Evaluation of the Ticket to Work Program Initial Evaluation Report

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vi Chapter III Page TTW EARLY IMPLEMENTATION...............................................................................35 A. ROLLOUT SCHEDULE..............................................................................................36 B. IMPLEMENTATION FROM A SYSTEM PERSPECTIVE ............................................39 1. Social Security Administration .......................................................................39 2. Program Manager.............................................................................................46 3. State VR Agencies............................................................................................53 4. Employment Networks...................................................................................59 IV EARLY PARTICIPATION PATTERNS ...........................................................................71 A. ROLLOUT STATISTICS .............................................................................................72 1. Ticket Mailings and Eligible Beneficiaries with Tickets .............................72 2. Participation Rate.............................................................................................72 3. Payment and Provider Type...........................................................................74 4. First Assignments and Deactivations............................................................76 B. CHARACTERISTICS OF ELIGIBLE BENEFICIARIES, AUGUST 2003.....................77 1. Characteristics of Eligible Beneficiaries........................................................77 2. Variation in Participation Rates .....................................................................78 3. Variation in Provider and Payment Type.....................................................83 C. SYNOPSIS OF PARTICIPATION FINDINGS.............................................................84 V CASE STUDIES OF EIGHT EXPERIENCED TTW PROVIDERS ..............................87 A. SERVICE MODELS AND TARGETED CLIENTS......................................................89 1. AAA TakeCharge.............................................................................................89 2. Arizona Bridge to Independent Living.........................................................90 3. Career Consulting Services of America (CCSA) .........................................90 4. Employment and Employer Services (EES)................................................91 5. Glick and Glick ................................................................................................91 6. Integrated Disability Resources (IDR)..........................................................91 7. Marriott Foundation Bridges from School to Work...................................92 8. Oklahoma Department of Rehabilitation Services (DRS).........................93 B. OUTREACH, SCREENING, AND TICKET ASSIGNMENTS.....................................94 C. PRIOR RELATED EXPERIENCE OF ORGANIZATIONS AND STAFF....................98 Contents
vii Chapter Page V (continued) D. CHOICE OF PAYMENT PLAN..................................................................................99 E. RELATIONS BETWEEN ENS AND SVRAS..........................................................101 F. RELATIONS WITH OTHER ORGANIZATIONS ....................................................103 G. FACTORS AFFECTING PROVIDER ABILITY TO ACHIEVE POSITIVE OUTCOMES FOR BENEFICIARIES.......................................................104 1. Challenging Factors .......................................................................................104 2. Helpful Factors...............................................................................................105 H. THE BIG ISSUE: FINANCIAL VIABILITY..............................................................106 1. Process for Obtaining Payments .................................................................108 2. Structure of Payment Systems......................................................................109 3. Concluding Observations on EN Financial Viability...............................110 I. OTHER PROBLEMS AND SUGGESTIONS .............................................................111 1. Marketing and Program Information for Beneficiaries............................111 2. Information About Beneficiaries.................................................................112 3. Communications with the Program Manager............................................113 4. Communications Among ENs ....................................................................114 5. Program Rules and Regulations...................................................................114 J. SUMMARY AND CONCLUSIONS............................................................................114 1. Changes That Could Be Implemented by SSA..........................................114 2. Changes Requiring Congressional Action..................................................115 VI ADEQUACY OF INCENTIVES STUDY.........................................................................117 A. PRELIMINARY PROCESS INFORMATION ON THE ADEQUACY OF INCENTIVES......................................................................................................119 B. CHARACTERISTICS OF BENEFICIARIES IN TWO AOI GROUPS .......................121 C. RELATIVE TTW EXPERIENCES OF AOI GROUPS............................................124 D. RELATIVE EFFECTS OF TTW FOR AOI GROUPS .............................................126 E. CONCLUDING OBSERVATIONS............................................................................127 Contents
Page 1 and 2: Contract No.: 0600-03-60130 MPR Ref
Page 3 and 4: A CKNOWLEDGMENTS This report benefi
Page 5: C ONTENTS Chapter Page ACRONYMS ...
Page 9 and 10: A CRONYMS ABIL AIDS AWICs AOI BPAO
Page 11 and 12: E XECUTIVE S UMMARY T he Ticket to
Page 13 and 14: Overall, we found that SSA has impl
Page 15 and 16: money on their TTW operations. For
Page 17 and 18: xvii CONCLUDING OBSERVATIONS SSA fa
Page 19 and 20: C HAPTER I O VERVIEW OF THE T ICKET
Page 21 and 22: The TTW program and other elements
Page 23 and 24: A. EVALUATION COMPONENTS: GOALS, SC
Page 25 and 26: 7 ! How many beneficiaries particip
Page 27 and 28: 9 B. PURPOSE AND ORGANIZATION OF TH
Page 29 and 30: C HAPTER II S TRUCTURE AND B ACKGRO
Page 31 and 32: In reality, however, the success of
Page 33 and 34: MAXIMUS to serve as the Program Man
Page 35 and 36: 17 4. Participate in the activities
Page 37 and 38: N Decision Reversed Request SSA Rev
Page 39 and 40: 21 c. Dispute Resolution In a progr
Page 41 and 42: Table II.1: Outcome-Only and Milest
Page 43 and 44: milestone payment is equal to 34 pe
Page 45 and 46: Unemployment Insurance (UI) wage da
Page 47 and 48: 29 3. Related Initiatives TTW has n
Page 49 and 50: SSA Demonstrations. SSA plans to im
Page 51 and 52: Protection and Advocacy. The SSA-fu
Page 53 and 54: C HAPTER III TTW EARLY I MPLEMENTAT
Page 55 and 56: 37 Table III.1: TTW Implementation
Page 57 and 58:
Ticket-eligible beneficiaries were
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41 TTW. In the past, SSA systems ha
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information in SSA’s records cont
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work period automation and tracking
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Systems and Infrastructure. The Pro
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49 asked the Program Manager for a
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51 • The first payment for each b
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currently being addressed relate to
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payment system. Only one SVRA (Okla
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SVRA personnel have consistently ex
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59 • Are SVRAs permitted to requi
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Table III.4: ENs and ENs with Ticke
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Payment System. Many ENs do not bel
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example, reporting lags inherent in
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eceived only small amounts thus far
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SVRA services for Ticket clients; (
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C HAPTER IV E ARLY P ARTICIPATION P
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73 Figure IV.2: Cumulative Number o
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point in the Phase 1 rollout. For P
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77 Figure IV.7: First Assignments a
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79 Figure IV.8: Ticket Participatio
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81 Figure IV.10: Ticket Participati
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83 states. This finding suggests th
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There is a strong negative relation
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C HAPTER V C ASE S TUDIES OF E IGHT
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89 A. SERVICE MODELS AND TARGETED C
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Although the director was initially
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Clients who assign their Tickets to
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session. Those who miss their appoi
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interview. While this is time consu
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claim employer tax credits. Through
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these individuals, because they typ
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103 F. RELATIONS WITH OTHER ORGANIZ
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eneficiaries to meet that standard.
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IDR representatives said that to da
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substantiate wages, and clients are
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services? Unfortunately, for ENs to
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Manager. At present, this is only p
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stubs: the need for beneficiaries t
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C HAPTER VI A DEQUACY OF I NCENTIVE
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We have also begun to analyze admin
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viewed as lacking the productive ca
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assist in the identification of ind
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eneficiaries. In examining results
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127 E. CONCLUDING OBSERVATIONS The
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C HAPTER VII C ONCLUSIONS AND I MPL
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noticeably low, and, among the very
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Act. At the same time, some ENs hav
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Another change requiring considerat
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C HAPTER VIII N EXT S TEPS FOR THE
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prior to September 2003 and had not
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R EFERENCES Adequacy of Incentives
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A PPENDIX A D ATA T ABLES C ORRESPO
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A-3 Table A.2 Cumulative Number of
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A-5 Table A.4 Percentage of Tickets
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A-7 Table A.6 Percentage of Tickets
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A-9 TABLES SHOWING CHARACTERISTICS
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A-11 Table A.10 Ticket Participatio
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A-13 Table A.12 Ticket Participatio
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A-15 Table A.14 Percentage of In-Us
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A PPENDIX B P ROVIDER-SPECIFIC C AS
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informed beneficiaries that state V
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e considerably more successful if S
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them for employment. It was during
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working but are still receiving SSI
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B.11 client over a four-year period
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B.13 placing SSA beneficiaries than
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B.15 that came in for an initial ap
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B.17 all benefits; therefore, EES d
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B.19 outreach program. As noted pre
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B.21 remained employed. 3 Because o
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B.23 estimate of the financial loss
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B.25 Social Security benefits. IDR
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B.27 have to submit pay stubs twice
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B.29 Bridges still provides the 10-
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B.31 While she used to have a polic
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B.33 8. Oklahoma Department of Reha
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B.35 Beneficiaries interested in as
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B.37 permits agency budgets to be c
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A PPENDIX C D EFINING THE F OUR A D
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B. IDENTIFYING INDIVIDUALS WITH A N
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“work and receive full cash benef
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