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Connecticut General Assembly
Office of Legislative Research
Stephanie A. D’Ambrose, Director
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Supplemental Nutrition Assistance
Program - Employment and Training
Program (SNAP E&T)
By: Mary Fitzpatrick, Principal Analyst
September 12, 2023 | 2023-R-0188
Issue
This report describes (1) federal requirements for SNAP E&T programs and (2) program
administration in Connecticut.
Summary
SNAP E&T is a federally funded, state administered program. Federal law requires states to have a
SNAP E&T program, but states have flexibility in how to design it. States may make their programs
mandatory for SNAP recipients who are subject to work requirements (“work registrants”), voluntary
for all, or some combination of mandatory and voluntary. States must provide case management
and must select one additional program component (e.g., supervised job search, vocational
training, or job retention services).
The federal United States Department of Agriculture’s (USDA) Food and Nutrition Service (FNS)
allocates federal funds to states based on a formula. States may receive additional funds for
pledging to provide E&T services to all SNAP Able Bodied Adults Without Dependents (ABAWDs).
Additionally, states may use nonfederal funds for certain E&T expenses and FNS will reimburse
these costs at 50%.
Connecticut’s SNAP E&T program, CTPathways, provides certificates and associate degree
programs through Connecticut’s 12 community colleges and the community college system office,
as well as one private university and three community-based organizations. CTPathways also offers
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supervised job search and job retention services through New London Homeless Hospitality Center.
Connecticut’s state SNAP agency, the Department of Social Services (DSS) estimates that SNAP
E&T serves 1,644 people annually.
DSS states in its FY 23 SNAP Employment and Training Plan that the department is “maximizing all
revenue opportunities in its state plan and community colleges are using other funding sources and
strategies to make programs more financially stable and sustainable.” DSS has consulted or
partnered with other state agencies, employers, and other entities to administer the program.
Federal Requirements
Program Purpose and Design
The federal Food and Nutrition Act requires each state SNAP agency to operate a SNAP E&T
program to help members of SNAP households gain, skills, training, work, or experience that will (1)
increase their ability to obtain regular employment and (2) meet state or local workforce needs (7
U.S.C. § 2015(d)(4)(A)(i)).
Federal law requires states to have an E&T program, but states have considerable flexibility in how
to design it. The law requires programs to include case management and at least one of the
following components:
1. supervised job search and job search training (i.e., “work readiness” activities);
2. workfare programs;
3. programs designed to improve participants’ employability through actual work experience,
training, or both (e.g., internships or apprenticeships);
4. programs designed to increase participants’ self-sufficiency through self-employment;
5. education that improves basic skills or employability and have a direct link to employment;
6. vocational training;
7. job retention for at least 30 days and no more than 90 days; or
8. other programs approved as authorized under USDA regulations (7 U.S.C. §
2015(d)(4)(B)(i)).
States choose which components they will offer in their programs and describe them in their annual
E&T state plan. States must consult with their workforce development boards when designing the
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program unless the state demonstrates to USDA that consultation with private employers or
employer organizations would be more effective or efficient (7 U.S.C. § 2015(d)(4)(A)(i)).
Mandatory and Voluntary Programs
Federal law requires certain SNAP enrollees to comply with work requirements. These “work
registrants” are required to participate in SNAP E&T programs unless the state exempts them.
States have broad authority to exempt work registrants from the requirement to participate in SNAP
E&T programs. A state may do so for various reasons, including a lack of appropriate or available
spot in the E&T program or a work registrant’s pregnancy, homelessness, lack of proficiency in
English, or geographic location. Exempt work registrants or other SNAP enrollees may participate in
SNAP E&T programs voluntarily. If a state requires a work registrant to participate in SNAP E&T, the
work registrant may be sanctioned or lose SNAP benefits for failing to participate.
Alternatively, states may exempt all work registrants from the requirement to participate, essentially
administering an entirely voluntary E&T program.
Federal regulations require state SNAP agencies to screen and refer SNAP applicants for E&T
programs (whether voluntary or mandatory) as part of a SNAP eligibility determination (7 C.F.R. §
271.2 & 7 C.F.R. § 273.7(c)(2)).
Funding
The USDA allocates federal funds as “100% funds” among the 53 state SNAP agencies according
to a formula based on the number of work registrants and ABAWDs in the state or territory
(approximately $103.9 million total in 2022). States that pledge to provide E&T activities to every
ABAWD may receive additional funds (“pledge funds,” approximately $20 million total in 2022).
(ABAWDs are subject to a time limit on benefits based on compliance with additional work
requirements.) Amounts for these federal funds are set in federal statute ($123.9 million total (7
U.S.C. § 2025(h)(1)(A) & (E))).
States may also identify nonfederal funds to support E&T programs. The USDA will reimburse states
for 50% of these expenditures (“50% funds”). These nonfederal funds may be state funds,
appropriated by the state, or other nonfederal funds. These funds may be used for administrative
costs or “participant reimbursements.” State SNAP agencies are required to pay for or reimburse
E&T applicants and participants for all expenses reasonably necessary and directly related to
participation in an E&T program (e.g., dependent care, transportation, books, or training materials).
These “participant reimbursements” may not be paid for with federal funds; these must be paid for
through 50% funds (7 C.F.R. § 273.7(d)(4)). USDA estimates amounts for these 50% funds based
on (1) last year’s spending, (2) projected inflation, and (3) consultation with the state program.
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SNAP E&T in Connecticut
Connecticut’s SNAP E&T Program, CTPathways, is entirely voluntary. As described in its FY 23 SNAP
Employment and Training Plan, DSS contracts with Connecticut’s 12 community colleges and the
Community College System Office, as well as one private university and four community-based
organizations. In addition to case management, CTPathways offers (1) education or vocational
training, (2) supervised job search, and (3) job retention services. Connecticut is not a “pledge”
state in that it does not accept extra funds in return for pledging to provide E&T services to all
ABAWDs.
Funding
According to DSS, for federal FY 24, the department is expected to receive $694,164.79 in 100%
funds and has requested an additional $450,000. Additionally, DSS states that nonfederal, 50%
funds for the program in federal FY 24 total $7.4 million, most of which is contributed by the
colleges and community-based organizations that partner with DSS for the program.
Program Components
Case Management. SNAP E&T coordinators provide case management services. Additionally,
DSS requires E&T providers to have staff on site to provide case management services. These
services include comprehensive intake assessments, individualized service plans, progress
monitoring, and coordination with service providers.
Education or Vocational Training. DSS describes Connecticut’s SNAP E&T education or
vocational training component as short-term, job driven programs in occupations supported by
labor market information from the Department of Labor (DOL). It includes certificate and associate
degree programs. All SNAP recipients over age 15 who do not receive Temporary Family Assistance
(TFA) are eligible. (TFA is Connecticut’s cash assistance program funded through the federal
Temporary Assistance for Needy Families block grant. It has separate work requirements and
supports.) DSS targets SNAP-eligible work registrants. Most programs require a high school diploma
or equivalent and, while computer literacy is not a prerequisite, E&T providers encourage it for
hybrid or online courses. Programs operate statewide, with a projected annual participation of
1,121 people. The following organizations contract with DSS to provide these services:
1. Connecticut’s 12 community colleges,
2. Goodwin University,
3. Connecticut Center for Arts and Technology,
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4. Opportunities Industrialization Center (OIC) of New London, and
5. Capital Workforce Partners.
Supervised Job Search. CTPathways offers supervised job search through New London
Homeless Hospitality Center. A SNAP coordinator at that location offers classes on interview
preparedness, job search techniques and virtual interviewing. She also assists participants with job
applications, resumes, and issues relevant to those with criminal records. DSS targets SNAP
recipients who are unemployed or underemployed, including those experiencing homelessness. All
SNAP recipients over age 15 who do not receive TFA are eligible. The program operates in New
London with a projected annual participation of 48 people.
Job Retention. CTPathways offers job retention services through New London Homeless
Hospitality Center. These services help participants with supportive services after they have
participated in another component and gained employment. Job retention services last for at least
30 days and no more than 90 days. The projected annual participation for these services is 48
people.
Participant Reimbursements
As described above, states must pay for or reimburse E&T applicants and participants for all
expenses reasonably necessary and directly related to participation in an E&T program. As
described in its state plan, E&T providers in Connecticut will reimburse for the following expenses
(all based on actual cost, except for childcare):
1. childcare (subject to a $619.20 cap and based on payment rates under the Care 4 Kids
program);
2. transportation (e.g., gas cards, bus passes, car repairs);
3. books;
4. licensing and exam fees;
5. uniforms and equipment;
6. course registration; and
7. other reasonable and necessary expenses.
The state plan estimates that 583 people will receive participant reimbursements. The plan also
notes that the Connecticut State Colleges and Universities system provides funding for participant
reimbursements, as well as administrative support for the college partnerships.
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Consultations and Other Partnerships
As described in the state plan, DSS collaborates with the Governor’s Workforce Council, through the
Office of Workforce Strategy, to guide the department’s strategy in helping low-income SNAP
recipients and avoid duplicating services across state agencies. The department also coordinates
with DOL. Some of DOL’s American Job Centers are co-located at locations where E&T services are
provided. DSS advises E&T providers to obtain labor market information to inform which programs
to support. Additionally, E&T participants who complete vocational training are referred to an
American Job Center to register in the CTHires database, enabling them to receive additional job
seeking services.
DSS has also consulted with employers, including Eversource, to determine placement
opportunities and discuss potential partnerships. It has consulted with the National Community
Reinvestment Coalition to expand E&T opportunities within the state.
Also, DSS’s E&T staff has worked with DSS Wilson Fish TANF Coordination consultants, local
refugee resettlement agencies, and the federal Office of Refugee Resettlement to direct eligible
SNAP refugees to CTPathways programs.
Recent Trends and Program Changes in Connecticut
Table 1 shows the number of participants for SNAP E&T in Connecticut from federal FY 18 to FY 22.
According to DSS, the program supports between 4 to 5.5% of the total SNAP work registrants not
receiving TFA.
Table 1: SNAP E&T Participation (FFYs 18-22)
Total Participation
(individuals)
1,716
1,564
1,579
1,613
1,594
Source: DSS
As shown in the table, program participation decreased during the COVID-19 public health
emergency. According to DSS, during this time, the program operated mostly through virtual
classes, implementing a laptop loaner program with the community colleges to allow participants to
continue their training if they wished to do so. Additionally, federal funds through the American
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Rescue Plan Act (ARPA) supported other workforce initiatives; DSS expects that when ARPA funds
expire, SNAP E&T programs will see increased participation.
Since last year, one organization, Community Culinary of Northwestern Connecticut, has ceased to
be a contractor in the program due to low enrollment and the COVID-19 public health emergency.
According to DSS, Capital Workforce Partners is also struggling with enrollment and the department
plans to monitor their participation.
DSS has been implementing a new data management system for CTPathways that, according to the
department, will include invoicing and more efficient reporting. The department also notes that
despite the alignment of community colleges into a one college model system in 2023, DSS does
not intend to merge into one contract with the system until 2024.
DSS has also been selected to participate in USDA’s FY 2023 E&T State Institute, a two-day event
in September in Alexandria, Virginia. As described by the USDA, the event will “provide an
opportunity for a select number of state SNAP agencies to build a vision for their SNAP E&T
program and begin developing a strategic plan to accomplish the state’s long-term E&T goals.”
Resources
DSS, “FY 2023 SNAP Employment and Training Plan,” August 2022.
USDA, “SNAP E&T Funding: SNAP 2022 Employment & Training National Forum,” December 2022.
USDA, “SNAP E&T 101: SNAP 2022 Employment & Training National Forum,” December 2022.
USDA, “Supplemental Nutrition Assistance Program (SNAP) Employment and Training (E & T) Best
Practices Study: Final Report,” November 2016.
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