ERIC ED361496: Single Parents and Displaced Homemakers: A National Problem and Concern. Ohio's Response. A Report on the Carl D. Perkins Vocational Education Act, 1986-1991.

9 Pages·1991·0.29 MB·English

by  ERIC

DOCUMENT RESUME
ED 361 496
CE 064 428
TITLE
Single Parents and Displaced Homemakers:
A National
Problem and Concern. Ohio's Response. A
Report on the
Carl D. Perkins Vocational Education
Act,
1986-1991.
INSTITUTION
Ohio State Dept. of Education,
Columbus. Div. of
Vocational and Career Education.
PUB DATE
91
NOTE
9p.
PUB TYPE
Reports
Descriptive (141)
EDRS PRICE
MFOI/PC01 Plus Postage.
-
DESCRIPTORS
Blacks; *Displaced Homemakers; *Employment
Programs;
Federal Legislation; *Females; *Job Training;
Minority Groups; *One Parent Family; *Outcomes
of
Education; Postsecondary Education;
Poverty; Program
Effectiveness; Secondary Education; State
Programs;
Whites
IDENTIFIERS
*Ohio
ABSTRACT
The Carl D. Perkins Vocational Education
Act of 1984
included a component focusing
on programs for displaced homemakers
and single parents. This part of the
legislation was precipitated by
the following statistics: almost half
of all families maintained by
single women had incomes below the
poverty line; the number of
displaced homemakers and single
women heading families was very large
and growing rapidly; and births to unmarried
teens were increasing
astronomically. The Perkins Act legislation
provided for vocational
education and training and expanded
services for displaced homemakers
and single parents. In Ohio; funds
from the program were set aside to
expand displaced homemaker and single
parent programs, to fund a
grant program for tuition and support
services for single parents and
homemakers through existing delivery
systems, and to fund an
accountability system, curriculum development
outreach, research, and
inservice programs related to single
parent and homemaker programs
and projects. Almost all
program participants were female, living in
poverty with one or more
young children. Participants enrolled in
vocational training and then received
support se,-vices to allow them
to participate. A total of $14.1 million
was granted to the Ohio
projects during fiscal
years 1986 through 1991, resulting in 90-152
functioning projects during
any one year. Services were provided to
more than 17,000 participants, with most of
those receiving both
occupational training and support
services. Average cost
per
participant was $536. The
programs also helped improve the employment
prospects and high school graduation
rates of participants and
reduced reliance on public assistance. (KC)
***********************************************************************
Reproductions supplied by EDRS
are the best that can be made
from the original document.
***********************************************************************
4
SINGLE PARENTS AND
DISPLACED HOMEMAKERS
A NATIONAL PROBLEM 10
G4
AND CONCERN
OHIO'S RESPONSE
A REPORT ON
THE CARL D.
PERKINS
VOCATIONAL
EDUCATION
ACT, 1986
- 1991
u 3. DEPARTMENT Of EDUCATION
"PERMISSION TO REPRODUCE THIS
r's4
011tce of Ed.cahonal Research sod improvement
MATERIAL HAS BEEN GRANTED BY
ATIONAL RESOURCES INFORMATION
ED
CENTER (ERIC)
>
This pocumeni hos bowl roproduced ii
.
r ecend Iron' thE OWISOft 0 0/9Ohalltt0f1
CeiginEhtbp a
\.6
0 Minor changes have been made to improve
rea0,00uChon ouehly
Points &view Or opfrhohe stated fl that docu-
TO THE EDUCATIONAL RESOURCES
ment do not necemartly reor(mont &bola
INFORMATION CENTER (ERIC)
OERI powfion or pohcy
\.)
2
BEST COPY AVAILABLE
A NATIONAL
4NATIONAL STATISTICS LEADING TO .1984 LEGISLATION *
PROBLEM
Women who were divorced, separated, widowed, or single (1984) supported
10.3 million families.
National attention in the
early 1980's focused on the
Almost half of all families maintained by single women had
an income below
increasing number of poor, single
the poverty line (1980).
parent families. Evidence grew that
Families maintained by never-married mothers increased 500% from
reflected the disturbing status of
1970 to 1984.
single parents and homemakers.
Statistics affirmed the phrase
Fifty percent of teens who had a baby before age 18 would
never receive a
"feminization of poverty" as one
high school diploma.
based on facts.
Women on welfare comprised the second largest group of chronically
jobless people.
Teen and adult single parents and
displaced homemakers were
identified as at-risk populations.
Lacking adequate or updated
Similar statistics were seen in Ohio. The 1980 U.S. Census and other
education and training and having
governmental studies reported the following:
little or no work experience, women
often found themselves immobilized
554,177 displaced homemakers resided in Ohio.
by low self-esteem, high levels of
stress, many home-related problems,
Ohio ranked 7th highest of the states in its number of displaced homemakers.
and very limited financial resources.
Nearly 2 out of 3 poor adults in Ohio were women.
Fifry-seven percent of births were to unmarried teens.
Statistics affirmed the phrase
Births to unmarried women increased from 10% to 20% of total Ohio births
from 1970 to 1984.
"feminization of poverty" as
being based on facts.
It was recognized that the plight of these low-income
Federal legislators recognized that
families had implicafons not only for
our nation's
these women's plight had impli-
social and educational institutions but also for
our
cations not only for our nation's
economy and work force.
social and educational institutions,
but also for our economy and
work force.
THE NATION RESPONDS: GOALS ESTABLISHED
In 1984, federal legislation support-
Section 201 (f) states that 'Each state
make grants to eligible recipients
ing vocational education was
for expanding vocational
may only use the portion of its allotment
education services
available for this
reauthorized in the Carl D. Perkins for
providing single parents and
part tO:
Vocational Education Act (Public
displaced homemakers with
Law 98-524). The Perkins Act
provide, subsidize, reimburse or
marketable skills;
focused strongly on adult learners and
pay for vocational education and
training activities, including basic
their need for training, retraining,
make grants to community-
literacy instruction and necessary
based organizations for the
and employment development. Title
educational materials tha- will
provision of vocational
II, Part A, targeted funds for single
furnish single parents and
education services to single
parents and homemakers with
displaced homemakers with
parents and displaced
emphasis on displaced homemakers
marketable skills;
homemakers...:
to help them obtain marketable skills.
3
from L'.S. Census:
Statistics compiled
*
National Displaced Homemakers Network: and L.' .S. Dept. of Labor, Women's Bureau.
OHIO'S INITIATIVE:
make vocational education and
training more accessible to single
PROGRAMS AND SERVICES
parents and displaced home-
makers by assisting them with
child care or transportation
When the Perkins Act was enacted in 1984, the Ohio Department of Education,
services or by organizing and
Division of Vocational and Career Education, had programs in operation designed
scheduling the programs so that
to assist single parents and displaced homemakers. There were three adult
they are more accessible; or
programs---Displaced Homemaker; Graduation, Occupations, and Living Skills
(GOALS); and Family Life Education---and one secondary program called
Graduation, Reality, and Dual-Role Skills (GRADS).
The Perkins Act recognized
Ohio's Perkins 70/0 set-aside funds for single parents and homemakers were
that in order for single
designated to:
parents and displaced
Expand the Displaced Homemaker and GOALS programs
homemakers to succeed
in vocational education,
Fund a grant program for tuition and support services for
many needed special
single parents and homemakers through existing delivery systems
support services.
Fund the accountability system, curriculum development, outreach,
research, and inservice programs related to the Single Parent and
Homemaker programs and projects
provide information to single
parents and displaced home-
Single Parent and Displaced Homemaker Programs (SPH)
makers to inform them of
vocational education programs
Each of these programs helped participants improve their personal living
and related support services."
situation, reduce barriers to education and employment, and acquire marketable
skills. Customized to meet the needs of the specific single-parent and homemaker
The Perkins Act recognized that in
population it served, each program's goals focused on helping participants develop
order for women to succeed in
the confidence level, knowledge base, and decision-making skills needed to
vocational educarion, manv needed
support themselves and their families. The core curriculum areas w,..re
special support services and consider-
ation for scheduling difficulties. To
Personal development
meet the goals of the Perkins Act,
Career exploration
funding was allocated for child care,
Employability
travel reimbursement, and other
Resource management
support services to meet the needs of
Parenting skills (except in Displaced Homemaker program)
this targeted population.
Displaced Homemaker. This
b. contract-based child care with
program helped low-income
Each of these programs
licensed child-care providers in
displaced homemakers, single
the community
helped participanti improve
parents, and homemakers to make
their personal living
the transition from homemaking to
c. child-care allowances provided
situations, reduce barriers
wage earning. The program provided
for single parents and home-
supportive instruction and services
to education and
makers to purchase child-
to help participants cope with new
care services
employment, and acquire
life situations, overcome barriers that
marketable skills.
prevent them from becoming
d.
travel support provided to
independent, and acquire marketable
secondary and adult students
skills. Funding was provided by
for travel to and from child-care
Single Parent and Displaced
federal and state dollars.
sites and/or vocational
Homemaker Project Grants
programs
GOALS (Graduation,
The SPH project grants permitted
Occupations, and Living Skills)
Child care and travel support services
vocational education planning
This program served single parents
were available to secondary or adult
districts (VEPDs) that offered
and homemakers between the ages of
students enrolled in a vocational
vocational eduOion programs
16 and 30 who have dropped out of
education program identified with
targeted to serve single parents and
school. GOALS helped the students
the greatest financial need.
homemakers to apply for the SPH
obtain a G.E.D. (General Education
grant. Also, community or technical
Diploma), attain an employable job
3. Project
Instructional
colleges that offered a Displaced
skill, become economically
materials were piovided to
Homemaker program funded
independent and function as a
support vocational education
by the Board of Regents were eligible
responsible parent and citizen.
programs for single parents and
to apply. The SPH project grants
homemakers.
helped participants acquire
marketable skills and were also
4. Project 1V-IP Innovative projects
designed to recognize and confront
helped single parents and home-
the special barriers to education and
makers reduce barriers to employ-
employment that existed.
ment, to obtain marketable
skills, and/or enter nontraditional
1. Project I-0T: Occupational
employment and/or employment
Training Grants provided tuition
in new, emerging, or technical
support and instructional materials
occupational areas.
for single pan:nts and homemakers
enrolled in adult occupational
Student Eligibility
training programs funded by the
Ohio Department of Education,
The Perkins Act of 1984 defined the
Division of Vocational and Career
population to be served. All recipients
Education.
of services were to meet one of the
following definitions:
2. Project II-SS: Child Care,
Transportation, and Support
Single Parent: an individual who
Services made secondary and adult
is unmarried or legally, separated
vocational education and training
from a spouse, and has
a minor child
more accessible to single parents
or children for which the parent has
and homemakers. Support services
either custody or joint custody, or
options included
is pregnant
Child-care support services made secondary
a. school-based child care
and adult vocational education and
training more accessible to single parents
and homemakers.
5
Homemaker: an individual who is
ADULT PARTICIPANTS
program. The secondary students
an adult and has worked as an adult
typically received support services
Female
98.1%
primarily without remuneration to
(child care) and any instructional
Living in poverry
79.3%
care for the home and family, and for
materials necessary for enrollment in
18 to 30 years old
47.4%
that reason has diminished
a vocational training program.
31 to 45 years old
35.1%
marketable skills
White
75.5%
Funded Projects and Sites
Black
21.4%
Displaced Homemaker: an
Many of the participants who
Parent of minor children:
enrolled in Displaced Homemaker
individual who because of divorce,
1 child
35.9%
separation, or the death or disability
and GOALS programs received
2 or more children
51.0%
of a spouse must prepare for paid
occupational training and support
High school graduate or
employment
services. A total of $14,100,141 was
completer of G.E.D. (General
granted during FY86 through FY91.
Education Diploma)
78.20o
The lowest amount, granted in 1990,
Priority was placed on service to
As a result of the holistic approac
was 51,600,423. The highest
single parents and homemakers with
the SPH project grants, many si
the greatest financial need and to
amount, 53,334,737, was granted
parents and displaced homemakers
in 1989.
displaced homemakers.
were served by more than one grant.
It was common for grant recipients to
The greatest number of projects
be enrolled in a special program and
granted was 152 in 1989; the lowest
HISTORY OF
concurrently receive support services
was 90, which occurred in 1986.
to ensure their ability to attend and
OUTCOMES AND
complete vocational training.
Refer to Table 1 for more detailed
ACCOMPLISHMENTS
data on the amount of dollars
The rypical adult participant was
Fiscal years 1986-1991
distributed in each category and the
enrolled in a Displaced Homemaker
number of projects and sites at which
or GOALS program and received
Profile of Participants
these dollars were utilized. It should
support services (child care and
be noted that the total number of
Most participants receiving services
transportation) while enrolled. The
sites grew from a low of 31 in FY 86
uncitr these grants were referred by
program participant then entered a
to 77 in FY 91. This steady increase
agencies in the community. They
vocational training program (and
of sites occurred in spite of a decrease
were identified as being at high risk
continued to receive support services
in federal dollars, indicating an
of remaining unemployed or under-
and perhaps tuition as well) to gain
efficient use of funding and manage-
employed. Each applicant was
the skills necessary for employment.
ment of services at the state and
interviewed, and detailed statistical
The typical secondary participant was
local levels.
data were established and maintained.
concurrently enrolled in the GRADS
A typical profile of recipients
program and in a vocational training
emerged:
,-.0011111-ABLE144BINGLEPARENTAND HOMEMAKERPROJECTGRANTS
SECONDARY PARTICIPANTS
PROJECT
FY 1990
FY 1991
FY 1989
FY 1988
FY 1987
FY 1986
TOTALS
Female
98.9%
Living in poverty
76.4%
Occupational Training S 561.907
S 515,580
S 1,019,628
S 1,044.590
S 644,821
$ 887,163
S 4.673.687
Support Services
1.334,382
1,025,762
2.144.432
14 to 17 years old
2.043,692
1.072,909
871.693
8,492,970
73.1%
Instructional Materials
55.580 23.407
53.365
51,164
49.800
34.000
267,316
White
52.9%
Innovative Projects
31.163
35,674
92,350
161,414
184,979 160,686
666,266
Black
44.6%
TOTAL
FUNDS EXPENDED
Parent of minor children:
$ 1,983,032
S 1,600.423
5 3,334.737
$3,275,898
$2,194,851
S 1,711.200
S 14.100,239
1 child
91.8%
TOTAL NUMBER OF GRANTS AWARDED
2 or more children
8.2%
124
142
152
138
115
90
Child younger
than 24 months
87.4%
TOTAL NUMBER OF SITES SERVED
77
67
66
65
55
31
6
Number of Parents and Children Sewed
Table 2 summarizes the parents and children who received services and/or
training. The number of participants served increased until FY90, when a
decrease was seen ingnumbers as well as in dollars.
In FY90, SPH funds decreased by 52%, but the number of participants served
decreased by only 39.7%. A number of factors contributed to this, including
increased program efficiency, greater use of local dollars, and possibly lower
Transportation assistance helps parents
number of disadvantaged individuals served.
attend classes.
Barriers to Employment
01gABLE2OUMMARYZEISERVICES RECEIVED BY.SPH PARTICIPANTS
and Education
NUMBER OF ADULTS RECEIVING
NUMBER OF CHILDREN SERVED
Data that was maintained based on
OCCUPATIONAL TRAINING SERVICES
intake interviews with participants
Fiscal Year
Fiscal Year
remained dramatically consistent
1991
1,362
1,799
1991
1990
from FY86 through FY91 on the
1,208
1990
1,583
1989
1,861
1989
3,294
primary barriers to graduation and
1988
1,875
1988
2,933
employment. The top,three barriers
1987
1,445
1987
1,613
for students were as follows:
1986
961
1986
852
ADULT STUDENTS
Lack of money
NUMBER OF PARENTS WHO RECEIVED SUPPORT SERVICES (CHILD CARE AND/OR TRAVEL)
1.
Lack of skills/diploma
2.
Fiscal Year
Adult
Secondary
Total
Child care
3.
1991
833
1,106
1,989
1990
973
SECONDARY STUDENTS
843
1,816
1989
L Child care
1,701
1,389
3,090
1988
1,644
1.135
2,779
lack of money
2.
1987
858*
570
1,428
Lack of transportation
3.
1986
736*
286
1,022
system
*Calculated; reporting
refined in FY 1988.
It was apparent from this data that
money invested in occupational
training for adults and support
TOTAL NUMBER SERVED (OCCUPATIONAL TRAINING AND SUPPORT SERVICES)
services for both secondary and adult
Fis.;al Year
Fiscal Year
students would target their greatest
2.960
1991
1988
3,878
p. rceived barriers.
1990
2,739
2.899
1987
1989
4.258
1986
1,385
Table 3 reflects the cost per single
parent or homemaker to provide
these critical support services. For
Over the six-year perio4 $4,673,689
was invested in
approximately $700 per family,
support was provided that helped
occupational training for 8,712 single
parents and home-
rdults become employed and
makers at an average cost per participant of $536.46.
secondary students remain in school.
pfAIMIKMAMMilielitiNAM
,A4~110000601001161110BIESWIREQRTASERVICES 430STEERFAMILY
FY 1991
FY 1990
FY 1989
FY 1988
FY 1987
FY 1986
TOTALS
Total S Spent on Support Services $ 1,334,382.00
S 1,025,762.00
S 2.144,432.00
$ 2,043,692.00
S 1,072,909.00
S 871,693.00
$ 8,492,870.00
Total* Families Served
1,989
1,816
3,090
2,779
1,428
1,022
12,124
$ 670.88
$ 564.84
Investment Per Family
$ 693.99
$ 735.40
S 751.33
S 700.50'
852.92
`Six-year average investment per family for support services
7
Furthermore, this chart reflects
Adult Recipients Show
GOALS AND
neither the 4.6% of the occupational
Significant Gains
CHALLENGES FOR
program completers in FY91 nor the
in Employment
THE 1990's
7.3% of the completers in FY90 who
pursued additional training that
With adults indicating a lack of skills
The New Federal Law and Its
should result in employment at its
and education level [attained] being a
completion.
Implications for Change
primary inhibitor to employment,
investing in occupational training
New statistics on the single parents
Secondaiy Recipients
should result in a reduction of
and displaced homemakers continued
Increase Attendance and
unemployment. If adults on public
to show a need for programs and
assistance become employed, thus
Graduation Rates
services. Specifically, one out of Four
generating revenue instead of asing it,
families is headed by a single parent,
Aiarming statistics indicate that over
training becomes extremely cost-
and that single parent is almost
one half of all students who become
effective. What has been the history
always female. The number of
parents while in high school will
with SPH? Over the six-year period,
displaced homemakers increased 17%
drop out and not receive their high
$4,673,689 was invested in
in the past decade, and now number
school diploma.
occupational training for 8,712 single
over 650,000. Of those growing
parents and homemakers at an
ranks of displaced homemakers, two-
A dramatic reversal in these grim
average cost per participant of
thirds are widows, two-thirds are
statistics has been seen in Ohio. The
$536.46. Table 4 indicates that
unemployed or underemployed, one
GRADS program, developed in Ohio
completers of occupational training
in four is a woman of color, and four
and nationally recognized and
programs reported significant gains in
in ten live in poverty. *
replicated, has had great success in
employment of 20 hours or more
reversing these statistics. Students
The Carl D. Perkins Vocational and
who enrolled in this educationally
Applied Technology Act Amend-
When adults on public
supportive program and received
ments of 1990 were passed and
assistance become employe4
became effective July 1, 1991. The
A dramatic reversal in the
thus generating revenue
new legislation recognized thc
grim dropout statistics has
significant accomplishments made
rather than using it,
under the 1984 act but also created
been seen in Ohio.
training becomes extremely
new and more challenging goals for
cost-effective.
states to meet. The mission was to
critical child-care support from SPH
"make the United States more
grants had a very different picture of
competitive in the world economy by
educational progress. In FY91, 87%
per week for FY88 through FY91.
developing more fully the academic
of all secondary SPH participants
Gains were reported even during the
and occupational skill of all segments
graduated, were promoted or were
economic recession of FY91, in
of the
population."
still enrolled in school at the school
which many segments of the working
year's end. Success rates were similar
population were dealing with
The focus of the 1990 act remained
for prior years:
unemployment.
consistent with that of the 1984 act
a0.6%
FY 90
by continuing the set-aside funds for
88.0%
FY 89
programs serving single parents,
90.6%
FY 88
displaced homemakers, and single
89.1%
FY 87
pregnant women. The redefined
90.6%
FY 86
target populations were "displaced
Although keeping secondary
Fiscal
Not Employed
Employed
homemakers" (rather than
students in school to graduation may
Year
at Intake
Occupational
"homemakers") and "single
(all adults)
Completers
not generate the immediate societal
pregnant women."
dividends seen in moving adults
76.5%
1991
55.5%
from public assistance to employ-
1990
74.7%
64.0%
At the state level, legislative changes
ment, the long-term savings to
1989
77.9%
57.3%
were also occurring with Senate Bill
1988 78.4%
60.3%
society and its families will still
140, which went into effect on
be immense.
8
Statistics compiled _from National Displaced Homemakers Network.
July 1, 1990. The legislation
3. Equity Resource Library, housed
challenged the Division of Vocational
at the Center on Education and
"Thus, the 1980's ended
and Career Education to "accelerate
Training for Employment, on
with a new wiwe of
the modernization of the vocational
equity, single parent, and
education rtform based
curriculum....which can furnish
displaced homemaker issues
students with rhe...skills needed to
4. Equity competencies established
on rising expectations
participate successfully in the work
for all K-12 and adult learners
and increased demands."
force of the future."
5. Ongoing technical assistance
and site visits to ensure effective
A major goal in the publication
programming for the target
Ohio's Future at Work was that "all
Franklin B. Walter, former
populations
vocational programs and services will
Superintendent of Public Instruction,
have specified, measurable, and
Core outcomes and measures of
stated in Ohio's Future at 11.-orir.
challenging outcomes to evaluate
performance for all Equity, Single
student performance, to facilitate
Parent, and Displaced Homemaker
"Thus, the 1980's--a decade of
continued program improvement,
programs were established by the fall
introspection, challenge, and change
and to maximize opportunities for
of 1992. These outcomes and
for educators--ended with a new wave
success in the technologically
measures of performance not only
of education reform based on rising
oriented workplace and in
integrated new requirements of the
expectations and increased demands.
continued education."
1990 Perkins Act but also incorpo-
The charge to Ohio's vocational
rated additional recommendations
education system and its leadership in
Ohio's Response to
identified by the state of Ohio for
the 1990's is direct, compelling, and
the 1990 Act
program improvement. Although
far-reaching."
core outcomes and measures of
In light of these legislative changes,
Ohio's Future at Work also stated that
performance have been developed
Ohio implemented some initiatives
"there is growing realization that
specific to each program, they
that will benefit single parents,
people are our state's most valuable
incorporate some general goals,
displaced homemakers, and single
resource... each and every Ohioan
which are:
pregnant women by ensuring
must be capacitated and committed
1. Increased graduation rates
equitable educational practices and
to become a functioning,
2. Increased enrollment in
providing services and resources for
contributing member of society."
effective recruitment into higher-
vocational training programs
wage training programs. Some of 3. Improved employment rates
The charge for change and improve-
4. Increased rates of earning
these recent efforts are:
ment and more efficient and
5. Increased enrollment in non-
effective use of diminishing resources
I. Hands-on workshops for all
traditional training
is clear from the 1990 Perkins ACC as
GRADS, GOALS, DH
6. Reduced reliance on public
well as from state legislative
(Displaced Homemakers), and
assistance
mandates. Programs will continue to
CSS (Comprehensive Support
These objectives present major
be evaluated, data collected, and
Services) coordinators regarding
challenges for programs that work
support maintained for those
nontraditional occupations
programs that best meet the
exclusively with disadvantaged and
2. Statewide inservice education
difficult-to-place participants.
challenge of this charge.
regarding equity issues
State Board of Education
Oliver Ocasck, President
John Griffin
Arline Smith
Virginia Purdy, Vice President
Judy Hahn
Mary Goodrich
Virginia Jacobs
Anita Tighe
Shirky Hawk
Martha Wise
Ohio Department of Education
Marie Pfeiffer
Division of Vocational
and Career Education
This publkation was supported hy federal funds of Public. Lass 101
392. the Carl D Perkins Vmational and pphed
65 South Front Street, Room 909
Teshnolog Act of 190. administered by the Ohio Department of Education. Division of Vocational and Career
Ldusation
Columbus, Ohio 43266-0308
It is the policy of the Ohio Department of Education. Division of Vocational and Career I ducation.
to offer edusational
614/466-5910
activities, employment practices. progtams. and services without regard to race. color. national origin.
sex, religion. handis.p.
or age.