Introduction
An analysis of state policies reveals a common trend: most states have been sluggish in differentiating individuals with disabilities from the broader TANF population Overall, there is a notable lack of targeted policies aimed specifically at supporting people with disabilities.
Each state claims to fulfill its obligation to support individuals with disabilities through personalized, one-on-one case management While this approach may address some needs, it is essential to critically assess its effectiveness Key factors to consider include the number of clients assigned to each caseworker and the level of training caseworkers receive to adequately evaluate and serve individuals with disabilities.
States face challenges in distinguishing TANF recipients with disabilities from the general population and lack accurate data on their numbers Estimates vary widely, with some states suggesting less than ten percent have disabilities, while others claim up to eighty percent may be affected The difficulty in identifying and assessing certain disabilities, especially learning disabilities and mental health issues, hampers accurate estimation Nonetheless, all states recognize that as more job-ready clients exit TANF, the proportion of harder-to-serve clients, including individuals with disabilities, is expected to rise.
Despite efforts by various states to assist clients with disabilities, insufficient caseworker training and poor coordination between TANF agencies and service providers hinder access to essential support for employment Among these states, Minnesota stands out for its proactive development of targeted programs and strategies designed specifically for individuals with disabilities.
A significant issue remains as several states have yet to tackle the problem of time limits on benefits, raising concerns about how they will assist individuals who still need support once their benefits expire.
While no state offers a complete exemption from TANF program work requirements for individuals with disabilities, certain states are adopting a more proactive "work first" strategy for clients facing multiple employment barriers In Illinois, there is ongoing uncertainty about whether the state will provide additional support to TANF recipients who exhaust their benefits.
The implementation of PRWORA and TANF has significantly impacted welfare services, leading many states to overlook disability-specific strategies As states prioritize compliance with federal regulations and the reduction of welfare caseloads, the needs of individuals with disabilities may be inadequately addressed The nascent nature of the TANF program means that states are still exploring effective methods to support TANF recipients with disabilities Now that most states are acclimating to the new welfare system, it is crucial for them to reevaluate their programs to ensure they effectively meet the needs of all TANF recipients, including those with disabilities.
While states claim they are effectively serving clients with disabilities, advocates for these individuals disagree, highlighting that states fall short in meeting the needs of TANF recipients with disabilities Concerns arise that when federal time limits on benefits expire, many of these recipients may face significant hardships With states having successfully reduced welfare caseloads by assisting job-ready individuals, the focus must now shift to supporting harder-to-serve clients, particularly those with disabilities.
Cross Case Analysis
In its report State Welfare-to-Work Policies for People with Disabilities: Changes Since Welfare
Reform, the Urban Institute identifies two key challenges that welfare reform presents to states:
1 States must consider the diverse needs of individuals with disabilities while meeting the work participation and other requirements established in federal law;
2 The imposition of state and federal time limits increases the immediacy of welfare recipients’ need for help in overcoming their barriers to work and self-sufficiency.
This analysis of five case studies reveals how states are addressing various challenges related to work participation, time limits, identification, ADA procedures, and employment outcomes Each case study is organized into key topics, allowing for a comparison of state policies and programs For detailed information on each state, refer to Appendix C.
“universal” participation will be compared to states that do not, to determine if the level of participation required influences how states serve recipients with disabilities.
Definitions
Experts estimate that 10-30% of TANF recipients face work-related disabilities, mental health issues, or substance abuse problems, while an additional 25-40% struggle with learning disabilities As states introduce new TANF programs and the economy thrives, TANF caseloads are declining However, as the most job-ready recipients exit welfare, the proportion of clients who are harder to serve, including those with disabilities, is expected to rise.
State TANF programs have varying definitions of "disability." In Maine and Vermont, "incapacity" focuses on a parent's ability to care for their child, while Minnesota and Washington emphasize disabilities related to illnesses or injuries that hinder work and daily activities Illinois adopts a different approach by not explicitly defining "disability," viewing it as one of several barriers to employment In Illinois, only individuals classified as disabled under the stringent SSI/SSDI criteria, typically those with severe disabilities, are considered "disabled" and exempt from work requirements; others with disabilities must comply with TANF obligations.
The lack of a universal definition of disability does not imply that the disabled TANF population is underserved, nor does it mean that one definition is superior to another However, the way states define disability, such as the focus on a caregiver's ability in Vermont and Maine, can reveal their goals and priorities in managing TANF programs, like family protection or work-first initiatives Additionally, there seems to be no correlation between a state's definition of disability and the participation levels expected from disabled TANF recipients.
Work Participation/Time Limits
The imposition of time limits on TANF benefits is a highly debated issue, with recipients typically having five years or less to secure employment While states like Vermont do not enforce time limits for clients struggling to find work, Illinois, Maine, and Washington mandate participation in work requirements and impose time restrictions on benefits Notably, Maine has pledged to use state funds to assist TANF recipients beyond the standard sixty-month limit Additionally, Minnesota exempts severely disabled individuals from work requirements but still applies time limits to their benefits.
No state explicitly alters work requirements for individuals with disabilities; instead, they grant counselors the discretion to define these requirements, including aspects like education, training, and treatment In Minnesota, TANF recipients are deemed to be "engaging in work" as long as they meet the minimum required work hours, which can include time spent on assessments, therapy, medical appointments, and structured job searches Similar policies are observed in Illinois, Washington, Maine, and Vermont Washington, in particular, has a broad interpretation of "preparing to work," expecting TANF clients to be engaged in preparation, job searching, or actual employment.
In Minnesota, TANF recipients can have their work activity requirements adjusted and time limits extended if they are dealing with a certified illness, injury, or incapacity lasting over 30 days that hinders employment Individuals with severe disabilities are exempt from mandatory TANF work requirements and can opt for SSI benefits instead of seeking employment However, this policy may lead to situations where individuals with disabilities do not engage in employment or training programs while still facing time limits To address this issue, Minnesota's Department of Human Services has formed a workgroup to recommend policy changes to the Legislature and Governor.
Information on exemptions and time limits for all case study states can be seen in the following table:
Table 1.1: Participation Requirements for People with Disabilities 8
State Participation/Exemptions Time Limits for People with
Disabilities Illinois 1 Universal Participation Must be
SSI eligible to be exempt.
2 Participation is broadly defined and individualized.
3 Caregivers are not exempt from participating, although caring for an incapacitated child may qualify as participation.
2 Participation is broadly defined and individualized.
2 Will use state money to support recipients who need it beyond 60 months, provided they are making a good faith effort to participate in program requirements
Minnesota 1 Same participation requirements as under JOBS 9
3 Caregivers also subject to time limits.
4 Considering extending time limits for people with disabilities, if person is making progress on employment plan.
Vermont 1 Same participation required under
2 Exemptions for people with disabilities.
2 Participation is broadly defined and individualized
3 Caregivers not exempt, but participation is broadly defined and individualized.
3 Caregivers also subject to time limits.
Time limits for TANF recipients and the implications for those who still need assistance after reaching these limits are critical topics in TANF and welfare reform After five years, the federal safety net for TANF recipients is eliminated, raising questions about which states will continue to offer support Among the states studied, Maine has committed to using state funds to assist individuals who demonstrate a good faith effort to participate beyond the time limits Minnesota is also contemplating a similar approach, while Illinois and Washington are still in discussions regarding the enforcement of these time limits.
Vermont is as yet uncertain how time limits will be affected by the end of their demonstration project.
Identification
States anticipate that TANF recipients with disabilities will engage in work requirements and transition off TANF However, individuals with disabilities often need tailored support to succeed in this process Therefore, it is crucial for TANF caseworkers to accurately identify disabilities and assess the appropriate services to effectively meet the unique needs of these clients.
Many states involved in the case study have implemented policies to assess disabilities among TANF recipients, utilizing methods that vary from formal medical evaluations in Maine and Vermont to more informal assessments by counselors in Illinois Minnesota is in the process of creating a formal assessment policy, with evaluations being conducted by state employment counselors in Illinois, Washington, and Minnesota, while Maine and Vermont rely on licensed medical professionals for this purpose.
Employment counselors typically lack specialized training in disability assessment However, certain states like Washington have created screening tools designed to assist case workers in evaluating their clients effectively.
Assessments are used to assist counselors and clients in developing an individual work plan, modifying work requirements, and screening for referral to Vocational Rehabilitation
In all five case study states, participation in assessments is voluntary for individuals; however, TANF recipients seeking to have a disability recognized must undergo an assessment The TANF programs in these states prioritize individualized service, with counselors providing tailored support to help clients meet program requirements and secure employment, irrespective of any disabilities.
Estimates of TANF recipients with disabilities differ by state, with Illinois lacking formal tracking due to the absence of a defined disability standard In contrast, Vermont reports that nine percent of its 6,594 TANF families have at least one incapacitated parent, while Maine estimates that seven percent of its TANF recipients are disabled.
Washington estimates that 60% to 70% of the TANF population may have a disability, while Minnesota suggests that up to 80% of its remaining TANF caseload consists of individuals with disabilities These figures vary based on each state's definition of disability and their ability to identify it Many individuals on TANF may have undisclosed disabilities, either due to a lack of awareness or because certain disabilities are not recognized by state programs Furthermore, many TANF programs struggle to assess emotional or mental health disorders, such as depression and learning disabilities As TANF caseloads decline, the proportion of recipients with recognized disabilities is expected to rise.
ADA Procedures
Enacted on July 26, 1990, the Americans with Disabilities Act (ADA) is comprehensive legislation aimed at enhancing accessibility for individuals with disabilities It focuses on expanding access to employment, public services, buildings, facilities, and telecommunications, fostering an inclusive society for all.
The Americans with Disabilities Act (ADA) mandates that public entities, including state TANF agencies, conduct self-evaluations to ensure their policies and practices comply with ADA standards Each case study state has completed this self-evaluation and is in the process of updating TANF program facilities to enhance ADA accessibility, with varying progress among states Notably, Minnesota, which enacted the Minnesota Human Rights Act a decade before the ADA, has already implemented many structural changes Additionally, Minnesota's Vocational Rehabilitation (VR) offices have relocated to state WorkForce Centers, which were remodeled for compliance with ADA standards prior to occupancy The Minnesota Department of Economic Security meticulously reviews all building designs and blueprints before finalizing leases to guarantee ADA adherence, and it is also developing remote interpreter services to assist deaf consumers in accessing WorkForce Center services, particularly in rural areas.
Every state, except Vermont, has appointed an ADA coordinator to ensure the effective implementation of TANF in compliance with the Americans with Disabilities Act (ADA) These coordinators are responsible for managing requests for reasonable accommodations, addressing grievances, and tackling accessibility issues Notably, states like Illinois, Washington, Minnesota, and Maine have designated ADA coordinators specifically within their TANF agencies Furthermore, all states, including Vermont, have also assigned ADA coordinators to their Vocational Rehabilitation (VR) agencies to enhance support for individuals with disabilities.
Each state is responsible for informing applicants and recipients about their protections under the Americans with Disabilities Act (ADA), typically through notices in TANF and other agency offices, along with contact information for the state ADA coordinator While states like Illinois, Washington, and Minnesota have established official procedures for handling ADA discrimination complaints, Vermont and Maine address complaints on a case-by-case basis without formal policies Despite this, reports indicate a low volume of ADA complaints across states, which Minnesota and Vermont attribute to effective case management that allows clients to resolve issues directly with their case managers Additionally, the limited number of complaints may stem from clients' lack of awareness or understanding of their rights under the ADA A more comprehensive examination of ADA compliance at the state level is necessary to better understand the resolution of client complaints.
State Policies
States are striving to enhance the accessibility of TANF services for individuals with disabilities while improving the identification and assessment of TANF clients facing such challenges As more job-ready TANF clients exit the programs, the proportion of harder-to-serve clients, including those with disabilities, is expected to rise However, there is a noticeable delay in the development of targeted policies and programs that cater specifically to TANF recipients with disabilities, which is essential for providing the necessary specialized services and support.
Each case study state has established policies to assess and support TANF recipients, including those with disabilities Among these, Minnesota stands out for its commitment to developing targeted programs for individuals with disabilities The state utilizes DOL Formula Grant 15% Set-Aside funds, TANF Reserve funds, and additional state resources to finance Special Projects aimed at assisting TANF recipients with disabilities.
Rehabilitation (VR) program administers these funds through two programs: a VR direct service unit in Hennepin County; 11 and a contract with Minnesota Association of Community
Rehabilitation Organizations (MACRO) offer statewide welfare-to-work (WtW) services through a network of twenty-eight accredited community rehabilitation programs, primarily utilizing TANF and WtW funds due to their larger financial resources When WtW regulations restrict certain services, such as training beyond initial skill development, funding is redirected to Vocational Rehabilitation (VR) dollars These services emphasize one-on-one counseling and aim to create career ladder employment plans that assist individuals in securing jobs and escaping poverty.
Minnesota has adapted its practices to better serve TANF/VR recipients with disabilities by reducing VR/TANF caseloads to forty, compared to the standard 120 for a VR counselor The counselors involved in the Special Project possess strong placement expertise and focus on direct placements more than typical VR counselors Additionally, intake is conducted on the same day as the application, eliminating the usual wait time of one to two weeks Counselors provide enhanced support with up to three contacts per week for each consumer, significantly exceeding the standard counseling offered Furthermore, job coaches, known as mentors, are available through the WorkForce Center for additional assistance when needed.
Minnesota is implementing new policies to support individuals with disabilities, including the development of screening tools by the VR program for MFIP employment counselors These tools will help identify learning disabilities, mental illness, and chemical dependency for potential referrals to VR Additionally, a workgroup has been established to evaluate the possibility of extending TANF benefits beyond the sixty-month limit, with a consensus among members that individuals with disabilities should receive extensions if they are making satisfactory progress on their Employment Plan, as stated by Allan Lunz, the Welfare to Work State Coordinator.
Maine has implemented focused initiatives to assist individuals with disabilities, employing three specialized service contractors to support challenging TANF recipients, including those with disabilities Trained counselors are dedicated to identifying and referring individuals with disabilities and other recipients requiring specialized services Key organizations involved in this effort include Goodwill, Maine Medical Center, and BDL Rehabilitation.
Inc offers training and job search assistance specifically for TANF recipients with disabilities, differing from the individual participation plan requirements in states like Illinois, Washington, and Minnesota The contractors have also trained TANF staff to conduct basic screenings and deliver personalized support to clients This coordinated approach aims to enhance service delivery and provide more targeted assistance to TANF clients who face greater challenges in securing employment.
Minnesota, Vermont and Washington each have a formal agreement with state Vocational
Washington's rehabilitation services are designed to assist clients with disabilities by referring them to Vocational Rehabilitation (VR) when necessary An agreement allows TANF clients who are also VR clients to have their VR activities recognized as participation in WorkFirst, with TANF deferring to VR regarding acceptable work activities To enhance support for TANF recipients with learning disabilities, Washington has partnered with the Learning Disability Association of Washington, enabling caseworkers to refer clients to this non-profit for assistance in addressing accommodation issues and developing job-related skills Additionally, a new program has been launched to support caregivers of children with special needs, where nurses from a public health agency will assess how a child's needs affect the parent's ability to engage in WorkFirst, allowing case managers to help parents maintain participation in work activities.
Case studies reveal that while case managers provide individualized attention to TANF recipients, there is a notable lack of targeted programs for people with disabilities in some states Among the five states analyzed, Minnesota stands out for its innovative approach in meeting the needs of disabled TANF recipients, whereas Illinois appears to be lagging behind Vermont, Maine, and Washington have initiated efforts to address the specific requirements of disabled clients but acknowledge that significant improvements are still necessary As Sue Dustin from Maine stated, “It’s a matter of finding the best way to serve them,” and Allan Shanefelt from Washington emphasized the importance of creativity in their efforts to support disabled individuals.
Minnesota is actively focusing on supporting individuals with disabilities, but there are concerns about the rapid changes in the welfare and TANF systems Allan Lunz, the state WtW representative, noted that the simultaneous implementation and planning are leaving little room for mistakes.
The training of staff and changes in systems are consuming crucial time that clients need to navigate the sixty-month limit on benefits, highlighting an urgent need for effective programs in Minnesota, especially for individuals with disabilities Lunz raised concerns that TANF recipients may not fully grasp the significance of this limited timeframe, potentially leading to difficulties as they approach their benefit limits In contrast, other states believe their case management systems can adequately serve all TANF clients, a claim that warrants scrutiny Specifically, if a caseworker is responsible for 140 clients, many of whom have disabilities or special needs, it is improbable that they can provide the necessary individualized support, regardless of the system's claims of customization.
Special Strategies
States without specific policies acknowledge that individuals with disabilities may face challenges in participating in the same work activities as other TANF clients Consequently, state TANF counselors have considerable discretion in determining which activities meet work requirements and what accommodations can be implemented to support these individuals.
Minnesota emphasizes the discussion of reasonable accommodations during orientation and when consumers are assessed Counselors may include disability-related accommodations, such as tutoring and extended time for special transportation, as part of the minimum required work hours In Washington, clients have the opportunity to complete a Needs Supplementary form to address their specific requirements.
During the initial interview, it is essential to complete an Accommodation Form to identify any specific needs for accommodations Although Illinois, Vermont, and Maine lack a formal policy on reasonable accommodations, they allow counselors to provide accommodations on an individual basis, ensuring tailored support for each situation.
Certain states offer community work experience programs, commonly referred to as "workfare," which mandate TANF recipients to engage in unpaid community service Additionally, supported work initiatives are available, providing ongoing assistance to ensure individuals maintain their employment.
In Minnesota, community work positions are required to pay at least minimum wage, although the state may explore unpaid roles if the economy declines, particularly for individuals exceeding TANF time limits Meanwhile, Vermont collaborates with the Department of Employment and Training (DET) to coordinate service delivery effectively.
Various states provide tailored programs to support individuals with different disabilities Maine offers interpretive services for the deaf and hearing impaired, while Minnesota features a specialized service unit for both the hearing impaired and those with mental impairments Additionally, clients who are visually impaired or blind are directed to the State Service for the Blind, which includes specialized counselors for mental health, deafness, traumatic brain injury, and HIV/AIDS In Washington, there are dedicated services addressing alcohol and substance abuse alongside mental health challenges.
The following table outlines each state’s policies and strategies for serving TANF clients with disabilities:
Table 1.2: State Policies and Strategies for Serving TANF Clients with Disabilities
State Particip ation State TANF Policies that
Specifically Target People with Disabilities
Additional Strategies that Support People with Disabilities
IL Universal None • Counselor discretion regarding activities that fulfill work requirements.
• Counselor discretion regarding reasonable accommodations.
ME Universal • Specialized service contractors to serve TANF recipients with disabilities
• Counselor discretion regarding activities that fulfill work requirements.
• Counselor discretion regarding reasonable accommodations.
• Offers interpretive services for the deaf and hearing impaired.
MN JOBS • Funding Special Projects for
• Specially trained VR counselors for TANF recipients with disabilities; lighter caseloads for counselors with TANF/VR clients
• Developing screening tools for TANF counselors
• Formal agreement with state VR agency to refer clients with disabilities.
• Counselor discretion regarding activities that fulfill work requirements.
• Discussion of reasonable accommodations at TANF orientation.
• Specialized service units for the hearing impaired and mentally impaired Visually impaired are referred to the State Service for the Blind.
VT JOBS • Formal agreement with state VR agency to refer clients with disabilities.
• Counselor discretion regarding activities that fulfill work requirements.
• Counselor discretion regarding reasonable accommodations.
WA Universal • Formal agreement with state VR agency to refer clients with disabilities.
• Statewide contract with the Learning Disability Association of Washington to build job-related skills.
• Counselor discretion regarding activities that fulfill work requirements.
• Opportunity to fill out a Needs Supplementary Accommodation Form at initial TANF interview.
Participation requirements for TANF clients do not significantly influence the aggressiveness of state programs aimed at supporting individuals with disabilities For instance, Minnesota, which does not mandate universal participation for TANF clients with disabilities, is actively implementing initiatives to assist this group In contrast, Illinois requires nearly all TANF clients, except those with severe disabilities, to comply with program requirements, yet offers minimal support for clients with disabilities Meanwhile, both Maine and Washington mandate participation from all TANF clients and are making strides to provide specialized services for individuals with disabilities Overall, the analysis indicates that state-required participation does not directly impact the availability of services for clients with disabilities across the studied states.
Each state tailors its services to TANF recipients with disabilities, offering a range of support including assessment, case management, job search assistance, education and training, and transportation However, none of the states monitor which specific services are most requested by these recipients In Minnesota, there is a notable demand for training and help in obtaining a GED, while both Minnesota and Vermont face challenges in providing adequate transportation for all TANF recipients Additionally, securing reliable child care remains a common issue, affecting not only those with disabilities but all recipients.
Employment Outcomes
The Advocates Weigh In
Advocates express skepticism about the effectiveness of TANF in serving individuals with disabilities, highlighting concerns about the inadequate identification of these individuals, especially those with learning disabilities They argue that the "work first" approach of state TANF agencies may pressure people with disabilities into unsuitable employment Additionally, advocates are deeply worried about the fate of TANF recipients who are unable to secure jobs once their benefits expire, as many states have yet to establish a clear plan to address this critical issue.
A disability advocate has raised concerns that Illinois officials fail to address the unique challenges faced by individuals with learning disabilities The state's Vocational Rehabilitation (VR) program primarily focuses on physical disabilities, resulting in inadequate support for those with learning and mental disabilities Additionally, state TANF officials promote a "work-first" policy, implying that the main issue for people with disabilities is a lack of desire to work The advocate emphasized that many individuals with disabilities may not be in a position to prioritize work due to their circumstances.
Many individuals with disabilities require comprehensive training and support services to secure employment, yet state efforts often lack genuine commitment to addressing their needs The federal Work First policy presents significant challenges for disabled individuals, as many require specialized training that is not adequately provided through TANF programs.
The Illinois advocate acknowledges that the state has taken some steps in the past year or two to address the issue, but there has been minimal progress in shifting the belief that individuals must quickly secure employment and exit TANF Currently, the primary focus remains on directing everyone to seek immediate job opportunities.
Concerns are rising that individuals, particularly those with learning disabilities, are being unintentionally excluded from welfare programs The issue is not just about sanctions or removals; it's about the complexity of communication that these individuals face, such as confusing letters and complicated reinstatement instructions after missing a meeting This type of communication fails to accommodate their needs, leading many to disengage from the system entirely As a result, there is uncertainty about the fate of these individuals once time limits are enforced.
Maine asserts that its tailored services for TANF recipients effectively support individuals with disabilities, yet advocates argue for improvements Russ Striker from the Disability Rights Center of Maine highlights that case managers often lack empathy towards the challenges faced by people with disabilities The inconsistency in case management quality and their approach to disability issues across different counties significantly impacts the level of support provided to these individuals.
The Maine Equal Justice Partners (MEJP) highlights significant issues within the TANF program, particularly regarding support for individuals with disabilities and other participation barriers While the program includes a "good cause" provision that allows participants to work fewer hours for valid reasons, MEJP points out that caseworkers often fail to inform clients about this rule Many caseworkers lack proper training to recognize and assess good cause conditions, leading to inconsistencies in referrals to multiple barrier service providers like Goodwill and Maine Medical Center, which cannot grant good cause themselves This lack of training and inconsistent application of the program creates substantial challenges for participants, as noted by Mary Henderson of MEJP, who emphasizes the need for better training and a more uniform approach to program implementation.
Advocates have highlighted the orientation process as a significant issue, noting that clients must attend orientation for their benefits application to be processed Failure to attend can lead to sanctions, which contradicts the previous welfare program's requirement to process applications within thirty days Henderson stated, “The current rule about orientation seems to violate this,” emphasizing that while the state promised timely orientation and processing, many individuals still face sanctions due to delays This situation results in excessive and unnecessary sanctions, creating a serious problem for those seeking assistance.
The primary challenges faced in the program include inadequate training for caseworkers and inconsistency in applying requirements to clients with work barriers Henderson noted that caseworkers often prioritize a "work first" approach, focusing on finding tasks for clients without considering their individual circumstances Despite the perception of time limits in the field, Maine actually allows for the extension of benefits beyond the standard sixty-month period for those demonstrating a good faith effort to comply with program requirements.
Advocates in Minnesota believe the state could enhance its support for individuals with disabilities Aviva Breen from the Council on the Economic Status of Women criticizes the state's "work first" approach, suggesting it is overly rigid She emphasizes the need for a thorough reassessment of educational and training programs to better align with the unique needs of people with disabilities.
Despite the current high demand for workers and available job opportunities, the state has yet to address the issue of time limits for assistance Breen emphasized that the state has not clarified who would be exempt from these limits, raising concerns that individuals with disabilities may not receive the necessary exemptions.
Vermont's Welfare Restructuring Project (WRP), initiated on July 1, 1994, marked the first statewide demonstration of time-limited welfare in the United States This groundbreaking initiative followed the approval of federal waivers in April 1993 and the enactment of Act 106 by the General Assembly in January 1994 As a result, certain federal TANF regulations do not apply to Vermont's TANF Program, which aims to fulfill the broad objectives of Title IV-A of the Social Security Act, specifically the Block Grants for Temporary Assistance to Needy Families Over its seven-year duration, the WRP focuses on providing essential transitional assistance to those in need.
Vermont’s TANF program, Aid to Needy Families with Children (ANFC) and its welfare-to- work component Reach Up
As Vermont's demonstration project approaches its conclusion, the advocacy community is evaluating future options Peter Young Bear from the Vermont Coalition on Disability Rights emphasizes that Vermont is leading in welfare reform, yet the continuation of the project is uncertain due to potential federal restrictions on benefits A preliminary group has been established to address these concerns, with Bear warning that the loss of benefits could significantly impact the broader public benefits system, necessitating a reevaluation of eligibility criteria across various programs.
“Compared to other states, people with disabilities in Vermont are fairly well off,” he continued
While benefits provide essential support, they cover only sixty percent of living expenses for individuals with disabilities Although the state is actively working to help people find employment, the number of individuals with disabilities relying on TANF is expected to rise.
Young highlights significant barriers at both state and federal levels that hinder service delivery to individuals with disabilities A critical issue at the federal level is the restriction preventing people with disabilities from retaining Medicaid benefits, underscoring that the disability community has been overlooked in federal welfare reform efforts.
Implications
The rising number of TANF recipients with disabilities, particularly those with learning disabilities and mental health issues, poses significant challenges for state policies and programs Without targeted initiatives to address the unique needs of these individuals, states risk being unable to support clients facing multiple barriers to employment This lack of planning could lead to an increasing population of individuals who struggle to find and maintain jobs, highlighting the urgent need for tailored strategies to assist TANF recipients with disabilities.
States have been slow to address the needs of harder-to-serve welfare recipients, particularly those with disabilities, in the context of TANF implementation Initially, many states prioritized compliance with federal laws and reducing caseloads, which may have led to a neglect of specific policies for recipients with disabilities As TANF is still a relatively new program, states may not have had sufficient time to identify effective strategies for supporting these individuals Now that most states are adapting to the new system, it is crucial for them to reassess their programs and ensure they adequately serve all TANF recipients, including those with disabilities.
To effectively support individuals with disabilities, states need to enhance the training and preparation of TANF caseworkers Overburdened and inadequately trained caseworkers struggle to address the complex needs of clients with disabilities, who often require significant education and training before entering the workforce Without caseworkers equipped to provide these essential services, many TANF recipients with disabilities may remain unable to secure employment and exit the program.
As time limits for TANF benefits approach, the situation becomes critical, especially for clients with disabilities While states can utilize federal funds to support up to twenty percent of TANF clients beyond these limits, there is uncertainty about the fate of those requiring additional assistance States have the option to allocate their own funds to help TANF clients, but this is not guaranteed Without proactive and targeted strategies to assist TANF clients with disabilities in securing employment, the consequences could be dire for this vulnerable population.
While each state claims to effectively serve clients with disabilities, complacency is unwarranted as many advocates disagree Concerns have been raised about inadequate support for TANF recipients with disabilities, leading to fears that these clients may struggle to find employment and transition off TANF As states reduce caseloads and assist more job-ready clients, it is crucial they focus on providing the necessary resources and support for disabled clients to achieve similar outcomes.
Conclusion……………………………………… 23 Appendix A: Glossary of Terms
Welfare reform remains a recent development, with states facing ongoing challenges related to work requirements, time limits, and exemptions for TANF recipients, especially those with disabilities Many states struggle to provide the necessary support and services for individuals with disabilities to effectively engage in TANF programs aimed at facilitating their return to work.
With disability incidence estimates varying from 7% to 80%, it is essential to establish universal screening procedures for identifying disabilities within the TANF population Additionally, evaluating disability-related barriers to employment can enhance participation in welfare-to-work programs.
How can welfare reform properly include and accommodate for disability issues without even a basic understanding of incidence and severity of the problem?
As welfare recipients near the expiration of their federal benefits, states are faced with critical questions regarding the availability of support for their most economically disadvantaged citizens.
What is the minimum quality of life that we as a society will tolerate for the children of these hardest to serve welfare recipients?
Should we consider completely removing support for individuals who exceed the 20% exemption cap, or should we adopt a more proactive approach to effectively transition welfare recipients nearing the end of their time limits into the workforce?
The future necessitates decisive action in welfare reform, including the implementation of aggressive work programs targeting exempted groups Funding welfare benefits with state dollars presents a challenge, potentially exceeding states' financial capacities As we near the 60-month limit for assistance, these factors will lead to diverse challenges and solutions for states striving to ensure fair and equitable treatment for all welfare recipients, particularly those with disabilities.
ADA Americans with Disabilities Act
AFDC Aid to Families with Dependent Children
ANFC Aid to Needy Families with Children
APHSA American Public Human Services Association
BFI Maine Bureau of Family Independence
DHS Illinois Department of Human Services
DSHS Washington Department of Social and Health Services
DSW Vermont Department of Social Welfare
GED General Educational Development test
MACRO Minnesota Association of Community Rehabilitation Organizations MDES Minnesota Department of Economic Security
MFIP Minnesota Family Independence Program
MFIP Minnesota Family Investment Program
PRWORA Personal Responsibility and Work Opportunity Reconciliation Act of
SSI/SSDI Social Security Insurance/Social Security Disability Insurance
TANF Temporary Assistance for Needy Families
WPLEX WorkFirst Post Employment Labor Exchange
State Policy Makers on Implementation of the Personal Responsibility and Work Opportunity
The Heldrich Center at Rutgers University collaborates with the U.S Department of Education on a Rehabilitation Research and Training Center focused on employment policy for individuals with disabilities This initiative aims to develop innovative strategies for workforce development and enhance employment policies for this demographic A key research project examines state policies and procedures related to individuals with disabilities participating in the Temporary Assistance for Needy Families (TANF) program.
We aim to identify state policies and procedures that facilitate the inclusion of individuals with disabilities, as well as parents of children with disabilities, in welfare-to-work programs funded by federal and state resources Specifically, we seek to understand the TANF program's policies and procedures in your state and their effects on individuals with disabilities.
This study aims to identify effective policies and procedures that can aid states in developing supportive frameworks for individuals with disabilities and their families Engaging in a brief discussion with someone knowledgeable about your state's policy strategies would significantly enhance our understanding of the relevant issues.
• Is this a good time for a short discussion?
• When would be a better time for us to spend 30 minutes discussing your state’s approach?
• Is there someone else you can recommend that might be able to answer my questions?
What definition of disability is used by your state TANF program?
Does the state use different definitions for different purposes? a Determination of eligibility b Required participation in work activities c Time limit exemption or extension
Does the state have a policy for conducting an assessment to determine whether a person has a disability?
Assessments are conducted by trained professionals to ensure accurate evaluations These assessments serve multiple purposes, including the development of individualized responsibility plans and determining eligibility for exemptions, extensions to work participation, and time limits It is important to note that the completion of these assessments is voluntary, allowing individuals to choose whether to participate in the process.
Can I get a copy of this policy?
Approximately what percentage of your agency’s current TANF caseload are considered people with disabilities, according to your definition?
Are you aware of what ADA/Section 504 states about self-evaluation?
The Americans with Disabilities Act (ADA) mandates that public entities conduct a self-evaluation to determine if their policies, practices, and procedures align with ADA standards, particularly for state agencies such as the State TANF agency.
Has your agency completed an ADA/Section 504 self-evaluation?
Does it reflect changes made to your welfare-to-work program as a result of TANF?
(If yes, can you provide a copy of the findings and a contact name and number for the individual who has ongoing responsibility for oversight?)
Does the state have a plan for making structural changes to facilities where TANF programs are located to meet ADA accessibility requirements?
Has the state assigned someone to coordinate its efforts to implement the TANF program in accordance with ADA requirements? Are people designated in local TANF offices?
Has the state developed a policy for making notices available to applicants, recipients, and other interested persons regarding the protections offered to them under ADA?
If yes, then may we have a copy of this policy?
Has the state developed procedures for resolving complaints involving allegations of discrimination under the ADA?
Prompt: a) Have any such complaints been brought? b) If so, how many? c) What were the outcomes?
Other than the ones we may have already discussed, are there state TANF policies or guidelines in place that specifically discuss individuals with disabilities on TANF?
What areas do these policies/guidelines cover?
Prompt: a) Service coordination b) Who has responsibility for case management c) What services are available d) Shared funding of services (based on what decision-making process) e) Assessment procedures
Have you modified any policies or practices to accommodate the needs of TANF recipients with disabilities?
If Yes to either question, can we get a copy of this policy?
Are there any formal agreements in place between state or local TANF agencies and Vocational Rehabilitation or other disability specific service agencies?
Are there any formal agreements or contracts in place between state TANF agencies and disability specific organizations?
Prompt: a) If so, which agencies b) What is the primary purpose? c) Assessment? d) Transfer of responsibility? e) Specific services/ f) Case management? g) Can you provide formal memorandums of understanding?
In your opinion, are there any legislative, regulatory, or policy in place that impede service delivery or improve outcomes for persons with disabilities in TANF?
Is your organization initiating or participating in the planning of any new policies that would benefit people with disabilities on TANF?
Do you waive any policies or program requirements for people with disabilities?
If yes, list how such determinations are made:
VII Does the state have a policy or procedure for modifying work requirements for individuals with disabilities?
IX What definition of “engaging in work” has the state adopted?
XI Has the state developed policies or procedures to make reasonable modifications for persons with disabilities, as appropriate?
Could you briefly describe the services provided by or outsourced by state or local TANF agencies for people with disabilities?
Effective case management involves comprehensive assessment and case planning to identify individual needs, including job search assistance, education, and training Supportive services such as transportation and child care are crucial for facilitating access to employment opportunities Job retention services ensure that individuals maintain their positions, while programs like Community Work Experience Program (CWEP) provide valuable unpaid community service roles for TANF recipients Additionally, supported work initiatives offer job placement, on-the-job training, and ongoing support to help individuals succeed in their careers.
Are any of these services provided only to people with disabilities? If so, what are the eligibility requirements?
How do the services for people with disabilities or single parents with children with disabilities differ from your typical welfare-to-work services, if at all?
Explore the various work and training options available, along with additional supportive services tailored to individual needs Our organization offers comprehensive case management and personalized services to ensure optimal support We collaborate with multiple agencies and subcontractors to provide a diverse range of services Additionally, we specialize in childcare services to cater to specific requirements, enhancing the overall experience for our clients.
Which services are provided through an outside vendor?
What process has your state developed to refer people with disabilities to service providers?
Of the services provided, what are the most requested by people with disabilities?
Are there additional services not currently available that are requested by individuals with disabilities on TANF?
Are any programs or services tailored for different disabilities?
Prompts: a) Physical mobility b) Hearing impaired c) Visually impaired d) Mental impairment e) Other types of disabilities
Do you conduct outreach to employers regarding hiring people with disabilities and accommodating special needs?
If yes, what are the services/outreach?
Prompts: a) Information about physical accommodations b) Accommodating special schedules
Do people with disabilities stay on TANF longer than people without disabilities?
Are people with disabilities harder to place in jobs than people without disabilities?
How does the recidivism rate returning to the TANF caseload of people with disabilities compare with TANF recipients without disabilities?
Do you have information regarding the employment outcomes of disabled people you have placed in jobs?
Current federal and state policies may pose significant barriers to services and support for TANF recipients with disabilities, as well as those with children who have disabilities These policies can hinder access to essential resources, impacting the overall outcomes for these vulnerable populations Identifying and addressing these barriers is crucial for improving the effectiveness of TANF programs and ensuring equitable support for all recipients.
We invite you to share any additional information about your program that may be relevant Additionally, if possible, please provide us with copies of the regulations, laws, or manuals that outline the governance of your program.
Thank you for your time If after reviewing this information, we should have any additional questions, would it be all right if we called you back?
1 Allan Lunz, Welfare to Work State Coordinator
2 Gus Avenido, TANF Policy Manager
3 Pam Reinstatler, TANF Policy Manager
4 Aviva Breen, Council on the Economic Status of Women
1 Minnesota Department of Economic Security, Vocational Rehabilitation Services, at http://www.des.state.mn.us/burgundy/vorehab.htm
2 Minnesota Department of Economic Security, Services for People with Disabilities, at http://www.des.state.mn.us/disab.htm
3 Minnesota Department of Economic Security, Welfare to Work Program, at http://www.des.state.mn.us/burgundy/welfare.htm
Minnesota’s Department of Economic Security (MDES) defines disability as a significant physical or mental impairment that hinders employment and necessitates Vocational Rehabilitation services for individuals to prepare for, secure, retain, or regain work For TANF recipients, MDES allows modifications to work activity participation and time limit extensions if the individual suffers from a certified illness, injury, or incapacity expected to last over thirty days, preventing them from obtaining or retaining employment.