House Appropriations Sub- Committee Testimony - March 26,2009

Terry L. Watson, Director of Centre County Children and Youth Services

Good morning, my name is Terry Watson. It is a privilege to speak to the members of

the Sub-committee on the important issues related to the operation of an effective and
efficient system of services to children, youth, and families in the Commonwealth. I
have worked with children and families for 39 years, including over 34 as the Director at
Centre County Children and Youth Services. Centre County is a fifth-class county.
Over the years, people have often said "I couldn't do your job." Working at Children and
Youth Services is a tough job. In pursuing our charge to ensure the protection and safety
of children and the strengthening of families, there are rarely clear distinctions in making
decisions. Rather, what the caseworker faces on an ongoing basis every day are shades
of gray. Workers have to ask themselves, "Is it okay to continue to work with this child
and family or do other plans need to be made to ensure safety?" What does this mean
"when the rubber meets the road?" Most often, there is not immediate and severe danger
to children. But, what are the tough decisions and even tougher actions that must
happen? What gut-wrenching things cause workers to lose sleep? How about dealing
with a child who has been severely beaten or repeatedly raped by a parent or caretaker?
What about the agony endured by a child when they just cannot understand why they
cannot stay with Mom and Dad? What about making a recommendation to the court that
will terminate a parent's rights forever and a day? Thankfully, these extreme situations
do not happen all of the time. Most often families or friends can be a safe alternative for
the children who are at risk if the parent cannot provide that safety. The child welfare

system is becoming increasingly focused on engaging and collaborating with families to

develop a workable plan to keep the kids safe and resolve the necessary issues. However,
there are times when the family places the children at severe,risk and the Court has to be
petitioned to remove the child from the family. More and more, drug and alcohol use and
abuse byparents and children contribute to the degree and severity of risk to kids. The
stress on staff also is increasing because of the increased level of intensity in the
presenting cases. It is not unusual for all levels of staff to endure sleepless nights because
the concrete proof of the family instability is lacking but the child still seems to be at high
risk. In addition, the families with whom we work often have untreated mental health
andlor domestic violence issues. Since last fall, the unstable economy has begun to make
a bigger impact on people as well. How will people react who have lost long-standing
jobs? Will there be anger, depression, domestic violence and child abuse? These are not
uncommon reactions to economic downturns.

The good news is that most often, children, youth and families can work together to
resolve abuse and neglect issues and children can safely remain in the home. Many
programs, including those based on research or evidence, as well as home-grown services
developed in the counties have come a long way in strengthening families, keeping
children safe and reducing the need for out-of-home placement. Setting and measuring
outcomes for services assist in guiding the system in what is effective.

What do caseworkers say about our system? This could be summed up by a statement of
a caseworker who had worked at our office for some years, left to raise her children and

then returned to the agency. She said, "I spend more time writing about and documenting
my contacts with my clients than actually seeing them." When I asked a group of
experienced caseworkers their thoughts on what they wanted to share with the
Subcommittee, they said that the amount of time spent on documentation is counterproductive to the engagement of families. The reality is that current requirements restrict
the number of contacts that can occur with families. The time absorbed in documentation
robs the time necessary to engage families. Engaged clients are much more apt to make
and keep workable plans in conjunction with their extended family and with other
community supports. If there is not sufficient time to do this, the system is set up to fail
the children and families that they serve. In talking about the potential for budget cuts,
the workers said that basically when that happens, the agency staff picks the children and
families who will not be served, then crosses fingers and hopes something bad does not
occur. In a telling statement, a worker asked "Is this a good business plan?" The other
plea fi-om caseworkers to the Legislature and the Governor no matter who is sitting in
those positions whether it be now or at some other time, would be, "Don't make
sweeping, immediate changes state-wide based on one or a few isolated incidents." Most
often, what happens in these instances is the requirement for more documentation of
some sort. There has to be a reasonable balancing between the need for documentation
and the need to spend productive time with clients.

When I talked to Casework Supervisors, they reiterated many of the things stated by the
caseworkers and added a request to put a hold on new or expanded requirements and/or
initiatives. Over approximately the last two years, County Children and Youth Programs

have been presented with 26 such programs. While it was acknowledged that these
programs are positive, the reality is that sometimes too much of a good thing all at once is
counter productive. By meeting these new or expanded state and federal requirements or
suggestions in this time frame, there will actually be disengagement with families and
additional stress for caseworkers. This is especially a problem for a system that already
historically has a low caseworker retention rate. While it is understood that compliance
with state and federal standards must be met, the best solution would be to proceed in a
planned, gradual implementation of these requirements.

What is the impact of the current economic conditions on counties? Since Children and
Youth is a department within County Government, the fiscal health of county
government affects how child welfare services can be delivered on a local level.
Counties are faced with increasing costs and reduced revenues. Many have already made
cuts to specific expenditures or made a general reduction in the net use of county funds.
Often, our agency is advanced funds because we receive reimbursement on expenditures
from previous quarters. With the reduction of county fund balances, the ability to do so
in the future, this year and beyond, may not be possible. A workable and helpful solution
to the issue of cash flow for counties would be the adoption of legislation permitting
quarterly advances for our services. This would not mean increased funding, but rather it
would be given when the funds are needed. If funds are cut from service areas in our
proposed budget on the State level andlor if unanticipated high-end expenses occur,
counties have to absorb 100% of any expenses above the certified amount of state funds.
In small and mid-sized counties, such expenditures for even one or several youths can

cause great fiscal distress. Unless there are excess funds available to cover these
expenses, these costs must be borne completely by the county and can never be recouped.
Although payment above the certified level by DPW has occurred over the last several
years, the current state of the economy makes this possibility to appear rather dim. Also,
the inability to anticipate the amount of federal IV-E reimbursement at this point makes it
impossible to know with certainty the amount of funds that will be needed at the County
level. As an entitlement, child welfare services, as they are currently defined, must be
provided by counties. In the end, counties will be faced with reductions in strictly county
departments in order to fund required human services and also with reductions to the staff
roster and purchased social services for child welfare or other human services programs.
If preventative services are eliminated, placements will inevitably increase. The system
will be placed on the horns of a dilemma.

Currently, legislation is being contemplated in several areas that could affect the child
welfare system. Revisions to Act 30 and Act 148 regarding the funding of the system
need discussion and study with all affected!parties before anything is finalized. We need
to ensure that the outcomes will be good and not have any unintended negative
consequences. Many counties are also concerned about the potential requirement for an
Ombudsman Office for the Children and Youth system. We are concerned that it will be
another administrative layer that would duplicate activities already being performed.

In conclusion, the best way to achieve a stable and effective system of services for
children and families is to have communication and collaboration between citizens,

private providers of service, County Governments, and the State Government. We all
need to work together to accomplish this end. If this does not happen, the system will
flounder and we will not adequately serve the needs of children, youth, and families.