This report summarizes the final impact results for the national Employment Retention and Advancement (ERA) project. This project tested, using a random assignment design, the effectiveness of numerous programs intended to promote steady work and career advancement. All the programs targeted current and former welfare recipients and other low-wage workers, most of whom were single mothers. Given that earlier retention and advancement initiatives studied for these groups were largely not effective, ERA sought to examine a variety of programs that states and localities had developed for different populations, to determine whether effective strategies could be identified. In short, nine of the twelve programs examined in this report do not appear to be effective, but three programs increased employment levels, employment stability, and/or earnings, relative to control group levels, after three to four years of follow-up.

Key Findings:

 - Out of the twelve programs included in the report, three ERA programs produced positive economic impacts; nine did not. All three programs increased employment retention and advancement. Increases in employment retention and earnings were largest and most consistent over time in the Texas ERA program in Corpus Christi (one of three sites that operated this program); the Chicago ERA program; and the Riverside County, California, Post-Assistance Self-Sufficiency (PASS) ERA program. These programs increased annual earnings by between 7 percent and 15 percent relative to control group levels. Each of them served a different target group, which suggests that employment retention and advancement programs can work for a range of populations. However, three-fourths of the ERA programs included in this report did not produce gains in targeted outcomes beyond what control group members were able to attain on their own with the existing services and supports available in the ERA sites.

 - Increases in participation beyond control group levels were not consistent or large, which may have made it difficult for the programs to achieve impacts on employment retention and advancement. Engaging individuals in employment and retention services at levels above what they would have done in the absence of the programs was a consistent challenge. In addition, staff had to spend a lot of time and resources on placing unemployed individuals back into jobs, which made it difficult for them to focus on helping those who were already working to keep their jobs or move up.

Before the ERA project began, there was not much evidence about the types of programs that could improve employment retention and advancement outcomes for current or former welfare recipients. The ERA evaluation provides valuable insights about the nature of retention and advancement problems and it underscores a number of key implementation challenges that a program would have to address. In addition, it reveals shortcomings in a range of common approaches now in use, while identifying three distinct approaches that seem promising and worthy of further exploration. (author abstract)

This report represents the first step in the process of identifying initiatives intended to assist TANF recipients living with disabilities to obtain and maintain employment that may be worthy of further study. The outcomes and impacts of such initiatives are of substantial interest to program administrators and policymakers for several reasons. First and foremost is the concern over the well-being of these recipients and their families. Second, these initiatives often require considerable staff effort and intensive services and, therefore, can be costly to implement. Third, states and localities are under growing pressure to meet increased federally mandated work participation rates and recipients living with disabilities are one of many groups that program administrators and policymakers may consider targeting to increase those rates. To assist program administrators and policymakers in deciding how they should spend limited resources, it is critical to know whether the initiatives are, indeed, producing their desired effects. The time may be ripe for rigorously testing the impact of employment initiatives for low-income families living with disabilities and this report presents some potential options for doing so. (author abstract)

Now more than ever, the path to self-sufficiency for most welfare recipients involves finding and keeping a job. The recently enacted welfare law, the Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA) of 1996, emphasizes the need for individuals to take personal responsibility in their move toward self-sufficiency. The law underscores the importance of work and requires most able-bodied individuals to find some type of work within two years after they start collecting welfare. For welfare recipients, the time limits that the new law imposes significantly raise the stakes of not being employed. As the new law is implemented, more individuals who are less job ready will be entering the labor market. Many of these individuals, unused to the world of work, will be in danger of losing their jobs. While time limits may motivate some to hold onto their jobs, many are likely to face situations that make it hard for them to do so. Although welfare recipients must try to deal with these challenges, external assistance and support can help them overcome some of these barriers. States and other local agencies may be able to provide support that makes individuals’ transition from welfare to work smoother and more successful. (author abstract)

This report presents implementation and two-year effectiveness results for the Reach for Success (RFS) program, operated by the Los Angeles County Department of Public Social Services (DPSS). RFS offered individualized and flexible case management services to recipients of Temporary Assistance for Needy Families (TANF) cash assistance benefits –– primarily, single mothers who were working at least 32 hours per week but earned too little to leave assistance. DPSS administrators designed RFS with the goal of helping individuals retain their employment and secure better jobs, and it sought to meet this goal by increasing the availability and improving the quality of case management services, relative to services offered as part of the agency’s existing post-employment services (PES) program. Participation in services in either program was voluntary. RFS operated from March 2002 to June 2005 in three regions in the county. RFS is one of 16 innovative models across the country being evaluated as part of the Employment Retention and Advancement (ERA) project under contract to the Administration for Children and Families (ACF) in the U.S. Department of Health and Human Services, with additional funding from the U.S. Department of Labor. The evaluation of RFS uses a random assignment research design, whereby eligible individuals were assigned, through a lottery-like process, to one of two groups. Those assigned to the RFS group were actively recruited to participate in services and were offered personalized case management. Those assigned to the control group were eligible to request, on their own initiative, services from the county’s existing post-employment program. The report’s findings thus indicate whether Los Angeles’s new RFS program was more effective than its existing approach to providing post-employment services. (author abstract)

Phased in during a time of strong economic expansion, welfare reform and the Temporary Assistance for Needy Families (TANF) program have been associated P with an unprecedented drop in the welfare rolls and commensurate increases in employment. While the nation’s rural areas have shared in the benefits of economic prosperity and welfare reform, poverty continues to be more prevalent and persistent in rural areas than in nonrural ones. The Administration for Children and Families (ACF) is funding the Rural Welfare-to-Work (WtW) Strategies Demonstration Evaluation to learn how best to help TANF and other low-income rural families move from welfare to work. Under contract to ACF, Mathematica Policy Research, Inc. (MPR), along with Decision Information Resources, Inc. (DIR), is conducting the evaluation. Economic and geographic conditions in rural areas make it especially difficult for welfare recipients and other low-income families to enter, maintain, and advance in employment and secure longer-term family well-being. Unemployment and underemployment rates are higher, and average earnings are lower, in rural labor markets than in urban ones. The lower population densities and greater geographic dispersion that characterize most rural areas result in severe transportation problems and limited employment options. Key services, such as education, training, child care, and other support services, are often unavailable or difficult to access. Many evaluations have focused on rural populations and employment strategies, but few, if any, have been rigorous. The Rural WtW Evaluation will lead to increased information on well-conceived rural WtW programs. Distinctive, innovative programs in three states—Illinois, Nebraska, and Tennessee—were selected as evaluation sites. A rigorous evaluation of each will greatly contribute to knowledge about what rural strategies work best for different groups of welfare recipients and other low-income families. It also will highlight lessons about the operational challenges associated with these programs, provide recommendations for improving them, and guide future WtW programs and policies related to the rural poor. (author abstract)

The enactment of the Personal Responsibility and Work Opportunity Act in 1996 signaled a dramatic shift in the nation’s approach to providing assistance to those among the country’s neediest populations. The concept of welfare in the United States shifted from cash assistance to economic self-sufficiency. Rural welfare populations possess unique characteristics and face unique circumstances that will affect their ability to achieve the requirements and intent of welfare reform. To build knowledge and research about effective approaches in working with rural populations, the Administration for Children and Families (ACF) awarded planning grants to ten states to help develop and study strategies to move rural families from welfare to work. Although there are extensive bodies of literature both on rural matters and on welfare-related matters, there is relatively little information about rural welfare issues. This report synthesizes available knowledge and, where appropriate, draws inferences from studies about the ways that welfare reform is likely to affect rural welfare to work strategies. (author abstract)

The Administration for Children and Families (ACF) funded a study to determine how local management of Temporary Assistance for Needy Families (TANF) programs has adapted practices to address changing needs and improve program results. To understand these local adaptations, the research team—which included staff from the Lewin Group and the Nelson A. Rockefeller Institute of Government—visited five local TANF offices to interview staff and collect data. The sites selected were among locations where field research was conducted several years ago in order to gauge changes since the early years of TANF implementation. The five sites were in Phoenix, Arizona; Macon, Georgia; Kansas City, Missouri; Newark, New Jersey; and Milwaukee, Wisconsin. Site visits were conducted between February and July 2006. This report presents major findings from the site visits. Several cross-cutting findings emerged from the study: (author abstract)

Rural low-income families trying to find jobs, maintain employment, and secure longer-term well-being face distinct challenges. In rural labor markets, jobs tend to be scarcer than in urban ones, and the jobs that are available more often involve minimum-wage or part-time work. Education and training opportunities and such support services as health and mental health care also are more likely to be difficult to obtain. Moreover, lack of public transportation common in rural areas can make existing jobs and services difficult for a dispersed population to access. This report chronicles the implementation experiences of the three demonstration programs participating in the Rural Welfare-to-Work (RWtW) Strategies Demonstration Evaluation. Mathematica Policy Research, Inc. (MPR) and its subcontractors, Decision Information Resources and the Rural Policy Research Institute, are conducting the evaluation with funding from the U.S. Department of Health and Human Services, Administration for Children and Families. Although it does not present findings on the impact of the demonstration programs - impact and cost-benefit research is still in progress - the report does share an early assessment of how the programs operate and the successes and challenges they have encountered so far. Researchers gathered information for the process and implementation study through in-depth site visits to each program (conducted between February 2002 and August 2003) and management information systems (MIS). (author abstract)