Moving beyond the traditional job placement role.

Easter Seals job placement programs have been, and continue to be, a critical focus of Easter Seals' vocational services. Today, Easter Seals successfully provides traditional job placement services for persons with disabilities--from job readiness training to supported and competitive employment opportunities--through 87 Easter Seals affiliates providing services in 167 locations in 37 states. The desired outcome is to provide all individuals with opportunities for equality, dignity, and independence by becoming active, involved members of their communities. To this end, Easter Seal affiliates have placed more than 3,500 people with disabilities in employment opportunities this past year. Recognizing the strength in Easter Seals' job placement programs, it appeared to be an opportunity for Easter Seals to expand services to the population of welfare recipients whose needs are similar to those of persons with disabilities.

Special Needs/Welfare

Composition of Welfare Recipients. The welfare caseload is as diverse as the nation itself: College educated, recently divorced mothers are in the system, along with young, single parents without high school diplomas, as well as grown men with chronic, disabling ailments. The self-confident and energetic are accounted for, as are those troubled by domestic violence, healthy mothers with sick children, addicts, and ex-convicts. To a large extent, the success or failure of welfare reform will hinge on the acknowledgment of these differences (John Harwood, The Wall Street Journal, 1997). The dissolution of today's welfare system has spawned the beginning of a new industry, namely agencies that help welfare recipients transition into the workplace (Bennett, 1997). Easter Seals is one of the agencies helping people return to work.

Meeting Welfare Recipients' Needs

Individuals on welfare have been apportioned into groups identified by state offices responsible for welfare payments through an evaluation and assessment process. Group assignments have been determined by the first phase of each person's efforts to return to work and reduce his or her dependency on welfare.

Don Thomas, top welfare administrator in Hamilton County, Ohio, said he feels that approximately 20 percent of this population will not have trouble reentering the job market (Wall Street Journal, 1997). These individuals need relatively little encouragement to enter the labor market and little coaching once they are employed. According to caseworkers, people in this category typically have high school diplomas, recent work experience, good health, and strong motivation.

The second group will need more attention. These individuals lack self-esteem and education and may suffer from poor health. This group represents about 60 percent of welfare recipients and needs a firmer push to start the transition to employment.

The remainder, approximately 20 percent, face immense obstacles. These people often have limited education and difficulty yielding to authority. Many have histories of mental illness, addiction, or criminal activity that make potential employers wary (John Harwood, Wall Street Journal). Easter Seals has also determined through initial assessments that many individuals on welfare have a learning disability and have limited literacy skills.

These categories only capture a piece of the total picture; each case folder contains an individual story of both hardship and hope.

Easter Seals' Interest

As a part of Easter Seals' traditional role, providing integrated opportunities to persons with disabilities has been a primary goal. Welfare reform has now presented the organization with an ideal opportunity to extend placement services. The results will be twofold: the components of job placement services, recognized for their success working with persons with disabilities, will enhance the sensitivity and awareness of individuals without disabilities while providing the benefits of the programs that have served Easter Seal clients for more than 75 years. Easter Seals is currently working to assist individuals on welfare as they struggle with personal circumstances that have kept them on welfare. The target of many focused training programs will be to highlight personal strengths and abilities, rather than to dwell on limitations.

Recognizing similarities in the needs of the welfare population and persons with disabilities, Easter Seals decided to build upon its job placement program (see Figure 1, The Transition Process) to tailor services to individuals transitioning from welfare. The organization then considered program content, any necessary changes, and the ancillary services that would be needed to ensure positive placement outcomes.

[Figure 1 ILLUSTRATION OMITTED]

According to Goldstein and Kanfer (1981), reluctance to change is one of the biggest challenges facing this population. Change can elicit fear, confusion, anger, and resistance. Many individuals remain unable to change their view of themselves or others and struggle to overcome self-defeating patterns of behavior, even though solutions and opportunities for growth are at an arm's length. Others meet their world in rigid, fearful, or aggressive ways, finding little happiness or satisfaction, yet unable to break the vicious circles they seem to engender.

Easter Seals' Action

An analysis of Figure 1 will identify the steps used in helping individuals acquire successful job placements. While placement, the ultimate goal, is located in the middle of the diagram, many steps need to be completed both before and after placement to ensure success. For example, the preplacement portion can be identified, modified, or developed.

The first step is Evaluation and Assessment. Evaluation and assessment aids in determining an individual's strengths and weaknesses. Focus is placed on educational and training needs, preferred types of work are identified, and additional education is recommended, if necessary. Psychosocial needs will most likely be identified through this testing and methods to address these needs will be developed. This step will most likely identify learning disabilities and literacy needs.

Preplacement/Job Readiness Training is the next important step. Examples are:

* Job Search Practices. The initial component of the job search process includes the selection of a goal that emphasizes strengths and assets (Kokaska & Skolnik, 1986). MacDonald-Wilson, Mancuso, Danley, and Anthony (1989) emphasized the importance of the process of choosing an occupational goal to guide the job search process. Staff may assist the individual in identifying his/her occupational goal through the use of formal assessment strategies as identified in the first block of the diagram, or through informal discussions.

--Job search practices include the use of counseling, resume development, informal discussion of vocational interests and goals, matching the consumer to the job, and making repeated contacts with companies. Many people obtain employment through contacts with acquaintances or referrals through existing contacts (Granovetter, 1979; Silliker, 1993; Zadny & James, 1976).

* Business Advisory Council. Employer advisory boards are often established to serve the dual purpose of providing entry into a wide array of community businesses and also focusing an organization more solidly on the needs and perspectives of the business community (Houseman & Smith, 1975; Martin, 1986; Teff, 1979). Nietupski, Murray, Chappelle, Straus, Steele, and Egli (1993) have successfully demonstrated an approach to job development called the "referral model," which enlists an advocate--a trusted and well-connected community member with ties to, and credibility with, a targeted company--as an intermediary in the job development process. The advocate initially meets with company managers to obtain information and gauge their receptivity. Agency contacts are then designed in accordance with the advice of these advocates.

* Support strategies are used in both preplacement and follow-up. Once a person obtains a job and is provided with effective job-related support, a job developer and/or job coach visits the jobsite, provides on-the-job training, assesses the employer's satisfaction, and meets with the worker outside the workplace.

* The Factor Analysis For Grouping of Practices' (Vocational Rehabilitation Research, 1997) "Job Search Practices" (Table 1) identifies options associated with different approaches for finding job openings. This methodology is used by job developers seeking available employment in the labor market.

Table 1
Factor Analysis for Grouping of Practices

Job Search Practices

Generic/Not Individually Focused         Review want ads.
                                         Develop employer list
                                           through phone book,
                                           business directory.
                                         Cold contact employer.
                                         Research business and
                                           labor trends.
                                         Host a job fair.
Agency Marketing Approach                Host employer advisory
                                           board.
                                         Participate in
                                           business-oriented
                                           community group
                                           (i.e., Chamber of
                                           Commerce).
                                         Have agency sponsored
                                           public relations events.
                                         Job bank.
Individually Focused Placement           Assess job match.
                                         Restructure job for the
                                           individual.
                                         Make general presentation
                                           to business about the
                                           abilities of individuals
                                           with disabilities.
                                         Discuss job accommodation
                                           needs.
                                         Create agency brochure.
Networking Strategy                      Canvass personal and
                                           professional networks
                                           for job leads.
                                         Use consumers social and
                                           professional network.
                                         Maintain job bank and
                                           exchange job information
                                           with other agencies.
                                         Resume development.
                                         Counseling.
                                         Employer Account Strategy
                                           (i.e., frequent contact
                                           with company to develop
                                           relationship).
Traditional Job                          Guarantee that employer
   Placement Approach                      production needs will be
                                           met.
                                         Identify advocate in
                                           targeted company.
                                         Offer contract where
                                           consumer is not on
                                           employer's payroll.
                                         Offer subminimum wage.
                                         Provide general assistance
                                          to employer on broad range
                                          of personnel issues.

SOURCE: VOCATIONAL REHABILITATION RESEARCH

* Job Related Supports. It is important to provide continuous support during the training and adjustment period after an individual begins to work (supports are woven throughout Figure 1). Some strategies for this initial training and adjustment period include:

--Identifying coworkers to serve as mentors (natural supports) to assist with stabilization on the job (Gardner, Chapman, Donaldson, & Jacobson, 1988).

--Teaching support strategies to company employees who can, in turn, support the employee and reinforce his or her efforts (Anderson, 1990).

--Teaching job-related social skills and self-management skills to the employee (Powell, 1991).

* The Temporary Work Assignment can help transition an individual into a job. For example, a 2-week assignment can be used as a training opportunity for assessment and review for future work in a similar area. Temporary assignments can identify areas of difficulty that can then be addressed for correction or modification. This step is an excellent opportunity to gain experience and may also confirm an area of interest for future work possibilities. (Please note: Temporary work can be in the preplacement phase as well as placement.)

* Attitudinal Modification addresses fear, confusion, anger, and resistance through support groups and counseling sessions. In this area, socialization skills and the importance of social interaction in the workplace, as well as in an individual's personal life, are addressed.

* Punctuality and Appropriate Dress can be discussed to identify their importance in obtaining and retaining a position.

* Transportation is a major barrier to many, especially in areas where public transportation is limited. Assistance with public routes and schedules, carpooling, special services, and employer-supplied vans can be provided. The Research and Training Center on Rural Rehabilitation Services, Montana, is developing solutions for employment and transportation problems unique to rural areas. The RTC presents two effective strategies for addressing these issues--self-employment and the Supported Volunteer Rural Transportation Program (SVRT). Self-employment is not unusual in rural areas and is one way rural residents can be employed and continue to live outside metropolitan areas (Arnold, Bernier, & Seekins, 1997).

* Child Care. While child care is a serious concern for individuals returning to the work force, the Welfare Reform Act includes funding to assist with child care. Easter Seals provides child care programs in 212 locations across the nation and is receptive to providing services to the children of individuals returning to work after welfare dependency. Included in this area are classes regarding the challenges of parenting and being a single parent and how to incorporate a work role with being a responsible parent. In addition, Easter Seals has found that many children of welfare recipients fall into the "at risk" category and can benefit from the services Easter Seals provides through early detection and planned programming in their inclusive child care centers.

* Job Applications and Resume Writing. Classes are conducted by trained staff and computers are often available to assist in resume writing. The importance of accurate completion and content are stressed in the learning process.

* Money Management and the Need for Temporary Shelter/Safe Environment. Classes are available on budgeting, as well as utilizing resources for temporary affordable shelter in a safe environment for both parent and child.

Other items in Figure 1 are self-explanatory. Please note the continuation of the arrows as they move throughout. The last arrow is the most important as it moves from ongoing goals, performance, and feedback and returns to the beginning for reassessment and evaluation should an individual fail or not do well. It is important to know that if and when an individual has not completed the steps successfully, there is an alternative, not a closed door.

Witnessing Integration at its Best

Easter Seals Capital Area in Austin, Texas, operates a lawn maintenance program that employs 85 people with disabilities and individuals transitioning from welfare, along with persons with a history of substance abuse and/or criminal justice problems. These individuals have exhibited limited ability in obtaining and maintaining employment. The work center currently employs 10 work crews and has assumed the responsibility for lawn maintenance and creek clearing contracts totaling $1.5 million with the city of Austin, the state, and private entities. The creek clearing has reduced residential flooding in Austin and the maintenance of these areas assures this protection. Wayne Eller, manager of the center, is proud of the program and the success of his integrated work force.

The city of Houston recently started a program identical to the Capital Area Center's that employs 45 workers and has moved forward in its $1 million plus contract with Eller's assistance. The Houston society anticipates very rapid growth that will increase job opportunities as work increases.

Ft. Worth, Texas, is close behind with its first contract to provide services similar to those delivered in the Austin and Houston area. It, too, is employing an integrated work force to meet the needs of the contract.

The employees in Austin and Houston earn between $5.25 and $8.00 per hour. The work center provides individual case management for workers to assist in accessing community resources for housing, transportation, medical care, skills assessments, and counseling services necessary for successful job retention. Workers are informed of opportunities for advancement after successful completion of a 90-day probationary period. After gaining job skills, many workers move into city, state, and private sector employment while advancement opportunities with Easter Seals motivate them towards driver and supervisory positions.

The accomplishments of this integrated work force in Austin have fostered a positive and politically visible partnership with other public and private entities by providing essential community services with a work force that would otherwise be underutilized or chronically unemployed.

The actual job training employees receive through the program varies. Many employees have never been employed or are reentering the work force, which puts them into the preplacement training box in Figure 1 that addresses issues such as coming to work on time, calling when sick, following directions from a supervisor, and cooperating with coworkers. The program also provides training in CPR, first aid, safety procedures, proper equipment usage, and lifting techniques, all transferable to other work opportunities.

Continuing success in providing services to this population, the Northern Rocky Mountain Easter Seal Society, serving the states of Montana, Wyoming, and Idaho, has developed an employee development service. Preplacement/job readiness services are offered in a classroom setting of 6-10 individuals on a schedule of 3 hours per week for 2 weeks. This society operates the program with the cooperation of the Department of Public Health and Human Services. According to Sharon Odden, the society's Vice President of Vocational Programs, people need to learn how to become workers. They have been dependent on the welfare system for so long that they don't know how to work. Sharon stated that they can usually get a person a job within 2 months if the individual wants to work. Because the program is relatively new, conclusive data is not yet available.

In addition to local programs, the national society is working with a large national employer to address its commitment to hiring individuals transitioning from welfare and persons with disabilities, by providing job-ready applicants to fill designated positions nationwide. The jobs available are entry level with many possible growth opportunities, and the company also has an excellent benefits package and a strong commitment to promote from within. Through Easter Seals' job readiness training program, applicants will learn to successfully participate in the interviewing process. Job coaches will attend a job preview with applicants to help with questions (e.g., location, transportation, hours, child care, dress, and support systems).

This is an exciting time for rehabilitation. Working with individuals reliant upon welfare offers Easter Seals an opportunity to expand services to continue serving people who need help finding employment. Easter Seals has taken a successful program and built on it by applying the same components to a population not traditionally served. The organization looks forward to this opportunity and the role Easter Seals will play in assisting individuals to realize equality, dignity, and independence.

Bibliography

[1.] Anderson, B. (1990). Creating diversity: Organizing and sustaining workplaces that support employees with disabilities. Sitta, AL: Center for Community, Inc.

[2.] Arnold, N. L., Bernie, B., & Seekins, T. (1997). Rehabilitation Research and Training Center on Rural Rehabilitation Services, University of Montana.

[3.] Bennett, J. (1997). Franchise Times, Cranes Communication, Chicago, IL.

[4.] Eller, W., (1997). Manager, Capital Area Easter Seal Society, Austin, TX.

[5.] Factor Analysis for Grouping of Practices: Shared Responsibility in Job Search, Vocational Rehabilitation Research. (1997). Lessons for improving employment of people with disabilities from vocational rehabilitation research. Rehabilitation Research and Training Center, Stout Vocational Rehabilitation Institute, University of Wisconsin-Stout, Menomonie, WI.

[6.] Gardner, J.F., Chapman, M.S., Donaldson, G., & Jacobson, S.G. (1988). Toward supported employment. Baltimore: Brookes Publishing.

[7.] Goldstein, A.H., & Kanfer, EH. (1981). Helping People Change. Pergamon Press Inc., New York.

[8.] Granovetter, M. (1979). Placement as brokerage. In D. Vandergoot & J. Worral (Eds.), Placement in rehabilitation: A career development perspective (pp. 84-101). Baltimore: University Park Press.

[9.] Harwood, J., (1998). The Wall Street Journal.

[10.] Housman, R., & Smith, D. (1975). Placement for persons with severe physical disabilities. Rehabilitation Counseling Bulletin, 17(6), 245-252.

[11.] Kokaska, C.J., & Skolnik, J. (1986). Employment suggestions from LD adults. Academic Therapy, 21(5), 573-577.

[12.] MacDonald-Wilson, K., Mancuso, L., Danley, K., & Anthony, W. (1989). Supported employment for people with psychiatric disability. Journal of Applied Rehabilitation Counseling, 20, 50-59.

[13.] Martin, J. (1986). Identifying potential jobs. In E Rusch (Ed.). Competitive employment issus and strategies (pp. 165-186). Baltimore: Brookes Publishing.

[14.] Nitupski, J., Murray, J., Chappelle, S., Straus, L., Steele, P., & Egli, J. (1993). A dispersed heterogeneous placement supported employment model, Chapter IV: Leveraging community support in approaching employers. Iowa City: University of Iowa.

[15.] Odden, S. (1997) VP of Vocational Programs, Northern Rocky Mountain Easter Seal Society.

[16.] Power, T.H., (1991). Supported Employment. White Plains, NY: Longman Publishing Co.

[17.] Silliker, S.A. (1993). The role of social contacts in the successful job search. Journal of Employment Counseling, 30 (1), 25-34.

[18.] Teff, D.R. (1979). Placement: The employer's view. Rehabilitation Literature, 40(1), 7-10.

[19.] Thomas, D., Welfare Administrator, Hamilton County, OH.

[20.] Zadny, J., & James, L. (1976). Placement practices in rehabilitation: A career development perspective. Baltimore: University Park Press.

Ms. Zubek is Assistant Vice President, Vocational and Adult Services, and Ms. Knudsen is Editor for Communications, National Easter Seal Society.