FSH 1809.12 - JOB CORPS CIVILIAN CONSERVATION CENTER HANDBOOK 1/83 WO AMENDMENT 1 CHAPTER 500 - JOB CORPS VOCATIONAL SKILLS TRAINING PROJECTS The nature, environment, size and facilities of Civilian Conseration Centers endow them with a unique opportunity to offer vocational skills training (VST) in an actual work experience setting. Vocational skills training, as conducted by and at these centers, will normally be conducted on public lands, including federal, state, county and municipal lands, except as explained in 20 CFR 684.102. Because of the need to provide for a variety of exit routes and to coordinate vocational skills training with other aspects of the Job Corps program, VST projects are built around construction trades, community service and Forest Service assistance projects and those service occupational training areas inherent in center support activities. 502 - Objectives. The specific objectives of the vocational skills training (VST) program are: 1. To develop and utilize standardized vocational training programs. 2. To close the gap between training and placement by training corpsmembers in vocations having predetermined employment opportunities. 3. To train to the needs of specific target populations and geographic areas. 4. To prepare corpsmembers to enter trades at the apprentice or training level or, in the case of non-union programs, to meet the requirements of the Job Corps training standards which reflect minimum entry level requirements for job placement. 5. To prepare corpsmembers for other positive exit routes, such as return to school, preparation for higher education, military service and public service careers. 503 - Policy. In selecting vocational skills training (VST) projects, consideration must be given to providing training in all of the skill items outlined in the appropriate standard. Make-work projects are forbidden and every effort must be expended toward the selection of projects which meet the needs of, and are meaningful to the acquisition of employable skills for, corpsmembers. The Training Achievement Records (TARs) are the sole guide for these employable work skills. Individual training project proposals must be prepared and submitted for review and approval in accordance with the policies and procedures outlined in this chapter. Project approval shall be obtained through normal Forest Service channels. The review of individual projects is to ensure that only nationally approved vocational course offerings are conducted at the center and that planning to accomplish the goals of the VST program has been adequate in: 1. Quality of planning. 2. Completeness and accuracy of training hours, money, and material resources. 3. Effective utilization of training hours, money, and material resources. 4. Resultant gain to corpsmembers in project accomplished and training value received. 504 - RESPONSIBILITY 504.1 - Forest Service. The Forest Service is responsible for preparing vocational skills training (VST) projects and conducting them in compliance with all requirements of the Code of Federal Regulations (CFR) and as approved by Job Corps and outlined in the appropriate Job Corps training standard. Responsibilities include: 1. Developing plans and procedures to implement the above policy and preparing the technical plans and designs of individual training projects in accordance with the policies, procedures, and guidance in this chapter. 2. Consulting closely in selecting and preparing VST projects with appropriate Job Corps regional personnel, and union representatives. 3. Obtaining prior concurrence from the Regional Administrator for Job Corps for any changes in approved projects which exceed limits outlined in this chapter. This is done through regular Forest Service channels. 4. Providing adequate training for staff involved in the preparation and submission of vocational skills training project proposals to ensure compliance with the requirements of the CFR. 5. Reviewing and approving at the Forest and Regional levels, all submitted vocational skills training projects to ensure sound financial planning, accuracy, and policy compliance before submissing to Job Corps for final review and approval. 6. Providing adequate training and safety instruction to corpsmembers prior to assignment to any hazardous duties in connection with VST projects. 7. Maintaining all equipment in good working order so as not to impair the progress of vocational skills training. 8. Providing training for center staff involved in vocational skills instruction of corpsmembers to ensure that the quality of such instruction is adequate and consistent with appropriate requirements and standards. 9. Maintaining VST funds for centers as a separate line item for VST project use only. See sec. 530. 10. Providing clear copies of all documents so that they are easily copied by commercial reproduction machines. 504.2 - Job Corps Regional Offices. Job Corps Regional Offices are responsible for: 1. Consulting with center and agency personnel, and union representatives in connection with projects pertaining to their respective areas of training. 2. Selecting and planning vocational skills training projects to ensure that an effective, balanced program is being planned, based upon the center's list of approved vocational offerings and subject to the requirements of the CFR. 3. Conducting the annual review of each center's individual vocational skills training projects, in accordance with the policies and procedures outlined in this chapter. 4. Providing information to Job Corps national office, Office of Program Management, on all developments related to vocational skills project review and approvals and recommended status changes of center vocational course offerings. 5. Monitoring all aspects of approved projects to ensure the best possible use of allocated resources toward project progress and completion. 6. Reporting immediately to the Job Corps national office, Office of Program Management, any instance on which unauthorized projects are being undertaken in violation of CETA. 7. Maintaining a current tabulation on the size, function and use of buildings and facilities on each center to ensure that the requirements and limitations of JCH 814, or approved exceptions thereto, are being adhered to. Effective use of existing buildings and facilities is a major factor in national office decision on whether a proposed addition or replacement project should receive approval. 8. Maintaining individual center VST project files containing, by fiscal year, copies of all projects, related correspondence and review actions. 505 - REFERENCES 20 CFR 684.53 Vocational Training 20 CFR 684.54 Occupational Exploration Program 20 CFR 684.55 Schedules of Training 20 CFR 684.56 Certification and/or Licensing 20 CFR 684.57 Purchase of Vocational Supplies and Equipment 20 CFR 684.58 Work Experience 20 CFR 684.100 VST Projects 20 CFR 684.101 Annual VST Plans 20 CFR 684.102 VST Project Proposals 20 CFR 684.103 VST Project Review and Approval 20 CFR 684.104 Modification of Approved VST Projects 20 CFR 684.105 Cancellation or Deferment of Approved VST Projects 20 CFR 684.106 VST Budgeting 20 CFR 684.107 Monitoring VST Project Program 20 CFR 684.108 Public Identification of VST Projects 20 CFR 684.109 Supplementation of VST Project Funds 20 CFR 684.124 Safety Interagency Agreement JCH 814 ETH 700, Section 700 510 - PROCEDURES 511 - Project Submission. The Center Director must prepare a plan for the vocational skills training (VST) projects for the upcoming fiscal year. The Job Corps Regional Office and the Forest Service Regional Office should agree on the timing of coordinated, early activities to select, prepare, and submit project proposals. Subject to regional and local conditions, the following time schedule is suggested for preparation, submission, review, and approval of Report FS-1800-I, Annual Vocational Skills (VST) Project Proposals: December 1 - The Center Director prepares a list of skills from the Training Achievement Records (TARs) that will be needed to provide training for corpsmembers. January 1 - The Center Director meets with the Forest/Ranger 30 staff to see what projects are available on the District to provide the skills training needed for the corpsmembers. The planning is done on the basis of meeting corpsmembers training needs. The work to be accomplished is only incidental to the training needs. Forest priorities may be used as a basis for VST project selection, but they may not interfere with providing job skill training. It is suggested that the Department of Labor Project Manager attend these meetings. March 1 - All center level plans will have been completed using the following documents: Form FS-1800-1, Conservation Center Work Program Form FS-1800-10, Project Work Plan (CCC) Proposed Vocational Skills Training Project Check List Long-term Accounting Form (where needed) JCH 814 Approval Requests (where needed) Union Training Program Approvals March 15 - The Forest Supervisor reviews the VST program. April 1-15 The Forest Service Regional Office reviews the VST project package and submits it to the Department of Labor Regional Office for concurrence. April 25 - The VST summary form FS-1800-1 and Department of Labor Regional Office concurrence letter aresent to the Forest Service Washington Office (WO). Include total VST project package forthose projects requiring JCH-814 approval for combined VST/capital projects. Human Resources Program (WO) submits the regional offices's proposals to the Department of Labor by May 1. A 5-year inventory of project proposals shall be developed for each center and updated annually by December 15 by adding another year's work. 512 - Components in Submission. Each fiscal year a package of the following documents shall be submitted for each proposed vocational skills training project for each center: 1. Forest Service Forms a. Summaries. Form FS-1800-1, Conservation Center Work Program. (See ex. 1) b. Individual Project Proposals. Form FS-1800-10, Project Work Plan (CCC). (See ex. 2) 2. Completed Proposed VST Project Checklist. (See ex. 3) This checklist is for USDA use only. It should be submitted each year for each active project proposal. This checklist and longterm accounting form may be reproduced locally in sufficient quantity to meet center needs. 3. Work Computation. The Maximum Benefits concept (20 CFR 684.80) allows for the scheduling of corpsmembers according to their individual needs. As a result, the proportions may vary among centers between corpsmembers assigned to basic education and those assigned to vocational training. Thus, the percentage split between basic education and vocational training may be balanced (50%/50%) or skewed (see below) depending on the corpsmembers' educational levels or needs at any center (the lower the educational level, the more time needed in basic education). In determining the corpsmember months available for VST projects, the center operator must consider the percentage split which most nearly reflects the population at the center. In applying the average percentage of corpsmembers in vocational training, centers may use either of the following splits, subject to regional office concurrence: Basic EducationVocational Training 30% 70% 40% 60% 50% 50% Centers may not use more than the 70 percent, or less that the 50 percent (vocational training factors) in determining corpsmember month's available for VST project purposes. Based on the above, center VST project capability in the project- related trades would be adjusted, in terms of corpsmember month's available, according to the following method: The number of project-related slots will be adjusted (totally and according to the separate trades involved) to determine the number of corpsmember month's available for projects, as follows: a. Determine the total number of slots in approved, project-related offerings (total union slots plus total non-union slots in project-related areas (see ex. 1 and 2). b. Adjust the total of a, above, as follows: (1) Reduce by the percentage of those who will be available for basic education and not available for VST (for example, if 30 percent are in education, reduce by 30 percent). ( 2) Multiply the result of item b(1) by 65 percent to determine the adjusted number of corpsmembers available for project work b(1) will have been reduced by 35 percent representing the following: 10% Estimated to be absent (AWOL or leave) 25% Estimated to be in classroom training or otherwise assigned or occupied. 35% Total c. Adjust the slots of each union and non-union project-related offering separately but in the same manner: (1) Reduce the number of slots by the percentage of those in basic education. (2) Multiply the result by 65 percent for each. d. Multiply the adjusted results of items b(2) and c(2) by 12. This will provide a target total of corpsmember month's available for the year's VST project planning for all projectrelated offerings and for each of the trades involved. e. The adjustment steps outlined in paragraphs a, b, c, and d may be worked out by Regional and/or center staff by using the sample worksheet (exhibit 1) to determine a center's corpsmember month's available for VST projects and project-related activities. f. Only approved union and those non-union slots which are determined to be project-related shall be used in determining the number of corpsmember month's to be adjusted and used as the basis for VST planning and thus for funding. A corpsmember work month shall consist of 22 days worked for reporting purposes. 4. Justification Statements (where appropriate). Full justification must be contained in or appended to form FS-1800-10 for all project proposals in which: a. Requirements and limitations of JCH-814 are involved (buildings on center). Prior to final approval of actual training projects for on center facility improvements involving JCH-814 clearance, JCH-814 approval must be obtained from Job Corps national office. b. Technical assistance (engineering, support) exceeds 20 percent of the total cost of the project. c. Contracted services or installed equipment costs exceed 15 percent of the total cost of the project. d. Cost per corpsmember work month is deemed excessive in review. e. Where additional costs are incurred subsequent to approval of initial proposal request, if additional costs exceed 15 percent of initial cost. 5. Service Occupational Training (SOT). Staff and corpsmember work months for each center support activities area for which the center has approval as vocational offerings must be reflected in the annual submission of the Forest Service summaries. These should not reflect any project costs; these areas are funded from center operations. An example is cooking. SEE PAPER COPY FOR EXHIBITS 1 THRU 3. 513 - Project Review 1. The Department of Labor's final review and the Forest Service's initial review of a VST project must include an indepth analysis of the center's compliance with policy, procedures, and requirements. Center effectiveness in achieving comprehensive, balanced programs, reasonable costs within the limitations outlined herein, completeness and accuracy of information and the training value of individual projects proposed should be major considerations. This review shall be consistent with Job Corps and Forest Service national and regional policies, and union input. 2. Procedures for conducting the annual review and the review of all subsequent submissions and reporting the results thereof are contained in the VST Project Review Guidelines, a working document which is available from the Job Corps national office, Office of Program Management. 3. Vocational skills training projects deemed not acceptable must be referred to the appropriate Forest Service Regional Office indicating disapproval and reasons therefor or the need for justification or corrective action. The Regional Office may (1) drop the projects when not required to resubmit them, (2) make the necessary adjustments and resubmit the projects for reconsideration, or (3) appeal the decision through Forest Service channels to the Job Corps national office. Regional Offices shall work with the affected Forest to determine a course of action. For those projects which require prior Job Corps national office approval, seek approval through normal Forest Service channels. These projects are: a. Center replacement or rehabilitation projects and those involving center site plan development (see sec. 520 and JCH 814). b. Exceptional on center recreation facilities projects, such as swimming pools and ice skating rinks. These will be judged on an individual center basis. c. Projects in which the costs of specialized technical assistance, contracted services, and installed equipment are in excess of allowable limits. (See sec. 523) d. Community service projects that are legally questionable. e. On center projects that involve requests for capital outlay funds. (20 CFR 684.103(3)). f. Proposed projects in which Job Corps national office interpretations of policy are necessary, as determined by the Regional Forester. g. Spike camp operations (20 CFR 684.103(6)). 4. Where parts of a project may be beyond the capability of the training program, clearance from the Job Corps national office is required before developing detailed plans or advertising for bids. 5. In addition to the above, the Regional Administrator, Job Corps, should coordinate closely with the Job Corps national office, Office of Program Management, in all cases in which: a. Questions of policy interpretations are involved. b. Past records, history, and questionable matters are concerned. 6. The results of all VST project review actions, including the reasons for withholding or disapproving projects, shall be disseminated through Forest Service channels to the appropriate centers. 514 - Cooperative Project Work. The existence of adequate opportunities for work projects on National Forest land to support the needs of a conservation center is a basic criterion for establishing the center. In work project planning, priority shall be given to projects on National Forests and National Grasslands. Authorization for emergency work on lands other than those administered by the Forest Service shall be obtained by the center Director from the Forest Supervisor when it falls within that area of influence. Other requests within the Region should be approved by the Regional Forester. Requests from outside the Region shall be coordinated and approved by the Washington Office. 1. Projects on Private Land. Corpsmembers may be used on private land in emergencies to prevent property damage(s), to protect life and property, and to relieve suffering and distress arising from such causes as floods, earthquakes, fires, and storms--but not from strikes. Corpsmembers are not to be used in rehabilitation of private property damage by the forces listed above and shall be returned to the center as soon as life and property are not threatened. Normal expenses, such as corpsmember pay, clothing, and equipment, shall be paid by regular Job Corps operating funds. Large nonroutine expenses, such as transportation, meals, and lodging, should be borne by the benefiting program where funds exist. 2. Projects on Land Managed by Other Public Agencies a. Department of the Interior. Projects may be undertaken on lands administered by the Department of the Interior under the existing memorandum of understanding between the Secretary of Agriculture and the Secretary of the Interior (exhibit 1). Such projects must meet the criteria listed in section 2 of the memorandum of understanding. b. State, County, Municipal, and Other Public Agencies. Projects may also be undertaken on land under State, county, municipal, or other public ownership if they are necessary to further the training and education needs of the program and comparable projects are not available on National Forest lands or National Grasslands. For sample agreements, see FSH 1509.11. Exhibit 1 MEMORANDUM OF UNDERSTANDING This Memorandum of Understanding between the Secretary of Agriculture and the Secretary of the Interior is for the purpose of providing a basis for cooperative effort in carrying out their functions with respect to Job Corps Conservation Centers under agreements made with the Director of Job Corps: a. Enrollees assigned to Job Corps Conservation Centers under the administrative jurisdiction of either Department may work on conservation projects under the jurisdiction of the other Department pursuant to agreements made in accordance with Section 3 of this memorandum. b. The projects to be worked on must qualify under Section 103(a) of the Economic Opportunity Act of 1964, Public Law 88- 452. The criteria for selection of projects shall be as follows: 1. The project must be in the field of conserving, developing, and managing the public natural resources and of developing, managing, and protecting public recreational areas of the Nation. 2. The project must contribute to the Job Corps training objectives for the enrollees. 3. The project will contribute to the balance of the program of work activities of the Center to which the enrollees are assigned. 4. Job Corps limitations on travel must be complied with. 5. The project must be in addition to the regularly scheduled projects of the Departments in the field of conserving, developing, and managing the public natural resources and of developing, managing, and protecting the public recreational areas of the Nation. c. The arrangements for work by enrollees of a Center on projects under the jurisdiction of the other Department shall be covered by an agreement between the administrative levels immediately above the Center Directors' of the Departments. d. Each agreement shall contain provisions concerning the duration of the work, the training to be administered and work to be performed, the equipment and materials required to carry on the training and perform the work, and the respective responsibilities of each Department, but shall contain no provision for transfer of funds between Departments for payment therefore. e. The cooperative work will be programmed out of funds allotted to the Centers. Cost accounting records will be adjusted at the end of each fiscal year, prorated on the basis of time and materials used. Should additional funds be required, application therefore will be made by the Department concerned to Job Corps Headquarters. f. The Department for which the work is to be done will provide supervisory personnel to direct the work in conjunction with the supervisors of the enrollees. Dated this 12th day of July , 1965. /s/ Stewart L. Udall Secretary of the Interior /s/ Orville L. Freeman Secretary of Agriculture 520 - PROJECT REQUIREMENTS, PROVISIONS AND LIMITATIONS. Planning of individual projects must be governed by three major considerations: (1) providing maximum vocational training opportunities and experience for corpsmembers, based on Job Corps national office approved vocational offerings, (2) minimum reasonable cost, and (3) gearing training to job placement in the particular vocational offering or a related skill. Training projects are but a means to accomplish such training. The funding, selection, planning, and review of vocational skills training (VST) projects shall, therefore, be subject to the following requirements, provisions, and limitations. 521 - Displacement of Employed Workers and Impairment of Contracts. Vocational skills training projects shall not displace presently employed workers or impair existing contracts for service. 522 - Project Priorities. In selecting projects to be accomplished by corpsmembers, the priorities outlined below shall be followed. Due consideration must be given to the need for projects of a meaningful nature, size and scope and with a wide range of skill development possibilities to meet standards and requirements. 1. Center rehabilitation/replacement construction projects. 2. Conservation projects, such as public benefit facilities, road construction, recreation areas, campsites, and agency facilities/housing construction. 3. Community projects. 4. Repetitive or production oriented projects (to provide prevocational experience or inclement weather activities only). Since training benefits are minimal from such items as technical assistance, contracted services, installed equipment, and rentals, projects requiring few or none of these should, all other things being equal, receive priority over those which require them. Since on center rehabilitation and replacement projects have priority over all other projects, technical assistance design, planning, and administration for these projects must also have priority over all other technical assistance. 522.1 - Low Skills Projects. Vocational skills training projects must provide high skills training opportunities. Projects involving any more than incidental menial tasks and having little skills training value are not acceptable and shall not be approved. The making of signs, cattleguards, picnic tables, and other such items on a production-line basis is prohibited, unless the conditions outlined below are adhered to. This policy provides for limited exceptions to meet center needs, subject to the following: 1. The exposure of any corpsmember to such activities must be brief. 2. This exposure must be one of several related training elements in a prevocational sequence leading to upward mobility into regular training programs. 522.2 - On Center Rehabilitation and Replacement Projects. Centers Directors shall plan as VST projects, to the maximum extent possible, major efforts to repair, rehabilitate, or replace on center buildings and facilities according to the facility survey and within the framework of the center's VST program offerings. Priority must be given to such projects and the planning and design of these over off center and Forest Service construction projects. These should not include those normal maintenance functions identified with service occupational training (see sec. 511.) Make on center capital improvements as vocational skills training projects except for critical emergency requirements. Only those projects or parts of projects which are beyond the capability of the training program should be considered for contracting out. Proposed projects for on center improvements must then be fully justified and clearly delineated. Their location, size, layout and functional use need to be covered. A statement must be made concerning how the functional activity is being accommodated at present and how it will be accommodated while improvements are being made. Before such improvements are recommended, multiple use or consolidation of existing space should be considered. Space utilization studies, approved site plans, and plans developed in accordance with policy and approved by the Job Corps national office must be taken into account in the justification. 522.3 - Job Corps Handbook (JCH) 814 Facility Standards. The design, approval, and/or construction of all structures on center shall be subject to the requirements of the Code of Federal Regulations (CFR) and Job Corps Handbook (JCH) 814, Facility Standards Handbook for Civilian Conservation Centers (sec. 511). 522.4 - Ancillary Features, Facilities, Equipment, and Refinements. Planning for projects involving buildings, facilities, and roads for entities other than Job Corps must be conducted so as to reduce cost to Job Corps to the extent that a maximum of training to corpsmembers is provided for the funds expended. Job Corps shall not entertain projects which are of higher quality than those normally provided by the Forest Service through normal funding. To the extent possible, only those items which provide or directly support training should be included as costs to Job Corps. In the case of buildings, heat is considered essential and is allowed, as are basic plumbing and electrical necessities. The cost of ancillary facilities, equipment, and or refinements such as, landscaping, carpeting, air-conditioning, blacktopping of roads, decorations and furnishings, which do not contribute to corpsmember training shall not be borne by Job Corps. Technical assistance costs in planning and designing these ancillary features should not be included in project costs. 522.5 - Project Size, Scope and Duration. For off center projects, it is preferred that those be selected which can be started and completed within a fiscal year, to the extent practicable, rather than have projects which extend over several years. If a large project becomes necessary, it should be broken down into identifiable components which could be started and completed without further ongoing commitments. Experience has shown that multiyear projects are difficult to manage. Small unit projects enable corpsmembers to participate in most of the effort to complete a project, thus realizing the experience and satisfaction of completion. This does not mean that a return to small item, productionoriented projects is indicated, but rather a selection of meaningful units that can be completed within a matter of months instead of years appears to be the best vehicle for training and management purposes. 522.6 - Modification of Projects. With adequate planning, once a project has been approved, its size and scope should remain essentially as planned and reported throughout the entire life of the project. No substantial increase in the size or scope in excess of 15 percent of initial cost of a project already approved shall be made without prior approval as outlined herein. (20 CFR 684.104) This is applicable to all projects, including carryover projects. Notification through channels is required for deferment, cancellation or substantial change in already approved projects. Expansions and add-ons after initial approval should be submitted for approval as new and/or separate projects. 522.7 - Community Projects. Community projects should generally benefit the public sector near the center. They shall not promote, preserve or protect the economic self-interest of private individuals or groups. They should be designed to promote community support for and involvement in the center and a hospitable reception for corpsmembers. Community projects should be of high visibility and oriented toward aiding the local community. Projects of this nature may be authorized, subject to the following conditions: 1. Community support and resources, including materials, technical assistance, and cooperative labor should be provided to the extent practicable. 2. The projects should provide some training in civic and community responsibilities for the corpsmembers. 3. Skills training opportunities should be available and taught as directed in Vocational Training Handbook ET 325, and governed by appropriate standards. 4. Community projects shall represent only a small portion of the total center's program. Projects should not exceed 15 percent of total corpsmembers work months in the vocational training projects. 522.8 - Miscellaneous Projects. Lumping together of projects in one proposal under the term "miscellaneous" (center, community, conservation) provides an inadequate definition of the projects involved. Each subproject should be described. Projects costing $1,000 or more should be broken out as separate projects each with its own project proposal, or listed separately and identified as subprojects of a miscellaneous grouping. 522.9 - Work Experience Programs. There is no substitute for completed on-the-job training within the approved center program. Every effort must be made to develop work opportunities within the normal program to eliminate the need for outside work experience. When the center program does not offer adequate training for a corpsmember to graduate directly to a planned job placement, additional work experience programs should be developed. This can be done by: 1. Work-training assignments to other Forest Service units. Such work experience can be given in any activity in which the Forest Service is engaged. Work experience to be meaningful must be as realistic as possible, and should avoidunnecessary adjustments because the trainee is a corpsmember. Examples of assignments are adjacent Ranger District and National Forest headquarters, Forest shops, road construction and maintenance crews, radio shops, warehouses, nurseries, aerial bases, and Visitor Information Service centers. 2. Out-Service work experience programs. Each proposal must ensure that: a. The program is developed on a nonremunerative basis. b. The services being provided the cooperator do not result in the displacement of workers normally hired or who would be hired. c. The program shall not result in exploitation of corpsmembers. d. Individual corpsmember assignments shall not exceed 1 month duration and must be scheduled during the corpmember's last 30 days in the Job Corps. e. Work experience is related to previous training received at the center and provides the terminal training necessary for successful job placement otherwise not available in the normal program and in-Service work experience programs. f. A written cooperative agreement is signed by the Center Director and cooperator covering the conditions of work experience. This will include the provision for periodic and final progress reports which become a part of the corpsmember's Job Corps record. A suggested format can be found in FSH 1509.11. g. Equal consideration is given to all applicable businesses in the local community when selecting a cooperator. 523 - Project Funding and Costs 1. Funding. Vocational skills training projects at Civilian Conservation Centers shall be funded and maintained as a separate line item. Transfers of VST funds to other projects or categories are subject to prior approval as outlined below. Program planning and project design must be completed well in advance to permit sound financial planning. Strict accountability must be maintained in the use or nonuse of VST funds, once allocated. Although a stipulated amount of funds must be specified for each project approved, the total funding for individual projects must be adjusted by the Forest so as not to exceed the funds allocated for this purpose in the final center budget allocations. As a related matter, the total of costs listed in approved projects should not vary greatly from the corpsmember work year amounts allocated to the center through the budget process. In other words, planning must be realistic. 2. Capitalization. All capital vocational skills training projects shall be entered in Forest accounts according to regular Forest Service procedures. Value of capital projects located on center shall be recorded in the Job Corps general ledger, identified by source of funding, such as Job Corps Readiness Funds, Job Corps Operations Funds (Vocational Skills Training), and nonappropriation costs transfers at total capitalized value. 3. Transfer of project funds between projects. Expenditures of VST funds which vary by more than 15 percent from originally approved amounts for individual projects require prior approval as specified in 20 CFR 684.104. 4. Transfer of project funds to other activities. There shall be no interchangeability of funds from the vocational skills training project line item to any other program activity without prior approval of the Job Corps national office. 5. Clear delineation of component costs. There must be clear delineation of the separate, component costs of a project; that is, the materials, equipment operation, transportation, technical assistance, installed equipment, rentals, and contracted services. Quantity, unit, and unit costs should be given wherever possible. Lump sum figures shall not be acceptable in review; costs of separate components should not be combined (for example, costs of contracted service with cost of installed equipment); technical assistance services and/or costs should be identified separately. Project proposals involving requests for advance technical assistance are covered in 20 CFR 684.102(c). 6. Program direction funding. Costs of administrative direction, management assistance, and overall program planning above the center level are to be charged to program direction funds. 7. Technical assistance costs. Costs of technical support needed for project planning and designs, compliance inspection and technical supervision are charged to and identified on each individual project plan. These costs should be kept at a minimum and, in any event, not exceed 20 percent of total project costs. When estimated costs exceed 20 percent, full justification must be contained on or appended to form FS-1800-10, Project Work Plan (CCC), for consideration through normal channels. These costs will be judged on an individual project basis and may not be averaged out on a total center program or group of centers basis. 8. Training aids, audio-visuals. The costs of such items as training aids, audio-visuals, texts, films, projectors, specialized equipment, should not be included in project costs. 9. Installed equipment and contracted services. a. Any project proposing the installation of equipment to be purchased with Job Corps funds, wherein the equipment costs exceed 15 percent of the total project costs, must include full justification either within or appended to the project proposal for consideration. (See 20 CFR 684.102(d)(3)) b. Where costs of contracts, exclusive of such installed equipment, exceeds 15 percent of the total project costs, full justification must be contained within or appended to the project proposal for consideration. c. Costs of contracted services, of whatever type, must be separately delineated from the costs of equipment to be installed. 10. Union training. Costs for union training are not to be included in VST project proposals. They are funded as a separate budget line item. Proposals for projects involving materials, and equipment in support of such training are permissible. 11. Supplemental Forest Service funds. Funds from benefiting Forest projects can be used to supplement Job Corps construction projects on Forest lands. Benefiting project funds may finance part of the costs of Job Corps construction projects (unplanned) that are primarily financed from Job Corps funds (See FSM 6516.3). 524 - Technical Assistance 1. Adequate description. In submitting costs for technical assistance, centers must describe explicitly the nature of the technical assistance, the number of persons involved, the task(s) to be performed, and the time and expenses involved. 2. Relevance to corpsmember training. Technical assistance costs in planning, design, compliance inspection or technical supervision of those off center project features which do not contribute substantially to corpsmember training should not be included in project proposals. 3. On Site capability. Where centers have on site technical assistance capability among qualified staff or union instructors, such expertise shall be used in the planning and execution of projects. 4. Advance technical assistance request. Separate project proposals may be submitted for technical assistance costs involving only advance survey, planning, and design of projects contemplated for periods beyond the upcoming fiscal year. These proposals must include a description of what is to be planned and/or designed, the nature, scope, and location of the project, and the work to be accomplished by technical assistance. These requests must be identified and submitted separately, each with its own project proposal. An estimate of the breakdown costs of the contemplated project should also be provided. All advance technical assistance requests must follow the procedures outlined in 20 CFR 684.102. 5. Center involvement. Decisions concerning the need, extent, and costs for technical assistance of whatever type should not be made without the involvement of qualified and concerned center staff. 525 - Public identification. All active vocational skills training projects, completed projects, and products shall be prominently marked in such a manner that they may be readily identified by the public as having been produced by Job Corps Civilian Conservation Centers. As a minimum they shall be marked in the following manner: 1. All moveable products shall be identified by either (1) affixing a noncorroding metal plate indicating that the product was made by the Job Corps, (2) branding or stamping the project with the Job corps name and/or emblem. The use of the center name is desirable, but may be omitted if not practical. 2. Buildings, campgrounds, and other permanent type projects shall be marked conspicuously with appropriate signs identifying the project and stating that it is presently being build or has been built by the Job Corps. (All centers are to be so identified.) 3. Upon completion, or during significant phases, photographs of newsworthy projects showing their nature, design, scope, and quality, shall be prepared and forwarded through Department of Labor regional channels to the Associate Director, Office of Program Management, for national office use. These photographs should bear the center name, number, and title or description of the project and any other pertinent information deemed necessary. Where possible, the corpsmembers involved in the project should be in evidence. 526 - Spike Camp Operations. Spike camp or off center residential facilities may be used as a part of the vocational skills training program as required for the accomplishment of approved vocational training projects. However, the overall development of corpsmembers must be the primary consideration in the establishment of spike camp operations. The following specific criteria apply to spike camp operations. Spike camps must have national office approval prior to operation. 1. Supervision, commensurate with that of the center, must be provided at all times. There shall be no beginning readers allowed to participate in spike camp operations. 2. Duration of the camp and climatic conditions will determine the type of housing, dining, and toilet facilities required. Establish and maintain adequate communications between the camp and the center. 3. Normally, a center shall not have more than one spike camp operational at any time. Spike camps must be fully justified and identified in the project proposals. 4. Approved spike camps should be analyzed periodically by the Forest Supervisor to ensure cost effectiveness in the overall center operations. 5. Normally, no spike camp should be established as a permanent facility, nor should any spike camp be more than 75 miles from the center. (20 CFR 684.102(i)(2)) 527 - Contracts. Contracts may be used to accomplish portions of a project, but VST funded contracts shall not be used as a means of accelerating a project to meet a completion date. Normally, VST funded contracts shall not be used for high cost items such as bridge construction, major culvert construction, paving, or sewage facilities when they exceed limitations outlined in sec. 521.11 or are separate entities. Contracts may be considered for that portion of a project which does not involve skills training within the center's approved vocational offerings. 528 - Combined Capital and Vocational Skills Training Projects 1. These are not to be confused with or submitted with regular annual capital budget requests (20 CFR 684.131). Requests for capital improvements, which do not involve VST, are permissible with the regular annual budget request. 2. Combined capital/VST requests must be submitted separately from the above, and only when the costs are for contracted services or installed equipment (20 CFR 684.102(d)(2) and (3)). They must also be greatly in excess of the percentages allowed in 20 CFR 684.102. 3. Vocational skills training funds must first be planned to be used to the maximum percentages allowed: a. Contracted Services (up to 15 percent of total project costs). b. Installed equipment (up to 15 percent of total project costs). c. Technical assistance (up to 20 percent of total project costs). Small excesses above these amounts may be approved from VST funds, subject to adequate justification and approval. 4. Combined capital/VST projects are limited to on center major facilities rehabilitation and construction projects (or portions thereof which are clearly beyond the scope of the center's vocational capability), and limited to contracted services/installed equipment, thereof. Costs for technical assistance, supplies and materials, are permissible. Job Corps shall not provide capital funds for construction of staff housing. 5. Job Corps will entertain requests for capital funds for totally contracted construction of center facilities only in cases of emergency. 6. Capital funds may not be used to accelerate a project's completion date or to save VST funds. 7. Every effort must be made to reduce the costs which cannot be handled through VST funding. In rehabilitation or new construction, existing items of installed equipment shall be used as long as possible. Requests for new equipment shall be for essentials only. 8. Submit long term accounting forms when requests for combined capital and VST funds are made for projects exceeding one fiscal year. 9. Submit requests in the same fashion as all requests requiring JCH-814 approval. 529 - Proposed Large Vocational Skills Training Projects 1. General. When a large project is proposed, requiring 1 or 2 years lead time for approvals or planning and design, a project prospectus must be prepared in addition to Form FS-1800- 10, Project Work Plan (CCC). Facts presented in the project prospectus must clearly show that the project is essential. Justification statements should provide complete information as to what is needed and why, and how the need is presently being met, if it is. Answer the questions (1) what will be the effect if the project is not approved, and (2) what disposal action is to be taken of facilities? The project prospectus summarizes what is proposed, the description, location, estimated cost, and proposed method of financing. Functions of the proposed facilities are included with a tabulation of space utilization. A site evaluation includes a current site development plan and discusses utilities, space for expansion, and access. Techniques of detailed justifications are: (1) get all the facts, (2) get information from the best possible sources, (3) obtain accurate cost information, and (4) clearly present data. The presentation should be organized to be easily read and understood. The use of vague, indefinite, or unnecessary terms must be avoided. Such words as "inadequate", "uneconomical", and "necessary" must be explained. Statements must be supported by meaningful facts and figures. The desired end product is a concise presentation that does not leave pertinent questions unanswered. 2. Analysis of facility deficiency. Evaluate the facilities now being used. Answer the questions: What are the physical deficiencies and how do they limit the performance desired? What is the impact of these deficiencies on accomplishing the program of work? Specific details of the inadequacy of existing space must be provided. Examples are: a. For safety hazards, cite the hazard and, where possible, the safety code violated. b. For insufficient heating or cooling systems, provide temperature data and information on time lost, training hindrance, and/or resulting sickness. c. For insufficient lighting or electrical power, provide data on light intensity at desk level, and limitations on building equipment. d. For insufficient latrine facilities, provide data on condition, number, and size in comparison to that which is authorized for the personnel served, and address pollution and/or public health hazards. 3. Consideration of alternative facilities and location. New construction may be considered only after an exhaustive analysis has shown conclusively that new construction is the only feasible solution. Answer the questions: What other facilities were considered in an effort to meet the requirement through existing assets? Why is it not feasible to expand or alter existing facilities to satisfy the requirement? 530 - REPORTS 530.5 - Definitions 1. Appraised value. The appraised value is the cost of the project, if done by formal contract methods + FS overhead. The estimated appraised value may be made by any qualified staff familiar with this type of project and related contract costs. The final appraised value shall be made by a professionally qualified individual from the appropriate agency. In determining appraised value of work accomplished in End Use 4, it is recommended that a figure between $500 and $550 per corpsmember be used. 2. End Use. The term End Use is shown on reports as a number code to identify the function benefited by a vocational skills training project: Benefit Code Conservation 1 Center 2 Community 3 Service Occupational Training 4 a. Conservation (End Use 1). These projects are undertaken on any public land and directed primarily toward conserving, developing, and managing the public resources and public recreation areas. b. Center (End Use 2). These are construction projects undertaken on center facilities. c. Community (End Use 3). These projects benefit the local community primarily and are performed with community participation on lands belonging to a state, county, municipal, or other public agency. d. Service occupational training (End Use 4). This includes those portions of the vocational skills training program supported by an approved training standard, but not already included in End Use 1, 2 and 3. It includes corpsmembers assigned on a recurring basis from their vocational skills training into such areas as cooking and auto mechanics. Service occupations which are not supported by a training standard shall not be included here. 531 - Semiannual Vocational Skills Training (VST) Accomplishment Report. The Center Director shall submit two copies of Report FS-1800-C, Semiannual Vocational Skills Training (VST) Accomplishment Report within 45 calendar days after the close of each 6 months of the fiscal year (that is, by Nov. 14 and May 15). The report shall include a status report on all approved training projects, including carryover projects from previous fiscal year. The report made on Nov. 14 shall be cumulative for the entire year. Use form FS-1800-1, Conservation Center Work Program, to provide the following data for report FS-1800-C: 1. Project title and number. 2. End use number. 3. Corpsmember person-months 4. Estimated appraised value. Include support training activities and training programs for which no Job Corps funds have been provided. 532 - Annual Vocational Skills Training (VST) Project Expenditures Report. The Center Director shall submit through channels to the Washington Office the Annual Report of Civilian Conservation Center Vocational Skills Training (VST) Project Expenditures within 45 calendar days following the close of each program year consisting of the following information: 1. The total of funds spent during the previous fiscal year on VST projects. 2. Of the above amount, the amount spent on center capital improvements. 540 - INTEGRATION OF ON-THE-JOB VOCATIONAL TRAINING AND PROJECT WORK. The development of corpsmember's occupational skills to the entry level of an occupation is one of the primary purposes of Job Corps. Meaningful work programs must exist in each center. The basic procedures for creating a program in conservation centers to obtain this shall contain, as a minimum, the following: 1. Full use of the corpsmember advisory system (CAS) in developing and conducting the work program. Counseling, guidance, recordkeeping, and corpsmember development assistance, as provided by the CAS, are essential to program success. 2. The corpsmember's first days at a center shall be a period of trial and evaluation. The corpsmember should be assigned to projects that contain skills within as many different occupation fields as possible in which the corpsmember has expressed interest, has had experience, or has an apparent capability. a. During the trial assignment period, each staff member associated with corpsmembers in a supervisory or training assignment should prepare a narrative evaluation of the corpsmember for use by the corpsmember adviser. b. The narrative evaluation should contain any information that would have apparent value in aiding the adviser in assisting the corpsmember select an occupational area offered by the center. c. The narrative evaluation, personal observations, CAS material, as well as the corpsmember's personnel record, should be basic tools used in reaching an occupational selection. d. The occupation training selection made must be contained within the center work or center operations programs. Actual entry level skills shall be acquired through on-the-job training with the use of curricula and work leader prepared lesson plans. e. Basic curricula for occupational clusters have been developed by Job Corps in cooperation with other agencies. These will appear on appropriate Job Corps bulletins and notices as they become available. The basic curriculum shall be used by the center staff in developing detailed lesson plans for on-the-job training to be contained in each center's program. Additional basic curricula may be developed by center staffs as their needs dictate, and approved for use by the Department of Labor. 3. Corpsmembers may be assigned to regular agency projects for specific skills and leadership training under the following conditions: a. After the basic education requirements for entry level into the occupation have been met. b. When the corpsmember has demonstrated that reliability and work habits are such that they contribute to the accomplishment of the crew. c. When the Corpsmember has demonstrated a definite capacity for leading young people of the Job Corps age group. d. When the corpsmember is ready for the assignment as determined by the center staff. e. When regular assignment is considered to be a terminal activity to add final polish to a corpsmember's progress. f. The assignment should normally not exceed 2 months at the end of a corpsmember's Job Corps experience. 550 - QUALIFICATIONS AND ASSIGNMENT OF CORPSMEMBERS FOR FIRE SUPPRESSION. Only corpsmembers who have been issued a Standard Form 228, Interagency Fire-Job Qualification Card, will be eligible for assignment to fire suppression duty. See FSM 5134, Fire Suppression Training, for requirements and additional guidelines. 551 - Qualification of Corpsmembers for Fire Suppression 1. Age. Age is a guide for qualifying or disqualifying corpsmembers for fire suppression work. The basis requirements are physical ability and training, and 18 years of age. 2. Physical fitness requirements for qualification. Routine physical examinations should generally provide guides for corpsmember fitness. Center Directors shall certify that the corpsmember is not overweight, underweight, nor has any known heart, lung, hearing, sight, intestinal, or other physical defect which would render the corpsmember unfit for fire duty. 3. Behavior and mental preparedness for qualification. Fireline personnel must respond to direction under stress, and in unusual situations, where the unanticipated is happening. Qualifying officers must be sure that the corpsmembers will respond to direction and that each is competent and self-reliant. 4. Training requirements to qualify for fire suppression. Corpsmembers qualified for fire suppression assignments must meet the National Interagency Fire Qualification System requirements listed in the Fire Training and Qualifications Handbook (FSH 5109.16). For a crewmember, this includes: a. 32 hours of training consisting of S-130 basic firefighter, S-190 introduction to fire behavior instruction and practice in use and development of fire shelters. b. Step test score of 45. c. Knowledge of work and safety practices under hazardous conditions peculiar to the area in which the corpsmember is likely to be working; for example, snags, steep slopes, canyons, rocky terrain, and flash fuels. Where possible, corpsmember observation of wild fires and participation in prescribed burning activity is desirable. In all cases, crew safety procedures relative to air operations and heavy equipment shall be taught. d. Fire camp establishment, organization, and operations. 551.1 - Preassignment Organization. Corpsmembers qualified for fire suppression assignments shall be assigned to squads of not more than eight men in advance of actual fire suppression assignment. Wherever possible during the fire season, the members of each squad should work together on regular project work, so they will be organized for prompt action on fires. 551.2 - Preassignment Readiness of Personal Equipment. Before being dispatched to fires, each operator shall be issued a packsack for carrying a change of clothing and toilet articles; also a safety helmet, boots, gloves, jacket, water canteen, and a pocket first-aid kit. 552 - Assignment of Corpsmembers to Fire Suppression. Only corpsmembers having currently valid qualification cards shall be assigned to fire suppression and then only under qualified squad and crew bosses. Except for initial attack, these men must work as organized eight-person squads and are not to be split up below squad organization. The Center Director shall furnish the regular fire organization with rosters of each corpsmember squad dispatched (FSM 5135.1, 5173.87). 1. Normally, corpsmembers should be assigned to shifts (time working on a fire) of not more than 12 hours. 2. When emergency conditions exist, corpsmembers may be assigned hours of duty, as determined by the fire situation and safety principles. 3. Succeeding shifts should not exceed 12 hours, plus no more than 2 hours travel, with not less than 8 hours rest between shifts. 4. Corpsmembers shall be compensated for fire suppression duties as outlined in FSH 5109.34, Interagency Fire Business Management Handbook, sec. 113 and ex. 6, sec. 13.6. 552.1 - Liaison Officer Requirement. When corpsmembers are assigned to fires away from their home unit, a liaison officer acquainted with Job Corps operating procedures and qualified at least as a sector boss shall be assigned to accompany them. Liaison officers accompanying corpsmembers on fire assignments are responsible for the following: 1. Relation with the service chief on the fire, and for health and welfare of corpsmembers. 2. Review of Job Corps fire qualification cards, to be certain that each corpsmember has a currently valid card. 552.2 - Time Allowance. The Center Director may plan a suitable recreation trip or some special activity for all corpsmembers who have worked on fire suppression assignments. The recreation trip or special activity should take place as soon as practical following return to the center from the fire suppression assignment. Time spent on recreation trips or special activities should not be planned to allow an hour for each hour of fire suppression duty outside of regular work hours. Time worked on fire suppression assignment shall not be cumulative nor shall it be used to extend the corpsmember's leave.