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WORKING TOWARD JOBS
The DelawareFirst Step Program
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OFFICE OF INSPECTOR GENERAL OFFICE OF EVALUATION AND INSPECTIONS
MAY 1990
OFFICE OF INSPECTOR GENERAL
The mission of the Offce of Inspector General (DIG) is to promote the efficiency, effectiveness, and integrty of programs in the United States Depanment of Health and Human Services (HS). It does this by developing methods to detect and prevent fraud, waste, and abuse. Crated by statute in 1976, the Inspector General keeps both the Secta and the Congress fully and currently infonned about progrs or management problems and reommends corrective action. The DIG perfonn its mission by conducting audits, investigations, and inspections with approximately 1,400 sta strategically located around the countr.
OFFICE OF EVALUATION AND INSPECTIONS
This report is produced by the Offce of Evaluation and Inspections (DEI), one of three major offces within the DIG. The other two ar the Offce of Audit Services and the Offce of Investigations. Inspections ar conducted in accordance with professional standards developed by DEI. These inspections are typicaly short-tenn studies designed to detennne program effeCtiveness, efficiency, and vulnerabilty to fraud or abuse.
This technical report was prepared to describe the operation of the Delaware First Step program. This technical report is pan of a larger study which was conducted to describe the operation of a sample of matue, well-regarded and comprehensive work programs for AFC recipients and the insights of the admiistrators of those programs.
This report was prepard under the diction of Emilie Baebel, Chief, Public Health and Human Services Brach. This project was lead by Suzanne Murn of that branch.
The DelawareFirst Step Program
Richard P. Kusserow INSPECTOR GENERAL
OEI-12-89-01322 MAY 1990
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
INTRODUCTION
PROGRAM PROFILE. . . . . . . . . . . . 2
THE STATE OF DELAWARE . 2
THE DELAWARE AFDC PROGRAM . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
THE DELAWARE AFDC WORK PROGRAM . . . . . . . . . . . . . . . . . . . . . . . 2
General, Background. .
Administrative Issues . 3
Participation Issues. . . 4
Program Activities . . . 5
Appendix A OVERVIEW STATEMENT. A -
Appendix BSAMPLE DOCUMENTS . B
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This technical report is pan of a series of profies on the Aid to Famlies with Dependent Childrn (AFC) work progrs panicipating in the Working Toward JOBS project.
Each profie begins with a categorize descrption of the subject AFC work program, which is. based on mail guides submitted by the progr Appendix A includes an overview statement wrtten by the program manager. It descrbes the program, its goals, philosophy and lessons leared. Appendix B is a sample of documents used to conduct the program. Each program admnistrtor was asked to submit sample documents which they felt would be useful to States and counties developing JOBS progrs.
Data collection for this study was done from Apri to September of 1989. The infonnation in the overview and technical reports is based on pre-JOBS work programs for AFC recipients. As these progrs have converted to JOBS, they may have made some changes to meet JOBS legal and regulatory requirments. Where possible, we have noted the changes the program admnistrators anticipated at the time of our data collection.
Delaware INTRODUCTION
THE STATE OF DELAWARE
Population: 649,
Major industres: services, manufacturng, retal tradeFirt quaner 1989 unemployment rate: 3.6 percent1986 average annual income for a famly of four: $35,766 Percent of the populaiton living below the povery line: 11.3
THE DELAWARE AFDC PROGRAM
-For Fiscal Year (F) 1988:Total cost: $24 210,072Federa shar: $12,463,008; State share: $11 747,064Average monthly caseload: 7,434Client descriptors:
Average number of children in grt: 1.8Average length of spell on AFC: 30 months
Case closures: 6,095
THE DELAWARE AFDC WORK PROGRAM
General Background
Name: First Step
Operating Since: April 1, 1986. Delaware has been operating a Work Incentive Demonstrtion project since 1982.
Philosophy: The underlying philosophy of First Step is "People have the potential for self suffciency, and given the appropriate resources can succee in reaching that goal." The mission of the Deparent of Social Services (DSS) is to provide an integrted system of opportunities, services and income supports that enables recipients to develop self suffciency and achieve and maintain independence.
Employment and training services are offered though the Division s First Step program. The ultimate goal of the program is two-fold:
Delaware PROGRAM PROFILE
The placement of individuals in public or private sector employment that enables them to become self suffcient.
The interrption of the intergenerational public assistance dependency cycle working through parents to promote education and skill training for their children, rather than the continuation of public assistance.
Program Administrator: Rebecca R. Varlla
Chief Employment and Training Administrator Division of Social Services P.O. Box 906New Castle, DE 19720(302) 421-6776
Administrative Issues
Structure: The DSS admisters the program s three local offces throughout the State.
Funding: In FY 1988:
Federal State TOTALProgram Costs $314 618 $676 732 $991 350 Supportive Services 124 223 184 226 308,449TOTAL 438,841 860 958 299 799
Staff: There are six case managers who perfonn assessments, counseling and referral services, and offer support services and case management. There are two supervisors who oversee the case managers, compile reports, relay administrativeinstrctions and coordiate al First Step activities.
Success Measurements: Delaware measures First Step s success by tracking the numberof clients who: parcipate in First Step; panicipate in Job Training PannershipAct (JTPA) programs and other educational and training programs; become employed; leave welfare; receive their General Equivalency Diploma; and/or make grade level improvements.
Recordkeeping: The DSS is in the process of developing a comprehensive automated monitoring/trackig system which enables service providers to directly link withthe employment and traiing system for referral infonnation, status reporting andexpenditure reportng.
Delaware PROGRAM PROFILE
- .
Provision of Services: The DSS contracts with community based agencies to provide basic life skills (academic and life management) and self-diected job search instrction. As pan of the selection process competitive bids/proposals are solicited from community agencies and a committee reviews and rates proposals based on established criteria.
Outside Resources: The DSS works closely with the State Depanments of Education and Labor in order to provide education and job placement services to First Step parcipants.
Evaluations: An internal evaluation is being conducted to detennne retention rates for parcipants entering employment in 1986 and 1987. This evaluation should be completed in April 1990.
Participation Issues
Participant Descriptors: All AFC recipients are registered for First Step. However only the WI mandatory parcipants and those who choose to volunteer are referred for active parcipation in First Step. There are approximately 1 600 registrants each year. Seventy-nine percent of parcipants test at third grade or below in math skils. Fify-two percent of parcipants test at fifth grade or belowin reading. In addition , they are deficient in life management skills.
Target Groups: First Step targets long-tenn welfare recipients (defined as receiving AFC for 60 months or more) and the hard to serve. Targeted groups receive priority service in the program components and supportive services.
Mandatory Activities/Sanctions: All non-exempt AFC recipients must paricipate in appraisal and assigned program components. In FY 1988 the State imposed 160 sanctions on AFC clients who did not comply with the mandatory activities in First Step.
Volunteers: Eighty-the exempt AFC clients volunteered for First Step in 1988. The DSS encourages voluntar panicipation by: distrbuting literature; holding recognition ceremonies; encouraging current panicipants to contact potential parcipants; having eligibilty workers infonn clients of First Step services and the future benefits of panicipation; aing a public relations tape on seven local television stations; showing a video tape at community organization meetings; encouraging newspaper coverage; and emphasizing First Step in the case management project.
Employment Placements: In calendar year 1988 First Step placed 128 panicipants into pan-time employment and 319 parcipants into full-time employment.
Delaware PROGRAM PROFILE
Seventy-four of those pan-time placements resulted in a case closure, while 191 of the full-time placements resulted in a case closure. Typical placements were in the service, clerical and admnistrative support positions. The average staning wage is $4.52 per hour.
Program Activities
Models: Each of the progr admnistrtors was asked to describe a model activity or service. The First Step program admistrator chose to describe the Brown Bag Club.
Some Firt Step panicipants belong to co-op club, called the Brown Bag Club. These clubs help parcipants lear decision-makng skils and budgeting techniques. P cipants contrbute $3.00 per month to their group s "purchasing power ban." Products are generally available by the case and include such items as dish detergent, spaghetti, fruit juice, and personal care products. Each Brown Bag Club group reviews a list of products available, evaluates their personal needs, calculates the cost savings of products, and democratically detennines what are the most cost-effective product purchases for the group to make for the month. A number of the groups have expanded this activity to include reviewing supennarket and bread thrft store circulars to detennne additional purchases of items not included in the official Brown Bag Club list. If necessar, they wil contrbute a few more dollars to make these purchases.
Panicipants enjoy being a pan of this activity and consider their experience to be extrmely beneficial.
Sequencing: Figure 1 shows the tyical sequence of activities for First Step panicipants.
Program Activities Listing: What follows is a listing of the program services of First Step. Costs and panicipation figures ar for FY 1988.
Delaware PRORAM PROFILE
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Figure 1
AFDC EMPLOYMENT & TRAINING
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Client
Other EducationE & T Contract JTP A Training CWEP or Training
705 Jo Enry
Delaware PRORAM PROFILE
Assessment
Activity: Within a reasonable time period prior to parcipation the DSS case managermust make an initial assessment of employabilty based on: (1) the parcipanteducational, child care and other supportve services needs; (2) the panicipant proficiencies, skills deficiencies and prior work experience; (3) a review of famycirumstances, which may include the nees of any child of the parcipant; and(4) other factors that DSS determnes are relevant in developing the employabilty plan.
How Provided: Individual meetings between case managers and panicipants. Provided by DSS and community based agency contrctors.
Participants: Approximately 1 500; al First Step parcipants receive assessment.
Employabilty Planning
Activity: Consists of instrction in self-assessment, self-image improvement, decision makng, networking, peer counseling, communication skills, affective development and appropriate work place behavior. These skills wil enable the client to make more realstic decisions in the employabilty planning process.
Employabilty planning also includes evaluation of the panicipants intrsic abilties, cognitive functioning, motivation and vocational interests.
The employabilty plan must: conta an employment goal for the parcipant;describe the services to be provided by DSS, includig child car and other supportve services; describe the Firt Step activities that wil be undertaken bythe panicipant to achieve the employment goal; describe any other nees of the famly that might be met by Firt Step; and emphasize placement in a componentwhich wil assur the panicipant s success. The employability plan shall take into account: avaiable progr resources; parcipant s supportive services needs;parcipant s skill levels and aptitudes; local employment opportnities; and, tothe maximum extent possible, the preferences of the panicipant.
How Provided: Provided by DSS staff in one-on-one meetings.
Participants: Appropriate for all parcipants.
Delaware PRORAM PROFILE
Supportive Services
Activity: Transportation, child care, supplementa non-medical benefits (i.e., hard hats, goggles or other supplies required for training or work under safety regulations), remedial medical (optical and dental services).
How Provided: Need for assistace detennined on an individual basis by case manager.
Transportation: The DSS may utiize van service. Clients using public transportation or their own vehicles are generally limited to $65.00 per month.
Child Care: The DSS wil arange care through purchase of service contracts, in-home care, or car provided by a caretaker relative, or child care center.
Supplemental non-medical: Done on a one time only basis. Generally limited to $100.
Remedial medical: The DSS wil provide up to $100 on a one-time-only basis for an eye examnation and glasses. The DSS can waive the $100 limit if a panicipant has a vision problem and the necessar correction costs more than $100. Authorization for a dental exam can be granted by a First Step supervisor. All remedial medical payments are issued diectly to the vendor.
Participants: On average 132 panicipants receive child care services each month.
Cost: Trasportation costs were $43,539 and child care costs were $264,910. Cost figures on the other services are not avaiable.
Self Directed Job Search Training
Activity: Designed to equip the client with life-long job hunting skills. These skils include resume constrction, resume updating, career planning, and appropriate work behavior. Self-directed job search develops intrnsic abilties for individuals to avoid relying on outside support during job trsitions, thus preventing the possibility of recycling into the public assistance system.
How Provided: Provided in a classroom setting through contracts with community based agencies.
Participants: 435; appropriate for panicipants who lack job seeking skills.
Costs: $588,626
Delaware PROGRAM PROFIE
Post Secondary Education
Activity: Upon reaching a mutually agreed upon carer goal that involves post-secondar education, DSS wil fully substantiate the client s skil level. These predictive success qualifications, along with support services, wil enable the client to pursue and qualify for outside fmancial aid.
How Provided: The DSS wil offer management and support services in conjunction with financial and educational services provided by the post-secondar education institution and outside sources.
Participants: Appropriate for those whose employment goal requires post secondar eduction.
Vocational Skils Training
Activity: Training designed to prepare a parcipant for a specific vocation.
How Provided: The training is generally provided by ITA contractors. The DSS will provide case managed referrals and monitor clients progress while in training.
Participants: Appropriate for those who lack specific vocational skills.
Community Work Experience
Activity: A work experience in a public non-profit organization which enables a parcipant to explore their interests and abilties.
How Provided: Arranged by DSS in one-on-one meetings with clients. Employment is in public non-profit agencies.
Participants: 5; appropriate for those needing a work experience setting to enhance their job skils.
Delaware PROGRAM PROFILE
On-the-Job Training
Activity: Provides clients with specific job skils training in a work place setting. Lengthof time that a client may remain in on-the-job trining (OIT) is detennined by thecontractor and the employer. An OIT panicipant wil receive the same compensation as a provider s regular employees.
How Provided: Provided by DSS though an interagency agreement under which the Delaware Depanment of Labor refers clients dictly to OJT providers who maybe funded by ITPA.
Participants: Recommended for job ready individuals.
Job Development/Placement
Activity: Contracted job developers work with prospective employers to create or modify a position to meet a panicipant s skils. Job developers also refer clients to jobopenings appropriate for their work skills.
How Provided: Delaware s Depanment of Labor JTA programs provide this servicethough their contractors.
Participants: Recommended for panicipants who are job ready.
English As A Second Language
Activity: Training in the English language for literate and non-literate Spanish speakingparcipants.
How Provided: One community based organization works to help clients gain proficiency in both languages, while parcipating in work related trning.Another community based organization offers a submersion approach to English speakng. English as a second language (ESL) training is provided by DSS contracted services through community based educational and social services organizations. The ITPA funded providers offer ESL to panicipants with relatively high literacy functioning.
Participants: Recommended for those with low English proficiency.
Delaware PROGRAM PROFILE
Basic Life Skils Enrichment
Activity: The priar purose of this activity is to provide individualized academic instrction to individuals with academic and life management skills deficits. These deficits pose a significant barer to employment and/or prevent access to other training programs due to the panicipant s inabilty to meet minimum entrance standards.
How Provided: Provided in classroom settings through contracts with community based organizations. Instrction is based on the individualized and smal group approach.
Participants: Recommended for panicipants with academic and life management skils deficits which pose a significant barer to employment or education. These deficiencies include: iliteracy, mental health, specific learing disabilities, social and emotional developmenta lag, lack of motivation or work ethic , personal time management and chemical dependency.
Self-Initiated Education Or Training
Activity: Post-secondar or vocational training which was begun by the panicipant outside of First Step. Such programs must be at least half- time , and the parcipant must be making satisfactory progress. The panicipant must undergo First Step assessment and employabilty planning. Self-initiated education or training is funded by outside sources, but First Step wil provide supportve services as appropriate.
How Provided: Outside agencies wil provide classroom training. The DSS staff wil arange for supportive services.
High School Diploma/General Equivalency Diploma
Activity: This component involves panicipation in general equivalency diploma classes in conjunction with skills training.
How Provided: These services are provided by DSS contrctors. Additionally, through fonnal agrements, JTPA, and the Depanment of Public Instrction s Adult Basic Education program provide services.
Participants: Recommended for any client in need of high school certfication.
Delaware PROGRAM PROFILE
Case Management
Activity: Applying a competency based approach, benefit assistance eligibility staff identiy client s strengths, chalenge self doubts and, workig with the client establish action steps leading toward self-sufficiency. Utilzing the competencybased approach enables staff to instil a sense of empowerment in the parcipant.At this point, the client is referred to First Step.
First Step employment and training case managers combine the competency based philosophy with a holistic approach in their efforts to foster employability development as a means to achieve self-sufficiency.
How Provided: Provided by DSS staff in one-on-one and group meetings.
Participants: All parcipants receive case management.
Delaware PROGRAM PROFILE
Appendix A
DELAWARE' S FIRST STEP
Delawar has operate a WI Demo Progr since April 1 , 1982. Though a contrct with the Deparent of Labor, employment and trning services were provided to "job ready" AFC recipients. In the fal of 1985, the Deparent of Health and Social Services, Division of Economic Services (renamed Division of Social Services effective 2/16/89) contracte with James Bell Associates to study welfare dependency in Delawar. The study entitled Gaining Ground documented that approximately 29 percent of Delaware s welfare recipients are long-term dependent. These recipients spend an average of9 years on welfar and ar charcterize as persons with two childrn, who have never worked or worked very little, have never been mared, have less than 9 years of schooling, have severe basic skils deficiencies and began to receive assistace as teenagers. Included in the study was the recommendation to design an employabilty development program to meet the needs of the long-tenn, hard to serve recipient.
In Apri of 1989, as a result of the Bell study, the WI Demo progr was restrcturd. After tennnating the contract with the Deparent of Labor, the program design reflecte an approach to providing employment and trning services for reipients which centered around the holistic concept of dealng with the whole person. This encompasses improving basic skills perfonnance and life management skills, without which there is a negative impact on the client abilty to attan self suffciency. The new employment and trning initiative was titled First Step (the hardest step to tae) and includes such services as:
Pr-assessment
Community AcademiclLife Skils Development
Basic AcademiclLife Skils Development
Self-Directed Job Search Training
Vocational Training Referral
Other Education Referral
Delaware OVERVIEW STATEMENT A.1
Basic AcademiclLife Skils and Self-Dircted Job Search Training services are provided though contracts with community based agencies. Support services are provided and include child care, trsportation and remedial medical for denta and eye care servces.
The ultiate goal of the First Step Progr is two-fold:
The placement of individuals in public or private sector employment that enables them to achieve self-suffciency.
The interrption of the inter-generational public assistance dependency cycle working though parnts to promote education and skill training for their children, rather than continuation of public assistance.
Because of Delawar s strong economic development in the 1980's, our unemployment rate is approximately half of the national rate. Most people are under the assumption that welfar recipients to stay on welfar, since jobprefer
opportnities are abundant and the recipient is still reeiving benefits. Counter-acting this assumption was extremely chalenging. The Division of Social Services contracted with Susan Gray, M.Ed, Beehwoo Consultants to conduct a pilot diagnostic testing program. The results indicated that more than 60 percent of the clients tested ar perfonning below a 5th grade level. The Deparent of Labor report included the following as futureWorkforce 2000
labor market trends which curently ar evident in Delawar:
Majority of new jobs wil be created in the servce industres and wil demand high skills.
Those who cannot read, follow diections and use mathematics wil have fewer employment opportunities.
The most educationally advantaged will benefit signifcantly, since many of the new jobs wil require post seconda education.
With the support of Governor Michael N. Castle, the Division of Social Services accepted the chalenge of intensively working with our population. Coupled with this challenge was the task of influencing the rethinng of traditional assumptions related to the welfar population.
Delaware OVERVEW STATEMENT A.2
, We have leared that through the continuum of services model involving a strctured approach with infonned client choices on an individual basis being the
foundation, we are able to significantly enhance a client s abilty to move off and
remain off welfare.
States need to be well aware of the impact of the generally accepted assumptions related to the welfare population on their agency s abilty to design quality
programs that are geard toward individual client needs.
Delaware OVERVIEW STATEMENT A - 3
Appendix B
Delaware SAMPLE DOCUMENTS
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aybe
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. Tra
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ol d
iplo
ma.
If y
ou c
hoos
e to
con
tinue
im
prov
ing
your
ski
ls. y
ou c
an b
e re
ferr
ed
to a college le
vel p
rogr
am.
Thr
ough
ref
erra
l to
Job
Tra
inin
g Pa
rtne
r-training pro-
ship Act pTP AI and other
gram
s yo
u w
il le
arn
a sk
ill. M
any
kind
s of
trai
ning
pro
gram
s ar
e av
aila
ble
incl
udin
g of
fic
e sk
ils, c
onst
ruct
ion
trad
es, a
nd b
anki
ng.
Gro
up J
ob S
earc
h -
Firs
t Ste
p w
il he
lp y
ou
lear
n ho
w to
app
ly, h
ow to
inte
rvie
w a
nd
how
to k
eep
a jo
b.
Wil
enab
leCommunity Work Exrience
you
to w
ork
in a
pub
lic a
genc
y to
get
wor
k ex
perie
nce
and
impr
ove
your
ski
ls.
FIR
ST
STE
P
