Background
Devolution brings new roles and
responsibilities at all levels of government. It
imposes new responsibilities on Temporary
Assistance for Needy Families (TANF) recipients
and affords state and local agencies broad
flexibility in designing and delivering welfare
and workforce services. It offers considerable
opportunities for community-based organizations
and for nonprofit and for-profit service
providers. Consistent policy and service
information, better training, improved
communication, and new ways of educating and
serving low-income families are
critical.
As the number of
organizations and individuals involved in policymaking,
program design, and program implementation increases,
so does the need to communicate policies and procedures
clearly and effectively. As recipients enter the
workforce, they need up-to-date information on child
care, transportation, and job training As well as ways
to update eligibility
information.
Training is critical to making
systems changes and ensuring quality services.
The large number of individuals and organizations
involved in training often makes it difficult to
address training needs in the usual classroom or
on-the-job setting. Disabilities or family
responsibilities may make it difficult for new
employees to travel to training sites. In
addition, travel costs and extended periods away
from the office may pose special barriers for
community-based organizations and nonprofit
service providers.
Although printed materials have
communicated policies, procedures, and
information to policymakers and low-income
families well in the past, new technology can
relay these materials more effectively and
efficiently. Satellite broadcasting,
videoconferencing, personal computers, and the
Internet offer new opportunities to provide
high-quality training and alternative service
delivery approaches at a reasonable
cost.
There
are multiple uses of communications technology
and a growing number of users who can benefit
from such technology. Consequently, the Welfare
Information Network (WIN) is devoting this Issue
Note to a discussion of the potential uses of
technology-based communications and
computer-based training as vehicles for serving
communities, agencies, service providers,
recipients, and employers and educating them on
the impacts and opportunities encompassed in
welfare and workforce reform.
Policy
Issues
What are the various types of
technology-based conferencing and communication
techniques? There are multiple uses of technology for
conferencing and training. For purposes of this note,
the term "technology-based conferencing" incorporates
multiple conferencing technologies, including satellite
broadcasting, videoconferences, audioconferences,
desktop conferencing, CD-ROMs, and
videotapes.
For the most part, technology
conferencing is done through video or audio mechanisms
and is used for meetings and
training.
Audioconferencing
often involves several individuals calling into one
phone line so that a meeting can occur. In some cases,
all speakers are given the chance to speak. In other
cases, any individual may be on the call, but there are
restrictions on who can speak. For example,
audioconferences sponsored by the Center for Law and
Social Policy have panels of experts make presentations
on selected welfare related issues. Conference calls
and audioconferences can play a key role in minimizing
travel and maximizing information sharing. Small, two-
to four-person conference calls can often be handled
using regular office telephones. Calls with a larger
number of participants usually require a "bridge" or
the use of commercial conference-call services that are
provided by most telecommunications
companies.
There
are a wide variety of videoconferencing
technologies. The type of technology used for
conferencing varies depending on the number of
people involved, the environment of the
participants, the degree of interactivity sought,
and the nature of the information being
exchanged. Technology-based conferencing can be
done one to one, broadcasting from one site to
multiple sites, or by connecting a number of
sites so they can interact with one
another.
Advancements in technology have
provided a broad range of mechanisms to carry out
conferencing and training. These mechanisms
include using video and picture-phone conference
calls, communicating from one desktop computer to
another desktop, using computers as transmitters
to capture and transmit video and audio on
monitors and televisions screens, and using
satellite downlinks for larger
presentations.
Videoconferencing can
take place at individual workstations, using desktop
personal computers (PCs) and video data. PC-based
conferencing can also support group conference systems
that will capture and transmit video and audio from
meeting or conference room settings. Group conferencing
often uses more complex camera equipment and larger
monitors. Connections can be obtained through Internet
providers or leased telephone lines. Personal computers
can also be useful for training individuals through the
use of CD-ROMs. Using PCs for training can often be
more cost-effective than using videoconferencing for
training.
Another low-cost
technology for communicating with individual users or
small groups of users is the use of picture phones.
This technology enables a visual context to be
integrated with what individuals hear on the
phone.
In
addition to serving as a conduit for
videoconferencing, the Internet can be used to
develop learning sites. A curriculum can be
offered via the Internet, enabling the
information to be accessed at the convenience of
the user and minimizing travel time and other
costs associated with attending
classes.
Satellite broadcasting, with or
without interactive audio, is probably the most common
way of communicating with a large number of remote
sites. Satellite broadcasting requires access to uplink
and downlink facilities to send and receive
programming. Although the availability of more
sophisticated technology is growing rapidly,
constraints such as Internet access, available
bandwidth, and access to satellite downlinks may make
it impossible for some users to take advantage of some
of the current technologies. As a result, experts
suggest that using multiple approaches offers the most
promise to reach larger
audiences.What is the available infrastructure
for technology-based conferencing and communications
and what are the opportunities for expanding that
infrastructure and making it more readily
available?As
discussed above, different tools can be used for
technology-based conferencing. In deciding what tools
to use, an early step should be to inventory the
technology-based communication resources that are
available in the communities to be served. In most
cases, the basic communications infrastructure is
provided by private companies through telephone, cable,
and satellite links. Users typically secure access to
this infrastructure by purchasing time. In some states,
the state has invested in a fiber-optic network that is
available to public agencies for technology-based
conferencing. In other states, the state has entered
into a partnership with private providers to develop
the backbone system. In addition to the communications
infrastructure, users of technology-based conferencing
need equipment to generate and receive communications.
For audioconferencing, this may be as simple as a
telephone set. For videoconferencing, more complex and
expensive equipment is required. Satellite
videoconferencing requires uplink and downlink
capacity. Internet-based videoconferencing requires
access to computers systems that have video cameras and
cards. For individual users, the necessary technology
is increasingly available as an option on personal
computers.
The
cost of leased time and equipment can be quite
large. As a result, users often seek to partner
with others to make the maximum use of current
investments. In many cases, this involves the use
of equipment at separate facilities such as
libraries and colleges. Other partners could
include businesses that use high-end equipment on
a regular basis; public broadcasting systems; and
nonprofit organizations, such as the churches
affiliated with the Howard University School of
Divinity, that have begun to invest in
communications technology. In addition, many
government agencies at the federal, state, and
local levels have invested in technology and may
be willing to make time and services available at
a reasonable cost.
As organizations and agencies become
more reliant on the use of technology-based
communication, they will want to continue to look for
potential partners to help finance needed capital
investment and broaden points of access to
videoconferencing. Human service and workforce agencies
should consider playing an active role in such
cooperative efforts and seek to spearhead such
efforts.What are the training,
communications, and service delivery needs and
priorities and how can technology-based conferencing
and communications help meet those
needs? Welfare and workforce systems are
undergoing rapid change. These changes are reflected in
new policies and new program designs and operating
procedures. Policymakers and managers need up-to-date
information on those changes as well as access to
financial and performance data. Service providers and
agency and organization staff also need access to
timely training, particularly as states and localities
seek to change programs and services to respond to
emerging concerns such as job retention and advancement
and the need to tailor programs to hard-to-serve
recipients. Moreover, communication and training are
critical to effect culture change both within
organizations and as it relates to the expectations of
customers and service recipients. Service contractors
and communities need access to training and specialized
support services. As more and more recipients are
working, they need more timely ways to communicate
their needs and changes in circumstances and to access
information on jobs.
Off-site training is
often difficult for workers and costly for employers.
On-site training can be less expensive. In addition,
training on site makes it possible to combine classroom
training with on-the-job training so new employees can
contribute to the work of the organization more
quickly.
Each of these needs
can be addressed, at least in part, through the use of
technology-based communications and conferencing. In
many cases, the same technology can be used to address
multiple needs. In other cases, the solutions may
require different approaches. For example, solutions
aimed at providing services to individual clients will
require more widely dispersed access points than will
training for staff. The solutions may also require
sites that are accessible after normal business hours.
Agencies may want to concentrate first on the needs
with related
requirements. Which technology-based conferencing
and communications tools are likely to be most
cost-effective in meeting identified
needs?In many
cases, the selection of conferencing and communications
tools is likely to be driven by the nature of the
audience to be reached. Although government agencies
may be able to justify an investment in more costly
production facilities and uplink and downlink capacity
because of the large number of individuals served and
the intensity of use, nonprofit and community-based
agencies may not see sufficient use to justify such an
expenditure. As noted above, bandwidth is an important
part of the costs of technology-based conferencing and
communication. Lower-speed connections to the Internet
and the use of telephone-based videoconferencing can
significantly reduce the costs for the smaller,
less-frequent user. In assessing costs and benefits, it
is important to consider the costs of travel and the
staff time involved in travel. It also is important to
consider the costs of expert trainers and the benefits
of rapid rollout of training programs. In many cases,
it may be possible to initiate programs and services
using existing or borrowed technology and to make
future investment decisions based on utilization and
effectiveness.What
production and facilitation capacities are needed to
ensure that technology-based conferencing and
communication are effective? The type of production and
facilitation capacities required will vary based on the
nature of the event and the type of conferencing used.
The impact of satellite broadcasting is generally
related to the quality of the production. Most experts
agree that satellite broadcasting and other
videoconferencing mechanisms require a variety of
presentation techniques that go beyond presentations by
panels of speakers. Increasingly, organizations are
using more sophisticated video tools such as animation.
Many organizations contract with commercial production
companies for studios but also depend on them to help
develop desirable presentations. Other organizations
use public television facilities or have invested in
their own filming studios and hired staff to manage the
production process. A similar investment in production
quality can enhance the impact of Internet training
resources and CD-ROMs and other video
programming.
Although formal
production and facilitation capacity may be less
important to smaller meetings or conferencing
situations, the quality of audio and video connections
is critical. In addition, the equipment will have a
significant impact on the success of the event.
Sensitive microphones, sound-tracking cameras, and
equipment that enables a moderator to identify and
screen input from remote locations can all contribute
to a more effective event. Regardless of the type of
technology-based conferencing used, it is recommended
that participants receive handouts prior to any session
to help them understand the information presenters are
presenting.
Communication techniques such
as CD-ROMs and videos should be accompanied by
written instructions on how to use the equipment
and information on what other equipment may be
required to use the CD-ROMs or videos. In
addition, because usually there is no facilitator
or instructor on hand when using a CD-ROM or
video, having a phone number or e-mail address
where users can contact a technical staff member
for help.
The proper placement
of people and monitors and screens is important. Other
very basic components of a technology conference
include having the proper lighting, providing handouts
to participants, making sure there is no background
noise, and having a room that is conducive to the
audience or individual(s) participating in the
conference. A facilitator can play a key role in
ensuring the event runs smoothly. Some of the key jobs
of the facilitator are keeping the room quiet, ensuring
that one person speaks at a time, knowing what to do if
the equipment is faulty, providing handouts to the
participants, and keeping the audience engaged and
alert by generating conversation during slower points
or urging refreshment breaks.
What are some issues to
address when purchasing packaged training materials or
other resources that will enhance the effectiveness of
technology-based communication? With the expansion in the use of
video technology for training and providing services,
new vendors and vendor software packages are constantly
emerging. Information from vendors can often be
overwhelming and extensive. Before determining a vendor
or materials, agencies may want to consider embarking
on an initial learning process. The Internet is a good
place to learn about packages and what services various
packages can provide. There are multiple electronic
discussion lists that include users of
videoconferencing technology. These lists can answer
questions about vendors and services that could meet
agency needs. Learning from the experiences of
colleagues can also be very valuable. Prior to
determining packages for carrying out technology-based
conferencing, organizations should look at their
existing internal technology and assess how that
technology could be used with new standards and
emerging technologies. Often it is not necessary to
build an entirely new infrastructure. In addition, the
experiences of colleagues can assist in making
decisions on who can provide the services the agency
needs and what kinds of videoconferencing techniques
are best for the agency and its
constituents.
Research
Findings
Available research on the use of
electronic-based communication is generally related to
the technology type or presentation format. The
research falls into four basic categories. First, with
the growth of distance learning, there is some research
on the use of video and computer technology that
addresses the types of learning that are most conducive
to electronic communication and the most effective ways
to structure content and present materials.
Universities and the American Association of Community
Colleges are good resources to identify the types of
classes and training conducive to distance learning.
For more information on distance learning within
education and training environments, visit the web
sites of the American
Association of Community
Colleges at and
the United States
Distance Learning
Association.
Second, as noted
above, understanding the range of technologies and how
they can be used is critical in making a decision to
use technology-based conferencing. There is a growing
body of work that evaluates the effectiveness of
various types of technology and which types of
technology can best meet the needs of individual
organizations. The
Videoconferencing Testbed at Purdue
University’s CadLab provides
information on videoconferencing packages. Its
Videoconferencing Database is searchable and can help
organizations determine the features of
videoconferencing that best meet their
needs.
Third,
considerable attention is devoted to evaluating
the costs and benefits of using technology-based
communication and conferencing. These costs and
benefits are almost always related to the
specific applications being considered and the
circumstances of the organizations involved. As a
result, organizations will want to conduct their
own needs assessment and financial analysis
before making investment
decisions.
Finally, many agencies and organizations have
used surveys to evaluate the effectiveness of specific
programs and applications as they are being developed.
An approach such as surveys generally includes
providing feedback or evaluation forms directed to
conference or event participants. The input they
provide can help in evaluating the technology used and
the structure of the programming for future events. The
American Public Human Services Association (APHSA) has
used such feedback from its recent satellite downlink
presentation. For more information on APHSA’s survey
results, contact Gary
Cyphers at
202/682-0100
202/682-0100 .
The following
examples help illustrate the variety of applications
and technologies appropriate for technology-based
conferencing and
communication.
Innovative
Practices
Social Security
Administration.The
Social Security Administration (SSA) makes extensive
use of technology-based conferencing and communication
to provide training to 65,000 federal employees and
12,000 state employees. The driving force behind
increased technology-based conferencing was to improve
timeliness, allow for more efficient training, and
improve quality. SSA uses two-way audio, one-way video,
and geographically dispersed downlinks among other
technologies. Video programming is provided by
satellite to more than 772 downlink sites. SSA intends
to increase its downlink capabilities to 1,500. SSA has
five studios and uses commercial-quality production
tools such as chromo key for programming development.
It also uses production professionals to work with
presenters to ensure high-quality presentations.
Productions are often videotaped to make resources
available to those not able to participate in the
initial presentation. Many training programs use
two-way audio to enable participation and feedback from
the employees being trained. The effective use of this
two-way communication capacity is enhanced by the use
of on-site facilitators and electronic equipment that
enables presenters to manage the flow of questions. SSA
believes strongly that high-quality programming and
consistent quality control are essential to the
long-term success of videoconferencing. Although SSA
has invested heavily in satellite-based
videoconferencing, it also is exploring other
approaches, such as the use of an intranet to provide
training and other resources to individual workers on
their own personal computers. Some of SSA’s success in
using technology is attributed to listening to users’
comments on what would meet their needs, enforcing
standards, and marketing the technology among staff.
For information, contact Phillip
Dulaney, deputy director,
Office of Training, Social Security Administration, or
410/966-8193 410/966-8193
.New York
StateState. In New York,
state human service programs are administered through
58 local departments of social services (DSS). The
state makes heavy use of technology-based conferencing
and communication to provide training to more than
15,000 local employees. New York has made extensive use
of satellite-based video presentations, combined with
two-way audio links. Currently, the state has 250 fixed
installations in local DSS offices and youth and day
care facilities. As in the case of the Social Security
Administration, New York has focused on the development
of high-quality productions that will capture and hold
viewers’ attention. New York also has computer-based
training programs that enable individual offices and
workers to schedule training on an as-needed basis. In
addition, the state uses agency intranet connections to
provide on-line training and uses its web site to make
handouts and printed materials available to support
videoconferencing. Most local offices have access to
downlinks, and the state trains facilitators to assist
staff in making the most effective use of video
presentations. For more information,
contact
Peter
Miraglia.
The National Conference of State
Legislatures. The
National Conference of State Legislatures (NCSL) uses
videoconferencing to facilitate communication between
its Denver, Colorado, headquarters and its Washington,
D.C., office. Conference rooms at both offices have
been equipped with videoconferencing equipment, and
this capacity is used regularly for joint meetings of
the two staffs. The system also is used for special
activities, such as budget preparation and conference
planning, and to facilitate planning and communication
between project staffs located in both cities. For more
information, contact Douglas
Sacarto.
Office of Child
Support Enforcement. The federal Office of Child
Support Enforcement (OCSE) uses videoconferencing
for biweekly meetings between the central office
and its ten regions. These calls are used for
management purposes and to share information on
emerging issues and programs. OCSE also uses
videoconferencing to facilitate communications
among the eight state child support agencies with
the largest support collections. In addition, the
system has been used for smaller conferencing and
one-on-one discussion to improve communications
among staff in remote locations. For more
information, contact Miles
Schlank.National
Association of Counties.The National Association of
Counties (NACo) is using videoconferencing via
satellite downlinks as a means to provide
policy-related information and specialized
training to local officials. Like most other
organizations using videoconferencing, NACo
provides printed materials to supplement the
video presentations. It also uses facilitators to
help participants make the best use of the
conference and to provide feedback to the
presenters during question-and-answer periods.
NACo emphasizes the importance of high-quality
productions that take the best possible advantage
of the video media and selects topics that are
perceived as urgent by likely viewers. NACo
contracts for technical support and uses
commercial production facilities. For more
information, contact Lois
Kampinksy at
202/942-4267 202/942-4267
.U. S.
Department of Health and Human Services,
Administration for Children and
Families.
The Administration for Children and Families
(ACF) has used videoconferences and
audioconferences to communicate policy decisions,
program guidance, "Dear Colleague" letters, and
information on conferences, workload sharing, and
regional and central office collaborative
activities. The agency has been able to use
technology to reach a large group of individuals,
including staff in the ACF central and regional
offices and in other HHS agencies, such as ASPE,
the Health Care Financing Administration, and
SAMHSA; state TANF staff; and staff in other
federal agencies, such as the Department of
Labor, Department of Transportation, Small
Business Administration, Department of Housing
and Urban Development, and Department of
Education. Some of ACF’s undertakings have
included monthly audioconference calls for its
Family Independence Forums, biweekly
audioconference calls of its Welfare Reform
Strategy Groups, and quarterly satellite-based
videoconference calls on welfare. ACF is looking
into future LAN-based web presentations in real
time. Companies involved in this type of
technology are Optibase, Starlight/Starlive
Network, and Real Audio-Video. For more
information on ACF technology efforts,
contactPaul
Maiers.American Public Human Services
Association.APHSA is expanding its use of
technology-based conferencing for state and local
training, technical assistance, and workshops.
Although APHSA’s use of videoconferencing is
fairly new, the association has found that this
technology offers a viable, effective, and
efficient vehicle for reaching people and
requires planning, preparation, and coordination.
Getting live, interactivity from the sites is
critical and is the most formidable challenge.
APHSA’s initial entrée into videoconferencing was
through a satellite downlink presentation. The
purpose of this videoconference was to increase
the learning capacity of people who conduct
surveys in state and local areas. The event was
widely publicized, and no registration fee was
required. APHSA, like many other nonprofit
organizations, does not have the ideal
environment in house to host a satellite
conference, so it contracted with The George
Washington University for the use of the
university’s studios. APHSA staff trained with
the university staff prior to the
videoconference. APHSA found this method to be
cost-effective, the quality of the reception was
good, and viewers had easy access to downlink
sites. In addition to using videoconferencing to
communicate, APHSA has developed through the
Internet an on-line discussion board that enables
individuals to post and answer questions as well
as share information. APHSA looks forward to
hosting additional videoconferences in the near
future. Its next videoconference is scheduled for
April 11, 2000, "Making Administrative Data Work
for You," 2:00 p.m.–3:30 p.m., Eastern Standard
Time. For more information,
contactGary
Cyphers at
202/682-0100 202/682-0100 , ext.
245.The Howard University School of
Divinity, Faith Community, Distance
LearningCenter. The school is using
videoconferencing to expand learning
opportunities to the local church and other
religious institutions, colleges, private
institutions, and public schools. Howard has used
videoconferencing for conducting live surveys and
as a counseling tool for the elderly and troubled
youth in 300 churches nationwide. Its commitment
to technology and training has enabled the school
to do videoconferencing to more than 10,000
sites. Through its investments in
technology-based conferencing, Howard is creating
faith-based distance learning centers that will
have training based on their needs. In addition,
the school uses videoconferencing to provide
staff development training and offers 60 to 70
videoconferences per week. The training sessions
are broadcasted via satellite nationwide.
Experience has taught Howard that using
satellites is very cost-effective and efficient
in communicating. However, audiences want to be
interactive, so a two-way videoconference should
parallel the satellite presentation to ensure
interactivity. The use of new technology has
proven beneficial in communicating with
grassroots representatives who traditionally
cannot afford to travel. At this point, the
Howard University School of Divinity is entirely
interactive. Although some of the sites with
which Howard communicates have high-end
technology, others do not. Howard has made sure
that the presentations it develops are streamed
out through different avenues, enabling each site
to receive the presentations with the equipment
it has on hand. For more information,
contactMartel
Perry.Other
Examples.
Numerous other organizations use technology-based
conferencing and communication for training,
information dissemination, and service delivery.
For example, the National Governors’ Association
uses audioconferencing to keep governors’ policy
advisors abreast of federal policy developments
and to formulate state positions on national
policy issues. The American Public Human Services
Association and other organizations use
Internet-based bulletin boards and chat rooms to
encourage peer networking and information
sharing. Many states also make extensive use of
technology-based conferencing for training
activities, and national organizations such as
the United Way of America use technology-based
conferencing to train their local affiliates.
Many organizations, including the graduate school
of the U.S. Department of Agriculture are looking
at combining the use of CD-ROM and DVD materials
with the Internet to provide more flexible and
tailored programming. The Department of Labor has
experimented with the use of videoconferencing in
its competitive bidding process for
Welfare-to-Work grants.
For
More Information
RESOURCE
CONTACTS
Center for Law and
Social Policy, contact Jodie
Levin-Epstein, 202/328-5174 202/328-5174
.
Graduate School of
the U.S. Department of
Agriculture, contact Richard
Morton, 202/ 314-3431, or Debora Wasem,
703/917-1020 703/917-1020
.
Pacific Bell Knowledge Network
Explorer’s Videoconferencing for Learning web
site.
U.S. Department of
Labor, Office of
Education and Training Administration (DOLETA), contact
Michelle Burton, 202/219-0024 202/219-0024
.
United Way of
America, contact Edmund Berkey,
703/683-7820 703/683-7820
.
Welfare to Work
Partnership, contact Elisa
Johnson, 202/955-3005 202/955-3005
.
PUBLICATIONS
Reese, Bryan.
Computers and Videoconferencing: An
Introduction to Video
Editing.
South Jordon,
Utah:, Computer Credible Magazine,
1996. Contact 801/254-5432 801/254-5432
.
Schraeder Lasica,
Mary.
Videoconferencing
Beginner’s Guide. Calif.: Pacific Bell Knowledge
Network, April 1999.
The Georgia
Institute of Technology, North Carolina State
University, the University of North Carolina at
Chapel Hill, and the University of Tennessee at
Knoxville.
Video Conferencing
Cookbook.
Washington,
D.C.:Southeastern Universities
Research Association, February
1999.
.JPG)
.JPG)
