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 Austins strong and competitive economy in todays 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 TDHSs 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 Coalitions 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 Coalitions 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 programs 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 Childrens 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 mothers 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 participants 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 Coalitions 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 communitys 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 Departments 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 CBOs 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 Departments 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 communitys 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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