Grants and cooperative agreements; availability, etc.: India, Nepal, and Pakistan; children working in carpet industry; research agreement, 34279-34299 [E7-12011]

Agencies

DEPARTMENT OF LABOR

[Federal Register: June 21, 2007 (Volume 72, Number 119)]
[Notices]
[Page 34279-34299]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr21jn07-66]

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DEPARTMENT OF LABOR

Office of the Secretary

Research on Children Working in the Carpet Industry of India,
Nepal and Pakistan

AGENCY: Bureau of International Labor Affairs, Department of Labor.
Announcement Type: New. Notice of Availability of Funds and
Solicitation for Cooperative Agreement Applications.
Funding Opportunity Number: SGA 07-11.
Catalog of Federal Domestic Assistance (CFDA) Number: Not
applicable.
Key Dates: Deadline for Submission of Application is August 3,
2007.
Executive Summary: The U.S. Department of Labor, Bureau of
International Labor Affairs, will award up to USD 3.5 million through a
Cooperative Agreement to a qualifying organization or Association to
carry out research on children working in the carpet industry in India,
Nepal, and Pakistan. Research funded under this Cooperative Agreement
will involve gathering and analyzing data in order to answer the
research questions outlined in this solicitation. Applicants must
respond to the entire Scope of Work for this award.

I. Funding Opportunity Description

The U.S. Department of Labor (USDOL), Bureau of International Labor
Affairs (ILAB), announces the availability of funds to be awarded by a
Cooperative Agreement to a qualifying organization or Association
(hereinafter referred to as ``Applicant'') to carry out research on
children working in the carpet industry in India, Nepal, and Pakistan.
Research funded under this Cooperative Agreement will involve gathering
and analyzing data in order to answer the research questions outlined
in this solicitation. Research funded as a result of this solicitation
will build and expand upon existing research on child labor in the
carpet industry in the three countries.
ILAB is authorized to award and administer a Cooperative Agreement
for this purpose by Section 20607 of the Revised Continuing
Appropriations Resolution 2007, Pub L. 110-05, 121 Stat 8 (2007). The
Cooperative Agreement awarded under this solicitation will be managed
by ILAB's Office of Child Labor, Forced Labor, and Human Trafficking
(OCFT). The duration of the research project funded by this
solicitation will be up to three years. The start date of project
activities will be negotiated upon award of the Cooperative Agreement,
but will be no later than September 30, 2007.
Please note that Appendix A provides USDOL's definitions for all
key terms denoted in italics throughout the text of this solicitation.
(For ease of reference, the term ``child(ren)'' has not been denoted in
italics, though its definition is included in Appendix A. Child(ren)
are defined by USDOL as individuals under the age of 18 years.)

1. Background

A. USDOL Support for the Global Elimination of Exploitive Child Labor
ILAB conducts research and commissions studies to inform and
formulate international economic, trade, immigration and labor policies
in collaboration with other U.S. Government agencies and provides
technical assistance to countries abroad in support of U.S. foreign
labor policy objectives. OCFT, formerly the International Child Labor
Program (ICLP), was created at the request of Congress in 1993 to
specifically research and report on child labor around the world. More
recently Congress, through the Trafficking Victims Protection
Reauthorization Act of 2005, directed ILAB to include, among its
responsibilities, monitoring and combating forced labor and human
trafficking. Today, OCFT develops policy, conducts research, and
implements technical cooperation projects to eradicate exploitive child
labor, trafficking in persons, and forced labor worldwide.
Since 1994, ILAB has published over 20 congressionally-mandated
reports and has funded various research initiatives on international
child labor, which have been widely distributed in the United States
and abroad. The congressionally-mandated reports appear in ILAB's By
the Sweat and Toil of Children and Advancing the Campaign Against Child
Labor report series. Beginning in 2001, the USDOL's Findings on the
Worst Forms of Child Labor annual report has focused on child labor in
trade beneficiary countries and countries with which the United States
has negotiated free trade agreements. In 2006, ILAB hosted a research
symposium, Linking Theory and Practice to Eliminate the Worst Forms of
Child Labor, to further advance the knowledge base on child labor, and
provide a forum to promote dialogue between researchers and
practitioners on the barriers to education for working children. All of
these research products can be found at the USDOL Web site, https://www.dol.gov/ILAB/programs/iclp/
.

In addition to ILAB's research activities, USDOL funds technical
cooperation projects that include direct action to prevent and withdraw
children from exploitive child labor, particularly the worst forms of
child labor, and carry out various research activities to inform policy
and program design. Since 1995, the U.S. Congress has appropriated $595
million to USDOL for efforts to combat exploitive child labor
internationally. This funding has been used to support

[[Page 34280]]

technical cooperation projects to combat exploitive child labor in more
than 75 countries around the world. Technical cooperation projects
funded by USDOL range from targeted action programs in specific sectors
of work to more comprehensive programs that support national efforts to
eliminate the worst forms of child labor, as defined by International
Labor Organization (ILO) Convention 182 (Worst Forms of Child Labor
Convention, 1999). USDOL places a high level of emphasis on the use of
accurate and reliable data and information for the purposes of program
planning, policy design and impact measurement. Accordingly, technical
cooperation projects have included funding of national child labor
surveys and the development of creative and innovative methodologies to
collect data on working children. Survey instruments and research
methodologies continue to be refined in order to gather data on
children in the worst forms of child labor who would otherwise be
excluded from traditional survey instruments.
B. Factors Contributing to Exploitive Child Labor and Barriers to
Education
The ILO estimated that 218 million children ages 5 to 17 were
engaged in child labor around the world in 2004. Children engaged in
exploitive child labor on a full-time basis are generally unable to
attend school, and children engaged in exploitive child labor on a
part-time basis balance economic survival with schooling from an early
age, often to the detriment of their education.
Complex factors contribute to children's involvement in exploitive
labor, including hazardous work, as well as barriers to education for
children who are engaged in or at-risk of entering exploitive child
labor. These include poverty; education system barriers; infrastructure
barriers; legal and policy barriers; resource gaps; institutional
barriers; informational gaps; demographic characteristics of children
and/or families; cultural and traditional practices; tenuous labor
markets; and weak child labor law enforcement. While these factors and
barriers tend to exist throughout the world in areas with a high
incidence of exploitive child labor, they manifest themselves in
specific ways in the countries of interest in this solicitation.
Some factors unrelated to education that contribute to children
entering exploitive labor include their families' need for extra
income, children's need to provide a livelihood for themselves and/or
their siblings, lack of parent(s) or caregiver(s), cultural practices,
and lack of awareness of the hazards associated with exploitive child
labor, including the worst forms of child labor. In addition, children
have a variety of educational needs and encounter different barriers
depending on their work status (e.g., children withdrawn from
exploitive labor, underage children at risk of dropping out of school
and joining the labor force, children engaged in exploitive labor in a
particular sector).
C. Children Working in the South Asia Carpet Industry
The carpet manufacturing industry in South Asia--particularly
concentrated in India, Nepal, and Pakistan--has been under
international scrutiny for many years for its use of child labor.
Carpets and rugs are important export products from these countries,
sold primarily within the European and U.S. markets. Manufacturing of
carpets provides jobs and livelihoods to many families in the region,
but also poses health and safety risks to adults and children, and
impedes children's education. However, reliable estimates on the
magnitude of children currently work in the carpet industry in these
three countries is unknown.
Various types of carpets are manufactured in the region, and as
consumer tastes change, suppliers and manufacturers adjust to meet that
demand. In the past few years, the industry has trended away from the
most labor-intensive, hand-knotted carpets, in favor of hand-hooked or
hand-tufted varieties that are quicker to produce, less durable and
less expensive for the consumer. However, the impact of these shifts on
the use of child labor in the industry is unclear. The use of child
labor has been documented both in the production of the complex, hand-
knotted varieties, as well as in the production of the less expensive,
more modern types of carpets.
In Pakistan and India, carpet exporters typically engage
contractors or middlemen, who place orders with weavers working in
small weaving centers or in private homes. This arrangement is often
referred to as the ``cottage'' industry. The hidden nature of the
``cottage'' industry in Pakistan and India can lead to greater
involvement of children, with children working either directly with
their families or as hired labor. In Nepal, carpets are typically
produced in factories and the use of child labor within these factories
has been documented.
Throughout the South Asia region, children migrate along known
patterns, unaccompanied or with their families, from poorer and more
rural regions to villages or cities to work in the carpet industry.
Some migrate across national borders. Children enter into the industry
in a variety of ways, including working alongside family members in
family workshops or in situations of parental debt bondage; being sent
by their families to other areas to work in the carpet industry; being
recruited by brokers or trafficked into the industry; or working as
apprentices to master weavers.
Many children begin work in the carpet industry at an early age,
some as early as 6 or 7 years of age. They work long hours, for little
pay, and are vulnerable to a variety of workplace hazards such as
injuries from sharp tools, eye disease and strain due to insufficient
light, respiratory disease due to inhaling wool fibers,
gastrointestinal and skin problems, and skeletal deformation and pain
due to cramped working conditions. Indeed, Pakistan's Child Labor
Survey (1996) found that of all industries in which children were
working in Pakistan, the carpet industry had the highest rate of
illness and injuries.
Some children work in the industry under conditions of bondage,
working to pay back debts owed by themselves or their families to an
employer. In some cases, children accrue debts to their employers for
their initial transportation to a work site and for food and lodging at
the work site, which their wages are not adequate to cover. Many suffer
physical and psychological abuse, including being beaten and denied
food. Many also lack access to education or medical care.
All three countries have laws in place prohibiting forced labor and
child labor, but the problems persist. In response to growing concern
over the use of child labor, various governmental and non-governmental
organizations (NGOs), as well as industry groups, have implemented
initiatives to combat child labor in the carpet industry. These have
focused on improved law enforcement; provision of educational
opportunities for former child carpet-weavers; and labeling initiatives
that provide guarantees to consumers that carpets were produced without
child labor. These efforts have clearly led to a reduction in child
labor in the industry, but the overall magnitude of their impact is
unclear.
i. India. In 2000, approximately 4.1 percent of children ages 5-14
were counted as working in India. However, accurate estimates of the
number of children working in carpet-weaving are unavailable. Bonded
child labor is

[[Page 34281]]

known to occur in the carpet industry in India. Some children are
trafficked into these situations of bondage; both Indian children
trafficked from other parts of the country and Nepali children
trafficked across the border.
Over the past decade, the industry has increasingly shifted toward
home-based production, making enforcement and monitoring still more
difficult. In addition, the concentration of the industry in the
``carpet belt'' in the eastern part of the State of Uttar Pradesh has
given way to more spread-out production, with pockets in the States of
Uttar Pradesh, Bihar, Madhya Pradesh, Jharkhand, Haryana, Jaipur, and
others. There are indications that some of the newer carpet-producing
zones are areas from which children formerly migrated to work in the
``carpet belt.''
ii. Nepal. In 1999, approximately 39.6 percent of children ages 5-
14 were counted as working in Nepal. However, accurate estimates of the
number of children working in carpet-weaving are unavailable. Children
work in both carpet factories and in informal, ``cottage,'' carpet
production in Nepal. The proportion of children working in factory
settings compared with cottage settings is reportedly much higher in
Nepal than in India or Pakistan. Some children work in the industry
under conditions of bondage, but the incidence of child bonded labor in
carpet-weaving is reportedly less in Nepal than in the other two
countries. A large percentage of children working in carpet factories
are members of ethnic minority groups, and many have sisters, brothers,
or close relatives already working in carpet-weaving. Some are
reportedly trafficked to work in the industry, or brought to employers
by employment ``brokers.''
Reports suggest that recent political unrest and armed conflict in
Nepal have led to greater migration of children, often unaccompanied,
from conflict-affected districts to cities to find work. The majority
of carpet factories in Nepal are concentrated in the Kathmandu valley,
an attractive location for child migrants. However, the entire industry
has experienced a decline in production since its high point in the
early 1990s. The impact of the industry decline on the use of child
labor in the industry is not clear.
iii. Pakistan. In 1999-2000, approximately 16.4 percent of children
ages 10-14 were counted as working in Pakistan. The number working in
the carpet industry is unknown, although a Rapid Assessment carried out
by the ILO in 2004 found that children under 15 made up about 40
percent of the sample carpet-weaving population covered by the study.
The sample included both adults and children. Carpet-weaving is an
important export industry for Pakistan, providing employment for many
families; however, the nature of the industry also is likely to
increase the risk of exploitive child labor. Children are paid very low
wages and are sometimes physically or verbally abused at the work site.
Many work under conditions of debt bondage, and are confined to the
employer's premises until their debts are fully paid. Parents sometimes
take advance payments from employers in exchange for their children's
labor.
Children work in carpet-weaving throughout Pakistan, and many
belong to ethnic minority groups. For instance, in the North-West
Frontier Province, carpet-weaving is concentrated among Afghan
refugees; in parts of Sindh Province, Bihari and Burmese communities
are primarily involved in carpet-weaving; and in Balochistan, Hazara
tribes are primarily involved in the industry.

2. Scope of Work

A. General Research Requirements
i. Research Objective. USDOL seeks a qualified organization and/or
Association to carry out research and data collection on children
working in the carpet industry in India, Nepal, and Pakistan. Given the
public attention paid to child labor in the carpet industry, the study
should be designed to provide the U.S. Government with reliable and
accurate data and information on the incidence and nature of children
working in the carpet industry. Research should include all aspects of
the supply chain leading up to the production of carpets (i.e., yarn
manufacturing and yarn-dyeing), as well as the weaving itself. To the
extent that families play a role in determining the work situation of
children (i.e., children under parental debt bondage), research should
also be conducted on the impact of family characteristics and the role
of parents in children's work status. The results of this study will be
used to increase the knowledge base on child labor and inform policy
and project considerations.
ii. Research Concepts and Definitions. Applicants must be familiar
with how international standards on and definitions of child labor
translate into statistical terms. Data analysis on working children
should be disaggregated to the extent possible between children working
in acceptable work and exploitive child labor.
iii. Research Questions. Applicants must seek to answer the
following primary and secondary questions.
How prevalent is the use of children in the carpet
industry in India, Nepal, and Pakistan?
What is the incidence of working children in the carpet
industry in India, Nepal, and Pakistan?
What are the demographic characteristics of children and
families working in the carpet industry?
a. What are the individual characteristics of children working in
the carpet industry (i.e., age, sex)?
b. What is the educational status of children working in the carpet
industry, and what is the educational status of their families?
c. What are the household demographics, working status, and
socioeconomic status of working children's families?
What is the relationship between a child's working status
and educational opportunities?
a. Are there particular educational barriers that make children
more vulnerable to working the carpet industry?
To what extent do children and families migrate to work in
the carpet industry?
a. What role does the family play in children's migration?
To what extent are children working in the carpet industry
working under forced and/or bonded labor conditions?
a. To what extent are children trafficked into these situations?
What particular aspects of the carpet industry encourage
or discourage the use of children? Are there aspects of the carpet
industry that lead to greater exploitation of children?
a. How do children enter into the carpet industry?
b. What percentage of children work for their families vs. work as
hired labor?
c. Are there wage/payment systems that lead to exploitation of
child workers?
d. Is more or less child labor anticipated in the carpet industry
in each country in the future?
What are children's working conditions in the carpet
industry?
a. In what specific activities are children engaged?
b. What are the occupational safety and health hazards to which
children are exposed?
c. What are the typical hours of work?
d. How are children paid (piece rate, by time period, etc.), and
how does this relate to their overall conditions of work?

[[Page 34282]]

e. How does children's work affect their participation in
education?
f. To what extent are children abused in the workplace, and by
whom? And what is the nature of that abuse?
In what regions of each country is the carpet industry
concentrated, and are there concentrated areas where children are most
likely to be working?
How are market demands and consequent shifts in the carpet
industry affecting the use of child labor?
a. What changes are occurring in supply and demand in the carpet
industry in the South Asian region?
b. To what extent are children working in the carpet sector
involved in producing carpets for export?
c. Is the use of child labor increasing or decreasing in certain
areas due to changes in the industry?
What have been the best practices to eliminate child labor
in the carpet industry (e.g., government, industry, employer, and other
nongovernmental efforts)?
iv. Research Knowledge-Base. Applicants should demonstrate a
thorough knowledge of previous research on child labor in the carpet
industry for each target country and seek to build upon past research
efforts. Currently-available research includes, but is not limited to:
Global Research and Consultancy Services (2006). Child
Labour in Carpet Industry in India: Recent Developments. International
Labor Rights Fund;
Srivastava, Ravi K. (2005). Bonded labour in India: its
incidence and pattern. ILO/Special Action Programme on Forced Labour;
Mueen Nasir, Zafar (2004). A rapid assessment of bonded
labour in the carpet industry of Pakistan. ILO/Special Action Programme
on Forced Labour;
ILO/IPEC (2002). A rapid assessment of child labour in the
Nepalese carpet sector; and
ILO/Special Action Programme on Forced Labour (2002).
Annotated bibliography on forced/bonded labour in India.
Applicants must make every effort not to duplicate existing
research or survey methodologies on child labor. Instead, applicants
must use, improve, and/or refine existing methodologies, or propose new
methodologies for collecting data on child labor in the carpet
industry. Applicants should be familiar with ILO-IPEC statistical tools
developed by the Statistical Information and Monitoring Program on
Child Labor (SIMPOC) for collecting information on exploitive child
labor, https://www.ilo.org. These tools include survey methodologies and

data collection instruments.
B. Research Methodology Requirements
Applicants must develop creative and innovative research
methodologies to gather information in order to answer the research
questions outlined in this solicitation. Applicants are expected to
consider the social, economic, and cultural contexts of the target
countries when formulating research methodologies. However,
methodologies should be designed to allow for the aggregation of data
among the three countries and relevant cross-country comparisons.
Applicants must take into account country-specific issues that could
affect project results, and meaningfully incorporate those into the
proposed methodology to reduce threats to successful research
implementation.
While Applicants may rely on secondary resources, the main purpose
of this study is to conduct primary data collection. The research
methodology should include definitions of key concepts and variables;
explain the proposed sampling designs; describe the survey
instrument(s) that will be used to carry out the data collection
activities; develop a data processing plan; and provide a plan for
pilot-testing the methodology in the field. In developing the research
methodology, Applicants must include the elements listed below.
i. Research Questions. Applicants must answer the research
questions outlined in Section I. 2.A.iii. of this solicitation.
Applicants may propose to USDOL additional research questions that lay
out clear, concise hypotheses.
ii. Research Design. The research design must be suitable for
responding to the research questions, and must involve quantitative
research. As appropriate, Applicants should propose to use a
combination of quantitative and qualitative approaches. The
quantitative research should be carried out through a cross-sectional
survey research design. To the extent possible, applicants should
propose a research design that results in statistically-valid
information at the national, regional, and/or local level on the
prevalence and incidence of child labor in the carpet industry of each
country.
iii. Survey Design. Applicants should propose a detailed survey
design plan that will guide primary data collection. Applicants should
use existing data where applicable, and research and survey
questionnaires to help inform primary data collection. Applicants
should provide a detailed description of the data collection process
including the timing of the data collection taking into account
relevant school calendars; development of the survey questionnaires;
and pilot-testing the data collection instrument(s) to refine the
research methodology. Applicants must develop survey instrument(s) that
will most appropriately and accurately capture the information needed
to answer the research questions listed above. The survey design may
include a variety of data collection methods as appropriate, including
household surveys, establishment surveys, key informant interviews,
school surveys, capture-recapture methods, and others to most
accurately measure child labor in the carpet industry. Applicants must
explain why the proposed data collection instrument is the most
appropriate method to answer the research questions and carry out
primary data collection. Applicants must also describe the subjects
from whom data will be collected (e.g., children, parents, employers).
iv. Population and Sample. Applicants must provide a detailed
sampling plan. The sampling plan should describe how the sample will be
selected, how many subjects will be surveyed and to what extent the
sample will be representative of the number of children working in the
carpet industry in each of the countries. Applicants should also
include a map showing the regions in the three countries where the
carpet industry is concentrated, and those that will be targeted for
research.
v. Data Coding and Management. Applicants must describe how the
data will be inputted, coded and managed, and how a data dictionary and
codebook will be developed to identify the variables included in the
data set. Applicants must also include in the proposal an explanation
of how data quality will be assured, including a discussion of how
missing data will be handled.
vi. Data Analysis. Applicants must include a detailed data analysis
plan. Data analysis on working children should be disaggregated to the
extent possible between children working in acceptable work and
exploitive child labor. The data analysis plan should propose ways in
which the data collected will be analyzed in order to appropriately
address all of the research questions listed in Section I.2.A.iii, and
differentiate among the categories of working children. The data
analysis plan must carry out descriptive analysis of the data
collected. In instances where Applicants propose to carry out
multivariate analyses, the rationale must include a justification, and
explanatory and outcome variables of interest must be clearly
specified. For descriptive or multivariate analysis of the data,
Applicants should describe the computer programs and must specify

[[Page 34283]]

the statistical procedures for analyzing the data. In addition,
Applicants must propose an outline for the final report in which the
final results will be presented. The outline must demonstrate how this
format will answer the research questions based on the different
categories of working children. The analysis should include a
comparison of the study findings with those of other studies or
anecdotal evidence.
vii. Dissemination. Applicants should propose ways in which
research findings will be disseminated to stakeholders in the target
countries. As part of data collection, Applicants should organize and
execute consultative meetings with key stakeholders in each of the
three countries, as well as an additional consultative meeting near the
end of the research in Washington, DC, with USDOL and other U.S.
Government officials, to discuss the findings of all research conducted
under this Cooperative Agreement. The number of key stakeholders for
each country should not exceed 30 participants, and should be
determined, after award, in consultation with USDOL.
viii. Limitations to Study. Applicants should describe the factors
that are anticipated to be limitations to the study.
ix. Human Subjects and Confidentiality Considerations. Applicants
must describe a plan for ensuring the protection of human subjects and
the confidentiality of the respondents.

II. Award Information

Type of assistance instrument for projects to be awarded under this
solicitation: Cooperative Agreement. USDOL's involvement in project
implementation and oversight is outlined in Section VI.2. The duration
of the project funded by this solicitation is up to three years. The
start date of project activities will be negotiated upon awarding of
the Cooperative Agreement but will be no later than September 30, 2007.
Up to USD 3.5 million will be awarded under this solicitation for
the child labor research in the carpet sectors in India, Nepal and
Pakistan. USDOL will award a Cooperative Agreement to an individual,
organization, or Association. The Grantee may not subgrant any of the
funds obligated under this Cooperative Agreement, but may use
subcontracts, See Section IV.5.B for further information on
subcontracts and Appendix B for additional clarification on the
differences between subgrants and subcontracts.

III. Eligibility Information

1. Eligible Applicants

Any commercial, educational, or non-profit organization(s),
including any faith-based, community-based, or public domestic, foreign
or international organization(s) capable of successfully conducting
scientifically-valid research is eligible to apply. However, the
Grantee (or Lead Grantee, in the case of an Association) is not allowed
to charge a fee (profit). Neutral, non-religious criteria that neither
favor nor disfavor religion will be employed in the selection of the
Cooperative Agreement recipient. Applications from foreign governments
and entities that are agencies of, or operated by or for, a foreign
state or government will not be considered.
If any entity identified in the application as an Associate does
not sign the Cooperative Agreement, the Lead Grantee must provide,
within 60 days of award, either a written subcontract agreement with
such entity, acceptable to USDOL, or an explanation as to why that
entity will not be participating in the Cooperative Agreement. USDOL
reserves the right to re-evaluate the award of the Cooperative
Agreement in light of any such change in an entity's status and may
terminate the award if USDOL deems it appropriate.
For the purposes of this proposal and the Cooperative Agreement
award, the Lead Grantee will be: (1) The primary point of contact with
USDOL to receive and respond to all inquiries, communications and
orders under the project; (2) the only entity with authority to
withdraw or draw down funds through the Department of Health and Human
Services-Payment Management System (HHS-PMS); (3) responsible for
submitting to USDOL all deliverables, including all technical and
financial reports related to the project, regardless of which Associate
performed the work; (4) the sole entity to request or agree to a
revision or amendment of the award or the Project Document; and (5)
responsible for working with USDOL to close out the project. Note,
however, that each Associate is ultimately responsible for overall
project performance, regardless of any assignment of specific tasks,
but Associates may agree, among themselves only, to apportion the
liability for such performance. Each Associate must comply with all
applicable federal regulations and is individually subject to audit.
In accordance with 29 CFR part 98, entities that are debarred or
suspended from receiving federal contracts or grants shall be excluded
from Federal financial assistance and are ineligible to receive funding
under this solicitation.

2. Other Eligibility Requirements

Applicants must include their Dun and Bradstreet Number (DUNS) in
the organizational unit section of Block 8 of the SF 424. For
Associations, Block 8 of the SF 424 should contain the DUNS number of
the proposed Lead Grantee, and a list of the DUNS number(s) of all
proposed members of the Association should be included as an attachment
to the SF 424. DUNS is an acronym which stands for ``Data Universal
Numbering System,'' and a DUNS number is a unique nine-digit number
used to identify a business. Beginning October 1, 2003, all Applicants
for Federal grant funding opportunities are required to include a DUNS
number with their application per the Office of Management and Budget
Notice of Final Policy Issuance, 68 Federal Register 38402 (June 27,
2003). The DUNS number is a nine-digit identification number that
uniquely identifies business entities. There is no charge for obtaining
a DUNS number. To obtain a DUNS number call 1-866-705-5711 or access
the following Web site: https://www.dnb.com/us/.

Requests for exemption from the DUNS number requirement must be
made to the Office of Management and Budget (OMB), Office of Federal
Financial Management at 202-395-3993. If no DUNS number is provided in
the application, and an Applicant does not provide evidence of an OMB
exemption from the DUNS number requirement, then the application will
be considered non-responsive.
After receiving a DUNS number, Applicants must also register as a
vendor with the Central Contractor Registration through the following
Web site: https://www.ccr.gov or by phone at 1-888-227-2423. Central

Contractor Registration (CCR) should become active within 24 hours of
completion. For any questions regarding registration, please contact
the CCR Assistance Center at 1-888-227-2423.
After registration, Applicants will receive a confirmation number.
The Point of Contact listed by the organization will receive a Trader
Partnership Identification Number (TPIN) via mail. The TPIN is, and
should remain, a confidential password.

3. Cost Sharing or Matching Funds

This solicitation does not require Applicants to share costs or
provide

[[Page 34284]]

matching funds, however, Applicants are encouraged to do so, and this
is a rating criteria worth up to five (5) additional points [see
Section V.1.F]. Applicants who propose matching funds, in-kind
contributions, and other forms of cost sharing must indicate their
estimated dollar value in the Standard Form (SF) 424 and SF 424A
submitted as part of the application. Grantees should note that they
will be responsible for reporting on these funds quarterly in financial
reports (SF 269s) and are liable for meeting the full amount of these
costs during the life of the Cooperative Agreement.

IV. Application and Submission Information

1. Application Package

This solicitation contains all of the necessary information,
including information on required forms, needed to apply for
Cooperative Agreement funding. This solicitation is published as part
of this Federal Register notice. Additional copies of the Federal
Register may be obtained from your nearest U.S. Government office or
public library or online at: https://www.archives.gov/federal_register/
.

2. Content and Form of Application Submission

Applications may be submitted to USDOL in hard copy or
electronically at https://www.grants.gov. Applicants electing to submit

hard copies must submit one (1) blue ink-signed original, complete
application, plus three (3) copies of the application. The application
must consist of two (2) separate parts, (1) a Cost Proposal and (2) a
Technical Proposal, as described below. Applicants should number all
pages of the application. All parts of the application must be written
in English, in 10-12 pitch font size.
Part I of the application, the Cost Proposal, must contain the
Standard Form (SF) 424 Research and Related Form, Application for
Federal Assistance, and Sections A-K of the Budget Information Form SF
424 (R&R). Applicants are also required to submit a detailed outputs-
based budget that links costs to project activities and an accompanying
budget narrative. A sample outputs-based budget are available from
ILAB's Web site at https://www.dol.gov/ilab/grants/bkgrd.htm. Copies of

the SF 424 (R&R) and SF 424 (R&R) Budget are available online at https://www.grants.gov/agencies/aapproved_standard_forms.jsp.
The individual

signing the SF 424 on behalf of the Applicant must be authorized to
bind the Applicant.
The Cost Proposal must contain information on the Applicant's
indirect costs, using the form provided on ILAB's Web site at https://www.dol.gov/ilab/grants/bkgrd.htm.
Applicants should note all

instructions outlined on this form and include one of the following
supporting documents, as applicable, in their application: (1) A
current, approved Cost Allocation Plan (CAP); (2) a current Negotiated
Indirect Cost Rate Agreement (NICRA); or (3) a Certificate of Direct
Costs. In the case of Associations, each member of the Association must
submit a copy of the aforementioned documents.
All Applicants are requested to complete the Survey on Ensuring
Equal Opportunity for Applicants (OMB No. 1890-0014), which has been
provided in Appendix D.
Part II, the Technical Proposal, demonstrates the Applicant's
capabilities to plan and implement the proposed research project in
accordance with the provisions of this solicitation. The Technical
Proposal must not exceed 45 single-sided (8-1/2 x
11), double-spaced pages with 1-inch margins. The Technical
Proposal must identify how Applicants will carry out the Scope of Work
in Section I.2. of this solicitation. The following information is
required:
A two-page abstract summarizing the proposed project and
Applicant profile information including: Applicant name, contact
information of the key contact person at the Applicant's organization
in case questions should arise (including name, address, telephone and
fax numbers, and e-mail address, if applicable), project title,
Association members and/or subcontractors (if applicable), proposed
research activities, funding level requested and the amount of
leveraged resources, if applicable;
A table of contents listing the application sections;
A research project description as specified in the
Application Evaluation Criteria found in Section V.1. of this
solicitation (maximum 45 pages);
A bibliography that includes completes citations of
research referenced in the proposal;
A Work Plan identifying major project activities,
deadlines for completing the activities and person(s) or institution(s)
responsible for completing these activities.
Please note that the abstract, table of contents, bibliography, and
Work Plan are not included in the 45-page limit for the research
project description.
Any applications that do not consist of the above-mentioned parts
and conform to these standards will be deemed unresponsive to this
solicitation and may be rejected. Any additional information not
required under this solicitation will not be considered.

3. Submission Dates, Times, and Address

Applications must be delivered (by hand, mail, or electronically
through https://www.grants.gov) by 4:45 p.m., Eastern Time, August 3,

2007, to: U.S. Department of Labor, Procurement Services Center, 200
Constitution Avenue, NW., Room S-4307, Washington, DC 20210, Attention:
Ms. Lisa Harvey, Reference: Solicitation 07-11. Applications sent by e-
mail, telegram, or facsimile (FAX) will not be accepted. Applications
sent by non-Postal Service delivery services, such as Federal Express
or UPS, will be accepted; however, Applicants bear the responsibility
for timely submission. The application package must be received at the
designated place by the date and time specified or it will be
considered unresponsive and will be rejected. Any application received
at the Procurement Services Center after the deadline will not be
considered unless it is received before the award is made and:
A. It is determined by the Government that the late receipt was due
solely to mishandling by the Government after receipt at USDOL at the
address indicated; and/or
B. It was sent by registered or certified mail not later than the
fifth calendar day before the deadline; or
C. It was sent by U.S. Postal Service Express Mail Next Day
Service-Post Office to Addressee, not later than 5 p.m. at the place of
mailing two (2) working days, excluding weekends and Federal holidays,
prior to the deadline.
The only acceptable evidence to establish the date of mailing of a
late application sent by registered or certified mail is the U.S.
Postal Service postmark on the envelope or wrapper and on the original
receipt from the U.S. Postal Service. The only acceptable evidence to
establish the date of mailing of a late application sent by U.S. Postal
Service Express Mail Next Day Service-Post Office to Addressee is the
date entered by the Post Office clerk on the ``Express Mail Next Day
Service-Post Office to Addressee'' label and the postmark on the
envelope or wrapper on the original receipt from the U.S. Postal
Service.
If the postmark is not legible, an application received after the
above closing time and date shall be processed as if mailed late.
``Postmark'' means a printed, stamped, or otherwise placed

[[Page 34285]]

impression (not a postage meter machine impression) that is readily
identifiable without further action as having been applied and affixed
by an employee of the U.S. Postal Service on the date of mailing.
Therefore, Applicants should request that the postal clerk place a
legible hand cancellation ``bull's-eye'' postmark on both the receipt
and the envelope or wrapper.
The only acceptable evidence to establish the time of receipt at
USDOL is the date/time stamp of the Procurement Service Center on the
application wrapper or other documentary evidence of receipt maintained
by that office. Confirmation of receipt can be obtained from Ms. Lisa
Harvey (see Section VII. for contact information). All Applicants are
advised that U.S. mail delivery in the Washington DC area can be slow
and erratic due to concerns involving contamination. All Applicants
must take this into consideration when preparing to meet the
application deadline.
Applicants may also apply online at https://www.grants.gov.

Applicants submitting proposals online are requested to refrain from
mailing a hard copy application as well. It is strongly recommended
that Applicants using https://www.grants.gov immediately initiate and complete the ``Get Registered'' registration steps at https://

https://www.grants.gov/applicants/get_registered.jsp. These steps may take

multiple days to complete, and this time should be factored into plans
for electronic submission in order to avoid facing unexpected delays
that could result in the rejection of an application. It is also
recommended that Applicants using https://www.grants.gov consult the

Grants.gov Web site's Frequently Asked Questions and Applicant User
Guide, which are available at https://www.grants.gov/help/faq.jsp, and

https://www.grants.gov/assets/UserGuide_Applicant.pdf, respectively. If submitting electronically through https://www.grants.gov,
ov,
Applicants must save the application document as a .doc, .pdf, .txt or
.xls file. Any application received on https://www.grants.gov after the

deadline will be considered as non-responsive and will not be
evaluated.

4. Intergovernmental Review

This funding opportunity is not subject to Executive Order 12372,
``Intergovernmental Review of Federal Programs.''

5. Restrictions, Unallowable Activities, and Specific Prohibitions

USDOL/ILAB would like to highlight the following restrictions,
unallowable activities, and specific prohibitions, as identified in OMB
Circular A-122, 29 CFR part 95, 29 CFR part 98, and other USDOL policy,
for all USDOL-funded child labor technical cooperation projects. If any
Grantee has questions regarding these or other restrictions,
consultation with USDOL/ILAB is recommended.
A. Pre-Award Costs
Pre-award costs, including costs associated with the preparation of
an application submitted in response to this solicitation, are not
reimbursable under the Cooperative Agreement (see also Section VI.3.E.
B. Subgrants
The funding for this program does not include authority for
subgrants. Therefore, the Grantee may not subgrant any of the funds
obligated under the Cooperative Agreement. Subgranting may not be
included in the budget as a line item or in the text of the
application. However, subcontracting may be included as a budget line
item. Subcontracts must be awarded in accordance with 29 CFR 95.40-48
and are subject to audit, in accordance with the requirements of 29 CFR
95.26(d). Subcontracts awarded after the Cooperative Agreement is
signed, and not proposed in the application, must be awarded through a
formal competitive bidding process, unless prior written approval is
obtained from USDOL.
The determination of whether a Grantee's relationship with a
subrecipient would constitute a subgrant or subcontract is determined
primarily with reference to an agreement's general purpose,
programmatic functions, and responsibilities given to the subrecipient.
These three elements should be closely examined, together with the
usual characteristics (terms and performance standards, scope of work,
etc.). In case of doubt, consultations are expected to be held between
USDOL and the Grantee with a view to ensuring proper determination of
the particular agreement. As a reference tool in determining whether an
agreement is a subgrant or a subcontract, see Appendix B. The table in
Appendix B is for reference only and does not create any legally
binding obligation.
See also Section IV.5.F.-H. for related references on Grantee and
subcontractor prohibitions related to Prostitution, Inherently
Religious Activities, and Terrorism. In addition, the debarment and
suspension rule, as outlined in 29 CFR 95.13 and 29 CFR part 98,
applies to all subcontracts issued under the Cooperative Agreement.
Grantees are responsible for ensuring that all subcontractors meet this
requirement. Detailed information on subcontracts may be requested by
USDOL during the Best and Final Offer (BAFO) process.
In compliance with Executive Orders 12876, as amended, 13230, 12928
and 13021, as amended, Grantees are strongly encouraged to provide
subcontracting opportunities to Historically Black Colleges and
Universities, Hispanic-Serving Institutions and Tribal Colleges and
Universities.
C. Lobbying and Intent To Influence
Funds provided by USDOL for project expenditures under this
Cooperative Agreement may not be used with the intent to influence a
member of the U.S. Congress, a member of any U.S. Congressional staff,
or any official of any federal, state, or local government in the
United States (hereinafter ``government official(s)''), to favor,
adopt, or oppose, by vote or otherwise, any U.S. legislation, law,
ratification, policy, or appropriation, or to influence in any way the
outcome of a political election in the United States, or to contribute
to any political party or campaign in the United States, or for
activities carried on for the purpose of supporting or knowingly
preparing for such efforts. This includes awareness raising and
advocacy activities that include fund-raising or lobbying of U.S.
federal, state, or local governments. (See OMB Circular A-122). This
does not include communications for the purpose of providing
information about the Grantees and their programs or activities, in
response to a request by any government official, or for consideration
or action on the merits of a federally-sponsored agreement or relevant
regulatory matter by a government official.
Under the Cooperative Agreement, no activity, including awareness
raising and advocacy activities, may include fund-raising, or lobbying
of U.S. Federal, State or Local Governments (see OMB Circular A-122).
COOPERATIVE AGREEMENT APPLICANTS CLASSIFIED UNDER THE INTERNAL REVENUE
CODE AS A 501(c)(4) ENTITY (see 26 U.S.C. 501(c)(4)), MAY NOT ENGAGE
ANY IN LOBBYING ACTIVITIES. According to the Lobbying Disclosure Act of
1995, as codified at 2 U.S.C. 1611, an organization, as described in
Section 501(c)(4) of the Internal Revenue Code

[[Page 34286]]

of 1986, that engages in lobbying activities directed toward the U.S.
Government will not be eligible for the receipt of Federal funds
constituting an award, grant, Cooperative Agreement, or loan.
D. Funds to Host Country Governments
USDOL funds awarded under Cooperative Agreements are not intended
to duplicate existing foreign government efforts or substitute for
activities that are the responsibility of such governments. Therefore,
in general, Grantees may not provide any of the funds obligated under a
Cooperative Agreement to a foreign government or entities that are
agencies of, or operated by or for, a foreign state or government,
ministries, officials, or political parties. However, subcontracts with
foreign government agencies or entities that are agencies of, or
operated by or for, a foreign state or government may be awarded to
undertake relevant research activities subject to applicable laws only
after the Grantee has determined that no other entity in the country is
able to provide these services. In such cases, Grantees must receive
prior USDOL approval before awarding the subcontract.
E. Miscellaneous Prohibitions
In addition, USDOL funds may not be used to provide for:
The purchase of land;
The procurement of goods or services used for private
purposes by the Grantee's employees;
Entertainment, including amusement, diversion, and social
activities and any costs directly associated with entertainment (such
as tickets, meals, lodging, rentals, transportation, and gratuities).
Costs of training or meetings and conferences, when the primary purpose
is the dissemination of technical information, are allowable. This
includes reasonable costs of meals and refreshments, transportation,
rental of facilities and other items incidental to such meetings and
conferences. Costs related to child labor educational activities, such
as street plays and theater, are allowable; and
Alcoholic beverages.
F. Prostitution
The U.S. Government is opposed to prostitution and related
activities which are inherently harmful and dehumanizing and contribute
to the phenomenon of trafficking in persons. U.S. Grantees, and their
subcontractors, cannot use funds provided by USDOL to lobby for,
promote or advocate the legalization or regulation of prostitution as a
legitimate form of work. Foreign-based NGOs, and their subcontractors,
that receive funds provided by USDOL for projects to fight trafficking
in persons cannot lobby for, promote or advocate the legalization or
regulation of prostitution as a legitimate form of work while acting as
a subcontractor on a USDOL-funded project. It is the responsibility of
the Grantee to ensure its subcontractors meet these criteria, and this
provision must be included in any applicable subcontract that the
Grantee awards using USDOL funds and the Grantee will obtain a written
declaration to such an effect from the subcontractor concerned.
G. Inherently Religious Activities
The U.S. Government is generally prohibited from providing direct
financial assistance for inherently religious activities. The Grantee
and/or its Associates may work with and subcontract with religious
institutions; however, Federal funding provided under a USDOL-awarded
Cooperative Agreement may not be used for religious instruction,
worship, prayer, proselytizing, other inherently religious activities,
or the purchase of religious materials. Neutral, non-religious criteria
that neither favor nor disfavor religion were employed in the selection
of Cooperative Agreement awardees and must be employed by the Grantee
in the selection of subcontractors. This provision must be included in
all subcontracts issued under the Cooperative Agreement. In addition,
Grantees must take steps to ensure that inherently religious activities
are clearly separated in time or physical space from those funded by
USDOL under the Cooperative Agreement. For additional guidance, please
consult the White House Web site for Faith-Based and Community
Initiatives at https://www.whitehouse.gov/government/fbci/guidance/partnering.html.
In addition, for any matters of uncertainty, USDOL

should always be consulted for prior approval.
H. Terrorism
Applicants are reminded that U.S. Executive Orders and U.S. law
prohibit transactions with, and the provision of resources and support
to, individuals and organizations associated with terrorism. It is the
policy of USDOL to seek to ensure that none of its funds are used,
directly or indirectly, to provide support to individuals or entities
associated with terrorism. It is the legal responsibility of the
Grantee to ensure compliance with these Executive Orders and laws.
Applicants to this solicitation and Grantees subsequently awarded
funding by USDOL under this solicitation must check the following Web
sites to assess available information on parties that are excluded from
receiving Federal financial and nonfinancial assistance and benefits,
pursuant to the provisions of 31 U.S.C. 6101, note, E.O. 12549, E.O.
12689, 48 CFR 9.404: https://www.epls.gov/ and https://www.treas.gov/offices/enforcement/ofac/sdn/t11sdn.pdf?
This provision must be
rovision must be
Agreement.

6. Review and Selection Process

The Office of Procurement Services at USDOL will screen all
applications to determine whether all required elements, as identified
in Section IV.2.above, are present and clearly identifiable. If an
application does not include all of the required elements, including
required attachments, it will be considered unresponsive and will be
rejected. Once an application is deemed unresponsive, the Office of
Procurement Services will send a letter to the Applicant, which will
state that the application was incomplete, indicate which document was
missing from the application, and explain that the technical review
panel will be unable to rate the application.
The following documents must be included in the application package
in order for the application to be deemed complete and responsive:
(1) A Cost Proposal;
(2) A Technical Proposal, including all the attachments listed in
section IV.2.;
(3) The Applicant's most recent audit report, and those of any
proposed Associates or sub-contractors (as applicable);
(4) R[eacute]sum[eacute]s of all key personnel candidates and all
other professional personnel;
(5) Signed letters of agreement to serve on the project from all
key personnel candidates;
(6) Information on the Applicant's previous and current grants,
Cooperative Agreements, or contracts with USDOL and other Federal
agencies that are relevant to this solicitation; and
(7) Signed partnership agreement(s), if applicable.
Each complete application will be objectively rated by a technical
review panel against the criteria described in this solicitation.
Applicants are advised that panel recommendations to the Grant Officer
are advisory in nature. The Grant Officer may elect to select a Grantee
on the basis of the initial application submission or the Grant Officer
may establish a competitive or

[[Page 34287]]

technically acceptable range from which qualified Applicants will be
selected. If deemed appropriate, the Grant Officer may call for the
preparation and receipt of final revisions of applications, following
which the evaluation process described above, may be repeated, in whole
or in part, to consider such revisions. The Grant Officer will make
final selection determinations based on panel findings and
consideration of factors that represent the greatest advantage to the
government, such as cost, the availability of funds, and other factors.
If USDOL does not receive technically acceptable applications in
response to this solicitation, USDOL reserves the right to terminate
the competition and not make any award. The Grant Officer's
determinations for awards under this solicitation are final.

Note to All Applicants: Selection of an organization as a
potential Cooperative Agreement recipient does not constitute
approval of the Cooperative Agreement application as submitted.
Before the actual Cooperative Agreement is awarded, USDOL may enter
into negotiations about such items as program components, funding
levels, and administrative systems in place to support Cooperative
Agreement implementation. If the negotiations do not result in an
acceptable submission, the Grant Officer reserves the right to
terminate the negotiation and decline to fund the application. In
addition, the Grant Officer reserves the right to negotiate program
components further after award, during the project design
consolidation phase and Project Document submission and review
process. See Section VI.2.

7. Anticipated Announcement and Award Dates

Designation decisions will be made, where possible, within 45 days
after the deadline for submission of proposals. USDOL is not obligated
to make any awards as result of this solicitation, and only the Grant
Officer can bind USDOL to the provision of funds under this
solicitation. Unless specifically provided in the Cooperative
Agreement, acceptance of a proposal and/or award of Federal funds does
not waive any Cooperative Agreement requirements and/or procedures.

V. Application Review Information

1. Application Evaluation Criteria

This section identifies and describes the criteria that will be
used to evaluate applications submitted in response to USDOL's
Solicitation for Cooperative Agreement Applications on the basis of 100
points. Applicants are required to address all of the following rating
factors in their Technical Proposal: Research Background and
Significance (20 points), Research Design (40 points), Key Personnel/
Management Plan/Staffing (20 points), Organizational Capacity (15
points), and Budget Cost-Effectiveness (5 points). Applicants should
note that additional points may be given to applications realistically
proposing to include committed non-Federal leveraged resources as
described below in section V(1)(F) (Cost-Sharing 5 points).
Please note that all information and requirements presented in
Section I.2. Scope of Work and Appendix A: USDOL's Definitions of Key
Terms will be taken into consideration when evaluating applications on
the basis of the technical rating criteria outlined in this section.
Applicants' Cost Proposals will be considered when evaluating the
rating criteria Research/Budget Cost-Effectiveness. When preparing the
Technical Proposal, Applicants must follow the outline provided in
Appendix C and ensure that the Technical Proposal does not exceed the
maximum length of 45 pages.
A. Research Background and Significance: 20 points.
B. Research Methodology: 40 points.
C. Key Personnel/Management Plan/Staffing: 20 points.
D. Organizational Capacity: 20 points.
E. Budget Cost-Effectiveness: 5 points.
F. Cost-Sharing: 5 extra points.
Part A and B of the Technical Proposal constitute the ``preliminary
project design document'' and serves as the basis of the final Project
Document to be submitted and approved by USDOL after Cooperative
Agreement award. Applicants' Technical Proposals must describe in
detail the proposed research methodology to carry out the objective of
this solicitation.
A. Research Background and Significance (20 Points)
Applicants must discuss their understanding of child labor in the
carpet industry, research gaps on the topic, and the link to
eliminating exploitive child labor. Applicants will be rated based on
their: (a) knowledge of children working in the carpet industry and the
specific country contexts that drives the supply and demand for
children's work in the carpet industry in India, Nepal, and Pakistan;
(b) familiarity with previously conducted research on child labor in
their carpet industry and their strengths and limitations; (c)
awareness of existing interventions to prevent child labor in the
carpet industry's supply chain, particularly for the export sector; and
(d) awareness of the policy and implementing environment in the
research countries.
B. Research Methodology (40 Points)
Applicants must discuss their proposed research methodology to
address the research objective, research questions, and methodological
requirements detailed in Section I.2. Applicants will be rated on the
strength of their proposed research methodology, and the feasibility of
carrying out all s

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