[Federal Register: April 1, 2005 (Volume 70, Number 62)]
[Notices]
[Page 16853-16870]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr01ap05-112]
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DEPARTMENT OF LABOR
Employment and Training Administration
Workforce Investment Act--Demonstration Grants; Solicitation for
Grant Applications--Prisoner Re-Entry Initiative
Announcement Type: New. Solicitation for Grant Applications.
Funding Opportunity Number: SGA/DFA PY-04-08.
Catalog of Federal Domestic Assistance (CFDA) Number: 17.261.
DATES: The closing date for receipt of applications under this
announcement is July 13, 2005. Applications must be received no later
than 5 p.m. (eastern time). Application and Submission information is
explained in detail in Section IV of this SGA.
SUMMARY: The President's Prisoner Re-entry Initiative seeks to
strengthen urban communities characterized by large numbers of
returning prisoners through an employment-centered program that
incorporates mentoring, job training, and other comprehensive
transitional services. This program, which involves several Federal
agencies, is designed to reduce recidivism by helping inmates find work
when they return to their communities, as part of an effort to build a
life in the community for everyone. DOL will be awarding grants under
this competition to faith-based and community organizations (FBCOs) to
be the agencies carrying out this demonstration. The Department of
Justice will subsequently award competitive grants to State agencies to
provide pre-release services to prisoners who will be returning to the
communities served by the DOL grants. The Department of Housing and
Urban Development may in future years provide funds under this
initiative for housing services and the Department of Health and Human
Services is also assisting in the design and implementation of the
initiative regarding substance abuse and mental health treatment. We
hope to serve 6,250 released prisoners during the first year of this
initiative with projects operating in 30 communities across the
country. Each lead local agency awarded a DOL grant may choose to
directly provide services to released prisoners; provide sub-grants to
other FBCOs to provide these services; or use a mixed approach of
providing some direct services themselves while using other FBCOs to
also provide services. We expect that most lead local agencies will
need to sub-grant some portion of their award to other FBCOs. If the
lead local agency is using sub-grantees, it will be responsible for
providing technical assistance and oversight to these other FBCOs. Lead
local FBCOs applying for these grants will identify as part of their
application the need in the community that they plan to serve; their
proposed FBCO sub-grantees; their plan for serving released prisoners;
and their partnerships with the criminal justice system, Workforce
Investment Board, housing authority, and mental health and substance
abuse treatment providers.
SUPPLEMENTARY INFORMATION:
I. Funding Opportunity Description
1. Background
Experts estimate that each year more than 600,000 inmates are
released from Federal and State prisons and return to their communities
and families. The return of these ex-prisoners threatens the fragile
cohesion in many of the most troubled neighborhoods in America.
Without help, a majority of ex-prisoners do in fact return to
criminal activity. For example, according to the U.S. Department of
Justice, almost three out of five returning inmates will be charged
with new crimes within three years of their release from prison and two
out of five will be re-incarcerated.
Released prisoners face a myriad of challenges that contribute to a
return to criminal activity, re-arrest, and re-incarceration.
Joblessness among ex-prisoners has been broadly linked to recidivism
rates. Statistics demonstrate that even before incarceration, adult
prisoners demonstrate weak or non-existent ties to the workforce. Data
from 1997 show that nearly one-third of adult prisoners were unemployed
in the month before their arrest, compared to seven percent
unemployment in the general population.\1\ Post-incarceration,
employment rates only get worse--unemployment among ex-prisoners has
been estimated at between 25 and 40 percent. Likewise, prisoners also
demonstrate low levels of educational attainment. Nineteen percent of
adult State prisoners are completely illiterate and 40 percent are
functionally illiterate; \2\ over half of State parole entrants were
not high school graduates and as many as eleven percent had only an
eighth grade education or less.\3\
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\1\ Petersilia, 2002. When Prisoners Come Home: Parole and
Prisoner Reentry.
\2\ Rubinstien, 2001 as quoted in Petersilia, 2002.
\3\ Petersilia, 2002.
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Research has also broadly documented the substance abuse and mental
health issues of ex-prisoners--factors that are likely to contribute to
poor education levels, un-employability,
[[Page 16854]]
and a return to criminal activity. A study of parolees from State
prisons in 1999 found that 84 percent had been using an illegal drug or
abusing alcohol at the time of their offense. One-quarter had been
alcohol dependent and one-quarter had been IV drug users. Fourteen
percent had a mental illness and twelve percent were homeless at the
time of their arrest. In some States, nearly one-quarter of parole
revocations were related to drug-related violations.\4\ Estimates of
mental illness among the prison population vary. One study found that
sixteen percent of State prison and local jail inmates had a mental
illness as did seven percent of Federal prisoners. Among detainees with
a mental disorder, 72 percent also had a substance abuse disorder.\5\
In a survey of prisoners, one-fourth of male adults and more than one-
third of female adults reported having been treated at some time for a
mental or emotional problem.\6\ Only one-third of adult male detainees
and one-fourth of females who needed services for severe mental
disorders received treatment in jail.\7\
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\4\ Hughes, T.A., Wilson, D.J., and Belk, A.J., 2001, Trends in
State Parole, 1990-2000. Bureau of Justice Statistics, Special
Report, NCJ 184735.
\5\ Ditton, P.M., 1999, Mental Health and Treatment of Inmates
and Probationers, Washington, DC: U.S. Department of Justice.
\6\ Harlow, C.W., 1998, Profile of Jail Inmates, 1996, Bureau of
Justice Statistics Special Report, Washington, DC: U.S. Department
of Justice, NCJ164620.
\7\ Substance Abuse and Mental Health Services Administration,
2002, Report to Congress on the Prevention and Treatment of Co-
occurring Substance Abuse Disorders and Mental Disorders.
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In returning to criminal activity, ex-prisoners contribute to the
presence of violence and crime in already struggling neighborhoods and
reduce their chances of living healthy and positive lives and
strengthening their families. Research indicates that parental loss is
related to a host of poor outcomes for children that include poverty,
drug abuse, educational failure, criminal behavior, and premature
death. Healthy and consistent relationships between parents and
children strengthen the community by positively impacting both parent
and child generations. Ex-offenders who maintain strong family and
community ties have greater success in reintegrating into the community
and avoiding incarceration.\8\
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\8\ Hairston, 1991; Muston, 1994; Nelson, 1999.
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In order to successfully reintegrate into the community it is
essential that ex-offenders possess the skills and support necessary to
enter and compete in the workforce. The Prisoner Re-entry Initiative is
designed to draw on the unique strengths of faith-based and community-
based organizations and to rely on them as a primary partner for social
service delivery to ex-prisoners by providing a direct link into the
communities to which they are returning. It also seeks to coordinate
the provision of these services with supervision of these released
prisoners to ensure they are held accountable for their behavior upon
release.
Community-based partners are well suited for this work because they
can provide the resources and infrastructure that are necessary to
intervene in the lives of returnees and interrupt cycles of crime and
incarceration. This grant will rely heavily on FBCOs to develop
relationships and ensure connections to rehabilitation services for the
formerly incarcerated.
In addition, FBCOs will be utilized in this grant because evidence
indicates that faith-based and community institutions are among the
strongest, most trusted institutions in the urban neighborhoods to
which the majority of released inmates will return. Local faith-based
and community institutions are a significant presence, with many
resources at their command--including buildings, volunteers, and a
tradition of outreach and service.\9\ Churches, mosques, temples, and
community centers are especially significant in poor urban areas where
FBCOs have historically had a strong presence. The additional trust
that many FBCOs have earned outside urban centers is invaluable, since
collaboration and communication with public, private and nonprofit
providers and policymakers are essential to helping those in resource-
poor neighborhoods.
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\9\ Branch, 2002. Faith and Action: Implementation of the
National Faith-Based Initiative for High-Risk Youth, Public/Private
Ventures.
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Many FBCOs also possess a proven ability to work collaboratively
with other service providers and justice agencies for the delivery of
social services. This is an invaluable asset as the FBCOs that do
remain in poor urban neighborhoods are typically small and have limited
financial resources. For them to effectively ensure connections to job
training and social services, it is critical that they build
collaborations with other public and private organizations.
A substantial number of inner-city faith-based and community
leaders already have re-entry programs. This initiative will help
develop and expand these programs that provide job training, housing,
mentoring and transitional services that help ex-offenders avoid
recidivism and become contributing members of their communities.
Recognizing the work that has already been done under initiatives
funded by the U.S. Departments of Justice, Labor, Housing and Urban
Development and Health and Human Services, this initiative will
complement existing ex-offender initiatives for which the data show
positive impacts on rates of recidivism, employment, and substance
abuse.
2. Objectives
The Prisoner Re-entry Initiative is designed to strengthen urban
communities through an employment-centered program that incorporates
mentoring, job training, and other comprehensive transitional services.
This program seeks to reduce recidivism by helping inmates find work
when they return to their communities, as part of an effort to build a
life in the community for everyone. In the local areas served through
this initiative, FBCOs will provide comprehensive and coordinated
services to ex-offenders in the following three areas:
Employment: Employment is a critical stabilizing factor
for ex-offenders and this initiative will stress job placement, job
retention, and increasing the earnings potential of released prisoners.
FBCOs will offer job training and job placement services in
coordination with business, local One-Stop Centers, educational
institutions, and other employment providers. Partnering faith-based
and community organizations will provide each program participant with
work-readiness, soft skills training, mentoring, job placement or
referral for job placement, and post-placement support. The applicant
must provide educational services and hard skills training through
vouchers. These services must be provided by organizations that grant
industry-recognized credentials. These vouchers should be used to
supplement the limited supply of individual training accounts available
through the workforce system.
Housing: Because adequate housing for ex-offenders is an
important component of successful reentry, the initiative will stress
both satisfactory transitional housing and the movement from
transitional to permanent housing. Funds are not currently available
under this initiative to provide housing services for participants, but
the grants will require that linkages be developed at each site to
provide necessary housing services to participants. Subject to the
availability of appropriations, Federal funds to provide housing
services may be added to these grants in future years.
[[Page 16855]]
Mentoring: FBCOs will provide post-release mentoring and
other services essential to reintegrating ex-offenders in coordination
with the corrections, parole, and probation structure. Participating
adult ex-offenders will be matched with appropriate mentors who will be
primarily responsible for supporting the returnee in the community and
the work place. Mentors will offer support, guidance, and assistance
with the many challenges faced by ex-offenders.
As described above, local FBCOs will be primarily responsible for
ensuring connections to and delivering services to program participants
to achieve the main goals of long-term and meaningful employment,
reduction of criminal involvement, adequate transitional housing,
social connection, mental health and substance abuse counseling, and
other wraparound support services as needed. Funds to be awarded by the
Department of Justice under a separate solicitation will support the
activities of the criminal justice partners, both pre-release and
during the time released prisoners may be under supervision in the
community.
3. Design and Structure of the Initiative
What Is the Overall Structure of This Initiative?
We hope to serve 6,250 released prisoners during the first year of
this initiative, with projects operating in 30 communities across the
country. Under this announcement, DOL will be awarding grants to FBCOs
to oversee the provision of re-entry services in their community. DOJ
subsequently will award competitive grants to State agencies to provide
pre-release services for prisoners returning to the communities that
are awarded DOL grants.
Each lead local agency awarded a DOL grant may choose to directly
provide services to released prisoners; provide sub-grants to other
FBCOs to provide these services; or use a mixed approach of providing
some direct services themselves while using other FBCOs to also provide
services. We expect that most lead local agencies will need to sub-
grant some portion of their award to other FBCOs. If the lead local
agency is using sub-grantees, it will be responsible for providing
technical assistance and oversight to these other FBCOs.
FBCOs applying for these grants will identify as part of their
application the need for this Federal support in the community that
they plan to serve; their FBCO sub-grantees; and their plan for
providing services to released prisoners. They must also demonstrate
that they have established partnerships with the criminal justice
system, local Workforce Investment Board, and the local housing
authority. They must also identify their plan to leverage other
Federal, State, or local funding, as well as private funding sources,
to provide other wraparound support services that are not directly
funded through this initiative such as substance abuse and mental
health treatment.
Who Will Be the Grant Recipients Under This Initiative?
The recipients of the DOL grants will be faith-based and community
organizations that are located in or have a staff presence in the urban
community being served, and that have the capacity to serve as the lead
agency under this initiative, which in some cases will mean providing
technical assistance and oversight to other FBCOs.
What Types of Communities Will Be the Focus of These Grants?
We are looking to award grants in urban communities that are
heavily impacted by large numbers of prisoners returning to their
community each year, particularly those affected by high rates of
recidivism. A large metropolitan area could include more than one
community appropriate for a project under this initiative. For example,
DOL could award grants to lead FBCOs in more than one community within
the City of Los Angeles and surrounding areas. Therefore, you may
propose to serve a sub-area within a larger metropolitan area or an
entire small or medium-sized city. Given the amount of funds available
and the number of communities that we expect to serve, we expect that
an average of 200 released prisoners per community will be served in
the first year.
How Large a Grant Should I Apply for?
We anticipate that FBCOs will receive grants of approximately
$660,000 to cover their first year of operations. You may request a
larger or smaller amount based on the size of the community that you
propose to serve, but deviations from this amount must be clearly
justified in your application.
How Much Money Should the Lead FBCO Reserve for Providing Program
Administration, Including Technical Assistance and Oversight of the
Small FBCOs?
Limit the share of funds reserved for program administration,
including technical assistance and oversight, to 10 percent of the
amount for which you are applying. The remaining funds should be used
to provide services to returning prisoners. The application should
specify the share of funds the applicant will use for program
administration versus services.
If the Lead FBCO Is Planning To Make Sub-grants to Other FBCOs, Does it
Need To Make These Awards Competitively?
Grantees are required to have written procurement standards under
DOL regulations (29 CFR 95.44). The selection of sub-grantees should be
conducted, to the maximum extent practicable, in a manner designed to
ensure full and open competition (see 29 CFR 95.43). Where a provider
is selected non-competitively, the grantee must be able to justify why
it was not practicable to compete the selection, in accordance with its
procurement standards. The fact that the sub-awardee was identified in
the grant application does not alone suffice to demonstrate such
impracticability. The decision and justification for a non-competitive
selection is susceptible to questioning upon audit. DOL procurement
regulations at 29 CFR Part 95 do not contain standard provisions for
non-competitive selections.
In Preparing Their Applications, How Much Effort Should FBCOs Put Into
Identifying the Small FBCOs and Local Partnerships for These Projects?
If you are planning to provide sub-grants to others FBCOs, you
should use the three-month application period to identify and
competitively select these sub-grantees and develop strong partnerships
in the community that you propose to serve. Depending on your
procurement procedures, this could be sufficient time for you to
conduct a competition or to otherwise select the FBCOs that will be
your sub-grantees.
Lead FBCOs are expected to demonstrate connections to the criminal
justice system that will allow referrals of released prisoners who will
be returning to the community, as well as coordination with parole and
probation officers. We also encourage lead FBCOs to use this three-
month period to develop or strengthen partnerships with the Workforce
Investment Board (WIB) so that program participants will be able to
receive services from local One-Stop Centers. The application must
include letters of support from the local Workforce Investment Board
and from cooperating entities in the criminal justice system. Lead
FBCOs should also demonstrate linkages and cooperative partnerships
with local housing authorities, substance abuse and mental health
treatment providers, and other
[[Page 16856]]
organizations that provide services necessary to meet the needs of
returning prisoners.
What if Two or More FBCOs Submit Separate Applications To Serve the
Same Community or Metropolitan Area?
If more than one proposal to serve the same community or
metropolitan area are rated highly, we will determine whether the
community or metropolitan area is large enough to support more than one
project.
Can a National or Regional FBCO Apply To Serve Multiple Metropolitan
Areas?
Yes, but you must submit a separate application for each
metropolitan area that you propose to serve and you must demonstrate
that you have an existing presence in each metropolitan area for which
you apply. Single proposals applying to serve multiple metropolitan
areas will not be considered.
Can an FBCO Submit Two or More Applications For the Same Metropolitan
Area?
We expect that most FBCOs will propose to serve multiple
communities within a metropolitan area (for example, different
neighborhoods). In most cases, we expect to receive a single
application covering all communities that are proposed to be served
within a single metropolitan area. However, for very large metropolitan
areas, you may choose to submit separate proposals for distinct
communities (e.g., the Bronx and Brooklyn).
What Is the Target Group To Be Served Under These Grants?
Generally, grantees should plan to serve individuals 18 years old
and older who have been convicted as an adult and imprisoned pursuant
to an Act of Congress or a State law, and who have never been convicted
of a violent or sex-related offense. Additional information on eligible
beneficiaries is provided in Section III (1).
What Are Allowable Uses of Grant Funds?
DOL grant funds can be used to provide a variety of services to
returning prisoners, including workforce development services, job
training, on-the-job training, work experience, basic skills
remediation, counseling and case management, mentoring, and other
reentry services. DOL grant funds may not be used for substance abuse
treatment services. DOL grant funds should also not be used for pre-
release services other than recruitment, introductory meetings,
orientations, and other activities necessary to establishing program
connections with prisoners prior to their release. The DOJ grant to
State agencies will provide pre-release services.
Will There Be a Planning Period After Grant Award?
FBCOs will be allowed up to four months to put into place their
various local partnerships and to hire staff. The probability of
continuation of grants beyond the first year will be greatly reduced
for those grantees that do not begin providing services by the end of
the first four months.
How Will Success Be Measured Under These Grants?
Four outcome measures will be used to measure success in these
grants: entered employment rate, employment retention rate, earnings
change, and recidivism rate. In addition, grantees will report on a
number of leading indicators that will serve as predictors of success.
Leading indicators will include: Enrollment rate; participation in
education/training, workforce preparation, mentoring, and community
service; attainment of degrees and certificates; reduced substance
abuse; proportion of enrollees in stable housing; and proportion of
enrollees complying with parole conditions. In applying for these
grants, FBCOs and their sub-grantees agree to submit updated Management
Information System (MIS) data on enrollee characteristics, services
provided, placements, outcomes, and follow-up status.
Will There Be an Evaluation of This Initiative?
There will be a formal evaluation of this initiative. In applying
for these grants, lead FBCOs and their sub-grantees agree to cooperate
in this evaluation by providing enrollment and participation data and
other information during all years of the project and to participate in
a random assignment evaluation during the third and fourth years of the
project.
4. Guidelines for Technical Proposal
How Should I Organize My Technical Proposal?
Organize your technical proposal to answer the questions below.
Each proposal must apply for funds for a single metropolitan area. The
criteria below will be used to evaluate your proposal. Points will be
deducted from applications that are not responsive to these questions.
The technical questions are as follows:
#1. What is the need for the project in the community to be served
by the grant? (20 points) Identify the need in the community that you
propose to serve through your grant and make a case for the need for
the project in that area. Demonstrate how your community meets the
requirement of being an urban area heavily impacted by high numbers of
returning prisoners and high rates of recidivism. Use census tract data
from the 2000 census to show the population of the community, its
poverty rate, and its unemployment rate. Use local law enforcement data
to show the crime rate and recidivism rate for the community and how
this compares with the State or county as a whole. If there are
particular neighborhoods within the city in which you plan to focus
this grant, describe these neighborhoods and provide available data
specific to that area. We recognize that data might not be readily
available on the number of offenders returning to your community who
have never committed a violent crime, and so for the purpose of
establishing need (but not for determining eligibility for services
once the program starts) you can use data on the number of returning
prisoners whose most recent offense was non-violent. Use data that is
available from the State to estimate the number of non-violent
offenders returning each year to your community, and how this compares
to other areas in the State. If possible, provide such data for the
specific neighborhoods that you plan to serve rather than county-wide
data. If such data are not available from your State at the sub-county
level, data on the number of returning non-violent prisoners by county
from the National Corrections Reporting Program (NCRP) will be
available on ETA's web page at http://www.doleta.gov. Please note, however,
that the list on our web site will only include the 108 counties with
the largest number of returning prisoners, and will not include the
States of Alaska, Delaware, Idaho, Massachusetts, Montana, New Mexico,
Rhode Island, Vermont, and Wyoming. You can apply to serve a community
in a county that is not on this list. If you are applying from a
community in a county that is not included, provide the best data that
is available. Applicants will not be penalized for being in a State
that does not participate in the NCRP reporting system.
#2. What Is the Project Design and Service Strategy? (25 points)
Describe the project design and service strategy for each of the
following required program components.
[[Page 16857]]
How Do You Plan To Increase the Employment Opportunities of Released
Prisoners Who You Will Be Serving?
Describe how you will use funds available under this grant to
increase the employment opportunities of released prisoners. You and
your FBCO sub-grantees can directly provide assessment services, work-
readiness training, job placement, and post-placement support. Vouchers
or another mechanism of choice should be provided to participants
needing educational services or hard skills training. These vouchers
should be used to supplement the limited supply of individual training
accounts available through the workforce investment system. Educational
services and hard skills training must be provided by organizations
that grant industry-recognized credentials. Discuss how you will
conduct an initial assessment of each individual's educational
achievement and employability. Describe how you will provide job
readiness training for individuals in your program, and help them
explore career options. Describe the follow-up services that you will
provide to individuals. Be sure to indicate how many direct-service
staff will be hired with these grant funds.
Often a condition of release is to find employment quickly. How
will you help these persons find a job soon after their release from
prison? Describe your use of job developers and career counselors.
Describe how you will work with employers to identify and create job
openings for these persons. Discuss possible ways of building career
ladders into your job placements. Discuss how you will emphasize a
demand-driven approach in job development, seeking jobs in high-growth
and high-demand occupations. Describe links to local One-Stop Centers
and service providers under the Workforce Investment Act in the urban
area that you will serve. Discuss strategies to ensure that released
offenders have the forms of identification needed to obtain employment.
Discuss the possibility of having local employers serve on an advisory
board for you to develop job placements that are both geared to local
demand occupations and open to ex-offenders. Discuss whether you will
be using the Work Opportunity Tax Credit or Federal Bonding Program in
helping released prisoners find jobs. Discuss the possible use of on-
the-job training contracts to help place released prisoners in jobs in
which they can learn a skill. Discuss transitional employment
approaches that allow persons with little or no labor market experience
to gradually progress to jobs with more responsibility and higher pay.
Will you offer Try-Out Employment packages to employers in which you
pay for the first several weeks of wages to see if the employee is
going to succeed?
Describe possible links to local community colleges and trade
schools for individuals seeking job training or to continue their
education in the urban area that you will be serving. Many released
prisoners will have low reading levels. How will you increase the
literacy levels of these individuals? Many released prisoners will also
lack a high school diploma. How will you assist them to receive a GED
or attain a high school diploma? How do you plan to increase the
employment opportunities for released prisoners who have disabilities,
including psychiatric, learning, and developmental disabilities?
Also discuss how you will make sure that individuals you serve have
transportation to their work sites. Will you assist individuals to
learn to drive and get a drivers license? Will you help individuals
resolve warrants for past driving offenses that may prevent them from
driving now? Also discuss whether you will pay for work clothes and
work tools to get individuals started in jobs. Also discuss the
sustainability of these employment activities after Federal grant funds
cease.
How Will You Provide Housing Services to Released Prisoners?
Funds are not currently available under this initiative to provide
housing services for participants, but the grants will require that
linkages be developed in the community to provide necessary housing
services to participants. Describe potential linkages with local
agencies that provide housing services. Describe the technical
assistance that you will provide to sub-grantees to help them develop
such linkages. Discuss potential partnerships to provide both
transitional housing and permanent housing to released prisoners.
Please note that McKinney Vento Supportive Housing Program (SHP)
transitional and permanent housing funded through the Continuum of Care
application process cannot be used for ex-offenders. Discuss options
for assisting released prisoners who need to put a deposit on an
apartment. Discuss how you will ensure that appropriate housing
services are provided to released prisoners with physical and mental
disabilities. Please note that Federal funds to provide housing
services may be available for these grants in future years. If funds
are made available for these purposes grantees will be required to
expend funds in accordance with applicable Department of Housing and
Urban Development regulations.
How Will You Provide Mentoring for the Released Prisoners Who You Will
Be Serving?
We expect that mentoring will be a key part of this initiative;
that you will be able to offer mentors to each of the released
prisoners who desire these services enrolled during the first year; and
that mentors will be provided by faith-based and community
organizations. Discuss your plans for providing mentors to released
prisoners. Describe any experience that the lead FBCO has in operating
mentoring programs or how you will develop this capacity. If you are
using sub-grantees, describe the experience that your FBCO sub-grantees
have in operating mentoring programs or how you will develop this
capacity in them. How will the lead FBCO involve other local faith-
based and community organizations in recruiting mentors for this
project? What training will you provide to mentors? How will you make
sure that appropriate mentoring is available to released prisoners with
physical and mental disabilities? How do you plan to match the released
prisoners with appropriate mentors, taking into consideration factors
such as age, gender, life experiences, and career interests? If you
plan to make use of peer mentoring in your program, are you aware of
possible State prohibitions against ex-offenders associating with known
felons? Do you plan to use former prisoners that have successfully
reintegrated back into society to mentor recently released prisoners?
Do you expect to be able to sustain this mentoring component after
Federal grant funds cease? How will you ensure that the mentoring
programs funded through this project comply with Workforce Investment
Act and Establishment Clause guidelines that restrict Federal funding
of inherently religious activities (worship, instruction, and
proselytizing) and guarantee program participants' rights to free
exercise of religion?
How Will You Secure Alcohol and Drug Treatment and Other Health and
Social Services to Released Prisoners Who Require Such Assistance?
Provide examples of local partnerships that you have developed to
secure support services for released prisoners. Because grant funds
cannot be used to provide alcohol and drug treatment, give examples of
other resources that are available to provide
[[Page 16858]]
such services. Also give examples of local partnerships you have
developed to provide physical and mental health services. Many released
prisoners will be under court orders to pay child support and/or
restitution. How will you assist these individuals in complying with
these court orders? Discuss whether you will help individuals open
checking accounts at banks. How will you make sure that you have mental
health services available to released prisoners who need such services?
Discuss plans for providing any other social services that you
anticipate that returning prisoners will need. It is also important to
be able to demonstrate the ability to provide access to and
coordination with mainstream health, social services, and employment
resources for which non-violent ex-offenders may be eligible. These
programs include, but are not limited to, Medicaid, Social Security
Insurance Disability Benefits, Children's Health Insurance Program,
Temporary Assistance for Needy Families, Food Stamps, and services
funded through the Mental Health Block Grant and Substance Abuse Block
Grant, Workforce Investment Act, and Veterans Health Care.
#3. How will the lead FBCO and any sub-grantees work with the
criminal justice system in having released prisoners referred to the
program and in coordinating program services with community supervision
and law enforcement agencies? (20 points) Reentry by its very nature
must start behind the walls of an institution, whether the institution
is a prison, jail, or halfway house. As a result, a cooperative
partnership with corrections agencies is a critical component of this
initiative. Applicants must demonstrate the existence of a
collaboration with corrections agencies that will:
Identify potential program participants prior to release,
including a formalized referral and intake process from State or
Federal prisons, and in some case, local jails.
Identify specific needs of those participating in the
program.
Enable employment with identified program participants to
begin within 6 months after release.
Facilitate access to corrections facility for work with
offenders prior to release.
Coordinate provision of services and mentoring with
community supervision.
Released offenders often have terms of post-release supervision
that may include reporting requirements, drug and/or alcohol treatment,
counseling, etc. Failure to meet the terms of release often results in
revocation of probation or parole. A critical component of a successful
application will be a demonstration of a partnership between the
applicant and local representatives of law enforcement, including
police, probation and parole, to ensure coordination and cooperation in
accessing services to fulfill these terms of release. Please note that
restrictions on pre-release services are discussed in section I.3.
#4. What is the quality and experience of your organization to
serve as a lead local agency in overseeing this initiative? (25 points)
Describe your organization and its qualifications for serving as the
lead local FBCO in this initiative. How long has your organization been
in existence? What services and programs has it provided in the urban
area to be served by the grant? If you are planning to use sub-
grantees, discuss previous instances in which the organization has
overseen or coordinated the work of other FBCOs. Discuss previous
instances in which the organization has provided technical assistance
to other FBCOs. Discuss the experience of the organization in operating
social service programs, including the results of those programs (in
terms of individual service outcomes). Discuss any specific experience
relating to working with community-based and faith-based organizations.
Describe your experience working with criminal justice agencies.
Describe the qualifications of key staff persons of your organization
who may work on this project, and their specific experience relating to
this project. Also describe previous experience of the organization in
operating grants from either Federal or non-Federal sources. Describe
the fiscal controls in place in your organization. What is your
organization's current annual budget? Discuss how you will provide
fiscal oversight of sub-grantees. Describe your management plan for
overseeing and providing technical assistance to any sub-grantees.
If you plan to use sub-grantees, describe the faith-based and
community organizations that you propose to use for the project.
Describe their experience in operating workforce and social service
programs and the results of those programs. Describe any specific
experience operating programs for persons with alcohol or drug
addictions and persons with psychiatric disabilities. Describe any
specific experience recruiting or overseeing mentors, and the number of
mentors they have involved in their programs. Describe the experience
and qualifications of their staff persons who may have a role in this
project.
#5. What will be the results and cost-effectiveness of your project
and what non-Federal funds will you be able to leverage for the
project? (10 points) Describe the costs of this project in relation to
the expected benefits of services provided to released prisoners. For
example, compare the costs of incarceration for a year with your
expected cost-per-participant. Also, compare your per-participant
training and employment costs with those of other institutions. Also
discuss your expected performance outcomes (in terms of entered
employment rate, employment retention rate, earnings change, and
recidivism rate) and your plan for collecting, tracking, and reporting
data on these outcomes. Describe any non-Federal funds that you expect
to be able to leverage for this project.
II. Award Information
What Type of Assistance Instrument Will Be Awarded Under This
Initiative?
Funds will be awarded under this initiative through grants for an
initial period of one year, with up to three additional option years
depending on the availability of funds and demonstrated performance.
What Is the Expected Number of Awards?
We expect to award grants for 30 projects.
What Is the Total Amount Expected To Be Awarded Through This
Announcement?
DOL expects to award a total of $19.84 million in initial grants
through this announcement.
What Is the Expected Amount of Individual Awards?
DOL expects that initial awards will average $660,000.
III. Eligibility Information
1. Eligible Applicants
Am I an Eligible Applicant for These Grants?
You are eligible to apply for the DOL grants if you are a faith-
based or community-based organization and are located within or have a
staff presence within the urban community that is the focus of your
grant application. Urban communities are those that are located within
Urbanized Areas or Urban Clusters, as designated by the Census Bureau
in the 2000 Census.
National or regional FBCOs may submit separate proposals for more
than
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one metropolitan area, but applicants must demonstrate that they have a
presence in each metropolitan area for which they submit a separate
application for each metropolitan area.
Can an FBCO Be Listed as a Sub-Grantee in More Than One Application?
Yes, but if an FBCO is listed as a sub-grantee in two winning
proposals, it will only be allowed to receive a sub-grant award from
one grant.
Who Is Eligible To Be Served Under These Grants?
Individuals 18 years old and older who have been convicted as an
adult and imprisoned pursuant to an Act of Congress or a State law, and
who have never been convicted of a violent or sex-related offense can
be served with these grants. Individuals should be enrolled in the
program within 180 days after their release from prison or a halfway
house. Up to 10 percent of individuals served can be enrolled over 180
days from their prison release. Services may be provided to individuals
who have been released from prison and are residing in a halfway house.
Non-violent offenses are those offenses described in State and
Federal statutes encompassing property crime, drug offenses, and public
order crimes. Property crimes include, but are not limited to:
Burglary, larceny, motor vehicle theft, and receiving stolen property.
Drug crimes include, but are not limited to: Possession of a controlled
substance, trafficking in a controlled substance, and possession of
drug paraphernalia. Public order offenses include, but are not limited
to: commercial vice, gambling, animal cruelty and drinking while
intoxicated.
If an FBCO exhausts its supply of eligible offenders during the
course of the grant period, it may request approval from the DOL grant
officer to expand its eligible population. Approval of such a request
will require the use of a validated risk assessment tool and
consideration of the nature of any prior violent offense in
consultation with the Department of Justice.
This program is subject to the provisions of the ``Jobs for
Veterans Act,'' Public Law 107-288, which 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. 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 veterans priority statute
and its effect on current employment and training programs, and
additional guidance is available at the ``Jobs for Veterans Priority of
Services Website'' (http://www.doleta.gov/programs/ VETS/).
2. Cost Sharing or Matching
Is Cost Sharing or Matching Required for These Grants?
No, cost sharing or matching is not required, although leveraging
of non-Federal resources is strongly encouraged. In addition,
applicants will be selected, in part, based on their plans to tap such
resources to support program activities.
IV. Application and Submission Information
1. Address To Request Application Package
This SGA includes all information and forms needed to apply for
this funding opportunity.
2. Content and Form of Application Submission
What Are the Content and Form of Application Submission?
Each application must address one or more urban communities within
a single metropolitan area. Applicants must submit an original signed
application and three hard copies to the Department of Labor. The
proposal must consist of two (2) separate and distinct parts.
Applications that fail to adhere to the instructions in this section
will be considered non-responsive and will not be considered.
Part 1 of the proposal is the Cost Proposal and must include the
following three items:
The Standard Form (SF) 424, ``Application for Federal
Assistance'' (Appendix A). (also available at http://www.whitehouse.gov/omb/grants/sf424.pdf
). The SF 424 must clearly
identify the applicant and be signed by an individual with authority to
enter into a grant agreement. Applicants are required to have a Dun and
Bradstreet (DUNS) number which is a nine-digit identification number
that uniquely identifies business entities. To obtain a DUNS number,
access the Web site: http://www.dunandbradstreet.com or call 1-866-705-5711.
Applicants must supply their DUNS number in item 5 of the new
SF-424 issued by OMB (rev. 9-2003).
The Budget Information Form SF-424A (Appendix B). (also
available at http://www.whitehouse.gov/omb/grants/sf424a.pdf). In
preparing the Budget information form, the applicant must provide a
concise narrative explanation for each line item to support the request
and should discuss precisely how the administrative costs support the
project goals. Also provide a detailed back-up budget that includes the
number of staff to be hired by job title.
The Equal Employment Opportunity Survey Form (Appendix C) is an
optional part of the Cost Proposal.
Part 2 of the application is the Technical Proposal, which
demonstrates the applicant's capabilities to plan and implement the
Prisoner Reentry Initiative grant project in accordance with the
provisions of this solicitation. The guidelines for the content of the
Technical Proposal are provided in Section I(4) of this SGA. The
Technical Proposal is limited to twenty (20) double-spaced single-sided
pages with 12 point text font and one-inch margins. In addition, the
applicant must provide letters of support from the criminal justice
agencies which will release the prisoners and supervise their release
in the community and the local Workforce Investment Board; a list of
proposed staff positions to be funded by the grant; a Time Line
outlining project activities; and a two-page Executive Summary. These
additional materials do not count against the 20-page limit for the
Technical proposal, but may not exceed fifteen (15) pages.
3. Submissions Dates, Times, and Address
Will There Be Informational Conferences for Organizations Planning To
Apply?
There will be three information conferences held for this grant
competition. The dates and locations of these information conferences
will be posted concurrently on ETA's Web site at http://www.doleta.gov and DOJ's Web site at http://www.ojp.usdoj.gov/rentry. For potential
applicants who cannot attend one of these conferences, a tape of the
first conference will be available on both Web sites.
What Is the Closing Date for Applications?
The closing date for receipt of applications under this
announcement is July 13, 2005. Applications must be received at the
address below no later than 5 p.m. (eastern time). Applications sent by
e-mail, telegram, or facsimile (fax) will not be accepted. Applications
that do not meet the conditions set forth in this notice will not be
considered. No exceptions to the mailing and delivery
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requirements set forth in this notice will be granted.
To What Address Should I Send My Application?
Mailed applications must be addressed to the U.S. Department of
Labor, Employment and Training Administration, Division of Federal
Assistance, Attention: Eric D. Luetkenhaus, Reference SGA/DFA PY04-08,
200 Constitution Avenue, NW., Room N-4438, Washington, DC 20210.
Applicants are advised that mail delivery in the Washington area may be
delayed due to mail decontamination procedures. Hand delivered
proposals will be received at the above address. All overnight mail
will be considered to be hand-delivered and must be received at the
designated place by the specified closing date.
Applicants may apply online at http://www.grants.gov. Any
application received after the deadline will not be accepted. For
applicants submitting electronic applications via Grants.gov, it is
strongly recommended that you immediately initiate and complete the
``Get Started'' steps to register with Grants.gov at http://www.grants.gov/GetStarted.
These steps will probably take multiple days
to complete which should be factored in to your plans for electronic
application submission in order to avoid facing unexpected delays that
could result in the rejection of your application.
Late Applications: Any application received after the exact date
and time specified for receipt at the office designated in this notice
will not be considered, unless it is received before awards are made
and it (a) was sent by U.S. Postal Service registered or certified mail
not later than the fifth calendar day before the date specified for
receipt of applications (that is, no later than July 8, 2005) or (b)
was sent by U.S. Postal Service Express Mail or Online to addressee not
later than 5 p.m. at the place of mailing or electronic submission one
working day prior to the date specified for receipt of applications
(that is, no later than July 12, 2005). It is highly recommended that
online submissions be completed one working day prior to the date
specified for receipt of applications to ensure that the applicant
still has the option to submit by U.S. Postal Service Express Mail in
the event of any electronic submission problems. ``Post marked'' means
a printed, stamped or otherwise placed impression (exclusive of a
postage meter machine impression) that is readily identifiable, without
further action, as having been supplied or affixed on the date of
mailing by an employee of the U.S. Postal Service. Therefore,
applicants should request the postal clerk to place a legible hand
cancellation ``bull's eye'' postmark on both the receipt and the
package. Failure to adhere to the above instructions will be a basis
for a determination of nonresponsiveness.
4. Intergovernmental Review
Is an Intergovernmental Review Required?
This funding opportunity is not subject to Executive Order (EO)
12372, ``Intergovernmental Review of Federal Programs.''
5. Funding Restrictions
Are There Funding Restrictions?
All proposal costs must be necessary and reasonable in accordance
with Federal guidelines. Determinations of allowable costs will be made
in accordance with the applicable Federal cost principles, e.g., 29 CFR
95.27; Non-Profit Organizations--OMB Circular A-122. Disallowed costs
are those charges to a grant that the grantor agency or its
representative determines not to be allowed in accordance with the
applicable Federal Cost Principles or other conditions contained in the
grant. Applicants will not be entitled to reimbursement of pre-award
costs.
The government is prohibited from providing direct support to
religious activity.\10\ See 29 CFR part 2, subpart D. Provision
relating to the use of indirect support (such as through vouchers) are
at 29 CFR 2.33(c) and 20 CFR 667.266. These grants may not be used to
directly support religious instruction, worship, prayer, proselytizing
or other inherently religious practices. Neutral, secular criteria that
neither favor nor disfavor religion must be employed in the selection
of grant and sub-grant recipients. In addition, under the WIA and DOL
regulations implementing the Workforce Investment Act, a recipient may
not use direct Federal assistance to train a participant in religious
activities, or employ participants to construct, operate, or maintain
any part of a facility that is used or to be used for religious
instruction or worship. See 29 CFR 37.6(f). Under WIA, ``no individual
shall be excluded from participation in, denied the benefits of,
subjected to discrimination under, or denied employment in the
administration of or in connection with, any such program or activity
because of race, color, religion, sex (except as otherwise permitted
under Title IX of the Education Amendments of 1972), national origin,
age, disability, or political affiliation or belief.''
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\10\ The term ``direct'' support is used to describe funds or
other support that are provided ``directly'' by a governmental
entity or an intermediate organization with the same duties as a
governmental entity, as opposed to funds that an organization
receives ``indirectly'' as the result of the genuine and independent
private choice of a beneficiary within the meaning of the
Establishment Clause of the U.S. Constitution.
---------------------------------------------------------------------------
DOL grant funds should not be used for pre-release services other
than recruitment, introductory meetings, orientations, and other
activities necessary to establishing program connections with prisoners
prior to their release. This restriction on pre-release services does
not apply to halfway houses. Additionally, grant funds should not be
used to provide substance abuse treatment. Such treatment should be
made available to persons enrolled in the program using resources
available through partnerships with other agencies.
6. Other Submission Requirements
Can Applications Be Withdrawn?
Applications may be withdrawn by written notice or telegram
(including mailgram) received at any time before an award is made.
Applications may be withdrawn in person by the applicant or by an
authorized representative thereof, if the representative's identity is
made known and the representative signs a receipt for the proposal.
V. Application Review Information
1. Criteria for Review
What Will Be the Criteria for Award?
Panelists will rate proposals based on the following criteria,
which are explained in detail in Section I(4) of this SGA.
(1) Need in the city and neighborhoods to be served (20 points);
(2) Project design and service strategy, including sustainability
(25 points);
(3) Connections to the criminal justice system for referring
prisoners to the program and coordinating services upon release (20
points);
(4) Quality and experience of lead FBCO, including ability to
manage the project (25 points);
(5) Cost-effectiveness and leveraging of non-Federal resources (10
points).
2. Review and Selection Process
How Will Applications Be Reviewed and Selected?
Proposals that are timely and responsive to the requirements of
this SGA will be rated against the criteria listed above by an
independent panel comprised of representatives from DOL, DOJ, HUD, and
HHS. The panel recommendations to the Grant Officer
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are advisory in nature. The Grant Officer may consider any information
that comes to his or her attention. Final award decisions will be based
on the best interests of the government, including consideration of
geographic balance, program balance, and diversity. The Department may
elect to award grants either with or without discussions with the
applicant. In situations without discussion, an award will be based on
the applicant's signature on the SF 424, which constitutes a binding
offer.
VI. Award Administration Information
1. Award Notices
Award Notices--All award notifications will be made by mail and
posted on the ETA home page at http://www.doleta.gov. Non-selected
applicants will be notified by mail.
2. Administrative and National Policy Requirements
All grantees, including faith-based organizations, will be subject
to all applicable Federal laws (including provisions of appropriation
laws), regulations, and the applicable Office of Management and Budget
(OMB) Circulars. The grant(s) awarded under this SGA must comply with
all provisions of this solicitation and will be subject to the
following administrative standards and provisions, as applicable to the
particular grantee:
a. 20 Code of Federal Regulations (CFR) Part 667.220.
(Administrative Costs).
b. Non-Profit Organizations--Office of Management and Budget (OMB)
Circulars A-122 (Cost Principles) and 29 CFR Part 95 (Administrative
Requirements).
c. Educational Institutions--OMB Circulars A-21 (Cost Principles)
and 29 CFR Part 95 (Administrative Requirements).
d. All entities must comply with 29 CFR Parts 93 and 98, and, where
applicable, 29 CFR Parts 96 and 99.
e. In accordance with Section 18 of the Lobbying Disclosure Act of
1995, Public Law 104-65 (2 U.S.C. 1611) non-profit entities
incorporated under Internal Revenue Service Code section 501(c)(4) that
engage in lobbying activities are not eligible to receive Federal funds
and grants.
f. 29 CFR part 2, subpart D--Equal Treatment in Department of Labor
Programs for Religious Organizations; Protection of Religious Liberty
of Department of Labor Social Service Providers and Beneficiaries;
g. 29 CFR part 30--Equal Employment Opportunity in Apprenticeship
and Training;
h. 29 CFR part 31--Nondiscrimination in Federally Assisted Programs
of the Department of Labor--Effectuation of Title VI of the Civil
Rights Act of 1964;
i. 29 CFR part 32--Nondiscrimination on the Basis of Handicap in
Programs and Activities Receiving or Benefiting from Federal Financial
Assistance;
j. 29 CFR part 33--Enforcement of Nondiscrimination on the Basis of
Handicap in Programs or Activities Conducted by the Department of
Labor;
k. 29 CFR part 35--Nondiscrimination on the Basis of Age in
Programs or Activities Receiving Federal Financial Assistance from the
Department of Labor;
l. 29 CFR part 36--Nondiscrimination on the Basis of Sex in
Education Programs or Activities Receiving Federal Financial
Assistance;
m. 29 CFR part 37--Implementation of the Nondiscrimination and
Equal Opportunity Provisions of the Workforce Investment Act of 1998
(WIA).
Note: Except as specifically provided in this Notice, DOL/ETA's
acceptance of a proposal and an award of Federal funds to sponsor
any programs(s) does not provide a waiver of any grant requirements
and/or procedures.
3. Reporting
What Reporting Will Be Required Under These Grants?
The grantee is required to provide the reports and documents listed
below:
Quarterly Financial Reports. A Quarterly Financial Status Report
(SF 269) is required until such time as all funds have been expended or
the grant period has expired. Quarterly reports are due 30 days after
the end of each calendar year quarter. Grantees must use ETA's On-Line
Electronic Reporting System.
Quarterly Progress Reports. The grantee must submit a quarterly
progress report to the designated Federal Project Officer within 30
days after the end of each quarter. Two copies are to be submitted
providing a detailed account of activities undertaken during that
quarter. DOL may require additional data elements to be collected and
reported on either a regular basis or special request basis. Grantees
must agree to meet DOL reporting requirements. The quarterly progress
report should be in narrative form and should include:
1. In-depth information on accomplishments, including project
success stories, upcoming grant activities, and promising approaches
and processes.
2. Progress toward performance outcomes, including updates on
product, curricula, and training development.
MIS Reports. FBCOs and their sub-grantees will be required to
submit updated MIS data on enrollment, services provided, placements,
outcomes, and follow-up status. A government-procured MIS system will
be provided to all grantees. Grantees will be required to have
industry-standard computer hardware and high-speed Internet access in
order to use the MIS system. Grant funds may be used with the prior
approval of the Grant Officer to upgrade computer hardware and Internet
access to enable projects to use the MIS system.
Quarterly financial reports, quarterly progress reports, and MIS
data will all be provided electronically.
VII. Agency Contacts
Any questions regarding this SGA should be faxed to Kevin Brumback,
Grants Management Specialist, Division of Federal Assistance, FAX
number (202) 693-2705. (This is not a toll-free number). You must
specifically address your FAX to the attention of Kevin Brumback and
should include SGA/DFA PY 04-08, a contact name, fax and phone number.
FOR FURTHER INFORMATION CONTACT: Please contact Kevin Brumback, Grants
Management Specialist, Division of Federal Assistance, on (202) 693-
3381. (This is not a toll-free number). This announcement is also being
made available on the ETA Web site at http://www.doleta.gov/sga/sga.cfm and http://www.grants.gov.
Signed in Washington, DC, this 29th day of March, 2005.
Eric D. Luetkenhaus,
Grant Officer, Employment and Training Administration.
Appendix A: SF-424 Application for Federal Assistance
Appendix B: SF-424A Budget Form
Appendix C: OMB Survey N. 1890-0014: Survey on Ensuring Equal
Opportunity for Applicants
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[FR Doc. 05-6484 Filed 3-31-05; 8:45 am]
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