This section lays out a practical, functional process and structure
that can be understood and used by both customers and those providing or
arranging for services and activities leading away from public assistance
toward Self-Sufficiency. The first of two elements describes a "flow"
process that guides individuals from activity to interaction to decision
and helps them make choices most appropriate for them. The second element
describes the components and interactive structure of the Welfare to Work
Self-Sufficiency Model and provides the connections necessary for customer
progress and success.
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Element I - Welfare to Work Self Sufficiency
Process
It has been the desire of the community for some time to define a process
which allows a customer to present at one location where an array of requirements
can be fulfilled and needs met, i.e., "one stop" servicing. The
goal of the Coalition's Self-Sufficiency Process is to do that for
anyone who is seeking workforce services, may be eligible for some form
of public assistance or is in need of wrap-around support services to move
toward self-sufficiency. Welfare reform and welfare-to-work requirements
have established the impetus for the development of this process to meet
the immediate needs of the TANF population but there is little doubt that
those members of our community who live at or near the defined poverty
levels, i.e., the "working poor"(those at 200% or below the federal
poverty income guidelines – FPIG), can also benefit from this process.
The 1999 poverty guideline for a family of four is $16,700. The Coalition has "case tested" the process to reveal and address as many barriers
to functionality and usability as possible but it is understood that what
is presented here will continue to evolve and modify as community conditions
and individual needs and requirements change.
The Self-Sufficiency Process is really a "road-map" for customer
and servicing personnel alike. It provides a visual picture of what happens
at each step and activity, how one proceeds from activity to interaction
to decision and clearly shows the various choices available along the way.
A primary goal of the process is to give each customer ownership of the
decisions reached and choices made with a specific understanding of the
benefits and consequences of each. Every customer should know as he/she
moves through the process what is available to him/her, what the various
options are within a particular availability and how to use the process
to get the services and supports he/she needs to succeed in moving toward
self-sufficiency.
In reviewing the process flow diagram, note that anyone who enters the
process will receive three types of information upfront: Welfare-to-Work
requirements and restrictions; Workforce Center services, options and requirements;
Self-Sufficiency wrap around services, eligibility and requirements. When
the "one stop" concept becomes a reality, case managers/advisors
from each area will provide their information collaboratively at the same
location and customers will complete the required/desired paperwork to
determine eligibility, qualifications and need levels for all at one time.
Each customer will be advised as quickly as possible about his or her eligibility
for various services, programs and supports. To the extent possible, case
managers/advisors will be cross-trained in the requirements and current
opportunities within all three areas (DHS, CTWC, and self-sufficiency planning),
so that clients may be directed to services appropriately. At any point,
a customer may decide not to accept certain benefits for various reasons,
even if eligible, but is not restricted from utilizing others as desired
and appropriate. Appropriate case managers/advisors will conduct on site
screening and assessment for all customers that request it and at a minimum
assisted individuals in making contact with the needed wrap-around support
service collaborative or mini-coalition described in Element II, The Welfare
to Work Self-Sufficiency Structure.
Current community circumstances dictate multiple entry points for customers
seeking services. This requires that as an initial step, organization representatives
need to be trained and capable in information and referral skills, content
knowledge and follow-up techniques so that customers receive what they
need to ensure success.
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Element II – Welfare to Work Self Sufficiency
Structure
The Welfare-to-Work Coalition Self-Sufficiency Model was developed
as the basis for capturing the vast array of requirements and needs faced
by individuals moving out of public assistance toward self-sufficiency
through sustainable work. Each block or component depicts a specific area
relating to core workforce services or wrap around subsistence and support
services. Customers coming into the Welfare to Work Self-Sufficiency Process
may require one, several or all of the services covered by each of the
blocks.
To effectively utilize the process described in Element I, it is essential
to operationalize the structure discussed here. The ultimate goal is to
define and describe a functioning collaborative or "mini-coalition"
of organizations interacting to provide the services needed in each block
area. Some areas have a highly interactive structure of several organizations
with clearly defined service provision processes. Others have much less
formal connections and may not relate at this time in any specific way.
This report attempts to describe each mini-coalition as clearly as possible
as it exists at this time, but in many cases Coalition members were
unable to gather complete or comprehensive information. The following descriptions
are not meant to be conclusive or final in any way, but rather a starting
point for better understanding and development of each area. It is the
hope of the Coalition that case managers will be able to use the
information to better connect customers with the organizations and agencies
that can best provide the services and activities needed for them to move
toward success in this Self-Sufficiency process. The following narratives
include where possible: the mini-coalition focus (what specific issues
are addressed), general description of services provided, general customer
eligibility requirements, general description of population(s) served,
list of organizations involved (Appendix "X" expands this to
show the organization, the specific specialty areas addressed and contact
information where possible and appropriate), and mini-coalition strengths
and challenges.
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Workforce Development:
Workforce development is a critical part of maintaining Austin’s
strong and competitive economy in today’s marketplace. The most effective
welfare-to-work programs in the country employ a balanced workforce development
approach that combines job search, education, job training and job placement.
Workforce development encompasses all of these components plus post-job
placement. The goal of the workforce development component of the Coalition model is to move TANF-eligible recipients into sustainable employment with
the goal of self-sufficiency.
Concurrent with workforce development efforts, the Capital Area Workforce
Development Board (CAWDB) has been working closely with the Austin Chamber
of Commerce and area employers. A clear understanding of the types of jobs
available and the training necessary for various positions is critical
for success of matching welfare-to-work participants with long-term employment
opportunities. Austin Community College's (ACC) analysis of job competencies
for employees in various jobs and defined basic skill sets for any job
facilitates this process.
The Austin/Travis County Welfare-to-Work Coalition complements
the efforts of the Capital of Texas Workforce Commission (CTWC) and the
Texas Department of Human Services (TDHS). CTWC and TDHS developed a Work
First service delivery model with a primary emphasis on employing TANF
recipients. Work First programs are designed to move participants into
unsubsidized employment as quickly as possible through job search and short-term
activities, including education, short-term training, or work-experience
activities.
The CTWC/TDHS service delivery model has two central components: the
CTWC approved CHOICES program, which is administered by the Capital
Area Workforce Development Board (through the Capital of Texas Workforce
Centers (CTWC) and the TDHS’s Texas Works program. Taken together,
these programs offer work-related assistance and supportive services to
eligible TANF recipients who comply with employment requirements (see Appendix for descriptions of these programs).
Balancing the needs of the employers for trained, skilled professional
staff against the "work first" requirement, which emphasizes
job placement prior to extensive job training, continues to present a challenge.
Many welfare-to-work participants may require considerable support and
remedial education before meeting the criteria set by employers. Extensive
collaboration of services among CTWC, TDHS, CAWDB, Coalition members,
area employers and participants is necessary for the smooth transition
from welfare to stable self-sufficiency. Increased involvement of area
employers will provide the opportunity for Coalition service providers
to understand employers' needs. At the same time, employers can be educated
about the unique requirements and supports that must be provided to potential
welfare-to-work employees to ensure their success.
An alternative to services delivered through the Work First model are
services available under the 1998 Workforce Investment Act, which allows
training and supportive services prior to a work placement. TANF recipients
who have multiple barriers to employment, such as low reading and math
skills, a history of substance abuse, and poor work history, are also eligible
for intensive services through Department of Labor Formula Welfare to Work
Grant funds. Initially, attempts will be made to place participants in
jobs that do not require a high degree of education.
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Job Placement
The goal of the Coalition is to assist participants in obtaining
meaningful employment or involvement in approved job activities. To achieve
this, participants and providers will utilize existing job placement systems
and participants will be guided through the One-Stop Workforce Centers
for specialized job development services.
Outreach, assessment, case management assistance, and/or job placement
services will be provided by organizations such as: DHS Texas Works Program,
Central East Austin Community Organization (CEACO), Austin Resource Center
for Independent Living (ARCIL), Housing Authority of the City of Austin
(HACA), Austin Outreach, Austin Recovery Center (ARC), Austin Interfaith,
Gateway, Austin Metropolitan Ministries, Capital Idea, other proprietary
colleges, Catholic Diocese, Huston-Tillotson, local Chambers of Commerce,
City of Austin, and Travis County. Participants will also receive self-sufficiency
case management services from an applicable Coalition organization. Some of these services include assessment and referrals to other Coalition member organizations and/or other community service providers for supportive
and subsistence services. TANF recipients will be guided to the CHOICES program, which is administered through One-Stop Workforce Centers. Eligible
participant will receive the following services: Work First Orientation;
job skills workshops; an employment planning session; individual job searches;
basic assessments; and other activities. Depending upon eligibility, skill
level and other factors, participants will be directed into jobs or job
related training or activities.
Federal law requires states to assess the literacy level of welfare
recipients and help them prepare for and find work. Participants will receive
CASAS and WorkKeys job skills assessment, or an equivalent assessment,
administered by Austin Community College (ACC) and other educational service
providers before employment planning and job search to ensure they are
adequately equipped with the knowledge and skills needed to obtain and
retain gainful employment.
According to assessment outcomes, participants will be placed in designated
Work I jobs and/or education and training programs. Participants may be
placed in a part-time, unpaid placement to gain real work experience. During
this placement, a stipend may be paid into an individual escrow account
for each participant.
- For more information on service providers, see Appendix.
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Job Training
The goal of the Coalition is to assist participants in obtaining
the knowledge, skills, and services needed to succeed in jobs and careers
that meet the workforce needs of Travis County.
Under the Coalition model, each participant will be assessed
(using CASAS, TABE, WorkKeys, etc.) and placed in the appropriate training
programs leading to successful and meaningful employment. These programs
include skills training, adult basic education classes, workplace literacy
training, and English proficiency courses. Participants will be referred
to Coalition member organizations and/or other appropriate community
service providers to receive training based on eligibility, assessment,
skills, and aptitudes, and the goals and aspirations of the client.
Austin Community College, Huston-Tillotson College, the American Institute
for Learning, Capital Area Training Foundation, Telecommunities Partnership
Program, Austin Business College, and other training organizations will
help participants meet education and training needs. Additional occupational,
skills training needs, and employment training, will be met by ACC, the
American Institute for Learning, Austin Area Urban League, Goodwill Industries
and other community organizations. Eligibility requirements may be based
upon income or other criteria that individual agencies may have established.
- For more information on service providers, see Appendix.
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Literacy
Nearly 3% of all welfare recipients in Austin/Travis County have no formal education. Poor basic reading and writing skills present
major barriers to lasting employment. The goal of the Coalition is to provide remedial education to prepare participants for basic job
skills training and education.
Services are available to offer the type of flexibility and support
that clients need to improve their literacy and education levels. Austin
Independent School District, Austin Community College and American Institute
for Learning have committed to providing a range of education services,
including ESL, Adult Basic Education, and Adult Secondary Education classes
and GED preparation. Eligibility requirements vary from program to program;
many require participants to be 17 years of age or older, and waiting lists
exist for some services.
The aforementioned programs do not constitute a comprehensive list of
all adult literacy programs. Nevertheless, many of the obstacles that make
it difficult for adults to complete literacy programs are common throughout
different programs. Some of these obstacles include transportation to program
site, lack of childcare, and the need to obtain immediate income. The latter
often means that clients find themselves in minimum wage jobs trying to
make ends meet instead of attending education programs to work toward improving
their professional opportunities. There is a contention between focusing
on job placement versus education. Often it is difficult for recipients
to find the time to be in class and to work simultaneously. This delineates
the great need that exists for interim support. Many programs recognize
the difficulties confronting clients and try to offer support and flexibility
where possible. The challenge for case managers lies in balancing the "work
first" mentality with the long-term educational payoff provided by
attending a literacy program. .
- For more information on service providers, see Appendix.
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Education
The goal of the Coalition is to provide basic adult education
and specialized services for those with learning disabilities, so that
clients can move into occupational training leading to lasting employment.
Lack of basic skills (defined as reading and math skills below the eighth
grade level) does not mean a participant cannot find a job. It often means
that participants will require basic education concurrently with job related
activities. Federal laws provide TANF recipients’ options for combining
work with school. It is important for recipients to understand fully all
of the options available to them. By attaining core competence, through
school and work, access to jobs and the likelihood of sustainable employment
increases for clients.
Austin Independent School District, American Institute for Learning
and Austin Community College offer adult education services, including
GED preparation, adult secondary education, services for high school graduates
with skills below the 12th grade level and other education programs. Support
services such as after-school care, subsidized child care, counseling,
health services, and transitional housing increase the opportunities for
clients to take advantage of these educational programs. Job placement,
training and referrals following education and training facilitates the
welfare-to-work emphasis. In addition to the organizations above, other
community partners offering supportive and educational services in this
area include People's Community Clinic, Goodwill Industries, Housing Authority
of the City of Austin, Capital Area Training Foundation, and Teenage Parent
Council. Eligibility mirrors that of literacy programs (17 years of age
or over).
The community must increase the number of learning opportunities, improve
learning environments, maximize the number of individuals prepared to enter
the workforce, and increase and diversify employers who are willing to
hire participants. To accomplish this, the number of slots in programs
must increase and the curriculum should reflect the needs of employers.
All too often clients are unable to complete an educational program due
to their need for immediate money sought through low paying wages. Providing
interim support is pivotal if clients are to complete these programs.
A collaboration of universities and colleges will provide a complete
range of education services to participants. This collaborative includes
the University of Texas, Huston-Tillotson College, St. Edwards University
and Austin Community College.
- For more information on service providers, see Appendix.
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English as a Second Language (ESL)
Increasing numbers of individuals and families migrating to Texas do
not speak or read English. An estimated 21% of adults in east Austin are
restricted in their access to employment due to language barriers. Without
basic literacy, education and English skills, individuals face additional
challenges in obtaining or retaining jobs that allow movement toward self-sufficiency.
However, those with ESL needs often possess work skills and have completed
education in their native language, which may prepare them for many jobs.
Within Austin, an increasing number of Asian immigrants will be seeking
ESL programs.
ESL courses are essential to reducing these barriers and increasing
employment options. However, ESL does not need to be a prerequisite for
job search. ESL and part-time work are common among welfare-to-work programs.
ESL training is offered by all of the programs listed above, including
Austin Community College, Austin Independent School District and Communities
in Schools.. Of the 7,000 people that ACC Adult Education serves, roughly
60% are students enrolled in the ESL program.
- For more information on service providers, see Appendix.
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Post-Job Placement
The goal of the Coalition is to assist participants in retaining
meaningful employment that promotes self-sufficiency, job growth and advancement.
Many people leave welfare for work, only to return to welfare due to
barriers that they were unable to overcome. With the TANF time limits in
place, many welfare recipients will have no safety net to fall into if
they lose their job. Consequently, post-job placement and retention are
top priorities of the Coalition. The Coalition’s continuum
of service approach is designed to educate, train, retool, and sustain
participants in steady employment to increase their quality of life.
The Coalition will utilize job coaches, peer mentor groups and
special post-placement support services such as those provided by Austin
Outreach and Service Center, One-Stop Workforce Centers, Austin Resource
Center for Independent Living (ARCIL), Central East Austin Community Organization
(CEACO), and the Austin Academy to promote continuous quality improvement
to support continued employment and movement towards self-sufficiency (livable
wage jobs or Work II). The post-placement services offered by these agencies
include follow-up, home visits, childcare, career enhancement, advocacy,
and support groups. The job coaches and mentors will work to accommodate
the schedules of the participants and ensure that the various needs of
the participants and the employers are met. The DHS Texas Works Program
provides post-placement transitional childcare and Medicaid benefits for
TANF recipients for up to 18 months after the discontinuance of TANF benefits
upon placement.
- For more information on service providers, see Appendix.
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Supportive Services
Supportive services include early education and care, mental health/substance
abuse services, transportation, and case management/mentoring. Location
of resources and basic life management skills training play a critical
role in this effort and is addressed through case management services at
the beginning of the process and throughout the welfare-to-work continuum.
To gain and maintain meaningful employment, recipients need both positive
social support networks as well as services from community organizations
for assistance in times of need.
An important part of the Coalition’s job retention effort
will be the development of comprehensive social support networks. Case
managers, peer-mentoring groups and community organization members plays
important roles in supporting and encouraging participants to stay employed.
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Early Education And Care
The goal of the Coalition in the area of early education and
care is to increase the availability of and funding for childcare, including
the requirements of special-needs children. Many parents find it almost
impossible to find affordable childcare. Without some childcare arrangement
most parents would be unable to keep working and/or attending classes.
Many families moving from public assistance to work will continue to need
subsidized child care at least until their youngest child is in public
school.
In addition to the childcare providers in the community, Austin Families,
Inc. serves as a coordinating and referral agency. This agency helps different
programs in the community to develop the "supplemental service of
childcare" to respond to the needs of each program’s participants.
Until welfare-to-work participants are employed or involved in Choices-approved
activities, they will not qualify for childcare through CCMS. Therefore,
childcare must be built into supportive services programs. Austin Families,
Inc. partner programs include the teen program at AISD, Child, Inc., Tandum
through People's Community Clinic, Passages, and various transitional housing
programs such as American Institute for Learning, Push-Up and SafePlace.
In addition, individuals may qualify for subsidized services due to participation
in welfare-to-work programs or because of income eligibility. Austin Families
operates a switchboard and computer system to identify child care centers
and registered family homes. Referral lists are also available through
Texas Department of Protective and Regulatory Services Child Care Licensing
program. Child Care Management Services (CCMS) provides subsidies for childcare
to clients at 150% of the federal poverty guideline and below, and maintains
a waiting list. Funding for this program originates with the Capital Area
Workforce Development Board and is administered by the Texas Migrant Workers'
Council. Eligibility must be redetermined every six months for CCMS services.
Additional subsidized childcare is available through Head Start, a federally
funded childcare program. This program has 1500 slots in its 3-5 year old
program, and 75 slots available for children 6 weeks to 3 years. Eligibility
is based on income, and most families receiving either food stamps or TANF
qualify. However, the waiting period for services varies, with the Early
Head Start program having a much longer wait time.
Part of the challenge to the community involves working toward the "supplemental
services" approach in varying programs. It is important for programs
focused in different social service areas to recognize the importance childcare
plays in their overall program delivery. Eventually, this recognition may
help to improve both childcare affordability and availability. The real
challenge in attaining childcare confronts TANF recipients right when they
have transitioned off TANF benefits. Transitional childcare used to be
an entitlement when clients left welfare. This is no longer the case.
The demand for affordable childcare far outweighs the supply available.
In 1998, the waiting list for CCMS had the same number of people as were
actually being served by providers. In other words, though 1300 people
received childcare, the same number of people remained on the list awaiting
their turn. Recently, CCMS contacted all those on their waiting list. They
determined that all applicants on the waiting list were either ineligible
or could not be located, and therefore have begun a new waiting list. However,
the absence of a long waiting list does not necessarily reflect the need
for childcare in the community, and applicants are expected to increase
quickly.
Though child care in Austin/Travis County is fragmented in its delivery
and coordination, efforts are underway to improve overall cooperation and
collaboration. The Child Care Council (the advisory group to the City Council)
has been working to promote childcare issues to both the community and
to the City Council. Other groups recognize the need for increased coordination
between and among providers and agencies. As parents and case managers
improve their knowledge of the childcare system, the communication and
understanding between these groups with childcare providers will improve.
CCMS depends greatly on case managers to describe procedures to parents
and to help parents through the process of paperwork and rules.
Though navigating the childcare system may be intimidating to clients,
it can also become an empowering experience. As clients learn more about
the system and become informed customers for their children, both their
family and the system will benefit.
Welfare reform may provide the incentive needed to improve the overall
quality of care provided to children in the Texas. Currently, there is
little coordination between childcare centers. As clients become more informed
and wiser customers, the quality of care may improve. This will occur with
the increased coordination, information, and recognition of the need to
improve current childcare standards and quality of care.
- For more information on service providers, see Appendix.
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Transportation
The goal of the Coalition is to expand current transportation
options to support the employment activities of welfare-to-work participants.
The Secretary of Transportation, Rodney Slater, has referred to transportation
as the "to" in welfare-to-work. Without access to convenient
and reliable transportation, it is unlikely that participants will be able
to move from welfare-to-work.
Public, private and volunteer organizations all play a critical role
in developing a comprehensive transportation system to meet the needs of
welfare-to-work participants. City of Austin Housing Authority and other
public welfare agencies provide some transportation through van services
under Medicaid, childcare, and other supportive programs. Capital Metro,
in addition to operating public bus lines and special transit services,
works closely with area employers to develop van pools and other transportation
options. The private/volunteer sector is also a rich potential resource
for operating car pools, offering repair services and parts for participants'
cars, and other assistance. Outreach is needed to develop a relationship
between service providers and welfare-to-work participants, and these community
resources.
In order to clearly identify where additional service development is
required, Capital Metro representatives and other Coalition members
need to develop a plan to assess current transportation options, and compare
these to potential transportation needs. The Coalition identified
steps to increase transportation availability and access with the assistance
of employers, churches, community based organizations (CBOs) and volunteers.
Capital Metro staff will also need to work with case managers and participants
to train them in the use of public transportation and to identify viable
routes to employment and childcare providers. These players will be instrumental
in offering time, money and other resources to expand the current transportation
system. The structure and plans are in place to develop a comprehensive
transportation system that responds to the needs of welfare-to-work participants.
However, considerable coordination is needed to continue this initial work.
Some of the challenges in this area include providing transportation
options to employers not served by current public transportation routes,
and for employees working 2nd and 3rd shifts. The potential exists to develop
additional van pools with existing resources to meet some of these transportation
needs. The Coalition is also working with Capital Metro to develop
viable public transportation for participants by increasing routes and
route frequency in target service areas.
- For more information on service providers, see Appendix.
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Mental Health Services/ Substance Abuse
The goal of the Coalition is to mitigate the impact of mental
health and substance abuse problems on the employability of participants.
Mental health and substance abuse problems are employment barriers that
must be addressed through treatment, case management services and increased
education of employers about the employability of persons with these health
issues.
Various levels of service are available for both substance abuse and
mental health needs within the community. Services to address substance
abuse issues are provided by Austin Recovery Center, Austin Family House,
Austin/Travis County Mental Health and Mental Retardation Center, Push-Up
Foundation, Charter Behavioral Health System of Austin, YWCA Aware, Phoenix
House, American Institute for Learning, New Serenity, Austin Resource Center
for Independent Living, Seton/Shoal Creek, Salvation Army, Alcoholics Anonymous
and other support groups. Depending on client needs, treatment may include
outpatient counseling, day treatment, detoxification, crisis stabilization,
transitional/support housing in a drug-free environment, residential treatment
(for single men or women, and for women with children), and group counseling/support.
Eligibility varies from program to program.
Mental health treatment providers include Austin Child Guidance Center,
Austin/Travis County Mental Health and Mental Retardation Center, Capital
Area Mental Health Center, LifeWorks, Seton/Shoal Creek, YWCA, and Charter
Behavioral Health System of Austin, and other sliding fee schedule programs.
Again, varying levels of service are provided including outpatient counseling,
day treatment, crisis stabilization, residential treatment, educational
and therapeutic groups, and medication management. Eligibility varies from
program to program. Although most providers strive to serve the indigent,
access to publicly funded substance abuse and mental health treatment is
limited. According to the Texas Commission on Alcohol and Drug Abuse, only
ten percent of persons who need and want substance abuse treatment and
are eligible for publicly funded treatment are able to access services.
(TCADA, 1996, Texas Substance Abuse Survey Among Adults)
Strong coordination of services exists among substance abuse and mental
health providers in the Travis County community. Providers meet monthly
through the Substance Abuse Planning Partnership, Austin Chemical Dependency
Alliance, Behavioral Health Subcommittee of the Indigent Care Council,
the Adult Community Resource Coordinating Group (CRCG), and Children’s
Mental Health Partnership, and other coalitions. A workgroup composed of
members of the Substance Abuse Planning Partnership and mental health service
providers is actively working with Department of Human Services staff,
workforce training centers, state-wide advocacy associations, and legislators
to address the need for screening and assessment of substance abuse and
mental health problems, drug testing, and referrals to appropriate treatment.
Current effort are underway to encourage policy-makers to grant public
assistance to persons with drug-related felonies upon the condition that
they are actively participating in treatment and to include substance abuse
and mental health treatment as "work-related activities". This
would enable recipients of public assistance to resolve these issues while
still qualifying for benefits.
The welfare-to-work process proposes that screenings be conducted during
the participants initial visit. When indicated, further assessment by a
mental health and/or substance abuse professional will be completed, either
at the one-stop workforce centers or at the agency sites through cooperative
agreements. Once assessed, Coalition members will direct participants
to treatment centers and other appropriate service providers to receive
the level of treatment appropriate for their needs. Efforts are being made
to include treatment to address substance abuse and mental health concerns
as part of the participant's "work plan". If participants can
resolve these problems before beginning a full-time job, then the likelihood
of their sustained successful employment increases.
The most cited challenges in this system are inadequate mechanisms for
screening and insufficient referral and access to services. Screening for
substance abuse and mental health needs by trained personnel during the
initial stages of the welfare-to-work process is critical for participants
to receive the services they need in order to complete employment activities.
It is recommended that the initial screening be conducted by a case analyst
(refer to Section VII, item 3 of report) along with subsequent referral
to substance abuse or mental health provider for a more in-depth assessment.
Access to education for case managers on substance abuse and mental health
issues and available services will be critical for effective provision
of services.
It is important to note that many recipients of public assistance are
reluctant to reveal any past or present substance use. Many participants
believe that revealing any drug use will jeopardize their benefits. Persons
applying for public assistance are required to sign a Personal Responsibility
Agreement (PRA) in which they attest that they or any member of their household
will not abuse alcohol or use illicit substances. Although participant
may not be sanctioned for a history of drug use, the language of the PRA
deters applicants from discussing their substance use. Furthermore, if
recipients have been convicted of a drug use or possession felony after
August 1996 and have signed the PRA, they are subject to financial sanctions
and denial of some benefits. A challenge for the initial caseworker with
which participants have contact is to explain that a past history of use
will not in fact affect benefits unless it is a felony conviction. However,
future use will affect benefits, and therefore taking advantage of support
services can be to the participants' benefit.
In addition to an absence of screening for substance abuse and mental
health issues, there is a shortage of publicly funded services with wrap-around
support services (e.g. transportation, childcare and housing) for poor
families and other special populations such as women and children, HIV
and hepatitis-infected persons, homeless, persons with certain offenses
(e.g. sex offenders), and persons with co-existing problems (e.g. substance
abuse and mental health problems; substance abuse and other health problems).
For example, persons with substance abuse problems are denied services
if they have mental health or general health problems and persons with
mental health problems may be denied services if they are involved with
criminal justice system.
An issue that has not yet been extensively considered is the needs of
families with children who have behavioral health or substance abuse concerns.
Addressing the needs of mothers of these children requires sensitivity
on the part of employers, caseworkers, and school personnel. It will be
important to consider how the needs of these children will be bet while
minimizing the disruption to the mother’s work obligations.
- For more information on service providers, see Appendix.
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Case Management/ Mentoring
The purpose of the case management services provided through the Coalition is to provide ongoing assistance to participants to help them obtain and
maintain job skills and employment and to remove barriers to sustainable
employment. Case management is a client-centered, goal-oriented process
for assessing the needs of an individual for a wide variety of services.
The client/case manager relationship offers a more human element to what
is often a confusing and impersonal system. The trust built at this point
may impact the client's willingness to discuss his/her needs and thus,
the ability of the case manager to address those needs. In order to effectively
serve the client, it is necessary that case managers remain updated on
currently available community resources, and employ a referral process
to direct clients to needed services. Determinations for services and referrals
should be based on client choice and needs, service availability, eligibility,
funding, and location.
Mentoring provides one-to-one attention, either through professional
or volunteer services. The goal is to offer a supportive environment in
which participants can grow and utilize their own strengths. When increased
attention to a participant’s strengths, resources, and talents are
supported, probability for change and growth can be positively enhanced.
Mentoring can provide role models in specific career tracks for welfare-to-work
participants, or simply provide an advocate for clients needing extra support.
Several community organizations provide case management and/or mentoring
to the welfare-to-work population, including City of Austin Housing Authority,
ARCIL, Family Pathfinders, Travis County Health and Human Services Department,
CEACO, SafePlace, Salvation Army, Caritas, Real Sisters, Foundation for
the Homeless, and others. Services include assessing the needs of each
individual, determining what services and supports are needed, and providing
resources for obtaining such support. Issue areas addressed through case
management/mentoring include childcare, transportation, clothing, housing,
food, education, and counseling. Many of these programs offer short-term
and /or long-term assistance, addressing both the short-term needs which
must be resolved before obtaining employment, as well as long-term needs
which may interfere with sustained self-sufficiency.
Participants will have access to a specific case manager through these
community organizations for comprehensive case management. In addition
to services provided at workforce centers and agency sites, case managers
will coordinate on-site service delivery at the public housing developments.
Consideration should be given to identifying a "primary" case
manager if there is more than one, to case management follow-up once a
hand-off to specific service agencies has been made, and to the unique
requirements imposed by special populations.
Other services to be provided by Coalition members include a
volunteer crisis line for participants experiencing immediate problems
that jeopardize employment or education; life skills training based on
an employment model; and volunteer coaching for regular, ongoing problem
solving; information and referral; and support.
- For more information on service providers, see Appendix.
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Subsistence Requirements
Subsistence requirements encompass housing and shelter, food, basic
needs/ emergency cash assistance and health care. Important to the Coalition’s
job retention effort is the development of social support networks to enrich
participants’ lives personally as they move towards self-sufficiency.
Equally important is the maintenance of self-sufficiency, as future access
to TANF may be denied if all allocated time has been used.
Housing & Shelter
The goal of the Coalition is to assist participants, through
case-managed programs, in obtaining self-sufficiency and remaining in permanent
affordable housing. Homelessness is a critical issue in the community at
large. Austin has the highest housing costs in the state and an extremely
tight and expensive rental market. Preventing individuals from becoming
homeless is a key component of welfare reform. Unless lost welfare benefits
are replaced with a system leading to self-sufficiency, the Austin/Travis
County community will see a significant increase in its homeless population,
exacerbating the current crisis.
Participants may be referred to several community organizations such
as: SafePlace, LifeWorks, Salvation Army, Blackland Transitional Housing,
HACA, Caritas, Foundation for the Homeless, HOBO, American Institute for
Learning, Ladies of Charity, Catholic Diocese, CEACO, and Community Partnership
for the Homeless, Travis County Health and Human Services Department, to
name a few. Eligibility criteria are agency-specific. Services offered
include emergency shelter, transitional housing, permanent supportive housing,
rental and utility assistance, and supportive services and case management
to assist participants' in addressing long-term self-sufficiency planning.
The Coalition works closely (and shares members) with two Task
Forces addressing housing and shelter issues. The Community Action Network
Homeless Task Force developed a comprehensive plan focusing
on persons who are homeless or at risk of becoming homeless. It encompasses
most individuals impacted by welfare reform. The plan graphs the community’s
needs and strategies for homelessness prevention, outreach /intake/assessment,
emergency shelter, transitional housing, affordable housing and special
support services.
The Austin/Travis County Affordable Housing Working Group is
in the process of developing a community housing policy that addresses
the needs of the welfare-to-work population. Increasing affordable housing
stock is primary to the success of welfare-to-work and homelessness reduction
programs in our community.
There is a strong collaboration among providers in this area who are
working to set up a linked continuum of service levels for those in need
of housing. Several identified gaps exist in the housing area, with the
highest needs in the area of emergency shelter for single individuals,
and emergency and transitional shelter for families.
- For more information on service providers, see Appendix.
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Food
Access to adequate and nutritious food requires a concerted effort by Coalition members and other community organizations. The Coalition addresses the need for access to nutritious food by proposing the following:
expand the use of food programs such as Woman, Infants and Children (WIC);
create incentives for grocers to provide nutritional foods in underserved
areas; provide community cooking and budgeting classes; promote and expand
existing community gardening; initiate or expand community-wide drives
to increase food bank and food pantries’ non-perishable food item
inventory; encourage the accessibility to pantries through other emergency
programs.
Programs designed to address food needs in Austin/Travis County include
a combination of public and private programs. Entitlement programs operated
through public agencies such as Austin/Travis County Health and Human Services
and Texas Department of Human Services include Women, Infants and Children
(WIC) and Food Stamps. The Travis County Health and Human Services Department’s
Emergency Assistance Programs provide food assistance by issuing a voucher
or arranging for food through the food pantry. Private non-profits play
a critical role in emergency food provision. Capital Area Food Bank supplies
250 agencies in Central Texas with food products that are then distributed
either through pantries, soup kitchens, shelters or other direct-service
programs. Many of these programs are operated by churches (including the
Catholic Diocese, Faith Food Pantries, St. Louis, and Baptist Community
Center) and other religious organizations, as well as private, non-profits
such as Caritas, Salvation Army, SafePlace, CEACO, and neighborhood centers.
Meals on Wheels provide hot meals to homebound individuals. Innovative
programs such as Austin Community Gardens and the Sustainable Food Center
address long-term food needs. Eligibility criteria for these programs vary,
and include both income and geographic requirements.
The presence of many food pantries around the community offers geographic
convenience for most people seeking emergency food. While supplies vary,
clients seeking food can generally have their needs met through the pantries.
The community at large has demonstrated a readiness to contribute through
food drives, and numerous congregations as well as CBO’s maintain
food pantries. Access to and availability of public programs varies. WIC
serves those with an income of up to 185% of the federal poverty line,
without regard to citizenship status, and benefits are not subject to time
limits. Food Stamps has stricter income eligibility requirements and imposes
time limits, and therefore may not be as available. Agencies involved in
the welfare-to-work efforts are in the process of evaluating the feasibility
of action plans.
Although attempts have been made to form tighter networks, coordination
among providers has been minimal to date. The lack of coordination may
actually benefit clients in some ways (e.g., increased willingness of community
to support their own individual pantries, increased ability for clients
to access multiple sites). However, it also can make it difficult for a
potential client to locate resources, and navigate the system. As demand
on these resources steadily increases, coordination of services between
food distribution sites and with case managed programs may best serve welfare-to-work
participants by increasing efficiency and resource distribution.
- For more information on service providers, see Appendix.
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Basic Needs/ Emergency Cash Assistance
The goal of the Coalition is to assist participants in obtaining
and maintaining the subsistence necessary for successful living. Access
to the basic needs of life, particularly food, clothing and emergency assistance
(rent, mortgage, medication/medical supply purchases, and utilities), as
well as adequate and affordable housing and transportation, will be afforded
through Coalition members, including community based organizations
and communities of faith. Emergency cash assistance can divert impending
homelessness while the household is directed to case managed services that
promote long-term stability. The Travis County Health and Human Services
Department’s Emergency Assistance Programs, Caritas, CEACO, Austin
Interfaith, Austin Metropolitan Ministries, and the Catholic Diocese all
provide emergency assistance. The eligibility criteria is different depending
upon which basic need is being addressed and the requirements of corresponding
organization fulfilling that need: income guidelines, where assistance
has already been obtained, acceptance from other referral sources, etc.
It is crucial that a comprehensive and effective information and referral
system is implemented and increased efficiency of the screening and intake
processes. The Coalition is encouraging the development of a 211
system for comprehensive information and referral. This should not hinder
use of the First Call for Help or the revival of the Homeless
Help Line. These two services can integrate or coordinate with 211.
- For more information on service providers, see Appendix.
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Health Care
The goal of the Coalition relating to health care is to ensure
that the medically indigent, including the welfare-to-work population,
have access to basic health services, including medical, behavioral health
and dental care. A large portion of the low-income population lacks adequate
health and dental care. Preventive steps are essential because the poor
often use emergency rooms for the basic care needs of their families. The Coalition promotes the use of local health care and dental resources
for prevention to reduce emergency room visits for primary health needs.
Life Skills training and case management services are to educate the participants
about preventive services such as Well Child Check-up.
Austin/Travis County Health and Human Services Department operates several
health centers which handle WIC (Women, Infants and Children Supplemental
Food Program), MAP (Medical Assistance Program), CAP (Clinical Assistance
Program), dental referrals, prenatal care, immunizations, and family planning.
MAP and CAP clinic cards can be applied for at the Health Centers and the
Travis County Rural Community Centers. Eligibility is based on federal
income poverty requirements. Brackenridge Hospital provides inpatient and
outpatient care to both clients with clinic cards, and private- or self-pay
clients. The Volunteer Health Care Clinic, Manos de Cristo Dental Clinic,
People's Community Clinic, Planned Parenthood of Austin, Seton East Community
Health Center and Seton South Community Health Center also provide a range
of medical, dental, counseling, immunization, HIV testing and family planning
services to working poor clients.
The Integrated Care Collaboration is working with the Community Action
Network to meet several objectives. To determine the need for services,
it is necessary to define, quantify and monitor the current and projected
welfare-to-work population, as well as to determine what resources and
capacity is needed to meet the health care needs of this group. In the
process, shortfalls can be identified and addressed.
The Coalition will develop participant links to health care and
dental resources with the help of employers (through insurance benefits),
community hospitals and clinics and government social service agencies.
Increasing access to Federally Qualified Health Clinics and the Medical
Assistance Program (MAP) is another important objective.
- For more information on service providers, see Appendix.
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Enhanced Supports
The enhanced supports category includes teen parents, ex-offenders,
and participants with physical disabilities, learning disabilities, mental
retardation, developmental disabilities or severely limited ESL. Travis
County Deaf Services can provide support for people who are deaf and hard
of hearing by providing communication access in sign language interpreting.
They can also coordinate case management, information, and referral services
to alleviate critical situations and to increase self-sufficiency to this
specific population. This service is no cost to the individual. These individuals
may require more intensive supports to overcome barriers to employment
and self-sufficiency.
- For more information on service providers, see Appendix.
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Community Involvement/Fund Development
In the near future, the entire community will be directly or indirectly
affected by welfare reform. Therefore, it is important to increase the
community’s awareness of the issues and the challenges facing many
residents in Austin/Travis County. It is also important to inform the community
about the Coalition effort in order to foster support and generate
additional resources.
With the help of volunteers and member organizations, it is hoped that
the Coalition will be able to produce a welfare-to-work newsletter.
The newsletter will educate the community about welfare-to-work, describe
the collaborative effort, inform welfare recipients of the requirements
under the welfare reform law and familiarize welfare recipients with the
services available in the community. The Coalition will also engage
the private sector at every step of the continuum. Finally, the Coalition will continue to develop new relationships with other community organizations
and strengthen the ties between its own member organizations.
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Participant Involvement
Without participant involvement in the effort, the Welfare-to-Work
Coalition may be far less effective. No one understands the hopes and
needs of welfare-to-work participants better than the participants themselves.
Participants played an invaluable role in the planning phase of the Coalition effort and will continue to play an important part in the implementation
phase of the effort.
The Coalition has formed a "Participant Advisory Committee"
to assist in all phases of the implementation effort, and will continue
to develop efforts to involve them in effective and meaningful ways. Former
welfare recipients will serve as mentors to current participants.
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