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Delivering Employment Retention and Advancement Services: A Process Study of Iowa's Post-Employment Pilot Program. Washington, DC: Mathematica Policy Research

Authors:

Abstract

Details findings from a study of a program that provides retention and advancement services to clients who obtain jobs but continue to receive cash assistance. Notes that a major challenge was low participation rates.
Contract No.:
MPR Reference No.: 8217-430
Delivering
Employment
Retention and
Advancement Services
A Process Study of Iowa’s
Post-Employment Pilot
Program
May 2001
Heather Hill
Gretchen Kirby
Thomas Fraker
Submitted to:
Iowa Department of Human Services
Division of Economic Assistance
Hoover State Office Bldg.
Des Moines, IA 50319-0114
Project Officer : Mohammed Amjed
Submitted by:
Mathematica Policy Research, Inc.
600 Maryland Avenue, S.W., Suite 550
Washington, D.C. 20024
(202) 484-9220
Project Director: Gretchen Kirby
A CKNOWLEDGMENTS
he authors are grateful to the many individuals who contributed to this process
study of the Post-Employment Pilot (PEP) Program. At the Iowa Department of
Human Services (DHS), Jennifer Beck was our project officer and offered
considerable guidance and input throughout the course of the evaluation.
Mohammed Amjed assumed Ms. Beck’s responsibilities toward the end of the study and
coordinated DHS reviews with those performed by individuals at the Administration for
Children and Families (ACF), U.S. Department of Health and Human Services. John
Williams at Iowa Workforce Development also participated regularly in discussions about
the planning and implementation of PEP. Other DHS staff involved in early program
planning and technical assistance meetings include Ann Wiebers and DeAnn Barnhill. Ms.
Barnhill and Robert Krebs also reviewed a draft of this report.
At the PEP sites, the local administrators and PEP staff helped coordinate our site
visits, made themselves available for telephone discussions with us, and were open and
helpful throughout the course of the evaluation. The administrators include Ethel Marshall
and Linda Gidley in Des Moines County, Sue Greenwood in Marshall/Hardin counties, and
Mary Warren in Pottawattamie County. Past and present PEP staff include Diane Poisel in
Des Moines County; David Kolbe, Heather Tremmel, Kris Elm, and Carol Meyer in
Marshall/Hardin counties; and Bev Machmueller, Betty League, Rita Shudak, and Craig
Wermimont in Pottawattamie County. Staff of the PROMISE JOBS and Welfare-to-Work
programs at these sites also gave their time to meet with us to discuss PEP and their own
programs.
At Mathematica, Gretchen Kirby directed this project. Ms. Kirby and Heather Hill
provided on-going technical assistance to the PEP staff members and conducted two rounds
of visits to the pilot sites. LaDonna Pavetti and Tom Fraker provided guidance throughout
the program planning and evaluation phases. Alan Hershey reviewed and offered helpful
comments on a draft of this report. Jackie Kauff participated in early planning meetings and
in visits to the PEP sites. Nancy Wemmerus directed the development of the PEP database.
Ning Dong designed the PEP database, provided the PEP sites with technical support, and
extracted and analyzed the data. Valerie Klein provided research assistance during the
writing of the report, which was edited by Carol Soble and Daryl Hall. Connie Blango
provided secretarial and administrative support.
T
C ONTENTS
Chapter Page
EXECUTIVE SUMMARY...................................................................................... ix
I. INTRODUCTION TO POST-EMPLOYMENT SERVICES IN IOWA.......... 1
A. The Post-Employment Pilot Program............................................................. 2
B. The Study of Post-Employment Services ..................................................... 12
II. PEP RECRUITMENT AND PARTICIPATION.............................................. 15
A. Referral and Recruitment Process................................................................. 15
B. Program Engagement ..................................................................................... 25
C. Client Perspectives on Recruitment and Participation Decisions ............... 28
D. Characteristics of Participants and Nonparticipants .................................... 30
III. PEP PROGRAM SERVICES................................................................................. 37
A. PEP Service Components.............................................................................. 37
B. Participant Involvement in PEP .................................................................... 43
IV. ASSESSMENT OF PEP SERVICES.................................................................... 51
A. Does PEP Increase the Services Available to Employed
FIP Recipients? ............................................................................................... 51
B. Do PEP Services Address Common Barriers to Work
Among Participants?....................................................................................... 54
C. What are Client Perspectives on PEP Services?........................................... 56
CONTENTS (continued)
Page vi
V. PEP STAFFING STRUCTURES.......................................................................... 59
A. Staffing Structures........................................................................................... 59
B. Staff Capabilities.............................................................................................. 65
VI. A FRAMEWORK FOR CONTINUING RETENTION AND
ADVANCEMENT SERVICES IN IOWA ...........................................................69
A. Systems: How to Create a Cohesive Program and Define
its Place Among Existing Services? ............................................................... 69
B. Targeting: Who Should Be Served?.............................................................. 72
C. Timing: When Should Services Begin and End?......................................... 74
D. Services: What Services Help Keep People Employed and
Move them on to Better Jobs?........................................................................75
REFERENCES........................................................................................................................... 79
APPENDICES
APPENDIX I: POST-EMPLOYMENT PILOT (PEP) GUIDELINES
APPENDIX II: PEP RECRUITMENT MATERIALS
APPENDIX III: PEP SITES’ POST-EMPLOYMENT PLANS
E XHIBITS
Exhibit Page
I.1 COMPONENTS OF IOWA’S FAMILY INVESTMENT
PROGRAM (FIP)........................................................................................................ 3
I.2 PEP PROGRAM AND EVALUATION TIMELINE................................................ 4
I.3 POPULATION AND CASELOAD CHARACTERISTICS OF
THE POST-EMPLOYMENT PILOT (PEP) SITES IN IOWA................................. 5
I.4 AGENCY RELATIONSHIPS IN ADMINISTERING THE
PEP PROGRAM......................................................................................................... 7
I.5 GOALS OF THE PEP PROGRAM........................................................................... 8
I.6 PEP PROGRAM FRAMEWORK AND FUNDING ................................................ 9
I.7 PEP ACTIVITIES UNDER PROMISE JOBS PROGRAM RULES........................ 10
I.8 SERVICES OFFERED BY THE PEP PROGRAM................................................. 13
II.1 PEP PROGRAM ELIGIBILITY AND TARGETING CRITERIA......................... 17
II.2 REFERRAL FORM FOR PEP SERVICES.............................................................. 19
II.3 PEP PROGRAM REFERRALS AND CLIENTS OFFERED SERVICES.............. 20
II.4 USE OF SPECIFIC METHODS FOR PEP RECRUITMENT................................ 23
II.5 PEP PROGRAM ENGAGEMENT......................................................................... 26
II.6 NUMBER OF CONTACTS AND ELAPSED TIME UNTIL
ENGAGEMENT...................................................................................................... 28
EXHIBITS (continued)
Page viii
II.7 DEMOGRAPHIC CHARACTERISTICS AT THE TIME OF
REFERRAL.............................................................................................................. 31
II.8 POTENTIAL BARRIERS TO WORK AMONG INDIVIDUALS
REFERRED TO PEP............................................................................................... 33
II.9 EMPLOYMENT CHARACTERISTICS OF INDIVIDUALS
REFERRED TO PEP............................................................................................... 34
III.1 SERVICES PROVIDED THROUGH STATE AND LOCAL JOB
RETENTION AND ADVANCEMENT PROGRAMS........................................... 38
III.2 SERVICES IMPLEMENTED BY THE PEP SITES ............................................... 40
III.3 EXTENT OF ACTIVE PARTICIPATION IN PEP ............................................... 44
III.4 FREQUENCY AND DURATION OF CLIENT
PARTICIPATION IN PEP ...................................................................................... 45
III.5 USE OF SPECIFIC METHODS FOR CONTACTS WITH
PEP CLIENTS.......................................................................................................... 47
III.6 AVERAGE LENGTH OF CONTACTS WITH PEP
CLIENTS (IN MINUTES)........................................................................................ 48
III.7 TOPICS DISCUSSED IN INDIVIDUAL AND GROUP MEETINGS
WITH PEP CLIENTS .............................................................................................. 49
IV.1 SERVICES PROVIDED TO EMPLOYED FIP RECIPIENTS
THROUGH THE PROMISE JOBS AND WELFARE-TO-WORK
PROGRAMS............................................................................................................. 52
V.1 PEP STAFFING STRUCTURES ............................................................................. 60
V.2 USE OF AUXILIARY STAFF IN PEP PROGRAMS.............................................. 64
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Administrative Rules. PEP must function according to the administrative rules of the PROMISE JOBS
Program and PEP guidelines developed by DHS.
Eligibility Criteria. Employed PROMISE JOBS participants are eligible for PEP services as soon as
they are employed (and for 60-day periods of unemployment). There is no time limit on the receipt of
PEP services as long as a client is receiving FIP cash assistance.
Recruitment Approach. At two of the three sites, participation in PEP is completely voluntary. The
third site requires clients to attend an initial meeting with PEP staff and comply with any PEP activities
included in their Family Investment Agreement.
Program Services. PEP’s core services (provided at one or more site) include the following: “soft skill”
training provided through group workshops, individual counseling and support, a support group,
emergency financial assistance, computer training, and job search assistance. Other services that PEP
sites have developed, but not fully implemented, include mentoring, job development, employer training,
and service referrals.
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1
The PEP evaluation plan originally called for combining the process study with analysis of key
outcomes among program participants. However, due to low participation rates in the program, MPR
determined that an accelerated process study would be most helpful to the state and the PEP pilot sites.
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A FRAMEWORK FOR CONTINUING RETENTION AND ADVANCEMENT
SERVICES IN IOWA
Systems
To be cohesive, a program should provide a comprehensive set of services based on clearly defined
program goals and supported by consistent and appropriately-trained staff.
Job retention and advancement services could be provided directly through the PROMISE JOBS
Program.
Linking a job retention and advancement program closely to PROMISE JOBS carries significant
trade-offs for the program.
Targeting
The PEP eligibility criteria could be broadened to include unemployed PROMISE JOBS clients,
families no longer receiving FIP cash assistance, or low-income families generally.
Mandatory enrollment makes recuitment easier, but it also alienates some clients; regardless of the
approach taken, rules and requirements should be clearly communicated to clients.
Not offering services to the entire eligible population, whether intentionally or not, makes recruitment
more challenging.
Timing
Many of the services that have potential to promote job retention and advancement may have more
impact if provided before initial employment.
If services are not available before employment, it is crucial that clients be contacted as soon as
possible after employment.
Clients who lose their jobs while participating in PEP might benefit from an extended period to work
with program staff on regaining and maintaining employment.
Services
Existing PEP service components would be complemented by more tangible services that address
the formidable barriers that many clients face to sustained and progressively better employment.
Emphasizing the development of a trusting client-caseworker relationship and developing an
assessment and referral process can help staff individualize services.
Innovative approaches to engaging working parents in retention and advancement programs include
making services family-oriented, offering incentives, and involving employers in the provision of
services.
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recipients who lose their jobs relatively rapidly may be even higher.
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2
Post-employment programs fit into a broader category of job retention and advancement programs,
some of which provide services before employment.
3
All three sites continue to provide PEP services to clients at the time of this report.
EXHIBIT I.1
COMPONENTS OF IOWA’S FAMILY INVESTMENT PROGRAM (FIP)
Time-Limited Assistance
The length of time a family needs assistance is determined by individual family circumstances, and a negotiated
end date is written into the Family Investment Agreement.
The total assistance period can be no longer than the federally prescribed 60 months, with exceptions due to family
hardship (criteria developed by the state).
Generous Earnings Disregard
Twenty percent of gross earnings is disregarded from eligibility and benefit calculations as a work expense
deduction.
After other deductions are applied, an additional 50 percent of earned income is disregarded from the benefit
calculation only.
Family Investment Agreement
(FIA)
Individuals negotiate a plan with their caseworkers that outlines their goals and responsibilities in working
toward self-sufficiency.
Participation in PROMISE JOBS
All nonexempt individuals must participate in PROMISE JOBS activities, including work, job search, work
experience, and some education and training activities.
Exempt individuals include those who are under age 16 and not parents, who are ages 16 to 19 who are not parents
and are attending elementary or secondary school or the equivalent level of vocational or technical school on a
full-time basis, who are disabled and unable to work, and who are not U.S. citizens.
Intensive services are provided pre-employment. Employed clients are contacted only to provide proof of
continued employment.
The Limited Benefit Plan (LBP)
Families that do not complete and sign an FIA or do not comply with its requirements are considered as choosing
the LBP.
The first LBP results in a full cash benefit termination until the individual(s) responsible for FIA activities signs an
FIA.
Subsequent instances of noncompliance lead to a minimum of six months’ full benefit termination continuing until
the individual(s) responsible for FIA activities signs an FIA and completes 20 hours of employment and training
activities.
Source: Fraker, T., L. Nixon, J. Jacobson, J., A. Gordon, and T. Martin. “Iowa’s Family Investment Program: Two-Year Impacts.” Washington, DC:
Mathematica Policy Research, December 1998; Fraker, T., and J. Jacobson. “Iowa’s Family Investment Program: Impacts During the First 3-1/2
Years of Welfare Reform.” Washington, DC: Mathematica Policy Research, May 2000; Iowa Department of Human Services.
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EXHIBIT 1.2
PEP PROGRAM AND EVAUATION TIMELINE
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EXHIBIT 1.4
AGENCY RELATIONSHIPS IN ADMINISTERING THE PEP PROGRAM
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4
This funding is available through a postFIP diversion program, which was launched at the same
time as PEP. Services through this program are available to clients for up to 12 months after they leave FIP
and
are intended to deter reapplication for cash assistance. None of the three PEP sites pursued this
additional funding at the time it was originally offered because they felt that development of a proposal
would be too time-consuming.
EXHIBIT I.7
PEP ACTIVITIES UNDER PROMISE JOBS PROGRAM RULES
Examples of What PEP Can Do
Provide individual case management
Provide supportive services such as child care and transportation assistance
Contract with third parties to provide specified short-term training to PEP participants and participants
employers
Provide emergency financial assistance to clients in the form of Family Self-Sufficiency Grants to help
obtain or maintain employment
Examples of What PEP Cannot Do
Provide financial incentives for participation in ongoing program activities
Provide services to an individual that could not reasonably be provided to PROMISE JOBS participants
on a larger scale
Contract with third parties to provide ongoing training to employers of PEP participants
What PEP Must Do
Include PEP participation in the Family Investment Agreement
Source: Site Visits; Iowa Department of Human Services, PEP Guidelines, June 2000.
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5
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6
The PEP Referral Form is Exhibit IV.1.
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1
Unless otherwise noted, the data presented in this chapter cover the period during which the PEP
Program was evaluated—October 1999 through July 2000—but not the entire period of operations. The
pilot sites began providing services in August 1999 and continue to provide services at the time of this
report.
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2
Before the start of the evaluation, no date was associated with this eligibility criterionPEP services
could be provided to any employed PROMISE JOBS client. A beginning date of employment was defined
for the purposes of the original evaluation plan, which included an analysis of client outcomes. This
criterion is less necessary for the process study.
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3
This calculation was made by comparing PROMISE JOBS data on the number of participants who
gained employment with PEP data (compiled on site-maintained databases) on the number of clients
referred to the PEP Program. The data were available for the period between September 1999 (when
employed clients became eligible for PEP) and July 2000.
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REFERRAL FORM FOR PEP SERVICES
DATE FORM COMPLETED: |___|___| / |___|___| / 19 |___|___| NAME OF PERSON COMPLETING FORM: ____________________________
Month Day Year
COUNTY:
Des Moines Marshall/Hardin
Pottawattamie
CLIENT ADDRESS, IDENTIFICATION, AND REFERRAL INFORMATION
1. Name of Client:
_____________________________________________
(First) (Last)
2. Priority for PEP Services
(optional
):
High
Medium
Low
4. Date of Birth:
|___|___| / |___|___| / 19 |___|___|
Month Day Year
3. Address:
____________________________
_________________________________________
__________________________________________
(City) (State) (ZIP)
5. Phone Number:
(
) - -
Area Code
6. Social Security Number:
|___|___|___|-|___|___|-|___|___|___|___|
7. State ID Number:
|___|___|___|___|___|___|___|___|
ADDITIONAL CLIENT INFORMATION
8. Number of Children in the Household:
|___|___|
9. Age of Youngest Child in the Household:
|___|___|months or |___|___| years
10. Education Level of Client:
No HS diploma/GED
Completed HS diploma/GED
Some college
Completed college
Some voc./tech. school
Completed voc./tech
.
school
11. Primary Means of Transportation for Work:
Own car Van pool
Rides with friends or relatives
Walk
Public transportation Don
t know
Other, specify: _____________________________
12. Type of Child Care Arrangements for Youngest Child:
Center-based care
Family/Group child care home
Friend or relative
Not applicable
/
Don t know
13. Does the Client Receive a Subsidy for Child Care?
Yes Don t know
No
14. Potential Barriers to Job Retention/Advancement:
Learning difficulties/limited English
Transportation
Chronic health problems or physical limitations
Substance abuse problem
Child Care
Child with a disability (mental or physical)
Domestic violence issues
Mental health limitations Other, specify: _______________________
EMPLOYMENT INFORMATION--PRIMARY JOB
15. Employer:
16: Job Title:
17. Date Client Began Working at This Job:
|___|___| /19 |___|___|
Don t know
Month Year
18. Is Health Insurance Provided by Employer?
Yes No Don t know
19. Hours per Week:
|___|___| hours
Don t know
20. Hourly Wage: $|___|___|
.
|___|___|
Don t know
OTHER EMPLOYMENT INFORMATION
21. Is this Client Employed in any Additional Jobs?
Yes No (if no, skip to question 23) Don t know
22. Hours of Work on All Additional Jobs Combined:
|___|___| hours
Don t know
23. How Many Months During the Past 12 Months has the Client Been Employed?
|___|___| months
Don t know
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4
The number of referrals to the PEP program in Pottawattamie County slightly exceeds the total
eligible population presented earlier because of an exemption granted to Pottawattamie in the early period
of program operations in order to accommodate their initial targeting criteria.
EXHIBIT II.3
PEP PROGRAM REFERRALS AND CLIENTS OFFERED SERVICES
Site
Referrals to PEP
Referrals Offered
PEP Services
PEP Offer Rate
Average Time from
Referral to Offer of
Services (in days)
Des Moines County 163 152 93% 4.6
Marshall and Hardin
Counties
174 163 94% 14.7
Pottawattamie County 356 66 19% 33.5
Total for All Sites 693 381 55% 13.5
Source: PEP database for each pilot site.
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5
For the purposes of the analyses in this report, recruitment contacts are those that occur before a
clients engagement in PEP. Section B of this chapter describes the definition of engagement in depth.
Briefly, a client is engaged once he or she has had one (two in Pottawattamie County) in-person meeting(s)
with PEP staff or received a telephone call(s) that is (are) deemed service-oriented. All contacts with
clients who never engage in the program are considered recruitment contacts.
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