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Financial Support for Grandfamilies: Improving access to Temporary Assistance for Needy Families (TANF) and other supports

Ana Beltran, Generations United

BROOKDALE RELATIVES AS PARENTS PROGRAM (RAPP) 2014 National Training ConferenceSaturday, October 18, 10:30 to 11:45 AM1During this interactive session, wewill explore promising TANF policies, programs, and practices thatyou can take back to your state and county to help grandfamilies' access what is often the only monthly financial assistanceavailable tothem.As part of the workshop, we willrelease theresponses to the summer 2014 TANF surveyof the RAPP network. We will discuss how we can take the results and turn them into action.

1AgendaBackgroundKinship TANF model & results of TANF survey of the RAPP networkOther financial supportsExplore strategies for improving grandfamilies access to TANF and other financial supports and services ResourcesGenerations United2

2Background3Generations United

Temporary Assistance for Needy Families (TANF)In 1996, Congress said that one of the four primary purposes of TANF is to provide assistance to needy families so that children may be cared for in their own homes or in the homes of relatives.TANF continues to be often the only support for grandfamilies outside of the foster care systemYet, only about 12% of kinship families receive any TANF assistance, even though the majority of children raised by relatives live in poverty and qualifyGenerations United4Needs of Grandfamilies63% of relative caregivers have incomes below 200% of the poverty line, compared to 43% with one-parent homes

Unlike children living with at least one parentThe majority of children have a caregiver who is age 50 or older16% of them have a caregiver who is already retired

Source: Annie E. Casey Foundation, Stepping Up For Kids (2012). Available at www.aecf.org Generations United5TANF frameworkEven though one of the primary purposes of TANF is to support grandfamilies, the actual framework of TANF was not designed with relative caregivers in mind

The framework was developed for young, low-income single mothers with no or minimal financial assetsGenerations United6Two types of TANF grants barriers with eachFamily grants caregiver is on the grant60 month time limitwork requirementsasset limits limited income disregardsrequire caregivers to assign child support to the stateDefinition of relative may be restrictiveChild-only grants only for the care of the childGrants are small national average of $249/mo. for one child with only slight increases for additional childrenrequire caregivers to assign child support to the stateDefinition of relative may be restrictive

Generations United7Work requirements and time limitsUnder the previous AFDC program, certain individuals were exempt from work requirements:If too ill to workIf over age 59If needed in the home to care for an incapacitated household memberIf providing care for young childrenThese federal exemptions no longer existStates, however, have the flexibility to exempt groups from the work requirements and time limitsGenerations United8Asset limits and income disregardsTypical asset limit for a family grant is $2,000State policies often allow for savings for a first home or college, but not for retirementIncome disregards are typically also not high enough for caregivers to continue to save for retirement

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Child support enforcementUnder either type of grant, all recipients must assign their right to child support to the stateThese requirements may reduce access to benefits for kin who are fearful parents may retaliateStates have flexibility to waive requirement for good cause if the caregiver can show that seeking child support is potentially harmfulGenerations United10Eligibility for fictive kinRelative is not defined under TANF lawStates have the flexibility to define it

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Survey resultsOne of many troubling responses:The application process is extraordinarily difficult (40 pages) with questions like "What kind of help does this person need?" Choice options are 1. Food , 2. Medical 3. Childcare, 4.Cash assistance, 5. Emergency Help 6. Family Planning Services, 7. None (Not applying)The right answer is number 7 "NONE". By checking any other of the possible choices their case is instantly denied.12Generations UnitedSummer 2014 surveyOnline TANF survey was sent to all members of the Brookdale RAPP networkAlthough it was August, we got a 25% response rateThe survey consisted of 35 detailed questions asking respondents to identify: grandfamilies barriers to TANF access how TANF is used to serve the families how we can work to improve TANF access and benefits Generations United13Many relative caregivers choose not to get TANF because of child support assignmentGenerations United14

Most relatives not getting good cause exception Generations United15

Some survey comments regarding child support assignment Once they have the kids, they don't want the adult parent involved in any way or they don't want to get the adult child "in trouble". Some grandparents opt out for fear the children will be removed if the biological parents are forced to pay child support to the state. We let them know about the "Good Cause" which usually includes their fear that the parents will be violent. However, when this was presented to DHS, they said they would not be able to grant assistance unless there was a police report showing the grandparent had been threatened. Most do not have this for fear of creating more drama for their family.Generations United16Other reasons caregivers choose not to seek TANFGenerations United17

Jonesboro, GA17Some survey comments regarding legal custody and guardianshipOne respondent said that The relative caregiver must have legal guardianship through Family Court of the child. They may then apply for TANF assistance. They require them to complete a parenting class that consist of 6 classes in order to receive a certificate and the benefits.

In one state, a respondent indicated that workers turn away relatives with legal custody, and tell them they must have guardianship.

Generations United18Reasons caregivers are denied TANF child-only grantsGenerations United19

Other reasons caregivers are deniedA respondent said, There is not a check box that specifies child only grant or regular grant and several times it is assumed they are applying for the regular grant, which they typically are not eligible for. Therefore they are denied and have to reapply if they are aware there are two different types. In addition, sometimes they have difficulty getting documentation to prove their relationship to the child and DHS will not accept custody orders from the court nor will they look at previous cases that the birth parents may have had which may include the proof that the caregiver needs.If the kinship caregivers gets the child from CPS - they do not let the caregiver know that they can apply for TANF.

Generations United20Reasons caregivers are denied TANF family grantsGenerations United21

More troubling comments from the surveyIn Oregon, great-grandparent caregivers are reported to have been cut from being allowed to apply for TANF. Have you heard of anything like that where you live? In a Washington city, caregivers are reportedly told the parents timed out of their benefits so now none are available for the child in their care.Have you heard of this reason where you live?In a Georgia county, applicants are reportedly told they must apply in person for child-only grants. For family grants, they may apply online.Have you heard of similar application distinctions made for child-only applicants where you live?

Generations United22Kinship TANF Model23Generations UnitedKinship TANF Model ChecklistPromising PoliciesReinstate the previous work requirements and time limit exemptionsIncrease asset limits and income disregardsMake clear use of the good cause exceptionAllow adults with a family-like relationship to the children to be eligiblePromising ProgramsOffer subsidized guardianship/enhanced paymentsProvide non-financial supportMake short term benefits availableEnsure that working kinship caregivers can qualify for child careGenerations United24Kinship TANF ModelChecklist contdPromising PracticesCombine application requirements for TANF and other major public benefitsEnsure that child welfare and TANF collaborateProvide concurrent TANF benefits for kin and parentsHold joint TANF/Child Welfare trainingConduct joint TANF/Child Welfare outreach to kinHave kinship work groupsGenerations United25Promising policies 26Generations UnitedReinstate previous work requirement and time limit exemptionsMany states make these exemptionsCheck to see if your state doesSome state make exemptions specific to relative caregivers:West Virginia exempts grandparents and other nonparental caretakers from work requirementsTexas exempts a single grandparent 50 years of age or older caring for a child under three years of age from work requirementsConnecticut exempts families with caretaker relatives in a number of situations, such as caring for a child under one, from time limitsGenerations United27Increase asset limits and income disregardsAlaska, California, New York and the District of Columbia allow the elderly or those age 60 and older to have $3,000 in assets as opposed to the $2,000 others can haveOnly DC and Hawaii explicitly allow additional assets for retirement, although most allow for college or a homeStates should add retirement savings to the permissible list of additional assetsStates should also increase income disregard for middle aged and elderly kinship caregiversGenerations United28Make clear use of the good cause exceptionWe encourage states to develop clear language and policies for use of the good cause exception to assigning child support to the stateDC has very clear language in its application form for TANF:If you are afraid that an absent parent might hurt you or someone in your family, then you have a good reason.Thats the type of clear approach thats needed in more jurisdictionsGenerations United29Allow adults with a family-like relationship to the children to be eligibleAt least four states Colorado, Hawaii, Vermont and Washington allow adults with a family-like relationship to be eligible as caregivers on family grants and to receive TANF child-only assistance on a childs behalf

Other states have more limited inclusion. For example In Connecticut, Delaware, Michigan, Kansas and Wisconsin, these caregivers are included provided they have or are getting legal custody or guardianship of the childrenIn Alabama, non-relatives may be a grant payee for up to 90 days if there is a crisis or emergencyGenerations United30Promising programs31Generations UnitedOffer subsidized guardianships/enhanced payments for kin outside of child welfareFor example, since 1999, Louisiana uses TANF funds to offer a Kinship Care Subsidy Program$222/mo., which is $100 more than the states child only grantAvailable to low-income guardians, legal custodians, and kin with provisional custody by mandateGenerations United32

Most respondents states and counties do not provide enhanced grantsGenerations United33

Provide supportive servicesTANF dollars can be used to finance supportive servicesFor example, Tennessee started its Relative Caregiver Program with TANF dollarsThe program is a partnership between the states TANF and child welfare departments, and serves about 2,400 low-income relative caregivers and 3,500 children each yearServices include: support groups, respite, tutoring, mentoring, start-up or emergency financial assistance, transitional child care, case management, and information and referral

Generations United34TANF not being used to fund supportive servicesGenerations United35

Make TANF one-time benefits available Federal regulation allows states to use TANF block grant funds to finance non-recurrent short term benefitsThey are not considered assistance, so not subject to work requirements and time limitsMany states take this option and offer these benefits to cover expenses from utilities to burialsStates should ensure that their eligibility and outreach allow their short-term benefits to include grandfamiliesGenerations United36Grandfamilies not getting TANF one-time assistanceGenerations United37

Ensure that working relative caregivers can qualify for child care assistanceFor example, in Washington State, if the child in a grandfamily is on a TANF family grant or child-only grant, the household automatically qualifies for subsidized child careFurthermore, in a home with two relative caregivers, only one must be employedThis program is funded by a combination of TANF Maintenance of Effort and federal child care block grant moniesGenerations United3839Generations UnitedPromising practicesCombine application forms for TANF and other major public benefitsSeveral jurisdictions like Minnesota and the District of Columbia call their application forms combined application forms and are explicit that the it includes eligibility for TANF, food stamps and medical assistanceGenerations United40

Combined application forms

Generations United41Ensure that child welfare and TANF collaborateEl Paso County, CO was a trailblazer in the area of TANF and child welfare collaborations to better serve grandfamiliesSince the late 1990s, there has been an integrated child welfare and TANF unit, called the Family Services TeamHelps families who come together without the involvement of child welfare and those where the child has been placed by child welfareProvides wrap around services to the familiesGenerations United42El Paso Co., CO collaboration contdFamily Services Team provides:TANF child-only grants, Medicaid, and child welfare servicesAdditional TANF supported assistance can include child care, clothing, beds, car seats, sport or music fees, diapers and summer programsCan also help with rent or security deposits, car repair and supplies to make the home safeAlso uses TANF funds to provide a support group for the caregiversGenerations United43Provide concurrent TANF benefits for kin and parentsWashington State coordinates assistance for families involved with both Child Protective Services (CPS) and TANFFor a child who has been removed by CPS, they allow parents to receive TANF family grants concurrently while a relative receives a child-only grant for that same child This is for children for whom reunification with the parents is the goalThe ongoing financial assistance for the parents helps ensure that financial reasons wont prevent reunification

Generations United44Hold joint TANF/child welfare trainingsColorado state staff has developed a curriculum and are cross-training child welfare, TANF and child support enforcement at the county levelIts goals are to:Identify potential cross-program experiences of kinship familieslearn strategies for working with kinship families involved in multiple programsIdentify areas of improvementDevelop a plan to provide seamless service delivery to kinship families without duplicationGenerations United45Conduct joint TANF/child welfare outreach to kinTANF and child welfare can collaborate on tailored outreach materialsFor example, in New York, the child welfare and TANF agencies, collaborated to Develop an administrative directive that tells counties to make key information available to relative caregiver about TANF and other income supportsAlso worked together on a handbook for the families called Having A Voice and a Choice, available at http://ocfs.ny.gov/main/publications/Pub5080.pdf Generations United46Lack of useful materialsGenerations United47

Have never seen anything as far as child-only. It's held like a "state secret. Ive only seen the regular TANF pamphlet, etc.Need to collaborate

Generations United48Have kinship work groups Washington state has a long running Kinship Work Group that meets quarterlyKey staff from child welfare, TANF agency, Aging and Disability Services, Department of Health, and the Department of Early LearningEasy, budget neutral collaborations like these can effectively coordinate kinship servicesWashington also has a legislatively mandated Kinship Care Oversight CommitteeKey staff from relevant agenciesKinship caregiversKinship service providers and advocatesInstrumental in kinship navigator program, states health care consent law, and other initiativesGenerations United49TANF practices that are of concern50Generations United

Counting caregiver income for child-only grantsThere is a new trend of counting caregiver income when determining child-only grantsShort-sightedCould lead to an increase in number of children in foster care and other financial ramifications for statesStates that count caregiver income, according to the Urban Institute are: Arizona, Maine, Mississippi, Nevada, New Jersey, Oklahoma, South Carolina and Washington. Oregon also counts caregiver incomeGenerations United51Imposing time limits for child-only grantsUnlike the vast majority of states, Arizona, Connecticut, North Dakota and Tennessee subject child-only cases to time limits

These arbitrary limits jeopardize the familys ongoing stability

Source: GAO, TANF and Child Welfare Programs: Increased data sharing could improve access to benefits and programs (2011). Available at www.gao.gov/products/GAO-12-2 Generations United52Placing kin in unlicensed foster care with TANF as the sole source of supportSome states have unlicensed care in which relatives care for children in child welfare custody without the financial assistance and other services that support licensed foster parentsMore than half the children placed with relatives under state supervision are in unlicensed homesBecause of this practice, these grandfamilies cannot receive foster care maintenance payments and instead are referred to TANF for more limited assistanceGenerations United53Other financial supports54Generations UnitedBenefits online toolThe AARP Foundation Benefits QuickLINK website www.aarp.org/quicklink helps people find and apply for programs that pay for food, increase income, and cover home and health care for older adults and children.

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55Earned Income Tax Credit (EITC)This tax credit is refundable so even workers who dont earn enough to pay taxes can get cash from the IRS.Qualifying children: Includes all relatives (and steps)under age 19 (or 24 if a full time student) If the child is permanently and totally disabled, there is no age requirementmust have lived with the relative for more than the yearwww.irs.gov/individuals/article/0,,id=96406,00.html Generations United

56Adoption tax creditCredit for qualifying expenses to adopt eligible children from in and outside the foster care system.The Fostering Connections Act requires states to inform all people who are adopting or considering adoption of a child in state custody about their potential eligibility for this tax credit.The Affordable Care Act made the credit refundable for 2010 and 2011. As of the tax year 2012, the credit has reverted to being nonrefundable, with a maximum amount of $12,650 per child.www.irs.gov/taxtopics/tc607.htmlGenerations United

57Child Tax Credit and Additional Child Tax CreditChild Tax CreditFor caregivers with children under 17 who they can claim as dependent on their tax returnthey can get up to $1,000 per child.Not a refundable tax credit.www.irs.gov/newsroom/article/0%2C%2Cid=106182%2C00.html Additional child tax credit Available for people who get less than the full amount of the child tax credit because they do not owe enough taxes to offset. Unlike the child tax credit, this tax credit is refundable.http://www.irs.gov/publications/p972/ar02.html#en_US_2012_publink10001209058

Additional tax benefitsTax credits are not counted as income

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Explore strategies60Generations UnitedQuestions to exploreDoes your area use any strategies for improving grandfamilies access to TANF that you think work well?Which strategies do you think would work well? One survey respondent indicated that her local grandparent group trains new hires in the TANF application office do you think this is a collaboration you could pursue where you live?If your area does not allow on-line applications, do you think theyd consider making appointments rather than requiring caregivers to wait in line?How can we help at the national level?

Generations United61Caregivers want tools or training on financial managementGenerations United62

Additional questionsWhat other financial managements tools or training do you think caregivers want?Estate planning information?Financial literacy for kids and teens?Other?Generations United63National ResourcesIt was easier for them to adjust to me because Im their grandmother.- grandmother raising grandchildren

6464Available at www.gu.org and www.grandfamilies.org 65

Upcoming regional webinarsTANF programs, policies and practices to improve access for grandfamiliesWednesday, November 12 or Friday, November 14Email me at abeltran@gu.org if interested in receiving inviteGenerations United66

Websites & resourceswww.gu.org Free resources on grandfamilies, including publications and policy updates

www.grandfamilies.org A database of state laws and legislation affecting grandfamilies for all 50 states and DC, in addition to analyses of these laws and legislation

www.grandfactsheets.org fact sheets for each state and DCGenerations United67

Ana BeltranSpecial Advisor, Generations Unitedabeltran@gu.org

www.gu.orgwww.grandfamilies.org