ERIC ED436050: The Successes and Struggles of Closing a Facility-Based Employment Service.

6 Pages·0.27 MB·English

by  ERIC

DOCUMENT RESUME
EC 307 513
ED 436 050
Butterworth, John; Fesko, Sheila Lynch
AUTHOR
The Successes and Struggles of Closing a Facility-Based
TITLE
Employment Service.
Children's Hospital, Boston, MA. Inst. for Community
INSTITUTION
Inclusion.
Administration on Developmental Disabilities (DHHS),
SPONS AGENCY
Washington, DC.
1999-01-00
PUB DATE
NOTE
6p.
CONTRACT
90DN0032
Institute for Community Inclusion (UAP), Research and
AVAILABLE FROM
Training Center on State Systems and Employment, Children's
Hospital, 300 Longwood Ave., Boston, MA 02115. Web site:
<http://www.childrenshospital.org/ici>.
Collected Works - Serials (022) -- Reports - Evaluative
PUB TYPE
(142)
Research to Practice; v5 n1 Jan 1999
JOURNAL CIT
MF01/PC01 Plus Postage.
EDRS PRICE
Change Agents; Change Strategies; *Community Programs; Data
DESCRIPTORS
Collection; *Disabilities; Program Evaluation;
Rehabilitation; Sheltered Workshops; *Social Integration;
*Supported Employment
ABSTRACT
This brief paper reports on an evaluation of 10 community
rehabilitation providers, six that successfully closed a facility-based
program between 1989 and 1994, and four who are currently involved in a
change process. Data collection consisted of participant observation,
in-depth interviews, and document analysis. Findings indicated:
(1)
organizations were successful in closing a facility using either a gradual
approach driven by individual consumers' job preferences or a rapid approach
(2) catalysts for change were primarily
based on a specific closure date;
internal to the organization and in most cases multiple catalysts influenced
(3) leadership for the change process came
the start of the change process;
(4) organizations which were successful in
from several different directions;
a change process had a strong culture that emphasized qualities like openness
to risk taking, continuous evaluation and improvement of services, and clear
and unwavering vision; and (5) organizations that are currently engaged in an
organizational change process need to be careful to focus on a clear goal and
not be distracted by the change process. Twelve recommendations are offered
for organizations (e.g., invest in engaging and communicating with
stakeholder groups) and five recommendations for external stakeholders (e.g.,
seek a place at the table during change planning).
(DB)
Reproductions supplied by EDRS are the best that can be made
INSTITUTE FOR COMMUNITY INCLUSION
RESEARCH. TO PRACTICE
VOLUME 5, NUMBER 1
JANUARY 1999
CLOSING A
THE SUCCESSES AND STRUGGLES OF
FACILITY-BASED EMPLOYMENT SERVICE
By
JOHN BUTTERWORTH 84
SHEILA LYNCH FESKO
U S DEPARTMENT OF EDUCATION
EDUCAT %AL RESOURCES INFORMATION
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the delivery end funding of day and
Over the past 15 years there have been substantial changes in
the introduction of supported
employment services for individuals with disabilities. Most notably,
individuals with severe disabilities in
employment has led to a dramatic increase in the number of
the implementation of supported
integrated community employment. Despite these promising changes,
from facilities to integrated
employment has not resulted in a transfer of resources and services
the number of individuals supported in
employment. Data from state MR/DD agencies suggest that while
has remained steady or risen
integrated employment has increased, the number in facility-based programs
(Institute for Community Inclusion, 1998).
over the 8 years between 1988 and 1996
have successfully shifted emphasis from facility-
At the same time, it is clear that some organizations
facility-based program. There is a need for
based services to community employment, including closing a
organizational and systems factors that influence organizational change in
a better understanding of the
system..This brief will present the
order to develop the capacity for change in the broader service
providers, six that successfully closed a
preliminary findings from a study of ten community rehabilitation
who are currently involved in a
facility-based program in the period between 1989 and 1994, and four
and systems in advancing access to
change process. The goal of this research is to support organizations
integrated employment for all individuals.
Mehl ted
of a national nomination process and
Participating organizations were selected using a combination
(McGaughey, 1994).
results from a survey of 643 community rehabilitation providers in 20 states
Size
Location
Region
Organizations that Closed a Facility Based Program
Small
Northwest
Suburban
Bonney Enterprises 0 Corvallis, OR
Large
Urban/Suburban/Rural
Northeast
Community Enterprises 0 Northampton, MA
Large
Urban
Central
Life Skills Foundation 0 St. Louis, MO
-
Large
Urban
South
UCPA of the Capitol Area 0 Austin, TX
Small
Suburban/Rural
Northeast
Independence Association 0 Brunswick, ME
Large
Suburban
Northeast
Metro West Mental Health 0 Ashland, MA
agaroizations in Process
Medium
Rural
South
Oak Ridge, TN
Emory Valley Center
Large
Urban
c()
Southwect
Valley of the Sun School and Rehabilitation Center 0
Phoenix, AZ
Medium
Urban/Suburban/ Rural
Central
Menomonee Falls, WI
The Ranch
Small
Rural
Central
Rural Employment Alternatives 0 Conroy, IA
0
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opportunity to participate in planning for the
Data collection consisted of participant
change. Organizations also displayed considerable
observation, in-depth interviews, and document
creativity and experimentation as they sought to
analysis. Primary data collection took place during
implement the change. The tradeoff for this speed
a two-day site visit with each program. Site visitors
and clarity of intent was a change process that was
interviewed representatives from each of the
described, at times, as both stressful and chaotic.
stakeholder groups to gain their perspectives on the
conversion process. Stakeholder groups included at
Catalysts 'for change were primarily internal to the
least staff, consumers, family members, board
organization, and in most cases multiple catalysts
members, and funders.
influenced the start of the change process.
The organizations identified multiple factors that
led to the decision to discontinue facility-based
services. While the organizations typically
Organizations were successful in closing a facility
identified a change in values as a primary variable,
using either a gradual approach driven by
all identified additional variables including the
individual consumers' job preference or a rapid
presence of a new leader (executive director or
approach.based on a specific closure date.
president), an organizational financial crisis or new
Individually-driven change occurred gradually,
financial opportunities, and pressure from
one consumer at a time, and was characterized by
consumers to relocate services. It is notable that
an emphasis on person-centered planning. This
were
rarely reported to be
hinders and state policy
approaCh was more clearly driven by what would
significant factors in the decisions of these
benefit each individual. As a result, the change
organizations to change. An interesting contrast was
process was less stressful, and these organizations
that for those
experienced very little resistance to change from
organizations
families or other stakeholder groups. Organizations
"The purpose was about
which had already
using the individual approach, however, did not
completed the
everyone having a choice to
always clearly communicate values to staff, consum-
conversion
ers, and other constituents, and the change process
make a meaningfid
process, the
could have
contribution, not about
catalysts were
liven easily
"Don't tell people yo it doing a
largely internal.
closing the facility...1 think we
derailed by
conversion. Just use polonal flames
However, for
changed in spite of the syn. ,n,
other forces
agencies in the
planning. Talk about people's dreams
such as funding
not because of the system."
and goals. /hat mill convert it. (lust/
process Of
or staffing. The
converting their
agony executive director
listen to what their dreams and goab
approach also
services, there
are... if
really look at their lions
took much
were internal as
longer, in some
and sec how isolated they are. how
well as external catalysts such as new grant monies
CdSCS.
impoverished they arc and how they're
and concern about competition from other
going to continue to be, unless they
providers in the area.
have employment.
agency staffmember
Leadership for the change process came from
several different directions.
Organizations that chose an organizationally-
While all of the organizations had clear leaders,
driven approac h established a firm date for closure
the notion of a single, charismatic, top level leader
of the facility, communicated that decision c learly,
driving change was not supported. Leadership
and completed the closure much more rapidly.
occurred in a variety of ways in these organiza-
They typically found community employment more
tions. Top level leaders were effective both as
rapidly for a significant percentage of the
strong, visible individual leaders, and also in less
individuals they support. The goals and intent of the
visible, facilitative roles. Middle managers also
organization were very clear to all stakeholders,
played a critical role in the change process for
and in some cases stakeholders had ample
several organizations. In two organizations, while
ta_
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the need for change was defined by the executive
director, middle managers championed the direc-
For Organizations
tion of the change process and led the move to
close the facility.
It is imperative that the consumers of the
organization's services be involved in
Organizations which were successful in a change
developing goals of the organization and share
process had a strong culture that emphasized
in the values that form these goals.
qualities like openness to risk taking, continuous
evaluation and improvement of services, and dear
Keep your eye on the prize: be clear about the
and unwavering vision.
outcome you are seeking. In particular, be
careful not to over focus on the process of
The original six organizations which successfully
change and organizational restructuring. While
closed a facility-based program had a strong and
restructuring may be an important strategy, it is
well-defined culture that emphasized clear shared
not the purpose of change.
values, innovation, and a willingness to take risks.
These supportive cultures were developed and
Remember the most critical outcome is not the
maintained by a
closure of a facility but consumer-driven
"Eve?), level of staff;
variety of concrete
employment with positive outcomes for the
methods including
direct service up to
individual.
aggressive strategies
administration, and
Develop and support change agents throughout
for sharing values
support staff knows the
the organization since middle managers can
with staff, outreach to
play a critical role in this process. Middle
mission of the
both local resources
should
managers and direct service staff
and national experts,
organization and is
participate in strategic planning, training and
open communication
very clear about the
other change activities.
and involvement of
values...It is very
)r fast), be
Whatever your approach (gradu.
all staff in planning
uncompromising once you set your goal.
different from many
activities, and clear
support for
agencies that go
Focus on hiring staff who possess values
innovation.
consistent with the direction of the organization.
wherever the money is."
People who understand the values of
finding source
community employment can learn job
development strategies, but a technically sound
placement person who does not value
individual choice and community inclusion is
Organizations that are currently engaged in an
unlikely to learn these values.
organizational change process need to be careful
Support risk taking by staff members, which will
to maintain focus on a clear goal and not he
allow them to be more creative and
distracted by the change process.
empowered. Within the parameters of safety
The currently converting organizations have
for consumers as well as staff, encourage staff to
.placed relatively less emphasis on closing a facility,
try innovative strategies since many unexpected
and are not as clear about employment as the
successes can occur.
primary goal of the change effort, as were the
Organizational Driven Change
original six sites. There is a stronger emphasis on
broader outcomes such as community integration.
Fstablishing a clear goal and clear timeline for
In some cases, these organizations have also
closure is a powerful tool in communicating the
maintaining accountability in a
invested heavily in team development, sometimes
and
intent
without a clear overriding goat or expectations for
change process.
outcomes. Finally, these change pnwesses have
and
o Make a substantial investment of time
been more likely to he influenced by external
with
energy in engaging and communicating
factors such as the availability of funding than the
stakeholder groups. This approach is necessary
first six organizations.
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if you are using an organizational change
strategy with a clear, short, and reasonable
Butterworth, J., Gilmore, D.S., Kiernan, W.E. &
deadline for closing a program. While all
Schalock, R. (1998). Day and employment services
organizations need to communicate.change
in Developmental Disagilities: State and national
effectively to stakeholders, it becomes even
trends. Boston: Institute for Community Inclusion
more critical when there is a clear decision to
(UAP).
McGaughey, M.J., Kiernan, W.E., McNally, L.C.,
close a program quickly.
Gilmore, D.S., & Keith, G.R. (1994). Beyond the
Conversion Driven by individual Goals
workshop: National perspectives on integrated
employment. Boston: institute for Community
Use of a person-centered planning approach or
Inclusion (UAP).
holistic planning will focus change efforts on the
hopes and dreams of an individual. These
efforts then need to be incorporated into a
Acttliacma.
guals,'"6
specific placement plan
This brief reflects the contributions of staff at the
by
O Be careful not restrict an individual's options
Institute for Community Inclusion, in particular Pat
labeling goals as unrealistic or that the job
Connolly, David Hot and Marty Gold, as well as
would be too difficult to find. Creativity and
representatives from the agencies who participated
good connections in the community allow staff
in this study.
to develop jobs which might not immediately
seem available.
Do not allow the process of closing the
workshop to extend indefinitely, or the
For more information on this study, please
organizational goal of closure may never be
contact John Butterworth at (617) 355-
realized. Make clear policy changes such as
7074, <butterworth@al .tch.harvard.edu>,
stopping acceptance of new referrals for facility-
or Sheila Fesko at [phone],
based services. Acknowledge that some
<[email protected]>
consumers may make a decision not to access
For a publications brochure or general
community employment at this time and may
information, contact the Institute for
need to receive services from other programs
Community Inclusion, Children's Hospital,
that continue to offer segregated services.
300 Longwood Avenue, Boston, MA
02115. [phone] voice; (617)355-
For External Stakeholders
6956 TTY; <iciO.Paltch.harvard.edu>
O Seek a place at the table during change
planning.
(family,
0. Connect with other stakeholders
consumer groups, or funding agencies) to gain a
broader perspective and to rally support for
This document is supported, in pat( by a
important ideas.
cooperative agreement, No. 90DN0032, from
Keep the pressure on. Pressure from consumers
the Administration on Developmental
and families can drive organizations to change.
Disabilities, Administration for Children and
Families, U.S. Department of Health and l luman
Pay attention to the impact of the changes on
Services. Grantees undertaking projects under
the individual. Make sure that their needs are
government sponsorship are encouraged to
being met by these conversion efforts.
express freely their findings and conclusions.
O Do not be forced into a choice between
Points of view or opinions do not, therefore.
community experiences and quality outcomes.
necessarily represent official Administration on
You want both a good job in the community and
Developmental Disabilities policy.
individual's
a job that is satisfying and meets the
b.
goals.
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