., 
WORKING TOWARD JOBS

The Massachusetts

Employment and  Choices Program 
Training (ET) 
UWJCES. 
'0 
I1Vd:m 
OFFICE OF INSPECTOR GENERAL 
OFFICE OF EV ALVA TION AND INSPECTIONS 
MAY 1990  OFFICE OF INSPECTOR GENERAL 
The mission of the Offce of Inspector General (DIG) is to promote the effciency, 
effectiveness, and integrty of programs in the United States Deparment of 
Health and Human Services (HS). It does this by developing methods to detect 
and prevent frud, waste, and abuse. Created by statute in 1976, the Inspector 
General keeps both the Secretar and the Congress fully and cUITendy informed 
progrs 
about  or management problems and recommends 
COITective action. 
The DIG performs its mission by conducting audits, investigations, and 
inspections with approximately 1,400 staf strategically located around the 
countr. 
OFFICE OF EVALUATION AND INSPECTIONS 
This repon is produced by the Office of Evaluation and Inspections (DEI), one of 
three manor offces within the DIG. The other two ar the Offce of Audit 
Services and the Offce of Investigations. Inspections are conducted in 
accordance with professional standards developed by DEI. These inspections are 
typicaly shon-term studies designed to determne program effectiveness, 
effciency, and vulnerabilty to frud or abuse. 
This technical repon was prepared to describe the operation of the Massachusetts 
Employment and Training (ET) Choices program. This technical repon is par of 
a larger study which was conducted to describe the operation of a sample of 
matur, well-regarded and comprehensive work programs for AFDC recipients 
and the insights of the administrators of those programs. 
This repon was prepared under the direction of Emilie Baebel, Chief, Public 
Health and Human Services Branch. This project was lead by Suzanne Murrn 
that branch.  The Massachusetts 
Employment and  Choices Program 
Training (ET) 
Richard P. Kusserow

INSPECTOR GENERAL

OEI-12-89-0 1324  MAY 1990
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1111 
INTRODUCTION 
. . . . . . . . . . . 2 
PROGRAM PROFILE. 

THE STATE OF MASSACHUSETTS 
. 2

THE MASSACHUSETTS AFDC  . . . . . . . . . . . . . . . . . . . . . . . . 2

PROGRAM. 
THE MASSACHUSETTS AFDC WORK PROGRAM 
. 2

General Background. 

Administrative Issues 
. 3

Participation Issues. . 
. 5

Program Activities 
. 7

Appendix A 
. A -
OVERVIEW STATEMENT. 
Appendix B

SAMPLE DOCUMENTS  . B _.I'ii

This technical repon is par of a series of 
profies on the Aid to Famlies with Dependent 
Children (AFC) work programs paricipating 
project. 
in the  Working Toward JOBS 

Each profie begins with a categorized 
description of the subject AFC work program 
which is based on mail guides submitted by the 
program. Appendix A includes an overview 
statement wrtten by the program manager. It 
describes the program, its goals, philosophy and 
lessons leared. Appendix B is a sample of 
documents used to conduct the program. Each 
program administrator was asked to submit 
sample documents which they felt would be 
useful to States and counties developing JOBS 
programs. 
Data collection for this study was done from 
Apri to September of 1989. The information in 
the overview and technical repons is based on 
pre-JOBS work programs for AFC recipients. 
As these programs have convened to JOBS, 
they may have made some changes to meet 
JOBS legal and regulatory requirements. 
Where possible, we have noted the changes the 
program administrators anticipated at the time 
of our data collection. 
Massachusetts  INTRDUCTION  '''ill

THE STATE OF MASSACHUSETTS 
Population: 5 849,000

Main industres: services, wholesale/retail trade, manufacturing

First quarer 1989 unemployment rate: 3.4 percent

Average income for a family of four: $44 329

Number of people who are economically disadvantaged: 642 783

THE MASSACHUSETTS AFDC PROGRAM 
For Fiscal Year (FY) 1988: 
Total cost: $605 700,000 
Federal share: $270,000,000 State share: $335 700,000 
AFC 
cases: 84 300 (monthly average) 
75 percent in urban settings, 25 percent in rural 
Average age: 30 years 
education level: 50 percent have a GED or high school diploma 
Average number of children in grant: 2 
66 percent of AFC recipients have a child under 6 
length of spell on AFC: 25 and 1/2 months 
Case closures in FY 1988: 36, 
115 cases (duplicated) 
Case closures for clients who participated in work program (beyond registration): 
794 (unduplicated) 
THE MASSACHUSETTS AFDC WORK PROGRAM 
General Background 
Employment and Training (ET) CHOICES 
Name: 
Operating Since:  October 3, 1983

The underlying philosophy of ET is to give clients the education 
Program Philosophy: 

training, and support services necessar to help them choose work over welfare. 
The objective of the program is to provide clients with appropriate education and 
training which wil enable them to obtain priority jobs, leading to economic self-
sufficiency and ending their welfare dependency. A key to this has been the provi
sion of support services while in training as well as day care and medical 
coverage during the client s transition off welfare. 
Massachusetts  PROGRAM PROFILE  The concept of priority jobs was developed to increase the number of people 
placed in higher paying jobs. Higher paying jobs result in people staying 
employed and being self-suffcient, thereby avoiding the welfare rolls. The State 
Fiscal Year 1988 definition of a priority job was a full-time position, lasting more 
than 30 days and paying a minimum of $6.00 per hour. 
Program Administrator: 
Ronald T. Newcomb 
Director 
Employment and Training Program Management 
Department of Public Welfare 
600 Washington Street 
Boston, MA 02111 
(617) 574-0203 
Administrative Issues 
The Massachusetts Deparent of Public Welfare (DPW) administers ET state
Structure: 
wide. Each year the DPW establishes goals that specify the number of refeITals 
and placements each local offce is responsible for achieving and the local offices 
develop plans to reach these goals. 
The central State office obtains local offce input through regular meetings. Once 
a month the 57 diectors of the local welfare offices have a day long meeting with 
the State Welfare Commissioner. The local assistant directors for program also 
meet monthly in clusters which routinely include some detailed two-way 
communication about ET. 
(in millons of dollars) 
Funding: 
Federal  State  Total 
Program Funds: 
Supportive Services: 
Total: 
Case managers, located in each local office, have primar responsibility for ensur
Staff: 
ing that clients are provided the program and employment information needed to 
parcipate in ET. The case manager has an ongoing relationship with the client 
and acts as the client s advocate. The other members of the case management 
team are: the ET specialist, the child support specialist, the health choices advisor 
Massachusetts  PROGRAM PROFILE  (including health insurance subsequent to employment), and the housing 
specialist. 
The ET specialist is responsible for knowing all of the varous activities available 
under ET and helping the client decide which activity is right for them. One 
specialist described herself as a "walng, talng phone book." There ar 166 
specialists who spend 100 percent of their time on ET. 
Massachusetts monitors the effectiveness ofET by tracking the 
Success Measurements: 

AFC 
number of placements in priority jobs,  savings and increased revenue to 
the State.

Recordkeeping:  Two of the DPW' s computer systems ar used to track eligibilty, 
demogrphic, and ET parcipation and activity for all AFC clients. 
Services such as education, skills training, work supplementation 
Provision of Services: 

and job development and placement require facilties and expenise which DPW 
does not curntly have at its disposal. The DPW contracts for these services (see 
Outside Resources" below). Because DPW believes services to the poor should 
not be profit makg, they limit ET contractors to non-profit and not-for-profit en
tities. 
Contractors are selected by means of a competitive Request for Proposal (RFP) 
which is publicly advertsed. A commttee composed of representatives from the 
legal, budget, finance, audit and employment and training units convene to rate 
the proposals. 
All contrcts are performance based, with specific goals which must be met. 
Reimburement is directly tied to contractor results. 
The DPW diectly provides case management and supportve services. 
Many critical services provided as par of the ET program are 
Outside Resources: 

provided through contracts with other State and non-profit agencies which are su
pervised by the DPW' s ET Program Unit. The bulk of the ET program s job 
search, education, and skils trning services are cared out via an Inter
deparental Service Agreement (ISA) between the DPW and the Massachusetts 
Division of Employment Security (DES)  which provides job search services 
through the Employment Network, and the Offce of Training and Employment 
Policy for skills training and education through the 15 Service Delivery Areas 
(SDAs) and Prvate Industr Councils (PICs) statewide. 
Additional skils training services focusing on constrction and health professions 
are provided through a contrct with the non-profit Bay State Skils Corporation 
(BSSC). Assisted placement services (including supponed work) ar provided 
Massachusetts  PROGRAM PROFILE  through contracts with community based organizations. Voucher day care 
services are caIed out through an ISA with the Massachusetts Deparment of 
Social Services (DSS). Transition services, which are job-readiness activities 
focused on preparng ET paricipants for employment and helping them to 
maintan employment are provided through a contract with the BSSC. 
Parcipants may also enroll in up to two community college courses through a 
program operated by the State Board of Regents. 
The ET program has performed two in house evaluations. "Evaluation of 
Evaluations: 
the Massachusetts Employment and Training Choices Program: Interim Findings 
on Participation and Outcomes, FY 1984-1985" was completed in January 1986. 
It describes programmatic developments, structure, client choices, paricipation 
patterns, outcomes and implications. 
An Analysis of the First 25,000 ET Placements," was completed in August 1986. 
This used agency records to repon the demographics, wages, case closings, and 
overall impact of ET caused by the early placements. At the same time, a 
telephone surey of 808 of these placements was conducted. The survey focused 
on present employment, job retention, wages, medical coverage, welfare status 
and demographics. The analysis concluded that two-thirds of ET placements 
were in full-time jobs paying $11,000 per year. Eighty-six percent of ET 
placements who left the caseload were stil off 1 year later. During this period 67 
percent of full-time placements were off welfare 1 year after employment. This 
has risen to 75 percent in the past 2 years. 
The Urban Institute is cUITently conducting an evaluation of ET. Their 18 month 
evaluation wil focus on the effectiveness of ET and what activities work best. 
Abt Associates is conducting a 12 month follow-up study of FY 1986 and FY 
1987 ET job placements. 
Participation Issues

CUITently there are 36,219 clients registered for ET. In FY 
Participant Descriptors: 

1988,  100 clients paricipated in an ET activity. An additional 5 600 partici
pated in assessment and career planning only. 
Seventy-five percent of ET paricipants live in urban settings, the other 25 percent 
live in rural settings. Slightly over 6 percent of ET participants are under age 20; 
29 percent are between 20 and 25; 21 percent are 26-29; 33 percent are in their 
30s, and 11 percent are 40 or over. Thirty-nine percent have less than a high 
school diploma; 38 percent have a high school diploma or equivalent; and 23 
percent have some post secondar education. There are usually 1-2 children in 
Massachusetts  PROGRAM PROFILE  the grant of a paricipant. This is slightly less than the general Massachusetts 
welfare population. Fifty-eight percent have children under 6 
years of age. 
The target groups are: 1) long-term recipients (defined as having a prior 
Target Groups: 

welfare history or on the caseload over 2 years); 2) public housing residents; 3) 
the Hispanic population; and 4) pregnant and parenting teens. 
Contractors must demonstrate a sensitivity to and an 
abilty to help targeted 
clients overcome their paricular barers to employment. Long term recipients 
and public housing residents have major barers: a lack of recent work and 
isolation. Hispanic residents face special language and cultural barers which 
must be considered an important par of any plan leading to their economic 
self-sufficiency. 
Pregnant and parenting teens are served by a separate set of contractors who zero 
in on their special needs caused by an inteITuption in education and/or work 
expenence. 
All non-exempt clients are required to register for ET 
Mandatory Activities/Sanctions: 
but paricipation is voluntar. No sanctions were applied in FY 1988. 
ar 
All ET paricipants  volunteers. The DPW encourages AFDC recipients 
Volunteers: 
to join ET at entr and redetermination. They stress that clients wil receive ET 
services which wil result in a good job with labor market 
mobility. Special care 
is taen to assure clients that they wil receive needed support services. 
In addition, the DPW maintans an extensive outreach program including direct 
mailings (which can be tageted to special populations), posters, newsletters, 
brochures, and community events such as job fairs. The DPW has an in-house 
marketing staff which develops the marketing instruments, tests them on focus 
AFC 
groups of  recipients, and oversees their distrbution. Past campaigns have 
featured: success stories, ET CHOICES, and Ask Barbara (the DPW 
commissioner). The CUITent campaign is called "My Mom and ET." This 
campaign approaches welfare recipients through the one thing Massachusetts 
market research found them to be proud of, their children. Campaign materials 
include coloring books, calendars, and posters. 
The ET contractors also recruit through direct media advertising. 
In calendar year 1988, ET was responsible for 2355 part-time 
Employment Placements: 

or non-priority placements and 10,677 full-time, priority jobs. A total of 933 of 
those entering par-time employment or non-priority jobs were able to leave the 
welfare rolls. The 7,861 of those paricipants entering priority jobs had their 
cases closed and they remained closed at the end of FY 1988. Most placemen 
are in the service industry, word processing or other secretarial positions, or pro-
Massachusetts  PROGRAM PROFILE  fessionaVmanagerial (e.g., health and social service managers). Average starting 
hourly wage is $6.75. 90 percent of all placements remain employed for 30 days. 
78 percent of all placements remain employed for 6 months. Approximately 25 
percent ofFY 1988 priority job finders did not leave or have rejoined AFDC, the
priar 
reasons being day care and health care problems. 
Program Activities 
Each program administrator was asked to describe two services which they con
Models: 
sider models. The ET program administrator chose the Dimock Community 
Health Center and Home Health and Child Care in Brockton. 
Dimock Community Health Center  courses are housed in a 
s skils training 
former hospital building which is located in the hear of Boston. It is easily 
accessible by public transportation and provides on-site day care. All programs 
are conducted during school hours: 5 and 1/2 hours a day, 5 days per week. The 
ar: 
programs offered  Surgical Technician (43 week course), Central Supply (14 
week course), Third Pary Biler (16 week course), and Mental Health Counselor 
(22 week course). The average wages of program graduates working in these 
fields ranges from $7.25-$10.50 an hour. 
Home Health and Child Care in Brockton (HCC) formed the "Child Care 
Directors Connection" - a coalition of support groups for directors of center-based 
programs in the Brockton area. One purpose of the group is to help generate 
positive publicity about child care and early childhood education. In January 
1989, HHCC launched a provider recruitment campaign which included 
designing two bilboards on main thoroughfares in Brockton and Plainvile. The 
bilboards read: "TomoITow is in our hands: become a child care provider. 
The HHCC has also provided leadership and technical assistance in establishing 
teen parent programs in the area. HHCC has appeared on cable several times this 
year to market/inform the public about their services. 
Figure 1 shows the general sequence of activities for participants in ET. 
Sequencing: 
What follows is a description of the program activities avail
Program Activities Listing: 

able under ET. Cost and paricipation figures are for FY 1988. 
Massachusetts  PROGRAM PROFILE   
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JLOW C Education
Adult Literacy Programs
English as a Second LanguageAdult Basic Educa tlon Community College  Training Vocational Education
Skills Training
(JTPA/Bay State Skills Corp.  Assisted Placement*  (On-the-Job Training)  ob Development/Placement  epartment of Employment Training) 
f J D
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C ais es

T Appr rvic tion

HOI egistrationl  Support SeDaycare
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C  
I Orientation 
Clients are oriented on the program activities and services available and their 
Activity: 
rights and responsibilties while in the program. Orientation begins with the 
AFC 
case manager who tells the recipient what ET is, and encourages her to 
meet with the ET specialist. The ET specialist wil tailor the orientation to the 
needs of the recipient, asking questions as well as providing information. 
Provided by the local office employment and training specialist. The ini
How Provided: 

tial orientation is conducted though oral as well as written presentations. 
Participants: 43,700. 
Assessment 
An initial appraisal of the client s work history, educational level, barers to 
Activity: 
employment and service needs is made. This information is primarly captured 
on the Family Independence Plan form. For the most par, clients who are unsure 
of their diection are refeITed to one of the State s 15 Service Delivery Areas for a 
more in-depth assessment of their interest, aptitude and academic achievement 
level. By and large clients who are directly refeITed to a program activity receive 
more program specific testig of their academic achievement level, and/or apti
tude and/or interest level in order to be placed at an appropriate level. 
The initial appraisal is done at the local offce level through interviews 
How Provided: 

and the completion of information forms. An educational and skils assessment 
cared out through interviews, completion of appropriate forms and the use of 
varous testing instrments. If a detailed career assessment is needed the client is 
generally refeITed to a contracted service. 
Participants: 43,700. 
Employabilty Planning

The employment plan consists of an employment goal for the client, detail of in
Activity: 
cremental steps to be taken to reach stated goal, identification of any barrers to 
employment and support services needed. 
Developed by the client and local office worker. The employment plan 
How Provided: 

is developed through interviews and the completion of appropriate forms. 
Participants: 43 700. 
Massachusetts  PROGRAM PROFILE  . '
Supportive Services 
Day care: voucher day care, contracted day care, independent day care. Trans
Activity: 
porttion: reimbursement up to $10.00 per day for actual expenses. 
Voucher day care: Information and refeITal, provider biling and reimbur
How Provided: 
. sement provided by contractors. Day care services provided by licensed and reg
istered center-based, school-age programs, and family day care providers  both 
independent homes and members of Famly Day Care Systems. 
services provided by licensed and registered center-based and 
Contracted day care: 

progrms and Family Day Care Systems under contract with the State 
school age 
Deparent of 
Social Services. 
Provided in family day care homes, by relatives, and in the home
Independent day care: 

of the child.

client may use private automobile or public transportation. 
Transportation: 
There is an average monthly caseload of 10, 310 children in day care.
Participants: 
Training and work related expenses wil be a new service under 
Anticipated Changes: 
JOBS. 
Basic Education And High School Equivalency 
The following services are provided: recruitment, assessment of current educa
Activity: 
tional skill level, adult basic education, English as a second language, high school 
equivalency, group and individual counseling, information and refeITal, program 
referral and job placement. 
In FY 1988 the DPW funded basic education and high school equiva-
How Provided: 

lency services through four major sources: (1) direct educational contracts with 
community based providers; (2) direct contracts with community based providers 
for services for pregnant and parenting teens; (3) an interagency agreement with 
the State ITPA agency to contract for education and training services with the 
State s 15 SDAs; (4) an interagency agreement with the State community and de
velopment agency to contract for outreach and education services with the State 
20 largest public housing authorities. The ET participants also accessed educa
tion services which were not supported by ET funds through programs offered by 
adult education centers, regional vocationaVtechnical schools and community col
leges. 
Massachusetts  PROGRAM PROFILE  Services were delivered through a mix of services, including classroom 
instrction, computer assisted instrction, one-on-one tutoring, group and 
individual counseling, and information and refeITal services. 
800. Target groups for these services were those with limited English 
Participants: 
language proficiency, public housing residents, and pregnant and parenting teens. 
Post-Secondary Education

Activity:  Vouchers are provided for ET parcipants for whom post-secondar education 
is deemed an appropriate activity. The vouchers can be used to enroll in up to 
two introductory courses at any community or State college. Further paricipation 
in post-secondar education is not supported with ET funds. Community and 
State colleges are also reimbursed for the cost of necessar counseling and sup
portve services. 
The DPW contracts with the State Board of Regents to provide this ser
How Provided: 
vice. The service allows ET participants to gain initial access to existing post-sec
ondar 
courses of study. 
700. This service is targeted to those AFDC clients whose employment 
Participants: 
goal requires post-secondar level education. 
Job Skils Training 
Provides ET paricipants with the technical and professional vocational skills to 
Activity: 
qualify for targeted occupations. Job readiness, counseling, information and refer
ral, and job development, search and placement services are normally included in 
job skils training programs. 
How Provided:  These programs are conducted through classroom instrction, hands-on 
training, job shadowing and job site visits. Provided through agreements with the 
State s ITPA system, Bay State Skils corporation, and direct ET contracts with 
community based providers. 
900. Of paricular value to AFDC clients who have 
Participants:  CUITent educational 
skill levels equivalent to completion of eighth grade and have a clear occupational 
goal. 
000 priority jobs (includes a small number of participants of education ser
Placements: 
vices). These paricipants may also have received job development services be
fore entering employment. 
Massachusetts  PROGRAM PROFILE  Job Development/Job Search/Job Placement 
A full spectrm of job development, search and placement services are offered 
Activity: 
as par of the ET program. This includes: identification of job openings, 
job read
iness, individual and group job search services, assistance with securing place
ment and follow-up after placement. 
To deliver this service, the State s employment service has established 
How Provided: 

employment network offices, with employment network staff collocated in some 
local welfare offices. Services are provided though group and individual job 
search. 
Participants:  15,500. Job placement is tageted to those clients who are job ready and 
who have recent work experience and strong basic skils. 
Placements: 13,000. 
On-the-Job Training 
The ET parcipants receive on-the-job training (OIT) through the 15 JTPA 
Activity: 
SDAs. The program is operated under Federal ITPA guidelines. 
Traning is provided, on-the-job, by employers.  The arrangements for 
How Provided: 

OIT ar made by the State JTPA SDAs. 
Participants:  Slightly less than 1 000. ,Especially appropriate for those who are ready to 
work but would benefit from gaining specialized and/or technical skills. 
Work Supplementation

During work supplementation, the ET paricipant is hired by the contractor and 
Activity: 
out-stationed for a period of 2 to 6 months to worksites (in jobs created by the 
contractor) in both the public and private sector. 
Provided by contractors using a supported work model. Work experi
How Provided: 

ence is provided by worksite companies in both the public and private sectors. 
100. This activity is appropriate for long-term recipients, public housing 
Participants: 
residents. 
Placements: 600.

Massachusetts  PROGRAM PROFILE  To develop a more flexible service, the job readiness and short 
Anticipated Changes: 

term training offered as par of the supported work program wil be redesigned 
and become separate components which wil permt client flow through to sup
ported work or employment. 
Post-placement (Follow-Up) Services 
For the most par, clients who have been refeITed to an SDA or program activity 
Activity: 
or have been placed into employment are followed-up incrementally depending 
on the length of stay at anyone of these activities. 
DPW local offce staff follow-up on client progress through telephone 
How Provided: 

contacts with the client or appropriate program. 
All clients receive follow-up services post-placement. 
Participants: 
Case Management 
Case managers have an ongoing relationship with their clients and provide 
Activity: 
them with introductory ET information. Case managers coordinate the activities 
of the other case management team members and initiate a case conference with 
the case management team, and the client, as appropriate. 
Case managers work parcularly closely with their team s ET specialist to ensure 
that: (1) clients ar being provided the opportnity to paricipate in ET; (2) the 
necessar support services ar being provided; (3) coordinated efforts are being 
made to identify and remove any barers to paricipation, and (4) case 
conferences occur at appropriate points. 
This service is provided by I?PW staff working together and meeting 
How Provided: 

with clients. 
Each AFDC recipient is assigned a case manager.
Participants: 
Mcssac husetts  PROGRAM PROFILE  Appendix A 
AN OVERVIEW OF ET CHOICES PROGRAM 
The Employment and Training (ET) Choices program began in October 1983. 
ET is the Governor s program of employment and training services for welfare 
recipients and is the cornerstone of a strategy to extend economic opportunity to 
every needy citizen in the Commonwealth. The ET program is based upon the 
philosophy that welfare recipients should have the same employment 
opportnities available to other people, and the conviction that they wil make use 
of those opportunities if the necessar support services are available. Given this 
clients wil choose work over welfare. ET is committed to 
opportnity, welfare 
providing a route out of povert by overcoming the barers to employment. 
These barers include: iliteracy; an inabilty to speak English; insufficient 
education; a lack of marketable skils or work experience; the high cost and 
inadequate supply of day care; and the high cost of medical coverage. ET is 
successful because it offers clients a wide may of services to choose from in 
overcoming these barers. These include job placement, skils training, 
education, career planning, supported work, day care, and transportation. 
We expect at least 12 000 AFC participants to be placed in quality jobs in FY 
1990. 
ET is designed to encourage paricipation by thousands of AFDC recipients who 
have diverse needs. Many of them do not need job placement assistance and find 
jobs on their own. This group is not counted in ET placement figures. However 
likely to need help in achieving the goal of economic 
certin recipient groups are 
independence, and are therefore targeted for participation. These target groups 
include: 
recipients of Hispanic origin 
public housing residents, 
pregnant and parenting teens, 
recipients who have been on the caseload 2 years or more or have a 
prior history of welfare assistance. 
Massachusetts  OVERVIEW STATEMENT  A  Each client who enters any component of the Employment and Training program 
can expect to receive a continuum of services tailored to their individual needs. 
furer 
They can  anticipate employment with benefits that wil allow their family 
to break the cycle of poverty. 
ET works because it addresses the barers to employment that welfare recipients 
face. Some successful program initiatives include: 
Improving Education Attainment 
Approximately 50 percent of AFC recipients have not finished high school. 
The lack of a high school diploma can be a major barer to success in jobs with 
wages suffcient to support a family. In order to compete in the labor market, ET 
parcipants often need adult basic education courses and General Equivalency 
progrs 
(GED)  to provide them with the skils necessar for jobs that lead 
economic independence. 
Improving English Language Skils 
Since 1983, the number of Hispanic famlies on AFDC has increased by over 32 
percent, to 24 percent of the caseload. Lack of English language 
skils and low 
educational achievement among Hispanics severely limit the job opportunities 
available to them. Both English as a Second Language (ESL) and adult literacy 
programs provide the intensive instrction necessary to ensure Hispanic clients 
the opportunity to improve their English language skils. 
Providing Marketable Skils

tu 
Most families who  to public assistance do so because of a major change in 
famly circumstaces, such as divorce, separation, death, or birth of a child. 
Many single parents suddenly find themselves having to support their families 
financially for the first time. Yet, because many of them had previously remained 
at home to care for their children, they lack the work experience and skills 
necessar to compete in the job market. The problem is even more acute for 
individuals who have been on the caseload for long periods of time. Skills 
training, basic education and supported work/assisted placement programs can 
provide individuals with the additional skils which they need to re-enter the
competitive labor market. 
Providing Affordable Day Care 
More than 50 000 familes, or 65 percent of AFDC families, consist of a mother 
and her children, under the age of 6. Clearly, in order for these parents to work 
day care must be available. Day care, however, is both expensive and diffcult to 
find. Day care subsidies are one way of providing a mother with the opportunity 
Massachusetts  OVERVIEW STATEMENT  A - 2  to enter the workforce. Voucher day care has enabled thousands of AFDC 
recipients, including those with very young children, to find and remain in jobs. 
In fact, because day care is available through ET, the voluntar paricipation of 
mothers with children under six has increased from 18 percent, when the program 
began, to 58 percent in FY 1988. 
Improving Health Care Coverage 
While on AFC, clients receive health care services through Medicaid. One 
the most serious obstacles to employment for many recipients is the prospect of 
Deparent. 
losing the medical services provided by the  Unless a newly 
employed client receives health coverage through her employer, she may be faced 
with the diffcult choice of foregoing necessar medical treatment for herself and 
her children, or paying large out-of-pocket medical expenses which can leave the 
family worse off financially then they were when receiving welfare. To help 
overcome this barer, health coverage through health maintenance organizations 
and other managed care programs is avaiable for up to 12 months to ET 
graduates who do not receive employer-sponsored health insurance. 
As a result of our experience, we have initiated several management strategies 
which have had a significant role in the success of the ET program. 
Local Offce Accountability 
Each fiscal year the Deparent establishes ET goals that specify the number 
of referrals and placements each local offce is responsible for achieving. 
This system of local offce 
accountabilty has been instrumental in 
motivating local office staff because it directly ties individual local office 
performance to the overall success of the agency in meeting its goals for ET. 
In FY 1986, for the first time since the ET program began  local offce
every 
met or exceeded its ET goals. 
Performance- Based Contracting

With performance-based contracting, contractors must enroll and place a 
minimum number of clients just to recover the costs of running their 
if they meet negotiated job 
programs. They receive full payment  only 
placement and performance goals. In FY 1989, the Department toughened 
performance standards by instituting a higher wage floor for job placements. 
Contractors received payment only for full-time placements whose starting 
wages met or exceeded the new wage floor and only after they remained on 
the job at least 60 days. In addition, the Deparment s performance-based 
Massachusetts  OVERVIEW STATEMENT  A - 3  contracts contain provisions that give contractors incentives for placing 
individuals in jobs with wages that substantially exceed these floors. 
Performance-based contracts ensure that resources are well spent and that 
program goals wil be met. 
Collaboration with Other State Agencies 
The Deparent has agreements with several State agencies to provide 
services to welfare clients. Agencies paricipating in ET include: 
Deparment of Employment and Training; 
Bay State Skils Corporation; 
Deparment of Social Services; 
Board of Regents; 
Deparment of Education. 
By coordinating the services provided by these and other State agencies, ET 
has expanded the opportunities available to welfare recipients throughout the 
State. Interagency agreements allow the Department to tap into the expertise 
of other State agencies, thereby avoiding duplication of services. In an effort 
to provide continuity among services, staff from the agencies are often 
collocated in welfare offices. This way the ET paricipant has better access 
to the full range of employment services. The Deparment built on this effort 
in FY 1989 by consolidating most job placement, training, and education 
activities into a single interagency agreement with the new Department of 
Employment and Training. 
We recommend that other States consider these management strategies as 
they design and/or redesign their Employment and Training Programs. 
Massachusetts  OVERVIEW STATEMENT  A - 4  Appendix B

Massachusetts  SAMPLE DOCUMENTS  1188-02-138-FI P (Rev. 11/88)  Case Mana Barriers:  12 months  Goal: 6 months  Current Situation:  Specialist  suppo lld  Barriers:  12 months  Goal: 6 months  Current Situation:  Specialist  Q:mPloyment an The Case Man ONE YEA 01 PublIC Wellare Your DePMmert 
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IALIST  Case Manag arriers:  2 months  oal: 6 months  urrent Situation:  Specialist  usln arriers:  2 months  oal: 6 months  urrent Situation:  SpeCialist  CholceajiiCf::: N:::::::::::::::::::::::::::::::::;::::  $&... . ..., ...... ................ .::::::::::::::::..::
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  ET SPECIALIST  gglll::i1:11 I::itt :!:!:::::;::::!::::::::m :i::!:::: ::i:::::::::;:::::!!!:::::::::::::\1 ::i:::i::i:::::Rg::::::::::::::::::I:::::Chek here "you woud like more InfnnUon about ET CHOIESI  What type of training or education interests you?  tys What of jobs interest you?  Explain: Explain :  ne No 0 Yes 0 Do you Do you need help with transportation? help with child care? Ages of children Yes  Number of children  , City/Zip: Telephone Number:  Address: Social Security Number: Nae:
Enrnee  I have read the ET Rights and Responsibilties in my .Your Right To Know. booklet. Yes
 Other Enrollee Applicant' s Signature s Signature  I wish to enroll in ET. Applicant Other Enrollee  EMPLOYMENT AND TRAINING (ET) CHOICES ENROLLMENT  Do you or the other parent in the home have a physical or a mental YesD t- D incpacity that reduces caretaking or employment abiliies?  If you have recently left a job, what problems did you have that made it difficult for you to continue working? Explain:  No Has anyone in your household wh and whn? parcipated in ET before? Yes If yes,  you participating. ca ear a paycec . Transportation Allowance while while learning a skin; . Supported work - a friendly, supportive job placement where . Help in locating and paying for child care; and  bak in largest job New England; Training Partnership Act (JTPA) funded programs, th . Help in finding a good job through the Employment Network. Other opportunities such as college and Job health care and computers; equivalency degree (we even pay the test fee!);. Skils training in a variety of high growt ocupations, such as. Basic eduction to help you earn your high school . Planning for the career of your choice;  ET offers you free include: servs, which may  that can increase your income through part-time or full-time work.  ET can help you get the training and preparation necessary to find a job. ET is the program 10 ent and Tralnin Em CHOICES Pr ram  ::!g ~~~!:!!::;::
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  ..............................  :.... p.

What Is ET? 
Uvuu.. 
IST 6L&"" 
Success Stories p.

. ET is ajob paying $12,000 a year. That's over $230 a week! 
. ET is control over your life.

. ET is buying yourself a present.

. ET is respect.

. ET is a bettr life for you and your children.

ET Provides: 
o childcare vouchers  o job placement 
o education  o counseling

o job training  o trnsporttion allowances 
ET is short for Employment & Training CHOICES. It is a group of ser
vices sponsored by Your Departent of Public Welfare that can help you 
learn a skill and/or find ajob that pays you enough to get off Welfare. 
With ET  are in control. You choose which services to use, which skil 
you 
to learn and what job to take. 
There are four parts to the ET program: The Employment Network 
Supported Work, Education and Training, and Career Planning. Depend
ing on your needs , you may use any or all of these services. The choice is 
yours .  ET Help 
Me? 
How Can 

ET wil help you find ajob, it  it wil help you 
s tht simple.  How
depends on what services and programs you need to reach your 
of the four free ET CHOICES is right for you: 
goals.  One or more 
The Employment NetWork, Support Work, Education and Train-
goo 
ing, Career Planning. This questionnaire wil give you a  idea 
which of the four choices might help you most. 
I have never worked.

I would like to do work I've done before.

I need new skills for the job I want.

I am ready to work tody.

I need time to get back into the work routine.

I don t know what kind of work I want to do.

I have the skills I need for the job I want.

I didn t like any of the jobs I've had. 
I need my GED for the job I want.

I'm nervous about working again.

All I need is help finding ajob.

I want to continue my education.

It's been a long time since I've worked.

I'm wiling to go to training for a few months.

I know exactly what I want to do.

I want to work, but I don t know where to start.

Tota 
Add up the number of marked boxes for each column. Your answers wil help you find out how 
ET can help you.  To find out what your scores mean turn to the back page.  . "
Over 30 00 people have been helped. by ET CHOICESe 
Here s what some of them have to say about ET. 
I have always wanted to get into electronics, but I 
never finished high school so I didn t know I could do 
this. I'm proud of myself. I did it for my children and 
myself. " 
Carmen C. 
On Welfare , I felt trapped. It was like living in a cage. 
I feel great, like a new person. ET CHOICES opened 
the door out of the Welfare trap. 
Doris L.

I'm earning nearly three times what I got on Welfare. 
I have been able to move into a new apartment, take 
my son on a vacation, and buy a car. 
Dawn L. 
I think ET is a real good program. It's like having 
training wheels on a bicycle; if you have any prob
y lems
, they re there. 
Madeline R.

ETworks!

It worked for them and it can work for you.

Keep reaing to find out how.  Ma 
Plans

Here are some things you should do 
before you sign up for an ET CHOICE. 
Talk to your Caseworker. Signing up for ET 
is an important step. Make sure this is the 
right time for you to do it. 
Talk to an ET Worker. Before your appoint
ment, make a list of questions you want to 
ask. Then don t be afraid to ask them! The 
What About..." section in the back of this 
booklet can give you some ideas about things 
you ll want to know. 
Talk to your famy. This wil affect them 
too. You wil need their support to make it 
work. 
Stat designing your ET Action Plan. 
Ask your ET Worker for a copy of the ET 
Owner s Manua to help you get started. 
When you re sure-GO FOR IT!  1 .

The Choices

If you are job ready 
The Employment Network 
If you ve got the skils you need for the job you want, the professionas of 
The Employment Network wil help you get it. They are specialists with 
the Massachusett Division of Employment Security and have the largest 
job bank in New England. They wil help with your resume and give you 
free use of telephones and copy machines. They wil also help you prepare 
for the work of looking for a job-including workshops on interviewing 
and on dressing for work. 
or more years 
If you have been on welfare for 
years 
and haven
t worked for 
Supported Work 
This service places you in a job with a business or company. Your salary 
is initially paid by the ET CHOICES progra. You receive on-the-job 
training and a chace to brush up on your skills while performing a job 
necessary to the company. After the support work training, you wil 
become a regular employee of the company with the same salary and 
benefits as their other employees. 
Trai 
If you want to lEarn a job skill 
Education and 
This part of ET can help you get the skills training or education you need

to quaify for the kind of work you d lik to do. Businesses, schools, and

the government are working together to provide valuable job training and

education tht match tody s jobs. This includes improving your English

or getting your GED. There are may, may different types oftraning

available; your ET Worker can tell you what programs are available where

you live. 
Plan 
If you want to discover what kind of job is right for you 
Career 
Together with a career planning counselor you wil find out what your 
talents , skills , and interests ar. The counselor will help you decide what 
careers are right for you based on your skills and interests. With the coun
selor s help you wil be able  o put together a plan tht can get you where 
you want to be.  "..: :':..::- . , . 
Wht 

What about chidcae? 
Childcare services ar available to  all  ET participants who need them
Almost all of the cost is paid by ET CHOICES. A childcare coun
selor wil help you choose the appropriate childcare option and facility 
from a list provided for you. All the childcare homes and centers have 
been approved by the Offce for Children. You can even keep your 
child in daycare through the voucher system for one year after you get 
your job.

What about transporttion? 
ET covers the cost of transporttion for you and your children in day-
care. no matter which ET program you participate in. 
Wht  grt? 
about my 
Your AFDC grat and your Foo Stap allowance wil not be affected 
by your ET paricipation. These benefits wil not change until you start 
earning money. 
What about Medicaid? 
Your Medicaid benefits stay the same as long as you continue to reeive 
AFDC. If you leave AFDC because of job eaings, you wil continue 
to receive your Medicaid benefits for at leat 4 months. However, if 
you enroll in a Health Choices program, you wil receive fre heath 
car for up to 12 months. 
What if I mae a mistae in my choice 
:5 ,. 0	 No problem. Remember you  ar in control. You decide whl  h Job to 
take or what training progra to enter. You can say .. no " II) ,m '  por
tunity that doesn t meet your nees. ET is a "no obligatl(m " rn)gram. 
What about getting my GED? 
Through the Education and Training choice you can take classes to 
prepare for your GED, including any help you might nee with reing 
and basic math skills. ET wil also pay the GED exam fee.  About

What about college? 
The ET CHOICES program wil pay for two courses at any State or 
Community College in Massachusetts. This wil give you a chance to 
see if college is for you. 
What about clothes for my new job? 
When you get ajob through The Employment Network you wil receive 
a clothing bonus 01'$100 so you can look your best on your new job. 
Where wil I get my training? 
The ET program contracts for skills training at vocational schools, 
training institutions, and colleges all over the state. You wil be among 
people who are interested in the same kind of work, including other 
ET enrollees and people who are there on their own. 
What about a time limit? 
There is no time limit. Depending on the training program you select, 
you may be ready for ajob in a few weeks, while other programs may 
take several months. 
How much money wil I earn on my new job? 
The average starting salary for ET graduates is $12 00 a year-more 
than twice the average AFDC grant. In addition , most of the jobs peo
ple find through ET have excellent health benefits and paid vacations. 
What if I have problems or questions? 
Your ET Worker and your Caseworker are there to help. 
Does the ET Program work? 
Yes. Since it started in 1983 , over 30,000 people have found jobs 
through ET.

If you have any other questions or are interested in registering for ET. 
call your local Welfare Offce and make an appointment with an ET 
Worker.  JOUJeAOO 'S!)!8)na 'S leell:)!
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Scorin " How Can ET Help Me?" on page 2 
What your score means: 
If your highest score is for: 
You are ready for The Employment Network. You just need  You are probably best suited for the Supported Work choice, 
some help learning about job openings and how to be the one  Supported Work will help you ease back into the work routine 
employers hire.  without the pressures that come with starting a new job, 
Your starting point wil probably be Education and Training,  Your most immediate need is for Career Planning. Your coun
where you can get the skils and/or education you need to  selor wil help you determine what your next step is and which 
fulfill your goals.  of the other services would give you the most assistance. 
The choice tht you score highest in is  not  the only choice you might make, This is just the choice that is  likely  to help you the 
most, based on your answers. 
This questionnaire is just to give you an idea of what ET services you can take advantage of. Your ET Worker is the person who 
wil be able to sit down with you and go over your goals and desires in great detail,  \. .:
Departent of  TARGETED JOBS 
Employment 
TAX CREDIT 
and Training  PROGRAM 
SAVE UP TO $2,400 FOR EACH PERSON YOU HIRE THROUGH

THE TARGETED JOBS TAX CREDIT PROGRAM

Margaret, a  welfare recipient, is hired by  five TJTC workers received a tax credit of  to the TJTC Unit on or  before the day the

XYZ, Inc. Through her new job, Margaret  $12,000 (Your net savings will depend  employee starts work.  We will then send 
becomes economically self-sufficient  your tax bracket and individual tax situa you a kit that wil help you determine if 
and XYZ benefits in two  ways  XYZ  tion; your tax specialist can tell you more  the candidate is TITC eligible. You and 
receives  qualified applicant and  $2,400  about your savings potentiaL)  the employee complete the simple appli
cation process and mail it back to the 
tax credit.

How Can I Find Qualified EmployeesJ  TjTC Unit. 
A furniture company hires Michael for 
 Your local D.  T. Opportunity Job Center 
summer  job. Since Michael is  an  eco wil help you find qualified candidates  Eligible applicants include: 
ncoommipcaanlyl yi sd ieslaidgviabnltea ged  for a  $te7e,2n00a gteaxr  tchreedit  worhdoe ra aren dT JpTreCs cerleigeinbl ea.p Wpliec atanktes  tyoo suar vjeo b  . EieTn CtsH oOf IACiEdS t op aFratimcipilaens tws iatnhd Dreecpiepnd
under the Targeted Jobs Tax Credit
 you valuable time and ensure that appli
ent Children (AFDC); 
program.  cants referred to you are qualified. Your 
local Opportunity Job Center also pre- . General Assistance (Welfare)

What is The Targeted Jobs Tax Credit  recipients; 
screens candidates to see if they are TjTC 
Program (TJTC)?  eligible and completes the majority of  . Youth, aged  78  to  22,  from economi
cally disadvantaged families; 
TjTC is a federal tax credit that you  the application process for you. TjTC 
receive when you hire economically dis identifed applicants present vouchers  . Youth, aged  76  to  79,  who  are  econom
ically disadvantaged and participating 
advantaged job applicants from targeted  during their job interviews so that you 
approved cooperative education 
groups. This federally funded program,  will be aware of the tax benefits asso in  an 
program; 
administered in Massachusetts by the  ciated with hiring them. Just call the 
Departmen Opportunity Job Center nearest you to  . Vietnam-era veterans who are eco
r of Employment and Train nomically disadvantaged; 
ing, (D.  ), helps bring thousands of  learn more about TITC and other pro
residents into the economic mainstream  grams that address your employment  . Handicapped individuals referred by 
each year. You can join hundreds of  needs. (See listing on reverse side.  state vocational rehabilitation services 
Massachusetts employers who tap into  or the Veterans Administration; 
thou How Do I Apply for TJTC?  . Certain ex-offenders; 
this hidden job market  and save  . Supplemental Security Income (SSI) 
sands annually,  We have simplified the process for you. If 
recipients; 
the candidate has been referred by your 
How Much Can I Save?  local Opportunity Job Center, he or she  . Economically disadvantaged  summer 
youth  age. 
The TjTC tax credit is equal to 40 percent  will have a TJTC voucher; you just answer  76  to  77 years  of 
of the employee s first year s wages up  a few questions on the voucher and mail  Once we have your application, we verify 
to $6,000 or as much as a $2,400 credit  it to the Department of Employment and  the candidate s eligibility, and you will 
(0.40 x $6,000) for each eligible individual  Training TJTC Unit  within five days after  receive notice of certification within 
you hire.  the employee s actual start date. 
two weeks.

For eligible youths employed for the  You can also apply for TJTC for any new  To obtain your tax credit, you file an 
summer, the credit is 40 percent of the  employee you hire. If you think an  Internal Revenue Service Jobs Credit 
first $3,000 in wages paid or $1,200 maxi employee is TITC eligible, as indicated by  Form 5884 with your taxes which is avail
mum (0.40 x $3,000).  the list below, simply write your request  able through your local IRS office. The 
on company letterhead, including the  form asks you for the number and wages. 
You can hire qualified workers and save 
employee s name, address, social security  of your TJTC certified employees. 
valuable tax dollars. There is virtually no  number, and actual start date, and send it 
limit to the number of TjTC candidates 
you can hire. One company who hired 
Commonwealth of Massachusetts 
1555 ( RI.'  Michael  S. Dukakis, Governor 
. Grady 8,Hedgespeth 
Secretary of Economic Affairs 
Marlene  B. Seltzer. Commissioner of 
Employment  and Training  #? .-
Coan All Types of Employers Participate  your local Opportunity lob Center or  Please submit all TITC requests, 
in T,TCt  the Department of Employment and  vouchers and applications to: 
All private employers in trade or  Training TJTC Unit for more details at 
usinesy are eligible. Restrictions apply  (800) 392-6209.  Depart  ent of Employment and Training. 
T,TC Unit, First Floor 
in the following situations: federal 
How Can I Find Out More About T,TCt  Government Center 
payments for on-the-job training, 
rehiring TITC eligible employees, family  For your specific questions about TJTC,  19 Staniford Street

members, current employees and those  the TJTC Hotline is here to help. Our  Boston, MA 02114-2589 
employed in private residences. Call  toll-free number is (800) 392-6209. 
Your local Opportunity Job Center is available to assist you with all your employment needs. To find out more, call the office 
nearest you: 
Greater Boston 
Boston  (617) 727-6320 
Cambridge  (617) 864-1950 
Chelsea  (617) 884-5850 
Framingham  (508) 875-5237 
Malden  (617) 322-8890 
Marlboro  (508) 485-8711 
Norwood  (617) 762-9450 
Roxbury  (617) 442-4050 
Waltham  (617) 899-9340 
Woburn  (617) 935-4654 
Northeastern Massachusett 
Gloucester  (508) 283-4772 
Haverhil  (508) 374-4753 
Lawrence  (508) 682-5217 
Lowell  (508) 459-0563 
Lynn  (617) 593-5504 
Newburyport  (508) 462-4494 
Salem  (508) 745-1860 
Southeastern Massachusetts

Attleboro  (508) 222-1950 
Brockton  (508) 586-8100 
Eastham  (508) 255-740 
Fall River  (508) 679-9200 
Hyannis  (508) 775-5800 
New Bedford  (508) 999-2361 
Plymouth  (508) 746-5910 
Providence. RI
 (401) 277-3743 
Quincy (617) 471-2750 
Taunton  (508) 824-5835 
Wareham  (508) 295-6170 
Central Massachusett 
Clinton  (508) 365-4452 
Dudley  (508) 943-1240 
Fitchburg  (508) 343-641 
Gardner  (508) 632-5050 
Milford  (508) 478-4300 
South bridge
 (508) 765-5252 
Worcester  (508) 791-8551 
Western Massachusett 
Athol  (508) 249-7130 
Chicopee  (413) 598-8371 
Greenfield  (413) 774-4361 
Holyoke  (413) 538-8271 
North Adams  (413) 663-3748 
Northampton  (413) 586-3116 
Palmer  (413) 283-8271 
Pittsfield  (413) 447-7324 
Springfield  (413) 785-5357 
Ware  (413) 967-7290 
1555-E Rev. 2.