Resources to Initiate Successful Employment

APPLICANT:

Washington State Department of Social and Health Services

Economic Services Administration

Community Services Division

712 Pear Street

Olympia, WA 98501

CONTACT NAME:

John Camp, Food Assistance Administrator

Community Services Division

712 Pear Street

Olympia, WA 98501

360 725-4616

PROGRAM NAME:

Fiscal Year 2015 Pilot Projects to Reduce Dependency and Increase Work Requirements and Work Effort under the Supplemental Nutrition Assistance Program (SNAP)

CFDA: 10.596

TABLE OF CONTENTS

I.Introduction and Background1

II.Innovations Proposed in the Pilot3

III.Statement of Need4

IV.Project Area Information and Labor Market Needs7

V.Target Population10

VI.Pilot Project Design12

A.Service Delivery13

B.Measurements of Success19

C.Outcomes20

D.Sustainability21

E.Identification of Pilot Providers21

VII.Implementation Plan and Organizational Capacity22

A.Timeline22

B.Organizational Capacity - Staffing22

C.Communication and Assurances24

VIII.Capacity to Support an Independent Evaluation25

IX.Budget

A.Summary

B. Narrative

C.Approved Negotiated Indirect Cost Rate Agreement

Appendix

  1. Letter of Agreement
  2. Maps (Pilot Counties and Current BFET Providers)
  3. Organizational Charts
  4. Reimbursable Support Services
  5. BFET New Contractor Assessment
  6. Risk Assessment for Selecting Contractors
  7. Sample Planning Tools
  8. Support and Commitment Letters
  9. Chart of RISE Staffing Job Duties, Resumes, and Job Descriptions
  10. Overview of Labor Market Data for all Four Pilot Counties
  11. Department of Labor O*Net Website Example
  12. Details on Subsidized Employment
  13. RISE Client Flow Chart
  14. RISE Logic Model
  15. Federal Review of State BFET Program

Resources to Initiate Successful Employment

I.INTRODUCTION AND BACKGROUND

The Washington State Department of Social and Health Services (DSHS) requests $28 million for a three-year pilot to work with approximately 9,000 SNAP recipients who face multiple barriers and challenges to self-sufficiency. The pilot,called“Resources to Initiate Successful Employment” (RISE),will test dependency reduction strategies and increase work efforts for SNAP recipients living in four counties in the statethat represent urban and rural communities. The pilot will offerinnovative approaches tailored to individual pilot participants who warrant increased focus to help them find employment, considering individual client needs as well as local labor market conditions and employer needs. RISEwill expand or create new services and training programs to help remove personal and educational/skills barriers to success.

Washington State has an effective track record administering the Basic Food Employment and Training (BFET) program. The program is a national SNAP E & T leaderproviding participants with opportunities to gain skills, training, or work experience to improve their employment prospects and reduce reliance on SNAP benefits. BFET is an important part of the state’s comprehensive workforce development system; since its startBFEThas successfully helpedmore than 11,000 SNAP individuals become employed. During the height of the recession, 60% of the state’s BFET participants acquired jobs. A recent analysis found fewer than half of those enrolled remained on assistance two years after starting the program.[1]

Between 2005 and 2014 the BFET program has leveraged more than 40 million new dollars in federal and local funds through local Community Based Organizations (CBOs) and colleges to provide new services for SNAP recipients.These clients would typically have no access to these services without BFET.The hallmarks for the current program’ssuccess are reduction on SNAP reliance through employment, emphasis on training leading to employment, and the compilation of substantial BFET data[2] to support planning and federal reporting requirements. From August 1, 2013 to July 31, 2014, the program served 20,308 participants. Statewide;current BFET providers report a 60-70% completion rate for their programs since BFET began, which reflects the success of the program. These statistics show that BFET is doing well, but the program is voluntary and primarily designed to help SNAP recipients who are job-ready. Washington Stateintends to use the Fiscal Year 2015 Pilot Project funds in a voluntary pilot program that will help more people with barriers become job-ready and attain self-sufficiency.[3]

The state’s success with the BFET program has underscored particular needs among SNAP work-eligible populations that the current infrastructure is not equipped to meet.This pilot is designed to create that infrastructure and meet the state’s need with new and creative strategies to achieve success with a broader and deeper segment of the SNAP population, e.g.,people facing specific challenges like homelessness, limited English proficiency, veterans trying to transition from military to civilian life, long-term unemployed, etc. In these segments, clients may be job-ready or may face multiple barriers to self-sufficiencypreventing them from findingor keeping employment. Working in partnership with the state and local workforce boards and the community and technical college system, with input from the local community agencies who work with BFET clients, RISE will use past program evaluations and experience and evidence-based strategiesto offer a new workforce development approach that meetspilot participant needs. These partnerships are critical to ensure the success of the state’s BFET program and the alignment of the resources available, and will continue to be crucial to this pilot. A 2012 Aspen Institute Study[4] found workforce development approaches focusing on low-income working adults are successful when service providers:

  • Combine the strengths of community colleges and local workforce nonprofits to serve students more effectively than either could alone;
  • Target a specific industry or cluster of occupations, developing a deeper understanding of the interrelationships between business competitiveness and the industry needs;
  • Support workers in improving workplace skills, enhancing their ability to compete for jobs;
  • Support students in education pathways, providing motivational support/case management, as well as access to needed social services and academic supports, including basic skills; and
  • Provide labor market navigation services and connections to employers and jobs to help students find jobs and build the professional networks and communication skills they need to retain jobs and succeed within a local industry.

RISE will apply these lessons to serve Washington SNAP work registrants to:

1.Providethem access to work-based learning opportunities (WBL) during or post-training to increase attainment of living-wage jobs in high-demand industries;

2.Address their self-sufficiency barriers through comprehensive case management (CCM) on a one-on-one basis to individualize goals and employment plans, and provide support, navigation of services, and follow-up; and

3.Combine WBL and CCM to boost support and outcomes.[5]

Over three years RISE anticipates helping up to 70% of the 9,000 pilot participants address their barriers to self-sufficiency and become job-ready or find employment. Short term outcomes will include barrier reduction, increased motivation, completion of life skills/soft skills training, increased access to support services and local resources, active engagement with a case manager, and development of an individual plan articulating short and long term goals. Long-term outcomes will include enrollment in education or training, occupational training in high-demand fields,progression on an educational/career pathway, engagement in WBL, successful completion of WBL, employment, and reduction in or elimination of SNAP benefits.Like BFET, RISE will also be voluntary, as the state recognizes much of the success of the program has come from working with participants who are committed to improving their lives in spite of their barriers. RISE will target services to the followingSNAP work registrants.[6]

  • Long-term unemployed for at least twelve consecutive months,
  • Homeless individuals and families,
  • Limited English proficient (LEP) individuals,
  • Veterans, and/or
  • Non-custodial parents (NCPs) with a delinquent payment history.

The strategies in RISE will address current issues:

1.BFET participants attending college or other training who lack the foundations/face barriers to succeeding in training;

2.Students exiting training who are eager for work but are unable to get unsubsidized work due to lack of employability skills (resume, interview skills, acculturation to workplace), and lack of relevant or recent work experience; and

3.Individuals who do not need training but need support and barrier removal to enter the job market.

RISE will be flexible, offering client-tailored services to assure participants receive the help they need to exit SNAP successfully.Washington State’s achievements in the BFET program reflect the innovative and collaborative partnerships between government, community colleges and CBOs that have created innovation. These partnerships will continue to be leveraged through this pilot to improve the BFET program and ultimately the state’s workforce system. RISE is designed to positively impact the lives of vulnerable individuals and their families and make a real difference in their lives.

II.INNOVATIONS PROPOSED IN THE PILOT

RISE takes lessons from the current robust BFET program, and builds on promising practices and evidence-based strategies in case management and work-based learning reflective of the cutting edge of workforce training. The pilotwill test two standalone strategies as well as the combination of both strategies:

  1. Standardized comprehensive case management (CCM) including coaching, navigation and providing or referring the participant to other services as needed,
  2. Work-Based Learning (WBL) opportunities which may include unsubsidized and subsidized employment, pre-apprenticeships, workstudy, internships, career exploration anddevelopment of a career pathway, and the integration of vocational skills and employability skills with on-the-job-training, community jobs, transitional jobs, employer engagementor
  3. The combination of both CCM and WBL strategies to address barriers and support progression towards self-sufficiency.

RISE will provide 100% funding for program costs and participant reimbursements for the term of the three year pilot (see a list of allowable services in the Appendix #4). CBOs and colleges with experience in intensive, well-designed programs will provide services for pilot participants.[7] In year one of the pilot, participating RISE providers must begin sustainability planning to identify potential sources of public and private employers, and local matching funds, and then secure continued funds after the pilot ends. This requirement will ensure the sustainability of successful strategies identified during the pilot. RISE will offer an intentional connection to employers, improve educational and skill training completions, and engage and organize a network of private employers to identify skills gaps, ensure college curricula are meeting employer needs and offer WBL opportunities to participants. The pilot evaluation will provide detailed data to evaluate success and the pilotpartnership’s ability to develop strategies to sustain CCM and a WBL model over time with newer and more comprehensive strategies. The state is confident the benefits of this pilot will improve the future of BFET and the lives of many SNAP participants by:

  • Instituting a common assessment tooland Individualized Employment Plan (IEP)for all pilot participants for a uniform intake and evaluation process;
  • Developing a databaseto coordinate communications with pilot providers to retrieve common tools (such as Assessment and IEP), enable quick DSHS/evaluator review of case documents and status, and eliminate duplicate work between pilot providers.
  • Providing Work-Based Learning opportunities in all four pilot counties;
  • Strengthening public-private partnerships to engage employersfor in-demandoccupations to identify training gaps and offer work-based learning (WBL) opportunities for participants to gain experience and employment in those fields;
  • Increasing outcome data collection and reporting for continuous improvement;
  • Leveraging resources from other workforce partners and new funding sources for future matches to integrate BFET services into the wider workforce system to leverage staff, maximize pilot funds, and ensure participants receive the necessary barrier removal services (such as housing, mental health, chemical dependency);
  • Instituting process improvement and systematic changes by using successful strategies and lessons learned from RISE to inform and enhance the current BFET program;
  • Collaborating across multiple state agencies and partnering with theState Workforce Training & Education Coordinating Board (SWTCB) and the State Board of Community and Technical Colleges (SBCTC) to create networks for services to support pilot participants, including affordable and accessible education/training programs, to facilitate relationships between SNAP participants seeking training, employers and BFET/RISE providers, and
  • Co-locating intensive services to provide“just in time” support and services to participants for services they need when they need them, and in one convenient location to keep service “seamless,” and help participants focus on their careerbuilding paths.

III.STATEMENT OF NEED

Since the inception of SNAP E & T there have been changes in the population served, in Washington State as well as the nation, with therecession producing newly unemployed individuals who turn to national safety nets for nutrition assistance and work support. While some of these individuals need job search, training, and basic skills to be job-ready, it is evident others benefit more from vocational training to obtain skills in a high demand career pathway leading to consistent employment, and increased chances of a careerwith a living wage. The National Skills Coalition reported that skills are critical components of economic success, particularly in today’s economy—two in three jobs created in the next decade are expected to require at least some postsecondary education or training. A Government Accountability Office report found limited education and work histories make it extremely difficult for SNAP E&T participants to compete in this new labor market/obtain employment.[8]Critical state needs are:

Multiple Barriers - Many Basic Food households face multiple barriers to self-sufficiency. Many of theseare employment-related: limited knowledge of labor market and training opportunities, limited or no work experience, and/or lack of employability skills (the soft skills needed to obtain and keep a job). Others are more personal or logistical: low basic skills, lack of self-esteem and motivation, lack of stable housing and transportation,need for childcare,mental health issues, chemical or alcohol dependency, and the need to work, often full-time, while enrolled in school or training.

Career Pathway Training and Education - The BFET program is successful in connecting people with the workforce by providing employability assessments and a menu of high demand career pathway training/education programs. Colleges identify high demand career pathways, assist students to develop educational plans tied to employment goals, and offer navigational support and services to ensure completion. CBOs provide wrap-around and navigation services for clients to find employment or get training/education needed for employment. BFET participants have trained in sectors such as Business Management and Administration; Health Services; Information Technology; Manufacturing; Nursing; Transportation, Distribution and Logistics (auto mechanic and truck/bus drivers); and Basic Skills. These services will continue in the pilot; however, proposal planners have found a lack of consistency in case management neededto coordinate servicesduring training and job placement assistance. In addition, many clients who enter training have inconsistent work histories, lack employability skills, or face multiple barriers.

King County / Pierce County / Spokane County / Yakima County
LT Unemp / 27,917 / 19,220 / 11,085 / 7,567
Homeless / 11,479 / 7,559 / 4,113 / 2,261
LEP / 4,580 / 971 / 469 / 2,046
Vets / 571 / 329 / 137 / 35
NCPs / 3,434 / 2,820 / 2,043 / 1,162

Pilot population by county:[9] RISE will serve target populations meeting one or more of the categories shown in this chart. Although numbers are reported by categories, individuals in these groups often face a multitude of barriers, such as a veteran who is unemployed, struggling with housing needs, and having difficulty transitioning to civilian life. As the chart shows, there are sufficient work registrants who would qualify for RISE in each county to facilitate random control processes to adequately test the strategies proposed in this application.

In total, 33% of the target populationsmeet two categories of the pilot (approximately 25,000), and 6.3% meet three categories of the pilot.The fact that the total numbers by need substantially dwarf the number of potential participantsin the pilot showsa large majority of the targeted groups contend with multiple barriers. Categories to be served by RISE are:

1.Long-Term Unemployed - SNAP recipients who have been unemployed for at least twelve consecutive months face difficulties finding employment for many reasons,which may indicate presence of undisclosed or latent barriers or skills deficiencies.

2.Homeless - Many BFET providers serve a high percentage of SNAP recipients who are homeless.[10]

3.Limited English Proficient clients- Approximately 18.2% of the state, or more than 1.2 million people, speak a language other than English at home.[11]They areoften immigrants and refugees, but there are many U.S. citizens who do not speak English as their main language.

4.Veterans[12]- According to a Prudential study,[13]two-thirds of veterans experience a difficult transition from military to civilian life, largely attributed to unemployment and health challenges, but also a need for time to decompress after their service.

5.Non-Custodial Parents (NCPs) – Many NCPs lack adequate skills to be self-sufficient in a competitive labor market; they face challenges meeting dependent Child Support obligations. Those who fall behind in support payments struggle with legal consequences. As of July 2014 there were 253,281 open child support cases, with 66,031 receiving food assistance, and 80% not paying their child support payments or paying sporadically. Of these non-paying NCPs, 13,052 or 25% of their dependents/families received Temporary Assistance for Needy Families (TANF) and/or food assistance.