The Evaluation of the Tribal Welfare-to-Work Grants Program:
Initial Implementation Findings

Walter Hillabrant and Mack B. Rhoades, Jr.
Support Services International, Inc.

Nancy Pindus and John Trutko
The Urban Institute

Submitted to:
Department of Health and Human Services
Office of the Assistant Secretary for Planning and Evaluation
Project Officer: Alana Landey

Submitted by:
Mathematica Policy Research, Inc.
Project Director: Alan Hershey

Subcontractors:
Support Services International, Inc.
The Urban Institute

This report is available on the Internet at:
http://aspe.hhs.gov/hsp/wtw-grants-eval98/tribal02/

How to Obtain a Printed Copy

Contents

Executive Summary

Chapters:

1. Introduction
   1. Purpose of the Study
   2. Policy Context
   3. Study Methods and Sites
      1. Study Sites
      2. Site Visits
2. Special Circumstances of Tribes
   1. Legal Status of Tribes and Indian Self-Determination
      1. Self-Determination and Devolution
      2. Self- Determination and Welfare Reform
      3. Adaptation of TANF Rules
      4. Political-Legal Status and Barriers It Poses to Business Development and Employment
   2. Socioeconomic Circumstances in Indian Country
      1. Barriers to Business Development and Job Creation in Indian Country
      2. Cultural-Historical Circumstances of Tribes That Limit Employment and Economic Development
      3. Tribal Efforts to Overcome Barriers to Economic Development
3. Framework and Implementation of the Tribal Welfare-to-Work Program
   1. Legislative Basis
      1. Special Tribal Provisions and Exceptions
      2. Changes in the WtW Legislation
   2. Program Funding
   3. Program Structure
      1. Organizational Placement of the WtW Program
      2. WtW Programs Operated as Part of a 477 Program
      3. Tribal Operation of WtW and TANF Programs
      4. Program and Service Coordination
   4. Program Participation
4. Program Services
   1. Program Outreach and Recruitment
      1. Challenges to Recruitment and Enrollment
      2. Outreach and Recruitment Methods Used by Tribal WtW Programs
   2. Intake and Assessment
      1. Eligibility Determination
      2. Assessment
      3. Use of Assessment Results in Developing Individualized Service Plans
   3. Case Management
   4. Education, Training, and Employment Services
      1. Job Readiness/Preparation Activities
      2. Basic Education and Postsecondary Education and Training Services
      3. Subsidized/Supported Work as a Bridge to Full-Time, Unsubsidized Work
      4. Postemployment Monitoring and Job Retention Support
   5. Supportive Services
      1. Transportation Assistance
      2. Child Care Assistance
      3. Alcohol/Substance Abuse and Mental Health Treatment and Counseling
5. Lessons Learned and Useful Strategies for the Future
   1. Examine Ways to Improve Coordination with Other Programs, Especially TANF
   2. States Can Be an Important Source of Support and Technical Assistance
   3. Cooperation with States Can Strengthen Child Support Enforcement and Fatherhood Initiatives
   4. Forming a Consortium or Establishing a 477 Program Can Help Tribes Implement Welfare Reform and WtW Programs
   5. In Indian Country, It May Be Necessary to Supplement "Work First" with Education, Training, and Supported Work
   6. WtW Programs Can Help Expand Child Care Availability
   7. Expand Successful Approaches to the Transportation Problem in Indian Country
   8. WtW Programs Can Help Support the Economic Development Efforts of Tribes
   9. Next Steps in the Tribal WtW Evaluation

References

Appendix A: Grantee Profiles

Glossary

Acknowledgments

We gratefully acknowledge the time, effort, and advice pertaining to this report provided by: the U.S. Department of Labor's (DOL) Division of Indian and Native American Programs (DINAP); the U.S. Department of Health and Human Services (DHHS) Administration for Children and Families (ACF), Division of Tribal Services (DTS); and the National Congress of American Indians (NCAI).

In addition, the advice and review of the Tribal Workgroup (TWG) proved to be invaluable. We appreciate the time and effort of the TWG members: Harold Bahe (Navajo Nation), Dr. Eddie Brown (Buder Center for American Indian Studies), Mr. Leo Cummings (Three Affiliated Tribes), Norm DeWeaver (Indian and Native American Employment and Training Coalition), Dr. David Gipp (United Tribes Technical College), Ms. Virginia Hill, (Torres Martinez Desert Cahuilla Tribe), Rebecca Ondelacy (Zuni Pueblo NEW), Erline Paul (Penobscot Nation), Lorenda Sanchez (California Indian Manpower Consortium, Inc.), and Bobbie Whitefeather (Chairman, Red Lake Band of Chippewa Indian Nation).

Finally, we wish to thank the Welfare-to-Work (WtW) grantees who participated in the study: the California Indian Manpower Consortium, Inc. (CIMC), the Eastern Band of Cherokee Indians, the Kickapoo Tribe in Kansas, the Klamath Tribes, the Navajo Nation, the Nez Perce Tribe, the Red Lake Band of Chippewa Indians, the Tanana Chiefs Conference, Inc. (TCC), the Three Affiliated Tribes, and the White Earth Reservation Tribal Council. These WtW grantees face many challenges, have unmet needs, and have limited resources. Nevertheless, they have freely given time and assistance to the study, with the goal of improving their own efforts and those of all tribes and Native Villages to help Indian people achieve self-sufficiency and end dependence on welfare. Without their cooperation and support, this report would not have been possible.

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Last updated:  03/12/02