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Welfare Reform in California——State and County Implementation of CalWORKs in the Second Year

目录
ContentsPreface...................................................   iiiFigures ..................................................   xiTables ..................................................   xiiiSummary.................................................   xviiAcknowledgments .......................................   xxxiiiAbbreviations ..........................................   xxxv1.INTRODUCTION.......................................   1Background ...........................................   1Objectives of This Report..................................   2Methods..............................................   2A Theoretical Perspective on the Implementation Process ..........   4A Linear View of the Welfare Reform Implementation ...........   5A Richer View of Implementation ..........................   7Organization of the Document..............................   92.PRWORA AND CALWORKS:  LEGISLATIVE PROVISIONSAND SUBSEQUENT CASELOAD TRENDS ....................   13Provisions of PRWORA...................................   13Provisions of CalWORKs..................................   15The CalWORKs Program Model ............................   18Caseload and Unemployment Trends after PRWORA andCalWORKs.........................................   193.IMPLEMENTATION OF CALWORKS AT CDSS ................   25CDSS’s Role in Issuing CalWORKs Regulations .................   26How the Regulatory Process Unfolded........................   26CalWORKs Regulatory Issues .............................   31Federal Regulatory Issues ................................   42The New Administration and “Modified Work-First”............   52Reporting Requirements ..................................   53What Information CDSS Needs ............................   54Problems with Current County Data Systems .................   55Current Status of Reporting ..............................   59What Is Needed for Program Management ...................   64The CDSS-CWD Relationship and CDSS ......................   65Conclusions ...........................................   674.FUNDING OF CALWORKS ...............................   69Funding Sources and Flows................................   69Federal Funding for CalWORKs ............................   70State CalWORKs Budget and County Fund Allocations ..........   72Budgeted Spending by CDSS and Counties ....................   77Estimated State-Level Funding Trends ......................   77viMOE Compliance.......................................   80County Spending .......................................   81Subsequent State Funding Decisions .........................   84Discussion ............................................   905.COUNTY IMPLEMENTATION: ORGANIZING FORCALWORKS ..........................................   91The Growth of Workload Under CalWORKs and theImplications for Capacity ..............................   92Intermediate-Term Workload Effects .......................   93Short-Term Workload Effects .............................   97How Counties Dealt with the Increasing Workload ..............   98Prioritizing Tasks......................................   99The Decision to Increase Capacity..........................   100The Strategy of Outsourcing ...............................   102Considerations in Making the Outsourcing Decision ............   102What Was Outsourced to Whom?..........................   107Contracting Process for Outsourcing........................   108Terms of Outsourcing Contracts ...........................   111How Long Did It Take to Outsource? .......................   112The Strategy of Adding Staff...............................   113The Process of Adding Staff ..............................   113The Process of Making Staffing Structure Changes .............   116What Staffing Strategies Did the Counties Choose? .............   119Labor Relations .......................................   125Changing Program Philosophy and Outcomes-BasedManagement.......................................   127Conclusions ...........................................   1326.DELIVERING CALWORKS AT THE STREET LEVEL ............   133The CalWORKs Process of Implementation ....................   134A Static View of the Status of Implementation ..................   137Initial Phase: Steps Through the Signing of a WTW Plan...........   141Describing the Content of the Initial Phase ...................   141The Flow of Participants Through the Initial Phase .............   145Processing the Existing Caseload ..........................   148One Other Exit Route from the Initial Phase: Exemptions andSIPs..............................................   157Pure Work-First.......................................   157Modified Work-First ...................................   158Diversion ...........................................   161Second Phase—Welfare-to-Work Activities ....................   161Assessment and Development of a WTW Plan ................   162WTW Activities.......................................   164The 18/24-Month Time Limit .............................   168Another Exit Route from the Initial Phase: Noncompliance andSanction...........................................   172Levels of Noncompliance ................................   173Reasons for Noncompliance ..............................   174County Home Visit Programs ............................   178Legislative Provisions to Address Noncompliance..............   181County Responses .....................................   181viiSanction Rates ........................................   185Another Exit Route from the Initial Phase: Employment ...........   188The Need for PES Programs ..............................   189The Goals of PES Programs...............................   190County PES Programs ..................................   192Conclusions ...........................................   1957.CHILD CARE..........................................   197Background ...........................................   197Policy and Legislative Context—Before PRWORA andCalWORKs ........................................   197Policy and Legislative Context—After PRWORA andCalWORKs ........................................   198Institutional Context ...................................   203Funding Context ......................................   205State-Level Issues .......................................   205Interagency Cooperation in the Three-Stage System .............   205Parental Choice .......................................   207Equity ..............................................   211Child Care Quality .....................................   212The Fair Labor Standards Act .............................   214County Concerns .......................................   214The Lack of Local-Level Planning ..........................   214Definitions of Stability ..................................   215Who Should Staff Child Care?.............................   218Providing Training for CWD Staff in Child Care Needs ..........   219Providing Training for Child Care Providers ..................   220Child Care Availability..................................   221
帖子过长，中间省略一些A.Methods..............................................   347B.Federal Welfare Funding after PRWORA ......................   359C.Process for Categorizing Counties for Analysis Using WTW 25Data and County-by-County Analysis ........................   365References ................................................   369