Wisconsin Pathways to Independence-Research Information

Pathways to Independence (WPTI) Final Research Report Summary

Wisconsin Pathways to Independence (WPTI), an effort intended to increase employment outcomes for persons with disabilities, ended on September 30, 2004 after operating for more than five years. WPTI was one of 12 Social Security Administration funded projects included in the State Partnership Initiative (SPI); the Robert Wood Johnson Foundation provided additional funding. In Wisconsin, WPTI was often referred to as simply "Pathways."

SPI’s purpose was to allow states to develop and test innovative programs for encouraging consumers who receive federal disability benefits (SSDI or SSI) to either return to work or, if working, to increase their earnings, income, and other employment outcomes. Pathways attempted to address this need by providing participants with a flexible package of consumer-directed, team-based employment planning services and benefits counseling. Pathways also tested temporary changes to SSI rules and assisted in the development of Wisconsin’s Medicaid Buy-In, which was used by some Pathways participants.

Pathways involved collaboration between the Division of Disability and Elder Services in the Department of Health and Family Services and the Division of Vocational Rehabilitation in the Department of Workforce Development. Service delivery occurred through twenty service provider agencies. Centralized training and technical assistance (TA) were utilized to encourage consistency in service delivery. Pathways services were available to consumers with physical disabilities, mental illness, developmental disabilities, and HIV/AIDS; although service availability was not uniformly distributed across the state to all groups.

A comprehensive evaluation plan, designed by Pamela Hanes, was an integral feature of the project. Researchers from the University of Wisconsin – Stout and Oregon Health and Science University carried out the plan. The research effort included analyses of the outcomes for Pathways participants, of how the project was implemented, and of whether the project influenced the larger system of services and benefits used by persons with disabilities.

More than 950 Wisconsin residents enrolled in Pathways services; an additional 630 agreed to provide data, for research purposes, as members of an in-state comparison group. Comparison groups members were working-age SSA beneficiaries who had demonstrated interest in pursuing employment through receipt of vocational services from DVR. Due to lags in data availability and the statistical approaches necessary to perform appropriate analyses, outcomes analyses were limited to data from 506 participants and 610 comparison group members.

After statistical control, Pathways participants exhibited what might be characterized as moderately better employment rates, average earnings, and average "total" income relative to members of the comparison group. Two years after study entry, participants had an employment rate 8% higher than the comparison group and had average quarterly (3 months) earnings that were $364 higher. Participants also had average total income (earnings plus SSA benefits) of $511 more than members of the comparison group. The difference in total income between participants and comparison group members is greater than what could be accounted for by the difference in earnings alone. This suggests that Pathways participants were not only more likely to work but were also better able to maximize the combination of earned income and benefits than members of the comparison group.

Increases in average employment rates, earnings, and total income occurred regardless of the type of disability a participant had or the type of agency where services were received. Consumers served by mental health agencies had the highest levels of employment, earnings and total income; however, the employment rates at these agencies were also the highest prior to Pathways enrollment, which influences the findings. Hours of service delivery, both benefits counseling and vocational services were significantly related to outcomes for participants, as were the timing of service delivery. Participants also showed a tendency toward earning at higher levels and working for more prolonged periods than members of the comparison group.

Participants were generally quite pleased with the Pathways process and services. More than 83% of participants agreed that they were in charge of planning their employment goals – a key aspect of the person-centered process. In addition, more than 87% felt that Pathways staff took the time to explain things and respond to questions and concerns. The supportiveness of staff and the individualized attention were also mentioned regularly in focus groups as elements that set Pathways apart from other services. Around 75% felt that Pathways services fit their needs overall (more than 70% for employment services and more than 78% for benefits counseling).

The Pathways project experienced several environmental events that affected its operation and outcomes. Most notable were the worsening economy and two periods when DVR had to restrict access to its services. Pathways began when the economy was strong and the unemployment rate was low. By the end of the project, the unemployment rate had increased substantially, and there are indications that employment and earnings levels for Pathways participants were reduced as a result, particularly among those who enrolled late in the project. DVR’s actions influenced Pathways by restricting project entry to only those with the most significant disabilities who had already begun developing a plan for employment (IPE).

The research also looked at the challenges of having multiple agencies work together to deliver a complex program. It proved difficult for agencies with different missions and obligations to develop and act upon a common vision. The tensions associated with this were felt most greatly during two periods. The first was project start up, when the partnering agencies struggled to identify their expectations for and roles in the project. The second was as project closure approached, when the agencies attempted to assess the long-term impact of the project and its value as a part of their continued functioning.

Although the grant-funded Pathways project has ended, its influence continues to be felt in the expanded availability of high quality benefits counseling throughout the state and the increased value of vocational services, particularly person-centered vocational services, among service providers and long-term care agencies. Collaboration continues between DDES and DVR as vocational services are incorporated into Family Care, CMOs.

To obtain either the Pathways research team's full report or a more detailed summary, contact Barry S. Delin at the University of Wisconsin - Stout delinb@uwstout.edu.   In addition, data from Wisconsin will be included in comprehensive evaluations of the SPI project undertaken by Virginia Commonwealth University and Mathematica Policy Research, Inc.