NCAI

Addressing Tribal Employment Responsibilities
Under Welfare Reform:
A National Forum
Executive Summary
Sunday, June 14, 1998
Radisson Inn, Green Bay, Wisconsin
 

On Sunday, June 14, 1998, the National Congress of American Indians hosted the third in a series of national forums to discuss the impacts, options and concerns surrounding the implementation of welfare reform in Indian country.

The Honorable Bobby Whitefeather, Chairman of the Red Lake Nation, served as moderator for the three panel discussions. Chairman Whitefeather presented Leander Danforth, Cultural Advisor to the Oneida Business Council of the Oneida Nation of Wisconsin, who provided the invocation. NCAI President W. Ron Allen also welcomed the forum attendees.

Chairman Whitefeather commented on the wealth of information that the assorted panel members were bringing to the various discussions throughout the day. After acknowledging the need for tribes to stress accountability to one another and to work with their states, he encouraged the active participation of the audience. Chairman Whitefeather introduced Norm DeWeaver, Director of the Indian and Native American Employment and Training Coalition. Chairman Whitefeather stated that he has always been impressed with Mr. DeWeaver because of all of the information he has provided to tribes and because of his ability to act as a conduit between tribes and federal agencies, such as a the Department of Labor.

Mr. DeWeaver gave an overview of tribal employment requirements and program resources of TANF and non-TANF tribes. The major difference between the old welfare system (AFDC) and the new welfare system (TANF) is the employment requirement mandated under welfare reform. The federal law requires that a welfare recipient engage in a work activity as soon as the person is able to work, as determined by the state, tribe, or whomever is operating the TANF program, but not later than 24 months after the person receives assistance. This work requirement is, in one sense or another, applicable to all recipients of assistance. Essentially, the parent must be able to sustain the family economically before they run out of time on assistance. Even in cases where a person may be exempt from time limits for one reason or another, including living in reservation areas with high rates of joblessness, the work requirements continue to apply. The state or the tribe, whomever is administering the TANF program, must enforce these work requirements on recipients or be subject to a loss of grant funds. Work is a central feature of welfare reform at both the recipient level and at the TANF agency level.

In approaching employment as an issue within the arena of welfare reform, there are a number of programs to consider, in particular Welfare-to-Work (W2W) and Native Employment Works (NEW). Beyond individual programs, the issue for tribes is: how do these programs fit together? Each program has different requirements; there's not enough money in any one program to really do what needs to be done. When tribes consider how these programs fit together in a system that helps the client, that helps the welfare recipient to be able to meet their work requirements, programs beyond those that have an employment or training label to them become very important. Day care and transportation are also important factors to consider. For without these support programs, it is difficult for a single parent with dependent children to actively pursue a job. Finding suitable employment is another issue. The jobs that are needed are for a very specific group of people that have very specific characteristics. Employment programs must find jobs for single women with children. Because of the limitations on assistance, the creation of long-term jobs that will economically sustain a family are critical.

Panel 1: Employment and Training Experiences and Program Resources of TANF and Non-TANF Tribes

The first panel was entitled "Employment and Training Experiences and Program Resources of TANF and Non-TANF Tribes." The first two panel members spoke to the issue of employment and training experiences from the perspective of tribes who have opted to develop and administer their own tribal TANF program. Frank Peterson, Tribal Programs Manager for the Confederated Tribes of Siletz Indians, started his remarks by noting that the Siletz tribal council was in the middle of a brand new experience in terms of their administration of the TANF program. When the tribal council asked the program staff what other tribes were doing; the Siletz TANF program staff responded, "They're watching us."

Although the Siletz tribe does not have former experience in operating an AFDC/TANF program, they have opted to include TANF as a component of their 477 program; all of the employment, training, and welfare programs that the tribe operates are combined into one program under Pub. L. 102-477 authority. Because the tribe does not have a reservation base, they have adopted a service area that encompasses 11 counties. A main office in Siletz and three area offices provide services to recipients. One advantage of this broad service area is that it does include private sector employers and corporations, such as Nike and Intel. The Siletz tribe has a very good working relationship with the state of Oregon, who made the decision, at the administrative level, to provide matching funds for the tribal TANF plan. The state also provided the tribe with direct access to the state computer system. The state has paid for the computer switching equipment, the training, and the computers that will provide the tribe with access to the system.

The focus of the Siletz TANF program is on educational development. The first requirement for recipients that do not have a high school diploma or GED is to enroll in an education program. The tribe works with recipients to acquire life and education skills that will help them get a job and support themselves. Siletz is trying to be flexible to address special needs of tribal members; they are considering the development of an additional program component that would work with the state department of vocation rehabilitation.

The Siletz tribe has come to the conclusion that recipients cannot be served in piecemeal fashion; services must be provided as part of an overall approach, a comprehensive program. The phrase "welfare-to-work" does not encompass all of the pieces that need to be considered. It is misleading in its simplicity. Frank Peterson stated, "'Welfare-to-work' is about as applicable to Indian country as "Just say no" was in addressing substance abuse. It is not a complete formula; many programs and services must be considered."

Because some tribes with annual per capita payments to tribal members have difficulty in receiving services for their members (the income makes them ineligible for services), a tribe administering TANF can exercise its option on how it wishes to develop eligibility requirements. For example, a tribe can exclude up to a certain amount as a lump sum payment. Siletz does not have a per capita distribution, but did take this into account in developing their eligibility requirements. They are a gaming tribe and have included tribal distributions just in case some day they do have some sort of distribution program.

Richard Keeble, Employment Training Demonstration Manger of the Sisseton Wahpeton Sioux, noted that, like Siletz, the Sisseton Wahpeton administers TANF as a component of their 477 program. The assorted 477 employment and training programs are used to provide all of the supportive services for TANF recipients. The TANF grant that the tribe receives from the U.S. Department of Health and Human Services (DHHS) is used for TANF maintenance payments. Although the tribes in South Dakota do not receive a state match, the Sisseton Wahpeton Tribal Council decided that a reduction in the welfare caseload from 225 recipients in 1994 to 160 recipients in 1997 (when they began to operate the program) helped to offset the lack of state match. Also, the tribal council considered the characteristics of the tribal welfare recipients and the impact that the state plan would have on them. Like the Siletz clients, the Sisseton Wahpeton clients lacked basic education. By running their own TANF program, the tribe could tailor their program to meet the needs of their tribal members and still meet their work participation rates, which are quite lower than the rates the state was mandated to meet under federal law.

One really important step that the tribal staff made was to develop a policies and procedures manual, which was approved and adopted by the tribal council before they began program implementation. It has saved the tribe from many problems and have almost stopped clients from trying to beat the system. Sisseton Wahpeton is now beginning to look at Child Support Enforcement (CSE); they have attended national meetings on CSE. Because of problems with jurisdiction, the tribe has assigned a work group to consider their options. In conclusion, Mr. Keeble gave a strong commendation to the tribal council, for not only financially supporting the tribal TANF program, but also for making a commitment to economic development on the reservation- to really create jobs and put people to work so that they can be self-sufficient.

Neither the Siletz nor Sisseton Wahpeton tribes (1) have experienced families that they were not funded for moving back to the reservation or (2) had families that would not apply to the state for AFDC/TANF but now come to the tribe for assistance. In nine months of operation, Sisseton Wahpeton has seen about half a dozen families move back to the reservation; the tribe has not seen a significant number of new people apply for the program. The caseload did increase by about half a dozen because the state of South Dakota called back recipients that it had originally sanctioned. The Siletz experience is similar; they have not seen a large number of people move into the service area to take advantage of TANF. The tribe is aware of less than five families who have opted for tribal services that would not apply for state services. Siletz has seen a number of tribal members who were sanctioned by the state who have come and applied for tribal services.

The second three panel members discussed employment and training experiences from the perspective of non-TANF tribes. The Honorable Henry Cagey, Chairman of the Lummi Nation, stressed the importance of making sure that the tribal council and administration really understand their options before making a decision or taking on TANF. In examining their options, Lummi Nation first looked at what the state was required to do under the law and at the performance (work participation) they were mandated to deliver. The tribe would also be required to meet similar performance standards. Lummi recognized that the risks they faced. The tribe opted not to take on TANF, but to contract with the state of Washington to provide employment services. This contract, finalized in March 1998, included four agencies within the state which provide all TANF employment and training services to recipients.

Through this agreement, the state will pay all cash grants and support costs, which allows the tribe to consolidate at the state's expense. The tribe consolidated all of their existing employment services to create a one-stop shopping service delivery system. Lummi has located their TERO, JTPA, Welfare-to-Work, Vocational Rehabilitation, Dislocated Worker program, educational programs and personnel office all in one area.

The tribe has agreed to measure their performance through data collection of persons completing GEDs and high school diplomas, community service and work experience assignments, job search, job retention and wage progression. Currently the tribe has over 50 clients; 12 have entered into jobs (8 jobs off reservation; 4 on reservation). The tribes biggest challenge is starting to work with hard core, lifetime welfare recipients who have never been employed but are now expected to get a job in the next 60 months. Tribes are finding they have more families that fall under this description than previously projected, with many affected by alcohol; substance abuse; or other physical or mental health issues that impede their ability to obtain jobs.

By choosing not to administer TANF immediately, Lummi buys some time and lets the tribe learn from the mistakes that the state makes. The tribe is reserving their limited resources for the programs they are currently providing. However, the disadvantage of not taking on TANF is that the tribe has had some difficulty in being included in the drafting of state TANF regulations. Although the state has committed to work with the tribe, Lummi Nation has not been consulted on regulatory promulgation surrounding the state welfare reform program.

Angie Eagle Bull, JTPA/NEW Director for the Oglala Sioux Nation, is running employment programs that are not consolidated under the 477 program. Her tribe is considering the 477 option, but has not yet reached a decision. The Oglala Sioux have a population of over 38,000; the TANF caseload on the Pine ridge Reservation is 955. These 955 cases include 2,088 children. Recently, the state of South Dakota has been bragging about the 300 people from Pine Ridge taken off the roles since welfare reform, but they haven't left welfare because they got jobs. Many of these former welfare recipients come to the tribal office and tell tribal staff that they simply don't want to deal with the paperwork or they don't want to participate in the work activities. Many of these former AFDC recipients have decided not to apply for TANF, and therefore, the caseload reduction of 300 people is not a positive thing.

Oglala Sioux decided against running their own TANF program, largely because the state of South Dakota will not provide matching funds, and it would cost the tribe approximately $1 million to run a TANF program. The tribe simply does not have the resources available. Tribal members face a variety of barriers to employment. Even though the reservation is fairly large, there are very few job opportunities. The main employers are Indian Health Service (IHS), the school and the tribe; gaining employment also largely depends, not on what you know but who you know. Child care and transportation are two of the biggest problems for welfare recipients. The state TANF plan exempts mothers with their youngest child under the age of 12 weeks from work requirements, rather than adhering to the federal law, which exempted mothers with their youngest child under the age of 12 months. This young age presents a big problem for child care; many child care providers simply do not want to provide care for children that young. Also, some mothers with infants do not want to put their child in child care; they would rather stay home with them.

Oglala Sioux does administer the Native Employment Works (NEW) program and the Welfare-to-Work (W2W) program. Each of these programs are funded at about $200,000. This budget is insufficient to serve all 955 welfare recipients. The tribe currently has 150 persons enrolled in NEW and will only be able to provide services to another 20-25 individuals with their W2W monies. Oglala Sioux's relationship with the state is back and forth. The state does not include the tribe in many of the discussions when developing their new rules or policies, but they're sure to pat the tribe on the back because the tribe helped them meet their work participation rates this past year. The tribe has stressed to the state that child care is a big problem because of the age of the children. In response, the state may choose to contract with the tribal NEW program and offer some money to contract a person to do nothing but child care.

Leo Cummings, 477 Administrator under the Employment and Training Department of the 447 Program for the Three Affiliated Tribes, told participants that Three Affiliated administers a 477 program that integrates 7 programs into a single program with one set of rules and one set of reporting requirements. Their 477 program encompasses: JTPA, Summer Youth Program, and W2W from DOL; NEW, Child Care Development Block Grant (CCDBG) from DHHS; and Adult Vocational Training, Direct Employment Assistance, and the Tribal Work Experience Program (TWEP) from DOI. The Three Affiliated Tribes have gone through a planning process whereby they, like most tribes, have determined that there are not enough resources available to run a TANF program that provides adequate subsistence and transitional support for recipients. Because education is the tribe's long-term priority, educational services are prioritized under the 477 program.

The 477 program is coordinated with and complemented by the state/county TANF program. This connection, encoded in a Memorandum of Understanding (MOU) between Three Affiliated and the state, is critical to the tribe because it provides them a referral process from the state TANF operator to the tribal 477 program. The MOU provides the tribal 477 program with clients. The MOU also provides for child care assistance information sharing between the state and the tribe and prevents the duplication of services. It recognizes the dual eligibility of Indian TANF clientele for both state and tribal programs and recognizes tribal NEW activities as meeting state approved work activities. This is important because states have an option under the law; they can choose whether or not to include tribal NEW participants in their work participation formulas. The tribe provides the state with the TANF recipients enrollment and employment development training. The MOU puts in place state/tribal quarterly meetings to review and discuss issues. How all of these resources interact, how recipients flow from state to tribal programs (or vice versa) to get their needs met, is very important. Combining federal, state and tribal resources is also crucial, as well as allowing tribes themselves to make determinations on the use of these resources. In this way, states, bureaus and agencies are not dictating to tribes how to operate their own programs.

The final two members of the first panel addressed the issue of employment and training program resources. James Henry, Manpower Development Specialist under the Division of Indian and Native American Programs at the U.S. Department of Labor (DOL), announced that DOL is getting ready to send out notification announcing FY 1999 program funds. The W2W program is designed to supplement other employment and training programs. Seventy-eight W2W plans throughout Indian country have been approved; another seven plans are pending approval. Tribes have three years to expend W2W monies; there is also a great deal of flexibility with W2W funds, in that tribes can select work activities for their program. These activities are undefined in the regulations, and tribes may choose to define them in a way that is consistent with their economic conditions and tribal goals.

DOL hopes that tribes will take advantage of this flexibility rather than continuing to operate W2W in the same way that they have operated other programs, such as JTPA and JOBS/NEW. For example, tribes had a lot of restrictions, such as limitations on the length of training, with on-the-job-training (OJT) activities under JTPA. With the W2W program, tribes have broad flexibility to expand certain types of work activities. The most important aspect is really to determine what will work for each particular client. What type of work activity is going to work for each individual so that they can meet their work requirement and not be terminated or sanctioned from their financial assistance? Tribes have to be really creative. Although education is crucial in moving families from welfare into sustainable job activities, many programs place limitations on education. To help alleviate these restrictions, DOL allows W2W clients to be concurrently enrolled in different programs- NEW, JTPA, W2W- while the individuals are working. A number of grantees have developed programs where clients can work part-time and participate in some type of basic skills training program where they can obtain their GED at the same time. Welfare reform is about getting a job; unfortunately Congress is not interested in the type of job or even if the employee will be able to support herself and her family. Tribes need to work with their clients to make sure that they are constructively using program services and moving towards self-sufficiency.

JaNa Oliver, NEW Team Leader, from the DHHS' Division of Tribal Services, gave an update on Child Support Enforcement (CSE). Ms. Oliver reported that the Office of Child Support Enforcement has just finished their consultations with tribes on the proposed regulations. The consultation was divided up into three tracks: (1) for tribal leaders, (2) for others involved in the legal system and (3) staff involved with persons who actually need to file for CSE. So far, 13 tribes have implemented TANF, and 78 tribes operate NEW. The grantees and the funding levels are set by law. NEW grantees were reminded that 1997 monies must be obligated by June 30^th. NEW plans for FY 1998 through 2001 should be completed by June 1^st. It was suggested that tribes speak to Congress and to the Division of Tribal Services Director, John Bushman, about the possibility of grants being awarded to tribes that want to implement TANF for TANF education and technical assistance.

NEW is a lot more flexible than the old tribal JOBS program. It can be viewed as a chameleon type program (i.e., whatever programs the tribes currently offer, NEW should be compatible with). It can also supplement TANF or serve tribal General Assistance (GA) recipients. The eligibility criteria is left up to the tribe; the tribe can identify target groups and prioritize their clients. The services and work activities are also left to the tribe's discretion. The NEW Notice of Proposed Rule-Making has been drafted and is at the Office of Management and Budget for review before it is published in the Federal Register. The proposed regulations have tentatively included economic development and job creation as acceptable expenditures under the NEW program.

Ms. Lowe, a forum participant, mentioned that the tribes in Minnesota have a pretty successful working relationship with the state. In considering the nature of welfare reform and whether tribes wanted to adopt TANF programs, all of the 11 tribes in Minnesota got together and decided what they wanted from the state. The tribes then approached the state collectively, with their agenda in hand. The state offered the tribes $150,000 to develop a welfare reform plan for the tribes in Minnesota. Because the tribes were prepared and worked out a plan before addressing the state and because the tribes were united, their welfare reform efforts in Minnesota have been very successful. This model is one that NCAI encourages other tribes in other states to follow.

Panel 2: Job Creation, Economic Development and Infrastructure Needs

The second panel addressed the issue of job creation, economic development and infrastructure needs. The first three panel members spoke to the issue of job creation. Lorenda Sanchez, Executive Director of California Indian Manpower Consortium (CIMC), pointed out that the welfare reform law and related legislation has increased awareness of the need to coordinate and improve employment, training, literacy, and vocational programs to better serve a diverse work force. Because of such limited opportunities on reservations, the services that are provided to clients may often mean the difference between a client's success or failure. Through the innovation and creativity allowed in new welfare reform-related programs, tribes have an opportunity to provide new choices in their communities. The role and responsibility of social service providers and job experience and training program staff is to help guide clients to achieve personal and financial success.

In many tribal communities, tribes are the primary employers. It's important for program staff to work with the tribe, to be aware of jobs that are available and to know the economic and tribal enterprises in order to prepare tribal members for those jobs. Through the efforts of tribes and private partners in California, the CIMC job training program has been instrumental in the development of a tele-work center, which utilizes technology, develops human resources of tribal communities, and provides a service to tribal, private and public agencies. In the next year, it is anticipated that over 75% of the tele-work force will be individuals coming off of TANF. The CIMC has provided structured, entrepreneurial, and business development leadership sessions through a nine month program. In the past two years, eight of the ten individual that went through the CIMC business development and entrepreneurial leadership program are successfully operating their own businesses today: 2 general contractors, 2 child care center managers, a transportation system developer, and native artists and craftspeople.

Robert Louie, Education/Employment Committee Chairman for the Employment and Training Department of the Confederated Tribes of the Colville Reservation, discussed the job creation efforts and training programs at Colville. The tribe's involvement in the gaming industry was instrumental in their job creation. The tribe has also established an apprenticeship program that is recognized by the Bureau of Apprenticeship and Training , so that the tribal program is as qualified as the state's. The tribe has developed an entrepreneurship program and accompanying micro businesses and home based businesses, which are in the process of gaining internet access, so as to access worldwide markets. Job creation is imperative. The tribe has passed a resolution and negotiated with the state in the area of welfare reform and employment opportunities; relocation is not an option for tribal members of the Colville Reservation.

The tribe recently realized that throughout tribal enterprises and the tribal government, many of the upper management and decision-making positions were held by non-tribal members. The tribe developed a training policy statement that mandates that tribal members be trained for these upper management positions. To this end, the tribe offers management and supervisory training on a weekly basis for all interested tribal members. Because the tribe is one of the largest employers in eastern Washington state, the tribal government has adopted an employment policy that honors Indian (and tribal member) hiring preference. The tribal government has made a commitment to hire tribal people with minimum qualifications and provide them the resources to become the most qualified persons for the job.

Clif Saunders, Administrative Assistant for Tribal Programs of the Mississippi Band of Choctaw Indians, gave an overview of the tribal demographics and economic condition and proceeded to outline the history of economic development activities of the Mississippi Choctaw tribe. Of about 8,000 tribal members, 6,000 live on the reservation, an area of about 25,000 acres scattered throughout east central Mississippi. Of the approximate 6,000 jobs available on the reservation, about 1/3 are attributed to the casino, 1/4 to the tribal government, and the remaining jobs to 9 different tribal enterprises and retail outlets. It took the tribe 28-30 years to reach this stage of economic development. In 1970, the tribal economy was almost nonexistent; tribal employment was somewhere above 40%, and underemployment hovered near 25%. That year the chief and tribal council decided that their primary goal was to eliminate poverty through the creation of jobs.

In 1971, the Mississippi Choctaw tribe received an Economic Development Agency (EDA) grant to establish a 30 acre industrial park. Although the tribe advertised their new real estate to over 500 businesses, no one was willing to occupy the park. In 1975, the tribe revised their Constitution and by-laws to stabilize the structure of the tribal government. In 1977, they received another EDA grant that allowed them to expand the industrial park by 50 acres and provided for some road access, street lights, parking, etc. Finally, in 1978, Packard Electric entered into an agreement with the tribe. Through an EDA grant and a BIA loan guarantee, the tribe built a plant which employed 200 persons, 80% of whom were Choctaw. A year later American Greetings consulted Ford and Chrysler about their experiences with the tribes and decided to enter into an agreement as well. The tribe approached the city of Philadelphia about state industry revenue bonds and then built another plant, hiring about 200-225 individuals, about 80% of whom were Choctaw. It is important to realize that it took 8 years from the initial drive and goal to create a significant number of jobs on the reservation. By 1983, the tribal unemployment rate was 25%.

Throughout this time period, all profits were turned back into retiring the debt and expanding employment opportunities. Progress was not quick; people were discouraged; things became heated during some elections. By 1994, the tribal unemployment rate had sunk to 10%, but the tribe was still relatively cash poor. Between 1994 and 1995, they constructed a casino. Many of the people who had formerly worked at the plants for $5-$7 an hour moved over to the casino jobs, working for the tribal government, making $10-$14 an hour.

The next two members of panel two addressed the issue of economic development opportunities. Pete Homer, President/CEO of the National Indian Business Association, briefed forum participants about the new Historically Underutilized Business (HUB) Zone Initiative. According to the HUB Zone Act of 1997, any area with an Indian reservation or any depressed area (as measured by its Census tract data) qualifies as a HUB Zone. In effect, this designation opens the way for small businesses in Indian reservations to compete with non-Indian businesses in gaining jobs and bids from the federal government. A HUB Zone business must be owned and controlled by one or more persons who are U.S. citizens, and the business' principle office must be located within the HUB Zone; contractors must hire 35% of their employees from within the HUB Zone.

Federal government agencies can award sole source and set-aside competitive contracts to qualified HUB Zone businesses. Awards can also be made to HUB Zone businesses through full and open competition through the application of a price evaluation preference. The federal government will begin contracting preference, similar to those formerly initiated under 8A minority government contracting status, beginning in 1999. Based upon a percentage of the total value of prime contract awards, HUB Zone businesses will receive a 1% set-aside in 1999 and that percentage will increase incrementally to a 3% set-aside in 2003. Ten federal government agencies are affected by the set-asides, including the U.S. Departments of: Defense, Agriculture, Health and Human Services, Transportation, Energy, Housing and Urban Development, Environmental Protection Agency, National Aeronautics and Space Administration, General Services Administration, and Veterans Affairs.

The rules and regulations for this new program have just been developed. The National Indian Business Association (NIBA) and 56 other tribal businesses and enterprises made comments on these regulations. The HUB Zone Initiative holds great promise for Indian country; because the ten participating federal agencies awarded $197.6 billion in FY 1996, it is estimated that HUB Zone contracting should equal roughly $2 billion in FY 1999. As a result of prime contract awards, it is estimated that up to 25,000 jobs will be created during the initial year of HUB Zone contracting's implementation.

Laurie Thompson, Director of Technical Assistance and Education at First Nations, explained that the First Nations Development Institute is a national Native American economic development corporation. They provide grants and technical assistance, as well as administer a loan program for reservation-based and tribally-run enterprises. The First Nations philosophy is that tribes and communities must take control over their assets (i.e. natural resources, human resources, financial resources, infrastructure) in order to attain sustainability. Controlling assets puts tribes in a position to create viable, sustainable economies through job creation and income generation. Through such asset based development, tribes can begin to address the challenges of welfare reform.

First Nations has funded organizations and enterprises that are involved in the emerging field of social entrepreneurs, which essentially combines social services with income generating activities. They have also funded programs in food production and arts marketing. First Nations is looking into the practicality of establishing Individual Development Accounts (IDAs), or incentive savings programs or savings accounts for financially poor people. These accounts can play a critical role for tribes and individuals facing the challenges forced upon them by welfare reform. In considering projects to fund, First Nations considers leadership in capacity building, building from within, building partnerships and self help networks and diverse funding bases (including traditional lending institutions).

The final member of panel two, Iola Hayden, Executive Director of Oklahomans for Indian Opportunity, spoke about administrative and physical infrastructure needs. Ms. Hayden suggested that under welfare reform, tribes have to use a process for looking at very old problems in a very different way. This philosophical shift will have to include things like integrating services. In many tribes, little agencies are all functioning independently; it's possible that they do not even know what other programs are doing. Integrating services will prevent duplication and create a system that is going to be more responsive to clients. In order to effectively integrate services, tribes will have to include staff, some leadership, and even clients in designing the new service delivery system. Staff must be re-trained to look at job creation and social service delivery in a whole new way. This will take time and willingness from staff and clients. Tribes will have to develop a system for coordinating with the state, regardless of who administers the TANF program. There also needs to be coordination on Medicaid and Children's Health Insurance Program (CHIP) issues; tribes and states need to develop a working relationship to address child support issues and food stamps. Recently, some historical things are happening with state/tribal relationships. Even in cases where tribes and states have not had a particularly good relationship, welfare reform presents an opportunity for change. This is not about jurisdiction; it's a matter of what can be done to best serve the people who need the most help.

Panel 3: Adult and Vocational Education Needs

Panel three addressed adult and vocational education needs. Yvonne Novack, President of the National Indian Education Association (NIEA), discussed adult education programs. Since 1996, NIEA has worked to include a set-aside for Indian adult and vocational education programs. Based on a survey conducted by the Senate Committee on Indian Affairs, many American Indians and Alaska Natives receive these types of services through the state. In the past few years, Congress has failed to provide Indian set asides for adult and vocational education programs. Based on states such as Alaska, North and South Dakota, and Minnesota, Indian people are adequately being served by state programs. However, NIEA does not believe that this is a complete picture; the situation in these states is not generalizable to all of Indian country. NIEA, in collaboration with NCAI, continues to push for Indian set-asides in federal funding for adult and vocational education. This is really an uphill battle because of the 1996 Senate Committee study that says that states can better serve Indian students. NIEA is still working with Senator John McCain to amend 25 U.S.C. §450, the Indian Self-Determination and Education Assistance Act, to include adult education. Although this Act has been unfunded for years, the last attempt to gain funding was almost successful. NIEA sees this as a major funding opportunity to serve the adult population. NIEA will be working with tribes and asking tribes for support again for adult education funding in the Office of Indian Education at the U.S. Department of Education. The money is already spread too thin. On June 24^th and 25^th, the state of Minnesota is holding a statewide conference to strategize about how NIEA and tribes can continue to support adult education through monies that the tribes already have.

The limitations that welfare reform imposes on educational opportunities are severe. For example, if a vocational training program is limited to nine weeks, the effectiveness of such a program will be limited. These programs must become more effective, for welfare recipients are using up their scholarship eligibility by participating in these programs. In the end, these participants have to be able to get a job; they can't go from program to program. What NIEA is stressing with tribal education directors is that staff must work with students to set goals and understand that the funding is finite. If the students do not make progress, the funding will not be there to assist them further.

The subject of vocational education programs was covered by the final two panel members of panel three. Dr. David Gipp, President of the United Tribes Technical College (UTTC), summarized some of the characteristics of the model that he utilizes at the intertribal UTTC to work with Indian families in Bismark, North Dakota. Since 1969, UTTC has worked with adults and children in an attempt to make tribal societies more particpatory, more successful and more meaningful. The school deals with issues that affect both children and adults; UTTC provides child care and an elementary school on the college campus. UTTC emphasizes quality education and quality training; they want to ensure that they are not simply a revolving door, which does a disservice to all program participants.

Clearly the need for basic education programs is tremendous, and it will increase as welfare reform is implemented. Basic literacy skills are required. The schools have to consider: how are individuals who are willing and attempting to learn going to become more prepared for employment in less than two years? Where will the jobs come from? What kind of jobs will they be? As welfare reform is implemented, it may become clear that two or three years of education and skill-building, rather than short-term employment are the real keys to sustaining economic development on reservations and throughout various Indian communities. Schools must share these responsibilities with social service and employment training providers as well as tribal leadership.

Combating the culture of poverty will be difficult. There are a lot of our own Indian people who, over this generational poverty that we've all had to live through in prior generations, are convinced that some of the things that they do are somehow the behavior of Indian people or part of our own culture. As trainers, educators, administrators, or leaders, tribes have the responsibility of letting people know that this culture of poverty is not part of traditional life. We all have things we have to do and responsibilities that we have to carry out if we are going to be successful. Preparation is important. As educators and service providers, we have to prepare our communities; to give them internet access and train them how to use it. Higher education resources have declined. In 1969, the Bureau of Indian Affairs had $75 million in Employment Assistance funds; today it is less than $15 million. The federal government has de-emphasized training through the Department of the Interior. The Department of Labor, Division of Indian and Native American Programs (DINAP) has also taken a reduction in dollars. Tribes need to work very aggressively to restore those dollars. This issue of a Marshall Plan- we really need to have an investment back in Indian country; part of that is training human resources.

Gary Bibb, President of G.R. Bibb & Associates, pointed out that because of the welfare reform legislation, our pace changed. Educators are being required to move people faster through the education process. Because a lot of people will not go on to higher education, vocational education is a crucial component of welfare reform work activities. Transportation and child care are problems; tribes and educators have to find a way to reach the neediest people out in remote areas. When clients and students can not get to the tribal colleges and community programs, the educators and service providers need a way to get to them. Because of opportunities presented by flexible funding streams, like Welfare-to-Work monies, we can begin to use the vocational education system to support economic development on reservations. This requires creativity and breaking down territoriality between programs. Public Law 102-477 presents the opportunity for integration and creativity. If Navajo wins their lawsuit to administer TANF under a Pub. L. 93-638 Self-Determination contract, even more opportunities will be provided.

Even if economic development is successful and jobs are available, people will not necessarily be able to keep those jobs. It all goes back to basic life skills education. We have to build self respect, let people know that it's okay to be Indian. It comes down to the issue of self respect and providing support. If you expect nothing, that's exactly what you'll get. We have to expect something of our people. We have to set goals and ensure that our people have the tools by which those goals will be accomplished. This will take brainstroming and working together on everyone's part.

Forum participant Alvina Husties from the Umatilla Reservation talked about the plight her tribe has faced. When the tribe opened their casino, they initially experienced high employment. However, tribal members placed in supervisory positions had problems dealing with their employees. Employees and management had not received adequate training. Overall, there was a lack of experience and knowledge. They also had problems with alcohol and drugs. There were not systems in place to help employees deal with these issues; the personnel office did not have a social worker; there were no prevention programs in place. Tribal employment rates dropped. Mental health, education, job training programs all have to coordinate, to get involved with economic development and keep people employed. Chairman Whitefeather shared that many tribes who have gone into the gaming business have found that employees have to be recycled two or three times before they are actually able to handle a job. Tribes need to look at providing support services to these members. Although it's a cost, you need to look at it as a long-term investment.

Another participant emphasized the need to continue to work on technical amendments to the welfare law. Proposed amendments should be developed and tribes should be consulted. Tribes should be thinking about the policy changes that they would like to see. Tribes need to begin looking ahead and become more aggressive about their social service needs.

In closing, Chairman Whitefeather urged participants to remember that in discussions of welfare reform, it is primarily the young ones that will be hurt by the changes being brought about. The United States has been in an economic boom for some time now, but on many reservations, the unemployment rate is still over 50%. It would be to the benefit of everyone for states and tribes to work together a little more closely. There are still a lot of barriers for us in Indian country. Many habitual cash assistance recipients have to learn to work. Developing life skills is very important. This is an evolutionary process that we have to try and be patient with. There is a time limit out there, and there is always a sense of urgency. It's time to be politically active, to share information, to be unified. We have to leverage resources to help our people. Program participants also have to understand that this is not punitive. In order to expect a comfortable lifestyle, certain things are expected of tribal members. They have to be accountable; they have to be responsible not only for themselves, but also for their children. There are extensive barriers here, but in the end, tribal communities are survivors and will find a way to reform the welfare system in Indian country.
 
 

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