ECONOMIC REDEVELOPMENT OF THE BOSTON STATE HOSPITAL SITE:
Creating Jobs for Local Disadvantaged Residents
by
Keith E.
Kjelstrom
B.A. in Political Economy of Industrial Societies
University of California, Berkeley
(1981)
Submitted to the Department of
Urban Studies and Planning
in Partial Fulfillment of the
Requirements of the
Degree of
MASTER IN CITY PLANNING
at the
MASSACHUSETTS INSTITUTE OF TECHNOLOGY
June 1984
(c)
Keith E. Kjelstrom
The author hereby grants permission to M.I.T.
copies of this thesis in whole or in part.
1984
to reproduce and distribute
Signature of Author
Department /f Urban Studies and Planning
I
I1
May 28, 1984
Certified b
rofessor Bennett Harrison
Thesis Supervisor
Accepted by
Ft.
/
Ralph A. Gakenheimer
Chairman, Departmental Graduate Committee
AU
0k
1984
LIBRA BI[U-3
ECONOMIC REDEVELOPMENT OF THE BOSTON STATE HOSPITAL SITE:
Creating Jobs for Local Disadvantaged Residents
by
Keith E. Kjelstrom
Submitted to the Department of Urban Studies and Planning
in partial fulfillment of the requirements of the degree of
Master in City Planning
ABSTRACT
In the approaching summer of 1984 the Massachusetts Division of Capital
Planning and Operations (DCPO) is scheduled to convene a public planning
process where representatives of state and city agencies and community
organizations, as well as representatives of the neighborhoods of Roxbury,
Mattapan, Franklin Field, Dorchester and the entire City of Boston will
develop a plan for how to utilize the valuable 200 acre state-owned Boston
While the development should serve the City of
State Hospital site.
Boston and the State of Massachusetts, it is the state's primary charge to
assure that the site's reuse addresses the needs of the area's residents.
The problem of
One very basic need is for access to decent jobs.
joblessness is very severe in the communities that live near the Boston
State Hospital site. The state is planning to address this problem by
Because many of
developing the site to create jobs for local residents.
these residents are socially and economically disadvantaged, the DCPO must
develop a comprehensive employment development plan for the site's re-use
that includes strategies for job creation, target group employment goals,
Only if a
employment and training programs, and child care support.
employment
the
down
breaks
that
plan
comprehensive employment development
of the
development
economic
the
will
developed
is
barriers of the poor
private
and
public
the
justify
and
employment
site result in local
resources devoted to the project.
- 2 -
This thesis is a contribution to such a plan.
By presenting an analysis
of the local unemployment problem, the thesis arrives at four employment
development goals for the project. These are:
1. The Boston
create
quality
characteristics.
State Hospital
jobs
with
site redevelopment
primary
labor
2. The project should target jobs to
face disadvantages in the labor market.
local
should
market
residents
who
3. The project should prepare the local disadvantaged labor
force, through training and other employment services, to
qualify for jobs created on the site.
4. Access by single mothers to jobs created by the re-use
of the Boston State Hospital site requires that child care
services be made accessible to employees.
An operations
these goals.
This thesis explores strategies to fulfill
development
several
employment
against
is
measured
center development
permanent
and
Target group employment goals for construction
criteria.
A
plan
for
an
immediate
jobs are reviewed as examples for the project.
manpower service strategy for Boston State Hospital area residents, and a
plan for linking the local employment and training system to on-site job
Finally, the need for child care services by
opportunities, are outlined.
into
an
investigation
is roughly
projected and
on-site
employees
Based on this exploration, this
that need is begun.
approaches to fulfill
thesis concludes with several recommendations to the DCPO for the
appropriate next steps the agency should take in pursuit of the project's
goals.
Thesis Supervisor:
Bennett Harrison, Ph.D.
Professor of Political Economy
and Planning
- 3 -
special thanks to Deborah Poodry,
Linda Whitlock, Tunney Lee and
Bennett Harrison.
deep appreciation of my parents,
Janice and Glenn Kjelstrom.
- 4-
Table of Contents
7
INTRODUCTION
I.
HISTORY AND CONTEXT
II.
UNDERSTANDING THE LOCAL
UNEMPLOYMENT PROBLEM
III.
IV.
V.
VI.
9
19
Two Theoretical Explanations
of Unemployment
21
The Boston Intergovernmental
Employment and Training System
27
Job Creation Efforts
33
Welfare Work Barriers
36
THE PROJECT'S EMPLOYMENT
DEVELOPMENT GOALS
41
JOB CREATION STRATEGIES
46
A State Operations Center
50
A Corporate Operations Center
61
An Assessment of the Employment
Development Potentials of State
and Corporate Operations Centers
65
EMPLOYMENT GOALS FOR TARGET GROUPS
73
Construction Job Goals
74
Permanent Job Goals
80
Establishing Target Group
Employment Goals
83
PREPARING THE LOCAL LABOR FORCE
88
An Immediate Manpower Service
Strategy: The Boston State Hospital
Area Employment Initiative
- 5 -
88
Employment and Training Services for
the Boston State Hospital Site
Redevelopment
VII.
93
98
MEETING CHILD CARE NEEDS
A Projected Need for Child Care
Services by Boston State Hospital Site
Operations Center Employees
99
Approaches for Child Care Provision
100
Employer-Supported Child Care
101
Toward Joint Commonwealth - Corporate
Employer Support of Child Care
104
VIII. CONCLUSION:
RECOMMENDATIONS TO THE DCPO
107
BIBLIOGRAPHY
114
- 6 -
INTRODUCTION
In
the approaching summer of 1984 the Massachusetts Division of Capital
planning
Planning and Operations (DCPO) is scheduled to convene a public
where
process
representatives
of
state
and
city agencies
and
community
organizations, as well as representatives of the neighborhoods of Roxbury,
Dorchester and the entire City of Boston will
Mattapan, Franklin Field,
develop a plan for how to utilize the valuable 200 acre state-owned Boston
State
site.
Hospital
While
the
development
should
serve
the
of
City
Boston and the State of Massachusetts, it is the state's primary charge to
assure that the site's reuse addresses the needs of the area's residents.
One
basic need
very
is
for access
to
decent
jobs.
The
of
problem
joblessness is very severe in the communities that live near
the Boston
this
problem by
site.
State Hospital
developing the site to
The state is planning to address
for local
create jobs
residents.
Because many of
these residents are socially and economically disadvantaged, the DCPO must
develop a comprehensive employment
strategies
that includes
employment
and
training
development
for job creation,
and
programs,
comprehensive employment development
barriers
site
of
result
the poor is
in
local
resources devoted to the project.
target group employment goals,
child
care
support.
Only
if
a
plan that breaks down the employment
developed will
employment
re-use
plan for the site's
and
the economic
justify
This thesis is
the
development
public
and
of
the
private
a contribution to such a
plan.
But before we pursue strategies to fulfill the goals of the development,
Chapter I highlights the history and context
- 7 -
of the
project.
In Chapter
II,
a
Evolving
several
discussion
brief
from
an
of the local
understanding
of
unemployment
the
local
problem
is
unemployment
presented.
problem
are
employment development goals which are presented in Chapter III.
Strategies
to
fulfill
these
goals
are
explored
in
Chapters
IV
-
VII.
Chapter VIII concludes the thesis by offering recommendations to the DCPO.
- 8 -
I.
HISTORY AND CONTEXT
Location
The Boston State Hospital site is
miles
southwest of downtown Boston.
amidst
the
Boston
Mattapan to
the
1884
neighborhoods
a 200-acre
campus located about five
(see map,
of
page
Franklin
16.)
Field
to
the south, Roslindale to the southwest and
northwest.
and has
The
been
site has housed and
owned
by
treated the
the Commonwealth
It
is
the
situated
northeast,
Jamaica Plain
mentally
ill
of Massachusetts
to
since
since
the
state took over the operation of the then Boston Lunatic Hospital in 1908.
In
its
heyday
during
the
1940's
the
hospital
cared
for
a
patient
population of over 3,500. By the early 1960's, however, the development of
psychotropic
drugs
and
community-based
mental
care
resulted
in
mass
deinstitutionalization of mental patients.
Current Land Uses
Currently the state departments of Mental Health,
Services
use
10
of
the
campus'
in-patient and out-patient
41
buildings
Corrections
to
deliver
mental health and correctional
map,
page 18)
Less than 200 clients live on the site.
use
on
site
is
500
local
the
approximately
recreation
largely
and
vacant.
food
the
participants
needs.
Thus,
Community
like
Aside
many
Garden
till
from
these
obsolete
- 9 -
acres
uses,
state
variety
services.
of
(see
The remaining land
Project.
14
a
and Youth
This
to
the
mental
program's
serve
site
their
remains
institutions
throughout
Massachusetts and in
other states
Hospital site presents a vast land
resource.
as
well,
It is
the Boston
one of the
State
largest
remaining tracts of developable land in the City of Boston.
Previous Proposals
Before
the
resource.
current
efforts,
some
groups
have
sought
to
tap
Recent proposals include a housing, retail and light
industry
plan offered by the Massachusetts Department of Mental Health in 1978
an
agricultural,
services
proposal
community
agricultural
industry
and
set forth by the Massachusetts Department
this
and
community-run
of Food
and
Agriculture in 1981.2
A 1981 Industrial Development Proposal
The
most
recent proposal with perhaps the most momentum, and
controversy,
Administration.3 In
was
set
forth
November 1981,
by
Governor
King filed a bill
Edward
certainly the
J.
King's
to transfer 120 acres
of Boston State Hospital land to the Massachusetts Government Land Bank.
The Land Bank would then dispose of
the
industrial
development.
1982
Office
the
of
attempt for
safeguards."
Inspector
In a March
General
land to private developers for
case
criticized
study,
the
King
the
Massachusetts
Administration's
"poor planning and disregard for statutory and administrative
In short,
The
Administration's
predilection
for
industrial
redevelopment of the site shaped its decisions throughout,
resulting in 1. lack of full consideration of other potential
uses of the property, 2. lack of full disclosure of the
industrial
development's
costs,
3.
lqk
of
citizen
participation, and 4. suppression of dissent.
- 10 -
Open Planning Process
To address
the failures of
this approach
the Inspector
General's
most
important recommendation is that the DCPO establish an open public process
to develop a reuse plan for the Boston State Hospital site. The DCPO began
such a process by convening a series of four
public workshops
during the
spring and summer of 1983. These focused on 1. site and process overview,
2.
agricultural
development
and
environmental
The
process.
workshops
issues,
were
3.
job
creation
attended
by
and
4.
the
representatives
of
state and city agencies, community and neighborhood organizations, private
developers and local residents.5 The workshops alerted the public that the
state was beginning
efforts to redevelop the site and provided information
so
could
that
residents
introduced
participate
the DCPO to neighborhood
investigating
development
in
the
concerns
possibilities
effort.
Moreover,
they
to help guide the agency
that
are
responsive
to
in
area
residents.
Create Jobs
Under the leadership of Governor Michael Dukakis, the DCPO entered into
these meetings, and the reuse effort itself, with the goal to develop the
site in order to create jobs for local residents.
Deputy
Commissioner
constitute
Tunney
the primary
F.
Lee
proposed
goal of the development
At the first workshop,
that
local
job
and requested
creation
that anyone
who might disagree please voice that disagreement.
He repeated this goal
at
agreement
subsequent
participants
workshops
and
there
was
basic
among
the
that creating jobs for local residents should be the primary
- 11 -
development goal.
Naturally participants
expressed
their
concerns
that
any job creating activity not harm the environment of the neighborhood and
also
not
circumscribe
other
desirable
uses
of
the
site
such
as
recreational development and community gardens.
As evidenced
Memorandum
I,
in
the DCPO's April 1984,
the
state
has
upheld
Boston State Hospital Technical
the
creation
of
jobs
for
local
residents as the primary goal for the redevelopment:
The primary public purpose for re-use of any surplus lands
at Boston State Hospital is job creation.
The state is under
no obligation to dispose of the property for municipal or
private re-use, and is prepared to retain the property without
redevelopment if job creation objectives cannot be met. These
objectives call for both addition of new jobs to those already
available in the Boston Metro area; and for effective job
access for those individuals in most need - including the
unemployed, female heads of households, and residents of that
area 6ikely to be affected by redevelopment of the hospital
site.
The
Technical Memorandum I details the site's
development
opportunities
and constraints and is the first in a series of reports
which summarize
the
DCPO
findings
of
in-depth
research
conducted
by
the
since
the
conclusion of the workshop series in July 1983.
Development Process
In
the summer of 1984 the DCPO is
Hospital
agencies,
group
Advisory
city
agencies,
subcommittees
Advisory
Committee,
Committee
will
will
scheduled to establish a Boston State
comprised
residents
and
investigate
work
with
- 12 -
representatives
community
various
the
development guidelines.
of
DCPO
of
state
organizations.
Task
areas
to
of
concern.
establish
a
set
The
of
guidelines
development
The
neighborhood
the
Advisory
respond
request
cover
many
areas,
small business development,
impact,
The development
employment development.
into
will
for
development
including
environmental
design,
impact and
guidelines will be incorporated
proposals
(RFP)
and
the DCPO
and the.
Committee will judge developers' responses for their ability to
to
project's
the
goals.
This
potential
development
process
is
diagramed below:
A POTENTIAL DEVELOPMENT PROCESS FOR THE
RE-USE OF THE BOSTON STATE HOSPITAL SITE
DCPO convenes summer workshop series to
learn community concerns (summer 1983).
DCPO researches the site's capabilities
and constraints (summer 1983 - present).
4
Boston State Hospital Advisory Committee and
DCPO develop, and eventually issue, Development Guidelines
which include employment guidelines.
4
Land Disposition Legislation must be
approved by the State Legislature
before development may proceed.
DCPO issues a request for development
proposals (RFP). The RFP incorporates
the Advisory Committee's development guidelines.
Detailed negotiations commence between
the selected developer and the DCPO/
Advisory Committee.
When permanent on-site employers are
identified, a coordinating agency such as
the Neighborhood Development and Employment
Agency works with the employers and the
developer to develop an employment plan
which includes target group employment goals
and a training and placement plan.
The employment development plan outlined in this thesis will assist the
- 13 -
development process outlined above at three different points.
help
focus
process;
discussion
2.
lay
out
to
build
goals
for
consensus
the
the
in
of
drafting
It will:
citizens'
re-use
1.
planning
disposition
legislation; and 3. provide a basis for guidelines to issue in the request
for
development
comprehensive
proposals.
employment
The
first
development
step
plan
unemployment problems of the area's residents.
in
the
is
to
evolution
of
understand
the
In the next chapter I try
to present my perception of these problems as efficiently as possible.
- 14 -
a
Notes to Chapter I
1. Boston College Planning Team, for the Massachusetts Department
Mental Health, Planning for Re-Use of Boston State Hospital, May 1978.
of
2. Harvard Univ. Graduate School of Design, for the Mass. Department of
Food and Agriculture, the Community Garden Project at BSH and the Boston
The Productive Landscape: Boston State Hospital, Fall
Urban Gardeners,
1981.
for the Massachusetts
Inc.,
Associates,
G. Hilgenhurst
3. Charles
Re-Use Options,
Hospital:
State
Boston
Health,
Mental
of
Department
and Industrial
Development
Economic
Boston
also
See
1981.
February
Development,
Industrial
Rati6isle~_for
Hospital:
Corporation, Boston State
Augustl980.
4. Massachusetts Office of the Inspector General, The Boston State
Hospital Disposition Proposal: A Case Study of Needed Improvements in the
Commonwealth's Management of Surplus Real Property, March 25, 1982, p. 1.
5. Minutes of the workshops were recorded and published by the DCPO and
copies are available from the agency.
6. Massachusetts Division of Capital Planning and Operations, Boston State
and
Opportunities
Development
I
Memorandum
Technical
Hospital
Constraints, Draft, April 1984, p.
2.
- 15 -
4
BOSTON STATE HOSPMTAL
16
City Context:
Location & Access
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DEPARMN#~T
ARiOCEOSE OF BOSTON
II.
UNDERSTANDING THE LOCAL UNEMPLOYMENT PROBLEM
site suffer from a lack of
Residents near the Boston State Hospital
(In the 1983
sufficient employment that traps many of them in poverty.
workshops
the
DCPO proposed
benefits
of
the
project
Authority/Neighborhood
a
primary
Development
and
for
Employment
the
economic
Redevelopment
Boston
the
included
which
area"
"impact
Agency
Neighborhood
Statistics Areas of Franklin Field, Roxbury and Mattapan. On the whole,
Mattapan
residents
are better
educational attainment.
off
in
terms
of
employment
income,
and
Thus in this section social statistics are often
presented for the remaining
two "impact area" neighborhoods
in
order
to
illustrate the spatial concentration of employment problems in the area of
the BSH site.)
Poverty
A full thirty percent of the families in
the neighborhoods of Franklin
Field and Roxbury (4,008 families out of 13,124 families)
This family poverty rate is almost
poverty levels in 1979. (1980 Census).
twice
the
Boston-wide
rate
of
17
struggled under
percent.
Thus
a
concentration
of
poverty-stricken families reside near the Boston State Hospital site who
are probably unable to adequately meet their basic needs and wants.
- 19 -
Public Assistance
Perhaps many of these families survive only because of public assistance
For
payments.
the same two neighborhoods in 1979, slightly
than a
more
(34 percent) of their residents were public assistance recipients,
third
more than twice the city-wide rate of 15 percent.
Unemployment
might manage from low-paying jobs,
Others
rate
but the unemployment
in
Roxbury and Franklin Field was almost twice as high as the City of Boston
rate in
1979:
10 percent of the area's labor force,
compared
to 6 percent
of the entire city's labor force, was counted as unemployed in 1979. Along
with
the
rest of the
steadily since 1979.
7
percent;
Boston
1981:
State
conservative
8
country's, Boston's
rate
climbed
has
1980 Boston's annual average unemployment rate was
In
percent;
Hospital
estimate
unemployment
of
1982:
9 percent.2
rates
neighborhoods'
the
current
We can
similarly
unemployment
rate
that
the
climbed.
A
Roxbury
and
of
the
assume
in
Franklin Field would be around 15 percent.
Joblessness
Of
course
the unemployment statistic
is an
inadequate measure
area's employment problems and their resultant human hardships.
It takes
no account of discouraged workers who have given up looking for jobs,
are
therefore not counted in the labor force.
Neither does
it consider
residents who have rarely or never entered the labor force, or who
recently dropped out.
- 20 -
and
have
Underemployment and Low Incomes
unemployment
Further,
who work in
part time or unstable
time and year-round.
poor who,
working
because their
median
1979
jobs when they would rather work full
this group would comprise only part of the
Moreover,
although they hold jobs, are
unable
to
satisfy
and
wants
at
decent
clothing
food,
shelter,
workers
capture underemployed
do not
statistics
little
jobs pay so
needs
material
and
compared
of $8,991,
in Roxbury
household income
benefits.
so few
and provide
their
levels
The low
$12,530
to
Boston-wide, indicates that the area's workers have low-paying jobs.
Two Theoretical Explanations of Unemployment
Neo-classical/Human Capital Economic Theory
fall
theorists
market
Labor
persists.
explanations of why such severe unemployment,
of
theorists,
"stock
human
of
neo-classical/human
the
capital,"
experience and capacity
An employer
or
the
education,
on
focus
talent
ability,
and then compensates
their
with
The first group
economists,
capital
each individual brings to the
hires an employee,
camps
two
essentially
into
production
the
skills,
process.
her/him with earnings
and benefits, according to how productive s/he is.
Lack of Sufficient Education and Training
Human capital theorists therefore would explain the concentrated lack of
adequate
employment
Hospital
site
by
of
citing
residents
the
near
shortage
- 21 -
the
central
of human
city
Boston
capital embodied
State
in the
In other words, most
local labor supply that can be "sold" to employers.
of the local residents have only low-paying, unstable jobs, or no jobs at
all,
because
do
they
experience necessary to compete for and win decent jobs in
and over had
the urban labor
residents
of Boston's
While only 28 percent of all
market.
and
skills
training,
education,
the
possess
not
18 years old
education, 43 percent
attained less than a high school
of
Roxbury's and 40 percent of Franklin Field's adults had less than a high
even more striking
This educational disparity is
1979.
school education in
when we compare the area's residents to their affluent suburban neighbors:
Only
percent
19
of
area's
metropolitan
Boston
the
residents
adult
(excluding Boston proper) had attained less than a high school education
in
The
1976.3
capital
is
analysis
to
local
the
train
and
educate
from
flows
that
policy
market
labor
obvious
the
human
disadvantaged
residents.
Imperfect Information Flows and Geographic Isolation
Neo-classical
further
would
economists
the
explain
"impact
One market
employment problems as partly caused by market imperfections.
imperfection
is the fact that the flow of information
and employees is imperfect.
jobs have trouble finding
To improve the information flow and match employers up with
the openings.
workers,
these
Another
market
migrated
between employers
looking for workers do not always
Employers
know where to find them and people looking for
workers who
area's"
theorists
recommend
imperfection
reside
in
to the suburbs.
is
central
the
city
job
search
and
geographic
poverty
services.
of
potential
isolation
areas from jobs
To address this problem,
- 22 -
placement
which have
placement services and
improved public transportation are required.
Structural Theory
The second basic group of labor market theorists is what I will call
structuralists."4
"the
approaches employment
demand
structural
the
market,
for
for
Whereas
look at both
theorists
In
labor.
other
"What's wrong with the workers?,"
supply side
labor
the
problems from
words,
but also,
school
capital
neo-classical/human
the
supply
the labor
ask
structuralists
labor
of the
and
the
only,
not
"What's wrong with the jobs?"
In short, structural theorists look at the institutional structure of the
poor are barred
and the working
labor market to see how the impoverished
a web of unstable
from the economy's good jobs and trapped in
employment
and welfare dependency.
A Dual Labor Market
In the late 1960's and early 1970's structuralists researched the labor
market
that
problems
sector,
the
clustered.
and
urban poverty
labor
market
"primary
labor
urban
the
of
Their
areas.
seemed
divided
market,"
the
empirical
into
two
economy's
work
sectors.
better
These jobs payed high wages and provided employment
security,
good
working
conditions,
better
benefits,
fair
revealed
one
In
jobs
were
stability
workplace
rules, channels for work problem arbitration, and opportunities for upward
mobility.
of
jobs
The "secondary
that
payed
low
labor market,"
wages
and
on the other hand,
provided
few
was comprised
benefits,
unstable
employment, low status, poor working conditions and few chances for upward
mobility.
- 23 -
Beyond the sorting of the economy's jobs into two separate clusters, the
they
surprisingly,
explanations
sought
theorists
structural
found interdependencies
This work behavior matches up
tend to work unreliably and intermittently.
and
jobs
organize
increasingly
Employers
for
labor.
that
worker
demand
fluctuating
employers'
market
labor
secondary
and workers'
Secondary labor market workers
behavioral characteristics on the other.
with
of
between the characteristics
requirements on the one hand,
jobs and their work behavioral
Not
separation.
the
for
so
production
behavior will not disrupt the flow of goods and services.
Work behavior
patterns and behavior requirements reinforce each other.
Goods with stable consumer
demand require reliable production.
more profitable for employers to organize production in
behavior.
formal
more
require
credentials
are
this stable demand
better wages and benefits to encourage reliable worker
market by offering
production
It is
very
In
the primary labor market are clustered jobs that
for
important
more
or
education
entry.
specialized
Earnings
are
skills.
Thus
responsive
to
experience or age and skills are more general rather than firm-specific.
In contrast, where product demand is unsteady, it is more cost-effective
to allow and even encourage unstable work behavior.
for
low-skill
have little
provide
helps suppress
and unsteady work
attachment
wages
and
from their jobs
to and expectations
little security or
Production organized
since
(and the jobs
other incentives for workers to be
lay-of fs are easy for employers to make.
workers
attached)
The secondary labor market thus
enables employers to draw on a cheap pool of labor when it
is
needed to
meet product demand.
The
separation
between
the
primary
- 24 -
and
secondary
labor
markets
is
widened by the increasing development of structured internal labor markets
in
the
primary
occupation --
within an
with
the
internal
An
sector.
labor
how the occupation
skill acquisition levels and
ranks.
The
structured
gap
between
primary
the
market
market
itself
as
the
is
wage levels
unstructured
widens
is
divided
that
secondary
primary
"job ladder"
firms
into
ranks
accompany those
market
and
increase
the
on-the-job
training and the division of the job into more specific skill levels.
Racial and Sexual Discrimination
Because
sectors.
of
the
gap
there
is
little
worker
mobility
between
Secondary labor market workers cannot work themselves
primary labor
market because the gap requires
too big a leap.
the gap even more results from pervasive racial and sexual
in
labor
the
discriminate
potential
With
"statistical
on the basis of preconceived
employees'
individuals'
shorthand
market.
abilities
superficial
predictions
traits
for
to
in
two
into the
Widening
discrimination
discrimination"
employers
race and sex stereotypes about
perform
hiring
workers'
the
jobs.
and
Employers
promotion
reliability
for
use
decisions
example.
as
But,
discrimination really becomes institutionalized in the dual structure
the
labor
market
group members
because
statistical
discrimination
and women to secondary labor market jobs.
relegates
in the
percent
Black,
labor
of
market
the
compared
to Boston's
institutional
Racial discrimination may well play a key role
problems of the BSH area's
residents
minority
This channelling
process starts early in a person's education and training -barriers are omnipresent.
of
of
Franklin
Field,
population.
Roxbury
total Black composition
- 25 -
and
Eighty-six
Mattapan
of 22 percent.
are
Just
in the proposed
over half of the entire city's Black population resides
"impact area."
two
the
between
gap
The
market
labor
sectors
tremendous
a.
presents
obstacle to secondary workers because there is not much connection between
a
There
market.
secondary
or
wages
secondary
is little
labor
his/her
capacities and
worker's
return
increasing
Education and training
sector.
stability
the
in
secondary
to
skill
secondary
acquisition
little
the
effect on
to
internal job
to
access
in
obstacle
primary
The
lack of
the
in
tend to have
market.
their
labor market workers is
status
force
structures.
The Need for Primary Labor Market Jobs
The major policy implication of the structuralist analysis to overcome
poverty and underemployment
is that government should create jobs in the
public and private sectors that have internal
and on-the-job training.
primary labor
market
Public service jobs and private sector jobs with
are
characteristics
seen
secondary and primary labor market sectors.
gain access to primary
off
in wages and
labor market
as
a
bridge
best
the
jobs will education and training pay
benefits sufficient
on-the-job training because
between
Only when the disadvantaged
to
adequately
support
their families and liberate them from welfare dependency.
stress
(job ladders)
labor markets
skills are not
- 26 -
and
Structuralists
something workers
passively consume on the open market but rather are
collectively in a work setting.
workers
better
can
learned
The Boston Intergovernmental Employment and
Training System
The Job Training Partnership Act
Most employment
maintains
Comprehensive
this
labor
supply
Employment and Training Act
side
emphasis,
(CETA) of
labor
(JTPA) of
The new federal Job Training Partnership Act
market problems.
which
policy over the years has stemmed from the
school of thought and focused on correcting workers'
human capital
1982,
development
replaced
the
went into
1973 and
effect on October 1, 1983.
Fewer Funds
The
new
law
differs
from its
predecessor
on
many
counts
which
are
important when considering its implementation.5 First, its budget is far
than
smaller
the
currently authorized
its peak.
CETA's.
Not
adjusting
inflation,
the
JTPA
is
to provide less than half the funds the CETA did at
Massachusetts currently receives
under the JTPA,
for
about $40 million
while the state received about $197 million in
each year
1980 under
the CETA. 6
Strong Roles for the State and for Private Industry Councils
Second,
responsibility
for supervising
and coordinating the system,
the
role of federal government under the CETA, is assigned to State Governors.
Third,
the act mandates the creation or elevation
of
business-dominated
Private Industry Councils (PICs) in each service delivery area to operate
- 27 -
partners with local government in guiding training programs and
as equal
local
business communities
workers'
between
match
better
will ensure a
the
involvement of
law's designers hope that the enhanced
The
policies.
skills and the labor needs of business.
Emphasis on Training
Fourth, public service employment was once a major thrust of the CETA -provided for about 750,000 public
the CETA
service
job slots
throughout
the U.S. at its peak.7 Under the JTPA the only thrust will be training and
the CETA had at
Finally,
the act will fund no public service employment.
times been labled "the cream of the federal income maintenance
In
comparison,
be
participants
the
although
economically
JTPA
requires
it
disadvantaged,
90
that
programs."
provides
its
of
percent
with
no
Department
of
them
stipends while in training programs.
Local Actors
funds
JTPA
make
their way
to
Boston
via
the
state's
Manpower Development (DMD) and the Division of Employment Security(DES),
both of which receive
of Economic
their policy directions from the Governor's Office
Affairs. The
residents at its
DES
provides
job
placement
downtown Boston.
Job Matching Center in
services
to Boston
The DMD allocates
JTPA funds to local Private Industry Council/local government partnerships
throughout Massachusetts. In Boston, the mandated partnership was recently
formed of
1979,
and
the Boston Private
the
City's
Industry Council
Neighborhood
(BPIC),
Development
(NDEA).
- 28 -
and
in business
Employment
since
Agency
job development
The BPIC/NDEA provides intake and assessment functions,
out to about
contracted
are
programs
and
education
20 community-based
and
non-profit
Corporation
Industrial
to
well
do
would
planners
creation
job
efforts
training
and
For
mind.
in
them
keep
There are
Center.
Technical
Boston
for employment
funding and program resources
other
and
Boston's,
of
the Economic Development and
and
Opportunities Industrialization Council
the
Development,
Community
Boston
for
Action
as
such
organizations
training
The
programs.
education
and
training
youth
and adult and
downtown Boston Job Exchange,
services at its
and placement
example, the Massachusetts Executive Office of Communities and Development
Community
has
(EOCD)
Public Welfare (DPW)
Further,
programs.
job-related
and
training
has recently
Grant
Block
Development
launched
a
vocational
The
funds.
education
comprises the core of Boston's
however,
on
Department
of
for Aid to
training program
and the Boston Public Schools
Families with Dependent Children recipients
receives
state
the
spend
can
it
money
NDEA/BPIC
public
system,
training
training system --
If
not
all of the available training money comes from the JTPA pot, most of it
does,
and
the
implementation
NDEA/BPIC
body
that
such
as
encompasses
nearly
disadvantaged
Boston
system
serves
the
Bay
State
training
agencies,
training
slots from contracting agencies,
Skills
such
training
every
Corporation,
as
the
Other
clients.
Boston
purchase
Technical
Center and Roxbury Community College, with non-JTPA funds.
Thus the NDEA/BPIC JTPA
building
Boston
it
system is the core of Boston's
human capital
network, but when assessing the extent of training
must
be
augment this core.
remembered
that
there
are other
training
services in
slots
that
An assessment of Boston's intergovernmental employment
- 29 -
and
system8,
training
additional
as
as well
of the JTPA core
comprised
training services, reveals two key deficiencies.
Severe Shortage of Employment and Training Services
The first deficiency of the system is one of sheer numbers:
services
training
that
indicate
statistics
the 1983 program year,
in
deficiency,
of
illustration
an
Boston. As
delivered in
of
supply
the
exceeds
far
need of
in
16,747
force
labor
residents'
population of
counted
16,747 Boston
There
unemployed.)
as
status
potential
1980 Census
(The
such services.
force participants counted as unemployed in
training
adult
about 1,540 slots in
service
this
of
extent
and work experience were offered in Boston to a
being
currently
services
the
and
employment
for
need
potential
local
the
1980 Census
the proposed
were
labor
2,787
"impact area" of
Franklin Field, Roxbury and Mattapan alone in 1980. To the extent that the
unemployment count represents a potential need population, the undersupply
of training services is staggering.
illustrations
Other
(18,902
high
useful:
are
Although
122,233
Boston
the "impact area") were counted as having attained
in
in
education
school
population is
believed
to be
slots in
basic education,
Language
programs
includes
the
are
educational
the
fact
and
40
the
of
percent
functionally illiterate 9,
only
less than a
adult
city's
about
1,146
high school equivalency and English as a Second
currently
approximately 700
funded
slots in
throughout
the
Boston.
newly-created
figure
This
Boston
Adult
Recognizing the high degrees of adult illiteracy in
Literacy Initiative.
Boston and
1980
residents
that most
attainment
beyond
training and
elementary
- 30 -
employment
school
as
a
programs
require
prerequisite,
the
literacy program through 14 community schools and
NDEA now delivers the
in
community-based organizations
More than 250 people were on the
Boston.
waiting lists for this program in March 1984.11
who
not
have
for out-of-school youth,
service shortage exists
A similar
in
force
When
Boston.
counted
for out-of-school
again,
the
begin
465
the
the
address
to
in the
Boston
I
slots
1983
education and training programs,
youth remedial
only
programs
to
compared
1980
the
population,
youths as not
2,252
and
Census counted 750 youths as unemployed
labor
Of this
graduated from high school.
ages 16-19,
city's
force
labor
problems.
Similarly,
Boston's
and
unemployment
city's
Security's
Employment
an
carries
"active
rate is
placement
placement
job
services only
Boston
caseload
file"
reportedly
Matching
Job
of
Center,
6,400
about
as low as 11 percent.
a
The
problems.
underemployment
(DES)
make
dent
in
the
Division
of
although
it
jobseekers 1 2 ,
its
Doing much better is
the NDEA/BPIC's Boston Job Exchange. Of its 593 applicants in 1982, it
placed
330
(56 percent).
amounts were only
Still, these
bucket of the City of Boston's 26,092 unemployed
labor
a drop in the
force participants
in 1982.13
Insufficient Neighborhood-Level Access Points
A second major deficiency of Boston's intergovernmental employment and
training services system, from the standpoint of Boston State Hospital job
creation
efforts,
employment
service
is
the
access
severe
of
lack
points.
20-minute walk radius of the BSH site,
sufficient
Within
a
neighborhood-level
neighborhood
abutters'
the DCPO identified only 2 agencies
- 31 -
that deliver a work experience program to 30 in-school youth at Jeremiah
a
and
School
High
Burke
Mattahunt
at
adults
50
to
program
literacy
Community School. This neighborhood area also contains several community
these
but
Corporation,
not
do
(so-far)
direct
provide
Development
Park
Lena
large
the
including
agencies
health
and
service
employment
or
Division
of
training services.
walk area
20-minute
the
of
out
Just
a
is
in Roslindale
Employment Security (DES) Outreach Station that connects area residents to
the services of the DES's downtown Boston Job Matching Center.
Also lying
just outside the neighborhood area is the Jamaica Plain Community School
which helps 100 adults build literacy skills.
neighborhood,
The Roxbury
area,"
access
points.
Five
School' System,
Public
vocational
primary
the
Center,
Resource
has
education
of
wing
capacity
underutilized
an
Occupational
Humphrey
H.
Hubert
Roxbury's
Roxbury
from
services
training
deliver
agencies
adults. 1
428
for
a large part of the DCPO's proposed
contains more employment and training service neighborhood
"impact
offices
which is
Boston
the
1,800
train
to
in-school youth.
Most
concentrated
trend has
to
not
supply
of
downtown Boston.
employment
Unfortunately
and
programs
are
employment
and
training
the large Action for Boston Community Development have
down
neighborhood
field
offices
Although services are geographically
neighboring residents,
necessarily
training
the downtown concentration
increased over the past few years as
close
cutbacks.
and its
in
such as
agencies
had
city's
the
of
inaccessible
in
response
to
funding
distant from the BSH site
Boston's employment and training system is
to
them.
- 32 -
Because
the
"residency"
we do not
most cases unavailable,
clients are in
compositions of agencies'
know to what degree employment
and training services are skewed away from
residents in
is
of
the BSH area.
neighborhood-level
It
safe to say
nevertheless
service access
points certainly
that the lack
does
not
help
the
employment problems of the local disadvantaged population. 1 5
Job Creation Efforts
Federal Expansionary Fiscal Policy
Realizing that workers in abundant supply, no matter how well trained or
starved for work they are,
jobs,
employment
are merely "excess"
development
planners
have
supply if
also
they do not have
approached
problems from the labor demand side of the labor market.
creation
strategies
exspansionary
fiscal
through government
and
personal
cyclical
include, of
policy.
spending,
income
--
the 40
year
stimulation
Federal
transfer
taxes,
unemployment
course,
unemployment
Government job
history of
of
aggregate
payments and decreases in
however,
is
unemployment
only
resulting
federal
corporate
capable
of
from
economy
an
demand
confronting
in
the
contraction phase of the business cycle.
Public Service Employment
Structural
unemployment
disadvantaged
group
different labor
employment
of
-
members
demand
the
during
disproportionate
boom
side approaches.
disadvantaged
citizens,
jobs.
- 33 -
as
well
as
unemployment
typified
by
--
requires
public
service
public
service
bust
One approach is
CETA
of
Tax Credits
initiatives
federal
Other
employment
include
subsidies
as
such
the
Targeted Jobs Tax Credit program of 197916 with which employers may claim
a credit against their income tax liabilities for hiring members of groups
average.
the national
traditionally above
unemployment rates are
whose
(youth, Vietnam veterans, ex-convicts and public assistance recipients)
Location and Development Incentives
A
intergovernmental
of
system
private
to
incentives
location
the
is
approach
level
local
microeconomic,
direct,
more
companies.
Broadly, these incentives include land, capital, site infrastructure and
amenities and labor subsidies and tax credits to attract companies, and
17
their demands for labor, to locate in particular jurisdictions.
The
Boston
assortment
of
financial
Industrial
and
Development
Economic
illustrates
programs
assistance
Corporation's
the
(EDIC)
types
of
incentive strategies used to attract and keep manufacturing ventures in
the Boston area.18 The EDIC offers subsidies to smaller companies in
form of
local
loans
Small Business Administration
small
business
revolving
and loan
This
fund.
loan
the
guarantees and a
results
in
the
availability of loans to small businesses with long term pay back periods,
low down payments and low interest rates.
Similarly for large projects,
the EDIC's primary financial incentive to
persuade firms to locate or expand in Boston is
loans.
The
EDIC
assembles
Industrial Revenue Bonds (IRBs),
financing
project
U.S.
the offering of subsidized
packages
from
federal
Housing and Urban Development (HUD)
- 34 -
All of
Section 108 loans and HUD Urban Development Action Grants (UDAGs).
these
rates.
with low interest
term
long
are
loans
addition,
In
the
interest payments of IRBs are federally tax exempt.
Several
financing
recent
large
tools.
For
Boston
land
example,
the
development utilized U.S.
preparation
site
relocation
The
and
an
grants for
financing.
construction
for
IRB
an
preparation and
acquisition,
land
for
UDAG
(CTIP)
Park
Industrial
Economic Development Administration
construction,
and
site
Crosstown
these
applied
have
developments
plant at CTIP now employs 302 persons
Digital Equipment Corporation
and about 60 percent of them are residents of the surrounding Roxbury and
South
End
communities.19
The
and
project
commercial
Place
Copley
the
Teradine and Wang industrial developments also harnessed UDAGs and issued
employment guidelines for developers and end users.
Job Creation Goals and Higher Expectations
In recent years the local job creation objectives and expectations have
increased,
in
residents,
for
sector
terms
of
private
participation.
number
land
developments
Criticisms
that they often create low-wage,
extensive
public
disadvantaged
redevelopment
it
jobs
created
for
with
high
degrees
of
of
some
job
provide
too
Perhaps
because
the
effort begins with local
- 35 -
jobs
Boston
job creation
will be able to address these criticisms.
explored in Chapter IV.
few
jobs,
as its
local
public
include
efforts
creation
secondary labor market
and
subsidies
citizens.
of
quality
and
require too
for
State
local
Hospital
primary
goal,
Job creation strategies are
Welfare Work Barriers
Manpower
efforts
on
development
programs
the
side
demand
of
on
the
the
supply
labor
side,
market
adequately target the disadvantaged residents in
area.
Crucial
benefits
such
as
child
care
are
and
job
not
sufficient
to
the Boston State Hospital
and
health
care
provided to workers in order to allow them to risk their
being by working
creation
and forgoing public assistance.
she will reasonably be able to meet her family's
must
be
families' well
Unless it appears
that
needs through the world
of work, why should a welfare mother gamble in the labor market?
Concentration of Female-Headed Families
The public assistance benefit/work disincentive structure is of critical
importance
in
concentration
State Hospital
area,"
(The
the Boston State Hospital
of
female-headed
"impact
comprising
concentration
area."
44 percent
is
even
Over
of all
are disaggregated
children
female-headed.)
6,600
area"
percentage
(34 percent in
in
-The
effort.
the
female-headed
the
in
three
families
such families in
of public assistance
Roxbury and Franklin Field,
recipients
Boston
the
in
"impact
the area.
"impact
64 percent of Roxbury's
female-headed
A striking
proposed
families with children
area" alone represent 32 percent of all
From the high
reside
more pronounced when
neighborhoods
are
families
job creation
families
of
the
area"
with
"impact
the entire city.
in
18 percent in
the
"impact
Mattapan),
we know that many of the female-headed families survive on Aid to Families
with Dependent Children (AFDC) benefits.
- 36 -
Work "Disincentives"
and
requirements
work
with
along
incentives",
"work
Although
employment-related social services, have been included in federal welfare
the total welfare benefit package has nevertheless created a
recipients20,
"disincentive"
recipient's
AFDC
an
also
They
grant.
the first
income
is
them one third
30 dollars and
when
disregarded
for
allowances
include
the
AFDC
child
care
computing
and
work-related
to work,
considerable incentives
represent
these could
Alone
expenses.
whereby
one
and
"30
the
include
incentives
work
The
work.
to
exemption,
third" income
of
welfare
among
employment
encourage
to
strategy
basic
a
as
legislation
but when the benefits of Medicaid and foodstamps are figured in (these are
monthly
after
income
climbs
the total welfare benefit
three. 21),
costly alternative
labor
female-headed
a
package makes work,
in
of
family
many cases,
This is a sad comment on the quality
to welfare.
secondary
low-paying,
for
$597
above
lost
Medicaid eligibility is
lost after a certain degree of employment -
jobs
market-type
to
available
the
a
of
typical
welfare recipient.
Omnibus Budget Reconciliation
work
incentives
expenses and
months
recipients
take
the
been
Bill of 1981.
by setting lower
raised
This bill
that
it
after
higher
the
other
by
and
deductions.
Thus
the existing disincentive for low-wage
exacerbated.
- 37 -
Reagan
reduced
child
care
income disregard to 4
had chances to acquire higher-paying jobs are
risk and
the
drastically
limits on work-related
restricting the thirty and one third
computing
and
have
to employment
barriers
These
fewer
AFDC
likely to
work has
been
In
in
the
withdrawl
of
publicly
need
sufficient
working
benefits.22
provided
mothers
single
low-income
of
the
income of
earned
increases
The
jobs
for
between
interplay
critical
the
illustrates
Coalition
Services
Human
the Massachusetts
"Up the Down Escalator,"
February 1983 report,
its
the
demonstrates
report
benefits
and
pay
with
resulting
the
and
poor
It hypothesizes a
to overcome poverty and welfare dependency.
typical low-income family of three: a single mother and two children, ages
typical
family
different
expenses
would
if
be
ranging
levels,
for
financial
estimates what the relative
It
two and six.
rent,
heat,
mother's
the
from
to
$0
utilities,
of
this
six
earned
income
were
at
per
month,
with
monthly
$1,083
food,
position
medical,
clothing
and
other
expenses remaining constant and work-related expenses such as day care and
transportation varying with the degree of work.
Even with increasingly higher-paying jobs the hypothetical family still
faces a monthly shortfall at each of the six income levels because of the
public
benefits
Emerging
lost.
from
this
discussion
of
the
area's
unemployment problems are several job creation goals for the Boston State
Hospital development.
and
the
remainder
of
In
the next chapter these goals are broadly stated
this
thesis
is
approaches to fulfill those goals.
- 38 -
devoted
to
the
exploration
of
Notes to Chapter II
1. Unless otherwise noted, demographic statistics are from the1980 US
Census, Summary Tape File 3, compiled into neighborhood statistics areas
by the Boston Redevelopment Authority.
2. Mass. Division of Employment Security, and Mass. Department of Manpower
Development,Planning Data: Greater Boston and Associated SDA's, FY 1984,
202.
June 1983, p.
Jackson, Future Boston
3. Phillip Clay and Doolitle, Masnick and
(Cambridge: Joint Center for Urban Studies of MIT and Harvard University,
1982), p.
4.
David
52.
Gordon,
M.
Theories of Poverty
(Lexington:
and Underemployment
D.C. Heath and Co., 1972) See also Gordon[1979] and Edwards[1979].
5.
Robert
Guttman,
"Job
Training
Partnership
Unemployed," Monthly Labor Review, March 1983, pp.
6. According
Development.
to
a
spokesperson
for
the
Mass.
Act:
New
Help
for
the
3-10.
Department
of
Manpower
7. Harrison Donnelly, "New Smaller Job Training Program Emerging to Help
1982, p.
March 6,
Congressional Quarterly,
the Hard-Core Unemployed,"
519.
8. Primary sources for this assessment are the NDEA's FY 1983 Program and
Services Inventory, February 1983, the Bay State Skills Corp.'s 1983
Annual Report, the NDEA's Adult Literacy Initiative List of Grantees and
telephone reports from other training providers.
9. "The Job of Getting Jobs," Boston Globe, editorial, March 11,
1984.
10. Ibid.
11. Ibid.
12. Mass. Division of Employment Security,"Occupations of Applicants in
the Active File in Job Service Centers by Selected Characteristics, Boston
Local Office," March 1983 (ESARS Table 96 Report #MA5-62).
13.
Mass.
Division of Employment Security,Planning Data...,
June 1983, p.
74.
Community
Roxbury
(129);
Opportunities Industrialization Center
14.
of
Assoc.
Contractors
College (24); Dimmock Community Health Center (40);
Boston (215) and Officina Hispana (20).
- 39 -
several
with
interviews
Telephone
15.
most
while
that
revealed
administrators
over Boston who
"available to people all
reported that in general, their clients
immediate neighborhood.
program
training
Boston
programs
their
considered
most also
need training,"
predominately live in the
"Targeted Jobs Tax Credit
General Accounting Office,
16. U.S.
U.S. Senate (B-203090),
Finance,
on
Committee
to
Activity," Report
Program
June 8,
1983.
17. City of Boston, Boston Guide to Development February 1981.
Industrial
and
Development
Economic
18.
"Financing Boston's Future," brochure.
19. EDIC/Boston, "Crosstown Industrial
Perspective," project profile.
20.
Park:
Mildred Rein,Dilemmas of Welfare Policy:
Corporation
Inner
City
(EDIC)/Boston,
High
Technology
_Why Work Strategies
Haven't
Worked, (Praeger: 1982).
21. Massachusetts Human Services Coalition, Inc., U1R the Down Escalator:
The Impact on Families, February 1983, p.
State and Federal Budgets --
13.
22. Ibid.
- 40 -
III.
THE PROJECT'S EMPLOYMENT DEVELOPMENT GOALS
Several basic job creation goals emerge from the review of the labor
market
problems
Fulfillment
of
of
these
the
area's
economically
goals, which
are
broadly
disadvantaged
stated
in
residents.
this
section
below, is necessary to assure the employment generation and job access
objectives of the project.
1. The Boston State Hospital site redevelopment should create quality
jobs with primary labor market characteristics.
In other words the jobs
must pay adequate wages and provide sufficient benefits
to allow local
disadvantaged residents to overcome poverty and welfare dependency.
The
discussion of the dual labor market theory in the previous chapter showed
how secondary labor market jobs are inadequately suited to this task.
The
discussion of welfare work barriers demonstrated that health care is an
important benefit that jobs created
on the Boston
State
Hospital site
should provide.
The jobs created should also provide stable employment to promote stable
labor
force
participation
characteristics
such
as
of
the
local
dependability
employees.
and
behavioral
Work
that
punctuality
can be best
individuals more employable and able to demand higher wages,
encouraged
Finally,
through
stable
employment
that
such
behavior.
the project should create jobs for local disadvantaged residents
that provide opportunities for upward mobility.
or "job
requires
make
ladders,"
Internal labor markets,
for employees to work their way up are essential for
- 41 -
career
incentives to
work
makes
status,
and
wages
less
and
skills
builds workers'
it
necessary
provide
advancement
On-the-job
choose work over welfare.
remain employed and
because
training,
for
Opportunities
development.
alienating
and
their
increases
often
workers'
improves
abilities to gain access to good jobs in the primary labor market.
by the Boston
It would be unrealistic to demand that all jobs created
jobs.
State Hospital site redevelopment be primary labor market
the
entry-level
generate
will
project
a
range
to management positions.
of
employment
Such a range is
diversity of employment needs and qualifications
labor force.
opportunities
of the
job with a
looking for his first
primary
criteria
for
of a recent
single mother with
labor
market-type
alternative
job
to
jobs--is
creation
serve
strategies.
should create
it
The role of this goal for the development--that
quality
potential
local
job as a department store
two children seeking to move beyond her current
clerk.
from
consistent with the
Contrast for example the job needs and abilities
high school graduate
Rather,
as * an
assessment
job
generation
The
potentials of two job creation strategies are measured against this goal
in the next chapter.
The Boston State Hospital job creation project should target jobs to
2.
local residents who face disadvantages in the labor market.
public purpose of the site's
redevelopment is
The primary
to create jobs for citizens
who face disadvantages in securing employment in the absence of government
intervention in the local economy.
The
exploration
of
the
local
unemployment
problem
set
forth
in
the
preceding chapter suggests that group employment goals should be developed
to
increase
the
accessibility
of
Boston
- 42 -
State
Hospital
site
jobs
by
members of several
groups.
following overlapping
Job accessibility should be developed for the
target
groups
in
order
to
overcome
the
problems
listed:
1.Economically Disadvantaged
insufficient
and
income
adequate
of
lack
Long-term
education, skills, experience and work histories place many
The
individuals at severe disadvantages in the labor market.
economically
considered
be
also
should
poor"
"working
disadvantaged along with the unemployed because their marginal
employment does not compensate them with sufficient earnings
and benefits to maintain a decent standard of living.
2. Minorities
Members of minority groups face racial discrimination in the
labor market. Most of the residents of the project's proposed
"impact area" are Black.
3. Women
Women face sexual discrimination in the labor market.
4. Single Mothers
Single mothers face a double barrier in the labor market:
sexual discrimination and a lack of affordable child care.
of
concentration
striking
a
includes
area"
"impact
The
households with children headed by females, many of whom are
public assistance recipients.
5. Boston Residents
In contrast to their more affluent suburban neighbors, a
from
suffer
Boston
of
residents
of
proportion
higher
unemployment and income deprivation.
6. Boston State Hospital "Impact Area" Residents
Within the City, high incidences of unemployment and
State
inadequate incomes are concentrated in the Boston
Local residents should benefit from
Hospital "impact area."
the economic benefits of the development.
7. Youth
The incidence of unemployment is highest among youths, ages
is
Unemployment
20-24.
ages
adults,
among
and
16-19
white.
to
compared
disproportionally high for Black youth,
Often youth require assistance in the transition from school
Assistance is particularly important for members of
to work.
the young adult group who are experiencing difficulty making
the transition from casual employment to "settling down" with
stable employment.
8. Unemployed
is
joblessness,
term
long
including
Unemployment,
concentrated in the neighborhoods surrounding the site as well
as in the City of Boston as a whole.
Target group
employment goals,
designed to enhance the
- 43 -
accessibility
by
members
of
these
groups
to
the
development's
jobs,
are
discussed
in
Chapter V.
3. The Boston State Hospital site redevelopment project should prepare
the local disadvantaged labor force, through training and other employment
services,
to qualify for jobs created on the site.
readiness,
to local
training,
counseling
disadvantaged
these services.
to employment
and placement programs
residents
to address
The severe shortage
and
training
Basic education,
services
the
job
should be provided
current
undersupply
of
of neighborhood-level access points
in
the
Boston
State Hospital
area
needs to be addressed by establishing a local employment services clearing
house.
This office could link area residents to education, training and
employment opportunities resulting
from the site
those throughout the greater Boston area.
build
up
overcome
economically
disadvantaged
some of the barriers
development as
well
as
These programs are necessary to
residents'
employment
capacities,
to employment that confront them,
and train
them in skills required for jobs created by the Boston State Hospital site
development.
Approaches to fulfill
this development goal are explored in
chapter VI.
4.
Access
by single
mothers to jobs created
by re-use
State Hospital site requires that child care services
of
the Boston
be made accessible
to employees.
Securing adequate and affordable child care services is one
of
important
the
most
parents.
mothers to
forgoing
It
is
obstacles
especially
to
the
employment
of
disadvantaged
crucial that child care be provided to welfare
allow them to risk their families' well being by
public
characteristics
assistance.
required of
Along
the jobs,
- 44 -
with
the
especially
primary
livable
working and
labor
pay
market
levels and
family health plan benefits,
to
make
work
a
viable
affordable child care must be made available
alternative
to
the
welfare
Provision of child care is discussed in Chapter VII.
- 45 -
benefit
package.
IV.
JOB CREATION STRATEGIES
researching
After
several
identified
job
various
uses
land
appear
that
the
strategies,
creation
development of the Boston State Hospital site.
feasible
a
in
DCPO
has
mixed-use
These include:
a state operations center;
a corporate operations center;
small community businesses; and
a light industrial development.
1.
2.
3.
4.
One development scenario might evolve like this: In a first phase, a state
operations center could
center.
operations
anchor other developments,
and
Space
assistance
could
especially a corporate
be
provided
to
develop
small community businesses
that might supply the other users with their
retail and service needs.
A light industrial development, or additional
office space, could potentially follow in a later phase.
A detailed
corporate
exploration
of the job creation capabilities of a state and
operations centers development
is pursued
below after a brief
look at the small community business and light industrial strategies.
Small Community Businesses
businesses
Several on-site community
service consumer
a
a
a
a
supportable
demand generated by a large number
at the operations centers.
1.
2.
3.
4.
appear
by retail and
of employees
working
Such ventures might include the following:
convenience store;
fast food shop;
day care service;
laundry and/or dry cleaners; and
- 46 -
5. a small goods shop.
Other
find
conceivably
might
businesses
small
a
market
on-site
for
facility and business support services such as:
security;
grounds maintenance;
delivery services; and
copying services.
1.
2.
3.
4.
In
the
with
conjunction
has
Gardeners
Project
in
interest
in
Garden
expressed
The
businesses.
agriculture-related
community
on-site
establishing
Urban
Boston
Community
Hospital
State
Boston
the
addition,
group's ideas include:
1.
2.
3.
4.
a
a
a
a
garden supply store;
landscape contracting business;
greenhouse nursery;
composting business; and
5. a food service operation. 2
small business
community
Council
business
small
These various
(CDCC),
by local
be pursued
Community Development Corporations or other
entrepreneurs,
The
organizations.
possibilities could
Boston
Development
Community
Coordinating
the Boston State Hospital
a group of community leaders in
area, is currently studying small community business possibilities for the
Boston
State
site.
Hospital
In
with
conjunction
a
small
community
business working group for the Boston State Hospital Advisory Committee,
the
CDCC may
help
develop
proposals
for
small
business
development
at
Boston State that complement the enterprises of area merchants.
An
adequate
businesses
is
demand
a
for
vital
the
products
ingredient
for
and
services of
their
success.
small
community
Because
of
its
apparent ability to generate such demand a large-scale development of the
- 47 -
Boston
augment
can
businesses
community
for
opportunity
unique
community
Small
development.
economic
a
offers
site
Hospital
State
the
development's creation of jobs as well as provide community residents with
experience in the management of small businesses.
Light Industry
a mixed-use development
In
of the Boston State Hospital
the DCPO
site,
predicted that the site itself could support a light manufacturing concern
of
different
Although
labor
and
requirements
industries' space
developed
of
feet
square
gross
200,000
to
100,000
around
space.
compositions
vary, a light industrial use of this scale, using a 300 gross square feet
per worker rule of thumb, might yield between 333 and 667 jobs.
Because
Economic
Boston's
Development
Industrial
and
Corporation
is
currently marketing large amounts of industrial space and land, however,
it appears that there is not a strong demand for industrial space at this
time.
appears
Light
more
industrial
feasible
development,
a
in
the
and
development
later
it
jobs
after
phase
generate,
could
the
project
demonstrates its viability.
Operations Centers
Naturally,
investigation
different re-uses
of
of the site is
the
feasibility
and
a continual process.
desirability
As
part of
of
that
process,this chapter presents an early examination of the state operations
center
and
corporate
generation.
For
development
ideas,
both
I
operations
the
state
project how many
potentials
center
and
corporate
jobs might be
- 48 -
for
employment
operations
generated,
centers
what type
what they might pay,
of jobs they might be,
and
offered
what
opportunities
for
mobility
upward
a definition of
But first
available to workers.
what benefits would likely be
would
probably
"operations centers"
be
is
in order.
The DCPO has begun a review of operations centers which could include
the following facilities:
Location
Organization
New England Mutual Life
Burlington, MA.
Bank of New England
Malden, MA.
State Street Bank
Blue Cross/ Blue Shield
Quincy, MA.
Braintree, MA. and
Portsmouth, N.H.
Columbia Point in Boston,
Framingham, MA. and
Natick, MA.
Andover, MA.
Portsmouth, N.H.
Fall River, MA.
Braintree, MA.
Bank of Boston
Internal Revenue Service
Liberty Mutual
Aetna Life and Casualty
Massachusetts State Lottery
Thus far DCPO staff have interviewed six actors involved in planning the
Although subsequent interviews
first two operations centers listed above.
should
provide
an increasingly
clear
picture
of
the
site,
facility and
labor force requirements for successful operations centers at the Boston
State Hospital
site,
a profile of what operations
centers imply in
terms
of employment is already emerging.
Operations
centers"
and
centers are often called
are
usually
established
"back
by
offices"
large
or
banks
"support office
and
insurance
companies as well as by large government offices like the Internal Revenue
Service. Employment in such organizations is dominated by clerical work.
For
example,
clerical
employment
represents
- 49 -
about
54
percent
of
total
employment
in
percent of total employment in
only represents
manufacturing industries
industry employment.5
transactions
Paper
employment
from 9 to
48
This is quite high
industry.
Clerical
industries:
other
to
compared
when
the banking
about
tellers,
excluding
and,
industry3
insurance
the
20 percent
like bank checks
in
most
of
total
insurance
and
claims are the products these companies sell and the need to process such
transactions is why they open operations centers.
centers are usually
operations
the flow of paper,
facilitate
To
built
To reduce the
low and horizontally with wide aisles on the office floor.
costs of each transaction, utilization of capital equipment is maximized
often
running
by
centers are usually
provide
The
employers
facilities
of
centers
operations
access
the
to
and in
operations
housewife"
"second-earner
centers
usually
provide
suburbs to
labor
ample
force.
parking
to
Building setting and office environment is
pleasing and often includes
aesthetically
Operations
day.
24 hours a
to
located near public transportation
accommodate overlapping crews.
typically
up
facilities
recreation
and cafeterias.
A State Operations Center
Several
paperwork processing.
Massachusetts
tax
The
forms
assistance applications.
clerical
workers, are
Massachusetts
of
Commonwealth
agencies
perform
Department of Revenue, for
and
the
Department
of
Public
a
example,
Welfare
lot
of
examines
reviews
Agencies such as these, which rely on numerous
currently pressed
- 50 -
for
affordable
office
space
in
downtown Boston.
The
or
processing
agencies'
several
relocation
of
one
illustrate,
the
Department of Revenue
the
divisions.
To
assessing its
currently
is
(DOR)
for
site
the
provide
could
campus
Hospital
State
Boston
long-range space needs, both for its current processing division as well
employees, and
operations
processing division has 430
Currently its
as for the agency as a whole.
the consolidation
the department is considering
the DOR made a rough
Recently,
into this processing division.
of other
estimate of its projected space needs for its processing division by 1990,
arriving at around 200,000 square feet.
Boston
State
sites,
its
Hospital
as
site
planning
current
one
While the DOR would consider the
of
demand
likely
the
illustrates
relocation
potential
several
among
other
agencies with similar space needs for their processing workers.
Based on the site's
office
feet could be
complex of between 250,000 to 450,000 gross square
Figuring
developed.
translates
processing
projected space needs of state agencies, a state
current and
roughly
gross
300
square
into a conservative job estimate
the
constraints and
development opportunities and
feet
per
this
worker,
the range of from 833
in
to
1,500 jobs.
Initially,
locations,
because
most
would
they
jobs
these
of
largely
would
not
be
transfered
represent
opportunities to Boston State Hospital area residents.
successfully
relocate the processing functions
from
employment
new
But
of an agency,
other
in order
to
the current
state workers must be guaranteed employment, either at the new facility or
in
another
likely
be
job or
agency
generated
altogether.
through
attrition
- 51 -
Thus
from
new job
the
opportunities
relocation.
New
will
job
opportunities
will
commence
operations
available
become
also
well
as
as
from
agencies'
from
after
turnover
employee
processing
department
expansions.
Judging by
centers
operations
found
the high percentage of clerical employment usually
(around
80
of
percent
total
in
jobs
an
in
operations
center are clerical jobs), several entry-level positions appear accessible
local
to
the
area residents with labor market
appropriate
basic
education
and
disadvantages
of Massachusetts clerical
occupation
titles
state
Several
training.
clerical/processing jobs are profiled in this section.
if they receive
The standard State
described were chosen because
of their predominance on a computer listing of state employees who work in
6
Boston for three state agencies with large amounts of clerical workers.
General Qualifications
Most
of
the
clerical
qualities of applicants.
jobs
profiled
here
require
several
general
These are:
1. working knowledge of business English, spelling and
arithmetic;
2. working knowledge of , or the ability to learn, clerical
office practice; and
3. ability to communicate orally and in writing.
In addition, state agencies tend to hire applicants who have attained a
high school education or its equivalent for clerical positions.
- 52 -
State Clerical/Processing Job Profiles
Junior Clerk
Job Description:8 A junior clerk performs routine
clerical
duties such
as the following:
1. Checks the accuracy and completeness of records, forms
and documents.
2. Compiles simple statement data, codes data and posts to
records such as ledgers, payrolls, invoices and
various
cards. Performs simple numerical computations
record
employee
cost
simple
or
inventories
of
totaling
as
the
such
computations.
3. Sorts, indexes and files materials such as bond coupons,
claim record cards, employment registrations, ledger cards and
correspondence.
4. Searches files.
5. Opens, stamps, sorts and distributes mail.
6. Receives telephone calls and answers inquiries for
routine information.
7. Receives and directs visitors.
8. Types for a small percentage of the time.
Pay: $205.33 starting pay per 37.5 hour week ($5.48/hour) 9
Senior Clerk
Job Description: A senior clerk performs most of the same functions as a
junior
clerk,
except
the work
is
knowledge of the agency or section.
usually
more
complex,
requiring more
A senior clerk may supervise a few
employees in the performance of routine clerical work.
Special Qualifications:
A
senior clerk position usually
experience in the performance of general clerical duties.
Pay: $222.64 starting pay per 37.5 hour week ($5.94/hour)
Principal Clerk
- 53 -
requires some
Job Description: A principal clerk performs more complex clerical duties
that
require
of
functions
working
more
the
department
supervisor
and
decision-making
complex clerical work.
section.
small
a
over
or
number
thorough
a
knowledge
A principal clerk
of
employees
may act as
less
performing
clerk may perform secretarial
A principal
the
of
tasks
for an administrative officer or section head.
A principal clerk position requires experience
Special Qualifications:
in responsible general clerical work.
Pay: $246.60 starting pay per 37.5 hour week ($6.58/hour)
Head Clerk
Job Description: A head clerk performs complex clerical work requiring a
high degree of decision for conformance with departmental regulations and
established procedures.
employees performing
A head clerk may supervise
less complex clerical work and may act as secretary to the head of a major
department.
Special
experience
Qualifications:
in
A
head
clerk
position
requires
considerable
responsible general clerical work including some supervisory
experience.
Pay: $267.18 starting pay per 37.5 hour week ($7.12)
Junior Clerk and Typist
Job Description:
routine
clerical
which considerable
A junior clerk and typist
duties
as
a junior
typing skill is
clerk,
performs many of the same
but
also performs
work
for
required for a large percentage of the
- 54 -
time.
Qualifications:
Special
clerk and typist
A junior
requires
position
skill in typing rapidly and accurately.
Pay: $205.33 starting pay per 37.5 hour week ($5.48/hour)
Senior Clerk and Typist
Job Description:
In addition to the tasks a junior clerk and typist
a senior clerk an typist performs more complex clerical duties
performs,
and types material of more than average difficulty.
A senior clerk and
typist may also exercise supervision over a small number of employees in
the performance of routine clerical work.
Special Qualifications: A senior clerk position usually requires skill
in
rapidly
typing
accurately
and
well
as
as
some
experience
in
the
performance of general clerical duties.
Pay: $222.64 starting pay per 37.5 hour week ($5.94/hour)
Electronic Data Processing Entry Operator I-IV
Job
Description:
keyboard
controlled
transcribe
codes,
or
verifies
information
to
An
Entry
Operator
electronic data
verify
and
EDP
information
corrects
computer
processing
from
data
acceptable
I operates
source
entry
format.
data
typewriter-style
entry machines
documents.
information
More
to
An
operator
convert
advanced
to
levels
the
of
operators exercise more supervision over lower grade employees and require
increasing degrees of on-the-job experience.
Special Qualifications: An EDP Entry Operator I job requires the ability
to operate electronic data processing data entry equipment after a brief
- 55 -
training
period.
An EDP Entry
months experience.
Operator Level
requires six
position
II
Level III and Level IV require one year and two years
of experience, respectively.
Pay: Starting Weekly Salaries for 37.5 hour weeks:
Level
Level
Level
Level
$216.85
$237.07
$255.53
$282.63
I
1I
III
IV
($5.78/hour)
($6.32/hour)
($6.81/hour)
($7.54/hour)
Senior Statistical Clerk
Job
Description:
A
senior
statistical
clerk
performs
a
variety
clerical duties in the accumulation and presentation of statistical
judgement and a general
requiring statistical
or section.
of
data
knowledge of the department
These duties might include the following:
1. Records data and prepares standard statistical tables
from such sources as birth certificates, mortality reports,
reports of automobile accidents, alcoholic beverage price
market
labor
reports,
census
manufactures'
schedules,
activities.
agency
on
information reports or reports
2. Checks accuracy of computations and examines reports.
3. Codes data, computes percentages, and applies standard
statistical
other
and
averages
at
arrive
to
formulas
information.
routine
compiles
and
graphs
and
charts
Prepares
4.
statistical reports.
Special Qualifications:
A senior statistical
working knowledge of statistical
make
arithmetic
and
clerk job usually requires
methods and procedures and the ability to
statistical
computations
accurately
reasonable speed.
Pay: $237.07 starting pay per 37.5 hour week ($6.32/hour)
Senior Bookkeeper
- 56 -
and
with
activities
the
in
participates
bookkeeper
senior
A
Description:
Job
required for the maintenance of a double-entry system of bookkeeping for a
clerical
few
a
supervise
might
bookkeeper
senior
A
agency.
state
employees.
Special
knowledge
agency,
of
and
principles
the
techniques
a
requires
job
for
bookkeeping
of
to maintain a
the ability
specifically
bookkeeping
senior
A
Qualifications:
double-entry
working
a
state
bookkeeping
system.
Pay: $228.06 starting pay per 37.5 hour week ($6.08/hour)
Principal Bookkeeper
Job
maintains
generally
bookkeeper
principal
A
Description:
a
double-entry bookkeeping system for a state agency, controls appropriation
accounts,
prepare
reports
periodic
supervises
and
a
few
clerical
position
requires
employees.
Special
Qualifications:
bookkeeper
principal
A
considerable knowledge of the principles and techniques of bookkeeping and
the
ability
to
develop,
out
lay
install
and
clerical
procedures
and
developing
and
operations from general instructions.
Pay: $255.53 starting pay per 37.5 hour week ($6.81/hour)
Junior Accountant
Job
Description:
maintaining
books
subsidiary
ledgers
junior
accountant
records
such
A
or
and
general
participates
as
the
general
ledger
for
a
- 57 -
state
in
journal,
cash
book,
agency.
S/he
might
supervise a few bookkeeping and clerical employees.
Special Qualifications:
knowledge
of
Generally,
a
the
A
junior accountant
fundamentals
college
community
of
accounting
program
in
requires
position
accounting
practice.
and
theory
would
working
prepare
an
applicant for a junior accounting position.
10
Pay: $265.57 starting pay per 37.5 hour week ($7.08/hour)
Senior Accountant
Job
Description:
A
senior accountant
supervises
and
performs
accounting work such as the maintenance of the general books
complex
of a state
agency.
Special Qualifications:
A senior accountant position requires thorough
knowledge of and experience with accounting for a state agency.
Pay: $330.37 starting pay per 37.5 hour week ($8.81/hour)
Health Care Benefits 1 1
All full-time state employees receive group health plan coverage if they
elect to
pay the
nominal employee charge.
percent of each health insurance plan's
The Commonwealth pays ninety
premium rate.
A choice of plans
emergency
service and
hospitalization of the employee, his/her spouse and children.
Boston area
available,
is
each of
which covers medical
care,
employees usually choose between the Blue Cross and Blue Shield Plan, the
Harvard Community Health Plan and the Bay State Health Care Plan.
The Blue Cross and Blue Shield Plan costs the employee $13.74 per month
for
individual
employee
coverage
chooses
his/her
or
$28.64
own
per
personal
- 58 -
month
for
physician
family
and
coverage.
office
visits
The
are
usually covered under the plan.
The Harvard Community Health Plan is available to state employees for 18
individual
for
month
per
cents
coverage
family
for
month
per
$8.88
or
Doctors and hospitals are chosen from Harvard Plan locations in
coverage.
Boston and Cambridge. Office visits cost $1.00 and medication is $1.00 for
one month's supply.
The Bay State Health Care Plan carries
for
the
Bay
care
Medical
coverage.
State
or
employee
individual
an
is
for
provided by over
throughout
Plan
$32.44
of 18 cents per month
a charge
family's
entire
the
monthly
1200 Doctors affiliated with
eastern Massachusetts.
is
dollars
Three
charged for each office visit.
Upward Mobility
State
The
clerical
of Massachusetts
above
profiled
occupations
offer
opportunities for employees to progress into higher paying jobs with more
responsibility
decision-making
for
and
supervision
employees.
other
of
Upward mobility opportunities in state clerical employment fall into three
categories: pay increases, job upgrading and continued education.
1. Five Step Salary Schedule 1 2
In addition to
pace
with
after
inflation, state
schedule.
salary
collective bargaining
each
year
An
of
clerical
employee
service
employees
advances
in her/his
designed
wage increases
from one
job.
step
a
up
progress
to
the
(see chart,
to keep
five
step
next step
page
7E)
For
example, a junior clerk would work in a grade 4 position13 and would earn
$205.53
per
week
when
newly
hired
(step 1).
- 59 -
After
a
year
of
credible
Job Upgrading
Massachusetts clerical
clerk position
senior
a
clerk positions.
and
then later
of
higher
a
When
positions.
Movement
head
clerical
position
up a
and
the
opens
up,
seniority
ability,
to interview
employees have the opportunity
lower level clerical
job,
principal clerk and
job ladders.
personal
job ladder depends on demonstrated
availability
to
Similarly, employees in the other clerical occupations
above may work up their particular
outlined
higher positions
to
promoted
be
For example, a junior clerk might advance
after superior job performance.
to
may
employees
for the
and state agencies generally prefer to promote existing employees to
15
open positions.
Continued Education and Training
provides
Commonwealth
The
employees enrolled in
excluding
education,
tuition
a degree program in
UMass
is provided to full-time
full-time
to
any state institution of higher
Center.
Medical
tuition
of
remission
full
Fifty
percent
state employees enrolled
remission
of
in continuing
education programs.16
In the recent collective bargaining agreement between the Commonwealth
and the National Association of Government Employees (July 1, 1983 to June
30,
which
1986),
covers
clerical
"Training
employees,
Career
and
establish
a
statewide
committee
is
charged with the development
programs
in
departments
and agencies
in
- 60 -
and
the
parties
Ladders
agreed
Committee."
coordination of
the Commonwealth
"to
to
This
training
facilitate
individual
career
Programs
structures."
formulated
eventually
opportunity
employment
equitable
and
development
are
committee
this
by
scheduled to be implemented beginning in July 1984. 17
A Corporate Operations Center
development
to 200,000
100,000
first phase.
range
this
possibilities
a
recognizes
gross square
of
square
feet of corporate
development
footage
"support offices" in
There,
site's
of
development
space in
operations
a
per worker rule of thumb,
could
the New England Mutual
Burlington.
Hospital
potential for the
A corporate operations center
be comparable to
State
Boston
Based on a 300 gross square feet
permanent jobs.
would
the
of
study
on-going
DCPO's
The
produce
333
development of
Life Insurance
667
to
this
size
Company's
about 600 office jobs are located
in around 150,000 gross square feet of space.
New Jobs
If a company decides to build an operations center as a result of its
expansion, then a large proportion of the jobs generated could represent
new
employment
opportunities
local
for
residents.
Many
jobs
could
be
transfers of existing company employees to the new facilities, but one of
the main reasons a
corporation opens an operations center
central business district is
outside of the
18
"to build a new employment base."
The Bank of New England is planning a mid-1985 relocation of some of its
operations to Malden. In their survey of other organizations' relocations,
the
bank's
planners
found
most
that
-
61 -
organizations
experienced
high
rates
attrition
employee
is
rate
of
a
employment
new
For example, New England Life's overall
produce more openings every year.
turnover
many
development
In addition, employee turnover would
opportunities for local residents.
employee
the
Thus
generate
could
center
operations
corporate
move.19
a
after
percent
12
about
annually
and
clerical
for
20
employees it is higher.
Operations Centers Occupations
Malden
England's
center's
are
centers
Operations
development
will
jobs
dominated
in
be
by clerical
clerical
80
about
projects
team
work.
occupations
while
The
percent
the
the
work
performed
at
operations
an
center
is
the
to
similar
above.
Some
of
the
the
State
of
Massachusetts
predominate
job
titles
clerical
of
employees
insurance company operations centers are:
1.
2.
3.
4.
5.
6.
7.
Accounting Clerk
Claim Examiner
Claims Adjuster
Claims Clerk
Clerical Supervisor
Computer Operator
Electronic Data Processing (EDP) Operator
8. File Clerk
9. General Office Clerk
10.
11.
12.
13.
14.
Key Punch Operator
Proof Machine Operator
Rater
Statistical Clerk
Typist
- 62 -
positions
of
New
their
20
The bulk
processing
transactions such as insurance claims and banking transactions.
are
of
remaining
percent will include supervisors, professionals and managers.21
of
of
Bank
of
The jobs
profiled
bank
and
planning
is
England
to operate
worker
1,000
its
of New
The Bank
shift.
one
than
run more
often
centers
Operations
with
center
Malden
3
shifts, 24 hours a day.
Qualifications
Generally, companies prefer high school and junior college graduates for
their
clerical
positions
in operations
that often meets this requirement is
"second-earner
group
returning
housewives"
Operations centers are comprised of high proportions
to the labor force.
of women workers.
demographic
One
centers.
require special skills or education.
Some of the jobs
For example, a bookkeeping clerk position usually requires either a strong
focus
high
in
accounting
or
on
school
completion
business
of
a
math,
and
bookkeeping
community
or
junior
principles
of
program
in
college
business or accounting.22
Pay
As an
illustration of the earnings these
jobs typically
the
generate,
current starting pay of the Bank of New England's clerical workers ranges
about
$165
to
anticipates
that
it
from
$230
will
per
pay
week,
its
depending
operations
on
center
the
job.
employees
The
bank
who
work
23
during off-shifts a ten percent salary differential.
The Boston Metropolitan Area Wage Survey of
Department of Labor 24,
earnings
reports the following
of selected office workers:
August
- 63 -
by
the U.S.
"middle ranges"25 of weekly
(Starting wages
below the lower rate.)
1983
would
typically
be
August 1983
of Weekly Earnings
Range
Middle
in Nonmanufacturing
Workers
Boston Area Office
Industries 2 6
$179
$167
$202
$214
$245
$154
Typists
File Clerks
Payroll Clerks
Key Entry Operators
Computer Operators
Accounting Clerk I
(routine clerical operations)
Accounting Clerk II
(routine clerical operations)
Accounting Clerk III
(double-entry bookkeeping)
Accounting Clerk IV
(maintenance of books)
-
$241
$198
$249
$290
$301
$200
$210 - $265
$244 - $315
$300 - $382
Benefits
In general,
large corporations like the ones who open operations centers
New
benefit
England's
insurance
plan,
cafeteria.
In
package
aid,
tuition
includes
addition, the bank
and
services
offers permanent
a
coverage,
plan
health
banking
free
the Bank of
For example,
offer full-time employees a range of benefits.
a
part-time
life
subsidized
employees
27
participation in the benefit plan on a pro-rated basis.
Upward Mobility
because
they
are
clerical workers
work
operations
described
Interviewees
usually
(80 %),
load and a smaller
comprised
centers
of
a
as
large
"flat"
organizations
proportion
of
routine
a small number of supervisors who divide up the
number of managers who
- 64 -
essentially
maximize
the
There are not many positions in between the
use of the capital equipment.
clerical workers and the managers.
Thus career paths within an operations center do not seem very extensive
job
clerical
to
advance
could
degree
school
high
a
with
Nevertheless an employee who entered
education.
without post-secondary
a
a
higher
For example, a claims trainee might progress to a senior claims
position.
and
approver
then
a
to
Moreover,
position.
supervisory
clerical
an
employee might build skills and experience on-the-job within an operations
center
and
"move
where more extended
to the company's parent office
up"
job ladders might exist.
An Assessment of the Employment Development
Potentials of State and Corporate Operations Centers
The DCPO's in progress survey of operations centers, and assessment of
state
agencies'
clear
picture
the
of
employment
should
needs,
space
operations
centers on the Boston State Hospital site.
At this
criteria discussed above and summarized below,
centers certainly warrant
Boston
State Hospital.
might
generate
operations
offers
development
the
short,
In
many of
new
of
numbers
the
on the
my judgement operations
strategy
operations
of
jobs,
qualities
operations
point, based
further pursuit as a job creation
substantial
centers
in
increasingly
developing
of
ramifications
an
provide
and
centers
employment
characteristic
for
of
in
the
primary labor market: Earnings are decent, adequate benefits are provided,
jobs
are
stable,
work
environment
opportunities for advancement.
- 65 -
is
comfortable
and
jobs
offer
Employment Development Criteria
1. Would the development of state and corporate operations centers at
the Boston State Hospital site generate new employment opportunities for
citizens of Massachusetts?
A state operations center, as outlined above, might relocate up to 1,500
permanent
state
in
jobs
represent
likely
would
jobs
positions
that
currently
represent
net
new
exist
in
the
citizens
for
these
clerical
would
they
Boston,
opportunities
employment
state
of
relocation
downtown
of
Since most
area.
the Boston State Hospital
of
not
the
Commonwealth. On the other hand, through attrition from the relocation and
normal
employee turnover, a state operations center
opportunities
to
the
communities
the
neighboring
would bring new job
State Hospital
Boston
site.
But the state's
a Boston State Hospital operations center,
investment in
terms as well as
development incentives and infrastructure development
in
the
ongoing
on-site,
demonstrated
public commitment
could
leverage
corporate
a
by
developing
operations
state
offices
development.
center
A
corporate operations development, as discussed above, could generate up to
667 permanent jobs in
a first
phase.
If the corporate location decision
were a
result of the expansion of a Massachusetts
of an
out-of-state company, most of
these
firm or the attraction
jobs would
represent
net new
employment opportunities for the citizens of Massachusetts.
If
the corporate
decision
to
locate at
Boston
State
Hospital were
relocation or consolidation of the existing functions of a
firm,
the
jobs
generated
by
a
corporate
- 66 -
operations
a
Massachusetts
center
development
represent a retention of
would
to other
jobs that might otherwise move
states.
2.
state and corporate operations
Would the jobs created by developing
accessible by local
site be
Boston State Hospital
at the
centers
area
residents who face disadvantages in the labor market?
Access by local disadvantaged residents to the new employment
education.
such
improved
overcome
to
assistance
labor
the
of
provision
to
most
residents
area
those
that
assure
basic
target
group
affordable
child
support services
together with other
transportation
public
successful
effective
programs,
adequate
targeting mechanisms,
These
as
and
agreements
goal
employment
on
depends
community
placement
and
training
education,
their
in
created
opportunities
care.
post-secondary
require
not
do
jobs
centers
operations
of
bulk
The
barriers
and
disadvantages
market
government
receive
need
in
can help
site,
from the
and
to
employment that confront them.
After basic
education and
economically
seem within reach of
State
Hospital
formal
additional
address
area because
need
the
dependency.
education and
for
disadvantaged residents
adequate
training.
wages
to
At
the Boston
in
the
same
overcome
these
time
poverty
and
Therefore
these
typically
the
groups
of
jobs
welfare
The jobs also seem well matched to women, single mothers and
young adults, large Boston State Hospital area target groups:
centers
jobs
unrealistic degrees
require
not
they do
centers
operations
programs,
training
quests for
would
large
employ
not
numbers
employment
be
further
in
of
this industry
obstructed
barriers to "non-traditional" occupations.
- 67 -
and
women
by
by
Operations
young
adults.
individuals
jobseekers'
of
personal
3.
Do
in
jobs
benefits
sufficient
pay
centers
operations
to allow a
worker
to
and
wages
adequate
poverty
overcome
provide
and welfare
dependency?
The
weekly
starting
reviewed
in
this
earnings in
chapter
the
range
typical
from
centers
operations
$205
to
$265
for
jobs
state
clerical/processing jobs and between $165 to $230 for corporate jobs.
A
typical
operations
center worker
is
bookkeeping clerk
a
starting pay of about $200 per week or $10,400 per year in
this 1984 annual
"deflate" it
income
to
figure comparable
1980 Census
earning
1984.
a
To make
we
statistics,
to 1979 terms.28 In 1979 dollars this would be about $7,630
which is 73 percent of the $12,530 1979 median annual household income in
Boston
and
136
percent of
$5,600,
the
1979
U.S.
poverty
level
annual
income for a family of three.
Of
single
course different households have different income requirements.
person
household
without
might
manage
or
children
to
support
a
person
his/her
living
needs
on
in
A
a
two-income
annual
before-tax
earnings of $10,400 (1984 dollars).
For other households, higher wages in the upper end of starting salaries
at operations centers would likely be required.
Such would
for a household headed by a single mother with two children.
Massachusetts
Human
Services
Coalition's
report,
Up the
be the case
Based on the
down
Escalator,
discussed in Chapter II, a single mother with two children, ages three and
six, would
need weekly before-tax earnings
of around $263
to cover her
family's expenses 29
The Coalition assumed that the hypothetical family was able to secure
- 68 -
child
subsidized
care
optimistic assumption.
through
the
of
Department
If the mother
were
Social
to receive
Services,
an
extensive
a more
subsidy for her child care costs, either from her employer or the state,
she would be able to make ends meet with a less-skilled
job that payed a
lower salary.
The provision of sufficient health care benefits is a crucial part of
work
the
compensation
operations
centers
package
employees.
for
this
Both
the
to
allow
forgoing
low-income
Medicaid,
state
well
as
and
as
corporate
for
to
particular
increase
companies'
their
benefit
thereby
income,
earned
plans
varies
benefits
Because of the importance of medical
mothers
other
operations
The structure of benefit plans
centers jobs offer health plans.
with different companies.
mother
should
be
as
carefully reviewed as their wage structures when considering them for job
creation strategies.
4.
Does employment in
operations centers offer opportunities for upward
mobility?
State of Massachusetts clerical occupations offer annual pay raises
(in
ladder
promotion
opportunities and support for continued education and training.
Corporate
addition
to
inflation-offsetting
increases),
job
operations centers appear to offer similar opportunities.
- 69 -
Notes to Chapter IV
1. Judging by a visual survey of office parks, a windshield survey of
commercial areas along Blue Hill Avenue and a survey of operations
centers, all of which are currently being undertaken by the DCPO.
2. Agricultural Subcommittee of the Boston State Hospital Planning
Group,Report and Recommendations of the Agricultural Subcommittee to the
DCPO, June 10, 1983.
3. (SIC
Services,
1982, pp.
63), Mass. Division of
Finance, Insurance, Real
Employment
Estate and
Security, Occupations in
Construction 1981, August
38-41.
4. (SIC 60), Ibid., pp.
10-13.
5. Mass. Division of Employment Security, An Occupational Profile
Selected Manufacturing Industries in Massachusetts 1980, October, 1981.
of
6. A computer listing of 5,802 employees in the Dept. of Public Welfare,
Dept. of Revenue and the agencies under the Ex. Office of Human Services
on file at the Centeral Transportation Planning Staff. Programer was D.
Sarota, Job #55500.
7. According to a personnel director of one state agency.
8. The job descriptions profiled here are summaries of the standard State
of Massachusetts job descriptions which are on file at the Division of
Personnel Administration.
9.
Commonwealth
of Mass.
and the Natl.
Assoc.
of Govt.
R1-283), Agreement: Unit 1, July 1, 1983 - June 30,
85.
Weekly Salary Rates Effective April 1, 1984," p.
Employees
1986,
(Local
"Schedule
of
10. Accountant positions are covered under: Commonwealth of Massachusetts
and the National Association of Government Employees (Local R1-207),
Agreement: Unit 6, July 1, 1981 - June 30,
Salary Rates Effective July 3, 1983," p. 69.
1984,
"Schedule
of Weekly
11. Health Plan profiles included in DCPO "New Employee Folder."
12. Agreement: Unit 1, pp.
41-46.
13. State job titles
are assigned a "grade." For example, a junior clerk
is assigned to grade 4, a principal clerk to grade 10 and an EDP Entry
Operator to grade 13.
14. Agreement: Unit 1, p. 85.
- 70 -
15. Interview with personnel director for the DCPO. Civil Service status
enhances and employee's ability to advance and adds to job security.
Conversely, lack of Civil Service status may interfere with an employee's
upward mobility opportunities and threaten job security.
16. Agreement: Unit 1, p.
17. Ibid., pp.
51.
67-69.
18. Interview with a
Co..
representative of New England Mutual Life
Insurance
19. Interview with a representative with the Bank of New England.
20. Interview, New England Life.
21. Interview, Bank of New England.
22. Mass. Division of
Coordinating Committee,
Employment Security and Occupational Information
80 Job Opportunities for the 80's, July 1983, p.
18.
23. Interview, Bank of New England.
24. U.S. Dept. of Labor, Bureau of Labor Statistics, Area Wage
Boston, Mass.,
Metropolitan Area August 1983 (Bulletin 3020-41),
Survey:
October
1983.
25. Ibid.,
p.
24: "The middle range is
defined by two rates of pay; 1/4 of
the workers earn the same as or less than the lower of these rates and 1/4
earn the same as or more than the higher rate."
26. Ibid., p.
15-16: Table A-12, for establishments employing 500 or more
workers.
27. Interview, Bank of New England.
28. (Annual income in 1984 dollars) x (Consumer Price Index 1979 / Consumer
Price Index 1984) = (Income
in terms of 1979 dollars);
($10,400)
x (217.6 /
296.6) = ($7,630).
29. Massachusetts Human Services Coalition, Inc., Up the Down Escalator:
State and Federal Budgets - The Impact on Families, February 1983, p. 15.
- 71 -
APPENDIX A
(3)
Schedule of Weekly Salary Rates
Effective April 1, 1984
Mass. and the National Association
of Government Employees (Local R1-283) Agreement: Unit I
July 1, 1983 - June 30, 1986, p. 85.)
(Source: Commonwealth of
Promotion
GR
STEP 1
STEP 2
STEP 3
STEP 4
STEP 5
Factor
Increment
1
2
3
192.25
201.04
209.83
218.62
227.41
4.40
8.79
196.20
199.53
204.99
209.51
213.78
219.49
222.57
229.47
231.36
239.45
4.40
4.99
8.79
9.98
4
205.33
209.02
216.85
215.31
225.29
5
6
219.85
227.68
230.68
238.51
235.27
241.51
249.34
245.25
252.34
260.17
4.99
5.41
5.41
10.83
10.83
7
222.64
234.51
246.38
258.25
8
9
228.06
237.07
240.95
251.22
253.84
265.37
266.73
279.52
270.12
279.62
293.67
5.93
6.44
7.08
12.89
14.15
10
11
12
246.60
255.53
267.18
261.61
271.87
284.31
276.62
288.21
301.44
291.63
304.55
318.57
306.64
320.89
335.70
7.50
8.17
8.56
15.01
16.34
17.13
13
282.63
318.71
337.08
355.74
336.75
358.26
378.81
354.79
379.44
401.88
18.04
294.72
309.60
300.67
315.90
332.67
9.02
14
15
10.59
11.57
21.18
23.07
16
326.34
346.02
362.58
351.59
372.26
390.58
376.84
398.50
418.58
402.09
424.74
446.58
427.34
450.98
474.58
12.95
13.53
14.63
25.25
26.24
28.00
411.15
432.53
453.21
440.96
463.24
485.91
470.77
493.95
500.58
15.75
)21
381.34
401.82
420.51
524.66
551.31
16.27
17.52
29.81
30.71
32.70
22
23
24
441.39
463.98
484.97
475.98
499.50
522.18
510.57
535.02
559.39
545.16
570.54
596.60
579.75
606.06
633.81
18.69
19.22
20.26
34.59
35.52
37.21
25
26
505.94
524.62
27
547.20
545.05
565.42
589.21
584.16
606.22
631.22
662.38
687.82
715.24
21.44
22.49
23.19
39.11
40.80
42.01
28
29
30
568.24
612.04
636.90
664.01
655.84
623.27
647.02
673.23
699.64
728.20
758.91
24.32
25.44
26.54
43.80
31
639.70
665.07
690.40
689.07
738.44
716.25
743.39
767.43
796.38
743.44
773.85
806.36
837.18
869.79
902.36
17
18
19
20
32
33
591.25
616.56
682.55
711.46
518.61
787.81
818.61
849.37
27.72
28.83
29.93.
9.98
11.87
45.65
47.45
49.37
51.18
52.99
V.
EMPLOYMENT GOALS FOR TARGET GROUPS
Going
action,
by several
different
job goals" -
disadvantages
strategy.
in
the
names
--
"quotas,
set-asides,
affirmative
goals for employing members of certain groups with
labor
market,
constitute
a
crucial
targeting
Although probably worth little without a range of job creation,
education,
employment
training,
goals
placement
provide
development efforts.
the
and
support
mechanism
to
services
focus
behind
multiple
them,
employment
The goals are most often expressed as requirements
to companies or a developer for receipt of financial assistance.
The target group employment goal process for the Boston State Hospital
project might work like this: First
the Boston State Hospital Advisory
Committee, working with the DCPO, would issue job target goals as part of
its development guidelines.
Request
for
Development
The guidelines would be incorporated into the
Proposals
(RFP)
and
prospective
developers'
proposals would be judge on, among other things, how well their plans
respond to
the
likely
specific group employment
set
project's employment
development
goals.
participation goals
The RFP
would
(expressed as
percentages of total hours of construction employment) for construction
jobs for the developer to follow.
Process," p.
(See chart,
"A Potential Development
13.) The permanent job goals might be established in the RFP
by simply listing the several overlapping target groups that the permanent
on-site employers should provide affirmative action job access to, such as
the groups discussed above in Chapter III. Listed again here they are:
- 73 -
1.
2.
3.
4.
5.
6.
7.
Economically Disadvantaged.
Minorities.
Women.
Single Mothers.
Boston Residents.
Boston State Hospital "Impact Area" Residents.
Youth.
8.
Unemployed.
An implementing agency such as the Neighborhood Development and Employment
Agency could then develop an employment plan and work out an employment
agreement
regarding
jobs
for
disadvantaged
local
residents
with
the
on-site employers.
The next step in
the placement
out the employment plan to fulfill
in on-site jobs.
various
employment goal process is
the target group
to carry
of target group members
This plan would outline goals for placing members of the
target groups in
jobs.
construction jobs and permanent
It would
also establish how the goals would be linked to Boston's employment and
training system and how outreach and monitoring will
be carried
out.
It
is useful to review several cases where target group employment goals and
plans have been used,
jobs,
structure of the employment goal
Various cases prove illustrative for their goals for
targeting mechanism.
construction
to illustrate the
permanent
jobs
and
linkage
to
the
employment
and
training system.
Construction Job Goals
There
are
redevelopment
construction
Cambridge
that
can
help
the
Boston
State
several
models
project
establish its construction job goals,
contract
Housing
Authority
and
the Boston Housing
of
requirements
the
-
74
City
-
of
Boston.
Hospital
notably
the
Authority, the
The
construction
contain affirmative action and equal
contracts of these three entities all
employment
opportunity
clauses.
also include employment
They
goals for
various target groups.
Equal Employment Opportunity/Non-Discrimination and
Affirmative Action Clause
The
essence of
affirmative
federal
action is
equal
expressed
construction
in
opportunity and
employment
the following clause from the
Housing
and Community Development Act of 1974:
The contractor agrees not to discriminate against any
employee or applicant for employment because of race, color,
religion, sex, or national origin. The contractor will take
affirmative action to ensure that applicants are employed, and
that employees are treated during their employment, without
regard to their race, color, religion, sex or national
origin.
Such action shall include, but not be limited, to the
following:
Employment,
upgrading,
demotion, or
transfer,
recruitment or recruitment advertising; layoff or termination;
rates of pay or other forms of compensation; and selection for
training, including apprenticeship.
The contractor agrees to
post in conspicuous
places,
available
to employees and
applicants for employment, notices to be approved of provided
forth
the
provisions
of
this
by
the
city
setting
nondiscrimination clause.1
Incorporated
conditions
order
into
these
Community
Development
Block
Grant
federal Executive Order 11246 of September
is
requires
the
contractor
ensure
equal
employment
list.2
Among
the required
to
"take
opportunity"
actions
specific
which
are
the
it
24,
affirmative
describes
following,
terms and
1965. This
actions
in
a
expressed
lengthy
here
summary form:
1. Ensure and maintain a working
harrassment, intimidation, and coercion.
- 75 -
environment
free
to
of
in
2. Conduct recruitment and referral efforts with minority,
female and community organizations, schools with minority and
female students, minority and female recruitment and training
organizations, and unions.
and/or
training
opportunity
3.
Develop
on-the-job
participate in training programs for the area which expressly
include minorities and women.
4. Disseminate the contractor's equal employment opportunity
and
and employees,
policy to unions, training programs,
in
the
contractor
in
assisting
their
cooperation
request
opportunity
obligations.
meeting
its
equal
employment
Disseminate the policy externally by including it in any news
media advertising.
5. Review the company's equal employment opportunity policy
and affirmative action obligations under these specifications
with all employees having any responsibility for employment
decisions.
Executive
Order
11246
also
requires
that
make
contractors
toward fulfilling affirmative action hiring goals.
progress
The goals
of
percentages
of
the
total hours
are
expressed as
employment and training of minority and female utilization the
contractor should reasonably be able to achieve in each
construction trade in which it has employees in the covered
area.
4
The minority and women employment goals and the definition of the "covered
areal" are set by the local government in its contract solicitation.
Construction Employment Goals for Target
Groups
The Boston Housing Authority, the Cambridge Housing Authority
City
of Boston offer examples
that
have
been
established
of construction contract
by
local
groups.
- 76 -
governments
for
and the
employment goals
various
target
1.
Minority Persons
The Boston Housing Authority requires a ratio
minority
employee
person
hours
to
total
of at least
30 percent
person
in
employee
hours
its
construction contracts.
The Contractor and each of its Subcontractors shall take
affirmative action, as provided in this provision, to maintain
in
each
job category, including, but
not
limited
to,
electricians,
cement
masons,
carpenters,
bricklayers,
ironworkers, operating engineers, and those "classes of work"
enumerated in Section 44F of Chapter 149 of the Massachusetts
General Laws, a ratio of at least 30 percent Minority employee
person hours to total employee person hours.
The Contractor
or Subcontractor shall meet the percentage stated in this
section,
unless
the
Contractor
or
Subcontractor
shall
demonstrate to the satisfaction of the Authority that it has
taken
or
is
taking every
possible
measure
to achieve
compliance, but is unable to do so because insufficient
Minority workers are available. 5
The
Cambridge
of
percentage
Housing
minority
Authority,
residents,
consistent
requires
of
with
its
Cambridge's
lower
a
lower
contractors
minimum minority labor hours participation proportion of 20 percent. 6
Between the two local housing authorities' requirements is the City of
Boston's
25
percent
This requirement
Employment
of
craft-by-craft
was set
1979
minority
worker
by the Mayor's Executive
and
holds
for
all
hours
Order
projects
requirement.
on Construction
by
financed
city-administered funds. 7
2. Minority Businesses
Established
in
another
executive
order
in
1978,
the
Executive
Order
Encouraging Minority Business Enterprise, the City of Boston requires that
"at least ten percent of the value of all construction, goods and services
- 77 -
by
procured
the
City
during
each
fiscal
will
year
be
obtained
from
minority business enterprises."8
The
Housing
Boston
a
requires
Authority
business
minority
higher
participation rate of 30 percent for its construction contracts.
The Contractor shall utilize Minority Business Enterprises
to perform work and/or supply goods or services for a total
price not less than 30 percent of the Contract price; provided
that at least 75 percent of the required dollar amount shall
be allocated to Minority Business Enterprises which are
construction Subcontractors. 9
3.
Women
The Boston Housing Authority 1,
Housing Authority12
construction
all
and the Cambridge
the City of Boston
require
that
a
minimum of
contracts' work force hours
in
each
10
percent
of
their
trade accrue
to
women
workers.
Local Area Low Income Residents
4.
The Community Development Block Grant terms and
Boston Housing Authority and the Cambridge
require
and
"that to the greatest
employment
be given
lower
Housing Authority work under,
extent feasible
income
conditions, which the
opportunities
residents
of
for training
the project area." 1 3
Most of the time the "project area" is defined as the entire city.
5.
City Residents
The
Boston
Housing
Grant regulations,
Authority,
requires
its
following
Community
Development
contractors to "maintain a not
- 78 -
Block
less than
50 percent
ratio of Boston resident employee work force
employee work force hours in
each trade."
hours
to total
Similarly, the Boston Housing
Authority also requires that at least 50
percent of
all a
contractor's
training categories be filled with Boston residents.
As
1979,
established
the
City
in
of
the
Order
Executive
Boston
also
Construction Employment
on
requires
50
percent
Boston
of
resident
participation in city-contracted construction work.
6.
Housing Authority Residents
For
the
recent
Comprehensive
Program
Renewal
for
the
Franklin
Field
Development, the Boston Housing Authority required that contractors employ
at least 18 Boston public housing residents as apprentices, and at least
12
as
defined
laborers,
as
full-time
in
anyone 18
the
contract's
years
of
principal residence
at
age
any
construction
or
- 79 -
Residents
were
older
who maintained
his or
the
Boston Housing
Authority's
of
public housing developments. 1 5
work.
her
Summary of
Employment Goals
Group
Target
for Construction Contracts
CHA
Minorities
BHA
30%
Minority
Businesses
30%
Women
10%
City
Residents
50%
Local Area
Low-Income
Residents
Greatest
extent
feasible
Housing
Authority
Tenants
Varies
by
Development
City of Boston
25%
10%
10%
10%
50%
Greatest
extent
feasible
Permanent Job Goals
As with
construction job
goals,
there are several
local
development
projects whose employment goal formats may help the Boston State Hospital
redevelopment
project establish its permanent job goals.
The process of
establishing and carrying out permanent job goals often works like this:
First a development committee sets forth employment guidelines which are
incorporated into
the Request for
Development
Proposals
(RFP)
for
the
developer to respond to with a plan for meeting construction employment
goals.
Next,
after the permanent employers are identified,
the employers
work out an employment agreement with a coordinating agency such as the
Neighborhood
Development and Employment Agency.
- 80 -
This agreement
identifies
for
employment goals
employing members of
groups.
target
Finally,
the
agreement and goals are supported by an employment plan that outlines the
actions
necessary
to
the
fulfill
these
of
Each
agreement.
steps
is
discussed in more detail in this section.
Employment Guidelines for a Development
Project
One
the
of
Committee
for
permanent
jobs
surrounding
goals
development
the
Copley
Place
and training
communities.
development
benefits
The
be
was
Review
Citizens
maximum
that
available
to
Review
Citizens
the
by
established
possible
residents
Committee
issued
of
the
several
guidelines for permanent jobs and training to help assure this goal was
fulfilled.
These guidelines included the following recommendations:
1. The developer will work with community groups engaged in
job
supply
will
developer
The
training.
and
manpower
projections and manning tables as they are available.
2. The community organizations
public programs and funds.
will
seek
all
available
3. A recruitment program should be developed.
4. The State and the City will give technical assistance and
help to integrate public programs.16
Employment Agreements and Employment Goals
The employment goals agreed upon by the City of Boston and employers in
three different development projects are illustrative.
1.
Copley Place, 1984 17
percentage of jobs
50%
30%
target group
Boston residents
Minorities
- 81 -
Women
Low- or moderate-income people
South End residents
Persons eligible under
federal job training programs
50%
40%
17.27%
25%
2.
Wang Laboratories, The Boylston Building,
198118
target group
Boston residents
Minorities
Women
Economically
disadvantaged
percentage of jobs
50%
80%
50%
25%
3.
Teradyne, 1980 19
target groups
Boston Residents
Minorities
Boston minorities
Women
CETA
participants
percentage of jobs
50%
17.4%
12.8%
36%
12.8%
Employment Plan
An employment
Chapter
IV)
and
permanent jobs.
plan projects the jobs
states
the
project's
generated by a
employment
group
target
development
goals
(see
for
It also outlines the linkage to the local employment and
training system necessary to prepare the local labor force for the jobs as
well as refer and match applicants to the jobs.
(see Chapter VI)
Monitoring, Compliance and Results
For
construction
jobs,
contact
persons
at
both
Authority and the Cambridge Housing Authority report
with employment requirements rarely occurs.
maintain the percentage employment
the
Housing
that non-compliance
Most contractors are able to
requirements established.
- 82 -
Boston
The agencies
hold pre-bid conferences where requirements are clearly layed out.
referral
operate
systems
to
contractors
help
the
maintain
They
percentage
goals.
if a contractor
compliance and
Both agencies closely monitor contract
dips below an employment percentage requirement, early warning systems are
Both housing authorities withhold payment on
triggered to warn him/her.
construction contracts for any periods the contractor is not in compliance
and fines are levied for each week of non-compliance.
been
major employers at Copley Place,
permanent jobs,
For
able
to
meet
or
the
exceed
set
goals
forth
for example,
in
the
have
employment
agreement.20
Establishing Target Group Employment Goals for the
Boston State Hospital Site Redevelopment
Construction Jobs
construction
For
Boston
State
jobs,
Hospital
based
on
models
the
Committee
Advisory
above,
would
the
likely
DCPO and
the
establish
the
following employment goals in the RFP for the developer to follow:
The
1. Racial Minorities
30%
2. Women
10%
3. City of Boston Residents
50%
RFP
would
also
likely
stipulate
minority
construction
contract
participation of between 10 and 30 percent of total construction costs.
In
addition
to
these
the
goals,
-
83 -
RFP
would
likely
request
that
how they
submit construction employment plans which outline
developers
prospective
propose to
work with local
placement
and
training
employment,
to construction
agencies to provide local disadvantaged residents access
employment.
Permanent Jobs
For
permanent
on-site
identified.
training
are
goals
employment
target
group
are
employers
specific
before
predictable
less
for
percentages
specific
jobs,
For example, observe the variations between goals for federal
(economically
participants
program
disadvantaged),
and
women
minorities in the three developments listed above.
These
variations
the
location,
are
skills required
by
various
by
explained
specific
the
as
such
factors
companies,
plant
the extent
to
which new job opportunities are generated and the availability of workers
with
For
requisite skills.
the
example, Wang located
developed on-the-job and English language training
ability to employ a high percentage of (Chinese)
In
another
proportion
case,
of high
Teradyne's
occupational
Chinatown and
programs, raising its
minority group members.
composition
skill occupations, limiting
in
overall
a
contains
2 1
large
participation by
22
the economically disadvantaged.
The
specific
target group percentages for permanent job goals are
thus
points of negotiation to be discussed in a dynamic, interactive bargaining
process
DCPO/BSH
between
permanent
Advisory
employers,
Committee
and
once
a
they
coordinating
Neighborhood Development and Employment Agency.
- 84 -
are
identified,
agency
and
like
the
the
In the RFP, prospective developers should be informed of the main public
that is,
purpose of the project,
of
groups
target
listed
on
page
with
43
labor
and
page
to provide job opportunities for members
market
74.)
The
RFP
are
(Target groups
disadvantages.
also
should
request
that
developers propose plans for how they would work with public agencies and
the development's on-site
groups.
In
ability
to
employers to provide job access by
this way developers will understand
generate
jobs and
facilitate access
those jobs is a condition of selection.
- 85 -
that a
by
the
the target
proposed
scheme's
disadvantaged
to
Notes to Chapter V
and
Terms
Block Grants
Development
Community
of Boston
1. "City
Comprehensive
Field
Franklin
Authority
Housing
Boston
Conditions,"
Renewal Program, 1983, p.l.
Employment
7p, 'Equal
7a paragraphs
11426,"
Order
2. "Executive
C4-4 pp.
Authority,
Housing
Cambridge
Opportunity Requirements of the
C4-10.
3. Ibid.
4. Ibid., p.
C4-10.
5. Boston Housing
17.3.1, p.
Authority, Minority
Participation Provisions, Article
2.
C4-1.
6. Cambridge Housing Authority, Labor Regulations, p.
7. City of Boston, Office of the Mayor, Executive Order on Construction
Employment, September 11, 1979, p. 1.
8. City of Boston, Office of the Mayor, Executive
Minority Business Enterprise, June 28, 1978, p. 2.
9. Boston Housing
17.4.1, pp.
Authority,
Minority
Encouraging
Order
Participation Provisions,
Article
2-3.
Housing
Boston
10.
Provisions, p. 2.
Authority,
Female
and
Resident
2.
11. Executive Order on Construction Employment, p.
12. Labor Regulations, p.
Participation
1.
13. "City of Boston CDBG Terms and Conditions," Boston Housing Authority Franklin Field Comprehensive Renewal Program, 1983, p. 3.
14. Female and Resident Participation Provisions, p.
Housing
Boston
15.
Provisions, p. 1.
Authority,
Franklin
Review
Citizens
Place
Copley
16.
1977.
22,
September
Recommendations,
- 86 -
Field
Committee,
2.
Resident
Copley
Employment
Square
Final
"Copley Place to Give Most
Gary McMillan,
17.
Minorities, Poor," Boston Globe, February 8, 1984, p.
Jobs to
17, 20.
Hub
Women,
18. City of Boston, Boylston Building: UDAG Application, April 30, 1981.
19. City of Boston, Teradyne: UDAG Application, April 30, 1980.
20. McMillan, Globe, p. 20.
21. Boylston Building, UDAG.
22. Teradyne, UDAG.
- 87 -
VI.
PREPARING THE LOCAL LABOR FORCE
In
order
by the Boston State Hospital site
created
required
skills
disadvantaged
that
assure
to
to
histories.
to
according
needs
training
those
enter
their
education and
Accordingly
jobs
redevelopment they must learn
have
people
Different
jobs.
to
gain access
citizens
skill
training
programs
work
and
levels
current
different
the Boston
for
should range from literacy and
State Hospital site redevelopment project
job readiness training to new skill acquisition for career development.
the Boston
training and employment services program for
education,
A comprehensive
State Hospital
project
should
include
two
approaches.
basic
One approach, which should be implemented immediately, recognizes that a
number of years are required to build up the employment capacities of the
local
disadvantaged population.
employment services directly
The second approach provides a range of
linked to job opportunities
by
the
jobs
by
created
Boston State Hospital site development.
An Immediate Manpower Service Strategy: The Boston
State Hospital Area Employment Initiative
access
Successful
to
new
Boston
State
Hospital
site
disadvantaged citizens with currently low levels of educational attainment
and occupational
made available
Efforts
to
skills requires that human capital building
to them
build
the
sufficiently ahead of
employment
-
capacities
88 -
the site's
of
local
programs
active
be
re-use.
disadvantaged
training
education,
of
undersupply
and
employment
severe
the
address
to
possible
as
soon
as
begin
should
residents
programs.
large
The
scale redevelopment potential for the Boston State Hospital site presents
and
efforts
a
to
concentration
city's
the
of
service
employment
and
training
education,
focus
to
opportunity
economically
disadvantaged
area
disadvantaged
population.
of
focusing
informal
An
DCPO staff members and actors in
residents appears to be soon possible.
the
local
discussed
field
training
and
education
employment,
to
programs
manpower
job
the
Hospital site.
generation possibilities of redeveloping the Boston State
As discussed in Chapter II, there are shortages of education and training
program
access
service
neighborhood-level
and
opportunities
for
points
area residents.
Direct More Resources to the Area
Several
direct
agency
more
residents
in
representatives
toward
resources
the
Boston
State
that
thought
employment
Hospital
and
area.
training
For
programs
example,
nearby Franklin Field
Housing Authority could identify the
possible
be
it would
for
Boston
the
and
to
Franklin
Hill housing projects as prime locations to recruit tenants for its Skills
Training
Agency(NDEA)/Boston
outreach
in
opportunities
example,
the
in
Neighborhood
The
Program.
Private
area
to
the Job
Industry
bring
Council(BPIC)
local
Training
Development
residents
Partnership
and
could
education
Act
system.
Employment
conduct
and
As
more
training
another
the Division of Employment Security could open up a neighborhood
outreach field station in the Boston State Hospital area to link people to
- 89 -
its job placement system.
An On-Site Clearing House
These
programs
and
other efforts,
offerred
training and
such as the
Center, Roxbury
the Humphrey Occupational Resource
by
development
career
Community College and the University of Massachusetts College of
and
comprehensive
house
to
need
Service,
Community
manpower
link
area
to
strategy.
The
disadvantaged
focused
be
creation
residents
to
an
within
of
an
Public
immediate
on-site
clearing
training
education,
and
employment services is the crucial first step of this strategy.
The coordinated employment service strategy should be clearly linked to
the Boston State Hospital site's
A name such as,
eventual redevelopment.
"The Boston State Hospital Area Employment Initiative" would help promote
this association.
Development and
The Boston Private Industry Council (BPIC)/Neighborhood
(NDEA) is a candidate
Employment Agency
for
undertaking
overall coordination and organization of the Boston State Hospital
Area
Employment Initiative. Services could be delivered in conjunction with a
local
community-based
Corporation
which
has
organization
a
working
such
as
the
familiarity
Lena
with
Park
the
Development
local
client
population.
Programs
The Initiative would include several programs which could be developed
and coordinated by the BPIC/NDEA:
1.
2.
Outreach and Occupational Assessment
Job Readiness Training and Career Counseling
-
90 -
3.
4.
5.
Job and Program Placement and Referral
Adult Literacy Programs
Career Development
6.
Skills Training
The most important function of the Boston State Hospital Area Employment
Initiative on-site office
placement
in,
throughout
and
the
during the project's
referral
greater
to,
Boston
employment
pre-development period are
area.
To
and
training
address
the
opportunities
low
levels
of
educational attainment of some area residents, many more basic education
and
occupational
reviewed
in
literacy
program
Chapter IV, most
slots
positions
must
be
created
for
them.
in operations centers
As
require
a
high school education or its equivalent.
Skills training programs need not be directly linked to the Boston State
Hospital site redevelopment in
the early years of the Initiative,
should train for occupations
in high demand and growing industries.
time
draws
nearer
to the
project's opening,
skills learned
but they
As
in training
programs should be increasingly linked to on-site job opportunities.
As
the
Area
Employment
Initiative
begins,
an
issue
that
should
be
investigated is whether or not the effort to coordinate and focus services
increases the capacity of
It could
instead
the city-wide employment and
conceivably
shift
program
other Boston neighborhoods to residents in
resources
training
from
system.
residents
in
the Boston State Hospital Area.
To the extent that disadvantaged residents in
Franklin Field,
Roxbury and
Mattapan are currently underserved, the shift is perhaps desirable.
On the other hand, the Initiative might not shift
other
neighborhoods, but rather
levels that currently exist in
might
focus
and
resources away from
coordinate
the Boston State Hospital
-
91 -
programs
area.
at
A review
Boston
Hospital
State
leads us
to believe
and a survey of
programs throughout Boston,
of the education and training
area's current supply
that the
points,
access
neighborhood-level
area
however,
such programs is
of
insufficient.
Need for Funding
Naturally new funding sources are required to really augment the present
manpower
service
of services
range
provide a comprehensive
system and
disadvantaged residents in the Boston State Hospital neighborhoods.
education
project,
training
and
might
it
applying for
program
augment
the
were
tied
to
job
credible
If an
creation
agencies
participating
of
efforts
a
to
in
Training Partnership
additional funds from outside the Job
Act system.
Local Development Catalyst
The prompt creation of an on-site clearing house for the Boston State
Hospital
Area
catalyst
and
It
the
would
primary access
benefits
by
transportation
necessary
Initiative
generate positive
be a
economic
supported
Employment
parts
of
route for
local
local
of
for
education
and
child
care
training
of
disadvantaged
This
the redevelopment.
provision
the provision of these
a
provide
neighborhood perceptions
the
of the
would
access
and
program
residents
route
can
to
be
public
participants
as
be sought
for
during the Boston State Hospital
site redevelopment project's pre-development phase.
- 92 -
the project.
improved
Initiative. Funding sources should
support services
development
Employment and Training Services for the Boston
State Hospital Site Redevelopment
An on-site clearing house established soon can also provide an in place,
system
and placement services
eventually required
become
increasingly solidified
State
Hospital
up
with
house,
if
applicants
clearing
on-site
primarily placement and referral functions, and
on-site,
The
disadvantaged residents.
Initiative's
office
and offer them occupational assessment and career
applicants
in
adept
already
required
skills
perform
to
its
employment opportunities
a major source
be
they evolve, will
as
Initiative's
Employment
continue
can
earlier,
established
Area
The
jobs.
link
to
house
site
Boston
the
for
clearing
Initiative
Employment
Area
uses for the
possible
become
will
it
construction
the project's
by
different land
the
As plans for
jobs.
and permanent
training
recruitment, assessment,
the
for
comprehensive delivery
placements
job
of
screen applicants
can
Job-ready
counseling.
on-site
by
for
can
jobs
be
referred to them.
If an applicant needs additional training, the occupational assessment
can
if
determine
required to enter a skills training program.
an
opportunity
to
Initiative's
office
program that
is
employers.
enroll
can
linked
in
then
to
a
basic
send
the
employment
placement services
of
skills
If not, s/he can be provided
education
program.
applicant
to
opportunities
The training programs would build
skills needed for on-site jobs.
language
and
math
basic
the
possesses
s/he
so,
If
training
skills
a
offerred
the
by
on-site
participants' abilities in
The assessment, education, training and
the on-site
clearing
- 93 -
house
can
provide
employers
with a pool of trained local workers to help fulfill the employment goals
Because
project.
the
of
creation
should
services
for local
benefits
disadvantaged
become
outreach and
the years,
development's
The
sustained.
be
will
opportunities
employment
residents over
local disadvantaged
available to
placement
many
full
job
people will take many years to
realize.
Clerical Skills Training
If
state and corporate operations centers were developed
State
skills.
job
most
site,
Hospital
the NDEA/BPIC
Currently
opportunities
would
contracts with
3
on the Boston
require
training
clerical
agencies
to
1
teach clerical skills to about 334 program participants in Boston.
Organizations outside of the Job Training
contract
example
with
the
local
Bay
training
State
Skills
Massachusetts Corporations,
to
agencies
teach
agencies
over
Corporation,
purchases
525
to
Partnership Act
teach
in
training
people
conjunction
services
clerical
Participating companies include:
1. Arthur Andersen Co.
2. Bank of New England
3.
4.
5.
6.
7.
8.
9.
Blue Cross/Blue Shield of Massachusetts
Boston Gas
Boston Globe
Brigham and Women's Hospital
Eastern Gas and Fuel Association
First National Bank of Boston
Hill, Holiday, Connors and Cosmopolous
10.Honeywell
11.John Hancock Mutual Life
12.Little, Brown and Co.
13.Prudential Insurance Company
- 94 -
clerical
system also
skills.
with
For
various
from four local
skills
in
Boston. 2
14.Shawmut Bank of Boston
individual
scale,
smaller
a
On
Recently the Boston Housing
slots.
also
organizations
training
purchase
Authority contracted
Boston
a
with
3
training agency to teach clerical skills to 20 Authority residents.
clerical skills instruction
Boston Training Agencies which specialize in
include:
1. Action for Boston Community Development
2. Chinese American Civic Association
3. EDIC/Boston Technical Center
4. Officina Hispana
5. Opportunities Industrialization Council
Center operates
For in-school youth the Humphrey Occupational
a variety
of clerical vocational programs.
An Implementation / Coordination Role for the
Neighborhood Development and Employment Agency / Boston Private
Industry Council
The
federal
new
employment
intergovernmental
in
business-headed
for
At
governments.
training,
programs
to
employment).
Development
Private
the
Planners
at
the
identified that
(as
an
Boston were discussed
and coordination role for
opposed
to
public
Department
to
of
training
service
Manpower
follow this
4
mandate is by linking training programs to job creation projects.
of
primarily
education and
important way
- 95 -
role
the
elevating
of
Massachusetts
the
and
(JTPA)
providing funds
and
linkage
employment
the
by
time,
Industry Councils
sector
system in
a supervisory
same
Act emphasizes
private
have
the
Act
Partnership
and training
The JTPA mandates
Chapter II.
State
Training
Job
Act's
It
that
appears
coordinate
Hospital
the
NDEA/BPIC
training and placement
employment
in
results
delivery
core
can
provide
core
the
of
a
by
supplemented
be
training
placement
strapped
as observed in
system for the Boston State Hospital
should
Boston State
site
services
funds.
for
training
Chapter
placement
and
the
The
II.
services
redevelopment.
of
that
is
and
employment
of
to
co-agencies
apparent
also
But
system is severely
services to the needs of Boston residents,
NDEA/BPIC
appropriate
for the state's
programs
undersupply
drastic
the
the
efforts.
development
Boston's employment and training
This
are
That
Division
of
Employment Security and training programs offerred by large agencies like
the Bay State Skills Corporation and smaller organizations
like the Lena
Park Development Corporation.
But
in
order
employment and
to
allow
that
delivery
training services for
system
to
the Boston State
provide
Hospital
additional state funding must be set aside for that purpose.
- 96 -
sufficient
project,
Notes to Chapter VI
1. Neighborhood Development and Employment
Services Inventory, February 1983.
Agency,
FY
1983
2. Bay State Skills Corporation, Annual Report, September
Program
and
1983,
pp.
21,
12-13.
3. Boston Housing Authority, 1984 Skills Training Voucher Program.
4. According to a consultant to the Department of Manpower Development.
- 97 -
VII.
MEETING CHILD CARE NEEDS
As discussed in Chapter II, there are about 6,600 female-headed families
One of the most
with children in the Boston State Hospital "impact area."
formidable
obstacles
to
the
of
employment
is
mothers
single
the
Because child care takes such a
unavailability of affordable child care.
large bite out of low-income single mothers' earnings, work often offers a
costly
and
risky
alternative
to
public
assistance.
Suppose
a single
mother had one preschooler that needed 40 hours of care while she worked
If she earned a low (yet above minimum-wage) wage rate of
each week.
$4.00 per hour, her day care costs of around $60 per week
over
37
percent
of her
$160
gross weekly earnings.
would represent
If
she earned
a
moderate salary of $240 per week or $6.00 per hour, comparable to what
most operations centers jobs pay, her child care costs would still consume
a full fourth of her gross earnings.
Subsidized Child Care
To address
the difficulties
of covering child care costs
constraints of moderate and low earnings,
under
the
the Massachusetts Department of
Social Services (DSS) subsidizes day care for low-income working parents
according
to
a
sliding
fee
scale
which
allows
parents
to
retain
subsidization as earned income increases.
According to advocates for low-income women, there is a severe shortage
of subsidized day care slots (as well as a general shortage of all day
- 98 -
care services) in Massachusetts.2 As an indication of the magnitude of the
subsidized child care slots in the entire state
Exacerbating the shortage of affordable
slots,
while about 20,759 single
Boston alone.(1980 Census)
mothers live in
child care for working
single
of subsidized
given the limited amount
the fact that the DSS,
parents is
13,300
approximately
only
contracts
DSS
the
that
consider
shortage,
places slot allocation priority on children classified as abused.
From another
direction, subsidized
participants
in
program.
the
Department
of
Public
Welfare's
children
for
earmarked
slots are
employment
training
child
further erodes the availability of subsidized
This
of
care
4
for low-income single mothers with jobs.
A Projected Need for Child Care Services by Boston
State Hospital Site Operations Centers Employees
child care,
Set against the backdrop of a severe shortage of affordable
a large-scale
could
child
care
employees
such
as
transportation
needs
agencies
to
to
appears
the
be
conducted
survey
the
child
new
State
services
care
effective
An
employee-parents.
employees'
for
need
substantial
a
generate
development's
of the Boston State Hospital site
job creating development
the
of
method
full-scale
for
the
Transportation
stage of
the project, but should
be kept
the
assessing
survey
relocation
downtown Boston.5 Of course an employee survey method does
this early
by
Building
of
of
in
not apply in
in mind as efforts
progress.
The director
of a local employer-provided day care program suggested a
-
99 -
rule of thumb for planning employees' demand for work site child care: For
2.75 -
Chapter
rule
this
Applying
IV
for
thumb
of
state
and
the
to
corporate
of
number
operations
employees
centers
estimated
taken
in
together,
on-site child care demand of between
an estimated pre-schooler
results in
employees. 6
for every 350 plant
6 years) on-site day care slots
(ages
10 pre-schooler
employees tend to fill about
industry in general,
33 and 62 slots. 7
Operations
centers, however,
not
are
Thus child care demand
generally employ much higher percentages of women.
is
to
likely
be
much
than
higher
the
they
industries because
typical
Further
average.
industry
investigation into the demographic composition of operations centers' work
forces should allow refinement of child care needs projections.
to
the accessibility of jobs
enhance
must
development
low-income
by
care,
care
infants
of
and
toddlers
the
In
should
be
addition
to
pursued.
At this level of information, the DCPO's current estimate of 120
child
care
pre-schooler
mothers,
industry average.
than -the
more child care
provide
single
Moreover,
slots
(100
pre-school
and
20
infants
and
toddlers)
seems
appropriate for the investigation of the financial feasibility of various
development scenarios.
Approaches for Child Care Provision
If
the
mothers,
Several
development
it
must
approaches
parents who
is
to
enhance
seem
fulfill
the
goal
availability
possible
hold jobs located
its
to
make
of
of
child
job
access
affordable
care
child
available
at the Boston State Hospital
- 100 -
by
site.
single
care.
to
the
These
include a range of plans for employer support, discussed below.
include
the
development
of small
community
child
care
They also
businesses.
The
Community Development Coordinating Council, in conjunction with the Boston
State
Hospital
Advisory
Committee,
might
want
development of community child care businesses.
experience of ASIAN, Inc.,
to
investigate
A model to consult is the
in San Francisco, which
recently
small business child care services.8 Another approach is
parent cooperatives.
library of
the
established
the formation of
The Child Care Resource Center in Cambridge offers a
child care reference materials and employs a
staff
of child
care planners with whom the Child Care Working Group for the Boston State
Hospital
Advisory
Committee
might
wish
to
consult
on
the
range
of
approaches to child care provision.
Employer-Supported Child Care
Employer-supported
services
voucher
child
provided
child
by
the
care
begins
employer.
with
The
information
next
degree
of
and
referral
support
is
a
subsidy program provided by the employer to help cover employees'
care needs.
Finally, work
site
day care
can
be
provided by
the
employer.
Information and Referral
Many employers provide their
employees with child care information and
referral services.
One local method of service
through contracting
information and referral services from the Child Care
Resource
Center
with two banks,
(CCRC).
an
The CCRC
currently
has
delivery is accomplished
local
service
insurance company, two manufacturing
government agency.9
-
101
-
contracts
companies and a
Voucher Subsidy Program
In
a
care voucher
child
providers
open
on the
agreements between
subsidy
market or
employees choose
program
from day
earmarked
care slots
employers and particular day care
care
child
through
providers, and the
The Polaroid Corporation,
employer covers a percentage of the costs.
for
example, subsidizes child care for its employees with family incomes under
$20,000.
company
The
dependent on family income and size,
or home-based child care.
supported
each
year
by
amounts
voucher
calculates
on
a
sliding
scale,
and parents may select either center
The child care needs of about 100 families are
the
program
and
the
majority
of
parents
participating are single. 10
Work Site Child Care
Several
of
models
illustrative
for
the
State Hospital site.
work
employer-provided
development
of
child
care
site
child
services
at
care
the Boston
As discussed above, if operations centers were built
on the site employees would likely have a strong need for child care.
local
models
are
demonstrate that
employers can
help
meet
their
Two
employees'
child care needs, utilize child care provision to help recruit and retain
productive employees and derive positive
their efforts.
- 102 -
public relations
publicity from
Wang Laboratories11
After surveying 6000
posed work-related
for
seventy
Chelmsford.
employees
problems,
children
Currently
and
discovering
that
child
Wang opened a child care center in
in
1980.
the
new
In
1981
center
it
cares
relocated
for
the
around
200
care
often
Tewksbury
center
in
children,
The center is centrally located for seven
including infants and toddlers.
Wang plants and the company provides bus transportation for the children.
In
January 1983 preschool
tuition was $33 per week for employees and $66
Infant/toddler tuition was $45 per week for
for parents in the community.
employees and $90 for others.
Stride Rite Children's Centers12
The Stride Rite Corporation is a pioneer of work site child care.
1971
After
it
opened
the
Stride
Rite Children's
success of the first center
the
Center
the company
in Boston South
established a
In
End.
second
center in 1983 when it opened its new sales office in Cambridge Center.
Currently the Boston center provides day care for 30 community children
in
slots
children
contracted
of
of Social
by the Department
employees.
The
Cambridge
center
Services
has
12
DSS
(DSS),
and
25
slots
and
18
positions for employees' children.
Employees pay 10 percent of their gross weekly wages for each child care
slot per week,
contribute
balance.
but
if
their earnings
are
over
$250
per week then they
makes up
the
The actual cost of running the center in Boston is around
$75
15
percent
of their weekly wages.
- 103 -
The company
per child per week.
In Cambridge the figure is
around $85.
In
1983 Stride
Rite provided $158,000 to support both centers.
According to the director of Stride Rite's two child care centers,
company's managers feel their
in
investment in
attracting and keeping qualified
child care "pays
personnel
public image of the corporation it generates.
of community
children
as
well
as
the
as well as in
for
the
itself"
the positive
She stressed the inclusion
children
of
company
employees as
crucial to the company's community relations.
Toward Joint Commonwealth-Corporate Employer
Support of Child Care at the
Boston State Hospital Site
Further Investigation
DCPO staff and the Child Care Task Group for the Boston State Hospital
Advisory Committee should conduct further research of employer support of
child
care.13
Key
areas
where
more
information
is
needed
include
following:
1. Tax Incentives for Employer Supported Child Care Programs
2. Child Care Needs Projection
possible demographic
the
of
profile
A more detailed
site's potential work
Hospital
composition of the Boston State
force, should evolve from the in-progress operations center
survey discussed in Chapter IV and exploration of other
This will help in projecting the
job-creating re-uses.
Local child care
development's potential child care needs.
needs in the neighborhoods should be assessed to project the
Interviews of actors
need for community child care slots.
involved in the transportation agencies' employee survey and
relocation also appear useful as does and analysis of their
survey results.
3. Financial Feasibility of Employer-Supported Child Care
- 104 -
the
An in-depth review of organizations' experience with work
site child care provision and other child care support
programs would help determine the financial feasibility of
child care support efforts for the Boston State Hospital site
conducts
Center
The Child Care Research
redevelopment.
various
about
"Employer Project Seminars" to educate employers
14
methods of supporting their employees' child care.
4. Linkage with Other Initiatives
is
Project
Partnership
Day Care
Governor's
new
The
regarding,
Governor
the
for
recommendations
policy
developing
among other concerns, the allocation of state day care
subsidies and how state resources can be used to encourage
Final
services.
care
day
in
invest
to
employers
in
Governor
the
to
submitted
be
will
recommendations
September.15 The DCPO should follow the events and outcomes of
this project.
Perhaps the Boston State Hospital site can provide a setting where both
the
State
employees'
and
corporations,
child
care.
as
Strong
employers,
support
provide
for
child
support
care
for
their
services
especially necessary to provide job access to low-income single mothers.
- 105 -
is
Notes to Chapter VII
1. Mass. Human Services Coalition, Inc., Up the Down Escalator, February
22. The $60/week cost estimate is consistent with what most
1983, p.
parents surveyed in the State Transportation Building day care survey in
late 1983 payed for full-day care per week.
2. According to views expressed at the Planning Forum on Women in Poverty,
the Mass. Human Services Coalition, Dec. 14, 1983 and at a Public Forum
for the Governor's Day Care Partnership Project, May 1, 1984.
3. Up the Down Escalator, p.
22, DSS slots contracted in FY1982.
4. Planning Forum and Public Forum.
Building
Transportation
State
5.
Preliminary Results, January 19, 1984.
Day
Care
Questionnaire
Survey:
6. As estimated by the director of Stride Rite Children's Centers.
7. (1/35) x (833 state jobs + 333 corporate jobs) = 33 day care slots;
(1/35) x (1,500 state jobs + 667 corporate jobs) = 62 slots.
8.
ASIAN,
Inc.,
The Child Care Job and Economic Development Project --
Model for Job Creation in
Summary Report, May 1981.
Small Business Child Care Service
9. The Bank of Boston, the Federal
Gillette, Stride Rite and Massport.
10.
Child Care Resource Center,
Reserve
Bank,
New
A
Enterprises,
England
Life,
A Statewide Profile of Employer Supported
Child Care, January 1983, p. 2.
11. A Statewide Profile, p.
1.
12. Interview with the director of Stride Rite's Children's Centers.
13. Several resources are listed in the Bibliography.
14. I am arranging DCPO participation in one of these seminars.
15. Letter from Joan Quinlan, Governor's Advisory
Child care advocates, March 29, 1984.
- 106 -
on Women's Issues, to
VIII.
CONCLUSION:
RECOMMENDATIONS TO THE DCPO
After developing an understanding
Chapter
II,
four
employment
of the local
development
unemployment
were
goals
project in
Boston State Hospital site redevelopment
problem in
presented
Chapter III.
for
the
Briefly,
these goals are:
1. The Boston
quality
create
characteristics.
site redevelopment
labor
primary
State Hospital
with
jobs
should
market
2. The Boston State Hospital job creation project should
target jobs to local residents who face disadvantages in the
labor market.
3. The Boston State Hospital site redevelopment project should
prepare the local disadvantaged labor force, through training
and other employment services, to qualify for jobs created on
the site.
4. Access by single mothers to jobs created by the re-use of
the Boston State Hospital site requires that child care
services be made accessible to employees.
is necessary to
these goals
Fulfillment of each of
promote access
to
employment by Boston State Hospital area residents who face disadvantages
the
labor
market.
fulfill
these
goals.
in
against several
Chapters
An
IV
through
employment development
development
center
operations
explored
VII
strategies
was
measured
Target group employment
criteria.
goals for construction and permanent jobs were reviewed as examples
the
Boston
State
service strategy
linking
the
Hospital
project.
A
plan
for
an
immediate
for Boston State Hospital area residents,
local
employment
and
training
- 107 -
to
system
to
for
manpower
and a plan for
on-site
job
opportunities, were outlined.
by
was
employees
on-site
Finally, the need for child care services
roughly
into
investigation
an
and
projected
approaches to fulfill that need was begun.
will
DCPO
The
for
committee
advisory
citizens
a
identify
soon
the
The Boston State Hospital Advisory Committee will work with the
project.
DCPO to issue development guidelines, which will serve as the basis
for
land disposition legislation and a request for development proposals.
At
this point in the project's evolution, there are several actions which the
strategy
taking in the four employment development
DCPO should consider
areas.
Job Creation
1. The DCPO should continue the pursuit of corporate operations centers
as
a
job creation strategy.
center
centers
operations
labor
primary
offers
market
centers
operations
substantial
generate
could
and,
numbers
the
many of
new
of
reach
Employment
jobs.
of
in
the
programs,
training
and
economically
of
an operations
characteristic
qualities
education
basic
with
seem within
job
IV,
As discussed in Chapter
disadvantaged
residents in the Boston State Hospital area.
The
pursuit
should
centers
operations
facility needs
to
determine
and potential
the market" for the site,
positive
skills
qualities.
and
together
education
with
the
include
Such
completion
To
site.
levels
profile
that
publicly-provided
could
be
used
local ~residents
training
- 108 -
and
of
site
and
continue
the DCPO should profile the local
a
review
requirements,
companies' labor
demand for the
DCPO's
the
of
to
have
"testing
labor force's
demonstrate
attained
placement
the
which,
services
and
support
care, offer potential employers a
like child
services
qualified
The profile would be useful for pursuing any job creation
pool of labor.
re-use of the site (to "market" the labor force).
The DCPO should explore the development of small community businesses
2.
The
community
businesses.
working group for
business
carried
DCPO,
the Community
State
should
project
Hospital
Park
Lena
associations,
the
from the
the
Corporation,
Development
Corporation,
Finance
be
local area mechants
Development Coordinating Council,
Development
Community
the Boston
community
small
a
of
This working group should include representatives
out.
merchant
and
formation
the
for
Plans
for
space
of
inclusion
the
request
should
project's RFP
on-site.
Community
Economic
Development Assistance Corporation and the Executive Office of Communities
and Development. This working group might also include a representative of
the Bank of Boston's community
investment department
in
to link up
order
with their small business development program.
Besides researching
for the community,
to
and developing
this working group should also evaluate the jobs likely
be produced by such enterprises.
form
to
I
what
on-site small business possibilities
have
done
The evaluation could
operations centers
for
including the criteria of number, quality, earnings,
It
mobility opportunities.
is
be
in
IV,
Chapter
benefits and upward
likely that such an evaluation would
that on-site small business jobs (in
typically
jobs
be similar in
show
and service enterprises) would
retail
low-paying and offer insufficient
benefits.
The
number
of
jobs generated would also be small relative to larger-scale industry.
Nevertheless,
experience
for
such
would
employment
in-school
be
appropriate
Moreover, if
youth.
-
109 -
designed
early
work
carefully,
small
as
community businesses on-site could provide some local residents with small
better
serve
to
able
ventures,
non-profit
community-owned,
the
social
businesses might
on-site
small
wages
adequate
of
objectives
as
organized
If
experience.
ownership
and
management
business
be
and
benefits.
3.
The
DCPO
development on
should
continue
the
of
investigation
Analysis of the Bank of
the Boston State Hospital site.
As with other
Boston's industrial survey is the next step in this regard.
job creation strategies, a potential light
for its
be evaluated
ability
to generate
industrial
jobs,
industrial
light
development should
and the typical earnings,
benefits and opportunities for advancement provided by those jobs.
Target Group Employment Goals
1.
The DCPO should include in
employment
goals
for
the
the RFP specific target group percentage
project's
construction
jobs,
such
as
those
suggested on page 75.
2. The RFP should
which estimate
request developers
for each development
projections
to submit employment
scheme
the numbers and types of jobs
that might be available for members of the various target groups who face
disadvantages
in
the
labor
market,
and
the
likely
wages
and
benefits
offered by the permanent employers the developers have in mind.
3.
The RFP should also instruct developers
for how they would work with the Neighborhood
Agency/Boston
agencies,
Private
Industry Council and
to include
employment
Development and Employment
other
employment
and
the DCPO/BSH Advisory Committee and the development's
training
permanent
employers to facilitate job access by members of the target groups.
- 110 -
plans
The
RFP
should request that
develop
percentage
goals
employment
various
the
for
a willingness
include
plans
such employment
for
groups
target
to
The goals are necessary to provide lasting focal points
permanent jobs.
for the public purposes of the development.
Employment and Training Services
1. Regardless of what the specific on-site jobs turn out to be, if they
are
labor market
primary
requirement
jobs
the
carry
will
they
To address the
equivalent.
of a high school education or its
entrance
effective
low levels of educational attainment of many of the Boston State Hospital
residents
area's
the
current
and
education
basic
of
supply
scarce
This
occupational literacy programs in the local area must be increased.
funding
If
Initiative."
Area Employment
the
the
possible,
at all
from the Executive Office of Economic Affairs
of
Department
and
Communities
Employment
Agency
Corporation
to
(NDEA)
the
for
Development
and
immediately
program.
literacy
the Boston State Hospital site,
office.
Perhaps
state
Development
dollars
and
private
be
could
be housed
an
on
on Blue Hill Avenue or at the Lena Park
funding
committed
to
such
a
foundation
grants
(to
Lena
additional Boston State Hospital area employment services.
-
111 -
State
Boston
Hospital area literacy program through the DCPO could leverage
city
basic
one
of
and might
of
and
Development
program
Initiative
extension of the NDEA's Adult Literacy
Office
Executive
minimum
The
obtain
(channeled through
Community
Park
a
begin
DCPO should
Neighborhood
Lena
the
the
or
Development)
Manpower
education/occupational
CDC
"Boston State Hospital
be the primary focus of the pre-development
should
Park
additional
CDC)
for
Besides
2.
a
minimum
of
literacy
education/occupational
basic
one
program, the Boston State Hospital Area Employment Initiative might also
include the range of employment services discussed in Chapter VI. At least
a local office is
if
and
training
can
residents seeking jobs
opened for literacy training,
counseling,
to the
be referred
training and
placement
system located predominately in downtown Boston.
Child Care and other Employee Support Services
developers
to include
feasibility
of various
the RFP the DCPO should request applying
1. In
child care space in their plans.
2. The
employer-Commonwealth
joint
to investigate
DCPO should continue
is
the
provision
Stride
of
Rite
non-profit
at
child
care
model
suggests
centers'
care
affordable
that
a
care
day
for
area of information
A critical
day
relationship between
for
strategies
support
State Hospital site employees.
the
costs
center
operating
to
working
should
be
Boston
to pursue
costs and
the
parents.
The
as
operated
a
enterprise with tuition per child limited to around 10 percent
of an employee's gross weekly wages.
The DCPO should form a child care working group
for the redevelopment
project and representatives of the Governor's Day Care Partnership Project
should participate in such a group.
3.
When
considering
the
critical
support
employment accessible to individuals who
affordable
target groups,
local day care
undoubtedly
required
face disadvantages
market, this thesis has focused on child care.
of
services
to
make
in the labor
While the positive effects
spill over
to
benefit
several
affordable day care particularly enables low-income single
- 112 -
mothers,
"impact
a large proportion of the Boston State Hospital project's
area' population, to choose work as a viable alternative to welfare.
Child care is
thus illustrative of a range of support services the DCPO
should pursue that address the work participation needs of disadvantaged
Boston State Hospital area residents.
public
transportation,
counseling,
and
career
Such support services as improved
counseling
and
development,
family
legal services and health care enable workers to economically
psychologically
development,
maintain
the DCPO should
their
work
link on-site
participation.
Community
on-site
jobs
should
College.
include
To
career
jobs to programs such as those
offered by the UMass-Boston College of Community and
Roxbury
For
adequately
address
health insurance
Public Service
health
plans as
care
and
needs,
part of workers'
benefits.
*
The Boston
communities
proportions.
State
where
Hospital
the
*
site
*
stands as
deprivation
of
a
rich land
employment
A comprehensive employment development
has
resource
reached
among
crisis
plan such as the one
begun here can break down the employment barriers which confront the local
poor and allow jobs generated on the site to accrue to local disadvantaged
residents.
- 113 -
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