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September,2012 ChrisWarland,NationalTransitionalJobsnetwork

WhyShouldTransitionalJobsProgramsPayWages?
TheTransitionalJobsstrategyusessubsidizedemploymenttohelppreparejobseekers facingbarrierstoemploymentforasuccessfultransitionintotheworkforce.Therearea numberofreasonstobelievethatpaidworkexperienceismorebeneficialthanunpaid experienceforfacilitatingthistransitionandhelpingindividualsachieveselfsufficiency.For example,paidworkexperienceprovidesmuchneedearnedincometostabilizeindividuals andfamilies,andhaspositiveeconomicrippleeffectsthroughoutlowincomecommunitiesi. Evidenceonwelfaretoworkprogramssuggeststhatunpaidworkexperiencehaslittleifany impactonearningsandemploymentoutcomesorreducingrelianceonpublicbenefitsii. Moreover,unpaidworkexperiencefailstorewardwork,doesnotpromotemobility,and mayopenthedoortoexploitationofworkers. TheNationalTransitionalJobsNetwork(NTJN)definesaTransitionalJobasawagepaid realworkexperience.Whywagepaid?ThereareothermeansofcompensatingTransitional Jobsprogramparticipantsbesideshourlywages,suchaswithtrainingstipendsoras independentcontractors.Thesestrategiesmayhavesomeadvantagesinprotecting programoperatorsfrompotentialliabilityorineasingadministrativeburdens,buttheNTJN maintainsthatthebenefitsthatwagepaidworkofferstoparticipantsoutweighany benefitsthatorganizationsmightreceivefromavoidingpayinghourlywages.Thispaper offersabriefrationaleforwhytheNTJNrecommendspayinghourlywagestotransitional workersasabestpractice. PayingwagesmakesTJarealworkexperience OneofthekeyfactorsthattheNTJNhasidentifiedthathelpmakeaTransitionalJoba developmentallearningexperienceistheuseofworksitesandexperiencesthatconstitute realworkascloselyaspossible.Bypayingwages,aTransitionalJobreinforcesthe relationshipbetweenhoursworkedandpayreceived.Italsoallowsforrealisticmodeling lessonsinfinancialliteracysuchasbudgetingapaycheckoropeningabankaccount. Perhapsmostimportantly,payingtaxesthroughpayrollwithholdingallowsparticipantsto maketheircontributiontosocietyinawaythatispredictableandautomaticotherforms ofcompensationmaymakeparticipantsresponsibleforpayingtaxesafterthefact,which couldbeanundueburdenonaninexperiencedlowincomeworkerjustenteringthe workforce.PayrolltaxwithholdingalsoensuresthatparticipantsarepayingintoSocial Securityandunemploymentinsurance,whichmayimpacttheirfuturefinancialwellbeing.

Arealreferencefromarealemployer Thelackofacurrentreferenceorrecentworkhistorycanpresentasignificantbarrierfor jobseekers,andconventionalwisdomholdsthatitiseasiertofindajobwhenyoualready haveajob.Arealwagepayingjobandemployerreferenceonajobapplicationmaycarry moreweightwithaprospectiveemployerthanarecenttrainingexperienceorinternship position.Moreover,byfollowingbestpracticestocreatearealworkexperience,paying wagesandactingastheemployerofrecord,aTJprogramcanapproachemployersas peersemployertoemployerwhenworkingtoplaceparticipantsinunsubsidized employment,andvouchforthemascurrentproductiveemployeesingoodstanding. Nothingindicatesworkreadinessquiteaswellasholdingacurrentjobwithapositive reference. Accesstotaxcredits Oneofthelargestandmostimportantfederalantipovertyprogramsforlowincome workersistheEarnedIncomeTaxCredit(EITC),which,forexample,providesarebateofup to$464forsingleindividualsormarriedcouplesfilingjointlywithoutchildren,and$5,112 forfamilieswithtwoormoredependentchildren.Inaddition,23statesandtheDistrictof ColumbiahavetheirownsupplementalEITCs.Bypayingwagesandwithholdingtaxes,a TransitionalJobsprogramcanensurethatitsparticipantsareeligibletoclaimtheEITC. Protectingworkers Finally,itisimportanttorememberthattheregulationsandrequirementsplacedon employerswithregardtocarryinginsurance,followingwageandhourlaws,andensuring workplacesafetyaretheretoprotectworkers.Byactingasemployerofrecordand acceptingtheresponsibilitiesthatcomewithemployingtransitionalworkers,TJprograms ensurethattheirtransitionalworkersreceivealltheprotectionsandrightsduethemunder thelaw.Theycanalsosendamessagetotheircommunitiesandtheirfellowemployersthat theybelievethatrealworkshouldbecompensatedbyrealwagesandallworkersshouldbe protectedfrominjuryandjobloss. Conclusion TheNTJNrecognizesthatactingasemployerofrecordfortransitionalworkerssometimes representsadauntingsetofresponsibilities,risksandliabilities,andcanplaceadditional burdensonoverstressedandunderfundedadministrativecapacity.Itisalsotruethatmany programs,forvariousreasonsincludingrestrictionsimposedbyfundingsources,areunable topaywagesandhavedeterminedthatusingotherformsofcompensationforparticipants istheirbestoption.However,manyTJprogramshaveadoptedthepolicyofpayingwages, andhavedonesowithgreatsuccessandwithoutjeopardizingthefinancialor administrativehealthoftheirorganizations(watchfortheNTJNsforthcomingbriefon actingasemployerofrecord).Whenmakingdecisionsabouthowtocompensate transitionalworkers,programprovidersshouldcarefullyconsidertheadvantagesfor participantsthatcomewithpayingrealwagesworkerprotections,accesstotaxcredits,a referencefromarealjob,andaworkexperiencethatcloselymirrorsunsubsidizedworkin orderbesttopreparethemforsuccessintheworkforce.

Kushner, J. (2012, February). Chicago Neighborhood JobStart evaluation report: A transitional jobs response to the great recession. Chicago: Social IMPACT Research Center. ii Brock, T., Butler, D., & Long. D. (1993). Unpaid work experience for welfare recipients: findings and lessons from MDRC research. New York: MDRC.

Togetmoreinformation,requesttechnicalassistance,orsharesuccessfulstrategies, pleasecontactChrisWarlandatcwarland@heartlandalliance.org
TheNationalTransitionalJobsNetworkis(NTJN)isacoalitionofcity,state,andfederalpolicymakers; communityworkforceorganizations;antipovertynonprofitserviceprovidersandadvocacyorganizations committedtoadvancingandstrengtheningTransitionalJobsprogramsaroundthecountrysothatpeople withbarrierstoemploymentcangainsuccessintheworkplaceandimprovetheireconomiclivesandthe economicconditionsoftheircommunities.TheNTJNsupportsaconstituencyofover4,000activemembers andstakeholdersacrossthecountry.

TheNTJNisaprojectofHeartlandAllianceforHumanNeeds&HumanRights.

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