Operating TANF:
Opportunities and Challenges for
Tribes and Tribal Consortia

By:

Walter Hillabrant and Mack B. Rhoades, Jr
Support Services International, Inc.

Nancy Pindus
The Urban Institute

Submitted to:
Department of Health and Human Services
Office of the Assistant Secretary for Planning and Evaluation
Project Officer: Alana Landey

Submitted by:
Mathematica Policy Research, Inc.
Project Director: Alan Hershey

August 2003

This report is available on the Internet at:
http://aspe.hhs.gov/hsp/TANF-tribal03

How to Obtain a Printed Copy

Contents

Executive Summary

Acknowledgments

Chapters

1. Introduction
   1. Legislative Authority and Status of Tribal TANF
   2. Study Methods and Sites
2. Making the Decision to Operate Tribal TANF
   1. Factors Favoring Tribal Operation of TANF
      1. Improvement of TANF Services and Outcomes
      2. Extension of Tribal Self-Determination
      3. Enhanced Program Coordination
      4. Improvement of Reputation and Image
   2. Factors Opposing Tribal Operation of TANF
      1. Cost
      2. Risk of Taking on a New Program
      3. Potential Staffing Problems
      4. Potential Problems with States and Counties
   3. Broad Consultation with Tribal Stakeholders Is Needed
      1. Consensus-Building Activities
      2. Obtaining Input from Participants in TANF and Related Programs
      3. Consultation with Other Tribal TANF Grantees
      4. Special Challenges for Tribal Consortia
3. Developing a Sound TANF Plan
   1. Plan Requirements
   2. Defining a Program Tailored to Tribal Needs
   3. Negotiating Terms with the State
      1. Determining Tribal AFDC Counts
      2. Obtaining MOE Contributions and Other State Support
   4. Determining and Assembling Resources for Planning and Startup
4. Ensuring Smooth Program Implementation and Operations
   1. Transition Process
   2. Program Operations
      1. Fine-Tuning TANF Plans to Reflect Actual Participation
      2. Deploying Needed Facilities, Equipment, Infrastructure, and Systems
      3. Recruiting, Training, and Retaining Program Staff
      4. Coordinating TANF with Other Programs
      5. Tailoring Operations to Unique Tribal Circumstances
      6. Reporting Program Performance
5. Lessons Learned and Implications
   1. Lessons for Tribes and Tribal Consortia
      1. Deciding Whether to Operate TANF
      2. Developing a TANF Plan
      3. Implementing and Operating the TANF Program
   2. Implications for Federal and State Consideration
      1. Federal Policies and Procedures
      2. State Policies and Procedures

References

Appendices

1. Required Components of a Tribal Tanf Plan
2. Tribal Tanf Reporting Requirements

Acknowledgments

We gratefully acknowledge the time, effort, and detailed information provided by the ten tribal TANF grantees who participated in the study: Hopi, Lac de Flambeau, Mille Lacs, the Navajo Nation, Port Gamble S’Klallam, Red Cliff, Tlingit and Haida, Torres Martinez consortium, White Mountain Apache, and Winnebago tribes. We are especially grateful to the Navajo Nation, Port Gamble S'Kallam tribe, and Torres Martinez consortium, as well as their counterparts at state and county TANF agencies, for their participation in site visits. The grantees in this study face many challenges, have unmet needs, and have limited resources. Nevertheless, they have freely given time and assistance to the study, with the goal of improving their own efforts and those of all tribes and Native Villages to help Indian people achieve self-sufficiency and end dependence on welfare. Without their cooperation and support, this report would not have been possible.

In addition to the authors of this report, Judy Earp of SSI, Michael Egner of the Urban Institute and Charles Nagatoshi of Mathematica Policy Research conducted interviews for this study and contributed valuable insights for the report. Alan Hershey of Mathemetica Policy Research reviewed drafts of the report and provided many helpful suggestions.

Valuable contributions to the report were made by the Department of Health and Human Services (DHHS) Project Officer, Ms. Alana Landey, and by reviewers in the DHHS Administration for Children and Families and in the Department of Labor.

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Updated: 10/31/03