DOCUMENT RESUME INSTITUTION SPONS AGENCY D.C. 97 - Ed

Summary of Findings(1)The use of grantee organizations and administrative entities not otherwise found in theDepartment of Labor's Title III programs for dislocated workers.(2)The targeting of demonstration activities to individuals and groups not generally included inTitle III-funded activities, including impacted communities, defense-dependent firms, andindividual workers at risk of dislocation in addition to already dislocated workers.(3)The provision of a wide range of activities and services related to defense conversionobjectives, including, for example, the formation of community task forces, the provision ofbusiness development assistance, entrepreneurial training, workforce training in highperformance workplace skills and total quality management processes, as well as technicaltraining for existing workers.(4)Coordination of DCA demonstration activities with defense conversion activities supportedby other federal, state, or local funding sources and projects, such as economic developmentor community adjustment initiatives.The DCA demonstrations were grouped into three clusters for analysisthe communityplanning approach, the dislocation aversion approach, and the worker mobility approach. Mostdemonstrations used a single approach, but some developed designs that combined severalapproaches.The evaluation of the Defense Conversion Adjustment Demonstration had three majorobjectives: (1) to describe and document the implementation and short-term outcomes of thedemonstration projects as they relate to the specific problems faced as a result of defense cutbacks;(2) to identify exemplary approaches to the specific problems faced in defense-related dislocations;and (3) to identify the factors that facilitated or impeded the success of various defense conversionapproaches.The evaluation used a case study methodology to collect qualitative data on project designs,implementation experiences, and outcomes. Two visits were conducted to each demonstrationproject during the initial 18-month demonstration period. A third visit was conducted to each Round1project that received option year funding.Using structured topic guides, field researchersconducted discussions with project administrators and other demonstration partners, participatingfirms, formal worker representatives, agencies or individuals involved in the design or delivery of29

Summary of Findingsservices to businesses and/or individual workers, selected individuals receiving demonstrationservices, and representatives of other community agencies involved in demonstration planning orimplementation. Dislocation aversion and worker mobility projects were asked to complete formson an annual basis documenting quantifiable outcomes. Relevant written materials, including projectproposals, progress reports, participant records, and curriculum materials were also reviewed as partof the data collection for the individual project case studies.THE COMMUNITY PLANNING APPROACHAt the community level, cutbacks in defense spending have had particularly devastatingimpacts on local areas in which a high percentage of local economic activity is related to defensecontracting or the operation of affected military installations. When defense-related facilities downsizeor close resulting in mass layoffs within a limited geographical area, communities face the followingkinds of challenges:High numbers of workers dislocated from DOD prime contractors, civilian employment atDOD installations, or military service at affected bases.Major secondary effects on local employment for defense subcontractors and local suppliers.Tertiary effects on local retail and service jobs, resulting in overall high unemployment andeconomic decline.Limited information about how to go about planning for economic development, job creation,and alternative uses of facilities, equipment, and human resources.A variety of organizations, agencies, and interest groups with concerns about the situationand the ability to offer resources to develop a coordinated community response.10

Summary of FindingsThe community planning approach was designed specifically to help communities developinnovative and creative responses to mitigate the impacts of a defense-related facility downsizing orclosure. Figure 1 depicts the general community planning approach. Five DCA demonstrationprojects tested a range of community planning strategies. Figure 2 summarizes the key features ofthese projects.Figure 1COMMUNITY PLANNING APPROACHPRECIPITATINGEVENTDefenserelated facilityclosure ordownsizingresulting InsubstantialworkerdislocationsORGANIZEIdentify ProjectPartnersForm a PlanningBodyRecruitParticipantsCreate TopicSpecificSub-CommitteesGATHERINFORMATIONAssesi WorkerImpacts/SkillsAssess EmployerImpacts/Labor NeedsAssess BroaderCommunityImpacts/NewsDEVELOP AND SELECTCOMMUNITY RESPONSESTRATEGIES.Use informationgathered to developstrategies that promoteeconomic developmentand job creationUse Informationgathered to developstrategies for services toworkersUse informationgathered to developstrategies promotingbusiness expansion andretentionReach communityconsensus on strategiesConduct feasibilitystudies on strategiesPilot test strategiesDESIREDOUTCOMESDevelop ongoing newand collaborativerelationships betweeneconomicdevelopment andemployment andtraining communitiesProduce planningdocuments withstrategies/recommendations fora community responseIdentify an audience toconsider strategiesMobilize resources forimplementation ofstrategiesInitiate implementationof strategiesThe precipitating event for two of the community planning projects was the impending closureor downsizing of a very large military base in an urban area, causing widespread direct and indirectjob losses and economic impacts throughout the local economy. Another two demonstration projectswere undertaken as responses to relatively small military base closures in rural areas with alreadyweak local economies. The fifth project was undertaken in response to significant downsizing ofdefense contractors and the resulting widespread dislocations throughout an entire region.11

12 500,000Charleston Naval ComplexCommunity Planning ProjectCharleston, South CarolinaCharleston CountyEmployment and TrainingAdministration 464,198Philadelphia Naval Base andShipyard Complex PlanningProjectPhiladelphia, PennsylvaniaPennsylvania Department ofLabor and Industry 56,000Closure of Castle AFBscheduled for FallCastle Air Force Base ClosureDefense ConversionAdjustment ProjectMerced, CaliforniaMerced County Department ofEconomic and StrategicDevelopmentoff.Charleston NavalComplex scheduled tobe complete in 1996.Approximately10,000 civilianworkers will be laidDrawdown of the1996. It is estimatedthat 11,000 workerswill be laid off.Philadelphia NavalBase scheduled to becomplete in earlyDrawdown of the-1995. Expectedlayoffs for 1,1,200workers.PretipitatingEvent/Siie*of. LayoffsProject Location/Grantee/Grant Amount,Plan a community response tothe dislocations associated withthe downsizing of the NavalComplex that promotes economicdevelopment and revitalization.Lay the groundwork for aneffective response to the needsof the employees and communityin response to the downsizing ofthe Naval Base.Mitigate the impact of the baseclosure on the Merced Countybusiness community.Project Goats.Formed a group of organizationalproject partners.Surveyed 3,000 area employersand conducted 100 in-depthinterviews with key employers.Gathered information to assessthe impact of the downsizing andthe capacity of the community'sexisting supportive services.Planned a database describingarea resources for workers andemployers needing assistance.Hosted two forums to discusslinkages between employmentand training and economicdevelopment entities.Planned two worker trainingprograms (entrepreneurial trainingand a manufacturingfamiliarization program).Convened a group of projectpartners to participate in theplanning effort.Supported plans for a servicecenter to assist impactedworkers.Assessed skills of impactedworkers.Hired a consultant to prepare areport on economic developmentstrategies for the community.Planned and provided training andconsulting to area businesses ingovernment contracting andinternational trade.Key Features/ActivitiesAN OVERVIEW OF THE DCA COMMUNITY PLANNING PROJECTSFigure 213workers (20 workersparticipated).Developed newrelationships amongplanning partners.programs for .dislocatedof 2,605 dislocatedworkers.Pilot tested two trainingassistance.Prepared a reportdescribing characteristicswhether they were inneed of assistance andwhere to get thatDeveloped a detailedCommunity Plan withrecommended strategies.Prepared a "BusinessCheck-Up Kit" to helpbusinesses determineSecured over 10 millionin grants to fund servicesfor dislocated workers.Opened the Naval BaseCareer Transition Centerto assist dislocated Baseworkers.,Prepared a report oneconomic developmentstrategies for the County.Provided information andassistance to 81 areabusinesses affected bythe base closure.Key Outcomes

Closure of SenecaSeneca County CommunityPlanning ProjectNew York State Departmentof Labor/Seneca CountyEmployment and TrainingSeneca, New York 496,373expected.Army Depot. Loss of547 civilian workers1989 - 1994.Massive dislocationswithin the sixparticipating states,as a result ofdownsizing of defensesector.Approximately 25%of defense-relatedjobs were lost inthese states betweenEvent/Slieb la offs,. -.PrecipitatingNew England DefenseConversion Planning andTechnical Assistance ProjectBucksport, MaineTraining and DevelopmentCorporation 499,941Project.LoCation/Grantee/Grant AmountFigure 2 (continued),Develop a plan to respond to theDepot closure and othereconomic problems through thecollection and analysis ofinformation that could inform aset of recommendations.Promote regional cooperation andconsensus building to addresseconomic decline throughoutNew England.Project Goalswith 90 firms to see how toretain them in the county.Assessed existing level ofcooperation between localgovernments in the county.Held a series of communitymeetings to select an economicdevelopment strategy for county.Surveyed dislocated workersregarding needs and impacts.Surveyed 250 county employersregarding impacts.Conducted research on skills indemand by area employers.Conducted in-person interviewsFormed several task forces.sis of area laborConducted analysismembers.Collected information aboutimpact of defense downsizing onthe area.Conducted focus groups withdefense-firms and at-risk anddislocated workers to assess theirneeds,Assessed the capacity of existingeducation and training institutionsto serve eMploVers and workers.Developed a guide to helpworkers understand how defenseskills apply to the commercialmarket.Formed a task force of nearly 70Key Features/ActivitiesPrepared a labor forcereport and guidefor planners and serviceproviders.Recommendedimprovements for thearea's education andtraining providers.Developedrecommendations onhow to retain and expandarea businesses.Developed a set ofrecommendations toincrease coordination andcollaboration betweenlocal governments in thecounty.Conducted a feasibilitystudy for using "tourism"as an economicdevelopment strategy.Prepared a final reporthighlightingrecommendations forregional economicdevelopment andbusiness retentionstrategies.Made recommendationsfor improving theworkforce developmentand transition system.Fostered newrelationships to developnetworks and linkagesamong retraining andreemployment entities.Key Outcomes15

Summary of FindingsProjects testing the community planning approach emphasized the activities needed to developa coherent and unified community response to the local situation.These activities included:(1)Organizing community stakeholders into a functioning planning body.(2)Gathering and analyzing information on the impacts of the precipitating event on workers,employers and the broader community as well as information about worker skills, labor needsof employers and community resources.(3)Developing strategies for economic development and job creation and services to impactedworkers and businesses.(4)Conducting feasibility studies and reaching consensus on the community response strategies.(5)Mobilizing resources for implementing the strategies.FINDINGS FROM THE COMMUNITY PLANNING PROJECTSPROJECT GOALS AND OBJECTIVESWhile the overall mission for most projects was to respond to the impact of a defense facilitydownsizing or closure, the specific goals and objectives identified by each project varied considerably.These goals and objectives also played an important role in focusing the planning effort. Thefollowing are the key findings related to setting goals and objectives.Developing an Inclusive Goal Statement: Projects benefited if they had broad goalstatements with a general focus on helping the local economy recover from the impacts ofdefense downsizing. Projects with more narrowly defined goal statements were less likely toachieve their desired outcomes.Differentiating Between Strategies and Objectives: Planning objectives were most usefulwhen they were clearly defined, but not so specific that they detailed strategies to pursuebefore information gathering efforts were complete.Limiting the Number of Objectives: Community planning projects that were overlyambitious about the number of objectives they set out to accomplish ended up over-extendingproject partners and spreading scarce resources too thin.716

Summary of FindingsORGANIZATIONAL ROLES AND RELATIONSHIPSTo pursue project goals and objectives, grantees had to determine what type of planning bodyto develop, what partners to recruit to participate in the planning process, and how to operationalizethe planning process. Each of the demonstration projects developed their own unique responses tothese challenges.Building on Existing Capacity: Planning efforts were most successful when projects builton the capacity of existing organizations and efforts, rather than trying to compete againstthem.Relationships to Other Planning Activities: Planning bodies were most effective when theywere the only planning entity in a community or when they had a clear functional relationshipto a larger planning effort.Effective Use of Subcommittees: The executive planning body/subcommittee structure wasmost effective when the subcommittees' work was integrated into the overall planningprocess.The Importance of Local Project Leadership: Local administrative entities were the mosteffective project leaders because of their understanding of local politics and familiarity withkey stakeholders in the community.Important Leadership Characteristics: The most effective individuals leading communityplanning projects had strong ties with key stakeholders in the community, were assertive anddedicated, and had strong leadership skills. Project leaders without these characteristicsbenefited from recruiting project partners who did.Effective Planning Group Size: In determining the size of the planning group, it wasimportant to balance the need for an inclusive body with the need to achieve consensus. Thepoint at which this balance was achieved varied depending on local circumstances.Importance of Diverse Representation: To facilitate the development of creative andinnovative planning strategies, projects needed a diverse, experienced, 'dedicated, andinfluential group of stakeholders at the planning table. Including economic development andemployment and training representatives in a planning effort encouraged, but did notguarantee the development of linkages between these entities.Securing Commitments from Participating Agencies: The lack of formal agreementsamong project leadership and participating organizations led to disruption of the planningprocess when individual staff turnover occurred. A formal memorandum of understanding817

Summary of Findingsor agreement between project leadership and agencies represented in the planning process,may ensure that staff turnover does not result in the loss of critical project support.OPERATIONALIZING THE PLANNING PROCESSOnce projects had recruited the appropriate participants and established a planning structure,they had to implement a planning process. Operationalizing the planning process included settinga planning schedule and reaching agreement on a decision making process.Setting the Project Schedule: To maintain forward momentum for the planning process, itwas important to schedule regular meetings with project participants and maintain regularcommunication among project partners.Reaching Consensus on the Process: Reaching consensus on the planning and decisionmaking processes early in the planning process helped projects avoid potential turf issues andcharges of bias.INFORMATION GATHERING ACTIVITIESTo make informed decisions on the appropriate strategies for a community response to afacility closure or downsizing, planning participants needed information. Information gatheringtypically included research to determine the impact of the facility closure or downsizing on workers,employers, and/or the community at large. Additionally, some projects gathered information on theintentions of local businesses and the capacity of the education and training sector to assist in thecommunity response.Using Information as a Strategic Tool: Information-gathering activities provided the mostuseful results when they were used as a strategic tool to inform the development and selectionof community response strategies.Anticipating Obstacles to Information Gathering Efforts: Projects found that it wasimportant to anticipate and respond early to potential obstacles 'to information-gatheringactivities, such as problems working with base personnel or limited resources.Importance of Expertise:Information-gathering activities were most useful whenexperienced consultants worked with planning participants to design and/or implementresearch activities.9

Summary of FindingsImportance of Style and Distribution of Information: Information-gathering activities weremost useful and cost-effective when the results were presented in a user-friendly format anddistributed to as many potentially interested stakeholders as possible.Importance of Gauging the Political Climate: Information gathered was most useful whenit was reported in a manner that was sensitive to the political context within the community.DEVELOPING COMMUNITY RESPONSE STRATEGIESThe process of developing community response strategies proved to be the most challengingand rewarding effort for many of the planning projects.The success projects had in meeting thegoals of the DCA demonstration and developing effective community response strategies dependedon how they used information, the ability of the employment and training community to justify theimportance of workforce development in these response strategies, and the creativity of planningparticipants.Effective Use of Information: The formulation of community response strategies was mostsuccessful when the project used the gathered information to drive the process.Importance of an Assertive and Forward-Thinking Employment and TrainingCommunity: Strategies linking workforce development and economic development effortswere most likely to be developed if the employment and training community could justify toplanning participants how these linkages would' help the community respond to a facilitydownsizing or closure.Effectively Assessing Strategies: Seeking community input, conducting feasibility studies,and pilot-testing ideas were successful means for assessing the feasibility of proposedstrategies while at the same time developing community consensus.Importance of an Audience: Projects found that it was important to identify an audiencewith the power and authority to implement the recommended strategies. Projects that lackedan appropriate audience were left at the end of the demonstration with little h

INSTITUTION Berkeley Planning Associates, Oakland, CA.; Social Policy. Research Associates, Menlo Park, CA. SPONS AGENCY Employment and Training Administration (DOL), Washington, D.C. PUB DATE 97 NOTE 76p.; For related reports, see CE 073 813-815. CONTRACT Q-4294-3-00-87-30 PUB TYPE Re