Ultimately all of our participants wanted regular employment; however; the path available to them did not allow it. While Alternatives to Employment are not in and of themselves barriers, the fact that options outside of regular employment were more feasible for participants represents a barrier to employment generally.

This theme also refers to a weighing up process in deciding whether or not to be involved in the regular labor force. The assumption is that people who are in need of financial support but face significant barriers to employment may seek viable alternatives to regular employment that would meet their needs. Self-employment, volunteering, and working ‘under the table’ or in the informal economy are other ways to describe alternative employment or non-regular employment.

Working in the ‘informal economy’ means working without: 1) paying federal and provincial taxes, premiums for employment insurance and workers’ compensation insurance, 2) without any formal agreement with your employer and consequently limited rights.

In some cases the weighing up process resulted in some participants feeling that their only option was to remain out of the regular labor force. In these cases often the participants had significant personal challenges that needed to be addressed prior to entering the regular workforce

What we learned from our participants was that before becoming totally Discouraged Job Seekers many had sought to find alternate employment.

A small number of our participants were experiencing some success with these alternatives. They had come to terms with the fact that they were unable to get and/or maintain an eight hour day, five days a week-type job. The alternative allowed theses participants to benefit from some of the positive aspects of work, e.g., a sense of accomplishment and connection with others.

While not many of our participants had significant or sustained success in alternatives to employment some continued to look to the entrepreneurial option as the most likely way to gain more financial independence. The lack of seed funding and/or a venue to find partners were particularly troublesome for these participants.

A lack of success through these avenues led to a feeling of getting close to the edge of desperation. Those who had not been able to find the right niche felt the doors closing one by one, and didn’t know where else to turn.

Alternatives to Employment is divided into two sections:

7.1 Direct:

7.1.1 Entrepreneurship

7.1.2 Informal Economy

7.1.3 Stipends and Honoraria

7.2 Indirect:

7.2.1 Volunteering

Summary of participants’ attitudes toward Alternatives to Employment

7.1 Direct:

7.1.1 Entrepreneurship

 16% of our participants were actively or seeking to engage in entrepreneurial activities

7.1.2 Informal Economy

 26% of participants were involved in the Informal Economy

7.1.3 Stipends and Honoraria

 Stipends and Honoraria were seen as small financial benefits which dramatically improve the recipient’s self-worth

7.2 Indirect:

7.2.1 Volunteering

 Nearly all of our participants had some volunteer experience or were interested in volunteering

Direct and Indirect Alternatives to Employment

In many cases we were impressed by the creativity and the resilience of participants when dealing with their barriers to employment. Many participants sought alternate routes to their goal of paid employment in a variety of ways. Some were entrepreneurial but nearly all had thought about or engaged in volunteer work as a way to increase their attractiveness to employers.

Participants had used a variety of approaches to move from being unemployed to gaining employment. These approaches were either direct - actively engaging in activities that generated income, or indirect -- actions that could possibly make them more attractive to employers.

7.1.1 ENTREPRENEURSHIP

A small number of our participants sought out or considered self-employment as the way in which to become financially independent. Some sought out assistance through employment services and economic development and small business agencies to begin businesses in the formal economy. Others had developed or were developing niche markets for their services in the formal or informal economy.

These five participants had looked at the current labor market, tried to find employment in it, and had found that there were limited options for them to enter either due to their disability (Emma, Joan) or from a lack of jobs in the area that met their financial needs and allowed them to use their education and training for work (Leanne, Eva, Rob). Working for themselves offered the freedom necessary to define their own job properties and therefore relieved them from the restrictions they saw in the local labor market. The major drawback to any of the options participants pursued was the required versus real rate of return. The two participants who were actively working at their entrepreneurship activities readily noted that the returns they were seeing were not enough to support themselves without additional financial aid. In the case of Joan this was due to the nature of her illness which meant she would be unable to work suddenly or for, at times, extended periods. She had found ways to adapt to this uncertainty through developing connections with others who could take over her duties should she fall ill. In the case of Janet it was due to the relatively small market for her services and the travel cost to get to clients. This was her third career option – the first had lasted 23 years. If not significantly more successful, Janet’s current option would lead to financial hardship, and possibly losing her home. However, it was the only option she could see that did not require additional education or training which was a financial burden she was unwilling to accept.

While entrepreneurship did provide flexibility for participants it also placed a lot of stress on them. Eva for example saw entrepreneurship as a last resort in gaining financial security. Her home was tied up in her proposed endeavor and she was well aware that if her enterprise did not succeed she was at risk of losing her home. While not all participants were in this situation there was a general understanding that entrepreneurship entailed some level of insecurity and risk. The barriers to success in entrepreneurship that were identified included: stress, lack of clients, inability to do some of the job, funding for enterprises, short time lines of financial/mentorship support from agencies.

Emma in particular saw the idea of a shared or collective enterprise between unemployed people as a potential model that would meet her needs. As her disability precluded her from doing a portion of what her desired job entailed, i.e., farming, the option to build on the resources of a group rather than have success dependent upon the ability of an individual was appealing. Her idea sounded innovative, demanding potential restructuring of entrepreneurship programs provided by social services. Her suggestions of government policy changes and collaboratively utilizing the strengths of participants seemed the most likely to facilitate realistic successful enterprises for people dependent on Income Assistance.

7.1.2 INFORMAL ECONOMY [1]

Working within the informal economy constitutes in many ways a form of entrepreneurship as it does require a lot of self-directed activity and planning in order to earn money. It also requires a certain level of community connection in order to get work through a friend or relative. As was noted in the Theme Chapter on Social Networks / Social Isolation many people lacked a strong community upon which they could draw for employment either in the formal or informal economy. Working in the informal economy can also place participants in positions where they are required to do work that is either unsafe or physically demanding. Eight (26%) of our participants were actively engaged in the informal economy. We had assumed the number would be much higher, and are not sure why this option was not more prevalent. Social isolation is likely a strong factor. It may also have been that there are limited options in Kings County. Possibly the level of trust needed to reveal an illegal activity may have prevented those who are actively involved from becoming involved in research. Another reason could be that certain types of informal activities such as the collection of recyclables would be more limited in Kings County than in urban centers due to the smaller number of people and public spaces and the longer distances between places of business, residences and recycling depots.

7.1.3 STIPENDS AND HONORARIA

Two of our participants (Fran and Peter) had discovered a way to supplement their Income Assistance payments through stipends and honoraria. These two participants had taken on work that could be considered similar to volunteer work (writing a monthly column for a mental health organization and running an exercise class). While the small payments both received for their work was not enough to support themselves or to drastically improve their quality of life, it did afford them some small comforts. They also received a small amount of transportation support to go to those activities. We learned from government workers that these two participants probably qualified for Employment Support designation under the Nova Scotia Department of Community Services’ Employment Support and Income Assistance (ESIA) program, and therefore were entitled to such financial support. Those who do not qualify for the Employment Support designation are typically not entitled to any transportation support, even if they perform the same type of “volunteer” activities. Many we interviewed did not qualify for that designation, in spite of indicating they wanted to work. As we learned, the need to have a graduated approach to become work ready is not acknowledged in the ESIA program. This is addressed in more detail in Theme Chapter 4: Government Policies and Practices. The significant feature of the honoraria and stipends is the effect it has on participants. It helps them to feel valued for what they do and to feel as though they are part of a community. Both participants spoke openly about how important the honoraria and stipends are to their self-worth.

7.2.1 VOLUNTEERING

By far the majority of participants attempted to use volunteering as a way to get experience, build skills and demonstrate to employers that they were capable employees. Volunteering was also seen as a way to break out of the isolation that many of the participants felt from not having a job.

Lynne has been working volunteering for a number of years and continues to do so. She feels strongly about what she is doing in these positions, many requiring high levels of organizational ability, but she expressed frustration by the fact that the efforts were not translating into job opportunities. Her perception was that volunteer work was not valued by employers hence her inability to get a job. When asked about why she was unable to find a job she said:

Lynne: They don’t think this volunteer work is anything.

Jennifer’s situation was interesting because we had two interviews with her: one in the month of July and the second nearly a month later. By the time we had arranged for the second interview she was in the initial stages of securing a paid position with the organization she had been volunteering at. While this was exciting to her it also seemed equally perilous to her. She had many doubts about her ability to perform the job she had been doing as a volunteer for pay.

Jennifer: I am worried about the freedom volunteering incurs: that you can make your own hours and that sort of thing. And like if you are physically ill, because I am physically ill sometimes, and I never know when it's going to happen, that's another thing, it's the physical things, the physical problems that I have how will I manage that? I don't want people to be too accommodating with me because I don't want to inadvertently be taking advantage of anyone. Because everyone will do that instinctively if you give people lots of slack, but I do need a bit of slack. And I'm worried about resentment building up...(sighs – and says to self, I don’t know) I just can't fit right.

For Jennifer the responsibility and expectations that came with a paid position were frightening.

Jennifer: yeah that would be really good but I am very terrified once money is involved I am scared that I will make mistakes because I have been fired before. Like when you are a volunteer typically they love you because they are getting free help...

Jennifer’s fear of how drastically her relationship with the organization she volunteered with would change if she was paid for her work almost led her to withdraw from the process she had initiated. Jennifer had originally sought out the volunteer opportunity to get out and be active in the community. In fact had she not been attached to an employment service that was supporting her in this process, it seems likely she would have withdrawn from the opportunity to shift from volunteer to paid employee.

Other participants such as Fran used volunteering as a way to feel valued and take pride in oneself.

Fran: it gives me a good sense of .... a good sense of me knowing that I've done the best I could, given my ability One time I was serving this guy and the chicken was runny and I spilt it all over his uniform. I went to the manager and was ready to quit when she said: “We don’t get fired for what we do. You did whatever you could, don’t give up now.” I went and did the dishes, the best I could.

However for Fran as well she was reluctant to give up her volunteer work for paid employment. When questioned in the interview about work Fran emphasized that any work she sought would have to allow time for her volunteering.

Fran: Well I wouldn't want to give up my important job, my role with the club. I guess I could work around and have that on days off... shift it around.

Volunteering was secure and because she was only expected to do what she could she was able to feel less anxiety about her ability to perform the tasks given.

For some of the participants volunteering had not turned out the way they had hoped. Sally in particular expressed dismay at the fact that the volunteering positions she could obtain did not provide the opportunity for skill development. Sally had been dismissed from a volunteer position at a hospital due to the liability risk the hospital staff thought she posed because she was vision impaired. In discussing volunteering after that situation:

Interviewer: So have you volunteered anywhere else?

Sally: Over the years I have but I get bored really quickly with things I'm not interested in, really quick. They always give you roles that don’t stimulate your brain....People don't let you have skills when you volunteer now.... Or they put you in a job that doesn't really… If I'm going to volunteer I’m going to get something out of it for myself. I'm not wasting my time just to give back to somebody… I mean I don't mind helping people but if I'm going to volunteer... make it worth my while. I want to learn something out of it. I don't want to sit in some boring old job when other people are learning things, when I could learn and develop my skills to work. I don't want to sit and watch the door all day, you know what I mean?

Others found volunteer jobs that were not limited to the simplistic tasks Sally experienced. Fear around her ability to be safe in a volunteer position due to her vision problem and the liability that it presented limited what she was allowed to do in a volunteering position. That is, people were assuming she had limitations that she did not.

There were very few comments from employers and employment support staff regarding the efficacy of entrepreneurship or stipends and honoraria in regards to securing jobs. This might have been due to those aspects not falling under the purview of the organizations or employers we spoke with. The informal economy was also not discussed much except in relation to it being a volatile situation for people due informal economy workers having few rights or being subject to potentially dangerous situations. However, the topic of informal workers being unable to work towards benefits was mentioned by a few staff. It was suggested by several staff and in a recent discussion paper from the Nova Scotia Persons with Disabilities Employability Table[2], that there needs to be flexibility in the earnings people can make before having income supports reduced, along with decreased disincentives for employers and employees to report income. In the Nova Scotia Persons with Disabilities Employability Table discussion paper, the idea of ‘working credits’ was presented to allow those who can only work sporadically to benefit from having their income averaged over time rather than being penalized for having only one or two high earnings months in a year. Some staff expressed interest in seeing this practice extended to Employment Insurance benefits or towards “funding hours”. Funding hours would be a situation where a person could work occasionally and work up hours that would qualify them for funded training programs. While training is available to people in receipt of government assistance as well as a variety of target groups, it is not extended to those who fall outside of those eligibility categories.

Staff mentioned the burden reporting income placed on employers for those who only work small amounts or occasionally. Having a service whereby tax reporting could be done for the employer was suggested. The major barrier in addressing reporting problems in the informal economy is actually providing information to those in the informal economy about the benefits of reporting. Current practices seem to be retributive to those in the informal economy and a shift in how this is viewed may take extensive public outreach and education.

In terms of alternatives to employment, volunteering was the one most often commented on by all parties. Volunteering was seen as a popular approach to gaining employment in the future, almost to the same extent as education and training. Adam had an overall positive perspective on volunteering, that it was a good way to practice social skills and to give back to the community, however in relation to work he felt slightly different. When asked about using volunteer positions to fill out a resume:

Adam: I like to see volunteer activity – but not too much.

When asked to clarify this position he explained that while volunteer work does speak to your character it does not necessarily relate directly to a work environment.

Adam: The place you volunteer at won’t remember if you are late five days in a row – your employer will. Volunteering is not the same as working.

Employment support staff generally saw volunteering as a way to develop those soft skills that employers look for such as punctuality and social skills. Volunteering offered (as many of our participants felt), an environment that allowed more freedom to build up skills and habits that they may be lacking without the added pressure of financial consequences. Employment support staff also spoke about the intrinsic benefits of feeling like a valuable member of the community, to be respected, and thanked for their contribution. While some participants did not receive this recognition (Janet) in their volunteer activities, many did and saw volunteering as a key facet of their identity and self-worth (Jennifer, Fran, Eva).

Currently there is a pilot project called the Volunteer Placement Program, running in Kings County offices of the Canadian Mental Health Association. The Volunteer Placement Program is designed to help individuals enhance skills in order to reach personal goals which typically, but not necessarily, includes employment. Other aims are to increase self esteem, reduce isolation and combat stigma through positive experiences in the community. The project is funded by the Department of Community Services in Kentville. The funding of this project indicates an awareness of the important role that volunteering can play in assisting people in becoming work ready. But perhaps of equal importance is the fact that it is recognized that it can help to address some of the barriers experienced by Discouraged Job Seekers which we identified in our research, such as social isolation. As many people in employment support services pointed out, employers can be reluctant to take on individuals with challenges and disabilities because they may have misconceptions. Getting potential employees such as Discouraged Job Seekers into volunteer positions can help break down those misconceptions.

The perception that collecting wages ‘under the table’ is easier than regular employment indicates that there are problems with current employment practices. The following list of interventions to make employment alternatives easier, or in the case of the informal economy, less necessary, were suggested by participants and Employment Service staff:

1) A Temporary Employment Agency that could process temporary workers’ information
2) Set up a formal volunteer agency to match Discouraged Job Seekers with work-related opportunities
3) Review income reporting practices to remove or reduce disincentives to reporting
4) Provide opportunities for those individuals who may not currently qualify for benefits to accrue some form of benefits
5) Develop volunteer-based programs that take skill learning out of the classroom and employment services staff’s offices and into real life
6) Encourage group entrepreneurial activities/social enterprise activities for all job seekers including those in receipt of income supports

Every participant we spoke to appeared to have a vision of what would be needed for them to be employed. However, a number of participants had come to terms with the likelihood of that vision not occurring. Their need to obtain the quality of life that one receives from work was found in creative activities they had developed.

Joan has a chronic disease that is completely unpredictable and when it is active she is completely unable to function. When it is not the only limitation she has is reduced strength. Her employment vision is to work in a pet sanctuary rescuing abandoned and hurt animals. She appears to have what is needed to run such an endeavor. She would need a person to fill in immediately when her illness was active. She recognizes this is highly unrealistic. Pets, especially dogs are her passion. She lives in subsidized housing where pet ownership is prohibited. She has managed to create a side business.

She looks after dogs whose owners would normally use a kennel. She will either move into the house where the animals live while the owners are away, or have them stay with her at her apartment. She deals with her challenges in the following manner:

• The dogs need to be small to allow her to be able to control them, due to her reduced strength.
• The owner needs to agree to a “Plan B” and a “Plan C” to go into action if her illness becomes active while looking after their dog(s). She is friends with a former breeder, who has the facilities to house dogs temporarily. She asks for the names and phone numbers of people the owner knows who also know the dog that may be willing to take the dog in a crisis.
• She has negotiated with her superintendent that she can keep the dogs for a week or less, if there are no complaints from neighbours.
• Being away from the workforce for decades, her knowledge of new technology and other work changes is out of date. The income revenue alternative she has found does not require her to have up-to-date knowledge – animal care is not necessarily technically-based.

Obviously, a significant asset Joan has is her personality. The tenants and superintendent are willing to bend the rules, and others are willing to help out if she is in a crisis.

Joan’s need for income above her disability pension is considerable. She needs to take medications to control her pain and disease that are not completely covered by government programs. Some months, her portion of the cost is in the hundreds of dollars. She cannot afford the medications that would be much more effective in dealing with her pain than those she can afford. The pain gets to the point that she needs to attend the Emergency Department in her hospital regularly. She needs the good will of neighbours to take her to the Emergency Department rather than go by ambulance because she cannot afford the cost of the ambulance in addition to her medication costs. The money she gets from dog care helps her financial situation considerably.