Since 2002, More Tribes Have Used Program Flexibilities to Tailor Services and Cope with Changing Economic Conditions

		More Tribes Administer Their Own TANF Programs and Serve Native Families Outside of Their Tribes

The number of tribal TANF programs has increased from 36 in 2002 to 64  in 2010 (see fig. 3). We  also found that some tribes have increased their rates over time. For  example, more than half of the 36 tribes that have been administering a  TANF program since 2002 have raised their work participation rate  goals over time. Furthermore, more than half of these  22 respondents reported using Emergency Contingency Fund grant  funding to issue more cash grants or to fill TANF budget gaps caused by  the recession. Other tribes  have had to cut back on supportive services so that they could provide  more TANF families with basic cash assistance. Tribal TANF Programs Face Various Administrative and Other Challenges, and Many Partner with Other Entities to Address Them

		Tribes Reported Challenges with Initial Program Implementation, Staffing, Data Systems, and Overcoming Barriers to Participants’ Self- Sufficiency

The majority of tribal TANF programs that responded to our survey  reported that they have faced administrative challenges related to initial  program implementation, staff development and retention, and  development of adequate data systems (see fig. In addition, all 11  tribes we visited talked about other challenges related to overcoming the  various barriers to self-sufficiency that their TANF participants face, such  as a lack of transportation and limited employment opportunities. Many tribes face challenges in  finding, developing, and retaining their TANF staff. A lack of education among participants also affects  their ability to secure employment. For example, to  address challenges related to developing adequate data systems, we  learned that the majority of tribes use data systems and receive training  on these systems from consultants, according to HHS. HHS Oversight of and Guidance for Tribal TANF Programs Lacks Consistency and Timeliness

		HHS Uses Tribal TANF Single Audit Reports to Target Training and Technical Assistance, but Fragmented Systems Track and Monitor These Reports

According to HHS officials, the single audit is the primary oversight  mechanism for tribal TANF programs, and single audit findings are used  to target technical assistance to tribes. Due to the delays in reviewing the summaries and  the fragmented systems for reporting and tracking single audit findings,  HHS tribal TANF officials may not consistently be aware of all the single  audit findings related to tribal TANF programs, or be in a position to  promptly identify and address recurring problems and mitigate risk. HHS Collects Tribal TANF Data, but Does Not Consistently Update and Review It in a Timely Manner

In addition to HHS officials’ use of the single audit as the primary  oversight mechanism for tribal TANF programs, quarterly data reports  used to calculate work participation rates and financial reports, as well as  other program reporting requirements, also help HHS oversee program  performance and ensure program integrity (see table 2). As a result, they did not have an opportunity to include in  the reports what they learned in the training. For example, one tribe responding to our survey  noted that their regional office contact does not always provide direct  answers to tribal leaders, which can lead to misinterpretation, while  another tribe we visited noted that different HHS regional offices had  different interpretations of what types of activities count as cultural  activities. Regional offices do not always receive clear and consistent guidance  from HHS headquarters on new policies, either. Improve processes for maintaining and monitoring tribal TANF data— such as work participation rate, caseload, and financial data—that can  be shared with tribes in a timely manner. Key contributors to this report are listed in  appendix V.

Appendix I: Objectives, Scope, and Methodology

To obtain information on how tribal Temporary Assistance for Needy  Families (TANF) programs have changed since 2002 (when we last  reviewed the program), the challenges tribes face in administering their  own programs and what tribes have done to address them, and federal  agencies’ guidance and oversight of tribal TANF programs, we analyzed  federal TANF data, documents and tribal TANF single audit data  collection reports for selected years; surveyed all tribal TANF  administrators; conducted site visits at 11 tribal TANF programs in four  states, and interviewed federal officials. GAO-02-768.
Why GAO Did This Study

The Personal Responsibility and Work Opportunity Reconciliation Act of 1996 (PRWORA) gives American Indian tribes the option to administer their own Temporary Assistance for Needy Families (TANF) block grant programs. GAO first reported on the use of this flexibility by tribes in 2002 (GAO-02-768), and given the upcoming expected reauthorization of TANF, GAO was asked to examine (1) how tribal TANF programs have changed since 2002, especially in light of changing economic conditions; (2) the challenges tribes face in administering their own TANF programs and what tribes have done to address them; and (3) the extent to which the U.S. Department of Health and Human Services (HHS) has provided guidance and oversight to promote the integrity and effectiveness of tribal TANF programs. GAO analyzed federal TANF data; interviewed federal officials; surveyed all tribal TANF administrators; and conducted site visits at 11 tribal TANF programs in four states.

What GAO Found

Since GAO first reported on tribal TANF programs in 2002, the number of programs has increased--from 36 in 2002 to 64 in 2010. In addition, more tribes use program flexibilities to both tailor services to meet the needs of their TANF families and cope with changing economic conditions. GAO also found that some tribes have increased their work participation rate goals over time. For example, more than half of the 36 tribes that have been administering a TANF program since 2002 have raised these goals over time. Many tribes also allow a wide range of activities families can use to meet work participation rates, such as cultural activities or commuting time. Tribes also reported in GAO's survey that changing economic conditions have adversely affected their caseloads, funding, and services provided. For example, some tribes reported that since the beginning of the economic recession in 2007, they have larger average monthly caseloads, use other federal funding to fill budget gaps, and cut back supportive services to provide more cash grants. According to GAO's survey results, tribal TANF programs face challenges with initial program implementation, staff development and retention, and the development of adequate data systems. Moreover, all 11 tribes GAO visited talked about the various barriers to self-sufficiency facing their TANF participants, such as a lack of transportation and limited employment opportunities. To address these challenges, many tribes reach out to HHS regional office staff, other tribal and federal programs, and private consultants. For example, to address challenges related to developing adequate data systems, GAO learned that the majority of tribes use consultants to develop their systems and provide training. In addition, to enhance employment opportunities, some tribes have placed participants at their Head Start offices, while another tribe has partnered with its modular housing plant. HHS provides oversight and guidance for tribal TANF programs, but does not always do so in a timely or consistent manner. HHS officials told GAO that they use tribal TANF single audit report findings to target training and technical assistance to tribes. However, the systems that HHS uses to track these reports are fragmented, and as a result, tribal TANF officials may not consistently be aware of all the single audit findings related to tribal TANF programs, or be in a position to promptly identify and address recurring problems and mitigate risk. Other oversight tools, such as quarterly data reports used to calculate work participation rates, are not consistently updated by HHS in a timely manner, which, according to GAO's survey, is a challenge to tribes' administration of their TANF programs. HHS headquarters and regional offices provide guidance such as basic policy manuals, training at yearly conferences, and one-on-one assistance over the phone. However, some tribes expressed difficulty in finding and receiving clear, consistent, and timely guidance from HHS, which hinders their ability to successfully manage tribal TANF programs and finances.

What GAO Recommends

GAO recommends that HHS review its process for tracking related single audit reports, improve processes for maintaining tribal TANF data that can be shared in a timely manner, and provide timely, accessible and consistent guidance that is clearly communicated to its tribal TANF programs. HHS commented it will be mindful of these recommendations as it examines ways to improve its efforts.