Welfare to Work

Phase 2

Provincial and Territorial Updates

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BRITISH COLUMBIA

Phase 2 Provincial Update

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Summary

In 1996, British Columbia undertook a reform of the welfare system, and introduced the BC Benefits set of programs. The goal of these reforms was to tailor benefits and programs to meet the specific needs of families with children, youth, and people with disabilities and to provide a fair share for working families and make work a better deal than welfare. The legislation to support the welfare reform initiatives under BC Benefits was passed in April 1997. The old Guaranteed Available Income for Need (GAIN) Act was replaced by a family of legislation, each of which targeted subgroups of the welfare caseload. These new Acts are:

BC Benefits (Youth Works) Act

BC Benefits (Income Assistance) Act

Disability Benefits Program Act

BC Benefits (Child Care) Act

BC Benefits (Appeals) Act

The BC Benefits Policy and Procedures Manual, currently being revised, contains the applicable Acts, Regulations, Policies and Procedures. An electronic version of this manual can be found on the Ministry of Human Resources website.

Training, Employability, and Labour Market Attachment programs are available to persons receiving Income Assistance. These programs are delivered under the BC Benefits (Income Assistance) Act, the BC Benefits (Youth Works) Act, and the Disability Benefits Program Act. A separate policy manual has been developed for training and employment programs, and outlines the processes by which clients receive approval for training, identifies the available supports for clients in training, and the eligibility determinants for such supports. This policy manual is only available in print format - for more information, contact the Employment Supports Branch .

The introduction of BC Benefits signaled a new emphasis on employment, and moving people from Income Assistance into employment. This is reflected in the legislation - Youth Works clients are required to be actively looking for work or participating in training programs. Similarly, Income Assistance clients are expected, unless exempt, to be engaging in an active search for work. Exemptions are available for single parents with children under 7 years of age, single parents with a child with a disability, those over the age of 60, and those with disabilities documented by a physician.

Income support programs, and training and employability programs are delivered through Ministry of Human Resources (see note 1). The Ministry is a highly regionalized organization, with over 3300 staff involved in welfare programming; of whom, almost 2700 are in the regional offices. The Ministry manages services to clients through 9 regional offices across the province. Each region has staff who provide direct client service, as well as staff who do planning and contract management at the local level. Go here for an overview of the regional structure.

The BC Benefits (Youth Works) Act is the legislation under which youth aged 19-24 receive service. Youth are provided, if eligible, with a living allowance. Eligibility for the living allowance is based on financial need and participation in an active search for work, or participation in training programs. The range of programs available to youth includes Work Connections, Labour Market Attachment programs, and Employability Skills programs. Section 2 and Section 3 of the Act establish programming for Youth Works clients, and Section 5 sets out the sanctions which can be applied if a Youth Works client is found non-compliant with the requirement to seek work or take training. As outlined by the requirements of the Youth Works Act, youth between the ages of 19 and 24 have priority access to employment and training programs.

The BC Benefits (Income Assistance) Act is the legislation covering those over the age of 25, and those under 19, without long-term disabilities. Section 6 and Section 7 of the Act, establish training and employment-related programs for recipients of Income Assistance (IA). In addition to basic income support for those requiring financial assistance, Work Connections, Labour Market Attachment, and Employability Skills training are available to clients. Clients participating in programs are referred to as Welfare to Work (WtW) clients.

Programs for clients with Disabilities are defined through the Disability Benefits Program Act. In addition to income support for those with financial need, training programs for these clients are established under Section 3 of the Act.

Training programs themselves are provided through third-party service providers. Specific agencies are selected to provide services through a competitive bidding process, and require proponents to demonstrate that services they provide meet not only client needs, but have connections to local labour markets. A range of agencies and institutions provide service to clients, including public colleges, private training centres, non-profit community based organizations, and employer associations.

Welfare to Work Programs

BC Benefits Income Assistance provides essential support and shelter income to a wide range of unemployed British Columbians. It supports eligible people who are participating in job search and work preparation programs. This program was reformed under the BC Benefits initiatives in 1996 to remove barriers between welfare and work, and to place more emphasis on training and education. The change introduced under BC Benefits was broad, and intended to provide a range of supports that would make "work a better deal than welfare". The supports range from the flat rate earnings exemption, to labour market and training programs, to subsidized childcare.

Income support, or welfare programs, are the programs of last resort for people in need in British Columbia. Under the general title of BC Benefits, they provide financial assistance to individuals and families whose resources are inadequate to meet their basic needs and who have exhausted all other avenues of support.

Income support programs are income and asset tested. Applicants/recipients are expected to take advantage of all other sources of income and assets before qualifying. Recipients (with some exceptions) of income assistance and youth allowance must either be actively searching for employment or be participating in an approved employment-related program.

Under the BC Benefits legislation, all clients have the right to appeal decisions regarding income support. More specifically, the following situations may be appealed under the BC Benefits (Appeals) Act and Regulations:

The appeal process is a three-stage process. The initial stage involves a request for reconsideration. If the appeal is not resolved, it will go to tribunal, and ultimately to the BC Benefits Appeal Board.

BC Benefits clients who are ready for and interested in pursuing full-time post-secondary training can leave income assistance and apply for BC Student Financial Assistance. Assistance may include grants, loans that may be forgiven, repayable loans, opportunities to combine work and study, or any combination. Since 1996, Income Assistance clients can no longer receive welfare and Student Financial Assistance. Some single parents with children under 7, or clients receiving disability benefits, may be supported in part-time study, where approved by the Ministry.

A range of training and employment related programs are available for people who are currently on income assistance. These programs include a combination of services which are only available for those receiving BC Benefits, as well as programs funded by the Ministry which are available to a broader cross-section of unemployed and low income individuals and families. The broad categories of programming which are provided through MHR includes:

Work Connections: This includes employment-related services, generally targeted at those seeking re-entry into the labour market. The kinds of programming available here are targeted to those clients who may have more recent labour market experience, and those who require minimal assistance or skill upgrading in order to obtain employment.

Work Connections provides a continuum of employment-related programs to applicants and recipients of BC Benefits who may face barriers to getting a job. This program supports BC Benefits applicants and participants to improve their job search, or find and keep long-term employment. Program eligibility is based on the needs of the participant and may be determined through assessment. Services provided under Work Connections include:

Employability Skills: Includes training and programs which develop employment related skills, such as: Volunteer Incentive, Job Readiness, Self-Employment Training. This training is available for clients who may require improvement in their work-related skills in order to get a job. Specific services include:

Labour Market Attachment Programs: are intended to help BC Benefits recipients and unemployed youth who are "job ready" find immediate jobs. There are three labour market attachment services available:

Supports to Employment Initiative (STI): The primary objectives of this initiative are to increase service quality to recipients of Disability Benefits, and to assist these people to participate in labour market activities. STI is jointly funded by HRDC and the province of British Columbia under the Employability Assistance for Persons with Disabilities Agreement. This program is a new initiative which is being introduced in 2001/02.

All participation in this program is strictly of a voluntary nature, and services are delivered by ministry staff located in specialized ministry offices, and by community-based pilot projects.

Vocational Rehabilitation Services (VRS): The VRS program assists British Columbians whose permanent disabilities are a significant barrier to acquiring the skills to obtain experience and supports necessary to successfully prepare for, obtain and maintain employment.

Services are delivered by Vocational Rehabilitation Consultants in located in Ministry offices, and by community agencies under contract with MHR. The program jointly funded by HRDC and the province of B.C. and is cost-shared under the Employability Assistance for People with Disabilities (EAPD) Agreement.

The goal of these services is to help individuals gain employment by:

The supports provided through this program include: Vocational counseling; Assessment; Career planning; Adaptive technical aids; Specific training and education related to employment; Loans and grants for educational-related expenses; Prosthetic and orthotic devices, and adaptive equipment; Workplace or vehicle modifications; Prescriptive goods and services such as wheelchairs or attendant care; Pre-vocational work adjustment and on-the job training; and, Job placement.

Supports to help BC benefits clients move into employment. To complement the employment and training programs available for income assistance recipients, a number of financial supports are available to clients moving into employment. The goal of these supports is to make the transition between welfare to work a smoother one, and eliminate some of the financial disincentives of moving off welfare.

Employability Program Benefit: Participants in employability or training programs are eligible for up to $100 per month in Employability Program Benefits. These benefits are considered exempt income, and are intended to cover the additional costs of participating in employment and training programs (e.g. transportation, costs of supplies). The Employability Program Benefit is only available for clients in approved programs that link to the client's Employability Agreement.

Other Programs Available to BC Benefits Clients

BC Family Bonus: The BC Family Bonus is a program under BC Benefits that provides a fair share for low- and modest-income working families and helps address the issue of child poverty. Families are eligible to receive the Family Bonus whether they are on welfare or not. The BC Family Bonus makes it easier for families with children to leave and stay off welfare because they can continue to receive the bonus for their children while working or going to school.

The bonus is a tax-free payment for all low- and modest-income families. It provides up to $106.83 a month per child under the age of 18, and is calculated according to the previous year's income tax return. The province of B.C. has provided eligible families with the BC Family Bonus since 1996, and it has served as a model that has now been implemented across Canada. As of July, 1998, the BC Family Bonus has been combined with the federal Child Tax Benefit into one payment called the National Child Benefit (NCB) - the amount of BC Family Bonus is reduced by an amount equal to the National Child Benefit supplement (NCBS). Also included in this payment are the National Child Benefit Supplement (NCBS) and the BC Earned Income Benefit (BCEIB). Families with an earned income of between $3,750 and $20,921 in the previous tax year are eligible for the full BCEIB. The maximum monthly benefit is $50 for the first child, $34 for the second and $27 for each additional child.

Recipients can receive the NCB through either the mail or electronic deposits to their bank accounts.

Child Care Subsidy: This is a government program that helps low- and moderate-income families to pay for basic child care. Payments, called subsidies, are available for both full-day and part-day services in a variety of child care settings.

Families may be eligible for a subsidy if they have a low or moderate income. A number of activities and reasons also help determine eligibility for the subsidy:

The amount of the subsidy is based on the number of people in the family, and their total net income. An income test is used to calculate whether the family is eligible for a full or partial subsidy, or not eligible for any subsidy.

There is a maximum subsidy rate for each type of child care arrangement. If the fees charged by the caregiver are higher than the subsidy, parents must pay the difference.

Out of School Care: Starting January 1, 2001, the out-of-school program was introduced to assist parents with the cost of licensed group before-and after-school care.

The program is available for children from kindergarten through age 12 who attend licensed group out of school child care facilities.

The program reduces the amount parents pay for out-of-school care.

Parents of children in Grade 1 through age 12 will pay up to $7 per school day per child.

Parents of kindergarten children will pay up to $14 per day per child (reflecting the higher cost of care for younger children).

People who are unable to afford $7 or $14 per day apply for the Child Care Subsidy, therefore will bear no cost for children in Out of School Care facilities.

Employment Benefits and Support Measures: Federal programming delivered under the Employment Insurance (Part 2) Act is available to income assistance clients, where they are eligible. In April 1997, British Columbia signed the Canada/BC Agreement on Labour Market Development, and has since been operating under co-management with BC/Yukon HRDC staff. Under this agreement, HRDC continues to manage and deliver EI Part 2 programming through its regional infrastructure, however, planning, management, and evaluation activities are undertaken jointly by both levels of government.

Employment Assistance Services (EAS): EAS services are available to all unemployed persons in the province. These services focus on job search assistance, and more immediate placement. Due to the short duration of many of the services available through EAS, they are most suited to clients with more recent labour market experience, and those with a good set of job skills.

Employment Benefits: These are available to all those who qualify as EI clients under the legislation. This includes those persons receiving an active EI claim, as well as all those who have had an active claim sometime in the previous 3 years (reachback clients). Income Assistance clients who qualify as reachback clients are now identified early on in the application process, so they can be referred to HRDC, and access Employment Benefits. Programs available include:

Targeted Wage Subsidies:

Encourage employers to hire EI eligible clients they might not otherwise have considered for employment. EI part II funds are used to contribute part of the person's wages. Wage subsidies may be particularly useful in assisting people who have been unemployed for a long time, or face special barriers to employment.

Self-employment:

EI eligible clients who have a good idea for their own business may qualify for financial support, planning assistance, and ongoing support while they get their business started.

Job Creation Partnerships:

Provide EI eligible claimants with an opportunity to work on special projects, developed in partnership with the provinces/territories, the private sector, labour and community groups. These projects create incremental and meaningful work opportunities, and help develop the community and local economy.

Skills Development

Individuals who need to upgrade their skills may be eligible for financial assistance to help with tuition and related instructional costs such as living expenses. Because training is a provincial responsibility, this benefit is offered only with the agreement of a province or territory.

Program Design and Implementation

In January 1996, the government of B.C. announced the start of BC Benefits programs. As these programs spanned a number of social policy areas, they were originally designed jointly by a number of provincial ministries, including the (then) Cabinet Planning Secretariat, the Ministry of Advanced Education, Training and Technology and The Ministry of Human Resources. At that time, the delivery of income support to welfare clients was done through one provincial ministry, and the training for people on welfare was aligned with post-secondary education and training. Through a number of government reorganizations, training for people on welfare, and delivery of income support falls within the same ministry. Redesign of existing programming, and introduction and design of new programming is the responsibility of MHR. Linkage with other ministries takes place as needed, and where policy interests overlap. Final approval of new and significant program changes takes place through Cabinet and Treasury Board.

Responsibility for Implementation

Income support programs, and training and employability programs are delivered through Ministry of Human Resources. The Ministry is a highly regionalized organization, with over 3300 staff involved in welfare programming, of whom, almost 2700 are in the regional offices. The Ministry manages services to clients through 9 regional offices across the province. Each region has staff who provide direct client service, as well as staff who do planning and contract management at the local level. Staff interacts with clients at a number of levels:

Client service workers perform the initial intake functions, including scheduling intake appointments with clients, making sure clients have filled out intake forms prior to appointments, and referring applicants to orientation sessions.

Verification Officers deal with clients during the intake process, and are called upon to confirm that information on the application is correct. This means, for example, checking that assets in excess of those claimed do no exist, rent receipts back up shelter allowances claimed, or that applicants reside at the stated address.

Financial Assistance Workers deal with clients both through the conclusion of the client's application process, as well as maintenance of case files once clients are on income assistance.

Program Referral Officers work with clients who may be deemed eligible for other services (such as EI Part 2 programs), to check their eligibility, and make referrals to more appropriate programs and services

Training Consultants work with those clients who may want or need additional training or employability programs. Training Consultants perform employability assessments, refer clients to support programs, and approve training programs and related expenditures. In some regions of the province, Training Consultants also perform a contract management function - managing contracts for training services.

Training programs themselves are provided through third-party service providers. Specific agencies are selected to provide services through a competitive bidding process, and require proponents to demonstrate that services they provide meet not only client needs, but have connections to local labour markets. A range of agencies and institutions provide service to clients, including public colleges, private training centres, non-profit community based organizations, and employer associations. As outlined by the requirements of the Youth Works Act, youth between the ages of 19 and 24 have priority access to employment and training programs.

While the parameters of the employability and training programs are set, it is expected that local service agencies will work with clients within the context of local labour market conditions. The menu of services that contractors are expected to provide is consistent across the province, however, the delivery mechanisms do differ depending on client groups, or geographic circumstances.

Funding and Program Costs

BC Benefits clients who are eligible for income support receive their cheque for shelter allowance and living allowance directly from the Ministry. Cheques are mailed to their home address, held at the MHR office for pick-up, deposited electronically into their bank account (this is being done on a pilot basis). The current rate tables and eligibility criteria can be found in the BC Benefits Policy and Procedures Manual.

In 2000/01, the total budget for welfare and related programs was $1.92 billion. Of this budget, spending occurs in the areas of: income support; program (such as health/dental benefits for DB2 clients); program management; training and employability programs; and childcare.

Spending area

1999/00 budget

2000/01 budget

Income support

$1,243,550,000

$1,237,976,000

Program supports and services

$183,129,000

$173,292,000

Training and employability programs

$88,566,000

$83,753,000

Childcare

$165,500,000

$144,100,000

Program management

$241,421,000

$236,627,000

Budgets for Training and Employability programs include: Work Connections programs, Employment Readiness programs, Labour Market Attachment programs, Vocational Rehabilitation programs, and Industrial Adjustment programs. The budget for programs and services for BC Benefits clients totaled $86,566,000.

Expenditures per client range from about $20 per service for Work Connections programming, to $900 per service for Employment Readiness programming, to $2000 per client in Workplace Based Training programs.

Funding for training programs is used largely to support contracts with third-party service providers. Agencies are selected through a competitive bidding process, and deliver services to clients as per the terms and conditions of their contract. A small portion of the training and employability programs budget provides direct support to clients through the Employability Programs Benefit. In order to provide these services, the Ministry had more than 400 contracts with third-party service providers.

Participants in employability or training programs are eligible for up to $100 per month in Employability Program Benefits. These benefits are considered exempt income, and are intended to cover the additional costs of participating in employment and training programs (e.g. transportation, costs of supplies). The Employability Program Benefit is only available for clients in approved programs that link to the client's Employability Agreement.

Subdized Child Care

The B.C. government provides child care subsidies, which are available to all low- and moderate-income families to pay for basic child care. Payments, called subsidies, are available for both full-day and part-day services in a variety of child care settings.

Families may be eligible for a subsidy if they have a low or moderate income. A number of activities and reasons also help determine eligibility for the subsidy:

The amount of the subsidy is based on the number of people in the family, and their total net income. An income test is used to calculate whether the family is eligible for a full or partial subsidy, or not eligible for any subsidy.

There is a maximum subsidy rate for each type of child care arrangement. If the fees charged by the caregiver are higher than the subsidy, parents must pay the difference.

Out of School Care: Starting January 1, 2001, the out-of-school program was introduced to assist parents with the cost of licensed group before-and after-school care.

The program is available for children from kindergarten through age 12 who attend licensed group out of school child care facilities.

The program reduces the amount parents pay for out-of-school care.

Parents of children in Grade 1 through age 12 will pay up to $7 per school day per child.

Parents of kindergarten children will pay up to $14 per day per child (reflecting the higher cost of care for younger children).

People who are unable to afford $7 or $14 per day apply for the Child Care Subsidy, therefore will bear no cost for children in Out of School Care facilities.

Program Participants

Eligibility for income assistance in B.C. is determined through an income and assets test. Financial assistance is available for people who have to exhausted all other sources of income, and meet the income and assets test. The broad programs of income support available are:

Welfare to Work provides assistance and benefits to individuals temporarily unable to meet their own needs. Individuals must participate in employment- related programs supporting individuals in their move towards independence.

Youth Works provides an alternative to welfare for youth to establish themselves in careers early and thereby achieve long-term independence. There is mandatory participation and guaranteed access to training and education to assist youth with labour market attachment.

Disability Benefits support inclusion and integration of people with disabilities into the mainstream of the community in a manner that promotes voluntary participation in employment-related activities. Disability benefits provide long- term access to services and benefits specific to recipients' identified needs.

Child in the Home of a Relative (CIHR) helps a relative meet the basic needs of a related child when the parent agrees and is unable to fully pay such costs, and when this plan is in the child's best interest. Only applicants under 19 years of age, who are living with a blood relative or relative by marriage, can receive assistance through the CIHR program.

A child may be eligible for CIHR assistance only if the parent places him/her in the relative's home. A CIHR applicant is subject to all eligibility rules except:

The parents are expected to contribute toward the cost of caring for the child; there is no exemption on this income. The relative may apply for the Canadian Child Tax Benefit thereby automatically generating entitlement to BC Family Bonus and BC Earned Income Benefit. None of these benefits affect the CIHR rates.

The Seniors Supplement is a benefit authorized under the Income Assistance (IA) Regulation. A supplement is paid to low-income residents of BC over the age of 65 years and who are receiving Old Age Security (OAS)/Guaranteed Income Supplement (GIS)/Spouse's Allowance (SPA). Payment is made automatically by computer in BC using federal tape matching to identify eligible recipients.

Under 19: Children may be eligible for assistance apart from the family only after reasonable efforts have been made to have the parent/guardian support the child. Children under the age of 19 have the right to apply for assistance. Under the provisions of the BC Benefits (Income Assistance) Act, there can be no discrimination on the basis of age. A referral is made to a social worker when:

People in receipt of income assistance through BC Benefits are also eligible to participate in employability and training programs in the areas of: Labour Market Attachment, Work Connections, and Employability Skills. Given the slightly different nature of the Youth Works Act, youth between 19 and 24 have priority access to these programs.

If individuals also have a disability, they may be eligible to participate in Vocational Rehabilitation Services. Clients or dependents of clients between the ages of 15 and 24, are eligible to participate in Job Start, a wage subsidy program targetted at youth.

In 2000/01, most clients who participated in employment and training programs, participated in Work Connections programs. The number of participants in each program type was:

Work Connections:

Employability Skills Programs:

Labour Market Attachment Progams:

Clients who choose to take post-secondary education or training, are no longer considered program participants, as they are unable to access Student Financial Assistance, and remain on Income Assistance.

Eligibility Criteria

Eligibility for income assistance through BC Benefits is determined by an income and assets test. The full range of considerations includes:

The current rate tables and eligibility criteria can be found in section 7 of the BC Benefits Policy and Procedures Manual

Those people in receipt of BC Benefits, are expected to be looking for work or engaging in work-related activities. Clients may be deemed exempt from this criteria if they have a short or chronic health issue that has been documented by a physician, or if they are a single parent with a child under 7 years of age.

Eligibility for BC Benefits is determined initially by a Financial Assistance Worker. Clients are expected to update their Financial Assistance Worker of any change in eligibility (living arrangements, family size, employment status etc.) Eligibility is also monitored through an Annual File Review process.

Eligibility for participation in employment and training programs is determined by the client's need. Community agencies provide self-serve, group and individual assessment services to clients, where a specific training program may be the most expedient means of returning to work. Ministry Training Consultants also work with clients, and must approve an "Employability Agreement" prior to clients' attendance in an Employability Skills program.

Given the somewhat different nature of the Youth Works Act, employable youth between the ages of 19 and 24 have priority access to employment and training programs paid for through the Ministry of Human Resources.

Caseloads

In 2000/01, the average monthly caseload was 157,596, with a total of 254,740 persons either receiving BC Benefits, or in a family unit receiving BC Benefits. Since 1996, with the introduction of BC Benefits, the caseload has experienced a decrease of 60,000, or 27.5%.

The most dramatic decreases have occurred with the Youth Works caseload (49% decrease since January 1996). Looking by family type, the largest percent decrease in caseload has been among single and two parent families (34% and 50% respectively), while the largest volume decrease has been among single males (23,000 decrease). Single men currently make up 41% of the caseload, single women 25%, couples with no children 4%, 2 parent families 5%, and single parents comprise 25% of the caseload. Many single parents have opted to take out Student Loans and attend post-secondary. The typical annual loan for a single parent is $10,000, about the same amount as they would receive on income assistance.

Generally the time on Income Assistance is greater for single parents than it is for single men or women. The total monthly benefit is greater, as there are more dependents to consider in the eligibility determination. The average monthly benefit for single men in 2000/01 was $559, compared with an average monthly benefit of $874 for single parents.


Caseload (see note 2)

Program

1996/7

2000/01


(avg. monthly caseload)

(avg. monthly caseload)

Under 19

2,805

1,366

Youth Works

37,965

18,749

Welfare to Work

143,175

87,936

60-64

5,450

4,417

Disability

22,626

39,094

Seniors

1,796

1,653

Child in the home of a Relative

4,073

4,381

TOTAL

217,889

157,596

Demographics

Single males

88,873

64,502

Single females

43,268

39,215

Couples

8,871

6,699

2 parent families

15,615

8,346

Single parent families

57,188

38,992

As the caseload has declined - largely due to decreases in the number of "starts" rather than increases in the number of people leaving, the proportion of cases which are "repeat starts" has been rising, even among the employable caseload. "Repeat starts" are defined as those who have had an active file sometime in the previous 12 months. This means, that in any given month, 50% of all those beginning a spell on income assistance will have received at least one cheque in the previous 12 months.

The duration of actual spells on welfare is also increasing over time. When looking at all ended spells in any given month, approximately one in four been more than one year in duration. This is up, from only one in five spells lasting over one year in 1995.

Nature of Participation

All employable persons must be able to demonstrate that they are actively participating in employment-related activities at all times. Persons, who fail to demonstrate participation in employment-related activities, including job search, may be found ineligible.

If BC benefits recipients are currently working part-time, they are expected to continue to look for full-time work or additional part-time work that would enable them to become self-sufficient. People receiving Income Assistance who are living in areas of limited work opportunity may be required to seek employment outside of their local labour market area.

Income Assistance recipients are not required, nor expected to accept employment that pays below the minimum wage.

In a family unit where the younger partner is employable and between the ages of 19 to 24 years, the family's continued eligibility depends on the youth's participation in Youth Works employability programming. In a family unit where both partners are employable and between the ages of 19 to 24 years, the family's continued eligibility depends on both participating in Youth Works employability programming.

Recipients may pursue training that does not impede their job search and does not require MHR funds. This includes HRDC programming, or community based programming. Where participation in other programs such as an HRDC program impedes the recipient's ability to actively seek employment, an Employability Agreement must be completed in order to exempt that client from job search requirements. MHR will respect the HRDC assessment of client need for the HRDC program.

Through longer term follow-up of clients, it appears that many clients are unable to distinguish between training provided by various levels of government. Many agencies providing service through contract with the Ministry of Human Resources may also be providing service through contracts with HRDC, and with other provincial ministries - the different financial relationships will not be apparent to clients who are accessing services within the community.

When Income Assistance clients were asked about the kinds of employment training they participated in, most had participated in lower-cost, shorter-term training, such as resume writing workshops, whereas, higher cost approaches such as Adult Basic Education, self-employment training or First Aid certification were not as accessible. This did not provide a good match with the kinds of difficulties clients stated they were facing, nor did it provide a good match with some of the systemic factors that became more apparent as clients were surveyed over time.

The current service infrastructure assumes that most clients will have the required core of labour market skills. Clients in practice, are often referred first to labour market attachment programming, and then are referred into training programs if they are unsuccessful in finding work over a number of months (see note 3).

Appeals Process

Under the BC Benefits legislation, all clients have the right to appeal decisions regarding income support. More specifically, the following situations may be appealed under the BC Benefits (Appeals) Act and Regulations:

the refusal to provide income assistance, hardship assistance or a benefit to or for the person or a dependant;

the discontinuance or reduction of any income assistance or benefit provided to or for the person or a dependant;

the referral of the person or a dependant to an employability program under section 7 or the alteration or refusal of a referral.

The appeal process is a three-stage process. The initial stage involves a request for reconsideration, if the appeal is not resolved, it will go to tribunal, and ultimately to the BC Benefits Appeal Board.

For a more detailed description of the Appeals process, please go here.

The Community

British Columbia's economy is somewhat unique in Canada. B.C. has been experiencing significant economic restructuring -- most jobs are now in the service sector - the resource economies still continue to play a significant role in the economic longevity of many B.C. communities. B.C.'s economy is also much more closely tied to Pacific Rim economies than the economies of other provinces.

Geographically, British Columbia's population is most concentrated in the Greater Vancouver area. Approximately half of all the jobs in B.C. are located in Greater Vancouver and Greater Victoria. The northern and interior regions are much more reliant on goods production and primary industries, which results in a dual economy - urban and rural. Many of the rural communities are very vulnerable economically, as they are dependent on single industries - unemployment rates, and income assistance dependence are much greater, and more volatile in these resource dependent communities. For a more comprehensive overview of B.C.s economy, please go here.

Employment and Training programs in B.C. are delivered through third party service providers under contract with the Ministry of Human Resources. British Columbia has a large volume of training agencies, and private training institutions. Currently, there are more than 1100 registered through the Private Post-secondary Education Commission (PPSEC). In order to deliver contracted services to MHR clients, proponents must demonstrate that they are registered members of PPSEC in good standing. HRDC also requires that EI clients may only receive funding support to attend training at registered institutions. Over the next 2-3 years, HRDC is phasing in the requirement for institutions to be accredited. For more information on Private Training institutions, and the nature and scope of programs provided, please go here.

Other umbrella organizations which act on behalf of a broader membership include the Association of Service Providers for Employability and Career Trainers (ASPECT) representing community-based training agencies, and the B.C. Career Colleges Association (BCCCA).

Training and post-secondary education is available through public colleges, universities and institutes. The public post-secondary education system in British Columbia is comprised of the following Institutions:

The Open Learning Agency (Open University, Open College and the Knowledge Network). OLA provides open learning education province-wide and internationally. The OLA is mandated by the Ministry to offer a range of college- and university-level programs leading to certificates, diplomas and degrees, and works in partnership with other post-secondary institutions to provide distance learning. Programs and services are provided through the British Columbia Open University (an approved degree-granting entity), the Open College, the Open School, the Knowledge Network, the Canadian Learning Bank (including the International Credential Evaluation Service), and OLA Skills Centres.

These institutions are located throughout the province, in order to ensure equitable access to post-secondary education for all British Columbians. Many of the post-secondary institutions partner with the Ministry of Human Resources through contract in order to provide customized services or training to BC Benefits clients. For a map and links to most of the public post-secondary institutions, please go here.

Program Evaluation

Program evaluation is an ongoing activity within MHR, which involves staff working in a corporate capacity, and staff involved in program management and delivery. Programs typically are evaluated on a rotating basis, as program outcome information is required.

Two formal Treasury Board reviews of the BC Benefits package of programs have taken place - one reviewing 1996 activity, and the other 1997 activity. At that point in time, the programs were still under development, and the data systems had not matured sufficiently to permit long-term analysis of the impacts of programming. Subsequent to these two reviews, the (then) Skills Development Division initiated a long-term follow-up of clients who were on Income Assistance in 1997. This research project attempted to answer questions about the quality of employment, the impact of education and training in helping people to leave Income Assistance, and begin to capture whether there had been improvement in IA recipients lives. More detailed information can be found in the attached file (june2001.ppt)

Programs are more often evaluated on a program-by-program basis. The Applied Research and Evaluation Branch works closely with program managers and staff involved in delivery, to establish a comprehensive evaluation framework that is appropriate to the management questions at issue. In most instances, the evaluations are formative in nature rather than summative. The field work required for these evaluations is often done through contracted service. Examples of some recent evaluations include:

The focus of the evaluations is both quantitative and qualitative. The frameworks established at the outset almost always include a range of interests - measurement of inputs, process, outcomes/impacts, and client satisfaction.

Outcomes of interest include not just determining if clients are off Income Assistance, but whether clients are employed, and if so whether their total income has increased or not, whether they are retaining jobs, or cycling back into IA, and the extent to which the nature of the jobs IA clients get permits them to increase their standard of living over time.

Qualitative measures which are of interest, and often factored into evaluations include: perceived quality of life, satisfaction with services provided, utility of the programs and services, degree of harm-reduction in the context of overlapping social issues, and participant self-esteem and connection to community.

Evaluations typically rely on a number of methodological approaches and data sources. Administrative data on program usage and income assistance dependence forms one course of inquiry, but is not the sole source. Surveys are often used to follow up on clients' employment status, and perceptions. Focus groups and case studies are employed to glean more in-depth information about participant experiences, service provider interactions, field staff issues and concerns, and identify more in-depth issue related to the process of program delivery.

Benefit Cost analysis is not the primary focus of most evaluations. While there is considerable effort to follow-up on client outcomes (such as employment and earnings status), the limitations of relying on point estimates, such as those used in Benefit/cost analysis are too great. Experience within the Ministry has shown that reliance on administrative data sources alone provides far too little explanatory power. Furthermore, the application of benefit/cost analysis to the provision of social services which are an entitlement under the legislation, provided eligibility is met, is philosophically incompatible with an analytic approach that seeks to put extrinsic value on those services.

Findings from program evaluations are shared with all partners involved. Upon completion of an evaluation, the findings are shared with field staff, program management staff and service providers. The findings help program management staff engage in program design and redesign.

Issues related to process which are identified in evaluations are used to improve administrative practice and processes. Information on best-practices is used at the field level to help inform competitive bidding processes, and is shared with service providers to incorporate into future program proposals.

Research and evaluation projects which focus on longer-term impacts help inform new program design, and are used by staff to advocate for funding increases, or significant shifts in program direction.

Labour Market Development Agreement

Signed in April, 1997, the Canada/BC Agreement on Labour Market Development (LMDA) is a partnership between the federal and provincial government governing the delivery of Employment Benefits and Support Measures (EBSM) in B.C. The Employment Benefits and support measures are the labour market development and training resources available to unemployed persons under the EI Part 2 legislation. This agreement commits both levels of government to work together to set priorities, planning, designing and delivering programs that help people find productive and long-term work.

B.C. has negotiated a two-stage approach to the LMDA. The agreement, signed in April 1997, lays out a co-management framework, where HRDC staff continue to be primarily responsible for program delivery and management of budgets, and provincial staff are involved in the planning, monitoring and evaluation of EI Part 2 programs and services. The goal of the co-management agreement is to work at the local level, in order to avoid duplication and overlap.

The annual budget in 2001/02 under LMDA is $283M. The LMDA process is managed through a joint Management Committee, which has federal and provincial representation, by senior staff in the Ministry of Advanced Education, Training and Technology, the Ministry of Human Resources, and Human Resources Development Canada.

The LMDA in B.C. contains a reopener clause, permitting the province to come back to the negotiating table and negotiate a full devolution agreement. B.C. has invoked the reopener clause, however, negotiations are currently on hold, as there has been a recent change in government.

LMDA affects BC Benefits clients on two levels. All BC Benefits clients are eligible to receive supports through the Employment Assistance Services infrastructure. In fact, many of the agencies providing EAS services through HRDC contracts are also providing service as agents of MHR. Where BC Benefits clients meet the definition of EI client (currently on EI claim, or had an EI claim within the last 3 years), they are eligible for more intensive services through an Employment Benefit. MHR has established processes starting at application, to identify clients who are eligible for these services as early on as possible. Program Referral Officers not only inform eligible clients of the range of services available to them, but also work with those clients to make appropriate referrals to services within the community.

MHR and MAETT work actively with HRDC on evaluation activities under LMDA. A Joint Evaluation Committee has completed the formative evaluation, an intensive review of EAS services, and is currently beginning work on the LMDA summative evaluation.

Planned Changes and Directions

In May, 2001, British Columbia elected a Liberal government, replacing the New Democratic Party which had been in power since 1991. The new liberal government is a majority government, holding 77 out of 79 seats in the legislature.

On June 5th, 2001, Premier Campbell announced a new Cabinet. There are 21 ministries. In addition, seven Ministers of State have been appointed, with responsibility for delivering key government commitments in health care, children's development, community services, competition and intergovernmental relations. Ministers of State will be full members of Cabinet and will work in partnership with government Ministers to provide a new level of accountability in meeting specific commitments. The Ministry of Social Development Economic Security is now the Ministry of Human Resources. The new Ministry only has responsibility for delivery of income support under BC Benefits, and providing training for people on Income Assistance. Child care programs and housing have now been moved to other ministries. Further changes to the structure or to programs have not been announced at this time.

Prior to the election, B.C. was also in negotiations with HRDC on the Canada/B.C. Agreement on Labour Market Development. B.C. is currently co-managing the EI Part 2 budgets and programs with HRDC, but was negotiating a devolution agreement. Negotiations were put on hold pending the election. If a devolution agreement is signed, this may result in a somewhat different service delivery structure, as the potential client volume is just over 200,000 EI claimants per year.

Primary Information Sources

Contacts

NAME:

Janice Mansfield

TITLE: Labour Market Economist

Applied Research and Evaluation Branch

ADDRESS:

Ministry of Human Resources

P.O. Box 9872 Stn. Prov. Govt.

Victoria, B.C.

V8W 9T6

E-MAIL:

Janice.Mansfield@gems7.gov.bc.ca

TELEPHONE: (250) 356-7430
FAX: (250) 387-0262


Last Revised: Mon, Dec 17, 2001

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