HomeMy WebLinkAboutAgenda - 01-20-1998 - 9aOrange County Board of Commissioners
Agenda Item Abstract
Meeting Date: January 20,1998
Action Agenda
Item # q"
SUBJECT: Work First Plan
Department: Social Services Public Hearing Yes---No—X-
ATTACHMENT (S): INFORMATION CONTACT:
Marti Pryor -Cook, Director
Work First Plan
TELEPHONE NUMBERS:
Hillsborough - 732 -8181
Durham -688-7331
Mebane -227-2031
Chapel Hill - 967- 9251/968 -4501
Purpose:
To approve the Orange County Work First Plan.
Background:
The formal planning process for Orange County's Work First Plan began on January 16,
1996, when the Orange County Board of Commissioners appointed a Human Services
Reform Task Force. More than 50 citizens participated in the work of The Task Force.
In October 1996, the Task Force presented its preliminary report to the Board of
Commissioners.
Based on the foundation of the 1996 report and the direction of the NC General
Assembly, more than 30 members of the original Task Force reconvened in October 1997
to draft the Orange County Work First Plan. In addition to identifying goals, outcomes
and strategies specific to Orange County's population, the Task Force developed
strategies to meet the primary statewide goals of: Reducing the Work First Caseload;
Putting Adults to Work; Staying Off Welfare After Going to Work; and Avoiding
Welfare Through Diversion Assistance.
The Orange County Work First Plan was available for public review and comment from
December 22, 1997 through January 12, 1998. An announcement regarding the Plan
review and comment period was placed in the Chapel Hill Herald and the News of
Orange newspapers. A focus group of task force members was convened to ensure the
validity of the needs identified and the strategies developed to move participants to self -
sufficiency through employment. In an additional effort to ensure community awareness
and input into the Plan, the Social Services Board held a public hearing on the Plan
January 13, 1998.
Legislation approved by the General Assembly specifies that the Board of
Commissioners review and approve the County Plan prior to submission to the
Department of Health and Human Services, following a public review and comment
period.
Recommendations:
The Manager recommends that the Orange County Work First Plan be approved.
ORANGE COUNTY
Work First Plan
July 1, 1998 -June 30, 2000
Orange County Welfare Reform Task Force
December 19, 1997
Contact:
Marti Pryor -Cook, Director
Orange County Department of Social Services
PO Box 8181
Hillsborough, NC 27278
Telephone: 919 - 732 -8181
E -mail: m pcook @co.Ora nge.nc. us
Fax: 919-644-3005
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This report is dedicated to the
memory of Dr. Janice Schopler
who served as Co -Chair to the
Welfare Reform Task Force and
Social Services Board Chair.
She will be sorely missed by the
Orange County community that
she served so well.
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II. TABLE OF CONTENTS
III. CONDITIONS WITHIN ORANGE COUNTY ..................... ..............................4
IV. PLANNING PROCESS ........................................................... .............................13
V. OUTCOMES AND GOALS FOR ORANGE COUNTY ...... .............................16
VI. PLANS TO ACHIEVE AND
MEASURE THE OUTCOMES AND GOALS ...................... .............................18
VII. ADMINISTRATION ................................................................ .............................32
VIII. EMERGENCY AND DIVERSION ASSISTANCE ............... .............................35
IX. FUNDING REQUIREMENTS ................................................ .............................35
X. INNOVATIVE COUNTY STRATEGIES .............................. .............................36
XI. SPECIAL ISSUES ..................................................................... .............................37
XII. CERTIFICATION ............................. .................................. .............................38
Attachment I ............................................................................. .............................39
AttachmentH ...................................................»........................ .............................42
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ORANGE COUNTY WORK FIRST PLAN
December 19, 1997
III. CONDITIONS WITHIN ORANGE COUNTY
A. Current Realities
1. Population
Orange County, North Carolina covers almost 400 square miles in the north central part of the
state. Of the 105,000 people in the County, almost 65,000 make their home inside one of the four
incorporated municipalities: Carrboro, Chapel Hill, Hillsborough, and Mebane. The remaining
40,000 citizens live in the un- incorporated areas.
Orange County is the home of the University of North Carolina at Chapel Hill and UNC
Hospitals. The University enrolls more than 23,000 students each year, including 15,000
undergraduate and 8,000 graduate students. As a result of the number of students who live here
year around, the largest age group is 20 -29 years of age (26.6 %); the median age is 32.8 years.
With the increasing number of retirees moving into the area, the county has more people over 70
years of age (6.1 %) than in the 60 -69 age group (5.5 %).
The racial breakdown of the population in 1997 is about 79% Caucasian, 17% African American,
and 4% Asian, Hispanic or other. Currently, the per cent of people of Asian and Hispanic origin
is increasing more than the other groups.
2. Income
The per capita income for the County is $25,597, the second highest in the state. The median
household income is $41,169 and the average household income is $53,763. The majority of
income earners are in one of the specialty professions. Forty-six per cent of the County's
residents have graduate degrees compared to 34.8% in the Raleigh- Durham Metropolitan Service
Area, 17.4% in North Carolina, and 20.3% in the United States.
Wages in Orange County increased by 4.5% in 1995, by 8.6% in 1996, and by 2.6% in 1997.
Public sector salaries, which increased by 2.3% in 1997, typically do not keep pace with the for -
profit sector. The inflation rate is currently at 2.8 %.
The average annual wages of private sector employers in Orange County ranges from $35,750
for electronic manufacturing, $35,310 for insurance carriers, $33,383 for wholesale and durable
goods down to $11,842 in food stores and $8,972 for eating and drinking establishments.
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Averaize Weekly Wage (Retail Sector)
Auto Dealers and Service Station
$568
Building
$422
Furniture
$403
Miscellaneous Retail
$284
Apparel
$237
Food Stores
$227
General Merchandise
$210
Eating and Drinking establishments
$174
Economic status varies in Orange County by race. The most recent estimates indicate that,
overall, 14% of Orange County residents are living in poverty. An estimated 22% of Blacks as
compared to 12% of Whites are living in poverty.
With more than 7,000 and 9,000 employees respectively, UNC- Chapel Hill and the UNC
Hospitals are the largest employers in the County. More than half the employed people who live
in Orange County are private wage and salary workers, many of whom commute to the Research
Triangle Park to work. About one - fourth are employed by government, either at UNC -CH, UNC
Hospitals, county or city government or one of the public school systems. Other significant
employers include Armstrong Work Industries, Mebane Packaging Group, General Electric and
Blue Cross and Blue Shield of North Carolina.
3. Social Characteristics
Education is a priority in Orange County. The Chapel Hill - Carrboro School System is among
the best in the nation and the Orange County School System has many award winning programs.
In the 1997 rankings of North Carolina public schools based on the ABC evaluations, both
school districts in the County had schools among the top 25 in the state.
The University of North Carolina at Chapel Hill is considered one of the nation's top
universities. Top flight professional schools include the School of Public Health, the Kenan-
Flagler Business School, and the School of Social Work. The UNC School of Medicine ranked
third in the nation in attracting federal grant money for medical research.
The University of North Carolina works in close partnership with the Orange County's public
and private sectors as agencies and businesses call upon the various schools and programs to
provide free or low cost research and technical assistance services. The University, in turn,
places many interns within local agencies for students to gain field experience in government,
human service, non profit and the private sector. This partnership leads to innovative new
approaches that benefit both the community and the University.
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The County is home to more than 150 private non profit agencies, many of which are human
service agencies. Many Orange County non profits have been recognized for innovations that
influence the whole state or the nation. Among these are the T.E.A.C.H. Early Childhood
program, started by the Day Care Services Association, which allows day care teachers to enroll
in early childhood development classes during their workday. The teachers gain new expertise
and a higher salary upon completion of the program. The Women's Center is one of only 6 free
standing women's centers in the nation, and the Orange County Dispute Settlement Center was
the first in the state and is a model for similar centers across the state and nation. Orange
County's Smart Start Program, which was one of the first in the state, has provided the standard
for other local Partnerships to meet. Family Resource Centers found fertile ground in Orange
County which now has six centers, more than any other county in the state.
The Orange County Friends of DSS is the only such agency in the state. It has a 12 member
board of directors and is run entirely by volunteers. Its purpose is to support the Department of
Social Service and its mission in Orange County.
4. Work First Population
Since 1995, over 300 Orange County families have left welfare for work, and the food stamp
rolls have declined from 1,592 families to 1,380 families.
As of November 1, 1997, Orange County had 548 Work First cases. This represents 1,288
individuals who are receiving financial assistance through Work First. Of these, 886 are under
age 18; roughly 400 are age 5 or under. Only 16 of the families have two parents in the home.
One hundred sixty -four families have used some of their 24 month time clock.
The typical Work First participant is female, 24 years of age with 2 children. Sixty -two per cent
of the parents have been on public assistance for less than 2 years, 22% have benefits for 2 - 5
years and 16% have received benefits for more than 5 years.
For the fiscal year 1996 -97, 592 families received AFDC Emergency Cash Assistance. The
average payment was $165. Almost half of the funds were used for housing; the remainder was
used for electricity and other utilities.
Based on information from North Carolina Equity, 1,403 people in Orange County are looking
for employment. Of these,
355 are Work First recipients
980 are unemployed, and
88 are high school graduates.
Education statistics for Orange County reveal a serious disparity between the general population
and the Work First population.. While 83.6% of all Orange County residents over the age of 25
have a high school diploma, only 50% of the Work First recipients over 25 have a high school
diploma or its equivalent.
5. Housing
Affordable housing is a major problem in Orange County. Most of Orange County's rapidly
growing population is made up of mid or upper level professionals with graduate degrees. The
buying power of this group has driven up the cost of land and housing by more than 100% over
the past 10 years and 300% over the past 20 years. Of the 226 housing permits issued in 1996,
only 8 were for homes below $100,000.
In 1993, Orange County developed a Comprehensive Housing Affordability Strategy to address
housing - related issues. According to 1990 census data:
• Orange County has nearly 17,000 low income households,
• One third of Orange County residents experience housing problems,
• 86% of all very low income residents report housing problems, including overcrowding and
physical deterioration,
• 10% of all housing units across the county are considered sub - standard, often in terms of
having a dilapidated roof or having been condemned,
• Orange County has approximately 1,052 units with no indoor plumbing,
• Approximately 12,000 people, mostly female heads of households, spend more than 30% of
their income on rent.
Public housing accounts for 1,256 units of the more than 35,000 housing units in the county.
Strong public support for affordable housing provides ongoing support for low and moderate
income housing projects sponsored by private non - profit organizations. Habitat for Humanity is
active throughout the county. In the past five years, Habitat volunteers working in partnership
with new home owners have built more than 30 units.
As of November, 1997, the average price for a home in Orange County is $265,000. As a result,
people with modest and low incomes find it increasingly difficult to live in the county and even
more difficult to own homes here. Rental housing is also at a premium due to the number of
students who quickly absorb any new rental units in the area..
In November, 1997, the county passed a $1.3 million bond referendum for affordable housing.
6. Transportation
Lack of transportation is a major barrier in keeping people from reaching economic self -
sufficiency.
Southern Orange County, Chapel Hill and Carrboro are served by 15 bus routes operated by the
Chapel Hill Transit System. The system appears to be designed mainly to serve the needs of
UNC students and staff, with reduced service in the evenings, weekends, and 4 summer months.
The Chapel Hill Transit System's EZ Rider Service serves some physically impaired people.
Public transportation north of I -40 is extremely limited.
7. Child Care
Several major problems exist that compromise the quality, affordability and availability of child
care and early childhood education for Orange County's children.
Child care costs more in Orange County than anywhere else in North Carolina. The market rate
for child care for an infant or toddler exceeds $6,500 a year; for an older preschooler, the typical
fee is over $5,400 annually. This means that most parents with preschoolers in our community
have great difficulty paying the full cost of child care.
Many families who need help paying for child care are not eligible for assistance. Families
earning more than 75% of the state median income are not eligible for child care subsidy through
the state's child care subsidy program.
Child care subsidy can make the difference between work and welfare. Without child care
subsidy, low income parents are often faced with the choice of paying 30-40% of their gross
income for child care or not working and relying on pubic assistance.
The Work First Program requires that most parents to work. Virtually all of the Work First
parents who find work will need assistance with payment of child care. As the requests for
subsidies increase, Orange County will be faced with finding additional funds for child care.
8. Health Care
All Orange County residents are within close proximity of two teaching hospitals and major
medical centers: the UNC Hospitals and Medical School at UNC -CH and the Duke University
Medical Center in Durham. Durham Regional Hospital in Durham also serves Orange County
residents. UNC Hospitals, as the major state supported hospital in North Carolina, serves a
majority of the state's low income population.
Orange County's low income residents are also served by the Orange County Health Department,
which has offices and clinics in Hillsborough and Carrboro, and the Piedmont Health Center, a
private not for profit health clinic in Carrboro.
Orange County has a higher per cent of citizens with health insurance (74.6 %) than the state as a
whole (64.5 %). For those Orange County residents in poverty, 49.6% have private insurance as
compared to 15.8% statewide. Many of these families are employed by the state, either at UNC-
CH or UNC Hospitals. Although they are working full -time and receiving health coverage
through the state plan, they cannot afford to pay to have their dependents covered and their
wages do not lift them out of poverty. This means that children are uninsured.
Although Orange County has a higher per cent of all its citizens with health insurance than the
state as a whole, the table below shows that a lower per cent of the poverty population has
insurance when compared to the state as a whole.
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All Residents Residents in Poverty
Medicare
Orange County
9.5%
8.0%
State
14.4%
18.3%
Medicaid
Orange County
4.9%
21.8%
State
10.8%
52.5%
Uninsured
Orange County
12.7%
34.7%
128.3%
State
1 12.8%
Of the estimated 13,462 people in Orange County without health insurance, 1,866 of those are
aged 17 and under and 11,596 are between the ages of 18 and 64. All residents aged 65 and over
are covered by Medicare.
The Orange County Health Assessment includes the following information about reproductive
health issues:
• There are more than 1,800 pregnancies and 1,100 live births in Orange County in a given
year.
• The rate of teen pregnancies in Orange County is nearly 4 times greater among Nonwhites
than Whites; the overall rate of teen pregnancies for both groups is lower than for the whole
state.
• A clear gap exists in the level of care received by Nonwhite and White women.
• Orange County Nonwhites giving birth are more likely than Whites to be under age 18,
without a high school degree, unmarried, on their fourth or more birth, smokers, and having
faced the death of a previous live born child.
The Orange County Health Assessment team reports that community residents believe economic
status is a chief factor in explaining why some people in Orange County enjoy better health than
others. "People believe that low income contributes to ill health for a number of reasons: the poor
cannot afford medical care; they have no insurance; they don't have access to health education
programs or health promoting activities; they have to work 2 or 3 jobs to survive and have little
time for their families; their poor finances cause them more anxiety or depression; stress can lead
to substance abuse, further compounding health problems."
9. Substance Abuse Services and Issues
Drug and alcohol treatment and rehabilitation was the third most common cause for
hospitalization among Orange County residents during 1989 -1994 with a total of 1,983 persons
being admitted during this six year period.
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According to estimates from Orange- Person - Chatham Mental Health Center, as many as 35% of
Work First participants are chemically addicted, yet fewer than 15% are receiving services. The
Department of Social Services estimates that 60% of the Work First population has some level of
substance abuse. Of those persons who are unable to find employment, approximately 85% are
not placed because they do not pass a drug test or they have a criminal record. Medicaid
provides full coverage for chemical addiction treatment programs, but some people will not
accept the services and others lose the benefits when they no longer qualify for Medicaid.
10. Key Issues and Pressing_ Problems For Work First Participants
• Unskilled and semi - skilled workers without a high school diploma or equivalency are unable
to find full -time (35 hours +) jobs that provide a living wage.
• People without marketable skills do not have access to skills building opportunities and on-
the-job training.
• People with little or no work experience may lack basic job seeking and interviewing skills
and may know little about their own job or career interests or abilities.
• Some people who have inadequate parenting, money management, and life management
skills, and/or lack of other basics such as a phone, drivers license, appropriate clothing, etc.
do not have the social, emotional or financial support to gain these basics on their own.
• Teen parents have unique problems in addition to those faced by all other recipients of public
assistance. These include staying in school while parenting, gaining parenting skills, and
living in an abusive situation without money for deposits, rent, etc. or adequate social support
to leave the abusive situation.
• People with chemical addictions, a criminal record, chronic physical or mental health
problems and poor life skills are especially hard to place and keep in a job.
• Transportation to school, training, child care, employment is not available or is too
expensive.
• Child and adult dependent care are not available during non - traditional hours or in the
summer.
• The non - custodial parent fails to provide support, including and beyond support payments.
• The escalating cost of housing in Orange County makes it unreasonably difficult for people
who qualify for public assistance to work their way out of poverty.
• Major, unexpected life events may cause expenses to exceed income in Work First families
who are in work placements with marginal incomes. Examples: illness, loss of job, change
of job, death in the family, divorce, separation, new household member, major automobile or
home repair.
• Some recurring crisis situations indicate a mental health problem but this goes unrecognized
or unacknowledged by the individual and untreated by the human services system.
• Emergency assistance services are scattered among several agencies throughout the county
and region. As a result, people have difficulty accessing all the services they need. Also,
resources for emergency assistance are decreasing while the demand for these services is
increasing.
• Lack of personal safety in the home, neighborhood or community.
• No zoning for manufacturing, warehouse, or construction industries exists in Orange County
south of the I -40 /Old NC 86 exchange.
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Some citizens and employers have negative attitudes about and low expectations for Work
First recipients.
Vision and Mission Statements
The following are adapted from the Orange County Human Services Advisory Commission
vision statement which was adopted by the Board of Commissioners in December, 1991.
VISION: Based on our community values of caring, respect, diversity, economic opportunity,
the enhancement of self -worth and optimal health and safety, citizens of Orange County should
contribute to and participate in the well -being of the community to the extent we are able.
MISSION: Orange County will use a coordinated, efficient, and effective network of resources
that will provide a continuum of preventive and corrective services appropriate to promote
economic, emotional, physical, and social well -being for all citizens.
B. Economic Development.
Orange County's overall ranking for economic development rose to 4th best in the state for the
1995 -96 fiscal year. Among the 100 counties in North Carolina over the past ten years, Orange
County's rank is 9th.Over 100 new businesses .were established in commercial locations in
Orange Counties during fiscal year 1996 -97. In addition, hundreds of in -home businesses -
everything from high -tech software companies to household errand services - began operation
throughout the County. Persons seeking information about starting a new business in Orange
County came from 29 different states and 3 foreign countries.
Retail sales increased by 7.4% for this year. This figure represents an increase over the prior
year but is still only half the average for the whole state.
In 1994, the county's tax base was $4,517,119,446; in 1997 it is 5,151,871,960. The county's tax
base is currently 86% residential and 14% non - residential.
Since 1990, shifts in private sector employment shows an increase in jobs in eating and drinking
establishments and health services and a decline in engineering and management and general
merchandise stores. Although the county's 1997 unemployment rate of 1.7% is a 20 year low
for the county and one of the lowest in the state, the lack of moderate income jobs for unskilled
and semi - skilled workers is a serious problem.
The recently released study by NC Equity establishes self - sufficiency standard for each county in
the state. For a single Orange County full -time worker with two children (one infant and one
preschooler) the self - sufficiency standard is $618.17 per week. For a single full -time worker
with one preschool child, the self - sufficiency standard is $465.14 per week. For two full -time
workers with two children (one infant and one preschooler), the self - sufficiency standard is
$352.62 per week each.
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Largest Orange County Industry Groups
Industry
Number Employed
Share of Workforce
Average Weekly Wage
Government
22,688 employed
44.2%
$635.91
Retail Trade
9,556 employed
18.6%
$249.36
Services
8,619 employed
16.8%
$445.43
Total
51,289 employed
$519.45
IV. PLANNING PROCESS
Background
The formal planning process for the Orange County's Work First Plan began on January 16,
1996, when the Orange County Board of Commissioners appointed a Human Services Reform
Task Force and charged it to:
"Convene public and private sector stakeholders and present recommendations to the
Board on: measurable outcomes in human services, human service priorities, an
acceptable safety -net for adults and families with children, current resources available to
meet the needs, and gaps in the resources to support the needs."
Planning - The 1996 Task Force
More than 50 citizens, including human service professionals, business leaders, citizen activists,
and human services recipients, participated in the work. The task force fulfilled its charge
through four subcommittees (Adults, Children and Families, Outcomes, and Outreach) and a
series of whole -group meetings. In October, 1996, the Task Force presented its preliminary
report to the Board of Commissioners.
The following guidelines were adopted for decision making by the 1996 subcommittees.
• Provide the essential elements of well -being, as presented in this report, not otherwise
accessible through the private, nonprofit and public sectors.
• Develop policies, regulations and guidelines that help realize the outcomes of well -being for
individuals and their families.
• Make investments in programs that contribute to outcomes of well -being and economic self -
sufficiency and that demonstrate cost savings, cost benefits, or cost effectiveness.
• Provide incentives to create jobs above the minimum wage to ensure economic self -
sufficiency for all Orange County citizens.
The task force developed a set of outcomes criteria. Outcomes shall:
1. be measurable,
2. support our vision,
3. focus on people,
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4. provide a basis for setting priorities,
5. address prevention as well as intervention,
6. reflect reality; e.g., outcomes shall not cost more than we have:
7. have the support of all stakeholders, consider recipient responsibility, and be kept
current.
Finally, the task force identified certain basic factors that are essential for the well -being of
every individual and for the community as a whole. These essential elements of well -being
appear in the table below.
Essential Elements of Well -Being - 1996 Task Force Recommendations
..............._.......................... ............................... . ...............................
Basic Survival Basic Growth and Development :Basic Economic Self- Sufficiency
-------------------------- --------------------
• Food
• Shelter
• Clothing
• Health Care
• Safety (safe families
and communities)
• Education
• Work (income)
• Training
• Transportation
• Dependent Care
• Child Care
To help people gain a visual perspective on the relationship between essential elements of well-
being, available resources, and people, we used a Rubik's Cube type of model. As this model
depicts, everyone needs these essential elements of well -being and everyone has multiple
resources through which to access them, including personal, community and government.
We believe that most people, most of the time, use their personal resources to provide their
essential needs. When that isn't sufficient, people turn first to their community, then to
government. While the role of government is relatively small, it is very important for the well-
being of the total community.
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Essential Elements of Well -Being
Rubik's Cube Model
adults over 65 dependent
Basic Economic
Self - Sufficiency
work (income)
training
transportation
dependent c
child care 7
Government
federal
state
county
towns
Community
neighborhood associations
community volunteers
faith congregations
nonprofits
businesses
foundations
Source: Ed Siebert, Adults Work Group
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f[:7
wv
O
Basic Growth
health care
safety (safe families
and communities)
education
Sv
Basic Survival
food
shelter
clothing
personal
wages, benefits
POPULATION
investments
savings
children 0 - 5
children 6-17
pension
Social Security
Medicare
adults 18-65 independent
Medicaid
adults 18-65 dependent
family
friends
adults over 65 independent
neighbor
adults over 65 dependent
Basic Economic
Self - Sufficiency
work (income)
training
transportation
dependent c
child care 7
Government
federal
state
county
towns
Community
neighborhood associations
community volunteers
faith congregations
nonprofits
businesses
foundations
Source: Ed Siebert, Adults Work Group
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Planning - The 1997 Task Force.
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Based on the foundation of the 1996 report and the direction of the North Carolina General
Assembly, more than 30 members of the original Task Force reconvened in October, 1997 to
develop outcome goals, identify barriers and recommend strategies to overcome the barriers and
achieve the outcomes. Task Force members represent both the public and private sectors and
included educators, clergy, business leaders, private non - profit managers and staff, retirees,
community activists, human service professionals, and public assistance recipients (Attachment
I).
Local agencies involved in planning for the Work First program include: the Orange County
Departments of Health, Housing, and Aging, the Human Relations Commission, the Orange -
Person- Chatham Mental Health Association, the Orange County Partnership for Young Children,
Day Care Services Association, Orange Enterprises, Adolescents in Need, Habitat for Humanity,
Family Resource Centers, Women's Center, Family Financial Counseling, Consumer Credit
Counseling, faith congregations, Chambers of Commerce, JOCCA, IFC, OCIM, Salvation Army,
Vocational Rehabilitation, and many others as well as many individual programs within each of
these agencies.
Once again the Task Force divided into four sub - committees: Diversion and Emergency
Assistance, Employment and Training, Support Services, and Special Populations. The
remainder of this report reflects the work of the 1997 Task Force in combination with regulations
and procedures provided by the NC Department of Health and Human Services.
The Work First Plan was available for public comment and review beginning December 19,
1997. After the review period a focus group was convened to obtain additional feedback and
support from the community. The Plan was available for review at all of the following locations:
• All Public Libraries,
• Department of Social Services (Hillsborough and Chapel Hill offices),
• County Managers Office,
• All Family Resource Centers,
• Orange County Home Page,
• Chapel Hill Town Hall, and
• Carrboro Town Hall.
V. OUTCOMES AND GOALS FOR ORANGE COUNTY
A. Statewide Work First Goals
Based on state -wide goals set by the North Carolina General Statutes, the North Carolina
Department of Health and Human Services defines the following goals for Orange County. The
goals expressed as a per cent will be translated into exact numbers as of July 1, 1998.
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Reducing the Work First Caseload
During fiscal year 1998 -99, Orange County will reduce its caseload by 15 %.
Putting Adults to Work
Orange County will put 168 Work First adults to work between July 1, 1998 and June 30, 1999.
Staying Off Welfare After Going to Work
Once Work First participants are employed, they will remain employed and off welfare for at
least the following 12 months.
Meeting the "All Parent" Participation Rate
During fiscal year 1998 -99, 35% of all Work First parents will be involved in activities that
count toward the participation rate.
Meeting the "Two Parent" Participation Rate
During fiscal year 1998 -99, 90% of Work First families with two parents will be involved in
activities that count toward the participation rate.
Avoiding Welfare Through Diversion Assistance
During fiscal year 1998 -99, at least 6 people will avoid welfare through diversion assistance.
Increasing Child Support Orders and Collections for Work First
During fiscal year 1998 -99, child support orders and collections will increase by 10 %.
Ensuring That a Safety Plan Exists for Every_Child Receiving Child Protection Services or
Foster Care Services
During fiscal year 1998 -99, 100% of Work First children who are receiving CPS services will
have a safety plan.
B. County Developed Outcomes
To achieve the goals described above, the 1997 Task Force developed nine specific outcomes for
Orange County. These outcome expectations meet the criteria that were adopted as part of the 1996
report; i.e., the outcome goals are measurable, support our vision, focus on people, provide a basis
for setting priorities, address prevention as well as intervention and reflect reality.
Outcomes for the Employment and Training Committee.
100% of Work First participants will have access to support services and training necessary
for employment.
2. 50% of the 335 eligible Work First participants aged 20 and over will have paying jobs by
June 30, 1999.
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85% of participants who leave welfare for work will retain employment for at least 12
months.
Outcomes for the Support Services Committee.
The Support Services Committee recommended the same three outcomes listed above. In
addition, this committee recommended the following outcomes for people who do not find a
living wage job by the time their Work First benefits expire. This goal is discussed in more detail
in the Special Issues section as it is not a direct outcome of Work First.
4. 100% of the Work First participants who no longer qualify for Work First will have access to
a safety net of services, including additional education and skills training.
5. 100% of Work First participants who are employed below a living wage will have access to a
safety net of services, including additional education and skills training.
Outcomes for the Special Populations Committee.
6. 60% of teen parents will be job ready by the time they leave Work First.
7. 70% of teen parents and their children have their overall health needs met.
Outcomes for the Emergency and Diversion Assistance Committee
8. Of the people who qualify for and receive diversion assistance, 75% will remain economically
independent, (they will not apply for benefits) for 12 months after the assistance ends.
9. Of the people who receive emergency assistance, 75% will be able to maintain their current
standard of living.
Note: Child only cases and applicants with children under one year of age are exempt from
Work First requirements.
VI. PLANS TO ACHIEVE AND MEASURE THE OUTCOMES AND
GOALS
Orange County will implement both short and long term strategies to achieve the Work First
goals. Short term strategies are those that can be accomplished by July 1, 1999; long term
strategies will be accomplished after July 1, 1999. These strategies are equally appropriate for
accomplishing the statewide Work First Goals and the County Developed Outcomes.
Matrices were developed outlining the strategies for meeting the statewide and the county
outcome goals. The matrix format enhances readibility and includes all of the strategies for
moving families to self - sufficiency. Following the matricies will be the strategies from each
subcommittee of the Task Force.
18
19
Orange County
Work First Plan for Achieving State Goals
Fiscal Year 1998 -2000
GOALS
1. Reducing the Work First Caseload by
15%
2. Putting 168 Adults to Work
ACTIVITIES AND SUPPORT SERVICES
Activities:
• Employment assistance with job referral
and assessment prior to DSS intake
• Case management for each participant
• Vocational and job ready assessments
• Job readiness workshops
• Job coaching/mentoring for unskilled
participants
• Referral to education and training programs
• Intensive job referral process with
employers
• job development
• Work experience placement
• Individualized transportation plan
WHO/WHERE
• Employment Security Commission
(ESC) on -site at DSS
• DSS
• DSS, Vocational Rehabilitation (VR)
Orange Enterprises, community
colleges, ESC
• DSS, Vocational Rehabilitation (VR)
Orange Enterprises, community
colleges, ESC
• Orange Enterprises, Cara More, Club
Nova, VR, faith community, and
Commission for Women
• DSS, Skill Development Center, ESC,
Center for Employment Training, Joint
Orange Chatham Community Action
Agency (JOCCA), community colleges
• Chamber of Commerce, ESC,
Economic Development Commission
(EDC)
• Community
• Non - profits
• Orange County CAT system, public
transportation, school buses, private
contractors
N
O
GOALS
(continued)
3. Enabling 85% of Work First
Participants Who Leave Welfare to
Stay Off for 12 Months
ACTIVITIES AND SUPPORT SERVICES
Support Services:
• Substance abuse assessment and treatment
• Child care
• Clothing closet
• Health services
• Emergency assistance
• Transportation
• Work related grants for job supplies and
equipment
• Participant education on advanced earned
income tax credit
• Employer education on tax credits
Activities:
• 12 month follow -up services for families
who leave welfare
• Short term training to enhance job skills
• Education and follow -up on advanced
earned income tax credit
• Individualized transportation plans
WHO/WHERE
• OPC Mental Health - on site at DSS
and in treatment facilities
• Partnership for Young Children, Day
Care Services, DSS
• Friends of DSS, faith community, and
Commission for Women
• Medical providers
• DSS, Orange Congregations In
Mission (OCIM), Inter -Faith Council
(IFC), JOCCA
• Orange County CAT system, Public
transportation, school buses, private
contractors
• DSS, OCIM, IFC, JOCCA
• DSS, ESC
• Chamber of Commerce, Economic
Development Commission (EDC),
ESC, DSS
• Possible contract with non - profit
• Skill Development Center, Community
Colleges
• DSS, ESC
• Orange County CAT system, public
transportation, school buses, private
contractors
N
GOALS
ACTIVITIES AND SUPPORT SERVICES
WHO/WHERE
(continued)
Support Services:
• Transitional benefits package (Medicaid
• Child care subsidy - Smart Start, Day
coverage, child care, crisis counseling)
Care Services, DSS
• Assisted housing transitional services
• Orange County Housing Agencies
• Emergency services
• DSS, OCIM, IFC, JOCCA
• Employer education on tax credits
• Chamber of Commerce, EDC, ESC,
DSS
4. Meeting the 30% All Parent
Activities:
Participation Rate
• Employment assistance with job referral
• ESC on -site at DSS
5. Meeting the 90% Two Parent
and assessment prior to DSS intake
Participation Rate
• On -going follow -up on job referrals
• DSS
• Work experience placement
• Non - profits
• Case management for each parent in a two
• DSS
parent family case
• Specialized job training and counseling for
• OPC, Club Nova, IFC, Orange
chemically addicted participants
Enterprises etc.
• Referral of hard to place participants for
• DSS, Orange Enterprises, OPC, Cara
extensive services
More, Club Nova
• Job coaching/mentoring programs for
• Orange Enterprises, Cara More, Club
unskilled participants
Nova, DSS
• Individualized transportation plan
• Orange County CAT system, public
transportation, school buses, private
contractors
Support Services:
• Same support services available to all
• Same as described above
participants based on need
6. Avoiding Welfare Through Diversion
Activities:
Assistance
• Eligibility determination for one -time grant
• DSS
and benefits
• Comprehensive job readiness assessment
• DSS, ESC
and appropriate referrals
• Referral to community resources
• Child care, Food Stamps,Medicaid,IFC,
OCIM, JOCCA, Salvation Army
N
N
N
W
ACTIVITIES AND SUPPORT SERVICES
Activities:
WHO/WHERE
GOALS
7. Increasing Child Support Orders and
Collections by 10%
• Referral of Work First participants to Child
• DSS
Support Enforcement on date of application
• Designation of one Child Support
• Orange County Child Support
Enforcement Officer to handle Work First
Enforcement
caseload
• Legislation to remove the non - custodial
• Orange County Child Support
parent reserve
Enforcement
• Enhanced enforcement of child support
• Orange County Child Support
orders
Activities:
• Coordination between Work First and Child
Enforcement
• DSS
8. Ensuring that a Safety Plan exists for
every Work First child receiving Child
Protection Services treatment or Foster
Protection Services (CPS)
Care services
• Safety plan in effect for all Work First
• DSS
children receiving Child Protection Services
N
W
Epnploymaat and
1. 100% of Work �+
Will have ac s'l
Orange County
Work First Plan for Acbieving County Specific Outcomes
fiscal' Yea f
ACTIVITIES AND SUPPORT SERVICES
Objectives:
iarsrires
•
•
bane pokyiug J84 by 4uaa : : PTY
,�. �� °�� ��' participaQ� who lai4�a '� " •
wevarf for work w1p r+ *10
eaapluxmeat for 44t 100012 W904s
Develop a process for participants to receive
employment assistance with job referral and
assessment prior to DSS intake
Assign a case manager for each participant
Contract with agencies to provide
employment services for hard to place
participants (job coaching/mentoring, etc.)
Ensure access to educational and training
programs
Develop a system to monitor service
delivery
Educate employers on the benefits of hiring
Work First participants
• Collaborate with the faith community to
provide services to participants
• Make parenting and child development
resources available to participants
• Adopt a Living Wage Ordinance
• Explore the feasibility of self - employment
opportunities for participants
WHO/WHERE
• Employment Security Commission
(ESC) -on site at DSS
• DSS
• Orange Enterprises, Cara More,
Club Nova
• DSS, Skill Development Center,
Center for Employment Training
(CET), community colleges, private
contractors
• Work First Advisory Council
• DSS, ESC, Economic Development
Commission (EDC), and Chapel
Hill Chamber of Commerce
• Faith community
• DSS, Family Resource Centers
• Orange County Board of
Commissioners
• DSS, EDC, ESC
N
OUTCOMES ACTIVITIES AND SUPPORT SERVICES WHO/WHERE
Support Services: Objectives:
4. 100% of the Work First
participants who no longer
qualify for assistance will have
access to a safety
services, inch
and $kills Pro
f
S. - 109% Pf W
-1 IL
.L
Special Populations:
n 600/0 of teen parents will be job„
ready by the 014f4bcy le4ve
Work first
7.70% of tt parents and their
*ldren will havo tbeir health
• Develop individualized transportation
plans for participants
• Collaborate with Triangle Transit
Authority to develop ride share program
• Coordinate with the local public school
systems for Work First participants to
serve as bus monitors in exchange for
transportation
• Promote Adopt -a -Work First - Family
program
• Develop Family Self- Sufficiency Program
for persons living in federally assisted
housing
• Create a dedicated child care funding
source for Work First participants
• Explore alternatives for non - traditional
child care
• Locate funding source for start up expenses
for home based child care
Objectives:
• Assign a case manager for each teen parent
• Model the Adolescent Parenting Program
• Prepare teen parents for available jobs
• Recruit and train volunteers to work with
teen parents
• DSS, local transportation system
• DSS, Triangle Transit Authority
• DSS, local public schools
• Faith community
• Chapel Hill Public Housing Department,
Orange County Housing and Community
Development
• DSS, Day Care Services, Partnership for
Young Children
• DSS, Day Care Services, Partnership for
Young Children
• DSS, Day Care Services, Partnership for
Young Children
• DSS
• DSS, Adolescents -in -Need
• Public schools, community colleges, Skill
Development Center
• DSS
N
Emergency and Diversion Assistance:
8 75% of the people wbo receive
ACTIVITIES AND SUPPORT SERVICES
Objectives:
• Follow up and track families after receipt of
Diversion Assistance
• Create a Central Emergency Assistance
Agency
• Develop assessment criteria for approving
Diversion Assistance
WHO/WHERE
• DSS, Advisory Council will explore
contracting
• DSS, OCIM, IFC, JOCCA,
Salvation Army
• DSS, Advisory Council
N
ON
Plans to Achieve Statewide and County Developed Outcome Goals
Pal
Short and long -term strategies are reported in priority order by each committee that developed
them. Some strategies appear more than once.
A. Employment and Training Outcome Goals
Statewide Goals:
1. Reducing the Work First caseload by 15 %.
2. Putting 168 adults to work.
3. Enabling 85% of Work First participants who leave welfare to stay off for 12 months.
4. Meeting the 30% all parent participation rate.
5. Meeting the 90% two parent participation rate.
County Outcomes:
1. 100% of Work First participants will have access to support services and training necessary
for employment.
2. 50% of the 335 eligible Work First participants aged 20 and over will have paying jobs by
June 30, 1999.
3. 85% of participants who leave welfare for work will retain employment for at least 12
months.
Short Term Strategies for Employment and Training
• Refer all applicants for Work First to the First Stop Employment Program
• Register applicants for work and begin the process of job search
• Complete vocational assessment
• Enroll the applicant in job seeking sessions
• Target Work First participants for jobs that have benefits and above minimum wage
• Educate employers on how to obtain monthly distribution of earned income tax credit for
those employees who qualify
• Partner with the ESC and the Economic Development Commission (EDC) to contact
employers such as the University of North Carolina at Chapel Hill, UNC Hospitals, Blue
Cross and Blue Shield, and Carol Woods Retirement Center regarding the benefits of hiring
Work First participants
• Coordinate with Orange County Government for work experience slots and recruiting Work
Experience participants for vacancies
• Notify participants quarterly of time left to receive assistance on two year time clock
• Assign a case manager to each participant
• Assess participant's strengths, needs and barriers
• Train case managers on collaboration with agencies to create a seamless system for the
participants
• Assist the participant with problem solving and develop a plan for economic independence
• Advocate for resources to successfully implement the participant's plan
• Collaborate with the staff at the Skill Development Center for training and job leads
• Locate community service position that provides training or work experience consistent with
the participant's career goals
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• Utilize Work First funds to provide financial reimbursement of no less than $20 each week 28
for participants actively participating in work experience
• Develop a mentoring program for participants
• Screen and train community volunteers to participate in the mentoring program
• Collaborate with the faith community in Orange County
• Provide job readiness training
• Refer hard -to -place recipients (include people with a criminal record, chemical addiction,
chronic physical and mental health problems, and/or extremely poor life skills) to agencies
such as Orange Enterprises, CaraMore Community, Club NOVA, IFC, etc. to employ
methods used in serving persons with disabilities; e.g., job coaching, job shadowing, enclave
employment, mobile crews, etc.
• Coordinate and refer participants with disabilities to Vocational Rehabilitation
Long Term Strategies for Employment and Training.
• Develop a steering committee to explore a Self- Employment Track
• Collaborate with the faith community to develop an Adopt -a Work First - Family Program
• Involve the business community in teaching money management skills to Work First
participants
• Assist non - drivers in getting a drivers license
• Work with phone companies to provide services to Work First participants such as: free
extended area service for Work First families whose jobs or child care services are beyond
their local area, a waiver of deposits for Work First recipients through their transitional year,
and/or a limited free calls
• Make a one time lump sum scholarship available to families when they transition off
assistance and into employment
• Create a temporary employment agency that would provide benefits for trainees and new
workers while they are gaining seniority and permanent job status
The goal for our community is to provide employment that pays a living wage; i.e., a wage that
allows the employed person to provide the essential elements of well being for all the individuals
for whom they are responsible.
• Advocate for living wage jobs for all people employed in Orange County
• Develop an ombudsman service that employers can call to get assistance in handling
problems with any Work First employee as an incentive to the employer
• Establish an information/referral clearing house for mandatory recipients so they have one
place to call to find sick child care, emergency transportation, etc.
• Study short and long term costs and benefits of economic development. Does an industry pay
for itself in taxes or does it cost more in taxes than it pays to county? Look at impact of
attracting new residents with children, etc.
B. Support Services Outcome Goals
Statewide Goals
1. Avoiding welfare through diversion assistance for 6 families.
2. Increasing child support orders and collections by 10 %.
27
29
County Outcomes
1. 100% of the Work First participants who no longer qualify for assistance will have access to a
safety net of services, including education and skills training.
2. 100% of the Work First participants who are employed below a living wage will have access
to a safety net of services, including education and skills training.
Short Term Strategies for Support Services.
• Develop a personalized transportation plan that includes what the recipient can do on their
own behalf, who they can ask for help and what to do in emergencies
• Expand existing services and develop new services
• Advertise the rural Orange bus schedule
• Collaborate with the Triangle Transit Authority to install ride - share, van pool signs in
northern part of county
• Issue transportation vouchers for Work First recipients to use on public buses and van pools
or for private transportation services such as buses and taxis
• Contract with privately owned services such as taxis and bus systems
• Seek good Samaritan legislation to limit liability for volunteers who drive Work First
participants or their children.
• Collaborate with the local public school systems for Work First participants to serve as bus
monitors
• Seek additional state funds for subsidized child care for WORK FIRST participants
• Create a dedicated child care funding source for mandatory recipients
• Seek legislation to remove the self - support reserve in calculating child support for non
custodial parent.
• Work with District Court Judges to gain better enforcement of child support orders
• Advocate for legislation to provide tax incentives to employers who provide sick child care
and child and dependent care during non - traditional hours
• Contract with other agencies to employ alternative strategies to help the hard to place
participants
Long Term Strategies for Support Services
• Work with city bus system to make bus schedules more compatible with worker's schedules
and not so exclusively tied to UNC schedule
• Expand the County transportation system
• Develop centralized pickup and drop -off points and park -ride lots
• Develop church car pools that are accessed through centralized phone services, especially for
emergency transportation needs
• Expand donor car program to make donated cars in good condition available to Work First
participants
• Develop relationship with car repair shops to donate $300 or more per year worth of car
repairs per year for Work First recipients
• Work with local schools and community colleges to provide low cost car repair for Work
First participants in cooperation with car repair training programs at local high schools
• Hire a transportation (mobility) manager to coordinate transportation ideas
W
30
• Seek legislation to allow use of school buses for transportation in off hours and/or to allow
approved Work First participants to ride school buses to central pick -up point or to workplace
if it is on bus route
• Address the need for child care services during non - traditional hours and for sick children
including paying a shift or service differential for people who provide these services
• Provide subsidized in -home care for sick children or dependent adults
• Develop Work First cooperative where participants provide child care for each other,
especially sick
• Explore leasing existing child care facilities for non - traditional hours care
• Locate a funding source for start-up loans for people who want to start their own child care
program and who will reserve spaces for children of Work first recipients
• Provide funding to help more child care homes become licensed, registered and accredited
• Partner with Chambers of Commerce to encourage employers to develop family friendly
workplace policies; e.g. family leave for both parents, sick leave used for sick child leave,
flexible work hours, etc.
• Advocate for a % of low and moderate income housing units in new developments to allow
for self - employment
• Advocate for Family Self- Sufficiency Programs in federal assisted housing
• Review the rent structure at public housing and to consider capping rents in public housing
• Develop and implement a plan to expand the number of housing providers that accept Section
8 certificate or vouchers for Work First participants or graduates
• Provide rent subsidies for Work First participants who are otherwise successful
• Develop program with local builders, Habitat for Humanity and/or high school home building
classes to adopt an apartment or house program to renovate run down dwellings at cost of
supplies if the owner will rent to Work First recipients or graduates at no more than 30 % of
their take home pay
• Expand efforts to reach all people who are eligible for Medicaid, especially under any new
programs that would expand Medicaid eligibility
• Develop a County sponsored HMO to provide medical coverage and services for families
who are under- employed and no longer receive Medicaid
• Match existing health insurance programs with Work First participants
• Work with UNC and other area employers to provide health insurance coverage for anyone
working 20 hours or more
• Endorse and lobby state and federal elected officials for mental health parity under existing
health plans
• Advocate for a living wage income for all Orange County residents employed in private or
public sector jobs
• Provide a one time lump sum grant (scholarship) to families when they transition off Work
First
• Provide necessary supports for people who work in low wage jobs that do not provide
income adequate for economic self sufficiency such as: rent and wage subsidies, child care
subsidies and added subsidies for child care during non - traditional hours
C. Special Populations - Teen Parents
Believing that teen parents have a particular potential for success, Orange County citizens are
choosing to place special emphasis on this population. Our goal is to identify all the teen parents
29
who need services and to provide those services in a manner that will promote economic self -
sufficiency by the time they reach 20 years of age or they no longer qualify for benefits.
The emphasis for teen parents who are 18 or 19 and qualify for Work First benefits will be to
obtain living -wage employment before their.benefits expire. This will probably involve skills
training and, for some, completing a high school equivalency. The program for teen parents who
are 17 or younger will emphasize completing their public school education, gaining marketable
job skills and planning for economic independence before they or their parents lose benefits.
Services for all teen parents will also focus on avoiding another pregnancy. Because health care
is vitally important for infants, children and teens, a health care outcome goal is included.
County Outcomes:
1. 60% of teen parents are job ready by the time they leave Work First.
Indicators: Teen parent completes high school, or obtains an ABE (Adult Basic
Education) certificate or a GED (General Education Degree).
Teen parent has no repeat pregnancy
Teen parent has a drivers license
Teen parent is enrolled in skills training or job readiness program.
Teen parent has adequate child care arrangement
2. 70% of teen parents and their children have their overall health needs met.
Indicators: Child is receiving regular well -child care.
Child is up to date on immunizations.
Teen has primary care provider
Teen parent receives regular health care.
There are no incidents of child abuse or neglect
Teen is enrolled in WIC
Father, if present, provides emotional, physical and financial support.
Barriers to achieving these outcomes.
• Serious educational deficits.
• Lack of access to community college or skills building opportunities.
• Lack of living wage jobs for person with high school education.
• Lack of child care during non - traditional hours.
• Lack of transportation to school, training, child care, and employment.
• Lack of affordable housing
• Inadequate parenting skills.
• Lack of resources, including money and social support, to leave an abusive situation.
Strategies for Teen Parents
• Adopt a Case Manager System
• Model the Adolescent Parenting Program
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31
• Develop a Mentoring Program
• Problem -solve issues related to child care, transportation, and affordable housing utilizing
strategies listed under support services problems and challenges in these areas
D. Emergency and Diversion Assistance
Statewide Goals:
1. Enabling 85% of Work First participants who leave welfare to stay off for 12 months.
2. Avoiding welfare through Diversion Assistance for 6 families.
County Outcomes:
1. Of the people who qualify for and receive diversion assistance, 75% will remain economically
independent, (they will not apply for benefits) for 12 months after the assistance ends.
2. Of the people who receive emergency assistance, 75% will have their crisis situation
addressed; i.e., they will not become homeless or be without electricity, heat, or adequate
food and clothing.
Short term strategies for Emergency and Diversion Assistance
• Provide Diversion Assistance to 6 families who have a high probability of remaining off the
Work First rolls (criteria include: successful work history, no pattern of financial crises, no
requests for diversion assistance within the previous 36 months, no chemical addictions)
• Provide emergency assistance to Work First participants who have a high probability of
success (criteria should include: participants are fulfilling their work requirements and are
successful in all other program requirements, the reason for the financial crisis is a major life
event or a situation where income or wages are too low to cover usual expenses)
Long term strategies for Emergency and Diversion Assistance
• Create a Centralized Emergency Assistance Service that can raise and distribute funds as a
single entity
Advantages: Centralizing emergency assistance would make it easier for applicants to access
these services, simplify the intake and distribution process, make better use of limited funds,
provide for better data collection and record keeping, and allow targeted fund raising. The
remaining agencies could increase their emphasis on case management. The faith
community could refer people not associated with their congregation.
Barriers: Existing agencies which have varying philosophies, processes, criteria and services,
will have to reach consensus on these issues; and they will need to collaborate on fund-
raising.
• Research San Diego's ACT program as a possible model for emergency and diversion
assistance.
31
32
33
E. Plans to Measure Statewide Goals and County Outcomes
1. The Employment Security Commission will document changes in wage and work continuity.
2. The DSS will analyze data on measures of child well -being that adequately and accurately
indicates the success of the Orange County Work First program.
These measures should include but not be limited to the:
• increase in the number of participants employed.
• increase in the number of hours worked per person.
• increase in job retention rates.
• increase in the average hourly wages.
• increase in the average total monthly income, regardless of source.
• increase in child support collection.
• increase in the rate of child immunizations.
• increase in well -baby checks.
3. The DSS will regularly survey Work First participants to determine ways to improve the
system and to make it more seamless to the user.
4. The Employment Security Commission and any other participating job placement agencies
will solicit structured feedback from successful and unsuccessful placements and use this
information to improve the process.
VII. ADMINISTRATION
A. Authority for Administration
As a Standard County, authority for administration of the Work First Program lies with the
Orange County Department of Social Services.
B. County Organization for Service Delivery
The services delivery system of the Orange County Department of Social Services is designed to
facilitate access to services, enhance appropriate responses to customer needs and help ensure
that assistance is provide in accordance with all applicable guidelines. Work First and other
economic services are organized according to function (Intake, Processing and Case
Management) rather than by individual program. Intake staff are completely generic and assess
each applicant's need for all available services, including emergency and diversion assistance.
Processing staff are also generic and respond to other needs that arise during the eligibility
determination process. Applicants who are approved for ongoing services are assigned to a Case
Manager who works with them according to the Hype of assistance and the circumstances of the
individuals in the households The main office is in Hillsborough, the county seat. All services
are also available in a satellite office in Chapel Hill. Child Support is a department of county
government and is not within Social Services.
All Work First applicants are interviewed by an intake worker when they appear at either the
Hillsborough or the Southern Orange Social Services office. Their circumstances are assessed to
determine whether diversion assistance is appropriate or an application for ongoing assistance
32
should be initiated. The intake worker also assesses other needs such as Food Stamps, Medicaid,
etc. When an application is taken, it is assigned to a Processing worker who determines
eligibility, continues the Work First process, and responds to any other needs that arise. If the
application is approved for Work First, the Department of Social Services assigns a Case
Manager who monitors eligibility status and coordinates efforts to help the recipient attain self -
sufficiency. Beginning January, 1998, eligibility and employment services will be consolidated
to further enhance the agency's ability to meet the County's Work First goals.
The Skill Development Center will be the foundation of a broad based skills training and
development program for Work First participants and other Orange County citizens. It will
house, on a full time basis, staff from Durham Technical Community College, ESC, Orange
County Literacy Council, Joint Orange Chatham Community Action Agency (JOCCA), and
DSS. Other community agencies, such as Vocational Rehabilitation, Good Works, and various
area employers, will be available on a part -time basis. The Center staff will provide job training
skills, career interest assessments, and job readiness, job search, and job placement services.
C. Administration of the First Stop Program
A Memorandum of Understanding will be developed with the Employment Security
Commission based on the guidelines established by the North Carolina Department of Health and
Human Services.
D. Child Care
In 1997, the Orange County Board of Commissioners established the Early Care and Education
Program Review Committee to review the work of last year's committee and to report on priority
needs for child care and early childhood education in the county.
The Committee reaffirmed the five priority needs that were previously established by the
committee but described some additional needs that are also important for creating a quality,
affordable and available early care and education system for young children and families in
Orange County.
The key priorities for child care subsidies are:
• Child Protective Services
• Child Welfare Services
• Employment
- Child Protective Services (employed after one year)
- Foster Children
- Work First participants
- Participants leaving WORK FIRST who need child care in order to work.
- Low income working families (30 hours per week minimum)
Training
High School students
Students in technical/skills development programs of less than two years in
duration
- University or college students who are Work First participants
• Children with developmental delay
33
34
35
E. Transportation
Ongoing communication exist between DSS and the local transportation agency. DSS staff
serve on the local transportation board. As a result of the collaboration, local transportation
routes have been expanded to meet the needs of some Work First participants. The local
transportation agency is coordinating discussions between DSS, Chapel Hill Transit, DOT, and
county planning to develop comprehensive strategies for better serving Work First participants.
F. Substance Abuse
The use of drugs and alcohol among Work First recipients in Orange County represents a
significant barrier to employment and independence from welfare. Most studies indicate
that 35% of welfare recipients use drugs and alcohol on some level. It is estimated that the
percentage is higher among public housing residents in Orange County. Demographic risk
factors for drug and alcohol use increase for the individuals between the ages of 18 -34 who do
not have a high school diploma and are unemployed.
The Chapel Hill Housing and Community Development received a $99,992 drug elimination
grant from the Department of Housing and Urban Development. The Town of Chapel Hill hired
a coordinator to work directly with housing residents around the issues of crime and drugs in
their neighborhoods as well as education and employment. The Department of Social Services
will collaborate with the project as we move Work First families to independence.
Judy Burke, OPC Mental Health Board member, and Tom Maynard, Director OPC Mental
Health have been involved in the development of the Work First Plan. Department of Social
Services staff and OPC Mental Health staff have met to coordinate a process for identification,
referral and treatment.
All participants entering the Work First program in Orange County will be evaluated by the DSS
case worker to determine if they have a substance abuse problem, using an evaluation tool
currently being selected by the Division of Mental Health, Developmental Disabilities and
Substance Abuse Services. Any participant identified as having a substance abuse problem or
for whom there is a question will be referred to a Qualified Substance Abuse Professional
(QSAP) for further evaluation. Such evaluation may include urinalysis, interview with the client
and with family members or friends of the client.
If this evaluation results in a determination that there is a substance abuse problem, the QSAP
will determine the appropriate level of treatment and make the referral to that service. The QSAP
will maintain records of all evaluations and referrals, for purposes of reporting to the Division of
Mental Health, Developmental Disabilities and Substance Abuse Services; will monitor follow -
up on referrals and participation in treatment, in cooperation with treatment staff and the DSS
case worker; and will provide feedback on their initial evaluations and ongoing consultation on
substance abuse issues to DSS case workers.
Horizons, a substance abuse treatment program at UNC Hospitals has applied for a research grant
from the federal government to operate an intensive outpatient treatment program for Work First
recipients. The model was developed by Columbia University, university staff will be involved
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in program development and data collection. The grants will be awarded to 12 sites across the
country. If awarded a grant Horizons will coordinate with the Orange County Department of
Social Services for identification and treatment of Work First recipients.
VIII. EMERGENCY AND DIVERSION ASSISTANCE
Orange County will operate an Emergency Assistance Program. Services for emergency
assistance recipients will include:
• Assessing the emergency to ensure that without assistance the family would be deprived of
basic needs
• Coordinating and collaborating with other emergency providers
• Providing education and resources to alleviate the crisis
• Follow -up after receipt of assistance
Emergency Assistance funds will be available beginning November 1 of each year. The
assistance program will end when the allocated funds have been exhausted. Funds will be
limited to a maximum benefit of $150.00 per household per year.
Applicants will be assessed for Diversion Assistance to help with families through temporary
situations that threathens their self - sufficiency. The primary goal of this grant is to keep
applicants off the welfare rolls.
IX. FUNDING REQUIREMENTS
A. Budget
The Budget for the Work First Program will be determined by the Orange County Board of
Commissioners as part of the normal budget process for Fiscal Year 1999.
B. Summary by Purpose of Expenditure
Expenditures are dependent on the level of funding authorized by the Board of County
Commissioners.
C. Personnel Schedule
Work First Section Director
1
Work First Supervisors
4
Work First Leadworkers
4
Work First Caseworker III
6
Work First Caseworker II
3
Work First Caseworker I
3
Social Worker II
4
Office Assistants
3
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36 .
X. INNOVATIVE COUNTY STRATEGIES
37
New Partnerships with the Economic Development Commission, the Chapel Hill - Carrboro
Chamber of Commerce and The Employment Security Commission
The Department of Social Services and the Economic Development Commission presented
information to the Chapel Hill Chamber of Commerce regarding how businesses can partner in
reforming welfare. As a result, the Chamber's Board of Directors agreed to create an oversight
committee on reforming welfare. The committee will host a Job Fair and contact employers
regarding the benefits of hiring Work First participants and listing job orders with the
Employment Security Commission. The Chamber and the EDC will begin by visiting the top 20
employers and sharing profile data on participants looking for work.
Partnerships with the Faith Community
Clothing Closet. The University Presbyterian Church and the Hillsborough Presbyterian Church,
the Commission for Women and Friends of DSS have partnered to develop a Career Closet for
participants needing clothing for job interviews and work. The Career Closet is operational and
is stocked with new or nearly new professional clothing. The availability of appropriate clothing
for interviews and work will enhance the participant's self - esteem and employability.
Mentoring Program. University Presbyterian Church has donated funds to operate a pilot
mentoring program for Work First participants. The mentoring program has begun with six
volunteer matches. Funds donated by the church cover the cost of a part-time coordinator.
Mentors provide participants with support and contact in the community as they strive for
independence.
Center for Employment Training
The Center for Employment Training offers training and job placement in Electronic Testing,
Automated Office Skills, and Shipping and Receiving. CET offers hands -on learning designed to
allow people to enter at any time and to progress at their own pace. Training is based on the local
labor market. CET has linkages with the business community through the Industrial Advisory
Board. Participants who complete their program have been successful in locating employment
with wages above the poverty level. Because CET is open entry, participants are able to begin
immediately after assessment.
Referral Process with UNC Hospitals and Accent on Service
UNC Hospitals and Accent on Service have agreed to interview Work First participants referred
to them for employment. Although these employers are not guaranteeing that participants will
get a job, the opportunity for an interview allows them to practice the interview process in real
time, sell themselves to a potential employer and explain any gaps in employment.
Community Advisory Council
In order to keep the public informed and involved, the Work First Program is in the process of
forming a Community Advisory Council. The Council will include Work First planning
committee members, community leaders, participants and former participants. It will meet two
J :�
to three times a year to review the Work First Program and to make recommendations for 38 -
improvements.
XI. SPECIAL ISSUES
Orange County's vision and mission statement apply to all citizens in Orange County. In order
for all people to participate in and contribute to the community, the County will have in place a
safety net of services for those people who do not have success through Work First or other
programs.
Employment barriers are realities for low income families in Orange County. Listed below are
typical barriers experienced by low income families in Orange County:
• lack of adequate and affordable transportation,
• lack of education,
• limited work experience,
• lack of non - traditional dependent care hours,
• lack of affordable housing,
• chemical dependency,
• lack of resources to handle crises.
Jobs paying a living wage require more skill and education than participants have. Orange
County Work First participants are competing against a highly educated pool for entry level
positions. Work First participants typically have insufficient finanical, support, and personal
resources to handle problems that occur. Few participants have a back -up plan for child care or
if their transportation breaks down.
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XII. CERTIFICATION
The Orange County Board of Social Services actively participated in the planning process for the
Orange County Work First Plan. The Board of Social Services supports the strategies for
meeting the statwide and county outcome goals identified by the community. The Board of
Social Services certifies that all requirements for plan development, outlined in Senate Bill 352=
Part XII, Welfare Reform Initiatives, were met.
Rosetta Moore, Acting Chairperson
Orange County Board of Social Services
The Orange County Board of County Commissioners certify that a committee of Orange County
citizens was formed called the Welfare Reform Task Force. The Task Force identified the needs
of the Work First population, and assisted in the development of the County Plan. The Work
First Plan was available for public comment as designated by the North Carolina General
Assembly. The Orange County Work First Plan was approved by the Board of County
Commissioners on January 20, 1998.
Margaret Brown, Chairperson
Orange County Board of County Commissioners
C
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40
Attachment I
Orange County Welfare Reform Task Force Members
Janice Schopler, Co -Chair
Associate Dean
UNC School of Social Work
CB# 3500
Chapel Hill, NC 27599
Ted Abernathy, Director
Economic Development Commission
PO Box 1177
Hillsborough, NC 27278
Kathy Bryan, Executive Director
Orange Enterprises, Inc.
500 Valley Forge Rd.
Hillsborough, NC 27278
Rev. John Burton
St. Paul's AME Church
103 Merritt Mill Rd.
Chapel Hill, NC 27514
Rev. Kaye Crawford, Minister
Hillsborough United Church of Christ
200 Davis Rd.
Hillsborough, NC 27278
Tara Fikes, Director
OC Housing & Community Development
PO Box 8181
Hillsborough, NC 27278
Moses Carey Jr., Co -Chair
Commissioner
121 Kinston Drive
Chapel Hill, NC 27514
Chris Moran, Director
Inter -Faith Council
207 Wilson St.
Chapel Hill, NC 27516
Winnie Morgan
2720 Buckboard Dr.
Hillsborough, NC 27278
Judy Burke
OPC Mental Health Board
CB# 3370 Carr Mill Mall
URIC
Chapel Hill, NC 27599
Jerry Passmore, Director
Orange County Dept. on Aging
PO Box 8181
Hillsborough, NC 27278
Dorothy Pennell, Manager
Employment Security Commission
110 W. Main St.
Suite D
Carrboro, NC 27510
39
Rev. Sharon Freeland, Director
Orange Congregations in Mission
PO Box 866
341 Ja Max Drive
Hillsborough, NC 27278
Joel Harper, President
Chapel Hill - Carrboro Chamber of Com.
104 S. Estes Drive
Chapel Hill, NC 27514
Mary Ende
Habitat for Humanity
200 David Rd.
Hillsborough, NC 27278
Lucy Lewis, Director
Orange County Commission for Women
110 Churton St.
Hillsborough, NC 27278
Thomas Maynard, Director
Orange - Person - Chatham Mental Health
501 E. Weaver St.
Carr Mill Annex
Carrboro, NC 27510
Besty Wiggins
Northern Orange Family Resource Center
PO Box 31
Cedar Grove, NC 27231
Peggy Wesley
DSS
PO Box 8181
Hillsborough, NC 27278
Daniel Reimer, Director
Orange County Health Dept.
300 W. Tryon St.
Hillsborough, NC 27278
Michele Rivest, Director
Orange County Partnership for Young Children
Suite C -8
Carr Mill Mall
Carrboro, NC 27510
Karen Rose
Human Service Coordinator
Town of Chapel Hill
828 Airport Rd.
Chapel Hill, NC 275124
Denise Shafer
DSS
PO Box 8181
Hillsborough, NC 27278
Joann Shirer
Resident Council
317 Caldwell St. Ext.
Chapel Hill, NC 27516
Karen Taylor, Member
Human Services Advisory Commission
UNC, FPG Child Development Center
CB# 8181, 105 Smith Level Rd.
Chaple Hill, NC 27514
John Hughes
Adolescents In Need
500 Orange High Rd.
Hillsborough, NC 27278
Re]
41
Verla Insko, Facilitator
610 Surry Rd.
Chapel Hill, NC 27514
Patsy Byrd, Director
Chapel Hill- Carrboro Headstart
Lincoln Center
750 Merritt Mill Rd.
Chapel Hill, NC 27516
Tina Vaughn, Director
Chapel Hill Housing
317 Caldwell St. Ext.
Chapel Hill, NC 27516
Linda Wade
DSS
PO Box 8181
Hillsborough, NC 27278
Carla Allison
DSS
PO Box 8181
Hillsborough, NC 27278
Marti Pryor -Cook, Director
Department of Social Services
PO Box 8181
Hillsborough, NC 27278
Shirley Marshall
Friends of DSS
205 W. Poplar Ave.
Carrboro, NC 27510
Bernice Wilson
Orange County Schools
200 E. King St.
Hillsborough, NC 27278
41
42
r
Attachment II 43
References.
County Profile, LINC Topic Report, July 30, 1997.County Profiles of Issues Affecting the
Working Poor, North Carolina Equity, 1997.
North Carolina Public Schools, Statistical Profile, North Carolina Department of Public
Instruction, 1996.
Orange County Demographic Information, Orange County Planning Department, 1997.
Orange County Health Assessment, Orange County Health Department, 1996.
Orange Economic Almanac: 1996 -97 Annual Report, Orange County Economic Development
Commission, 1997.
Report on Priority Needs in Orange County, Early Care and Education Program Review
Committee, March 21, 1997.
State of the Local Economy, Orange County Economic Development Commission, November
13, 1997.
Sustainable Family Initiative Report, 1 North Carolina Equity, 1997.
Toward a New Design in Human Services, Report of the 1996 Orange County Human Services
Reform Task Force, 1996.
Work First Data Profile, North Carolina Department of Health and Human Services, 1997.
Work First Substance Abuse Plan. Orange Person Chatham Mental Health Association Memo,
November 24, 1997.
1990 Census, US. Census Bureau.
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