Community Action Plan

Fiscal Year July 1, 2005 to June 30, 2006

Needs Assessment

The 2005-2006 Needs Assessment relies on data and input from the 2000 Census, the University of Tennessee in conjunction with Nine Counties. One Vision. and CAC’s Board and customers. The University of Tennessee’s College of Social Work Office of Research and Public Service (SWORPS) prepared an extensive report for the Social Services Task Force of Nine Counties. One Vision. The Task Force identified gaps in services, perceived or actual barriers to services, or duplication of services throughout the nine county region. Data was compiled for the region as a whole and for each of the nine counties (http://sworps.utk.edu/PDFs/viewbook.pdf). Knox County data is presented in this document. There were three phases to the needs assessment. The first phase gathered social indicator data. This phase relied heavily on the 2000 and 2004 Census data (http://www.census.gov/). In addition, SWORPS gathered data from more than 100 different sources. The information is available at www.ninecountiesonevision.org. The second and third phases were conducted by SWORPS. In the second phase, perceptual data was gathered using a telephone survey. A random sample of people in each of the nine counties, including Knox County, was interviewed by telephone about their household problems, needs, and services. An analysis of this information is also available on the above referenced website. The third phase utilized focus groups from each of the nine counties. These groups brought together a cross section of people having the “big picture.” After all phases were completed, SWORPS produced an analytical report.

The needs assessment includes the results of Board member and customer surveys. Additionally, we have relied on the needs assessment and planning materials produced by provider organizations. These include:

1. Homelessness in Knoxville/Knox County 2004, prepared by Dr. Roger Nooe, University of Tennessee, Knoxville

2. Workforce Connections Board Minutes, January 2005

3. Salt and Light Guide Book, Second Edition, 2002

4. The Knox County Consolidated Plan, July 1, 2005 to June 30, 2010

5. Hunger in East Tennessee, a White Paper, Second Harvest Food Bank

6. City of Knoxville Consolidated Plan, Draft, July 1, 2005 to June 30, 2010

These and other materials used in the preparation of this plan are not attached, but they are available upon request from the Needs Assessment file maintained at CAC’s Central Office.

Social Indicator Data: Consistent with a national trend showing population growth in urban areas, the 2000 census indicated population growth in both the City of Knoxville and Knox County. The total Knox County population has grown by 13.8% to 382,032. The population in Knox County outside the city limits increased by 22% with most of the growth in West Knox County, both in the southwest and along the northern boundary. The City of Knoxville grew by 5.3% to a total of 173,890, reversing a decline during the previous decade.

2000 census data states that while the total population increased, the percent of the population in poverty decreased slightly from 14.1% to 12.6% (46,572 individuals). The Knox County poverty rate is lower than the statewide rate of 13.5% and about the same as the nationwide rate of 12.4%. However, Census Bureau’s figures released August 31, 2005 reflect an increase in the poverty rate coinciding with the 2001 recession. The number of Americans who fell into poverty rose to 37 million in 2004, up 1.1 million in 2003. Overall, the nation’s poverty rate rose to 12.7% in 2004, up from 12.5% in 2003. This marks the fourth straight increase in the government’s annual poverty measure, with the last decline in overall poverty occurring in 2000.

The Census Bureau reports that poverty in Tennessee increased from 12.7% to 15% when comparing the 2-year average of 1999-2000 to the 2-year average of 2003-2004. The number of Tennesseans in poverty during these periods rose from 710,000 to 879,000. Poverty has increased as a result of the 2001 recession, but also because income support programs like Unemployment Insurance and Temporary Assistance for Needy Families are helping fewer individuals.

According to 2000 Census Bureau figures, the percentage of children in Knox County in poverty decreased from 15.7% in 1990 to 12.9% in 2000. In Knox County, while 8.4% (8,440) families are below the poverty level, 28.8% (4,896) of families with a female head of household with no husband present live below the poverty level. 38.4% of these families include children under age 18, and 55% include children under age five. 25.9% of the poverty population in Knox County is composed of children less than 18 years of age. Moreover, figures released by the Census Bureau in August 2005 are not encouraging. Nationally, the percentage of children in poverty had risen to 17.8% by the end of 2004 when more than one in six of America’s children lived in poverty, and close to one-third of those in poverty were children. Many parts of the south, including Knox County, experience poverty rates higher than the rest of the nation.

An analysis of individual census tracts shows the significant impact of poverty on some portions of the Knoxville community. In the 19 inner city census tracts that make up the Empowerment Zone, poverty rates for all ages range from 30% to 67% compared to a Knox County rate of 12.6%. With one or two exceptions, poverty rates for all groups (under 18, over 65, and families) exceed the county rates by very wide margins. See charts 3a and 3b.

The racial profile of Knox County is 88.1% white, 8.6% black, 1.3% Asian, and 1.2% Hispanic. 32,987 Afro Americans comprise 8.6% of the Knox County population. While accounting for a relatively small percent of the total poverty population, poverty and poverty-related issues are significant for the Afro American community. Blacks make up 21.8% of the poverty population. This means 10,187 black persons, or 32.3%, are below the poverty level. See chart 3c.

According to the 2000 Census Bureau report, Knox County became more integrated in the 1990s. The black population of Knox County (city and county) grew by 11.4% to a total of 32,987 with 28,171 (85%) living within the city limits. Outside the city limits, the black population increased from 3,550 to 4,816. While the number of blacks living in the county outside the city limits increased by 36%, the actual percentage of blacks in the Knox County population (city and county) decreased from 8.8% in 1990 to 8.6% in 2000. This is explained by the fact that the total population (city and county) increased by almost 14% while the black population grew by 11.4%. Of interest is that area in the county where growth of the black population has been most notable, including Farragut, Karns, Ball Camp, and Powell. Whether the increase in the minority population in the county outside the city represents upward mobility will not be determined until the annual income figures are analyzed by race and census tract.

Census figures indicate the Hispanic population has more than doubled, growing from 2,067 in 1990 to 4,803 in 2000. Hispanics comprise 1.26% of the total county population. This rate might be higher if undocumented immigrants were included. For social service providers, the increase in the Hispanic population is significant because the system is not used to dealing with large numbers of people who do not speak English.

The percent of the population aged 65 and older remained about the same between 1990 (12.7%) and 2000 (12.6%). The 2000 Census identifies 48,415 individuals aged 65 and older. There was a significant decrease in the number and percentage of senior citizens below poverty, reflecting a national trend. In 1990, 14.9% of those over 65 were below poverty. In 2000, that rate had dropped to 9.7% (4,468 individuals). There was growth in the old/old (those over 75 and over 85 years of age), growth in the number of persons 75 years and older living alone, and an increase in persons with disability, mobility, and self-care limitations. On a regional basis, the percentage of the population being cared for in institutions is decreasing, even though the absolute number in those institutions is increasing. People prefer to age at home. If they do, social services are needed to support them. The availability and affordability of these services relates directly to one’s ability to live at home and function independently.

According to the 2000 Census, there are 157,872 households (families) in Knox County. 64% (100,726) are composed of more than one family member, 36% (57,146) represent non-family units where the household member lives alone. 31% (48,873) of the households include individuals less than 18 years of age, and 22% (34,497) are households with individuals 65 years and over. 9% of households (14,356) are composed of an individual over 65 years living alone. The average household size is 2.34 and the average family size is 2.92.

97% of the population lives in households. Just 3% live in group quarters, including both institutionalized and non-institutionalized persons. 88% of those living in households live in families composed of some combination of householder/spouse/children. 4% live in households with other relatives, and 5% live in households with non-relatives.

171,439 housing units are listed in Knox County. 7.9% are identified as vacant. Census information indicates 2/3 of housing units are owner occupied and 1/3 are renter occupied. The rental vacancy rate is 10%.

The unemployment rate for Knox County has been declining since January 2005, and remains well below the state and national averages. In September 2005, the Knox County unemployment rate was 3.6% compared to 4.9% for the State of Tennessee and 4.8% for the United States. The 2000 per capita income for Knox County ($28,281) was above the state average ($25,946), but below the national average ($29,469). However, an analysis of individual census tracts shows a very different picture. For example, 2000 census data shows the 19 inner city census tracts that comprise the Empowerment Zone had an average unemployment rate of 14% with individual census tract rates ranging from 5.5% to 43%. It is important to note the per capita incomes in the Empowerment Zone census tracts range from $6,952 to $14,712. See chart 3d.

The University of Tennessee Center for Business and Economic Research has used census data to study the relationship between education levels and earnings. The accompanying chart shows clearly that earnings increase with each increase in educational credentials. The only exception is at the PhD level. The relationship between education and unemployment was also studied. The attached chart shows that persons with lower formal education levels are much more likely to be unemployed. This analysis holds true when the educational levels, unemployment rates, and median income levels of the Empowerment Zone census tracts are compared to countywide rates. For example, in Knox County, 17% of persons over age 25 do not have a high school diploma or GED as compared to 34% for the Empowerment Zone. Median family income countywide is $49,182 compared to $20,668 in the Empowerment Zone. See charts 3e and 3f.

Telephone Survey: SWORPS conducted telephone surveys in the nine counties region. Responses were tabulated for the region as a whole and for each county. Knox County residents from all socio-economic groups were randomly sampled. The responses provide a snapshot of perceptions and beliefs held by Knox Countians. Four hundred thirty-one (431) surveys were completed for Knox County. The survey did not ask respondents if they had used local services or knew of persons who had used them. The survey assessed respondents’ perceptions of the availability of social services to household members, the degree of satisfaction with existing services, issues or problems encountered by household members in the past year, and real and perceived barriers that prevented household members from using existing social services.

84% of survey respondents reported living in neighborhoods described as “good” or “excellent.” 57% felt they had “opportunity to affect how things happen in your neighborhood.”

One question asked respondents to select the household problem they regard as most important using a select list of 23 issues. The 10 top issues selected are:

1. Not being able to pay for or get medical insurance

2. Not being able to get emergency help (police, ambulance, fire, etc.) when needed

3. Having a lot of anxiety, stress, or depression

4. Not being able to afford help with care for an elderly person or someone with a disability or serious illness

5. Not having enough money to pay for prescription medicines

6. Not being able to find work

7. Not having enough money to buy food

8. Children or teenagers experiencing behavior or emotional problems at home or at school

9. Not having enough money to pay for housing

10. Experiencing an alcohol and/or drug problem

Thirty-one percent of respondents reported seeking help for the issues they identified for their household, and 52% of the 31% reported difficulty in getting that help. The top 5 difficulties are:

1. Ineligible for the help

2. Lacked information on available services

3. Unable to afford

4. Had to wait too long to get the help

5. Couldn’t get a person at the agency to help

SWORPS conducted focus groups with community leaders and social service providers in Knox County. Five Most Critical Problems are identified as:

1. People living in or near poverty

2. Shortage of good-paying jobs & Unemployment among African-Americans

3. People unable to afford health care

4. Needs of the growing elderly population

5. Needs of the growing Latino and immigrant population

The 6 Major Service Gaps are identified as:

1. Affordable, quality child care

2. Drug and alcohol treatment

3. Mental health services

4. Transportation

5. Transitional & independent services for teens & Leaving foster care

6. Safe, affordable housing

CAC Board and Client Surveys: CAC Board members were surveyed. From a list of services, Board members were asked to select and rank the five services they felt were most important in meeting community needs. They were also asked to identify other needs that should be studied and considered for future planning. The results of the ranking are summarized in the following table. The Priority Ranking considers the combined number of times a service was ranked either first or second. The Overall Ranking considers the number of times a service was ranked in the top 5.

OVERVIEW OF CAC BOARD MEMBER SURVEY RESULTS

Priority Rank Selected as 1^st or 2^nd choice at least once	Description of Service		Overall Rank Selected as a top 5 choice at least once
1^st	Helping people become more self-sufficient through education by increasing literacy, getting a GED, obtaining job training or post secondary education		1^st
2^nd	Helping low-income families move out of poverty by providing comprehensive case management services		2^nd
3^rd	Helping people become more self-sufficient by getting and keeping a job		2^nd
4^th	Helping people in crisis avoid utility shut-off, eviction, or other emergencies		2^nd
5^thand 6^th	Helping people access needed services such as medical, mental health and other treatments, social services, grocery shopping, and other needed services through transportation	Helping elderly people to live independently in their homes and prevent the high costs of institutionalization*	*5^th

The other services listed for selection were also chosen a number of times, two of them tying for seventh place. Because the total number of surveys was small, the difference at this level is not significant. The other services listed for selection ranked as follows:

7. Helping low-income people meet their food needs by community gardening

and Helping the working poor people qualify for and get better jobs

8. Insuring access to emergency food pantries by providing staff support to Emergency Food Helpers

9. Providing financial education programs

Helping people become more self-sufficient through education by increasing literacy, getting a GED, obtaining job training or post secondary education was ranked first by the Board, moving up from second place in the previous survey. This reflects the Board’s understanding of the strong link between level of education and employment. Helping low-income families move out of poverty by providing comprehensive case management services was ranked second by the Board, moving down from first place in the previous survey. Case management helps clients make connections between programs, maximize opportunities to use available resources, and move out of poverty. The Board continues to identify these 2 services as critical.

Helping people become more self-sufficient by getting and keeping jobs moved from sixth place to third place this year, perhaps reflecting the current economic downturn. Helping people in crisis avoid utility shut-off or other emergencies held its fourth place rank from the previous survey, also reflecting the current economic downturn. Providing people access via transportation and keeping the elderly in their homes was ranked equally by the Board. The Board demonstrated consistency in both the Priority Ranking and the Overall Ranking.

When asked to identify other needs that should be studied and considered for future planning, the Board suggested emphasis on educating the community on what services are available and programs to encourage young people to be more independent, motivated to become role models, and participate in the community.

CAC clients were also surveyed. From a list of needs/problems, clients were asked to check those that applied to them or any member of the family. Clients were also asked to give their opinions about problems in the community. From a specific list, respondents were asked to rank the top five community problems. Each CSBG funded component was asked to distribute 20-25 surveys. One hundred and thirty-four of 155 client surveys were returned for a return rate of 87%. The 134 usable surveys are tabulated in the following table.

CLIENT SURVEY: INDIVIDUAL AND FAMILY LEVEL

Rank	Needs/Problems	Of 134, Number Selecting Problem	Of 134, Percent Selecting Problem
1	Can’t pay utility bill	95	71%
2	Transportation	70	52%
3	Money for food	61	46%
4	Health problem	58	43%
5	Money for rent/house payment & Finding a job	53	40%
6	House needs repair	44	33%
7	Care for elderly family member	22	16%
8	Day care for children	21	16%
9	Predatory lending	20	15%
10	After school care for children & Drug or alcohol problem	17	13%

Compared to the previous year’s survey results, transportation, money for food, and money for rent and house payments ranked higher. Can’t pay utility bill remains the number one problem.

Survey results of client’s rankings of the Needs/Problems in their communities are presented in the following table. Seventy-six of 135 surveys were usable.

CLIENT SURVEY: NEIGHBORHOOD & COMMUNITY LEVEL

Priority Ranking	Needs/Problems	Of 76, Number of Times Selected	% Who Rated Problem 1 or 2	% Of Times Selected as a Top Five Choice
1	Lack of affordable housing	44	22%	58%
2	Lack of good-paying jobs	38	29%	50%
3	Crime Unemployment	33	22% 17%	43% 43%
4	Inadequate transportation Inadequate health care	29	17% 12%	38% 38%
5	Drug abuse	22	13%	29%
6	Homelessness Lack of job training	20	½ % 11%	26% 26%
7	Mental illness	17	11%	22%
8	Lack of recreation programs Teen pregnancy Hunger	13	½ % 12% 10%	17% 17% 17%
9	Lack of programs for elderly	10	½ %	13%
10	Illiteracy	6	0	1%

The lack of affordable housing, the lack of good paying jobs, and unemployment hold top rankings in this client survey. Note that crime received a slightly higher priority rating than unemployment among those who selected it as their first or second priority.

Food Needs: Food insecurity is defined as “the state of being unable to obtain or denied access to a consistent supply of food.” Food insecurity describes the condition of those who are literally unsure where their next meal is coming from. In October 2005, the U.S. Department of Agriculture released a report “Household Food Security in the United States, 2004, an analysis of hunger and food insecurity completed by the Center on Hunger and Poverty at Brandeis University. More than 7 million people have joined the ranks of the hungry since 1999, and 38.2 million Americans live in households that suffer directly from hunger and food insecurity. This figure is up from 31 million Americans in 1999. Food insecurity increased by nearly a million households from 2003 to 2004 alone. The prevalence of food insecurity rose from 11.2% of households in 2003 to 11.9% of households in 2004, and the prevalence of food insecurity with hunger rose from 3.5% to 3.9% during this same time frame. Just over half of all food-insecure households participated in one or more federal food assistance programs during the month prior to the survey. About 20% of food-insecure households, or 3.5% of all U.S. households, obtained emergency food from a food pantry at some time during the year.

34% of Knox County school children were eligible for free or reduced meals in the 2003/2004 school term. In the 2004/2005 school term, the number increased to 38%. This 4% increase means 19,595 of 51,187 school aged children ate school lunches at either no cost or a reduced rate on average each day.

“Hunger in East Tennessee” is a White Paper publication of Second Harvest Food Bank of East Tennessee. This annual report provides general population statistics, opportunities for hunger elimination, and program results. The publication defines hunger as “a circumstance in which an individual unwillingly goes without food for an intermittent or extended period of time.” External forces that limit the individual’s resources or ability to obtain sufficient food can cause hunger. Hunger may result in detrimental physical, psychological, and social consequences. A strong emergency food system means people can get the food they need and use their limited funds for rent, utilities, and other critical family expenses.

Second Harvest reported 10.9% of Tennessee residents as food insecure in 2004, and projects an increase in that number for 2005. Figures are being collected for reporting in 2006. The 46,572 residents (12.6%) of Knox County’s population who live below the poverty level have sought emergency food assistance either on a short-term or long-term basis. In 2004, Second Harvest delivered more than 4 million meals through 350 food provider agencies to more than 120,000 children, adults, and senior adults in the 18 counties of East Tennessee, including Knox County.

Emergency Food Helpers, a coalition of churches and pantries in Knox County, provides people with emergency food. In 2003, 343,615 people benefited from food distributions. In 2004, this number increased by nearly 4.5% to 358,950. Welfare reform began in 1996. That year, Emergency Food Helpers logged 98,198 calls for emergency food. In 2004, 129,557 requests for emergency food were logged, an increase of more than 32%. These figures demonstrate the increase in hungry people and food insecure people in Knox County.

The cost of food is a significant issue for low-income families. In a 2004 survey, the most recent survey conducted on the cost of food in our area, 86% of gardeners in CAC’s Green Thumb program selected the cost of food as the most important factor in where they shopped, much more important than where the store was located (24%) or how they would get to it (11%). About 70% said they gardened because it saved them money on food. When asked what would help them most with food, 69% said cheaper food was most important.

Food stamp usage has increased in Knox County over the past 4 years, reversing a trend started by welfare reform and contradicting the census data that showed a decline in poverty from 1990 to 2000. From March 2001 to March 2003, food stamp usage increased by 31.3% to 15,208 households. In March 2005, 19,347 households received Food Stamps, an additional 27% increase. It seems reasonable to assume that economic downturns drive more families to seek food assistance from the government, as well as increasing their dependence on private charities.

Needs of Children and Families: According to the 2000 Census, 100,909 families reside in Knox County. Eight percent, or 8,440, of these families live in poverty. Three percent, or 3,108, of these families live in poverty and have children less than 5 years of age. Knox County’s under 5 population is 23,371 (6%), and the estimated number of low-income children under age 5 in poverty in Knox County is 2,945 (12.6% of the total number of children under age 5).

Head Start Centers serve children and parents from low-income families in Knoxville and Knox County. CAC’s Head Start Program processed approximately 1,400 applications for the 2005-2006 school year. Income information taken from these applications evidences the financial struggles these families face.

Annual Family Income	Percentage of Head Start Applicants
Less Than $10,000	62%
$10,000 to $20,000	29%
$20,000 +	9%

Once again, the strong relationship between educational attainment and annual income can be demonstrated. And, the table clearly shows the disproportionate level of poverty among the 1,400 Head Start applicants.

Educational Level Achieved	Percentage of Head Start Applicants
Less Than High School Diploma	33%
High School Diploma/GED	62%
More Than High School Diploma	5%

High school dropout rates for Knox County were 11.7% compared to 19.6% for Head Start target areas in the Empowerment Zone. This compares to 8% of the U.S. population in 2003. Elementary students in the target areas accounted for 16% of the reported serious discipline students, compared with 3.5% countywide.

Break out the statistics for Hispanic families applying to Head Start and the picture is even more troublesome.

Educational Level Achieved	Percentage of Hispanic Head Start Applicants
Less Than High School Diploma	65%
High School Diploma/GED	28%
More Than High School Diploma	1%
Unknown, Application Incomplete	6%

2000 Census data indicates a small but steady increase in the Hispanic population in Knox County. Head Start demographics indicate a more substantial increase from 3% to 6% to 9% over the last three years. Many Hispanic families are low-income and work at low-paying jobs in housekeeping, factories, food service, lawn care, and construction. Often benefits are not provided. Undocumented immigrants are unable to obtain higher paying jobs with benefits. The inability to communicate effectively in English, lack of transportation, ineligibility for services requiring birth certificates, driver’s licenses, or green cards pushes many Hispanics into the “neediest” or “vulnerable” categories.

Children whose parents’ educational attainment is less than the general population often experience lower literacy rates. School readiness suffers, as can exposure to print and the availability of books or reading time in the home. For some populations, English Language Learners classes are crucial.

Knoxville’s inner city continues to have the highest concentration of children and families in poverty. Public housing developments are primarily located in the inner city as well. Over the past few years, the number of available public housing apartments has been reduced due to renovation and modernization. When this happens, displaced families receive vouchers that allow them to relocate wherever landlords accept rental subsidy. Many families have moved to the western and northern section of Knoxville and Knox County, representing a demographic shift and an integration of low-income families into the larger community.

KIDS COUNT data reported by the Annie E. Casey Foundation compares statistics from Tennessee with those of the nation as a whole. The table shows Tennessee lagging behind the nation in all but one category.

	Year	Tennessee	United States
Low-Birthweight Babies	2002	9.2%	7.8%
Pre-Term Births	2002	14%	12%
Infant Mortality	2002	9.4%	7%
Immunized 2-Year Olds	2004	84%	84%
Overweight High School Students	2003	15.2%	11.1%

The data in the table above reflects the Tennessee population as a whole. Low-income families are likely to have fewer resources than the general population to help them achieve different outcomes. Low-income families with TennCare can access medical and dental services for their children and medical services for themselves. However, TennCare coverage for some is disappearing, and others on TennCare need help and encouragement to best access and effectively use the health care system. At least 50% of Head Start children have not had physical examinations prior to enrolling, and many children require immunizations before enrollment in Head Start can occur.

Other Needs Assessment Information:

Homelessness: Information in this section is taken from Homelessness in Knoxville/Knox County 2004, a study conducted by Dr. Roger Nooe, UT Professor of Social Work, and sponsored by the Knoxville Coalition for the Homeless. The study is based on surveys conducted among members of the homeless population. It was released in September 2004, and is the most current data available on the homeless in our area. Shelter registrations indicate 1,628 different individuals were homeless at least one night during February 2004. Estimates are an additional 300 individuals were homelessness and not in shelters during this same month. Homelessness among women and minorities increased between 2002 and 2004, and the percentage of homeless children remained fairly consistent. Approximately 50% of homeless adults have children under 18, and one-fifth reported having their children with them. Local and national data continue to indicate that homeless children are at risk for emotional and mental health issues, developmental delays, family violence, and a high incidence of substance abuse in the families. Sixty-one percent of homeless persons were homeless less than one year in 2004 as compared to 59% in 2002. Their circumstance can be described as situational or episodic homelessness.

Twenty-one percent of survey respondents identified themselves as veterans, a large portion from the Vietnam era. Chronic mental illness and deinstitutionalization continue to be major reasons for homelessness. Fifty-one percent of survey respondents had been treated for emotional problems, and 33% of respondents had been hospitalized for mental illness. A large number of these individuals have spent time in jails that are not equipped to offer mental health treatment. Substance abuse was frequently identified as a factor in homelessness, as was lack of work, and family relationship problems.

The majority of the area homeless is from East Tennessee or has come to the area to be near family or seek employment. Thirty-five percent of survey respondents said they had a job, and 63% of those jobs were in the skilled labor, unskilled labor, restaurant, and trucking fields. 79% reported having at least one job during the past year, and the indication is these jobs were unskilled and temporary, and may include shelter work programs, collecting cans, and spot labor.

The “most glaring findings” in the 2004 study are the increased number of homeless persons, the number of “couch or doubled up homeless,” the significant number who are mentally ill and/or substance abusing, and the spread of homeless locations, including camps, abandoned buildings, and under bridges. Reasons for these findings include shelter policies banning unruly persons and substance abusers, public housing’s “one strike” rule, and welfare reform, including changes in the eligibility for Social Security Disability. The closing of agencies such as Volunteers of America and Dri-Dock and the focusing of agency resources on individuals willing to make long-term commitments also contribute.

Layoffs: Since January 2005, 12 significant dislocations affected 948 individuals. Major dislocations included Associates Housing Finance affecting 232 employees, Metron North America affecting 228 employees, and Roadway Express affecting 124 employees. Other dislocations included Service Transport, Peegles Retail Distribution Center, and Blue Mountain Wall Covering. The severance packages for laid off workers varied widely. Company severance packages may supplement benefits through Unemployment Compensation for those eligible for these payments. Some displaced workers are eligible for career counseling, training, and educational services. However, all experience the personal and family disruption that comes from losing a job and income. Many first time users of the emergency services system are those who have lost jobs and income due to a layoff.

Knox County Department of Human Services: After welfare reform was instituted in 1996, the nation’s Department of Health and Human Services reported a decline in welfare caseloads across the country. Soon, however, a slowing of that trend emerged and in fact several states, including Tennessee, began to experience increases in caseloads. Experts give two main reasons for this increase. First, the recipients most likely to go to work had done so. The remaining recipients are “hard-to-move” cases. Second, welfare rolls increase during economic downturns.

In Knox County, Families First cases rose 31% from 3,907 to 5,127 from March 2003 through March 2004. Families First cases rose again from 3,887 to 3,907 (.5%) during a similar subsequent 12-month period. Households receiving food stamps also increased during March 2003 to March 2004 from 15,208 to 17,906 (17%).

In December 2004, Knox County reported 3,650 households enrolled in Families First. One year later in November 2005, the numbers dropped to 3,267 (-10.5%). This last figure may be misleading, however. Families First caseloads reached a low of 3,171 in July 2005, but rose each of the next 3 months. It might be expected that the increase in caseload will continue, at least throughout the colder months.

The need for Food Stamps has also increased. In October 2004, 18,783 households in Tennessee received Food Stamps. One year later in September 2005, 19,937 (42,700 individuals) households received food stamps, an increase of more than 6%. These fluctuations appear to reflect Tennessee’s Families First caseload size as well as economic upswings and downturns.

The Elderly: The increased growth in the numbers of our aging citizens is the most glaring demographic statistic associated with the aging population in Knox County. CAC’s Office on Aging hosted “Our Future Society: Make Your Voice Heard” at the John T. O’Connor Senior Center on May 12, 2005. Nancy Peace, Executive Director of the Tennessee Commission on Aging and Disability, provided the following projections. Knox County’s population 60 years of age and older is projected to grow by 63% over the next 15 years. The senior population 85 years of age and older grew by 38% between 1990 and 2000. The 85+ population is projected to grow by another 56% over the next 15 years. The aging services network must be prepared to face the increased need and demand for services, a challenge when appropriate, available, and affordable services are inadequate to meet the current needs.

Conclusion: The needs assessment information presented clearly supports the continuation of a CSBG plan based on all six ROMA goals (Results Oriented Management and Accountability) and NPI (National Performance Indicators). ROMA encompasses the following specific CSBG services:

1. Employment

2. Emergency Services

3. Linkages/Elderly Services

4. Linkages/Transportation

5. Nutrition

NPI encompasses all or parts of all services provided by CAC, regardless of funding source.

Description of Service Delivery System Targeted to Low-income Individuals and Families in Service Area

Neighborhood Centers located in east, south, and west Knoxville, and in north Knox County are the focal points for service delivery to low-income individuals and families. The Centers are strategically located in the four quadrants of Knox County to provide residents equal access to services, information, and referral. Their specific locations are:

Quadrant	Center Address
East	4019 Asheville Highway
North	7028 Maynardville Highway
South	522 Old Maryville Pike
West	2247 Western Avenue

The West Neighborhood Center is located in the L.T. Ross Building which also houses many other programs operated by CAC. These include the Knoxville-Knox County Office on Aging, a Head Start Center, Workforce Connections, Energy and Housing Services, AmeriCorps, Homeward Bound, the Office of Community Services, the L.T. Ross Learning Center, and Central Office administration. In addition to CAC services, the Building houses the Murphy Branch of the Knox County Library, UT Families First, and the State of Tennessee Food Stamps and Employment and Training office. CAC services are provided at other locations as well, including five Head Start Centers, the John T. O’Connor Senior Center, the Knox County Career Center, and the Daily Living Center. See CAC Program Directory for a complete listing of services targeted to low-income people.

The delivery process for all CSBG services is similar. Applicants complete an application form that includes eligibility determination information, basic information about the individual and/or the family, and the types of services needed. Community Services Specialists have primary responsibility for intake, but other designated individuals may also take applications. Services are provided to any eligible individual or family who needs and desires to make use of the available service.

If a particular caseload is full, individuals may be placed on a waiting list, referred to another CAC component, or referred to another agency able to meet the need. Individuals and families may be referred by other agencies or programs to CAC or may apply directly. For some services, a plan of service must be developed. For others, such as the garden program, provision of the seeds and plants constitutes the completion of service. The plan of service includes problem identification and the steps or actions to be taken to resolve the problem. A client release of information statement is secured so that information can be shared with other CAC components and outside agencies. When services are complete, the case is closed and the client is so notified. The differences in the ways each service is offered are described in detail in the admissions policies for each service.

Linkages Developed to Fill Service Gaps

Linkages established to meet gaps in service are described more fully in the contract narratives for each CSBG service to be provided. The linkages are summarized as follows:

● Linkages will continue between Workforce Connections and the Career Center to help meet the need for jobs that pay a living wage and offer benefits.

● CAC will continue to support the work of the Food Policy Council and Emergency Food Helpers with regard to improvements in the food security system and the capacity to meet the need for emergency food.

● CAC will continue to link with other area providers of homeless services through participation and leadership in the Homeless Coalition. Linkages with the city of Knoxville’s Department of Community Development and Knox County’s Department of Community Development provide the basis for working on issues related to homelessness, homeless prevention, and affordable housing.

● Linkages with employers and other transportation providers will continue to be a major focus of CAC’s Job Access program to concentrate on connecting people and jobs.

● Linkages with utility companies, faith based organizations, and Project Help will continue with regard to improvements in the system for handling shut-offs and other utility-related issues.

● CAC holds a position of leadership within the social services network. This makes it easier to consult on individual cases and bring groups together to work on various issues and problems. Planning activities will continue to address specific service gaps and the need to bring agencies and organizations together to set priorities and take steps to close identified gaps whenever possible.

CAC provides services to children and families and the senior population through funding sources other than CSBG. Staff working in these programs have well established linkages in the community to insure client needs are met whenever possible. Two examples are:

● Early Head Start and Head Start link with the Knox County Health Department and the Knox County School System to prepare children to enter the public school system as successful learners. Parents benefit from linkages with adult education programs and referrals for job search and employment.

● A diverse elderly population results in Office on Aging links with athletic groups, travel clubs, in-home service providers, hospitals and nursing homes, and many other agencies and organizations.

Description of How Funding Under CSBG Act Will Be Coordinated With Other Public and Private Resources

CAC uses Knoxville and Knox County funds to supplement CSBG program support costs and to coordinate services made available through other public and private resources. Programs for low-income individuals and families in the service area are reasonably well coordinated. An example of coordination took place several years ago when Knox County decided to consolidate services and “do more with less.” The responsibilities of Knox County’s General Assistance Office were transferred to CAC, allowing utility and other emergency services to be integrated with other similar services. Another example is the connection between CSBG and the Workforce Connections Board. One of CAC’s Neighborhood Service Center managers represents CSBG as a Career Center partner on the Board. Hospitals support CAC services, including the Office on Aging newsletter, Elder News and Views. Public and private directory sponsors pay the entire cost of printing the Senior Service Directory, commonly called the little yellow book.

Summary of Goals and Outcome Objective Measures:

CACs across the country complete National Performance Indicator (NPI) forms detailing the outcomes of their efforts in a given fiscal year. These forms are submitted to Nashville where they are compiled into state totals. Each state then forwards their totals to the CAC Offices in Washington, D.C. where national totals are compiled. All CACs use the same reporting document to insure like and reasonably standardized outcomes are reported. Knoxville/Knox County CAC’s outcomes for the fiscal year ending June 30, 2004 follow.

Goal 1: Low-Income People Become More Self-Sufficient.

1.1 Employment

● 934 unemployed participants obtained a job

● 184 employed participants obtained an increase in employment income

● 209 participants achieved “living wage” employment and benefits

1.2 Employment Supports

● 96 participants obtained pre-employment skills/competencies required for employment

● 125 completed ABE/GED

● 130 completed post-secondary education program and obtained certificate or diploma

● 542 obtained care for a child or other dependent

● 2,090 obtained access to reliable transportation or obtained a driver’s license

● 459 participants obtained health care services for themselves or a family member

● 56 participants obtained safe and affordable housing

● 529 participants obtained food assistance

Goal 2: The Conditions In Which Low-Income People Live Are Improved

2.1 Community Improvement And Revitalization

● 544 safe, affordable housing units were preserved or improved

● 500 opportunities for accessible, affordable health care services/facilities were created or maintained

● 100 accessible, affordable childcare or child development placement slots were created or maintained

● 482 accessible educational and training placement opportunities were preserved or increased

2.2 Quality of Life and Assets

● 5,000 increase in the availability or preservation of community facilities, allowing the Mobile Meals Kitchen to serve meals to 5,000 seniors

● 500 after school snacks to low-income children

● 6,702 referrals or informational contacts

● 4 educational and informational activities informed public about problems and solutions associated with poverty

Goal 3: Low-Income People Own A Stake In Their Community

3.1 Civic Investment

● 190,601 hours volunteered to CAC

3.2 Community Empowerment via maximum feasible participation

● 832 low-income people engaged in non-governance community activities

● 53 low-income people participated in formal decision-making and policy-setting activities

Goal 4: Partnerships Among Supporters And Providers Of Services To Low-Income People Are Achieved

4.1 Expanding Opportunities Through Community-Wide Partnerships

● 207 organizations partnered with CAC to promote family and community outcomes

Goal 5: Agencies Increase Their Capacity To Achieve Results

5.1 Broadening The Resource Base

● more than $29,648,517 were mobilized in FY 2004 for community action in Knoxville and Knox County. CSBG monies account for just 2.5% of dollars mobilized

Goal 6: Low-Income People, Especially Vulnerable Populations, Achieve Their Potential By Strengthening Family And Other Supportive Environments

6.1 Independent Living

● 12,764 senior citizens maintained an independent living situation

● 280 individuals with disabilities maintained an independent living situation

6.2 Emergency Assistance

● 7,687 households received emergency assistance payments to vendors

● 2,515 households received help with food

● 1,395 households received help with transportation

● 53 households received help with temporary shelter

● 161 households received help with protection from violence

● 13 households received legal assistance

6.3 Child And Family Development

● 973 infants and children obtained age-appropriate immunizations, medical care, and/or dental care

● 497 infants and children received adequate nutrition

● 1,063 children participated in pre-school activities

● 233 children who participated in pre-school activities were developmentally ready to enter kindergarten or first grade

● 205 parents and other adults improved their family functioning skills

CAC staff is in the process of completing the NPI forms for the fiscal year ended June 30, 2005. The data will be forwarded to the state office in early 2006. Staff will develop performance targets, or service goals for 2006. The targets provide an estimate of the outcomes CAC expects to achieve. Setting performance targets gives staff and participants goals to strive for and provides management and the CAC Board a tool for evaluation of progress and success.