’s Employment Services for General Assistance Recipients: Identifying Opportunities for Santa Cruz County Kimberly Petersen

EXECUTIVE SUMMARY

San Francisco County offers comprehensive sup- individuals who follow through with the complete portive services to adult cash aid recipients, who do program are positive, with more than 50% obtaining not have children to support them, to help them and maintaining work. identify their employment potential and overcome Santa Cruz County has more limited support- technical, behavioral, and emotional barriers to ive services available to adult cash aid recipients who obtaining and maintaining work. Individuals in the are without children. Santa Cruz County also has Personal Assisted Employment Services (PAES) pro- a much smaller population of General Assistance gram participate in employment preparation classes recipients, making the San Francisco County model that also recognize the mental health barriers to less feasible; however, Santa Cruz County can learn achieving sustainable employment. Participants also from the principles and concepts in San Francisco have access to referrals to focused counseling when County in order to re-evaluate components of the needed to achieve job readiness and have the ben- GA program in Santa Cruz, and collaborate with efit of an assigned Employment Training Specialist other county agencies and existing community based to match them to a variety of employment options, organizations to leverage funding and expand ser- including subsidized employment. Outcomes for vices for GA recipients.

Kimberly Petersen, Program Manager, County of Santa Cruz Human Services Department

137 138 BASSC EXECUTIVE DEVELOPMENT TRAINING PROGRAM San Francisco County’s Employment Services for General Assistance Recipients: Identifying Opportunities for Santa Cruz County Kimberly Petersen

Introduction work due to a medical issue and are on Medi-Cal, The number of General Assistance (GA) program may be eligible for cash and services to support them recipients in Santa Cruz County has remained con- in applying for and obtaining Social Security ben- sistent, while the number of recipients who identify efits. Individuals who are not disabled, or want to as employable has increased over the last six years. At work, may be eligible to receive General Assistance the same time, the County of Santa Cruz Human payments or may opt to comply with the Personal Services Department (SCHSD) has implemented Assisted Employment Services (PAES) program. In a customer experience-based business model and San Francisco the number of CAAP recipients aver- is exploring methods of providing a more holistic ages 5,745 a month, with approximately 1,385 in GA approach to benefit services, including employment and 2,564 in PAES.2 Approximately 8% of the clients services to GA recipients. are homeless.3 The City and County of San Francisco has a Employable GA and PAES participants are very robust employment services program for indi- required to comply with certain approved work, edu- gent adult cash aid recipients who choose to pursue cational, vocational, or treatment plans. The PAES employment. The program provides comprehensive program is unique in that PAES clients have the support for clients as they work towards their self- opportunity to receive more intense employment sufficiency goals. This is an examination of San Fran- services and a higher grant amount by signing a Par- cisco County’s employment services program for ticipant Agreement and Employment Plan. GA recipients and an analysis of what lessons can be PAES participants have multiple paths that the learned for Santa Cruz County. client may follow towards the goal of self-sufficiency. Cash Aid and Employment Services for Adults Figure 1 is a simple graphic outlining the flow of many in San Francisco County PAES participants, followed by a description of each main component. Please note that the Workforce Under the umbrella of the County Adult Assistance Development Department, which oversees PAES, is Program (CAAP), a number of cash aid programs are in the process of identifying ways to streamline pro- available to adults without children based on their cesses where possible. individual circumstances.1 The aid programs are dif- ferentiated by the applicant’s disability and employ- Triage – Triage is an evaluation and assessment of ability status, medical status, and desire to receive all CAAP clients. Triage is performed by trained employment services. Individuals who are disabled counselors who meet one-on-one with each client but not receiving disability, or who are unable to to assess his or her physical and mental states and

139 140 BASSC EXECUTIVE DEVELOPMENT TRAINING PROGRAM

FIGURE 1 PAES client workflow from application through employment:4

employability. Following triage, each client is rated their attendance by signing in and swiping their Job according to his or her employability status, so the Search cards through an electronic card reader. At Eligibility Worker can determine benefit programs a minimum, participants must visit the TWC ten and work requirements. The ratings are: No Restric- times in a month for job searches. tions, Light Duty, Temporary Disabling Condition, Group Employment Preparation Sessions (GEPS) – Likely Disabled, and Exempt. Triage services are In contracted out to a mental-health-focused commu- addition to Workfare or Job Search, PAES partici- nity-based organization (CBO), Richmond Area pants must attend an initial series of seven job readi- Multi-Services (RAMS). The Triage Clinicians work ness classes taught by county-employed trainers and on-site at the county application center.5 RAMS staff. The 1.5 hour classes are once a week for approximately six weeks. In addition to life skills Workfare – Workfare allows participants to perform and job readiness activities, the classes provide for community service through other departments, such a further exploration of what the appropriate next as the Department of Public Works or Recreation step is for each participant to achieve his or her goals and Parks; however, participants may also pursue of obtaining and maintaining employment. The 6 alternative workfare with a designated CBO. The trainings are on topics such as identifying personal participants assist with keeping parks, trains, busses strengths, goals, skill assessments, employment and and other public facilities clean. Participants sign a training tools and resources, and identifying actions contract with the organization they are doing work- that must be taken to achieve and maintain employ- fare with, and they work six hours a week. ment. One class provides time for a one-on-one Job Search – Individuals who are unable to partici- meeting with the trainer or vocational assessment pate in workfare due to a “Light Duty” triage assess- counselor, and every class provides opportunities ment participate in Job Search. Job Search requires for additional one-on-one support and referrals to participants to attend the Tenderloin Workforce other community resources. The GEPS trainers dis- Center (TWC) to search for jobs. Participants log cuss what the next steps for the participant will be PARTICIPANTS’ CASE STUDIES • CLASS OF 2015 141 following the last class, which is a graduation and occur every Thursday at the San Francisco Career opportunity to provide feedback. Upon comple- Links office. tion of GEPS, the participants take one of two paths Jobs NOW – Jobs NOW is a tiered approach to based on their individual circumstances. About 70% employment that places participants in a variety of of the clients continue to Jobs Plus, and about 30% jobs, ranging from highly supported internships in continue on to PAES Counseling Services. CBOs with additional professional development PAES Counseling Services (PAES) – Individuals who classes to more traditional jobs with private employ- need additional time to overcome barriers and ers. The placements are based on the participant’s job develop their strengths before beginning a job search work readiness and ability to be hired following an or maintaining work are referred to PCS. PCS pro- interview process. Jobs Now is utilized for PAES par- vides focused mental and behavioral health support ticipants, as well as CalWORK’s -to-Work to individuals for a wide array of needs ranging from participants, former foster care youth, and other anger management or substance abuse to over­coming individuals being assisted by the county’s employ- domestic violence and other issues that may hinder ment services. PAES participants’ trainers and ETS employment. Activities are geared toward overcom- match individual participants with available jobs ing barriers to employment. PCS is provided through and arrange for interviews. During the weekly Jobs a work order with the Department of Public Health, NOW recruitment event at the San Francisco Career which also contracts with RAMS. Links office, the participants may interview for mul- tiple positions. There are five tiers: Community Jobs Jobs Plus – Jobs Plus is a six-week, more intensive series Program, Individualized Training Internship, Pub- of job preparedness trainings, hands-on workshops, lic Service Trainee, Wage Subsidy, and Unsubsidized and one-on-one coaching sessions geared toward Employment. The ultimate goal is for participants to getting and maintaining employment. Sessions are obtain or maintain long-term, unsubsidized employ- co-facilitated with a county-employed trainer and ment following Jobs NOW. RAMS staff, in order to support the participants in practicing the hard, technical skills needed for the Workfare, Job Search, GEPS, Jobs Plus, and the job market and soft skills, such as communication non-wage subsidy portions of Jobs Now are funded and anger management, required to achieve employ- by CalFresh Employment and Training (CFET) ment and maintain employment. Individual partici- funds; additional General Fund dollars are used to pants who need focused mental health services are pay wage subsidies for PAES participants. Triage and provided with appropriate referrals. Upon entrance PCS is paid for with Medicaid Title XIX Commu- to Jobs Plus, participants may receive a $50 voucher nity Service Block Grant funds. to purchase interview clothes at a Goodwill store and complete surveys regarding their existing employ- Outcomes in San Francisco ment skills, educational backgrounds, and skills or The participation rates and outcomes are higher than behaviors for which they would like support in order expected for a traditionally difficult-to-serve popu- to obtain and maintain a job. lation. There is 60% participation across all PAES Jobs Plus participants have an assigned Employ- components.7 Between July 2011 and March 2013, ment Training Specialist (ETS) who manages their 570 of 603 CAAP clients participated in Jobs NOW, case, helps develop an employment plan, and com- and 360 of those 570 had earnings one quarter after municates with the trainers to support participants exiting Jobs NOW, and 330 still had earnings two in achieving their employment goals. Through Jobs quarters after exiting Jobs NOW.8 Additionally 328, Plus, the participants have the opportunity to par- or 54%, of the 570 clients were not receiving any ticipate in the Jobs NOW Hiring Recruitments that benefits, and 125 were receiving CalFresh only six 142 BASSC EXECUTIVE DEVELOPMENT TRAINING PROGRAM

FIGURE 2 GA client workflow from application through employment

months after exiting. Many factors may explain why work requirements for a maximum of two months, so many clients were not receiving benefits, but the unless they are evaluated by a clinician at the Health number is noteworthy. Services Agency confirming the condition will con- tinue for a longer time period. Unemployable indi- Employment Services and General Assistance viduals are exempt from work requirements, and in Santa Cruz County those evaluated to have a permanent disability are Adults without children in Santa Cruz County who referred to an SSI Advocate to begin the process of need cash assistance may be eligible for GA. Over the applying for permanent disability benefits. Employ- last 18 months, the average GA caseload has about able GA recipients are referred to the Job Search 170 cases per month. Currently, approximately 36% Workshop (JSW), or to the CalFresh Employment of GA recipients are employable. Approximately and Training program, and are required to verify 28% of the GA recipients are homeless. Of the total they applied for 40 different jobs each month. All employable clients, approximately 28% are home- GA recipients must sign a repayment agreement. less and 10% of the population is both homeless and JSW is a CalWORKS/Welfare to Work employable.9 Figure 2 is a graphic overview of the (WTW) job search and job-readiness activity in basic workflow for GA applicants. which employable GA recipients may also partici- In relation to the CAAP programs in San Fran- pate. JSW is four weeks for about seven hours/day, cisco County, there are fewer components of the and it performed through a contract with a local GA program in Santa Cruz County, particularly in non-profit organization. During the workshop the relation to mental health assessment and support, individuals receive training in how to develop a as well as structured job opportunities. During the resume, prepare for interviews, and identify personal interview with the Benefit Representative (BR), the assets and challenges. BRs and trainers who work GA applicant self-identifies as employable or non- with the GA population have stated that GA par- employable due to a temporary or permanent dis- ticipants need assistance beyond what JSW provides, ability. Individual’s who identify as non-employable but there is no formalized mechanism to connect must provide a signed statement by a doctor stating them to the resource(s) they need. Following JSW, if why the individual is unable to work, and how long the WTW participant does not gain employment, s/ the condition is expected to last. Individuals with he will be referred to a subsidized employment pro- a mental health-related disability are exempt from gram or further vocational or classroom training. PARTICIPANTS’ CASE STUDIES • CLASS OF 2015 143

If authorized through the Workforce Innovation implemented, and the practical, technical, and finan- and Opportunity Act (WIOA), and approved by a cial considerations of each recommendation. WIOA ETS, GA participants may attend further ■■ Currently there is no mechanism for GA appli- training and receive additional job search assistance. cants to state their barriers to employment. Subsidized employment opportunities do not exist Change the GA intake process to allow indi- for GA participants. viduals to identify mental-emotional health or CFET in Santa Cruz County is performed substance abuse-related issues with which they through a contract with the Homeless Services Cen- want support. ter in Santa Cruz. CFET provides assessment and case management for job readiness and job search ■■ Current GA rules around job search require- activities, as well as housing stabilization and refer- ments are very strict at 40 verifiable applica- rals to other services. The CFET performance goal tions a month for jobs for which the recipient is that 15% of the participants who enroll in CFET is qualified, and with no applications for the will obtain a job. Currently 15 GA clients have been same job within a three-month period. The cur- referred to CFET, eight have participated in CFET rent requirements are significantly higher than activities, and five of those individuals have com- CFET job search requirements, may be unattain- pleted case plans. able for many people, and may create additional When contrasting the employment train- emotional stressors on the recipients that hinder ing plans between the counties of San Francisco continuing the job search. The GA regulations and Santa Cruz, it is apparent that San Francisco could be altered to make job search requirements has much more robust services for a much larger more realistic for the current environment and population. Areas of particular interest for Santa local hiring practices. Cruz County are the triage function that provides ■■ The current report on the GA client profile for an assessment and evaluation of participants at paints a broad picture of GA recipients, but a the start of the application process, the continued more refined profile could assist in better iden- behavioral health support and opportunities for tifying the best way to serve GA recipients. I formalized referrals for individuals needing focused recommend including information on the age of mental health services, and finally, the various levels GA recipients, within 10 – 15 year increments, of employment opportunities for GA participants. identifying whether the client identifies as Considering the size of the GA population, par- homeless in North or South County, along with ticularly the employable population in Santa Cruz additional data on the number of non-homeless County, it is not feasible to recreate the comprehen- vs. homeless employable GA recipients, and the sive systems that exist in San Francisco; however, rate of churn. there are opportunities to leverage existing relation- ■■ Create a formal feedback loop between the JSW ships, expand existing services, and formalize exist- trainers and the GA BRs, paired with guidance ing referrals. There are also opportunities to gather on available referrals for the client’s needs. Ide- more information about the GA population, and ally the referrals would be formalized through explore new relationships with existing CBOs to procedures with the Health Services Agency or expand services. another Medi-Cal provider equipped to support or refer clients appropriately. In the short-term, Opportunities and Recommendations providing guidance to the BR on how to better for Santa Cruz County support the client with a warm hand-off to 211 Below are a set of recommendations and opportuni- or the Central Alliance for Health ties listed in order based on how quickly they can be would be an improvement. 144 BASSC EXECUTIVE DEVELOPMENT TRAINING PROGRAM

■■ Expand the existing agreement with HSA to to five to ten GA clients, and it could be partially provide employability-focused mental health funded with a portion of the money reimbursed assessments of all GA applicants. If an appli- to the GA program from SSI. Last year approxi- cant is discontinued and re-applies within a six- mately $100,000 was reimbursed to the GA pro- month period of time, then the individual could gram. Administrative activities related to the be exempt from the assessment assuming s/he pilot could be paid for with CFET matching. reports no changes in his/her status. Each month, The exact funding of any Employment Services there are approximately 159 GA applicants, and staff may be challenging, but there may be a way only about 20% are approved for services. Con- to use BRs already familiar with the clients and sider that some are likely re-applying after dis- Workforce Investment and Opportunity Act continuance; a smaller number is likely to need (WIOA) employees and services. Because of the mental health assessment. Assuming all GA the complexities and limitations around fund- eligible applicants are also Medi-Cal eligible, the ing sources, this would be a challenging, but a services could be paid for through Medi-Cal, potentially worthwhile endeavor. though exact funding and roles and responsi- ■■ Consider work incentives for employable GA bilities between HSA and the Human Services clients, such as lien removal following a certain Department would need to be negotiated. Addi- time period of continuous employment. tionally, HSA capacity would need to be consid- ered. An alternative to expanding the agreement Acknowledgments with HSA is to establish a new arrangement and I would like to thank Bernadette Santos, Manager, contract with a mental-health focused CBO Workforce Development Division, for making time that can also utilize Medi-Cal for services. One to explain the PAES program, answer questions, and advantage of HSA is that clinics are located in arrange opportunities to observe the program opera- the north and south ends of the county, making tions and speak with trainers and other managers. them accessible to most applicants. I would also like to thank Terri Austin, Admin- ■■ Explore the potential for a GA-focused Job istrative Manager, Dr. Thomas Neill, PCS/Triage Search Workshop, and/or the existence of an Manager, John Murray, Senior Planning and Policy organization that can provide more intense Analyst, Jovita Ramos, and all the PAES trainers CFET services to non-homeless clients, either who took the time to answer my questions. From through a new contract or expanded contract Santa Cruz County I would like to thank Cecilia with an existing job search/support service pro- Espinola, Director of Human Services, and Emily vider. Consider whether a capable provider is Balli, Employment and Benefit Services Division already receiving money through HSD’s Com- Director, for providing the opportunity for me to munity Service Grants, and consider whether participate in BASSC. I want to thank Kathy Mello, the services paid for can be modified to fit CFET Adam Spickler and Frank Richards for providing requirements so that the grant money can lever- information on Santa Cruz County employment age additional CFET funding and result in services contracts, CFET and GA demographics. I expanded services. would also like to thank my fellow program manag- ■■ Explore the feasibility of conducting a pilot pro- ers and analysts who provided management coverage gram to expand the county’s subsidized employ- while I participated in BASSC, and the supervisors ment, such as STEP or Smart Hire, to provide and staff at the South Customer Service Center for supported employment opportunities to employ- staying focused on serving the public and being self- able GA clients. The pilot could be very limited directed in my absence. PARTICIPANTS’ CASE STUDIES • CLASS OF 2015 145

References 5. Conversation with Dr. Thomas Neill on 4/28/15 1. CAAP Information Form 2133CR (3/01/14), regarding Triage operations obtained during a CAAP Orientation. Infor- 6. Information on PAES Program components mation also available through CAAP Eligibility was gathered when attending Orientation, Manual, April 1/2015, available at: http://www. Workfare, Job Search, GEPS, Jobs Plus meet- sfhsa.org/asset/ReportsDataResources/ ings, and the Jobs NOW recruitment over mul- CAAPEManual040115.pdf tiple days, 2/23/15, 3/2/15, 3/9/15, 3/10/15, 3/12/15 2. Caseload Data report for FY 14/15 provided by 7. Conversation with Bernadette Santos, Manager John Murray, Sr. Planning and Policy Analyst Workforce Development Division, on 5/5/15 on 4/28/15 8. Jobs NOW Post Program Employment and 3. Client Demographic Profile, available in the Benefit Outcomes Power Point Presentation, Power Point Presentation on the CalFresh 11/18/14, provided by Bernadette Santos Employment and Training (CFET) Program 9. Data obtained from GA Demographic Profile provided to Federal Government Representa- Reports from Santa Cruz HSD intranet, and tives in December 2014, Frank Richards, Sr. Human Services Analyst 4. This flow is a modification of a more detailed CFET Client Flow, that can be found in the same Power Point Presentation from December 2014 mentioned above. 146 BASSC EXECUTIVE DEVELOPMENT TRAINING PROGRAM