Department of Health and Human Servces 
OFFICE OF 
INSPECTOR GENERAL 
FUNCTIONAL IMPAIRMENTS 
OF AFDC CLIENTS: 
Case Studies 
.. SERVICE 
t-\' 
Richard P. Kusserow 
INSPECfOR GENERA 
"1 
;(b)cl:a  MACH 199  OFFCE OF INSPECfOR GENERA 
La 
The miion of the Ofce of Inpeor Genera (DIG), as mandate by Public  95-452, as 
amended is to prote the integrty of the Deparent of Heath and Human Servce' (HS)
progr as well as the heath and welfar of beneficiares served by thos progr. Th 
statutory miion is caed out thugh a nationwde netwrk of audits, intigations, and 
inpeons conduc by thee DIG operatig components: the Ofce of Audit Servce, the 
Ofce of Intigations, and the Ofce of Evauation and Inpeons. The DIG al inorm 
the Seeta of HI of progr and management problems and remmends cour 
corr 
them. 
OFFCE OF AUDIT SERVICE 
The DIG's Offce of Audit Servce (OAS) prodes al auditig servce for HI, either by 
conductg audits with its ow audit resurce or  oversing audit work done by others. 
HI progrby   grte 
ermine the performance of  and/or its  and contrctors in 
Acuditas  g  repee 
out their  reponsibilties and are intended to prode independent 
HI progr 
asments of  and operations in order to reduce wate, abus, and 
mimanagement and to promote ecnomy and effciency thughout the Deparent. 
OFFCE OF INTIGATIONS 
cral ci 
admtrtie 
The DIG's Ofce of Inestigations (01) conduct  and 
progr  HI 
inestigations of alegations of wrongdoing in HHS  or to  beneficiares and of 
unjust enrchment by proders. The inestigatie effort of 01 lead to cral convictions 
al ovrs 
admitrtie sactons, or ci money penalties. The 01  State Medcad frud 
prote 
contrl unts which inestigate and  frud and patient abus in the Medicad program 
AN 
OFFCE OF EVALUATION  INSPECTONS 
The DIG's Offce of Evauation and Inpeons (DEI conduct short-term management and 
progr evuations (caed inpeons) that foc on isues of concern to the Deparent, 
inpeon 
the Congres, and the public. The fidigs and recmmendations contaed in thes 
rapid, accte, and up-tote inormation on the effciency, wlerabilty, 
report generate 
progr 
and effecivenes of deparenta 
Th report wa prepar in the New York Regional Ofce under the diecon of Regiona 
Inpeor Genera Thomas F. Tul and Deputy Regional Inpeor Genera Alan S. Meyer. 
sa 
Projec  included 
Headauarters 
New York  Sus  Harck 
Renee C. Schlesinger (projec Leder)  E. 
Demetr Arpakos (Ld Analt) 
Harn 
Nancy 
Concett Brucceri  Servces 
Department of Health and Human 
OFFICE OF 
INSPECTOR GENERAL 
FUNCTIONAL IMPAIRMENTS 
OF AFDC CLIENTS: 
Case Studies 
.. SERVICE
~t-\' 
Richard P. Kusserow 
INSPECfOR GENERA 
'0 
901 
;(lflfcl30  OEI-0- EXECUTIVE  SUMMARY

PUROSE 
The purpose of this report is to present case studies of eight programs which appear 
to be helping functionally impaired clients of the Aid to Familes with Dependent 
Children (AFC) program. 
BACKGROUN 
AFDC aims to assist needy children and parents in moving from welfare dependency 
to self-suffciency. It is admiistered by States, but funded jointly by the Federal and 
State governments. 
Several recent studies have highlighted the existence of functional 
impairments in the AFDC population. 
The Family Support Act requires States to develop a Job Opportunity and Basic Skills 
(JOBS) program, an education, training and employment program intended to help
AFC 
clients avoid long-term dependence. Clients are assessed to determine their 
training needs and to develop an employabilty plan. 
Stu 
DIG 
The case studies in this report result from a recent Office of Inspector General (OIG) 
inspection, entitled "Functional Impairments of AFDC Clients" (OEI-02-90-00400), 
which studied whether and how States with JOBS experience are systematically 
identifyng and dealing with the functional impairments of AFC clients. The study 
identified some programs that are making special efforts to help the functionally 
impaired. These programs are presented as case studies in this report. 
METHODOLOY 
Durig the "Functional Impairments of AFC Clients" inspection, managers of State 
welfare offces and JOBS program directors recommended programs they believed to 
be particularly effective in helping the functionally impaired. The inspection team 
chose eight from those cited for further study; four were visited and four were 
contacted by telephone. The programs were chosen because they demonstrate a 
broad range of program practices and philosophies. 
Information for the case studies was derived from intervews with program managers 
staff, and clients, from literature obtained from the programs, and from the team 
own personal observations.  VIIT 
FOUR PROGRA 
Fam  Progr 
The  Independence  in Manchester, New Hampshire 
contracts with JOBS to provide intensive pre-vocational and vocational training to 
recipients who have been on AFC for more than one year so they may sustain full-
time employment. The program s key features include one-on-one attention 
supportive environment, continuing follow-up and client support groups. 
Key Education has its home offce in Shrewsbury, New Jersey. It is a private test-
development company that contracts with the State of Delaware to conduct JOBS 
client assessments. The company uses a computeried KEV AS (Key Education 
Vocational Assessment System) machie to measure skills, interests, and levels of 
functioning. The main features of Key Education are its thorough assessments, client 
profie reports and career counseling. 
Progr 
The goal of the Literacy  in Bridgeton, New Jersey, is to have clients achieve 
their graduate equivalency degree (GED). The program is notable for its innovative 
teaching methods, individualied instruction, client support system and staff dedication. 
Clients feel the program is teaching them how to cope with their problems, gives them 
renewed confdence and will help them get jobs. 
Progr 
The MOST/MS  located in Mt. Pleasant, Michigan, works to reduce or 
eliminate dependency on the public welfare system by helping people to acquire skills 
to be competitive in the labor market and to earn a livig wage. Intensive 
assessments, financial assistance, a holistic approach and excellent staff coordination 
are the major contributing factors to the program s success. 
FOUR PROGRAS TElEPHONED 
Fam  Progr 
The  Development Self-Sufciency  (FaDDS) in Iowa has support 
, self-esteem workshops and GED  enable families to achieve a level 
groups classes to "
of self-suffciency .. thus breaking the cycle of ADC (welfare) dependence from 
generation to generation. 
Let' s Help in Topeka, Kansas is an adult education program with the goal to "get 
everybody in Shawnee County work-ready, get everybody off of AFDC with love and 
kindness  specialleaming program where JOBS clients have an 
. It offers a 
individualized schedule geared to achieving basic skills or aGED. 
New Diecton in Allegheny County, Pennsylvania tries to address a client s barriers to 
employment by working with the individual and the Office of Vocational 
Rehabiltation overcome functional impairments.  Project Resolve in Omaha, Nebraska chooses clients with problems and supports them 
in their efforts to leave welfare. One-to-one counseling and a personal plan are 
special to the program. 
COMMNT 
The Assistant Secretary for Planning and Evaluation commented on the draft report. 
These comments included a few specifc questions about terms used. Appropriate 
changes have been made in this final report.  . .. 
. . . . . . . . . . ..  ..  ..  ..  ..  ..  ..  ..  ..  ..  ..  ..  ..  ..  ..  ....  
. . . ..  ...   ...   ...   ...   ...   ...   ...   ...   ...   ...   ....    .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     .....     ....    ....    ....    ...   ...   ...   ...   ...   ...   ...   ...   ...   ...   ...  .  . . .. 
TABLE OF CONTENTS

EXECUTIV SUMMY 
INODUCI0N 
CASE STUIE  . . . . . . . . . . . . . . . 4

Four Programs Visited

The Family Independence Program  . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Key Education. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

The Literacy Program  .. 10

The MOST/MS Program. . . .. . . 

Four Programs Telephoned 
COMMNf  INTRODUCTION
PUROSE 
The purpose of this report is to present case studies of eight programs which appear 
to be helping functionally impaired clients of the Aid to Familes with Dependent 
Children (AFC) program. 
BACKGROUN 
AFDC 
When enacted in 1935, the AFC program s intent was to allow widowed mothers to 
stay at home with their children. As indicated in Title IV of the Social Security Act 
(Part A, Section 401), it was set up to encourage "the care of dependent children in 
their own homes  enabling each State to furnsh financial assistance and 
on by 
rehabiltation and other servces to needy dependent children and the parents or 
relatives with whom they are livig.  Its philosophy shifted with the Family Support 
Act of 1988; it now aims to assist needy children and parents in moving from welfare 
dependency to self-sufficiency. The program is administered by States, but funded 
jointly by the Federal and State governments. 
Several recent studies have highlighted the existence of functional impairments in the 
AFDC population. A 1988 study for the Assistant Secretary for Planning and 
Evaluation (ASPE) reported that nearly one in four women on AFDC under the age 
of 45 descn"bed themselves as functionally impaired, in contrast to only one in eleven 
non-AFDC women doing so. A study completed recently for ASPE by Child Trends 
Inc. found that most AFDC mothers have a limited education, score below average on 
verbal and math skills tests, and have little work experience. Some of the mothers 
report health problems, alcohol abuse and depression. Half are long-term welfare 
recipients. 
JOBS 
To promote self-sufficiency, the Family Support Act requires States to develop a Job 
Opportunity and Basic Skills (JOBS) program, an education, training and employment 
program intended to help AFDC clients avoid long-term dependence. States are to 
have enrolled seven percent of the eligible population by 1991, rising to 20 percent by 
1995. Clients are assessed to determine their training needs and to develop an 
employabilty plan. While all States have now implemented JOBS, some programs 
have been in operation longer than others. States and counties may contract out 
individual programs on a local level which provide training, education and other 
servces for AFDC clients.  Stu 
DIG 
The case studies in this report result from a recent Offce of Inspector General (OIG) 
inspection, entitled "Functional Impairents of AFC Clients" (OEI-02-90-00400), 
which studied whether and how States with JOBS experience are systematically 
identifyng and dealing with the functional impairents of AFC clients. The study 
found that States recogne the existence of functional impairments, with learning 
disabilties and substance abuse being the most common. They do not, however 
collect aggegate data on these impairents. Participation in JOBS increases the 
chances of clients havig their functional impairments identified, but problems exist in 
dealig with these impairments. Finally, the study identied some local programs that 
are makig special efforts to help the functionaly impaired. These programs are 
presented as case studies in this report. 
MEODOWGY 
Durig the "Functional Impairments of AFDC Clients" inspection, the team conducted 
telephone intervews with managers of State welfare offces and with JOBS program 
directors in the 25 States havig a JOBS program in place since October 1989. When 
asked to recommend any programs they believed to be particularly effective or 
innovative in helping the functionally impaired, respondents cited 24 such programs.
Eight were chosen for further study; four were visited and four were contacted by 
telephone. They were chosen because they reportedly exemplify some effective 
practices for identifyng and/or servng AFC clients with functional impairments and 
because they demonstrate a broad range of program practices and philosophies. All 
eight were found to be JOBS related. 
Two of the visited programs are in New Jersey, one is in Michigan and the other is in 
New Hampshire. At each site, discussions were held with the program director and/or 
staff to learn about the operations of the programs. Additionally, seventeen program 
clients, selected either by the program manager or by the visiting team, were 
intervewed on-site to obtain their views. The number of clients spoken to at each 
program ranged from three to ten. In all, the team conducted 26 intervews onsite. 
The four programs contacted by telephone are located in Pennsylvania, Iowa, Kansas 
and Nebraska. The team conducted a telephone intervew with each program director 
but not with clients. 
Inormation for the case studies was derived not only from the onsite and telephone 
intervews, but also from literature and other materials obtained from the programs, as 
well as the team s own personal observations. 
Following are individual reports on the four programs visited on-site. These reports 
discuss each program s operation, goals, client profies, key attributes and outcomes 
Lastly, a summary of the four programs contacted by telephone 
follows the onsite  approaches taken by these 
reports. It contains various descriptions of the various 
programs to help the functionally impaired.  FAMY INEPENENCE PROGRA
Manhe 
New Hampshie 
Key Featues 
One-on-one attention 
Supportive environment 
Continuing follow-up 
Client support group 
Backgun 
The Family Independence Program (FIP) is located in the largely rural State of New 
Hampshire. FIP is a Job Trainng and Partnership Act (JTA) program which 
contracts with JOBS to provide intensive pre-vocational and vocational training to 
recipients who have been on AFDC for one continuous year or longer. It operates in 
several locations throughout New Hampshire to prepare AFDC recipients for jobs that 
pay wages adequate for long-term self-suffciency. Participants are counseled and 
guided through the program toward a personal goal of independence and sustained 
tie 
full- employment. 
In existence since December 1985, the program currently has 207 clients Statewide 
with approximately 120 new clients added each year. Between 10 and 15 clients are 
enrolled at each site. 
Program Operatin

Designed to serve the entire family, FIP is an individually tailored program which 
provides supportive servces, such as counseling, day care, transportation and medical 
servces, until the breadwinner maintains stabilty on a new job. 
AFC 
The State  program refers lists of appropriate clients to FIP. During an 
intervew with the client in her home, the FIP counselor describes the program, goes 
, and ascertains the commitment level of the client. The 
over the mission statement
counselor also assesses the home situation and identifies possible barrers 
to self
suffciency. 
After the intervew, clients go through an initial pre-employment preparation (PEP) 
phase which lasts for 10 weeks and runs six hours a day. It is an intensive effort to 
motivate participants and increase their personal and vocational awareness. During 
this phase, the participant develops his/her own family independence plan and
, if 
barrers are discovered, obtains help. Graduation occurs when the family has 
successfully composed a plan that meets the criteria and standards set by the program 
administrators, the case management team and the family itself.  Aditionally within the PEP cycle, academic remediation takes place to prepare 
participants for the work-related training in the next segment of the program. Here is 
where a learng disabilty might be discovered. Special help is given if necessary. 
Afer PEP graduation, the client may participate in different kinds of training 
programs, such as on-the-job training, GED classes (if not completed during the PEP 
cycle), or a college program. 
If barrers such as functional impairments are discovered durig the initial home 
intervew or at any other time, the client is referred to the most appropriate servce 
for a full assessment. Ths  , sessions with a 
might be vocational rehabiltation
psychologist, a medical evaluation or treatment or a number of other servces. The 
participant remains in FIP as the primary servce and FIP works with the referral 
provider.
Pr 
Goals 
The FIP goals  term welfare dependent family to achieve self
include: assisting a long-
suffciency through permanent employment; discovering the barrers that may hinder 
the participant's progress towards permanent employment and eliminating or 
modifng  temporary support servces. 
those barrers; and to providing a system of 
These goals are achieved by: motivating participants to change their life style; 
encouraging them to improve and strengthen positive attitudes towards themselves and 
work; assessing clients' basic academic level, occupational skills and interests; 
preparing participants through education and training with continued support; and 
helping to ensure permanent employment with continued support for up to three years 
following enrollment in FIP. 
Cli Prfi

Clients in FIP have learning disabilities, substance abuse, hearing and visual 
impairments, physical problems such as low back pain, obesity, dental problems and 
emotional disorders. Many have multiple problems, often exacerbated by low self-
esteem. One staff respondent estimates that 20 percent of clients have a learning 
disabilty which has never been addressed before. According to many respondents 
having either poor teeth or no teeth is a major barrer, since it makes it more difficult 
for them to find a job. 
Progm Attutes

Clients cite as special features that make this program work: the chance to meet other 
women in the program and have a support group, and the accessibilty of the 
counselors, who "will go out on a limb for you" and are "nice and caring and make you 
feel good about yourself." Clients consider the follow-up essential - the feeling of 
someone being there. Program support continues for up to three years after 
graduation.  , "  , "

The staff feel that meeting program objectives and goals, within a supportive 
environment, and with constant one-to-one case counselor contact and continuing 
follow-up contributes to the success of this program. 
Oucome 
Intervewed clients all agree that the program is helping them. One reflects the 
feelings of all of those intervewed when she says  It turned my whole life around. I 
was doing nothing, going nowhere. Now I have a pretty exciting future ahead of me. 
Another states  It was a perfect opportunity for me." She said she had no skils, no 
teeth, no transportation, and now she has all of them. Another client became 
pregnant durig the beginning of the program so she would not have to continue, but 
then came back.

Maureen Johnson, Associate Director 
Contact Person:	
New Hampshire Job Training Council 
64B Old Suncook Road 
Concord, NH 03301 
603-228-9500  KEY EDUCATION, lNe. 
offe) 
Shrewsbur, New Jerey (home 
Ke Featues 
Thorough assessments 
KEV AS machine 
Client profie reports 
Career counselig 
Backgun 
Key Education, a private test-development company, contracts with several State 
county, and municipal agencies to conduct client assessments for diferent programs. 
It is currently assessing JOBS clients in Delaware. Their home office in Shrewsbury, 
New Jersey was visited in order to find out about their work with the Delaware JOBS 
clients. 
In 1977, Key Education created KEV AS (Key Education Vocational Assessment 
System), a self-administered, computeried screening process which measures a variety 
of skils, interests, and levels of functioning. The company adapts its assessment 
being tested. It can tailor the tests for 
system to the needs of the specifc group 
and for those who have never succeeded in an academic setting. 
iliterate clients 
Depending on the contract, Key Education either provides certified examiners for the 
assessments or trains designated agency personnel to administer tests and interpret 
data. 
Prgram Opeatin 
The assessment process involves three parts: wrtten tests, personal intervews, and 
the KEV AS machine, a special computer program. It takes clients about two to three 
hours to complete the assessment. 
The wrtten portion of the assessment evaluates the client s word knowledge, language 
usage skills, reading skills, and arithmetic and spacial problem solving skills. 
The personal intervew portion focuses on health and psychiatric history, education 
work history and goals, barrers to employment, existing disabilties, social skills 
interests and hobbies, and home life. Key Education trains its examiners to assess the 
reliability of the intervew information because clients may lie or have misconceptions. 
Examiners also look for signs, such as physical coordination problems or the wearing 
of too much perfume which might disguise the smell of alcohol, suggesting a possible 
substance abuse problem. If a client does not dress correctly for the weather, or has 
poor hygiene, it may indicate emotional problems.  The KEV AS machine, which lets the client work at her or his own pace, looks like an 
average tyewrter but is computeried. It guides the client through a battery of
exercises and tracks the results on a computer disk. 
The tests are both language and non-language based and measure the followig 
abilties: to retain information gathered through auditory channels; to learn through 
observation and then perform effectively; to perform repetitive manual tasks; to follow 
directions; and to lead. The system also tests for hearig impairments and color 
blindness. 
Other KEV AS features include: a hand-strength test to indicate general physical well-
being and development, and a test of the client s hand and foot response to light and 
sound to demonstrate upper and lower body functioning. 
The results of the wrtten tests and the personal intervews are input into to the

KEV AS machine to be scored. Each score is compared with the norm and placed on

, ranging from superior to impaired performance, to generate a functional

a scale
profile of the client.

Key Education researches the local labor situation to ascertain which companies are 
increasing staff, which employers are downsizing, and what jobs are in the local want 
ads. The data is input into the KEV AS machine. Then, taking interest and function 
into account, the machine tries to match the client profile to a job or a related work 
area. The staff at Key Education then suggest possible training if needed. If no 
match is found, the client is probably not ready for competitive employment. 
When Key Education examiners identify an impairment, they inform the agency staff 
which handles it; Key Education does not itself refer clients or provide supportive 
servces. 
Prm 
Goals 
Key Education aims to successfully assess client strengths, weaknesses and level of 
, it attempts to find the work environment to 
functioning. Based on the assessments
which the client is best suited. 
Cli Prfi 
The examiners at Key Education have identified many JOBS clients with impairments. 
One manager believes the most prevalent impairment in the JOBS population is 
learnng disabilties. She adds that "a disabilty rarely marches on its own - it is the 
nature of learning disabled people to have self-esteem problems because they have 
always been told that they are not tryng. This adds blame to the disabilty which 
II The KEV 
compounds the problem.  AS tests also have shown that many JOBS clients 
are physically weaker than the rest of the population.  Prm Attut 
At the end of the contract year Key Education produces a summary report for the 
agency givig all the testing results. It also provides aggegate statistical information 
about the assessed population, and highlights the tyical characteristics found. Key 
Education managers consider this data the most valuable part of their program 
because it allows agencies to better focus resources and to develop servces which 
respond to the needs of its population. It also assists in the development of local 
norms and other statistical material showig trends and changes in the population. 
Specific client profiles can be obtained from the data Key Education maintains. For 
example, an analysis of all clients who have been identified as substance abusers 
reveals a common functional profie different from the rest of the population. This 
profile may assist in identifng future clients with similar impairments. 
Oucome 
Key Education has been successful in matching clients with jobs they are most suited 
clients who are not ready to enter the job market and need 
for. It has identified those 
further servces. Also, it has provided aggregate data to help agencies better serve 
their client populations. 
Contact person:  Roseann M. Conlon 
Vice President 
Key Education, Inc. 
673 Broad St. 
Shrewsbury, NJ 07702 
800-25RJV AS 
(201) 747-0048 (in NJ)  LICY 
PROGRA 
Brgeton, New Jerey 
Key Featues 
Innovative teaching methods
Individualized instruction
Client support system
Staff dedication
Backgun 
Bridgeton is a small town of several thousand in Cumberland County, a rural region of 
southern New Jersey. The Literacy Program in Bridgeton provides servces under 
contract with the Job Training and Partnership Act (IT A) agency. Funded jointly 
with JOBS and IT A money, it has been in operation since March 1991. It currently 
, all were chosen because they scored below a fifth-
has ten participants grade reading 
level during the JOBS assessment process. 
Prm Opetin 
Clients spend between 15 and 30 hours per week in a literacy class, where they will 
remain until they achieve their GED. The class uses several innovative techniques 
including voice-activated computer instruction and a bar-code reading device which 
allows the student to hear what a word sounds like. In the morning clients take part 
in classroom instruction; in the afternoon they receive individual training and tutoring. 
Their homework includes reading three magazine articles per week and learning a 
required set of vocabulary words. Clients also meet with a counselor each week. 
Prgrm 
Goals 
The primary goal of the Literacy Program is to have clients achieve their GED. They 
are encouraged to take pride in their achievements. The program also hopes to teach 
clients how to successfully handle their problems and how to depend on themselves. 
Upon attainng their GED, they are able to enroll in regular ITP A vocational training 
programs and, hopefully, find meaningful employment. 
Prfi 
Clint 
Most clients have some barrer, aside from their low reading level, preventing them 
from becoming self-sufficient. Several have learning disabilities, emotional problems 
or substance abuse problems or a combination of these. Others are victims of 
domestic violence. The classroom instructor cites their lack of self-esteem, self-
motivation and coping mechanisms as additional barriers.  , ' 
, " 
Presently, various means are used to deal with clients' functional impairments. Those 
with drug or alcohol problems are referred to substance abuse treatment programs. 
Clients with emotional problems receive  impaired are 
counseling, and the learning 
The program is considering sending clients to 
given specialized classroom instruction. 
a local community college for formal learnng 
disabilty testing in the future. 
Al of the women in the program appear highly motivated. They feel that when they 
were in school, the educational system did not accommodate their particular needs. 
Now, as the program director states  We offer them an alternative. 
Pr 
Attut 
Both staff and clients believe the key factor contributing to the Literacy Program 
success is the classroom instructor, who acts not only as teacher but also as confidante 
students have her home phone number and she 
resource person and frend. All her 
often helps them with their problems. 
They also attribute the program s success to innovative teaching methods 
individualized instruction and staff dedication. Clients mention that they now have 
support from women in simiar situations, and they find that very helpful. 
Oucome 
Al of the program s clients are very enthusiastic about the program. They feel that it 
is not only going to help them get a job, but also that it is teaching them how to cope 
with their problems and gives them renewed confidence. Several mention that they
are setting a good role model for their children and can even help them with their 
schoolwork. One woman, who never finished school because of a learning disabilty, 
asserts  'Tis is a second opportunity for me. I'm not going to let it go. " All of the 
getting a GED and leaving welfare. Many 
clients have specific goals for their future: 
want to become nurses. 
Whle the Literacy Program has not yet graduated any clients, it has several women 
currently in the program who have particularly distinguished themselves. One has a 
laptop computer at home and puts in extra hours to complete her lessons and 
homework. She hopes to achieve her GED by the time her youngest child turns 18 
when she is no longer eligible for AFDC and the Literacy Program. 
Contact Person:  Charles Thomas 
JT A, 72 N. Pearl Street 
O. Box 1398 
Bridgeton, New Jersey 08302 
TEL: (609) 451-8920  MOST/M PROGRA 
Plean 
Mt.  Michigan 
Key Featues 
Intensive assessments 
Financial assistance 
Holistic approach 
Excellent staff coordination 
Backgun 
Isabella County is a largely rural area approximately 60 miles north of Lansing. The 
AFC 
Isabella County Department of Social Servces (DSS) administers  and does the 
initial intake for the JOBS component, Michigan Opportunity and Skills Trainng 
(MOST). DSS also contracts with Michigan Rehabiltation Servces (MRS) to refer 
clients who show signs of an impairment. These signs are identified either through the 
MOST orientation and assessment or through testing done in the local school system 
to MRS. About 300 people have since been served; currently 35 welfare recipients 
are enrolled. The program is fianced by a combination of local, State and Federal 
funds. 
The DSS created the partnership with MRS when they realized that many of their 
MOST clients were not equipped to find and stay with permanent employment. 
Although aware of some general employment barrers and impairments which might 
be immediately apparent during intake, DSS staff felt they did not know the clients 
well enough to identify and treat the barrers and impairments on an individual basis 
especially if the impairments were easily hidden. 
To help identify impairments DSS developed a contract with area schools to evaluate 
clients' aptitude, reading and math achievement, and personality through tests such as 
APTICOM, T ABE and 16PF. They discovered the most common impairment was 
emotional problems. Also, many clients had low intellectual functioning and learning 
disabilties. The DSS felt no community resource was adequately servng these clients 
because most agencies were "creaming" the best referrals, accepting only those with 
the greatest chance for success. 
Progm Opetin 
Clients referred to MRS go through another assessment so their impairments and 
strengths can be identified and an individual rehabiltation plan developed. This 
extensive assessment includes a face-to-face intervew with a counselor regarding the 
client s personal, educational, medical, vocational and social history. They also discuss 
existing psychiatric history and disabilties, if any.  , " , "  , "

The client undergoes a general medical examination, a psychological exam, evaluations 
by specialists when indicated, and evaluations of current work skills and psychological 
and emotional stamina testing. One counselor descnbes the assessment as 
comprehensive and adds  We don t leave anything unlooked at. 
Pr 
Gols 
The program s goal is to reduce or eliminate dependency on the public welfare system 
by helping people to acquire skis to be competitive in the labor market and to earn a 
wi 
living wage. The staff feels that some individuals  never be totally off welfare and 
wi always need some form of public assistance; they therefore try to "eliminate and 
II They also believe a program 
foster an 
reduce dependency.  lie theirs can 
understanding of rehabiltation and habiltation in the welfare system because, contrary 
to common belief, the whole welfare population is not able-bodied. 
Prfi 
Clint 
The MRS program classifes client impairments into three groups: emotional (58 
Once 
percent), physical handicaps (24 percent), and mental retardation (18 percent). 
their impairments are identifed, the clients are referred to supportive servces such as 
mental health counseling and work skills trainig. Isabella County benefits from being 
a small community in that coordination is tight, with no blind referrals or duplication 
of effort occurrg. 
Attut 
Prgrm 
The MRS/MOST staff attribute their success to the belief that everyone has a right to 
work and looks for reasons both outside and within the client to see why they are not 
workig. One counselor says  We studied and researched to get an idea of the 
direction we had to go. It is too simplistic to just put welfare clients into job training 
programs. They are on welfare for certain reasons that must be identified and 
addressed before they can be put in jobs." Another staff member adds  We invest the 
greatest amount of nurturing energy to this group with impairments. 
Other reasons for the program s success are that the staff is close-knit, having ongoing, 
daily communication; it works closely with clients and takes a holistic approach to 
, the program addresses the total needs of clients 
improving their quality of lie. Also
such as housing, transportation, and child care, and deals with the individual in her or 
his unique situation. 
The staff realizes there are no easy solutions and that the program s goals may only be 
achieved through long-term commitment, because some cases require effort over 
several fiscal years to be successful. Unfortunately, due to administrative and fiscal 
problems, this is the last year in which the special program between MOST and MRS 
will be operating.  , "

Ouome 
MOST/MS process feel it 
For the most part, the clients who have gone through the 
has helped them in some way. They especially appreciate the financial assistance 
costs, babysitting expenses, and school loans. 
they receive to defray transportation 
One client expresses the views of many in saying, "The program helped me get on my 
feet." Another reports  It pulled me out of my depression and gave me confdence in 
myself." However, another feels that although the program helped her get a job and 
find housing, it is too superfcial: it addresses current needs, but does not do enough 
to help clients maintain their confidence without the program s support. 
The program s success stories include one about a client who came to his intake 
intervew drunk but is now a counselor studying for his master s degree. Another is 
about a formerly homeless woman who completed college and achieved full-time 
employment. 
The program has been effective in that clients have been trained, employed, and 
moved off public assistance. Also, staff report that as a result of the program 
thorough assessment to reveal functional impairments, a substantial number of MOST 
clients have qualified for disabilty payments, particularly SSI. 
Ron Verhelle 
Contact Person: 
Rehabiltation Counselor 
Michigan Rehabiltation Servces 
2258 Enterprise Drive 
Mt. Pleasant, MI 48858 
(517) 773-5925  , " 
TEHONE
FOUR PROGRA 
We conducted telephone intervews with the directors of four additional programs as a 
way to learn about different approaches of helping functionally impaired clients. 
These approaches, highghted below, are other examples of special initiatives for 
identifng and helping functionally impaired clients. These are: the Family 
Development Self-Suffciency (FaDDS) Program in Iowa; Let s Help in Topeka 
Kansas; New Direction in Alegheny County, Pennsylvania; and Project Resolve in 
Omaha, Nebraska. Each of the four programs is JOBS-related. 
FAMILY DEVLOPMENT SELF-SUFFICIENCY PROGRA (FaDDS) 
Iowa 
The FaDDS program works on the premise that training and employment 
opportunities are not suffcient for clients who come from dysfunctional familes and 
who have functional impairments. They need additional help before they can avail 
themselves of these opportunities. The program manager states that the goal of the 
FaDDS program is to "enable familes to achieve a level of self-suffciency and family 
functioning (so that) they will remain independent from economic assistance for their
lifetime, thus breaking the cycle of ADC (welfare) dependence from generation to 
generation. 
The program is under contract with the Iowa Department of Human Rights, which in 
turn subcontracts with various non-profit organizations, community action agencies and 
county social servces to run the program on a local level. The program targets long-
term welfare recipients who have been on AFDC for two or more years. Once clients 
have undergone a thorough evaluation by a family development specialist in their 
homes, they may enroll in one or more program activities, including support groups 
self-esteem workshops and GED classes. Participation in FaDDS ranges from three 
months to three years. 
LET'S HELP 
Tope  Kansas
The goal in Let s Help is to "get everybody in Shawnee County work-ready, get 
everybody off of AFC with love and kindness . The program manager states  There 
must be a goal for these people. Learning to read will help to support the family. 
Let s Help, an adult education program, gets its referrals from the Kansas JOBS 
program. Let s Help offers a special learning program where JOBS clients have an 
individualized schedule geared to achieving basic skills or a GED. During the 
program, clients may work with an individual tutor, usually a volunteer, on a one-to-
one basis, or they may work independently if they prefer. During the whole process 
the JOBS worker and teacher coordinate closely with almost daily phone calls and 
with monthly reports. Participation in Let s Help lasts as long as it takes for clients to 
complete their goals.  , " 
NE DlRcrON
Allhe  Penlvan 
Coun, 
New Direction tries to address a client s barrers to employment before that client 
It works with the individual to move him or her towards self-
begins job training. 
sufficiency. Strong coordination exists with OVR to accommodate clients with 
functional impairents. 
New Direction, the JOBS program, is distinctive for its strong links with the Offce of 
Vocational Rehabiltation (OVR). In New Direction, an OVR counselor is actually 
part of the JOBS assessment team. This counselor evaluates clients for learning 
disabilties, illiteracy, psychiatric problems and substance abuse. If a client has one of 
these impairents, he or she is referred to OVR for an additional in-depth assessment 
and is then given specialized training and other remedial servces. 
PROJECT RESOLVE 
Omha Nebraka 
Project Resolve aims to assist clients in becomig self-suffcient. The program 
manager states  We teach them to advocate for themselves." Despite their 
impairments, clients are encouraged and supported in their efforts to leave welfare. 
AFC 
In Project Resolve, case managers choose  clients with personal problems 
and/or without a high school diploma to participate in the program. Many are long-
term welfare recipients. Clients enroll for 10 weeks, for an average of 16 to 18 hours 
per week. They participate in a variety of different activities including: GED classes; 
one-on-one counseling to develop a personal plan for their future; resource 
management, chemical dependency and domestic violence workshops; and emotional 
and physical health programs. Follow-up occurs at 30, 60 and 90 day intervals.  COMM 
The Assistant Secretary for Planning and Evaluation commented on the draft report. 
questions about terms used. Appropriate 
These comments included a few specific 
changes have been made in this final report.