DEPARTMENT OF LABOR S WELFARE TO WORK PROGRAM

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2 INTRODUCTION When the employment services portion of the Jobs First program was moved from the Department of Social Services (DSS) to the Department of Labor (DOL) starting July, 1998, both agencies worked together to meet the difficult task of moving more than 26,000 time-limited recipients of Temporary Family Assistance from the DSS employment services system to the DOL employment services system. Transitioning families was not the only major challenge faced this year. It was necessary to tackle the difficult task of placing individuals who faced tougher employment challenges, with little or no employment history, lack of job skills, language barriers and other obstacles. The staff involved in the program have worked very hard with these families to prepare them for employment. Participants were taught how to present themselves, how to act professionally, how to find a job, and how to conduct themselves during an interview. Families were helped to increase their literacy and skill levels. Most importantly, participants have said that the program helped them develop confidence in achieving their goals. Such success was possible only by the close work of the staffs of DOL, DSS, the State s eight Regional Workforce Development Boards (RWDBs) and their contractors, all of whom have done an outstanding job in making this work. During this year, in conjunction with the Regional Workforce Development Boards, the federal Welfare to Work grants to states program was also implemented. This complements the Jobs First program by providing services to the hardest to employ, to non-custodial parents of children receiving cash assistance and to those no longer eligible for such assistance due to the State s time limits. This report describes the Department of Labor s Welfare to Work program, highlights activities for state fiscal year 1999, and describes challenges for the next year. There is also programmatic and financial data presented throughout the report. DEPARTMENT OF LABOR S WELFARE TO WORK PROGRAM The Department of Labor s Welfare to Work (WtW) program consists of the Jobs First employment services and the federal Welfare to Work employment services. The Jobs First employment services provide

3 employment services to recipients of Temporary Family Assistance (TFA). This is Connecticut s cash assistance to low-income families program using federal Temporary Assistance for Needy Families (TANF) funding. This is administered in partnership with the Department of Social Services and the Regional Workforce Development Boards. The employment services under the federal Welfare to Work grants create additional job opportunities for the hardest to employ TANF recipients and non-custodial parents of minors who are TANF recipients, and for those no longer eligible for TANF due to the state or federal time limits. The Welfare to Work program services are provided through the 18 Connecticut Works (CT Works) offices. CT Works is a partnership of thedepartment of Labor, the eight Regional Workforce Development Boards, and other state and local agencies that provides quality workforce development. Jobs First Employment Services Welfare families with an adult or minor parent able to work generally have 21 months to reach independence through employment (minor parents who are in school are exempt from the time limit). These families are referred to as time limited welfare families and during the 21 months the parents are required to seek employment. Connecticut s Jobs First employment services serve these families. The goals of the Jobs First employment services are to help welfare recipients become independent of welfare through employment by the end of the 21-month period and to enable them to remain independent. Another goal of the program is to meet the federally established rates for participation of welfare recipients in employment and training activities. Balanced Work First Connecticut s Jobs First employment services is a balanced work first program. This means that if the welfare recipient is capable of going to work, he or she is expected to work. It also means that if welfare recipients are capable of working, but need education or training to improve earnings to better support their families, they will be expected to work while receiving that training. In some cases, work follows upon completion of intensive, short-term training or education. All recipients receive help in preparing and looking for a job, transportation assistance and help with payment for child care.

4 There is a range of services provided, including preparing for a job, finding a job, skill development, vocational education, adult basic education, and substance abuse and mental health treatment. Case managers assigned to welfare recipients at CT Works help them access the services needed, including matching them to jobs that are available. CT Works provides some of these services directly using DOL and Board staff. Some services are provided by community based organizations under contract with the Boards, and some are provided by other agencies and community resources. Some services are funded through TANF, some through federal Welfare to Work, and some through other sources of funding. Other supports include transportation assistance while participating in Jobs First employment services, a special participation allowance for short-term activities, and subsidies for child care through the Department of Social Services. CT Works served 22,180 welfare recipients for the eleven months from August 1998 through June Federal Welfare to Work Employment Services The federal Balanced Budget Act of 1997 introduced the federal Welfare to Work (federal WtW) grants. These grants are provided to states and local communities to create additional job opportunities for the hardest to employ welfare recipients. These include non-custodial parents of children in welfare families and those no longer eligible for welfare due to the state or federal time limits. The federal WtW program complements the services provided under Jobs First employment services by funding additional activities that help the hardest to employ. Additional education and training is available once the individual is connected to the workforce through employment, community service, work experience, or on the job training. At least 70 percent of the funds must be spent on people with certain barriers to employment, and up to 30 percent may be spent on those with characteristics associated with or predictive of long-term welfare dependence. The federally imposed eligibility requirements for the period covered by the report were very restrictive and as a result not everyone who might benefit from the program was eligible. Most of the people served under the federal WtW program in Connecticut were recipients of Temporary Family Assistance. At least eighty five percent of the State s federal WtW funds go to the Regional Workforce Development Boards (RWDBs), and up to 15 percent may be retained by the State for projects that serve eligible individuals. The RWDBs administer the program at the local level, generally at the CT Works centers, by contracting with local service providers. The RWDBs or their contractors determine eligibility for federal WtW, provide the specified services and track and monitor individual outcomes. The RWDBs are responsible for providing the Connecticut Department of Labor with both financial and programmatic data for federal reporting purposes.

5 The Connecticut Department of Labor is responsible for monitoring the program, and for financial and program reporting to the US Department of Labor. The goals of the federal Welfare to Work program in Connecticut are to help hard to employ TANF recipients and associated non-custodial parents to obtain and retain employment. Like the Jobs First employment services, it is a balanced work-first program. During state fiscal year 1999, 4,339 people were served (it should be noted that the federal Welfare to Work funding did not become available until October, 1998). ACTIVITIES FOR STATE FISCAL YEAR 1999 July 1998 through June 1999 This year was a busy one for all agencies involved. Much was accomplished. The following are highlights of activities for the year. Cooperation This year saw a high degree of cooperation among the three major entities involved in the Welfare to Work program: the Departments of Labor and Social Services, and the Regional Workforce Development Boards. On the state level, joint planning was conducted for the program. On the local level staff from the three entities have worked together to make the program work operationally. This coordination and cooperation has been critical to the implementation and successes of the program. In addition to this, the community service providers have worked closely with the programto make it work. Jobs First Employment Services: Transition to CT Works In conjunction with the Department of Social Services and the Regional Workforce Development Boards, the Department of Labor implemented a new service delivery system for the Jobs First employment services on

6 July 1, The new service delivery system was implemented pursuant to Public Act 97-2, June 18 Special Session, as modified by Public Act More than 26,000 people were subject to the Jobs First program s work requirements. The objectives of the new service delivery system were to reduce duplication of services, coordinate contracts, and to maximize the use of federal funds. A design group consisting of members from the two state agencies and the Boards developed the new service delivery model. The model called for DSS to record certain assessment data and to refer the participants to the CT Works centers. This would follow the determination of eligibility for TFA for new applicants and at the next redetermination of eligibility for existing recipients of TFA. At the CT Works centers, an orientation to the world of work was provided. This included an employability screening to determine the next appropriate step. In keeping with the work-first approach, people are first required to try to find a job. This is usually done through job search activities, which range from individual job search to job clubs and formal Job Search Skills Training. Individuals who already tried to find a job and who were unsuccessful and those potentially eligible for the federal WtW program were referred to the Boards for additional assessment and testing. TFA participants unable to become independent from welfare without further education or training were referred for these services. Additional training and education was combined with work whenever possible. Jobs First Employment Services Procurement In addition to providing employment services directly through its 18 CT Works centers, DOL also contracted with several entities to provide a range of Jobs First Employment services. DOL allocated $10,000,000 of TANF employment services funds to the eight Regional Workforce Development Boards for the procurement of direct client services. Individual Board allocations were apportioned relative to the Temporary Family Assistance population within each service delivery area. Each board conducted a needs analysis to determine the types and levels of services needed in their region. The resulting contracts specified a minimum number of TFA recipients to be served and an overall goal for people getting jobs. Contract payments were made on a combination of cost reimbursement and the attainment of performance benchmarks. The benchmarks were having 50 percent of all clients served entering employment, 13-week job retention, and enrolling at least 40 percent of clients in work activities that count toward meeting TANF participation rates. DOL also allocated $588,000 under a statewide contract with the State Department of Education in order to provide vocationally-focused remedial and adult education activities for TFA recipients within the Coordinated Education and Training Opportunities (CETO) Program.

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11 In addressing the need to assist harder-to-serve clients, DOL negotiated a $1,100,000 contract with the Connecticut Council of Family Services Agencies (CCFSA) to operate a new program called Project S.O.A.R. (Services, Outreach, Assessment, and Retention). This provides for early intervention of intensive case management services to assist some TFA recipients in maintaining participation in work activities. Continuous Improvement While implementing this new service delivery system, the three entities involved continued to review the system to identify areas in need of improvement. A design group was established consisting of three members each from DSS, DOL, and the Boards. The purpose of the group was to resolve any problems and to more fully explore others areas, such as the need for case management and to address the conciliation and sanctioning process. As a result, a number ofsignificant improvements to the service delivery model were implemented. This included conducting joint orientation and assessment sessions to streamline the process, and developing a method of fast-tracking clients who self-initiated entry into the system or who were recruited by service providers. The design group further agreed upon the need for standardized case management and the method of implementing it, scheduled to begin July The design group continues to meet to address additional implementation issues and concerns. Case Management Planning Based on the agreement of the design group, the DOL, in conjunction with the Boards and DSS, developed guidelines for case management to be implemented starting July It was agreed that the Boards would contract with a community-based organization to provide case management, subject to guidelines developed by the design group and issued by DOL. Under these guidelines, case management consists of assessing employability, developing the employment plan, arranging for services, and monitoring and documenting client progress. Case managers do not provide any direct counseling, social work services, or intensive retention services themselves. If these services are needed, a referral is made to an appropriate agency. Balanced Work First Guidelines

12 Based on the experiences of the first year, the Department of Labor developed comprehensive planning guidelines for the Boards to plan the next year s mix of activities. These guidelines were issued in May, During the first year, the emphasis was on getting people into the new system. Due to the high numbers of people who were new to the system, most were involved in job search assistance activities and in job search. In the second year most families will have completed such activities, and a different mix of services will be necessary to deal with those who have been unsuccessful in becoming and remaining independent of welfare. Examples of this are providing education and training and supports to address client barriers to employment. The guidelines are to ensure that the different mix of services will be available, but still within the context of a work-first model. Case Management and Information System During the year the Department of Labor began the process of procuring a vendor to design, develop, and implement the Case Management and Information System (CMIS) which is required under section 119 of Public Act 97-2, June Special Session. This system will be the primary support for case managers in helping people transition from welfare to work. The system will also support the operational and management needs of the State in its administration of the delivery of employment services. A project manager was hired, the functional requirements of the system determined, and an RFP developed and released. Federal Welfare to Work The department successfully implemented the new federal Welfare to Work grants. Guidelines were issued to the Regional Workforce Development Boards for implementation, and mechanisms set up for monitoring and for meeting federal reporting requirements. The Boards allocations of federal Welfare to Work funds were made available in October. Under the federal Welfare to Work grants, the Governor may use up to 15 percent of the funds for statewide projects consistent with the purposes of the program, and for individuals eligible under the program. A total of $1,650,891 in Governor s reserve was used to fund projects designed to help the hardest to serve to become

13 or remain employed, and to increase their earnings. These projects ranged from post-employment mentoring and case management to computer facilitated, home-based distance learning. Cost Effectiveness In the Jobs First employment services, 22,180 people were served at an average cost of $ per person. In the Federal Welfare to Work employment services, 4,339 were served at an average of $1, per person. It is important to note that these figures need to be evaluated based on a number of considerations. First, they are averages, meaning that some participants received less than the average, some more. For example, a new TFA participant might have been able to find work without any services, whereas another might need extensive services to become employed. Second, they are figures for the year covered by the report. Some participants receive services in more than one year. Third, many participants receive services not funded by either the Jobs First or Federal Welfare to Work employment services, such as adult education and JTPA. Fourth, some received services from both Jobs First and Federal Welfare to Work employment services. Lastly, for both programs it was a start-up year, and for Federal Welfare to Work, the money was not available until October of CHALLENGES FOR NEXT YEARNancy Wiggett, Director Welfare to Work So much was accomplished in this year of transition. The tremendous efforts of the planners and the many front line workers in the state agencies, the Regional Workforce Development Boards and service providers are greatly appreciated. Most of all, I would like to congratulate the participants for their hard work, persistence and successes in moving toward independence. We, who plan and develop the programs, should never forget that it is one thing to talk about the road to independence, and quite another thing to travel that road. We can be proud of our implementation of the new service delivery model, our collaborative efforts, the number of participants served and percentage who went to work, but we must now turn to improving what we have begun. There is much work yet to be done. Last year, the challenge of implementing a new service delivery model required us to focus primarily on quantity. Large numbers of participants moved into the new system and received services. Some received the

14 services they needed and moved on to independence. Others received some services and are still struggling along that path. Still others may not have reached the services they needed to not only become independent, but to remain independent. We need to shift the focus in the coming year to address the multiple needs of participants as they strive to achieve long-term success in employment and long lasting independence from welfare while meeting the federal work participation rates. Implementation of Balanced Work First A balanced work first approach is necessary to accomplish not only independence, but permanent independence. We need to not only help participants obtain jobs but to help them increase their earning power. This will increase the eco-nomic stability of the family and reduce the incidence of return to welfare. Families in extensions in particular need increased wages made possible through additional education or training activities. At the end of the fiscal year, more than 40 percent of the time-limited caseload was in an extension. This means that during the first 21 months they were not successful in obtaining employment with earnings at least equal to the payment standard, despite their best efforts. This does not meet the goals of the program and needs to be addressed. Additional education and training activities will help participants become and remain independent from welfare. The department will monitor the implementation of the balanced work first approach to ensure that a necessary balance is struck between work and other activities that increase literacy and skills. Collaboration on the Hard to Serve In recognition of the changing characteristics of the caseload, the Departments of Labor, Social Services (including the Bureau of Rehabilitative Services), Mental Health and Addiction Services, and Children and Families have formed a new collaborative. Representatives from these agencies are discussing how to improve the effectiveness of service delivery to participants with multiple or severe barriers. The barriers being addressed by the group are: emotional and mental health issues, substance abuse and addiction, physical health problems, low levels of literacy and math skills, learning disabilities and family violence. The goals for this

15 year are to develop a screening tool for case managers and other workers to use to assist in the identification of individuals with one or more of these barriers and to develop procedures for referral to available services. Training will also be given to the case managers and other appropriate workers in the field. Sanctioning An area identified as needing attention is the sanctioning process. In order for the Jobs First employment services process to work, application of sanctions needs to be timely, uniform, and fair. It became apparent that the sanction process needed improvement to meet these standards. The design group identified this as an area for improvement and a sub-group was established to address this issue. Federal Rules Governing Jobs First Employment Services The federal rules governing the Jobs First employment services program are quite complex. The federal rules mandate that a certain percentage of participants be engaged in certain activities. This leads to a concern with process rather than outcomes. For example, the regulations focus attention on percentages participating in activities rather than numbers leaving welfare due to employment. Further, the rules governing what counts towards meeting these activities are quite complex. This has resulted in inconsistent application and the need for significant technical assistance. Case Management It became apparent during the course of the year that a significant aspect missing from the program (especially in the Jobs First employment services) was case management. Unlike most other workforce development programs, the Jobs First participant does not initiate contact with the system. Rather, the participant is there because of the mandatory nature of the employment services when a person is receiving time-limited TFA.

16 Participants were referred to various service providers with no central system to track and ensure they made it through the process. Case management is seen as critical to the success of the participant in becoming and remaining independent of welfare, and also to the success of the State in meeting TANF participation rates. A major initiative for next fiscal year will be the implementation of case management for every participant in the Jobs First and federal Welfare to Work employment services programs. The goal will be to have case management in place at the target caseload of between 125 and135 by January 1, Implementation of Case Management System In order to work successfully with participants, case managers need computerized support. To provide this support, and to comply with section 119 of Public Act 97-2, the department initiated a project to implement the Case Management and Information System (CMIS). The system will support the case manager in recording assessment data and the employment plan, recording referrals to service providers, and in monitoring and tracking participants in the program. The system will also collect data necessary to meet federal reporting requirements as well as state management and operational reporting. Development of the CMIS will proceed throughout the year. The goal is to have a contractor begin work on implementing the system by January 2000, and to have the new system operational in the summer of Implementation of Recommendations of the Employment Services System Evaluation by CWEALF The report of the employment services program by Dr. Alice Pritchard of the Connecticut Women s Education and Legal Fund (CWEALF) issued in June contained many excellent recommendations for improving the program. Some have already been implemented, some are being implemented, and all will be implemented. Some of the more important recommendations are: To improve consistency in interpretation and implementation, issue a policy manual and educate board and vendor staff on the rules and regulations. Clarify roles and responsibilities for all agencies involved, and focus on strengths and abilities of groups to assist the State in meeting the program goals.

17 Expand the types of occupational training programs available to clients, particularly in higher wage, higher skill, and non-traditional occupations. Document that clients are provided a continuum of services, including incumbent worker training, that promote their transition from assistance to independence. Implement case management statewide to provide improved client services and case tracking. Fast track the implementation of the Case Management and Information System. Market benefits of the program to clients. The current message emphasizes mandatory activities rather than benefits of participating in the employment services system. Federal Welfare to Work The federal Welfare to Work program brings needed funding to the State to serve participants in the employment services program as well as non-custodial parents. However, the eligibility rules for the federal Welfare to Work program have been problematic. It has proven difficult to serve clients under these rules, and this has accounted for the low number of people served and the low amount of money spent during the period covered by this report. The federal government has modified the eligibility requirements, but the program has not been reauthorized. The Department will be analyzing the eligibility changes and working with the Boards to implement them. Meeting TANF Participation Rates In helping individuals to achieve independence from welfare, it is critical that we combine activities in ways that will enable Connecticut to meet the federal TANF participation rates. The new balanced work-first approach is one way to achieve this. Close monitoring of the program will continue with the goal of making necessary adjustments to meet the participation rates. DOL will continue to work closely with the Department of Social Services to reach these goals. Workforce Investment Act

18 The Workforce Investment Act of 1998 re-writes federal statutes governing job training programs, adult education and literacy, and vocational rehabilitation. The core of the legislation sets up a new workforce investment system and establishes a new, more comprehensive One-Stop delivery system in each local workforce investment area. Here participants can receive all of the core services, and access more intensive employment and training services. In this coming year we need to determine the role of the Welfare to Work program in this new workforce investment system. We need to take advantage of the opportunity to become more integrated with the overall workforce investment system to better serve our customers and meet program goals.