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WokTo Gordon Lacy Date February 2, 1987
COLORADO From Walter J. Speckman, Executive Director
Employment Services Plan
Subject:
Enclosed for Board approval is the Employment Services Plan. This plan
is being submitted under the requirement of the Job Alternatives Program
(HB 1288) and the Colorado Department of Social Services ' Job Strategy
Policy.
The plan outlines the use of current and potential employment, training,
and supportive service programs for applicants and recipients of Aid to
Families of Dependent Children (AFDC). The plan also describes how
these programs will be used to move the AFDC client into unsubsidized
employment.
The major reason for the plan is to request certain waivers that will
allow Weld County to continue the operation of the Welfare Diversion
Program.
If you have any questions, please feel free to telephone me at 353-0540,
extension 2325.
870183
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4,44 OFFICE OF BOARD OF COUNTY COMMISSIONERS
PHONE(303)356-4000, EXT. 4200
P.O. BOX 758
GREELEY,COLORADO 80632
COLORADO
February 4, 1987
Irene Ibarra, Executive Director
Colorado Department of Social Services
717 Seventeenth Street
P.O. Box 181000
Denver, Colorado 80218-0899
Dear Ms. Ibarra:
Enclosed is Weld County's Employment Services Plan for applicants and
recipients of Aid to Families of Dependent Children (AFDC). This plan
is being submitted under the requirements of the Job Alternatives
Program (HB 1288) and the Colorado Department of Social Services' Job
Strategy Policy.
We feel that this plan provides a comprehensive and relevant approach to
meeting the employment, training and supportive service needs of the
AFDC client as well as making efficient use of current and potential
employment, training, and supportive service programs.
Sincerely,
,/ey
Gordon Lacy, hairman
Weld County Commissioners
cc: Dr. Mark Litvin
Steve Del Castillo
810183
Signature Page
Authorization: Job Alternatives Program
HB 1288; 30-17-301
Colorado Department of Social Services Regulations 3.623
Job Strategy Policy
Colorado Department of Social Services
Board of County Commissioners: Weld County Commissioners
P.O. Box 1805
Greeley, Colorado 80631
This plan has been developed under the requirements as described by law,
regulation, and policy and has been reviewed and approved by the
following.
Weld County Commissioners
/A
/
Chairman Gordon Lacy .e A/SJ
Title Name ( '1 `� �� Date ///
Weld County Private Industry Council //
Chairman Kenneth Nickerson
title Name Date
Weld County Division of Human Resources
Executive
Director Walter J. Speckman �/i/G�' c2/�/77
title Name yi Date ,
Weld County Department of Social Services
Director Eugene McKenna
Title Name Date
Employment Services of Weld County
Manager Judy A. Griego
Title Name Date
Colorado Department of Social Services
Executive
Director Irene Ibarra
Title Name Date
T ..
WELD COUNTY EMPLOYMENT SERVICES PLAN
Table of Contents
Page
Signature Page
Table of Contents
Section A: Executive Summary
Section B: Description of the Need of the Program
1. Eligible Population 1
2. Labor Market Conditions 1
Section C: Description of Program Purposes
1. Overall Impact 1
2. Description of Services and the
Delivery System 2
a. Services Needed 2
b. Estimates of Individuals Receiving
Services 3
c. Selecting and Prioritizing Methods.. . 3
d. Client Flow System 4
e. Management Plan 4
f. Evaluation Process 5
g. Program Budget 6
h. Definition of Good Cause for
Non-Participation 6
3. Assurances 6
Section D: Description of the Methods of Integrating
Programs Services, including the Work
Supplementation Program, under the
Job Alternatives Program/Job Strategy Policy
Section E: Relationship with Other Programs and Agencies
Section F: Waivers Requested
na , :`_.
Section A: Executive Summary
The Weld County's Employment Services Plan for applicants and recipients
of Aid to Families of Dependent Children (AFDC) strives to meet two
goals:
1. Establish an employment and training system that requires the focus
of funding and services to the applicant and recipient of AFDC.
2. Ensure the quality of systems in order to place the AFDC applicant
and recipient into unsubsidized employment.
This will be accomplished through a single delivery system under the
Employment Services of Weld County, which is a department of the Weld
County Division of Human Resources. Within the single administrative
structure of Employment Services, the following programs will be
targeted to the AFDC applicant and recipient:
1. Welfare Diversion Program
2. Employment Search (Title IV-A Job Search)
3. Food Stamp Job Search Program
4. Community Work Experience Program
5. Job Training Partnership Act
6. Job Service
The process of developing the system has been made possible through the
Weld County Commissioners and the assistance of the Weld County Private
Industry Council. The Weld County Social Services Department through
its AFDC and Food Stamps departments is an important partner in the
delivery of the system.
Programs that are not part of this delivery system but should be are:
1. Education and training authorized by Carl Perkins Act and other
resources
2. Job Training Partnership Act discretionary funds
3. Work Incentive Program
4. Work Supplementation
5. Potential new federal programs for the AFDC applicant and recipient
Efforts to merge these resources into the existing structure will
continue and will be modified into the Employment Services Plan.
The Weld Child Care Network, a private non-profit child placement
agency, will work with both the Weld County Social Services Department
of the Weld County Division of Human Resources/Employment Services of
Weld County to ensure the best child care system for the participants of
this plan.
The Weld County Department of Social Services will operate the Medicaid
Benefit Extension program.
Section 8: Description of the Need of the Program
1. Eligible Population
The program will assist applicants and recipients of Aid to Families
of Dependent Children (AFDC).
Attachment 1 outlines the numbers and describes the types of
individuals to be served through a graph that averages the Weld
County AFDC caseload for a ten (10) year period.
2. Labor Market Conditions
Weld County labor market conditions are summarized in Attachment 2
and Attachment 3.
Page 2
Section B
Attachment 1
WELD COUNTY AFDC CASELOAD
6 - MONTH AVERAGES
(1980 - 1986)
1500
1475
1450
1425
1400
1375
1350
1325 era e .— —.-
1300
1275
1250
1225
1200
1175
1150
1125
1100
1000
1980 1981 1982 1983 1984 1985 1986 1987
The Held County Department of Social Services estimates that of the
total caseload described above:
a. Approximately 90% of AFDC Households have all children over the
ane of six (6) months.
b. Approximately 60% of AFDC Households have all children over the
ane of six (6) months and are able to work.
Page 3
Section B
Attachment 2
ANNUAL UNEMPLOYMENT AVERAGES
Year Weld County % State %
1975 5.2 6.9
1976 4.2 5.9
1977 4.8 6.2
1978 4.4 5.5
1979 4.1 4.8
1980 6.9 5.9
1981 6.1 5.5
1982 7.4 7.7
1983 6.6 6.7
1984 6.0 5.6
1985 6.7 5.9
* Note: change occuring since 1980
Page 4
Section B
Attachment 3
1980 CENSUS
EDUCATION
Under 25 years. State Weld County
Less than 5 years 1.8 4.2
High School Graduate 78.6 68.8
4 or More Years College 23.8 12.5
Median Year of Education 12.8 12.5
18-24 years
High School Graduate 79.1 81.7
4 or More Years College 7.3 6.3
AGE
State Weld County
Median Age
Total 28.6 26.8
Female 29.3 27.1
Under 20 31.97% 34.7%
Labor Force Participation Rate
State Weld County
67.4% 62.9%
Y..•..rtl .R r,
1
Page 1
Section C: Description of Program Purposes
1. Overall Impact
The major and overall objectives of the Employment Services Plan of
Weld County are:
a. Integrate, consolidate, and coordinate at the county level all
existing and all future employment, training, and various
support and social services programs targeted at applicants for
and recipients of Aid to Families of Dependent Children in order
to provide a cost efficient employment program. These programs
include:
1) Job Service Program
2) Welfare Diversion Program
3) Job Training Partnership Act Program
4) Employment Search
5) Work Supplementation
6) Community Work Experience Program
7) Work Incentive (WIN) Program
8) Food Stamp Recipient Employment Services
9) Child Care Services
10) Medical Assistance Benefits Extension
11) Education and Training authorized by Carl Perkins Act and
other resources
b. Demonstrate that the waivers requested and as described in
Section F benefit participants and enhance the successful
implementation of the Employment Services Plan and the specific
program, the Welfare Diversion Program.
c. Demonstrate the cost effectiveness of the Employment Services
Plan with the acquired waivers from both the State and Federal
government.
d. Demonstrate that with resources flexibility (waivers), resources
can be used to make the Employment Services Plan a more positive
successful option for Federal , State, and local government, as
well as participants.
e. Demonstrate that no additional (special ) federal funding is
needed to have success with clients and/or welfare caseloads,
with the Employment Services Plan and, in specific, the Welfare
Diversion Program.
The specific objectives for the Welfare Diversion Program under the
Employment Services Plan are:
f �� �
Page 2
Section C: Description of Program Purposes
a. Reduce the welfare caseload by providing a positive work
alternatives, through the Welfare Diversion Program, to job
ready applicants and recipients. This in turn will decrease
dependence on public assistance.
b. Demonstrate that the waivers increase participants' potential
for successful diversion from welfare.
2. Description of Services and the Delivery System
The services and the delivery system have been developed to meet and
support certain assumptions of and objectives for the welfare
applicant and recipient.
* The individual will choose to work rather than receive welfare,
if given the option.
* Once individuals are receiving welfare, it is more difficult to
break dependence on the welfare system.
The delivery system has been designed to meet the following
objectives:
* Unsubsidized employment is the goal to achieve independence and
self-sufficiency for the welfare applicant and recipient, not
system dependence.
* The activities and services should result in a positive
employment program and provide for employment opportunities.
* The individual must demonstrate a "work commitment".
* The individual 's participation must be close to the "real"
working world.
* The individual 's participation must have definite ending dates
and remain temporary to support the goal of promoting
unsubsidized as the individual 's goal .
* The individual must work or participate in activities that are
well supervised.
a. Services Needed
Services that are needed can be classified into four (4) major
categories.
Page 3
Section C: Description of Program Purposes
1 ) Pre-assessment Services
The Weld County Social Services and the Employment Services
need to assess the individual in regards to:
a) Criteria for good cause reasons for non-participation.
b) Employment barriers.
2) Participation Services
The Employment Services provides work experience, job
seeking skills, On-the-Job Training, vocational education,
assessment, testing, employment counseling, job development,
remedial education, and other work related programs and
services.
3) Support Services
The Weld County Social Services will take the major role in
providing such services as Child Care, Medicaid, and other
related services.
The Employment Services will assist in transportation
services.
4) Placement Services
The Employment Services will provide activities such as job
solicitation, job development, placement verification, and
other related activities.
b. Estimates of Individuals Receiving Services
The number of individuals to receive services as outlined under
the Employment Services Plan is described in Attachment 1.
c. Selecting and Prioritizing Methods
Methods to select and prioritize welfare applicants and
recipients for services are described by major program area.
1 ) Welfare Diversion Program: Applicants or recipients in the
AFDC program so long as their youngest child is older than
six months. All other applicants and recipients may
volunteer to participate in the program. Priority is given
to the applicant.
Page 4
Section C: Description of Program Purposes
2) Community Work Experience Program: Recipients in the AFDC
program that have barriers to employment that prevents them
from participation in the Welfare Diversion Program and
those recipients that were not successful in their
participation in the Welfare Diversion Program as a result
of employment barriers. Priority shall be given to those
recipients that have the best potential to re-enter the
Welfare Diversion Program.
d. Client Flow System
Client Flow Systems are described in Attachment 2 and 3.
e. Management Plan
The overall description of the management plan is contained in
Attachment 4, 5, and 6.
f. Evaluation Process
The evaluation will test the following hypotheses/criteria for
the overall Employment Services Plan:
1) The reduction of the current AFDC caseload (compared with
other similar counties).
2) The number of applicants and recipients for AFDC who are
successfully diverted from welfare.
3) The welfare cost savings (estimate).
4) Enrollee program outcomes.
5) The final design of the program based on the waivers.
The evaluation will test the following hypotheses criteria for
the Welfare Diversion Program under the Employment Services
Plan:
1) The number of eligible applicants and recipients referred
and diverted.
2) The number of enrollees who find an unsubsidized job.
3) The number of enrollees and applicants who become AFDC
recipients in Weld or other counties subsequent to referral
or participation in Diversion.
Page 5
Section C: Description of Program Purposes
4) The number of enrollees who reenter the Welfare Diversion
Program for a second or third time.
5) The caseload maintenance, reduction, and/or increase.
6) The cost of the Welfare Diversion Program.
7) The actual utilization of the waivers and their associated
costs.
8) Wage data from State Department of Labor and Employment
records for applicants/recipients who do not report to the
Welfare Diversion Program.
9) Client opinion relative to the Welfare Diversion Program.
The Weld County Commissioners and the Weld County Private
Industry Council shall evaluate and monitor the program through
the following methods.
1 ) Review quantitative data from existing data bases among the
agencies involved in the project. These systems require
follow-up and monitoring of program outcomes including
participants that shall be:
* Entering part-time or full-time unsubsidized employment
* Entering Employment Services Plan activities
* Terminating Plan activities and identifying the outcomes
* Sanctioned as a result of refusal to participate.
* Other Outcomes
2) Conduct and evaluate interviews with program managers,
technicians and clients through a questionnaire to be
administered yearly.
These methods will be analyzed to establish success or failure
of the project to the hypotheses criteria.
g. Program Budget
The Employment Services Plan is described in Attachment 7.
h. Definition of Good Cause for Non-Participation
The definition of good cause for non-participation can be
described as follows:
Page 6
Section C: Description of Program Purposes
1 ) Welfare Diversion Program: See 12.500.1 of the Colorado
Department of Social Services Regulations.
2) Community Work Experience Program: See 3.640.3 of the
Colorado Department of Social- Services Regulations.
3. Assurances
Weld County Commissioners makes the following statements of
assurance:
a. The Employment Services Plan has been developed in cooperation
with state departments, state agencies, local agencies,
including the Weld County Private Industry Council , local
school districts, and local community colleges or area
vocational technical schools;
b. The plan conforms with federal , state, and local employment and
training priorities, criteria , and standards;
c. The plan is responsive to the employment needs of the private
sector, program participants, and economic conditions within the
county;
d. The plan is compatible with and supportive of federal state, and
local business and economic development activities; and
e. The plan provides for maintaining the current level of effort,
as negotiated with the State Department of Social Services, in
existing programs funding by Title IV-A and IV-C of the Social
Security Act and the Food Stamp Job Search Program.
Page 1
Section D: Description of the Methods of Integrating Programs Services,
including the Work Supplementation Program, under the Job
Alternatives Program/Job Search Policy
The Weld County Commissioners and the Weld County Private Industry
Council were concerned with the rising caseload of Aid to Families of
Dependent Children (AFDC) and its associated rising cost to the county.
Employment, training, and social service systems were inflexible, worked
independently from one another, and not very responsive to the needs of
the county. These systems supported independent programs (staff,
administration, and services) that resulted in duplicative efforts and a
failure to focus funds to the applicant and recipient of welfare.
The Weld County Commissioners and the Weld County Private Industry
Council began to identify what existed in programs and services, sought
input at the national , state, and local level , and identified problems
and solutions in putting the applicant and recipient of welfare to work.
The process and decisions that Weld County had to undertake were:
1. Planning Process
The first step was to identify who should be included in the
planning process with the Weld County Commissioners and the Weld
County Private Industry Council .
Those included were representatives from the state and local
levels of the Colorado Department of Labor and Employment, the
Colorado Department of Social Services, and the Governor's Job
Training Office. At the local level , representatives from
county-operated program were included from the Weld County
Department of Social Services and the Weld County Department of
Human Resources/Employment Services of Weld County.
The planning process included the following factors:
a) Identify how the programs should operate to support the
common goal of diverting applicants and recipients of AFDC
to employment.
b) Identify the organizational structure or who will be
responsible for the coordinated program.
c) Identify the resources. Who will control these funds and
how.
Page 2
Section D: Description of the Methods of Integrating Programs Services ,
including the Work Supplementation Program, under the Job
Alternatives Program/Job Search Policy
A plan was developed. The programs and activities were to be
merged under one single delivery system, which would be operated
through the Weld County Commissioners. Specifically, the
operation of the employment and training systems would be under
one local administrator through the Weld County Division of
Human Resources/Employment Services of Weld County. The support
services system would be under the Weld County Department of
Social Services in close coordination with the Weld County
Division of Human Resources/Employment Services of Weld County.
The outcome of a single delivery system would be a total system
that would focus on assisting the welfare applicant and
recipient in seeking and obtaining unsubsidized employment.
2. County Negotiations
The Weld County Commissioners and the Weld County Private
Industry Council met with state agency directors and negotiated
contracts, agreements, waivers, or plans that would support the
Weld County Commissioners being the administrator for all
programs and services. This was necessary to transfer the
administration of the state-run programs to county-run programs ,
to alter staffing needs and to change how resources would be
spent within the county.
This process required the support of the political community,
and the national administration in the negotiation, law change,
and waiver request submittals on behalf of Weld County.
Section E: Relationship with other Programs and Agencies
The types of relationships with other programs and agencies are de-
scribed below:
1. Work Incentive Program: Weld County has elected not to operate the
Work Incentive Program (WIN). More effective diversion of
applicants can be accomplished with the Welfare Diversion Program
and other programs as outlined in the Employment Services Plan.
2. Community Work Exyerience Program: Weld County has requested
waivers under this program so it may be operated with recipients of
AFDC in a training/classroom component. The program would be
administered by the Weld County Department of Social Services and
the Employment Services of Weld County.
3. Job Service Center: The Job Service Center is a program
administered by the Employment Services of Weld County.
4. Service Delivery Area: The Service Delivery Area is a program
administered by the Employment Services of Weld County.
5. Food Stamp Job Search Program: The categorization of food stamp
participants is made by the Weld County Department of Social
Services. The Job Search activities will be accomplished through
the Employment Services of Weld County.
6. Employment Search (IV-A Job Search): The categorization of
mandatory recipients (with children six years of age and over) is
made by the Weld County Department of Social Services. Weld County
will not provide a mandatory program for applicants. The employment
search activities will be accomplished through the Employment
Services of Weld County. Operations for the Food Stamp Job Search
Program and the Employment Search Program will be merged whenever
possible.
1
Section F: Waivers Requested
Under the Weld County Employment Services Plan, the following waivers,
which will require federal approval , are requested pursuant to the Job
Alternatives Program (HB 1288) and the Job Strategy Policy. These
waivers have been submitted by the Colorado State Department of Social
Services in December 1986 and are described in detail under its
submittal for waiver requests under Section 1115 of the Social Security
Act.
1. Waivers Request (Section 1115 (a)(1): Welfare Diversion Program
a. Waiver of 402 (a)(1): Statewideness
b. Waiver of 1902 (a)(10)(9A) and (B): Eligibility for Medicaid
c. Waiver of 402 (a)(5) : Methods of Administration
d. Waiver of 402 (a)(7): Counting of Income and Resources
e. Waiver of 402 (a) (8): Application of the 30-&-1/3
f. Waiver of 402 (a)(10) : Prompt Payment
g. Waiver of 402 (a)(13) : Retrospective/Prospective Budgeting
h. Waiver of 402 (a)(14) : Monthly Reporting
i. Waiver of 402(a)(18) : Income not exceeding 185%
j. Waiver of 402 (a)(19) (A)(v) : WIN Registration exemptions
2. Waiver Request (Section 1115 (a)(1): Community Work Experience
Program
3. Cost (Section 1115 (a)(2) : Welfare Diversion Program
a. Federal Government Match
b. Workmen's Compensation
c. Medicaid Waiver
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