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Preface	p. iii
Figures	p. xi
Tables	p. xiii
Summary	p. xvii
Acknowledgments	p. xxxiii
Abbreviations	p. xxxv
Introduction	p. 1
Background	p. 1
Objectives of This Report	p. 2
Methods	p. 2
A Theoretical Perspective on the Implementation Process	p. 4
A Linear View of the Welfare Reform Implementation	p. 5
A Richer View of Implementation	p. 7
Organization of the Document	p. 9
Prwora and Calworks: Legislative Provisions and Subsequent Caseload Trends	p. 13
Provisions of PRWORA	p. 13
Provisions of CalWORKs	p. 15
The CalWorks Program Model	p. 18
Caseload and Unemployment Trends after PRWORA and CalWORKs	p. 19
Implementation of Calworks at Cdss	p. 25
CDSS's Role in Issuing CalWORKs Regulations	p. 26
How the Regulatory Process Unfolded	p. 26
CalWORKs Regulatory Issues	p. 31
Federal Regulatory Issues	p. 42
The New Administration and "Modified Work-First"	p. 52
Reporting Requirements	p. 53
What Information CDSS Needs	p. 54
Problems with Current County Data Systems	p. 55
Current Status of Reporting	p. 59
What Is Needed for Program Management	p. 64
The CDSS-CWD Relationship and CDSS	p. 65
Conclusions	p. 67
Funding of Calworks	p. 69
Funding Sources and Flows	p. 69
Federal Funding for CalWORKs	p. 70
State CalWORKs Budget and County Fund Allocations	p. 72
Budgeted Spending by CDSS and Counties	p. 77
Estimated State-Level Funding Trends	p. 77
MOE Compliance	p. 80
County Spending	p. 81
Subsequent State Funding Decisions	p. 84
Discussion	p. 90
County Implementation: Organizing for Calworks	p. 91
The Growth of Workload Under CalWORKs and the Implications for Capacity	p. 92
Intermediate-Term Workload Effects	p. 93
Short-Term Workload Effects	p. 97
How Counties Dealt with the Increasing Workload	p. 98
Prioritizing Tasks	p. 99
The Decision to Increase Capacity	p. 100
The Strategy of Outsourcing	p. 102
Considerations in Making the Outsourcing Decision	p. 102
What Was Outsourced to Whom?	p. 107
Contracting Process for Outsourcing	p. 108
Terms of Outsourcing Contracts	p. 111
How Long Did It Take to Outsource?	p. 112
The Strategy of Adding Staff	p. 113
The Process of Adding Staff	p. 113
The Process of Making Staffing Structure Changes	p. 116
What Staffing Strategies Did the Counties Choose?	p. 119
Labor Relations	p. 125
Changing Program Philosophy and Outcomes-Based Management	p. 127
Conclusions	p. 132
Delivering Calworks at the Street Level	p. 133
The CalWORKs Process of Implementation	p. 134
A Static View of the Status of Implementation	p. 137
Initial Phase: Steps Through the Signing of a WTW Plan	p. 141
Describing the Content of the Initial Phase	p. 141
The Flow of Participants Through the Initial Phase	p. 145
Processing the Existing Caseload	p. 148
One Other Exit Route from the Initial Phase: Exemptions and SIPs	p. 157
Pure Work-First	p. 157
Modified Work-First	p. 158
Diversion	p. 161
Second Phase--Welfare-to-Work Activities	p. 161
Assessment and Development of a WTW Plan	p. 162
WTW Activities	p. 164
The 18/24-Month Time Limit	p. 168
Another Exit Route from the Initial Phase: Noncompliance and Sanction	p. 172
Levels of Noncompliance	p. 173
Reasons for Noncompliance	p. 174
County Home Visit Programs	p. 178
Legislative Provisions to Address Noncompliance	p. 181
County Responses	p. 181
Sanction Rates	p. 185
Another Exit Route from the Initial Phase: Employment	p. 188
The Need for PES Programs	p. 189
The Goals of PES Programs	p. 190
County PES Programs	p. 192
Conclusions	p. 195
Child Care	p. 197
Background	p. 197
Policy and Legislative Context--Before PRWORA and CalWORKs	p. 197
Policy and Legislative Context--After PRWORA and CalWORKs	p. 198
Institutional Context	p. 203
Funding Context	p. 205
State-Level Issues	p. 205
Interagency Cooperation in the Three-Stage System	p. 205
Parental Choice	p. 207
Equity	p. 211
Child Care Quality	p. 212
The Fair Labor Standards Act	p. 214
County Concerns	p. 214
The Lack of Local-Level Planning	p. 214
Definitions of Stability	p. 215
Who Should Staff Child Care?	p. 218
Providing Training for CWD Staff in Child Care Needs	p. 219
Providing Training for Child Care Providers	p. 220
Child Care Availability	p. 221
Providing Training Enabling Participants to Become Licensed Providers	p. 222
APP and Provider Issues with CalWORKs Clients	p. 225
Payment to Providers	p. 226
Coordination Between CWDs and APPs	p. 227
Concerns About Fraud	p. 228
Variation in County Spending on Child Care Services	p. 229
Variations in How Counties Organized the Administration of Child Care Funds Across the Three Stages	p. 231
Conclusion	p. 235
Transportation	p. 237
Background	p. 237
Policy and Legislative Context--Before PRWORA and CalWORKs	p. 237
Policy and Legislative Context--After PRWORA and CalWORKs	p. 238
Institutional Context	p. 239
Funding Context	p. 240
State Implementation	p. 240
Implementation	p. 245
County Transportation Strategies	p. 246
Providing Service to Clients in Remote or Rural Areas	p. 249
Conclusion	p. 250
Education and Training	p. 251
Background	p. 252
Policy and Legislative Context--Before PRWORA and CalWORKs	p. 252
Policy and Legislative Context--After PRWORA and CalWORKs	p. 254
Institutional Context	p. 254
Funding Context	p. 256
State Concerns	p. 259
CDSS Collaboration with EDD	p. 260
CDSS Collaboration with Educational Providers	p. 260
County Concerns	p. 261
Work-First Versus Human-Capital Approaches	p. 262
Organization of Agencies at the Local Level	p. 264
Duplication of Services	p. 265
Coordination	p. 266
Complicated Funding Streams and Reporting Requirements	p. 267
Low Referral Rates	p. 268
Substance Abuse, Mental Illness, and Domestic Abuse Services	p. 271
Background	p. 272
Policy and Legislative Context--Before PRWORA and CalWORKs	p. 272
Policy and Legislative Context--After PRWORA and CalWORKs	p. 272
Institutional Context	p. 274
Funding Context	p. 275
State Concerns	p. 277
The Problem of Few Referrals and Lower Than Expected Utilization of Services	p. 277
Leadership and Coordination Efforts	p. 281
Monitoring Utilization of Services	p. 283
Available Treatment Capacity	p. 285
Concerns About Spending Allocated Funds	p. 286
County Concerns	p. 287
The Problem of Few Referrals and Lower Than Expected Utilization of Services	p. 288
Variations in County Approaches to Identifying and Referring CalWORKs Participants	p. 293
Coordination Between CWD Staff and Behavioral Health and Domestic Violence Services Providers	p. 296
Quality of Care Issues	p. 297
Child Well-Being and Welfare	p. 301
Background	p. 302
Policy and Legislative Context	p. 302
Institutional Context	p. 304
Funding Context	p. 305
State Concerns	p. 307
Coordination Between CDSS and CPS	p. 307
Concern About Funding Sufficiency Using the Block Grant Approach	p. 310
Concerns About the Five-Year Time Limit	p. 310
County Concerns	p. 310
Coordination Between CWD and CPS	p. 311
Lack of Reporting on Measures of Child Well-Being	p. 316
Stresses on Child Welfare Caused by Work Requirement for Single- and Two-Parent Families	p. 316
Child Support As a Replacement for Welfare	p. 318
School Attendance and Immunizations	p. 320
Issues for Further Consideration	p. 325
The Central WTW Path: Issues for Further Consideration	p. 326
Combining Eligibility and WTW Operations	p. 327
Pace of Implementation Through the Sequence of Activities	p. 330
Outcomes-Based Management	p. 333
"Pure" Versus "Modified" Work-First Approach	p. 334
The Noncompliance and Sanctions Path: Issues for Further Consideration	p. 337
The Issue of Noncompliance	p. 337
Home Visits	p. 338
Sanctions	p. 339
The Post-Employment Services Path: Issues for Further Consideration	p. 340
Other Services	p. 342
Child Care	p. 342
Behavioral Health	p. 343
Final Thoughts	p. 344
Appendix
Methods	p. 347
Federal Welfare Funding after PRWORA	p. 359
Process for Categorizing Counties for Analysis Using WTW 25 Data and County-by-County Analysis	p. 365
References	p. 369
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Welfare Reform in California State and County Implementation of CalWORKs in the Second Year

9780833028822

0833028820

Summary

Table of Contents

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Welfare Reform in California State and County Implementation of CalWORKs in the Second Year

9780833028822

0833028820

Summary

Table of Contents

Supplemental Materials

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