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Teenage Parent Demonstration Program

General Information

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Evaluator(s) Mathematica Policy Research, Inc.
Investigator(s) Rebecca Maynard (University of Pennsylvania)
Alan Hershey (Mathematica Policy Research, Inc.)
Ellen Kisker (Mathematica Policy Research, Inc.)
Sponsor(s) Not applicable
Funder(s) US Department of Health and Human Services, Office of the Assistant Secretary for Planning and Evaluation
US Department of Health and Human Services, Administration for Children and Families
US Department of Health and Human Services
Subcontractor(s) Not applicable
 
Domain Income Security/TANF
Child/Family
Status Completed (final report released)
Duration Oct 1986 - Feb 1998
Type Research and/or Program Evaluation
Goal To evaluate Project Advance and Teen Progress.
Program/Policy Description Project Advance and Teen Progress used case management and mandatory education, job training, or employment for pregnant and parenting teen welfare recipients with one child. Participation was mandatory for all teenagers who were receiving AFDC and were either first time parents or (in Illinois) had no children but were in the third trimester of pregnancy.
Notes Includes Newark Young Family Study.

Visit the project website: http://aspe.hhs.gov/hsp/isp/tpd/

 
Last Updated 07/21/98
Type of Summary Reviewed
External Reviewer(s) Ellen Kisker (Mathematica Policy Research, Inc.)
Contact(s) Ellen Kisker (ekisker@mathematica-mpr.com)
Mathematica Policy Research, Inc.
P.O. Box 2393
(T) (609)-799-3535
(F) (609)-799-0005
Publications Department Jacqueline Allen (jallen@mathematica-mpr.com)
Mathematica Policy Research, Inc.
P.O. Box 2393
(T) (609)-275-2350
(F) (609)-799-0005

Populations Studied

Target Population Recipients/participants/clients
Pregnant/parenting teens
Children
Subgroups Analyzed None
Sample Size and Unit 5,297 welfare recipients (89% of those eligible).

Random sample of 2,650 experimental group members and 2,647 control group members.

Sites Studied

Chicago, Illinois
Camden, New Jersey
Newark, New Jersey

Program Components, Policies, and Activities Evaluated

Employment activities

  • Job skills training
  • Job search
  • Job placement
  • On the job training

Educational activities

  • Adult Basic Education (ABE) courses
  • GED courses
  • High school completion
  • Post-secondary education

Financial disincentives/Sanctions

  • Reduced benefits for non-compliance

Program requirements

  • Work requirement
  • School attendance
  • Workshop attendance

Social/Support services

  • Child care
  • Transportation
  • Case management
  • Counseling
Variation in program components across sites? Yes
Notes on program components Educational activities: GED courses and high school completion are offered.

Employment activities:Employment activities were conducted through both existing community and in house services. Mandatory participation in education, job training, and/or employment was intended to help participants progress toward self-sufficiency.

Financial disincentives/sanctions: $160 (New Jersey) or $166 (Chicago) reduction for noncompliance. Program requirements: Mandatory participation in education, job training, and/or employment was intended to help participants progress toward self-sufficiency. Mandatory workshops on topics such as child support and family planning.

Social/Support services: Case management was the "cornerstone" of program services, helping participants to decide what education or training to do, finding open slots in appropriate programs, encouraging participants to stick to their plans and counseling when crises arose.

Outcomes Assessed

Education

  • High school graduation/GED receipt
  • School attendance

Employment

  • Job readiness/training
  • Job attainment

Family and relationship outcomes

  • Births/pregnancies
  • Fatherhood
  • Family formation and stability/Living arrangements

Income security

  • Child support payments
  • Earnings
  • Food stamps receipt
  • Welfare receipt

Service utilization

  • Service utilization - misc.

Sanctions

  • Sanctions - misc.

Program implementation

  • Program Implementation - misc.

Emotional well-being

  • Emotional well-being - misc.

Health/ physical well-being (including prenatal health)

  • Health/ physical well-being - misc.

Child Outcomes

  • Child social/emotional/behavioral outcomes
  • Child cognitive (attention, problem solving, memory, language, and vocabulary) outcomes
  • Child overall development
  • Child mental/physical health outcomes

Types of Studies

Type Impact Study (Controlled Experiment)
Aim To evaluate the potential benefits of mandatory programs to promote self-sufficiency among welfare-dependent teenage parents.
 
Type Implementation/Process Study
Aim To evaluate the feasibility and costs of implementing mandatory programs to promote self-sufficiency among welfare-dependent teenage parents.
 
Type Descriptive/Analytical Study
Aim To describe the local market for child care in each of the three demonstration sites.
 
Type Descriptive/Analytical Study
Aim To describe the barriers to self-sufficiency and avenues to success among teenage mothers.
 
Type Impact Study (Controlled Experiment)
Aim Newark Young Family Study: To examine how mandatory as well as non-mandatory participation in self-sufficiency activities might influence mothers’ psychological functioning—including parenting—and their children’s development.

Sub-sample of 200 mothers with preschool-aged children in Teenage Parent Demonstration Program and living in Newark, New Jersey. Randomly assigned to treatment and control groups (Number in samples not reported).

 

Data Sources

Source Survey
Title Telephone follow-up survey (average of 28 months after intake)
Sample Characteristics/Data Collection 3,867 parenting or pregnant with first child (Chicago only) teenage welfare recipients.
Random sample of young mothers who completed intake.
1,924 in control group; 1,943 experimental group.
Data collected an average of 28 months after intake (intake period was July 1987-April 1990)
Sites All sites.
Response Rate/Attrition Notes Reported response rate: 85%. (random sample of those who completed intake)
Additional Execution Notes Survey was conducted by telephone with in-person follow-up as needed.
 
Source Survey
Title Teenage Parent Demonstration Intake and Assessment Forms
Sample Characteristics/Data Collection 5,297 parenting or pregnant with first child (Chicago only) teenage welfare recipients.
2,650 in control group; 2,647 in experimental group.
Data collected at baseline.
Sites All sites.
Response Rate/Attrition Notes Reported response rate: 89% of eligible
Additional Execution Notes Administered in groups by program staff prior to random assignment.
 
Source Administrative data
Title Welfare and Earnings records
Sample Characteristics/Data Collection Records for 5,297 welfare recipients.
Sample includes all those who completed intake.
2,650 in control group; 2, 647 in experimental group.
Data collected for a period of 5 to 7 years following intake.
Sites All sites.
Response Rate/Attrition Notes Reported response rate: 100% (of those who completed intake)
Additional Execution Notes No notes reported.
 
Source Field Research
Title Program monitoring visits
Sample Characteristics/Data Collection All relevant program staff.
Numerous visits during the period from 1986 to 1991.
Sites All sites.
Response Rate/Attrition Notes N/A
Additional Execution Notes No notes reported.
 
Source Focus Group
Sample Characteristics/Data Collection 88 teenage welfare recipients in the experimental and control groups.
Convenience sample.
Focus groups conducted Aug- Nov 1988.
Sites All sites.
Response Rate/Attrition Notes N/A
Additional Execution Notes No notes reported.
 
Source Interview
Title Semi-structured in-depth interviews
Sample Characteristics/Data Collection 70 teenage welfare recipients in the experimental and control groups.
Convenience sample.
Number in control/experimental groups not reported.
Interviews conducted Oct. - Dec. 1989.
Sites All sites.
Response Rate/Attrition Notes N/A
Additional Execution Notes No notes reported.
 
Source Survey
Title Telephone second follow-up survey
(average of 78 months after intake)
Sample Characteristics/Data Collection 3,499 demonstration sample members.
Random sample of those who completed intake.
1,769 in experimental group; 1,730 in control group.
Data collected Oct 1994- July 1996, an average of 78 months after intake.
Sites All sites.
Response Rate/Attrition Notes Reported response rate: 85% (random sample of those who completed intake)
Additional Execution Notes Telephone survey using computer-assisted telephone interviewing, with in-person follow-up as needed.
 
Source Developmental assessments/screenings
Title Child assessments conducted in conjunction with second follow-up survey (an average of 81 months after intake)
Sample Characteristics/Data Collection 2,097 children of demonstration sample members.
Sample of 1,065 in experimental group; 1,032 in control group.
(Sample included oldest children of sample members who completed the second follow-up survey and who still lived near the demonstration areas. Only children age 5 to 8 were included.)
Collected October 1994 - July 1996.
Sites All sites.
Response Rate/Attrition Notes Reported response rate: 78%.
Additional Execution Notes Assessments included in-person assessment of child and a self-administered survey about the child completed by the mother.
 

Findings Available

Interim Implementation Findings
Interim Impact Findings
Final Impact Findings

Findings

06/01/93: Teenage Parent Demonstration Program: Building Self-Sufficiency Among Welfare-Dependent Teenage Parents: Lessons from the Teenage Parent Demonstration (2 year impacts)
Interim Impact Findings: "It is feasible to design and operate mandatory education, training, and employment programs that serve large numbers of teenage parents, despite the fact that the needs of this population differ substantially from those of adult AFDC recipients" (2). "With active monitoring of participation, it is possible to achieve significant rates of participation. Nearly 90% of the young mothers ...identified as eligible... and, of those who enrolled, 92% participated in program activities beyond the initial intake and assessment" (2). "The number of new AFDC applicants who are teenage parents is a relatively small proportion of the applicant caseload- 17 to 26 percent in the demonstration sites" (3). "About one-third of the young mothers used agency-funded child care. The remainder relied on unpaid care—generally provided by relatives—or paid for the care themselves or with the assistance of family members" (3) . "These types of programs can promote significant and sustained participation in education, training, and employment activities—activities that are likely to affect the young mothers’ long-run prospects for self-sufficiency" (3). "The largest impacts were on school enrollment (12 percentage points)- a 42 percent increase over the levels of participation these young mothers would have had under the regular AFDC regulations and services" (3). "The demonstration programs also led to significant increase in employment and participation in job training (gains of 4 to 5 percentage points—12 to 19 percent)" (3). "Programs for teenage parents can achieve these significant impacts while case managers maintain relatively large caseloads—50 to 80 active cases or total caseloads of 100 to 140 young mothers. The keys to effectively managing caseloads of this size were reliance on automated case tracking systems and routine use of the mandatory participation requirements as a case management tool" (3). "The mandatory participation requirement and sanction policy compelled many of the teenage parents to get involved in the program and maintain their participation... Overall, 62% of those who completed intake were warned at some time of possible sanction because they failed to fulfill requirements... More than one-third had their grants reduced one or more times for failure to comply..." (xxi)". The benefits of participation in the demonstration programs included increased rates of school attendance, job training, and employment. The program-induced increases in employment were accompanied by earnings gains that, in combination with program sanctions, resulted in lower rates of dependence on public assistance. However, there was little or no measurable change in economic welfare, except for those who became employed. The hoped for improvements in social and demographic outcomes generally have not been observed to date. Also, we have not yet examined possible impacts on the children of these young mothers" (xxi). Interim Implementation Findings: "Success depended on staff’s acceptance of the notion that it was appropriate to target teenage parents for this type of intervention. It also depended on their accepting- or at least tolerating- the idea of requiring these mothers to go to school, job training, or work..." (49). "Programs had to recognize and address the special circumstances that prevented some young mothers from maintaining a full-time schedule of work or school... it was essential for the program to offer services designed to help the mothers conquer the barriers. Staff had to provide follow-up and use project resources for those in need..." (49). "Staff had to be trained creatively to work with the teenage mothers to address their special needs" (49). "Four aspects of program implementation were especially challenging: outreach and recruitment; designing workshops appropriate to the needs of this group and promoting attendance; strong training and oversight for case managers; and developing appropriate school, job training and employment options..." (49).
 
08/01/96: Teenage Parent Demonstration Program: Moving from Welfare to Work: What about the Family?
Interim Implementation Findings:

"There were no differences between the treatment and control groups in mothers’ psychological functioning, the organization of the home environment, or children’s development. With regard to mothers’ parenting behaviors, a treatment effect emerged for one of the eight parenting behaviors. Specifically, intervention group mothers were less authoritarian—less harsh and controlling—during free play with their children than the control group... These findings not only indicate no evidence of harmful effects of mothers’ participation in mandated self-sufficiency activities but also suggest an association between mothers’ participation in mandated self-sufficiency activities—when accompanied by special support services—and more positive parenting behavior" (pp. ix-x).

"We also examined differences between mothers in terms of their participation in self-sufficiency activities regardless of treatment group status… Greater maternal participation in self-sufficiency activities was found to go hand in hand with positive maternal and child behaviors" (p. x).

 
02/01/98: Teenage Parent Demonstration Program: Moving Into Adulthood: Were the Impacts of Mandatory Programs for Welfare-Dependent Teenage Parents Sustained After the Programs Ended?
Final Impact Findings:

“The first phase of the evaluation showed that states can operate large-scale, mandatory work-oriented programs for teenage parents”(xvi).

“The demonstration programs increased rates of school attendance, job training, and employment but produced few significant differences in marriage, living arrangements, fertility, or child support during the first two years following intake”(xvii).

“For most of the young mothers, the cycle of welfare dependency has not yet been broken”(xvii).

“The promising early impacts of the programs on employment-related activities and welfare dependence faded once the demonstration programs ended and participants returned to regular AFDC and Job Opportunities and Basic Skills Training (JOBS) programs”(xvii).

“The early impacts of the programs on employment-related activities and welfare started to erode at about the time sanctions and support services ended for the enhanced services group”(xviii).

“Mothers in both the regular- and the enhanced-services groups reported receiving very little financial aid support”(xviii).

“On average, during the six- to seven-year follow-up period, the young mothers in both the regular- and the enhanced-services group became pregnant twice and gave birth to between one and two additional children”(xviii).

“Exposure to the demonstration welfare policies and programs did not substantially reduce subsequent pregnancies and births”(xviii).

“When they were in elementary school, the first-born children of the teenage mothers performed poorly, compared with children nationally, on several measures of development and well-being”(xix).

“The programs produced no impacts on mothers’ parenting or on the quantity of the home environments they provided for their first-born children” (xix).

“Requiring teenage mothers to participate in activities, and increasing their use of child care when their children were very young, had neither harmful nor beneficial effects on their children’s development” (xix).

“Teenage mothers respond positively to clear expectations when financial consequences and support services accompany those expectations"”(xx).

“Most teenage parents are capable of employment but need encouragement and some support services” (xx).

“Ensuring access to child care was an important part of the intervention, but fewer participants use program-provided child care subsidies than had been anticipated” (xx).

“The evaluation results suggest that requiring teenage mothers of young children to participate in full-time (30 hours per week) out-of-home activities is not harmful to children, as some worried that it might be” (xxi).

“It is important to help teenagers reduce their fertility, but different strategies than those tried in this demonstration are needed” (xxi).

“The demonstration underscored the difficulty of changing the life courses of poor teenage parents by intervening after they become parents” (xxi).

“The noncustodial fathers of children born to poor teenage parents provide little social or economic support” (xxi).

 

Recommendations

Teenage Parent Demonstration Program: Building Self-Sufficiency Among Welfare-Dependent Teenage Parents: Lessons from the Teenage Parent Demonstration (2 year impacts) (06/01/93)
"In contrast to most other welfare demonstrations, we found consistent results in all locations where programs were operated..."(4). "This is one of a handful of programs for teenage parents or disadvantaged youth in general that have been shown to have significant positive impacts for participants" (4). "The scales of operation, administrative structures, and funding levels of these demonstration programs were consistent with those that would be encountered in a full-scale, national implementation of the program model" (4) .
 

Existing Publications

06/01/93 Teenage Parent Demonstration Program: Building Self-Sufficiency Among Welfare-Dependent Teenage Parents: Lessons from the Teenage Parent Demonstration (2 year impacts) Mathematica
08/01/96 Teenage Parent Demonstration Program: Moving from Welfare to Work: What about the Family? Mathematica
02/01/98 Teenage Parent Demonstration Program: Moving Into Adulthood: Were the Impacts of Mandatory Programs for Welfare-Dependent Teenage Parents Sustained After the Programs Ended? Mathematica
06/01/98 Teenage Parent Demonstration Program: Teenage Parent Programs: A Synthesis MDRC
09/01/98 Teenage Parent Demonstration Program: Moving Teenage Parents in Self-Sufficiency: Lessons from Recent Demonstrations Mathematica