Work-Based Learning and Welfare Programs:
Lessons from School-to-Work and Welfare-to-Work Efforts
A Forum — June 27, 1997
Today's forum brought together a panel of experts to examine how work-based learning is being incorporated into welfare programs. This forum included Judith Combes Taylor, Senior Project Manager at Jobs for the Future (JFF); Peggy Powell, Executive Administrator of the Home Care Associates Training Institute; Thomas Applegate, Associate Director of Vocational Education in Ohio and Julie Strawn, Senior Policy Analyst at the Center for Law and Social Policy (CLASP).
Introduction
The new welfare legislation emphasizes job attainment to help recipients move toward self-sufficiency. However, there has been little discussion of how welfare programs can use work experiences to help individuals gain the skills required for better, well-paying jobs. According to Taylor, work-based learning can help fill this need.
The school-to-work model demonstrates that through work-based learning, participants can benefit from mentoring, learning in context and gaining credentialed skills. Taylor cautioned, however, that "Work alone will not get them above subsistence level wages and education alone does not get them jobs or experience." What work-based learning does is combine methods to addressing their needs. A recent JFF study on learning in the workplace shows that employers expect their workers to be prepared for the job, but often do not want to invest the time and money to train low-skilled workers. However, on the positive side, employers were interested in ideas to provide a better support system for these workers. Incorporating work-based learning into welfare programs can address both of these concerns.
According to Taylor, there are a number of ways in which government can help businesses and community service organizations incorporate work-based learning into their welfare-to-work strategy. It can provide grants and financial assistance for the development of training materials so employers can create on-the-job training programs. Government can also assist employers in developing job training initiatives and support welfare-to-work demonstration projects that further integrate the welfare, employment and education systems.
Examples of Work-Based Learning Programs
Powell then described the work of the Home Care Associates Training Network, which employs 500 women, most of whom are moving from welfare-to-work. Home Care Associates have programs in New York, Philadelphia, and Boston. The organization provides high quality health care to its clients, while emphasizing training and the attainment of marketable skills for its employees. A five-to-seven week training course includes meetings with potential employers and job shadowing of aides already working in the field. Upon completion of the program, participants are "Medicare-certified" home health aides. In addition to a liveable wage, workers receive medical benefits after six months of employment. The investment in training workers has resulted in an extremely low turnover rate in an industry with historically high rates. In addition, training costs have been reduced and patients have demonstrated a long-term loyalty for Home Care Associates.
Applegate then discussed an innovative pilot program developed in Ohio, whose goal is helping employers in the hospitality industry provide learning and work opportunities for welfare recipients. At one hotel, recipients work for 20 hours each week at the hotel and spend 10 more hours in the classroom honing basic academic skills. Upon completion of the nine-month program, participants have a hotel certification, marketable skills and the opportunity to advance in the industry.
Moving Towards Work-Based Learning
According to Strawn, welfare policies have shifted in recent decades between the extremes-- either overemphasizing job attainment or overemphasizing classroom education. What is needed is a combination of the two strategies. "It's important to build job and basic skills quickly and keep building these skills after employment." Research shows this strategy has been helpful to students in school-to-work efforts.
In response to a question about how to engage employers in work-based learning activities for low-income people, Strawn suggested that employers form consortiums to minimize costs by spreading them across many employers. Other panelists noted the potential decrease in the tax burden as the number of welfare recipients is reduced. Taylor added that other employers have invested in work-based learning out of social concern for those less fortunate.