
things done are at least partially pictured in the job descriptions that follow.
Program Director—The Program Director has overall supervisory responsibility for the
training and placement of AFDC recipients as set forth in the agreement between the local
grantee and the National Grant Agency. (S)he works closely with various agencies and in
particular with the local WIN agency and employing organizations. This individual reviews
all training progress reports and financial statements before submitting them to the NGA
and/or the WIN/DOL National Office. (S)he supervises directly the work of the Job De-
veloper, the Training Coordinator, and the Data Assistant. The Program Director negotiates
and initiates subagreements as required in component parts of the program. (S)he monitors
all training activities and oversees the execution of budgetary, logistical, and other pro-
cedures and policies.
Job Developer—The Job Developer has overall responsibility for developing environ-
mental jobs through contacts with employers in both the public and quasi-public sectors.
(S)he works closely with and provides a communications linkage between the WIN/EPA
program, WIN caseworkers, job trainers, employers, work supervisors, and trainee-workers.
In developing environmental jobs (s)he is required in many cases to foster changes in
employer attitudes and to negotiate changes in entrance standards and/or restructuring of
jobs. The Job Developer engages in follow-up activities to maintain employer acceptance of
trainee-workers and is familiar with all aspects of the program including the training, ad-
ministration, wage reimbursement, and support services.
Data Assistant—The Data Assistant is the "office manager" of the program under direct
supervision of the Program Director. (S)he is responsible for collecting, analyzing, and
tabulating all training and financial data in connection with the program. (S)he maintains
all enrollee training and placement records and progress reports. The Data Assistant prepares
regular reports, both training and financial, for submission to the NGA and/or the WIN/DOL
National Office and maintains all records and accounts so that they may be readily available
for examination by the NGA Program Monitor.
Training Coordinator—The Training Coordinator is responsible for determining the
needs of trainee-workers while they are in the training component of this program. (S)he
decides how those needs will be met, either through classroom or on-the-job training. The
Training Coordinator works closely with the Job Developer to ensure coordination of the
needs of the trainee-workers and the needs of the potential employers. The main concerns of
the Training Coordinator are: planning of the curriculum, development of instructional
materials, evaluation of training effectiveness, and continuous modification and restructuring
as needs change. The Training Coordinator's intent is to provide the best possible training
and to factor trainee-workers into supervised work experience and permanent employment
quickly and easily. At all times the Training Coordinator is involved with content and
methodology. (S)he frequently assumes the role of the Instructor to provide instruction in
his/her areas of expertise or to demonstrate to others how the instructing should be done.
Instructoi—The Instructor is responsible for the day-to-day instruction required in the
program. (S)he may assist the Training Coordinator in the identification of training needs,
in developing materials, or in evaluating the effects of the instruction. The Instructor fre-
quently functions as a "counselor" with regard to job training and personal problems of the
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Local Organization
for WIN/EPA Training
and Employment
Program
STATE OR LOCAL
WIN/EPA PROJECT
GRANT RECIPIENT
EMPLOYING
ORGANIZATIONS
PROGRAM DIRECTOR
LOCAL WIN
DIRECTOR
Job
Developer
Training
Coordinator
Data
Assistant
Instructors
WIN
Caseworkers
TRAINEE-WORKERS
-------
trainee-worker. One of the principle tasks of the Instructor is to make the trainee-worker
comfortable in the activities required for preparation for a job that is new or alien to the
individual. The Instructor may pave the way to employment by accompanying the trainee-
worker to the job site and helping to introduce him/her to the job.
Subagreements for Training
It should be noted here that the state or local grantees do not ordinarily have opera-
tional units for the offering of training in the relatively special aspects of environmental job
training. They, therefore, enter into subagreements with training organizations to provide
that job training. In so doing the state or local grantee obtains additional administrative
and/or supervisory kinds of support. The training organization that actually does the train-
ing has its own administrative and supervisory personnel who enter the picture to help
ensure that the training and job placement are done in full accord with all requirements and
standards. Such supervisory help may be provided on a regular basis or it may be sporadic on
an "as needed" basis.
Coordination with Federal Work Incentive Program
The Work Incentive Program has been a major national effort since 1968 to help peo-
ple on Aid to Families with Dependent Children become productive workers. Under the
Social Security Act (SSA), WIN has the tools it needs to bring job-related help to a signifi-
cant share of the Nation's welfare population.
The WIN program offers job-finding aid to AFDC recipients who are ready to work and
services such as job training, counseling, medical aid, and child care to those who need such
help in order to get ready for work. WIN is operated jointly by the Department of Labor and
the Department of Health, Education, and Welfare (HEW) through state employment ser-
vices (or other manpower agencies) and welfare agencies across the country.
It is with the substantial and ongoing program of WIN that the effort to train and
employ some 700 welfare recipients for environmental service occupations is coordinated.
The first plans for the WIN/EPA/DOL national project were formulated with representatives
of the three organizations in Washington, D. C. The operational development of the training
and employment programs in each of the seven states was coordinated with the state and/or
local programs of WIN. The fundamental nature of WIN is sufficiently unique to warrant a
description in this Technical Assistance Manual. That description follows in this section.
Additional material about coordination with WIN appears elsewhere. For example, in
Section IV, Environmental Manpower Development, there are references to WIN in terms of
recruitment of trainee-workers, support services for them, and other component parts of the
total program of training and employment.
Functions of the WIN Organization
The current WIN II program was created from the WIN I program by the 1971
Amendments to the Social Security Act. WIN II shares with its predecessor the goal of
helping recipients of AFDC become economically self-sufficient through employment.
The purpose of WIN is to assist AFDC recipients, registered with WIN on a mandatory
or voluntary basis, to enter meaningful employment which will increase their self-sufficiency
and, as a corollary, decrease their welfare grants or remove them from the welfare rolls
completely. WIN accomplishes this through a combination of employment-related man-
power and social services. A maximum effort is made to utilize existing manpower and
supportive services furnished through non-WIN funding sources.
WIN II is jointly administered by the Department of Labor and the Department of
Health, Education, and Welfare to assure that AFDC recipients receive the manpower and
16
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supportive services needed for employment. This shared responsibility and close cooperation
exists at national, regional, state, and local levels. For example, HEW requires and funds in
each state welfare agency a separate administrative unit (SAU) which is responsible for the
provision of supportive services to WIN participants. At the national and regional levels,
staffs from the two Departments are collocated. Many state and local offices also have
collocated all or part of their staffs.
Approximately 330 WIN projects have been established in locations in the United
States covering 75 percent of the AFDC population. With the exception of the State of New
Hampshire and the City of Albuquerque, New Mexico, these are operated under the sponsor-
ship of State Employment Security (ES) agencies. WIN operates as a separate unit and
generally has its own State Administrative Unit.
WIN offers a series of activities and components through its legislation and regulations.
Please refer to the next page for a flow chart which depicts how the components fit together.
Specifics of the activities and components that are pertinent to the WIN/EPA/DOL training
and employment program are described here.
Registration of AFDC Recipients
One of the major requirements of the WIN legislation is that all AFDC recipients,
unless exempted by law, must register for employment and manpower services as a condition
for receiving AFDC benefits. These individuals are called "mandatory registrants." The only
AFDC recipients or applicants who are exempted from registration are:
1. Those incapacitated or 65 and older.
2. Those living too far from a WIN project to participate effectively (measured by
living more than two hours total daily commuting time from a participation site).
3. Those caring for an incapacitated person in the home.
4. Mothers with children under 6 years of age.
5. Mothers, when an adult male relative in the home is registered with WIN.
6. Children under 16, or those 16-21 who are in school full time.
Any exempt person may volunteer to participate in WIN and a large number do so. A
mandatory registrant may become exempt, and vice versa, as the individual's status is
altered by changes in his/her personal or family circumstances.
The WIN legislation also established a priority of services for WIN registrants. De-
pending upon the degree of employability, those unemployed fathers in states which allow
unemployed fathers to receive AFDC benefits who do not quality for an exemption from
registration are mandatory registrants and must be served first, voluntary registrants have
second priority, and other mandatory registrants have third.
Appraisal of Registrants
Appraisal interviews are conducted to determine a registrant's appropriateness for WIN
participation by determining the degree of employability and the extent and type of
supportive service needs. Welfare agency staff assigned to Separate Administrative Units
participate in the appraisal interviews with WIN/ES staff. If during the appraisal interview it
is determined that a registrant is appropriate for WIN participation, an employability plan
(EP) is developed which maps out the manpower and supportive service needs required to
enable the participant to reach his/her career goal. Specifically, in the WIN/EPA/DOL
project, mandatory registrants, when considered job ready by the local WIN appraisal
interviewers, are referred to the training program for entry job training and appropriate
employment in an environmental service job.
A mandatory registrant cannot refuse without good cause either to appear for an
appraisal interview, participate in WIN, or to accept appropriate employment without
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ALL AFDC
Recipients
Not Registered
yes
\
\
KEY:
Decision point =
Program status =
no
Registered with
WIN and regis-
trant pool
Appraised for job skills
and need for supportive
services
no
Appropriate
for WIN Partici-
pation
yes
-
WIN activities: orientation, job
development, OJT, PSE, etc.
no
33
CD
CD
Q.
m
3
o
CD
Q.
cr
CD
i.
<
(Q
c
•o
CD"
CD
O
cr
CD
CD
Job Entry and WIN follow-up
FLOW CHART
HOW AN AFDC RECIPIENT MOVES FROM WELFARE STATUS INTO THE WORK FORCE
18
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jeopardizing his/her AFDC benefits (but this will not affect the children's portion of the
grant). This legislatively mandated work test takes on significance in the WIN/EPA/DOL
project because it is applicable to all mandatory registrants in WIN regardless of their
involvement with any other program or activity.
Certification of Availability of Support Services
When the WIN staff requests specific supportive services for a client, the SAU staff
must certify that these services are either available or not available at the time requested,
and if available, arrange for their provision. No certification occurs if the services needed are
not available. (Certification is required by legislation to be completed within thirty days for
all unemployed fathers.)
The certification process is helpful to the state and/or local Prime Sponsor in the
WIN/EPA/DOL project. In many instances supportive service needs and their availability
have already been identified and substantiated by WIN. In some instances support services
already are being provided or arranged for either partially or fully.
Orientation
This component is intended to familiarize participants with WIN and the world of
work and to help them develop job seeking skills. Orientation may last up to four weeks and
may include job search activities.
Since the orientation component in WIN varies considerably from project to project,
and since state and/or local Prime Sponsors of this WIN/EPA/DOL project also provide
orientation, it is essential that both sponsors be aware of the content of the orientation that
is provided to a client by the other program. The other orientation may include much more
than just specific program information. This information allows both sponsors to structure
the orientation for an individual enrolled in both programs in a complementary manner.
Suspense
This is the component which gives WIN its greatest flexibility in coordinating with
other manpower programs. Participants enter suspense when there is a manpower activity
outside of the WIN program that will help them expedite the completion of their employa-
bility plan. Persons in suspense retain their status as WIN participants. If the activity or
program to which the participant is suspended pays its enrollees an incentive allowance and
the cost of expenses related to the activity, then WIN does not duplicate these payments. If,
however, the activity to which the participant is suspended does not make these payments,
WIN will pay them. WIN also may provide necessary supportive services, such as child care,
counseling, etc.
Consideration of the suspense status of the AFDC recipient is a good illustration of
how linkages between programs are developed and how they affect the individuals. In this
instance the linkages that may be developed with the programs of the Comprehensive
Employment and Training Act (CETA) are important.
As stated in Section 95.34(g) of the CETA regulations, an incentive allowance of $30
per week shall be paid to all CETA enrollees receiving public assistance payments. WIN
participants suspended to CETA would receive the CETA incentive allowance. In addition,
all WIN participants suspended to CETA activities and services are subject to the same
regulations and privileges as other CETA enrollees, except where WIN legislation and regu-
lations specifically have priority. Such instances are discussed in this Manual.
When an individual is in the suspense component, (s)he is suspended for a specific
activity [e.g., On-the-Job Training (OJT) or Public Service Employment (PSE)] not for a
program (such as CETA). This is an important distinction for Prime Sponsors to be aware of,
19
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since a change of activities within CETA will require a corresponding change in the in-
dividual's employ ability plan.
In those locations where WIN participants in the WIN/EPA/DOL project may be
suspended to CETA, the flow of information is greatly expedited by selecting certain staff
members in each program who can establish regular communications concerning the client's
progress. CETA Prime Sponsors also should be aware that WIN information on suspended
participants, except some confidential counseling records, is available to the CETA spon-
sors upon request. Examples are test results, the employability plan, supportive service needs,
financial status, etc.
Institutional/Classroom Training
This includes skill training as well as other classroom training such as basic education.
When WIN provides training of any kind, it is provided through a subcontract with another
organization. Normally, it is training for high-demand occupations, which will enhance the
placement potential of participants who are less than job ready. WIN legislation sets a
maximum of one year training for WIN participants.
WIN is not in a position to meet all the training needs of WIN clients. For example, the
legislation requires that one-third of all WIN/DOL expenditures be for OJT and PSE. It,
therefore, is important that WIN sponsors secure various types of institutional training
from other sources. The Secretary of Labor is mandated by the Social Security Act to
utilize all authority available under that or any other Act to assure that such services and
opportunities are provided to WIN registrants (SSA, Section 432d). It should be noted that
this component or activity of WIN has not yet been utilized in connection with the WIN/
EPA/DOL project.
On-The-Job Training
In WIN, participants may enter employment under a contract with either private
employers or non-profit organizations. Under the terms of the contract the employer may
be reimbursed for the cost of training the employee if a commitment to hire the employee
is made at the termination of the contract. Linkages with this component of WIN are now
in effect in each of the state and/or local programs of the WIN/EPA/DOL project.
The WIN-OJT contracts include a commitment to hire at the end of the subsidized
employment period. Thus, there is application of the principle of "hire first, train later"
that has long been successful in job training and employment. WIN requires that placement
be the immediate goal.
WIN-OJT contracts have a maximum duration of eighteen months. The minimum dur-
ation of a WIN-OJT contract is four weeks. However, a state may increase the minimum
length of time to eight weeks.
A portion of the salary paid to WIN-OJT participants who are mothers on AFDC is
disregarded when the amount of their AFDC benefits is computed. WIN pays two dollars
per day for training related expenses to participants entering OJT until they receive their
first paycheck.
WIN has a legislative requirement to expend one-third of WIN/DOL funds on WIN-OJT
and WIN-PSE each fiscal year.
Public Service Employment
In WIN, participants employed under a PSE contract are employed by local, county, or
state governments or by non-profit organizations. The maximum salary that can be paid to a
WIN-PSE participant is $12,000. WIN also can fund up to 100 percent of the employee's
first-year salary, under special circumstances 75 percent of the second year, and 50 percent
20
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of the third. No subsidized wages are allowed beyond the third year. Here, again, is a
component of WIN which is being used effectively in the WIN/EPA/DOL project.
WIN pays two dollars per day for training related expenses to participants entering PSE
until they receive their first paycheck. The SSA Amendments of 1971 specify that the
income disregard for AFDC mothers does not apply to WIN-PSE participants.
WIN may fund no more than 20 percent of the total PSE contracts for longer than one
year, with 100 percent wage reimbursement available to the employer the first year, 75 per-
cent the second year, and 50 percent the third year.
Again, it should be noted that WIN has a legislative requirement to expend one-third
of WIN/DO L funds on WIN-OJT and WIN-PSE each fiscal year.
Full-time Employment
This WIN component covers the first ninety days of permanent, unsubsidized, full-
time employment. It may occur as a result of an individual's own efforts, through a direct
WIN placement, or after a period of subsidized employment (OJT or PSE) has ended.
Follow-up activities are carried out during the job entry period by the WIN staff to ensure
the smoothest possible transition into employment by the participant. Supportive services
also are provided during the job entry period.
Supportive Services
All of the above WIN manpower components (orientation, suspense, institutional, OJT,
PSE, and Job Entry) are complemented by the ongoing services of counseling, coaching, up-
grading, technical assistance, and follow-up. Participants in these WIN components also are
eligible for, and may be provided with, when needed, the following supportive services:
1. Child care
2. Transportation
3. Remedial medical assistance (health-related medical assistance)
4. Vocational rehabilitation
5. Housing
6. Home management and other functional education
7. Homemaker
8. Family planning
In the WIN/EPA/DOL project there is much evidence to support the view that without the
support services provided by WIN most AFDC recipients cannot gain access to employment.
Joint Planning
An understanding of the WIN program requirements, as well as its goals and emphases,
is important to Prime Sponsors in planning programs in their areas. When planning the
coordination and linkages needed to integrate their efforts with existing organizations and
programs, and when determining the optimum program mix for the area, the WIN compo-
nents and activities are meshed successfully with many aspects of the WIN/EPA/DOL project.
Initially, it is advisable that both WIN and the Prime Sponsor jointly develop and be
familiar with each other's plans of operation. By being aware of the services and components
to be emphasized by the other program, each program will be in a better position to fill
unmet needs of the common target population. Both programs also will be in a position of
knowing the available services or components of the other program which they might utilize
through formal or informal linkages to the best advantage of their clients.
To accomplish this joint development and familiarity, it is suggested that consideration
be given to WIN representation at all stages of the planning process. WIN representation in
planning sessions should result in:
21
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1. Fuller awareness of WIN capabilities and duties under its own legislation.
2. Utilization of WIN expertise and previous experience in developing services and
activities.
3. Effective coordination between the WIN/EPA/DOL program and WIN services. This
is particularly important in working out reciprocal exchanges of client information
and data, sharing of services, etc.
When WIN representation and participation is sought by the Prime Sponsor, it becomes
logical in turn for the state or local WIN organization to request similar representation of
the Prime Sponsor at WIN meetings. The reciprocal representation becomes invaluable to
both groups.
One major juncture in the development of coordination with WIN involves information.
It is most helpful to have the information which WIN collects that profiles the AFDC popu-
lation in the Prime Sponsor's area. This data includes:
1. Percent of male and female heads of household
2. Racial composition
3. Educational level
4. Veteran status
5. Economic status
6. Needs for manpower and supportive services
Such information about the AFDC population characteristics is important because the
Prime Sponsor's eligible population consists entirely of AFDC recipients. This information
and a familiarization with WIN's capabilities and limitations in serving this group is a starting
point for coordination of services to this important target group.
State and/or local Prime Sponsors, when planning their programs, should be mindful of
the financial advantages to local governments that result from placing AFDC recipients and
general welfare recipients in employment. Not only do those entering employment from
welfare become taxpayers, but a considerable savings to the community results from the
reduced or terminated welfare grants and related welfare support expenses.
Workers offered by WIN
The strongest inducement any program can offer employers to hire its participants is the
prospect of getting good workers. What kind of workers does WIN offer?
First, qualified workers. WIN refers participants to jobs, or to training and employment
such as the WIN/EPA/DOL program offers, only after the staff has appraised them and
determined that they have the aptitudes, skills, and other qualifications needed to do the
work.
Second, workers who want to work—and are seeking the job-related help they need to
do so. In a single year an estimated 300,000 people on family assistance are volunteering for
WIN. Since all are exempt from the program's work requirement, they are freely choosing
work over welfare. These volunteers are among the first that WIN refers to jobs.
Third, workers such as the recent WIN graduates who are rated by their employers as
good job risks. A study of former participants now holding jobs was conducted in 1973 by
the Bureau of Social Science Research, Inc. This study revealed:
*** Supervisors rated about 75 percent "either equal to or better than regular workers"
in job performance, promptness, attendance, and co-worker relations.
*** Only 10 percent of all supervisors rated them below average in job performance.
Job Development Activities
The area of job development activities is one of the most difficult yet important areas
in which coordination should be established. There are a number of aspects of job develop-
22
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ment activities that should be taken into consideration when the Prime Sponsor is develop-
ing coordination with WIN.
Because the WIN/EPA/DOL and WIN regular programs share a common goal—provid-
ing suitable employment opportunities to economically disadvantaged and unemployed or
underemployed persons—it is critical that resources are not wasted, and that employers are
not harassed by duplicative efforts in the area of job development. Moreover, when work
and training opportunities become available, maximum exposure of these opportunities to
eligible high priority clients should increase the utilization of the opportunities.
To avoid over saturation of the employment market by job developers, a major effort to
cooperate and communicate should be made by job developers from both programs. Since
job developers normally file reports regarding employers contacted and results of the
contacts, a regular exchange of specific information would help avoid needless duplication
of effort. The information could be compiled and exchanged on a daily, semiweekly, or
weekly basis. If this approach is utilized, it is recommended that specific liaison persons be
designated. A further possibility is for the job developers from both programs to meet on a
regular basis, either weekly or biweekly, to formalize communication and exchange of
information.
There are two ways of facilitating exchange of information about job openings. First,
all jobs which are developed by either program could be open to referral by both programs.
This would necessitate a central clearing point (e.g., ES Job Bank) for all referrals to ensure
that the employers do not receive more job applicants than they may have requested. By
legislative requirements only AFDC recipients may be referred to jobs developed by WIN
job developers. Second, job information could be exchanged after a period of time has
elapsed if a job has not been filled by one program. This period of time may be specific (such
as three days or a week) or may vary according to the needs of the employers.
WIN Tax Credit for Employers
An incentive to an employer (such as a pest control firm) to hire WIN registrants is
provided by the Revenue Act of 1971 in the form of a WIN Tax Credit. This incentive
gives the employer a credit against total tax liability of 20 percent of the WIN employee's
first twelve months wages even if the employee were hired under an OJT contract.
For example, an employer who pays a WIN registrant or participant $5,000 a year can
claim a tax credit for that year for each individual up to a total of $25,000 plus half its tax
liability over $25,000 for each tax year. Any amount over the ceiling can be carried back
three years and then forward seven years.
In the chart on the next page, for an employer paying $200,000 in wages to WIN par-
ticipants in 1974, the tax credit of 20 percent would be $40,000. Assuming, for example,
that an employer's tax liability (the amount of tax the employer owes) for 1974 was also
$40,000, the 1974 allowable tax credit would be computed in the following manner:
1. By claiming $25,000 plus 50 percent of any tax liability over $25,000.
2. The tax liability over $25,000 is $15,000 ($40,000 minus $25,000 equals $15,000).
3. 50 percent of the tax liability over $25,000 (or $15,000) is $7,500.
4. In 1974, the employer can claim $32,500 as a tax credit ($25,000 plus $7,500)
which leaves only $7,500 in taxes to pay from the original $40,000 tax liability.
5. There also remains $7,500 from the original $40,000 tax credit which may be
carried over (or back) and claimed in another tax year.
Additional information on the employer's tax credit may be obtained from the
Internal Revenue Service (and WIN).
23
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EMPLOYER'S TAX CREDIT EMPLOYER'S TAX LIABILITY
in 1974 = $40,000 in 1974 = $40,000
amount of credit allowed in 1974 = $25,000 + 50% of liability over $25,000
$25,000 + 1/2 ($40,000 minus $25,000)
$25,000+ 1/2 ($15,000)
$25,000 + $7,500
$32,500
Employer who has earned a tax
credit of $40,000
Can claim in 1974 32,500
$ 7,500 — Carried over to other tax years
Work Incentives
AFDC recipients have many positive incentives for participating in WIN. A major one
is an "income disregard" that makes working more profitable than welfare alone. It works
like this: Instead of losing a dollar in AFDC benefits for every dollar she earns, a welfare
mother does not have the first $30 of her salary plus one-third of the remainder deducted.
In addition, her work-related expenses are not subtracted from her benefits.
If, for example, a mother whose benefits are $250 a month goes to work for $300, the
following will not be subtracted from her benefits: $30, plus one-third of the remaining
$270 (or $90), plus her work costs (say $2 a day for 20 working days or $40)—a total of
$160. Instead, only the balance ($140) is deducted, leaving her $110 in benefits plus her
$300 wage. And her family will have $160 more each month than they received from welfare
alone.
Besides the incentive to go to work, AFDC recipients have an inducement to prepare
for work. People in training or certain other WIN activities receive an incentive payment of
$30 a month besides their regular assistance checks. In addition, WIN pays them at least $2
for each day they take training to cover expenses such as transportation and lunches.
Hearings and Adjudication
Mandatory WIN registrants and/or participants must be placed in accordance with the
WIN legislative standards for appropriate employment. Mandatory WIN registrants/partici-
pants have the right to refuse any employment which does not meet WIN's appropriate
employment standards, without jeopardizing their AFDC benefits.
If AFDC recipients feel they have good cause for refusing employment or WIN activities,
they may use the WIN hearings and appeals system set up to handle these cases. CETA
Prime Sponsors must establish a hearing system to resolve issues arising between it and an
enrollee. A WIN participant, suspended to CETA, has the right to utilize the Prime Sponsor's
hearings system. This, however, does not deny the participant his/her rights under the WIN
adjudication system. Action taken by a Prime Sponsor may affect a mandatory WIN partici-
pant's AFDC eligibility by implication of refusal to participate. For example, the result of a
Prime Sponsor's hearing may be the termination of an enrollee from the CETA program.
While WIN must abide by this decision, the WIN project must further determine if the
mandatory participant is still eligible to receive AFDC benefits. This may involve the
participant in the WIN adjudication system.
While neither program may be required to participate in the total adjudication system
of the other, local sponsors may find it advantageous to invite representatives of the other
24
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program to attend meetings and conferences in order to assist in resolving participant dis-
putes at the earliest level. In WIN, if the dispute reaches a hearing level, a CETA representa-
tive will be requested to attend if the dispute originated as a result of CETA action.
Data Collection and Reporting
In WIN, files are kept of all registrations and all appraisal interviews. These records
document the employability potential of registrants and participants, and, for participants,
include an individual Employability Plan. Participants' folders also contain information
about the various kinds of manpower and supportive services needed and/or provided,
counseling records, job development and employment information, and (for those in Job
Entry) follow-up information.
The local WIN projects submit detailed monthly reports. The MA 5-99 provides cumul-
ative data on the characteristics of participants and terminees. The MA 5-98 (also submitted
monthly) reports on program activities and includes information not only on the various
components such as Job Entry but also such items as Job Entry Completion and Welfare
Savings. Welfare Savings reflect the amount by which the welfare grants were reduced as a
result of participants entering employment or refusing to participate without good cause.
A minimal amount of participant information would be requested by WIN from Prime
Sponsors to whom WIN has suspended participants. This would be necessary in order for
WIN to be cognizant of the status of these individuals (i.e., whether they are still in the
activity to which they were suspended, or whether they have found employment or
terminated the activity). This data, generally, would have been collected already by the
Prime Sponsors for their own use in filling out required reports.
The choice of method to be utilized for transmitting this and other information
between Prime Sponsors and WIN projects would require an initial understanding about
specific needs and a determination of whether it is being collected already or will require
special documentation. If the information is regularly collected by the program, it would
probably only be necessary to establish a submission schedule. Depending on the schedule
of the report needed, it could, for example, be regularly sent over on a biweekly or monthly
basis. In the case of special data not needed to fill regular program requirements, informa-
tion might be submitted on a request basis. This would necessitate establishing a channel of
communication that would be dependable and preferably would involve establishment of
contact or liaison persons in both programs.
Reliance on Employers
Providing a practical alternative to welfare for the large and growing numbers depend-
ent on public aid is one of the Nation's most urgent problems. The WIN program has an
expanded service capacity and some innovative approaches. But the solution depends,
basically, on the support of the Nation's employers.
Employers have a long tradition of service to their fellow citizens. Over the years they
have generously supported hospitals, cultural activities, jobs for veterans and the disad-
vantaged, and many other worthy causes. For most of these actions the only return was the
satisfaction of performing a useful service. For offering opportunity to the welfare poor, the
intangible rewards of helping others are joined with the returns of a practical business
decision. Every time an employer hires a person from the welfare rolls—
*** A man or woman acquires dignity and self-respect as a wage-earning citizen.
*** A community has one fewer family to support—and one more worker is contribu-
ting his/her share of useful work.
*** An employer gains a productive worker and substantial savings in tax credit and
other compensations.
25
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As employers join with government in the WIN effort, all Americans will, in fact,
"win"—in lower taxes, better lives for the poor, and a more productive economic system.
The coordinated efforts developed by the state and/or local Prime Sponsors of the WIN/
EPA/DOL project and the local WIN organizations already have done much in the achieve-
ment of the above goal.
Summation
The purpose of this relatively lengthy discussion of coordination with WIN has been to
aid the state and/or local Prime Sponsors and training staffs in effectively establishing
working relationships and solid linkages with WIN. Linking with WIN has provided many
advantages to the current - Prime Sponsors in the WIN/EPA/DOL national project. In
particular, the linkages have maximized the provision of the support services that are so
vital to implementation of the overall environmental manpower training and employ-
ment effort.
Summary
The description of the pilot organization and administration presented in this section
points up the major roles fulfilled by the national agencies, the EPA and the DOL. More
specifically, there is evidence of the substantial work done by the Office of Education and
Manpower Planning in the EPA along with the WIN/DOL National Office. The Interagency
Agreement was essential to the joint efforts in this project. And, continuation of the joint
efforts of OEMP and WIN are essential to continued factoring of people into environmental
service jobs. There will be in the future, however, much more reliance upon funding through
manpower revenue sharing than is true in this program.
The OEMP in Washington, D.C., will continue to exert leadership and extend technical
assistance for the purpose of training and employment of the environmental work force.
But, local prime sponsors of environmental manpower programs must be CETA organiza-
tions or by subagreements draw funding of their programs from state and/or local CETA
appropriations. This causes an organization such as a "Governor's Environmental Quality
Control Council" to take on much importance. Such a Council must now promote, organize,
develop, administer, and seek out sources of funds and obtain these funds for training and
development of environmental manpower.
The pattern for doing all of this is much like what was and is being done in the pilot
project. The channels and directions of communications are somewhat different. The end
results of similar kinds of coordination and cooperative efforts should be good. The kinds
of trainees and trainers, and the competencies they need, are identical to the pilot group.
The continuing need in the environmental manpower situation is for competent planners,
organizers, administrators, caseworkers, instructors, counselors, trainee-workers, work
supervisors, monitors, and evaluators.
26
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SECTION IV
ENVIRONMENTAL MANPOWER
DEVELOPMENT
Manpower, as used in this Manual, may be defined as "the collective strength or availa-
bility for work of the people in any given geographic area or field of endeavor." The
WIN/EPA/DOL project is making two major and significant contributions to manpower,
thus defined. First, it is providing remedial education and skill training to approximately
700 welfare recipients. This constitutes a substantial contribution toward the building of
greater collective strength. Secondly, the project ensures the placement of these 700
individuals in established positions in environmental service occupations. This constitutes a
substantial contribution to building up their availability for work.
Scope of Manpower Development
To accomplish the two tasks of this project, job training and job placement, requires a
human resources approach with multiple aspects of manpower development woven together
for strength and flexibility. What is required is the building of a "bridge" between the
people who need jobs and the jobs that need people. The base or foundation for that bridge
is training and the superstructure of that bridge is employment. Good training becomes
inconsequential if the trained person cannot move into satisfying employment. Also, the
employment loses its value if the person moves into the job without the required skills and
abilities that should have come from the training. Hence, at all times in each individual case,
both the training and the employment must be designed to contribute effectively to the
needs and desires of the particular WIN person moving from welfare to wage earning.
The full scope of manpower development in this project becomes most apparent in
terms of its multiple aspects or parts. These include, along with others, the following:
1. Job development—securing of commitments from employers to hire WIN people in
environmental occupations.
2. Recruitment—seeking of commitments from AFDC recipients to enter training and
employment in environmental occupations.
3. Support services-providing the WIN person with personal and social services that
will help him overcome problems that interfere with his training and job performance.
4. Job training-developing in the trainee-worker the special abilities and job skills that
will be required of him in the environmental service job.
5. Supervised work experience—factoring the trainee-worker into the circumstances of
actual work with continued counseling and job coaching, along with on-the-job
instruction and supervision.
6. Permanent employment-recognizing the WIN person as a full-time, permanent
employee.
7. Evaluation-following up with activities to assure continuing job success tor the
greatest possible number of participants in the program and measuring and judging
the employment and training results.
The force, influence, or impact of each aspect of manpower development upon each
trainee-worker will vary. It is true, however, that each aspect must become evident in the
growth of each participant if the maximum results in job efficiency and job satisfaction are
to be obtained.
27
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Job Development
Employment in a suitable job is the payoff to each person served by this program.
Retention of that job over a long period of time is the major goal of the person involved. It
should be apparent that development of the initial job opportunity must be the first of
several steps in the sequential operation of this employment and training program. The need
for continual concern for job development is obvious.
To ensure that job development is continually being accomplished in effective and ef-
ficient ways requires that responsibility for it be centered in one job category:
Job Developer-^the Job Developer will have overall responsibility for developing
environmental jobs through contacts with employers in both the public and private
sectors. (S)he will work closely with and provide a communications linkage between
the WIN/EPA Training Program, WIN caseworkers, job trainers, employers, worker
supervisors, and trainee-workers. In developing environmental jobs (s)he will, in many
cases, be required to foster changes in employer attitudes and negotiate changes in
entrance standards and/or restructuring of jobs. The Job Developer will be responsible
for follow-up activities to maintain employer acceptance and cooperation. (S)he must
be familiar with all aspects of the program including the training, administration, wage
reimbursement, and support services.
The individual hired to fill the Job Developer position must energetically and positively
pursue his/her primary tasks. Much depends on him/her.
Commitments to Hire WIN People
The development of job opportunities usually takes the form of locating job openings
with either private or public employers and then finding persons from the WIN rolls to fill
the openings. What is required first is the securing of commitments to hire from a number of
employing units willing to utilize the services of trained people from the WIN rolls.
First and foremost, job development requires concerted efforts to gain an agreement
from each potential employer to consider WIN job candidates only on the basis of their
ability to do the job and not on extraneous criteria such as race, age, sex, creed, or social
background. Second, job development may provide the opportunity to induce employers to
reappraise and in some instances to modify job entry requirements. This may be done in a
variety of ways, but the essential ingredient is the availability of backup services including
basic, remedial, and skills training, along with counseling and certain support services. All of
the services should be designed to make the job candidate more competitive in the work situ-
ation.
In working with both private and public employers, the job developer performs the
following tasks:
1. Finds environmental jobs through regular channels but most frequently by means of
contact interview situations.
2. Provides communication and linkage between the WIN/EPA project, WIN casework-
ers, job trainers, employers, work supervisors, and trainee-workers.
3. Engages in salesmanship and negotiation activities with employers to secure jobs for
WIN people by modifying entrance standards or by restructuring jobs.
4. Helps to change the attitudes and roles of employers by involving and identifying
them with the project.
5. Performs follow-up services to help the WIN people gain occupational mobility.
Although there may be different emphases on one or more of these tasks and the division of
labor may differ from situation to situation, these are the essential reference points for job
development. Job development is accomplished primarily with the employers and is oriented
toward creating job conditions in which people from the AFDC rolls can work and develop.
28
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In each local WIN/EPA project approximately 150 persons are to be helped into satis-
fying jobs. This means that 150 or more job opportunities or job openings must be developed.
These jobs must develop in the time frame of the project and continue to be available until
each of the 150 persons can be properly trained and fitted into the environmental job
situation. All of these jobs should be "permanent" and provide "upward mobility" possibili-
ties.
Basic Principles of Job Development
In developing job opportunities, in seeking to gain commitments to hire WIN people,
the Job Developer should be guided by the following principles:
a. The jobs committed to this WIN/EPA program should meet environmental service
needs.
b. The jobs should lead to regular employment in environmental occupational fields
which are most likely to expand within the public and private sectors.
c. The jobs should not be dead end but should contribute to career advancement and
development of the employment potential of WIN participants. Opportunities for
continued training should be available to support upward mobility.
d. The jobs should be with organizations that are contributing to the elimination of
restrictive practices and institutional barriers which prevent the effective utilization
of available manpower and which systematically preclude large segments of the
population from realizing their employment potentials.
These principles should prevail to ensure that the employment provided for WIN recipients
will help them achieve job success and personal satisfaction from wage earning.
Techniques of Job Development
Before he begins to exercise his responsibilities in interactions with employers, the Job
Developer must become thoroughly acquainted with the worker needs of those employers.
(S)he also must know the basic qualifications of the WIN people for whom (s)he is developing
jobs. (S)he must understand the nature and scope of the instruction that will be provided to
train the WIN people for the jobs that are opened up for them. In particular, (s)he must be
acquainted with work in the environmental field and with the nomenclature of the jobs.
With this background of knowledge, the Job Developer can move into the accomplishment
of his/her work by means of the ordinary tested and reliable techniques for contacts with
employers.
The three techniques of job development most commonly used are employer visits,
telephone contacts, and mail promotions. Generally, the telephone contacts and mail pro-
motions are utilized to supplement the visiting of employers. The effective use of these
three techniques requires careful planning, efficient coordination, and proper direction
toward the objective of obtaining employer commitments to hire WIN people for work in
environmental service jobs.
Employer visits-Personal visits should be directed to those employers who afford a
potential demand for the product of this program-the WIN person recruited and trained for
a particular environmental job. Visits should be used to establish working relationships with
employers and to develop the commitments to hire. The employers visited in both private
and public organizations range from top managers down to department heads, superintend-
ents, supervisors, and so forth. Thus, the visits to any one organization (i.e., business or
city) may be numerous and time consuming. The results of employer visits must be recorded
and conveyed to the WIN caseworkers who recruit the trainee-workers and to the instructors
who develop the training programs, instructional materials, and learning activities for the
particular job categories.
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Telephone contacts—The telephone technique is adaptable for use with employers with
whom the Job Developer has established good working relationships. It also may be useful
with the employer who has a potential demand for only one or two new hires and cannot
initially be contacted in person because of the time limitation or other factors. Because the
telephone contact technique is not as time consuming as the personal visit, it may often be
used more advantageously. Good judgment must be exercised in each decision as to whether
to first make the personal visit or use the telephone.
In the case of an employer who may question the appropriateness of hiring people
from the welfare rolls, a personal visit is much more effective than using the telephone.
Then, too, in a personal visit the Job Developer has an opportunity to discuss at some length
hiring requirements, making of job adjustments, and how WIN people can be profitably
employed.
Mail promotions—Mail promotion includes the use of bulletins, leaflets, mailing pieces,
personal letters, and so forth. The media used must be adapted in terms of expected job
categories, specifics of the training to be provided the WIN people, geographic locale, etc.
Certain materials prepared for use through the mail may very well be effective handouts in
personal visits. This is true when the material includes references to establishment of career
ladders, descriptions of typical jobs, explanations of the training components, and other
material that may be of interest to the potential employer. Please refer to the pages that
follow for examples of mailing pieces.
In summary, the primary task of the Job Developer is to find job openings for people.
(S)he should use any and all techniques at his/her disposal in achieving that goal.
Complications in Job Development
Most employers, private and public, recognize that they are not free agents in the
hiring process. They are restricted by Federal legislation and must provide minimum wages,
fair labor standards, and equal employment opportunities. State laws inhibit their activities
by the safety requirements necessary to meet Workmen's Compensation insurance standards.
In addition, local and national religious, female, and racial groups have taken strong stands
on equal employment and have launched effective boycotts for this purpose. Even though
employers are not free agents in hiring, they may put up screens to the employment of
people such as those from the AFDC lists.
A critical element in job development involves the attitudes of both employers and
employees. Does a particular organization willingly hire Negroes? Does a particular organiza-
tion willingly hire women to operate backhoes and wastewater plants—to work in jobs most
commonly held by men? Do other workers appear to accept these groups willingly?
If the organization has a collective bargaining agreement, is the union willing to make
necessary modifications in hiring and seniority standards? These questions actually point up
only a few of the concerns that develop out of the attitudes held by employers and
employees.
Although frequently relying upon standards such as high school graduation or the
passing of "civil service" examinations, most employers are now prepared to respond to
reasonable requests in job development for WIN people. Similarly, the attitudes of both
employers and employee groups tend to be more adjustable in the 1970's than in past years.
The Job Developer must exhibit positive attitudes and hack away at negative attitudes as
(s)he moves ahead in his/her work.
Approaching the employer and supervisory personnel—Jobs develop within an organization,
a production unit, not outside of it. Jobs are developed by individuals, not institutions.
These two facts should be kept firmly in mind when working with employers to develop
jobs. A large corporation or a big city is a faceless institution which may or may not provide
30
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PROGRAM OUTLINE
Employment1
Work Experience:
Skills of The
Job Training:
Supervisor
Orientation and
Training:
Job Related
Education:
Basis Remedial
Education:
Orientation:
World of Work —
To The Environment —
To The Prospective Employer
-------
Take The Giant Steps Which Will
Insure Proficient Entry Level Employees
for Environmental Service Occupation.
Promotable
Employees
Skills
Training-
Refined
Recruitment
Today's major challenge, contrary to
much you may have read or heard, lies in
the area of people administration and
fitting the right person in the right job.
There are no easy steps for getting the
right person matched to the right job.
Many patterns of approach have been
tried with varying degrees of
accomplishment. Methods and even
objectives will change from employer to
employer.
There is now available a program which
can take the doubt out of entry level
employment. Specializing in
environmental service occupation and
support occupation we can assist you in
filling your entry level positions in the
area of non-technical and technical
subprofessionals with guaranteed
proficiency.
Detach and mail the card for more
information.
Name
Address
Phone Number
Occupations which we would be
interested in discussing are checked:
WATER
D technicians
D instruction specialists
D superintendents
D grounds and maintenance
people
G custodial people
D electricians
D repairmen
D inspection people
D truck foreman
D 'equipment operator
D laborers
O sample men
D dispatchers
WASTEWATER
D lift station operators
D tapping crews
D laborers
D mechanic
D electricians
O instrumentation specialist*.
d foremen
D superintendents
D lab technicians
SOLID WASTE
D operators
O heavy equipment operators
D toll takers
O scale operators
G collection laborers
O relay station operators
O superintendents
D clerical
STREET MAINTENANCE
Q surveyors
O maintenance operators
O bulldozer operators
D batch plant operators
D street sweeper operators
D asphalt layers
D numatic tool operators
D shrub and tree operators
D herbicide operators
PARKS
Q green house operators
D laborers
D painters
D trees and shrubs
D insecticide and herbicide
specialists
D planter helpers
D superintendents
OTHERS
D vehicle towaway receiving
clerks
D secretarial
D animal control officers
"1 traffic control operators
O rough carpenters
D chemical laboratory
technician
D lab tester II
D lab tester I
D water plant personnel, all
occupations
D wastewater plant personnel,
all occupations
D billing machine operator
D telephone operator
D meter reader
D water meter repairman
D inspection aides
D parks and recreation
service personnel
D pipefitter helper
D air analyst
O exterminator
O weed control supervisor
O road and street repairman
O pipe fitter
We Are Not Limited To The
Above List
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SIGNIFICANT PROGRAM PROVISIONS
—Job availability upon completion of
training.
—Training tailored for specific job
descriptions.
—Trainee screening against job
requirements.
— Intensive classroom training coupled with
on-the-job work experience.
-Supervisory orientation to training
program objectives and operation.
Environmental
Services
Manpower
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PROGRAM FUNDING
The Environmental Services Training
program is funded as a pilot project through a
federal grant from the Environmental Protection
Agency in cooperation with the U.S.
Department of Labor.
Trainees must be enrolled in the State Work
Incentive (WIN) program of the Colorado
Division of Employment. The trainee receives
incentive and supportive payments from the
Employment Division during his enrollment in
this program.
A Program To Provide
Trained Personnel To
Local Governments
In The
Denver Region
TRAINING CONTRACTOR
The Denver Regional Council of Governments
has contracted with the firm of Skills
Development, Inc., Dallas, Texas, to provide
the actual training program. Skills
Development, Inc. is responsible for the training
facilities, material, curriculum and instructors
for the Environmental Services Training
Program.
DENVER REGIONAL COUNCIL OF GOVERNMENTS
1776 S. Jackson, Suite 200
Denver, Colorado 80210
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INTRODUCTION
Increasing environmental requirements from
the federal and state levels have created new
challenges for local governmental agencies. At
the same time, these requirements have opened
a new dimension of opportunities in a relatively
new environmental services career field.
The Denver Regional Council of Governments
is sponsoring a pilot program to provide the
skilled manpower for this new career field
while, at the same time, providing an
opportunity to those selected individuals to
leave the welfare rolls and become productive
individuals.
During the next 12-month period, up to 150
able bodied individuals, now receiving welfare
assistance through the Aid to Families with
Dependent Children Program, will be retrained
for new careers in environmental service
occupations with local governments.
The EPA/WIN Program offers local
governments an opportunity to acquire trained
manpower for up to one year at no cost to the
local governmental agency. WIN Public Service
Contracts can be negotiated with the Colorado
Division of Employment under which the
employer can be reimbursed for 100 percent of
the wages and the employer's contribution for
fringe benefits for each participant in the
program.
The preparation of this brochure was financed in part
through a training grant from the U.S. Environmental
Protection Agency, Office of Education and Manpower
Planning.
OBJECTIVES
The Environmental Services Training
program of DRCOG is geared to providing for
full-time environmental career employment to
those selected individuals now receiving
assistance through the Aid to Families with
Dependent Children Program.
PROGRAM OPERATION
The Environmental Services Training
program functions in the following sequence:
—Job commitments for program trainees are
obtained from local governmental agencies,
based on their individual personnel
requirements.
-Concise job descriptions are defined for
each job slot.
—Job descriptions are distributed to training
instructors and WIN counselors.
—Training instructors develop training aids
and materials.
-WIN counselors screen welfare recipients
enrolled in the WIN program for potential
training for available jobs.
—Potential trainees are referred to employers
who make the final selection of a trainee for
each job.
—Trainees attend 4 to 6 weeks of classroom
training, including needed remedial
instruction.
—The trainee is sent to his future employer
at no expense to the employer for up to 304
hours of work experience training.
—Instructors or Job Coaches visit trainees
daily to monitor progress and assist with any
pertinent problem. When required, trainees
may be returned to classrooms for additional
training.
-When the trainee completes the program
and meets the employer's minimum standards
for his particular position, he is placed on the
employer's payroll as a full-time regular
employee.
Name
Address
Phone Number
Occupations which we would be
interested in discussing are checked:
WATER
Q technicians
D instruction specialists
D superintendents
D grounds and maintenance
people
O custodial people
O electricians
D repairmen
D inspection people
D truck foreman
D equipment operator
D laborers
D sample men
n dispatchers
WASTEWATER
a pneumatic tool operators
D shrub and tree operators
D herbicide operators
PARKS
D green house operators
D laborers
D painters
D trees and shrubs
D insecticide and herbicide
specialists
D planter helpers
D superintendents
OTHERS
D lift station operators
D tapping crews
D laborers
D mechanic
D electricians
D instrumentation specialists
D foremen
n superintendents
D lab technicians
SO LID WASTE
Q vehicle towaway receiving
clerks
Q secretarial
O animal control officers
D traffic control operators
O rough carpenters
D chemical laboratory
technician
D lab tester 11
D lab tester I
D water plant personnel, all
occupations
D wastewater plant personnel,
n ooerators a 11 occu pat io ns
D heavy equipment operators D billing machine operator
D toll takers D telephone operator
D scale operators D meter reader
D collection laborers D water meter repairman
D relay station operators O inspection aides
D superintendents D parks and recreation
D clerical service personnel
D pipefitter helper
STREET MAINTENANCE D air analyst
n exterminator
D surveyors p weed control supervisor
D maintenance operators p road and street repairman
D bulldozer operators Q • f itter
D batch plant operators
D street sweeper operators We Are Not Limited To The
D asphalt layers
-------
GET Into a CAREER With a FUTURE
MEN and WOMEN
Can Train to Come up the Steps
in
GROWING
LIFETIME CAREERS
to protect public health and the
community environment
SteadV Employment
Career Growth
Increased Income
Job Placement
Work Experience
Supportive Services
Classroom Training
Job Orientation
Through the Combined Efforts of:
LOCAL GOVERNMENT
DEPARTMENT OF LABOR
U.S. ENVIRONMENTAL
PROTECTION AGENCY
WIN PROGRAM CLIENTS
EVERYONE BENEFITS
To protect our environment and the health
of our citizens, many types of TRAINED workers
are needed to help.
Starting in entry jobs, workers can learn
to do more difficult work to prepare for better
jobs. The cities get more trained sub-profess-
ionals, giving better service.
WIN clients get (free) training, support
services, job placement and work experience from
the Department of Labor, U. S. Environmental
Protection Agency and local governments.
Each job plays an IMPORTANT part toward a
cleaner and better community ENVIRONMENT in
AMERICA.
Be a PART of the TEAM in a job with a
FUTURE.
SEE YOUR W-I-N COUNSELOR TODAY
OPO 676-797
TYPES of WORK in CITY Services
WATER
G technicians
D instruction specialists
D superintendents
D grounds and maintenance
people
D custodial people
D electricians
O repairmen
n inspection peopJe
Q truck foreman
Q equipment operator
Q housekeeping
D sample takers
D dispatchers
WASTEWATER
Q lift station operators
D tapping crews
D entry operators
D mechanic
C electricians
D instrumentation specialists
O foremen
Q superintendents
O tab technicians
SOLID WASTE
G operators
Q toll takers
D scale operators
n waste collectors
n relay station operators
O superintendents
Q clerical
STREET MAINTENANCE
D surveyors
D maintenance operators
D bulldozer operators
O batch plant operators
D street sweeper operators
D asphalt layers
D shfub and tree operators
D herbicide operators
PARKS
G green howse operators
O gardener helpers
D painters
D trees and shrubs
G insecticide and herbicide
specialists
D planter helpers
Q superintendents
OTHERS
D vehicle towawaV receiving
clerks
Q secretarial
Q animal control officers
D traffic control operators
D rough carpenters
D chemical laboratory
technician
D lab tester I
O Jab tester II
Q water plant personnel, all
occupations
Q wastewater plant personnel,
all occupations
D billing machine operator
D telephone operator
O meter reader
Q water meter repairman
Q inspection aides
D parks and recreation
service personnel
G pipefitter helper
Q air analyst
D exterminator
C] weed control supervisor
Q road and street repairman
Q pipe fitter
Jobs Are Not Limited To
The Above List
SEE YOUR W-I-N COUNSELOR
-------
GROWING
LIFETIME CAREERS
Open to
those participating in the
Aid to Families with
Dependent Children
Program
to TRAIN for work with
Public Employers
Toward
• Job Security
• Increasing Salaries
• Satisfaction
• Non-Seasonal Work
• Career Advancement
• Helping Community
SEE YOUR W-I-N COUNSELOR
I
i
HERE ARE SOME SAMPLES OF THE TYPE OF WORK
NEEDED BY PUBLIC EMPLOYERS - - WITH A CHANCE TO
WORK UP TO BETTER JOBS. There are many more -
check the list and see your WIN COUNSELOR
WASTEWATER TREATMENT OPERATORS
The trainee is
provided instruction in: knowledge of treatment
plant design and operations, orientation in waste
characteristics, methods of treatment and efflu-
ent quality control, specific skills in operating
a unit process (e.g.: sampling, testing, meter
reading and repair, and pump maintenance), skills
in applied mathematics, communications and science,
and insight into rewards of career growth through
continued educational participation.
WATER TREATMENT OPERATORS
The trainee is pro-
vided instruction in: knowledge of treatment
plant design and operation, orientation in water
supply and water quality control, specific skills
in operating a unit process, (e.g.: sampling, test-
ing, meter reading and repair, pump maintenance),
skills in applied mathematics, communications and
science, and insight into rewards of career growth
through continued educational participation.
AIR POLLUTION PERSONNEL
Graduates of this program
are qualified for various entry-level positions as
inspectors, technicians or aides depending upon their
individual backgrounds. Trainees receive classroom
instruction and practical experience in areas such
as visible-emissions evaluations, air pollution mon-
itoring and laboratory assistance. These areas of
instruction provide them with various knowledges,
skills and abilities in the air pollution fields.
PEST CONTROL SERVICE TECHNICIANS
The aim of this
program is to provide trained pest control techni-
cians for the pest control industry. This training
program incorporates the National Pest Control Asso-
ciation's training materials and techniques for pest
control. The trainees are instructed in the follow-
ing areas: selling a service, customer relations,
identification and control of pests, chemical use
procedures equipment use and maintenance.
SOLID WASTE PERSONNEL
Under the supervision of an
accredited solid waste instructor, the trainees re-
ceive classroom instruction and practical experience
in the following areas: solid waste characteristics,
methods of treatment, routing and collection, cost
analysis, management training and planning the sani-
tary landfill (site selection and equipment operation).
CERTIFICATION
In states where State
Certification is required on certain jobs, every effort
will be made to enable the trainee to take the State
Certification examination upon completion of the
course.
SEE YOUR W-I-N COUNSELOR
-------
oo
OO
C0
CO
oo
CO
UJ
00
\
\
.-•.,
-
T
f
be a
PROFESSIONAL
in the environmental field
THE ENVIRONMENTAL PROTECTION AGENCY with
THE DEPARTMENT OF LABOR and your state WIN
office offer training in career fields . . . including ;
PESTICIDE
APPLICATOR
AIR POLUTION
TECHNICIAN
WASTE WATER PLANT
OPERATOR
SOLID WASTE
TECHNICIAN
INTERESTED?
CONTACT
YOUR
WIN
COUNSELOR
IMMEDIATELY
-------
jobs for the disadvantaged. A sympathetic superintendent or personnel manager, however,
may be willing to take the action necessary to accommodate the WIN worker-trainee. To be
effective, the Job Developer should know both the organization and the individual represen-
ting it. (S)he also must know the assets and the liabilities of the WIN people (s)he is trying
to place in environmental jobs.
In making an approach, the Job Developer must establish that the WIN trainee-worker
can make a substantial contribution to the organization's success. To do this (s)he has to
make specific suggestions about the work his/her clients can do and about how jobs may be
modified to suit their skills.
Modifying hiring restrictions—Governmental organizations are more likely than private
firms to cooperate in modifying selection standards so that members of disadvantaged
groups previously screened out will be hired. In most cases, it is relatively easy to develop
jobs at the entry level in a city or county organization and to encourage upgrading of those
already employed to make more entry level jobs available.
Where and when specific skills are in short supply, it becomes much easier to place
qualified WIN worker-trainees in previously restricted positions. In such cases. Negroes,
women of all races, high school dropouts, and older persons may be welcomed into jobs
previously denied them. The Job Developer should try to be aware of such situations and to
make the most of the opportunities in them.
Follow up on referrals—To be successful, job development must be a continuing
function. This requires a constant relationship between the Job Developer and employers.
The best kind of relationship results when the WIN trainee-workers, for whom jobs have
been developed, perform satisfactorily in those jobs. If the WIN person becomes a valuable
employee, the employer will probably be willing to hire another such person.
Accordingly, the Job Developer must carefully follow up on his referrals. All placements
will not be successful and in such cases the Job Developer must be prepared to assist the
employer in resolving an unsatisfactory situation. This may be done by developing another
job for the misplaced individual or by coaching and more training to make his/her work
acceptable.
With effective follow-up proc'edures, the job development process is completed. The
total process takes on significance as each job is developed, the worker-trainee moves into
that job, and an economic opportunity is provided for another AFDC recipient.
Recruitment
People receiving Aid to Dependent Children are not likely to seek jobs or training for
jobs in the environmental service fields. They do not have access to information that will
lead them to realize that such job opportunities exist. Nor do they have ways of learning that
environmental occupations are in line with their qualifications and abilities to profit from
training for the jobs. Thus, it is essential that through the WIN organization there will be
developed in each locality a determined and carefully planned and executed program of out-
reach to these individuals. The program must be such that the people recruited will be
effectively matched with the jobs that are developed for them.
Trainee-Worker Target Group
In broad terms, the target group for this training and employment project was pre-
determined The trainee-workers are drawn from the ranks of the recipients of AFDC.
While the numbers of recipients of AFDC are large in many communities throughout the
United States, the actual number that may be drawn into the environmental services work
force is limited. The limiting factor in most instances consists of the obstacles in the way of
people accepting training and employment. The AFDC client is ordinarily hmdered from
39
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entering job training or accepting employment for one or more of the following reasons:
1. Health problems.
2. Responsibility for the care of young children.
3. Lack of transportation to the location where training is conducted or to the site
where employment is available.
For these and other reasons, AFDC clients are at a competitive disadvantage in seeking and
holding jobs.
One of the major requirements of the WIN program is that all AFDC recipients, unless
exempted by law, must register for employment and manpower services as a condition for
receiving AFDC benefits. These individuals are called mandatory registrants. The only AFDC
recipients or applicants who are exempted from registration are:
1. Those incapacitated or 65 and older.
2. Those living too far from a WIN project to participate effectively.
3. Those caring for an incapacitated person in the home.
4. Mothers with children under 6 years of age.
5. Mothers, when an adult male relative in the home is registered with WIN.
6. Children under 16, or those 16-21 who are in school full time.
It is interesting to note that the reasons why an AFDC client may be exempted by WIN
from registration for employment include the reasons why they are generally at a competi-
tive disadvantage in the labor market. Any exempt person may become a voluntary registrant
for participation in WIN and, thus, become a member of the trainee-worker target group in
this training and employment program.
It is for these mandatory and voluntary registrants in WIN that job development efforts
are put forth as indicated in the earlier sections of this Manual. When training and work
opportunties are developed in this program, there must be maximum exposure and trans-
mittal of information about these opportunities to eligible WIN clients so that full utilization
is made of the jobs developed. Recruitment should be simultaneous with job development
whenever possible or follow immediately on the heels of it. Job opportunities must not be
lost because recruitment efforts were too slow or otherwise ineffective.
Recruiters
The recruiters in this program are the regular caseworkers in the WIN organization. The
WIN caseworkers have always had the prime responsibility for placing their clients in jobs,
if at all possible. They have a base of WIN procedures and regulations from which to recruit
and place clients. Even so, they must be oriented or trained with regard to the unique as-
pects of the WIN/EPA/DOL project and the employment of AFDC clients in environmental
service occupations. Each of them needs to learn about the operational aspects of the train-
ing program, the nature of employment in environmental service jobs, and the opportunities
and obstacles that will be encountered by AFDC clients in moving into new jobs or jobs
alien to them. The recruiters need to learn how to frankly and accurately explain to clients
the nature of the jobs and the limitations in them. The recruiters must develop fully their
ability to effectively use the various means of recruiting, including the scheduling and par-
ticipation in trips to potential job sites.
Orientation to Environmental Employment
Choice of a vocation is a common problem of most people but it is intensified for
disadvantaged persons. Very often, the aspirations of the AFDC recipient are either too low
or too high. (S)he rarely has a clear understanding of the requirements in any job and cer-
tainly not of the requirements for employment in nontraditional type jobs. If the WIN
client has any concept of environmental employment, it is in terms of a job rather than a
career with advancement possibilities.
40
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In this WIN/EPA/DOL project it is essential that the horizons of the AFDC recipients
be broadened. Each individual in orientation sessions should be properly introduced to the
realities of employment in the various environmental service areas such as water, wastewater,
solid waste, street maintenance, pest control, parks and recreation, and so forth. This con-
stitutes for the individual the first step toward the making of an important career decision.
As with most people-to-people activities, there is a special knack to orienting AFDC
recipients toward jobs in environmental service. Good results in orienting people toward
existing jobs are achieved when the caseworker accurately and enthusiastically relays infor-
mation to the potential trainee-worker about the nature and scope of such employment. At
this point, it may be helpful to bring people from environmental employment into sessions
with clients so that solid kinds of information may be given. The caseworker must be
specific about what the trainee-worker will encounter in training for the job and in actual
performance of that job. Even the jobs that have undesirable characteristics may be valued
by prospective hires if sufficient incentives are offered. Such incentives as livable pay, good
fringe benefits, chances to develop marketable skills, and opportunities for upgrading and
advancement do exist in environmental jobs; but these incentives should be described
frankly and realistically. Charts, pictures, illustrated pamphlets, and other devices are useful
in the recruiting, but the very best of all such devices is the visit to one or more of the
environmental job sites.
An especially effective way to accomplish the orientation is to make use of a person
who has been through the training and is currently enjoying success in a career occupation.
This person can show how success in training can be carried over to success in employment.
The person who has been through it all will be one with whom the recruits can identify and
who is believable to them.
Selection of the Environmental Job
Orientation to environmental employment, as described above, should make the AFDC
recipient acquainted with the training and employment opportunities which are available
and should help him evaluate the required job qualifications. Following this kind of orien-
tation, the AFDC recipient should be given further individual guidance and counseling that
will enable him to "select" the environmental field and the particular environmental job for
which to be trained and employed.
The entire recruitment process in this training and employment project is based on
selectivity. To illustrate, in a particular local program, the WIN caseworker may come up
with the names of 100 possible recruits for environmental employment. After due consider-
ation that number may be reduced to 50 who should be brought in for orientation in
environmental work. Following the group orientation there should be interviews, assess-
ments, and careful consideration of individual qualifications for particular jobs. At this
point it becomes a matter of the individual WIN client picking out or "selecting" the job
(s)he wants to train for and enter. The number of WIN people who actually seek training
and employment at this point may be reduced to only the 20 to 25 who will constitute the
training group or class.
This process of recruitment with its orientation and selection aspects must be repeated
for each assortment of environmental jobs for which each training group is formed. It is
obvious, then, that the recruitment process is both complex and time consuming when a
training and employment program becomes operative for as many as 150 trainee-workers in
a particular metropolitan area.
The potential trainee-worker should not be "snowed" into entering the WIN/EPA/DOL
training and employment program. That person, however, should be enthusiastically
41
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encouraged to enter employment and honestly informed of the true benefits offered by
employment in an environmental service job. There are, of course, certain disadvantages in
such employment and these should not be ignored. BUT, is there any job today that does
not have both advantages and disadvantages?
It is at this selection stage in the recruitment process that the WIN caseworker's
"inbred paternal attitude" may become apparent. Some caseworkers find it difficult to turn
their clients loose to enter wage-earning status in society. The close personal relationships
developed between caseworkers and clients become protective in nature and scope. It may
become the belief of the caseworker that it is "dangerous" for the client to try to cope with
the world of work. The client also may develop the belief that it is best to remain in the
"refuge of welfare." Like the natural parent, however, the caseworker must develop the
capacity to turn the dependent children loose to fend for themselves.
In summary to this point, with regard to environmental manpower development, we
have discussed job development and the process of recruitment. It should be noted, again,
that the AFDC recipient recruited for training and employment in this WIN/EPA/DOL
project has a background that may be characterized by two or more of the following:
*** School dropout
*** Lacking in job skills
*** History of dependence on welfare
*** Minority group membership
*** Physically, mentally, socially, or emotionally handicapped.
Ways must be developed to get around these characteristics or job selection by the AFDC
recipient is useless. When a job with significantly more financial incentive than welfare
benefits and other subsidies has been chosen by the recipient, every possible effort must be
put forth to help him get ready to enter that job. One approach to developing such readiness
in the AFDC recipient is through the WIN support services offerings. These are discussed in
the next part of this section.
Support Services
Although it is training that constitutes the core of manpower development in the
WIN/EPA/DOL project, the welfare recipients require a variety of other services before the
training can begin and during the training period. Since these services focus on the special
needs and problems that interfere with training and work performance, they are referred to
as "support" services. The support services are provided primarily to build up motivations
and to improve behavior relating to getting to and remaining in training or jobs. Also, the
support services may be helpful to the trainee-worker in his early efforts to adjust to the
conditions of work. It is the WIN organization that provides the support services. It is the
WIN caseworker who is primarily responsible for delivery of those services.
In this particular program of training and employment for disadvantaged people, the
most important support services are:
1. Special counseling, focusing on problems connected with adjustment to work.
2. Transportation assistance.
3. Day care for children of trainee-workers.
4. Medical, dental, and optometric aid.
5. Minimal income subsidies.
Other services which may be important to some individuals are:
1. Legal assistance.
2. Advice on money management.
3. Social counseling.
The support services are coordinated with the training and work activities. They are made
42
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practical and relevant to the alleviation of problems that interfere with full participation in
the training and employment program. Support services are designed and maintained to
help the welfare person get into a job and to stay in that job and to help the individual
become job ready in the sense of being fully employable and becoming regularly employed.
Special Counseling
It is the WIN caseworker who does most of the special counseling in the program of
support services. At the time that concern develops for training and employment in an
environmental occupation, it is likely that the caseworker has already had a long experience
in dealing with the needs and problems of the particular welfare client. Thus, there is little
or no need for further assessment of individual needs and problems. It is simply a matter of
delivering the support services that will help the person get into training and move on into
an environmental occupation. The one-to-one relationship already established is readily
extended to counseling that has almost immediate payout.
Specifically, the special counseling delivered by the WIN caseworker may be aimed in
any one or more of the following directions:
1. Help the trainee-worker move into training and then into the job by building self-
confidence.
2. Help the trainee-worker resolve personal problems that hinder training and/or
employment, such as transportation, child care, etc.
3. Help the trainee-worker understand and deal with values and standards relating to
employment in environmental service occupations.
4. Help the trainee-worker to grasp fully and take advantage of the opportunities in
training for environmental service and employment therein.
5. Help the trainee-worker develop work habits that are new or which may seem alien.
The major need for counseling is early in the trainee-worker's training and employment but
a high percentage of individuals need some continuing kinds of guidance and assistance.
Their difficulties in maintaining a successful, long-range work history often emerge weeks,
even months, after entry into the environmental training. Counseling should be available for
at least the first six months of employment.
Transportation Assistance
Experience in the WIN/EPA/DOL project indicates that getting to and from work is a
major problem for most disadvantaged trainee-workers. By locating the training center at or
near a point where bus lines converge, it may be possible to alleviate the problem of getting
to the training site. The location of the environmental service jobs, however, may be more
remote from where most of the WIN trainee-workers live. A trip by bus from the inner city
to the water or wastewater plant's location may represent an enormous expenditure of time
and money for the worker.
Because they are poor and unemployed, many AFDC recipients do not have cars or
have very old and unreliable cars. Frequent breakdowns result in lateness and absence from
training and from work. Difficulties in car buying and car maintenance have to be overcome
before regular training and/or work schedules may be kept. Here the work of the WIN
organization in helping with transportation takes on great significance. In some places,
AFDC recipients must continue in the WIN aid program because there are no satisfactory
solutions to the transportation problems that hinder their training and employment.
In developing an approach to training and employment, the local program sponsor
must ascertain the details relative to transportation. Do the job candidates have cars? Is
there adequate public transportation? Are there car pools to environmental job locations?
Will relatively small amounts of money be sufficient to help individuals solve their trans-
portation problems?
43
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For each local training and employment program, use should be made of large-scale
maps to show the trainee-workers the fastest and cheapest ways to reach the training site
ahd the job locations. Such maps may help the WIN participant find his/her way about and
also relieve his/her anxiety in having to travel through unfamiliar parts of a city or suburb.
In almost all cases in the WIN/EPA/DO L project it is necessary to make cash payments
to the trainee-workers as reimbursement for transportation. Such payments must be con-
tinued until the trainee-worker is able to assume the full financial responsibility. The time
involved varies substantially among the trainee-workers.
Child Care
Experience with disadvantaged women in training and work situations indicates that
absenteeism or late arrival is often caused by difficulties in finding a way to care for children
during the work day. In most communities, adequate and inexpensive day care facilities are
not available. Since most of the participants in the WIN/EPA/DOL project are women, the
problem of child care looms large.
Most of the WIN trainee-workers rely on babysitters, or relatives, or they leave their
children with friends. When the friend or relative is ill or does not show up, the mother has
to stay with her child or children and cannot report to work. At times, the babysitter costs
are so high that the mother feels she is working only to pay the sitter.
The WIN II program helps to alleviate the child care problem by allowing limited
subsidies to the trainee-workers until they become able to assume the full financial responsi-
bility. Since most mothers who need child care prefer that it be provided in their own homes
or in the home of neighbors or nearby relatives, only money is required to fulfill their
needs. In other instances, institutional child care may be useful. Again, the cost is really the
problem and that cost is generally higher than when the children are cared for in their homes.
An assumption about WIN participants that often is made is that they lack responsi-
bility in their jobs because they have children at home about whom they must be contin-
ually concerned. Presumably, the lack of responsibility is reflected in excessive amounts of
absence, tardiness, and general lack of attention paid to the job. The evidence accumulated
in the WIN/EPA/DOL project, however, completely refutes these assumptions.
The woman who is concerned about her children is equally concerned about her ability
to provide for them by holding a job. She does have decisions to make—important decisions.
There are times when she must decide whether to go to her job or stay at home with her
sick child. In such cases, she is certainly not displaying any lack of responsibility. She, in
fact, is demonstrating the best in responsibility. One must make comparisons when assigning
values to things or evaluating degrees of responsibleness among people. The man who calls in
on Monday to report that he is sick but really is on a fishing trip must have his responsible-
ness evaluated. It is too bad that only a few organizations maintain the records required for
accurate evaluations. Too often it is assumed that the man who is relatively free of family
obligations will be at his job more regularly than the woman who has relatively heavy family
obligations. The truth is that the circumstances are frequently the reverse.
Medical, Dental, and Optometric Aid
The reports from this WIN/EPA/DOL project do not stress poor physical health,
although it is recognized as one of the hindrances to training and employment of the AFDC
recipients. It is the responsibility of the WIN II organization to provide aid to people with
vision impairments, to those suffering problems of obesity, to those suffering from poor
nutrition, to those requiring dental treatment, and so forth. In some instances only the
medical and dental examinations are required. In other instances extensive medical workups
44
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and treatments are necessary. Eyeglasses are frequently needed along with the filling of
teeth.
Some disadvantaged people have a high incidence of health problems, often because
they are inexperienced in finding resources to alleviate those problems. Yet, only limited
medical and related assistance may be required. Many of the medical conditions encounter-
ed are chronic, nondebilitating, and not markedly influential in determining the trainee-
worker's ability to get or keep a job. The more or less standard procedures of the WIN II
organization appear to be adequate for handling such assistance needs. In general, such
services as diagnostic screening, immediate intervention when necessary, and referrals for
long-term extensive treatment have been provided.
Minimal Income Subsidy
In the WIN/EPA/DOL project the trainee-workers are provided with a minimal
income subsidy while in classroom training and during short periods of supervised work ex-
perience. This cash allowance is intended to compensate or reimburse the WIN participant
for daily transportation and lunch costs that are incurred in connection with his/her
participation. In most instances, this means that the WIN trainee-worker receives $2.00 per
day for training-related expenses. This payment is continued until the trainee-worker re-
ceives his/her first paycheck as a regular employee.
Perhaps the most significant effect of this support service is in its psychological impact
upon the trainee-worker. No individual likes the idea of receiving $2.00 per day as a trainee-
worker when the pay of the regular worker is more than that amount per hour. Thus, there
is strong incentive toward getting into the "regular employee" category as quickly as possi-
ble. Being on time, attending every day, and participating fully in other ways will get the
trainee-worker into full wage earning most rapidly. The $2.00 per day becomes, in effect,
the dissatisfier kind of motivational influence. As such it encourages the trainee-worker to
get to full wage-earning status just as quickly as possible.
Other Support Services
Because disadvantaged people often have problems in addition to those described
above, the WIN/EPA/DOL project provides help with legal matters, credit buying, general
financial management, and other kinds of social adjustments. In some instances the trainee-
workers are helped to better understand and cope with the law. In other instances individ-
uals are helped to make out budgets and develop plans for making equitable payments to
creditors. The evidence accumulated in this project to date indicates that most of the WIN
participants have not had unusual emotional problems. While many problems are evident,
they are the kinds of problems that most people have as they engage in training activities
and move into new kinds of employment.
In summary, with regard to support services, the intent behind making them available
is to sustain the training and employment program that is required to yield full productivity
levels. At all times the support services should be related directly to the training and/or the
job. Decisions about which support services are needed should be individualized, with the
WIN caseworkers and the trainees (when possible) sharing in the decisions concerning which
services they need.
With jobs developed for potential trainee-workers, with recruitment for those jobs
accomplished, and with support services to reduce obstacles to employment, it is possible to
begin job training for a group of people who actually have reasonable expectations of
moving into environmental service jobs. The next part of this section pertains to the com-
ponents of that job training.
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Job Training Components
Training for welfare recipients in this program is usually offered in four categories: (1)
Introduction to Environmental Service, (2) Basic and Remedial Education, (3) Training
Related to Environmental Occupations, and (4) Training in Specific Environmental Job
Skills. This section describes in some detail each of these four categories of the job training
component of the WIN/EPA/DOL project.
Good training is a vehicle for assimilating workers into the circumstances of work in
ways that develop solid attitudes toward environmental service employment. The training
should include the fundamentals necessary for performing the job and should help build
potential for realistic advancement opportunities. Good training gives support to the trainee-
workers' hopes that they can learn skills that are salable in the environmental job market.
Good training gives support to their expectations that employment in environmental occu-
pations will lead to economic security and upward mobility. Finally, good training will
guide the trainee-workers in their responses to learning and work assignments imposed by
supervisors under actual work conditions at the job sites. A key consideration in all of the
training should be the trainee-workers' personal characteristics and learning styles.
The main goal of the training component is to offer the welfare recipient (trainee-
worker) an opportunity for a career in environmental service by preparing him with a body
of practical knowledge.This is supplemented, to the extent required for each person, with
basic and remedial education along with broad training related to environmental occupations.
In providing opportunities for careers in environmental service, numerous efforts are made to
instill in each trainee-worker self-confidence and the ability to learn effectively.
Introduction to Environmental Service
The instruction, guidance, and self-help aspects of the introduction to environmental
service are programmed to enable each trainee-worker to understand both the training and
work conditions in environmental employment. Each person is helped to best present him-
self or herself by means of neat and accurate completion of training and employment forms.
General ability, physical, and other examinations are used to help the individual assess his/
her potential for meeting the job requirements. Each trainee-worker learns about required
work habits and other personal requirements. (S)he is informed of the procedures, rules, and
benefits relating to environmental service occupations. (S)he becomes motivated to respon-
sibly enter into both training and work. (S)he is shown how, with increased earning power,
family obligations can better be fulfilled.
The developing of long-lasting motivational forces is emphasized in the introduction to
environmental service. The trainee-workers who are high school and grade school dropouts
find it hard to return to study activities. Extensive encouragement toward advancement
through training for environmental work is provided for them.
The design of the introduction to environmental service is intended to help the trainee-
worker to better see himself or herself as a person and as a worker entering an occupational
field in which chances for achievement are good. The subject matter of this part of the job
training includes: definition of lines of authority in training and employment, consideration
of the several environmental fields as areas of employment, clarification of rights and
obligations of environmental service workers, and evaluation of the advantages and disad-
vantages of specific jobs. It is in this introduction to environmental service that the climate
of the total training program is established and good rapport is first developed between the
trainee-workers and the instructor-counselors.
Basic and Remedial Education
The goal of this part of the training component is to help the trainee gain the basic
education required in almost any work situation: communications; mathematics; science;
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and, for those who have not finished their high school education, general review and prepar-
ation for the GED test. The basic and remedial education constitutes the groundwork
essential to learning how to do environmental service work.
If the trainee has a good high school background, (s)he may devote little or no time to
basic and remedial education. (S)he can move directly into the training related to environ-
mental occupations and the training in specific environmental job skills. The quick move to
related and specific job training is a substantial motivating force, particularly when the
trainee-worker is made aware that (s)he will gain more skill training than others do and will
be upgrading the potential for advancement in employment.
The trainee-worker may need basic and remedial education because (s)he is a school
dropout or suffers from poor or ineffective schooling. When this is true, (s)he should be
subjected to learning materials and instruction that are correlated with the job to be entered.
Thus, (s)he may be motivated to learn because of job preparation motivations. At this point,
the individualized training program developed for each trainee takes on significance as the
trainee participates in setting his or her own training goals and makes contributions to the
preparation of his or her own development plan.
The amounts of basic and remedial education delivered to each person will differ
substantially. Too, there will be variations in the specific jobs that people move into. The
content of the basic and remedial education will include concern for communications,
arithmetic, science, and aspects of General Education Development (high school equivalency)
and will continually be adjusted in terms of the needs of each trainee. The content is
defined more specifically in the following paragraphs.
Communications—Communications includes reading, writing, speaking, listening, and
techniques of studying. The goals of the training in communications are: (1) to help the
trainee-worker extend and refine the ability to communicate and (2) to give direction to the
use of communication skills in environmental service work. Each person is helped in reading
for understanding and writing for clarity. Each person is helped to better relate his or her
speaking to thinking in conversation. Each person is helped in learning how to listen with
perception. In this context, proper techniques for study and learning are developed and
practiced. Applications of communication skills, individually and in groups, are in terms of
the history of environmental work, economics of environmental control, government
funding of environmental facilities, and staff training.
Mathematics—The general purpose of instruction in mathematics is to assist the trainee-
worker in acquiring the skills necessary to solve environmental job-related problems and
problems of daily living that involve arithmetical thinking. The use of whole numbers,
fractions, and decimals is reviewed. The applications of mathematics are varied according to
the specific jobs for which training is given. Applications may include measurements,
calculation of area and volume, percentages, work with money and time, and an introduction
to graphs, maps, and blueprints. The learning is simplified and made meaningful with ex-
amples of the mathematics for the particular jobs for which the trainee-workers are pre-
paring. An effort is made to help the individual develop the ability to use mathematics as a
foundation for advanced learning on the job or in an upgrade training program.
Science—The study of science covers basic life science, physics, and chemistry. It is
designed to help the trainee-worker acquire a foundation for understanding the science as-
pects of environmental service processes. The content includes the fundamentals of plant
and animal life along with consideration of energy in machines and in electricity. In special
areas such as water and wastewater occupations, attention is given to organic and inorganic
constituents. Similarly, attention is given to the disease and nuisance producing aspects,,
particularly in the pollution control kinds of jobs. Development of the inquiry/discovery
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frame of reference is stressed in this segment of the basic and remedial education. There is
constant drawing out of direct experiences from the environmental service occupations.
General Education Development—Review for the GED tests consists of improving test-
taking skills; improving facility in reading, vocabulary, grammar, spelling, arithmetic, and
problem solving; and, with help from the instructors, work at analyzing and answering
questions that involve reasoning, judgment, comparison, and evaluation. This segment of the
basic and remedial education is a concentrated approach to general learning for those persons
highly motivated toward obtaining the high school equivalency diploma. When in the
opinion of the instructor the trainee-worker is ready to again, or for the first time, take the
GED test, the schedule for doing so is arranged.
Training Related to Environmental Occupations
This part of the job training component is vital for trainees in any field of environ-
mental service work. It consists of intensive training including the following content:
1. First aid and accident prevention.
2. Personal and job behavior.
3. Safety in operations and maintenance.
4. Care and use of tools.
5. Basic technical aspects of the job.
6. Materials handling.
7. Personal money management.
This training is designed to help the trainee-worker better understand himself or herself as
well as others and to help develop in each person a feeling of security. To the extent that
this training is related to a specific job, it helps the trainee-worker begin to "get the feel" of
particular environmental service jobs.
In this aspect of the job training, as in other aspects, the learning atmosphere should be
non-threatening and motivational. Because of past school experiences, some individuals are
inhibited in learning. They expect to be embarrassed and possess feelings of inadequacy.
Such people must be pulled into group discussions and at other times must be allowed to
work independently. The instruction should involve a minimum of lecturing and a maxi-
mum of learning-by-doing wherein each trainee-worker is assured of experiencing successes.
At all times the relationship between the training and the environmental occupations is
made a major part of the total training program by which people are prepared for work
under the WIN/EPA/DOL project.
Training in Specific Environmental Job Skills
This part of the job training component consists of a combination of technical class-
room training and supervised work experience. The technical job skills training offered in
the classroom covers the specific, in-depth, content required to prepare each trainee-worker
for a particular environmental job. The content is determined from the job description and
information drawn from the work supervisors. In some instances the classroom may be
equipped with certain of the tools or equipment of the job. In other instances the hands-on
experience can be gained only at the job site.
The job skills classroom training is closely coupled with the supervised work experience.
The classroom instructor keeps in close contact with the work supervisor in efforts to keep
the learning immediately applicable in the job. The supervisor similarly draws from the
instructor ideas and techniques for making the work experience most valuable. In most
instances, in the WIN/EPA/DOL training project, the trainee-worker moves from the
technical classroom training into an environmental job and does not return to the classroom.
After beginning work (s)he has a follow-up kind of relationship with the classroom
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instructor. When necessary, however, the trainee-worker does return to the classroom for
special attention of any of a number of types. (S)he may be placed in a training-working sit-
uation wherein (s)he is in the classroom one day a week and at work four days each week.
Other time schedules for coupling classroom learning and supervised work experience may
be developed. Only when capable of satisfactorily fulfilling the requirements of a job should
the trainee-worker be released completely to that job and removed from the classroom
training circumstances.
The nature of the relationship between supervisors and members of the classroom
instructional team should be made explicit in this part of the job training. Supervisory
cooperation is fostered as the supervisors are brought into the planning and program devel-
opment for all aspects of the program. Supervisory staff training is usually essential to the
success of the supervised work experience.
Supervised Work Experience
Every trainee-worker should, upon completion of the classroom job training, find a
job waiting—a job that provides a supervised work experience. The trainee-worker should be
factored into that job with the help of a member of the staff of the job training unit. Each
individual, in fact, should be made to feel that (s)he is moving from one friendly group
(training unit) to another friendly group (employing unit). Accompanied to the job site by
the training staff member, the trainee-worker is introduced to the job, to the supervisors,
and to co-workers in a way that causes development of a liking for the new job before the
first day is over. In effect, this is application of the idea that the trainee-worker is given a
"hand-up" toward satisfactory long-term employment. The trainee-worker, however, must
not be made to feel that (s)he is being given a "hand-out."
The WIN/EPA/DOL project recognizes that many new workers and others returning to
the labor force, regardless of color or background, are under varied kinds of pressures, real
and imagined, in the environmental work situation. These trainee-workers are not fully
aware of the spoken and unspoken expectations of their supervisors, their co-workers, and
the employing unit itself regarding work behavior, promptness in starting time, absenteeism,
and so forth. From the traditional supervisor's point of view, some of the WIN people seem
to be overly sensitive to supervision and prone to distort helpful criticism into hostile
attitudes. Experience in working with the WIN trainee-workers and special supervisory
training have solved this problem in the past year of the operation of this project.
Conditions of Supervised Work—It is not possible to overstress the importance of
accepting nothing less than good performance and adherence to posted rules of conduct by
the trainee-workers. The primary rules and regulations must be thoroughly explained to the
trainee-workers as they are factored into their jobs. Although each trainee-worker is treated
as an individual, with understanding and a reasonable attitude, there must be no relaxation
of standards which are applied equally to all employees. Experience indicates that the great
majority of WIN trainee-workers have responded exceptionally well to this kind of treatment
in their jobs. In any group, however, there are some people who cannot be reached by
training and employment techniques. In the WIN/EPA/DOL project the numbers terminated
from employment after counseling and some disciplinary action have been very small.
Each trainee-worker should move into a full work schedule. The individual should not
have work "made" for him/her because of the "trainee" designation. (S)he should be a full-
time employee as soon as possible. The work pattern should include enough work to keep
the person from developing inefficient approaches to that work or laziness with respect to it.
The amount of work should not be so great as to discourage the individual or make him/her
feel inadequate in comparison with other workers. Each trainee-worker should, through the
supervised work arrangement, become a fully competent, fully productive worker in a
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minimum amount of time. The overall conditions of the supervised work should be condu-
cive to the development of individual confidence and self-sufficiency in each WIN person.
Work Supervisor's Role—The leadership ability of the first-line foreman or supervisor is
an important key to the success of the WIN trainee-worker. The supervisor must have the
ability to lead, guide, counsel, instruct, and discipline. The new environmental job is a
traumatic experience. Negative attitudes are easily formed and effective communication
must be maintained if they are to be avoided. The supervisor must be a good listener. (S)he
must be honest and let the WIN trainee-worker know exactly "how it is." Insincerity,
broken promises, and patronizing attitudes alienate people from the welfare ranks very
quickly and permanently.
Until an employee can relate readily to a foreman or supervisor, (s)he thinks of that
person as a disciplinarian, as someone who will punish. The supervisor must take whatever
time is required to make the trainee-worker understand why (s)he is being rewarded or
reprimanded. The supervisor must be firm in counseling, guiding, and instructing. Laxness or
indifference on the part of the supervisor will only prolong rehabilitation and inhibit the
development of motivations.
Instructions to the trainee-worker will have to be repeated and, perhaps, repeated again.
This must be done with patience and understanding. At all times, the trainee-worker must
be made to know what is expected and there must be follow up to ensure that work is done
properly. The trainee-worker will identify with positive aspects of employment. (S)he will
appreciate the pat on the back, will thus experience success, and will seek more of the same.
If the trainee-worker believes that (s)he is being accepted by the supervisor and co-workers,
(s)he will respond in many good and satisfying ways. The trainee-worker will perform the
tasks in his/her job with enthusiasm and will perform them in accord with work standards
of the group.
Again, it should be noted that the environmental service job, through which initial
supervised work experience will be gained, should be waiting for the trainee-worker when
the classroom training comes to an end. Every effort should be made to minimize for all
individuals the gap between classroom training and entry into supervised work experience in
actual, full-time jobs. The training and employment program is operating most efficiently at
this point, if the individual completes training on a Friday afternoon and moves into super-
vised employment the next Monday morning.
Permanent Employment
As indicated in the previous pages, the manpower development program for environ-
mental employees is designed to make people willing and able to demonstrate in supervised
work experience situations the abilities and skills that they have acquired by means of
classroom job training. In turn, then, having further refined those skills and having extended
their abilities even move in supervised work experience, they should move into the category
of permanent employees, with expectations of long-term employment and opportunities for
advancement. The trainee-worker's craving for instant job success should be satisfied in the
designated period of supervised work experience. The craving for a regular job to be held
over a long period of time can be satisfied only by what is considered to be permanent
employment.
Properly trained, disciplined, and motivated at his or her work, the welfare recipient
may outproduce the average worker. The welfare recipient is likely to develop and demon-
strate great pride in work done in the work group and in the employing organization. The
good work supervisor knows this and strives toward the achievement of job satisfaction for
each worker who comes to him/her out of a training and employment program such as the
WIN/EPA/DOL project provides.
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When the intent and design of manpower development are met fully, the outcome is a
"proficient worker" in a satisfying job. To further define what this means, let us consider the
worker in a maintenance or operations job category in an environmental service field. The
following elements should prevail:
The proficient worker—
***Knows his/her tools and when to use each of them.
***Knows his/her job in terms of its parts and the sequences in which tasks should be
performed.
***Is self-initiating. (S)he can see what needs doing and does it without being prodded.
***Can work independently except when it takes two or more to do the job.
***Understands his/her role in "production" and how quantity and quality standards
are met.
***Relates well to supervision. In turn, (s)he is helpful to others with whom (s)he
works.
The proficient worker is the product of both good training and good work experience. (S)he
is the product of long-term employment and does not become proficient overnight.
Available information indicates, in fact, that in the best of training and employment pro-
grams, an individual requires from ten to fifteen months on a job to become fully proficient.
Where training and/or supervision of work are limited or haphazard, as long a period as two
and one-half years may be required for job proficiency standards to be met by workers.
At this point, it may be well to point out that not all of the workers who enter
permanent employment from a program such as the WIN/EPA/DOL project will become
proficient. Nor will all of those who do become proficient have that proficiency recognized
through increased wages, promotions, and so forth. In many instances the jobs will involve
routine tasks, housekeeping tasks, and other duties at relatively low levels. The abilities of
the worker may not be challenged on the job. Upgrading may be difficult to achieve and
few opportunities to lead or become the foreman may arise. If the picture in recruitment,
training, and placement is too "rosy," the worker may become discouraged with time. In
this respect, environmental service occupations are like most other jobs. There is some good
and some bad in every day. The worker needs to count up each day his percentage of success
and failure. After all, some games are won, some are lost, and some just get rained out.
Evaluation
The training and employment aspects of this program do not end with entrance into
permanent status in a particular environmental service job. There are follow-up and evalua-
tion procedures that include an assessment of job adjustment (satisfaction, wages, upgrade
training opportunities) and some feedback of difficulties encountered in bridging the gap
between training and placement in the job.
Follow-up information should be as extensive and meaningful as possible. Job entrance
statistics are not sufficient for really useful assessments of individual job successes or of the
total impact of the program. Much follow-up data constitute the basis for accurate revisions
of curriculums and for improvements in the methods and materials of training. Similarly, a
mass of follow-up information may lead to substantial improvements in job structuring,
recruitment, hiring, and retention of people in jobs.
The first classes in job training under the WIN/EPA/DOL project were conducted in
Maryland beginning in February 1974. The follow-up and evaluation data has been accumu-
lating in that State for only about seven months. The time for data to accumulate is much
less in each of the other six states. This means that there has not been time to adequately
develop evaluation patterns or decisions on the basis of substantial amounts of information.
Trends are developing and, in some situations, rather drastic changes in methods and
procedures have been made on the basis of limited data.
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Perhaps importantly, there are numerous employing units that hired people out of the
first class in a particular state and are now hiring from the fifth and sixth classes. Repeat
business, of course, is evidence of the delivery of a good product or service. The number of
successful job placements of the AFDC recipients in the WIN/EPA/DOL project is growing
at a rapid rate. And, employers are now beginning to point with pride to their participation
in the project. This is not the kind of data that will ultimately be available, but it is the kind
of data required to build enthusiastic continuing efforts inside the project and interest and
desire to learn about it on the outside.
In training and employment programs offered under widely divergent circumstances in
several states, it may be impossible to standardize an approach to measurement of the
"quality" of the programs. It may be impossible to establish means of determining the
reliability and/or validity of quality-measuring devices. But, it is already evident in this
WIN/EPA/DOL project that training does pay off. It is paying off through environmental
service employment that puts cash in the hands of former AFDC recipients. Too, it is
paying off in terms of personal achievements by people who in the past have achieved very
little. It is paying off in enabling individuals to live more useful lives. Stating the situation in
very basic terms, the quality of the training and employment is pointed up in people who
now have an incentive for "getting out of bed in the morning."
Summary
In this section we have dealt extensively with the fundamental components of man-
power development. Drawing on experience, we have provided technical assistance infor-
mation relative to how to build on the collective manpower strength of AFDC recipients. In
this section, we have demonstrated how to make AFDC recipients available for work in
environmental occupations.
The material presented in this section was developed around three primary assumptions.
The first assumption was that a project involving employability must have within it certain
guarantees of employment to ensure the motivation needed to make job training successful.
The second assumption was that numerous community resources must be mobilized and
coordinated (health, transportation, training, child care, social living) to produce an employ-
able individual and to match that individual with an environmental job. The third assump-
tion was that support services are needed for both employee and employer in facilitating job
adjustment and retention in a job for a relatively long period of time.
These three assumptions about manpower development mark a radical departure from
the passive approach to training and employment that has prevailed in recent years. In
essence, they point up that manpower development should be trainee-worker oriented
rather than employee oriented. This also recognizes that proper orientation, primarily con-
cern for trainee-worker growth and development, is at the core of any program designed to
convert a welfare recipient to wage-earning, tax-paying status.
Manpower development should be a continuous, organized, and interrelated effort
with component parts including job development, recruitment, orientation, selection,
training, support services, work experience, permanent employment and evaluation. All of
these components should be built on the premise that the skills and potentialities of people
on welfare can be extended to fit the patterns of employment in environmental service
occupations. Where there are, within the structure of employment, certain causes of
unemployment and/or underemployment, these must be dealt with in ways that reduce
their effect or eradicate them completely.
In some communities welfare recipients may be helped into employment in environ-
mental occupations by traditional methods and through ordinary processes. In other com-
munities, however, the training and employment program for welfare participants must
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provide stimuli for changes in traditional patterns of manpower development. It is encour-
aging to note that a partial solution to filling the need for trained environmental workers,
which is one of the major manpower problems of this decade, has been demonstrated by
the efforts thus far exerted in this WIN/EPA/DOL project.
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SECTION V
NEW MANPOWER DESIGN
From the Nation's capital has come a clear mandate to decentralize and decategorize
Federal manpower programs. Responsibility for manpower growth and development has
been placed at the lowest practicable grovernmental levels. All of this has been done through
the Comprehensive Employment and Training Act of 1973 (CETA) which replaced the
categorical grant approach that prevailed for approximately eleven years under the Manpow-
er Development and Training Act of 1962 (MDTA). CETA provides new funding mechan-
isms which result in new directions in manpower development. At present, CETA is subject
to both praise and condemnation. But, there is no doubt that CETA will be an essential and
major source of funding assistance in the future development and implementation of
programs for training and employment in environmental service fields.
Since 1969 EPA has been operating several Interagency Agreements under funding
from the U. S. Department of Health, Education, and Welfare as well as the U. S. Depart-
ment of Labor. The EPA has helped to provide states with funds to train people for lower
level environmental service jobs. In fact, it is from this source that most of the funds for
environmental training in the various states have come. Other sources of some Federal
funds have been direct grants from HEW, Civil Service Commission, Department of Agri-
culture, and others. With the new manpower design it is essential that Manpower Revenue
Sharing monies be allocated under the CETA plan in each of the states to provide for train-
ing and employment in environmental fields. Leadership by state agencies responsible for
environmental manpower will have to be vigorously exercised to ensure funding of the
essential programs in each state.
It is apparent that the role of the Office of Education and Manpower Planning of the
EPA is changing. No longer may a prime sponsor look to the EPA for funding of an environ-
mental manpower program; but, a prime sponsor can still expect from the EPA major and
significant kinds of technical assistance, guidance, and other kinds of help in the organiza-
tion and administration of programs. Most importantly, however, funds for training and
employment, in most instances, must be derived solely from revenue sharing and other
monies within each state—and this usually under the auspices and with the coordination of
CETA.
One of the exceptions to the above continues to be the WIN program under Title IV
of the Social Security Act. Money for some institutional training, for WIN-OJT slots, for
WIN-PSE slots, and for support services remains available for possible use in environmental
service job training and employment.
It should be noted that the Secretary of Labor must allocate not less than 50 percent
of certain sums appropriated for WIN among the various states; but, he shall allocate the
balance of the sums not allocated in such manner as he determines will best serve the
objectives of the WIN program. He, therefore, has the authority to continue such programs
as those under WIN/EPA/DOL Interagency Agreement 99-4-0001-021 and may fund addi-
tional programs similar in nature and of equal importance in environmental manpower
growth and development.
CETA
Rather than operate manpower programs project by project through separate sponsors,
the Comprehensive Employment and Training Act authorizes the Department of Labor to
make block grants to local and state Prime Sponsors. These are the groups that plan and
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operate manpower programs to meet local needs. The objectives of this new design for
manpower development are:
1. To unify efforts—including public service employment—under which federally
supported manpower services are provided to unemployed and underemployed
persons who need job-related assistance.
2. To free city, county, and state budgets from fund matching and maintenance of
effort encumbrances, and to permit state and local planners and administrators to
have flexibility in meeting manpower needs.
3. To vest the power to shape manpower programs in those levels of government closest
to the people who need assistance.
CETA is the result of ten years of groping toward a system that combines Federal resources
and Federal standards with manpower programs designed and operated locally to meet
local labor market needs. Implementation procedures, however, do not guarantee that
programs will in fact be adapted to local needs. All they guarantee is that local planners will
have their day. The planners may ignore or never discover the needs such as those now
seemingly very apparent in environmental service fields.
Comprehensive Manpower Services
Title I of CETA establishes the program of financial assistance to state and local
governments for comprehensive manpower services. Among the purposes for which funds
may be used are:
1. Recruitment, orientation, counseling, testing, placement, and follow-up services.
2. Classroom instruction in occupational skills and other job-related training such as
basic education.
3. Subsidized on-the-job training by public and private employers.
4. Allowances for persons in training.
5. Supportive services such as necessary medical care, child care, and help in obtaining
bonding needed for employment.
6. Transitional public employment programs.
The mix and design of manpower services provided under this broad umbrella is up to local
and state governments acting as Prime Sponsors. For this reason, it becomes extremely
important for organizations and agencies with any responsibilities in environmental man-
power development to let the Prime Sponsors have assessments of manpower needs and
specific information relative to particular jobs. Too, when funds have been allocated for
environmental training and employment, the organizations and agencies must give technical
assistance and other help in curriculum development and the supervision of operating
programs. Please refer to the page that follows for an illustrative list of the organizations and
agencies in any one state that might provide input for environmental training and employ-
ment.
A significant example of how a state agency with responsibility for environmental
control may become interactive with CETA involves the field of pest control work. Under
the Federal Environmental Pesticide Control Act of 1972, the Departments of Agriculture
in various states are picking up responsibility for developing programs of certification of
pesticide applicators and execution of the certification requirements. Ultimately, much
training will be required in many different areas of applicator certification programs. Funds
for training will be lacking unless CETA or other monies are made available for this special
purpose. It will take extensive leg work by those responsible for pest control to convince
the Prime Sponsors in CETA that they should pick up any part of the check for such a
program of training and employment. It is time now for Prime Sponsors to be made aware
of the need for training, the need for funds, the need for coordinated planning by various
groups to bring about fulfillment of shared goals relative to pest control.
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ILLUSTRATIVE LIST OF ORGANIZATIONS AND
AGENCIES THAT MAY BE SOURCES OF INPUT FOR
ENVIRONMENTAL MANPOWER DEVELOPMENT
Designated State Environmental Agencies
Department of Pollution Control
Department of Health
Department of Agriculture
Department of Wildlife Conservation
Department of Industrial Development
Water Resources Board
Conservation Commission
Corporation Commission
Other State Agencies With Environmentally Related Responsibilities
Highway Department Office of Energy Resources
Turnpike Authority Department of Tourism and Recreation
Department of Mines Department of Labor
Office of Community Affairs and Planning
Comparable Federal Agencies in Operation Within the State
Environmental Protection Agency Department of Health, Education, and Welfare
Department of Agriculture Department of Interiors
Department of Commerce Department of Housing and Urban Development
Bureau of Mines Department of Labor
Bureau of Reclamation Department of Transportation
Regional, District, County, and Community Sources
Substate Planning Districts
District Sanitarians
Soil Conservation Agents
Highway Departments
Commercial Pesticide Operators
Milk, Beverage, and Food Processors
Air Pollution Source Permit Holders
Radiation Users
Private Haulers & Permit Haulers
Utilities, Electric and Gas
Conservation Districts
County Agents
County Commissioners
City Mayors, Clerks, Personnel Officers
Major Manufacturers
Plumbing Companies
Water Discharge Permit Holders
Private Landfill Operators
Private Hazardous Waste Operators
Incinerator Operators
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Public Employment Program
Title II of CETA provides for programs of transitional public service employment in
areas with a 6Vz percent or more unemployment rate for three consecutive months. Prime
Sponsors may be units of government qualified under Title I of the Act or Indian tribes on
Federal or state reservations.
It is hoped that the unemployment rate will remain low and that most governmental
agencies will be only slightly concerned about Title II. Those involved with environmental
manpower, however, should remain aware of the possibilities herein. The public service
employment may be in environmental jobs as well as in other fields of work.
Special Federal Responsibilities
Title III of CETA provides Federal supervision of manpower programs for Indians and
for migrant and seasonal farmworkers. The Secretary of Labor also is authorized to provide
manpower services for certain other special target groups with particular labor market
disadvantages.
Title HI authorizes research, experimental and demonstration programs, evaluation of all
programs under the Act, the development of a labor market information system, and com-
puterized job placement. Because of the dimensions of the multiple facets of manpower
service under this Title, those responsible for environmental manpower should look into it
thoroughly.
Job Corps
Title IV of CETA consists of the provisions of Title I-A, "Job Corps," of the Economic
Opportunity Act which were transferred to this Act. The purpose is to assist young persons
who neeB and can benefit from an unusually intensive program operated in a group setting
to become more responsive, employable, and productive citizens. There is no questioning
the fact that the training and employment stemming from the Job Corps may involve envir-
onmental service jobs in fields such as water and wastewater treatment, pest control, auto-
mobile emission control, and sanitary landfill operation.
National Commission for Manpower Policy
Title V of CETA establishes the Commission to be made up of the heads of certain
federal agencies, state and local elected officials involved in manpower programs, persons
served by manpower programs, representatives of other concerned groups, and members of
the general public. It is obvious that people concerned about the need for environmental
manpower development should "infiltrate" the Commission to provide essential input. This
is especially true since the Commission is identifying the Nation's manpower needs and
goals, doing research, evaluating the effectiveness of federally assisted manpower develop-
ment programs, and reporting annually to the President and the Congress.
General Provisions
Title VI of CETA contains provisions applicable to all programs such as definitions,
conditions governing work and training, prohibitions against discrimination and political
activities, and the like. It is no more or less applicable to training and employment in
environmental service jobs than in any other occupation.
It took approximately eleven years under MDTA to bring Federal manpower policy
competence to its present relatively high level, and there is still much to be learned at the
local level where the action is now concentrated. There is, however, a base of experience in
most sizable communities, a Federal capability to draw upon, and a body of technical
assistance and training competence in and out of government.
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Environmental manpower has been the concern of EPA only since 1969 and only now
are real concerns developing in many state and local situations. It will be helpful if the
process of learning manpower techniques and procedures can be shortened under CETA.
For the environmental fields this will happen if both the suppliers and the users of environ-
mental manpower are aggressive in their demands for carefully designed training and
employment plans and effectively executed programs.
Changes in WIN
The Federal Work Incentive Program (WIN I) got underway approximately eight years
ago as a part of the Nation's broader Social Security program. WIN II was created from
WIN I by 1971 Amendments. The constant goal of these programs has been to help recipi-
ents of AFDC become economically self-sufficient through employment. That this can be
done is being amply demonstrated in the WIN/EPA/DOL Project described in this document.
At this point the reader may wish to refer back to the material on Coordination with WIN
in Section III.
Now there are proposals before Congress that will bring about certain changes in WIN
operations, presumably to increase the efficiency of certain practices and procedures. It is
probably correct to assume that the new rules and regulations for the operation of WIN
programs in the various states will be implemented on January 1, 1975, according to the
present plan. The "Notice of Proposed Rulemaking" for WIN was disseminated by means of
the Federal Register, Vol. 39, No. 182—Wednesday, September 18, 1974.
Proposed New Regulations
The DOL and HEW are jointly proposing new WIN regulations. They are designed to
better implement the WIN program and, in particular, to improve the job development and
placement systems. Of significance to environmental training and employment, with
coordinated CETA and WIN efforts, are the following changes:
1. The WIN registration function is transferred from the local welfare staff to the
local WIN sponsor (generally the employment service). This will assist new WIN
registrants to use the job referral services located at local WIN sponsor offices.
2. A job search activity is added for AFDC recipients registered for WIN, but not yet
certified by the state welfare agency for participation in WIN, and for individuals
who are certified but who are not actively engaged in a WIN component.
3. The WIN sponsor will assume the function of deregistering all individuals from WIN.
This change places both registration for WIN and deregistration from WIN in the
same administrative unit.
4. A new Intensive Manpower Services Component has been added as an option to
current WIN programs. This new component is intended to provide structured,
intensive employment services, and the development of job seeking skills to individ-
uals certified for WIN training.
The Assistant Secretary of Manpower in DOL and the Administrator of the Social and
Rehabilitation Service in HEW together form the WIN National Coordination Committee.
These two individuals are responsible for the effective national administration of WIN.
State and Local WIN Plans
Planning of WIN operations will continue very much in the same way as in past years.
State WIN plans will be formulated on an annual basis through joint efforts of the state
WIN sponsor and the state welfare agency. The state WIN plan will include a summary of
the data in the local WIN plans.
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A state or local WIN sponsor may, through agreements with public or private agencies
or organizations, carry out a variety of activities and programs, including but not limited to:
1. Public service employment programs.
2. Intensive manpower services programs.
3. On-the-job training programs.
4. Work experience programs.
5. Job search programs.
As always in WIN, the supportive services component will continue to be extremely helpful
in enabling disadvantaged individuals to participate in job search activities, accept employ-
ment, or receive manpower training under the WIN program.
WIN Coordination with CETA
Under the new WIN regulations, it should be somewhat easier in 1975 and thereafter
to establish coordination and linkages between WIN prime sponsors and CETA prime spon-
sors. Linking WIN with CETA has many advantages that result in more efficiency and
effectiveness in the provision of manpower services. Maximizing of results is important to
those responsible for environmental manpower development, as well as to others, because
funds for such purposes are now limited and may be limited further in the years ahead.
It is important for WIN and CETA prime sponsors to jointly identify certain significant
elements in the design of an effective delivery system for training and employment. Some
of these key elements are:
1. WIN is still a categorical manpower program sponsored by the DOL. It operates in
over 300 jurisdictions under a different legislative and funding base than CETA.
2. Having related goals, both programs offer tremendous potential to complement and
support each other, but also have the potential for costly duplication of services to
their target populations.
3. The general CETA target population entirely encompasses the WIN population.
4. The legislation and regulations for both programs specify the need for cooperative,
joint action.
5. The placement of AFDC recipients and general welfare recipients in employment
can result in substantial welfare savings to local governments.
6. The Revenue Act of 1971 provides for a tax credit to employers who hire WIN
registrants, whether they are hired from the WIN program or from CETA.
To ensure effective coordination and cooperation, the prime sponsors of WIN and CETA
should formulate and operate under subagreements which spell out good practices and
procedures.
Summary
The realities of manpower planning and development are challenging and at times even
frightening. The manpower budget becomes a significant amount of money as it is focused
on a limited target group in a particular jurisdiction. In effect, that budget takes on a
tremendous political clout.
Under CETA state and local manpower planners probably can exercise control over no
more than two-fifths of the funds available for employability and employment programs for
the disadvantaged. The remaining portion of such funds still remains in the hands of the
long-established agencies such as the employment service, public and private schools, labor
unions, vocational rehabilitation agencies, and welfare agencies. In the aggregate, the funds
for support services, training, and employment of disadvantaged people loom large. The
funds constitute major items in the budgets of governmental units at all levels: Federal,
state, and local.
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A promising potential advantage of planning under the "new manpower design" is the
coupling of services and service deliverers in ways that were rare under the national pro-
gramming of MDTA. For many years institutional training has been viewed as an education-
al responsibility of HEW, whereas on-the-job training was to be done only through the
employment service, an arm of DOL. The very desirable mix of institutional training with
on-the-job training was only seldom accomplished because it required crossing of agency
lines.
Today, agencies and organizations are being urged to cross lines and to engage in
coordinated approaches to training and employment. This necessitates, however, much more
input from many sources and new lines of communication must be established at the same
time that the old lines are being used more effectively. People who are responsible for
environmental manpower planning and development must be connected into the old and
new lines of communication and they must keep those lines busy. In the political pattern
now prevailing in training and employment programs, political techniques must be used.
Measures must be taken to ensure that the "environmental voice" will come through loud
and clear.
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SECTION VI
MODELS OF PROPOSALS,
PROGRAMS AND AGREEMENTS FOR
TRAINING AND EMPLOYMENT
Introduction
The development of a program of training and employment in environmental service
occupations must begin with a plan. The plan must be based on a purpose, a fundamental
underlying concept, and an approach that elicits solid support from numerous sources.
The next major step involves the preparation of an environmental manpower project
proposal. The person(s) doing this job should have competence in proposal writing. But, of
more importance is thorough understanding of the components of good job training and of
the nature and scope of environmental kinds of work. A model of a project proposal is
provided here. It is a relatively short proposal, easy to read, yet with all needed basic
information.
Most prime sponsors are not tooled up to perform the job development, training, and
placement aspects of a manpower project. It often, therefore, becomes most appropriate for
them to get these things done through subcontractors. Since most governmental units have
their own particular formats for requests for proposals, no model is presented here. But, the
response to a request for a proposal is shown here in a model for training and employment.
Once a subcontractor is selected for doing various aspects of the work in a particular
project, a subagreement should be executed to insure compliance with all specific details.
Similarly, arrangements with the WIN organization should be formalized in a relatively
simple subagreement. Both of these kinds of subagreements are illustrated here with models.
It is hoped that the models of a proposal, of a program, and of two subagreements will
be useful. It is certain that the early aspects of development of the WIN/EPA/DOL Project
were more difficult to accomplish because of the absence of such guideline documents and
materials. . ,
Please study the models presented on the following pages and review them again and
again as your training and employment program is organized and made operative.
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MODEL
PROJECT PROPOSAL
Submitted to:
Project Director:
By:
(Name)
(Signature)
(Title)
(Telephone)
(Date)
(Address)
63
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PROGRAM DESIGN
(Proposed Prime Sponsor)
in cooperation with the State WIN Program, various Manpower Area Planning Council groups,
and others proposes to establish and operate a statewide program to provide job training and
placement assistance for (State) welfare recipients enrolled in the Federal Work Incentive
Program (WIN).
This program will include as components training, job development, and placement of
participants to meet the environmental services personnel needs of the private sector, state
government, and units of local government.
SUBSTANTIATION OF MANPOWER NEEDS
The need for an expanded environmental manpower development program within the
State of has been authenticated and verified by two recent studies. A
feasibility study by Program Representatives functioning under the WIN/EPA/DOL Inter-
agency Agreement determined that there is within the State a "substantial need for entry
level personnel in various environmental or environmentally-related occupations and that
WIN clients, with proper training, would be excellent candidates for these jobs." Another
study, funded by the — determined that there is a significant
and substantial continuing need for manpower development in the environmental occupa-
tions. State agencies contacted relative to this proposal were receptive and enthusiastic.
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INTRODUCTION
The (Proposed Prime Sponsor) js responsible for planning and
coordinating the State's overall manpower development and training program. One of the
more important goals of this activity is to enhance and preserve the quality of the State's air,
water, and land through prevention, control, and abatement of pollution to assure and
sustain an environment of adequate quality for all beneficial uses. To meet the critical
shortage of skilled environmental workers for the operation of pollution control facilities
such as water and wastewater treatment plants, sanitary landfills and solid waste disposal
plants, and pest control units, the (Proposed Prime Sponsor) is
coordinating a variety of programs and resources toward development of a sound environ-
mental manpower training program.
Recently enacted laws in environmental protection and pressing needs for additional
law enforcement and fire protection as well as other public services that need to be delivered
in both urban and rural areas make it mandatory that this manpower development be
intensified. Without aid, many of the smaller counties and municipalities do not have the
resources to train or hire individuals to deliver the needed services. In many instances the
tax base has been severely eroded by recent inflation and is now inadequate to meet the
needs. Increased effectiveness of existing manpower development programs would alleviate
many of the existing manpower needs in the areas of environment and public service.
The program, as described in this proposal, will be accomplished through a partnership
with the (Proposed Program Sponsor) f tne staie WIN Program, various Manpower
Area Planning Council groups, and units of local government. Linkages with existing man-
power training and development programs will be established, thereby bringing a more
efficient combination of resources to bear on the goals of both manpower development and
environmental quality.
It is anticipated that a large portion of this program will be operated in conjunction
and simultaneously with CETA Programs. The CETA and WIN guidelines will be such that
the programs can be linked to obtain greater utilization of job development and training
resources. It will be possible to utilize administrative personnel, program advisory commit-
tees, and, in some instances, the instructors and job developers for both programs.
Where possible, this program will be linked with other manpower programs such as
WIN-PSE, WIN-OJT, and Title II PSE. This will provide the added advantage of coupling
classroom job-related/job-skills training with the wage reimbursement aspects of the other
programs. The "disadvantaged" criteria used to select the trainees make the programs com-
patible and, through this linkage, both will be strengthened.
In summation, the costs of conducting environmental/public service training will
obtain maximum benefits through linkages of several programs, and, for a majority of the
total program, administrative costs will be reduced through the linkages with other programs.
(See Appendix A for Budget.)
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PROGRAM DESCRIPTION AND OBJECTIVE
The intent of this program is to establish and operate a project to provide job training
and placement assistance to welfare recipients enrolled in the Federal Work Incentive
Program (WIN). Participants in this project will be receiving Aid to Families with Dependent
Children (AFDC).
The period of performance of the proposal herein is twelve months from the date of
the execution of an agreement. A one-month refinement period is proposed at the com-
mencement of the twelve-month period to provide sufficient time to initiate job develop-
ment and to contact, interview, and prepare enrollees for formal classroom training.
The primary objective of this project is to provide able-bodied AFDC recipients an
opportunity for full-time career employment in the environmental fields. To further careers
of project participants, sponsors will endeavor to place graduates of this program in other
EPA sponsored training programs that lead to higher levels of responsibility and pay.
SCOPE OF PROGRAM
The (Proposed Prime Sponsor) shali promote, develop, and
administer a program designed to:
1. Provide remedial education and skill training to approximately _Jnumber) a(jult
welfare recipients (entry enrollees). (See Appendix B for possible occupations.)
2. Facilitate the placement of the (number) individuals in established budgeted
positions located in selected public and quasi-public agencies as well as in selected
private firms administering environmental programs and/or performing environmental-
related services.
CONCEPT OF PROGRAM OPERATIONS
The Training Program Director through his/her Job Developer/Placement Coordinator
will work closely with each local WIN director and accomplish the following:
1. Screen available WIN recipients for those employable in the environmental field.
2. Identify and secure job commitments from employers in the environmental career
field.
3. Where possible, place trainees in WIN-OJT, WIN-PSE, or Title II PSE slots.
4. Advise the training consultant of training requirements.
The Training Consultants will accomplish the following:
1. Work closely with the Program Director and the Job Developer to pattern classroom
training and work supervision to the needs of the individuals and the employers.
2. Based on inputs from the Job Developer and the Program Director, develop training
plans that will provide the highest degree of efficiency in terms of facility and
instructor resources.
3. Keep the Program Director advised of follow-up and counseling activities.
4. Assist the Program Director in job development and follow-up activities.
TRAINING
Upon certification, trainees will enter a period of orientation. They will be introduced
to the various areas of environmental services including pest control, water and wastewater
treatment, and solid waste collection and disposal.
Trainees will be tested for GED's and encouraged to obtain the GED where needed.
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Family and job counseling will be given during the first week to determine the employ-
ability of trainees and to obtain for the placement personnel a complete profile on the
trainee to assist in placement in a position he or she may be able to fill.
Tests may include Wide Range Achievement, GED, aptitude, and others suited to
specific jobs. Slides, movies, and audio-visual presentations will be used to introduce
trainees to the tasks they may be expected to perform. Talks and question-and-answer
sessions will be given by local officials or supervisors to permit the trainee a first hand
knowledge of rules, regulations, salaries, fringe benefits, and promotional opportunities.
Remedial and Basic Education will follow the orientation using the class placement made
during the week of orientation. The time in this training will normally be three weeks with
emphasis on related education and job skills which meet the needs of the individual and the
requirements of the job available. The mathematics necessary to perform a given task, basic
science, and other courses will be given during this period.
During this three weeks, the continuing job development efforts will ensure placement
of those with employable skills. Personal interviews will be obtained for each trainee thought
to be able to work. Placement efforts will attempt to link qualified trainees with an author-
ized WIN-OJT, WIN-PSE, or Title II PSE slot. When placed and for the first five days on the
job, the work experience will be supervised closely by the classroom instructor in coopera-
tion with the foreman or supervisor.
Trainees may go on the payroll of an employer after the first week, but placement
efforts will be continuous and become more intensified as the training progresses. It
is expected that most will be placed in the segment of training after the third week.
Job coaching and counseling at the work site will continue on a weekly basis for a
period of six weeks after placement to ensure a proper adjustment to the work environment.
Supervisory training will be offered to the job instructors who may be first-time
supervisors, foremen, or leadmen who will be directly responsible for the OJT phase of the
program.
In their training they will be given an overview of the program with class schedules
given them. This will permit them to coordinate the classroom and OJT and to reduce con-
flicts in classroom and OJT. They will be encouraged to give input into the program and to
coordinate the training with the classroom instructor.
STAFFING AND WIN SUPPORT
This program will require the following staff personnel (see following page for organi-
zation chart):
Program Director . . 1
Job Developer .... 1
Data Assistant .... 1
Staff Job Descriptions
Program Director
The Program Director will have overall supervisory responsibility for administering the
training program. (S)he will work closely with the directors of the local agencies involved
with CETA and WIN and who are responsible for various aspects of the reporting system as
well as the WIN office in implementing all phases of the program. (S)he will be responsible
for reviewing all training progress reports and financial statements required by CETA, WIN,
and other agencies. (S)he will have primary responsibility for administering the programs
outside MAPC areas where linkages with other programs probably will not exist. (S)he will
be responsible for negotiating and initiating grants, as appropriate, in execution of the
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ORGANIZATION CHART
Job Developer
(Proposed Prime Sponsor)
(Sponsor's Administrative Agent)
Training Program Director
Data Assistant
Training Consultant
Training
Coordinator
Instructors
Counselors
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training program and will monitor closely all training efforts. Assisted by the Job Developer
and the Data Assistant, (s)he will oversee all budgetary, logistical, and technical procedures
and policies. (S)he will coordinate linkages between CETA, WIN-OJT, WIN-PSE, and Title
II PSE so that training and wage reimbursements utilization are optimized.
Job Developer
The Job Developer will have overall responsibility for developing environmental jobs
through contracts with employers in both the public and private sectors. (S)he will work
closely with and provide a communications linkage between the training program, WIN
caseworkers, job trainers, employers, worker supervisors, and trainee-workers. In developing
environmental jobs (s)he will be required in many cases to foster changes in employer
attitudes and to negotiate changes in entrance standards and/or restructuring of jobs. The
Job Developer will be responsible for follow-up activities to maintain employer acceptance
and cooperation. (S)he must be familiar with all aspects of the program including the
training, administration, wage reimbursement, and support services.
Data Assistant
The Data Assistant is the program "office manager" under direct supervision of the
Program Director. (S)he is directly responsible for collecting, analyzing, and tabulating all
training and financial data in connection with the training program. (S)he will maintain all
enrollee training and placement records and progress reports. (S)he will be responsible for
making regular reports, both training and financial. (S)he also will be responsible for
administrative support for grants, staff, and per diem matters. (S)he shall maintain all project
records and accounts so that they may be readily available for examination by monitors.
TRAINING PROGRAM STRUCTURE
This program is designed to accommodate (number) trainees per year. Costs for
WIN supportive services, required by law, regulation, necessity, or otherwise, shall be borne
by the U. S. Department of Labor and/or WIN agency.
The normal training time for each group will be dependent upon the job occupation
and skill level to be obtained. It is anticipated that each group would complete the trainee/
worker cycle in three to four months. (See Program Model on the following page.) Some
better educationally endowed trainees may complete formal training in a shorter time;
others, with lower entry level attributes, may take longer. Under no circumstances will a
person be permitted to remain in the training program longer than four months.
Enrollees are to be placed in jobs commensurate with their abilities, skills, and apti-
tudes. All enrollees normally will be employed in permanent positions at the end of the
program cycle.
The training format essentially will be on-the-job training coupled to job-related
classroom instruction. Classroom hours will be (number) hours but may vary depending
upon the type of occupation, the complexities of related instructional material, and the
feasibility of adapting institutional-type training to "hands on" experience. In no instance
will the combined training components exceed an 8-hour day including normal comfort and
dining periods provided other regular employees. In addition, the classroom instructor may
grant special time off for students to attend and participate in local WIN activities where
such attendance may be deemed appropriate and in the best interest of the individual.
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TRAINING-EMPLOYMENT SCHEDULE
Approximately (number) Trainees Per Class — (number) Total
Training Weeks
c
c
c
c
c
Mass
;iass
lass
Mass
;iass
Class
1
2
3
4
5
6
1
A
2
3
B
4
5
6
7
C
A
8
9
B
10
11
12
13
D
C
A
14
15
B
16
17
18
19
D
C
A
20
21
B
22
23
24
25
D
C
A
26
27
B
28
29
30
31
D
C
A
32
33
B
34
35
36
37
D
C
38
39
40
Phase Key: A. Orientation
B. Basic Education—Job-Related Training—Job-Skill Training
C. Placement—Supervised Work Experience—Additional Classroom Training as Necessary
D. Permanent Employment
Note: Above schedule is depicted as encompassing 40 weeks; 52 weeks may be necessary to
allow for initial start-up time program slippage and class schedule adjustments.
-------
STAFF AND INSTRUCTOR TRAINING
Staff and instructor training will be the responsibility of the Program Director. Plans
for such training shall be developed to ensure qualified staff and instructors are available to
conduct the skills training courses. Technical assistance will be needed from time to time
from the headquarters staff of the Environmental Protection Agency.
COST ACCOUNTING
Cost accounting will be in accord with generally accepted accounting principles and
practices. The accounting records supporting monthly invoices shall be available for inspec-
tion and/or audit by the Department of Labor. Extraordinary or unusual costs incurred in
training will be fully supported by documentation and be subject to review. Such documen-
tation includes such items as purchase orders, purchase requests, contracts, invoices, billing
receipts, and other legal or business papers giving evidence to purchase or disbursement for
services or material. Invoice and fiscal reporting will be in accordance with requirements and
procedures established for use in GET A.
RECORD AND DATA KEEPING
Specific records covering enrollee training in three prime areas will be maintained:
1. Enrollee Data
2. Training Progress Data
3. Financial Data
In support of recordkeeping, a system of files, folders, and tally sheets will be maintained
for each enrollee and training course. Monthly status reports and enrollee data will be
submitted on or before the fifth of the month following the period covered by the report.
Invoicing and financial records will be subject to review at any time during monitoring
visits and other review as deemed appropriate.
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APPENDIX A
Budget
Program Administration
Staff Salaries
Program Director $12,000
Data Assistant (one-half time) 4,000
Fringe Benefits 1,750
Travel and Per Diem 2,125
Total Program Administration $ 19,875
Training and Placement
Direct Costs:
Staff Salaries $52,650
Fringe Benefits 6,580
Staff Travel and Per Diem 3,320
Equipment and Supplies 8,000
Other Direct Costs 7.050
Total Direct Costs $77,600
Indirect Costs:
General and Administrative (22.5%)
and Overhead 17.460
Total Training 95,060
Total Federal Funds Requested $114,935
Matching State Funds
Communications $ 500
Classroom Equipment 1,500
Classroom Space (three locations) 5,000
Office Equipment 2,000
Office Space 3,000
Total Matching State Funds 12,000
TOTAL CONTRACT $126,935
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APPENDIX B
Occupational Titles and Dot Codes
Training will be conducted, but not limited to, the following occupational titles and
codes:
Chemical Laboratory Technician 022.281.014
Laboratory Tester II 029.281.018
Laboratory Tester I 029.381.034
Stenographer (Public Works) 202.388.014
Clerk-Typist (Public Works) 209.388.022
Clerk-General (Public Works) 209.588.018
Grounds Keeper 407.884.010
Billing Machine Operator 214.488.010
Clerk-Coding 219.388.074
Telephone Operator 235.862.026
Meter Reader 239.588.018
Order Clerk II (Public Works) 249.368.070
Machine Operator 619.885.070
Maintenance-Mechanic Helper 638.884.010
Water Meter Repairman 710.281.078
Water and Sewer Foreman 862.138.018
Maintenance Man—Sewer and Water 862.381.038
Pipefitter Helper 862.884.046
Truck Driver (Light) 906.883.029
Truck Drive Helper 906.887.010
Turn-Off and Turn-On Man 954.884.010
Sewage Plant Operator 954.782.018
Water Treatment Plant Operator 954.782.026
Senior Sewage Plant Operator 955.130.014
Sewage Plant Operator 955.782.018
Sewage Plant Attendant 955.885.010
Air Analyst 012.281.010
Smoke Tester 012.281.014
Solid Waste Disposal Plant Operator 955.782.014
Solid Waste Collector 909.887.014
Weed Control Supervisor 096.168.022
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MODEL
PROGRAM FOR TRAINING AND EMPLOYMENT
A PROGRAM
FOR
ADULT VOCATIONAL
TRAINING
in
Environmental Services and Related Fields
A PROPOSAL
Presented to: (name of prime sponsor)
B . (name of training consultant organization)
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I INTRODUCTION
(Name of Consultant Services Organization) is pleased to submit this proposai
to the (name of Prime Sponsor) We believe that (Consultant) is
well qualified to provide the training, materials and services described in RFQ No
dated (date and year)
(Consultant) js a learning-oriented and training-centered organization. It
specializes in furnishing materials, supplies, programs, equipment, personnel, and premises
under diverse kinds of organizational and administrative arrangements, both public and
private.
(Consultant) was organized in (year) Qur objective is to provide our
customers with a systems approach which is relevant to the training needs of modern society.
We are confident that we have demonstrated our capability to accomplish this objective.
We train men and women from many backgrounds through skill development programs
and systems designed to meet specific requirements of employers. The training is tailor-
made to improve on-the-job performance. (Consultant) approaches training as a
complete system involving the needs of the trainee and his/her employer. Emphasis is
placed on continuous development of good training equipment and techniques.
(Consultant) operates under subagreements with both private industry
and governmental agencies for operation of training programs for the disadvantaged.
These programs pull together most support services needed by the disadvantaged to
make them employable. The services include orientation, basic remedial education, job-
related education, and on-the-job training. Combined with these training elements are
assistance for counseling, transportation, medical and dental services, child care assistance,
and necessary tools of the trade and safety equipment. There is training for on-the-job
supervisors to make them aware of the needs of the trainees and more familiar with the
content of the programs.
(Consultant) operates or has recently operated special training centers in:
(names of training locations)
These centers provide services and training programs to industry through both private and
government funding arrangements.
We point with pride at the success with which we have been able to prepare the un-
employed, underemployed, and disadvantaged for productive employment in our modern
society.
II SCOPE OF SERVICES
(Consultant) win pr0vide the (prime sponsor) with the staffi facilities,
teaching materials, audio-visual aids, and other services or materials necessary to provide all
training, counseling, and on-the-job follow-up to train not less than (number) adult
welfare recipients in the environmental service and associated fields.
(Consultant) wjjj assjst jn the placement of these trained individuals in estab-
lished budgeted positions located in public, quasi-public, or private sector agencies admin-
istering environmental programs or performing environmental services.
(Consultant) win ^^^ thp(P"me sponsor)in obtaining trainees for the program.
(Consultant) wjjj prepare and print (number) copies of a brochure descrih-
ing the Environmental Services Training Program.
(Consultant) wjij prepare and maintain a file of enrollee data, trainee progress
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reports, and financial data as prescribed by the Program Director. A report will be prepared
at the conclusion of the training period which will summarize the activities, progress and
final disposition of each trainee.
A more detailed discussion of each item in this scope of services may be found in
Section IV.
In the performance of the contracted services (Consultant) makes the follow-
ing Non-Discrimination Declaration.
In connection with the performance of work under this Agreement,
(Consultant) agrees not to discriminate against any employee or
applicant for employment because of race, religion, color or natural
origin. The aforesaid provision shall include, but not be limited to, the
following: employment, upgrading, demotion or transfer, recruitment
or recruitment advertising, layoff or termination, rates of pay or other
forms of compensation and selection for training, including apprentice-
ship. (Consultant) agrees to post hereafter in conspicuous places,
available for employees and applicants for employment, notices to be
provided by the contracting officer setting forth the provisions of the
non-discrimination clause. (Consultant) further agrees to insert the
foregoing provision in all subagreements hereunder, except subagree-
ments for standard commercial supplies or raw materials.
Ill SCHEDULE
The work prescribed in the Scope of Services will begin immediately upon receipt of a
fully executed Agreement and will be completed (number)— months after the date of the
Agreement or as authorized by amendment(s) to this document.
The first class is tentatively scheduled to begin two weeks after the date of the Agree-
ment. This start date, however, is dependent upon the lead time required for the recruitment
of trainees.
A proposed schedule is presented on the page that follows. Under this plan one class of
approximately (number) trainees will be started at intervals of six weeks until all
(number) classes have been enrolled. Here again, this schedule may be modified some-
what to accommodate the supplying of trainees and/or employer's needs for job applicants. A
final schedule that meets the approval of the Program Director will be prepared during the
first week after this Agreement is executed.
IV PROPOSED TRAINING PROGRAM
Objective
The objective of this training program is to provide able-bodied welfare recipients the
necessary training and counseling which will lead to an opportunity for full-time career
employment in the environmental protection fields.
Training Program Structure
The structure of the program related to the actual training of persons enrolled can be
divided into several general areas; employee training, counseling, job coaching, supervisory
training, and administrative services.
Orientation. The instruction, guidance, arid self-help aspects of the orientation are
programed to enable the trainees to adjust to both training and work conditions. Each
trainee is helped to best present himself/herself by means of neat and accurate completion
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TRAINING PROGRAM MODEL
TRAINEE/WORKER CYCLE
JOB DEVELOPMENT
SCREENING AND
ORIENTATION
oo
INTRODUCTION TO
ENVIRONMENTAL EMPLOYMENT,
BASIC EDUCATION, JOB-
RELATED TRAINING, AND
JOB-SKILL TRAINING
JOB COACHING,
FOLLOW-UP ACTIVITIES,
AND FURTHER CLASSROOM
TRAINING AS NECESSARY
PLACEMENT AND
FACTORING INTO
SPECIFIC JOBS
This complete cycle, as depicted above, would involve a time frame of three to four months
for a specific group. As many as eight separate groups could be involved during the twelve-
month program period.
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of training and employment forms. General ability, physical, and other examinations are
used to assess the potential of trainees for meeting their job requirements. Each trainee
learns about the work habits and other personal requirements. (S)he is informed of the
procedures, rules, and benefits relating to public service work. (S)he is motivated to respon-
sibly enter into his/her training and his/her work. (S)he is shown how, with increased earn-
ing power, there can be better fulfillment of family obligations.
Motivation is emphasized in the orientation of trainees. Many of the trainees are high
school and grade school dropouts. They find it hard to return to study activities, so exten-
sive encouragement toward advancement through training is provided.
(Consultant) wjn) during orientation, test each trainee in order to gather
adequate information about the trainee so that the instructors can better assist him/her in
developing career plans. Also, the test will provide information as to which subjects upon
which to tutor those trainees that require a GED.
The principal test used is the Wide Range Achievement Test. Other tests include the
SRA reading, arithmetic, and spelling. (Consultant) has other tests available for the indi-
vidual trainee that may need additional testing and evaluation as an aid to training and/or.
placement. Some of the tests included in this series are: (1) Slosson Drawing Coordination,
Test, (2) Gates Reading Survey, (3) Shipley-Hartford, (4) Culture-Fair, and (5) 16 P.F. The
results of the testing are recorded in the trainee's permanent file and are available to instruc-
tors and job placement personnel.
Five major modules of content are covered in the orientation: (1) introduction to
staff, facilities, and program; (2) improvement of relationships with others; (3) manpower
development through training; (4) background of environmental protection services as a
major area of employment; and (5) job counseling to establish employability of trainees and
obtain a personal profile for placement personnel.
Basic and Remedial Training. The goals of this component of the training program are
to help the trainee gain the basic education required in almost any work situation: com-
munications; mathematics; science; and, for those who have not finished their high school
education, a general review and preparation for the GED test.
Communication includes reading, writing, speaking, listening, and techniques of
studying. Use of whole numbers, fractions, and decimals is reviewed. Applied mathematics
is varied according to the specific job descriptions, but may include measurement, calcula-
tion of area and volume, percentages, work with money and time, and an introduction to
graphs, maps, and blueprints. The study of science covers basic life science, physics, and
chemistry; all related to the science of environmental pollution control. Review for the GED
test consists of improving test-taking skills; improving facility in reading, vocabulary,
grammar, spelling, arithmetic, and problem solving; and, with help from the instructors,
work at analyzing and answering questions that involve reasoning, judgment, comparison,
and evaluation.
Job-Related Training. This component is vital for trainees in any field of environmental
service work. It consists of intensive training in (1) first aid and accident prevention; (2)
personal and job behavior to help the trainee better understand himself/herself and others
and to help him/her develop a feeling of security; and, (3) the basic technical aspects and
requirements of the trainee's job classification.
Job-Skills Training. The job-skills training component covers the specific, in-depth
technical training required to prepare each trainee for a particular job. The content is
determined from the job description and data drawn from work supervisors.
The job-skills training is closely coupled with the supervised work experience. The
classroom instructor keeps in close contact with the work supervisor in efforts to keep the
learning immediately applicable in the job. The supervisor similarly draws from the
instructor ideas and techniques for making the work experience most valuable.
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On-the-Job Training. Coupled on-the-job training is followed up by specialists who
visit the job sites and assist the trainees in relating classroom training to the actual work
situations. The specialist works closely with the trainee's supervisor in providing learning
reinforcement associated with specific job skills. The curriculum for each job category is
developed in close association with the participating department and major department
heads.
Counseling/Job Coaching. The purpose of counseling and job coaching in the proposed
training program is to illuminate the problems of the trainee and to develop interactions
that will help support preparation for a job and long-term retention of that job.
The counseling component of a training program provides help to the trainees in
reaching solutions to occupational and training problems. Job coaching helps to coordinate
the training and the work potential of each trainee-worker. Guidance and aid are given in
terms of absence and tardiness, illness and accident, and transportation to and from work.
Counseling is done at both the training and job sites. The counselor will work closely with
the WIN caseworker to assist in guiding the trainee and his/her family in meeting financial,
family, and community responsibilities.
The counseling is designed to permeate the total program: orientation, basic education,
job-related training, job-skills training, on-the-job training, even the coffee break. The
counseling is done in the classroom, in the conference room, at the job site, and other places
where one trainee or a few trainees meet with one or more counselors.
Supervisory Training. The purpose of supervisory and human relations training is to
help supervisors, foremen, counselors, instructors, and administrators in the joint efforts to
promote the personal growth and job capabilities of trainee-workers.
The supervisory component of a training program will provide attitudinal development
for foremen, supervisors, and others working with the trainees. The supervisor will be
briefed on what is expected of him/her, on the policies and procedures relating to the goals
of the training program, on his/her responsibility to the trainee-worker, and on the extent
of his/her authority over the worker in training. Specific presentations will deal with the
characteristics of the trainee-worker population, needs of certain trainees, social-psychology
aspects of the supervisor-worker relationship, and guidelines for providing on-the-job training.
Staff and Instructor Training
A most vital element of a successful training program is the availability of an adequate-
ly trained and motivated staff of administrative and instructional personnel. A program of
this nature and extent requires that each person involved understand such critical aspects as
the objectives of the program, how the program operates, the complex and sometimes deli-
cate relationship between the training staff, the WIN staff, the trainee, and the employer
staff. Each of the administrative personnel must have some familiarity with the technical
and training areas and the training personnel must be cognizant of the procedure and
records required of the administrative staff.
To meet this need the (Consultant) has established an extensive staff and instructor
training program ready for presentation early in the agreed upon program time frame. This
training will be presented in cooperation with the Program Director who has the direct
overall responsibility for this training. Some of the training sessions may actually be
conducted by the Program Director.
The curriculum for these initial sessions is devoted to the purposes, definitions, pro-
gram mechanics, and personnel responsibilities as spelled out in the WIN Program Handbook.
Each staff member will be issued an outline of the handbook and all pertinent sections will
be covered in detail during the presentation. As this training progresses to the point that all
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staff members understand how the WIN program operates, the technical staff will begin
presentations regarding the training curriculum that has been developed. Special consultants
will be employed to conduct sessions on techniques for teaching adults and solving special
problems associated with training the disadvantaged. These initial training sessions will
prove extremely valuable when the training actually begins.
As part of a continuing training program all instructors and selected administrative
staff will also attend the supervisory training classes. This serves a dual purpose of additional
training in the functioning of the program, and at the same time, will aid in the development
of a close working relationship between the instructors and the work supervisors of the
trainees.
Special staff training sessions will be scheduled during the entire program. The occasion
for a special session will be related to one or more factors such as: the beginning of each new
class, receipt of new program guidelines, recap of monitor visits, and WIN meetings.
All staff and instructor training will be conducted with the close cooperation of the
WIN Program Staff. Hopefully some of these sessions will be conducted by WIN personnel.
Training Plan
(Consultant) proposes to conduct (number) classes of approximately
(number) trainees each. However, if it is necessary to include a wide range of skills in
any one class, it may be necessary to divide the classes into smaller units.
The complete training plan covers a (number) week period and includes (number)
hours in the classroom and (number) hours of supervised work experience. While this
amount of training is available to each trainee, it is expected that all trainees will be em-
ployed prior to completing the entire program. For instance, a trainee with a proficiency in
a job skill might be placed in supervised work experience after only one week in the class-
room. Another person, with no job skills, might not be eligible for work experience until the
end of the eighth week. Every effort will be made to employ all trainees by the end of the
tenth week.
Ordinarily, the first 40 hours of instruction are in the classroom and are used for
orientation. The next 120 hours may also be classroom time, divided between basic,
remedial, job-related, and job-skill training. The portion of time actually used for each type
of training will be determined by the amount of basic and remedial training each trainee
requires. The quantity of this training will be less for those trainees who have high school
certificates or the equivalent. However, for planning purposes, the division is usually about
40 hours for basic and remedial training and 80 hours for job-related and job-skill training.
Please refer to the next page for details of what is ordinarily the context of a good training
curriculum.
The trainees that need GED will be tested at the end of the second week so that those
who do not pass all parts of the test may have the final portion of their basic and remedial
training concentrated in the areas where it is most needed.
Most trainees will spend 100 percent of their time in the classroom the first four to six
weeks. The final weeks of the training program will be devoted to supervised work ex-
perience as an introduction to regular full-time, permanent employment. At the end of the
tenth week, all trainees should be placed in regular full-time employment. (Consultant) wm
make every effort to provide quality training that is relevant to the manpower needs of the
State of We cannot, however, guarantee that each trainee entering the program
will actually be placed.
Job Placement
The ultimate purpose of this program is to obtain gainful employment in the environ-
mental services fields for unemployed persons eligible for the WIN Program. (Consultant)
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RECOMMENDED TRAINING PATTERN
Subject
Phase I
Orientation
Phase 11
Basic Remedial Training
Phase III
Job-Related Training
Phase IV
Job Skills
Phase V
OJT
Water
Introduction
Goals & Objectives
Relationships with Others
Manpower Development
through Training
Water Utility
Group Counseling
Communications
Money Management
Mathematics
Science
General Education Development
Individual Counseling
First Aid
Accident Prevention
Job & Personal Behavior
Water Understanding
Individual Counseling
Water Works Operation
Construction & Operation
Safety on the Job
Job Skills
Individual Counseling
Determined for each
trainee by his
specific job
Individual Counseling
Waste-
Water
Introduction
Goals & Objectives
Relationships with Others
Manpower Development
through Training
Sewerage Works Operation
Group Counseling
Communications
Money Management
Mathematics
Science
General Education Development
Individual Counseling
First Aid
Accident Prevention
Job & Personal Behavior
Wastewater Understanding
Individual Counseling
Water Works Operation
Construction & Operation
Safety on the Job
Job Skills
Individual Counseling
Determined for each
trainee by his
specific job
Individual Counseling
Parks & Introduction
Recreation Goals & Objectives
Relationships with Others
Manpower Development
through Training
Parks & Recreation Opera
tion and Development
Group Counseling
Communications
Money Management
Mathematics
Science
General Education Development
Individual Counseling
First Aid
Accident Prevention
Job & Personal Behavior
Parks & Recreation
Understanding
Individual Counseling
Parks & Recreation Operation Determined for each .
Construction & Operation trainee by his
Safety on the Job specific job
Job Skills Individual Counseling
Individual Counseling
Solid
Waste
Introduction
Goals & Objectives
Relationships with Others
Manpower Development
through Training
Solid Waste Disposal
Group Counseling
Communications
Money Management
Mathematics
Science
General Education Development
Individual Counseling
First Aid
Accident Prevention
Job & Personal Behavior
Nature & Diversity of
Solid Waste
Individual Counseling
Methods of Processing
Solid Wastes
Safety on the Job
Job Ski I Is
Individual Counseling
Determined for each
trainee by his
specific job
Individual Counseling
Street Introduction
Maintenance Goals & Objectives
Relationships with Others
Manpower Development
through Training
Street & Road Maintenance
Group Counseling
Communications
Money Management
Mathematics
Science
General Education Development
Individual Counseling
First Aid
Accident Prevention
Job & Personal Behavior
Highway, Street & Road
Maintenance
Individual Counseling
Methods of Repair
Safety on the Job
Construction & Maintenance
Job Skills
Individual Counseling
Determined for each
trainee by his
specific job
Individual Counseling
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has had extensive experience in working with the personnel departments of both govern-
mental and industrial employers in training and placing entry level persons from the ranks of
the unemployed and underemployed. Experienced ^consultant) personnel will survey the
governmental and industrial employers in the (state) ^^ for job siots. This survey will
be conducted prior to the beginning of the first class and will continue throughout the
program. By this method, the training can be tailored to meet job requirements that are
known to exist. It also allows for a smooth transition from the training program to employ-
ment.
The job placement cycle will be repeated with each class of trainees. (Consultant)^
work closely with the State Employment service in developing the job slots for the trainees.
Trainees will receive classroom instruction in job application and interviewing during the
orientation period. They will receive individual counseling prior to a job interview and
where possible debriefing following the interview. Where possible, employers will be con-
tacted to establish reasons why an applicant could not be placed. This information will be
used to help prepare for future job interviews.
Program Staff
This section outlines the duties and responsibilities of the (Consultant)staff that will
be used in the training program. The actual qualifications of (Consultant's) personnel are
presented in Section V. (Note: To maintain anonymity Section V was omitted from this
Manual.)
Supervisor: The supervisor is actually a management level person on the (Consultant)
staff. (S)he is assigned to this project for about 20 percent of his/her time. His/her duties
are similar in many respects to the Program Director except that they relate to only the
(Consultant) staff. It is his/her responsibility to see that qualified personnel are assigned to
the program. (S)he establishes a budget for the (Consultant) staff that will permit successful
completion of the program within available funding. (S)he has the overall responsibility for
training materials. (S)he maintains close coordination with the Program Director and the
advisory committee to assure that the jConsultant)staff js providing a training program that
meets the program objectives and the needs of the local communities.
Training Coordinator: The training coordinator is responsible for determining training
needs and for deciding how those needs will be met, either through classroom or on-the-job
training. It is expected that the training coordinator will work closely with employers in
fulfilling his/her function. The coordinator supervises the work of the training staff and at
times participates with them in classroom situations. His/her main concerns are: (I) planning
and developing materials for the courses; (2) evaluating the effectiveness of instruction
during and at the end of each, phase; and (3) modifying those courses in light of the evalua-
tion. His/her basic responsibility is to get the best possible training for the trainee-workers
and (s)he will do this by determining not only the content of the courses but also the
method used to teach the content.
Instructors: The instructors' responsibility is to help each trainee-worker in the pro-
gram. They will also assist the training coordinator in his/her duties (of identifying training
needs, developing materials and evaluating the training) because being closest to the trainees,
they will have the best idea of what the trainees need and how they will respond. Because
of the nature of the training, it is expected that the instructors will function partially as
counselors, in conjunction and coordination with the Job Coach-Job Counselor, in those
areas which relate to performance in the training program.
The "Total Concept" and shared functions become clear at this point, for the training
coordinator and instructors will be sharing the function of the training segment of the
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program and they will also share the responsibility of counseling with the Job Coach-Job
Counselor.
Job Coach-Job Counselor: We see the Job Coach-Job Counselor function as one
position rather than two. To establish close day-to-day relationships with the trainee-workers
is one of his/her main functions. Through this (s)he comes to know them and their problems
and they come to trust him/her. And it is within that relationship of trust that the coun-
seling can have the best chance of success. The Job Coach-Job Counselor will work closely
with the instructors, for all will be performing a similar function (perhaps related to differ-
ent aspects) of guiding the trainee-worker to a realistic view of himself/herself and his/her
social environment.
The Job Coach-Job Counselor also has the responsibility for interacting with the
supervisors concerning any problems which arise. (S)he provides a line of feedback to the
work supervisor and the employer unit, and therefore aids in gaining complete acceptance
of the program and in developing rapport.
Reports
(Consultant) win submit a narrative report to the (Prime bponsor)— each mOnth.
This report will discuss the status of all training classes, recruiting and placement progress,
and special items of interest that occur during the daily operation of the program.
Upon completion of the training period, (Consultant) wm prepare a summary report of
the milestones achieved, wage progress and status, and final disposition of each trainee-
worker who entered the program. This statistical report will be accompanied by a generalized
final narrative report which will contain a summary of program achievement.
V QUALIFICATIONS
In responding to an RFP, the consultant services organization should provide informa-
tion relative to:
1. How the organization was established and how it operates.
2. Post training experience record in public service and private programs.
3. Qualifications of personnel who will be involved in this program.
4. Information on special aspects that uniquely qualify for this program.
Section V is, in effect, omitted here because to provide such information would destroy the
anonymity in this model program for adult education in environmental occupations.
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MODEL SUB AGREEMENT FOR TRAINING
AGREEMENT
BY AND BETWEEN (Training Consultant)
AND THE (Prime Sponsor)
THIS AGREEMENT, entered into this __ day of _ ___-, 19-—, by and
between the iPrimeSponsor) (herein called the "Sponsor") and(Traming Consultant )(herein
called the "Consultant").
WHEREAS, the Sponsor desires to engage the Consultant to render certain professional
services herein described in connection with the training as set forth in Contract No. 99-4-
0001-021-007, a copy of which is made part of this agreement.
NOW, THEREFORE, the parties do mutually agree as follows:
1. Employment of Consultant.
The Sponsor hereby agrees to engage the Consultant and the Consultant hereby
agrees to perform the services specified in item 2 below.
2. Scope of Services.
The Consultant shall provide the material and services below in compliance with
all applicable laws and regulations of the State of •
(a) The Consultant will provide the Sponsor with the staff, facilities, training
materials, audio-visual aids, and other services or materials necessary to provide
all training, counseling, and on-the-job supervision to train not less than Lnum CT) .
adult welfare recipients in the environmental services and associated fields.
(b) The Consultant will assist in the placement of these trained individuals in
established budgeted positions located in public, quasi-public, or private sector
agencies administering environmental programs or performing environmental
services.
(c) The Consultant will assist the Sponsor and the State Employment Service to
obtain trainees for the program.
(d) The Consultant will prepare and maintain a file of enrollee data, trainee pro-
gress reports, and financial data as prescribed by the Program Director.
3. Personnel.
(a) The Consultant represents that he has, or will secure at his own expense, all
personnel required in performing the services under this Agreement.
(b) All of the services required hereunder will be performed by the Consultant and
none of the work or services covered by this Agreement shall be subcontracted
without the prior written approval of the Sponsor.
4. Time of Performance.
The services of the Consultant are to commence as soon as practicable alter the
execution of this contract and shall be undertaken and completed in such sequence as
to assure their completion in light of the purpose of the Agreement, but in any event,
all of the services hereunder shall be completed on or before J™™2 , months
after the date of execution.
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5. Compensation.
The Sponsor agrees to pay the Consultant the total sum of $ for all
of the services described in Section 2. The total sum to be paid to the Consultant shall
include reimbursement for travel, training supplies, and instructional development as
specified in the Agreement.
6. Method of Payment.
The Sponsor will pay to the Consultant the amount set forth in Section 5
which shall constitute full and complete compensation for the Consultant's services
hereunder. Payment to the Consultant by the Sponsor will be made monthly, except
as specified below, provided herewith that no money will be due and payable here-
under until such monies have been received by the Sponsor from the funding source.
The Sponsor recognizes that there are extraordinary expenses in the start-up of a
training program of this magnitude. Therefore, the Consultant may submit an initial
billing which includes the regular monthly billing plus 20 percent of the contracted
amount to cover the unusual expenses.
7. Termination of Agreement for Cause.
If at any time the Sponsor's Project Director determines that the Consultant's
services are not meeting the conditions of this Agreement, the program design, or the
Environmental Protection Agency's requirements; or if the Project Director determines
that the services being provided by the Consultant are substandard, the Sponsor shall
notify the Consultant of the termination of the Agreement by giving immediate
written notice to the Consultant. In that event the Consultant shall close all work and
suspend all project activities within five (5) days and all payments due on or after that
date shall be withheld from the Consultant. The Sponsor shall immediately notify a
Review Committee of this action and request a hearing at which both the Sponsor and
the Consultant shall present their grievances.
The Review Committee shall consist of the (Prime Sponsor) 3^ representa-
tives designated by the Regional Directors of the Department of Labor, the Environ-
mental Protection Agency, and the Department of Health, Education, and Welfare,
provided these agencies are not already represented in the professional development
task force. The decision of a Review Committee will be final.
If the Review Committee decides in favor of the Sponsor, the Consultant's
services will be terminated effective fifteen (15) days after receipt of the Sponsor's
notification and no payment will be made for any activity performed after that time.
If the Review Committee decides in favor of the Consultant, services will be
resumed in accordance with the terms of the Agreement and payment will be made to
the Consultant without any reduction in the amount of the Agreement regardless of
suspension of services during the Review Committee hearing.
8. Changes.
The Sponsor may, from time to time, require changes in the scope of services of
the Consultant to be performed hereunder. Such changes, including any increase or
decrease in the amount of the Consultant's compensation, which are mutually agreed
upon by and between the Sponsor and the Consultant, shall be incorporated in written
amendments to this Agreement.
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9. Equal Employment Opportunity.
There shall be no discrimination against any employee who is employed in the
work covered by this Agreement, or against any applicants for such employment be-
cause of race, color, religion, sex, or natural origin. This provision shall include but
not be limited to the following: lay off or termination; rates of pay or other forms of
compensation; and selection for training, including apprenticeship. The Consultant
shall insert a similar provision in all subagreements for services covered by this Agree-
ment.
10. Offices Not To Benefit.
No member of or delegate to the Congress of the United States of America, and
no resident Commissioner, shall be admitted to any part thereof, to any benefit to
arise herefrom.
IN WITNESS WHEREOF, the Sponsor and the Consultant have executed this agreement as
of the date first written above.
SUBCONTRACTOR:
By:.
(Name of Consultant Organization)
ATTEST:
CONTRACTOR:
(Name of Prime Sponsor)
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MODEL SUBAGREEMENT WITH WIN
AGREEMENT
Parties
A (Name of Prime Sponsor) g (Name of Employment Service)
(Name of Authorized Representative) (Name of Authorized Representative)
Title: Title:
Address: Address:.
Telephone:_ Telephone:.
The - here-in-after referred to as the
"prime sponsor" will provide training in environmental services for authorized participants
from the (state) Work Incentive Program, State Employment Service,
here-in-after referred to as "WIN."
NOW, THEREFORE, the parties do mutually agree as follows:
1. Services to be Performed
Individual participants will be authorized for training under this Agreement only
upon prior approval in writing from the State Supervisor of WIN. A copy of the auth-
orization for each participant will be forwarded to the Prime Sponsor and will be
attached to and made part of this Agreement.
Participants will be assigned on an individual basis for up to five months of
training for jobs developed by the Prime Sponsor with agencies involved in environ-
mental services. The training will be geared to individual needs but in general will
consist of orientation, classroom instruction, and supervised hands-on training.
2. Terms of Payment
There will be no cost to the WIN organization for any of the above training.
3. Special Provisions
The Prime Sponsor will maintain and submit to a designated representative of
WIN weekly attendance and biweekly evaluation reports on each participant. The
Prime Sponsor will notify WIN immediately if a participant is absent two consecutive
days.
After consultations between designated staff members of WIN and the Prime
Sponsor a participant may be terminated if he fails to maintain WIN standards or the
Prime Sponsor's standards or when termination serves the best interests of the participant.
Unless amendment, suspension, or nullification of this Agreement is initiated by
either party by written notice, this Agreement will be in effect from on or about (date)
through (date)
4. General Provisions
This Agreement is made subject to and incorporates by reference all the "General
Provisions" attached hereto.
The attached copy of General Provisions is from the U.S. Department of Man-
power Administration Manual and it is mandatory that it be appended to all agreements
of this nature.
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Whenever the terms Secretary, Contracting Officer, or Government are used in the
general and special provisions, they shall for the purpose of this Agreement be con-
strued to mean employment service or state unless otherwise clearly indicated in the
context. (See attached copy of General Provisions.)
This Agreement shall be governed by, subject to, and construed according to all
the laws of the State of . The Prime Sponsor will comply with all appli-
cable Federal, State, and local laws.
No waiver, alteration, or modification of any of the provisions of this Agreement
shall be binding on the State Employment Service unless evidenced by
a duly authorized representative of the State Employment Service.
ACCEPTED:
A (Name of Prime Sponsor) R (Name of Employment Service)
Ry. (signature) Ry. (signature)
(typed name of representative) (typed name of representative)
Title: - Title:.
Date: .- Date:.
CERTIFIED:
Date:
By:
(name)
State Director, WIN
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GENERAL PROVISIONS
AGREEMENT AND SUBAGREEMENT REQUIREMENTS AND PROCEDURES
MANPOWER ADMINISTRATION MANUAL
U. S. DEPARTMENT OF LABOR
Contract Work Hours Standard Act—Overtime Compensation
This Contract, to the extent that it is of a character specified in the Contract Work
Hours Standards Act (40 U.S.C. 327-330), is subject to the following provisions and to all
other applicable provisions and exceptions of such Act and the regulations of the Secretary
thereunder:
(a) Overtime Requirements. No Contractor or Subcontractor contracting for any part of
the Contract Work which may require or involve th e employment of laborers or mechanics
shall require or permit any laborer or mechanic in any workweek in which he is employed
on such work to work in excess of eight hours in any calendar day or in excess of forty
hours in such workweek on work subject to the provisions of the Contract Work Hours
Standards Act unless each laborer or mechanic receives compensation at a rate not less than
one and one-half times his basic rate of pay for all such hours worked in excess of eight
hours in any calendar day or in excess of forty hours in such workweek, whichever is the
greater number of overtime hours.
(b) Violation—Liability for Unpaid Wages—Liquidated Damages. In the event of any
violation of the provisions of paragraph (a), the Contractor and Subcontractor responsible
therefore shall be liable to any affected employee for his unpaid wages. In addition, such
Contractor and Subcontractor shall be liable to the United States for liquidated damages.
Such liquidated damages shall be computed with respect to each individual laborer or
mechanic employed in violation of the provisions of paragraph (a) in the sum of $10 for
each calendar day on which such employee was required or permitted to be employed on
such work in excess of eight hours or in excess of the standard workweek of 40 hours
without payment of the overtime wages required by paragraph (a).
(c) Withholding for Unpaid Wages and Liquidated Damages. The Contracting Officer
may withhold from the Contractor, from any monies payable on account of work performed
by the Contractor or Subcontractor, such sums as may administratively be determined to be
necessary to satisfy any liabilities of such Contractor or Subcontractor for unpaid wages and
liquidated damages as provided in the provisions of paragraph (b).
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SECTION VII
MAJOR CONCERNS AND
ACHIEVEMENTS IN TRAINING AND
EMPLOYMENT PROGRAMS
The circumstances surrounding the preparation of this Technical Assistance Manual
were such that it was deemed inappropriate to attempt to formulate particular conclusions
about the pilot WIN/EPA/DO L project or to define within narrow limits how future
programs should operate. It was deemed appropriate, however, to set forth some of the
major concerns in the pilot programs in the five states and to indicate things that have been
achieved in the relatively few months that the programs have been in operation.
Since the initial planning of the project got underway in April of 1973, it is correct to
report that some of the material in this section is based on experiences gained over a period
of eighteen months. The concerted efforts to provide training and employment to disad-
vantaged people have been squeezed into only nine months, immediately prior to this
writing. The pilot project will remain operative for approximately three more months, at
which time the projected number of trainee-workers will have completed the training and
will have been factored into full-time employment.
It is truly possible only to present here some generalized statements relative to the
major concerns that have permeated the pilot project. The achievements that now appear to
be evident are those that are outcomes of the challenges within each area of major concern.
The major concerns discussed here include:
1. Functional relationship
2. Development of job opportunities
3. Recruitment of trainee-workers
4. Building of staff competence
5. Training program structuring and adaptation
6. Counseling and follow-up
While the discussions that follow are concise, even brief, they do relate to very important
aspects of training and employment.
1. Functional relationship—The WIN organization is, by definition, the sole source of
trainee-workers for the environmental service training and employment. It is, therefore,
extremely important that an effective working relationship be maintained between the
entire prime sponsor staff and the entire WIN staff at each place the AFDC recipients are
processed. When this project was initiated, there were no specific national or state guidelines
for accomplishing the development of the required functional relationship. The relationship
had to be hammered out at the state and local levels in the region served by each prime
sponsor. This has been accomplished in five states and the significance of this achievement
must not be underrated.
Prime sponsor personnel have had to learn about the problems and concerns of the WIN
caseworkers who fulfilled roles as recruiters and counselors. And, the WIN personnel have
had to learn the objectives, the methods, and the content of the environmental service
training and employment programs in order to do an effective job of recruiting. For the
most part these people have learned what was required to accomplish the joint effort, but
rest assured it has not been an "overnight" process. Space does not allow itemization of all
that has been involved in developing the smooth-working, functional relationship that now
exists. But, there is considerable material in Sections III and IV that bear directly on this
matter.
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2. Development of job opportunities—There are several basic and fundamental elements
relating to this area of major concern. First, job slots or opportunities have to be located
for the AFDC recipients. This is accomplished only through many hours spent in conversa-
tions and conferences with potential employers. The job development process is complicated
by the political make-up of governmental employing units and the management patterns in
private business firms. Who do you contact first? Whose toes are you most likely to step on?
The approach that is good with one organization will not work with another. Repeated
visits are invariably necessary to establish the intent and expectations of the training and
employment program and to develop acceptance of it.
The second element in the development of job opportunities arises after a job slot or
job vacancy is found. This element involves selling the employer on the need for training a
person to fill that job. Many employers who want workers are not at all certain that it is
necessary to train people to perform work. In the pilot project, at each of the five locations,
effective presentations have been developed to overcome certain views held by potential
employers and to cause them to want workers with good qualifications including a back-
ground of training for specific jobs.
A third aspect of the development of job opportunities involves influencing the em-
ployer to accept women in jobs that have traditionally been held only by men. Here, again,
time has been devoted to overcoming the objections of those employers who hold the so-
called "discriminatory" views.
Another element that makes job development somewhat difficult to accomplish is the
fierce competition that sometimes arises. There are other programs designed to serve the
minority and disadvantaged segments of the population. These programs include the Con-
centrated Employment Program; the Operation Service, Employment, and Development
Program for Chicanes; the Opportunities Industrialization Center; and others. Some of these
programs have been in existence for a considerable period and have either been established
as reliable sources of workers or have completely "turned off" employers to the hiring of
the disadvantaged. In some instances, the WIN/EPA programs have been forced to abandon
the large cities and proceed to develop "track records" for job development in the smaller
outlying political subdivisions of those cities. This has been done with considerable success.
Small communities have been helped that might not otherwise have had training and em-
ployment programs. It should be noted that there is some "stretching" of the training
dollars when the smaller communities are included.
Please note that even the programs developed under the Comprehensive Employment
and Training Act have some adverse effects on the development of job opportunities through
the WIN/EPA approach. This is usually due to the "wait and see" positions taken by per-
sonnel departments in various governmental units. This problem now seems to be near a
solution. Most of the CETA prime sponsors are finding that any additional source through
which jobs may be developed for AFDC recipients should be encouraged.
In summary, techniques have been developed so that now good results are generally
achieved in the seeking out of job opportunities. Potential future employers are now known
and good rapport has been established with many of them. The employers who have been
assisted in meeting their needs for workers are now enthusiastic supporters of the program.
One such employer was recently asked by this writer whether he wanted additional numbers
of workers from the WIN roles. His response was firm and direct: "You better believe it!"
The former AFDC recipients now working for him were equally firm and direct. Their
responses to questions indicated a desire to remain off of welfare for both economic and
self-satisfaction reasons.
3. Recruitment of trainee-workers—A major concern in this project at all locations has
been the fact that most environmental and environmentally-related jobs have traditionally
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been held by men. For this reason women are likely to feel that such jobs are new and
therefore alien to them. In a large number of cases the environmental jobs, at least on the
surface, are not attractive to women. Yet, the vast majority of WIN enrollees are women,
and in the WIN/EPA programs they must be trained and employed in environmental jobs.
Over the past eight months materials have been prepared, presentations have been made, and
methods by which WIN caseworkers may be assisted have been implemented. Recruiting of
women to train for and be employed in environmental services jobs can now be rated as
"successful." While this subject is only briefly handled here, it is expanded upon in Section
VIII.
4. Building of staff competence—When the pilot project got underway there were few
people available with the kinds of competence required for immediate effectiveness. Indi-
viduals had knowledge of environmental service but knew very little about WIN. Conversely,
the WIN administrators and caseworkers knew almost nothing about environmental service.
All of the people employed to staff the training and employment program had certain skills
and knowledges but they could not be effective participants in the program until they
acquired certain additional competencies. In the process of defining and solving many of the
problems in the overall project, there also has been an effective and continuous development
of specially trained staff.
Administratively, the prime sponsors, the Office of Education and Manpower Planning
of EPA, the state and local WIN groups, and the job training organizations have all contri-
buted to the planning and expediting of growth in staff competence. Today, the number of
people prepared to work effectively and efficiently in the training and employment of
AFDC recipients by means of the WIN/EPA approach approximates 100 individuals in five
states. These people are now relatively knowledgeable and possess competencies with regard
to job development, trainee-worker recruitment, job training, job placement, and other
aspects of the total pattern of training and employment of AFDC recipients for environ-
mental service occupations. More than 100 people with a common background of experi-
ence, constitutes a substantial clout with which to meet and overcome future challenges and
problems in this area of endeavor. This, then, is one more accomplishment of the WIN/EPA/
DOL pilot project.
5. Training program structuring and adaptation—The development and modification of
environmental service training programs has been continuous and extensive, under the
guidance of the Office of Education and Manpower Planning of the EPA, since early in 1970.
The structuring of new training programs and the adaptation of old ones are additional
accomplishments of the pilot project. For example, there is now available a program of
training for the Pest Control Serviceman that consists of 23 modules, ranging in length from
2 to 20 classroom hours. These modules deal with orientation to pest control work, basic
preparation for that work, job-related training for the specific occupations, and skills
preparatory training. In addition, there is a plan for as much as 800 hours of supervised work
experience. The practice in making this training program work effectively is now being
accumulated by several instructors in at least three states.
Quite good training program outlines and learning materials have been available for a
number of years for the preparation of workers in some environmental fields, such as water
and wastewater. But, even in these two instances, in the pilot project, there was need for
modifications of existing programs in terms of both content and length of training modules.
In particular, the program mix of institutional (classroom) training and work experience had
to be worked out on an individual employer basis. In a few instances, the program mix was
determined largely on the basis of the need of each individual employee.
In summation, it is recognized that training program structuring and modification are
continuing tasks. As a result or outcome of the pilot project, there is now available a wide
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range of materials and experience to draw upon. It is now possible, therefore, to handle the
continuing task of structuring and adapting or modifying with greater ease than ever before.
The techniques and procedures for so doing have been developed and practiced. The tools,
devices, and other materials are readily available. And, the employer and trainee-worker
needs are already defined or can quickly be isolated and defined in each situation. The major
challenge now is to disseminate knowledge of the best ways to develop environmental
service training programs and materials from the five states to all other states.
6. Counseling and follow-up—In the pilot project it has become clear that, after the
trainee-workers are factored into supervised work experience, there must be follow up on
the technical and job-related problems. This is the direct responsibility of the Prime Sponsor
administrative staff and is usually delegated to the staff of the training organization. If the
training and employment program is to achieve a high level of job retention, the trainee-
workers also must be assisted with a multitude of personal problems. This assistance usually
can be delivered only by means of individual and small-group counseling and job coaching. In
the pilot project, the counseling, job coaching, and other follow-up activities have been
effectively done by the training organizations. The patterns set and the results represent
another kind of accomplishment of the project.
It is necessary, in order to meet the challenges and to solve the problems in the above
areas of concern, to establish an effective network of communications. This included com-
munications between EPA, prime sponsor, training consultant, WIN—state and local—, job
developer, recruiter, instructor, counselor, employer, work supervisor, trainee-worker, and
so forth. The communicating involved much reading, a lot of writing, considerable fast talk-
ing, and intense kinds of listening. The actions in communicating were accomplished by
telephone, through the mail, person-to-person conferring, group meetings, four scheduled
and structured conferences, and many hours of social kinds of contacts. The social aspects
were designed to "break the ice" and establish the comfortable working relationships that
have been so vital to the success of the project. The communication system that is presently
operational may well be one of the most significant accomplishments of the pilot project for
training and employment of AFDC recipients in environmental service occupations.
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SECTION VIII
USE OF THIS MANUAL
This publication presents information about a current pilot project along with ideas
about how manpower development is changing with revenue sharing under Federal appropri-
ations. In effect, it is a "how to" kind of publication in terms of the operation of a certain
kind of training and employment program. At the same time, suggestions are made for
future programs in varying circumstances and with much less clearly defined techniques and
practices. In particular, in Section V there is a discussion of the new design for manpower
development.
The material herein should be of significant interest and help to state and local area
manpower planners. It should be useful to any individual promoting or actively pursuing
ways and means of training and employing people in environmental service occupations.
The information may be read and studied by people trying to develop certain competencies.
It might well form the basic content for seminars or group training sessions. Excerpts from
this publication may be copied and distributed to people who need only bits or pieces of it
and do not want to be hampered by having to exercise their own discretion over what they
read.
In the pilot project two components were dovetailed to make the foundation or base.
The EPA wanted people in environmental service occupations and, guided by assessments,
surveys, and so forth, was motivated toward job development. The WIN organization wanted
AFDC recipients in jobs and their desire to help individuals was motivated toward recruit-
ment. From these two motivations the pilot project was born. From two of the program
components, job development and recruitment, many problems have arisen to each of the
five locations.
Environmental job development for AFDC recipients and recruitment of the AFDC
recipients for training and employment in environmental service jobs are two counteracting
kinds of problems. It is certain in the world today that "for every action there is an equal
reaction." This is very much true in the pilot project. First you have action, the locating of a
job slot. Then there must be the reaction, the locating of a AFDC person to fill that job
slot.
At any particular time at a particular program location, there is either a shortage of job
slots or a shortage of recruits. When jobs are available the recruits are not, or vice versa. The
actions and reactions should be equal but never are. Thus, the challenges and problems are
constant in the training and employment programs when only these two components are
considered.
To point up as sharply as possible the need to handle each component of training and
employment by means of in-depth approaches and methods, the job development and
recruitment components again are discussed here. The material is drawn directly from the
experiences of one organization, Skills Development, Inc., whose staff members did job
development work and interacted with WIN caseworkers in the accomplishment of
recruiting.
Job Development
There are several important aspects involved in the job development portion of a
training and employment program like or similar to the WIN/EPA program.
1. Job slots must be located. Basically, this is accomplished through many, many hours
of face-to-face meetings with a wide variety of municipal and political entities, usually at
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several levels within each entity. This seemingly straight forward task is extremely compli-
cated by the political makeup of each employer. Who do you contact first? Mayor? City
Manager? Personnel Manager? Department Head? The techniques that are successful with
one group may not work with another. In many cases it takes repeated visits to establish the
intent to involve, in the proper sequence and to the necessary extent, each level of govern-
ment.
Quasi-public and private employers present many of the same job development prob-
lems. Political jealousy and competition are not as intense as in the case of municipalities but
there still exists the problem of contacting the proper person with the initiative and/or
authority to make a firm job commitment.
2. Employers must be sold on the need for training. This, surprisingly enough, also
becomes an aspect of job development. The program permits training and job placement in a
variety of skill levels. The fact is, however, that employers are reluctant to hire new em-
ployees above the entry level. The reason for this is simply that it creates problems with the
existing employees and staff. This concern has been borne out in several instances where
positions above the entry level have been filled with the trained WIN clients. In many cases
this problem exists at the entry level due to jealousy of other employees at the same level
and is created by the fact that the WIN clients have received training and are better qualified
for promotions. This points out a pressing need for a method of providing upgrade training
as an integral part of the job development package.
Resentment of WIN clients by co-workers and by some leadmen and supervisors is an
important factor in job retention. While supervisory training, if it can be provided at the
proper (lowest) level, can help alleviate much of this type of discrimination, it is difficult to
eliminate rumors and excessive undesirable job assignments.
Civil service systems eliminate many of the above job development and placement
problems. However, the very nature of civil service systems usually makes it unwieldy, if
not impossible, to place disadvantaged persons. The basic problem here is that after the
trainees pass the test it is necessary that they go on a roster and await actual employment
for an unspecified length of time until the persons above them on the roster have been
placed.
All of the above problems and concerns come into play to some extent during job
development and are directly related to the reaction of many potential employers: "Why
the need for training?" Their point is that since the skill levels are usually low for entry
positions and since there is no upgrade training for older employees they see no need for
training in the first place. This objection usually can be effectively overcome through
discussions of retention, safety, and equipment damage, especially if specific facts and
figures are available.
One other significant job development problem related to the classroom training is the
time span required by this part of the program. For a variety of reasons employers are
reluctant to commit jobs for the future, even the immediate future. When they have an
immediate need they want to fill the position now! And many employers are very reluctant
to analyze their turnover rates and the associated cause factors in sufficient detail to make
reliable estimates of future needs. Even in cases where they actually do this analysis, some-
times with assistance from training program personnel, the number of job slots they will
commit to this program is well below the best estimate of their actual need.
3. The reluctance to hire women must be overcome. This is another important consid-
eration as employers are sometimes reluctant to hire women in jobs traditionally held by
men. The majority of both environmental and environmentally-related entry-level jobs are
traditionally held by men. In fact, most of the existing environmental work force is men.
The prejudice against women filling these positions exists to some extent at all levels of job
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development. The most intense resistance is usually encountered at the line supervision and
leadman levels. While personnel directors and other administrators are not usually adamant
about moving women into these positions in principle, they are very reluctant to force their
line supervision into acceptance. In fact, it has been proven that job retention is almost
impossible where heavy pressure is applied to obtain placement.
So many times the initial reaction is that the work is too heavy or too dirty or too
complicated and, in the case of mobile crews, there are no restroom facilities. Usually these
initial adverse reactions can be overcome by conducting a detailed task analysis. In most
cases, it becomes immediately apparent that their objections are not well-founded.
The more difficult problems related to this type of employer reluctance to employ
women is mixing work crews and, even more important, mixing night shift crews, especially
where small crews are required. In these instances there may be some concern about actual
relationships that might develop between the male and female employees. But, the real
concern is related to the community reaction and especially to the reaction of the families of
the employees involved. It appears that the extent of employer concern in this area is not
justified, but it is something that a job developer must cope with in most cases where
shift work and mobile crews are involved.
The problems related to nontraditional employment require a high degree of under-
standing, salesmanship, and patience in alleviating these employer concerns. There is one
argument which must never be used alone—"It is illegal for you to discriminate against
women for these jobs." Job development is salesmanship, not law enforcement.
4. Some employers are hesitant to become involved in "government"programs. There
seems to be two principal reasons for this reluctance. One results from experience with
trainees or placements from other, sometimes poorly conducted, government programs. The
other is the fear of paper work and government involvement in daily business or work
activities. Usually the objections can be overcome by a detailed explanation of the WIN/EPA
program and its operation.
5. Some employers object to hiring AFDC recipients. This occurs in a few cases simply
because the WIN clients are on welfare and this fact alone brands them as "people who are
lazy and do not want to work." Here it is important that the job developer knows from
firsthand experience the actual facts about the WIN clients. Only by reference to favorable
facts and figures and firsthand examples can the job developer begin to eliminate this form
of prejudice.
6. Transportation is a continuing problem. Most of the WIN clients must depend upon
public transportation to get to their jobs. A good many of the environmental jobs (i.e.,
water and wastewater treatment plants) are located on the periphery of the metropolitan
areas and are not served by public transportation. Even in areas where transportation is
available, it is not operated with sufficient regularity to provide adequate coverage during
late shifts and on weekends.
If given the opportunity, the job developer can assist the WIN personnel in screening
clients for personal transportation and can be effective in establishing car pools between
trainees and on-board employees. There are cases where the WIN organization refuses to
recruit trainees when no transportation is available. In this case, the job developer's hands are
tied and (s)he loses the job slots that have been developed.
7. Shift work creates problems. Since all WIN clients are receiving AFDC payments, it is
necessary to solve problems of child care. This is usually accomplished by the state welfare
department for the day-shift training program and throughout subsequent job placement.
However, the late shifts present unique child care problems. Often the job developer can
assist in arriving at a satisfactory solution. It is important for the job developer to alert WIN
personnel to a special shift work schedule in advance of the recruiting.
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The task of the job developer is a difficult and often very frustrating one. As stated
above, (s)he must be a salesman for the program and, as such, (s)he must thoroughly under-
stand the operation of the program, its strong points and its limitations.
The job developer must travel extensively and meet with all the potential employers.
While letters and phone calls are effective means of introduction and securing appointments,
the only way to secure firm job commitments is through personal contact with employers.
Once the job slots have been commited, the next step is to secure the pertinent infor-
mation relating to each position. This information must include such items as a detailed job
description, wage rates, work hours and shift information, fringe benefits, and the career
ladder afforded by the job. In addition to having a written job description the job developer
should become familiar with the actual tasks to be performed and the conditions at the
work site. All this information then must be given to the WIN personnel for trainee recruit-
ment. It often happens that it becomes a function of the job developer to "sell" the potent-
ial trainees on the positive aspects of the particular job. This is especially true in the case of
the nontraditional jobs.
Trainee Recruitment
The only source of trainees for entry into the WIN/EPA program is from the WIN
program. The WIN personnel are responsible for working with the state welfare organization
to certify the eligibility of their clients. They also have the responsibility for direct job
placement of their clients. This involves their caseworkers or counselors in job development,
recruitment, counseling, and placement. It was naturally assumed that they also would
perform the recruiting function to obtain trainees for the WIN/EPA classes. It soon became
apparent, however, that they were unable to supply a sufficient number of trainees to fill
the WIN/EPA program classes.
There are three primary reasons underlying this inability to produce the required
number of trainees. First, there sometimes exists an internal problem between WIN and the
state welfare organization in certifying a sufficient number of AFDC recipients to meet the
needs of both the WIN and the WIN/EPA program for qualified clients. Since this is an
internal problem the WIN/EPA personnel can contribute little to its solution. Second, the
WIN counselors in many cases do not understand the WIN/EPA program. They were unable
to explain to perspective trainees the advantages of participating in this program. Much of
this difficulty has been eliminated by group discussions sessions between the WIN/EPA job
developers, instructors, and counselors and the WIN job developers and counselors.
It usually requires several meetings of this type before a good working relationship
develops to the point of a significant increase in the number of qualified trainees referred to
the WIN/EPA classes. It is important each time a new type of job is developed to sit down
with the WIN counselors and convey to them all pertinent information relating to the job so
that they can do an effective job in their discussions with prospective trainees. This brings
up the third major problem in trainee recruitment. This involves convincing the prospective
trainees that it is to their advantage to accept training for nontraditional types of employ-
ment. The jobs in environmental fields traditionally are held by men. The jobs usually in-
volve outside work, work with tools and machines, work in mobile crews, and shift work.
The vast majority of WIN clients are women. It is true that there are a few women who
are immediately enthusiastic about employment in these jobs, but the majority of them do
not identify with this type of work. The women want traditional women-type jobs. They
are easy to recruit for jobs as clerks, typists, nurse aids, and even food service employees.
Initially they will reject such jobs as wastewater plant operator, pesticide applicator, parks
maintenance, and fire hydrant maintenance. For the most part, the WIN counselors do not
identify with these jobs either. This makes it difficult for them to effectively present the
trainee with significant advantages to accepting training for these jobs.
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It is at this point that the WIN/EPA job developers and instructors must step in and
provide expert assistance. This is where the job developer again must become a salesman.
(S)he must know the advantages of this type of employment. (S)he must convey these to
the prospective trainee in a positive and enthusiastic manner. It has been demonstrated
many times that a good presentation and a thorough discussion of all aspects of the job will
double and even triple the percentages of trainees accepting the training for these nontradi-
tional positions. One point of caution in this approach is that the presentation must be
honest and cover all aspects of the job including the negative ones. If this is not done, it
becomes almost impossible to retain the trainee on the job after she has completed the
the training. The secret is to present all the facts, accentuate the positive, and be enthusiastic.
In summary, it appears now that under CETA and other manpower programs there will
be coordination of all components of training and employment. Job development and
recruitment will be tied closer to classroom training than in the past. In turn, the classroom
training will be tied closer to supervised work experience and follow-up in permanent
employment. If these things remain true, then much of the material in this Manual will be
useful well into the future.
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SECTION IX
ANNOTATED REFERENCES
Reid, George W. and Adams, Gay. Environmental Manpower and Its Training Needs.
Norman, Oklahoma: Bureau of Water and Environmental Resources Research,The
University of Oklahoma, 1974. 497 Pages.
Divided into three phases along with two supplements, this is a study of the overall
manpower and training needs in Oklahoma in twelve different environmental cate-
gories. As an analysis of both private and public employment, it provides a pattern
for how compilations of similar data might be developed for other states and/or for
the entire Nation.
U.S. Department of Labor. Manpower Administration. Breakthrough for Disadvantaged
Youth. Washington, D.C.: Government Printing Office, 1969. 256 Pages.
An organized presentation of the experiences of 55 experimental and demonstration
projects conducted under the Manpower Development and Training Act. This is an
analysis of the successes and the limitations of certain innovative approaches to the
training and employment of youth.
U.S. Department of Labor. Manpower Administration. CETA Coordination with WIN: A
Guide for Prime Sponsors Under the Comprehensive Employment and Training Act
of 1973. Washington, D.C.: Government Printing Office, 1974. 42 Pages.
Prepared to guide prime sponsors in the development of programs under CETA, it is
designed to show how coordination and linkages may be effectively established
between CETA and WIN. Stress is upon how duplication of efforts may be avoided,
while both quality and quantity of services are enhanced.
U.S. Department of Labor. Manpower Administration. Manpower Magazine. Washington,
D.C.: Government Printing Office.
This official monthly journal of the Manpower Administration is "must" reading for
instructors, caseworkers, administrators, job supervisors, and others involved inthe
training and employment of disadvantaged persons. The up-to-date presentations
with lively illustrations make meaningful reading about diverse manpower develop-
ment programs.
U.S. Department of Labor. Manpower Administration. Productive Employment of the
Disadvantaged: Guidelines for Action. Research and Development Findings No. 15.
Washington, D.C.: Government Printing Office, 1973. 190 Pages.
Presents material and case examples of hiring and training hard-to-employ, disad-
vantaged workers. Summarizes and distills the most important lessons learned by
private employers involved in the National Alliance of Businessmen (NAB) JOBS
program.
U.S. Environmental Protection Agency. Office of Education and Manpower Planning.
Guidelines to Career Development for Waste Water Plant Personnel. Washington,
D.C., 1973. 100 Pages.
Presents guidelines directly applicable to most functions and job responsibilities that
exist in wastewater plants today. Explains how definitions of jobs, specific modules
of training, and instructional methodology may be built into a training delivery
system for a family of environmental service jobs.
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