Ǹ PARTNERING WITH FAITH-BASED and 

COMMUNITY ORGANIZATIONS: 

A Guide for State and Local Officials 

Administering Federal Block and 

Formula Grant Funds 

U.S. Department of Health and Human Services 

Center for Faith-Based and Community Initiatives 

• PARTNERING WITH FAITH-BASED and 

COMMUNITY ORGANIZATIONS: 

A Guide for State and Local Officials 

Administering Federal Block and 

Formula Grant Funds 

U.S. Department of Health and Human Services 

Center for Faith-Based and Community Initiatives 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

PREFACE
 

PREFACE 

Ǹ his guidebook is intended to provide Tpractical information on developing and 

enhancing partnerships with effective faith-based 

and community organizations (FBCOs) to State 

and local officials, and to tribes and tribal-serving 

organizations, that are administering federal block 

and formula grant funds. The underlying assumptions 

of this guidebook are that there are barriers to more 

active partnership between States and localities and 

FBCOs and that these barriers can be addressed. The 

information in this guide—presented in a questionand-answer format with references included—helps to 

identify the specific barriers that exist and implement 

a plan to overcome these barriers. Ultimately, this 

guidebook is intended to provide assistance in meeting 

the goals of administered grant programs and to equip 

State and local officials to serve low-income individuals 

in jurisdictions across the country through partnerships 

with effective FBCOs. 

It should be noted that the opportunities for 

increased service provision by FBCOs vary by the 

different block and formula grant funds. In addition, 

opportunities vary within States and localities depending 

on the organizational framework through which block 

and formula grant funds are administered. However, the 

general concepts described in this guide can be applied 

regardless of the funding stream under consideration. 

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TABLE OF CONTENTS 

ContEntS
 

PREFACE 3 

CONTENTS 5 

Section 1: BACkgROuNd iNFORmATiON 7 

part 1: the faith-based and community initiative ������������ 9 

part 2: charitable choice and 

equal treatment regulations �����������������������������������17 

part 3: funding issues������������������������������������������������������������������19 

Section 2: OvERviEw OF A STATE OR LOCAL STRATEgy 23 

part 1: process overview������������������������������������������������������������25 

part 2: acknowledging and anticipating issues��������������� 29 

Section 3: dEvELOPiNg AN APPROACh 33 

part 1: clarify the vision ����������������������������������������������������������35 

part 2: determine a structure to encourage and 

support the effort ��������������������������������������������������������37 

part 3: gather some basic information��������������������������������40 

part 4: assess barriers ��������������������������������������������������������������� 44 

part 5: target your efforts ����������������������������������������������������� 46 

Section 4: AddRESSiNg FuNdiNg iSSuES 49 

part 1: overview �������������������������������������������������������������������������� 49 

part 2: scope of the partnership���������������������������������������������53 

part 3: solicitation method ���������������������������������������������������� 54 

part 4: selection method ����������������������������������������������������������57 

part 5: financial considerations�������������������������������������������59 

part 6: accountabilty ����������������������������������������������������������������61 

part 7: monitoring prohibited activities��������������������������� 63 

Section 5: ENhANCiNg CAPACiTy 65 

part 1: faith-based and 

community organization capacity ������������������������� 67 

part 2: state and local capacity ������������������������������������������� 70 

Section 6: dEvELOPiNg AN OuTREACh STRATEgy 73 

part 1: developing information ��������������������������������������������75 

part 2: disseminating information ��������������������������������������� 76 

part 3: generating interest ��������������������������������������������������� 78 

Section 7: idENTiFyiNg OThER RESOuRCES 81 

part 1: state and local contacts��������������������������������������������83 

part 2: federal contacts���������������������������������������������������������� 84 

part 3: other resources ������������������������������������������������������������ 87 

NOTES 94 

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SECTION 1: 

BACKGROUND
 

INFORMATION
 

This section provides background 

information regarding the FaithBased and Community Initiative (FBCI) 

and explains why it is important for 

States and localities to develop their 

own strategy for helping faith-based and 

community organizations (FBCOs) access 

federal block and formula grant funds. 

In addition to being useful to State and 

local officials and program administrators 

in their efforts to better understand the 

FBCI, the information provided here can 

be used as source material for developing 

strategic communication regarding the 

Initiative at the State and local level. 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

BACkgROuNd 

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Part 1: 

tHE FAItH-BASED AnD CoMMUnItY InItIAtIVE 

In 2002, PresIdent GeorGe W. Bush estaBlIshed a FaIth-Based and 

CommunIty InItIatIve. 

QQ: What is the purpose of this initiative? 

AQ: The intent of the FBCI is to develop a comprehensive effort to enlist, equip, 

enable, empower, and expand the work of FBCOs� Some people erroneously 

think that the FBCI creates a preference for faith-based organizations (FBOs) 

over secular ones; however, inherent in the notion of leveling the playing field 

is the premise that all organizations – whether large or small, faith-based or 

secular – should have an equal opportunity to compete for government funds� 

The President’s aspiration is to ensure that the government awards funding to 

organizations that will do the best job� In other words, when the government 

and a faith-based or community organization talk about a potential partnership, 

the question should not be, “Who are you?” but rather, “What can you do 

to help?” 

It is also important to note that the FBCI does not specifically set aside dollars 

for FBOs within existing program appropriations� The FBCI seeks to provide 

equal opportunity for FBOs for all federal government programs, discretionary 

and otherwise, where the program statute provides that FBOs are eligible� 

The PresidenT’s Goal 

“The paramount goal is compassionate results, and private and charitable groups, 

including religious ones, should have the fullest opportunity permitted by law to compete 

on a level playing field, so long as they achieve valid public purposes, like curbing crime, 

conquering addiction, strengthening families and overcoming poverty.” 

-PresidenT GeorGe W. Bush 

QQ: What is the level playing field? 

AQ: One goal of the FBCI is to enable FBCOs to receive federal grants on the 

same basis as other organizations� This goal is critical to understanding the 

FBCI and is often referred to as “leveling the playing field�” The President has 

noted that, despite this country’s long tradition of honorable commitment 

to assisting individuals, families, and communities in need, too many people 

still suffer from poverty and despair� The role of faith-based and community 

groups in assisting these people is well established� Yet the manner in 

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which the federal government has structured its service delivery system has 

not always taken advantage of the wealth of experience these groups have 

garnered over the years� Making use of the experience of FBCOs is critical to 

achieving more positive outcomes for communities across the nation� 

QQ: What actions have been taken by the bush administration to 

promote the fbci at the federal level? 

AQ: Key steps include the following: 

Creation of the White House Office of Faith-Based and Community Initiatives 

– On January 29, 2001, the President issued an Executive Order creating the 

White House Office of Faith-Based and Community Initiatives (OFBCI)� One 

of its initial directives was to identify barriers that kept effective faith-based and 

community programs from serving Americans in need� The OFBCI issued its 

first report, “The Unlevel Playing Field: Barriers to Participation by Faith-Based 

and Community Organizations in Federal Social Service Programs,” in response 

to this directive in August 2001� It can be found at www.whitehouse.gov/news/ 

releases/2001/08/unlevelfield.html� 

Creation of Centers for Faith-Based and Community Initiatives – There are 

currently Centers for Faith-Based and Community Initiatives (CFBCI) housed 

within 11 Executive Branch Departments� The President established the first 

five Agency Centers through the Executive Order on January 29, 2001, at the 

Departments of Education, Health and Human Services, Housing and Urban 

Development, Justice, and Labor� Two more Centers—at the Department of 

Agriculture and the U�S� Agency for International Development—were created 

on December 12, 2002� On June 1, 2004, additional Centers were established 

in the Departments of Commerce and Veterans Affairs, and the Small Business 

Administration� The most recent Center was created in the Department of 

Homeland Security on March 27, 2006� 

Promotion of Equal Treatment Principles – On December 12, 2002, the 

President issued an Executive Order explaining that “[t]he Nation’s social 

service capacity will benefit if all eligible organizations, including faith-based 

and other community organizations, are able to compete on an equal footing 

for federal financial assistance used to support social service programs�” The 

order directed agencies to take steps to ensure that all policies (including 

guidance, regulations, and internal agency procedures) were consistent with 

this principle of equal treatment for faith-based and community organizations� 

Specifically, the Executive Order was designed to ensure that no organization 

is discriminated against based on religion, and that federally funded social 

services are available to all, regardless of religion� 

Elimination of Barriers to Funding – Federal agencies have eliminated 

regulatory barriers that have kept FBOs from partnering with the federal 

government to help Americans in need� The Department of Health and 

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Human Services (HHS) and other agencies have enacted regulations that 

ensure that FBOs are able to compete on an equal footing for federal 

funding within constitutional guidelines, without impairing the religious 

character of such organizations and without diminishing the religious 

freedom of beneficiaries� 

For example, HHS issued three final rules in 2003 implementing Charitable 

Choice laws for the Substance Abuse and Mental Health Services Administration 

(SAMHSA), the Temporary Assistance for Needy Families (TANF) program, 

and the Community Services Block Grant (CSBG) programs� The full text 

of all three rules can be found at www.hhs.gov/fbci/regulations/index.html. A 

detailed description of these and other rules can be found in SECTION 7 

under Other Resources� 

In 2004, several Federal Agencies, including HHS, issued final rules 

implementing Executive Branch policy that, within the framework of 

constitutional guidelines, FBCOs should be able to compete on an equal 

footing with other organizations for federal funding� All of these rules maintain 

the restriction that direct government funds are not to be used by FBOs for 

“inherently religious activities�” HHS’ final rule—which creates new language 

regarding equal treatment for FBCOs and revises the Department’s uniform 

administrative requirements— can be found at www.hhs.gov/fbci/waisgate21.pdf. 

A list of other agencies’ final rules can be found in SECTION 7 under 

Other Resources� 

To become familiar with the agencies’ final rules, visit the White House Office of 

Faith-Based and Community Initiatives’ Web site, which outlines the final rules 

and regulatory changes, at www.whitehouse.gov/government/fbci/reg-changes.html� 

Dissemination of Information About Grant Opportunities – Federal 

agencies have taken steps to ensure that information about funding 

opportunities is accessible to FBCOs� The actions taken by HHS are 

illustrative of those taken by other agencies and include the following: 

•	 Provision of “Plain Language” training for staff who write program 

announcements 

•	 Establishment of several Web sites that help FBCOs interested in applying 

for funding navigate information about grant opportunities and the 

application process 

•	 Development of a listserv through which members receive current 

information about grant opportunities and other program announcements 

•	 Release of documents designed to promote understanding of funding 

opportunities 

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Provision of Technical Assistance – Technical assistance has been provided 

to FBCOs through a variety of strategies� These strategies include, but are not 

limited to, the following: 

•	 The White House has sponsored a series of regional conferences to 

educate faith- and community-based organizations about the FaithBased and Community Initiative� The conferences have provided 

participants with information about the federal funding process, 

available funding opportunities, requirements that come with the 

receipt of federal funds, and cutting-edge practices from other 

organizations� Information about the conferences can be accessed at 

www.fbci.gov� 

•	 Within HHS, the Administration for Children and Families has sponsored 

Pre-Bidders conferences for programs where grassroots organizations are 

eligible, such as the Mentoring Children of Prisoners program; SAMHSA 

has coordinated and hosted the Grassroots Training and Technical 

Assistance Initiative, through which over 220 training and technical 

assistance opportunities have been provided across the country; and the 

Health Resources and Services Administration (HRSA) and the Centers 

for Disease Control and Prevention (CDC) have organized teleconferences 

to highlight the accomplishments of FBCOs in rural areas� Information 

about training opportunities is provided in the weekly listserv distributed 

by the HHS Center for Faith-Based and Community Initiatives� More 

information about training opportunities across the Federal government is 

available at http://www.whitehouse.gov/government/fbci/technical-assistance.html� 

•	 HUD has conducted a series of two-day Intensive Grant Writing Training 

Workshops designed to train nonprofit organizations how to secure federal 

and private funding� Information about the trainings can be accessed at 

www.hud.gov/offices/fbci/4thtraining.cfm� 

•	 The Department of Education produced a webcast intended to help 

FBCOs apply to become approved providers of supplemental services� 

The webcast can be accessed at www.connectlive.com/events/supplemental� 

Establishment of Intermediaries – The Compassion Capital Fund (CCF), 

launched in 2002 by President Bush, helps FBCOs increase their effectiveness 

and enhance their ability to provide social services to those most in need� One 

component of CCF is the Demonstration program, which funds intermediary 

organizations that serve as a bridge between the federal government and small 

FBCOs by providing FBCOs with training, technical assistance, and capacitybuilding sub-awards� Additional information about CCF can be found in 

SECTION 5 of this document� 

Implementation of Pilot Programs – Federal agencies have also 

implemented pilot programs designed to serve as models for increasing the 

participation of FBCOs in the provision of services� For example, 

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•	 In its first six years, the CCF awarded $264 million in grants, including 

112 grants to intermediary organizations, 4,100 sub-awards from those 

intermediaries to grassroots nonprofits, 131 Communities Empowering 

Youth grants, and 993 mini-grants� Additionally, four research grants 

were awarded in the program’s first year� More information about the 

CCF is available at http://www.acf.hhs.gov/programs/ocs/ccf/� 

•	 In 2003, President Bush launched the Mentoring Children of Prisoners 

(MCP) program, which focused on providing new mentors for a portion 

of the two million children with one or more parents in prison� FBCOs 

that work with these children in a variety of settings are eligible to apply 

for these funds� Since the program’s inception, approximately $190 million 

has been awarded to 320 grantees� These funds provide new mentors to 

children and youth of incarcerated parents� At the beginning of 2008, 

over 88,000 children have been matched with mentors committed to 

serving, encouraging, and positively impacting these at-risk youth� More 

information about MCP is available at http://www.acf.hhs.gov/programs/fysb/ 

content/youthdivision/index.htm#sub1� 

•	 Access to Recovery program (ATR), announced by President Bush in 2004, 

works to expand capacity, support client choice, and increase the array of 

faith-based and community based providers available to individuals seeking 

drug treatment through clinical treatment and recovery support services� 

Through ATR grants, States and federally recognized tribes have flexibility 

in designing and implementing voucher programs to meet the needs of 

clients in their jurisdictions� In Fiscal Year 2004, $100 million was awarded 

to 14 States and one tribal organization to extend drug treatment to more 

Americans, allowing them a choice of providers that includes FBCOs� These 

grantees enabled ATR to serve over 206,000 clients during its first three years� 

In Fiscal Year 2008, HHS continued the ATR program and awarded $98 

million to 18 States, five tribal organizations, and the District of Columbia� 

More information about ATR is available at http://atr.samhsa.gov/� 

•	 President Bush announced his four-year Prisoner Re-entry Initiative 

(PRI) during his 2004 State of the Union address� This $115 million 

program, jointly funded by the Department of Labor and the Department 

of Justice, places FBCOs at the center of social service delivery to exoffenders� The PRI is designed to strengthen communities through local 

employment-focused programs that incorporate housing, mentoring, job 

training, and other comprehensive transitional services� The Department 

of Labor awarded PRI grants in November 2005 to 30 sites across the 

country for post-release services� Shortly thereafter the Department 

of Justice awarded PRI grants to 20 state prison systems for pre-release 

services for state and local inmates� PRI sites work to reduce recidivism 

in their communities by helping returning, non-violent prisoners find 

work, stable housing, and other supportive services� As of April 11, 2008, 

12, 976 PRI participants have been enrolled in the program and 8,022 

participants have been placed into jobs� The one-year recidivism rate of 

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PRI participants is less than half the national average� More information 

on PRI is available at http://www.whitehouse.gov/government/fbci/pri.html as 

well as http://www.reentry.gov/� 

•	 Communities Empowering Youth (CEY) was created as part of the President’s 

Helping America’s Youth Initiative, announced in the 2005 State of the Union 

Address and led by First Lady Laura Bush� Working under the umbrella of 

the Compassion Capital Fund, CEY provides funding to strengthen existing 

community coalitions working to combat gang activity, youth violence, and 

child abuse and neglect, and providing positive alternatives for at-risk youth� 

Since 2006, $60 million has been awarded to 131 organizations to build the 

capacity of their coalitions, better enabling them to reduce youth violence in 

communities across the country� More information about CEY is available at 

http://www.acf.hhs.gov/programs/ocs/ccf/� 

QQ: What does the fbci have to do With state and local officials? 

AQ: Federal statutes govern how State and local governments administer federal block 

and formula grant funds� Charitable Choice and Equal Treatment Regulations 

apply to block grant and formula funds and extend the principles of the FBCI 

to the State and local level� These enable State and local governments to better 

serve those in their jurisdictions through partnerships with effective grassroots 

organizations, including religious organizations� Additional information about 

these regulations and Charitable Choice can be found in Part 2 of this section� 

These federal requirements obligate State and local governments to ensure a 

level playing field so that all of the best organizations available to accomplish 

the program purposes—whether faith-based or community service 

organizations—are eligible to do so� 

For example, in 2006 HHS—which administers approximately 60% of the 

federal government’s grant dollars—awarded approximately 90% of its 

funding through mandatory grants� 1

1 http://taggs.hhs.gov/annualreport/FY2006/overview/index.cfm 

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DISCRETIONARY

BACkgROuNd 

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10%

BLOCK/FORMULA

90%

Although compliance with HHS regulations is required, that is not the focus 

of this guide� The purpose of this guide is to provide general guidance about 

how States and localities can enhance their social service delivery systems by 

establishing partnerships with effective FBCOs� 

QQ: have offices similar to the 11 federal centers for faith-based and 

community initiatives been established on the state and local levels? 

AQ: At least 35 States have either an office or a liaison for FBCOs in the 

governor’s office, a State agency, or a governor-appointed foundation� A list 

of these can be found at www.whitehouse.gov/government/fbci/contact-states.html� 

Similar offices or liaisons are also being established at county and city levels 

throughout the United States� 

QQ: hoW Will pursuing this strategy benefit my oWn state or locality? 

AQ: FBCOs exhibit a strong connection to the individuals they serve and possess 

a deep understanding of the needs in their community� When State and 

local governments work to level the playing field for these groups, they will 

begin to identify the unique resources that FBCOs can offer to beneficiaries 

of their services� 

“Faith [and community]-based programs can help governors and mayors achieve the 

common goal that we all share, which is a hopeful America for every single citizen. That’s 

an important objective of this administration.”

 – PresidenT GeorGe W. Bush 

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QQ: hoW does the fbci and the information in this guide relate to tribes 

and tribal serving organizations? 

AQ: Similarly to State and local programs, tribes and tribal organizations receive 

federal funding and can promote partnership opportunities with FBCOs� In 

fact, multiple tribal organizations have participated in key programs associated 

with the FBCI that encourage participation from FBCOs� Many tribes and 

tribal entities have successfully competed for funding and partnered with 

programs including the Compassion Capital Fund and Access to Recovery, 

both of which support the involvement of FBCOs� Similar to the work of these 

programs, it may be possible for tribes and tribal entities to implement many 

of the concepts and ideas described in this guide� Tribes and tribal entities 

should check with their federal programs officers and potentially consider legal 

counsel to learn about any special requirements or considerations that may 

need to be taken into account� 

QQ: Where can i find additional background information? 

AQ: A good place to start is the White House Office of Faith-Based and 

Community Initiatives Web site at www.fbci.gov� This site also lists the 

Executive Branch Agency Centers for Faith-Based and Community 

Initiatives Web sites� All these sites provide links to other resources and 

organizations that can provide additional information� 

Ten reasons To ensure a level PlaYinG Field For FBCos 

•	 FBCOs are local – they know people in the neighborhood. 

•	 Many FBCOs have the ability to focus on specific issues. 

•	 FBCOs have an ongoing concern for the community, and have demonstrated their 

ability to respond to the needs of their community. 

•	 Many FBCOs are already on the front lines of addressing issues such as poverty. 

•	 FBCOs can provide access to underserved communities. 

•	 FBCOs have pre-existing credibility and can foster trust. 

•	 FBCOs know the community and can help identify its issues. 

•	 Many FBCOs encompass broad networks of volunteers. 

•	 FBCOs are often aware of an entire family’s situation, and can respond to needs in a 

holistic fashion. 

•	 FBCOs open access to services by providing individuals more choice. 

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Part 2: 

CHARItABLE CHoICE AnD EQUAL tREAtMEnt 

REGULAtIonS 

QQ: What is charitable choice? 

AQ: These provisions require that eligible charitable, religious, and other 

private organizations be permitted to compete on the same basis as other 

organizations for federal funding under certain programs without having to 

alter their religious character or governance� Congress first enacted Charitable 

Choice provisions with the passage of the Personal Responsibility and Work 

Opportunity Reconciliation Act (PRWORA) in 1996 which authorized the 

TANF program� Subsequently, Charitable Choice provisions were enacted in 

relation to programs authorized by the Community Services Block Grant Act, 

the provisions of the Public Health Service Act that apply to the Substance 

Abuse Prevention and Treatment (SAPT) Block Grant program, the Projects 

for Assistance in Transition from Homelessness (PATH) formula grant 

program (affecting recipients providing substance abuse services under the 

program), and SAMHSA discretionary grants for substance abuse treatment 

or prevention services� 

Although the specifics of Charitable Choice differ from program to program 

in general, under Charitable Choice, religious groups receive federal funds 

from the programs to which these rules apply: 

•	 Retain authority over their mission and governing board 

•	 Have the right to keep religious symbols in their facilities 

•	 Retain the right to use religious criteria in employment decisions (in 

certain cases, this right is not automatic; where a provision prohibiting 

the use of religious criteria in employment decisions is applicable, there 

must be a showing of substantial burden on the free exercise of religion) 

•	 Must offer their federally funded services to all eligible participants 

regardless of their religious affiliation (or lack of affiliation)
 

•	 Must not use direct government funds for inherently religious activities 

such as worship, religious instruction, or proselytization, must separate 

such activities from government-funded activities by time or location, 

and must not require service recipients to participate in religious activities 

It is also important to note that under the SAMHSA and TANF Charitable 

Choice provisions, if a client objects to receiving social services from a faithbased provider that is directly funded by the government, the responsible unit 

of State or local government must ensure that she/he has the opportunity to 

obtain comparable assistance, in a timely manner, from other organizations 

that are reasonably accessible� 

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QQ: What are the hhs equal treatment regulations and hoW are they 

like charitable choice? 

AQ: In July 2004, HHS finalized regulations to make clear that, within the 

framework of constitutional guidelines, FBOs should be able to compete on 

an equal footing with other organizations for HHS funding without impairing 

the religious character of their organizations� These regulations implement 

the principles that President Bush set out in a 2002 Executive Order applying 

to all federal funds� The Executive Order was entitled “Equal Protection of the 

Laws for Faith-Based and Community Organizations,” and can be found at 

www.whitehouse.gov/news/releases/2002/12/20021212-6.html. 

The principles set out in the Executive Order and the Equal Treatment 

Regulations contain many of the same principles found within the Charitable 

Choice regulations� For example, they all prohibit discrimination for or 

against an organization on the basis of religion, prohibit discrimination 

against beneficiaries by an organization that receives direct government 

funds, state that direct federal funds cannot be used for inherently religious 

activities such as worship, religious instruction, or proselytizing, and 

require that any inherently religious activities offered must be voluntary 

for federal program beneficiaries and separated by time or location from 

the government-funded activity� The Equal Treatment regulations can be 

accessed at www.hhs.gov/fbci/regulations/index.html� 

QQ: What have the courts said about the concept of charitable choice? 

AQ: The principles reflected within the Charitable Choice statutes and 

regulations reflect U�S� Supreme Court decisions issued over the years� 

However, no court opinion has directly addressed the Charitable Choice 

statutory provisions� 

QQ: Where can additional information about charitable choice and 

the equal treatment principles advanced by the faith-based and 

community initiative be found? 

AQ: General information on the FBCI and the principles that apply to the 

distribution of federal funds can be found at www.fbci.gov� Additional 

information about Charitable Choice can be found on the White House 

Web site as well as the HHS Web site at www.whitehouse.gov/government/fbci/ 

guidance/charitable.html and www.hhs.gov/fbci/regulations/index.html� 

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Part 3: 

FUnDInG ISSUES 

BACkgROuNd 

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QQ: is it constitutional to provide federal block and formula grant 

funds to religious organizations? 

AQ: Court decisions over the past two decades have been characterized by an 

approach that emphasizes government neutrality towards, or equal treatment 

of, religious organizations� This approach encourages the government to 

treat all applicants equally, whether they are religious or secular� 

Although FBOs are just one type of community organization, some specific 

constitutional concerns apply when FBOs receive government funds� FBOs 

may not use direct government support for inherently religious activities�2 

As noted in the discussion of Charitable Choice, this means that no part of 

a direct federal grant can be used for inherently religious activities such as 

worship, religious instruction, or proselytization� Instead, organizations may 

use these direct government funds only to support the nonreligious services 

they provide� FBOs that receive direct government funds must take steps to 

separate, in time or location, their inherently religious activities from the 

government-funded services they offer� These inherently religious activities 

must also be both voluntary and privately-funded� Therefore, organizations 

should carefully account for their use of all government funds� 

These restrictions vary if funds are provided in the form of “vouchers” or 

other forms of indirect aid� For example, a voucher—sometimes called a 

certificate—allows an individual to have a genuine and independent choice 

among eligible service providers so that the individual, not the government, 

selects the provider� The State or local government then issues payment 

directly to or on behalf of the eligible individual for services, based on the 

individual’s determination of where she/he chooses to receive services� 

Vouchers are flexible enough to allow the funds to follow the individual to 

any participating provider they select, including faith-based providers� Faithbased providers using the voucher may retain the religious nature of their 

services—including the religious instruction and worship� This is in contrast 

to direct funding, mentioned above, in which any religious instruction 

or worship must be privately funded, voluntary, and separate in time or 

location from the government-funded service� 

2 as used in this context, the term “direct funds” refers to direct funding within the meaning of the 

establishment Clause of the First amendment. For example, direct funding may mean that the government or 

an intermediate organization with similar duties as a governmental entity under a particular program selects an 

organization and purchases the needed services straight from the organization (e.g., via a grant or cooperative 

agreement). in contrast, indirect funding scenarios may place the choice of service provider in the hands of a 

beneficiary, and then pay for the cost of that service through a voucher, certificate, or other similar means of 

payment. 

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BACkgROuNd 

iNFORmATiON 

QQ: does the receipt of federal funding affect the Way in Which faithbased organizations hire employees? 

AQ: There is no general federal law that prohibits FBOs that receive federal funds 

from hiring on a religious basis� Nor does Title VII of the Civil Rights Act of 

1964, which applies regardless of whether an organization receives federal 

funds, prohibit FBOs from hiring on a religious basis� Federal Law protects 

Americans from employment discrimination based on race, color, religion, 

sex, national origin, age, and disability� However, Title VII of the Civil Rights 

Act also recognizes the fundamental rights of religious organizations to 

hire employees who share their religious beliefs� The United States Supreme 

Court unanimously upheld this special protection for faith-based groups 

in 1987� Thus, for instance, a Jewish organization may decide to hire only 

Jewish employees, a Catholic organization may decide to hire only Catholics, 

and so on, without violating the Civil Rights Act� 

This special provision for faith-based groups protects the religious liberty 

of communities of faith� It permits faith-based groups to promote common 

values; a sense of community and unity of purpose; and shared experiences 

through service—all of which contribute to a religious organization’s 

effectiveness–without violating Title VII of the Civil Rights Act� In order 

for a religious organization to define or carry out its mission, it may be 

important that it be able to take religion into account in hiring staff� Just 

as a college or university can take the academic credentials of an applicant for 

a professorship into consideration in order to maintain high standards, or an 

environmental organization can consider the views of potential employees 

on conservation, so too should an FBO be able to take into account an 

applicant’s religious belief when making a hiring decision� 

It should be noted, however, that while in general an FBO retains this 

religious hiring autonomy even if it receives federal assistance, certain federal 

laws and regulations may place independent conditions on the receipt of 

specific government funds� For example, a number of federal programs are 

subject to additional civil rights provisions in the laws authorizing these 

programs� Questions about the applicability of specific statutory provisions 

to particular grantees or activities should be addressed by counsel to the 

religious organizations� 

QQ: Where can additional information about funding and fbcos be found? 

AQ: Most of the existing information about funding is directed toward FBCOs 

seeking federal funding� For example, the following are some White House 

publications that provide funding information for FBCOs: 

•	 The White House Office of Faith-Based and Community Initiatives’ 

Grants Catalogue highlights over 150 programs for which FBCOs are 

eligible� This catalogue can be accessed at www.whitehouse.gov/government/ 

fbci/grants-catalog-index.html� 

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BACkgROuNd 

iNFORmATiON 

•	 Guidance to Faith-Based and Community Organizations on Partnering 

with the Federal Government can be accessed at www.whitehouse. 

gov/government/fbci/guidance/index.html�This booklet provides valuable 

information on frequently asked questions about the federal grant 

system, “dos and don’ts” for faith-based organizations, and more� 

•	 Protecting the Civil Rights and Religious Liberty of Faith-Based Organizations: 

Why Religious Hiring Rights Must Be Preserved can be accessed at www. 

whitehouse.gov/government/fbci/booklet.pdf� 

In addition, the Federal Agency Centers have developed information 

relevant to FBCOs and their participation in federally funded programs� 

Their contact information is listed in SECTION 7 of this document� 

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SECTION 2: 

OVERVIEW OF A STATE OR 

LOCAL STRATEGY 

This section provides an overview of steps to consider in implementing a State or 

local strategy to level the playing field for 

faith-based and community organizations 

(FBCOs) around federal block and formula 

grant funds. It also discusses some of the 

challenges and issues that may arise in 

pursuing such a strategy. 

 

 

 

 

 

 

 

 

 

 

 

 

 

Part 1: 

PRoCESS oVERVIEW 

OvERviEw OF STATE ANd 

LOCAL STRATEgy 

QQ: What steps should be taken to implement a strategy for leveling 

the playing field for faith-based and community organizations? 

AQ: Several key steps can be taken at the State or local level to establish an agenda 

in this area� However, before undertaking any initiative or proceeding to 

review the efforts already underway, become familiar with the Charitable 

Choice and Equal Treatment Regulations – outlined in SECTION 1 of this 

publication – to ensure that FBCOs can compete on an equal footing with 

other organizations for federal funding� Compliance with these regulations is 

required, and can be used as foundational principles in the development of an 

overall strategy� If regulations seem difficult to understand, consider seeking 

additional advice from legal counsel before proceeding� 

Once there is a firm grounding in the relevant federal requirements, begin 

developing a plan for your own efforts� Although additional details necessary 

to implement these steps will be reviewed in subsequent sections, the following 

is intended to provide an outline and a “big picture” sense of the endeavor� 

oPeninG uP The ProCess: Four KeY sTePs 

•	 Develop an Approach 

•	 Address Funding Issues 

•	 Enhance Capacity 

•	 Develop an Outreach Strategy 

Develop an Approach - The initial steps to take in embarking on your own 

effort in this area are listed here and detailed in SECTION 3� They do not 

have to be taken sequentially, but all steps should be considered to ensure all of 

the relevant issues are covered: 

•	 Clarify the vision� 

•	 Determine a structure to encourage and support the effort� 

•	 Gather some basic information, including information about the extent 

to which FBCOs have been involved in the provision of services in the 

past and the extent to which this involvement continues� Also consider 

assessing the community to gain a better understanding of the context of 

the surrounding area� 

•	 Assess barriers to partnerships with FBCOs� 

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OvERviEw OF STATE ANd 

LOCAL STRATEgy 

Address Funding Issues –The effect of developing and institutionalizing 

a competitive funding process can be far-reaching� Different ways of 

approaching the funding process can make it easier or harder for FBCOs 

to compete for funds� Remember, the point is to level the playing field, so 

looking for opportunities to eliminate barriers to participation is important� 

Further discussed in SECTION 4, the key factors to consider include: 

•	 Scope of the partnership – specific tasks vs� broad responsibilities 

•	 Solicitation method – sole source, competed contract, or subcontract 

•	 Selection method – process (person or committee process; single or 

multiple review level; paper only or bidders’/vendors’ conference) and 

criteria (cost only, qualifications only, or joint cost-qualifications) 

•	 Financial considerations – nonfinancial mechanisms for roles and 

responsibilities; fixed payment mechanisms; time and materials 

mechanisms; referral-based mechanisms; results-based mechanisms; 

and penalty provisions 

•	 Accountability – assuming responsibility for the results of the funding as 

well as the use of federal funds in question 

Enhance Capacity - Even with the best financial strategy in place, the issue 

will arise as to the extent to which FBCOs have the capacity—in terms of 

service provision and administration—to provide the needed services and 

operate within established guidelines� Although this guide is not intended 

to provide the tools needed to help develop FBCO capacity, examining how 

capacity—both within FBCOs and within your organization—affects the 

ability to include FBCOs as service providers may need to be considered� 

Additional information on this subject is included in SECTION 5� 

Develop an Outreach Strategy - FBCOs will not be able to compete if 

they lack knowledge about the funding opportunities that exist in the 

administration of funds� Therefore, it is important to consider developing 

and disseminating information regarding these opportunities, tailored to 

the specific funding strategies chosen� In addition, although it may not be 

apparent, a key audience for this information will be individuals internal 

to your organization, as this may be a new way of thinking for them� Also, 

consider whether it is necessary to provide information to other audiences, 

such as State and local elected officials� If so, an outreach strategy for those 

audiences should also be developed� 

Finally, it is important to generate interest and reach out to FBCOs to 

participate in providing services funded by federal block and formula grants� 

Information on developing an outreach strategy for FBCOs is included in 

SECTION 6� 

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OvERviEw OF STATE ANd 

LOCAL STRATEgy 

one sTaTe’s overall Plan
 

alasKa’s overall Plan inCludes The FolloWinG sTePs:
 

1.	 Set a Faith-Based and Community Initiative (FBCI) as a priority on the Governor’s 

policy agenda. 

2.	 Provide the public with an opportunity to comment on the plan to promote faithbased and community partnerships with the State of Alaska. 

3.	 Create and convene a task force comprised of FBCO representatives from around the 

State. 

4.	 Establish FBCI contacts within each of the Executive Branch Agencies and designate 

them as ex-officio members of the FBCI Task Force. 

5.	 Establish and fill an FBCI Coordinator position within the Department of Health and 

Social Services (DHSS). 

6.	 Establish FBCI contacts within each division of DHSS. 

7.	 Assess the gaps and needs in social services programming. 

8.	 Learn which services are currently provided by faith-based and community 

organizations. 

9.	 Identify faith-based and community programs that have a reputation for quality 

programming and assess what factors contribute to their success and effectiveness. 

10.Promote FBCI through a statewide conference. 

11. Review statutes, regulations, and policies, to identify barriers that impede the 

effectiveness or expansion of faith-based, community, and State organization 

partnerships. 

12. Make policy and regulatory changes as allowed and recommend changes to statutes 

to the Legislature. 

13.Establish ongoing evaluation, planning, and implementation. 

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OvERviEw OF STATE ANd 

LOCAL STRATEgy 

QQ: does it make sense to have a long-range plan as Well as a 

short-range plan, considering the length of time it may take to 

transform the manner in Which federal funds are distributed and 

services provided? 

AQ: At every stage of the process, it is recommended that States and localities 

develop both long- and short-range plans in order to demonstrate success� 

Long-range plans do not provide quick outcomes, and the success of a new 

initiative can depend on demonstrating results in the short-term� To show 

results in short order, look for environments that present the opportunity 

for immediate success and provide hands-on technical assistance in those 

areas to establish a good track record� Success environments could be within 

a program, or within a particular service delivery area, such as a county� In 

either case, a targeted effort could result in a “winning story” that clearly 

demonstrates how, when the playing field is leveled, and FBCOs participate 

fully in terms of service delivery, participants can achieve positive outcomes, 

benefiting themselves and society as a whole� 

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OvERviEw OF STATE ANd 

LOCAL STRATEgy 

PARt 2: 

ACKnoWLEDGInG AnD AntICIPAtInG ISSUES 

In addItIon to some oF the leGal Issues that have Been addressed 

By the Courts, several other Issues may arIse When attemPtInG to 

level the PlayInG FIeld For FBCos. the FolloWInG reFleCt some oF 

the questIons that may arIse. 

QQ: aren’t fbcos already significantly relied upon provide social 

services? 

AQ: FBCOs do have a long history of providing essential services to people in need 

throughout the United States� HHS has funded programs through grants and 

cooperative agreements� Without these relationships, government would be 

far less effective in serving our country’s most vulnerable people� 

The Faith-Based and Community Initiative (FBCI) is founded on the premise 

that government can build on these partnerships by expanding opportunities 

for other nongovernmental providers that may be smaller and less known than 

those who already provide services� These lesser-funded, neighborhood-based 

groups often bring valuable experience and skills, dedication to the service 

of others, and the cultural knowledge needed to address some seemingly 

intractable problems� The FBCI seeks to give these groups equal opportunity to 

access federal opportunities to partner with the all levels of government if they so 

choose, without diminishing their faith-based and community-based identities� 

QQ: What services should be funded through fbcos? 

AQ: Any services considered appropriate for contracting in general are appropriate 

for contracting with FBCOs� As in any other contracting effort, the following 

concepts should be taken into consideration: 

•	 Scope – broad services vs� targeted (narrow) services (e�g�, extensive case 

management vs� a niche component like transportation, mentoring, child 

care, or parenting classes) 

•	 Scale – large or small, guaranteed number of participants or participant 

fluctuation 

•	 Population served – recruitment by provider or as referred by other agencies 

It should be noted, however, that some FBCOs at the grassroots level may 

be better prepared to provide niche services (e�g�, transportation, child care, 

counseling) rather than a more comprehensive approach to service delivery (e�g�, 

case management)� Other FBCOs are among the largest, most experienced social 

service organizations in the country and have extensive capacity to provide 

myriad services (including case management�) 

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OvERviEw OF STATE ANd 

LOCAL STRATEgy 

QQ: What is the best structure for funding mechanisms to encourage 

the participation of fbcos? 

AQ: There are many different options, including direct contracts and 

subcontracts� These options are discussed in SECTION 4 of this guide� 

QQ: hoW Will risk be managed and accountability maintained? 

AQ: Partnering with nontraditional providers, including FBCOs, does not mean 

accountability must be compromised� In fact, the purpose of expanding 

partnerships with FBCOs is to make sure that every available resource is used 

to provide the best quality services to those in need� However if you have no 

prior experience working with grassroots organizations, it is important to 

carefully consider whether any modifications to the current approach are in 

order� Consider the following: 

•	 Monitoring and oversight strategies, including the use of dedicated staff 

•	 Payment and incentive strategies 

•	 Value-added reporting and audits 

•	 Coordination of internal staff so that technical assistance, fiscal, and 

accountability efforts are complementary and reduce duplication 

QQ: do fbcos have the capacity to provide the desired services? 

AQ: Consideration will need to be given as to whether there exists, within the 

community, capacity to provide the services for which funding is provided 

and, if not, whether an investment will be made to ensure that capacity exists� 

It should not be assumed that the simple provision of funding will result in 

positive outcomes for participants if an organization does not have the initial 

capacity to provide the given service(s)� Additional information on this topic is 

included in SECTION 5 of this guide� 

QQ: What if the provider We currently Work With opposes our 

consideration of other partners? 

AQ: Since much of the funding that FBCOs are encouraged to compete for has, 

in the past, been distributed to other organizations, this issue may arise� It is 

important to anticipate this concern and be prepared to respond� Emphasize 

the need to level the playing field and that ultimately the best provider of 

the service needed for the population in question will be selected� The goal 

of these new efforts is to ensure that those in need receive effective services 

from the most competent providers� This is a laudable goal, and if the existing 

providers agree, they need not fear additional competition� Though there are 

some notable exceptions, no single agency has an exclusive right to receive 

federal block and formula grant funds� 

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SECTION 3: 

DEVELOPING AN 

APPROACH 

This section provides State and local officials with additional details 

about the first steps that need to be taken 

in order to establish a Faith-Based and 

Community Initiative (FBCI). Key 

concepts to consider when creating an 

FBCI include clarifying the overall vision, 

determining what form the FBCI should 

take, and working towards addressing 

and eliminating barriers that faith-based 

and community organizations (FBCOs) 

may confront. The steps listed in this 

section are intended to shed light on many 

relevant issues when considering an FBCI. 

 

 

 

 

 

 

PARt 1: 

CLARIFY tHE VISIon 

dEvELOPiNg AN 

APPROACh 

QQ: Why is it important to clarify the vision? 

AQ: It is important to identify and agree on a vision and purpose as well as a 

definition of success� Although this is an essential part of embarking on 

any new initiative, it is critical to the FBCI� The FBCI seeks to expand 

partnerships with and strengthen all effective service organizations—both 

faith- and community- based� Considering every available resource is 

important in fighting poverty and despair, and ensuring that government 

funding achieves results is a common sense goal� Thus, it is important to be 

clear about the vision from the very beginning� 

QQ: What are some tips for clarifying the vision? 

AQ: In clarifying the vision, it may be helpful to create a list of possible goal 

statements that are both memorable and measurable� It is recommended 

that the final list of statements be limited in number to ensure a clear line 

of sight for the vision� 

examPles oF Goal sTaTemenTs 

•	 Identify and address unmet needs in order to strengthen families. 

•	 Identify and address opportunities to promote employment and self-sufficiency. 

•	 Provide better responsiveness to community needs. 

•	 Mobilize residents or members as volunteers for service delivery. 

•	 Leverage the strong desire to serve others. 

•	 Provide for physical presence in targeted neighborhoods. 

•	 Build better partnerships and relationships at the community level that will provide 

both current and future benefits. 

•	 Increase direct services being developed and delivered at a grassroots level. 

•	 Increase outreach at a grassroots level. 

•	 Improve the quality of life at individual and community levels. 

•	 Positively impact the infrastructure of neighborhoods and communities. 

•	 Ensure equal access for FBCOs to provide services. 

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dEvELOPiNg AN 

APPROACh 

QQ: What action steps can help emphasize the vision? 

AQ: In developing the vision and beginning to implement the FBCI, several 

process steps may emerge that technically may not be necessary, but could 

be taken to reinforce the vision� For example, financial reform may or may 

not be needed to comply with Charitable Choice and Equal Treatment 

Regulations, but it could send a potent message to internal stakeholders and 

staff about the importance of ensuring these regulations are followed� In 

addition, the enactment of a State law or an Executive Order can be used not 

only to create a structure to support and sustain the effort, but also to send 

an extremely powerful message internally and externally about the vision 

and the public policy commitment made to ensure this vision is fulfilled� 

QQ: What are some other issues to consider in thinking about the vision? 

AQ: In thinking about the vision, several other issues ought to be considered, 

including: 

•	 Whether this effort should integrate, coordinate, complement, or be 

complemented by other initiatives or efforts�
 

•	 The degree to which more, fewer, or the same resources will be available 

to support this effort� 

•	 The role and involvement of various internal and external stakeholders, 

including any oversight or advisory group or task force, as conveners, 

partners, supports for capacity building, etc� 

•	 The best mechanism to articulate clear expectations and opportunities for 

interested stakeholders� 

•	 The ways to build knowledge and opportunities for training and 

technical assistance�
 

•	 The selection of the “sponsor” of the vision (e�g�, the governor, the head 

of an agency, etc�)� 

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dEvELOPiNg AN 

APPROACh 

PARt 2: 

DEtERMInE A StRUCtURE to EnCoURAGE AnD 

SUPPoRt tHE EFFoRt 

QQ: Why is structure needed to support this effort? 

AQ: Whether referring to the effort to partner with faith-based and community 

organizations (FBCOs) as an initiative, a project, or just as another component 

of the business of seeking financial partners, it is important to have a structure 

to support the effort in both the short term and the long term� It will not be 

enough simply to develop and disseminate a vision� A structure will be needed 

to sustain the effort� 

esTaBlishinG an advisorY Board 

Arizona established its advisory council by first assessing the diversity of their nonprofit 

community. Appointments to the Council were recommended by staff and made by the 

Governor. Recommended appointments reflected the ethnic, religious, geographic and 

nonprofit community diversity of the State. Particular issues were chosen as priorities to 

address by the appointed Council. A useful number of appointees to start with may be 25-30 

members. Each year the priority issue and goals are reviewed and revised as appropriate. 

esTaBlishinG an FBCi oFFiCe in The Governor’s oFFiCe 

“Yesterday, when I spoke to the governors, I urged them to set up faith-based offices 

in their governors’ offices. Now, half of the governors have done so. And if you’re in a 

State where your governor hasn’t, I would urge you to get the governor to say, “Wait a 

minute,” to the State bureaucracies, “Allow faith-based and community-based groups to 

bid on federal money that has been sent down by formula to the States.” In other words, 

we’ve talked about the federal grant-making process, but a lot of money goes out of 

Washington, DC--about $40 billion of it--through formula grants. And to me, that’s an 

area where the faith-based community ought to have the chance to bid as well. There’s 

about a hundred mayors have set up faith-based offices, so that’s progress. Half the 

States, 100 cities--we’re making progress to make sure that this initiative is accepted at 

the federal, State, and local governmental level.” 

- PresidenT GeorGe W. Bush 

WhiTe house oFBCi leadershiP ConFerenCe 

marCh 1, 2005 

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dEvELOPiNg AN 

APPROACh 

QQ: What questions should be considered When developing such a 

structure? 

AQ: Examples of key questions that this structure should address include, but are 

not limited to, the following: 

•	 Who will serve as champion for this effort? The governor? The mayor? The 

agency director? A key agency manager? A community member? It may 

be helpful to identify and convene a group of key stakeholders/leaders to 

determine who will emerge as the willing and appropriate champion� 

•	 Who will be accountable to ensure forward progress and to answer questions 

when necessary? A single point of accountability can help ensure that the 

effort does not get lost because it was “someone else’s” responsibility� 

•	 Will there be a liaison or liaisons to work with current or potential 

partners to help with outreach and to respond to the general public? 

•	 Will the effort be managed solely by one person, by a team, or by a 

structure of multiple teams or committees? For example, with a multiple 

team structure, one team could focus on financial reform, another on 

needs analysis, and another on outreach and education� 

•	 For the staff involved, how will this effort be prioritized? How will it be 

considered in relation to other work demands? 

•	 Which entities should be involved as stakeholders? For example, in many 

State and local structures, funding mechanisms are affected or controlled by 

multiple agencies� Thus, if changes are needed in the funding mechanisms, 

all those agencies need to concur and be involved� 

•	 Will there be an oversight or advisory entity or a task force? If yes, how will 

it be structured? Who will select the membership? How will it interface 

with other similar initiatives inside or outside of the agency? What kind 

of staff support will exist? How will member expectations be addressed? 

Certain levels of public interest or opposition could make it helpful and 

appropriate to have (an) elected policymaker(s) involved� 

•	 For what reasons should current or potential partners be involved in the 

effort? Some of these partners may be seeking additional opportunities, 

but they can also provide a wealth of information� 

•	 Is it possible to engage a third party, possibly a nonprofit FBCO, to help with 

recruitment, outreach, and public messaging? This type of role requires not 

just willingness, but capacity to serve as a translator and ambassador� 

•	 Once the effort is underway, how should the structure change? Presumably, less 

effort will be needed once the changes are institutionalized� However, to sustain 

the effort, the support structure cannot simply be shut down� The emphasis 

must shift to accountability, monitoring, and providing technical assistance� 

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dEvELOPiNg AN 

APPROACh 

QQ: are there other issues to consider? 

AQ: Other issues to consider in establishing a structure include: 

•	 Potential roles for leaders, conveners, and partners must be clarified� 

•	 The structure must help build the experience and capacity of FBCOs� This 

does not necessarily mean the structure is responsible to ensure it, but it 

must provide opportunities and help to remove barriers� 

•	 The structure should help provide a level of assurance that outcomes will 

be managed� 

•	 Some organizations or agencies that could serve as conveners or leaders 

of particular initiatives, outreach, or other aspects of this effort may 

already exist� 

•	 An existing grantee or partner may be able to take on an expanded 

role in providing training and technical assistance for additional 

community organizations� 

•	 Opportunities may exist for FBCOs to work together to form new 

coalitions or partnerships; the State or local agency may want to 

help identify the lead organization and help the coalition develop a 

memorandum of agreement for managing administrative, fiscal, and 

programmatic responsibilities� 

a ComPrehensive aPProaCh 

In Alaska, a 21-member Faith-Based and Community Initiative Task Force was appointed 

by the Lt. Governor to help assess current needs, conduct a review of the services 

currently available, review current laws and regulations, and help FBCOs develop 

increased capacity to partner with government to meet social service needs in Alaska. 

A coordinator within the Commissioner’s Office of the Department of Health and Social 

Services was appointed to assist in this effort. Each of the Department’s divisions also 

appointed a liaison/coordinator. Following these initial efforts, an Executive Director for 

the Office of Faith-Based and Community Initiatives was recruited and the position was 

filled in January 2005. The Office works very closely with a 22-member Advisory Council, 

which was appointed by the Governor in April, 2005. 

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dEvELOPiNg AN 

APPROACh 

PARt 3: 

GAtHER SoME BASIC InFoRMAtIon 

QQ: What information is needed? 

AQ: Consider conducting an assessment of a focused area in order to gain a 

better understanding of the context of the community or region� This will 

provide a general understanding of how FBCOs already participate in the 

delivery of services in your State or locality� For example, you may think 

that there is already a proliferation of FBCOs accessing available funds and 

providing services to program participants� But the facts may not support 

this assumption and may actually support the opposite conclusion� Without 

taking time to review the facts, it is easy to pursue a strategy that bears no 

relation to the needs of your community� Even if the assumptions are correct, 

the history of FBCO participation as service providers in some of your 

programs may be surprising� 

a surveY sTraTeGY 

Minnesota conducted a survey where individuals from over 250 FBCOs attended various 

community forums where they discussed barriers to working with government to provide 

social services to help people in need. The top three challenges identified are FBCOs’ 

ability to: 

1. Access funding opportunities, best practices, technical support and training; 

2. Recruit, retain and acknowledge volunteers; and 

3. Pursue changes in policies that inhibit efficiencies. 

Recommendations were developed from the gaps identified in this survey. As a result, 

new resources have been implemented and more partnership opportunities are offered 

through the State for FBCOs. 

QQ: if there is already an understanding of the level of fbco 

participation in the programs, Why is an assessment of the 

community needed? 

AQ: In the same way it is beneficial to gain a general understanding of the history 

of FBCO partnerships in your jurisdiction, realizing benefits from gaining 

a better understanding of your general operating environment will help 

anticipate challenges to progress that may arise due to legal constraints or 

historical precedents� In addition, the assessment should help in several 

analytic areas that lead to process decisions for the State or local agency, such 

as capacity building and funding strategies� 

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QQ: What should be included in this assessment? 

AQ: Information that might be necessary and relevant to discover includes: 

•	 The extent to which the State or jurisdiction has established any 

limitations that may inhibit the provision of services by FBCOs and 

whether these limitations need to be addressed in order to be in 

compliance with federal law�
 

•	 If there are natural constituencies within the local citizenry and/or 

leadership in the geographic area that would be supportive of the effort� 

•	 The extent to which current gaps in service to populations at risk could 

be met through the engagement of nontraditional service providers 

such as FBCOs� 

•	 The extent to which certain segments of the population have limited 

access to services that could be met by nontraditional service providers 

such as FBCOs� 

•	 The extent to which opportunities to leverage current initiatives or 

programs exist�
 

QQ: hoW should the assessment be implemented? 

AQ: Performing an assessment and collecting the desired data may include the 

following: 

•	 Interviewing or surveying individuals with relevant knowledge and experience 

(e�g�, elected officials, program operators, FBCO staff, support organizations, 

and program participants) 

•	 Community forums 

•	 Case studies 

•	 Statistical analyses of administrative data 

•	 Online surveys 

Often, community forums and other public settings are used both to gather 

information and to inform the public� Strong facilitation skills and targeted 

questions can lead to both of these results� Here are some questions that may 

be posed at a community forum: 

•	 What are the issues needing resolution in this community? 

•	 What does this community look like (e�g�, socially and economically)? 

•	 What are the major problems needing solutions, and which specific 

problems need to be addressed?
 

•	 What will happen if these problems are not solved or needs are not met? 

•	 What are the gaps that need to be filled? 

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•	 What current services are provided and by whom, and why do they not 

fill the gaps? 

•	 What are the opportunities to fill those gaps in this community? 

QQ: What challenges might be encountered in gathering this basic 

information? 

AQ: Conducting an assessment can be a challenge� It should be done in a way 

that provides meaningful information without overly burdening staff or 

FBCOs or allowing the process to hinder the overall effort� Here are some 

things to consider: 

•	 What is the best way to clearly articulate the necessary information and 

figure out where to find it? 

•	 Do any planning documents, previous surveys, or prior needs 

assessments exist within the agency, in partner agencies, in community or 

nonprofit agencies, or in FBCOs that may provide useful information? 

•	 Do any FBCO coalitions, policy groups, or liaisons exist that already have 

some data? 

•	 Who in the community should be involved in developing the assessment? 

•	 Can a third party, such as a university or nonprofit, assist in the 

community assessment by facilitating discussions or analyzing data? 

•	 Do any other organizations have an interest in the same information, and 

would they have the capacity and willingness to partner in the effort? 

assessinG serviCe GaPs 

The Ohio General Assembly convened a Correctional Faith-Based Initiative Task Force in 

2005 to study faith-based solutions to correctional system problems; examine existing 

faith-based/non-profit programs in Ohio prisons and other states and the possibility of 

replication; and to develop model faith-based programs to reduce adult and juvenile 

offender recidivism, assist juveniles with incarcerated parents, and juveniles held over to 

or in the adult penal system. The Task Force developed 16 recommendations to reach 

each of these goals, with many already being implemented. State and local elected and 

government officials are convening Leadership Forums in every community that has an 

adult or youth corrections institution to inform FBCOs and other interested parties about 

repeat offenders and re-entry issues and to engage them effective efforts to reduce 

recidivism rates and transform lives. 

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APPROACh 

QQ: What if this process reveals a high level of participation on the 

part of fbcos in the provision of services? 

AQ: It is possible that this process will quantify that there already exists a 

significant amount of FBCO delivering services funded by federal block 

and formula grant funds� If so, then there is a great story to tell, backed by 

documentation, which can be shared with others interested in expanding 

such opportunities within their own jurisdictions� This information could 

be shared with FBCOs who do not believe that the playing field has been 

leveled while inviting them to apply for government funding to meet the 

needs in their community� 

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PARt 4: 

ASSESS BARRIERS 

QQ: if an assessment has already been conducted, Won’t enough be 

knoWn about the barriers that exist? 

AQ: Conducting an assessment will provide insight into the current situation 

faced by FBCOs in competing for federal block and formula grant funds, 

but it might also be beneficial to invest some additional effort to assess the 

situation and determine what is hindering the full participation of FBCOs 

in accessing federal block and formula grant funds for providing services 

to the community� 

Barrier assessmenT 

In 2004, Texas Governor Rick Perry directed his Office of Faith-Based and Community 

Initiatives at OneStar Foundation to coordinate the creation of an interagency workgroup 

of state officials tasked with reviewing all aspects of their respective agencies’ programs 

and governing statutes. The review resulted in comprehensive agency recommendations, 

including increased efforts to adhere to the Equal Treatment regulations, revision of 

language to applications clarifying FBCO eligibility, expanded outreach efforts, the need 

for capacity-building support services, and legislative reform efforts. 

QQ: What barriers might be present in my oWn operating environment? 

AQ: The barriers that may be encountered can be grouped into three broad 

categories: 

1� Barriers in the area of organizational knowledge and awareness, including: 

•	 Lack of awareness of the potential benefits of partnering with FBCOs 

•	 Lack of awareness of potential FBCO partners 

•	 Lack of effective outreach to FBCOs 

•	 Lack of awareness and understanding of potential and actual 

barriers, as well as barriers that may have already been removed, to 

FBCO participation 

•	 Lack of knowledge about how to design and implement an outreach 

strategy for FBCOs 

•	 Inadequate information flow and communication between State agencies 

and FBCOs 

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•	 Lack of awareness of best practice language for governing statutes or 

rules, contract boilerplates, and financial documents such as Requests for 

Proposals (RFP) and Requests for Services (RFS) 

•	 Inconsistent knowledge throughout the organization (from leadership to 

managing funds) and/or across State agencies 

•	 Concerns about ability to support and monitor FBCOs 

2� Barriers related to organizational capacity, practice, and operations, such as: 

•	 FBCO involvement is concentrated in one program or organizational area 

of a State agency, but financial partnerships involving multiple areas have 

not been engaged� 

•	 Opportunities cross State agency lines, but one or more of the relevant 

State agencies does not have staff dedicated to FBCO outreach� 

•	 FBCOs are unfamiliar with government processes (both financial and 

operational)� 

•	 FBCO infrastructure and administrative capacity is too weak to support 

activities such as reporting, evaluation, and regular communication updates� 

3� Barriers related to leadership, such as: 

•	 No executive-level champion/owner� 

•	 The executive management team does not support the idea� 

•	 A point person (policy, program, finance) does not invest in the concept� 

•	 The legislature does not support and even resists the concept� 

•	 FBCO organizations do not come forward with commitments� 

•	 The pursuit of FBCOs as partners involves perceived risks and lack of 

perceived incentives� 

QQ: should all of these barriers be addressed in order to be successful? 

AQ: The extent to which these barriers may be encountered in your own operating 

environment will vary� For example, when implementing some of the steps 

noted in this section, some of the issues identified may be readily addressed, 

particularly in regard to leadership� However, when it comes to organizational 

capacity, practice, and operations, as well as organizational knowledge and 

awareness, making a concentrated effort might be necessary� 

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PARt 5: 

tARGEt YoUR EFFoRtS 

QQ: should the focus be on specific programs or services? 

AQ: Ideally, the steps outlined in this guide can be applied to various block and 

formula grant funds� It may become evident, however, that some programs 

are more suited for a focused effort than others� For example, if it becomes 

apparent that a certain segment of the population is clearly underserved, in 

an effort to improve outcomes for this population, consider expanding service 

delivery partnerships in programming areas most immediate to their needs� 

Additionally, in considering what services to partner with FBCOs at the State 

or local level, pay attention to these concepts: 

•	 Scope – broad services vs� targeted (narrow) services (e�g�, extensive case 

management vs� a niche component like transportation, mentoring, child 

care, or parenting classes) 

•	 Scale – large or small, guaranteed number of participants, or participant 

fluctuation 

•	 Population served – recruitment of beneficiaries by provider or as 

referred by other agencies
 

leveraGinG GovernmenT serviCes 

The Florida Disaster Recovery Fund, administered by Volunteer Florida Foundation, 

has strategically partnered with My Safe Florida Home program through the Florida 

Department of Financial Services since August 2006. This program is designed to fortify 

over 4,000 low-income homes through local non-profit organizations across the State 

in 2007. 

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QQ: are there examples of programs that state or local agencies have 

partnered With fbcos? 

AQ: Existing partnerships include: 

•	 abstinence 

•	 case management 

•	 child care 

•	 clothing needs 

•	 domestic violence 

•	 education 

•	 family development 

•	 food assistance 

•	 health needs 

•	 healthy marriage 

•	 individual development accounts 

•	 job training and placement 

•	 life skills 

•	 literacy 

•	 mentoring 

•	 noncustodial parent services 

•	 parenting 

•	 school-to-work 

•	 shelter/housing 

•	 substance abuse 

•	 transportation 

•	 tutoring 

•	 visitation 

•	 youth services 

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SECTION 4: 

ADDRESSING FUNDING 

ISSUES 

Efforts to overcome any barriers that faithbased and community organizations 

(FBCOs) experience in competing for funds 

will necessarily involve new approaches to 

the funding of services. This section includes 

detailed information about funding options— 

with additional information related to ensuring 

accountability—that can be implemented to 

overcome barriers related to organizational 

capacity, practice, and operations. 

 

 

 

 

 

 

PARt 1: 

oVERVIEW 

AddRESSiNg FuNdiNg 

iSSuES 

QQ: When draWing up contracts, What key factors should be 

considered in order to ensure that the process is fair and the 

playing field is level? 

AQ: Formal funding relationships are driven by policies and procedures established 

at the State or local level� Requirements can vary greatly from State to State, 

and sometimes from county to county, but generally include guidance on 

the overall funding process, such as when tasks must be competed, specific 

language to use in funding documents, how decisions will be made, how 

appeals can be made, and timelines� As has already been stated, it is important 

that State and/or local guidelines ensure a fair, timely, and defensible decisionmaking process that does not create unnecessary barriers to participation� 

Thus, key factors that will be discussed further in this section are: 

•	 Scope of the partnership – specific tasks vs� broad responsibilities 

•	 Solicitation method – sole source, competed contract, or subcontracts 

•	 Selection method – process (person or committee process; single or 

multiple review levels; paper only or bidders’/vendors’ conference) and 

criteria (cost only, qualifications only, or joint cost-qualifications) 

•	 Financial considerations – nonfinancial mechanisms for roles and 

responsibilities; fixed payment mechanisms; time and materials 

mechanisms; referral-based mechanisms; results-based mechanisms; 

and penalty provisions 

•	 Accountability – assuming responsibility for the results of the funding as 

well as the use of federal funds in question 

develoPinG nonFinanCial ParTnershiPs 

Through the Department of Labor’s SHARE Network, a number of States have begun 

establishing Access Points in FBCOs. Each FBCO that serves as an Access Point designates 

a volunteer or staff member to serve as a Point of Contact (POC) for the local OneStop. The POCs are then trained by workforce system staff. The POCs help customers 

search for jobs using the Web-based job matching system and talent bank and make 

appropriate referrals to the One-Stop. POCs are also tasked with building closer working 

relationships with One-Stop staff to ensure that Access Point customers receive the full 

range of services they need to be job-ready. The POCs do not receive funding from the 

One-Stop system to provide Access Point services. 

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iSSuES 

QQ: is it possible to forgo a formal contractual arrangement and 

establish a Working relationship With an fbco? 

AQ: Informal partnerships can be an effective way to bring new partners into the 

conversation of how to implement a new program or address a new challenge 

in a specific community� Under informal agreements, there are usually no 

contracts and there is no financial consideration� Jurisdictions often engage in 

such informal partnerships� This can happen through informal agreements at 

the State level, the local level, an office level, or even a caseworker level� These 

tend to focus on referral options to and/or from FBCOs, with or without 

formal solicitation� 

Some of these partnerships develop over time� In some cases, a simple 

conversation creates the momentum for a partnership� Generally, these 

types of relationships are symbiotic: both partners benefit by adding value 

for their customers through sharing services and/or accepting or making 

referrals from or to each other� 

But both governments and FBCO should look beyond just informal 

partnerships� It is a good practice to formally outline partnerships to be to 

make sure there is no confusion about the roles and responsibilities inherent 

to the relationship� One way governments and FBCOs can formalize their 

relationships is through a simple memorandum of understanding, or MOU� 

This can be a short document that outlines the specifics of a new relationship 

to clarify expectations from both parties or define the specifics of an existing 

relationship� However, it is important to note that various rules may still 

apply to these arrangements� 

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PARt 2: 

SCoPE oF tHE PARtnERSHIP 

AddRESSiNg FuNdiNg 

iSSuES 

QQ: What difference can the scope of the partnership make? 

AQ: The scope of the project being considered for funding defines the degree of 

program responsibility being delegated or shared with the partner entity� 

The project scope included in a given contract will have a significant effect 

on the types of organizations that can compete for it� It might be beneficial 

to consider the extent to which FBCOs have the capacity to compete for 

contracts that are broad versus those focused on specific tasks� 

The issue of capacity is critical and deserves additional consideration� 

Because of this, a separate section of this guide—SECTION 5—addresses 

issues regarding FBCO capacity� 

QQ: are there benefits to focusing on specific tasks? 

AQ: Funding focused on specific tasks allows organizations to provide smaller 

components of a program, such as transportation, child care, specific 

education or training, parenting skills, etc� These are often the types of 

services most closely associated with FBCOs� 

QQ: hoW does this compare to a funding mechanism that includes 

broad responsibilities? 

AQ: Financial partnerships focused on broad responsibilities tend to be goaloriented� An example would be a contract for a welfare-to-work program, 

where the goal is to move families successfully into employment, with the 

contract partner responsible for many or all of the tasks necessary to 

achieve the goal� 

For example, given the range and nature of formula grants and federal block 

grants, it is much more likely that a State will have an interest in developing 

contracts that are broader in scope� State performance is often geared 

toward program outcomes� As already noted, this can make it very difficult 

for FBCOs to compete successfully for these contracts� However, contracts 

issued at the local level, which may be more focused on the tasks necessary 

to achieve the overall broad outcomes, may be more accessible to FBCOs� 

Ideally, consider whether the scope of a contract can be limited to ensure 

that it does not rule out nontraditional service providers such as FBCOs� 

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PARt 3: 

SoLICItAtIon MEtHoD 

QQ: don’t established policies and procedures dictate the solicitation 

method that must be folloWed? 

AQ: As previously stated, State and local rules often drive the process in a very 

specific manner� Different State or local requirements could facilitate or 

inhibit various funding methods� For example, certain States have provisions 

in their constitutions that explicitly bar government aid to sectarian schools 

or institutions which are generally referred to as Blaine Amendments� These 

provisions can affect allowable activities within a given State� If a State has 

such a provision, it would be beneficial to become familiar with it to ensure 

the State is able to properly adhere to the provisions in the Charitable Choice 

and Equal Treatment Regulations as well as State requirements� Additionally, 

if a State or local government contributes its own funds to the federal funds 

and the funds are commingled, the provisions of the regulation apply to all 

of the commingled funds in the same manner, and to the same extent, as the 

provisions apply to the federal funds� 

QQ: if a competitive funding strategy is adopted, given the scope of 

services that are needed to purchase With these funds, hoW can the 

playing field be leveled? 

AQ: The most common kind of funding process—a competitive process— 

encourages multiple entities to submit proposals for review and selection� 

Clearly, a competitive process has strong advantages� These advantages 

include the opportunity for obtaining higher quality at a lower cost, the 

opportunity for the presentation of more creative solutions, and a public 

perception of the fairness of the process� From the State and local grant 

administrator’s perspective, a general disadvantage of competitive funding 

is the length of time it can take to complete the process� From the FBCO 

perspective, additional disadvantages can include a lack of awareness about 

how to compete and a lack of ability to compete given the range and scope of 

services to be provided under the contract� 

Valuable ideas to encourage FBCOs to compete for funding are detailed in 

SECTION 6� The way funding mechanisms are structured can enhance the 

ability of FBCOs to compete� In particular, pursue requirements regarding 

subcontracting in your funding agreements� 

Many funding relationships for operations of a program, a program 

component, or an administrative activity include subcontractors� Often 

these are driven by the need of the lead contractor to fill gaps in their skill, 

expertise, or resource capacity� However, encouraging traditional service 

providers to subcontract with nontraditional service providers such as 

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FBCOs by recommending or even requiring the formation of local coalitions 

or partnerships to meet the needs of the program is a viable option� 

This can be accomplished through different mechanisms, which are listed 

below from least to most directive: 

•	 Encouragement – Bidders can be encouraged (but not required) to 

establish partnerships�
 

•	 Awarding of points – Bidders can be given extra points for demonstrating an 

ability to enhance the quality of service delivery by providing the services 

through a collaborative approach with project partners� 

•	 Require Collaboration – Limit the applicants to groups representing 

existing collaborations�
 

QQ: if the scope of a partnership cannot be limited, can primary 

partners be encouraged to use fbco subcontractors as part of the 

contract requirements? 

AQ: Encouraging partners to subcontract with FBCOs may be one of the best 

methods through which to expand the number of FBCOs involved in the 

delivery of social services� 

suBConTraCTinG as an oPTion 

Indiana encourages organizations that may not be ready to comply with all of the 

administrative requirements of government funds to contact existing intermediary service 

providers to find out if there is a niche service that they can provide. For instance, the 

Indianapolis Private Industry Council (IPIC) provided support to a local congregation’s Jobs 

Partnership Mentoring program that allowed them to train more mentors and serve more 

IPIC job-training clients. They also trained the mentoring program staff on the Internet 

job matching and registration system so that the mentoring participants could more 

effectively take advantage of one-stop services. 

QQ: can direct-funding recipients be encouraged to use fbco project 

partners and affiliates as part of the requirements of their funding? 

AQ: Encouraging lead organizations to partner with FBCOs may be one of the 

best methods through which to expand the number of FBCOs involved in 

the delivery of social services� This strategy can make use of the strength of 

smaller organizations that are focused on providing services and may have 

high levels of trust with the populations receiving services� It also recognizes 

the reality that many smaller nonprofits lack the organizational capacity to 

manage their larger funding amounts� 

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iSSuES 

In some instances, a State or local jurisdiction wanting to expand the 

commitment and participation of FBCOs may prefer to enter into a financial 

partnership with a third party to recruit help from the FBCO community� 

A third party organization could also assist FBCOs with intergovernmental 

coordination, serving as the bridge between the State or local jurisdiction 

and the FBCO community� It can also develop the capacity of FBCOs 

through the provision of program development, grant management, financial 

accounting, legal services, and other assistance or it can serve as the lead 

organization bringing together a group of smaller organizations to provide 

a range of services across multiple populations and geographic regions� As 

with all funding decisions, the State or local jurisdiction should be mindful 

of program authorities and requirements at the federal, State or local level 

when determining whether any particular kind of funding arrangement can 

be supported by government funds� 

QQ: is it prudent to consider options that do not involve competitive 

bidding for funding? 

AQ: As previously noted, the use of a competitive funding strategy most often 

yields the best service for the least cost� It also limits the amount of discretion 

involved in awarding funding, thus creating an appropriate environment 

for ensuring a level playing field for all potential partners� Under some 

circumstances, however, when a specific need is defined and a particular 

entity is uniquely qualified to meet that need because of program and 

experience qualifications, a sole source contract might be used� In general, 

sole source contracts are for specific tasks or for initiatives limited by time 

rather than ongoing program operations� They should not be relied upon as 

a key strategy for leveling the playing field for FBCOs� 

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PARt 4: 

SELECtIon MEtHoD 

AddRESSiNg FuNdiNg 

iSSuES 

QQ: does the selection method really make a difference? 

AQ: Different selection methods can be complicated� The decisions made about 

the process and criteria prior to the start of the funding process are critical 

and will have a significant influence on what types of organizations will be 

able to compete successfully for the contract� 

QQ: What options may be available related to the selection process? 

AQ: Although State and local requirements may outline a very rigid process for 

awarding funding, there are still some options� 

First, consider having a panel or committee review process� For larger awards, 

using a committee is generally the most common procedure, combined with 

objective scoring assessments that provide tougher scrutiny of the proposals� 

The committee may consist of program staff, staff versed in financial policies, 

and knowledgeable staff from outside the primary agency� 

Second, consider using a single or multiple level review process� The 

jurisdiction must decide whether the person or committee process is 

the only level of review and decision making, or whether the review should 

be passed on to a second level for the final decision� Similarly, the jurisdiction 

should consider how an appeal would be handled (at which level, including 

how many levels of review are available) if the process were challenged� 

QQ: What about the criteria We use to evaluate bidders? 

AQ: Perhaps one of the most important parts of a request or solicitation is the 

clarity of the criteria that will be used in selecting a proposal or proposals� 

The criteria are important for several reasons: 

•	 Clear criteria should relate directly to the goals, thus driving the development of 

the proposals and the actions and performance of the entities that are selected� 

•	 Clear criteria help ensure consistency across proposals, for both format 

and substance, making it easier to compare them� 

•	 Clear criteria may help encourage innovation because bidders can focus 

on describing how they will accomplish the goals instead of trying to 

interpret what they are� 

•	 Clear criteria minimize the potential for challenges or appeals� 

In addition, from the perspective of FBCOs, clear criteria facilitate not only 

their understanding of whether they have the capacity to respond, but also 

their ability to respond in a comprehensive manner� Clear criteria remove 

the burden of inferring what the government is looking for� 

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AddRESSiNg FuNdiNg 

iSSuES 

QQ: What criteria are the best to use? 

AQ: In general, funding mechanisms can be based on cost-only criteria, 

qualifications-only criteria, or a mix of both� 

Some funding relationships are driven by the need to contain costs� 

Provided that bidders can meet minimum qualifications and provide 

certain assurances, the final selection is based on lowest cost� However, 

when funding is less of an issue (e�g�, when costs will be minimal), or when 

multiple providers may be desired, selections may be based solely on the 

ability of a bidder to deliver the services (qualifications-only criteria)� For 

example, multiple bidders might be desired for a transportation or childcare 

voucher program� In this case, the State or local jurisdiction may be trying 

to create additional capacity and options for the families they serve, while 

creating consumer choice for those families� 

Other funding relationships combine the desire for a low-cost bid with 

the desire for a higher quality service or a reduction of risk when it comes 

to service delivery� In a cost-only scenario, the qualifications are generally 

just a minimal “bar” that a bidder must meet� The reverse is true in a 

qualifications-only scenario� However, in a joint cost-qualifications scenario, 

the two components are each weighted in the final bid� For example, cost 

may be 50 percent of the total bid points, with qualifications being the other 

50 percent� Within the qualifications component, points may be scored for a 

variety of factors including, but not limited to, existing capacity, experience, 

and ability to assume risk� 

In order to encourage FBCOs to participate and given the purposes for 

which the funds are to be used, partnerships that combine cost and quality 

concerns are generally best� 

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PARt 5: 

FInAnCIAL ConSIDERAtIonS 

AddRESSiNg FuNdiNg 

iSSuES 

QQ: does the Way payments are structured make a difference in fbco 

participation? 

AQ: Payment structure can make a significant difference; therefore, consider how 

to reimburse the service providers under the agreement� 

First, a fixed payment mechanism sets a fixed amount, generally by time 

period (e�g�, monthly), for services rendered� Fixed payments often are used 

when the quantity of services can be estimated with a fair degree of certainty, 

or when the State or local jurisdiction wants to lock in the cost as a risk 

avoidance strategy� This transfers the risk to the provider; if more services 

are needed, they must cover the costs, if fewer are needed, they come out 

ahead financially� 

Second, a time and materials mechanism sets rates for various cost 

components, such as hourly staff costs and other support costs for providing the 

services� This kind of payment often is used when the quantity of services 

cannot be estimated with a fair degree of certainty� Coupled with prior 

approval for services, it can be used when the State or local jurisdiction wants 

to retain control over the degree of services provided and costs incurred� 

However, the State or local jurisdiction assumes the risk should services be 

required beyond those budgeted� Time and materials contracts tend to be 

process focused� 

Third, a referral-based mechanism pays a fixed amount for every service 

unit provided (such as the referral of an individual or family)� This shifts 

some risk to the provider in that if the degree of service required for each 

referral varies, the provider must compensate� It also allows the State or local 

jurisdiction to maintain control over costs by controlling the number of 

service units (via the referrals) to be provided� Referral-based mechanisms 

can be either process or outcome focused, and tend to be a blend of the two� 

Each of these mechanisms present challenges for FBCOs, particularly 

those which tend to have lower cash reserves� In the case of fixed payment 

mechanisms, if demand is higher than expected, FBCOs may not be able 

to provide the services as required due to a lack of operating reserves� The 

risk is not as large in the case of time and materials mechanisms; however, 

these types may not be the most desirable when it comes to the programs in 

question� Finally, referral-based mechanisms can make it very difficult for 

the FBCO to know how to staff up appropriately, as demand for the service 

will depend on the referral stream and there is no way to anticipate the 

timing of the demand� 

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AddRESSiNg FuNdiNg 

iSSuES 

QQ: does it make a difference if the payment is based on outcomes? 

AQ: A results-based payment system focuses on achieving a specific desired 

result or outcome� It does not focus on the process or steps taken to 

achieve the desired result or outcome, although it may have some minimal 

requirements or standards that are process-oriented� The use of this system 

is growing because it allows for flexibility, creativity, and innovation in 

achieving results� It generally transfers risk by placing a value on the 

result that the State or local jurisdiction seeks� This value can be set in a 

way to result in minimal overall costs, budget neutrality, or even program 

revenues or savings� This type of partnership also causes a State or local 

jurisdiction and their partners to look at all of their processes to identify 

potential efficiencies� 

It is possible to blend a results-based funding relationship with elements of 

any two or more of the fixed payment, time and materials, and referral-based 

mechanisms� This may be the best strategy to use for leveling the playing field� 

For example, a funding agreement could include a base payment to ease 

bidders’ cash flow concerns� This base payment could then be supplemented 

with payments based on results� These could be incentive payments for 

achieving various goals, or sliding-scale payments based on varying results� 

Examples of incentive payments are payments tied to customer service ratings 

or timeliness of activities� Examples of sliding-scale payments are payment 

amounts based on the percentage of people in a welfare-to-work program 

who achieved a certain wage level or who went to work and stayed off welfare� 

QQ: What effect do penalty provisions have? 

AQ: When lack of performance can pose significant risk or repercussions (financial 

or legal) to the State or local jurisdiction, it is common to incorporate penalty 

provisions in a contract� As with payments related to results, penalties could be 

incurred for failure to meet certain minimal performance goals, or be incurred 

on a sliding scale as performance drops� It is important to be transparent as to 

what the penalties will be and when they will be invoked� 

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PARt 6: 

ACCoUntABILtY 

AddRESSiNg FuNdiNg 

iSSuES 

QQ: regardless of What form of funding mechanism is used, there must 

be accountability. hoW is accountability ensured When partnering 

With nontraditional fbco providers? 

AQ: Ensuring accountability when contracting with FBCOs should be viewed as 

part of managing programs, just as it is when contracting with other entities 

for the delivery of services� 

If the strategy is to have intermediaries partner with FBCOs to provide niche 

services as needed to improve outcomes for the population served, then 

how the intermediaries are overseen is important� When partnering directly 

with FBCOs, be sure someone is prepared to manage the monitoring and 

accountability responsibilities� Defining expectations up front will make 

for a smoother process� Consider conducting monthly meetings with key 

partners that focus on progress-to-goal plans for the following month and 

issues that may arise� These meetings increase pay-off by sustaining a teamand results-oriented ethic� 

It is also important to define monitoring and oversight strategies up front so 

that the appropriate resources will be readily available� These resources can 

be internal dedicated staff, contracted staff, or a third party organization such 

as an intermediary� Consider coordinating internal staff so that technical 

assistance, fiscal, and accountability efforts are complementary and reduce 

duplication� Additionally, in developing the responsibilities of such an 

intermediary, senior management and legal staff should be consulted in such a 

decision to determine what functions should and should not be carried out 

by such an intermediary or contactor� 

Here are some other issues to consider: 

•	 Accountability and monitoring have no value without meaningful 

measurement� This measurement must be ongoing and compared 

to a baseline, which should have emerged from the assessment of 

the community� 

•	 Increased reporting and accountability for performance outcomes 

places additional burdens on organizations with less experience with 

the associated administrative requirements� Some organizations lack 

experience with writing and tracking appropriate performance outcomes� 

•	 An effective accountability and monitoring system based on outcomes can 

help build support for sustaining programs with good outcomes� An effective 

system also serves as a learning tool for continuous program improvement� 

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AddRESSiNg FuNdiNg 

iSSuES 

•	 Effective monitoring strategies can help provide all stakeholders clarity and 

a higher comfort level about expectations and the ability to meet them� 

•	 Local resources, such as colleges and universities, can help identify 

or provide potential training and technical assistance for grantees on 

developing performance outcomes� 

•	 The use of payment and incentive strategies can help sharpen the focus on 

accountability and intended outcomes� 

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PARt 7: 

MonItoRInG PRoHIBItED ACtIVItIES 

AddRESSiNg FuNdiNg 

iSSuES 

QQ: What can be done to ensure compliance With restrictions directing 

that government funds are not to be used for prohibited activities 

such as “inherently religious activities?” 

AQ: State and local agencies as well as intermediaries should develop clear statements 

for inclusion in solicitations, requests for procurement (RFPs), contracts, and 

memorandums of understanding (MOUs) that clarify prohibited activities, in 

particular those related to the separation of inherently religious activities from 

services funded with direct government funds, and other prohibited activities 

such as lobbying and political activity� 

A reference for use in this area is Guidance for Faith-Based and Community 

Organizations on Partnering with the Federal Government, which can be 

accessed at: www.whitehouse.gov/government/fbci/guidance/index.html� 

QQ: What can be done to ensure that these restrictions are understood? 

AQ: In addition to delineating them clearly in all funding documentation such as 

contracts and MOUs, consider: 

•	 Developing a standard letter to be sent to all partners providing federally 

funded services, regardless of whether they are FBCOs or not, reiterating 

these requirements 

•	 Developing a standard letter to be sent to all employees and volunteers of all 

partners providing federally funded services reiterating these requirements 

•	 Incorporating the requirements into all technical assistance 

opportunities provided
 

•	 Posting them on all Web sites and other public access points to information 

about service provision opportunities 

QQ: should a separate process for monitoring compliance With these 

restrictions be established? 

AQ: It is very likely that this type of monitoring is already part of the current 

process your State or locality has in place to ensure compliance with funding 

requirements� Consider taking steps to ensure that all staff with oversight 

responsibility is aware of the requirements, that provisions are made to 

enforce these requirements to the same extent as other requirements, and that 

any technical assistance needed is provided� If at all possible, field staff who 

come into day-to-day contact with partners also should be well versed in the 

requirements so that they are equipped to identify any potential concerns� 

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SECTION 5: 

 ENHANCING CAPACITY
 

Even with the best funding strategy in place, questions may arise about a 

faith-based or community organization’s 

(FBCO’s) capacity to provide the needed 

services and operate within established 

guidelines. Although this guide does not 

contain the tools necessary to help develop 

FBCO capacity, the following section 

offers tips and references. 

 

 

 

 

 

ENhANCiNg CAPACiTy 

PARt 1: 

FAItH-BASED AnD CoMMUnItY 

oRGAnIZAtIon CAPACItY 

QQ: hoW do i knoW if fbcos have the capacity to provide the services 

that are needed? 

AQ: The overall assessment at the beginning of this process should provide a 

sense of the capacity of FBCOs in your jurisdiction� If an overall sense 

of their abilities remains unclear, get out in the community and ask local 

leaders, families, and other service providers in the area for their sense of 

FBCOs’ abilities to provide services� 

It is a mistake to assume that capacity does not exist� For example, a local 

organization may not be able to operate a food bank, but may be providing 

free meals on a weekly basis to a significant number of homeless citizens� In 

this case the organization does have capacity to provide services; it just does 

so in a different form than what may have been considered� 

QQ: What if it turns out that fbcos do not have the capacity to provide 

the services that are needed, or they have the service capacity but 

not the administrative capacity? 

AQ: All partners in the system of service providers have strengths and weakness� 

The challenge of working with FBCOs centers on the ability of a State and 

local program to consider how to make use of the unique strengths of 

these organizations as well as how to give organizations the resources and 

experience to address their weaknesses� So instead of reaching the conclusion 

that a partnership is not possible, consider again how to structure the terms 

or mechanisms within the contract� Can modifications be made to the scope? 

Can an effort be made to promote subcontracting where a large organization 

can manage the administrative effort and smaller organizations with more 

community connections can provide services? This goes back to the initial 

question raised in SECTION 4 regarding funding: programs can modify the 

funding process to address issues of capacity within the system of providers� 

QQ: if sufficient time or staff does not exist to assist fbcos With issues 

related to administrative capacity, are there resources to Which 

they can be referred? 

AQ: HHS has made a significant investment in the Compassion Capital Fund 

(CCF), which was established in 2002 to increase the effectiveness and 

enhance the ability of FBCOs to provide social services to those most in 

need� This is accomplished through three competitive grant programs: the 

Demonstration program, the Targeted Capacity Building program, and the 

Communities Empowering Youth program� 

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ENhANCiNg CAPACiTy 

The Demonstration program funds intermediary organizations that serve as 

a bridge between the federal government and the faith-based and community 

organizations the program is designed to assist� The intermediary organizations 

provide training, technical assistance, and capacity-building sub-awards to faithbased and community organizations� In addition, the Targeted Capacity Building 

program makes capacity-building awards directly to faith-based and community 

organizations nationwide� The Communities Empowering Youth program 

awards funds to organizations and their FBCO partners to build organizational 

capacity, thus better equipping them to collectively combat gang activity, youth 

violence, and child abuse and neglect� 

Since CCF’s inception, a total of $264 million has been awarded directly to 

faith-based and community organizations: 

•	 112 grants totaling $154�8 million have been awarded to Demonstration 

program intermediary organizations since 2002, and 4,100 sub-awards have 

been awarded by those intermediaries to grassroots nonprofits to date 

•	 993 Targeted Capacity Building grants have been awarded since 2003 for a 

total of $48�2 million 

•	 131 Communities Empowering Youth grants have been awarded since 2006, 

totaling $60 million 

To determine if an intermediary funded through CCF is working with 

grassroots organizations in specific jurisdictions, a list of CCF grantees is 

available on the ACF Office of Community Services’ Web site at www.acf. 

hhs.gov/programs/ccf/� The scope of some of the intermediaries is limited by 

the types of organizations they assist or the geographic area in which they 

provide assistance� Therefore it is helpful to become familiar with the efforts 

of local intermediary organizations and to include intermediaries when 

working towards leveling the playing field for FBCOs� 

QQ: should We consider establishing a third party organization to 

serve as an intermediary on the state or local level? 

AQ: The establishment or engagement of a third party organization such as an 

intermediary to address capacity issues for which your own staff may not 

have the time or expertise is a recommended strategy� In some instances, 

local entities may already exist that can be contracted to provide these 

services� As previously stated in SECTION 4, it is important to note that 

in considering the use of a third party organization and developing the 

responsibilities of such an intermediary, senior management and legal staff 

should be consulted in such a decision to determine what functions should 

and should not be carried out by such an intermediary or contactor� 

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ENhANCiNg CAPACiTy 

In other situations, consider working in collaboration with community 

agencies to establish a new collaborative entity designed to meet the 

needs of local FBCOs� 

Additionally, CCF has established a National Resource Center (NRC) to 

ensure that intermediary organizations and FBCOs funded under CCF 

are adequately equipped with the information and training they need to 

successfully implement their capacity-building grant projects� Through the 

NRC, CCF provides the following resources for grantees: 

•	 Capacity-building support at the national level by working directly with 

federal agencies and CCF intermediary organizations 

•	 Expert resources regarding faith-based and community initiatives and 

promising practices 

•	 A repository and distribution center for information, tools, and resources 

needed by FBCOs, and organizations that work with them, to improve 

their capacity, knowledge, and skills 

Some of the resources available to CCF intermediary grantees through the 

NRC are accessible to the public through the ACF Office of Community 

Services’ Web site at www.acf.hhs.gov/programs/ccf� The Web site provides 

information about the NRC and includes links to other sites, such as 

capacity-building resources for FBCOs� 

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ENhANCiNg CAPACiTy 

PARt 2: 

StAtE AnD LoCAL CAPACItY 

QQ: What capacity issues should be considered before implementing a 

plan to level the playing field for fbcos? 

AQ: Assuming a well-functioning system of funding and oversight is in place, 

some elements of capacity will not be an issue� However, in some areas 

demands may increase and additional capacity will be required� 

In particular, as was noted in the funding discussion, your agency’s existing 

capacity may need to be called upon to monitor and support FBCOs� If 

monitoring and technical assistance are capacity challenges, formulate plans 

to address resource gaps� In doing so, consider the following: 

•	 Use of a third party organization or a single contract in a geographic area 

(to cover multiple FBCO contractors or subcontractors) to supplement 

monitoring and technical assistance 

•	 Use of other third-party options for monitoring, technical assistance, 

and training 

In addition, institutionalizing changes within the State or local agency will 

ensure a sustained focus on accountability� 

Finally, remember that even if a broad partnership with FBCOs does not 

exist, compliance with Charitable Choice and Equal Treatment provisions 

still applies� Among other things, these regulations require that FBCOs 

be treated the same as other organizations in the distribution of federal 

funds� Therefore, when working with similar organizations, you cannot 

discriminate for or against any organization on the basis of religion� 

CollaBoraTinG To Build CaPaCiTY 

OneStar Foundation was designated by the State of Texas to strengthen the capacity of 

the social sector by identifying, connecting, and equipping people, organizations and 

government with resources to more effectively respond to the needs of others. OneStar 

and its interdisciplinary team of partners recently completed a CCF intermediary grant 

focused on building the capacity of FBCOs in major urban centers across Texas. OneStar’s 

CCF Texas Demonstration Project benefited more than 1,000 staff and volunteers from a 

diverse range of FBCOs through provision of 24 regional public trainings, networking, and 

technical assistance opportunities as well as through a sub-grant process that facilitated 

capacity-building funding, training and customized technical assistance to address the 

organizational needs of 25 FBCOs. 

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SECTION 6: 

DEVELOPING AN 

OUTREACH STRATEGY 

Even if a level playing field is already in place, faith-based and community 

organizations (FBCOs) cannot compete if 

they lack knowledge about opportunities. 

Therefore, developing an FBCO outreach 

strategy is important. This section provides 

practical steps for reaching out to FBCOs, 

as well as internal stakeholders, State 

and local elected officials, and members 

of the community to provide them with 

information on the Faith-Based and 

Community Initiative (FBCI), resources, 

and potential partnership opportunities. 

 

 

 

 

 

 

 

 

 

 

PARt 1: 

DEVELoPInG InFoRMAtIon 

dEvELOPiNg AN 

OuTREACh STRATEgy 

QQ: What information do i need to develop? 

AQ: Available opportunities for FBCOs to participate in the provision of human 

services should be shared with the community at large as well as with targeted 

audiences� Start by ensuring that the vision is well articulated and understood� 

To do this, consider pulling together the basics about the Faith-Based and 

Community Initiative as well as your own efforts� Additionally, make sure the 

process through which the vision will be achieved is clear and comprehensible� 

Here are some key pieces of information to include in the message: 

•	 A regularly updated listing of funding opportunities available through 

State and/or local governments where FBCOs are eligible, including 

easy-to-understand information on obtaining requests for proposals with 

corresponding contact information for potential applicants 

•	 An explanation of what the FBCI is and is not—including that it is not 

about creating a “preference” for faith-based organizations (FBO)—and 

a listing of resources at the federal and State levels, including guidance 

documents for FBO partnerships with government 

•	 A clear articulation of the desired outcome(s), the services sought, and 

the population(s) to be served 

•	 Contacts listed by program and functional areas 

•	 A narrative explaining the history, structure, and policy base for the 

programs and services to be delivered 

•	 A clear list of expectations for services and programs to be delivered, 

ranging from rigorous policy requirements to areas of flexibility to 

expectations on reporting and accountability 

•	 An explanation of funding processes (how to get on lists, how to submit 

proposals, etc�) 

•	 An explanation of what will not change in the delivery of services 

•	 A compilation of common and key forms and reports 

•	 Any other information relevant to the particular jurisdiction 

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dEvELOPiNg AN 

OuTREACh STRATEgy 

PARt 2: 

DISSEMInAtInG InFoRMAtIon 

QQ: is there a preferred Way to disseminate this information? 

AQ: Several different strategies can be employed in disseminating information 

about activities and the opportunities available to provide services utilizing 

federal funds administered by state and local officials� However, no matter 

what dissemination means are employed, the communications should clearly 

articulate the desired outcome(s), the services sought, and the population(s) 

to be served� In addition, as part of the overall communications plan, be sure 

to develop a strategy for reaching FBCOs with your communications� 

QQ: is a Web site appropriate for the dissemination of information? 

AQ: Many jurisdictions use Web sites to reach the public, including FBCOs, with 

their communications� Their usefulness varies depending on how often they 

are updated, how relevant they are to FBCOs, whether contact information is 

posted, and whether the content is written in an easy-to-read format� 

The key is tailoring the Web site to the intended audience� It is good to 

remember, for example, that many FBCOs are not familiar with general 

funding documents or statutory language, so a Web site that simply provides 

links to standard information may be inadequate� Rather, consider distilling 

the information into easily understood language, with technical information 

referenced within the text and additional links provided as appropriate� 

Although it is important to include as much of the relevant information 

as possible on the site, be sure to include at least one contact so that 

knowledgeable staff can address questions and concerns as they arise� 

QQ: are listservs useful? 

AQ: Listservs can be very useful for announcing timely information, including 

announcements of grants and other related opportunities� An example is the 

listserv maintained at the federal level by the HHS Center for Faith-Based 

and Community Initiatives� Each week it provides information about new 

HHS grant opportunities, conferences, and important resources for FBCOs 

to more than 7,000 active email subscribers� 

suCCessFul summiTs 

New Jersey Conferences and Summits focus on capacity building and resource 

development. They also are designed based on the developmental stage of the 

organization. This approach maximizes the transference of training topics and concepts 

to faith- and community-based organizations. 

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dEvELOPiNg AN 

OuTREACh STRATEgy 

QQ: What about holding conferences or summits? 

AQ: Conferences and summits are also good strategies to use in reaching out to 

FBCOs as well as other interested members of the community at large� One 

recommendation is to hold a technical workshop for your own staff, so that they 

can become more comfortable and conversant with the concepts embedded in 

the FBCI� A benefit of a conference or summit is that personal interactions can 

provide immediate feedback and create linkages where none existed before� 

QQ: What about establishing a government point of contact for fbcos? 

AQ: It is important to consider whether establishing a general liaison will be sufficient 

for the overall purposes� In particular, decide whether the staff person responsible 

for each contract will address all questions related to that contract or whether one 

staff person can answer questions related to FBCO participation on all contracts� 

The benefit of assigning this responsibility to each staff person with contracting 

responsibilities is that the concept of leveling the playing field becomes embedded 

in the organizational culture� The benefit of electing to delegate responsibility for 

addressing issues related to FBCO participation to one person, regardless of the 

contract in question, helps ensure a consistent approach� 

QQ: What else should i consider When disseminating information? 

AQ: Consider making information available to other publicly funded organizations 

that may have relationships with FBCOs� In addition, consider briefing 

congressional delegation, State legislators, local elected officials, and other 

opinion leaders to ensure that a consistent and clear message about your 

efforts is spread to all of the necessary stakeholders� 

Be as creative as possible� Indiana, for example, established a toll-free telephone 

line to provide information to FBCOs as effectively and efficiently as possible� 

reaChinG ouT 

As a result of the 2007 White House conference held in Arizona, several municipalities 

have expressed interest in developing FBCI efforts. The Governor’s Policy Advisor on 

Faith and Community Initiatives, in partnership with municipalities which already have 

initiatives, will assist these entities in the following ways: 

•	 Work with city and town officials to identify and analyze problems and issues 

•	 Encourage municipalities to officially appoint or establish an FBCI liaison to facilitate 

implementation at the local level in partnership with State and federal colleagues 

•	 Assess the potential for addressing issues through collaborative community 

partnerships 

•	 Recommend methods and procedures for leveraging resources to achieve greater 

outcomes 

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dEvELOPiNg AN 

OuTREACh STRATEgy 

PARt 3: 

GEnERAtInG IntERESt 

QQ: hoW can fbco interest in partnering to provide services be generated? 

AQ: The following steps can help to effectively generate interest: 

•	 Provide FBCOs examples of past FBCO participation as well as ideas 

about future participation 

•	 Contact local and State associations or networks of FBCOs 

•	 Be receptive to and promote multiple models (e�g�, coalitions when 

smaller entities express an interest but are cautious about their capacity, 

subcontracting arrangements, etc) 

•	 Consider public awareness campaigns (e�g�, send videos to key FBCOs, 

hold leadership summits, etc�) 

•	 Work with other government organizations that include FBCOs in 

their initiatives 

When telling the story, make sure the tone allows FBCOs to understand 

what the FBCI is and what it is not� All who partner or participate in the 

overall effort should fully understand their roles and responsibilities� 

QQ: hoW can fbcos, intermediaries, and others in the community be 

encouraged to provide services? 

AQ: Obtaining partners that can help deliver services and achieve outcomes in 

the community may involve direct recruitment, outreach, or networking 

through others� This is not about trying to sell a product, however, it is about 

developing relationships with potential partners who will develop or build 

on their existing relationships with families and individuals� Mass marketing 

approaches will most likely be ineffective with target audiences; building 

relationships may require modified thinking or new ways reaching out� The 

following are some thoughts related to recruitment: 

•	 FBCOs are diverse� Although they need the same information, different 

delivery methods and format may be necessary 

•	 Consider bringing potential partners in gradually and building long-term 

relationships (and capacity) to improve the quality of outcomes through 

training and experience 

•	 Consider holding public awareness meetings in partnership with other 

State agencies that are attempting to reach the same audiences 

•	 Identify current organizations that could partner with or mentor new 

organizations 

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dEvELOPiNg AN 

OuTREACh STRATEgy 

•	 Develop intermediate or smaller projects that require less initial 

effort but that can be used to develop technical assistance for the full 

application process 

•	 Identify and target organizations or agencies that already convene or lead 

an initiative that involves partnerships with community organizations; these 

organizations may be willing to expand their services or help recruit others 

•	 Identify existing grantees that might expand their roles and become 

intermediaries for other community organizations 

idenTiFYinG ParTners 

A meeting of 23 private and public organizations with a common interest in changing 

the face of Hunger in New Mexico was convened in March 2007. A three-year plan was 

developed from this and other meetings. The Plan included five goals and over 70 tactics 

covering programming and policy work that would help feed 35,000 New Mexicans over 

the next three years. Private sector foundations, corporation and individual donors have 

all stepped forward to raise over $1 million to accomplish the Plan’s goals and tactics 

and to leverage public food programs. Creating public awareness that one in six New 

Mexicans do not know where they will get their next meal has brought together this 

collaboration that is expected to change the lives of New Mexicans most in need. 

•	 Encourage community organizations to work together to form new 

coalitions or partnerships; help identify the lead organization and 

develop a memorandum of agreement to help the coalition manage the 

administrative, fiscal, and programmatic responsibilities 

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SECTION 7: 

IDENTIFYING OTHER 

RESOURCES 

Throughout the federal, State, and local 

level, there are many people and tools to 

assist in improving outcomes for beneficiaries 

by increasing the opportunities for faith-based 

and community organizations (FBCOs) 

to access federal block and formula grant 

funds. The contacts and resources listed in 

this section provide additional assistance 

in implementing a State or local strategy to 

level the playing field for FBCOs. 

 

 

 

 

PARt 1: 

StAtE AnD LoCAL ContACtS 

idENTiFyiNg OThER 

RESOuRCES 

QQ: Who is implementing the faith-based and community initiative on 

the state and local level? 

AQ: Currently, 35 States have either an office or a liaison for faith-based and 

community organizations (FBCOs) in the governor’s office, a State agency, 

or a governor-appointed foundation� These offices or liaisons provide 

information and resources to faith-based and community organizations 

about partnering with the State government to provide social services� A 

number of mayor’s offices and at least one county office also have an office or 

liaison for faith-based and community organizations� 

Please refer to www.whitehouse.gov/government/fbci/contact-states.html for 

regularly updated contact information on these offices and/or liaisons� 

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idENTiFyiNg OThER 

RESOuRCES 

PARt 2: 

FEDERAL ContACtS 

hhs Center For FaIth-Based and CommunIty InItIatIves: 

U�S� Department of Health and Human Services 

Center for Faith-Based and Community Initiatives 

200 Independence Ave SW, Room 120F 

Washington DC 20201 

www.hhs.gov/fbci 

(202) 358-3595 

(202) 401-3463 (fax) 

E-mail: cfbci@hhs.gov 

the folloWing is key contact information for the White house and the 

other federal agency centers: 

White house office of Faith-Based and Community Initiatives 

The White House 

Washington, DC 20502 

(202) 456-6708 

www.fbci.gov 

u.s. agency for International development 

1300 Pennsylvania Avenue, NW 

Washington, D�C� 20523 

(202) 712-4080 

www.usaid.gov/our_work/global_partnerships/fbci 

department of agriculture 

14th and Independence Avenue, SW 

Office of the Secretary, Room 200-A 

Washington, DC 20250 

(202) 720-3631 

www.usda.gov/fbci 

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idENTiFyiNg OThER 

RESOuRCES 

department of Commerce 

1401 Constitution Avenue, N�W�, Suite 5517 

Washington D�C� 20230 

(202) 482-4355 

www.commerce.gov/fbci 

Corporation for national and Community service 

1201 New York Avenue, NW, Suite 800 

Washington, DC 20525 

(202) 606-5000 

www.cns.gov/for_organizations/faith/ 

department of education 

555 New Jersey Avenue, NW 

Capital Place, Suite 410 

Washington, DC 20208-8300 

(202) 219-1741 

www.ed.gov/faithandcommunity 

department of homeland security 

500 C St SW, Suite 716 

Washington, DC 20024 

(202) 646-3487 

www.dhs.gov/fbci 

department of housing and urban development 

451 7th Street SW, Room 10184 

Washington, DC 20410 

(202) 708-2404 

www.hud.gov/offices/fbci 

department of Justice 

950 Pennsylvania Avenue, NW, Room 4413 

Washington, DC 20530 

(202) 514-2987 

www.usdoj.gov/fbci 

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department of labor 

200 Constitution Avenue, NW 

Washington, DC 20210 

(202) 693-6450 

www.dol.gov/cfbci 

department of veterans affairs 

810 Vermont Avenue, NW 

Washington, DC 20420 

(202) 273-7499 

www1.va.gov/fbci/ 

small Business administration 

409 3rd Street, SW 

Washington, DC 20416 

(202) 205-9037 

www.sba.gov/aboutsba/sbaprograms/faithbased/ 

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QQ: What other programs have key sources of information? 

AQ: Additional resources have been developed specific to particular programs 

within HHS� 

The Compassion Capital Fund has developed a Toolkit for Faith-Based and 

Community Organizations which includes an Intermediary Development 

Guidebook Series that highlights topics including best practices, grant 

management, and establishing partnerships; Capacity Building Studies and 

Tools including surveys and promising practices; and additional capacity 

building resources� The resources are available at http://www.acf.hhs.gov/ 

programs/ccf/resources/toolkit.html 

The Child Care Bureau has developed a four-page pamphlet entitled “What 

Congregations Should Know About Federal Funding for Child Care” that 

may be of use when considering options for expanding the participation of 

FBCOs in the child care subsidy system, particularly through vouchers� It 

can be accessed at: http://www.acf.hhs.gov/programs/ccb/providers/faithbased.pdf 

QQ: hoW can i get more information about the programs mentioned in 

this guide? 

AQ: The following are contacts for the examples included in this guide: 

alaska Office of Faith-Based and Community Initiatives 

State Department of Health and Social Services 

3601 C Street, Suite 902 

PO Box 240249 

Anchorage, AK 99524 

(907) 269-8021 

www.hss.state.ak.us/fbci/ 

arizona Policy Advisor for Faith and Community Initiatives 

Office of the Governor 

1700 W� Washington, Suite 100 

Phoenix, AZ 85007 

(602) 542-7558 

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indiana 

florida 

ohio 

minnesota 

neW jersey 

neW mexico 

texas 

Executive Director 

Governor’s Office of Faith Based and Community Initiatives
 

302 W� Washington, E012
 

Indianapolis, IN 46204
 

(317) 233-3295
 

http://www.state.in.us/fssa/faithworks 

Volunteer Florida Foundation
 

401 S� Monroe Street
 

Tallahassee, FL 32301
 

(904) 755-7740
 

http://www.volunteerflorida.org/ 

Governor’s Office of Faith-Based and Community Initiatives
 

77 South High Street 30th Floor
 

Columbus, OH 43215-6117
 

(614) 466-3398
 

www.fbciohio.gov 

Governor’s Office of Faith-Based and Community Initiatives 

Office of Governor Tim Pawlenty
 

50 Sherburne Ave�, Room 200
 

St� Paul, MN 55155
 

(651) 201-2567
 

www.faithandcommunity.state.mn.us 

New Jersey Department of State 

Office of Faith-Based Initiatives
 

225 West State Street
 

Trenton, NJ 08625-0456
 

(609) 984-6952
 

www.state.nj.us/state/faith/ 

Governor’s Office of Faith-Based and Community Initiatives
 

625 Silver SW #448
 

Albuquerque, NM 87102
 

(505) 841-4582
 

OneStar Foundation 

Office of the Governor
 

816 Congress, Suite 900
 

Austin, Texas 78701
 

(512) 473-2140
 

www.onestarfoundation.org 

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QQ: What are some examples of state fbci Web sites? 

AQ: Look at examples of State level FBCI Web sites to see how others have compiled 

and posted information related to their initiatives, although HHS does not 

necessarily endorse the content on these sites� Here are descriptions of a 

few sites: 

Arkansas Governor’s Office of Community and Faith-Based Initiatives 

– Access this site at: http://www.arkansas.gov/faith� In addition to links to 

federal funding information, the “Accessing Funding” link also allows for 

a search of funding opportunities within the State of Arkansas� The site 

includes information about best practices� 

Connecticut Department of Labor’s Center for Faith-Based and 

Community Initiatives – Although not focused on HHS programs, this site 

includes basic information that will be of interest to FBCOs and, in part, to 

State FBCI administrators� Most of the information is not, however, tailored 

to specific opportunities within the State� The site is accessed at: http://www. 

ctdol.state.ct.us/fbo/default.htm� 

Texas Workforce Commission – This site provides a link to Faith-Based 

and Community-Based Services/Charitable Choice information� From the 

Charitable Choice page, there is a Charitable Choice Bulletin Board under 

that provides a way for faith-based and community groups to announce their 

services and to initiate a discussion with government about collaboration 

possibilities� The site can be accessed at: http://www.twc.state.tx.us/ 

Virginia Department of Social Services – This site features “Questions 

and Answers” about its Faith-Based and Community Initiative, along with 

background information on Charitable Choice� The site can be accessed at: 

www.dss.state.va.us/community/faith.html� 

At least 35 States have either an office or a liaison for FBCOs in the governor’s 

office, a State agency, or a governor-appointed foundation� A list of these 

can be found at www.whitehouse.gov/government/fbci/contact-states.html� 

Similar offices or liaisons are also being established at county and city levels 

throughout the United States� 

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QQ: Where can a more detailed description of charitable choice and 

equal treatment provisions be found? 

AQ: A detailed description of these rules is outlined below: 

•	 Charitable Choice statutory provisions of the Public Health Service Act— 

The final rule applies to the Substance Abuse Prevention and Treatment 

(SAPT) Block Grant program, to the Projects for Assistance in Transition 

from Homelessness (PATH) formula grant program (affecting recipients 

providing substance abuse services under the program), and to SAMHSA 

discretionary grants for substance abuse treatment or prevention services� 

These provisions ensure that religious organizations are able to compete 

on an equal footing for federal substance abuse funding administered by 

SAMHSA, without impairing the religious character of such organizations 

and without diminishing the religious freedom of SAMHSA beneficiaries� 

•	 TANF Charitable Choice statutory provisions in Section 104 of the Personal 

Responsibility and Work Opportunity Reconciliation Act of 1996 (PRWORA) 

— The final rule clarifies that States have the authority to administer and 

provide TANF services through contracts with charitable, religious, or private 

organizations and to provide beneficiaries with certificates, vouchers, or 

other forms of disbursement, which are redeemable for TANF services with 

such organizations� The TANF Charitable Choice provisions enable religious 

organizations to compete on an equal footing for funds under the TANF 

program, without impairing the religious character of such organizations or 

diminishing the religious freedom of TANF beneficiaries� 

•	 Charitable Choice statutory provisions in the Community Services Block 

Grant Act—The final rule authorizes States to provide an opportunity 

for active participation by faith-based groups, as well as other charitable, 

private, and neighborhood-based organizations, in programs directed to 

eliminate poverty� 

•	 Provisions in the Child Care Development Block Grant Act—The Child 

Care Development Fund is subject to six provisions of the Child Care 

Development Block Grant Act which address faith-based and communitybased providers� These address issues such as parental choice, use of funds 

for inherently religious purposes and activities, and limits on use of funds 

for renovation and repair of facilities� 

More information on the first three rules can be found at www.hhs.gov/fbci/ 

regulations/index.html. 

In 2004, several federal agencies, including HHS, issued final rules in 

2004 implementing Executive Branch policy that, within the framework 

of constitutional guidelines, faith-based organizations should be able to 

compete on an equal footing with other organizations for federal funding� 

Below is a listing of these rules along with Web sites where more information 

about these regulations is available� 

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•	 The Department of Education’s final rule—which encompasses all the 

Department’s grant programs that involve private grantees—can be 

accessed at www.ed.gov/legislation/Fedregister/finrule/2004-2/060404a.html. 

•	 The Department of Veterans Affairs’ (VA) final rule—which applies to the 

VA Homeless Providers Grant and Per Diem Program—can be accessed at 

www1.va.gov/homeless/docs/Final_rule_religious_organizations.pdf. 

•	 The Department of Housing and Urban Development’s (HUD) final 

rule—which applies to all of the Department’s programs and activities— 

can be accessed at www.hud.gov/initiatives/fbci/faithbasednotice.pdf. 

•	 The Department of Agriculture’s (USDA) final rule—which augments 

USDA regulations to bring them into compliance with Executive Branch 

policy—can be accessed at www.usda.gov/documents/finalrule.pdf. 

•	 The Department of Labor’s (DOL) final rule—which revises the Employment 

and Training Administration’s regulation on religious services at Job Corps 

centers and the Department’s Workforce Investment Act of 1998 (WIA) 

regulations relating to the use of WIA Title I financial assistance to support 

employment and training in religious activities, and employment at specified 

locations defined with reference to certain religious activities—can be 

accessed at www.dol.gov/cfbci/equaltreatment.htm. 

•	 The Department of Justice’s final rule—which removes unwarranted barriers 

to participation of FBCOs by amending regulations of the Office of Justice 

Programs, Bureau of Prisons, National Institute of Corrections, Community 

Oriented Policing Services, Office on Violence Against Women, United States 

Marshals Service, Asset Forfeiture and Money Laundering Section of the 

Criminal Division, and Civil Rights Division—can be accessed at www.usdoj. 

gov/fbci/docs/28cfr38_2.pdf 

•	 The U�S� Agency for International Development’s final rule—which 

revises existing regulations pertaining to grants, cooperative agreements, 

and contracts awarded for the purpose of administering grant programs 

to ensure their compliance with Executive Branch policy and to clarify 

that FBCOs are eligible to participate in programs on the same basis as 

any other organization, with respect to programs for which such other 

organizations are eligible—can be accessed at www.usaid.gov/policy/ads/300/ 

updates/iu3-0502.pdf 

Third, in some agencies, specific modifications have been made to regulations 

affecting designated program activities� The following are two examples of new 

regulatory modifications: 

•	 In 2003, HUD revised its regulations to remove barriers to the participation 

of FBCOs in certain HUD programs� This rule clarifies that no group 

of applicants competing for HUD funds should be subject, as a matter of 

HUD’s discretion, to greater or fewer requirements than other organizations 

solely because of their religious character or affiliation, or absence of 

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religious character or affiliation� Applicants for HUD funds and those 

applicants selected to receive HUD funding should generally be subject 

to the same requirements� This rule can be accessed at a257.g.akamaitech. 

net/7/257/2422/14mar20010800/edocket.access.gpo.gov/2003/pdf/03-24326.pdf]� 

•	 In 2004, DOL revised the interim final regulations implementing the 

equal opportunity and nondiscrimination provisions of the Workforce 

Investment Act of 1998� The final revision allows participants to use their 

individual training accounts, or similar training accounts, for religious 

training as long as the training account programs afford participants 

genuine and independent choice between religious and nonreligious 

options and the religious organizations serving as eligible training 

providers otherwise satisfy the requirements of the program� This rule 

can be accessed at www.dol.gov/cfbci/Part37.htm. 

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NOTES 

notES
 

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notES
 

NOTES 

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A Guide for State and Local Officials Administering Federal Block and Formula Grant Funds 95
 

U.S. Department of Health and Human Services 


Center for Faith-Based and Community Initiatives
 

200 Independence Avenue, SW
 

Washington, DC 20201