Notice of Availability of Funds and Solicitation for Grant Applications for the Older Worker Demonstration, 77844-77862 [E8-30116]

Agencies

• Employment and Training Administration
• DEPARTMENT OF LABOR

[Federal Register Volume 73, Number 245 (Friday, December 19, 2008)]
[Notices]
[Pages 77844-77862]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E8-30116]


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DEPARTMENT OF LABOR

Employment and Training Administration


Notice of Availability of Funds and Solicitation for Grant 
Applications for the Older Worker Demonstration

    Announcement Type: Notice of Solicitation for Grant Applications.
    Funding Opportunity Number: SGA/DFA PY-08-06.
    Catalog Federal Assistance Number: 17.268.

SUMMARY: The U.S. Department of Labor (DOL), Employment and Training 
Administration (ETA) announces the availability of approximately $10 
million in funds for Older Worker Demonstration Grants. These grants 
will be awarded though a competitive process as a part of the High 
Growth Job Training Initiative (HGJTI). The grants are intended to 
address the workforce challenges facing older individuals by developing 
models for talent development in regional economies that recognize 
older workers as a valuable labor pool and include employment and 
training strategies to retain and/or connect older workers to jobs in 
high growth, high demand industries critical to the regional economy.
    Grants awarded under the Older Worker Demonstration should focus on 
providing training and related services for individuals age 55 and 
older that result in employment and advancement opportunities in high 
growth industries and economic sectors. The proposed strategies must 
take place in the context of regional talent development efforts 
designed to contribute to a strong regional economy, and must be 
developed and implemented by a strategic regional partnership. The 
preferred eligible applicants for this solicitation are entities that 
represent the local workforce investment system, but other entities may 
apply. It is anticipated that the number of awards will range from 10 
to 13, with award amounts ranging from $750,000 to $1,000,000.
    This solicitation provides background information and describes the 
application submission requirements, outlines the process that eligible 
entities must use to apply for funds covered by this solicitation, and 
details how grantees will be selected.

Key Dates: The closing date for receipt of applications under this 
announcement is February 19, 2009. Applications must be received at the 
address below no later than 4 p.m. (Eastern Time). A Virtual 
Prospective Applicant Conference will be held for this grant 
competition in January. The date and access information for this 
Virtual Prospective Applicant Conference will be posted on the ETA Web 
site at: https://www.workforce3one.org/.

ADDRESSES: Mailed applications must be addressed to the U.S. Department 
of Labor, Employment and Training Administration, Division of Federal 
Assistance, Attention: Melissa Abdullah, Reference SGA/DFA PY-08-06, 
200 Constitution Avenue, NW., Room N-4716, Washington, DC 20210. 
Applicants may alternatively apply on-line through Grants.gov as 
discussed in Part IV(C) of this solicitation. Telefacsimile (FAX) 
applications will not be accepted. Applicants are advised that U.S. 
Postal Service mail delivery in the Washington area may be delayed due 
to mail decontamination procedures. Hand delivered proposals will be 
received at the above address.

SUPPLEMENTARY INFORMATION: This solicitation consists of eight parts:
     Part I provides the funding opportunity description. It 
contains background on talent development in the global economy, the 
aging of the American workforce, and the workforce challenges faced by 
older individuals; provides information on the Older Worker 
Demonstration; and outlines the critical elements and focus areas for 
this solicitation.
     Part II describes the award amount and performance period 
for the award.
     Part III describes the eligible applicants and other grant 
specifications.
     Part IV provides information on the application and 
submission process and various funding restrictions.
     Part V describes the criteria against which applications 
will be reviewed and explains the review and selection process.
     Part VI provides award administration information.
     Part VII contains ETA agency contact information.
     Part VIII lists additional resources of interest to 
applicants and other information.

Part I. Funding Opportunity Description

A. Background

1. Talent Development in a Global Economy
    Globalization of the economic marketplace is now well recognized, 
as is the fact that American businesses must now compete not only with 
companies across the street, but also with companies across the globe. 
Global competition is typically seen as a national challenge. In 
reality, regions are where companies, workers, researchers, 
entrepreneurs and governments come together to create a competitive 
advantage in the global marketplace. That advantage stems from the 
ability to transform new ideas and new knowledge into advanced, high 
quality products or services--in other words, to innovate.
    Regions that are successful in creating a competitive advantage 
demonstrate the ability to organize ``innovation assets''--people, 
institutions, capital, and infrastructure--to generate growth and 
prosperity in the region's economy. These regions are successful 
because they have connected three key elements: workforce skills and 
lifelong learning strategies, investment and entrepreneurship 
strategies, and regional infrastructure and economic development 
strategies.
    In the new global economy, a region's ability to develop, attract, 
and retain a well educated and skilled workforce is a key factor in our 
nation's economic competitiveness. A region may possess a strong 
infrastructure and the investment resources for success, but without 
the talented men and women to use those elements for economic growth, 
they will be underutilized. Talent can also drive infrastructure and 
investment because investment capital is smart money and will follow 
talent, while infrastructure can be built to support a growing economy.
    The aging of the American workforce will clearly impact a region's 
ability to develop, attract, and retain a well educated and skilled 
workforce. As regions respond to current and anticipated skills 
shortages and, in some industries and occupations, to labor shortages, 
they often overlook a key asset--the mature workforce. Older workers 
are an experienced and highly skilled pool of labor that can help 
regions meet their competitive needs.
2. Aging of the American Workforce
    The United States is in the throes of a demographic metamorphosis. 
Currently, 12.4 percent of the U.S.

[[Page 77845]]

population--or one in every eight persons--is over the age of 65. By 
the year 2030, the percentage of those ages 65 and older in the U.S. 
population is expected to jump to nearly 20 percent. Compounded with 
declining birth rates, the implications of this shift are tremendous.
    The graying of America will be reflected in its workforce. The 
number of people in the labor force ages 55 to 64 is projected to 
increase by over 36 percent between 2006 and 2016, and the number of 
participants ages 65 to 74 is expected to grow by 83 percent. As the 
workforce ages, greater numbers of people will leave due to disability 
or retirement. More than 25 percent of the working population will 
reach retirement age by 2010, resulting in a potential worker shortage 
of nearly 10 million.
    The United States therefore faces a significant challenge in 
meeting demands for workers over the next several years. This projected 
tide of retirements could significantly influence productivity and 
profits. Furthermore, unless the wave of retirements is more gradual 
than anticipated, employers not only will have fewer workers but will 
also have fewer leaders. In many companies, younger workers remain 
relatively inexperienced because of the predominance of Baby Boomers in 
important management and other leadership positions. The loss of older 
workers' critical organizational knowledge and expertise could be 
costly to employers.
    There is some disagreement among analysts about the extent to 
which, or even whether, significant worker shortages will result from 
the aging of the workforce. However, worker shortages have already 
appeared in some industries, such as health care, energy, and 
transportation. There is also considerable evidence that many employers 
have not yet recognized the possible consequences of an aging 
workforce. It is important that all employers, but particularly those 
with an older workforce and those in high-growth, high-demand 
industries, plan how they will meet their workforce and skill needs and 
how they can tap into the experience and talents of the growing pool of 
older workers.
    Possible labor and skill shortages could offer opportunities for 
the aging workforce, as well. Many older workers will maintain 
employment or become reemployed for a plethora of reasons including 
social interaction and a desire to achieve ``productive aging'' through 
employment. However, the most compelling motives are economic in 
nature. Personal savings are significantly lower than in the past, 
there has been an overall trend away from defined-benefit pension plans 
and towards defined-contribution annuities, and declining numbers of 
employers are offering retiree health insurance. The result will be 
more people continuing to work or seeking employment past traditional 
retirement ages.
    By capitalizing on older workers' desires for continued 
participation in the workforce, employers can minimize job vacancies, 
retain important skills and knowledge, and remain competitive and 
productive. Such a response will place older workers in a position to 
increase their personal retirement savings and realize other tangible 
and intangible benefits that result from their continued participation 
in the workforce. In addition, fully utilizing the mature workforce can 
help regional economies maintain the educated and skilled workforce 
that is a key factor in global competitiveness. Finally, the U.S. 
economy will benefit and financial pressures will be eased on important 
programs like Social Security and Medicare.
3. Workforce Challenges Faced by Older Individuals
    While many older individuals want to or need to stay engaged in the 
workforce and employers can benefit from the skills offered by aging 
employees, older individuals continue to face challenges to full 
participation in the labor market. These include the following:
    Need to increase skills to keep pace with technological and 
organizational change and limited access to training. As a result of 
technological and organizational change, job requirements are 
continually changing. Therefore, individuals increasingly must acquire 
new skills and upgrade their existing skills. Older persons who wish to 
continue working, either in their current field or in a new field, need 
to remain competitive by updating their skills. In comparison to 
younger workers, however, older workers are less likely to receive 
skills training. One study found that the hours of training received 
decline with age--while workers ages 25 to 34 participated in an 
average of 37 hours of employer-provided training in a year, employees 
ages 55 and older participated in 9 hours.\1\ Rates of training 
accessed through the public workforce investment system also decline 
with age.\2\
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    \1\ Kelly S. Mikelson and Demetra Smith Nightengale, Estimating 
Public and Private Expenditures on Occupational Training in the 
United States, the Urban Institute and Johns Hopkins University, 
December 2004.
    \2\ David W. Stevens, Older Worker Flows Through Core, 
Intensive, and Training Services, and Employment Status and Earnings 
First Quarter After Exit, University of Baltimore Jacob France 
Institute, April 2004.
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    Health problems, disabilities and limited flexible work 
arrangements. Some older workers may experience health problems, have 
disabilities, or have physical limitations that pose challenges to 
employment. The job opportunities for older workers with health 
concerns may depend on the availability of critical health-related 
employee benefits. Access to these benefits--e.g., health insurance, 
sick leave, short- and long-term disability--varies greatly across 
employers. Workplace accommodations may affect the opportunities of 
older workers with health conditions, and some employers may not know 
how to make such accommodations. Additionally, as workers age, they may 
desire to work fewer hours or to have more flexibility in their work 
arrangements to facilitate improved work-life balance. Flexibility in 
work arrangements can encourage older individuals to remain working.
    Lack of skills and confidence of some older individuals to search 
for a new job. To appeal to employers, older workers must identify and 
promote their strengths, including professional maturity, years of 
experience, and work ethic.\3\ Older workers also have a higher level 
of commitment and loyalty to employers, lower turnover and absenteeism 
rates, and fewer on-the-job accidents.\4\ However, some older 
individuals lack the skills and self-confidence to promote these 
strengths or search for jobs, and may not be familiar with the public 
and private resources that can aid older workers who are job hunting or 
changing careers.
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    \3\ Stephanie Overton, The Changing Face of Retirement, Radford 
University News to Use, December 2003.
    \4\ Future Work Institute, Some Facts About Older Workers: Hot 
Topic Research, https://www.futureworkinstitute.com/services/
hottopic/archetypes/HotTopics_Aging.pdf.
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    Lack of knowledge on how to start a business. Some older workers 
have been impacted by corporate downsizing, outsourcing, and job loss. 
For some aging workers exiting out of jobs prematurely, their most 
viable option may be starting their own small business. Many public and 
private resources are available to help individuals start their own 
business, but some older workers (particularly those who have been 
dislocated or who have very low income) may not know how to access such 
services.

[[Page 77846]]

    Employer barriers to engaging older individuals and age 
discrimination in the workplace. The external barriers faced by older 
workers in obtaining employment, whether related to health, skills, or 
financial matters, may negatively affect employers' efforts to find 
qualified older candidates. Some employers may avoid developing an 
older workforce because of concerns over the costs of older workers due 
to benefits, pensions, salaries and flexibility demands. Research is 
beginning to show that some employers may overestimate the costs 
associated with employing older workers while simultaneously 
underestimating the benefits.

B. Older Worker Demonstration Description

    Under the HGJTI, ETA is funding an Older Worker Demonstration with 
the objectives of: (1) Developing models for talent development in 
regional economies that recognize older workers as a valuable labor 
pool and include employment and training strategies to retain and/or 
connect older workers to jobs in high-growth, high-demand industries 
critical to the regional economy; and (2) building the capacity of the 
public workforce investment system to serve older individuals and 
identify innovative talent development models for an aging worker 
population.
    The framework for the Older Worker Demonstration is based on three 
ETA initiatives--the Taskforce on the Aging of the American Workforce, 
the HGJTI, and the Workforce Innovation in Regional Economic 
Development (WIRED) Initiative.
    The Taskforce on the Aging of the American Workforce is a federal 
interagency effort launched by ETA in 2006 to address the aging and 
retirement of the Baby Boomer generation and its impact on the 
workforce. The Taskforce brought together senior representatives from 
nine key federal agencies that affect the lives of older Americans and 
they elected to focus on three main areas: (1) Employer response to the 
aging workforce, focusing on the opportunities and needs of employers 
when recruiting, hiring, training and retaining older workers; (2) 
individual opportunities for employment, addressing the challenges and 
identifying the opportunities for older workers to increase their 
workforce participation; and (3) legal and regulatory issues regarding 
work and retirement, examining laws and regulations that may function 
as impediments and disincentives to continued employment.
    The Taskforce worked for several months to identify and examine the 
most significant issues related to the aging of the American workforce, 
particularly workforce challenges facing older individuals, as well as 
working to develop strategies to address those issues. The Taskforce 
released its findings and recommendations in a report issued in 
February 2008 (available at https://www.doleta.gov/reports/dpld_older_
worker.cfm). The Older Worker Demonstration is designed to address 
issues that limit the participation of older adults in the labor 
market, as identified by the Taskforce.
    The HGJTI is a strategic effort to prepare workers for new and 
increasing job opportunities in high-growth, high-demand industries and 
economically vital industries and sectors of the American economy. 
Through the initiative, ETA identifies high-growth, high-demand 
industries; evaluates their skill needs; and funds local and national 
partnership-based demonstration projects that: (1) Address industry-
specific workforce challenges, and (2) prepare workers for jobs with 
career pathways in rapidly expanding or transforming industries. 
Because of the aging workforce and potential shortages of skilled 
workers for high-growth, high-demand industries, it is important to 
find ways to better utilize older workers to meet the skill needs of 
these industries.
    Through the WIRED Initiative, ETA supports broad regional 
partnerships as they expand employment and advancement opportunities 
for American workers and catalyze the creation of high-skill, high-wage 
opportunities in regional economies. WIRED supports innovative 
approaches to workforce and economic development that go beyond 
traditional strategies that prepare workers to compete and succeed. The 
Initiative helps regions transform their workforce investment, economic 
development, and education systems to support talent development and 
overall regional economic growth. Each regional partnership undertakes 
strategies customized to the particular economic challenges and 
opportunities of their regions and is focused on the high growth 
industries in that area. Although the impact of the aging workforce 
varies from region to region, the potential labor market impacts of the 
aging workforce suggest that addressing the challenges of older 
individuals, and fully utilizing their skills and expertise, should be 
a key component of regional talent development strategies.
    Grants awarded under the Older Worker Demonstration should focus on 
providing training and related activities that result in employment and 
advancement opportunities in high-growth industries and economic 
sectors as part of a regional talent development strategy focused on 
economic growth. Examples of activities related to training include 
career awareness and outreach, strategies to promote career pathways, 
and activities to enhance the capacity of education and training 
providers. Because the grants under this solicitation are being funded 
by H-1B visa fees (as authorized under Sec. 414(c) of the American 
Competitiveness and Workforce Improvement Act of 1998), funds may only 
be used for projects that provide training in the occupations and 
industries for which employers pay H-1B visa application fees that 
generate these funds. (See Attachment: H-1B Industry Sectors and 
Occupations.) Also, the activities related to training must be limited 
to those necessary to support training in such occupations and 
industries.
    In alignment with the goal of building the workforce system's 
capacity to serve older individuals, the preferred applicant for the 
Older Worker Demonstration is a legal entity that represents the local 
workforce investment system as follows: (1) A Local Workforce 
Investment Board (LWIB), as established under Section 117 of the 
Workforce Investment Act of 1998 (WIA) (Pub. L. 105-220), that has been 
incorporated; or (2) in areas where the LWIB is not incorporated, the 
legal entity that serves as the fiscal agent for the local workforce 
investment area. Other applicants for this solicitation may include: 
(1) A non-LWIB entity with the concurrence from the LWIB (this would 
require evidence of the board's support and involvement in the project 
along with a letter of concurrence); or (2) all other applicants 
without a letter of concurrence from the LWIB (such applicants must 
demonstrate how the proposed activities will be connected to the 
region's talent and economic development strategies, including 
improvement of services to older workers through the LWIB).
    Applicants are required to have established partnerships to carry 
out the proposed project that could include, but are not limited to: 
The public workforce investment system; national, state, or local aging 
organizations, including Senior Community Service Employment Program 
(SCSEP) grantees; employers, industry associations, and business 
intermediaries, such as chambers of commerce; educational institutions 
and training providers; apprenticeship programs; economic development 
entities; local, regional, and state

[[Page 77847]]

government; Indian and Native American tribes or organizations; the 
philanthropic community; and community and faith-based organizations.
    To provide additional support to the Older Worker Demonstration, 
ETA will make technical assistance available to grantees after the 
grant awards have been made. This assistance is further described in 
Part I(E) of this solicitation.

C. Critical Elements of the Older Worker Demonstration

1. Strategic Partnerships
    ETA is using the Older Worker Demonstration as an opportunity to 
fund strategies focused on mature workers which will help prepare them 
for employment and advancement in high-demand, high-growth industries, 
as well as support the talent development needs of regional economies. 
While there are a range of approaches that cultivate and develop this 
critical labor pool, strategic partnerships must serve as the 
foundation of these solutions. Experience shows that workforce 
development strategies are most robust when developed in the context of 
a strategic partnership of regional leaders who have access to a range 
of resources. Thus, to maximize the impact of the proposed talent 
development activities, the applicant for the solicitation must partner 
with a strong team composed of individuals and organizations necessary 
to transform the regional economy.
    Required partners for this solicitation include the public 
workforce investment system; employers, industry associations, or 
business intermediaries, such as chambers of commerce; and educational 
institutions and training providers. The strategic partnership should 
engage each required entity in its area of strength. For example, in 
the 21st century global economy, it is becoming increasingly important 
that the workforce system act as a strategic partner in regional 
economic development. The workforce system can align resources with 
regional economic growth goals by focusing on workforce and lifelong 
learning strategies that are demanded by employers and based on an 
understanding of future job growth in emerging, high-growth and 
economically vital industries and sectors in the regional economy. 
Through this strategic alignment, the workforce system can help to ward 
off and respond to economic shocks, creating more stable and rewarding 
employment opportunities for the workforce. Educators at all levels are 
also important to a strategic partnership. Education and training 
providers can assist in developing competency models and curricula and 
train new and incumbent workers. Finally, employers and industry 
representatives can define workforce challenges facing a specific 
industry and identify the competencies and skills required for that 
industry's workforce.
    In addition to the required entities, applicants should think 
beyond geographical and physical boundaries to ensure that the full 
range of resources, knowledge, and leadership available to support 
workforce solutions for older workers are engaged in the project, and 
that the partnership includes entities that can act as levers of change 
to identify and address barriers to success. Other partners could 
include, but are not limited to, national, state, or local aging 
organizations, including SCSEP grantees; local, regional, and state 
government; economic development entities; apprenticeship programs; 
Indian and Native American tribes or organizations; the philanthropic 
community; and community and faith-based organizations.
    Within the context of the strategic partnership, each partner 
should have clearly defined roles. The exact roles of partners may vary 
depending on the specific issue areas being addressed and the nature 
and the scope of the strategies undertaken. However, ETA expects that 
each partner will, at a minimum, significantly contribute to one or 
more aspects of the project. For example:
     The workforce system may play a number of roles, including 
identifying and assessing older workers for training; providing wrap-
around support services and training funds for older workers, where 
appropriate; and connecting qualified training graduates to employers 
that have existing job openings.
     Employers, industry associations, and business 
intermediaries must be actively engaged in the project and should 
contribute to many aspects of grant activities such as helping to 
define the project's strategies and goals; identifying innovative and 
successful approaches to succession management and flexible work 
arrangements and sharing their experiences with other employers; 
identifying needed skills and competencies; and, where appropriate, 
hiring qualified training graduates.
     Educational institutions and training providers from the 
continuum of education (including community and technical colleges, 
four-year colleges and universities, apprenticeship, and other training 
entities) should assist in developing industry-driven workforce 
education strategies in partnership with employers including competency 
models, curricula, and new learning methodologies.
     Faith-based and community organizations may perform a 
variety of grant services such as case management, mentoring, and 
English language programs, among others. These organizations can 
leverage other resources to provide wrap-around holistic and 
comprehensive support services, where appropriate.
     State and area agencies on aging, SCSEP grantees, and 
other organizations with demonstrated expertise in serving older 
workers can play a key role in the proposed strategies in numerous 
ways, including lending their expertise to the planning and development 
of the project, providing specific education and services as part of 
the project, and offering access to key employer and other types of 
partners.
    Applicants must provide evidence, including letters of commitment 
to carry out the activities described in the grant proposal, to 
demonstrate the existence of the required partnerships as well as 
additional partnerships that substantially support and strengthen the 
proposed activities, especially any existing relationships with 
required partners. Letters of support do not constitute partnership 
commitments.
    The partnership's activities should focus on creating systemic 
solutions that address workforce challenges of older individuals while 
simultaneously contributing to long-term talent development and 
economic growth in the regional economy. The partnerships need to be 
substantial and sustained and not just a by-product of this specific 
grant opportunity. ETA encourages planning for the partnership's 
sustainability beyond the funding period to enable ongoing assessment 
of workforce needs and collaborative development of solutions on a 
continual basis.
2. High-Growth and High-Demand Industries and Economic Sectors
    WIA emphasizes a public workforce investment system driven by the 
needs of local employers. In order for America to remain competitive in 
the global economy, it is essential that ETA target its investments to 
support employers in high-growth, high-demand industries. LWIBs and 
One-Stop Career Centers play a vital role in this effort by 
understanding the workforce needs of these industries and providing 
training and other services to address those needs.
    High-growth, high-demand industries, from healthcare to 
construction to

[[Page 77848]]

biotechnology, are critical to the success of regional economies across 
the country. Regions are typically defined as geographically contiguous 
areas and can include multiple counties and cities and cross state 
lines. A range of factors contribute to the formation of a region, 
including economic interdependence (such as a common industry or 
industries) and shared assets (such as human capital, research and 
development entities, educational institutions, and airports and other 
types of infrastructure). ETA encourages applicants to define high-
growth industries in the context of their regional economy by 
illustrating the industry's growth potential and how the industry can 
contribute to expansion of the regional economy. In an effort to help 
support the continued growth of these regional economies, while 
simultaneously addressing the workforce challenges facing older 
workers, this solicitation will support industry demand for training of 
older workers in regional high-growth, high-demand industries.
    A high-growth, high-demand industry meets one or more of the 
following criteria: (1) Is projected to add substantial numbers of new 
jobs to the economy; (2) has a significant impact on the economy 
overall; (3) impacts the growth of other industries; (4) is being 
transformed by technology and innovation requiring new skill sets for 
workers; or (5) is a new and emerging business that is projected to 
grow. In the case of the fifth criterion relating to new or emerging 
businesses noted above, the applicant should address whether there 
might be potential demand for older workers to fill skill gaps in such 
businesses. The occupation or industry must be one for which employers 
use H-1B visas that generate the funds that are being used to support 
the training under this solicitation (see Attachment: H-1B Industry 
Sectors and Occupations).
    The extent of the impact of the aging population will vary across 
industries. Thus, another factor to be considered in identifying high-
growth, high-demand industries, in addition to the five criteria listed 
above, is whether there are (or could potentially be) retirements of a 
significant share of the workforce in the industry due to the aging of 
the Baby Boomer generation and whether there might be resulting skill 
shortages.
    Grants funded under this solicitation should demonstrate how a 
demand-driven workforce system can help meet both the regional 
workforce needs of employers in high-growth, high-demand industry 
sectors, and at the same time help older workers obtain the skills to 
find quality jobs with promising career pathways. Proposed strategies 
should be focused and integrated, and should be driven by an accurate 
and comprehensive understanding of regional, industry-identified 
workforce challenges and the educational, workforce, and other assets 
available to support solutions.
3. Connections to Regional Economic and Talent Development Strategies
    A regional approach to talent development incorporates demand-
driven skills strategies into the region's larger economic development 
and education efforts to form a comprehensive system that is both 
flexible and responsive to the needs of business and workers. ETA has 
modeled a regional approach to talent development through the WIRED 
Initiative. Through WIRED, ETA supports broad regional partnerships as 
they expand employment and advancement opportunities for American 
workers and catalyze the creation of high-skill and high-wage 
opportunities in regional economies. The WIRED Initiative recognizes 
that, although global competition is often seen as a national 
challenge, it is actually at the regional level where solutions must be 
developed and the challenges met. It is in regional economies where 
companies, workers, researchers, entrepreneurs, government, and others 
come together to create competitive advantage and where new ideas and 
new knowledge are transformed into advanced, high-quality products or 
services. Therefore, WIRED focuses on labor market areas that are 
comprised of multiple jurisdictions within a state or across state 
borders. WIRED offers a strategic framework for regions to approach 
regional talent development. (More information and tools to help 
develop and implement your project using the WIRED strategic framework 
can be found at: https://www.doleta.gov/WIRED.)
    One of the guiding principles of WIRED is that a region's ability 
to develop, attract, and retain a well educated and skilled workforce 
is a key factor in being competitive in the global economy. Older 
workers are an experienced and highly skilled pool of labor that can 
help regions meet their workforce needs and contribute to economic 
growth of the region's key industries. Therefore, fully utilizing the 
mature workforce should be a key component of regional talent 
development strategies.
    Therefore, strategies proposed by applicants for the Older Worker 
Demonstration should not be developed in isolation. Rather, partnership 
activities and proposed strategies should be fully integrated into the 
region's broader talent development and economic development 
strategies. Applications will be evaluated on the extent to which such 
alignment and integration is demonstrated. Applicants must demonstrate 
in their proposal how the strategic partnership, working to design and 
implement the proposed strategies, is connected to the broader regional 
strategic talent and economic growth agenda for the region.
4. Clear and Specific Outcomes
    HGJTI grants are results-oriented and grantees are expected to 
demonstrate clear and specific outcomes that indicate progress towards 
addressing the identified workforce challenges, are appropriate to the 
nature of the proposed strategies and the size and scope of the 
project, are achievable during the life of the grant, and can be 
effectively reported to ETA on a quarterly basis. Since HGJTI grants 
result in customized strategies addressing regional workforce 
challenges and skill shortages, ETA recognizes that specific outcomes 
will vary from project to project based on the specific activities 
proposed by applicants. Standard data collected from all grantees 
provides only part of the information necessary to measure the 
successes of HGJTI grants effectively, so grant recipients may also 
define additional outcome categories appropriate to their project. 
Applicants must demonstrate the effectiveness of proposed activities by 
establishing appropriate outcome projections for the project, which 
will be considered baseline performance measures for the project if 
awarded. Applicants should note that HGJTI grantees must report to ETA, 
on a quarterly basis, their progress towards meeting the projected 
training and capacity building outcomes listed in their applications.
    ETA has received Office of Management and Budget (OMB) approval to 
implement a report format for grantees under the HGJTI, as well as the 
Community-Based Job Training Grants, entitled: ``High Growth and 
Community-Based Job Training Grants: General Quarterly Reporting Forms 
& Instructions.'' The required format and associated instructions are 
available at https://www.doleta.gov/Performance/Guidance/wia.cfm#HGBIT, 
and provide grantees with information on all of the training and 
capacity building outcome categories described below, as well as 
specific instructions regarding how grantees report their performance 
in these categories on a quarterly basis.

[[Page 77849]]

ETA strongly encourages applicants to review the required report format 
for detailed information on the program reporting requirements and to 
ensure they will be able to track and report the information required 
under the grant.
    Training Outcomes. Training outcomes tracked and reported by 
grantees must include those tracked by the Common Measures, which are 
uniform evaluation metrics for job training and employment programs. 
The Common Measures are an integral part of ETA's performance 
accountability system. The Common Measures for adults are entered 
employment rate, employment retention rate, and average earnings. 
Applicants must include projected outcomes to be achieved during the 
life of the grant for the entered employment rate Adult Common Measure. 
Grantees will be required to report quarterly on their outcomes for all 
three Adult Common Measures. Please note that ETA recognizes that the 
reporting of certain data is contingent on the timing of the 
availability of data. Data must be reported when it is available. 
Additionally, tracking Common Measures requires either the collection 
of four data elements (social security number, employment status at 
participation, date of exit, and reason for exit) or use of 
supplemental data. A detailed description of ETA's policy on the Common 
Measures can be found in the Training and Employment Guidance Letter 
(TEGL) No. 17-05 (https://wdr.doleta.gov/directives/corr_
doc.cfm?DOCN=2195). Applicants may find it useful to review this 
document prior to submitting applications under this solicitation.
    The Common Measures provide only part of the information necessary 
to assess the success of HGJTI grants effectively. In addition to 
Common Measures, applicants are required to provide projections and 
track and report outcomes for each of the following outcome categories: 
total number of participants served; total number of participants 
beginning education/training activities; total number of participants 
completing education/training activities; total number of participants 
that complete education/training activities that receive a degree/
certificate; total number of participants that complete education/
training activities that enter employment; and the total number of 
participants that complete education/training activities that enter 
training-related employment. Grantees will be required, on a quarterly 
basis, to report on their outcomes for each of these outcome 
categories, as well as additional information, such as total exiters. 
(The definition of ``exiter'' is provided in the General Quarterly 
Reporting Forms & Instructions available at https://www.doleta.gov/
Performance/Guidance/wia.cfm#HGBIT ).
    Capacity Building Outcomes. Grantees are required to report, on a 
quarterly basis, the outcomes of capacity building activities, which 
include impacts and other verifiable measures of participation where 
appropriate. An example is grantees that engage in train-the-trainer 
activities; in this example, a grant may train 25 individuals to be 
``instructors'' who then each provide instruction to 20 older workers. 
The impact of these train-the-trainer activities would then be a total 
of 500 individuals. In their quarterly reports, grantees will be 
required to track and report the following three categories: (1) The 
number of instructors who participated in grant-funded capacity-
building activities; (2) the number of people subsequently trained by 
those instructors; and (3) the number of other people participating 
and/or benefiting from capacity building activities.
    Please note that capacity building outcomes and impacts of the 
proposed project should satisfactorily address the industry-identified 
workforce need and capacity constraints identified by the applicant.
    Applicants should also note that proposals will be evaluated based 
on outcomes, per the Performance Measures and Outcomes evaluation 
criterion in Part V(A)(5). It is imperative that applicants include 
projections for the above-mentioned required outcome categories in 
their grant proposals. Applicants that fail to include projections for 
required outcome categories in their proposals will lose points during 
the review process.
    All outcome categories and projected outcomes in the application 
will become part of the project's statement of work as the goals for 
the grant, should the application be funded. It is not ETA's intent to 
renegotiate performance outcomes after grant awards are made, though it 
reserves the right to do so if necessary.
5. Shared and Leveraged Resources
    HGJTI investments leverage funds and resources from key entities in 
the strategic partnership. Leveraging resources in the context of 
strategic partnerships accomplishes three goals: (1) Allowing for the 
pursuit of resources driven by the strategy; (2) increasing stakeholder 
investment in the project at all levels, including the design and 
implementation phases; and (3) broadening the impact of the project 
itself. Leveraged resources will be taken into consideration during 
application review as one element of the ``Strength of Regional 
Partnership'' evaluation criterion.
    Leveraged resources include both federal and non-federal funds and 
may come from many sources. Businesses, faith-based and community 
organizations, economic development entities, educational institutions, 
and philanthropic foundations often invest resources to support 
workforce development. In addition, state and area agencies on aging, 
SCSEP grantees, and other organizations serving older workers; One-Stop 
partner programs; and other federal, state, and local government 
programs may have resources available that can be integrated into the 
proposed project. ETA encourages grantees and their partners to be 
entrepreneurial as they seek out, utilize, and sustain these resources 
when creating effective solutions to the workforce challenges faced by 
older individuals.
    Applicants are encouraged to submit projects that leverage existing 
investments. These investments may be active within the region, such as 
those from ETA funding sources, including WIRED Initiative grants, 
Community-Based Job Training Grants, HGJTI funds, or WIA formula funds, 
or may come from other government, private sector, or philanthropic 
sources. Applicants are also encouraged to leverage existing 
investments in products, models, or tools that may be of use in the 
project.

D. Focus Areas of Older Worker Demonstration Grants

    While a range of strategies and approaches will be considered for 
funding, ETA encourages applicants to address one or more of the 
following focus areas: Innovative Training Techniques and Service 
Delivery Strategies, Facilitating Self-Employment for Older Workers, 
Career Pathways, Career Awareness and Outreach, Building Education and 
Training Capacity, and Disadvantaged Older Worker Populations. In 
addition, strategies proposed by the applicants should be well-
developed, address regional workforce challenges, and include training 
to prepare or adapt the skills of unemployed or incumbent older workers 
so they can be utilized in the targeted industries or economic sectors.
1. Innovative Training Techniques and Service Delivery Strategies
    Applicants are encouraged to submit proposals that include 
innovative

[[Page 77850]]

training techniques and service delivery strategies.
    Training Techniques. Based on older workers' existing expertise, 
learning styles, and other factors, specific training techniques may be 
particularly effective in helping prepare older individuals for 
employment opportunities. Different training techniques may be more 
effective for older individuals than for their younger counterparts. 
Applicants are encouraged to focus on the development and distribution 
of training that is targeted at mature audiences. Examples would 
include, but are not limited to, contextualized learning; methods for 
upgrading specific occupational skills; techniques for delivering 
training in computer and technological skills; and comprehensive 
training models that include wraparound services, such as assessment 
and follow-up, and appropriate supportive services (provided through 
leveraged resources). Applicants are also encouraged to utilize 
technology-based learning (TBL) models in their training programs. TBL 
can be defined as the learning of content via all electronic 
technology, including the Internet, intranets, satellite broadcasts, 
audio and video tape, video and audio conference, Internet 
conferencing, chat rooms, bulletin boards, Web casts, computer-based 
instruction and CD-ROM. It encompasses related terms, such as online 
learning, Web-based learning, computer-based learning and e-learning. 
TBL may be particularly appropriate for those older workers who already 
possess considerable work experience and job skills, but need to update 
specific skills or adapt them to new industries or occupations. TBL 
also allows incumbent workers to brush up their skills during non-work 
hours, at their own convenience.
    Service Strategies. Applicants are encouraged to include innovative 
strategies for delivering training and related services to older 
workers. Such strategies might entail ways to enhance the capacity of 
the One-Stop Career Center system to serve older workers, creating 
partnerships that would be particularly effective in serving an older 
population, and/or bundling services that would be particularly 
valuable to support older worker training and employment. Examples in 
this focus area would include, but are not limited to:
     Affiliate One-Stop Career Centers associated with senior 
centers or community and faith-based organizations that specialize in 
training and placing older workers.
     Models undertaken by some community colleges to develop 
training and placement opportunities for older workers to meet current 
local labor market needs. These colleges have created educational and 
vocational training programs tailored to older peoples' learning 
styles, and offer student advisor and supportive services (which could 
be provided through leveraged resources) to older students. Workforce 
Investment Boards often collaborate with community colleges on these 
efforts to provide funding, labor market information, connections with 
employers, and referrals.
     Training workforce professionals within One-Stop Career 
Centers on how to effectively provide employment and training services 
to older individuals.
2. Facilitating Self-Employment for Older Workers
    Applicants are encouraged to submit proposals that focus on 
entrepreneurial training for older individuals. Americans ages 55 to 64 
form small businesses at the highest rate of any age group--28 percent 
higher than the average for all adults. Yet, many self-employed older 
individuals still face risks and challenges such as inadequate access 
to capital and/or lack of information and training on developing an 
effective business plan. For many older individuals who have been laid 
off from their jobs, their most viable option may be starting their own 
business. Applicants are encouraged to include strategies to help older 
workers acquire the skills they need to successfully launch their own 
enterprises. Applicants could consider collaborative efforts with Small 
Business Administration programs, such as Small Business Development 
Centers and Women's Business Centers, or other appropriate partners 
that would provide assistance in facilitating self-employment for older 
workers.
3. Career Pathways
    Applicants are encouraged to include strategies that focus on 
creating career pathways for older workers. Although career pathways 
can take many forms, they are generally a sequence of employment 
opportunities for workers who gain new skills to advance in their 
careers, by either moving vertically to a more advanced position within 
their occupation or industry or laterally across occupations or 
industries to a position that relates to the worker's original career. 
For older workers, career pathways offer opportunities to adapt their 
skills and experience through lateral moves in their current 
organization and industry, or to new occupations or industries. 
Sometimes, such moves require minimal training to adapt skills to a new 
industry or occupation (such as learning new terminology). Other times, 
it may require learning new skills or retooling old skills. In either 
case, the worker's years of past on-the-job experience will benefit 
both the worker and his or her new employer.
    Career pathways are of value to many older workers who wish to 
pursue new challenges, develop new skills, seek opportunities to move 
up, or transfer their skills to a different, but related, occupation. 
They may also be appropriate for older individuals with disabilities or 
health problems. For example, a nurse who can no longer work in that 
occupation because of back injuries, may be trained for and move to a 
position in medical records using knowledge of medical terminology as a 
transferable skill.
4. Career Awareness and Outreach
    Applicants are encouraged to submit projects that integrate career 
awareness and outreach into education and training programs for older 
workers, including job-readiness opportunities, job shadowing and 
information sessions, and the provision of information on career 
opportunities in targeted industries and economic sectors. Career 
awareness and outreach components should leverage existing industry 
marketing and campaign efforts, if applicable, including the 
development of Web sites, videos, podcasts, print and multimedia 
materials, televisions ads, and other promotional materials.
5. Building Education and Training Capacity
    Applicants are encouraged to submit projects that enhance the 
capacity of community colleges, proprietary training providers, labor-
management organizations, and/or other education and training providers 
to provide training to older workers to upgrade their skills and 
facilitate career transitions into employment in high-growth, high-
demand industries. Examples of capacity building activities include, 
but are not limited to: (1) The development or adaptation of competency 
models and curricula to support training of older workers; (2) the 
development of innovative curricula, teaching methods, and 
instructional design to maximize the impact of the initiative in 
meeting the skills needs of employers; (3) innovative strategies to 
ensure availability of qualified and certified instructors for older 
worker training; and (4) support

[[Page 77851]]

for clinical experiences required for certification or licensure.
    Capacity building activities should be directly linked to the 
specific training for older workers supported under the grant. To the 
greatest extent possible, applicants should leverage existing curricula 
and training or certification programs that have demonstrated results 
for an older worker population, or could be effectively adapted for 
this population. If existing curricula or other capacity building 
products and activities are not sufficient, applicants should clearly 
explain why.
6. Disadvantaged Older Workers
    Applicants are encouraged to include strategies in their project 
that focus on the training and placement of particularly disadvantaged 
and underutilized groups among the older worker population. Examples of 
disadvantaged and underutilized groups include older persons ages 65 
and older, older dislocated workers, older individuals with 
disabilities, displaced homemakers and women re-entering the labor 
force, retired veterans, older military spouses, older ex-offenders, 
older minority populations, and older new Americans. Strategies focused 
on these worker groups might include both outreach and preparation 
strategies, partnerships with community or faith-based organizations or 
other experienced providers with expertise in working with non-
traditional labor pools, and training services combined with 
mentorships and supportive services (which could be provided through 
leveraged resources).

E. Technical Assistance

    Fund recipients under this solicitation will be provided with the 
opportunity to receive technical assistance after grant awards have 
been made. This may include, but is not limited to, the provision of 
data profiles of their regions and tools to use the data in planning 
and project implementation and participation in grantee meetings to 
facilitate sharing information across demonstration projects. 
Participation in any technical assistance activities by grant 
recipients under this solicitation is voluntary and is not a condition 
for receiving funding.

F. Use of Funds/Allowable Activities

    Grants selected under this solicitation will be funded by H-1B visa 
fees as authorized under Sec. 414(c) of the American Competitiveness 
and Workforce Improvement Act of 1998 (Pub. L. 105-277, title IV) as 
amended by Public Law 108-447 (codified at 29 U.S.C. 2916a). These 
funds are focused on the development of the workforce and may be used 
to provide training and related activities to workers to assist them in 
gaining the skills and competencies needed to obtain and upgrade career 
ladder employment in industries and economic sectors projected to 
experience significant growth. Examples of activities related to 
training include career awareness and outreach, strategies to promote 
career pathways, and activities to enhance the capacity of education 
and training providers. Funds available under this solicitation may 
only be used for projects that provide training in the occupations and 
industries for which employers pay H-1B visa application fees that 
generate these funds and the related activities limited to those 
necessary to support training in such occupations and industries. (See 
Attachment: H-1B Industry Sectors and Occupations). Funds may also be 
used to enhance the provision of job training services and information 
as authorized in 29 U.S.C. 2916(a)(2)(B).

Part II. Award Information

A. Award Amount

    ETA intends to fund 10 to13 grants ranging from $750,000 to 
$1,000,000 through this solicitation. However, this does not preclude 
ETA from funding grants at either a lower or higher amount, or funding 
a smaller or larger number of projects, based on the type and the 
number of quality submissions. Applicants should recognize that the 
funds available through this solicitation are designed to complement 
additional leveraged resources rather than be the sole source of funds 
for the proposal.
    Applicants should note that selection of an organization as a 
grantee does not constitute approval of the grant application as 
submitted. Before the actual grant is awarded, ETA may enter into 
negotiations about such items as program components, allowable 
activities, staffing and funding levels, and administrative systems in 
place to support grant implementation. If the negotiations do not 
result in a mutually acceptable submission, the Grant Officer reserves 
the right to terminate the negotiation and decline to fund the 
application.

B. Period of Performance

    The period of grant performance will be 36 months from the date of 
execution of the grant documents. This performance period will include 
all necessary implementation and start-up activities, participant 
follow-up for outcomes, and grant close-out activities. A timeline 
clearly detailing these required grant activities and their expected 
completion dates must be included in the grant application. If applied 
for, and with significant justification, ETA may elect to exercise its 
option to award no-cost extensions to these grants for an additional 
period at its own discretion, based on the success of the project and 
other relevant factors.

Part III. Eligibility Information and Other Grant Specifications

A. Eligible Applicants

    Given that the focus of this solicitation is to address the 
workforce challenges facing older individuals by developing models for 
talent development in regional economies that recognize older workers 
as a valuable labor pool and include employment and training strategies 
to retain and/or connect older workers to jobs in high growth, high 
demand industries critical to the regional economy, the preferred 
applicants are Local Workforce Investment Boards. Others may apply as 
described below.
    The preferred applicant for this solicitation is a legal entity 
that represents the local workforce investment system as follows:
     A Local Workforce Investment Board (LWIB), as established 
under Section 117 of the Workforce Investment Act of 1998 (WIA) (Pub. 
L. 105-220), that has been incorporated; or
     In areas where the LWIB is not incorporated, the legal 
entity that serves as the fiscal agent for the local workforce 
investment area.
    Other applicants for this solicitation may include:
     A non-LWIB entity with the concurrence from the LWIB (this 
would require evidence of the board's support and involvement in the 
project along with a letter of concurrence).
     All other applicants without a letter of concurrence from 
the LWIB (such applicants must demonstrate how the proposed activities 
will be connected to the region's talent and economic development 
strategies, including improvement of services to older workers through 
the LWIB).
    If the eligible applicant will not be the fiscal agent for the 
grant, then the applicant must identify the designated entity that will 
serve as the fiscal agent for the grant by clearly providing the legal 
name and EIN of the fiscal agent in the abstract and on the Standard 
Form (SF) 424.

B. Eligible Participants

    Individuals ages 55 and older, from any income bracket (including 
at or below the poverty line), including

[[Page 77852]]

unemployed individuals or incumbent workers, are eligible to 
participate in the activities funded by the grants awarded under this 
solicitation.

C. Cost Sharing or Matching

    Cost sharing, matching, or cost participation is not required for 
eligibility. However, applicants are strongly encouraged to leverage 
resources from key entities in the strategic partnership in order to 
maximize the impact of the project in the region. Applicants should 
describe what resources, new and existing, may support the goals of the 
project. Other federal funds that are leveraged should be explicitly 
identified. While the failure to offer leveraged resources as part of 
an application will not preclude consideration, leveraged resources 
will be taken into consideration during application review as one 
element of the ``Strength of Regional Partnership'' evaluation 
criterion.

D. Replication and Dissemination

    ETA is currently pursuing an aggressive national dissemination 
strategy that focuses on widely and publicly distributing grantee 
products through a network of stakeholders including education and 
industry partners and the public workforce investment system. The 
products developed through the HGJTI include but are not limited to 
curriculum, competency models and career ladders, distance learning 
tools, career awareness and outreach materials, case studies, program 
management and implementation tools, reports and databases, creation of 
industry skill centers for older workers, and Web sites. HGJTI grantees 
are required to submit to ETA products developed with grant funding; 
these products will be included in ETA's dissemination strategy. In 
addition, grantees must provide evidence of an independent review by 
subject matter experts of the deliverables produced through the grant 
activity. (Applicants should allot funds in their grant applications 
for the independent review of their deliverables by subject matter 
experts). Subject matter experts are individuals with demonstrated 
experience in developing and/or implementing similar deliverables. 
These experts could include grantees' peers, such as representatives 
from neighboring education and training providers. Grantees must 
provide ETA with the results of the review and the qualifications of 
the reviewer(s) at the time the deliverable is provided to ETA.
    All of these deliverables and their independent reviews will be 
made available online at https://www.workforce3one.org. Workforce3One 
offers the workforce system, employers, economic development 
professionals, and education professionals an innovative knowledge 
network designed to create and support demand-driven communities--that 
responds directly to business needs and prepares workers for good jobs 
in the fastest growing careers. By supporting replicable projects that 
can be implemented in multiple areas and industries, ETA is able to 
maximize its investment by expanding the grant's impact beyond the 
initial grant site and helping additional businesses and workers in 
other regions.

E. Veterans Priority

    The Jobs for Veterans Act (Pub. L. 107-288) provides priority of 
service to veterans and spouses of certain veterans for the receipt of 
employment, training, and placement services in any job training 
program directly funded, in whole or in part, by the Department of 
Labor. In circumstances where a grant recipient must choose between two 
equally qualified candidates for training, one of whom is a veteran, 
the Jobs for Veterans Act requires that grant recipients give the 
veteran priority of service by admitting him or her into the program. 
Please note that to obtain priority of service a veteran must meet the 
program's eligibility requirements. ETA Training and Employment 
Guidance Letter (TEGL) No. 5-03 (September 16, 2003) provides general 
guidance on the scope of the Job for Veterans Act and its effect on 
current employment and training programs. TEGL No. 5-03, along with 
additional guidance, is available at the ``Jobs for Veterans Priority 
of Service'' Web site: https://www.doleta.gov/programs/vets.

Part IV. Application and Submission Information

A. Address to Request Application Package

    This section provides the application submission and receipt 
instructions for ETA program applications. Please read the following 
instructions carefully and completely. This solicitation contains all 
of the information and Web site links to forms needed to apply for 
grant funding.

B. Content and Form of Application Submission

    The proposal must consist of two separate and distinct parts--Part 
I, the Cost Proposal, and Part II, the Technical Proposal. Applications 
that fail to adhere to the instructions in this section may be 
considered non-responsive and may not be given further consideration. 
Please note that it is the applicant's responsibility to ensure that 
the funding amount requested is consistent across all parts and sub-
parts of the application.
    Part I of the proposal is the Cost Proposal and must include the 
following:
     SF 424, ``Application for Federal Assistance'', available 
at: https://www07.grants.gov/agencies/forms_repository_
information.jsp. Upon confirmation of an award, the individual signing 
the SF 424 on behalf of the applicant shall be considered the 
Authorized Rep