Welfare to Work Phase 2 Provincial Update

Program

Supports for Independence (SFI)

Description

AHRE offer an array of programs and services including income support, career information and counseling, work experience and pre-employment training programs.

SFI is designed to provide Albertans who are able to work with the short-term support they need until they become independent of government assistance. The focus is on the promotion of self-sufficiency and family responsibility rather than benefit administration. Thus, it marks a change from a passive welfare system to an active employment initiative.

Alberta’s welfare program is delivered by a team of intake workers, financial benefits workers and career and employment consultants.

Goals

SFI has the following goals:

to assist recipients to achieve independence and self-sufficiency to the greatest extent possible
to refer potential participants to alternative resources to meet their basic needs
to determine eligibility and provide the appropriate level of financial and other benefits to meet needs

Objectives

The guiding principles of SFI are as follows:

SFI is a program of last resort that meets the basic needs of eligible applicants and recipients. It includes assisting recipients to gain access to family support as an alternative to SFI.
SFI is a temporary resource, acting as a bridge to assist recipients to maximum independence.
People are better off working than not working.
Where recipients are not able to become fully independent, SFI provides assured financial support based on need and eligibility

Program Rationale

History

In 1990, in response to a steadily rising welfare caseload, the Alberta government announced major changes to its social allowance program. The new program, SFI, was designed to provide Albertans with the short-term support they needed until they could become self-sufficient.

Benefits were streamlined and the criteria for categorizing recipients were changed based on a recipient’s relationship to the labour market. For example, is the recipient working? Temporarily unable to work? Disabled to the point where he or she cannot work? Four new sub-programs were established, and staff positions were created to assist in the assessing recipients and helping them gain access to training and employment opportunities. However, the caseload continued to rise to an alarming rate, and it was determined that more radical changes were needed.

In 1992, the Minister of Alberta Family and Social Services set out to reform the entire welfare system based on a three-part philosophy:

People want to work.
Any job is a good job.
People on welfare should not be better off than other Albertans.

The welfare reform initiative was announced in April 1993. The basic strategies were

to create new, more effective employment and training opportunities for recipients
to transfer welfare-supported students to the Students Finance support would now come in the form of grants for academic upgrading, English as a second language and basic education
to restructure welfare benefits and reduce costs

Welfare eligibility conditions were changed to reinforce the principle that welfare was now a program of last resort and not a choice of lifestyle. These changes included a requirement that parents with children older than six months must actively seek work or enter training to prepare for independence. (Previously, parents of children over two years were expected to work; before that, FSS expected parents to return to work when the child was six or of school age.) Rules for common-law spouses and sponsored immigrants were also tightened.

Within a few months, the department, in collaboration with AECD, had a number of work experience and training programs in full operation. Alberta Community Employment, Employment Skills Program and Alberta Job Corps give welfare recipients the opportunity to learn skills and gain valuable work experience while getting paid. For training, education and pre-employment programs, recipients were referred to AECD. Close collaboration between FSS and AECD, and by extension with Human Resources Development Canada (HRDC), was a key element of SFI at the time and continues today with AHRE.

In 1994, an agreement was signed by FSS, AECD and HRDC to pilot the integration of labour market and income support programs and services in four sites in Alberta. The objective was to increase recipient’s accessibility by providing a single-window access point to programs and services. In 1996, the new Minister of FSS pledged to continue the reform of Alberta’s social allowance program and to maintain the department’s focus on employment and job training for recipients able to work.

To further develop labor market initiatives for SFI and EI recipients the Canada-Alberta Labour Market Development agreement was signed December 6, 1996. This agreement between AECD and HRDC enabled Alberta to assume an expanded role in the design and delivery of labour market development programs and services for the unemployed in the province, effective April 1, 1997. Under the agreement, AECD delivers, through a network of Canada-Alberta Service Centres, active employment measures that will help unemployed Albertans get back to work. These measures are funded through Employment Insurance. During the first three years of the agreement (1997-2000), the government of Canada will contribute up to $317 million from the EI account to the Alberta government. The agreement has been extended to 2003.

AHRE is responsible for ensuring that Albertans have access to needs assessment, employment counseling and job-finding services. With flexibility to meet Alberta’s labour market needs, AHRE designs and delivers provincial programs and services similar to the active employment benefits described in Part II of the Employment Insurance Act. These include work experience, assisted job placement, funding for training and assistance toward self-employment. HRDC continues to be responsible for providing EI benefits and labour market services that are national in scope such as national labour market information. It also continues to play a key role in inter-provincial mobility.

Program Activities

Main Activity

The main activity is to assist recipients in maximizing their efforts to gain employment and financial independence.

Specific Activities

The following activities are part of Alberta’s approach:

adult basic education/literacy training
second language training
life skills training
parenting classes
counseling on
- job stress
- family stress
- family violence. Referral is made to a community agency.
- substance abuse. Referral is made to a community agency.
- the stress of balancing employment and family conflict

The employment assessment, done before a referral to any employment program, should begin to address this issue. Life management is part of many programs that include balancing family responsibilities and getting structure or routine into the lives of participants, as appropriate. If a participant is not ready for work immediately, an employment preparation program is considered.

the stress of balancing school and family conflicts. Counseling is available through the educational institution in which the participant is enrolled.
high-school completion
post-secondary education
college/ university
apprenticeship/trades
job-readiness training
- counseling
- job-search training
- career planning
- job referrals
job placement
workplace-based training (on-the-job training)
paid work experience
self-employment. Through a network of contracted community providers assistance is provided in developing a feasible business plan.
volunteer activities. Voluntarism is encouraged if the individual is unable to participate in the competitive labour market. Although not formally part of the Alberta employment programs, a volunteer activity might be part of an employment plan developed by the participant and the employment and client support worker.

Generally, recipients who are able to work are expected to move toward that goal. They are to work, prepare for work or train according to the employment plan they have developed. The government’s role is to provide the support and the active measures recipients need to be successful.

AHRE staff, through Career and Employment Services, works with individuals, private employers and other government departments to increase the skill level of Albertans. Services appropriate for but not limited to welfare recipients include

workshops. Group sessions assist adult Albertans wanting to develop their employment skills. Individual career counseling may be offered.
career information hotline. A toll-free telephone service provides information and referrals related to career planning, educational opportunities and job search strategies.
labour market information centres. Information is available on career planning, occupational options, educational opportunities, employment and job-search strategies, apprenticeship and trades, entrepreneurship and business development, and human resource planning.

AHRE and community partners have developed local strategies to maximize work opportunities for recipients. These strategies include a broad range of services such as:

job information. Job boards and automated job information centres provide up-to-date information on local job opportunities.
employment referrals. Recipients are referred to job vacancies identified through local partnerships.
employment planning. Assessment, counseling and planning services are provided by AHRE and community partners
orientation workshops. Group sessions provide recipients with information on local resources and assistance with employment planning.

Integrated Training Centres for Youth (ITCY), a Canada/Alberta Strategic Initiative (now Youth Connections YC) was a pilot project designed to test the value of customized counseling, training and work-site interventions for young individuals at risk of long-term dependence on public support. ITCYs in Lethbridge, Red Deer and Edmonton target youth aged 16 to 20 who have dropped out of school and are at risk of long-term dependence on social allowance. Since the initial pilot project the program was redesigned to target youth 16 to 24 that are unemployed, under-employed or working but looking to further their learning and develop employability skills. The program was renamed Youth Connections. (YC)

Youth Connections is a program that responds to the needs of Albert’s young people by linking them to career and employment opportunities and further training options. This is achieved by establishing partnerships with businesses who are willing to provide opportunities to youth . Industry is taking a more active role in the development of its’ workforce by providing Job Shadow, Work Experience, Training-on-the Job opportunities as well as Mentorship programs and direct hiring.

Staff at the Youth Connections sites in Alberta arrange these career exploration activities as well as provide instruction on resume writing, job search, interview techniques, further education and training options and more. There are print resources available for self-directed activity as well as fax machines, photocopiers, internet access and phone lines for use by these young job seekers.

Initial funding was $3.74 million over three years (1995-98) shared 50-50 between the federal and provincial governments.. The mean age of participants is 18. Most are single males; about 12% are a visible minority and 13% are aboriginal.Youth Connections began with two pilot sites in 1997 and has grown dramatically due to its’ success. There are now 35 Youth Connections sites in Alberta serving thousands of youth each year.

Canada-Alberta Service Centres (CASC) were established to offer Albertans convenient access to an integrated array programs and services. CASC’s provide federal and Alberta government services and financial support to help people acquire employment skills and enter or re-enter the labour market.

Alberta Service Centres (ASC) are being integrated to consolidate the services and programs for income support, career and labour market information, education and employment programs, student funding information and services to people with disabilities.

Training and Educational Activities

Recipients work with career and employment counselors to develop an employment assessment and employability plan. The plan, which directs the activities of both the recipient and the counselor, includes the short-term and long-term goals of the recipient, specific activities with timeframes, expectations of the recipient, responsibilities specific to the recipient’s category (i.e., relationship to the labour market) and a description of how the recipient will report on her or his progress.

Under current agreements and partnerships, there is a shared responsibility to determine the eligibility of SFI recipient to receive Students Finance Grant funding. Authorized career and employment counselors with AHRE and community providers and financial benefits workers may be the initial contact for recipients who want to return to school to prepare them for employment. Workers explore alternate resources with recipients who are interested in training and those requesting full-time attendance in basic foundation skills must have the training approved by the counselor

Training and educational opportunities include the following:
Eligible students accepted and enrolled in basic foundation skills, academic upgrading or
English as a Second Language (ESL) programs receive grant funding under the Skills
Development Program administered by Alberta Learning and Alberta Human Resources and Employment

Students are expected to assume greater responsibility for the costs of education as employability and income earning potential increases. Loans, which may be supplemented by grants, are available from Students Finance for post-secondary study such as skill training programs, training at technical institutes, and college and university programs. For people who would like to improve their skills but are working or unable to study full-time, a part-time bursary or loan program is available. Maintenance grants up to $6,000 per academic year is available for disadvantaged individuals, primarily single parents.

The Skills Development Program, through grants, assists recipients to reach a basic level of education (grade 12) or equivalent

Employment-Based Activities

Throughout the province, AHRE contract with public and private agencies offering employment preparation services for welfare recipients. The services provided are determined locally after examining the needs of recipients and the resources available in the community. AHRE manages the services, which include the following:

Skills for Work (SW) is a client centered, labour market driven program that focuses on the practical work related skills Albertans need for employment. Training is individualized and comprehensive. It enables Albertans to combine and integrate life management skills, occupational training, and basic skills upgrading with the work experience needed for jobs in demand in the labour market. In doing so, the program supports community economic development initiatives by providing Albertans with the training necessary to access employment, and by cost sharing with prospective employers who provide work experience participants gain valuable contacts in the employer market place prior to seeking full-time work.

Job Placement Program In addition to matching job seekers with vacancies, private and public agencies provide all Albertans in need of employment related services to increase their resume-writing, interviewing and job-searching skills.

Training-on-the-Job Program Participating employers are assisted in developing training plans and covering the costs of providing recipients with job-specific skill training at the work-site. Training focuses on transferable skills, hands-on work experience and opportunities for continued employment in jobs for which there is a labour-market demand. Participants are paid wages by their employers. In turn, employers are reimbursed at a flat weekly rate by the department

Integrated Training Under the new agreements with community providers, public and private, a greater component of occupational and employability skills are incorporated into the instruction along with education upgrading, life skills and work experience needed to move into a job.

Work experience AHRE temporary employment programs provide work experience opportunities to recipients who are able to work but have been unsuccessful in their job search. The positions are up to six months in duration, and participants are paid wages plus benefits. Participants develop work-related skills and obtain a recent work record. Eligible employees must be at least 18 years of age and have the minimum educational requirement necessary for recruitment into an occupation related to the work experience. AHRE currently manages and delivers three temporary employment programs

Employment Skills Program. (ESP) Employers are provincial government departments. Employees are paid $6 to 7 per hour plus benefits and can have individualized training of up to $1,000.

Alberta Community Employment (ACE). Municipalities, publicly funded organizations and non-profit agencies sponsor positions in the community. ACE contributes $6to7 per hour for each ACE employee. Employees receive a minimum of $5.90 per hour plus benefits. Employers are encouraged to top-up wages. The employer may apply for $1,000 to defray training costs if the ACE employee was retained for six months beyond the completion of the ACE project.

Alberta Job Corps (AJC). Skill development through work experience is the essence of AJC. It offers participants up to 26 weeks of employment services geared specifically toward labour-market trends, the needs of local business and recipient skill levels. In addition to paid work experience, services may include employment counseling, the chance to experience different types of jobs, life management skills development, basic skill development in a variety of areas (e.g., home and auto repair and maintenance, personal finances, cooking, clerical skills), the opportunity for certification (e.g., CPR, first aid), employment skills development, job-search techniques, job placement assistance and follow-up support. Partners include local businesses and community groups. The program includes measures to build strong links with local employers to help participants gain employment experience and find jobs.

Program Design and Implementation

Responsibility for Design and Implementation

AHRE Labour Market and Income Support Programs and Services Branch, Program Design, design policy, develop guidelines and monitor the array of programs and services used to support recipient independence.

AHRE Regional Service Delivery, in partnership with local providers, are responsible for provision of information on career planning, job search, resume writing, labour market information centers, employment referrals, employment planning, assessment, counseling and orientation workshops. AHRE is also responsible for financial supports including employment-related expenses, child-care supports, moving for confirmed employment, exemptions on earned or self-employed income, the Employment Skills Program, Alberta Community Employment and Alberta Job Corps.

AHRE provide a unique centralized call centre, the career information hotline, to respond to province wide inquiries for career, learning and employment information. Responses are provided through the provincial internet website, Alberta Learning Information System (ALIS), for national and international inquiries or referred to the Government of Canada or other Canadian websites.

Local Flexibility in Program Design and Implementation

Provincial officials see the model as being very flexible. There is local discretion in who will be contracted to deliver training or job placement services. There is flexibility in developing employment plans to meet the individual needs of participants in SFI.

AHRE base programs and services on factors such as recipient needs, available community resources and employers, program and service gaps, and economic conditions and labour market demand. Mangers are given flexibility to develop options in design and administration of programs and services that work in their communities.

Duration of the Program

SFI began in 1990, other welfare reforms began in 1992 and the implementation of Labour Market Development Programs in 1997.

For many of the interventions, there is a maximum time a participant can remain in any one component. For example, a participant can remain in the Employment Skills Program, Alberta Community Employment or Alberta Job Corps for six months. Generally, participants are expected to have one placement and then move to employment. The expectation is that participants will move forward to the best of their ability. The emphasis is on engaging recipients, motivating them and using whatever works to move them toward independence.

Funding and Program Costs

Type and Amount of Financial Assistance for Participants

The following are provided under SFI:

Compensation for employment-related expenses. An allowance of up to $300 per year is available for employment-related expenses, including expenses for work clothing, work tools, grooming, meals and transportation (such as bus pass, mileage, vehicle repairs, maintenance and insurance). The recipient must be actively seeking employment according to his or her employment plan or starting confirmed employment or starting or participating in an employment preparation program.
Exemption of a portion of employment earnings from benefit reduction. A combined net employment income of the recipient and all adults in the family unit of $115 per month is exempt, plus 25% of any amount over $115. Self-employed recipients are able to offset some of their income with business-related expenses.
Compensation for child-care expenses
Transportation subsidies (as above)
Housing subsidies. The Social Allowance Regulation allows for a shelter allowance. Applicants or recipients and their families are eligible for the actual cost of shelter to the maximum specified in the Regulations. There is also some public housing available for low-income families.
Moving expenses. An allowance to assist with a move within Alberta may be provided for an applicant or recipient and members of the family if the move is essential to take up full-time or part-time confirmed employment. Recipients must use the most economical and reasonable means of moving.
Supplemental health care. Basic necessities covered include essential surgical, medical, optical, dental and other remedial treatment, care and attention. The Social Allowance Regulation defines health benefits as prescribed drugs, funeral services and optical, dental, ambulance and other medical benefits approved by the Director and provided to recipients and their families pursuant to medical services cards issued by the department.
Dental care (as above)

Deadlines and Subsidies

Recipients who refuse to look for or prepare for employment may lose their welfare benefits. Recipients are informed of their right to appeal. The expectation is that participants will move forward to the best of their capability. Barriers are dealt with through a referral or other appropriate intervention. Written notice is not required for recipients to be denied a benefit or terminated from the program; however, workers or offices may choose to give notice. A recipient may have additional sources of income and still remain in the program.

Financial Incentives for Employers

In the Employment Skills Program, AHRE pays up to $1,000 for additional training costs based on the employee’s assessed need. In Alberta Community Employment, the employer may apply for $1,000 to defray training costs if the ACE employee is retained for six months beyond the completion of the project. In the temporary employment programs, the department or the employer employing the trainee pays at least minimum wage per hour for each employee, plus the employer’s contribution to employment insurance, the Canada Pension Plan and statutory holiday and vacation pay.

Program Funding

Because welfare reform was initiated before the implementation of the Canada Health and Social Transfer (CHST), the CHST was not a factor in promoting change in Alberta. It is seen only as a source of revenue. Provincial officials look for solutions that will work for Alberta and then determine funding sources.

The FSS welfare budget for 1996-97 was $487,175,000. The FSS employment and training budget was $48,798,000.

The AECD budget allocations for 1996-97 were as follows:

	Employment Alternatives Program	$10,291,000
	Skills Improvement Program (SIP)	$1,150,000
	Integrated Training	$1,800,000
	Job Placement	$1,400,000
	Training on the Job	$1,000,000
	Skills Development Program (see note)	$99,400,000

Alberta is spending less on these programs because of the significant reduction in the number of people in SFI . The AHRE budget in fiscal year 2000/2001 for support to adult learners was:

Employment Initiatives and Employment Preparation, $44,745,000
Skill Development Program, which includes basic education, academic upgrading, integrated training and short-term skill training, $ 105,625,000
Labour Market Development Agreement, which includes Job Placement, Training on the Job Skills for work, Self Employment elements, $ 103,446,000

Subsidized Child Care

The day-care subsidy helps lower-income parents with the payment of their child care fees when their child attends a day-care centre or a family day home. The following factors are considered in determining whether a family qualifies for the subsidy:

reason for child care (parent is working, seeking work or a student, or the child or parent has special needs)
child-care attendance of at least 50 hours per month
net family income

About 45% of children attending family day homes and day-care centres are subsidized.

For SFI participants with preschoolers, childcare is covered. The day-care subsidy pays the major part, and the portion that would otherwise be paid by the parent is covered by SFI. If licensed day care is not available, AHRE pays babysitting costs. This coverage would be indicated in the employment plan. There is a surplus of child-care spaces in Alberta.

Single parents of a five-month-old baby are notified that they need to think about preparing for work. When the child is six months old, a worker meets with the mother to do an employability assessment and begin to formulate an employment plan. The first step might be an orientation session to look at the different options leading to greater self-sufficiency. It is possible for a parent to lose welfare benefits because she or he refuses to try to move toward the work force. The Employment Skills Program and return to education are popular choices for single mothers.

The Parentage and Maintenance Act allows agreements to be entered into or an application to be made for an order declaring a person to be a parent and ordering maintenance of the child. AHRE has a Maintenance Program to assist families in receipt of social allowance to establish the paternity of children born out of wedlock and to obtain appropriate child maintenance orders and agreements for unmarried, separated or divorced Albertans. The welfare recipient’s right to maintenance is assumed by the government during the time that person receives welfare benefits.

One of the government’s performance measures is the proportion of single-parent welfare cases with child maintenance orders or agreements, defined as the percentage of single-parent recipients for whom maintenance is received from the non-custodial parent. This figure measures the recipient’s access to alternative sources of financial support and the commitment of non-custodial parents to pay support for their children.

Eligibility Criteria

SFI is a program of last resort that actively promotes self-reliance through employment and family responsibility. For people not expected to work, financial benefits are provided to cover basic necessities. For people expected to work, temporary assistance is provided, with the emphasis being on independence through employment or training.

During the intake interview, the expectation of the recipient moving toward self-sufficiency is made clear. An employment history is taken and a preliminary employment plan is developed.

Participants are categorized in terms of their relationship to the labour market. SFI has four basic categories:

Supplement to earnings. Recipients in this category are working full-time or part-time but are unable to meet their basic needs. Recipients are expected to look for ways to increase their earnings by increasing their hours of work, seeking higher pay or obtaining different work. They are expected to keep their current job while trying to achieve these ends.
Employment and training support. Recipients are unemployed and are expected to look for employment or engage in training activities. People who refuse to participate in these activities may be disqualified from further benefits.
Transitional support. Recipients in this stage are temporarily unable to work because of circumstances such as illness or health issues. They are not expected to seek employment while in this category but will be placed in another category when their circumstances change.
Assured support. These recipients have been assessed as not being able to work continuously in the normal labour force. Most of these cases have mitigating factors. While any one factor may not in itself create a barrier to employment, a combination of these factors may form the basis for assured support:
- medical impairment
- lack of formal education
- social skills
- work history
- age
- history of unsuccessful interventions
- other social factors such as family situation , extensive criminal record, drug /alcohol dependency

AHRE also provides Disability Related Employment Supports (DRES) to persons with disabilities to assist them to successfully complete AHRE programs and services, to attend post-secondary institutions and to successfully enter and maintain employment. DRES supports can include the following: Assisted technology, Education supports, Job Search supports, Workplace supports, and specialized payments.

Alberta has a separate program for adults with severe and permanent handicaps: Assured Income for the Severely Handicapped (AISH). Since 1993, the AISH caseload has risen from 15,000 to 20,000.In Dec -1998 the caseload had risen to 23,592 and Dec-1999 was 25,071.

Recipients not expected to work include those who are caring for a dependent child under six months of age or for a disabled family member, those who have been assessed as having unusual difficulty coping with the competing demands of family and work and those who have recently left an abusive situation and have been assessed as requiring a period of adjustment. Single recipients who are 50 or older with no dependents and who are assessed as unable or unlikely to obtain continuous employment for more than 20 hours a week are assigned to transitional support.

Caseloads

The Alberta welfare caseload in March 1996 was 48,773. Of these, 37,613 were expected to work. In Dec 1998 the SFI caseload was 32,599. Of these 23,935 were expected to work. In

Nov 1999 the SFI caseload was 29,512. Of these 21,019 were expected to work. In Nov 2000 the SFI caseload was 27,153. Of these 18,348 were expected to work.

	(‘96)	(‘98)	(‘99)	(‘00)
Supplement to earnings	10,337	6990	6021	5001
Employment and training	19,779	10746	8912	7321
Transitional support	7,497	6199	6086	6026

The remainder was in the assured support category. (11,160-(’96), 8624-(’98), 8493-(‘99) 8,805-(’00)

The welfare caseload reached an all-time high of 98,642 in December 1992. From March 1993 to the end of August 1996, the caseload declined 51.9%, from 94,087 to 45,242. The caseload for recipients expected to work decreased 57.2% (48,535 cases) in that same period. From August 1996 to Nov 2000, the caseload declined 39.98% from 45,242 to 27,153. The caseload for recipients expected to work decreased 51.2% to 18,348 in the same period.

The estimated number of SFI participants in program components for 1996-97 was:

		1996/7
	Employment Alternatives Program	10,000
	Skills Improvement Program	450
	Integrated Training	746
	Job Placement	3,200
	Alberta Community Employment	2,500
	Employment Skills Program	500
	Alberta Job Corps	1,200
	Training on the Job	450
	Student Assistance	11,000

The estimated number of participants in revised program components for the past three years:

	YTD	YTD	YTD
	1998/99	1999/00	2000/01
Job Placement	10591	7007	5944
Skills for Work	3977	5825	5283
Training on the Job	1452	1926	1610
Skills Development	10981	19,413	18,003
Alberta Community Employment	na	395	233
Employment Skills Program	na	80	64
Alberta Job Corps	na	383	379

Note: Numbers reflect Active Participants starting, or continuing in programs for the periods shown above. YTD Current year and last year refers to the period of April to March in each respective year.

The following types of information are gathered about participants:

demographics
education and training history
employment history
medical-social history, as appropriate
child-care needs and use, as appropriate
length of time in receipt of social assistance

Accessibility

The program has been able to serve all of those who have chosen to participate or who are required to participate. There were waiting lists initially, but programs are currently under-subscribed because of the large reduction in the caseload.

Nature of Participation

Participation is expected for those categorized as able to work except for mothers of children under six months or a disabled child requiring full time care. For those expected to work, temporary assistance is provided with the primary emphasis being on independence through employment or training. Recipients not expected to work are described under the last section Program Participants. SFI is based on the premise that recipients want to work and become independent. If a recipient demonstrates little or no effort to become independent, the worker reviews the impact this lack of effort has on a participant’s eligibility. Benefits are denied when expectations about becoming independent have not been met.

Orientation and Follow-up

The success of employment programs is the responsibility of all AHRE staff. Each team member has a role in

informing recipients of their responsibility to participate in the employment programs process to gain independence
assisting and providing the necessary support to recipients to reach independence
consulting with other team members to keep one another informed about recipient’s progress and to review resource information

An employability assessment is done for all participants to develop a profile of the person and to determine the person’s readiness to get and keep employment. The assessment identifies the areas that must be addressed to enhance the person’s potential to become self-sufficient. It looks at individual circumstances, strengths, obstacles, interests, abilities and potential. The four main assessment factors are vocation, health, life management and accessibility, each with sub-factors that are rated as strengths, obstacles or not applicable. Once all the factors have been rated the significant strengths and the significant obstacles are summarized.

With input from the recipient, the career and employment counselor then determines if further employment programs are required. If so, an employment plan is developed to establish the recipient’s commitment to employment or training, to focus the recipient’s and department’s attention on increasing recipient independence and to inform the recipient of the consequences of not following through on the plan. The recipient participates in the plan by identifying specific activities he or she will take to become independent and the timeframes to achieve each step.

All recipients placed in employment, employment preparation programs or training are followed up to ensure that there is stability in the placement. The frequency and nature of the follow-up are consistent with the needs and circumstances of the recipient. Recipients complete a monthly reporting card on which they can indicate their needs or concerns to their support worker. They can also telephone the worker at any time; the expectation is that calls will be returned within 24 hours.

Appeals Process

An appeal process has been established for all social assistance applicants and recipients under SFI.

At intake, the intake worker informs applicants about their right to appeal, the appeal process and the time limit for the appeal. Although appeal panels do not have the authority to contravene the Act or Regulations, recipients cannot be refused the right to have all decisions heard by a citizen’s appeal panel if they choose.

The steps in the appeal process are as follows:

An appeal form is completed.
The supervisor reviews the decision.
If there is no resolution from step 2, the appeal may go to a citizens appeal committee, whose members are appointed by the Minister.

The committee decision is binding. It can be changed only by court order or if there is new information.

Evaluation Plan

AHRE monitors, tracks and reports on participation in individual programs. Success rates are measured by the percentage of individuals exiting the welfare system, the percentage of individuals getting a top-up or supplement, recipients average earnings and other means.

AHRE does formative and summary evaluations of each of the major strategies and programs, prepares an annual evaluation plan and allocates resources toward ongoing, cumulative evaluation. Recipient progress is reported 3, 6 and 12 months after completing a program.

AHRE contract services to do a pre-survey and post-survey to find out what happens to recipients who leave SFI.

Cost-Benefit Research

Cost-benefit research is part of program evaluation. AHRE evaluations examine costs and benefits from a government perspective, the costs of the AHRE-managed programs and the savings as a result of the programs and from the participant’s perspective employment earnings gains. From a government perspective, cost-benefit analyses have shown positive results.

Both monetary and non-monetary costs and benefits are measured. Monetary costs and benefits include savings, program costs or payments, social assistance payments and personal taxes. Non-monetary costs and benefits include satisfaction, childcare, self-esteem and skill development.

For 1995-96, 70% of recipients no longer depended on welfare one year after participating in an FSS or AECD employment or training initiative. An additional 10% were employed and receiving an earnings supplement averaging $568 per month.

Outcome Data

Data are being collected to track the following outcomes:

the number of participants who leave social assistance
the number of participants who get jobs
the proportion of participants who leave social assistance
the proportion of participants who get jobs
the extent to which program participants retain the jobs they get
the time required finding a job
the extent to which participants who leave social assistance for employment return to welfare
the nature of jobs obtained by program participants, i.e., full-time, part-time, short- term
the level of jobs obtained by program participants
- entry level jobs
- pay levels
the types of occupations obtained by program participants
employment earnings
family income if on SFI

AHRE tracks how long a file stays closed (up to 12 months) after a recipient participates in an employment program and up to 12 months after they successfully complete a program. SFI participants who receive supplements to earnings continue to be tracked.

Participant Evaluation

A participant’s continued interest in the program is evaluated through her or his attitude. If the participant’s attitude appears to be very negative (e.g., if there is violence or a drug or alcohol problem), a referral may be made (e.g., to an anger management workshop or a drug and alcohol program) to reduce the barriers to independence. A decision can be made to remove the participant from the program on the basis of the attitude evaluation.

A participant’s continued performance in the program is also evaluated; again, a decision can be made to remove the participant from the program based on performance. The provincial worker or the contracted agency documents the person’s performance (and, possibly, attitude) in monthly reports.

Data is not collected to track changes in job readiness, as there are measurement difficulties in tracking these types of changes, nor is information collected on other aspects of family well being.

Regularly, through surveys, the participant’s level of satisfaction with AHRE programs is assessed. Eighty per cent of participants state that they are satisfied with the programs.

Program evaluation tracks which types of programs are most suitable to specific groups of participants; e.g., single parents do well in Employment Skills Program and in ongoing education.

Use of Findings

AHRE evaluations are used to

assist in making resource allocation decisions
assist in finding ways to improve the performance of programs and services
provide better accountability for the results of programs and services

Evaluation results are fed into the program design division of AHRE and are sometimes used to discontinue, expand or initiate a program. Operational difficulties are addressed by a management response.

Other Issues

Previous recommendations made resulted in the following evaluations to date:

Changes to contract management resulted in providers more accountable for results
Contract management became more accountable for results.
Better assessment of recipients before referral
Recipient monitoring improved, through the promotion of better case management techniques.
Success measures revisited and standards made more realistic.
Recipient follow-up improved and as per contract obligations expressed in clearly defined outcomes.
Training to include more occupation specific skills through the delivery of integrated applied learning

Process evaluations have highlighted recurring issues such as

inappropriate referrals –defining assessments and case management
the importance of contractor accountability
contractor’s compensation
the need for clearer understanding of program goals and objectives
systems of reporting, monitoring and follow up

The huge reductions in caseload indicate that the more employable recipients have left the system. The remaining recipients are more challenging. The province may need to devise different strategies or change the emphasis of existing strategies to address higher barriered recipients and increase skill levels to meet labour force demands.

Labour Market Development Agreement (LMDA)

Under the current agreement the majority of AHRE’s initiatives are directed at individuals who are unemployed or under-employed. Many of these individuals are socially, economically and/or educationally disadvantaged. Specific and specialized programming is provided for both youth and persons with disabilities. While labour market programs and services and a good economy has provided many short term employment opportunities; increasing demands for skilled workers requires a review of existing programs and services to respond to the demand for higher skilled workers. Some of the challenges to consider in meeting labour force demands, is the investment in longer-term skill development using Labour Market Development Agreement funding, review program guidelines to make appropriate modifications and explore opportunities to increase partnerships with the private sector.

Contacts
NAME:	Karen Fingas
TITLE:	Director,
	Labour Market Programs and Services
ADDRESS:	Alberta Human Resources and Employment
	14th Floor, Seventh Street Plaza
	10030 107 Street
	Edmonton, AB
	T5J 3E4
E-MAIL:	karen.fingas@gov.ab.ca
TELEPHONE:	(780) 422-4741
FAX:	(780) 422-6768


NAME:	Yolanda Stojak
TITLE:	Director,
	Income Support to Individuals
ADDRESS:	Alberta Human Resources and Employment
	14th Floor, Seventh Street Plaza
	10030 107 Street
	Edmonton, AB
E-MAIL:	Yolanda.stojak@gov.ab.ca
TELEPHONE:	(780) 422-0276
FAX:	(780) 422- 0032

Welfare to Work

Phase 2

Provincial and Territorial Updates

Phase 2 Provincial Update

Summary

Welfare-to-Work Programs

Supports for Independence (SFI)

Description

Program Rationale

Program Activities

Program Design and Implementation

Funding and Program Costs

Program Participants

The Community

Program Design Considerations

Community Services

Program Evaluation

Planned Changes and Directions

Contacts

Karen Fingas

Yolanda Stojak