Participants were randomly assigned to BNF or to a comparison group. Individuals in the comparison group could not enroll in BNF but could receive all other services available to TANF recipients. Available services included case management; job search assistance; work-readiness activities; less intensive soft-skills training; and supportive services, such as child care, medical benefits, and transportation assistance.
BNF cost $7,383 (in 2004 dollars) per participant, on average, including job readiness and soft-skills training, case management, program management, and outreach and recruitment costs. A cost-benefit analysis examined costs and benefits to the participant, the government, and society:
- The participant. BNF resulted in a gain of $51 to the participant; this means that the sum of fringe benefits, child support income, Supplemental Security Income (SSI)/Social Security Disability Insurance (SSDI) benefits, and decreased taxes was estimated to be $51 higher than the sum of reduced benefit receipt (including TANF, food stamps, unemployment insurance, and transportation assistance), decreased earnings, and increased transportation costs.
- The government. BNF resulted in a loss of $7,351 to the government; this means that the sum of program service costs, increased childcare costs, increased use of education services, increased SSI/SSDI benefits, and decreased taxes was estimated to be $7,351 higher than the sum of reduced benefits distributed, reduced administrative costs, and reduced mental health services.
- Society. BNF resulted in a loss of $7,561 to society, including participants, noncustodial parents, and the government; this means that the sum of program service costs, increased childcare and transportation costs, increased education services, and decreased earnings was estimated to be $7,561 higher than the sum of fringe benefits, reduced administrative costs, and reduced mental health services.
Evaluators began enrolling participants in the study in March 2002 and concluded enrollment in June 2004. Outcomes were measured for up to 30 months after random assignment.
UNCE educators conducted weekly or biweekly home visits to provide customized support to participants. BNF included the following components:
- Soft-skills training. Educators delivered curricula designed to improve life skills and family management practices to participants and, at times, to their family members. The BNF curriculum is publicly available and is called Survive, Strive, Thrive: Keys to Healthy Family Living. Fifteen stand-alone lessons encompassed topics such as goal setting, decision making, communication skills, healthy relationships, character development, anger and stress management, parenting and child development, household management and budgeting. Participants completed brief assignments between meetings.
- Coaching and mentoring. Educators provided informal counseling on a range of personal and work topics, including resolving legal issues, applying for financial aid, and managing stress. Educators also modeled positive personal and work behaviors.
- Service coordination and advocacy support. Educators coordinated services, provided referrals, and helped participants interact with other agencies and employers to complement the services participants’ TANF case managers provided.
BNF participants also had access to all services provided to the comparison group through the TANF program. These services included employment services and supportive services. Educators and TANF case managers worked together to support participants. Their level of coordination increased over time as their rapport increased.
The study authors identified several key factors that facilitated implementation:
- The Nebraska Health and Human Services System and the UNCE had a history of collaboration and a productive partnership that leveraged UNCE’s network of county-level extension offices.
- Educators were experienced, master’s level professionals who received ongoing training, along with support and guidance from an active and experienced program coordinator.
- Program leaders and staff made active use of performance measurement tools to monitor client progress through the program and oversee staff activities.
- Educators had small caseloads and were able to serve clients intensively.
The study did not discuss any tools to measure fidelity to the intervention model.
The Nebraska Health and Human Services System used federal TANF dollars to fund BNF through a three-year contract with the UNCE.
The program provided services to residents in approximately 65 rural counties in Nebraska. Some counties were remote, whereas others contained large towns.
The Nebraska Health and Human Services System, the state’s health and human services agency which oversees the state’s TANF program, and the University of Nebraska-Lincoln Cooperative Extension (UNCE) implemented BNF. The Nebraska Health and Human Services System identified potential BNF participants and contracted with the UNCE to provide BNF services.
UNCE implemented BNF as part of its work to bring the university’s educational resources to rural Nebraska communities.
BNF served TANF participants who were required to participate in work activities and who were identified as difficult to employ, which was defined as having low personal functioning, having skills deficiencies, and facing significant challenges in securing and maintaining employment. Participants were prior TANF recipients who had previously struggled to meet work participation requirements. At the time of enrollment, participants’ average age was 28, few were first-time TANF recipients (3 percent), most were female (93 percent), and few worked for pay (16 percent). Seventy-six percent of the full sample was White, not Hispanic; 2 percent was Black or African American, not Hispanic; and 13 percent was Hispanic or Latino of any race. TANF case managers identified prospective participants and encouraged them to enroll in BNF. Though enrollment was voluntary, case managers reported that they believed participants perceived participation as mandatory. Once enrolled, individuals were required to participate in the program.
On average, participants and educators met every week or every other week for 90-minute home visits. Lessons during the home visits typically lasted one hour, and educators spent additional time providing services such as mentorship or service coordination. Participants engaged with the program for an average of eight months. Those who engaged with the program at least once participated for a total of 25 hours, on average. Nearly all participants had at least one contact with their educator (95 percent).
UNCE staff that implemented the program included 1 program coordinator, 1 program evaluator, and 11 educators. The educators had caseloads ranging between 12 and 18 participants and each served between 3 and 8 counties. All educators held master’s degrees in areas such as family studies, education, social work, and counseling.