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Congressional Testimony
April 10, 2002 Wednesday
SECTION: CAPITOL HILL HEARING TESTIMONY
LENGTH: 3059 words
COMMITTEE:
SENATE FINANCE
HEADLINE: WELFARE
OVERHAUL
TESTIMONY-BY: HOWARD DEAN, M.D.,, GOVERNOR
AFFILIATION: FROM VERMONT
BODY: CORRECTED COPY
Testimony of Governor
Howard Dean, M.D., from Vermont,
on Welfare Reauthorization and Work
Requirements
Senate Finance Committee
April 10, 2002
Mr.
Chairman and Members of the Committee:
Thank you for inviting me to
testify. I have been the Governor of Vermont since 1991. My state was one of the
first states to obtain a state-wide waiver to implement our 7-year welfare
reform demonstration project before the 1996 federal welfare reform effort. We
have learned much in Vermont about what works to move families toward
self-sufficiency and away from a dependence on cash assistance.
In my
testimony today, I will discuss the modifications to the
TANF
work requirements that the Administration proposes. I will explain how the
proposed changes vary from the current law that Vermont and other states relied
upon in creating their programs. I will tell you, from a Vermont perspective,
the effects Vermont anticipates the Administration's proposed restrictions, if
adopted, will have on the future success of our
TANF program.
My testimony today will highlight the inherent difficulties that would result
from implementation of the administration's proposal. Specifically, I will focus
on the following points:
-The Administration's proposed work
requirements will significantly erode the primary
TANF purpose
of increasing states' flexibility to operate a program designed to meet the four
TANF purposes.i
-The Administration's proposed work
requirements are unsupported by research findings of effective welfare-to-work
strategies and do not align with community-based services infrastructure.
-The Administration's proposed work requirements raise the bar for
TANF participants to a level higher than reflected in
employment practices outside the program.
-Adoption of the
Administration's work requirements will have substantial costs - both financial
and to the continuing success of the
TANF program.
The
Administration's Proposal for a rigid 24/40 model will limit the current
flexibility afforded to the states. This 24/40 proposal requires all adult
TANF recipients to engage in 40 hours of activities per week.
To count toward a state's rate, the participating adult must spend at least 24
hours in one of a limited set of five "direct work" activities and the remaining
16 hours must be spent in any activity that serves a
TANF
purpose. A family's participation in activities will not count toward the
participation rate unless the adult is meeting the 24- hour requirement. To be
counted fully toward the state's participation rate the adult must be meeting
the 40-hour requirement.
The Administration's proposal reduces the 12
core work activities that now count toward the participation rate to 5 direct
work activities. It raises the number of hours of participation required for all
adults from 30 hours per week (20 hours for families with children under six) to
40 hours per week. It requires "universal engagement" for all
TANF recipients and increases the participation rate from 50%
to 70% over time. Provided the individual is meeting the 24-hour piece, 16 hours
of participation in activities other than the direct work activities may count
toward the participation rate. Participants needing more time than 16 hours a
week to address barriers or engage in training and
education
have up to 3 consecutive months within a 24-month period to do so and states can
count this participation toward their rate.
In Vermont, we have aligned
our work requirements with the current federal requirements to ensure compliance
with
TANF and have exercised the state's flexibility to tailor
the Reach Up Program to the realities of Vermont's caseload, labor market, and
resource delivery systems. Capable participants in Reach Up must meet the
federal work requirements. Each participant must set an employment goal to meet
or exceed the applicable work requirement with unsubsidized employment within
the labor market. Because of flexibility afforded under current law, Vermont can
provide reasonable accommodations for participants with multiple barriers and
match them with activities that address these obstacles so they can attain the
ultimate goal of unsubsidized employment.
Vermont already has achieved
the "universal engagement" outcome the Administration proposes. The Reach Up
Program's foundation principle is that everyone can and should be doing
something to move toward self-sufficiency. The irony for Vermont is that the
Administration Plan's prescriptive work requirements and limited countable
activities will curtail Vermont's ability to move less capable
TANF recipients along a continuum of activities. Approximately
30% of Reach Up participants have barriers that, if not addressed, will prevent
them from engaging in full-time work. Vermont would have to shift its current
focus away from preparing participants to gain sustainable unsubsidized
employment that leads to self-sufficiency and train our efforts on immediately
placing participants in direct work activities. Resources would have to be
redirected away from services and activities not immediately related to work.
The state would have to develop expensive workfare and work experience
programs. Continuance of existing initiatives to support employment-related
vocational and postsecondary
education would be jeopardized and
timeframes for participation in vocational rehabilitation and treatment programs
would be significantly altered, shortened, or not available. Vermont is proud of
its Reach Up Program's design. Reach Up's mixed-strategy approach emphasizes
attainment of sustainable unsubsidized employment. Methods for achieving this
goal are tailored to the individual family. Participants with measurable skills
move directly to job search and employment while participants with barriers that
slow or prevent immediate attainment of an employment goal are required to
participate in services and activities designed to address the family's needs
and maximize its human resource capital. Mixed strategy programs like Reach Up
are recognized as the most successful types of programs.ii The Reach Program can
be summarized in three steps. In step one we assess the capabilities and needs
of the families to be served; all participating adults are required to undergo a
formal assessment. The plan and strategies each family develops with their case
manager to meet their goal for unsubsidized employment are based on the
assessment results. Collective assessment results show that the needs of Vermont
families mirror the needs of the greater
TANF population as
reflected in studies by the General Accounting Office (GAO) and others.
Twenty-one percent of Reach Up participants iv report mental and
emotional barriers (including substance abuse problems) and 24% report physical
barriers. The GAO study found that 44% of
TANF recipients had
at least one physical or mental impairment and estimated the prevalence of
substance abuse barriers among
TANF recipients to range from 6%
to 27%.v Twenty percent of Vermont's participants report barriers related to
parenting a child with special needs is in keeping with the findings that about
a quarter of
TANF recipients have a child with an illness,
disability or emotional problem. In addition, 32% of Vermont participants have
barriers related to a lack of essential
education skills, such
as literacy, and 39% were assessed to have employment-related barriers, such as
lack of marketable skills and no previous attachment to the work force.
After assessing the needs of the population, in step two we assess what
the community has to offer in services,
education, and labor
resources. We look for resources that can meet the needs of and strengthen
families so they can achieve the goals of the program. In communities where the
needed services and opportunities are absent alternatives must be developed.
In the third and final step we connect participants with appropriate
activities in a planned and structured way. Case managers provide ongoing
support as needed and monitor families' progress toward achieving their
employment goal within a reasonable period of time. The greatest challenges for
Reach Up and the families it serves are the barriers faced by so many of the
families. Of the program's assessed families the average number of barriers per
participant is three barriers. To overcome these barriers families need time to
engage in one or more activities. In a rural state like Vermont the services
needed are not always convenient to home, school, child care or work. Services
and programs are not as regularly scheduled as they may be in more urban areas.
Often the primary challenge is to bring the service to the family or the family
to the service.
Because the Administration's proposal does not recognize
this challenge, it serves to compound the problem. Connecting services to
participants will be harder or impossible with the Administration's plan in
place. Essential activities simply may not be available at the times permitted.
For example, mothers with co-occurring substance dependency and mental illness
could not participate in Vermont's Families in Recovery program because this
residential program takes one year to complete. Yet it is the only program in
Vermont that keeps parents and children together by treating the entire family.
The Administration's Plan would allow for participation in short-term
residential or intensive outpatient services that can be completed within a 3-
month period during any two years. But up to 40 % of recovering alcoholics and
70% of hard drug users have relapses. The Administration's Plan will drastically
limit the treatment alternatives available for these individuals to address
their problems.
In Reach Up participants with physical, emotional and
learning disabilities are referred to the vocational rehabilitation program.
These individuals work with specially trained case managers who help them to
enter the work force in an average of 12 months. With the Administration's Plan
in place, most who need the vocational rehabilitation will not be able to
participate. Some Reach Up participants choose to pursue vocational
education as part of their employment plan. Successful
vocational
education programs, such as licensed practical
nursing and Job Corps, lead to skilled jobs with potential for advancement. But
these programs and others like them take more than 3 months to complete and will
not be an option under the Administration's plan. Adoption of the
Administration's Plan will signal the demise of successful mixed-strategy
programs like Reach Up. And, because the Administration's proposal also would do
away with the waivers that would allow programs like Reach Up to continue,
states' efforts to develop innovative programs will be suppressed.
The
Administration would hold
TANF families to a higher standard
than the rest of the country and require them to get jobs faster and work more.
By increasing participation rates and eliminating caseload reduction credits,
the Administration's plan compels states to move all families, including those
with barriers and little or no attachment to the work force, into direct work
activities as soon as possible.
Moreover, this expectation of immediate
attachment to the work force for those families with multiple barriers and few
or no skills is not only unrealistic, it is inconsistent with the expectations
that we as a nation hold for the unemployed.
This country's unemployment
compensation program serves only individuals who have had a recent and
substantial attachment to the labor force. Recipients in this program continue
to receive benefits for at least 6 months (or more during times of high
employment) and the only activity in which they must engage is job search. In
contrast, the Administration's Plan, which does not include job search as a
direct work activity, would require engagement in direct work activities within
30 days.
Not only does the Administration want
TANF
families to find work faster, it wants them to work more too. The Bureau of
Labor Statistics says the workweek for production or nonsupervisory workers on
private payrolls has consistently averaged 34 to 35 hours over the last
decade.vii In Vermont, the average weekly hours employees spend in the service
industries is between a 30 to 32 hours and workers in the retail trade average
29 hours per week. In contrast, the Administration wants all
TANF recipients to engage in activities for 40 hours a week.
The fact that 16 of the 40 hours may be spent in other
TANF-related activities does not diminish this higher
expectation of productivity for
TANF families; it is the
required level of commitment that is not in conformity with the practice.
The related costs associated with the work requirement changes would be
substantial. Vermont would have increased costs for child care, transportation,
and work site development and maintenance. The cost of child care for universal
engagement at 40 hours per week is high. To meet the 40-hour requirement
Vermont's Reach Up parents will need to participate in no fewer than two
activities. Realistically, some activities will only be available at night, on
weekends, and holidays. Off-hours child care is more expensive and harder to
find. Vermont estimates costs will increase by $
10 million to
cover child care under the President's proposal. According to the a report by
the National Research Council and Institute of Medicine, the costs of placing
young children in full-time child care may not be only financial. The report
indicates that early relationships are especially critical to childhood
development and notes the persistence and pervasiveness of substandard child
care. The report recommends that government leaders should extend the time
TANF parents with young children may be excused from work
requirements.
In rural Vermont,
TANF families often
must travel in different directions to get to work and take their children to
school and child care. The Administration Plan's 40-hour requirement means more
travel to more activities. Vermont anticipates increased costs to ensure
TANF families have access to reliable transportation.
To ensure Vermont can meet the participation rate and our participants
are in direct work activities will require the additional development of direct
work placements. Currently, Vermont operates a community service/work experience
program and funds 116 slots in group worksites.
We would need to expand
these opportunities significantly to meet the proposed work requirements.
Providing supervision at a group work site costs approximately
$
40,000 to $
45,000. At 15-20 slots per site,
this translates to a state expense of $
3000 per slot (filled or
unfilled). Additional staff time would be needed to create these opportunities
and manage the contracts. Individual slots do not incur the supervision expense,
but require additional time to develop slots and monitor the participants'
participation.
Community service placements will not fill all of
Vermont's needs for direct work slots. Vermont will also have the costs of
developing workfare placements. Vermont has had direct experience with the
intricacies and burdens of managing these programs and they are costly on
several levels. Because these slots are subject to the minimum wage standards of
the Fair Labor Standards Act, participants must be paid wages that in most cases
will exceed the amount of the family's assistance grant. In addition to wages,
the state will bear the burden of the associated costs to support the payroll
process and expenses such as workers' compensation. The costs of expanding
workfare and community service placements are not only financial.
According to the research, there is little evidence that unpaid work
experience leads to consistent employment, earnings effects, or reductions in
welfare receipt. None of the Welfare-to-work programs evaluated by Manpower
Demonstration Research Corporation to date would have achieved the level of
participation proposed by the Administration. Yet the effect of the
Administration's Plan would be to force states to increase the use of work
experience programs at the cost of losing the successful mixed- strategy and job
search programs.
It is difficult to say why the Administration seeks to
change the
TANF program in a way that undermines the very part
of the program that led to its success: states' flexibility. Why does the
administration want to abandon proven policies? The prescriptive measures the
Administration proposes may be the result of a combination of the factors: a
34%viii participation rate and the belief that this rate indicates that families
are not sufficiently engaged due to exceptions in the law. Unfortunately,
reliance on the participation rate as a measure of families' involvement is
misguided. It is not an accurate indicator of families' participation in
activities related to achieving self-sufficiency. The participation rate
measures only the percentage of families who are engaged in and meeting the full
federal work requirement.
Families who are working at levels below the
federal requirements or actively engaged in activities to overcome physical,
emotional and other barriers to work are not included in the rate.
In
fact, there is no true measure of family engagement because states are not
required to report, nor do they derive any benefit from reporting on family
participation in state-approved activities that are different from federal work
activities. The data is incomplete. It would be a travesty to substantially
modify a successful program based on inaccurate or at best incomplete data.
Families in need have heard and heeded the message of the past five years of
welfare reform; public assistance no longer means income maintenance. Now
families seek
TANF assistance for temporary financial support
and services to put them in a position to rely on themselves instead of public
benefits. Congress should let the states continue down the successful path
already charted. The best way to do this is to maintain or broaden the states'
flexibility to craft programs that serve their families and the goals of the
TANF program - the Administration's Plan does not do this.
LOAD-DATE: April 12, 2002