STATE OF OHIO

OHIO DEPARTMENT OF JOB AND FAMILY SERVICES

TEMPORARY ASSISTANCE TO NEEDY FAMILIES (TANF) PROGRAM

STATE TITLE IV-A PLAN

Submitted pursuant to 42 U.S.C. 602
July 31, 2001

Ohio Department of Job and Family Services
State Office Tower
32nd Floor
30 E. Broad St.
Columbus, OH 43266-0423
614.466.6282

Gregory L. Moody, Director
The Honorable Bob Taft, Governor

Section I

OVERVIEW OF OHIO'S TANF PROGRAMS

General Overview

In 1997, the Ohio General Assembly enacted and then-Governor George Voinovich signed House Bill 408, landmark legislation that fundamentally changed the nature of welfare assistance in Ohio. The law eliminated the Aid to Dependent Children program and replaced it with two innovative programs -- Ohio Works First (OWF) and Prevention, Retention and Contingency (PRC). With these two programs, Ohio has transformed public assistance from a system focused on entitlement to one focused on employment, personal responsibility, and sustained self-sufficiency.

House Bill 408 built on welfare reform provisions in the federal Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA), which Congress enacted in 1996. While given much flexibility through PRWORA, Ohio recognizes that states must comply with all provisions of federal law and regulation.

Within Ohio, welfare reform has been implemented as a partnership between the state and counties, with the Ohio Department of Job and Family Services (ODJFS) entering into a Partnership Agreement with each Board of County Commissioners. House Bill 408 delegated a significant amount of decision-making to counties, giving them the flexibility to create assistance programs that meet community needs. ODJFS provides technical assistance to the 88 County Departments of Job and Family Services and monitors performance measures.

The success of welfare reform in Ohio has been significant. Ohio's cash assistance caseload peaked in March 1992 with 748,717 recipients, but had declined to 422,442 recipients by October 1997. In the two years since the enactment of House Bill 408, the caseload has declined dramatically to 251,735 recipients (August 1999).

Overview of Ohio's TANF Programs

In Ohio, the following programs and services are supported through the TANF program. Other programs act as supports to families as they pursue self-sufficiency.

Ohio Works First - OWF is a county-administered, state-supervised program that serves every political subdivision in the State. OWF provides time-limited assistance to needy families with (or expecting) children, by furnishing parents or specified relatives with work, training, and other support services they need in order to attain permanent self-sufficiency while meeting the family's ongoing basic needs. Non-time-limited OWF cash assistance is also provided to child-only cases.

Prevention, Retention and Contingency - PRC is a county-administered, state-supervised program that serves every political subdivision in the State. The program is designed to provide benefits and services that are not considered assistance in accordance with 45 CFR 260.31. PRC provides ongoing services and nonrecurring short-term benefits designed to accomplish one of the four purposes of TANF by addressing supports needed by working families and by addressing the needs of families with barriers to self-sufficiency. The goal is always to provide the appropriate mix of cash and non-cash services that will enable the family to achieve self-sufficiency. Ohio chooses to provide services authorized by the Title IV-A Plan that was in effect on August 21, 1996. This plan authorizes Ohio to fund certain medical services and certain Child Welfare services with TANF dollars. The specific Title IV-A plan is in Appendix A.

Separate State Program - In Ohio, as in many states, drug and alcohol addiction plays an ever increasing role in family dysfunction as well as economic and social dependency. In order to better address this underlying cause of dependency, Ohio has created a Separate State Program (SSP) to provide prevention, treatment and mentoring services for youth and adults where drug and alcohol abuse threatens their ability to become economically self-sufficient and to care for children in their own home.

Other TANF-Funded Benefits and Services - ODJFS administers other TANF-funded programs and components of Title IV-A programs which provide benefits and services to TANF-eligible individuals, as established by the Ohio General Assembly or Executive Order issued by the Governor. The benefits and services provided under this section are not considered assistance as defined in 45 CFR §260.31(a) and are benefits and services that 45 CFR § 260.31(b) excludes from the definition of assistance.

Family Supports - A very important component in moving people away from public assistance and toward self-sufficiency is the provision of adequate family supports. As families move into regular, meaningful employment, it is imperative that they are given the opportunity to access support services that help them maintain their jobs. Assistance with buying food, getting health coverage, paying for child care and transportation are all family supports that assist families in their pursuit of success.

Overview of Funding

ODJFS will structure Federal TANF funds and State MOE funds in a manner consistent with federal and state law, as well as the efficient and effective operation of programs designed to serve the needs of families envisioned in the purposes of TANF. The structure of funding may include the following:

• Segregated TANF funds expended in the TANF program
• Segregated State MOE funds expended in the TANF program
• Commingled Federal TANF and State MOE funds expended in the TANF program
• Separate MOE funds expended on state programs operated outside the TANF program

To the extent allowable under P.L. 104-193, the State may transfer funding from the TANF Block Grant to the Social Services Block Grant and the Child Care Development Fund.

Section II

OPERATIONAL PROCEDURES FOR OHIO'S TANF PROGRAMS

Ohio Works First

The OWF program is the primary program for providing cash assistance to needy families and requires participants to engage in work activities based on a Self-Sufficiency Contract when the assistance group contains an adult or minor head-of household. OWF encourages family self-sufficiency through employment while it meets temporary needs through the provision of cash assistance.

When determining eligibility for OWF, the State will require that the assistance group contain a minor child who resides with a custodial parent, legal guardian, legal custodian or specified relative caring for the child (under Ohio law, guardians and custodians stand in loco parentis); or a woman who is at least six months pregnant. Additionally, all adult members or minor heads of household must sign and comply with a self-sufficiency contract. There is no resource limit/asset test in the OWF program.

Initial Income Test

The first step in determining whether a family is financially eligible to participate in OWF is the state's initial income test. The initial income test is a modified program eligibility test, similar to the initial eligibility test formerly prescribed by AFDC regulation. The earned income disregard is not applied at this initial income test.

The assistance group is ineligible to participate in OWF if the assistance group's gross income, less amounts disregarded by departmental rule, exceeds the amounts in the chart that follows. The income amounts that are disregarded in the initial income test are from income sources which the state has chosen to exclude from the definition of gross earned and gross unearned income (e.g., SSI, income excluded under the food stamp program regulations). In addition, for purposes of applying this initial income test, the actual dependent care costs (up to allowable maximums defined in the state's rule) paid by the assistance group for nonpublicly funded dependent care for an incapacitated adult or a child who is a member of the assistance group are also disregarded. The remaining family gross monthly income is compared to the amounts designated for the family size in the chart that follows.

* For each person in the assistance group that brings the assistance group to more than fifteen persons, add one hundred two dollars to the amount of gross income for an assistance group of fifteen specified above.

Continued Eligibility

If the remainder of the family's gross monthly income does not exceed the amount designated for the family size in the initial income test chart, the family passes the initial income test. Once determined eligible to participate, the family's OWF cash benefits are determined by deducting the $250 and ½ earned income disregard from the family's gross monthly earned income, and deducting the nonpublicly funded dependent care costs (up to allowable maximums). The family's unearned income is added to the remainder, and the total is compared to the OWF payment standard for the family size. The OWF payment is the difference derived from subtracting the family's countable income from the OWF payment standard for the family size.

A temporarily absent individual is considered to be in the home for eligibility purposes under OWF. The absence of a member of the assistance group is temporary if all the following conditions are met:

(1) The location of the absent individual is known;

(2) There is a definite plan for the return of the absent individual to the home;

(3) The absent individual shared the home with the assistance group prior to the onset of the absence.

A minor child or parent/specified relative who, without good cause, has been, or is expected to be, absent from the home for a period of forty-five consecutive days or longer does not meet the temporary absence requirement for OWF. Exceptions to this requirement are limited to the following good cause reasons:

(1) Hospitalization (includes inpatient drug and alcohol treatment);

(2) Detention in a juvenile home until a court commitment;

(3) Attendance at school;

(4) Vacationing;

(5) Trip made in connection with current or prospective employment;

(6) Shared parenting situations;

(7) Service in the military when it is the sole reason for absence;

(8) Removal of a child(ren) by the Public Children Services Agency (PCSA) if a reunification plan is in place and the parents are cooperating with it. Cash assistance for a child(ren) removed can continue to be provided for up to six payment months after the removal date.

Time Limits

An assistance group is ineligible to participate in OWF if the assistance group includes an adult who has participated in the program for thirty-six months. The assistance group then remains ineligible for twenty-four months. After that period, if good cause exists according to the CDJFS, the assistance group may be eligible for up to an additional twenty-four months of cash assistance. The additional period of eligibility requires the establishment and compliance with a new self-sufficiency contract. Based on a waiver inconsistency (Appendix A), State and Federal time limits began on 10/1/97, and will not be applied retrospectively to participants who received assistance and services before 10/1/97.

A CDJFS may exempt up to twenty percent of the average monthly number of families receiving OWF from the time limit on the grounds that they determine that the time limit is a hardship. This is not applicable unless the group has exhausted its thirty-six months of cash assistance.

Benefit Levels

The maximum OWF benefit levels available to assistance groups are based on the assistance group size. The following chart provides the standards:

The above payment standards will be increased by 3% effective January 1, 2000.

Assessment/Appraisal

The goal of OWF is that every family becomes self-sufficient. As soon as possible after an assistance group submits an application for OWF cash assistance, the CDJFS conducts an appraisal of each member of the assistance group who is a minor head of household or an adult. The appraisal includes an evaluation of employment history, education, skills, abilities, interests, and work barriers in order to formulate an employment goal and a plan to achieve self-sufficiency for the individual and the family. The CDJFS also assesses the skills, prior work experience and employability of each participant who has not attained 18 years of age, and has not completed high school or obtained a high school equivalency certificate, and is not attending secondary school.

Self-Sufficiency Contracts

Under OWF and pursuant to 42 U.S.C. 608 (b)(2), each member of an assistance group who is a minor head of household or an adult must enter into a written agreement with the CDJFS that is known as a self-sufficiency contract (SSC). The SSC must be signed within thirty days of applying for assistance or undergoing an eligibility redetermination, and should be based on the mandatory appraisal that each CDJFS is required to perform of each assistance group applying for assistance. The SSC sets forth the rights and responsibilities of both the assistance group and the CDJFS. Each SSC will include (but not be limited to) the following items:

• The assistance group's plan to achieve self-sufficiency and personal responsibility through unsubsidized employment within the time limits specified for participation;
• Work assignments for each adult member or minor head-of-household in the assistance group -- this should include the type of assignment (federally-allowable work activities, developmental activities, and/or alternative work activities), what the specific assignment is, and the number of hours required. In the case of a two-parent family, one parent may complete the requirement for the assistance group;
• Responsibility of the caretaker member of the assistance group to cooperate in establishing the minor child's paternity and establishing, modifying, and enforcing a support order for the child;
• Other responsibilities that members of the assistance group must satisfy to participate in OWF;
• The consequences to the assistance group for failure or refusal without good cause to satisfy all the responsibilities inherent in the SSC;
• Assistance and services to be provided to the assistance group by the CDJFS, the Child Support Enforcement Agency, and the Public Children Services Agency;
• Other provisions designed to enable the assistance group to achieve self-sufficiency and personal responsibility;
• Procedures for assessing participant and CDJFS compliance with the terms of the SSC and whether the contract should be amended; and
• Procedures for amending the contract.

If a member of an assistance group fails or refuses to comply in full with a provision of their SSC without good cause, the CDJFS shall sanction the assistance group in accordance with the legislatively prescribed sanction policy.

ODJFS has developed a descriptive self-sufficiency contract model. Counties are not required to use the model, but must remain consistent with OWF provisions if they choose to adopt their own model.

General Work Provisions

No OWF participant can be assigned to a Federal Work, Developmental or Alternative Work Activity when the employer removes or discharges another person for the purpose of substituting the participant in the person's place. This is true for any of the following circumstances where:

• The person is already employed as a regular, full-time or part-time employee;
• The person has been employed full-time or part-time as a participant in a work activity, developmental activity or alternative work activity;
• The person is, or has been, involved in a dispute between a labor organization and the employer;
• The person is on a layoff from the same or any substantially equivalent job.
• No employer can hire a participant to circumvent hiring a full-time employee. Each CDJFS shall have a grievance process to resolve complaints by employers and participants.

Exemptions From Work Activities

There are limited exemptions from work requirements. Child-only cases are exempt and Ohio will take the state option which exempts a single-parent who is caring for a child under twelve months from the federal work participation requirements. This option will be passed to the counties, who may either choose to accept it or not. For single-parent families that are exempt from the federal requirement, under state law the CDJFS will require the single-parent to participate in Developmental Activities.

Work Activities

Federally-Allowable Work Assignments

A significant number of adults and minor heads of households participate in the work activities that are prescribed under Federal law. They are defined as follows:

1) Employment - employment where an individual receives compensation for services performed. This also includes activities that the CDJFS deems to be legitimately entrepreneurial.

2) Work Experience Program (WEP) - the program in which individuals work without pay at a job site in a public, private-non-profit or private-for-profit organization in order to gain work experience and training. It may also include activities ensuring that participants become familiar with workplace expectations and exhibit work behavior and attitudes necessary to compete successfully in the labor market. WEP may include specific hands-on-training in a classroom or laboratory setting. WEP may include child care service activities in which a participant provides child care for another participant's child. WEP may include Community Service activities including a program under which a participant of OWF who is responsible for a minor child enrolled in grade twelve or lower is involved in the minor child's education on a regular basis. An individual who is assigned to be involved with the minor child's education would be required to attend academic home enrichment classes that provide instruction for parents in creating a home environment that prepares and enables children to learn at school as well as a work assignment at the school that the child attends.

3) Subsidized Employment Program (SEP) - the program in which individuals work with pay at job sites in public, private-non-profit or private-for-profit organizations in order to gain specific occupational training. As a part of this on-the-job training, a subsidy is provided to the employer for a specified period of time.

4) Job Search and Job-Readiness Activities - the programs which assist individuals in acquiring the strategies and skills to be used in obtaining, retaining or improving employment; and those activities to seek and secure employment as directed and approved by the CDJFS.

5) Vocational Education - a program of education and training with a goal of enabling an individual to obtain employment. Vocational education includes college, technical, vocational, or other course work leading toward a degree, certificate or license. Study time may be included in this activity.

6) Job Skills Training - a program designed to increase an individual's employability potential. It may include college, technical, vocational, or other course work. It may also include activities ensuring that participants become familiar with workplace expectations and exhibit work behavior and attitudes necessary to compete successfully in the labor market. Various types of structured programs would qualify, such as rehabilitation services, counseling, personal development and pre-employment classes. Study time may be included as part of this activity.

7) Education Related to Employment - any educational program provided to someone who does not have a high school diploma or GED. Study time may be included as part of this activity.

8) Basic Education Activities - a program provided to an individual who does not possess basic literacy skills whether or not they have obtained a high school diploma or equivalent. Basic education may include high school or equivalent education and adult basic and literacy education. Study time may be included as part of this activity.

Developmental Activities

Developmental Activities are a special feature of the OWF program. For many assistance groups, Developmental Activities serve as a supplement to the Federal Work Activities, and are performed in hours required above and beyond the work hours that are required to satisfy the work participation requirements in P.L. 104-193. For other assistance groups, such as single-parents with children under age one who are exempt from the federal work requirements, Developmental Activities are assigned.

In establishing Developmental Activities, county departments are not limited by the restrictions that Title IV-A imposes on work activities. Developmental Activities may be the same as, similar to, or different from Federal Work Activities and Alternative Work Activities. Developmental Activities may be any type of activity that moves the family toward self-sufficiency. Because Developmental Activities are not limited to Federal Work Activities, participants assigned to these activities will not necessarily be counted in the numerator of the participation rate calculation.

Examples of Developmental Activities include basic education, mental health counseling, or vocational rehabilitation services.

Alternative Work Activities

In cases where traditional work activities are unsuitable, and individuals are unable to fully participate in Federal Work Activities, individuals are placed in Alternative Work Activities appropriate to their specific circumstances and needs.

Participants placed in Alternative Work assignments are assigned to activities that may include, but are not limited to: 1) parenting classes and life-skills training; 2) participating in certified alcohol or drug addiction programs; 3) in the case of a homeless assistance group, finding a home; 3) in the case of a minor head of household or an adult with a disability, active work in an individual written rehabilitation plan with the Rehabilitation Services Commission; 4) in the case of a minor head of household or adult who has been the victim of domestic violence, residing in a domestic violence shelter, receiving counseling or treatment related to the domestic violence, or participating in criminal justice proceedings against the domestic violence offender.

Like Developmental Activities, Alternative Work Activities may be any activity that moves the family toward self-sufficiency. No more than twenty percent of adults and minor heads of households participating in OWF may be assigned to Alternative Work Activities. The CDJFS shall establish standards for determining whether an adult or minor head of household has a temporary or permanent barrier to participating in Federal Work Activities.

Work After Two Years

Each CDJFS will immediately assess and assign at least one adult or minor head of household in each family to a Federal Work, Developmental or Alternative Work Activity. ODJFS and each CDJFS understands that, pursuant to 42 U.S.C. Section 602 (a)(1)(A)(ii), each family must be participating in some type of a work activity after receiving cash assistance for 24 months. Since Ohio requires individuals to be appraised and assigned to a work activity as soon as possible after OWF application, all families should have received an assignment by the time the 24 month period is reached.

Community Service After Two Months

Ohio will opt out of the provision which requires a parent or caretaker receiving assistance under OWF to participate in community service after two months if the parent or caretaker is not engaged in or exempt from work activities (Appendix C). The Community Service Activity is not necessary to offer in Ohio because all adults and minor heads of household are assessed and assigned to Federal Work, Developmental, or Alternative Work Activities at the time of application for assistance.

Number of Hours Required to Work

Single-parent assistance groups are required to participate in a Federal Work or Developmental Activity for at least 30 hours per week. Single-parent families with a child age 6 or over are required to participate at least 30 hours in a Federal Work Activity. Single-parent families with a child under the age of six are required to participate at least 30 hours in an activity, 20 of which must be in a Federal Work Activity and the remaining ten hours must be in a Federal Work Activity or a Developmental or Alternative Work activity.

Two-parent assistance groups are required to participate in a Federal Work Activity for at least 35

hours per week if the family is not receiving federally funded child care and 55 hours per week if the family is receiving federally funded child care. As noted above, one parent may complete the requirement for the assistance group.

Single-parent families with a child under the age of one are required to participate in a Developmental Activity for the number of hours required by the county. The county has the option of assigning a parent with a child under the age of one to a Federal Work Activity and including that family in the federal participation rate calculation.

Sanctions

Each CDJFS establishes standards for the determination of good cause for failure or refusal to comply in full with the provisions of the Self-Sufficiency Contract. The first failure or refusal results in OWF ineligibility for the entire assistance group for one payment month, or until compliance, whichever is longer. The assistance group may also receive a reduction in food stamp benefits. The second failure or refusal causes OWF ineligibility for the entire assistance group for three payment months or until compliance, whichever is longer. The assistance group may also receive a reduction in food stamp benefits. The third or subsequent failure or refusal results in OWF ineli gibility for the entire assistance group for six payment months or until compliance, whichever is longer. For a third or subsequent failure, the individual who failed or refused to comply without good cause is also ineligible for Medicaid if it was a work-activity failure. Other assistance groups remain eligible for Medicaid.

Assistance groups who are sanctioned may remain eligible for publicly-funded child care and support services. A sanctioned assistance group may or may not be eligible to receive PRC, based upon the established PRC plan of the CDJFS.

Ohio statute requires that after sanctioning an assistance group for failure to comply with a provision of the self-sufficiency contract, the CDJFS continues to work with the assistance group to provide the member of the assistance group who caused the sanction an opportunity to demonstrate a willingness to cease the failure or refusal.

Ombudsperson

Ohio statute requires each CDJFS to have at least one OWF ombudsperson. The OWF ombudsperson acts as a liaison between the OWF applicant/participant and the CDJFS.

Work Participation Rates

Ohio will comply with provisions related to work participation rates outlined in 42 U.S.C. section 607.

Domestic Violence Option

Ohio has elected not to take the domestic violence option at this time.

Prevention, Retention & Contingency

Services

The PRC program provides benefits and services to needy families and low-income working families who are in need of help with essential supports to move out of poverty and achieve self sufficiency. The program is designed to provide benefits and services that are not considered assistance in accordance with 45 CFR 260.31. The PRC program provides a broad variety of services and short-term benefits to needy families that are designed to accomplish one of the four purposes of TANF.

In addition, Ohio chooses to provide services authorized by the Title IV-A Plan that was in effect on August 21, 1996. This plan authorizes Ohio to fund certain medical and certain Child Welfare services with TANF dollars. The specific Title IV-A Plan is in Appendix A.

Prevention services are designed to be provided to a PRC assistance group (the PRC assistance group is not necessarily the same as an assistance group as defined in OWF) to divert them from ongoing cash assistance and help them reach self-sufficiency by helping them through the presenting crisis. Retention services are provided to the PRC assistance group to allow an employed member to maintain employment, and thereby achieve or continue self-sufficiency. Contingency services are provided to the PRC assistance group to meet an emergent need which, if not met, threatens the safety, health or well-being of one or more PRC assistance group members.

Among the TANF-allowable services that may be provided to TANF-eligibles are: services for unruly and misdemeanant youth; information and referral services to kinship caregivers concerning access to legal services, child care, respite care and financial assistance; adult literacy and child reading services; workforce development and supportive services; economic development; technology expansion, technical assistance, and training; youth job training; organizational development for workforce development partners; job creation and retention services; improving existing technology centers, purchasing technology, technology upgrades and technology infrastructure upgrades; teen pregnancy prevention services; out-of-wedlock pregnancy prevention services; school readiness services such as, counseling and placement, parent education and parent-child activities, peer support groups, and home visits; disaster relief; transportation services; domestic violence services; after-school programs; family preservation and reunification services; mediation services; employer recruitment; early childhood developmental and intervention services; and post-secondary education and job training.

PRC Administration

Each County Department of Job and Family Services (CDJFS) is required to establish a PRC program. Counties have the flexibility to design PRC in such a way as to best fit the needs of their community and may specify the types of benefits and services they offer including funding for certain services if the county chooses to include them in their plan.

ODJFS is required by state statute to develop a PRC model, which counties may choose to adopt and implement if they so desire. Counties that do not choose the state-developed model must establish and operate a unique PRC program, specifically tailored to the needs of their communities. As a requirement of PRC, all counties must operate fully within the scope of all Federal and State law. In addition, counties must also determine eligibility, distribute benefits, and treat all clients in a fair and equitable manner. Finally, counties must indicate to ODJFS whether they accept the model program, and if not, then they must submit a copy of their PRC program to ODJFS.

The State PRC Model provides optional definitions of assistance group composition, economic need, benefit issuance limits/caps, budget periods and application processing guidelines. It also indicates examples of the range of short-term assistance and services to be provided, such as job preparation services and benefits, work support/retention services and benefits, transportation services and benefits, and shelter benefits.

Appendix D is a matrix which illustrates the scope of each county's PRC plan. Counties can amend their PRC plans at any time. This matrix is updated quarterly. Appendix E is the draft State PRC Model, which ODJFS will finalize shortly.

Separate State Program

Alcohol/Drug Treatment and Mentoring Programs - In Ohio, as in many states, drug and alcohol addiction plays an ever increasing role in family dysfunction as well as economic and social dependency. In order to better address this underlying cause of dependency, Ohio has created a Separate State Program to provide for prevention, treatment and mentoring services for youth and adults where drug and alcohol abuse threatens their ability to become economically self-sufficient and to care for children in their own home.

Services will be provided to members of needy families with dependent children under 200% of poverty. These programs will be administered by the Ohio Department of Alcohol and Drug Addition Services (ODADAS) in accordance with an interagency agreement between ODADAS and ODJFS. ODADAS will work closely with the County Departments of Job and Family Services, Public Children Services Agencies and local providers to identify the service needs of the target population and develop service interventions appropriate to those needs.

Other TANF-Funded Benefits and Services

ODJFS administers other TANF-funded programs and components of Title IV-A programs which provide the following benefits and services to TANF-eligible individuals, as established by the Ohio General Assembly or Executive Order issued by the Governor. The benefits and services provided under this section are not considered assistance as defined in 45 CFR §260.31(a) and are benefits and services that 45 CFR §260.31(b) excludes from the definition of assistance.

TANF Education Program - This program consists of two components and is administered by the Ohio Department of Education (DOE), in accordance with the terms of an interagency agreement between ODE and ODJFS. Both components of the program provide TANF-allowable services to TANF-eligible individuals with income at or below 200 percent of the federal poverty guidelines.

Head Start Services Component - One component of the program provides TANF- allowable Head Start services to TANF-eligible individuals. Head Start services are focused on the importance of early childhood and family development. It is targeted toward providing children aged three to five with activities and opportunities that are designed to improve the cognitive abilities of young children in preparation for their entry into kindergarten.

Student Intervention Component - Beginning in state fiscal year 2003, the other component of the program will provide TANF-allowable Title IV-A student intervention services.

TANF Family Planning - The TANF Family Planning program is administered by the Ohio Department of Health (ODH) in accordance with an interagency agreement between ODH and ODJFS. The program provides TANF-allowable family planning services for TANF-eligible families whose income is at or below 200 percent of the federal poverty guidelines.

TANF Housing Program - The TANF Housing Program is administered by the Ohio Department of Development (DOD) in accordance with an interagency agreement between DOD and ODJFS. The program provides TANF-allowable supportive services for TANF-eligible low-income families related to housing or homelessness, including housing counseling; to provide grants to nonprofit organizations to assist Title IV-A eligible families with income at or below 200 percent of the federal poverty guidelines with down-payment assistance for home ownership or down-payment assistance toward the purchase of mobile homes, to provide emergency home repair funding for Title IV-A eligible families with income at or below 200 percent of the federal poverty guidelines; to provide operating support for family emergency shelter programs; and to provide emergency rent and mortgage assistance for families with incomes at or below 200 percent of the federal poverty guidelines.

Adoption Services - Federal TANF funds will be used to recruit, promote and support the formation and maintenance of two-parent adoptive families and for needy single-parent adoptive families. Post-adoptive services will be provided to ensure the success of these placements and to prevent disruption of the families.

Faith-Based Initiatives

Faith-Based and Non-Profit Capacity Building Program - The Faith-Based and Non-Profit Capacity Building Program supports capacity-building efforts among faith-based and non-profit organizations for the purpose of providing TANF-allowable services to TANF-eligible individuals.

Family Supports

The following support services are offered to individuals to help them maintain their jobs:

• Medicaid Eligibility. To the extent allowed by law, Medicaid eligibility is aligned with eligibility for the Ohio Works First program, so that all participants have access to quality heath care. Upon leaving OWF, former participants may have up to one year of extended Medicaid eligibility to help them make the transition from public assistance to self-sufficiency. Additionally, many families who are diverted or sanctioned from public assistance may still be eligible for Medicaid through the Ohio Heathy Start program.
• Transportation. OWF work participants must have access to employment opportunities in order to successfully enter and remain in the labor force. For this reason, the Ohio General Assembly has appropriated an additional $5 million per year specifically for transportation planning and assistance. Each county will be required to submit a transportation plan, detailing how it plans to provide adequate transportation services to OWF participants.
• Child Care Assistance. Without reliable and adequate child care, it is nearly impossible to be employed for a long period of time. For this reason, OWF participants with children under 13 years old are eligible for subsidized child care, with the subsidies varying according to the income of the assistance group. Child care is guaranteed to OWF participants and to families who leave OWF for employment for up to one year. Upon expiration of the year, families may be eligible for non-guaranteed child care (funded through the Ohio General Fund and/or the Child Care Development Fund) until their income exceeds 185 percent of the Federal poverty level. Effective July 1, 2000, the maximum amount shall not exceed 200 percent of the federal poverty level.
• Food Stamps. OWF participants are considered categorically eligible for participation in the Ohio Food Stamp program. Additionally, individuals leaving OWF may continue to be eligible if their income remains below 133% of the poverty level and they meet all other eligibility criteria of the Food Stamp program. ODJFS is currently reviewing the possibility of expanding the Ohio Food Stamp program to include as categorically eligible, individuals receiving PRC.
• Service Integration. County Departments of Job and Family Services are proactively involved in local service integration to serve TANF eligible families. Each county is required by Ohio Statute to have a Human Services Planning Committee to provide County Commissioners advice on implementation, administration, and evaluation of social service programs in the county. In addition, each county is required to engage in a community planning process as a part of the Partnership Agreement that is signed by the Director of the Ohio Department of Job and Family Services and the Board of County Commissioners. These efforts are designed to help counties determine the needs in the county and to develop goals and strategies necessary to serve those needs and meet those goals. These efforts are intended to link public and private service providers with needs of low income families and employers.

Additional Provisions

Fair & Equitable Treatment

Under OWF and PRC, benefits and services are deemed inalienable. Ohio shall therefore determine eligibility and deliver benefits in a manner consistent with 42 U.S.C. section 602(a)(1)(B)(iii). All applicants and participants will be treated in a fair and equitable manner, including those who move to Ohio from another state, those participants who have been adversely affected and claim hearing rights, and, to the extent allowable under Federal law, legal aliens who are not United States citizens.

An appellant who appeals under Federal or State law a decision or order of a human services agency, shall be granted a state hearing by ODJFS at the appellant's request. A state hearing decision is binding upon the agency and department, unless reversed or modified on appeal to the director of the department of human services or a court of common pleas. An appellant who disagrees with a state hearing decision may make an administrative appeal to the director of the department of human services, who shall review it and may affirm, modify, remand, or reverse the state hearing decision.

Confidentiality Provisions

Pursuant to 42 U.S.C. section 602(a)(1)(A)(iv), ODJFS will take steps to ensure the confidentiality of all information collected in the OWF and PRC programs. Under the guidelines established that govern Ohio's TANF plan, no person or government entity shall solicit, disclose, receive, use or knowingly permit the use of information regarding a TANF client for any purpose that is not directly related to the operation or administration of the TANF program. To the extent permitted under Federal law, the State will:

• Release information on TANF recipients to State agencies who are responsible for administering the TANF program or other State, Federal or Federally-assisted public assistance programs that provides cash, in-kind assistance, or services directly related to individuals;

• Provide information on TANF recipients to law enforcement agencies for the purpose of an

investigation, prosecution, or criminal or civil proceeding that is related to the administration of a public assistance program;

• Provide information to the following persons: the recipient, an authorized representative of the recipient, a parent/guardian of the recipient, and the attorney of the recipient, if the attorney has the recipient's written authorization;
• Provide information if the recipient gives written consent and specifically identifies the persons or government entities to which the information may be released.

ODJFS will also enter into written agreements with law enforcement agencies to share information about public assistance recipients to determine whether a recipient or a member of the recipient's assistance group is either a fugitive felon or violating parole procedures. This sharing of information is necessary in order to comply with the prohibitions on assistance to fugitive felons and parole violators that are established in section 408 of the PRWORA.

Out-of-Wedlock Pregnancies

The goal of reducing out-of-wedlock births is contained within Ohio's Wellness Block Grant, which targets the reduction of the rate of births to teens. Efforts are largely county-focused. Specific county goals are listed within Appendix F.

Statutory Rape

Pursuant to 42 U.S.C. section 602(a)(1)(A)(vi), as part of ODJFS' TANF program, the State plans to contract with an outside vendor to devise and operate a public outreach program related to statutory rape. The program will target law enforcement officials, educational institutions, and relevant counseling agencies, and will encourage these groups and individuals to include men in teen pregnancy prevention programs, to the extent that statutory rape is a contributing factor to teen pregnancy.

Treatment of Individuals Moving From Other States

For the purposes of benefits and services offered under Ohio Works First and the Prevention, Retention & Contingency Program, Ohio will treat individuals who have moved from other states within the last twelve months no differently from residents who have resided in the state for more than twelve months.

Treatment of Aliens

ODJFS provides OWF services and benefits to qualified aliens to the extent allowable under Federal law, and in the same manner as they are provided to residents of Ohio.

• Each member of the eligible assistance group must be a citizen or qualified alien.
• Non-citizens who are lawfully residing in the U. S. prior to August 22, 1996 shall meet the citizenship requirement.
• Qualified aliens who enter the U. S. on or after August 22, 1996, are not eligible for cash assistance for a period of 5 years except for those qualified aliens exempted from the 5 year bar, based upon Title IV, Section 403 of the PRWORA.
• All other qualified aliens after expiration of the five-year bar who have no limitation; legal permanent residents who meet the 40 qualifying quarters criteria and aliens lawfully residing in the state who meet the alien veteran status criteria.

Section III

GOVERNANCE

State-County Partnership

Partnership Agreements

Under OWF, each Board of County Commissioners enters into a Partnership Agreement with ODJFS. The Agreement includes the terms and conditions that define the roles and relationships of the county and the state. The purpose of the Agreement is to create an environment in which ODJFS and the Board of County Commissioners can work together to improve the administration and delivery of social services at the county level.

The agreement may include, but is not limited to, the operation of TANF, Title XX (Social Services Block Grant), Adult Protective Services, Refugee Services, Food Stamps, Disability Assistance, Child Support Enforcement, and Child Protective Services.

Each Partnership Agreement addresses and includes the following elements:

• Purpose;
• Effective dates;
• Social services agencies and duties included in the Agreement;
• County plans, contracts and procedures;
• ODJFS contracts and agreements;
• County agency outcomes and performance standards;
• ODJFS assistance services and technical support;
• Evaluation criteria & methodology;
• Funding of social service duties;
• Annual incentive awards;
• ODJFS actions against county agencies;
• Audits of county agencies;
• Compliance with Federal and State laws;

• Dispute resolution process; and
• General provisions.

Community Plans

The Community Plan identifies the county's goals and objectives under the OWF and PRC programs, and the strategies the county will utilize in achieving desired outcomes. It is the role of the County Human Services Planning Committee to develop and recommend the Community Plan to the Board of County Commissioners. Final authority to approve and act on advice and recommendations from the County Human Services Planning Committee rests with the Board of County Commissioners. The Community Plan becomes an addendum to the Partnership Agreement.

While the plan is the end product and ultimately becomes the county's road map, it is the planning process that produces the greatest benefits for the community. The involvement of community

stakeholders may maximize the utilization of resources and lead to consensus on strategies outlined in the plan.

Training and Technical Assistance

In July 1999, ODJFS established the Office of Professional Development and Quality Services to coordinate and maximize training resources. Through this office, ODJFS works in partnership with county agencies to provide quality training to county staff. ODJFS is committed to providing competitive services that offer flexibility and local control, which are needed for effective training.

ODJFS is in the process of expanding training opportunities for CDJFS staff. Recognizing the changing needs of OWF customers, the new training courses will focus on areas such as case management for self-sufficiency and job retention.

Additional policy and program technical assistance will continue to be provided through regular OWF video conferences.

Incentive Structure

Incentives

Incentives and sanctions play a pivotal role in influencing county behavior in the new welfare environment. Each county that is operating under a Partnership Agreement agrees to performance standards, which the county is expected to meet or exceed. Counties that meet and exceed these standards will receive incentive funds, based on the extent to which they exceed the standards. The outcomes that county human service agencies are expected to achieve may include, but are not limited to, the all-family and two-parent family work participation rates, out-of-wedlock birth rate, and workforce development activities.

Sanctions

To recognize the joint responsibility for client outcomes that the State and counties share, any Federal sanction imposed on Ohio will be shared among the State and counties. The State will assume 50 percent of the State share of any Federal sanction, and the remainder of the penalty will be distributed proportionately among the counties that were responsible for the imposition of the sanction. Under this arrangement, no county which meets its performance standards will share in the county portion of the penalty.

Application of Waivers

Pursuant to 42 U.S.C. section 615, Ohio will rely on two waivers that were previously approved; the Learning, Earning, and Parenting (LEAP) Program waiver and the time limit waiver operated under the "Ohio First" terms and conditions. Ohio will continue to operate the LEAP Program waiver which is set to expire in 2002. Ohio implemented its time limit waiver provision in July 1996 (TANF was implemented in 10/96) and the policies were continually applied through 9/30/97. Beginning 10/1/97, Ohio aligned its time limit policies with the requirements of 42 U.S.C. 608(a)(7).

In accordance with 45 CFR section 260.75, Ohio submitted the required certification from Governor Bob Taft relating to waiver inconsistencies. (See Appendix B).

Draw Down of Federal Funds

U.S.C. 42 Section 603(a)(1)(A) provides that each eligible State shall be entitled to receive for each of the fiscal years 1996 through 2002, a grant in the amount equal to the State family assistance grant as defined in section 603(a)(1)(B).

• Payments to Agency Administering the TANF Program

Payments for the TANF program will be made to the organization managing the AFDC/JOBS programs as of August 22, 1996, unless the State indicates that the TANF administering agency has changed. If a change is made, describe the name, address and EIN of the new organization.

• State Payments for TANF Program

Section 605 requires that grants be paid to States in quarterly installments, based on State estimates. The State's estimate for each quarter of the fiscal year by percentage is:

For FY 2000 and Future Years

1^st 2^nd 3^rd 4^th

QuarterQuarterQuarterQuarter

14.16% 13.97% 21.24% 40.34%

Certifications by the Governor of Ohio

In Support of the TANF Ohio State Plan

I, Bob Taft, Governor of the State of Ohio and, in accordance with Article III, Section 5 of the Ohio Constitution vested with the supreme executive power of the State, do hereby make the following certifications in support of the Ohio State Plan for implementation of the federal Block Grant for Temporary Assistance for Needy Families (TANF):

1. During each fiscal year the State will operate a child support enforcement program under the State Plan approved under part D of Title IV of the Social Security Act;

2. During each fiscal year the State will operate a foster care and adoption assistance program under the State plan approved under part E of Title IV of the Social Security Act and will take such actions as are necessary to ensure that children receiving assistance under such part are eligible for medical assistance under the State plan under title XIX of the Social Security Act;

3. During each fiscal year the Ohio Department of Job and Family Services will supervise the administration of the program by the County Departments of Job and Family Services, and the State department shall assure that local governments and private sector organizations have been consulted regarding the plan and design of welfare services in the State so that services are provided in a manner appropriate to local populations; and have had at least 45 days to submit comments on the plan and the design of such services. This will be accomplished through posting the TANF State Plan on the Department's Internet home page, newspaper publication of the TANF State Plan, and by mailing it to the local government and private sector organizations who are on the Department's mailing list. In addition, with regard to the TANF State Plan effective October 1, 1999, there has been extensive opportunity for local government, private sector organization and other public comment accompanying the passage of State comprehensive welfare reform legislation and for all administrative rules filed in accordance with State law. These public comment opportunities exceeded 45 days.

4. During each fiscal year the State will provide each member of an Indian tribe, who is domiciled in the State and is not eligible for assistance under a tribal family assistance plan approved under section 412, with equitable access to assistance under the State program funded under this part attributable to funds provided by the Federal Government.

5. The State has established and is enforcing standards and procedures to ensure against program fraud and abuse, including standards and procedures concerning nepotism, conflicts of interest among individuals responsible for the administration and supervision of the State program, kickbacks, and the use of political patronage.

____________________________________

BOB TAFT

GOVERNOR

Incentive Structure APPENDIX

• Title IV-A State Plan in effect on August 21, 1996
• Governor Taft's Letter and Certifications regarding Waiver Inconsistencies
• Letter Exercising Option to Disregard Requirement to Place TANF Participants in Community Service after Two Months of Receiving Benefits
• County PRC Matrix
• State PRC Model (draft)
• Teen Births Chart

Appendix A

Governor Taft's Letter and Certifications

Regarding Waiver Inconsistencies

Appendix B

Letter Exercising Option to Disregard Requirement

to Place TANF Participants in Community Service

After Two Months of Receiving Benefits

Appendix C

County PRC Matrix

Appendix D

State PRC Model (Draft)

Appendix E

Teen Births Chart