January 2023
Forging a New Path
The City of Los Angeles Builds an Alternative Job Pipeline
The City of Los Angeles knew that it wanted to provide an alternative pathway into city civil service jobs, one that offered career opportunities to underrepresented populations that often face barriers to employment.
This desire led to the creation of L.A. Local Hire, a City of Los Angeles initiative consisting of two programs: Targeted Local Hire (TLH) and Bridge to Jobs (BRIDGE).
Created out of an agreement between the Coalition of City Unions and the City of Los Angeles, TLH provides individuals an opportunity to be randomly selected for referral to city departments for hiring consideration into entry-level jobs. As part of the agreement, the city agreed to develop alternative job pathways for underserved populations, in collaboration with the Coalition of City Unions, via the TLH Working Group. Later, Mayor Eric Garcetti released Executive Directive 15, supporting the TLH program and urging all city departments to fill full-time vacancies using the TLH program, when feasible.
Since launching TLH in February 2017, Los Angeles city departments have hired nearly 1,500 individuals. Since the jobs offered through the TLH program are truly “entry-level,” there are no minimum work experience, training or education requirements. For TLH, the only requirement to apply is to be deemed “job ready” by one of the program’s approved referral agencies.
Referral agencies assess candidates’ job readiness on an individual basis. Case managers make these determinations based on their expertise with the communities they work with, and ensure that candidates are prepared to do everything it takes to successfully work a full-time job, while also ensuring that their basic needs are met. Referral agencies also assist with providing their clients any support, resources, training and so on that they need in order to ensure they are successful in their positions.
The TLH Working Group realized that an on-the-job training component would be necessary to train employees with little to no experience. Additionally, departments were excited about the program, for several reasons.
One, it offered an additional hiring pathway for them, and proved to be much quicker than the traditional hiring process. The on-the-job training also provided them with salary savings, as trainees start at a lower pay, and produced extremely motivated and dedicated candidates.
In addition, TLH allows departments to evaluate employees on the job for their first year in the program. This is a much more effective method of evaluation than a written exam that assessed competencies such as interpersonal skills.
Finally, TLH has a network of support for its candidates and employees through city staff, community-based organizations and WorkSource Centers. WorkSource Centers operate in collaboration with the economic and workforce development department of the City of Los Angeles, and provide a variety of employment services to candidates, including job training, job listings, workshops, computer access, mock interviews, resources, legal services, referrals and more, while also supporting business and public agency hiring needs.
A Success Story
The TLH program was such a triumph that city departments requested adding more classifications to the program. Some of the classifications that departments requested did not fit within the framework of the TLH program, because they required some skills. Therefore, the Bridge to Jobs program was created.
BRIDGE provides individuals an opportunity to be directly referred to a city department for hiring consideration into a “semi-skilled job.” These are slightly higher-level positions than those in TLH, so candidates must show proof of a high school diploma or equivalent, have an approved certification, or pass a basic math and reading aptitude test to apply.
Traditionally, individuals looking for a career with the City of Los Angeles need to take a civil service examination. In order to take a civil service examination, applicants have to pass screening for minimum qualifications. Once applicants have met minimum requirements, they must take and pass the exam and score high enough to be placed on a two-year eligible list. TLH and BRIDGE reinvented these processes by providing an on-the-job training period that serves as the civil service examination. So, instead of candidates taking a test to apply, candidates are hired as trainees and are evaluated on the job in real time.
Candidates who qualify are then placed into a pool and are randomly selected to be referred to a hiring department. Once candidates are randomly selected and referred, they participate in the departmental selection process. While both programs target individuals with barriers to employment, anyone that meets the requirements of the programs may apply. It is not mandatory for applicants to self-identify in any of the program’s targeted categories, but it does give them a higher chance to receive a referral.
Currently, the programs target the following populations: veterans, individuals with disabilities, transgender individuals, older workers protected under the Age Discrimination in Employment Act of 1967, disconnected/foster/transition age youth, former gang members, individuals formerly and presently experiencing homelessness, those who live in designated City of Los Angeles zip codes with areas of high unemployment, and formerly incarcerated individuals.
Those hired through TLH begin as a vocational worker or an office trainee, with an on-the-job training period. During this six-month period, TLH employees receive at least $17 an hour with training, pension and health benefits.
Expanding the Program
In the BRIDGE program, employees begin in the “Trainee” class, where they receive training for six months to five years, depending on the specific class. During this period, employees receive at least $19 an hour with training, pension and health benefits.
After employees complete the on-the-job training period, they are evaluated by their supervisors and placed on a civil service eligibility list based on that evaluation. They are then appointed from the eligibility list to an assistant class, where they serve a six-month probationary period for civil service status. After successful completion of the probation period, they are transitioned into full civil service and may apply for eligible transfers and promotions.
The backbone of the program was developed by taking an innovative approach to City charter provisions. City charter provisions require the testing and ranking of candidates through examinations, but they do not define an “examination.”
The Working Group determined that on-the-job program performance reviews could be considered an examination that would take the place of a paper and pencil or computer test. This interpretation was validated by the City Attorney.
To meet this requirement, department supervisors use standardized evaluations measuring competencies that successful employees in the target class should be meeting. A passing grade on these evaluations is required for employees to move on to their probationary period and subsequently to their civil service position. If it appears employees are struggling to meet expectations, they are provided training and are linked to resources through program partners and WorkSource Centers.
Initial development of TLH was met with hesitation. Through regular and consistent meetings with stakeholders and through the help of champions on City Council, Labor, and City management, however, the program launched with great success. An essential part of this was making sure to meet with stakeholders even when it was not necessary.
This helped to develop relationships and support for the program, while also strengthening it by implementing valuable feedback and suggested changes. Additionally, the program is supported by a network of resources and services provided by partner WorkSource Centers, community-based organizations and educational institutions. The success of both programs is predicated on strong relationships with all of these key partners.
TLH is the first citywide program to create formal alternative pipelines into civil service jobs. Moving forward, City of Los Angeles staff aims to continue to expand the programs by adding more classifications and strengthening them by improving applicant, employee and department experiences.
City staff aims to incorporate more intensive training and development for employees in the programs as well. In addition, apprenticeship programs are currently being developed in order to provide similar pathways for more specialized classifications requiring specific qualifications not covered by LA Local Hire. The City of Los Angeles hopes that the success of LA Local Hire will inspire other municipalities to start their own targeted employment programs.
01 January 2023
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February 2023 Issue • HR News Article