.ED206 870

TITLE

.INSTITUTION

SFOHS AGENCY

PUB DATE

NOTE

AVAILABLE FROM

EDRS PRICE,

DESCRIPTORS

IDENTIFIERS

7 'DOCUNENT RESUME

CE 029 979

Jobs and Com,Itity Improvements - -A Handbook for

Enhanced Work Projects. I.mplementation'Issues: Youth

:

Knowledge D Veldpment.Repo;,t a.1.' . Corporation for Public/Private Ventures,

Philadelphi , Pa.

Employment and Training Administration (DOL),,..,

Washington,'D.C. Office of. Youth Prograis.

Jun BO r

145p.; Fdr related documents see note of CE 029

968. .

. . Superintendent of Documents,, U.S. Government Printing

Office, Washington, DC 20402 (Stock No.

029-014-00176-7, $5.00).

MF01/PC06 Plui Postage.

Adolescents; Adults; *Demonstration.Programs;

*Disadvantaged Youth; Economically Disadvantaged;

*Employment Programs; Federal Piogramsv*Program

-Development; program Effectiveness; *Program

implementatidh; Youth Employment . *Ventures in Community Imprbvement Project; *Youth

Employment and Demonstration ProjeOts Act

ABSTRACT -

,

. This volume is one of the prOducts of the knowledge. . development actiVities.mOunted in conjunction with research,

evaluation, and development activities fuAded under the Youth

Employment and Demonstration #rojects Act''of 1977. Based on the

Ventures in Community Improvement (VICI). "enhanced" job training/job'

_placement approach, which used' longerl-term training, enriched

supervision, and extensive planning and greater cost (but also i generated positive result's as compared to "regular" local projects),

this how-to-d&-it manual provides common sense guidance on the steps

needed to conduct a successful enhanced project. In the first

chapter, the VICI model is explained and dissected and its-successful

elements-and programatic components considered. Chapter.2 describes

'briefly four kinds of VICI projects currently operating, explains how

t. form links among the model planners, and suggests kinds of

fining' programs and sources of funds that might be tried. Chapter 3

scusses three important elements: fiscal planning, project links, . and project management: In Chapter 4, an array of practical tips on

start-up, fiscal management-lpayrolling, cost estimation, and other

daily matters are offered; while ill chapter 5 recrhitito both staff

and tlinees is explained: Ch4ter 6 synthesizes from the previous

materi 1 answers to the most frequently asked questions abgut

VICI -type projects, while 'the appendixes to the manual include,'other

IpfOrmation the planner and manager will need, such as sample forms

and reports, purchase order forms and. procedures, participant rules

and regulations, explanation pf the VfCI work valuatiol formula, and,

sample VICI racement strategies. (KC)

A
4

a r

o-.

-

I

I I:

.,

-r

Y. ni

JV

O

11
I

U -S Department of Labor

Ray Marshall, Secretary ,

'Employment and Training Administration

Ernest G Green, Assistant Secretary for

Employment and Training Administration

Office of Youth Programs . Material contained in this'publitation is

in the public domain and may be

reproduced, fully or partially, without

permission of the Federal Government.

Source credit is requested but not

required. Permission is required only

to reproduce any copyrighted material

containedherein

42.

,

r

;

I

r

Vt.

3

ci

2
A

YOUTH KNOWLEDGE DEVELOPMENT REPORT 8.1

JOBS', AND COMMUNITY IMPROVEMENTS- -

A WORKINGTANUAL FOR ENHANCED WORK PROJECTS

L

Corporation for Public/Evil:late Ventures

June 198G ./

It

For sale by the Superintendent of Documents. U.S. Government Printing Office

Washington.. D.C. 20402

(

Al0m0.0.

A

$ :

O
41

a.

OVERVIEW

\Work projects awe always been and will remain a fundamental component

youth'h'programming. There is almost infinite diversity. in the focus of

such .projects as well as in their scale, duration, organizational complekity, linkages, supervilion and skill requirements. The most prevalent"'

projects are short -term. They spend the preponderance of resources on'the

wages and salaries of participants. Materials, equipment and supervision

are at a mipimum. The work requires and transmits limited skills. Such

prbjects are relatively easy to organiie. There are few risks. On the

other hand, the work experience rarely leads directly to career. jobs and is

less likely to hold the attention of youth,participants than more demanding

and rewarding projects. 'Productivity may also be limited; certainly there

are not likely to be lasting community Improvements because of the absence

of capital 'investment as part of theprojects.

-

"Enriched" projects are those with more ambitious objectives which

esually require greater organization, planning and linkages. To accomplish

their missions, they tend to use more skilled .and higher cost supervisors,

as well as adgreater proportion of nonlabor inputs. With more interrPlat0

components, 'enriched" projects are riskier to mount although they may be

more productive in their output as well as their lasting impacts on youth.

To the extent they spend more for capital, supervision and management; they

have reduced direct employment effects per dollar of outlay.

Clearly, there are a set of tradeoffs in choosing between basic and

"enriched" projects. Successful ."enriched" projects are likely to be very

attractive in terms of their visible outputs, the quality of the work

experience, the impact on enrollees and the cooperation in their design and

operation. Yet the 4success" rate with which enriched 'projects fulfill

their objectives is less than that of projects which are more pedestrian in

their goals. More youth are employed per dollar in the less ambitious

projects. 'Productivity per dollar of youth wages fty be different than

productivity per dollar of program cost because of the high overhead costs,

related-to enrichment.

A major knowledge development objective under the Youth Employment and

Demonstration Projects Act of 1977 was to learn more about these tradeoffs,

as well as to determine the conditions and approaches to maximize program

"batting averages" and to identify the types of youth who would most

benefit from the "enriched' and "nonenriched" approached: There, are

several discrete ddomonstrations exploring these issues in multiple sites,

with varying delivery' agents and careful research designs.

T e Ventures in Community Improvement or VICI program was an attempt

*ate a model "enriched" project in a number of different locations,

t utilized an intermediary, the Corporation for Public/Private Ventures as

the repiication and research agent, to assure that the fundamental en- richment elements were mainta(ned in the projects. Fifteen local agents

selected on the' basis of need were initially invited to 'submit proposals.

From these, nlrie 4werd selected .for funding, of which eight were to be

mounted under the umbrella of CPPV.

.

wl

(
J

Theeight local projects shared certain basic elements:

o Scale - The projects all were budgeted for 60 participants.

-While they operated locally.through variety of worksties, this

represented a large undertaking for a single local delivery

,agent. ' For *twice, most projects mounted under YCCIP have less

than ten participants. The VICI projects 'are larger than all the

combined projects under formula-funded YCCIP in some smaller

primejsponsors.

.. I-. . , .., . . 1

o \ Continuity --Work projects are usually funded thrOugh annual

grant applications. Most are limited in their period of

.operation to less than a year, after start-up Land phase-down:

VICI projects were initially scheduled for 18 months and have

been extended.

, . 4- J ', o Enriched Supervision - VICI projects were budgeted on the basis

Of a one-to-six superviso/youth ratio. Ad9quate supervisory

liwage levels were provided to permit

( employment of journeymen.

o Linkages - All .of.the projects drew on other sources of funding

for materials and_ equipment; in some cases, these alternatives

amounted to ca substantial share of total project costs. There

was a -heavy 'emphasis on linkageswith labor unions and apprenticeship programs, both in a formal sense and in the hiring of'

journeymen as supervisors. - Planning ind,OverNight,- Extensive planning ,hnd development was

required for sites to be funded. Through the intermediary agent,

each project received an inordinate degree of oversight and

techntcal as well as problem-solving assistance.

o Cost - VICI .projects were costly because of scale, but alto

generated less youth employment pei- dollar of expenditure because

of the emphasis on supervision and the use of high cost Sourneymen:

The- purpose of VICI demonstration' was to test whether "enriched"

projects with these eleMents could be feasibly replicated in a variety of

locations, and whether the activities would be mord cost effective than

traditional, rionenriched work projects as measured by comparative enrollee

impacts and the productive output generated.

The VICI demonstration provided convincing evidence that the "enriqhed" project approach was both,, feasible and replicable. Likewite, early

eyidence tuggested.that the "enriched" projects had a greater impact on job

placeient and entrance into apprenticeship than leis ambitious work

projects mounted Linde); YCCIP and other national demonstrations. Projects

produced valuable outpuI, and the' efficiency and effecttNness of the

projects., increased with' /9me. Finally, there was evidence concerning the.

types of youth who would benefit most within the disadvantaged participant

group. *VICI appeared to operate best as an advanced-component'within a

local CETA system which, would draw on youth of demonstrated maturity who

had.dedided on a Career in construction-relate'd work.

..............-, ..' ...-

.., r 44-.
4

_ Adfinal/ assessment of the cost-effeCtiveness of the VICI "enhanCed

project" approach will not be possible until 1981. At present,' however,

the results . appear promising enough to warrant replicatton.- This "howtd-do-it" manuai' is based on the VICI.experience. Authored by.theldeaff of

the Corporation ,for Public/Private Ventures, and'edited by Mary Browne and

Robert Taggart of the Office of Youth ,Programs, it provides Common sense

guidance otthe steps needed to mount a successful project. Such practical

material shoulcLbe assessed in conjunction with the reseich analysis of

VICI contained in Enhanced Work Projects--The Interim Findings From

f the Ventures in Community ImproAtent Demonstration. Additional insight

might be gained from. Enhanc Work Projects-,An Analysis of Local Experience which- ,discusses yie tradeoffs and categories of benefits and costs

in large scale local projects. All of this information can help in

de 'ding . hether to concentrate investment and effort in a _large-scale

pro a t, s well as how-.to proceed.

At this.point in time, it is the intended poliga., of the Office of

With programs to utilizeavailable discretionary money to share in the

sorts of local implementation of program approaches demonstrated to be

effective by careful research and evaluation. Likewise, for successful

approaches, intermediary agent would be supported to-provide intensive'

technical assistance to aid in replication,'much the\same as the Corporation for Public/Prii/afe Veftures dieunder the VICI demonstration. The

decision to support such replication of VICI must await further research

results,_ _However, preliminary evidence suggests that the "enhanced work

projects" _approaCh can be a USeful-tomponemt-ot-lbcal progrdmllriug -whtch-

_should be considered by CETA planners locally. Limited technical as- sistance may be provided by CPPV for those with an interest in developing

such projects..

. . .This study is one of "knowledge dAelopment"acttvttles mounted in

conjunction with research, evaluation and development activities., funded

under the Youth Employment and Demonstration Projects Act of 1977. The

knowledge demAlopment effort will result in literally thousands of written/-

produtts. Each activity 'has:been structured from the outset so that it is

self-standing but also interrelated with a host of other activities. The

framework iS presented in A Knowledge Development Plan for the YoUth, Employment and Demonstration Projects Act of 1977, A Knowledge Development

Plan for the Youth' Initiatives Fiscal 1979 and Completing the Youth Agenda:

A Plan for- Knowledge Development, Dissemination and Application for, Fiscal

1980.

Informatioq is available or will be coming available from these

various knowledge deyelopment efforts to help resolve an almost limitless

array of issues. However, policy and practical. application will usualiy,

require integration and synite-gAIfrOm wide range of products, which, in

turn, depend on knowledge and availability of these products. A major

shortcoming of past research,,eVeluationand demonstration activities has

been the failure to organize and disseminate the products adequately to

assure the ,full exploitation of the findings. The magnitude apd structure

of the youth knowledge development effort puts a premium on structured

analysis and wide diss ination.

4

iii

F,
(

As part of its knowledge development mandate, therefore, the Office of

Youth Yfograms of the Department of Labor will organizol publish and

dissgminate the written products of all major research, evaluation and

demonstration activities supported directly by or mounted in conjunction

with OYP knowledge developMent efforts. Some of the same products may also

be publtShed and dissemjnated through other channels, but they will

included in the structured series of Youth Kn wledge Development Reports in 0

) order to facilitate access and integration.".

The Youth Knowledge Development-,RepOrts, of which. thi is one, are

'divided into twelve broad categories:

1% Knowledge Development Framework: The products in this category

are concerned with the structure of knowledge_ development activities, ,the

assessment methodologies which are employed, the measurement instruments

and their validation, the translation of knowledge into policy,\4nd..the

strategy for dissemination of findings.

O

2. Research on Youth Employment and'Empl4ab4lity Development:- The

products in this category reptesent analyses of 'existing data, .presentation

of findings from new data sources, special istudies of dimensions of youth

labor market problems, and policy issue assessments.

3. Program Evaluations': The Poducts' in this category include

impact, process end benefit-cost eyaluktion.s.Afttuth_programs_intlutti-ng

the -Summer Youth Employment Program, Job Corp , the Young Adult Conservation Corps, Youth Employment and Training Programs, -Youth Community

Conservation and Improvement Projects, and the Targeted Jobs Tax Credit.

4, Service' and Participant Mix: The evaluations and demonstrations

summarized in this category concern the matching of different types of

youth with 'different service combinations. This involves experiments with

-Work vs. Work plus remediation' vs. straight remediation as treatment

options. It also includes attempts to mix disadvantaged and more affluent

participants, as well as youth with older workers.

5. Education and Training Approaches: The products in this Category(

.present the -findings of structured experiments to test the impact and

effectiveness of various education and vocational training approaches

incleCinsi specific education ;Methodologies for the disadvantaged, 'al-

'teTnative education approaches and advanced career training.

A 6. Pre-Employment and Transition Services: The products in this\

category present the findings of structured experiments to test the impact

and effectivedess of school -to -work transition activities, vocationtl

explorationjob-search'assistance and'other efforts to better prepare

youth for labor market success.

7. Youth Work Experience: The produCtS in this c4tegory address the\

organization of work activities, their output, productifte roles for youth,

and the impacts ofo/arious employment approaches.

0

8. Implementation Issues: This category includes cross-cutting

analyseS of thegractical lessons concerning "how-to-,do-it." Issues such

iv
-, ..--., as learning curves, replication, processes and programmatic "fatting

averages" will be addressed under this category, as well as the comparative

Apantages of alternative delivery agents. i. ,

1 9.. Design and Organizational Alternatives: The products' in this

Category represent assessments of demonstrations of alternative program and

delivery arrangements sitc as consolidation, year-round preparatioh for

summer programs, the use of and multi-year tracking' of

individuals. - °

.. A

I - 10. Special Needi Groups: The products in this 'category preseyr

findings on the.special problems of and the.pro9rammatic adaptations needed

for significant segments including minorities, young mothers, troubled

youth,Andochinese refugees,- and the handicapped.

11. Innovative Apgr6aches: Therproducts in this categdry present the

findings of those activities .designed to explore new approaches. The

subjects covered include the Youth Incentive Entitlement Pilot Projects,

private sector initiatives, the national youth service experiment, and

energy initiatives "il weitheriz,ation, low-head, hydroelectric dam restoration, windpower, and the like. ... 12.. ,Institutional Linkages: The products in this category include

studies of institutional-arrangements grid linkages as well as assessments

Iffdem6nstrationactivitles- to encourage -nth Tirikapt--with education, . volunteer groups, drug abuse,, and other youth serving agencies.

In each of these knowledge development categories, -there Will 'be a range of discrete demonstration, research realuation activities focused

on different policy,_ program and analytjca .issues.' In turn, eachidiscrete

. knowledge development project may have a' series of written products

addressed to different dimensions of the 44e; _ For instance, all

experimental demonstration projects have both -Oocess and impact eval-

(lotions; frequently undertaken by different evaluation agents. Findings

kill be published as they become available so that there will usually.be a

seriesof. reports as evidence accumulatW#. JO organize" these products,

each 'publication is classified in one of the twelve broad knowledge

development categories, described in terms of the ,morespecif-ic'issue,

activity or cluster of activities to which it is addressed, with an

identifier of the product and what-it represents/relative to other products

in the demonstrations. Hence, the multiple products under a knowledge

development activity are closely interrelated and the activities in each

. broad cluster have significant interconnections.

.

. As noted previously, this volume should be read in conjuctidn' with

research reports on enhanced work projects in the "youth work Ih(perience

category." Of most iter st are .The Interim Findings From the Ventures

in Community Improvement D nstratjon and An Analysis of Local Experience.

Also of interest may be pdings ,om the HUD/DOL Community Improvement :s Demonstration.

P. Robert Taggart,

Administrator

Office of Yolith Programs

Vfv./414 L./ t 1; Pit
CONTENTS

OVERVIEW

Page

i

CHAPTER I: WHY THIS APPROACH? *

4 1 )

..._ The VICI Demonstration - -A Brief Description 3

Critical ElemAnts . 6

Internal Programmatic Considera tions, 9

Whit NW? 11 CHAPTER II. PROJECT ALTERNATIVES 15

0

Gut Rehabilitation

Emergency Holiie Repair

Painting

, . Weaherization

-- Other Possibilities

...Generated Income

16

18

20

22

23

32

HAPTER-1-11-rPRNECTPLANNINGAND-LINKAGES- 35

The Union Link -4'

The Work Providing Link . 35

40

Licenses, Permits and Inspections 42

The Education and Support Services Link. 44

Prime Sponsor or Delegate Agency: Who Runs the Project? 46

Budgeting 49 4

CHAPTER IV PROJECT OPERATIONS

-,The Work Projects Inventory

Selecting and Scheduling Staff

41 Management Staff

, Advisory Board

Payroll and Timekeeping &--)\

Subcontract Management

Procuring Materials and Supplies.

The Permit and Inspection Process (

The Construction Process

Using Program Information as aManagement Tool. 1

Fiscal Management

. -.-

1

r

53.

53

55

56

57

58

59

61

'62

66

68

72

CHAPTER V: THE STAFF AND TRAINEES / 75. Skil 1 si Training-Vs Production ' ! 75

Staff Discipline aritsProbl em-Sol vi hg 75

Assessment and Assigndient 77

Orientation 79

Skills Progression 80

Skills Training Emphasis 82

Wage*rogression . $3

vii

10

1

(
Pagelti

Job Deifelopment and Placement 84

Apprenticeship Certification 85

Suppo&Services ,

$7

Participant Personnel Policies 88

The Special Problems of Women .90. 4

% . ' . 'CHAPTER VI: SOME COMMON QUESTIONS:-AND ANSWERS 93'

i APPEND/OfS . 99 /'

""

. -

a."

..

Iry

viii

V

I I

-

A

Ar.

t

1
/ CHAPTER I: WHY THIS APPROACH?

, There stands in your borough a school building badly in need of

painting and refurbishing, its playground pitted and cracked. .The school

board's limited resources are'committed to other projects.

4 On the edge of your town's commercial district, rowhouses deteriorate

and their shells fill with garbage, The housing authority looks for ways

to replinish the'locale housing stock but it cannot undertake large-scale

renovations on these rowhouses.

Residents of an entire neighborhood Jn.the heart of your'city live in

houses with unsafe and inefficient heating systems. While someof these

perlOns own their own homes, they cannot afford to purchase storm windows

or to hire coqtractors to repair their roofs.

At the same time, your comni'unity recognizes the existence and needs of

a growing population of disadvdntaged,young people, out of school and Out

of work, whose meager prospects--if any--include only subsidized, part time

employment in unskilled jobs. These wasted.'human resources mirror the

decay you' see in the buildings ill_your_community,

any cure you apply to one must, to be successfUl, be applied to the other

as well.

This assessment- -that in any declining urban or rural community, no

matter how lame or small, human blight and. structural blight go hand in,

hand=-is surely not a novel one. Programs initiated on many levels have,

sought to provide jobs and training while they liftthe faces of communities. No doubt .you are aware of programs which attempt to address

these' concerns, initiated under Public Service Employment, Youth Conservation and Community Improvement Projects, Supported Mork, and a variety

of other, federal programs. This manual is based on the experience of one

such program, Ventures in -Community Improvement (VICI), whidh has; since

late 1978, successfully addressed both issues--wasted human and physical

decay. VICI was developed as a demonstration program funded by the U.S.

Department of Labor's Office of Youth' Programs.* Its. development ofts

guided by the CorporiOon for Public/Private Ventures (P/PV), an intermediary organization.**

The VICI model.is a carefUlly structured, large-scale project, based

__on extensive :linkages to unions, work-providing, agencies, schools and

employers, which seeks to produce valuable and visible community improve41.

*VICI was one of several national demonstrations funded by the Office of

Youth Programs under the- Youth Community Conservation and Improvements

Program portion of,the Youth Employment and Demonstration Projects Act of

1977 (YEDPA). This Act was incorporated into Title IV of the Comprehensive

Employment and Training Act (CETA) as amended in 1978.

**CPPV; as agjntermediary, was respOnsible for: developing and Wining

project design; providing technical assistance to prime',sponsors; reviewing

and analyzing project operation and making necessary corrective action

recommendations -to DDL; and researching both process and impact of VICI.:

12
4

ments which help meet vital needs of low-income communities, while providing youth .employment and rigorous skill training in various building

trades to prepare youth' for union apprenticeship programs or entry -level

employment in construction and related industries. the "model" has the

. following. elements:

1.) It establish a systerii of "links" among the CETA rime 4sponsor,

l abor unions, communit development-agencies, educational agehty6f, and, in

many cases,pcommunity-b ed Organizations, drawing on the unique skills and

resources of each, for effective, coordinated management and,impleMent4tion

of the project;

. . i.

2.) It provides low-ratio trainingJand Supervision by skilled

', journeymen, to ensure quality instruction and tight suPerviSion and to ease

entry into apprenticeship programs;,

. . 3.) It levers funds ,t'o 'provide

complex project such, s this; and, - - 4.). Ot creates 'a'training situation

work world.

, . .Neither the goal of this model nor. the emphasis on links is a unique

concept.- Nor is the model cast in concrete: individual prime sponsors can

adapt the VICI model to their own employment training and community

improvement objectives. But the model as it currently operates, and as it

has been vigorously and.pahistakingljtwadeCand guided, works. While it

is not inviolate, its success requires .the presence of the elements we

r deicribe this manual. There are relatively few programs whe'e

all the _elements are combined effectively as they are in this model.

Careful early plaAning involving key organizations, a clear understanding

and secure,00mmitments from all parties concerning their roles, and

. leadership by l central agency--all are ess ial,to the model's success.

, .

. Experience gained in operating these VICI molJels is described

. here for

use by other program operators in developing similar projects. The VICI

experience is-valuable for several reasons. First, VICI wa's designed and

operated as Antiohly structured model,.dependent,on multi-source finding.

Research shows Iliat the structure hays produced some good results, and that

. the multi- source funding has been a .successful means of targeting

resources. Secondly", 4 a demonstration project, VICI has been closely

studied and* its systems refined as time. progressed. The lessons learned

from this close study can nowbe translated into instructions pn how to

design a similar project. , N\

ri4

a sufficient resource_ level' for a ,

which cloely simulates the real

This manual provides a

, detailedscription of a VICI-like model and

step-by-step instructions on design, planning and implemqntation. in a "how-to-do-it" format. It includes samples,of the essential systems, forms

and procedures whigi program.'operators, managers and evaluators alike have

found useful in kOaging and assessing complex training and construction

projects. Additionally, the manual provides resource information necessary

to. set such a project in its proper-framework--information'on apprenticeship systems, unions, David-Bacon requirements, revenue generation, and the

like. -.

A

2

4
r

P

c 4

The VICI Demonstration - -A Brief, Description

VICI began as a'Dep artmenfiqf Labor-funded demonstration program. The

projects operated in'eight prime sponsor jurisdictions across the country:

Atlanta, Georgia; Broward Codnty, Florida; Chicago, Illinois; Milwaukee,

Wisconsin; Newark, New Jersey; New Oven, Connecticut; South 'Bronx, New,

York; and Philadelphia, Pennsylvania. At each site, sixty slots were

created for 1-6- to 19-year old youth enrolled-under the supervision of ten

jourfitymen who .served. as crew chiefs and,instructors.' These young people

got'their training at worksites--apartment projects, city-owned and private

houses, public schools, and recreation facilities--in the.communities where

they li3ed. They engaged in, supplemental education activities', as.well.

These trainees were groomed primarily for union apprenticeships, preapprenticeship programs and unsubsidized construction-related jobs.,

. TifFeight projects began operations in late 1978 and early 1979. The

.sites were selected following an intensive review which determined that

each had the management, capacity,. training plan arid local relationships

among labor and various government agencies necessary to conduct a rigorous

training project. . In'each there were four key groups of .players:

- - Labor unions cooperated in eeferring journeyman crew chiefs.

DOL-CETA resources were used to pay administrative costs, crew. 4

chief salaries, and yoUth stipends.

A-deral and many local ,agency resources were levered for.

construction materials, and for provision of worksites.,

Trainees at the'weight demonstration sites engaged in\a variety of

skills training and comunity tmprovement projects. Trainees, during the

first year of project operations, completed work that included the

following:

In Philall'4ia, trainees completely gutted and rehabilitated

five large duplex residences. These were sold by the city to

low-income residents.

In New Haven, trainees completed 88 work. projects.. They gutted

and rehabilitated residences and community service facilities and

painted a police garage,. A YMCA, a.YWCA and half-way houses.

Chicago trainees gutted and rehabilitated a large six-unit

apartment house; each unit having four bedrooms, and three

two-unit buildings.

Milwaukee trainees completed 152 emergency home repairs on'4,

properties listing from 1 to 67 housing code violations. They

rehabilitated the headquarters of the delegate management agency;

Milwaukee's OppOrtunities Industrialization Center, a ,faoility

with 30 offices. They also gutted and rehabbed two county-owned

two-family dwellings. ,/

a 3

1

1, 1
t-

-- In Broward County., Florida, totinees worked on a wide range of

...projects. Crews completed exterior and interior painting at a

YMCA. They refurbished the local SPCA facility, constructing

walls,' framing windows and laying 'sidewalks. At a large public

housing project, trainees installed sprinkler systems and

security lighting and built barbecue pits in common areas.

Twenty five homes owned by low-income persons were brought

-up-to-code" by the trainees in Atlanta's emergency home repair.

project. They constructed outdoor and indoor access facilities

for a handicapped resident.

- - Trainees in the South Bronx weatherized '25 owne r-occupied homes,

installing new,,roofs and storm windows .and repai boiler and

heating systems.

Newark's crews painted 350 apartments in city-owned low-income

;properties and ;restored and painted a public swimming pool, fire

houses and recreation centers irr "the projects."

Based on their success, the projects were conti ed and prodUctivity

increased. Some siteS-far exceeded their original prof ct completion goals)

and were deluged with requests from local .agencies and i stitutions for the

serv,ices of these VICI'- trained crews.

o Within the national. demonstration, $2,703,396 was levered from

differentgovernmental and other agencies for a 4ariety of purges (this

totalled slightly mare than 33 percent of the total program budget). A

total ;f:$2,033,696 came from the Department of Housing and Urban

Develo ent (HUD): Generally, these funds were used for materials and

supplies. HUD funds were used to make repairs on housing authority stock;,

-3' to rectify codeviolatifts cited against owner occupied residences; and' tb

gut and_renovaie, single- and multi-unit properties which were sold to

. low-income persons residing in that neighborhood.

Other agencies also provided funds. At one 'site, the Mortgage

Guaranty Insurance Corporation (MGIC)', a private agency which insures

mortgages, provided $50,000 for materials and supplies and subcontractor.

services. One prime sponsor received $250,000 from the Community Services

Administration to purchase materials and supplies Such as caulking, window

frames and doors for a-weatherization program. In other city, the local

government 'provided $108,000 in .municipal tax funds ,to purchase needed

materials and supplies.for work on multi-unit residential properties which

were managed by the

Many demonstration sites used Department of Labor Public Service

Employment (PSErfunds to augment the program staff. PSE provided a total

of '$261,700 in staff positions to the VICI sites. These positions included

truck drivers, _inventory clerks, counselors, data collectors, form

developers and bookkeepers. In all instances the levered funds were

mutually beneficial. The. demonstration received monies for materials/

supplies, contractor services and staff. The levered agencies improved

their ability to deli'Ver services to the community and provide worksites

for qualified PSE particidpants.

4
1 c The up progi..am has shown excellent results in,terms of placement and

productive output:

0 Of the 784 trainees who had left the VICI program through

February 1980, 42 percent were positive terminations. While this

',Tate may seem low, it has resulted in large part from the

ill

insistance nn high standardsat VICI sites and termin tion of

those not meeting standards. Rates in projebts based on e VICI

experience may well be lower, given lessons learned cerning

both the type of work for whom VICI is useful and program

mechanisms which encourage successful completion.

o Significant among the 42 percent positive.terminations are these

figures:

- -

- -

275 or 84 percent were employed;

62 trainees, or 23 percent ofathose )empliyed, were indenred44into union apprenticeships; , another 121, or 44 percent of those employed, secured

construction and related jobs; . 4 third group 'of 68, or 25 percent of those employed,

obtained other jobs.

o Among those 92' who became apprentices, the following are noted:

Some VICI trainees were warded a full-years apprenticeshi1p

credit for their VICI training'and experiende.

Ten women graduates.of VICI entered apPrenti eship . o Of all jobs, secured by VICI trainees, 241 or 91 perc nt were

uffubsidized.

o The average wage earned by all VICI graduates upon placement was

$4.59. per hour.

Apart from these pdsitive outcomes for youth, the community was

provided with tangible improv &ments with a substantial dollar value. On

the .average; V;CI produced $.42 of value for every dollar spent on the

demonstration. Some sites produced work valued at about $.70 for each

dollar spent. The model can be specifically designed to prodUce these

higher work values, if desired, and productivity increased over the life of

the projects.

It should be noted also that VIGT work has beem judged to of high,

-'quality. Independent private contractors using average' co struction

quality as a standard, ranked VICI work as above average or verage in

almost all instances.

s.. 5

IC

.0

ti
Critical Elements

VICI was not a rigid. model but rather a general approach. 1CI's

,guiding principleits motto--might be, "Something for everydne"--and

"Something from everyone.":- In designing a link-based model, the project's

planners recognized that no `single agent.), could supply all the resources

needed.. That is, no single agency could:

-- provide' rigorous skills training in various tradgs, making)

-available from its ranks professional, 18w-ratio supervision;

-- guarantee a supplyof suitable worksites;

.1

- - run vigorous recruitment and plaCement campaigns and guarantee

v funds for salaries, materials and supplies; and,

- - provide necessary supportive Services.

What was established, then, was the link ,system of relationships among CETA

prime sponsors, labor unions, city agencies, community organizations,

education tatitutions, and so on, to guarantee that all,,the necessary

ca. if resources would be available to the project.

Hand-in-hand withthe links goes another model principle--levering of

funds. The model; tain in sum, appears to be an expensive one. Supervisory costs are high, youth earn wages and raises, and great quantities of

materials and supplies are required to undertake serious work projects,.

But VICI works because the prime sponsor is able to establish relationships,

with .organizations which have contributions to make. And these con -

tributions, as we-explain below, enable the individual link's resources to

go farther.,

. In the, model, fo instance, CETA doll are spent on administrative

expepses and youth suPervisors' wages and fringes. Primes have to'lever

other, non-CETA funds for materials and supplies, suppo'rt services,

educAtion, and the like. Butif these non-CETA funds are to be levered,

the prime sponsor must 'draw on its experience in' establishing and

maintainipg relationships with several institutions.

Chapter II, "Project Alternatives," explains in detail how the links

are forged and what techniques the prime sponsor can use to maintain them.

The sections immediately following briefly describe what must be available

to the prime in the first place in order to'initiate such a project:

A. Union Involvement:

The pivot on which VICI's success turns is the rigorous and

professional. skill training and work experience which prepares

tralpes for apprenticeships and employment. The key to this

training is most,often the participation in the project by local

labor unions. Most obviously, the unions., are the project's

source for experienced, professional craftsmen, the journe e who supervise the trainees. Because the journeypen know not

their crafts but also the criteria lbr ap*nticeships and em,

6 .1

4.
V

ployment, they will assist in developing training curricula. and

skills progressions, and they are a song. force for quality work

on the training site. And 4hey can significantly enhance

trainees' placement prospects through their Informal network of

contacts.

No less important are the work ethic and job habits which

the journeymen explicitly and implicitly Impart Xo the trainees.

Den those VICI graduate's who have not found apprenticeship

placements have, in impressive numbers, brought to other

employers discipline, reliability,_ and pride in doing a professional job.

While unions were act ive in the.cordStruction industry in

each of the eight VICI sites, we know that some CETA prime

sponsors may, despite their best efforts, hot be able to cement a

bond with a local union. Or,tin some areas there may be-no

unions. Does the prime abandon its-plan to start a project like

this? . , No, not if another orgaazation can provide to the project

the same kind and quality of supervision, training, placement and

production as would a .labor union. 'If there is in the community

a strong building trades or contractors' association, for

example, the prime may want to investigate a link with such a

J.-group.

It is'imPd'rtant to stress that high quality supervision is

e ential to the success of this model--both from a youth

traininb and construction quality vantage.

The Work Providing Link:

ti

On the surface,. this would- seem an easy link to forge.

There are few communities which do not have work waiting to'be

done. Work providing organizatiociis-. are frequently under 40

constraints, regarding the.- amount 'of oney that can be. spent to

improve ,a given 'building or worksite. With their labor costs

picked up by CETA,--the work providing organization can expand the

scope of work at any given site or can work at a larger number of

tt

sites by sbommittings its oWn funds entir

4

ly to materials and

supplies. The prime sponsor will want deal with a- work

providing agency wflich has solid asses for a 'multi - linked

project. -The agency must provide work of sufficient scope and

variety to meet the rigorous. training and work-experience goals_

of the VICI model., A good work providing organization will also

make available appropriate worksites in a timely and effective

manner. And, when worksite selection is the work provider's.

responsibility, the managers are spared the insinuations Of

favoritism and cronyism. --,L...

fr The work providing organization may also figure sig--

nificantly in the levering of. project funds. It must be able to

provide materials and supplies.funds to offset administrative an

7 r18

4
+4

O supervisory costs which arise outside CETA guidelines. It should

provide "in-kind" hssistance, such as insurance and architectural

services, and it will be able to help in expediting licensing,

permits andeinspections. Frhally, it may handle the marketing of

the finished product, thereby producing prodi'am revenue.

C. The Education Link:

One)of the hard-learned lessons Of the VICI demonstration is

I that the education link, while hardest to effect, is an essential,

4 one. Even 'in a program targeted to disadvantaged youth,

preparing them mostl y for manual labOr, there was a correlation

between the traines' education ,and subsequent labor market

r success. The fact is that apprenticeships are virtually

unattainable( without high school diplomas or GED certificates.

Other positive placements increase among those trainees with more

education. Schools are also a likely source_ for drivers'

eduction whidh, at most demonstration sites,, proved, to be

in job placement.

The prime sponsor Will, therefore,*want to work closely with

the local system to arrange for GED and tivers' education

classes for trainees. The school may also bea source of support

services not covered by CETA funding allocations. The .school

system may contribute these services in achange for work done at

the-school by a project work crew. Voc pnal schools may find a

link with the project particularly attr ctive.

Whatever agreement is made, the prime sponsor should

recognize. that the education link--while elusive and intangible--is a critical one. Careful early planning to secure

strong Jcommitment from the local education institutions will

figure prominently in the program's success.

D. Support Service Link:

;1 Since IICETA allocations for the project do not generally

cover provision of support services, the prime sponsor should

attempt to secure in-kind contributions of such services. The

'prime may be able to trade VICI work,for such services, or it may

be able to draw on its own agency's resources. We have learned

in the demonstration project that these services--legal, health,

housing,'persdnal :counseling,. day care, etc.-rare very important

and mustin some measure be made available to trainees.

E'. Levering Funds and Fanding,the Project: . Much of what we mean by ther,p4se "levering funds" hA

become clear already. CETA allocatldhs for the project cannot

possibly cover all the expenses of a highly-structured, rigorbus,

professional '''employment and training program, and the prime

sponsor .must be able (to secure contributions of money, staff,

materials and supplies from Other sources. Later chapters will

discuss in detail how toplan the eoject budget and to Identify

8

19
do fund sources. -Following is a brief discussion ofsome of the

peoject's funding principles.

At a glance, VICI looks like an expensive project. The very

elements that" make the project successful are those things that,

make it appear to be costly.. .w -ratio training by highlyskilled, experienced, profes '.nal craftsmen; intensive work

projects ,requiring consi, le to rials; trainees paid wages

be inning at least at the federa minimum; education and support

4.- ices for all inees; and vigorous placement campaignsall

\these cost m n y and together would ,empty the coffers of any

agency re red to fund the project alone.

But, though each. agency reaps all the benefits, no sin 1

'agency bears all the costs, 'rand each contributihg agency

expect a healthy quantifiable return on its investment, in term

of tangible community improvements, an increased tax basellond in

some cases revenue generated by the project itself. Additionally, each contributing- agency will see .substontial work

Value benefits accure and the community--particularly one with a

large welfare-dependent youth population--will ',gain better

workers and decreased welfare rolls. The work value figures

quoted earlier in this chapter are suggestive. If one-fifth of

a leencies get roughly double' the volume of output they cou7 by

support of the project conies from CETA, the support prOvaing

directly contracting lor the products. The prime sponsor gets

more youth employed at more skilled jobs per CETA dollar when

outside resources ere, tapped.

The eight VICI demonstration sites havilevered funds from a

wide range of sources including local housing authorities, HUD

agencies, CSA and CDA budgets, human resources institutes,

-hodsing development corporations, and more. Nationwide, the

eight 'demonstration sites levered slightly re than 20 percent

of the total funds, and three'sites levered ore than one-third

of their funds from non-CETA.sources.

Some prOjects may even generate some revenue for the prime

sponsoltrig agency or onetof the linked. organizations. At one

--deMonstration site, for example, trainees Worked on abandoned

houses owned by a city agency acting as work provider to the

1

prof ct. Five of these properties were sold by the city as

resi ential. properties. There is no reason that some prime

spon Ors cannot embark on projects which will generate revenue

directly to the project, contributing to making the project that

much less costly, in the long run; andytre sqlf-sufficient.

Internal Programmatic ,Considerations

and levering athe sine quo non for the organization and

operatioof VICI projects, what is even more Eriortant is the substantive m

activity which results. VICI projects have several nique features

relative to more.traditional work experience. projects:.

. 9
e

A. Intensive Supervision:

The _eight VICI demonstration projects -Were `Designed to

employ and train 60 youth at a- time I er,site, with a traineeto-supervisor ratio of six -10 -one. A prime may determine that it

can provide

project may certainly be scaled 'up ,or dun. Yet-a

funds to support more than .60 trainees or that it can

deve4.'$\work4 pf-ojectS sufficient for. only 30 trainees. The.

Itoyera

substantial scale is necessary to ,warrant the organizational

effort and to spread overhead, as well as -to .provide justificatiotildr securing of external funding.

V

c--

What cannot be radically altered, however, is the six-td-one

-\trainee -.to- supervisor ratio which helps to assure' quality of

work, intensive professional training and safety on the worksite.

To set this in perspective, apprenticeship progAms generally

call for the reverse--six journeymen to one apprentice. There

are several factors to consider in ,,establishing the /tfaineeto-supervisor ratio.

(1) Type of Work: In real work situations, the confinesof the

job automatically set limits. For instande,,it is difficult for

4a plumber to supervise two trainees, much less six,-it-Oa small

4 bathroom. On the other hand, a carpenter may be Ve to

super"supervise

vise eight, ten, or more experienced trainees -in fram g, out

or drywalling,,but feWer in finished_carpentry work.

(2) Skill Level of Work: Clearly some'work does not require the

73 amount of.training and supervision as might other work. ;Projecti

involving painting or insulation installaflon, for instance,

.require less oversight.

(3) Trainee Capability: ,Once trainees have had some exposure to

the :training, they need less. supervisiOnin fadt, some exceptionally well-qualified trainees may -.become assistant crew

chiefs.' On theother hand, as youth learn work demands and

require less supervision, the types. of skill levels of work,

usually increase which requires more individualizedtraining and

assistance.

In other words,,tp six- one ratio is not sacrosanct, on

the averue,, howe0er, it ap ears t have been a major 'ingredient

in the slicCess of MCI' and the pr iple feature distinguishing,

VICI from other work programs.

B. ,Training and the World of Work:

The'VICI model simulates the real work world. The benefits

of the low trainee-to-sdpervisor,ratio and of quality, skilled

craftsmen in the project accrue to both trait-Nes-and community in

some intangible ways. In addition to learning trades, the

trainees learn' good work habits and job skills. They learn to

itake direction and to work independently. They learn to come to

work on time, and they quickly learn that they are not paid for

time not on the job.

. * 101/'

21 421101.--
. (1' . 9 In other words, the trainees do more than p4vide physical

,improvements to the ,communities. They 'themselves 'become

disciplined, professional workers. ven those who\do'not apply

their VICI construction skills to their new jobs do apply qther

well-learned skills. They.tbec e, themselves, assets to their

communities ..1 .

. . I

C. Production Versus Training:

. . The healthy tension that exists in the' project must be

maintained by' the project operators; rather than avoided.' If

well-managed, the competition between- meeting! production

deadline on the one hand, and guaranteeing' the of

.skill p ressions,ci on the other, will keep the project on. the

track.

But,-,:to do .this, the prime sponsor must be able to-put

together a s aff of persons'who can satisfy these duarneeds. -At

most of tti IC4 demonstration sites, the agency managing.sthe

project hired as administrators at least one person with 1-,.

fensive knowledge and experience of CETA and manpower'prOgrams;

and at least one person with an extensive background in the

skilled trades: We speak more about this in later chapters, but

the prime sponsor contemplating a project based on thd'VICI model

must recognize that the presence df such persons on the project's

staff is essential.

-

fi WhatNext? # The tvici experiente suggests that the above elements are ess'ental to

the healthy operation of a multi - linked training and employment.program.

We 4o not suggest that the 'entire model can be adapted to every prime

spqnsor's overall goals or to every ommunity's needs and resources.

The.prime sponsor may wish fo example, to train yrKg adults° aged 20

to 25, rather than 16 to 19 years old. The model may be scaled,up or down ' in size to match local needs and resources. Or the target population -may

be limited to women who are single parents. Another prime sponsor may, make

agreement with a work proyider responsible fdf-transportation rather than

housing. Still another might put its trainees to work on rehabilitating

health centers or hospital facilities.

It .is just as important to 'realize when this model is inappropriate.. i TherO are economies of scale and d need for continuity; unless adequate

resources can be provided, and the multiple-linkages achieved, it will be

difficult to market. ,The approach requires attention of the prime sppnsor

° _staff and 4elivery agent staff not 'necessary in- less complete efforts.

---SuppleMentarY sources of funding for materials and equipment must be

availaple Because of the ;high unit cost of the VI'CI approach, ar- rangeients must-be developed to assure that the selected participants are

s those who would' enefit most from this approach. If ithese and other

elements are no available, then more tra 'tional, smaller-scale. fork

projects are probably preferrable.

r

41:
The prime sponsor who determines that the links can be made, adequate f

ften-CETA funds Teverect,, .quality supervision provided, and employment and

apprenticeships secured for a reasonable( number of trainees, and who is

prepared to vigorously guide and monitor the project -to maintain a production/training balance, should view the model with enthusiasm. That

prime will als'o want to read the remaining chapters of this manual, which

were written as a "bow-to' guide'for prospectiVe' operators of such youth

employment and training_p_rajects:' From planning to operating, the step-

' by-step instructions and practical guidelines area contributed by persons

from all VICI quarters: 'prime sponsolt and delegate agency administrators,

national VICI staff at P/PV, Office of Youth Programs (OYP) staff, xi

project staff and journeymen, trainees, .fiscal and research personnel,

representatives of work providing organizations and'unions,' and others.

0

lect Alternatives," Chapter II, describes .briefly and° generally

fou kin. VICI projects currently operating across the cpuntry. _ Also

sug ested are ways in which the multi-linked construction - training model

can be adapted to other kinds of- training programs and to community.improvement programs not geared exclusively,.to housing stock,renabilitation.

We suggest' in this section, .therefore, government agencies anddepartmants

to which. prospective planne;o-might apply for funding. We offer some c7Oes

as to how these funds aa others may be applied to youth training and

employment projects. r Chapter III,' ."Pr9ject 31ann1ng and Linkages, discusses -three

important elements: f.itCal planning, project links and project,Manage nt.

We begin with the 1-isit; of fiscal, pladning. We then explain how t form

the "links," the all - important relationships among the models 'planner , the

unions, work providing organizations, education institutions, etc. And we

provide a, choice between two hypes a project\ management, explaining the

advantages and criteria for each one.

apter IV, "Project Operations, "' offers an array:ALpracticaiZips on

?tart-up, 'fiscal management, payrorling, cost eztimation, skkuring

materials and supplies, scheduling license and permit inspections, and

managing subcontracts--the "nuts and, bolts" which flpuently determine

success or fail,ure of the project. _

Chaptj.' V, "The Staff and tite Trainees," explains what to look for'in

both 'groups/ how to recruit and ,select themhow to.phase them into the

model and how to-prepare them for an unusual project. We explain personnel

policies for each group, support services and skill and wage progressions

for trainees. In this ,section appear guidelines for planning and running

placement campaigns, step -dy -step instructions for staff members, union . reps and trainees in securing employment after VICI training., All this is

explained:in the context of the delicate balanee.of trajning goals and

production goals.

X

Chapter VI, "Some Common Questions and Answers," synthesizes from the,

previous material to pull together, in plain English, answers' to the most

frequent questions about WI-type projects.

The appendices to the manual include other information the pJ and

manager will 'need -- sample forms and reports; purchase order fo s and

12
.cr

procedures ; , a sample set of

planation of the VICI work val

placement strategy; and. more.

ti

VP(

0~1

participant rule

uati on formula an

,

. 13

2

.and regulations; an exmethodology; a,sampl e VICI

)

I

*-

.4. ".

t 2 t"

'.b Qv: 4S. tI V 41

r-4:1 e
CHAPTER II: PROJECT ALTERNATIVES

The' first step in developing a VICI - ,type, project is to determine its

focus. Identifying and selecting among "targets of opportUnity". must'

include an assessment of community needs, the abilities of alternate

delivery 'agents, the availability of supplemental resources,' and the

possibilities for linkages. , There are several-approaches to deciding on appropriate large-scale

community improvement projects. The most obvious is to link up with local

organizations--community.development corporations, tenant or neighborhood

groups, housing authorities municipal. code enforcement agencies -- already

involved in and, funded fork rehabilitation. This has the advantage of

providing co-targeting Of/resources to an area. of established need.

.It may be, however, that the priMe sponsor chooses to do its own

determination of need And initiate rehabilitation in a, previously untargeted area. This determiniation in itself can be an activity youth can

become involved inaourveyihg and analyzing housing stock and demographic

patterns.

In any event, there are several key concepts which are basic to any

decision on how to proceed:

First, federal regulations require .that CETA funded programs:

I result in an increase in employment and training opportunities

over those ordinarily available;

do.not result in displacement of currently employed workers; and,

do not impair existing contracts for services or result in the

substitution of federal funds for other funds in connection with

Work that would otherwise be performed.

N\.,2

Generally, work on low income housing will not, result in any conflict

with these regulations. Work on publicly-owned facilities should be

approached- with these cautions in mindhoweyer. Early consultation with

local labor unions and contractor organizations is importantto assure this

concern is.addressed.

Before commiting resources to a project, the prime sponsor must

determine if the rehabilitation- is in line with an overall improvement

trend in a neighborhood, It serves 'litle useful purpose to expend, resources in a neighborhood experiencingierapid abandonment or intense

vandalism. 'On/ the other hand; CETA prime should assure, to the extent

possible, that' rehabilitation results in upgrading for :current residents,

and does not encourage their displacement with higher income individuals. Iv

The prime Leeds to establish time frames during which it is willing to

commit- resources, and then determine what work can be carried, out dring

that period. At the same time, the work to be undertaken should be such

15

25
that it can be, structured to provide for skills progression for trainees.

'Labor market informdtion should provide a basis form expecting that Sob

opportunities will' be available for trainees in the areas identified for

training.'

. The range of non-CETA tasks which could be involved in this model

include:

doing a commuibWdr4s-s-e-s-snityrmnt;----------,--------1L---''

developing a feasibility study;

//

putting together a funding'package;

determinir homeowner eligibility; and,

procuring; nventory and storing materials and supplies.

The pri Q sRonsor needs to deterthine whether it or a delegate agency should

become' volvedin these tasks. Linki9g with other established rehabilitation resources can reduce involvement.n these activities. ,-

. ,. But the primary' consideration is the type of '`dirk projet which will

be initiated. VICI involved four,major types of wort projects: ',emergency

home repair; painting, weatherization, and "gut" eahabilitation. The

typologies which follow, describe /he m in elements of each ?of these

programs in general contexts. t Gut'Rehdbilitation

1. Objectives. A gut rehabilitation program seeks to return uninhabitable urban retidences to -the functional housing inventory. Thete

residences may have een abandoned by the previous owner, damaged by fire

or otherwise rendered unfit for occupation.' Trainees'gut out the damaged-0P

portion of the interior and exterior, perhaps down to the original exter'Por

walls; and then rebuild the dwelling-within the existingohell.

2. History/Value. The VICI national demonstration sites. achieved

&impressive successes with gut rehabilitatibn work projects. In the first

year, work on, more th,an a 'dozen single- and two-family dwellings was

completed and one large six-unit building was.nearly completed. Att one

site, crews' began the interior demolition work on an eleven-unit building.

Gut rehabilitation was frequently chosen by VICI operators' because of

. the solid prospects it offered for training and visible community im:

provements. At such worksi,tes, the project exposed trainees to all facets

of the residential construction trades, including demolition,' rough and

finish carpentry, basement and foundation work, roofing, electrical,

plumbing, heating, cement finishing, plastering, drywall installation, and

,taping and painting. Gutting an renovating a dwelling algo followed a

natural (progression of skills, rom, pure physicallabor in the,demolition

stage through advanced ca try and painting ,tasks at the finish stage.

16

26

mr
- , At each particular stage of the gut rehabilitation process, this type

of project has much to offer. The demolition phases allow for an introduction to safety and first aid practices. The lengthy duration of tgework at one site reduces the ft-logistical difficulties of transferring

materials and crews. An unoccupied dwelling ha,advantages as-a*training

site, including the capacity to establish make-shift classroom settings and

easier storage of materials and equipment. Finally, a completely rehabilit ed dwelling is an impressive community improvement, visible to

area res.' nts and public officials alike as -a tangible sign of neighborhood reju ation.

3. Disadvantages. The magnitude of a gut rehabilitation worksite

also copgtitutes its chief drawback. Each site requires substantial

yaterials and supplies, .thereby lessening the number of projects that can

/be undertaken. The liceiving, permits and inspections processes are more

frequent and more rigorous in these,worksites than, in emergency home

repairs. The range of trade' areas and subcontractbrs required for gut--

rehabilitation. demands tighter and more complex scheduling. All in all,

however, gut rehabilitation provides a superior setting in which to

accomplish the training and community improvement goals of such a project. F

4. Work Provider. Most citie have designated as work provider a

municipal agency,.or quasi-public corporation whose mission is to renovate

substandard housing and return it to _,housing inventory. This

organization normally receives Community DevelopmM-Block Grant funds and

.a variety of low-interest federally subsidized loans and-construction

funds.) The agencrgains title to the properties through condensation or,

tax sale and contracts with a construction firm to completelfrehabilitate'

them,.into single, or small multi-family residences. In other cases, the

agency transfers the title of the dwelling to a community organization that

w:11, in its turn, rehabilitate the property and sell it or holdrit for

rentals. In yet other instances, A property is turned over to a "home:"

steader" who promises to rehabilitate and live in the-property for a

five-year period.

Work providers in the national VICI demonstration filled all of these

roles. In one instance, the city agency retained title to the property and

employed the VICI projedt as a general contractor to perform the re- habilitation. The city agency then sold the,dwellingAfgn its " completion.

In other VICI sites, the VICI operator obtajArtitle lithe dwelling,

rehabilitated it, and then held it for 4ile or rental' low-income

community residents.

,..aT. , il

5. Trade Areas. Several types cr construction wogers ca be . usefully employed trained in a gut Mhabileitation prolkt, including

the carpentersi, drywall tapers, plumberpLelectriciog; laborers and

painters... In addition, plasterers can be en_0144444410iftses with basements

and outside walls that quire the application of stucco cement, and

,bricklayers are useful on .masonry and stone houses, The bul -k of the work

will be done by carpentry ,and labor crews, while intermittent, miscellaneous trade (areas will be covered by work crewsion a revolving basis.

For this reasok, it may be necessary to have an emergency home repair

component to provide work for' the plast ring, painting and roofing crews

during "off" timesat the rehabilltati sites. Several VICI programs

solved this by hiring subcontractors td p rform speciality and mechanical

47

2
,

I 1 ,

, work (such as. roofing and plumbing) after first eliciting agreement from

the subcontractor to supervise a two- or three-man crew of VICI participants. This allowed the projects to' add a ,trade area, and the

associated skill training and placement possibilities, without having to

7 hire craftsmen in these trades for the duration of the project. r

. Emergency Home Repair

..... r

1. Objectives. An emergency home'repair program (EHR) provides home

improvement services, either on a small or large scale, to qualified

property owners. An EHR program may offer two options. -tile-program option

,,is doing minor repairs such as replacing windows, locks, door hinges,

electrical socket or fixtures. The second option is to do major repairs,

including Porch, atstruction, installing new electrical service, replacing

plumbing systems, and-replacing roofs and deteriorating foundations.,

f2. History/Value. Ofterimunigipalities have a backlog Of properties

. with existing code violations. They are owned)by elderly, economically

di advantaged or uneployed persons, who are unable to make the needed

improvements. Some residents may have considered abandoning these

properties. In such cases; the local. housing code, enforcement agency, in

conjunctiOn with the multi-linked training program, has the unique

opportunity to improve living conditions and maintain the health of the

neighborhoods, and to provide a continued tax base for municipal coffers.

Experience has shOwn that lcode enforcement agencies are amenable to

providing such assistance to homeowners. . 3. Source'of Funding. Most municipalities 'have obtained federal

funds for housing impr vement or have made commitments from their own

'municipal revenues. Th prime sponsor, should seek out these funds, 'makisg

sure that they can be a plied to the program goals. Properties targeted by

HUD, CSA, .DOE, and state governments have funds available for housing . programs. It is to the benefit of all concerned that the housing stock and

real estate revenues be maintained.

4. Wo rk Prov . The best work provider is an agency which can

provide materia s funds, unfulfilled community commitments and .is capable of providing necess, work orders in a timely fashi* An agency\

with deep community ties, which has been unable to satisfy those com- N

mitments, is a likely asset because it will look upon the program as a

method of fulfilling its mission and it will provide quantitative support

services to the program, including prompt work order assignment, initial

cost estimates, transportation services and sign-offs on completed workN

orders. ,.. A single work provider may be available to the program; for example, a

relationship established with the Focal housing authority .could guarantee . work orders .on a continuing bas' i throughout the demonstration. Such an

agency would have systems in place which would be an asset to the. program.

A list of properties needing services would be immediately available.

Estimators, inspectors, materials and truck drivers could supplement the

existing program staff. Training of new staff would be minimized.

18'
0

Alternatively, the prime may contract with a'number ofwork providerS.

The managing agency could search out local agencies and organizations in

need of assistance. In accordance with government regulations, the

delegated managing agency must consider the type of agencyc its goals,

source of funds and services needed. For example, agencies such as the Boy

Scouts, Young Men's Christian, Association (YMCA) or loll board of

education would be acceptable as worksites. Work on the. sanctuary of a

church would, on the other hand, be disallowed due to constitutional

separation of church and state.

5. Unions. A prime spfinsor contemplatirig an emergency home repair

project will negotiate with a range of unions, including any of the

following: electricians, plumbers, carpenters, trowel trades, painters or

plasterers. The prime should also consider the type of structures to' be

serviced and *what the EHR program will emphastzt. Substantive corrections

should be the focus of the production and training goals; cosmetic

improvements will be an added,program benefit.

6. Advantages/Disadvantages of an Emergency Home Repair Project. A

major home repair program presents the following advantages and disadvantages: Ai

A

- - If major repair is emphasized, less frequent scheduling is

required because'thert are fewer work orders.

Participants acquire more in-depth training experience in a major

home repair program. Therefore, participants will face better

placement prospects upon graduation.

MOW

Community improvements performed by a major repair program are

more visible? .The participating "links" are therefore able to

get better publicity from such a program.

In a major repair program participants have the opportunity to

rotate. through different trade areas, and to Lain greater

knowledge of each.

Some major repairs may entail more sophisticated work thaitcan

reasonably be expected of trainees. It is possible that master

journeymen, such asp licensed plumbers or electricians; may be

needed to perforru'work to meet certain municipal codes. Salary

demands will prohibit their full-time, joennanent employment in

the project ,and they should be hirein an as-needed basis.

The program planner should be aware of these potential work provider

problems: , If there is only one work provider, the program is totally

dependent upon a single source of properties.

Multiple work providers also present problems. The' managing

agency is likely to maintain a stronger rapport with a single

work provider than it .would with multiple sources. With multiple

work, providers, it is more likely that pre-arranged inspection,

19

20

a

(

/"
MOM

referral and sign-off systems will filter, since they_are less

frequently used.

Participating agencies must be_ cognizant of potential scheduling

difficulties. All work providers consider their work a priority;

therefore, scheduling should be a joint venture, closely coordinated and soundly structured. 1/4 Minor repair programs present a different set of advantages and disadvantages: A

- -

110111=

Painting

1. Ob'ectives. A painting program seeks to provide painting and

related services to the community., Tile services ma include interior and

exterior painting, in such sites as recreation areas apartments and publc

' areas in apartment houses, day care centerS-;-pol e and fibre stations, and

the like. Trainees prepare properties-for p nting, including,in such

preparation glazing,. taping, scraping, etc.

A program emphasizing minor repairs must constantly Oder

materials, pay, bills and schedule work orders if it is to

maintain an uninterrupted flow' of services rendered. Close

coordination between the local management, agency and work

provider.is a necessity. , 4

Skill progression is another concern. A minor EHR program must

,make sure that the worksites provided offer suffiCient opportunities for skill development. Otherwise, skill acquisition

and potential placement will be severely minimized.

2., History/Value. In most municipal'ties, the local hqusteg,

authority has an abundance of properties requiri ervices. The housing

authority has predeOrmined dates for providing general maintenance, repair

and painting services. Even though the goals for services have been set,

the housing authority is usually unable to maintain the goals. While the

housing authority may lack the manpOwer to do its work, it .does have money

and Materials.

)=1" In the VICI demonstration, the single-trade-,program which, provided

only painting services completed work op over 350 one- and two-bedroom'

apartments in a one-year period. Traineesralso painted public,areas, a

firehouse,:swimming pool and recreation facilities.

3.. Source of Funding. Monies for surf i a program can be derived from

a variety of federal departments and channelled through local agencies.

These include, but are not limited to, the Department of Housing, and Urban

Development (HUD.), Department of Energy (DOE), and Department of Labor ;--

(DOL). Each department has different governing guidelines and the

management agencrshould!make sure that these guidelines are congruent with

their particular goals. Within the demOnstration, materials funds were

derived from the local housing authority and municipal coffers.

a 20

:30
4. Work Provider. Perhaps the best work provideryi171-47-be either a

municipal agency or local housing authority. Both agencies would have

existing lists of properties requiring services, and both would have

systems and monies in place which could be madeavailable to the program.

In tje national demonstration, lists of eligible properties needing paint

serVices were available. The city government had set aside monies for

painting and other property improvements. Also, a warehouse facility was

available where paint, ladders, drop cloths and other materials were

stored. i

5. unions. The local management agency should assess the community

needs and existing relationships with local trade unions before selecting

trade unions. Consideration should be given .'the ability of that trade

area to function independent of other up rting nions. For example, if

the projected program is to emphas e th paint .rade, what preparation

must be done before the painters ar able o fulfil their responsibility?

If tentative, work orders require umbing, carpentr or electrical work,

the_local management agency will need to h. e thes services provided by

the work provider or make other arrangements. Su h coordinVion can,:be

minimized and possibly deleted if the work p v der refers properties

needing only painting service.

6. Advaniaages/Disadvantages. Within the demonstration, a singletrade paintinglorogram was operated. A single-trade program will have the

following advantages whether it is related to painting, carpentry, masonry

or electrical work:

It allows the funding source to establish a close rapport with

one particular trade union.

The scheduling and re- scheduling of work is easier.

There is a cost savings on bulk purchases.

Reassigntent of participants, when a journeyman is absent or on

vacation, is easier.

Placement opportunities should be enhanced due to the extensive,

inideptbtraining.

The disadvantages are:

The works provider must be able to provide a regular schedule and\

variety of work orders.

A program offering one trade can easily become monotonous if it

is note properly structured; therefore a cdhcrete effort must be

directed at obtaining a variety of work orders offering increas

kill development.

The local economy may not be able to absorb a mass entree of

persons from a single-tradl program.

'21

31
-4.

- - It may be/necessary'to have another trade area ke repairs prior

to the intended repairs. Forexample,., a roo needing painting

services may require replacement or repair of 'a wall .(earpenters)

before painting'takes place.

Weatheri tion

. Objectives. A weatherization program seeks to minimize or

eliminate, fuel and energy loss. This is accomplished by correcting

structural deficiencies and deterioration. The primary improvembnts made

in such a program would be roof repairs, replacing windows and moldings,

caulking, brick pointing, installing gutters and leaders, bricking in

windows and repairing oil burners% . 2. History/Value. Within the national demonstration, the program

that focused on weatherization provided extensive services to approximately

25 properties in the first year of operations. All the kinds of work

described above was completed on multi- And single-unit residential

properties. The results of the project were significant savings in energy

costs and improved living conditions for the residents.

3. Source of Funds. -Due to the present energy crisis, an expanded

emphasis has been-placed on energy conservation. The government is making

a concerted effort to'minimize energy loss. Monies for weatherization can

be, located in a variety of federal departments. These 'include the

Department of-Housing and Urban Development (HUD)', Department of Energy

(DOE), and Community -Services Administration (CSA). Funds for weatherization and energy Conserfition are increasingly available but there is red

'tape and frequent delays in securing these funds. Often times, this system

is quite burdensome and'lengthy due to either federal, state or municipal

,requiremen . It is quite possible unldss proper planning takes place,

'fthat resour s will not be available when the project is ready to get

underway.

A comprehensive weatherization program will have a high per-unit cost.

For example, doorS and window frames will have to be made. specifically for

a partictar work order. The prime sponsor seeking materials funds should

be aware of the potential expense and he prepared to obtain funds prior to

program start-Up. Also, a,..system Must be designed to-ensure that the

program will always have materials funds on hand. Suppliers will be very

interested in prompt payment of bills due to their cost outlay and the fact

that made-to-order items are non-returnable.

4. Work Provider. because of the fragmentation of weatherizAtion

efforts at the local level, it may be difficult to locate an agency(which

has a list of properties which require such services, In the VICI

demonstration, the delegate managing agency interviewed hOmeowners and.

, certified their properties as being eligible for services.

.06 An- ideal situation is one in which a work provider has funds for

materials and supplies but funds insufficient to cover the cost of labor,

as well. If these funds are paired with CETA funds for enrollee costs, a

significant impact on the community can be realized. It is important that

22
,the wort provider evaluate the properties referred to"determine what wil

be the actual impact on the homeowner and the likelihood of, continu d

homeowner occupancy after the work is completed.

5, Unions. The trade unions involved 'depend totally on the

program's goals. If the project aims it extensive weatherizationand also

at .cosmetic improvements, the unions linked might include trowel trades,

carpenters, roofers, plumbers, painters and plasterers. If the program

aims at limited.weatherization services, the unions will include trowel

trades, carpenters and roofers. In many areas, 'unions have played

limited role in weatherization, efforts' so linkages must be forged scrata.

f

6. Advantages and Disadvantages. The advantages are:

-'-

AM OP The weatherization program allows for stockpiling materials, such

as sheetrock, tar paper, molding, caulking and insulation. This

can mean less lag between.o dering And work and can also allow

bulk purchasing and suppliers dlscounts. . Participants can leaim a wide variety of skills, in trades which

will be in increasing dem nd as weatherization funds mai

available more jobs in ,the near future.

The disadvantages are: ,

- -

Due to size and bulk of materials necessary for a job, .the

project must have its own truck or van. This will mean that the '

program must hire a truck driver and contract for aisurance and

vehicle' maintenance.

-items such as doors and windows must be ordered individually from

the supplier and, therefore, the project staff must give the

supplier adeq ate advance notice. This requires complex and

'careful worksi e scheduling.

Federal regul tions governing the expenditure of DOE, DOL, D and GSA funds are sometimes contradictory and confusing. Staff'

must be traine to interpret these rules and to select properties

which are eligible for program services.

Most of the-iork,--such --as caulking i- involves only -a_limitedamount of training. A Other Possibilities

%., The projects initiated under VICI cacentrated on these four areas:

painting, weatherization, emergency home repair, and ho sing'' rehabilitation. One of VICI's most, important lessons, however, as that the model

adapts readily to a wide range of government programs and funding sources.

There are a variety of other projects And funding sources which would

appear to be likely candidates for multi-linked, community improvement,

skills training projects. The,; following list is suggestive. For more

details, -consult the Catalog of Federal Domestic Assistance and/or the

. I 23

t33

,k

L
local office 4 the department or agency in question, as well. tiie . various state and local government offices in your area:

HEALTH CARE 1 COFDA # 64.0051

Grants to States for Construction of Stat Home Facilities. _Federal Agency:

Department of Medicine and Surgery, Veterans Administration.

r The objective of this program is to aWs.t states to construct home

facilities for furnishing domiciliary or 'nursing home care to

veterans, and to expand, remodel, or alter existing buildings in order,

to-furnish such care. Grants must to used for construction (land is

excluded). Any state may apply after assuring that,the assisted

facility will be state-operated and Used rimarily far veterans,

Joint funding is available(seeOMB Circular No. A-111). The estimated'.

available funds for Fiscal Year. 1980: $7,500,000; for FY '81:

$15,000,000.

The effort here would be to employ the youthpopulai*n on portions of

particular construction.projects of the VA.

. COFDA # 10.405

Farm Labor Housing Loans and Grants. Federal#.Agency: Farmers Home Administration, Department of Agriculture.

The objective of this program is to provide decent, safe and sanitary

low-rent housing and related facilities.(suci as small infirmaries)

for domestic farm laborers. .Loans are availabl to farmers and

associations of farmers. Grants are available among others,

broad-based nonprofit organizations and nonprofit corporations of farm

4(orkers. (Grants are available only when pressing need can be shown

and there is no other alternative.) Jointfunding is available (see

Circular No. A-111). Estimated loans for FY 1980 are $30 million and

grants, $25 million. Rural CETA organizations should take special

notice of this and similar programs.

COFDA # 52.007

Ozarks Health and Nutrition Demonstration Projects.

Regional Commission.*-

The objective of this prograT is to pr9yide a flexible approach to

health demonstration projects through community Planning on a multi4

Federal Agency: Ozarks

*Ozarks Region consists of Arkansas, Kansas,, Louisiana, Missouri and

Oklahoma. . Appalachian Region conssts of designated counties in Alabama, Georgia,

Kentucky, Maryland, Mississippi, New York, North, Carolina, Ohio, Penn - '-Sylvania, South Carolina, Tennessee, Virginia and all the counties of West

Virginia.

Coastal Plains Region onsists of designated counties in North Carolina,

South Carolina, Georgia, Florida and Virginia.

24

3e;
cou y basis. Grants,fflay be used for ,planning, construction, equip- men and operation of, multicounty demonstration health and nutritionprojects. Joint funding is available (see' OMB -Circular No. A-111).

Applications may be made by states in the region, health systems

agencies, local. governments and nonprofit organizations. Estimate FY

1980: $300,000.

It should be noted' that other regions- have similar assistance

available.* Those programs are: --Appalachian Health Programs ($23.7'

million); Coastal Plains Health and Nutrition Demonstration Projects

($150,000);, Upper Great Lakes Health and Nutrition Projects ($50,000).

In most cases( applications for funds from the Regional Commissions.

are proce through theApvernor's office of the state in which the

projects re to be- operated.

TRANSPORTATION

a Transportation and related projects have. 'excellent rteptial .for

projects in that they involve the transportation and railroad unions, as

well as the traditional VICI construction unions. Further,sthe current

Concern with energy and fuel., conservation .has increased commitments to

improving, transportation systems across the.country. Programs with a dual

emphasis--on energy and, transportation- -are quite feasible in some locales.

COFDA # 20.205

Highway Research, Planning and Construction. Federal Agency: Federal Highway Administration, Departmeneof Transportation. -

The objectives:- assist, State highway agencies in construction and

rehabilitatipn of the Interstate highway 'system' and also prim0y,

secondary and urban 'roads and' streets; to replace or rehabilitate'

unsafe, bridges. Funds may be app'ied to highways, bridges., bikebays,''

. pedestrian walkways, fringe and 6Prridor-parking facilities and `rest

4 areas. This program is eligible HI' JOInt funding but the initiative

lies with the 4State Highway Agency (see OMB Circular Noi. A-111).

Estimate FY 1980 grants': $.6f billion.

*FourCo rners_Region consists of Arizona, Coldrado t

Ne_ w 'Mexico,.Nevada and

Utah. . Upper Gr4at.LLakes Region consists, of designated counties tinlAtchigan,

a Minnesota'and Wisconsin. 4

Old West Region° consists of Montana, Nebraska, North Dakota, South Dakota

and Wyoming. -

. New England .Region consists of Connecticut, VMainef Maissachusetts,

Hampshire, Rhode Island and Vermont.

pacific Northwest Region consists of Idaho, Oregon, Washington.

25

3,5"

New

afr

F

111

9
CODA # 48.004

Ne England Regional Transportation. Federal Agency: New Eng

Commission.

A

d Regional

Z,

4) The objective of ,this program is to develop, through meaningful

planning, the proper mix of all transportatioimodes which.best serve

.4he economic', social and enviOnmental interetts of thepRegion. The

grants may be used for planning, equipment purchase, construction and

Aperation of demonstration projects. Joint funding is available (see

OMB'Circular No. A-111). Estimated-FY '1980 grants:' $2,750,000.

It'should be noted that other regions have s ilar assistance available. Those programs are: U,ger Great'Lakes ional Transportation

($100,000); Ozarks Regional Transportation, ,0Q0 ; Pacific Northwest Regional Transportation; and Coastal Pla s Regional Trans ortation.

COFDAO, 11.308

Grants to States for Supplemental and Basic Funding of Titles I; IV / and IX Activities., Federal Agency: Economic Development Administration Department of Commerce.

. The objective here is to provide funds to enable governors to select

projects which will assist in the construction of public facilities

and other projects which meet the criteria of the above Titles and are

needed to initiate or enhance long-term economic growth. Grant or

lop monies may be used for, among other thinbs, construction of such

publjc works as ccess roads, port- facilities, rap road sidings and

li spurs; etc. S te, local subdivisions thereof, Indian tribes and

public or pri to nonprofit organizations or associations repreSenting

designated redevelopment qr.' economic development areas are eligible.

Joint funding is available (see OMB CircUiar No. A-111). FY 1980

estimate is $20 milliori.

COFDA # 2P.501 a . Urban Mass Transportation Capital Improvement Grants. Federal Agency: Department of Transportation. '4 .a The Objective is to assist in financing the acquisition, construction,

reconstruction and improvement offacilities and equipment for mass

,.transportation service in ,jrban areas. Although most of,the grants

.mr have been_ in the areas_ of railroads and buses,_other fams-of

portation (such as boats and people-movers) have received assistance.

Public agencies, of course, may apply. But, private transportation

companies may participatp through, contractual arrangements with,a

public agency grantee. Capital funds are also available through' the

states to private, nonprofit organizations for the purposiveof providing transportation services to-the elderly and the 'handlsapped.

Joint funding is available (see OMB Circular No. A-11,1). "FY 1980

estimate: $1.4 billion; FY '81 estimate: $2.48 billion.

26
st.

COFDA # 23.008

Appalachian Local Accs Roads. Federal Agency: Appalachian Regional Commission.

The objective is to provide access to industrfal, commercial educational, :recreational, residential and related tranbportation

facilities which relate to the improvement of the area. Grants may be

used for engineering, righttf-way, relocation' and construction.

Jotpt fjonding is available (see OMB Circular A -ill). FY 1980

estimath is $15 mil lion.

40 COFDA # 48.002

New England Technical and Planni

Regional Commt'sion.

tance. Federal Agency: New England

The objective is to evaluate the nee 'earl .develop the potentialities for the economic growth of the 'Region through a variety of means

including demonstration projects and training programs.- Efforts are

concentrated in three priority areas of energy,*transportation, and

commercial/industrial development. The emphasis in the transportation

area is on the Region's rail system. FY 1980 estimate is $5 million.

COFDA # 20.102 - Airport 'Development Aid Program. Federal Agency: Federal Aviation Administration, Department of Transportation.

V

1

... HOUSING

The objective is to assist public agencies in the development'of

nationwide system of public airports. Grants can be used for

construction, alteration arid repairs of facilities and equipment. FY,

1980 approwriation is $640 million.

VICI.has a. proven track record in housing., The manual suggest9, sources of 'funding in addition to those listed below; program planners

should be able to identify still more.

COFDA # 14.218

Community Development Block °Grants/Entitlement Grants. Federal Agency:

Community Planning and Development, Department of Housing and Urban Development.

The objective' is to develop viable urban communities and expand

economic opportunities, principally for persons of low and moderate

incom#s. Some of the specific activities, that can be carried out with

block 'grants: rehabilitation of residential and nonresidential

structures and provisions of public facilities and improvbents such

as neighborhood centers. Eligible applicants are cities in SMSAs with

over 50,000 population, urban counties as defined in the Housing and

4

27

3 7'

a
Community Development Act, and central cities with. populations under .4. 50,000. FY 1980 estimate is $2.7 billion.

COFDA # 14.2aUrban Development Action Grants. Federal Agency: Community Planning and

Development, Department of Housing and Urban Development.

The objective here is to assist severely distressed Cities and urbiiicounties through economic development and neighborhood revitalization.

Assistance may be used to support new, housing construction. Joint

funding is available (see OMB Circular No. A-111). Eligible

applicants are distressed cities and urban counties which meet minimum

standards of physical and economic distress, which demonstrate results

in providing housing for persons of low and moderate income, and which

demonstrate results in providing equal opportunity in housing and

e loyment for low and moderate inconi& persons and members of minority

gro s. FY 1980 estimate is $400 million.

COFDA # 49.01 ,. Cbmmunity Ec nomic Development. Federal Agency: Cammunity Services Admit/L.

. istratfon

V

The objective isto promote special assistance programs to private,

locally-initiated community development corporations (CDCs) in order

to arrest chronic unemployment and community deterioration in urban

and rural areas and to invest to start, expand or locate enterprises

to provide employment and community ownershi opportunities for the

residents of such areas. A CDC may plan an invest in such projects

as housing, land development, industrial par s and commercial centers.

Joint funding is avai le (see OMB circ lar No. A-111). FY 1980

appropriation is $44.5 illion. FY 1981 timate is $48.5 million.

COFDA # 14.506

General Research and Technology Activity. Federal Agency: Office of Policy

Development and Research, Department of Housing and Urban Development.

The objective is to carry out high priority research anddem9.stration

programs (pre-selected by the Department) to serve the' beds of

housing' and community development groups and, at the same- time, to

improve the operations of the Department's programs. Among the

-research-areas-eltgfble-for-grants are: .energy conservation, national

housing needs, evaluation of existing 'housing and ,community development programs. Contracts, grants and cooperative agreements are available to State and local governments, in44stry and nonprofit and

academic institutions. Programs are already underway in neighborhood

preservation and revitalization, community development and growth,

solarlenergy applied to housing needs and urban economic development.

FY 1980 estimate is $53 million.

28

9 0
COFDA # 23.005

Appalachian Housing Project Planningloan, Technical Assistance Grant and

Site Development and Off-Site Improvement Grant: State Appalachian Hous,-

ing Programs. Federal Agepcy: AppalachianpRegional Commissioh.

The objective; besides stimulating low and m derate income housing,

construction and ¶rehabilitation, is to assist i site development and'

U off-site improvements. Site Development and Off-Site Improvement

grants ,may be used only for reasonable site development costs and

necessary off-site improvement costs when used in conjunction with HUD

and Farmer('Home Administration and/or state low 'and moderate income

housing programs. These grants must be essential to the economic

feasibility of housing constructed or rehabilitated for low* and

moderate income families and individuals. Private nonprofit or-t

ganizations, limited dividend organizations, cooperative organizations

'and public bodies are all eligible to apply. The Project 'Planning

loan is basically a loan program; however, in some cases of demonstrated need, the loan may be partially or totally waived.

A

ENERGY

The South Bronx's VICI focused on weatherization.. Energy-related.

programs can involve more than weatherization, however. Program operators

should consider the possible relationships between energy and transportation and energy and-recreation and more.

COFDA # 81.041

Weatherization Assistance Program for Low-Income Person?. Federal Agency:

Department of Energy:

The objective 4of this program is to insulate the dwellings of lowincome persdns, particularly the elderly and handicapped low-income,

in order o conserve needed energy and to atd those persons least able

t r higher utility costs. Grants may be used to install ceiling

insulation, caulking, weatherstripping and storm windows and to effect

furnace effiCiency modifications. States, including the District of

Columbia, and in certain instances, Native American tribal organizations are eligible to apply. If a state does not apply, a local

government or, a Community Action Agency within that state' can apply.

FY 1-980-estimate-is---$198-a-50-,-000-;--FY-181:- -1198004400.

COFDA # 52.005

Ozarks Energy Demonstration Projects and Programs. Federal Agency: Ozarks

Regional Commission.

Stress here, of course, is on the regional aspects. Among the

objective's: to demonstrate innovative methods of produCing energy,

conserving energy and converting to alternative energy sources. Programs have been as varied afunding a demonstration project to use

29

3) .

or'
't

solar energy to heat poultry shelters to a project studying coal

transportation requirements for the region. Joint funding is

available (see OMB Cirdular No. A-111). FY 1980 estimate is $200,000.

It should be noted thet other regiohs have similar assistance

available. "Those programs are: Four Corners Energy Demonstration PeWjects and Programs ($3.5 million); Upper Great Lakes Energy

Projects and Programs ($100,000); and Pacific Northwest Energy

Demonstration Projects and Programs.

EDUCATION

4"-

Program planners should strongly consider a link between the project

and a local school system. In exhange for improvementsmade by trainees in

school faCilities, school administrators might pr6ide intensive GED

instruction, remedial education, driver's education, support services and

the like for trainees.

COFDA # 13.515 - Emergency School Aid Act--Basic Grants to Local Educational Agencies. Federal Agency: Department of Education.

The objective is to assist the process of eliminating, reducing, or preventing minority group isolation and aiding school children in_

overcoming the educational-disadvantages of minbritygroup isolation.

Local Educational Agencies can use funds for many activities including

minor remodeling. Joint funding is available (see OMB Circular No.

A-111). 'FY 19 estimate: $137,600,000.

:COFDA # 13.477

School Assistance in Federally Affgcted Areas--Construction. Federal Agency:

tupainent of Education.

The objectives are to provide assistance for the construction of

urgently needed minimum school *facilities in school districts yhich

have had substantial increases in school membership as a result of new

or increased federal activities,-or where reconstruction of facilities

is necessary because of natural disaster. Joint funding is available , (see OMB Circular Nq. A-111). Emphasis for-fiscal years 1979.and 1980

is on Indian school construction as well as.meeting the bvitical con- struction needs,on federal, installations. FY 1980 estimate is, $45

million.

COFDA # 23.012

- Appalachian Vocational and Other Eldation Facilities and Operationi.Nfederal Agency: Appalachian Regional ommission.

The objectives are to provide the people of the region with the basic

fadilities, equipment and operating. funds for training and education

30

a
necessary to obtain employment atthleir best capability for available

job opportunities. Funds may be utilized' for construction and

equipment including education demonstrations. Joint funding is

'available (see OMB Circular No. A-111). In- fiscal 1979, an estimated

45 construction proSects and 90 additional operating -And demonstration

projects were expected to be approved. FY 1980 estimate is $19

million.

RECREATION

yr In Broward County, Florida, the prime sponsor secured some Cominunity

Development recreation funds to support the VICI project. Urban recreation

facilities will receive increased attention 1n the coming years as,fuel

conservation efforts encourage people to look closer to home for these

activities.

COFDA # 15.400

'Outdoor Recreation--Acquisition, Development and Planning. .Federal Agency:

Heritage Conservation and Recreation Service, Department of the Interior.

The 'objectives are to provide financial assistance to the,states and

their polqi al subdivisions for the preparation of comprehenkive

statewide ou door recreation plans and acquisition and development of,

outdoor rec eation areas and facilities for the general public.

Grants are wide-ranging; i.e., inner city parks, bike trails, picnic

areas, and such support facilities as roads, water supply, etc. ,_ Priority consideration is generally given to projects serving urban"

populations. Joint funding -is available (see OMB Circular No. A-111).

FY 1980 estimate is $359 million. . . *COFDA4-75.003

Old West Supplements to Federal Grant-in-Aid. Federal Agency: Old West

Regional Commission.

The objectives are to enable'states and other entities to take maximum

advantage of federal grant-in-aid programs for the construction or

equipping of facilities or the acquisition of land. Grant-in-aid

upp.lements provide a portion of the local share of federal grant-

'n -aid programs when the community, because of its economic situation,

annot supply the matching share. Joint funding is available +see OMB

ircular No. A-111). More than one=half of 1978 funds went to

creation and tourism projects FY 1980 .estimate. is $1,650,000.

I shod be noted that other regions have similar assistance'. Those

p °grams are: Appalachian\SuppleMents to federal Grant-in-Aid ($50.9

m lliOn); Coastal Plains Supplements to,Federal Grant-in-Aid; and 4 ''er Great Lakes Supplements to Federal Grant-in-Aid ($4.1 million).

31

41.
r"

Generated Income /

Another source of supplemenfAtion for project wsts is generated

income. ,The typical work experience and training project hires youth to

* perform minor community improvements and pays the youth out of CETA funds.

Occasionally a community development agency, will provide funds for hand

tools or_consumable supplies. The product of such a project has little

value on the operi market, hence little potential to produce revenue. A

multi-linked, fund-levered project'has, on the other hand, a real potential

to generate some income, an important factor for _prime sponsors to

consider.

One site i"n the national demonstration received title to three

abandoned houses and one unfit six-unit apartment building. Using CETA

funds for wages and administrative costs and a Community Development grant

for materials and supplies, these buildings were renovated and returned to

the housing inventory. When the work was done, the three houses were,sold

and the apartment units held by the CETA project operator for low-income

rental. This generated revenues of approximately $70,000 from the sale of

the houses and $15,000 in annual rental income. At anothersite, five

abandoned houses owned by the city housing development corporation were

rehabilitated and-sold to low-income community residents, realizing for the

housing corporation roughly' $100,000 in revenue. At yet a third site,

eleven vacant single-family homes were renovated and sold to target-area

residents, generating over $200,000 in revenue. Finally, in another city,

under contract to a county housing authority, the project gutted and

rehabilitated two duplexes to be occupied by low-income renters, producing

roughly $12,000 annually for the county.

federal government his a The very specific' policy regarding the

disposition' of any such revenue that is generated by federal dollars (see

20 CFR 676.36). In essence, all revenues are to be reinvested in the same

or sAlmilar programs. Although the regulations, may vary somewhat from

agency to agency, this means that revenue from the sale of -a CETA rehabilitated house must be applied towards any 'CETA activity authorized

under the former grant or agreement; The Department of Housing and Urban

Development has 'similar regulations governirig the revenue generated through

the sale or rental of HUD-funded projects.

When the funding comes from two or more sources- -for example, HUD and

CETA--then the program revenue is allocated among the funding sources

according to the proportion of funds invested in the project. Howeverp the

regulations regarding disposition of program revenue remain in force. Each

participating- agency, whether prime sponsor or community development

agency, must reinvest the revenue in further similar projects.

Uhile requiring that revenue be applied to activities authorized under

the grant, both these federal agencies allow program revenue to be applied

against any budget line in the rehab project, giving administrators

considerable.latitude in the use of this money. . For example, suppose a

dwelling renovated with a combination of CETA and CD funds is told to a

low-income community resident, netting $20,000 after the costs of

advertising and selling the property are subtracted. Acording to recent

guidelines froi both HUD and DOL, this $20,000 profit must be .applied

°

4 32

el 2
towards activity authorized under the former°grant, but it can be applied

in any budget category, whether administration, worksite supervision,

enrollee wages or materials and supplies.

It is unlikely that a project will become totally self-supporting,

.given its training and placement goals. However, the capacity to generate

program revenue can be an important factor in establishing training

prbjects, as it rovides a source of dischtionary funds which can be used

to offset some of the program start-up and operating costs. Perhaps even

more important is the fact that revenue generation is An attractive feature

to municipal leaders, who are hard-pressed to make every available public

dollar go further. The potential for program revenue should strengthen the

prime sponsor's hand considerably in negotiations with community development and other Ark providing sources. They will be more likely to

cooperate with a model such as this if some of their expenditures are seen

as investments that provide a ffeasureable return in the form of program

revenue.

k

4

0. 4 Fcr

f

33

s:

4 0
CHAPTER III: PROJECT PLANNING AND LINKAGES

a

Once" -the project concept and possible funding sources are determined,

intensive effort must be devoted to planning and development of the

necessary linkages. Planning and linkage development must go hand in hand.

A key feature of the VICI Model was the cooperation among the

institutions which provided resources to the project. Because the program

demands much atteption, support is needed--in dollar, material and human

terms - -from many Oparters. , The project relies heavily on a network of

institutions to supply staff, crew supervisors, worksites, materials and

supplies% architectural services, ,educational support and supplementary

funding.

lite* re may be many ways to achieve these "links"; but the most

successful approach is to set, up a "planning task force," securing the

participation of the director and/or business agents from each of the

organizations essential. to a successful project. For example, 'chief

executives of the prime sponsor, community development agency, building and

construction trades council, carpenters' wand painters' unions, area technical college, building inspection. department, and the proposed project

operator might all serve on the planning task force. Each of these persons

enjoys a fundamental understanding of the human services or the con-

* struction field. Each also has sufficient stature in his/her organization

to make binding commitments of support, services or funds:.

The task force approach 4s recommended for a number of reasons. It

involves,the participation of,a wide range of institutions and fosters a

)., sense of ownership among organizations that ordinarily might be in

competition for funds or services. It generates peer pressure that will

frequently induce task force members to proyide more extensive support br

`services than they prdinarily would provide if a

i

proathed as individuals.

The task force can 'produce.a momentum that will ove the sponsoring agency

through the transition from planning to operati ns. It m6 dispel some

fears about mixing social and construction objectiYes, and it can alleviate

some of the resistance that union and other private-sector organizations

display towards government, and partitularly CETA programs. Finally, the

task force is easily tranformed into an advisory group that provides

on-going direction, .support and Rroblem-solving for the project once it

begins operations.

The task force must focus on four key elements: the union link, the

work providing link,, arrangements for licenses, permits and inspections,

and the education and other support'services link. , The Union Link

As the reader sees throughout this manual, the construction unions (or

a strong substitute) are the key ingredient in a successful project. They

provide craftsmen skilled in -the many trades and are a major factor in

assuring quality at the worksite. Unions have long been in the business of

training apprentices and can assist project planners in developing training

curricula, skills progressions, equipment and supplies lists, evaluation

r
CA) Crt

'PLANNING TASK FORCE - Policy Representatives

from: .Unions

-Joint Apprentice

Committee

-Building & Cdnstruction Trades Council

-Business Agents

.Work Providing Organizations

.Community Development

Agency

.Delegated Management

Agency.

-Project Director

.Local Education

Agencies

.Licences, Permits,

Inspections

.Ancillary Services

.Job Service

.Prime Sponsor

-Chief Executive

-Planners .Recruitmen &Referral

Participant

Ann ng

Production

Planning

Establish

Recruit*

mint and

Retrieval

Criterie

4

Establish

Selection

and Assessment Process

Budget

Planning

Identify

ork to - oe PeFXrformed -R

Wefiliftr

- Painting ut Rehab

Establish

Addin. Staffing

Pattern & Costs

I

Identify and Confirm

Recruit sent

Sources

Determine Establish

Skill Criteria

Pro'. for ' gressipn '----"Accepting

4ork Sites

Establish

Crewchief

tatting

nttcrn

its

Identify

and Confirm Edu- Establish

Placement

Philosophy

Determine

Placement

Commitment

E$tablis

Training

g Work

cational

Linkage: and Goals

Experieste

Time Line

Establish

Construction Process

Identify Establish

License, ProductPermits, ion

'and Coals

InspecPrOtCCRO

iOn

Kstnblinh Identify Identify Identify

4uster of Materials Sub- ccupanCy

Crews 6 . Supplies Contra Vhrtici and r -----Operators

pants Equipmen tits Costs

Costs Costs

f:lami.?=41/0.'"'''.

. 46

AP
k

forms. and other materials. Formal union support is essential'Afor the

placement of graduates in apprenticeship programs% journeymen will provide

information about the apprenticeship process and requirements, and they

will provide tutoring and coaching for the interview process. Just as

important, the journeymem can significantly enhance placement through their

informal network of employment contacts.

Planners will approach unions according to -.the various locals'

receptivity and to the type or types of work to be undertaken in the

project. The current VIC.I projects emergency home repair, weatherization,

painting ant gut rehabilitation--employ a variety of craftsmen, including

carpenters, painters, electricians plasterers, bricklayers, plumbers,

roofers, and laborers. Involving the licenses trades (e.g., plumbers and

el ctricians)' may be more difficult but can be managed.

A typical project will solicit the cooperation of two or three unions,

most frequently carpenters' and painters'; the number may vary, however,

and experience has shown ,that there are advantages to multiple union

-involvement as-well as -sing)e_union_involvement.

,A large number of unions may enhance the prospects for apprenticeship

placements, since each union is typically willing to take a limited number

of graduates. Additional trade areas mean broader training opportunities

for participants and less reliance.on subcontractors to do portions of the

,construction or rehabilitation work.

bn the other hand, a smaller number of unions, may mean that the

membership will have a more intense relationship with and commitment to the

project and trainees. A smaller number of unions will a/so celieie the

'need for complex schedules, crew assignments and materials procurement.

Once the prime sponsor identifies the particular unions with which it

would like to link, contact should be made with the local Human Resources

D6elopment Insitute (HRDI); the manpower arm of the AFL -CIO. HRDI assists

employers and' CETA offices in their efforts to develop working relationships with local unions. If there is no local HRDI representativeolcontacts

the local building and constrattfon trades council or the "umbrella group"

which represents it. This contact should provide the prime with entree to

the unions. At a local union headquarters, the prime should contact the

business manager or one of his agents.

The unions, like other institutions, are likely to cooperate with.the

training project if it is clear that the project can meet their own

significant needs as they eet its needs. The- project does, in fact,

benefit the union, and pl nners should point out these benefits: an opportunity for unions t pre-screen for their apprentice programs; a source of qualified, motiv aced minority and female apprentices to satisfy

currently intense affirmative Actions pressures; inclusion in rehabilitation activity where unions have not typically been active in many was;

and much positive publicity. The multi-linked project gives the unions an'

opportunity to promote unionism at a tune when the union movement has

increasing interest in maintaining strong government relations.

37

I
b

But the most obvious and persuasive reason for the unions to consider

a link with the project. is that the project provides long -term, full-time

It em oyment for journeymen at straight salary and fringes. This may be

lo r yearly pay than would be earned by a journeymakworking.52 full-time

40-hour weeks at prevailing union-scale hourly wages. But such 40-hour

weeks are subject to weather and to building and construction trends. A

training program based on this model ,offers steady emplOyment to groups of

journeymen. More paid 'holidays and sick leave benefits may aso,be a

benefit. 1

The unions can also recommend for employment as crew chiefs their

members who are experienced but who may be looking for more in the way of

job satisfaction than a regular, full-time construction job might offer.

Retired or semi-retired journeymen, for example, might be available t ork

in

AP

theLVaining project.

. . The planner should, in addition to indicating the benefits, o participation, take precautions to assure the unions that none of their

interests are being threatened. They will need to be assured that th work

to be undertaken by the youth trainees is for low-income residents and

community organizatl.u& and would not likely be done by union contractors.

A key factor in assuring union participation is compliance with the

Davis-Bacon Act. The Department of Labor (in Field Memorandum #433-77) has

qgtermined that the wage requirements of the Davis-Bacon Actt do not apply

th Title II, III, IV, and VI projects when only CETA funds are being used.

Where CETA funds are used in cOnSunction with funds from other federal

sources (e:g., HUD, CIA) the applicability of Davis Bacon is determined by

the statute under which the other federal funds are btained. In the event

that the prime sponsor is unable to determine whet r a statute requires

Davis-Bacon wage rates, the local field office of the Employment Standards

Administration or the appropriate federal agency nould be consulted in

reaching a decision. The employment Standards Administration can also

provide operators with current Davis-Bace wage schedule information should

David-Bacon be found' applicable. Thes4, wage schedules are. also' updated

regularly in the Federal Register.

The-follo ing.is a' list of federal statute1 which have been identified

by the Depar ent of Labor as frequent sources of supplemental funds, and

all of them c ntain some specific Davis-Bacon provisions:

Housing and COmmunity Development Act of 1974 (PL 93, -383

National Housing Act (12 USC 1715c)

Housing and Urban:-Development Act of 1970 (PL 89-136)

Economic Opportunity Act of 1970 (PL 88-443)

Public Works Employment Act of 1977 (PL.95-28),

Public Works and Economic DevelopMent Act of 1965 (PL 89-136 as

amended)

k

Some specific examples of Davis-BacOn applicability are:

0

o. If a rehabilitation project is combining' CETA wirk Community

Development Block Grant (CDBG) funds, the Davis-Bacon requirement

is contained in the Housing and Community Act of 1974, which.

e 38 7'1
4

authorized the CDBG program. This law specifically exempts the

rehabilitation of residential property from Dayis-Bacon unlest

the property, "is designed for residential use eight or more

9 families."

o If a rehabilitationproject combines CETA with HUD,Section 312

RehabilitationIoans, then there is a slightly different ruling.

Davis -Bacon 'applies to protects using. Section 312 if any of the

property being rehabilitated contain eight Or more dwelling units

after the rehabilitation. A CETA project which also involved 312

loans would thus be exempt from Davis-Bacon,as long as all of the

finished rehabilitated properties had. seven or less dwelling

units. 1 o If a rehabilitation project combines 'CETA with rerftal assistance

tinder HUD Section 8 Substantial Rehabilitation, the ruling is

that Davis-Bacon applies to any project" with nine or more

assisted units. This means that if eight or less units are to be

rental assisted with Section 8 when the work is compTetedy-a-CETA

rehabilitation project (which could also contain unassisted

units) would be exempt from Davis-Bacon.

Note thatthe CDBG and Section 312 Davis-Bacon provisions ap

to individual "properties" while the Section 8 requirement refers

to a total "project." This distinction reflects the tendency for

CDBG and Section 312 housing rehabilitation to focus on small

owner-occupied one to six family dwellings', while Section 8 has

tended to finance rental-subsidies in larger multi-family housing

developments or major building conversions ,(e.g., converting a

factory into apartments).

. o Where a CETA project uses only private financing, by definition

Davis-Baton does not apply.

Nonetheless, to ensure the union relAtionships necessary for b

successful project and tq stay true to the spirit of the Davis-Bacon Act

and Department of Labor guidelines, the planner, should consul, early-on

with trade union representatives to assure that applicable Da0s-Bacon

4' requirements are.observed,- and that wages paid are equal to the established

wage paid non-CETA workers doing comparable work. I When the prime sponsor and union repres ntatives meet to discuss

!rce

program goals and mutual concerns, the issu of potential.apprenticeship

placements can and should be raised. The pri e will probably_fia that the

unionr(or the contractors' association) will not.make specific, numerical

commitments of /placements, but)an commit to train and-give serious

'consideration to qualified gradua es. Journeymen employed by the demonstration can tutor andprefer participants for apprentice vacancies. The

unions are certainly amenable to providing information pnl"iling applications, appren iceship' requirements, apprenticeship classes, and other

things valuable to the prospective apprentices.

To recap, then, below are listed the priMary advantages to the proj

and the unions of a union link:

* 39

. _ I
Advantages to the project of Union Link'or Professional Contractor -fink:

1. placement opportunities in apprenticeships and 'related jobs;

4 . s2. informal placement network .to supplement regular *cement

, procedures; ./,

. 3. participation on advisory boards; ,

--.E. ../ ,..4 4. intense, professional training; s .-

. .. ,1-' .

, 5, control over quality of work produced; .

)11., . 6. Impotition of professional work habits and standardt. , Advantages to the Unions:

I. long -termcjull -time work for journeymen;

C

2. chance to.pre-screen apprentice candidates;

3. minority and female apprentice candidates;

4 . positive publ icity, promotion of unionism.

5. inclusion, -in rehabilitation sactivity, h they may note have

been active in, An many areas:

143,

/ In soil areas, 'therw.may ,be- no unions or they may lack size and

, ,..

.

, ... / strength. 1r In 'such instances, *tpie 'prime sponsor, mutt-rpursue other al-

/ ternatives. _The lack ofonioninVolvement does not negate the possibility

4, of, an effective multi-linkek project. It does'mean that another source of

-skilled instructors-And pla0Ment opportunities must be found.

-,,,...-% t . likely source is the general build4 an :' "contractor's association, a For a construction- related 'traing,/eOloyment projeCt, the most

minority contractors association, or similar groupS: j is important to

identify a well - structured, active association whiChAdt .iik experience and

capability to perform in the desired manner. The local Cha ser of Commerce

should be able .to provide information on,such organizations.

Even non-union-linked training programs can e ,e graduates

in apprenticeships. The Bureau of pprenticeship ). (BAT) has

estabVshed apprenticeship guideline for constru, Onstruction,

Union and 'non-union work situations. BAT sets ticeship re-

- quirements and monitors to ensure compliance. -4 prime hould investigate

the local availability of such apprenticeship posi ns as it would if

. unions were involved. ,

sect

anaT

ion, nonhe a

,The Work Providing Link

Establishing links between the project and proipective work providing

organizations is a primary objectiv) e 'of the planning process. A work40

O

NA.
t . providing organization is characterized by its ving worksites and

materials and supplies or the funds to purchase t m. The role of the

work-provider is to provide a suitable inventory of buildings, homes,

public housing units and the like as worksites for trained work crews.

Typical work providing organizations are community development agencies,

building code enforcement agencies, quasi-public development corporations,

public housing authorities, weatherization and community action agencies,

and a whole host of community-based organizations.' Tenant organizations in

buildings deserted by landlords and taken over by municipalities may also

have eligible work and money for supplies.

1.

A good work providing agency will have solid assets for the project.

The work. to be done at the sties will have s.ufficient scope and variety to

meet the training and work-experience pals of the project. An emergency

home repafr assignmentsal.liong for demolishing .44 rebuilding a large front

'porch involves a variety of activities and &Ireat deal of i.g11.1 content.

On the other hand, an emergency home''repair that calls only replacing

broken windows and hanging a storm door provides very little skills growth.

A good work providing organization wi11 also make available appropriate

worksites in a timely and effective manner. And, when worksite selection''

is the work-provider's responsibility, the project managers are spared.

insinuations.of favoritism and cronyism.

X 5kch an organization can also be an invalUable asset beyond supplying

worksifts. It will frequently provide materials,_, supplies and materials

funds,4to offset administrative and 'Apervisory costs which*arise outside

CETA guidelines. It may provide important "in-kind" assistance, such as

insurance and architectural services. It may even offer' canstruction

technical assistance and help in expediting licensing or other inspections;

Finally4 it may provide invaluable contacts for placements through its

network of.suppliers and contractors. Obviously, the choice of the work

providing agency should consider all of these dimensions.'

As.with the unions, a work providing organizafibq will cooperate with

the training program only if it perceives such cooperation to be in its own

\\interest and will help fulfill its mission. Such cooperation can, the

planner will point out, be beneficial to the work provider in several ways.

Work providing organizations are frequently under constraints regarding the

amount of money that can be spent to improve a given building or worksite.

With most of their labor costs picked-up by CETA, the work providing

organization is able to expand .the scope of work' at any given kite or,

conversely, to work at a larger number of sites by committing its own funds

entirely to materials and supplies. In Philadelphia, for example, a city

housing,and community development agency was limited to $2,700 worth of

emergency repairs to any given low-income' owner-occupied home. If this

work provider Tied used conventional contractors to do the work, the funds

would have been limited to the repair of perhaps one or two major systems,

for instance, the roof and interior painting. Where the linked project did

the work at this site, the $2,7 0 allowed for the repair'of four systems- -

roofing, plumbing, electrical an painting.

The'' planner should bear in mind that most community improvement

agencies have long been solicited for collaboration with CETA-funded

organizations. Unfortunately, however, .the past quality of work has fre41

5
(

quently been inferior and production so irregular that the work provider

may now be quite skeptical that a youth project can meet'his needs. The

planner may best counter skepticism by noting the prewce of the journeyA men and by bringing the work providing organization ontd`the,planning task

force and advisory board. The project should also plan on demonstrating

its competence with a few small-scale projects. Every VICI city in the

national demonstration that encountered this skepticism chose this approach

and `soon won over the work providing organization.

While the. work providing organization can provide many elements to the

model--worksites, funds, licensing assistance and in-kind services--its

primary Contribution in the end may be the emphasis on quality that it

affirms. In effect, it purchases services from the project. The work

providing organization adds a production and quality focus, a "real-world"

orientation that is a vital ingredient of a training and empl

project.

--Just as---the-tETAjkinTi sponsor iiipo-§6s-its7own eligibility standards

on applicants and clients, the work providing agency may have eligibility

requirements for trainees and worksites in orddr to meet the ifundlrItig

agency's standards.

The priMe sponsor can exercise two options to determine eligibility

and to avoid incurring ineligible costs. In the first, the prime sponsor

allows the linked agency or agencies to provide worksites, placing the onus

of the eligibility determination on that agency. It is quite possible that

such agencies will have lists of eligible properties; this will eliwinate

the time and effort put forth in securing properties. Usually propakies f

managed by. the municipa4ity or local housing authority are automatically . quarlfied'for services, RA the prime sponsor must make sure that they also

present opportunities for the adequate training and skill progression. The

prime must -also be -sure that these- properties- be referred to the

-project on a regular schedule.

The second option is for the prime sponsor or delegated management

agency staff to determine eligibility. In this situation, project managers

maintain tighter control over work flow and worksite selection. But they

must assume total responsibility for sel ing qualified properties. The

program must have adequate and capabl taff performing this function, and

these persons must have access too a working knowledge of the different

agency eligibility criteria. Should an error be made, the management

agency could be held accountable for ineligible costs.

It may also be possible to develop a joint eligibility system. If a

system for determining eligibility is a joint venture between the prime

"'sponsor and work provider, it is probable that mutual 'concerns will be

addressed early the process and adequate attention will be given to

potential probl areas. Licenses, Permits and Inspections

Housing construction and physical community deyelopment are rigorously

regulated activities. Work in these areas is subject to a variety of

ee 4g
arc

zoning, Bonding, licensing, certifying and inspection requirements.

Several municipal agencies may be involved in this process, each repretenting a limited jurisdiction. The zoning ordinances are enforced by

one agency, the building code by another, and the city will allow certain

work to be performed only by licensed personnel. Most will require a

physical inspection of the worksite upon completion and some will require

periodic or interim inspections at key'paints during the work at the sites.

Meaningful links in tbis area are well worth the effort requirid to

establish them. A strong link can serve to expedite these processes and be

a real 'boon to the ,project. If a sound link exists, the agencies may

arrange to waive permit fees and bonding requirements, allow work to

commence or continue while permits are "in process" and work closely with

project staff to coordinate interim and final inspections. Without a

strong link, these requirements can halt work-at the site and significantly_

inhibit training and disoduction. Nothing is more detrimental to a prdject

than to_h a v e partici pantsandstafik,' standing-a roundordoing-ima ke-work'

because a required permit is not av lable on schedule.

hese processes can easily interfere with the timely and efficient

option of a tiorksite. ,Meaningful links must be established and maintained with the agenciq.responsible for these functions. These can best

be established by exploiting the knowledge and contacts of the work

providing organization and the unions. Planners will seek technical

assistance from these organizations and then initiate a series of meetings

with policy-level personnel from the various lice king, inspection and

permit agencies to obtain their support for the advisory board. Often, the

board of the agency operating thy" project will include a representative

'from- one of these agencies.

The municipal building...inspection department will- play - -a -key role

since seek assurances that construction iskbeing done in accordance

with local building codes. The work providing organization will Inspect

the finished work project, or-at the least, require certification that the

job is properly done. Often this equirement will come prior to an authorization for payment. Even the mdttgage lender, if it is FHA-insured,

may require periodic inspections.

Securing licenses .and permits is facilitated if t work provider is

itself the license and inspectiom agency or if the rk provider has a

strong 'tie with the licensing agency. In Atlant , Bureau of Buildings

acted as work provider, bringing to VICI its own ties into the license and

inspection procedures in Atlanta. However it is managed, this link is

vital to the project. For this reason, at least one senior project staff

person must have extensiv4'knowledge of the construction process. This is

one of the most,important roles senior staff will play. This staff person

will have a comprehensive understanding of the role that permits,'licensing

and inspection play in construction and of the ability of these activities

to impede progress at the worksite.

(

5

43
The Education and Support Services Link

Experience in the Vi CI demOnstration suggests that the education link

is the easiest to establish but the most difficult to turn into a mean--

ingful asset to the project. School system represetitatives participate on

planning task forces and advisory boards, but the linking institution must

get something out of the project if the early cooperation is to bear fruit.

The advantages to the schools of involvement iniYICI seem, at first, to be

the least tangible and the results of the education-link the. hardest to

demonstrate. r However, there are tangible benefits to the schools. The program

provides excellent hands-on skills training and Work.experience and forms a

logical sequence for classroom programs in schools. Vocational school

graduates may enroll far work experience in the trades. School guidance 1*".

counselors can place -graduating CETA in---school participants into the

program. Younger training program graduates (161 to 17 years old) who had

dropped out may be re-enrolled in the local schools, with credit toward§

graduation for their experiences. Some school systems may receive federal

or state reimbursement for the educational ,services rendered to the

project: Agreements between prime sponsors and local education agencies

under CETA Sections 202(d) and 204 provide for, the kind of cooperation

called for here. Finally, school facilities may be used as worksites,

where trainees improve or upgrade byrfldings and classrooms.

In spite of the difficultie in maintaining this link, the need for

educational supports is a\serious one. The basic'reading and math skills

of the original VICI participants were quite low, affecting dramatically

their ability to assimilate the skills of the construction trades. For

example, one cannot Tearn to measure without a knowledge of fractions.

Educat/on is also critical to the goal of placing graduates in the

?--Construction trades, since unions will rarely indenture a person into.an

apprenticeship without a high school diploma or equivalent degree. For

many unions dad employers, a driver's license, most readilyobtained via

-procedures already set up by the public schools, is a prerequisite to

employment or apprenticeship. One major city in the national VICI

demonstration lost 18 union'placement opportunities in a six -week period

simply because the graduates did not have drivers' licenses.

In developing the educational link, services of a-range of agencies

should be' reviewed--high schools, vocational schools, community colleges,

and private' non-profit educational institutions.

Providing educational supports is one thing; getting youth par-)

ticipants who have worked at hard physical labor all day to use them is

another. For this reason, some sites may choose to provide education

services at the worksite or at the project operator's headquarters. This

can allow for the development, perhaps by the trainees themselves, of an

attractive and flexible learning environment, which can be tailored to

trainees' needs.. Scheduling education as part of the work week has also

proved very useful. Four days, of skills training and a fifth day for

education, or ten-hour work days including two hours for education, are two

-Schedules which proved,. effective. Another strategy is to make enrollment

and attendance at GED programs and driver's education compulsory in order

44
to'assure that each participant's educational needs are met. Program

planners need to decide whether participants shOuld receive some'stipend

for time spent in GED and diver's education classes, If no stipend is

paid, and the activities are not integrated into the project, it is

unlikely that participants will avail themselves of the opportunity.

Recruitment, eferral ;;Ci\sUpport services come from progrdm staff,

through the game sponsor, through the delegate agency's own structure and

through Linn with other local institutions. Recruitment is all too easly

overlooked tn planning traditional manpower programs, especially if

planners, assume that a promising employment project- will have more applicants than it can. handle. This model demands energetic recruiting,

because it'is,not a typical CETA pt.oject. It has more rigorous acceptance

criteria, performance standards and involves hard work under some rough

conditions. The many advantages to the trainees - -it pays more than the

typical youth employment project and has a substantial impact on a graduate's employment prospects--must therefore bea4early presented' to

potential enrolleesIgng with/the program's stringent requirements.

Individuals andiagencies in the traditional recruitment anti referral

network will have to be educated as to the application criteria. A

vigorous outreach program: must be set up that will "hand-carry" 'recruits

through the eligibility and screening processes. The recruitment Process

should be as, compact as possible,with little applicant travel' among

institutions. (for eligibility certification, personal history and application, testing and assessment, medical clearance and.working\papers) as

can be managed. 'Enrollment and hiring should come as soon as possible

after the completion of the intake process. Applicants will disappear who

must go through a lengthy and cumbertome intake process only to be placed

on a &ix-Month waiting list. This is not to say that a waiting list is not

helpful--it'is, in fact, vital to full enrollment. this list should be

kept small and limited to those who have completed the entire screening,

enrollment and even orientation process and can begin work, as soon as a

vacancy occurs in the program. Without such .a list, the .project -will

seldom be at full census, due to the delay in filling vacancies.

In addition, other efforts may have to be made--e.g., gaining access

to job,service summer program and school files, direct presentations to

vocational and guidance counselors, "career contacts with settlement

houses and other community organizations, announcements in church

bulletins;. posters in public housing projects, public service spots and

advertisements in community and minority language, media, door-to-door

contacts and mobile street units with loudspeakers. Trainees are a good

source of- referrals, as well. .Planning must be done for the phase-up stage

of the program when the demand for results is greatest. After the project

has been operating for- some time and gains a reputation, and when only a

few vacancies occur each,Month, the recruiting burden eases substantially.

'thq` work experience /training project prepares its participants by

matching training settings and experiences to the-real world of work, as

much as is possible. The project emphatizes productivity, good work

habits, consistent attendance and, respect for supervisors and colleagues.

Support services are generally a necessary part of this effort primarily

.because the target population--out-oHchool, unemployed,' diSadvantaged

. -(

45

55°

.
youth - -has problems outside the worksite which often directly affect

performahce on the job. Support services may including housing, health,

legal and family assistance and work-related and personal counseling..

CETA funds for support services 'are' limited, primarily because

assistance in these areas can be garnered from many ommunity and public

resour es. Establishing links with t e resources, howe r, is a clAsic

examp e ,of the strengths and weaknesses a cooperation-based program. If

providing a support service serves the i. terestS of a given organization,

then the service thus provided will be e fective and helpful. Conversely,

if providing the service has few payoffs for the organization, then the

project operator is better off providing the service directly.

One approach is to hire (or otherwise obtain, perhaps via graduate

school internships) a good job coach or counselor with a background in

vocational guidance.. The job coach can establish links with the various

providers of support services and make participants aware that services are

available. The job coach staff in theyhiladelphiq national demonstration

site developed a bi-weekly .newsletter that informed all participints.and

staff of the resources available to them.0

This individual can also serve as a participant advocatel since the

atmosphere at the worksite will be heavily weighted towards good work

performance and skill acquisition and away from solutions for outside

problems. The 6unselor can take the lead in preparing the participant for

graduation from the program, inculcating the job-hunting and retention

skills necessary to survive in the world of work. These sessions should

highlight the impersonal nature of the typical construction job as compared

to the relatively warm working environment at the project. sites, and

emphasize to the participant responsibilities as an employee as well as rights and privileges. ' ,

Prime Sponsor or Delegate Agency: Who Runs the Project?

Because this is a construction-related program that depends on links,

complex'relationships and sophisticated systems of purchases of materials,

employment of crews, archite

1

tural drawings and the myriad details that go

into housing rehabilitation or any construction-rel-ated activity, it is

absolutely essential that e managing agency have experience effecting

these links and relationship's.

Five of the eight prime sponsors funded by DOL to operate VICI

programs chose to authorize local agencies to manage the prOgrams. In three cases--New Haven, Newark and Broward County - -the prime spOnsors

elected to run the VICI program themselves. In these cities, where there

were not as many local agencies available to administer a VICI program, the

prime sponsors felt that their own experiences and background in administering programs would enable them to administer VICI most successfully.

The factors which must be considered in choosing between direct or delegated operations, and, in the latter case, betweenralternative delegate

agencies, must rest on several factOft.

46
The ideal managing agency has had prior experience both in con- struction and/or related programs and in projects which involve youth in

socially useful community work. Experience in the construction field (or

in trades related to -the types-of work to be done in the proposed project)

should count particularly' heavily in determining a contract award to a

delegate agency. This does not mean that it would be impossible for a

non-profit organization without such experience to run a program but in

most' instances, prior experience will figure significantly in the success

of the program.

We must also caution prospective project operators to make hard-nosed

determinations of what constitutes "prior experience." A project which

trains 'dung piople in basic community, improvements, such as park clean-up,

or in cosmetic building repairs is not as rigorous as this model, the

operators of such programs may not have a full appreciation ofAwhat is

needed to run a successful project. Prior experience must, therefore, be

examined very carefully.

Real appreciation of the rigors of a construction training program and

oft the elements essential in operating one may, however, substitutetin some

part for actual experience in running this model. In Milwaukee, for

example,, the OIC program which won the VICI manaPMent subcontract did not

have a wealth of prior experience in construction-related youth projects,

but OIC did have a- healthy respect for the rigors of a VICI program and

hired an experienced and resolute union foreman to head the program. This

reaching outside of the OIC organization for someone who had had extensive

construction-related experience, and giving that person the authority to

hire and direct the program was, in our judgement, a decision that contributed heavily to the success of the Milwaukee program. Merely promoting

someone from within foe a new program with new monies is not a wise

decision for a delegated management agency without a solid background in

construction.

4 In Atlanta, the. prime. sponsor ubcontracted with the Atlanta -Urban

League. The Urban League relied very heavily on the technical assistance

of its supported work programs. These programs were not the same as VICI

but resembled it enough to enable AUL's experienced director to help the

VICI program through its early stages of application and start-up.

Having read that prior experience is important, program operators

should not assume that this is all that is needed to effectively run this

model. Because of the complex systelp of links on which this program rests,

a delegate agency must have deep roots in the community it serves and it

must have ties with the education system, the union organizations and the

work providing agencies in thei.,commurrity. The agency's leadership must be

politically sensitive to the needs'of these links, and at the same time, it

must recognize its own technical strengths and deficiencies.

As has been repeated often, this model is based on complex rela=1,

tionships among many actors in the community. Ordering ,materials and

supplies, seeing that quality work takes place (which provides for skilled

training and intensive production), heing that young participants are

being effectively served and, at the same time, demanding strict adherence

to the program's policies--all reqUire this unique combination of sen4 5

47
sitivity to the problems and needs Of young people, On the one hand, and an

ear finely tuAed to the needs and requirements of 'the construction

industry,.unions and the community itself, on the other.

The VICI model's most distinctive characteristics all necessitate

;rcareful

planning, attention and some experience on the part of the managing

agency personnel. For example', the concept of wage increases based on

performance--a practice used in the, real" world,--requires good recordkeeping by the journeymen and the peogram managers. Journeymen must, in

this instance; maintain regular and accurate information on trainees'

performance,mhile managers must maintain attendance and other data, all to

ensure that wage increases meet established program criteria. Experience

has been that an organization 'that does not possess tested accounting

systems will not be able to handle as simple an issue as changing an

enrollee's wages at periodic intervals during the program. It will also

have difficulty accounting for funds from multiple services.

The. use of data as a management tooNplays a particularly important

role in this model. Weekly progress reports, work valuation, and

sophisticated estimating prior to construction, all will require a commitment from the delegate agency's own recordkeeping section prior to

the beginning of the program.

We recommend that the group, sponsoring the construction training program submit its own proposal request to a variety of local agencies to

determine how they might administer the program. This request for

proposals will explain the sponsor agency's program objectives and criteria

in selecting a managing agency, including the above-mentioned points.

Experience and/or the ability to recognize the importance of experience are

the essential ingredients to look for. The model does not require

extraordinary talent to run, but it requires a healthy respect for its

complexitiell rigors and potential.

As we have stated, New Haven, Newark and Broward County all elected to

run their VICI programs through their own prime sponsor networks. In each

of these cases,' the program operated effectively. One of the threads

binding together the successful prOgrams in these cities was that VICI was

not seen as a typical CETA program. Because of the inclusion of journeymen

on the staff, and perhaps because of the status as a national demonstration

project, VICI received, in these three cities, specia consideration of its

special needs. This meant that the directors of the VICI programs tiad.some

autonomy within the prime sponsor systems. This didnot include fiscal or

reporting automony, but it did mean that the programs remained discrete

units, not required to operate in any way inconsttent with the VICI model.

In other words, staff was not diverted to other activities, directors were

proven managers, and the prime sponsor used its good offices to expedite

normal problems of paycheck distribution, equipment and supply backlogs,

etc.

The criteria for awarding a subcontract to a delegate agency would, of

course', apply to a prime sponsor as well. Since,the prime sponsor, in some

cases, will not have had extensive construction-related experience, it

argues even more forcefully that a director be selected and a staff

assembled which both have experience with construction (and any other

program components)-and expertence in working with youth.

)

. 48

ti
While in each of these three cities the- program was rum by the prime's

youth diOsion,-it had its discrete identity as a VICI program with its own

staff and- its own budget. We believe at this point that the early

inclusion of union Airneymen at the heart of the program distinguished

VICI from the more traditional ,YCCIP programs. In any case, the success of

New Haven, Newark and Broward certainly argues that a prime sponsor can run

a VIC' program by itself. Caution should be exercised in that the same

rigid requirements and demands of the program apply whether the prime

sponsor or delegate agency administers the program.

Budgeting

This model is, because of the intensity and quality of its supervision

and the scope and quality of work performed, more expensive to operate than

thestandard CETA YCCIP program. Lower supervisory ratios lead to higher

supervisory costs; participant wage incentives slightly inflate youth

costs; administrative costs may appear higher* also. But these seemingly

higher costs are only one side of the coin; on the other are the substantial benefits which accrue to ,participants and the communities where

they are at .work. These take the form of quality jobs, return on the

dollar in the form of tangible community improvements, as well as, harderto-quantify intangibles.

As the planner drafts the budget according to the principles outlined

in the following sections, the challenges of putting this multi-linked

project together will .become clear. CETA regulations establish certain

parameters at the outset. If YCCIP monies are used, 65 percent of the

budggt must be set aside for participant wages and fringes, unless adequate

justification for less than 65 percent is provided in the prime sponsors

annual plan subpart (20 CPR 680.113); five percent may be used for prime

sponsor administration and 10 percent for project operation administration;

the remaining 20 percent must cover supervisory wages and fringes,

materials and support service costs. There is, however, no prohibition

against using other CETA title funding here, or mixing title fundings. Use

of YETP funds or Title II funds may,provide more flexibility in the age of

youth and the degree of support services.

Below is projected a twelve-month budget, which provides a realistic

picture of what kind of funds need to be leveraged, and how categories can

be rop rtioned. This budget is based on the actual experience of a VICI

profit(, in Atlanta with adjustments for minimum wage increases and inflatio

I

Sources of Revenue:

1. CETA Prime

2. Association of Contractors

3. Department of Community and Human Development

Total Reienue

49

5

$630,000

11,500

125,000

$766,600

I- I

I.
Expenditures:

1. ,Administrative items $ 74,000

2. Services (in-kind)

3. Crew Ch.* Expenses 200,000*

4. Youth Expenses 409,000 *

5. JobiLrelated items

*

* *

a. Equipment

b. Materjals and supplies

3,100

80,500 83600

Total -Expenses- $766,600

Based on a salary of $16,000.per yearand 25 percent fringes.

Based...on an average of -$3.50kper hour ($3.10 to ptart, with progressions based on perfqrmance), fringe benefits at percent, and 35

hour week and 52 week year. '.

1. Supervisory Costs: As discussed elsewhere, this model recommends

and presumes that ten'skilled.journeymen supervise ten crews of six youth

participants, each a lower supervisory ratio than is found in traditional

youth employment programs. This supervison offers many benefits, including

improved training greater productivity, higher- quality .work and better

post-program empldnient prospects. It allows the project to do "real work"

and is considered one of the essential features of the model.

But, as one would suspect, such supervision is more expenSive than

that in a tradit*unal program, given the low supervisory ratio and journeymen's wages. In the national VICI demonstration, supervisory wage's and

fringes range frok $20,000 to $25,000 per year per supervisor. In a

standard CETA program, a crew chief would earn closer to $10,000 to $16,000

to supervise tenor more participants..

2. Participants',Costs: It as been found useful to begin paying

participants at wages. slightly above the federal minimum, to aid, in

recruiting, to reinforce the concept that this is not a standard

"business-as-usual" youth employment project, and out of a commitment to

pay the participants for the real work that they do. Further, recommended

is a performance-based wage ,progression that grants .wage increases to

participants on the basis of job performance, skill acquisition, attendance

and tenure in the project. The wage progression is correctly seen as a way

of reinforcing the "real world" work ethic. The unions may also enter the

wage picture by requiring that senior participants (those in the program

for nine months or more) be paid at a. level close to that of a first -year

apprentice, arguing that the capabilities and productivity of the two

should be similar. These wage progressions result in par ipant wages

averaging approximately $3.50 per hour plus standard CET benefits of 7

percent, or roughly $131.00 for a 35-hour work' week.

3. Administrative Costs. Administrative costs' may also run higher

than in a standard CETA-YCCIP program. Administrators' salaries range'.-from

$16-20,000, for at least one and, in some cases, two senior program staff.

50

Co
If one of those administrators comes from union journeyman ranks, then that

sal,ly'yill be commensurately higher.

4. Support.Services: Designers of the YCCIP legislation intended to

distinguish this from typical work experience programs by emphasizing

output and minimizing support services. In some cases,.however, such enhancement maybe called for, and support service staff--perhaps identified

as job coach:--counselor, job developer, inventory clerk, driver, or the

like--may be hired at a salary and fringe cost of about $10,000-$14,000 a

year, per. position. If such staff are needed full-time in the project,

consideration may be given to hiring individuals secured through Public

Service Employment. "In-kind" exchanges of staff time from ancillary

service agencies may, of course, be solicited. That is,, agencies where

trainees are doing renovations may contribute blocks of their staff

members' time to the project.

The non-per5onnel administrative costs (for headquarters, work-site

administration, etc.) will also vary somewhat with the type of work being

performed; however, these costs should fall within a reasonably narrow

range. The typical project can expect to budget at least $16,000 per year

for administrative travel, furniture and equipment, occupancy costs, such

as space rental, utilities and maintenance, and office operating costs such

as consumable supplies, postage, telephone aid printing.

5. Job-Related Costs: Job costs

I will vary according to the

community improvements undertaken by the participants and crew chiefs.

Gutting and fully renovatfing single-family or two=flat NiNngs will

naturally require more materials and supplies than emergency repairs,

correcting code violations or weatherizing. An.emergency home repair/ code

violation program that focuses on major jobs may require approximately

$100,000 in materials, supplies, tools, transportation and contractual

services in order to keep sixty participants in ten crews busy for one

year. Note that . weatherization projects on this sale require similar

outlays.

Gutting and rehabilitating single-family residences require

approximately $20,000 in materials, supplies and contractual services per

house. This figure may climb to about $28,000 forfan average duplex. A

well-run project of sixty participants can completely gut and rehabilitate

ten single-family homes each year. A simple calculation then indicates

that this type of project will require about $200,000 for the materials,

supplies and other construction-related costs. These funds are available

in most municipalities from non-CETA sources, such as the work providing

agency, the local contractors' association, HUD, etc.

51

6?
0 '- CHAPTER IV: PROJECT OPERATIONS

In establishing a successful project, there is no substitute for

careful, diligent planning. Exacting planning will identify the goals to

be achieved, the activities necessary to achieve them and the resources

needed to set the activities in motion.,' But all too often planners

complete these tasks quite satisfactorily, without providing for an orderly

implementation. Operating staff are hired, handed the proposal or planning

document and told to get the project in gear.

The same situation occurs within the linking institutions as well. In each agency, the policymaker has made the .commitment to the project and

perhaps even signed an agreement. Yet the agency staff who will be

responsible for delivering on the commitment have, until.operations are to

begin,'no idea of how to proceed or even what-has been promised. The best

way to effect a smooth planningrtol-operating transition is to bring

together, at the beginning of the planning process, the people responsible

for operating the project. The .smoothest transitions at the VICI sites

took place when the p cipal planners would later have primary operational

responsibilities, as wel Another method for effecting a smooth transition is to formally appoin the planning task force as the project advisory

board. This will ensure t at the people involved in the early planning

efforts will be available and involved when operations begin and institutions are needed to deliver on commitments.

Once the difficult but immensely important planning 'tasks are complete, the real work begins. An enormous number of activities will take

place before the participant walks through the "intake" door. The

following include the major steps to be taken in beginning VICI project

operations (see chart).

The Work Projects Inventory

. Planners and operators must develop an adequate inventory of work

projects that will tide the program over until it is running regularly.

Prior to hiring the crew chiefs and enrolling participants, the foreman, in

concert with the work providing organization staff, should review a list of

prospective worksites, select a sufficient number and initiate any permit

or.other applications necessary to make these sites ready for operations.

Once these sites have been selected and approved, the construction manager

.can develop a rough production schedule and identity the necessary tools,

materials and supplies. Secuf.e storage or warehouse space must be obtained

for these articles, as well. At thi,s, time, staff should also settle on a

system for controlling inventories otthese physical assets, since they are

prone to "walk" away from all construction or storage sites.

It is. important to identify a gOod start-up Worksite that will

accommodate several ,training crews. Staff may choose the warehouse for

materials ins which the initial crews can build tool racks and storage

areas. Or they may choose the project administrative headquarters, where

temporary (or permanent) office dividers and walls can be built and

painted. Or thefmay select a large unoccupied dwelling to be gutted and

rehabilitated.

1W 53

62
A

TRANSITION FROIA PLANNINC Tn OPERATIONS

Delegated

Management

Agency or

Prime

Sponsor

c

Convene Advisory

Board

-Union ,- L&I

-Work Provider

-Emplgyers

-Educator'

I I I I Locate

Project

Headqbarters

.Locate

Storage

and

Warehouse

Facility

t.

Selection

of

Initial , Worksite

Orientation and Finalize

StiTTing Hire staff Initial . Training

of Staff

Training

and Skill

Progression'

r

-Establish

Accounts

with

-----Vendors

and other

Suppliers

Ideritify

Tool lists

jand-other

Training

Materials

Ongoing

Staff

Development

Establ

Proce

for Procur

and

Controllin

Materials

nventory

'NM

1

Establish

Youth

Per Onnel

Poli 4es

Identify

Inventory

of

Worksites
Whatever the choice, the first worksite is critical. On this site,

participants will be oriented to the project, the work rules and the safety

issues. Here the 'participants will learn some basic skills such as .measuring and hammering; they'will first' handle the tools of the trades.

The participants and the crew chief` will meet each other here, and here

payroll, timekeeping and other program procedures can slowly lose their

mystery. All of these activities will give the work crews a slight

headstart on productivity (and they are imperative before beginning work on

owner-occupled_c_de_violationAnd_weatherizati on ,wo rks i tes )

Selecting and Scheduling Staff

This is next on the transition agenda. The unions and work providing

agencies will be asked to provide-, lists-Of qualified and interested

journeymen. These crew chiefs are the heart and soul of both the training

and production missions of the project, and a great deal of care should go

into their selection.

Unions represehIng trades to be taught will recommend journeymen to

project administrative staff, and some brief but definitive guidelines

ti should be followed:

o The ideal crew,chief will have considerable experience in the

trade (some journeymen recommend at least 10 year's experience,

including apprenticeship), and some Involvement in the union

beyond membership is helpful. In the Allyta VICi site, for

example, the VICI foreman had, during his own'apprenticeship,

,been named Apprentice of the Year. He was known throughout the

rank-and-file of his local and had some influence, therefore,

which he.could' use on VICI's behalf. In another instance,,a

Broward County VICI journeyman served as a union -delegate and

chaired a District Council committee. He played a strong role in

apprenticeship placements midi in setting up apprenticeship

qualifying examinations for VICI trainees.

o He/she will have an interest in teaching and working with yputh

and a willingness to work in an unusual program demanding a great

deal of creativity.

o He/she seeks a change of pace from the straight "eight-for eight"

(eight hours of work for eight ham of pay--the union ethos).

This is not always typical of the union membership in the construction

trades. But this type of crew chief can be founds with the help of the

union hierarchy, the work providing organizations and other contacts

available to the project staff.

O Some union business agents may see the project as an ideal place for

some of their hard-to-employ'and problem journeymen, those craftsmen who

find it difficult to hold a Job in the competitive labor market. Program

operators must develop careful screening and intervi wi procedures for

o

prospective crew chiefs, to ensure that they are well-s ted to this kind

of Project. , A

55.

65
0. An effective method for selecting the crew- chiefs is to form an

interview panel consisting of representatives from the, work provider,

unions and delegate agency staff. This panel can ascertaiR,whether the

persons"-who apply for crew chief positions are able to fill the vital

positions being created for them. The pro4ect director must, however, have "L.,

final hiring a1thority.

Once the journeymen have been hired, then. an effective orientation

process' must bedev-el riekr,for t1i. Since most of the crew chiefs will

come diregtly from the trades, it is important. to orient them 'to the

peculiarities of CETA and its concommitant bureaucracies. It is also

important to lay the groundwork for their role as instructors and trainers:)

Planners may choose to turn to the local schools or teachers' colleges for

pre-program and in-service staff development. This may also be handled by

hiring instructors from union apprentice programs to "train the trainers'

in lesson planning, assessment, assigning home ork, reading material's and

the like.. This reinforces' the notion that t crew chiefs are hired to

inculcate knowledge and skills, not just to sere as straw bosses.

The transition period is no less import nt than the planning period

and, in fact, will--if.badly handled--turn out to be the rocks on which the

ship is scuttled. During these start -up week managers must monitor the

program with particular diligence and must be prepared to intervene early

on to abort practices which, unchecked, would seriously damage the model.

Management Staff.

Implementing and managing a construction training project are particularly demanding in that they require in-depth knowledge of both CETA.

and the skilled trades. Ve program's two-dimensional purpose directs the

project's management fun tfons. Each_VICI site in the national demonstration acknowledged these al management needs by appointing staff with one

or-the other set of compe nci es to the positions. of the project directgr

and deputy director.

One Senior staff person must be competent in construction trades

management. This entails:

understanding the responsibilities of personnel_ involved in the

construction trades, from journeymen to architect to apprentices

to subcontractors;

having a firm grasp of the construction process from planning to

building permits to final inspection;

knowing construction logistics to assure that crews, materials

aikd worksites are efficiently scheduled;

having familiarity with the apprenticeship process so that a training program can be designed within the production schedule.

Another senior staff position must be occupied Van individual skilled in

employment and training. Competencies to be sought include:

56
41#

NO On a thorough grasp of CETA eligibility, mtake, reporting, and

fiscal management;

NO ON knowledge of other service *institutions and a. track record of

being able to establish cooperative relationships with them;

an understAnding of the dynamics of education and training,

especial ly-foryouthr

-- ability to

employers.

and develop jobs and market the projects to

Advisory Board

* The formation of an active, agressive and ongoing advisory board is a

natural outgrowth of the planning task force and the links forged during

the. planning stages of the program. The advisory board is made of

individuals who are instrumental in_the development of the project and will

continue to have a mutual interest in the program's successful operation.

A1T too often, the links made during the planning stages become non-

-functional once the grant process has ended. Project operators lose

valuable technical assistance and cooperation between the project and the

participating institutions deteriorates: This can only hinder the #

project's progress.

Each of the actors who would eventually make up the advisory board has

an interest in the project. The unions, for instance, see it as a means of

,placing union journeymen into permanent jobs. The union and trade

associations know that the program.can identify youth with proven interests

and work histories for entrance into apprenticeship programs. The. work

providers' interest gives-rise to an inherent concern: while the work

proVider is ea4er.to have labor that the program provides, it is also ,leery

of inferior workmanship-and crew misbehavior which might. endinger its

mission with the public. A strong advisory board can be instrumental in

identifying necessary tools, safety procedures, skill progression outlines

and crew schedules. It may also be helpful-in interviewing crew chiefs and

project staff and passing on recommendations tthe prime.

A recommended procedure would be that the advisory ;third be formally

establshed before programs operations begin. Membership might include the

business managers of the involved union locals, a contractor, a representative of a national trade association, directors of the work providing

agencies, appprenticeship program coordinators, a State Bureau of Apprenticeship Training representative, and the model's program administrator,

assistant administrator and prime sponsor planner. To formalize the board

and add significance, each member might receive an appointment letter from

the chief elected official.

A formal agenda format should be established for the meetingS and

minutes taken to facilitate continuity and follow-up. Specific and

,detail,ed reports from the project d?rector, assistant director and other

key representatives should occupy a prominent position on the agenda.

t. 57 > L
)1

4

While an advisory board has no authority to set policy, it should be

encouraged to recommend program improvements and to offer solutions to

problems. For instance, the board, concerned over the wide gulf existing

between the 'supportive atmosphere of the model and the non-supportive,

hard-nosed structure of a typical construction site, may recommend policies

designed to foster a "world-of-work atmosphere: including strict en- forcement of attendance regulations, an emphasis on production after a

short period'in the program, rotation of crew chiefs to give participants

the opportunity to work under supervisors of varying personalities and work

philosophies, and regular follow-up of program graduates at their jobs.

The advisory board may also,be instrumental in resolving conflict among the

recruitment and 'referral organizations, and in the development of some sophisticated management techniques. In some cases, it may become actively

involved in the placement process.

A well-rounded advisory board can be a vital source of remedies for

ra many, operations ills, for_ problems in securing worksites, subcontractor

4 scheduling, leads for and actual job placement, or interpretation^of state

rules regarding youth employment in hazardous settings. A strong,working

advisory board is critical in ensuring that the model meets its training,

placement and community improvement objectives.

Payroll and Timekeeping

PayFoll and timekeeping procedures followed by the project should, as

closely as possible, reflect practices on construction sites. They also

should 'simultanebusly adhere to pertinent regulations and-meet internal

progmi needs. A well organized payroll/ timekeeping system is a necessary

prerequisite for the wage ftentive system proposed in this model. t

In organizing a suitable system, program managers shduld first assess

the payroll requirements of the governing organization and then ascertain

what latitude they have in exercising options. Program operators should

. develop a system whch also will educate the participants. -That is, crew

members should understand timekeeping and payment methods used throughout

their enrollment.

Payf011 seems most efficient when the responsibility is delegated to

one individual (with at least one o her Rerson .able- to do payroll in the

absence of the primary individual). Of .course, in all recordkeeping and

payroll procedures, the prime sponso and the program administration should

ensure against malfeasance and/o error.

. A critical element in record g participants',hours is maintaining a

precise and objective system, the rules of which are understood an .-greed

to by pafticipants and staff. In programs where work is centralized at one

or two sites, timeclock should:be installed. Where sites are dileersed

and a timeclock is not -practiCal, crew ,chiefs must maintain acZtrhte

Uecords and log precisely the hours worked by each trainee. . be

seful to require that attendance be reported to the program's administrative assistant 'by 9:00 'a.m., which allows time to maintain and adjust

central attendance records and individual time sheets. Not only is an

early, deadline essential for payroll pu'rposes, but it al Ao alerts support

staff to their clients' attendence,making appropriate fbOlow-up possible.

C*4t

58

I Nit
r The recordkeeper should maintain an' individual. file 'for each, participant, including a Wn4 form, payroll activation form, a record of wage

increases,, and records of sick time and weekly time sheets. In order to

minimize problems regarding pay and.hours, a double verification system is

recommended; the time sheet is signed at'the end of a.work week by the drew

mem r and the crew chief, showing agreement to the ,adtual .hours worked

an /or compensated by sick time. On the folloWng payday when the check is

received for.the previbus week's hours, the crew member and the crew chief

I

again should sign the time sheet verifying the wages paid. It ls helpful

to include on the time sheet the formula used for computing ages. Theo

hourly wage is filled in, muliiplied by the hours worked, to equal° the

gross amount. Deductions are listed and subtractel)to equal the net amount

of the paycheck:

. . The actual method used to distribute checks may-have to conform,to

'central administrative guidelines. However, we good system Ighich

maintains accountability and enhances communications and problem solving is

to have all .crews report to the program .office where each journeyman

distributes crew members' checks. The recordkeeper is available to answer

qUestions and make corrections .which will be rectified in the subsequent

week's check.

To recapitulate, then, the following principles will ensure smooth

operation of a payroll' system:

NM=

WO= No.

MOP

Pay trainee and supervisors on a set scheduleand see,that checks

accurately reflect documents subibitted by the program.

Centralize payroll responsibilities to avoid unnecessary-7confusion (making sure that at least one other person is able to

manage the system during the primary person's ab e).

Keep accurate records, showing the exact hours worked, wages paid

and signatures obtained verifying accuracy.

Make sure that individuals responsible for recording, hours worked

,are available during the disbursement period for questions sand

corrections.

Be certain that all program participants understand payroll

procedures, and can transfer that working knowledge to full-time

employment. (

Use .a timecl ck wherever possible.

Distribute palychecks at the close of the working day.

A sample trainee time card appears in the Appendix.

Subcontract Management , Unless the project,staff includes members of all trades involved in

project work, the project will have to hire su4contractors. Since sub1 t o

, 59

6D
contractors are business people, their orientation will be to look at work

in terms of a profit: This is not a negative, but only a different

orientation 'from a youth training project, ,where training goals must be

balanced with production goals. Subcontractors must be made aware of the

project's goals. Project staff may elect to offer an orientation session

to all prospective subcontractors. This orientation will familiarize

subcontractory With CETA and with the project's' goals of training,

employment and community improvements. The staff may also invite subcontract6rs to visit a worksite and ta meet with the foreman.

Publicly-funded programs are notorious for the amount of paperwork and

documentation they require, and many good subcontractors may be reluctant

to get involved because of the paperwork. Subcontractors will probably be

required to submit detailed bills. Some are not accustomed to doing

detailed ,paperwork and may not do this well. In order to ensure that

relationships with contractors are smooth, it is important at the beginning

to tell them exactly what kinds and how much paperwork, documentation or

forms may be required.

Samples of.completed forms and a specific list of procedures tafollow

are helpful to the subcontractors. Any clerical assistance project

administrators can provide to the subcontractors will al,*o help. This

assistance could be typing estimates and/or bills, photocopying and

assuring that the subcontractors have an adequate supply of any forms

required.

ince the project's work will rarely be the only,work a subcontractor

has scheduling his services can be a problem. It is important to set up a

system in which the subcontractor contacts project staff_. regularly in order

to clarify schedules. If such a system is not established, scheduling

problems may develop, resulting in frustration for the project and the

saicantractor. In order to prevent scheduling problems, subcontractors

should be given a general outline of work at the outset so they know when

they are likely to be needed. 110 pattern of regular contact should be

es1"lished.

Since tKe'project will most likely, employ union journeymen as super-

-visors for training youth, the project should, where possible, use union

subcontractors. If this is not done, problems between the project's own

union employees and the subcontractors can result. Problems with the

unions participating can also occur. If unions from which subcontractors

come are not informed about the training prOgram's structure, they may have

objections to their members working on a job where there are-non-union

employees (i.e., youth trainees). This type of conflict can be prevented

by clarifying in adyance what type of work will have to be subcontracted.

Unions from which subcontractors will come can be informed about the

program, assured that it has the support of the unions which provide

journeymen and asked to provide a list.of union firms which they would

recommend as subcontractors. In some cases, these unions may be persuaded

to encourage union subcontractors to take some of the trainees with them

w n they do work for, the project. This is beneficial to the project and

to the subcontt'actors. It.provides more exposure fpr the trainees, and it

also reduces the subcontractor's costs.

A . 60
1

Contractors not -accustomed to working with public agencies--and used

to being paid in full upon completing a job--may become disgruntled if they

are not paid promptly. And, since public agencies are often very slow in

making. paymelI§, such problems arise frequently. This can be prevented if

the project payment system is explained to all subcontractors at the

beginning. Project management can explain the basis on which it receives

payment from prime sponsors and -work providers. For example, many prime

, sponsors and public work providing agencies make payments to projects once

each month. .If the project receives payment monthly, it could set up a

monthly disbursement system for each subcontractor.

Make clear to subcontractors what priorities are set for payment in

the event that "cash flow" temporarily halts. For example, subcontractors

should know that, in the event of a cash-flow crisis, wages are paid first,

benefits second, Suppliers third, and subcontractors fourth. Then, when a

cash-flow crisis does occur, subcontractors can be told- when they may

expect to receive payment.

In general, if subcontractor systems are established early and good

communication maintained, most problems can be prevented and those that do

occur can be managed with a minimum of disruption to project operations.

Procuring Materials and Supplies

,r Since each program is unique due to local needs and characteristics,

program management procedures may differ greatly. Most projects, however,

have responsibility for and control over construction materials used, and

. all projects at least engage in some form of purchasing of essential

supplies. This function can be difficult, requiring compliance with local

purchasing guidelines and a large amount of staff time.

In New Haven, the work providing agencies were designated by contract

as the units responsible for all the ordering, purchasing, delivery of and

payment for construction materials.. This removed from the local VICP

program the burden of maintaining a cash flow payment system. But it also

removed from VICI managers needed control so New Haven enacted an agreement

with the work providers which allowed VICI staff to directly order supplies

for which the work providers would later pay. Each work providing agency

had designated staff with responsibility for this operation. When a work

project was scheduled, the VICI assistant administrator, the journeyman to

whom the project was assigned and the staff person from the work providing

agency compiled a complete list of all materials necessary for the job.

The work providing agency called the order into a vendor and set a schedule

for delivery. Upon delivery, the journeyman signed the receipt,,which was

then sent to the work provider for payment. If a work order needed

Tevision, it had to be approved by the work providing, agency and the VICP

assistant administrator. Lists of additional materials were compiled and

sent to the work provider, who orderd the .supplies. Delays usually arise

only when the designated vendor was either out of stock or could not

promige to deliver on Mine. 4In the -latter case, when prompt delivery was

essential to ongoing production, the VICI van picked Up and delivered

materials. In some instances, depending on the urgency of the request, the

work providing agency allowed VICI staff to order supplies directly from

the vendors without prior consultation.

61

. 10
The relationship between the project and its vendors is crucial, and

every effort must be made to assure full and smooth communication. Like

subcontractors, the vendors may be reluctant to deal with government-funded

projects because of the extensive paperwork and the lethargic payment

process. It is important to meet with prospective vendors to explain the

project goals, describe the processes for ordering, billing, and payment

-;sand establish a process for obtaining telephone price quotations %(vendors

are usually unwilling to quote -prices over the phone until they are

familiar with the prospective purchasers). Many vendors will only

guarantee prices for thirty days; with the estimating and ordering that

occur, telephone access is frequently a must.

The process for storing and distributing equipment and materials will

again reflect the policies of each city. Each non - consumable, item (i.e.,

tool or'equipment) should be tagged or engraved with a serial number prior

to placement in the field. The local project staff person responsible for

the equipment should list for each item purchased a description, purchase

date, purchase or billing number, serial number and a flow chart which

accurately describes the movement and placement of that specific item.

The method for the purchase of consumable supplies must take into

account still other factors. Initial amounts and grades of materials will

be determined by the jobs' written specifications, blueprints or oral

directions. All parties should agree on the particulars and on price

limitations. In addition, the vendors' reputations, the available supplies

and the ability to insure on-time delivery should be known when an order is

placed. Copies of all bills and materials and delivery orders should be

kept. While it is essential to know, from the first estimate of a given

job, the exact materials necessary, this list will undoubtedly be revised

to reflect diversity of crew members' skills and changes in job specifications.

At` an occupied residence undergoing rehabilitation, the project staff

must. limit delivery of a large material order to avoid dislocating the

0 resident. This also pertains to linoccupied units which are susceptible to

theft or vandalism. Control over amounts of materials stored, will limit

frustrating waste. yftwever, managers must also insure that there are

always supplies on land sufficient to keeping the participants on the

program's work project schedule.

The Permit and Inspectfon Process

In order to protect the public interest, municipalities require that

anyone seeking to construct or improve a residential dwelling must obtain a

permit to do so. Before granting the' permit, a municipality will want to

be shown that the 'proposed construction or improvement conforms to the

regulations specified in zoning, fire, housing and building codes.. After

the municipality is satisfied and the requisite permits are granted, its

agents will conduct a series of inspections to assure that the construction

is proceeding in accordance with the permit and building plans.

The zonieg- ordinances regulate the use of land and buildings,

specifically as to type of occupancy (residential, commercial or indus62
40* trial), density (number of families per building, number of dwellings per

acre), and location of the building owthe property (minimal size of front,

side and rear yards). The housing code specifies acceptable room size,

toilet and bath facilities, window space, ventilation, and supply of heat

and hot water, in order to assure a habitable dwelling. The building code

specifiarthe minimum acceptable building materials and design,Ilecessary to

assure the structural and size integrity of a given dwelling. The

.electrical, plumbing and heating codes form subsections of the building

code and contain the specifications necessary to assure safety and

integrity in these areas.

The permit ad inspection processes are rigorous and unforgiving. .1.1e building department of a typical municipality is frequently understaffed

and plans submitted for examination are frequently backlogged. The permit

processes for moderate to complex plans can easily take months. Therefore,

it is incumbent upon an agency doing gut rehabilitation or emergency home

repairs to establish a strong and effective link at the commissioner level

of the municipal building agency and with the plan examiner.

In general, the project management agency is responsible for obtaining

a building permit. To facilitate the permit process,"the prime or the

delegate agency might itself successfully apply for and obtain a license as

a general or home improvement contractor. In most cases, this is relatively simple to do. However, electrical, plumbing; and heating permits

can only be obtained by contractors licensed in these areas. Therefore, if

the managers of the project are subcontracting these mechanical systems,

the responsibility for obtaining these permits rests with the subcontractor. In most cases, the type of dwelling being rehabilitated will

affect the permit and inspection process. In some municipalities, plans

for single and two-family dwellings scan be put through a "one-step"

examination process where a plan examiner-technician conducts the review in

-a single sitting, with a final sign-off by the supervisory plan examiner.

In these cases, permits can be obtained in a single day. In other

instances,",,applications for rehabilitation of Angle and two-family

dwellings require less detailed plans--for example single line architectural drawings, rather than double line plans. In some cases, cost is a

determining factor in the pprmit process. For example, in Philadelphia,

electrical permits must be obtained if a new service is being brought into

the dwelling or if the Atal of mttgrials cost exceeds $100. If an electrical emergency home *Or can be brought in for less than $100:then

neither the permit nor the cocanmitant inspection is required. Me permit

and tpspection processes become much more rigorous when pe9number of

living units exceeds two.

Some muncipalities may require pprmits for demolition work done by

contractors. They may further require the contractor be bonded and

insured. It is unlikely that prime sponsors will obtain such. bonding and

licensing. In the Milwaukee VICI demonstration project, planners learned

that homeowners may obtain demolition permits in their own homes for work

don! on their property.

If not adequately handled, the permit and inspection processes can

easily disrupt the inception or completion of _work. One cannot emphasize

. enough the need to thoroughly understand both the agencies and the re-

, 163
fr

quirements involved. If an effective link is forged with the muncipal

building egency and if the personnel involved understand the goals and

methods of the project, then this department can be an effective ally. If

they do not, the building and inspection agency can be'a real barrier to

success. Planners are urged to involve a representative ol the local

permit and inspection agency (or agencies) to sit on the proje advisory

board. , ITypically the pe t and inspection process will be as follows:

r.

64
The.Pennit and Inspection Process

Step I Determine that the use proposed for the property does

'not-violate the zoning code. If Ifere is no change in

use (that is, if the house, or example, once

renovated, will remain as the single or two - family

dwelling it was prior to renovation), then there should

be no problem in receiving approval from the zoning

department. On the other hand, if there is, to be an

addition to the building, or if the dwelling is being

converted from a two-family dwelling, or into a retail

store, then lengthy hearing and appeal processes are to

be expected. Therfore, the lead time required for

obtaining a permit increases dramatically. Cities in

the national VICI demonstration chose not to tackle

worksites where changes in zoning would be required.

Step II Ace the proposed construction or rehabilitation is

deemed to conform with the zoning ordinance, the fire

and housing sections review the plans. The fire unit

will review the property plans for proper access, exit

and fir6 alarm systems. In most cities, single and

two-family dwellings do not need the review and

approval of the fire unit. The housing unit will

review the plans for habitability, as described above.

Step III If the plans are approved at this stage, they are

forwarded ;to the- building (sometimes called the

construction) unit, where a detailed structural review

is undertaken. This department, determines that the

fire rating of all and. other proposed construction

materials satisfies the code, that 'stairways are not

pitched too precipitously, that floor and roofing

materials arsufficient for the load.

NY Step IV Once approval by the 'building unit is 4;7wed, a building perniit is issued, A copy of the permit and

plans are forwarded .by the municipal agency to its

inspection division, which will then assign an inspector to monitor the construction or rehabilitation

to see that it conforms to the plans and building

permit. The inspector will require advance notification of the completion of various'construction phases

in order to schedule)inspections. For example, he will,

want to inspect the electrical wiring,, plumbing system

lk and heating ducts prior to having the walls closed in,

and therefore will not .permit construction toipontinue

past this point'until he is satisfied that the work

done conforms to the plans and permit. ,Finally, once

the construction or rehabilitation is completed, a final inspection is conducted and the building receiv s

a certificate of occupancy.

so 65

75

0

>
WV.

The Construction Process . Guttfng.and rehabilitating a building comprises a complex process that

requires thoroughly planned manpower and materials resources. Following is

,a brief outline of the construction process as it will unfold at most sites

(refer also to the accompanying chart).

The firit, step is to obtain a list of properties which are suitable

for renovation. These properties are reviewed for feasibility as re- habilitation sites, primarily on the bas.k of structural integrity and a

!about

that is accessible by public transportation. Sometimes decisions

!about which rehabilitations to undertake are best based in large part on

the surrounding community. Rehabilitatiofl of one unit on a deteriorating

block may not be fruitful. Operators may want to target to improving

blocks or blocks in target areas for other government programs.

Any building should have sound exterior walls and framing; otherwise

it is better demolished. The next step in the feasibility study is to

determine whether the, building and its proposed use conform to the zoning

ordinance and building codes. This step should also include an examination

of alternative uses for the building.

Next, the project architect develops the preliminary drawings, floor

plans that include detailed measurement of the building and a tentative

layout of each room. From these drawings, the architect can make rough

cost estimates for materials, supplies and subcontractor services. The

project now has all the information necessary to arrive at a final set of

plans. If the proposed work can be accomplished within the budget

available, then the construction plans can proceed. If the project exceeds

the budget, the plans will have to be changed.

The architect then develops a set of working plans. These form the

actual construction documents which will guide the construction manager to

the .layout of the, rooms, location of partitions, placement of plumbing and

heating fixtUres, dimension of staircases, and all other pertinent

information. The plans- contain specifications regarding the minimim

quality of material to be used and provide all. prospective subcontractors

(e.g., electrical, cement, roof, etc.) with the information necessary for

them to prepare bids.

At this point°, applications for building permits can be filedlnd

construction schedules can be developed. The development of construct on

schedules is a very serious undertaking, for it is during this process that

the concept of skill progression becomes important. ,In the model, certain

events along the path to project completion must occur either in concert or

in sequence.. Materials and labor have to be well coordinated in order for

work to proceedtpn time. In the construction business, the saying "time is

money" is particularly relevant. A construction planner must have a

thorough understanding of lead times required to procure materials,

equipment and subcontractors.

Once the permits are 'obtain ed and the construction s\hedule established, the actual demolition and rebuilding process can begin. The

Construction manager now removes his planning hat and dons his expeditor

cap (d football helmet may be more appropriate). The role of the expeditor

66

7G

ft

4.
The Construction Process

Step I Poreman (head journeyman, etc.) obtains from ork

provider a list of available worksites.

Foreman determines their suitability to VICI based on:

structural integrity;

accessibility by public trans-

. portation;

\ conformance to building codes

and zonj j ordinances.

Foreman chores the worksite.

Step II ArCnitect, prepares preliminary drawings, including

rough floor plans and room layouts.

From these drawings, foreman (or estimat% or, etc.) will

roughly estimate costs of the job.

If this falls within budget, staff will proceed with

working construction plans. If job exceeds budget,

architect must revise preliminary plans.

Step III Final plans are drawn up, including job specifications,

materials lists, and all information needed by sub-.

contractors..

Step IV File for any necessary building permits:

Step V Develop construction schedules, for each aspect of job

and for each crew.

Step VI When Steps I-V are complete, begin the actual con- struction work on this site.

67

4
IOW is to remov barriers' so that construction events can occur on schedule.

He has to horeograph a complex 'group pf actors including supplirs,

participants,. inspectors and subcontractors. He has to arbitrate disputes

and interpret plans, arrange payment or credit for materials and services

and negotiate with inspectors. The expediting role is vital in the

completion of the project on schedule and within budget.

Using Program Information as anagement Tool

Weekly reports on participa s' progress work value calculations,

estimates of job costs, fiscal revrts--all hese provide for the vital

day-to-day insight into the health and effec iveness of the project and the

participants. The major elements of an. informa ion management and

accountability system are described below. Any of these elements can be

incorporated into a new program, where deemed important or.useful. Because

of the complexity and ambitiousness of the model, information and its use

are more critical than under more basic efforts.

For each parti ipant, individualized progress information should be

A- gath ed on attends ce, job skills, dfkAgge, wage progressions, etc. A

form signed for this purpose in the project is provided in the

Appendi . A weekly/monthly progress report should measure program

performance on several fronts. Taken individually, it should mark a trainee's achievement of skill 'levels and mastery of specific tasks. It

Should alsoreport the trainee's attendance and punctuality, his or her

behavior, wage increases earned or the reasons they have been denied.

Regular review of this information will enable supervisors to assess a

traiee's progress and will signal to a counselor or job coach any

problems.

, Progress reports received in-Toner will give other clues to the

health of the program. Managers will want to pay special attention, for

example, to a *set of eports in which all trainees receives the highgst--or

the lowest--job p rformance ratings, so that they can review with

journeymen the eya nation system, job assignments, etc. They will note

too, a set of reports which shows wage increases for trainees with repeated

absences and lateness.

A careful analysis of progress reports will inform the program

management about the growth of\each participant's job skills and development. Analysis of this information will also provide important' insights

into the supervisory skills. and habits othe crew chiefs.

Of ual importance,to the personal progress of trainees is the actual

productiv ty of the project. Measuring productivity is, difficult, but

feasible- as long as some basic information is obtained. Productivity s primarily a measure of the value of work as compared to the costs f

getting the work done: i.e., output s. input. The input consists

labor (participanti and crew chiefs), pendable materials and supplies,

tools, subcontractor services and managem nt. The cost of each of these is

obtainable if a good cost accounting s stem is established. The labor

costs should be broken out on the weekly/monthly participant progress

report. The materials and subcontractors costs will be obtained from a-ja

68

r,
cost summary prepared the project accounting unit which shows all

materials anti sqrvices allocated to each worksite. Cost of tools for the

duration of the project should be prorated for each worksite. Adding the

labor, expendable material, subcontractor and tool costs lives a figure for

the total cost of project input. Refer to the sample forms in the

Appendix. e The value of the output is determined by estimating 'the charge a

private contractor' would bid to complete the same work. Then, setting up a

simple ratio between the private contractor's bid (output) and the cost to

,the project to do the work, will give-a fair measure of the productivity of

the project. Productivity will ebb and flow as skilled participants

graduate and are replaced by uninitiated enrollees. However, some refinement of the basic input-versus-output comparison will provide more

sophisticated and useful management information, as well as documentation

of output for the work prchiding agency. For example, the ratio of.labor

costs to expendable materials cost should change as the trainee becomes

more proficient. The ratio of participant' labor to crew chief labor should

change as participants become more reliable and attendance improys-r--

- Managers will want to monitor the costs of work projects, to ascertain

a number of things about the program. Most obviously, good cost estimating

-*ill enable the manager to enhance the accuracy of fiscal projections- -

e.g., how much will this project drain the budget? How much will this job

cost as compared to another job? Does the amount of skills training

involved justify the materials and supplies outlay? But the cost estimates

may also, when monitored' in tandem with o her program management information, provide the program manager with sight into other aspects of

the program. Are more complex jobs being one which require more proficielicy' from trainees? Have journeymen adequately planned tasks and

projects? Does the project as a whole continue to satisfy a primary

objective of producing valuable, tangible community improvements?

The procedures followed by project to estimate and report work costs

will vary according to the job inl, done. If a job has a set of blue- . prints and specifications, cos stimat4ng is simplified, since the

materials needed are spelled out i etail. If -bluePrints and specifications are not submitted, the task then becomes arduous and more complex

§-ince staff must try to present,a-Aisual picture of how the task will be

constructed, determine within reasoirthe amount of material to be used, and

allow for the over-run of materials cost (whlih is more often the rule than

the exception).

There are several methods one can use to determine and evaluate the

general. cost of a 'ob and its cost effectiveness. One approach is preprinted forms used o estimate labor cost of crews and supervisors along

w materials co s. The cost of labor is predetermined, based on 'present

salary levels, while materials and supplycosts are set after consultation

/tjlt- with various local vendors or suppliers who quote the price figures. This

is generally done every thirty days since manufacturers will not commit ' themselves for a longer period of time. Cost is also determined 1py

quantity purchased and time of purchase. Bulk purchasing often results in

a two to eight percent price reduction.: ., . v *

S69
0

availability of an item will at times be a more important'factdr

than cost. For example, if you are required to wait 60-90 days for an item

from a supplier who sells it at one price, it may make sense to buy from a

supplier who charges more but can deliver in 30 days, thereby increasing

your materials cos t, even by five or ten percent, while not delaying the

job.

After a job has been completed, it is necessary to determine the

actual costs. Staff should review -trainees' time cards and daily

attendance records to determine actual job cost versus estimates, tr..

determine if a particular job has been cost-effective, to see what, i anything, can be done to reduce the cost of similar jobs in the future, and

to be used as a reference fort further estimating.

Several factors an wreak havoc with cost estimating and reporting.

"Change orders"'frequently cause alt&ations. A change order is submitted

in writing by a contractor, citing revisions of the original contract which

are necessary in order to carry*out the original intent.. It will cite

`alterations in specifications of costs of materials and labor and of time.

Change orders invariably mean lengthened work time. While they may arise

from unsatisfactory work performance,or misinterpretation of blueprints,

they can also arise from incorrect blueprints or a revision of plan as

Aetermined by the architect or homeowner. __Ere-construction meetings are

the vehicle used to air these differences and recommend changes that

ultimately effect a cost overrun of a particular job.,

The other factor that will play an important role in the success or

failure of a job is the overhead charged to a job-. Several yardsticks

should be used in determining adequate overhead: 1) past payment record of

agency, company or individual owner; 2) method of payment--partial payment

when job is one-half completed, or 80-90 percent payment when, work is

finished with retention of 10-20 percent for six months to determine if

structural defects have occurred; and 3) number of staff persons needed to

effectively sUervise and monitor the job from start to finish including

office staff. Overhead is generally considered to be 15-20 Orcent of'the

total job cost.

ekd

a -4

70
Cost Estimate Considerations

'Cost Estimairactors:

o Labor cost

o Material cost

o Rental fee

o Insurance

o Sub-contract fee: I)' Surveyor; 2) Architect; and 3)

License fee

o Building permit

o Utility fee

o Site preparation

Material and Supply Factors:

o Direct purchase (from manufacturer)

o Indirect purchase (from local vendor)

o Bulk vs. minimum purchase

o Type o grade of material

o Material and supply method of payment, cash and carry,

thirty days or open account

o Seasonal purchase, low production period vs. high

production period

o Purchase of discontinued stock

Post Recorpg:

o, Review and record total labor time and cost

o Record total material use0,

o Update change in mterial and supply cost

o Record total-165 cost including sub-contract work

o Record completion of punch list

o Verify and sign off of construction waiver

.16

4.1
O

Fiscal Management

The fiscal management of this kind of project must confront--as does

the management of any complex progrm--accounting for funds from, %any

sources, spent in many different categories. An accounting system Ased

upon_ accrual accounting, with flexibility to provide information on a cash ,

basis is a necessity in monitoring the prolram's fiscal status., An outline

of one system follows:.

A fiscal unit accountant, after receiving instructions and

program. assumptions from the model planner,,develops a detailed

budget. This budget is then broken down .on a monthly basis and

the planned expenditures V individual' line item and overall cost

categories (Administrative Pool, Participant Wages and Fringes,

Services, Market Supplies, Training and Worksite Superyision) are,

fed into the computer.

- - Whew the program begins operation, vouchers are prepared by cost

category and line item. An entry i,s''made on the books and data

sheets as payment's are made.

at, A computer printout of all expenditures iv deve:Poped each month

anq is

`by

against the manual ledger. The expenditures are

listed by line item within cost categories. The printout is

brokendown into planned, actual, and accrued cost totals.

The program plageer reviews the monthly printout and determines

if corrective alion is needed in any of the cost categories.

The planner then meets .with the program director to develop a

plan to resolve thg problem.'

Accounting systems are sually complex because of the multiple funding

sources and because of th necessity to retqrd costs of each job sep-:

arately. In addition; each funding source wilrhave its own fiscal report

and voucher requirements. It is important to establish books and records

which will illustrate income frOm each funding. source and which will show

expenditures-according to budget line item for each funding source.

The simplest method of keeping track of all expenditures is todevelop

a Chart of Accounts which identifies a specific account number...for-each

item in the budget. For example, account number 1000 could represent

adthinistratiNe salaries, 1001 could represent fringe-benefits for administrative personnel, etc. Any expenditure in these areas would then be

charged against these account numbers for each budget line item. With this

type of system it is easy to accumulate totals at the end of each morph for

internal repo?ts and for fiscal reports to funding' agencies:

Another area of fiscal recOdkeeping is purchasing systems. Personnel

0 must be able to identify the materials purchased for each job and the

funding source to be charged. Pi purchase system should include the

following steps.:

5 72,

tl
,% -....

, : Purchase orders should ALWAYS be used (see Appendix .for-

.

. examples). , i$ .. Each 'purchase order should include the job or jobs:for which the

material is being ordered. If material for more thanone job isbeing ordered on one purchase order, the items to be used on each

separate job should be identified% . , When the materials are deliyered, the foreban should checks the

delivery against the purchase order andjaote any' differences.

This will assure that only materials actually received will be

paid Ifor.

When the bills are received, itemsIiiiled should be checked'

against,purchase orders. Check requests should-be prepared which

identify the job and the account number (budget line item) to

.which cdsts are beng charged. . ,

, . o.to If a good purchasi ng system is established, problems of Accounting for

expenditures by job should be, few and ,reports for ,various funding' sources

should be simple to prepare. .

I

4.

%

1, 0

411

7,-

f ' s

4

r4 a
CHAPTER V: THE STAFF AND THE TRAINEES

Skills Training vs. Production

The construction training project emphasizes both training and

production,and this programmatic "split personality" may create a tension

which. most be well-managed. This tension may exist because the agency

whjalrhas contributed monies for materials and supplies--e.g., a community

development agency, a weatherization agency, or another work provider--

legitimately.demands that the project produce acceptable finished products.

I the community development agency responsible for refurbishing low-income

ouses cannot demonstrate to its constituency the improvement of these

ouses, it does little good to say that a number of youngster received

construction training and got jobs. But this tension may also eed on the

converse: those in the program responsible for training and pl cement may

emphasize skills acquisition and proficiency to a the detrime t of productivity and-deadlines. Job coaches, for instance, will say that it doet

just as little, good to point to finished hOuses if no youngsters have

mastered skills and secured, employment. In either case, the program

suffers.

A successful model recognizes the importance of maintaining the

training/production balance. It establishes to this end reasonable but

full production and training schedules. One methbd is that certain

trainees and journeymen together with administrators determine that

particular projects will be completed by given dates. They will also

determine what skills will have to Wearned in the process of accomplishing such projects. By allowing persons from all quarters to share in

this determination of program objectives, the manager assures that training

goals and production goals receive attention.

Proper pacing of both training and production is more important than a

choice between one or the other. There should be a greater production as

the trainees stay_ in-the program longer and 'learn more skills. Keep in

mind, of course, that when production demands mean that a crew moves to a

new skill area, the training/production cyiele has to begin again; For

example, if the crew / doing basic carpentry, such as rough framing and

installation of sub:floors, moves on to more detailed carpentry, such as

cabinetmaking and installation, the emphasis will be,jor a time on training

rather than production.

Determining, ether this balance is being maintained is helped,

considerably by e work valuation procedure explained in detail in) the

Appendix. Determining the value of what has been done and the cost of what ' it took to,gpt it done (which includes materials, enrollees' time'and wages

and supervisory time and wages) is an excellent tool for keeping track of - the program's on-going effectiveness.

Staff Discipline and Problem-Solving

Personnel policies for staff; if drafted creatively, can make

genuine 'contribution to the "world-of-work" atmosphere the project seeks td

j. 75

/

8 4
.\.

establish. Most operating organizations will. have an agency personnel

policy that governs employees, their benefits and responsibilities. These

are quite flexible when compared to the personnel policies in force in the

construction trades.

Some VICI operators in the national demonstration--Philadelphia,

Chicago, Milwaukee--signed the master agreement with the cooperating,

unions, establishing the union contract as the final document with regard

to hours, pay, working conditions, and benefits for the crew chiefs. In effect, a different, and in many ways stricter, set of work rules is

applied to the crew c'hiefs. They are not paid for sick time, holidays,

time lost to weather and -the like. They can also be dismissed for.. one

incident of tardiness or unexcused absence (though not all sites followed

this practice). Participants, when they see journeymen accepting and

adhering to work rules such as these, are getting a goodintroduction to

the real world. Staff should encourage the establishment of thee types of

rules.

One of the fundamental strengths of, the model is its use of stilled

craftsmen as crew chiefs. They represent the standards of craftsmanship

and work habits that the project seeks to instill in the participants. Few

of the crew chiefs will, however, have worked with youth of this age group.

Few will fully understand the broad role they will play. They will have

had little experience in'working with CETAgstaff, and CETA staff will be

equatly unfamiliar with them.

For'these reasons; it is impoitant to establish a thorough aria ongoing

staff development program. This program shbuld ideally begin early, prior

to actual enrollment of the youth and will involve the crew chiefs and

other staff in the development and refinement of project polidies',

procedures and activities. Work rules, participant personnel policies,

disciplinary and grievance procedures, and timekeeping, payroll and

procurement ,processes are all suitable subjects for the staff to devel

together en masse'or via staff committees.

. . Special attention has to be given to identifying the crew c hief's dual

Aes, as trainers and as producers of work. It"must be recognized that,

while eac of the instructors hired possesses many years of trades

,experie s and is clearly skilled in his particular field, the vast

majority ave had little experience in supervising or instructing youth.

It is important to realize that even though journeymen may, on the job,

have apprentices assigned to Arm, the ratio is usually one apprenticeeto

one or more journeyman. The r io of me jounneyman to six participantS in

the VICI model is low for CETA-run programs but high in the trades, and

posew-problems in regard to management of tasks and supervision of crew

membeft.

As the program seeks to orient journeymen to theietraining/production

C-roles, it may become apparent that ske_pedagogical coaching is necessary.

1 Early; visits to worksites may find some journeymen doing the majority of

the work while participants watch; others may go fromone.perticipantato

the next in a frqtrating attempt to 011.k:individual instruction to each

participant. AdTinistrators may decide to hold training sessions with the,,

journeymen to gfve them better methods of instruct ion and crew manage-

\

ti

s

76 . 85:
*ment--instructing crews in groups'before assigning the crew members to .a

"buddy" system to fulfill work assignments. Involving the local Joint

Apprenticeship Committee and/or a shop teacher from a vocational school

could be extremely helpful in developing teaching and crew management

techniques.

Another aspect of staff development for crew chiefs 'relates par-

- ticularly to working with economically disadvantaged' youth. Job coaches

can be helpful in adviiing journeymen about

)

special needs or problems of

particular participants and pointing out eveloping problems such as favoritism. For instance, they are encoura ed to offer praise for trainees

who are doing a good job, since many you'ili entering the program have poor

self-images and have rarely been given positive feedback, In addition,

journeymen's instruction should cover all the rules -and regulations

governing participant behavior, procedures for enforcing discipline, the

completion of documents, and participant personnel policie. Role-playing,

various situations may assist the journeymen in recognizing their strengths

and weaknesses in supervising participants and enforcing discipline. . Another approach ii to establish a short4weekly meeting at which all

staff review problems and work to refine the roles, of and techniques used

by the crew chiefs. Over a period of weeks, the journeymen can discuss

, t4gir roles (instructor, supervisor, disci narian,' etc.), and "brainstorm" a series of activities tha ;make all their roles easier to

k play. Individuals can "pilot" test the activities and report the results

at the next staff Meeting. Successful activities.are then incorporated

into irnkymen's prePar-Mion for new cases of trainees.

A broader approach is for participants, administrators and journeymen

to eet weekly as a grouP and review the week's problems and accomplishment , and discuss work projects and schedules. At these meetings;

part cipants and staff can express concerns. bout rules and regulations,

trai ing, and so on./. These neetingS provid staff with an. on-going

op tunity to better get fb know the trainee; and, therefore, to better

de elop their teaching skills.

Staff developiMent should not be confined to early days but should be

an ongoing process. ,Such efforts are essential to a successful program as

are individual :meeting §, scheduled and unscheduled, between a journeyma

and ottter.staff members)

Assessment and Assignment

NO matter how large or small the pool4bf recruits that are attracted,

he assessment rocess is particularly important. It ,is of limited value

to have<nyoung people enter program, only to drop out after a Kew

monthskft is lso of limited Value to enroll in fhe program young people

whofire eage to work but who simply cannot achieve the level 'of skills

required in his.program. A high termination rate in the first months of

the program means, a great deal of wasted, effort. The best safeguard

against this is the assessment process l'tself..

),)

41

77

86
IS%

#47

Assessment is the process- of determining the aptness of the progra

for the youngster and of the youngster for the program. This assessment

will be based not as much on a set of rigid criteria as on, the operators'

clearly-articulated program goals and judgements about the kittft of young

people who can achieve them. The project makes stringent phytical and

emotional demands on trainees. Trainees omust have enthusiasm for a long -term, rigorous training program, in general, and a real demonsfrable

interest in construction or related training in particular. Traineel will

have to be in good physical condition, able to work long hours in cold and

hot weather, on ladders and scaffolds. They must be willing to follow

directions and observe schedules.

Experience has shown that some youth are more likely than other's to

terminate positively from this model. Generally, most positive terminations were:

-- eighteen and nineteen year olds';

-- those with:a diploma or who l,tre motivated to acquire a -GED;

-- those who /had positively terminated from other CETA programs or

jobs; 44

fi

those who participated in the model for 36,-45 weeks, i.e.,

demonstrating cOmmitment and maturity.

Experience has not shown a 'relationship between -prior experience in the

construction field and program services. Lack of prior experience should

not be considered a barrier. However, enrollees must evokevA definite

interest in construction work.

a

1 Assessment cannot, of cOrse, be a foolproof Irocess. Assessors may

assess impectgctly, or Unforeseen developments may occur once he program

gets underway. We want also to emphasize that assessment is pot "creaming"

and that it has'much value for both the enrollee and the program. As long

as assessment is not an exclusionary process in which, for..example, only

highly skilled applicants are selected and others, in the target population

are not, it is valuable in determining early whether or not this program is

the/fight onefor* the applicant.

. Before program operators can determine the suitability.of an applicant

for the program, the applicants must know what the -program is. Program

Operators should make a presentation about the program. They will explain

the skills the enrollee will be expected to learn, the intensity of the

work, the number of hours, and the physical andintellectual deMands which

theprogram will make. In addition, the program rules and regulations and

the rules And requirements goiterning admission to union apprenticeship

'prOgrams, should be made clear to the applicants. During this stage of

assessment, program managerS must involve the journeymen who will work on

the project. They are most able to explain the nature of the work involved,- and they mill' also contribute to -assessing the applicants'

intereSts and potentials. ,

78

I

)

't
I.

There are a number of methods of Worming prospective enrollees, most

frequently neighborhood "open houses " ,for pamphlets and flyers. At open

houses, large numbers of applicants assemble with staff, current trainees

,and journeymen supervisors in informal "rap sessions." Generally there has

been considerable success in Rersonal, verbal exchange's of information and

questions; pamphlets- can algo describe the program but face-to-face

interchanges better serve the needs of the applicants `and-the program.

Small group interviews--three or four staff and journeymen intervieWing each applicant--have proven the most worthwhile in screenling yousth

with a general interest in the program. Being careful not to oveekelm the

applicant, the three or four interviewers can be sure that their perspectives and impressions w 'clear and,' in some measure; shared:

Journeymen must participate in the interviews, since their perspectives as

experienced tradesmen. and trades teachers are vital to the assessment of

prospective trainees:

I, There are some general rules that should be remembered:

o Do not expect an impeccable work history.from 16- to 19-year-old

youth.

. . ,1 o Make 'clear that this is not a two- or 6ree-month stop-gapl

program. Determine if the youngster is merely in transition --

waiting to go back tq,school, planning to relocate, planning on

entering4 military services, etc.--or if the youngster clearly P indicates a predisposition to a field of training outside con-_,-

'struction. % j.

o Emphasize program rules and regulations. Note an unusual

resistance to-the r ules and regulations. We cannot overmphasize

that the stringent equirements of attendance and productivity

which characterize he model are, in our judgment, critical

ingredients in the success of any serious training and employment

program.

The pendix contains a student selection sheet used in one of the

VICI prof cts which both elicits information and helps to emphasize to the

'applicant hat is expected.

Orientation

<

Project Planners must carefully develop orientation procedures for the

enrollees early days. During orientation, the enrollee will begin the

critical adjustment to training'scheduleS, rules and regulations, 41peryisor/trainee elations, safety practices, tools, etc. In multi-trade'

projects, the enrollee may uge this time to xplore tbe trade areas open.to

him or her and ta choose,one in which .to c centrate his of her training.

CreW chiefs and administrative staff must a sure the enrollee that during

brjentation, productivity will take a ided back peat to his 'or ,her

comprehension of what lie§ ahead.during.training. Q

'''% 4 0 to 1'. ' . /

t -...--- 4

79

. re
a /I

1, The orientation period will be useful to project staff in determining

enrollees' basic skills and their remedial education needs. Enrollees',

knowledge gigf measurement, spacial trelations, arithmetic, etc. cannot be

taken for granted'and, while the t aching of these'skills is not limited

I just to the orientation period, it should begin early on. It is un- °comfortable, -embarrassing and frustrating, for journeymen and enrollees

alike, when basic fundamentals of measurement are not understood.. We

emphasize that evaluating basic skills should not soreen enrollees out of

the program, but should instead be quickly 1,00ked into to determine what'

supplemental education arrangements must beflade.

-Orientation can be combined with or planned to supplement the

assessment process. If, for instance, at the end of a week's intensive.

orientation activities an applicant sees that he, in fact; does not belong°

in this project, or if staff ee that, in fact, and enrollee Is not suited

to the trades offered, the ime lost in a weeksor two it more than made up

for by the soundness of n early choice made by the enrollee-and the

program. Enrollees whp cho se not to enter the program clear tilb way for a

more compatible enrollee. And they'have made an intelligent ch ice based

upon both the p4oject's and their on ambitions and capabilit' s. Strong

efforts should be made to refer'the enrollee back into the C TA system or

to another appropriate job referral .system to secure other employment.

4 . . A most practical orientation procedure and device is tq have enrollees

build, in stages, a room sized model, on which they practice carpentry,

masonry, glazing, roofing, plumbing. They can actually construct a home

heating /weatherization worksite which simulates the actual work the

trainees would perfl6rm in the field. .% k, The orienta4

A f,

n.of enrorOces to projects already in operation (i.e., 4,. enrollees who fill vacancies(rising from terminations or 'graduations), can

be easier than orientation of the original enrollees. The most effective

way to conduct :tip orientation is to have the trainees visit the worksites

and observe other enrollees atork. This hands-on 'experience and

obiehiton has had considerable effect in allowing enrollees to make

honest determinations of their aptitude for this program.' Those grograms

ii\

that are just beginning, thou h, and which do not have an experiencU crew

to observe, should, offer, d ring orientation, a mix of both didipictic

information and hands-on experiince. A pure introductory classrobm rmat

.pas not been successful, perhaps because it smacks too much of an academic

1. environment Which does not conjure up pleasant associations td most youth.

Experience has been that a blend of lecture and demonstrations works best.

Skills Progression

.

. "Skills Progression"- -.the systematic advance1 through a series of

competency levels of a particular trade, demonstrating prokficiency at each

successive level -- figures critically in the projec di Youth's commitments

\.,

to remaining in the program, .improVement of their s ills, their attitu es

towards work--a13 Ire Subjects. which have occupied the minds of mane r planners. Not surprisingly, experience in VICI has demonstrated that a

progressicin of skills, rather than the simple repetition of tasks, will

have a more salutary effect ontne trainees' Morale.and on the.work being

CI .0;

J

8 n

O
4

done. Studies of adult workers confirm that aAariety of tasks, feedback

on accomplishments, new challengei, all contribute to making a healthy work

environment., however; to accomplish his while maintaining production

goals and standards is no easy task.

Journeymen, supervisors and administratqri have to construct detailed

plans for teething slenTs within the context of normal productivity. For

example, a carpenter trainee should move from crude.carpentry work to more

sophisticated, detailed work as hisuor her length of time in the program

increases. But the trainee cannot reasonably move to more complex skills9

in thq hierarchy until he Iv she has mastered the. skills he or she

currently works on.

Charted below is a skill progression forcarpehtry used in VICJ.

Skills progressions for painting, plumbing, masonry, roofing and electrical

trades can be found in the Appendix. These progressions guide trains

from "Basic" through "Intertrdtate" to "Advanced" task levelt.

f

I

Carpentry Skills Progression INIEWEDLATE

Use and safety of

portble circular saw

Cutting sole apd top

plate

Ihstarl backing and

partition intersections. Cut install cats.

Flax i a rough door

BASIC

Reading the rule.

Laying 16" D.C, for sole,

and top. plates. Nailing end studs In

place.

Layout succesive gable

studs. Install floor joists'

Dillbling joists under

heavy equipment

Install insulation

AD.mYCED

Reading blteprints

Snapping and chalk line

and setting sole late to line. Cutting and setting

let in bracing.

Determine size of rough

door opening

Estimate and order insal

Measuring and cutting ation materials required

jack studs Detemmine position of

Nailing jack stUds'in ridge board.

place. Layout for floor joists

Use and safety of the Construct a rough stair circular sae °perking Fabricate a union sawhorse Fabricate and install

Cut sample raftet bent bracing

Install rafters (pldrib end) Site developrht

Install rafters (plate end) Fabricate and install

concrete fbnms. .Use and safety with a

router Manufacture moldings

1

ti

The cooperating-01140as or contra ars' groups. should be approached for

help_ in establishing the skills progressions. These groups have substantial resources on hand through their apprenticeship programs and' they

should be able to assist with the development of-skiys progressions and

assessment techniques.

Most sites in the national demonstration dealt with assessment of

skills .growth through a weekly participant evaluation: In this prodess,

the journeymen crew 'chief noted the three most advanced tasks performed by

the%tratnee, rated them according to their status as basic, intermediate,

or edvancn, and assessed the participant's performance on a five-stage

scaletranging from poor to excellent. The assepleMent*was forma }111 the

. 4

,

*.4

81

44,

4

L

D

Q
A

weekly progress, report. 'By this ,proc s, program staff were able to

effectively assess the growth of each par icipant's skills and to promote

or provide remedial skills training as appr riate.

In ordr to .have effective skills prog ession, the worksites themselves must accomodate this growth. Planners and administrators htst,

'therefore, exercise care in negotiating with the wOrk-providing organizations to ensure that the work, 0 be done is not overly redundant in

nature. Carpentry and painting worksites are obvious for skills progressions. At ,first glance weatherizaton may appear- not to .offer good

skills progression, but properly structured, it incorporates the complex

tasks of boiler and radiator rejuvenation) masonry and foundation repairs

and roofing into skills progressions, in addition to the traditional

insulating, caulking and storm window installation tasks, and can develop a

thorough, professional skills progression.

The hallmark of a youth training and employment project is the skills

progression and its juxtaposition with the worksite goals. Whatever method

is used, a well-designed system of skills*progression*not only ensures a

more qualified youth graduate but also maintains the interest-and productivity of the enrollee.

*t. Sill Training Emphasis

Two schools of thought may prevail "regarding the assignment of

enrollees to skills training areas'. One school argues that enrollees

should be exposed to a' variety of skills, since this is a work experience

program designed to acquaint the enrollee with the world of construction

and the variety of skills which will make him or her more employable. The

other school argues that, in the time the young person is enrolled in the

program, he or she will have the opportunity to become reasonably profi6ent in a particdiar skill only if he or she is given continuous

exposure to that skill. The preponderant opinion,- though, is that an

enrollee who has concentrated on one trade will have a greater chance of

employability and more continuity of work, and program managers will have

more manageable programs. No matter which approach taken, program

planners and managers must decide prior to the launching of the program.

In thinking through this choice, the planner and Manager should noteithe

following:

o An enrollee must work fot' at least a prescribed, minimum period

of time at a particular trade. Primary reasons for this are two:

A First, it will take period of time for a trainee to reach a

minimum level of competence in any trade. Second, a young person

may, as he Dr she becomes more proficient at and comfortable with

a paticuler trade, elect to .pursue a trade which he or she

crigiopally may have discounted. The consensus is Mat a twomonth minimum'stay in a particular skill is best.

o Program managert and supervisors often raise the issue that, An.,

trainees change skill areas,* productivity desirSeg.- That Is, as

a:new crew_begins, to' work or as new members join a crew, they

I will produce less tnan the more erienceCi members. This means,

0

82

to

C

't

/
.N

in turn, that the journeymen crew chiefs have to take time to

instruct new members while leaving other members ,of the crew to

continue their work. This has not always been a .problem since

many trainees are able, after a few months, to function retatiVely independently. It does mean, however, that dourneyMen

must plan "projects, before new members join a work crew, which

will allow for independent work, since new trainees willoccupy

much of the _journeymen's time as they start their new skill, vl. leaving the more experienced members relatively unsupervised.

One method, used with' considerable success, is to have an enrollee new

to the skill work at the outset with a more experienced enrollee; or a

tl particular competent trainee can take,over the crew while the journeyman__

works wit the liew enrollees. Still enher approach is to have a complete

changeover of crews. A crew can move en masse to another skill: This, of

course, does not solve the problem of decline in productivity, but

logistics are easier, since a new crew would'start approximately the same

way that the previous crew had begun. The problem here is that the work

itself may require greater complexity of skill, since the previous crew may

have finished the beginning step and gone to more complicated procedures.

Wage Progression

An essential feature of tile model is a wage ,progression or salary

increase system for itspartieipants. The wage progression Systed was

developed to duplicate practices used by employers in the trades ,occupations, to reward participants for good work habits and skills mastery; and

to provide incentives for quality work. In essence, wage incentives were

seen as a way of orienting participants to the real "world of work."

The progression' begins at an entry-level wage, established by the

program' operators, 44 moves upward in steps, each increase justified by

good work performance, skills assimilation and enure in the program.

Programs may vary as to the number of raises; he New Haven VICI TerticfpantS started at the federal minimum l'Age, and ere eligible to receive

increases in salary of 15 cents an hour at regular intervals. New Haven

granted increases based upon minimum criteria of ten to ,twelve weeks at the

previous pay' level, a 95 percent attendance record, and a rating of

satisfactory or better for work habits, performances and skill development.

The system was developed with the assistance of the Carpenters' Joint

Apprenticeship Committee's Coordinator and closely resembled the Apprenticeship Program' wage scale system. The decision to award a wage

increase was nOt left to the crew chief; thejob coach and program director

had final sign -off.

The wag progression system has proven to be a valuable .learning

instrument f r participants. In New Haven, approximately 40 percent of the

participants eligible for the first,wege increase were denied ,these raises.

c When a. participant was determined' ineligible,oft an increase, a meeting

with the job coach .was scheduled. The jo oach revieWed with the

participant the reasons why a wage 'increase was not approved. :Subsequently, the job coach and participant determined a course of corrective

action which would make the participant eligible, f6r the next wage in1st
c crease. The result was that most participants worked harder to qualify for a

an iperease at the next review date. Awarding increases based upon

pertdrmance and attendance rather than only longevity proved valuable for

developing a realistic work atmosphere for participants.

'Job Development and Placement

4

Project managers must establish at the outset firm objectives in

obtaining job. placements fqr graduates. The relationships whic foster

substantial placements requite thought, nurturing, and aggressive dttention

early on in the program. There are many means tb the end of high placements. . . v. Some VICI projects hired placement coordinat ors to serve on staff.

/

/- Others elected to tie into the standard placethent procedures existing

within the prime sponsor structure.. No matteriwhatchoice is made, it is

vitally important that the contacts with the un'en, construction companies

and private and publie.employers be developed early on. The advisory board

can. play a critical role in establishing and maintaining these contacts.

Placement relies heavily, too, on the informal but critical network that

exists between journeymen and 'their own unions. Journeymen have knowledge

of and access to job openings, in their particulartrades. Some VICI

programs established placement quotas for each journeyman. The journeymen

themselves had a responsibility to see that a certain number of their

crewpwhom they have deemO qualified--obtained placement.

The more formal placement network involves agreements between unions

, 4

t and the program regarding apprenticeship placements. Part of the i rest

in hiring journeymen instructors relies on access to appren eship

positions for qualifitOgraduates. It is essential, then, tha th se

agreements be cultivated throughout the project. Active involvement f

unions in the program's operations wi)1 further this. The route frequent y

taken to this is the advisory board, where the union is represented. This

might, involve more than one union' oretit might involve a central labor.

council or coordinating agency of the labor movement in a particular

locality. 4

. ) Unions are concerned about thee obligation to accept youngsters into

apprenticeship programs without any real unipn input into the type of

training that these youngsters have received. It has been our experience.

that the uni.pns involved in the design of-the training turritulum, and with

some say on the advisory council, are, when placement becomes an,iissue,

much'more likely to cooperate than to resist. Involving the unions cannot

mean sending an occasional report Instead, it requires tha,,t members of

the union-obwrve trainees at work; that there be formal presentations made

o union members throughout the project; that members have opportunities to

observe the high quality of the work being done; that incentives in the

form df certificates or awards be made to those unions accepting the most

trainees--in short, that unions become partne in the'project.

An energetic placemlit campaign can win 1104tiOnal_placements' in

unions not directly invOlied with the project. In the Milwaukee VICI

demonstrationorfor instance, only the carpenters' and painter14,u0ons

84 AP.

,1
c

4

participated directly in the project, but'VICI graduate were offered

apprenticeships in the glazers', sprinkler fitters', drafting, laborers',

electricians' and railway carpenters' unions. The Appendix contains a sample of a Litter sent -by (il-WaukeerS VICI. project to local,employers.

. . In any ca§e, -placement cannot remairruntguched until the end of the

program; it 'must IS emphasized early in operations. It is extremely

hazardous, in ,fact; to devote energy to placement only at the'end of the

44rprogram, for a Variety of reasons. Enrollees are ready at different times

for placement. Some trainees hive acquired construction-related union jobs

after as few as four months of trainitng. While this is not thi Usual case,

it should be noted that an enrollee with talent and proficiency in a partiCular skill can make very ral'id progress anemay be job-ready earlier

than one would expect in a tridj onalIbb -training program. It does not'

ij

take the saRe predictable, ofiti* e-eperipd,of time for every enrollee to

finish the training course. ob market opportunities, seasonal issues,

annual apprenticeship openings in a,union,' building booms, availability of

mortgage money, funds available for minority hiring, pressures for minority

hiring--all these will affect placement ,of trainees. Unions often open

apprenticeship programs only once a year, and then only for a few weeks.

Placement planners should consider this in developing opportunities for , traine Temporary openings may have to be developed to tide trainees

throug to the union acceptance period. -----;>=s-, ...., We recommend that the progrgw staff include a placement specialist.

However, if this is not possible due to ;budgetar or other constraints, and

if it is necessary to use the traditionalvtimltspqnsor placement network,

then it is even more essential that the placement apparatus for enrollees

be established early in the program, And, we remind operators that even the

strongest placement plans and the most

are staff may experience

difficulties Whenlocd1 econsmic conditions are bad.

Apprenticeship Certification

cit . A successful placement effort is ) rue indicatov of, a programiS

training ability.- Ln a. multi-linked ' program such as thq one,,-.which

employs skilled, experienced craftsmen t. whether union sot. non-union,

apprentice placements should be one .iff the goals. Before 'planning its

placement strategy, the .prime sponsor or delegate management agency, should

understand the apprenticeship systemr., a The apprenticeship system is governed by general rules and l'egula-;

tions, as are most public sector systems. Apprenticeship standards are sett

by the Bureau of Apprenticeship and Training (BAT), an agency within the'.

Department of Labor. BAT has the authority to determine the' terms of

apprenticeship, qualifications, methods of supervision, Work" training

schedules and other policies having to cilzr with developing the apprentice

into a full-fledged journeyman. BAT's authority extends to all apprentice

programs, whether construction or non-construction, union or non-union. , Once an apprenticeship program is develo1.1 and implemented, BAT has the

responsibility to monitor the employer or unis, to ensure that the employer

or union and apprentice are obeying BAT rules. BAT also monitas the.

apprentiCeship's affirmative action and equal employment components. ,.

.0
I

7,

Should BAT find an employer' or union not in full compliance with BATor

other federal regulations, it will assist the group in its efforts to

achieve compliance. BAT cannot approve or suspend apprenticeship programs,

This power is held by the Apprenticeship and Training Council of eacti

4 state.

The specifics of apprenticeship are determined on the local level.

Each individual employer or union sets jets apprenticeship requirements,

within the bounds established by BAT. Information about union apprenticeship requirements is easily available. It can be secured from the union,

BAT, state employment offices and some community-based agencjes. Thee

states Apprenticeship Information Centers accumulate and disseminate

information about apprenticeship openirs, whether the openings are union

or non-union,

Prime sponsors and project managers should familiarize themselves'with

the unions and their requirements. Questions.about entry requirements,

entry duties, wages and dues mustbd answered. The following js general

information about apprenticeship:

I. Most unions require proof of a -high school or general equivalency

diploma.

2. Transcripts are required. Fiat out if the unions requir e particular courses such as algebra, geometry and/pr chemistry.

3.. Apprentice applicants must be 18-25 years of age. Birth ce4iff-

-cates must be provided.

4. Vfterans must provide a copy of-their DD214 Form which *vi des :

informatton,about'their'service record and discharge.

5.. The. applicant may be required to pass a general aptitude and/ or

oral examination. -

6. Applic t ass a phystal examination.

7., Api cation dates et by the union, usually. once a year. Lt

quitepossible that applications may not be accepted,during a 4 particular year. . ne Nay to ,assists placement atd cases to aid in entry, into

renticesnipts. toqcertify time-spent int.the project, the skillslearned-'

and the profitiency,tmuired qurtd§ trairiing. The Method of-determining.

whether,or'noithe skilr his O'Aeri,learned, and of determining' which skills

merit, certificgtioh,..wil) vary 'fool site' to 5ite and program to program.

But gdMe recognitioff!W the. training fs.recommenilled for > traineesviho

4.succeftfully .compdeteiNe. prpgrAMJ The gregtgr the consistency .of' the

project's. internal skills'groAression'iliformation, system wItPthat used in

the epprenticeshiR system, .the-mtre likelt,it.wilI be uses l' and 4§6dZ7.:=,;,--4.:

. ,

.. , -, '. ..k,,.. vel. It, 11.;- . , 0 A certifidate, might, fQr eAtilOs:list tPe,skti,ls leirned and%thet: :,

requirements met*to have/obtained.V01) .credentidr... A:tnt g *est,' the -,,

certification should be.,rgcognition froth e un+on tli a yo g traineebas.

, . , I 1. . . * , : ' . 7-

A4" . .0-' . ,

, r, -4 r

4 86

4

. .,.

'% ,?,. --:

" .

.;
4

co6Oleted a. prescribed course. recommend that each city work 'out its 4

own certification program, soliciting the coperation of industry and labor

in _establishing- certification criteria, minimum attendance and quality of

work. Receipt of this certificate could deperid On results af --a-tompetency-based test a d/or the recommendation of the journeymen sapervisor.

No Matter how tP recognition is given, however, it can have considerable impact on the graduate's success. It can signal to an em Toyer

that reputabje people havg certified the ,trainee's capability and skills'

proficiency. It can alsC4have a sAbstantial personal *pact oh 'the

trainee, who leaves the program with documentation of his or,,her achieve,

ments-.

, 4

.

. d - -,. Support Services , . -

, '' ; y,

.

. ,, . , ,, The VICI model 'del iberately budgdted few. dollars '' for ancillary .,:0: , activities such as counseling, health, education, legal, atid placement and

follow=up services. Those who designed the deutonstration felt that ,the

work experience element of VICI ihoald be emphaized, while depending pfh

links with other organizations to obtain ancillary Services. Because of

the participants eeds, hbwever,there is no question AAA aftangemehts

Must Se made:to prov e these services.

New HaV'en- and other,. VICI' programs met this need by hiring job coaches. ''''1-,.

, .The primary responsibility of the job coach wad to assist each indivjdpal ,

to ,obtain his progemp'objectio-,, To this end, ,the, job coach reviewed

Weekly partic'pant'progress' fermir-and instithed corrective action when , 31'tol)

necessar . F r instance, if a participant was, having attendance problem's, '''' : the job ch %quid meet with the participant ,and, the program director. ,' ,*

Thil-p,-quick. assessment and remedy apprtoach. wa. successful !in retainiu 'a . --L npmber of youth who, not given immediate..attention, would' otherwise!have

left or bedn dismissed fromr the program. 2The teyi chiref could° concentrAte

, his efforts oh training and"produCtion, while the job:coaO t@hded to -,in=

. -:°4 , : % di viduaf partfci pant neecis. ..- . - , . .. ,,

, Job Coachis: esa had the' .responsibility' l'o airlange for supplementel' 1"-

,7, education,Jor program trot e: '' For, le, 'o",,,iigliificant..barrie-rs4to .',',1

', placement :jF, ',pill art o apprekl ghi p prd,gra encodntered4 at it 1 si teS were

.,.., -the,partleipagtf1:110-.1. h schoord4p1 ta's and.drArsAilicens.e4. %NIG' . -,.. 10 coa.CKeS site.re ":ipStrume a/ -isp enro) 1 i ng'&ou.th in Ert. tea in't7rig prOgrams , , adult .educatotron-Atourses'1/2 nd idriver '.training4-'in order to assist par- .,

.% ticipants in Obtaining their djplomas and/or drivers' licenses-befbre VICI

; ,44duatian. Ln IQ' Haven:the Mob coaches also' enrolled individuals in \ 4

,4 0;/ CdurS6S conducted by. the New Haven Recruitment and Training. Program, While

.5p Njlwaukee '04 enrolled, youth jneBig Step, a union-supported non-prOfit

-organizatipn providing' tutoring to .minority and -female applicants for- . apOrentices 4in the local constts.

' ruction trades. These, courses prepared them

. . for apprenticeshipp entrance te - Lastly, the job coaches played a most important role in placpment. In 'New, Haven, eight weeks before a VICI participant was..to graduate from the

program he or 'she was sched4jed for "job. search" sessions with the job , coach. During these sessions, scheduled oft---a- week for approximately 1 three weeks, the pirticipant was trained ih filling out applications,

87

96
, .. J.1:--

preparing a iesume, 'and- sharpening interview skills, appearance and _job

search skills. Each job coach also developed lists.of potential placements

for his participants. Sometimes coaches used unusual means to secure such

placements. At one site, far instance, a job coach passed a construction

site and stopped to inquire about job openings. This unplanned step led to

a placement and served aS an excellent example of job- hunting for the

participants. A number of 'participants subsequently used this method to

secure jobs for themselves and fellow workers.

The job coaches also referred trainees to the other ancillary' service,

agences such as housing or legal aid. Toward this end they were responsible for developing and maintaining contact with providerg of these

services, and for referring and following -up participants as necess'ary.

One of the more pleasant ironies of the VICI search for alternate

sources of support services, ip the fact of low 'budget allocations, was the

discovery that crew chiefs were, in many cases, excellent counselors and

job coaches., At every one of the eight VICI sites, journeymen took very

active roles in. advising' trainees on personal and professional matters,

alWays to the enhancement of the program.

Participant Personnel Policies

While participant personnel policies .ay be subject to governance by

the delegate agency or the prime, program operators shoUld at least

incorporate the local construction trades' policies', if not use them as a

model -in order to make the work experience as valid as possible. By

adopting rules, regulations and responsibilities that reflect closely the

practices which govern employees in the trades, participants are better

able to assimilate themselves into actual work situations.

Participant personnel policies should include the following:

Working Hours

Work hours should be clearly specified, including breaks and

lunch hours.

Attendance

The program places special emphasis on developing good attendance

habits. Participants are provided with instructions on wham to

call if they are going to be absent 'for health or persona)

reasons. They are given the telephone number of their foreman or

crew chief to-contact hith regarding an absence. Penalities for

non-observance are clearly spelled out. s't Punctuality

Spell out the policy regarding reporting to work on time and

reporting back from break and lunch at the required time.

Clearly state penalties for lateness. Note that positive reward

or recognition is also useful to develop good attendance and
punctuality. The wage increase is based partly upon participants' maintaining good attendance. . At one demonstration

site, crews selected' a participant of the month, in which

attendance was an important factor. A photo of the_ participant

of the month was placed on the bulletin' board and he or she was

ptesented with a tool in recognition of, this honor.

Medical and/or Other Appointments

f

The policy regarding appointments should strongly. encourage that

apliointments be scheduled after the work day ends. If this

cannot be done, participants are required to inform the proper

staff person in advance.

/Suspe sion and Termination

Each city in the national VICI demonstration- became stricter in

the control and application of personnel policies as the program

progressed, In many, instances, CETA youth programs were initially seen as "last chance" training for most participants.

While this outlook was adopted with the best of intentions, it

rarely worked. Each VICI program realized early in its operation

that a policy of suspension and dismissal was not only necessary

for the production aspect of the program,, but represented an

important learning experience to all participants. .Youth who see

their fellow trainees dismissed for absenteeism, tardiness,

smoking marijuana, or stealing, are .less likely to commit such

acts; youth suspended for breaking-rules must examine their own

priorities. In fact, some youth who were dismissed from VICI

returned to seek advice concerning employment. Clearly state all

suspension and dismissal grounds and appeals procedures.

Participant Benefits

Participants should be made aware of the benefits to which they

are entitled. In molt CETA programs, each crew member is

entitled to sick days and paid holidays. These two practices do

n8t, however, reflect trade .occupation practices. ,Workers in the

construction trades are rarely paid for days missed due to illness or holiday. Staff and crew chiefs should Ray particular

attention to informing the participants of this discrepancy.

They should also stress the'importance of building up "sick time"

in the event.of future injury or illness keeping them out of work

for any length of time. They should also provide instruction on

health benefits, fringe benefits, And tapes.

Job Rights and Grievance Procedures

The personnel policies for participants sho id include an outline

of their rights to eqbal and fair, employ nt opportunities and

safe working conditions. They should eceive, and review. a

detailed grievance procedure, governing omplaints concerning

discriminatory practices and unsafe working onditions. Program

planners may actually adopt the rules and regulations of the

89 , 98
r apprenticeship program of the union cooperating with the project.

, By tying into an existing system, of apprenticeship ftandards,

,considerable credibility is established with the unions and with

the enrollee as tio the requirements and demands of the program.

In all, 'the participant-personnel policies enacted at the eight VICI

sites °share these common elements. In the Appendix, we have included'a

sample set of participant policies.

The Special Problems of Women

Program planners and operators' from both the human resource-and the

construction worlds should be aware of the affirmative action mandates and

guidelines which govern employment and hiring practices, training programs,

federally- funded building and construction projects, and so forth. They

will know, too, that growing numbers of women now pursue careers in trades

formerly, the exclusive domains of men. Those planning a training/

employment project should determine what the local unions' affirmative

action guidelines are, what prospects these may.present for prospective

program graduates, and how to correlate these guidelines with plans for the

training programs. OYP=DOL set the minimum female VICI enrollment

requirement at,20 pertent.

But those managing the program must. recognize, too,

2 that neither

federal mandates nor the determination of female trainees.to succeed can

alone overcome the barriers in unconventional careers. The staff will have

to Ark to overcome resistance--on part of administrators; journeymen and

male and female trainees - -to women's participation.

In VICI, some journeymen believed women just were not cut out to meet

the stringent physical demands of a construction job. Others said that the

young men in training such as this did not know how to treat 'women as

colleagues and co-workers. ,Their teasing lead to disputes on the worksite

and sometimes to a supervisor's decition that it was simply, ,easier . to

dismiss the girls than try to raise everyone else's consciouspess,,

especially when working against tight production deadlines. Finally, the

women themselves said that their determination to succeed and their Own

belief in the principles of affirmative action had, in some sites, to be

remarkably strong to ,clear the hurdles placed 'in their way by male

supervisors and'trainees.

Of course, not all Journeymen and trainees shared the view that women

cannot beton good construction workers. One journeyman in VICI noted

,that, "I -have nine girls do my crews and every damn one of them is good."

Another asserted that the young women on his crew could lift "anything the

boys' can lift." Where the supervisors were observed-to be helpful, with a

genuine commitment to and interest in all their trainees,` the young women

in VICI attained substantial-success in training and employment.

Thui,' the key to women's success ,lies beyond the trainee's own determination to "buck the odds." Mostly, it lies in the journeymen's

attitudes. If. a young women discerns that the journeymen supervisors

believe she cannot handle the. job and that they have no. intel'est in. her

90

9 0
4

.)

learning to do anything other than count-tools and keep trainees'

attendance records, then she is bound to fail. No matter how strongly she

intends to make it, the odds are a .nst her in a project where her

instructors do not want her to make it. ther, whatever tendencies her

male counterparts have to negatively view her ,participation will be

reinforced by negative attitudes on the part of 'the instructors.

The successful inclusion ofiwomep in the project, then, requires-some

carefal planning and execution. The recruiters must enlist young women wbq

evince a strong interest in the construction trades and a willingness to go

through rigorous and demanding training. This may entail incorporating in

the project's recruitment 'program efforts aimed specifically at enlisting

young women. Recruiters will want to contact organizations-such as, YWCA's,

the Girl Scouts, local women's groups, women's health centers, girl's high'

schools, etc. Planners should also seek out any women in the municipality

who are involved in building and constructions and enlist their aid in

recruiting women.

, 4 Once the program 's female enrollment Minfmum is set, and in order that

those women who enroll have as successful an experience as possible, we

recommend the following steps be taken.

Insofar as possible, hire crew dries who hdve demonstrated a

commitment to affirmative action and a talent for working in a

non-traditional setting.

o Include among.other administrative staff at least one person who

will advocate for the young,women trainees.

o Include aff0mative action orientation in the in-service training

provided for crew chiefs (and for counselors, job coaches, etc.).

Be sure that all staff,. particularly those who, will have direct

contact with trainees, understand that the project has a commitment to training and,placing young women in the trades.

o Contact local women's groups for assistan'e in setting up an

orientation program for staff, and ,a similar program for

trainee's. They may be- able to provide speakers, 'printed

materials, or at least guidance.

o At the worksite, instructors must apply to female-trainees' work

the same standards they apply to work done by male trainees. It

does women no favor to expect less or to accept less, Even .the

strongest-willed, most committed young women may lack some of the

pre-conditioning and basic skills that some young men may bring

to the project. .Instructors must, therefore; be prepared to

spend extra time-to teach young.women basic skills they may lack.

o Crew chiefs andL male trainees must avoid doing work for female

trainees. Instances of 'teasing, ,biting or "sexual harassment

should be tolerated no more than any insubordinatiop trainees may

display toward their, supervisors.

91

S.-100

<re
o It may help, especially as women are being oriented to themztls

a d developing familiarity, to have women trainees work in

ac first. . 1

These steps can make a difference.)Where women did well in VICI,,they

did ,remarkably well. In Milwaukee, the first two VICI trainees platecnin

apprenticeships were women, placed into the electricians' and carpenters'

unioq. Women were the first trainees indentured in Newark and Atlanta, as

well. And they achieved substantial placements in non -union construction4relat'd jobs. Thelattitude of the craftsmen instructors is crucial, and

program planners and managers should take firm steps to assure that thek

project's affirmative action goals are met.

.

16' WM.

92
fi

CHAPTER VI: SOME COMMON QUESTIONS--AND ANSWERS

"From. VICI's inception throughout its operating life, CETA prime

sponsors, union representatives, municipal authorities' and others asked

numerous ,questions which we anticipate the reader may al co have about a

multi-linked, construction triining and employment project:

45' Q. How can I justify spending a good part of-my CETA budget on a A

program such as this? /

A. The unusually high placement rate, the community improvements

that are visible and concrete, and the lasting links, made with

unions and private sector contractors should more than offset the

expense of this program.

Q. You recommend wage progression--isn/ 't this expensive?

A. The, actual dollar cost ,of 'wage progression A relatively small.

AndVthe practice reinforces the real-world(concept of reward for

good work and satisfactory attendance and punctuality.

Q. Do I really have to have a one-to-six crew chief-to:trainee

ratio?.

A. Much of the success of this program deives from the low

supertvisory ratio. While in some instances'one, ould argue for

Iti

seven or eightenrollees per crew chief, we shoul point out that

many unions involved in the early planning of CI simply would

not approve an average crew size larger than six for such

supervision.

Q. You mention union.ulinks!' a lot--how important are they?

. If unions the a, vital force in your community, their involvement\

is essential. They have both the technical expertise to

supervise and a broad range of contacts to provide for placement

opportunities. .'heir inclusion in the eight VICI demonstration

projects proved to'be of critical importance.

y

Q.. What, if there are few or even no unions in my area?'

A. If this is.the case;'then construction associations, contractors,

or any organization that has technical knowledge of construct ion

and access tohe job market should be utilized. In other words,

it need not be a union,-but it should embrace some of the

characteristics of an organization involved in construction

related activItiqs.

Q. You mention Work providers- -how do they fit-in?

A. Irr every municipality there As some form of construction done

under the aegis of a particular public agency. Combining these

,

93

)4.
4

.

agencies' resources with CETA resources ha- s proved mutually

beneficial. This mutual benefit, of course, has to be explored

and developed.

Q. What other things are important abOut a Work provider?

A. ,,The wotk provider should have a solid inventory of projects that

will result in tangible physical improvements and enable trainees

to secure marketable skills.

A

\.1 Could you give me an example of a- work provider that might not

fit? 1 A. Sure. A municipal parking authority might need people to park

cars, but .this might not provide for job opportuniies oncet the

youngsters are finished with the project, and would nOt result in

tangible community improvements.,

Q. hat other things .shoUld I look(out for with woA providers?

A. You should,make sure that their owri internal regulationS do not

preclude the use of CETA paid personnel and that there is)a

long-enough period of time of training for meaningful skills 'to

be learned.

Q. You emphasize the eduicational link--what is the importance of

that?

A. There is more than one value of this. First, trainees must Have

GEDS for entrance into dliprenticeshill programs._ -Second; reading

a ruler, doing math computations and following written instructions are' important in the traini process. This makes

education a vital part ofhe project.

Q. How do I get educational institutions to cooperate with this

program?

A. One approach is to exchange physical rehabilitation of educa-'

tional institutions for teacjiers' time. Anothcr approach,that

has been explored is to enroll vocational sch ol graduates and

dropouts in the training program in exctftnge,for educational

services providerby the vocational school.

Whl\about drivers' ed? Is this important? .

We found this--o be quite significant, especially in arl

without good public transportation. Employers' frequently 'demand

that an employee have his own transportation at hand.

You -emphasize recruitment and selection-rhow do we open the

" program to the community, avoid "creaming" an still get

qualified applicants?

A.

94

103
A. Do not

, look for applicants with prior experience. Look for those

witty a willingness to do very difficult work under sometimes

trying conditions. One approach that was fdllowed successfully

in recruiting is a two-week, non-paid orientation and assessment;

where enrollees can determine ifthis is the type, Of work they

really wish to do. Another avenue taken was to have applicants

visit worksites and obstrve the work taking place. The most

important thing is that the.applibant.,know early-on the deman

and benefits of this program.

Q. 'Ln_choosing a local management agency to run this program, what

-'-.should we look for?

A: Ideally, 'prior construction-related experience ,should be a criterion. HoWever, Since many local agencies do not have this

experience, it is important that it be a well-run closely

supervised organizatiOn that can handle the needtan-dretp-risibilities of a con4rliction-related program.

Q. . What if the prime spOnsor itself runstHe program?

A. The same criteria apply. This has to be a tightly-managed

,program. Professional construction' work; smooth flow of

materials and supplies, a payroll system that results in prompt

payment.of trainees as well as staff, and a wil/lingness of the

prime sponsor to commit the ,necessary resources--,all are

essentiltl.

Q. Who should be involved in the selection of applicants to the

program?

A. After many .different approaches, the one that proved most

satisfactory in VICI was to involve the crew chiefs in this

protest. They, could most effectively handOe'the questioni about

the work; and they had a keen eye for the type of person who

would function well tn this type of environment. Agency staff.

should also participate to see that a "creaming" process does not.

take,place.'i

Q. Do you think the Advisory Board ids worth the trouble?

A. Most' definitely. The inclu ion of union offiqrals, work

providers, go ernment official enrollees and staff on an advisory board cuts through a great deal of red tape, helps

establish politi t and, inn many cases, wens doors for placements

that might not exist if not for this body.

R When d6 you hire subcontractors?

A. Subcontractors are hired when the type of work to be-)done is so

technical that is unrealistic to expect'your.crews to handle

it. It should be noted that this should:be for a limited period

of time, since it would be expensive and counterproductive to the

,feeling that this is work done by the trainees.

95

J
a

Q. Who determines the eligibility ofproperty or persons for some of

the services that we'would provide?

A. Ideally, the work provider is responsible for handling the

eligibility process. For example, if your work is postly with a

community development agency that As doing rehabilitation of

low-income homes, it is likely that the agency sets and maintains

its own eligibility standards.

Is.there ever a problem with this?

A. There can be, if the work provider refers to the project properties' which are technically eligible but which provide for'

limited training opportunities. For e example, a community

development agency might 'need demolition done on 50 buildings,

but demolitibn will not really provide enrallees_with_sufficient

marketable skill.

The manual speaks of the "participant progress form"--isn't this

just more paperwork?

1

A. This form gives an opportuniity for journeymen and youngsters to

review each week the progress that has-or has not been made. It

also gives the manager of the program' an opportunity to see how

.on 'target the total construction process is relativ, to

projections:. It provides the basis for subsequent certification

of successful completion.

Q. What about enrollee attendance? ,How important is, it?

A. If you are planning on training enrollees for the real world of

work, anything short of rigorous attendance policies would be a

disservice, since' once trainees get construction or other jobs,

they will find smalls tolerance for erratic attendance.

Q. Do stringent program requirements `result in a lot of turnover? 1 A. Yes, early in the program people will drop out. Now6ter, once

the message is out that enrollees will be terminated for poor

attendance, you will find.that you have a more serious coterie of

enrollees for the remainder of the program.

'What about women in VICI? Isn't it hard for women to do this

type of work?

Q.

s A. Not nearly as hard as, changing the attitudes of people who think

women can't do this type of work. The VICI experience indicates

that it is) difficult to attract .women and, in some cases,

difficultie$ arise in the way they are treated. However, MI.

data do show that women have participated very successfully in , Construction- related programs and can handle th- physical demands

of the jdb.

ta. . 1-05"-Yi
Q. How do you conduct orientation of youngsters aside from

,explaining what they have to do?

A. Some sites actually built a model that gave trainees a smallscale opportunity to learn what they would do on a much larger

scale, in \people's homes. This was the approach on the

weatherization project in the South Bronx, for example. Also,

allowing enrollees to observe work crews and to ,-Visit construction sites proved helpful. 4 Q. Exactly whatlis skills progression? Why is it important?

A. SkillS progression is the orderly movement from work assignments

requiring and imOcting one level of skills to another. It is

important to see that the trainees develop increased skills and

-de-not -e ebes-soi-l-y-stay-a-t one4evel

Q. What, about skill assignments? Should a trainee get a variety of.

skills or stick With one?

A. .There, are two schools of thought on this question. Some argue

, that a variety gives a trainee abetter oppoftunity for placement, making him or her more versatile; others argue that an

extensive knowledge of a particular, skill will make the enrollee

more employable. The majority of sites in VICI chose the

single-skills approach; howeV6r7-in those sites where pore than

one skill was taught, .the placement records were equally

impressive.

"Q.- What about placement - -isn't this hard?

A. Yes, placement is always hard, Butremember that it should start

early; it should try to coincide with unions' apprenticeship

openings; and it should avail itself of the informal network of

crew chief, trade association, local union hiring hall, etc.

Q. What about certification--how important is that?

A. Very important. Not only is the certificate itself of value to,a

trainee when looking for a job, but it also,establishes, ,in

accordance with industry, labor and government standards, what

actually constitutes the attainment of a particular skill.

97

1 06

"*"
N

APPENDICES 410 THgANUAL

AppendixA Materials-and Equipment Cost Form

Appendix B Certificate of Job Completion

Appendix C Client ,Satisfaction Questionnaire

t. Appendix D Job 'Summary form

Appendix E Daily Time Record

Append.& F Project Materials

Appendix G Homeowner's Application

Appendix H Homeowner's Warning

Appendix I Student Selection Sheet

Appendix_J Work Rules

Appendix K Job Application Skills

Appendix L Trainee Rules and Regulations

Appendix M TimeCard

Appendix N Sample Skills Progression

I

Appendix 0 VICI Weepy Participant Progress ,Report Form

Appendix P VICI Plan for Placement

Appendix Q Letter to Employers

4

IS Ailv .--. l . 1

1 . 4,,

.s. -..: .t 4 fto ,/ . i t i I.':

99

.10

Y-f

4,

4

A.

t

.
I I- I

III I

I. City

VENTURES 4N COMMUNITY IMPROVEMENT

MATERIALS & EQUIPMENT COST FORM

3. Job No.

APPENDIX A

FORM VI

2. Program No.

I I 1 ____4,_ Date Wori&Begun -ft. Day Yr.

t 5. Date Work Complete Mo,..tLi Day] I_ I Yr.

. 6. How miny days of youth labor were used to complete' 0 -, this job (multiply number of youths who worked on'

the job by number of work days)

ti

I I I

1

7. How many)days of crew chief work were used to com

plete this job? I I II

V

8, Hot., much was the cost of materials used on this

job? (Include both purchased and donated materials) ft 9. How much was the cost of equipment and contracted

services on this jqb?

. - 10. Record any other iolokcosts not included in items

8 and 9.

/

Persqn Completing-Form

12. Date form compIeted

J

I I ITI 1'1 T.

Signature

101

Title

Mo. L I Day I Yf. MEI

11/78

11
CERTIFICATE OF JOB COMPLETION

t , .. I/We agree that I/we have inspected all rep.airf

; made as specified on the work Odder and agree that-all

work 'is completed to our satisfaction.

APPENDIX B

L

O owners) signature(s):

,

. X date:

...

1

4

4

0

t

2,

II.

4

I.

OWNER .

x

.1, ........"

4

. 102

a

date: el.

.

Sc

I

ea
NAME.

ADDRESS:

Job No.:

APPEZiDIX C

CLIENT SATISFACTION QUESTIONNAIRE

Crew No.

Your cooperation in answering the following questions will assist us in improving the services and

evaluating the

(name of project)

1. Overall, how do you rate the services, provided by the

project?

Virr-Good

. . . Below Average

zt

Good Bad

Average

2. (a) how do you rate the attitude of, the project's instructof?

Very Good .Below Average.

Col/Bad Average

2. (b) How cieryoti rate the attitude of the prbject's crew?

Ver Good Below Average 4 Goo Bad

Average

3. How do you rate the actual 'work'performed by the project?

6

Very Good. nelow Average

Good Bad

Averae

103

-110

I
A 4. Wouldd you recommend the work performed by the project'

to your friends'and neighbors?

Yes

Undecided -.L.

Please use this space and the back, if necessary,

to write any additional comments or suggestions.

Owner: Date:

F

_AI

104

111
/Job Number

Client''Hane

Address

VENTURES IN COMMUNITY IMPROVEMENT

Job Summary Form

Crew Number Supervisor

Phone

1)PPENDDC D

Start Date Conpletion Date

..), Total Hours (Supervilor) (Participant's)

Description and costs of Contractual Services:

. .,

%entity Description of Material Used

Unit Extended

Cost Cost

,

,

I

Comnents: ,

A. Supervisor's"Signature Date

..........1

' 105

112

...........

10,
9

i.Crew Chief':

Date:

Job Number:

CREW CHIEF/

APPENDIX E

DAILY TIME RECORD

INSTRUCTIONAL STAFF HOURS WORKED

2.

3.

4.

YOUT:3

Cr.EW

'1,

A. Total Instructor flours

J F

2.

5.

6.

7.

s.

94

B. Total Crew flours

C. TOLL CREW CHIEF, INSTRUCTOR & CREW HOURS

form' 15 .01 106
VENTURES FOR COMMUNITY°IMPROVEMENT

(PROJECT MATERIALS)

EXTERIOR MATERIALS

2x2 4x4

2x4 4x6

2x6 Cedar posts

2x8 Wire fence

2x10 Porch deckltg

2x12 Porch ceiling

Alumintim Storm

Acrylic 4' x 8'

Glass

Tar paperbo'

Asphalt shingles, color

GLASS

SHINGLES

Rolled roofing

Box K gutter (lin. ft.)

Square Downspouts

Round DownspOuts,

Straps

Glatt hangers

. End caps right

End caps left

GUTTERS

107

APPENDIX

Exterior Plywood 3/8"

'Exterior plywood 5/8 ",

Exterior drywall 3/8"

Exterior drywall 5/8"

Bed motilding

Brick moulding

door

Cove moulding

Crown moulding

Window points

Glazing compound

or putty

GalvaniZed nails

Flashing

Plastic asphalt cement

Lead-in connectors

, Sealer

Slip joints

Inside miter

Outside miter

450 elbow

900 elbow

4 .

/ ;
PUNTING

Caulking

Spackling

Glazing aompound

Porch en)tmel

Low Luster (white)

Universal primer

CONCRETE

Mortar mix

Concrete mix

Patch crete

Concrete (cubic yards)

Expansion felt 6"

Mire mesh

Concrete bilocks

COmmon bricks

!";

10

115

4
$

VENTURES FOR COMMUNITY IMPROVEMENT

(PROJECT MATERIALS)

INTERIOR MATERIALS

LUMBER

. ,ParH.cle board 3/4"

Plywood

Felt paper

Base

Casing

Shoe

Stops .

Jambs

Handrail

prywall 3/8

Drywall 5/8

Treads

doors size

Locks

Hinges

Spring bumpers

Closers

Shelf bract ts

Rosetts

UU Threalolds

Weatherstrip

Sash locks

Pulls

Cabinet hardware

Floor Tile Handrail brackets

Floor adhesive

Tile moulding

Closet pole

Jokrit compound

Joint tape(rolls),

Plaster mix

'Enamel

Flat

Semi-gloss

Primer

PAINTING

109

116'

NA,

4

to

43
APPENDIX G

VENTURES FOR COMMUNITY WPROVEMENT

HOMEOWNER'S APPLICATION

NAME TELEPHONE'

ADDRESS

.1 .PDO YOU OWN THIS HOME? YES Na

HEAD OF HOUSEHOLD- MALE FEMALE Na OF PERSONS IN FAMILY

MARITIAL STATUS SINGLE MARRIED DIVORCED . ANNUAL INCOME $ ETHNIC BACKGROUND4

MONTHLY GROSS $ , BLACk

SOURC F INCOME HISPANIC

a) WHITE

b) 7-->\ AMERICAN INDIAN

ORIENTAL

OTHER ,--. C)

DESCRIPTION OF WORK

I UND11STAND THAT THE VENTURES PROGRAM (OIC-GM) IS B(MITED TO CORRECTING

CODE' IOLATIONS FOR LOW INCOME PERSONS WHO OWN AND OCCUPY THE PROPERTY CITED.

THE MATERIALS .AND WORK PERFORMED BY THE VENTURES PROGRAM IS FREE OF CHARGE

TO THE'HOME OWNER. I HEREBY CERTIFY THAT ALL THE ABOVE INFORMATION IS TRUE

AND CORRECT TO THE BEST OF MY KNOWLEDGE ANT) I AGREE TO HAVE THE VENTURES

PROGRAM UNDERTAKE THE WORK AS DESCRIBED. I ALSO UNDERSTAND THAT I CANNOT

SELL MY HOMfFOR TWO(2) YEARS FROM THIS DATE. . # A R N'I N G INDIVIDUALS PINAVIDING FALSE INFORMATION SHALL BE PROSECUTED AND

REIMBURSEMENT FOR MATERIALS AND LABOR SHALL BE SOUGHT.

OWNER'S SIGNATURE DATE

ESTIMATER'S SIGNATURE

APPLICATION ACCEPTED YES TENATIVE START DATE . . NO

110

17

Die fr

.r
Opportunities Industrialization Center of Gieatec Milv;auliee

Central Administration

2835 North-32nd Street, {Milwaukee, Wisconsin 53210

414.449-23d 414449-2304

HUGH HENDERSON 'CAN. A. GEE

Board Chairman r Estecutive Director

** WARNING WARNING WARNING .... -

APPENDIX. H

.e

DEAR HOMEOWNER:

The Ventures Program has now accepted your application and will'perforM

the work as described, In order for us to complete this work in an

effective and efficient manner, we will need you coaperltion aefollows.;.

A. 14pck up all valuable in and around your home; the Ventures.Program

I. (OIC-GM7 will not be responsible for lost/stolen items..

B. Make your house and bathroom accessable to our work crews during the

entire rehabilitation process. (Have at leaSt one (1) person home

at all timds.)

C. Do not interfere or

D. Clear the work area

etc.)

allow your children to bother any of the workets.',

of all obstacles. lairs, dresgers, toys, papers,'

E. ,Work hours - Monday-Friday'8:00 a.m. to 4:00 p'

F. All materials and equipment used in the rehab itation.process are

purchased by the Ventures Program (OIC-GM) In the'event any of . ,these articles disappear, in or around th work site (regardless

ofwho is to blamQ shall leave the Ventures Program no aldbrnative

course.by to discontinue all construction work. immediately.- The

Building Inspection Departmentshall also be notified that work on

this particular residence will be discontinued by the Ventures

Program (OIC-GM) and future consideration for continhance-T5ill-hot

be given ,

° Your cooperation will be greatly appreciated. . VENTULS FOR COMMUNITY IMPROVEMENT 7-449-2303

111

118

ti
VICI STUDENT SELECTION SHEET

NAME ADDRESS

PHONE NUMBER- 'AGE

APPENDIX I

1. What is the highest gradd completed?

Did you graduate? /GED

2. Would you be willing to attend GED classes ewo (2) nights per

week?

OP

3. Do you possess a valid Wiiconsin Drivers License?,

4. Woad you be willing to attend Drivers education cladses two(2)

nights per week? a 5. Explain whyiyou want to. become a Carpenter or Painter?

6. What Jrevious work experience have you had?

7.\-- Are you'willing to work outside in extreme hot 64'cold weather

conditions?

8.,x Are you afraid ox heights?

Would you be Willing to "overcome that with tile proper help?

9. What exactly do you want to get of of the,VICI program?

e 10. -Will you report to work everyday. and be on time?

Are you-in good health?

12. Are you allergic to pai hinners, mineral spi4ts, etc.

13. Who are yoir previous employers? 4'

Length of time

14. What is you prev)pus criminal history?

112

119
/V

0

47

APPENDIX J

Opportunities Industrialization Center of Greater Milwaukee

Central Administration

,835 North 32nd Street, Milwc4ee, Wisconsin 53210

414.449-2303 414:449-2304

HUGH -HENDERSON CARL A. GEE

Board Chairman

FEBRUARY 12, 1980

REVISED VICI WORK RULES

ABSENTEEISM: 44.1

Executive Director

Unexcused Absence - 1 week .4old back on raise

2nd " H H 2 is n ss 3rd " H tl tt 4 H U It u It H 2. TARDINESS:

Student is paid for actual time worked and

1st Tardiness 1 week hold back On raise , 2nd " si 2 ss H H is is 3rd " tt 3 tl u tt U 11 H II u

1

'3. FAILURE TO CALL IN if absent, regarAss if excused, unexcused:

3 Week hold back on raise $

MUST CALL JOURNEYMAN

4. LEAVING THE JOB SITE BEFORE THE END OF THE WORKDAY:

1st - 4 week hold back on raise.

2nd - DISMISSAL k. 5. ABUSIVE or VULGAR LANGUAGE TOWARDS JOURNEYMAN, FELLOW STUDENTS

OR HOME OWNER.:

6 week hold back'on raise,

o THREATENING or STRIKING INSTRUCTOR: DISMISSAL

PERSONAL RELATIONSHIP BETWEEN STUDENTS ON WORK SITE:

Descretion of Director or JourneymaD.

6., ALCOHOL 6F-DRUGS ON JOB SIDE:

Student will be %ant home for the remainer of the day plus:

8 week hold back Mrt, raise.

7. STEALING FROM JOURNEYMAN. FE-LOW STUDENTS, OR HOME OWNER:

DISMISSAL

18. FAILURE TO FOLLOWIGRDERS: JOURNEYMAN'S DESCRETION.

9. FIGHTING WITH FELLOW STUDENTS:

1 week suspension for those involved.

"We Help Ourselves"

eig.gra

113

-0
r

ion c.f _Par: Led..cant s

APPENDIX K

Job APplication Skills - CoerseOutl:ne

.st 1

Objective- to insure that each individual srcw member learns

and can use the skills associated with filling out

job applications; succeeding on a job interview;

starting - /maintaining a job and making the transition

from Ventures to Private Sector Employment:

I. IntrodUction

A. Discussion on transition from training to private,

sector employment

B. World of Work-trade employment situation in New Haven

II. Completing the Job Application Form

A. Company's purpose using an application form

1. EEO requirements

2e Future data on hand3. Immediate background information on individual

B. Filling Out an Application

1. Importance of correctly completing a form..(classworkusing an application filled out with sloppy errors

and poor responses have students as a group write down

10 observations concerning hypothetical persons

characters and skills. Discussion)

J 2. Discussion of application questions and possible responses.

- a. legality of certain questions and how to deal with

illegal questions

b. basic information

c. educational data

d. employment record

e. VCI experience

present skills

g. health

h. court_problems

i. effective references

Ir j. hobbies

3. Use of correct grammar, punctuation, capitalization,

.spelling and understanding vocabulary terms.

classwork: using incorrect application, corredt mistakes.

Discuss

114

12'
.ho.ndot.;I: revidw.,:omthonly used terms and defigLtions.,

. glasswork; 'till 'ut application in ink to demonstrate

-neces.;ity of prior preparation and usibg

, 4 a pen.A.1. . e assignment: RAturn a perfect appli.eation form that

can later be Used as a reference. Read

4 and Answer questions on "Pent Up Anger.",

4---

-.. ' and returA. .%

. .. t

.- '. III. The Job Interview . _- A. The Importance of a Job Interview

1. Emplop3r's purpose

2. crew members goals

B. Summary, of critical parts of an.interview

1. Do's an0 Don'ts-Idistribute "Rules of Con u tt's

2. Demonstration - distribute "Mock Inte etaK, o us e as

aiphecic list while observing two s a peb"Ple conducting

an.interviewwhich-the applicant °blows. Crew members

should list'errors made. Class3discdsSion

411 tbelintervtew

C. *How succeed in a Job Interview

1./Sleeping, eating & dressing for

2. Knowledge of potential employe

3. Punctuality

4. Dealing with the street ima e

5..Introductions'and politeness

6. Handshake, posture & eye contact,

7. Dealing with nervousness

.8. Selling yo' rself

a. reviewing past employment and VCI experience.

(classwork-using weekly skills checklist, everyone

- - note skills they've learned.)

:414 1)., self confidence and pride versus b.s., arrogance

or timidity.

9. Answering tricky questions

10. Asking Questions

a. working hours

b. tools needed

A c. skills you could learn

.d. employee'benefits

e. praises and mobility

11. Ending au Interview 4 4

(assignment: read and-c nplete,exercises from "Making

the Job Interview': turn at next session.

D. Mock Interviews - ividually scheduled

1. Each person is scheduled for an interview with one

staff person and one other participant as observer

I15

.h.?

122

igb

41.

r
1.

and commentator. The objective is to evaluate an

in..11%?idual's performance'Lving constructive

criticisms and recommendations for improvement.

2. Each individual will be schkduled for' a-foll6w-up

tape recorded interview with a staff person. -Tape

will be played back add the individual will have an

opportunity for self-evaluation as well as feedback

from. staff person.

IV. After the Interview

Not,gettingthe job

1. dealing w.ith "rejection"

2. evaluating your performance and learning how to improve

B. Starting/Maintaining a Job

1. learning specific job requirements

2. knowing your job rights (handout-"Employee Rights'.)

3. Undbrstanding your paycheck

4. raises

5. State and Union Apprenticeships

C. Trade Practices

(tape cassette- The World of Work 300-24-B2 "Ihatq part

of your job-resolving conflict'' ",You better getup on

time" and."too many days absent")

1. ;Working hours-punctuality and attendance

2. Bad weather days

3. "Gofer" and low person on the totempole

4. Working with co-workers and supervisors;

5. Learning how to improve performance and develop new skills

6. Buying and maintaining tools

7. Side jobs-how to work on yoUr own

8. Opening up a savings account.

(assignment-"Money in the Bank"-read and complete.)

D. Transition from VCI to private sector

1. Venture's responsibility to you and our on-going services

a. meetings with staff, phone, contact, site visits

2. CETA Follow-Up Unit

3. CPPV Follow-Up Interviews.

4. Notification of Address and/or phone change.

116

e.

123
Working Hours

APPENDIX L

SAMPLE VICI TRAINEE RULES AND REGULATIONS

"t

c7-..00 AM to 3:30 PM with one -half hour for lunch and a 15-minute

on-site break in the morning. However, you are expected to report

to work by 7:45 AM to allow time for.changing into work clothes.

Sick Pay

You do not receive Sick Pay. You will be paid for the amount of

hours youwork at your worksite.

Absence

If you will be absent, call the wroksite or the VICI office between

the tours of 7:45 and 8:00 AM, give your name and the name of your

supervisor, and note the name of the person you are talking to.

C4your worksite every day that you are out of work. !allure to

call when absent will result in suspension and loss of.pay.

Lateness

If you will be late for work, call the worksite or the office

between 7:45 and 8:00 AM. Give your name and the name of your

supervisor. Let your supervisor know what time you will get to work.

Failuraltto call when late will result in suspension. Two latepesses

per week will result in.a salary deduction.

Excused. and Unexcused Absences

Absences are eAcused only for verified illness, family death or

appointments with a doctor, lawyer, etc. All other absences are

unexcused.

Two unexcused absences in one month will result in a one-week

suspension without pay.

Trainees must-notify super-Oiscirs two days in'advance of appointments

with doctor, lawyer, etc.

117. 124
V

Sample VICI Trainee Rules and Regulations - Page 2 , If, at any time during the training period, your supervisors determine that your absences or latenesses are excessive, you may be

disTissed.

Lunch

Lunchtime is from 12:00 to 12:30 PM. You must return from lunch on

time. Returning late from lunch will result in a salary deduction

and/or suspension.

Wages and Pay Raises

Paychecks are distributed every second Friday. Pay rates are:

Weeks 1--:13 $3.15 per hour

Weeks 14 26 $3.30 per hour

Weeks 27 52 ' $3.60 per hour.

Pay raises are' not automatic. They are awarded when a participant

earns a satisfactory evaluation of his/her attendance and job performance. These evaluations are made by journeymen supervisors, job

coaches and counselors.

Paid Holidays

VICI recognizes these as paid holidays: New Year's Day, Martin Luther

King, Jr.'s birthday, Good Friday, Memorial:Day, July 4th, Labor Day,

Thanksgiving, Ch#stmas.

Use' of Narcotics/Alcoholic'Beverages

Narcotics,or alcoholic beverages in any form are not permitted on'the

worksite or at school. Bringing either onto or near the worksite or

school premises will result in immediate dismissal from the program.

Being under the influence of either will result in immediate dismissal

from the program.

*it 118

125
4

Sample V1CI Trainee Rules and kegulations - Page 3

School Attendance

Attendance at the County Vocational Sch8o1 is mandatory. You will

attend classes each Tuesday and Thursday from 6:30 hi to 9:30 PM.

Failure to attend and remain throughout the class can result in sus

pension or dismissal. Each participant is expected to conduct

him/herself in anAorderly manner. If you are suspended from daily

worksite dtities at any time, you are still required to attend classes.

Smoking on School Premises

Smoking on school premises is not permitted. You maY smoke in the )

cafeteria during scheduled breaks.

Damage to School Property

Anyone found damagipg or destroying school, program or kersonal

property will be held laible for damages.

Worksite Behavior

Physical hreats made to program staff and/or etper participants will

result in immediate dismissal. 1 , 9

Fighting on the jobsite and/or school premises will result in

immediate dismissal.

Anyone found stealing school, program or personal property will be

immefliately dismissed.

Any misuse of work equipment may lead to suspension.

Use or display of a dangerous weapon during school or work hours

will result in dismissal.

Do not bring or wear valuables to the worksite. We will not be

responsible foelopt or stolen articles.

11'9 126
ao Sample VICI Trainee Rules and Regulations - Page 4

S Accidents

All accidents should be reported as soon as they occur. An accident

report must be filled out immediately to obtain medical care.

Everyone is expected to conduct him/herself with decorum, to observe the

regulations of the progra and to pay due respect to staff and peers.

120

12-1
S

APPENDIX M

TIME CARD

a. e Vv . St 11 214 -19 9 9

ID NUMBER DATE HOURS

From To

Last T*D'act'S PARTICIPANT NAME

ENROLLEE

INITIALS

First DATE WORK PERIOD ENDING SOCIAL SECURITY NUMBER Middle Mina Mon Th Day Year HOURS 0..LV PARTICIPANT From To *.grai INITIALS.

.0., 146 73° 3 1 MON 111-'7.0 1 38 3 7

TUES ti6 13D 3 ,7 TuEs ofr, "1" 3 7

.E, !itis 7' 3 7 . WED Il /21. 13 C. 3

THUR .iiic, V° 3 7

mu l t112.3 /34' 3 1

Fiu nit/ V° 3 7 gitio-A, FRI Illiq 1" .. 7 ,(41-S-'

INEEKLyToTAL 3-

PARTICIPANT TIME CERTIFICATION

Sods Participants' and Supershors. TIOna

tutu men be present to artily Om

time recorded Noon is comptets and accurate and In acoardace rots the Progum Rules and Reasaetroos.

Payment will only be made for *,:e.sal bows worked.

!MEEKLY IOTA?. I TOTAL HOURS WORKED

ParUa I Wore Sites Sups. Squads

b271-7: ,ef at-0 ...

/757, Q/,

121

128

Wont Sit. NarealAddrass

I id'

ALLJIAXOFFSST INC 571

Ty
.

122

G.

3P'

Basic electrical symbols

conduction sizes and types

remove romex from a box

strip romex

drill holes for wire runs

install a connection romex

staple romex

strap romex

install connection in b

mount switch & receptacl cut box

install floor !luting on box

ground a romex wall bbx

running romex through studs

staple feeder cable

Electrical Tasks

Intermediate mark location of switch & receptacle boxes

install a receptacle

install a switch

install a lighting fixture

connect romex in service panel

connect box in service...panel

install range receptacTe

instal-1 dryer receptacle

install feeder circuit for electrical water

heater

install feeder circuit for air conditioner

make an offset check a fuse with anohmmeter

check a fuse with a voltmeter

install an overload heater in a manual motor 'starter

use and identification of grounded conductors

Advanced

determining the number of circuits required

three way switch control

four way switch control

number of conductort in a box

calculation for computing feeder for single family

dwelling

electrical heating

bending back to back 90 degree bend

making.a saddle

disassemble a motor

test insulation' resistance of a motorwith megger

connect a three phase "Y" coroted motor for low

voltage

connect a three phase "Y" connected motor for high

voltage

reverse a repulsion motor

reverse a split phase motor

I

of

tr)
4

131

e

Basic- prepare copper tubingsfor soldering

solder copper tubing I fittings . set-up Oresto-rite tank

set-up portable vise

cut steel pipe w/ hand cutter

ream steel pipe w/ hand cutter

thread steel pipe w/bhand'cutter

clean power threading mch

pack oakum into a soil pipe joint

replace w.c. flush handle

replace tank float in w.c.

replace tank ball in'w.c.

replace top and bottom lift wires

repliceguide in w.c. tank

clear main house drain, of stoppage/plunger

0

e>

Plumbing Tasks

Intermediate

. flare copper tubing

install a seotion of steer pipe

set-up power thread mch.

select die settings on universal die head.

replace dies on universal die head

secure pipe in power threading mch of cut steel pipe w/ power threading mch

ream steel pipe w/ power threading mch

thread steel pipe w/ powerthreading mch

set-up nipple chuck in power threading mch

select pipe six on nipple chuck

set-up propane tank

ctft cast iron soil pipe

melt lead to liquid state - replace ball-cock in water closet

replace flush valve in water closet

clear main house drain of stoppage

0

-t,

I.

ft

.

e

`e

Advanced_

0

pouele4 in a vertical soil pipe joint

finish lead in a'vertical soil pipe joint

leyel 4141"plumb-vertical soil pipe . de pour lead in a horizontal soil pipe joint

finish lead in a horizontal soil pipe joint

grade horizontal soMpipe'

;disconnect a soil pipe joint

replace a curb trap

replace a 4" X 2" y

replace a'4" 1/8th bend

replace a 4" Y

replace a 4" P trap (cast iron)

replace aAhort sweep bend

replace a 2" soil plug

replace a combination rain water conductor

replace a 4" ideal bend

1 3 2

)

y

,.. r---I--:--:---7
N.)

'', Basic

read a rule

cut &.apply felt paper

apply mastic cement

N.1

n

Roofing Tasks

Intermediate

read'a ludOrint

cut & pWdrigdge flashing

apply, sphalt A wood shingles

lay.starter row of asphalt shingles

apply roll roofing

cut and install getter L install downspout

fabricateA install nailing for rafters

layout sample rafters

layout sample outlookers

fabricate rafters

fabricate outlookers

fabricate gussett slate

layout ridge for rafters

layout & cut ridge °

Advanced

e

tla out wall for rafter locations - ermine rise & run from blueprint

ayout A fabricate assembly job

assemble pent roof truss

align trusses using 3 block & string method'

use & safety of the radial arm saw

use & safety of the table saw..

determine unit rise & unit run

layout plumb cut for common rafter

layout heel cut for common rafter

layout tail cut for common rafter

layout length-fOr common rafter-stepping

layout length for common rafter-with-rule

install flashing . ., estimate materials for gutter & downspouts

cut install gutter

cut & install downspout
-BASIC

Scraping

Patching

Sanding

Rolling

Taping

Paint siding

Sealing

Caulking

Tool clean -up

Area clean-up

General layout

Reading the rule

.""

Painting Tasks

INTERMEDIATE

Pata-windows

Interior painting,

cutting and rolling

TO ping - finish

Staining

Puttying

Working off extension

Ladder

Painting trim

Block filling

Estimating material

135

I

c 4

ADVANCED

Mixing paint

Hanging vinyl

Joint taping

Spray painting

Trimming vinyl

Butt-joints

Overlapping joints

Estimating, costs

a

J

1
4

BASIC

Caulking

Patching pool

with dement

Use of ladder

Use of tape

measure

Replacing porch

slats

Repair leaking

faucets

Remove old roofing

Demolition

Weather stripping

4

Weatherization Tasks

--INTERMEDIATE

Replacing porch steps

Cutting and threading

pipe

Sweating copper tubing

Replacing glass

Installing gutters and

leaders

Install fiberglass

insulation

Use of scaffold

Replace sash cord

ADVANCED

Hanging storm doold

Pointing brick

. Bricking up window

Foundation 'repairi

Replacing window frames

Installing storm windows

Estimating materials

Install blown-in

insulatiOn

Installing new roof

Conduct energy audit
Basic

hand mixing mortar

handle mortar with a trowel

using brick tongs for stocking

building scaffold

pour the concrete in place

level off by darbying concrete

bull float the concrete area'

strip the forms

patch honecomb holes where necessary

care and maintenance of tools

using brick tongs for stocking

use & handle a set of brick tongs

set dura-wall in brick work to tie In

2 wythg walls

wash brick wall with acid

cutting 'Starter blocks

13A

Masonry Tasks

Intermediate

lay up, the first course of brick (lgth 4')

cut masonry materiaT with hand tools

layout a common bond

string and set line blocks

striking joints in brickwork

layout,course rod, story pole

set wall flashing in the wall

use & operation of masonry saw

use of hydraulic brick cutter

set up a door frame in a brick opening

lay blocks to line

lay-up a five block layup

string and set line blocks

set lintels

lay stone to line

cut field stone

c

Advanced

identify scales on a nodular spacing rule°

modular scale coursing for brickwork

4-3-2-1 lead in the wall

build brick corners

set sills and copings

set precast sills and\vings

pattern bonds in the wa 1

setting steel lintels

single flue chimney

two flue chimney

install heatilator

lay firebrick (butter syste ) . build a corner with a flemish bond header

build a corner witha common (american) header

build a brickwall forehand

laying.brick overhand

rich 138.
go

VENTURES IN COMMUNITY IMPROVEMENT

WEEKLY PARTICIPANT PROGRESS REPORT

City 2. Program No.

3. This Report for Week Ending Mo 4. Participant Social Security Number

5 Name of Participant

6. Job Data

a. b

C. d. e.

I_ I Day

I I

I Yr,

0

T

Last First MI

Job No.

Crew,

Chief Teem'

Hours Worked by Participant

M T W Th F - Total

A. _ , d .

Use Assigned Aluindc s

7 *fetal Hours Worked for Week (Enter here and for OUestion #19)

8 Total VICI Hours Scheduled for Week

9 Attendance Information . Attendance

(Code A Below)

M W Th F

10 Was there an incident requiring disciplinary action during the week') Yes No

1 2

11 Participant Performance Information Describe the three most advanced tasks performed by participant during the

week Use Codes B, C. and D.

a. b.

C.

Task Description Job

No

Hours on TaskTrade

Area

(Code B)

Difficulty

Level

(Code C)

Performance

Rating

(Code D)

Code A

(1) Full work day

(2) Holiday, rain, snow

(3) Illness

(4) Other excused absence

(5) Unexcusedabsence

(6) Late

(7) Release time from VICI for educational activities

(8) Other, specify 0 Corporation for Public/Private Ventures

ORIGINAL

Code B

(1) Carpentry

(2Masonry

(3) Roofing

(4) Painting

(5) Plumbing

(6) Electrical

(7) Other, specify

Code C

(1) Basic

(2) Intermediate

(3) Advanced

Page 1 of 2

(CPPV) Philadelphia, Pa. "(215) 563-380!

FORWARD TO CPPV FORWARD

13)

Code D

(1) Excellent

(2) Good

(3) Adequate

(4) Poor

(5) Inadequate

-Page 5.1

7

C4/0 1 1.2 as 8.0

1827

'2847

3847 4887 Sae/ 6877 Caro 2

3-5

813

14

IS-22

23-30 3148
fi

Progri m No. Participant Name FORM IV Carol

12. DI i participant change address-turIng this week? Yes 0 No 0 so 2

If yes, please indicate new address and telephone number where participant can be reached.

13

Phone

Number

t Street

Area Code

State ZIP

Number

14

. 1

Signature at Crew Cage, Date

TO BE FILLED IN BY APPROPRIATE PROGRAM STAFF MEMBER

imrticipant enter educational program during this week?

I r es ,describe program

V413 No 0

1 2 16 Did participant attain GED or other aertificats ring this week?

17 It pay raise incentive was due did participant receive it?

Not applicable

18 .kf answer to f17 vats "no" check the reason(s) below

4. Poor Work Performance

b Absenteeism/Lateness ,

c, Misconduct

d Other, specify

yes No 0

1

2 red 0 No

2 ,

19. Total VICI Hours Worked for Week (from Question 117)

2C. Pay Rate per Hour

21. Gross Wages for Week

22.

NI I I

23 24

Title Date

J

Page 2 of 2

Corporation for Public/Private Ventures (CPPV) Philadelphia, Pa. (215) 563-3801

129

ARIAINAI .PAPWARA TAnom/

140_

Page 5.2

40

41

42

43

4443as

47-49

'3042

5187

ra
4.

O New Hawn

*II Plan foe Placement'

FY 1979/1980

I. Placement Quotas: Total Union Apprenticeships

Central Cohnecticut Carpenters Union

Local 24 14

Painter? Unilin Local /86 10

APPENDIX P

24

Construction Related (Non Union) .42

0 , Unsubsidized 211

Subsidized 12,

Qther FUJI-Time Employment 12

Full-Time Training 4

Full-Time Education 1

Total Placements 83

II. Strategies and/or Mephanisms Contained in Original Contract:

The NeW Haven Employment and Training Administration orginally

developed a two-phased job placement process for the VICI program. The

first phase consisted of strong linkages between the Job Coaches and . the local trade associations and unions. Job Coaches were to contact

members of the uniohs and trade associations and seek their assistance in

developing employment for all VICI participants. Initial contact was to

be made dour (4) to`six (6) weeks before an individual was due to complete

the piogram. The Job Coaches were to make all assessment data of individual participants available to the and trade association repreaentatives-and schedule tours to provide them with the opportunity to

speak and evaluate work skills. Futhermore, trade association representatives

were to provide contacts of contractors seeking to employ carpentry and

painting apprentices. The VICI'Job.Coaches Were then to assist program

participants in applying for entrance idto apprenticeship programs or securing

trades related jobs.

The second phase of program placement was tobe.the'responsibility

of the prime sponsor's Central Job Development Unit. If contacts with the

unions or trades representatives proved fruitless for any participants,

they were to be referred to the Central Job Development Unit. Each participantvas then to be assignea Job Developer who would use all the resougces

available to him/her (i.e., Ettabyment Service Job Bank, microfiche, OJT and

employer contacts) to develop trade related jobs for each participant.

s.

130
r

4 ITT. Revised Strategy

It becameapparent early in the operations of the Ventures Program

that linkages with the Unions and trade association:; aloso would not be

sufficient to develop the number of jobs necessary for the program to be

successful. New Haven, therefore, developed a more,comprehensive strategy

to develop jobs for its VII participants. Beginning in January, 3 x 5

_cards were compiled on all area contractors. Contractors were divided by

services they provide. They included Genral Contracting, Remodeling and

Alteration Contracting, Painting and Decorating, Roofing, FlOoring, Wood:-

working, and,Insulation Application.

A Ventures Brochure was Printed in early June and then mailed

to all area contractors. Follow-up telephone contact began by the Program

Administrator and Ventures Planner in order to assess potential employment

openings and interest in Ventures participants. Thurs.were scheduled W.

familiarize'prospective employers.with the level of,:tfaining being undertaken.

4

. While this process has met with success, it. became apparent that

there was a need for a full-time job developer, assigned to Ventures from ' 4 the Central Job Development Unit. The Job Developer will be responsible

for makingtelephone contact with all area contractors, scheduling tours,

developing contacts in person, pursuing job openings registered at theEmployment Service, and developing On-the-Job Contracts with prospective

employers where necessary.'

r

In addition, the journeyperson crew chief will assist the Job

Developer in contacting contractors and developing job opening leads.

Futhermore,,the Program Administrator and Planner will continue to maintain

contact and utilize Advi;Ory Board members in developing job openings. all

84 projected placements. will be made through this strategy.'

IV. Personnel Involved

Position: ,Job Developer

Duties: The Job Developer will 4ork full-time on an interim basis

until a.Ventures Careei placement Specialist is hired. This should betfor

two to four weeks. The Job Developer will review participant Intake and

XmployabiLity Plans. He will be given an original case load,of eight participants. After interviewing each of the participants, he will actively develop

jobs through contacting area contruction and painting firms and make job

referrals. The Job Developer will also utilize the microfiche at the

Connecticut State Employment Service and when necessary use On-The-Job Training

Contracts to facilitate placmeent.

It is expect that the Job Developer will make twenty (20) telephone

contacts per week and ontact in person five (5) prospective employers. Lastly,

the Job developer will arrange tours of the provom for interested employers.

Positiorf Career Placement Specialist

Duties: The Career Placement,Specialist will assume the duties of-the

4ob Developer. In addition, the Career Placement Specialit 011 develop Career

Day; for Ventures Participants in which visits will be made to actual construction

.131

ale
sites. He/She will also develop resources, in coordination with the\jdo

COadhes, to prepare Ventures glpduates'for the wcor1d of work.

Position: Journeyperson'Crew Chief

Duties: The Jouineyperibu Crew Chiefs will be required to make

a minimum of two contacts per week to area employers. It is hoped that

through their personal knowledge of area contractors, job openings can be'

identified and placements made. They will also be encouraged to assist

the Program Administrator in scheduling prospective employers for tours of

the programer

Position: Assistant Program Administrator (\\

i

. . lir Duties: The ASsistant Program Administrator will remain in constant

contact with area construction supply firms to gain their assistnace in

identifying contractors who may be interested in hiring Ventures graduates.

Be 'ill also use contacts to identify openings with such firms for Ventures

graduates who may have to be placed in construction related jobs other than

carpentry and painting, such as laborers, stock clerks, retail personnel, etc.

Position: Program Administrator

Duties: The Program Administrator will keep in weekly contact with

key members of the Advisory Board to gain their assistance in developing

job openings. She will coordinate all job preparation and placement efforts.

Position: Job Coach

Duties: The two Job Coaches will implement the Job Preparation. aspect

of the Ventures Program. They will assess participants readiness for placement

and with the Program Administrator conduct individual and group sessions on

the interview and application skills. In addition, they will discuss in depth

roles, responsibilities, rights and privileges of the employed.

, V. Placement and ,Performance Indicators to Date

Placements,

it

To date the Ventures Program has made the following placements:

1. Total Union Apprenticeship Placements

a. Carpenters Local 24 5

b. Painters Local 186

2. Construction Related (Non-Union)

a. .Unsubsidized

b. Subsidized

0

5

6

5

3. Other Full-time Employment 2

132.

-14

f

gO'
4. Entrance into-the Military

5. Full-Time Training

6. Placements Taken Back into the Program

(LOA)

Performance Indicators

1. Job Development Contacts = Telephone

2. Job Development Contacts -. In Person

3. Brochures Distributed

L

2

28

8

173

4. Site Visits 5

AR

I

AV* 144

io

4

/
HUGH HENDERSON

Board Choirm

4

on

es,

4

Opportunities ln'clustrialization Center of Greater Milwaukee-

,

DEAR FRIEND:,

Central Administration

, 2835 North 32nd Street, Milvraukep,Wisconsin 53210

414. 449-2203 414 -4:"? 2304

SEPTEMBER19, 1979

.SEP 2 4 1919

APPENDIX Q

CARL A. GEE

Executive Director

YOU ARE CORDIALLY INVITED TO 'JOIN US FOR AN OPEN HOUSE AND

GET-ACQUAINTED LUNCHEON HOSTED BY OPPORTUNITIES INDUSTRIALIZATION

CENTER OF GREATER MILWAUKEE (OIC-GM) FOR VENTURES FOR COMMUNITY..

IMPROVEMENT PROJECT (VICI), THURSDAY, SEPTEMBER 27TH AT 2512 N. 7TH

STREET FROM 11 Am, TO 2

t

idE ARE CERTAIN THAT YOU WOULD WANT TO GET ACQUAINTED WITH

THE VICI PROJECT PERSONALLY-BECAUSE IT DEALS WITH YOUR CONCERNS AND

YOUR NEEDS FOR RELIABLE DEPENDABLE EMPLOYEES.

YOU ALSO MAY,WISH TO GET DETAILED INFORMATION AT THIS

OCCASION ABOUT THE TARGETED JOBS TAX CREDIT FOR WHICH-YOU MAY BE

ELIGIBLE AND DON'T KNOW ABOUT.

WE ARE LOOKING FORWARDTO SEEING YOU ON SEPTEMBER'27TH.

0 SINCERELY,

Qa---

. ALLEN .ST, DIRECTOR

VENTURES FOR COMMUNITY IMPROVEMENT

CMC /

p. 134

"We Help Ourselv7s"

ROBERT STASKAL

PROGRAM MANAGEMENT SPECIALIST

MINIM

* U.S. GOV£RNMENT PRINTING OFFICE : 1980 0 326-827

'ts

.145