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Annual Report on TANF Programs - 2004
Texas

December 31, 2004

Bob Shelbourne, Division Director
Office of Family Assistance
Administration for Children and Families
Aerospace Building, 5th Floor
370 L’Enfant Promenade, S.W.
Washington, D.C. 20447

Dear Mr. Shelbourne:

Enclosed you will find the TANF Annual Report required by 45 CFR 265.9. The report contains the information for Fiscal Year 2004.

Please let me know if you have any questions or need additional information. Please contact Mary Haifley at (512) 206-4542 for questions regarding Part A of this report and Kathy Payne at (512) 424-6861 for questions regarding Part B of this report.

Sincerely,

Sidonie Squier, Associate Commissioner
Office of Family Services

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Enclosures

Temporary Assistance for Needy Families
Annual Report for Texas
Fiscal Year 2004

As required by 45 CFR Section 265.9 (b), the State of Texas provides the following information on the Temporary Assistance for Needy Families (TANF) program:

(1) Definition of each work activity:

Texas currently operates its TANF employment program, Choices, under provisions of federal law not modified by State law or rule. The Texas Workforce Commission (TWC) administers Choices through contracts with Local Workforce Development Boards (Boards). Boards plan for and manage Choices services that are delivered by independent contractors through the Texas workforce system.

Choices services assist applicants, recipients, and former recipients of TANF cash assistance to prepare for, obtain, and retain employment. To promote self-sufficiency at the earliest possible time and to provide information on the comprehensive employment, education, and training services available through the Texas workforce system, TANF applicants attend Workforce Orientations for Applicants primarily conducted in Texas Workforce Centers. Applicants who obtain employment prior to certification for TANF cash assistance are a priority for services such as child-care assistance that will assist them with achieving self-sufficiency.

Choices offers TANF recipients immediate access to employment opportunities in a local workforce development area through a “Work First” service delivery approach. TANF recipients who cannot obtain immediate employment are subject to a mandatory community service requirement. A mandatory recipient (excluding teens) must be scheduled to participate in community service if not enrolled in one of the following activities within four weeks:

• Unsubsidized employment
• Subsidized employment
• On-the-job training
• Work experience

Choices services and activities vary based upon locally designed services strategies, but generally include:

Federal Activity: Job Readiness/Job Search

Job Readiness and Job Search Activities prepare participants to seek employment. Activities may include occupational exploration, job skill assessment, assistance with applications and resumes, job fairs, job interview and job search skills, employment goal setting, life skills, and guidance and motivation to develop positive work attitudes and behaviors necessary for successful employment. Staff members also assist participants with information on available jobs, job search skills training or counseling, the provision of information on the local labor market, including information on emerging and demand occupations, and referral to job openings. Local job development staff are instructed to work with employers and know their needs so participants may be placed in appropriate job openings.

Federal Activity: Unsubsidized Employment

Unsubsidized Employment links a participant with existing job openings within the community, either full-time or part-time, with wages paid in full by the employer. It also includes unsubsidized internships, with wages paid by the internship employer, and self-employment.

Federal Activity: Subsidized Private Employment

Subsidized Employment provides job training and work experience, based on a participant’s skills and interests, either full-time or part-time, with wages subsidized in whole or in part.

Federal Activity: Subsidized Public Employment

Subsidized employment provides job training and work experience, based on a participant’s skills and interests, either full-time or part-time, with wages subsidized in whole or in part.

Federal Activity: On-the-Job Training

On-the-Job Training provides for subsidized, time-limited training activities in which a participant obtains knowledge and skills that are essential to the workplace while in a job setting.

Federal Activity: Community Service

Community Service provides a participant with employment and training activities through unsalaried work-based positions in either the public or private nonprofit sector to improve the employability of a participant who has been unable to find employment.

Federal Activity: Vocational Educational Training

Vocational Educational Training relates to the types of jobs available in the labor market, is consistent with the employment goals identified in the individual’s family employment plan, is
provided with an expectation of employment upon completion, and is subject to time limitations.

Federal Activity: Work Experience

Work Experience provides unsalaried work-based positions in the private for-profit sector to improve the employability of a participant who has been unable to find employment. The positions are time-limited, designed to move participants quickly into regular employment, and have designated hours, tasks, and skills attainment objectives.

Federal Activity: Job Skills Training

Job Skills Training services are designed to increase an individual’s employability. They may include activities that ensure that participants become familiar with workplace expectations and exhibit work behavior and attitudes necessary to compete successfully in the labor market. Various types of activities, which are directly related to employment, may qualify, such as personal development, pre-employment and parenting skills classes. These services must be directly related to the types of jobs available in the local labor market, and consistent with the employment goals identified in a participant’s family employment plan. Included in this category are Adult Basic Education and Literacy, and English proficiency. Also included are entrepreneurial training and self-employment assistance. Local staff ensure they are familiar with employer needs to ensure that Choices job skills training supports these needs and leads participants towards employment.

Federal Activity: Education

Educational Services are available for participants who have not completed secondary school or who have not received a certificate of general equivalence. Education services include secondary school leading to a high school diploma, satisfactory school attendance at a secondary school, or a course of study leading to a certificate of general equivalence.

(2) A description of the transitional services provided to families no longer receiving
assistance due to employment.

Transitional Medicaid (1 TAC, §374.5)

Transitional Medicaid is available to households for up to 12 months following denial of TANF benefits due to new or increased earnings or expiration of TANF time limits as long as an eligible child resides in the home.

Transitional Child Care (40 TAC, §811.62 and 809.101)

Transitional child care shall be provided, if needed, for children of parents who lose eligibility for temporary cash assistance due to earnings from employment or expiration of TANF time limits, as follows:

• Transitional child care is available for up to 12 months following the denial of temporary cash assistance due to employment; except for a TANF recipient who is eligible for a child caretaker exemption and who voluntarily participates in Choices. For these individuals, transitional child care is available for up to 18 months.

• TANF clients who are not employed when temporary cash assistance expires due to time limits may receive up to four weeks of transitional child care in order to seek employment.

• TANF clients who are engaged in a Choices activity that extends beyond the date that temporary cash assistance expires may receive transitional child care for up to four weeks to complete the activity.

• TANF clients who are engaged in a Choices activity and denied temporary cash assistance due to receipt of child support, may receive transitional child care services until the date on which the individual completes the activity.
Employment, Employment Retention, and Reemployment:

In an effort to assist a Choices individual to retain employment and increase earnings over time, Boards provide Choices services during the four-month Earned Income Deduction period while individuals are employed and may continue receiving their TANF cash assistance benefits.

In addition, Boards may continue to provide services beyond the denial of TANF cash assistance due to employment. Services may include mentoring, employee assistance programs, education/training, child care, transportation, or any other work-related expense.

(3) A description of how a state will reduce the amount of assistance payable to a family when an individual refuses to engage in work without good cause.

Failure to Comply with Title IV-A Employment Program (1 TAC, §372.1155)

Households are subject to a full-family sanction when an adult TANF recipient, minor parent certified as an adult or second parent, or payee/disqualified adult fails to cooperate with work requirements. The full-family sanction is imposed for a minimum of one month or until the household cooperates, whichever is longer.

(4) The average monthly number of payments for child care services made by the
State through the use of disregards by the following types of child care providers:

The State had an average of 377 cases per month that received a child care disregard that resulted in a higher TANF grant. During the time when disregards would be applied by the Texas Health and Human Services Commission in determining eligibility for cash assistance, the family would be eligible for Child Care assistance administered by the Texas Workforce Commission.

(5) If the State has adopted the Family Violence Option and wants federal recognition of its good cause domestic violence waivers, a description of the strategies and procedures in place to ensure that victims of domestic violence receive appropriate alternative services and an aggregate figure for the total number of domestic waivers granted.

Domestic Violence Waiver from Child Support Requirements

TANF applicants or recipients do not have to cooperate with child support requirements if good cause exists. Good cause exists if the family fears that cooperating with child support requirements will endanger them or their children.

HHSC established a telephone referral process to assist recipients in obtaining verification of family violence and introduces the recipient to family violence services. If a recipient tells the advisors that such violence exists, the advisor accompanies the client to a secured place within the office and assists in telephoning a family violence facility. These facilities are contracted by HHSC and are staffed with persons who are trained in family violence. A family violence specialist in that facility conducts a telephone assessment and notifies the HHSC advisor of their recommendation to grant or not to grant good cause based on a family violence situation. The advisor then notifies the child support division of the good cause claim by coding the case and referral appropriately, which prevents contact with the alleged abusive non-custodial parent.

In Fiscal Year 2004, there were 29 TANF households that were granted good cause from having to comply with child support requirements due to domestic violence.

Family Violence Waiver from Work Requirements

The Texas Workforce Commission rules for Choices define reasons that individual recipients are granted temporary good cause for not participating in work activities. The good cause reason related to family violence is: “An individual is a victim of family violence.” Good cause for family violence purposes shall be reevaluated every month, is extended if the circumstances giving rise to the good cause exception are not resolved after available resources to remedy the situation have been considered, and may be granted for up to 12 months per occurrence. Boards must ensure that family violence is considered during the initial Choices assessment and throughout participation. The existence of family violence must be one of the factors considered when assessing a client’s employability and ability to transition to self-sufficiency. An individual identified as a victim of family violence is referred to an individual or an agency that specializes in issues involving family violence.

In Fiscal Year 2004, 208 clients (unduplicated) were granted good cause due to domestic violence.

(6) A description of any nonrecurrent short-term benefits provided, including the eligibility criteria, restrictions on the amounts, duration or frequency of such payments; any policies that limit such payments; procedures and activities to ensure that persons diverted from assistance receive information about, referrals to, or access to other program benefits.

Local Innovation Projects

Texas spent $2.7 million of Texas’ TANF block grant for local innovation projects. Through these projects, local faith-based and community-based organizations provided services to overcome barriers to employment across the state. A total of 15 projects provided services at the local level during FY 2004. All projects were set up in collaboration with the appropriate Local Workforce Board.

Services targeted by the projects included non-residential services for victims of domestic violence, chemical abuse and dependency prevention and counseling (non-medical services), adult literacy and ESL classes, and services to youth in low income families that encouraged them to finish school, avoid pregnancy, become employed, emergency housing, utility assistance, and clothing for work or work search.

Participants had to meet TANF eligibility criteria, with the exception of resources and income. Participants’ income had to be below 200% of the Federal Poverty Income Limit. There was no limit on duration or amount of payments, however projects were evaluated on their success in assisting TANF recipients in getting off of assistance and helping potential recipients avoid TANF. HHSC staff monitoring the projects ensured that recipients were informed of the support services available through HHSC and other sources. For FY 2004, a total of 8,128 clients received services from the Local Innovation Projects.

Of the 15 Local Innovation Projects, 12 projects provided assistance services. These were as follows:

a) South Plains Job Access provided transportation assistance in the form of fuel and vehicle repair vouchers and taxi services. These services were provided to low-income residents in rural counties outside Lubbock to facilitate transportation to employment sites.

b) City Link Transit Transportation Services is located in Abilene. The project provided after-hours and “complex trip” transportation assistance to eligible individuals whose income was below 200% FPIL. Complex trip was defined as one involving stops for daycare drop-off, or where routes were not available. The project also provided conventional bus transportation to qualifying individuals. All transportation services were provided to facilitate travel to employment sites and/or day care sites.

c) Legal Aid of North West Texas provided legal services for low-income victims of domestic violence in the Dallas/Fort Worth metro area.

d) Families Under Urban and Social Attack in Houston provided services to victims of domestic violence and to those with a history of chemical abuse.

e) Tyler Junior College offered emergency housing and utility assistance with a variety of other services to low-income students who were participants in an allied health services program.

f) Ubi Caritas offered Adult Basic Literacy (ABL) and English as a Second Language (ESL) classes in Beaumont. The project also offered transportation assistance and vehicle repair, clothing and uniform assistance, and emergency housing and utility assistance to participating adults.

g) Interfaith Caring Ministries in Houston offered emergency housing and utility assistance, transportation assistance, clothing and uniform assistance, and other services to eligible individuals with income below 200% FPIL.

h) Advocacy Outreach offered ABL and ESL classes in the Elgin area. Participants in the program could also receive emergency housing and utility assistance.

i) Good Will Industries of Central Texas offered clothing and uniform assistance, transportation assistance, and housing assistance to eligible individuals with income below 200% FPIL.

j) Project Catch in San Antonio targeted recently denied TANF clients and TANF recipients nearing the end of their federal time limit. The project offered emergency housing and utility assistance, transportation assistance, clothing and uniform assistance, and other services to eligible individuals with income below 200% FPIL.

k) Family Forward served low-income households in Val Verde, Maverick, Dimmit, and Zavala counties. Most services were provided to victims of domestic violence. Their services included non-medical chemical abuse counseling, family support groups, information and referral, transportation, auto repairs, emergency housing/utility/phone, fees for licenses and exams, and child care.

The local Innovation Projects ended August 31, 2004.

Employment Retention and Advancement Project

The Employment Retention and Advancement (ERA) project was designed to increase job stability and wages for TANF recipients as well as to reduce reliance on cash assistance. The ERA project enhanced current services by offering TANF recipients an array of services such as an ongoing employability assessment, long-range goal setting, and post-employment services. Participants could receive a $200 post-employment stipend per month for up to 12 months, if they were employed and participated in advancement activities. ERA used a team-based case management approach that consisted of staff from HHSC, the Local Workforce Development Board (Board) case manager, and the ERA case manager. Other professionals could be on the teams to advise on specific areas such as family violence or substance abuse. Based on a collaborative effort between local HHSC offices and the Boards, ERA was operational in Ft. Worth, Houston, Corpus Christi, and Abilene. The Texas ERA project was part of the national evaluation to determine the most effective employment retention and advancement strategies for TANF recipients.

The Employment Retention and Advancement Project ended August 31, 2004.

One-Time TANF Payments

One-Time Temporary Assistance for Needy Families (OTTANF) provides $1000 cash assistance for families in crisis. The intent of the OTTANF payment is to help solve a short-term crisis and divert households from ongoing TANF benefits. These families must

• meet all TANF eligibility requirements, and
• not currently receive TANF.

A household has an option of receiving TANF or OTTANF if it meets one of four crisis criteria. Households who choose this option are not eligible to receive TANF, TANF-SP, or OTTANF payments for 12 months.

In addition to meeting all TANF requirements, the household must also meet one of the following four crisis criteria:

• Crisis Criteria 1: The caretaker or second parent must have a loss of employment in the two months before application, application month, or process month.

• Crisis Criteria 2: In a one-parent household, the caretaker must have

- a loss of financial support from the spouse within the last 12 months, through death, divorce, separation, or abandonment; and
- been employed within the 12 months before the application process month.

Financial support is assistance with basic living expenses like rent, utilities, and food. Loss of financial support from a spouse must be verified. The loss of financial support could also be from a legal parent or a stepparent.

• Crisis Criteria 3: The caretaker or second parent graduated from a university, college, junior college, or technical training school within the 12 months before the application or process month, and is unemployed or underemployed. The caretaker or second parent must
- provide proof of degree or certificate of completion from a technical training school, junior college, college, or university. This includes beauty, nursing, or vocational schools in or out of Texas;
- not currently be enrolled in an institution of higher learning; and
- have received TANF (in Texas) anytime in the 12 months before enrolling, or while attending a college, university, or technical training school.

• Crisis Criteria 4: The caretaker and/or second parent is currently employed but still meets TANF requirements and is facing a crisis situation because of one of the following reasons:
- Loss or potential loss of transportation — The applicant is unable to get to his job. The loss of a vehicle can be because of needed repairs, lack of insurance, necessary inspection, repossession, or threat of repossession.
- Loss or potential loss of shelter — The household may lose shelter because of foreclosure, eviction, condemnation, or threat of any of these.
- Medical emergency (60 days or less) — A caretaker/second parent has a medical emergency or is needed to provide temporary care for a household member who is ill or injured. The medical emergency can be for the applicant or a household member within the TANF degree of relationship. This policy does not apply to individuals outside the home except for members who are in the hospital. A normal pregnancy or maternity leave is not a medical emergency.

Families choosing a one-time payment over regular TANF cash assistance are automatically screened for eligibility for Medicaid and are advised that they may also apply for food stamp benefits.

Texas Works Redirects

Before the application process begins, HHSC staff provides information to TANF applicants that cash assistance is temporary and has time limits. The client is directed to a resource center in the local office for job listings and other options (such as child support) instead of TANF benefits. Clients are informed that if they do not choose to apply for TANF benefits they may still be eligible for food stamp and Medicaid benefits.
Workforce Orientation for Applicants

In order to become certified for temporary cash assistance, individuals applying for TANF must attend a Workforce Orientation for Applicants (WOAs). Alternative WOAs may be used when individuals are unable to attend a regularly scheduled WOA. The orientations are usually conducted in Texas Workforce Centers. They offer TANF applicants an introduction to Texas Workforce Center services and encourage TANF applicants to take immediate advantage of employment opportunities and other family services available through the Texas Workforce Centers. The WOA provides information on the time-limited nature of TANF benefits and helps individuals understand that the services offered through the Texas Workforce Center provide them with an opportunity to find a job and avoid using TANF time-limited benefits.

Applicants attending an orientation session who are subsequently certified for TANF cash assistance are scheduled to attend an Employment Planning Session.

Non-recurrent, Short-Term Benefits for Employment

TANF individuals are eligible to receive non-recurrent, short-term benefits that will assist in obtaining employment. These services cannot be provided to recipients of cash assistance for longer than four months and may include all available Choices support services.

(7) A description of the procedures the State has established and is maintaining to resolve displacement complaints. The description must include the name of the State agency with the lead responsibility for administering this provision and explanations of how the State has notified the public about these procedures and how an individual can register a complaint.

The Texas Workforce Commission rules state that placements in work-based services must not result in the displacement of currently employed workers or impair existing contracts from services or collective bargaining agreements (40 TAC §811.21). The Commission rules also provide a process for Board Review of Complaints (40 TAC §811.71) and for Commission Appeal (40 TAC §811.72).

(8) A summary of State programs and activities directed at the third and fourth purposes
of TANF

Family Planning

Family planning services are part of comprehensive health care delivery systems established in Texas to assist low-income men, women, and adolescents (age 19 and younger) to improve their health status, reduce unintended pregnancies, and positively affect the outcomes of future pregnancies. Administration of the State family planning program is the responsibility of the Texas Department of State Health Services (DSHS), Division of Family planning. The services funded through DSHS are provided by approximately 90 agencies and the Department’s own Regional clinics, with clinic sites in 163 of 254 Texas counties. Funding sources include Medicaid (Title XIX) Title XX (of which part is TANF), Title X, and Title V (see DSHS Law). Family Planning services are also provided to Medicaid-eligible individuals by Medicaid-enrolled physicians in private practice, advanced nurse practitioners, certified nurse midwives, federally qualified health centers, and other family planning agencies.

Employment and Training Services

A Texas Workforce Commission (TWC) goal is to utilize the Texas workforce system to accomplish the purposes of TANF through employment and training services that promote the self-sufficiency of families. The Texas workforce system provides services to families using TANF funds under purposes three and four in support of TANF purpose two.

TWC supports a Fatherhood Initiative that was designed to provide opportunities for fathers to contribute to the economic and emotional well being of their children. The initiative offers counseling and parenting skills for fathers that would help them progress toward self-sufficiency.

TWC also supports a non-custodial initiative that provides job placement and training services for ex-offenders through Project Reintegration of Offenders (Project RIO). Project RIO is administered by TWC in collaboration with the Local Workforce Development Boards, the Texas Department of Criminal Justice (TDJC), the Windham School District, and the Texas Youth Commission (TYC). Project RIO provides a link between education, training and employment during incarceration with job placement and training after release. These services for ex-offenders promote a connection to the labor force and increase the capacity of fathers to provide financial support for their children.

(9) An estimate of the total number of individuals who have participated in subsidized
employment activities. A total of 1,791 individuals participated in subsidized employment activities during the fiscal year.

Annual Report on State Maintenance of Effort Programs: Form ACF-204

State: Texas      Fiscal Year: 2004
Date Submitted: December 28, 2004

Provide the following information for EACH PROGRAM (according to the nature of the benefit or service provided) for which the State claims MOE expenditures. Complete and submit this report in accordance with the attached instructions.

1. Name of Benefit or Service Program

Family Based Safety Services
Texas Department of Protective and Regulatory Services

2. Description of the Major Program Benefits, Services, and Activities:

Eligible families are those for whom an investigation for alleged child abuse/neglect has been conducted, and for whom it has been determined that the risk of future abuse and possible removal from the home are likely in the short term if Child Protective Services intervention services are not provided.

Services are contracted and may include, but are not limited to: psychological and psychiatric evaluation; diagnostic consultation; therapeutic camping; home studies; chemical dependency recovery management; home based therapy (substance abuse); assessment for substance abuse treatment; developmental testing and evaluation; individual counseling; group counseling; family counseling; mentoring; parent/caretaker training; home based therapy (not substance abuse); support groups; substance abuse education; and other substance abuse intervention services.

3. Purpose of Benefit or Service Program:

The purpose of this program is family preservation. The program fulfills the TANF statutory purpose described at section 401 (a) (1) of the Social Security Act and regulatory purpose described at 45 CFR 260.20 (a).

4. Program Type. (Check One)

_X_ This program is operated under the TANF program.

____ This program is a separate State program.

5. Description of Work Activities (complete only if this program is a separate State program):

N/A

6. Total State Expenditures for the Program for the Fiscal Year:

$4,561,008

7. Total State MOE Expenditures under the Program

$4,561,008

8. Total Number of Families Serviced under the Program with MOE Funds

8,537 (estimated)

This last figure represents

____ The average monthly total for the fiscal year.

__X__ The total served over the fiscal year.

9. Financial Eligibility Criteria for Receiving MOE-funded Program Benefits or Services:

Annual family income cannot exceed $63,000

10. Prior Program Authorization: Was this program authorized and allowable under prior law? (check one)

Yes __X__ No _____

11. Total Program Expenditures in FY 1995

(NOTE: provide only if response on question 10 is No)

N/A

This certifies that all families for which the State claims MOE expenditures for the fiscal year meet the State’s criteria for “eligible families”.

Signature _______________________________________________________

Name: Donna Krueger, Director
Title: Budget and Federal Funds Division
Texas Department Family and Protective Services

Annual Report on State Maintenance of Effort Programs: Form ACF-204

State: Texas      Fiscal Year: 2004
Date Submitted: December 29, 2004

Provide the following information for EACH PROGRAM (according to the nature of the benefit or service provided) for which the State claims MOE expenditures. Complete and submit this report in accordance with the attached instructions.

1. Name of Benefit or Service Program

Services to At Risk Youth
Texas Department of Protective and Regulatory Service

2. Description of the Major Program Benefits, Services, and Activities:

Services are provided to youth’s ages 7-17 and their families to resolve problems leading to running away, truancy, or abusive behavior, and to divert youths from the Juvenile Justice and Child Protective services systems.

Services may be provided or purchased, and may include family crisis intervention, youth and family counseling, and short term residential care. Services last no longer than 6 months, and residential services are limited to 60 days.

3. Purpose of Benefit or Service Program:

The priority for this program is to preserve the ability of youth to remain with their family. The program fulfills the TANF statutory purpose described at section 401 (a) (1) of the Social Security Act and regulatory purpose described at 45 CFR 260.20 (a).

4. Program Type. (Check One)

__X__ This program is operated under the TANF program.

_____ This program is a separate State program.

5. Description of Work Activities (complete only if this program is a separate State program):

N/A

6. Total State Expenditures for the Program for the Fiscal Year:

$9,147, 482

7. Total State MOE Expenditures under the Program

$9,147,482

8. Total Number of Families Served under the Program with MOE Funds

4,941 (estimated)

This last figure represents

__X__ The average monthly total for the fiscal year.

_____ The total served over the fiscal year.

9. Financial Eligibility Criteria for Receiving MOE-funded Program Benefits or Services:

Annual family income cannot exceed $63,000

10. Prior Program Authorization: Was this program authorized and allowable under prior law? (check one)

Yes __X_ No _____

11. Total Program Expenditures in FY 1995

(NOTE: provide only if response on question 10 is No)

This certifies that all families for which the State claims MOE expenditures for the fiscal year meet the State’s criteria for “eligible families”.

Signature ___________________________________

Name: Donna Krueger, Director
Title: Budget and Federal Funds Division
Texas Department of Protective and Regulatory Services

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This is a Historical Document.