8/20/2019 Expanding National Service to Address Long-term Unemployment
1/27
Expanding National Service to
Address Long-term UnemploymentBy Harry Stein and Shirley Sagawa January 2016
WWW.AMERICANPROGRESS.O
8/20/2019 Expanding National Service to Address Long-term Unemployment
2/27
Expanding National Serviceto Address Long-termUnemployment
By Harry Stein and Shirley Sagawa January 2016
8/20/2019 Expanding National Service to Address Long-term Unemployment
3/27
1 Introduction and summary
4 The problem of long-term unemployment
7 How national service can respond to
long-term unemployment
10 Implementing a temporary expansion
of national service
15 Parameters for a temporary expansion
of national service
19 Conclusion
22 Endnotes
Contents
8/20/2019 Expanding National Service to Address Long-term Unemployment
4/27
1 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Introduction and summary
As o November 2015, approximaely 2 million Americans were ou o work and
looking or a job or 27 weeks or more.1 While long-erm unemploymen has
allen significanly afer skyrockeing during he Grea ecession, his decline has
been ar oo slow and long-erm unemploymen sill remains unusually high even
hough he recession officially ended in June 2009.2
Tis enormous and ongoing wase o human and economic poenial is by no
means ineviableand policymakers should ake seps now o ensure ha i doesno happen again. As Presiden Franklin Delano oosevel so righly declared in
1934: “No counry, however rich, can afford he wase o is human resources.
Demoralizaion caused by vas unemploymen is our greaes exravagance.”3
During he Grea Depression, policymakers chose o implemen wha were dubbed
work relie programs, such as he Civilian Conservaion Corps, o dramaically
reduce unemploymen. In 1936, hese work relie programs reduced he unemploy-
men rae rom 16.9 percen o 9.9 percen.4 Te New Deal work relie programs
no only pu Americans back o work bu also saw he building o counless public
aciliiesincluding parks, bridges, airpors, and roadsha are sill in use.5
FIGURE 1
Government work relief during the Great Depression
Unemployment rate, with and without work relief jobs
Note: The unemployment rate without work relief counts people with work relief jobs as unemployed.
Source: Michael R. Darby, “Three-and-a-Half Million U.S. Employees Have Been Mislaid: Or, an Explanation of Unemployment, 1934-1941,”
Journal of Political Economy 84 (1) (1976): 1–16, available at http://www.jstor.org/stable/1830168.
19290%
5%
10%
15%
20%
25%
1930 1931 1932 1933 1934 1935 1936 1937 1938 1939 1940 1941
Without work relief
With work relief
8/20/2019 Expanding National Service to Address Long-term Unemployment
5/27
2 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Americans coninue o serve heir counry oday in naional service programs
such as AmeriCorpsha provide a modes living allowance and educaion
awards or individuals who provide subsanial service hrough programs ha
address naional needs in fields including educaion, conservaion, and affordable
housing. Tese programs could also pu Americans back o work in imes o high
long-erm unemploymen and provide a lasing legacy or uure generaions.
In 2009, Congress endorsed a significan expansion o naional service by auho-
rizing 250,000 AmeriCorps posiions as par o he Edward M. Kennedy Serve
America Ac.6 Bu Congress never ollowed hrough wih he necessary unding;
consequenly, AmeriCorps could only suppor approximaely 73,600 posiions
in fiscal year 2014.7 Funding all 250,000 posiions remains an imporan policy
ha should be implemened o srenghen naional service regardless o eco-
nomic condiions. Posiions unded hrough AmeriCorps provide a oundaion
upon which high-impac naional programs such as Ciy Year, eading Parners,
and Naional Communiy Healh Corps can grow; creae opporuniies orunemployed youh who are no enrolled in high school or college; and enable
grassroos organizaions in philanhropically underserved areas o offer posiions
direced a solving locally deermined problems.
Naional service should also be expanded even urher when he need is grea-
es. Tis repor lays ou a plan or a new unding sream or naional service ha
auomaically rises when long-erm unemploymen is high and alls when long-
erm unemploymen is low. Unlike he 250,000 posiions auhorized by he
Serve America Ac, new posiions creaed by auomaic unding would be em-
porary and specifically designed o phase ou when hey are no longer needed
as he economy reurns o normal. Tis emporary service would be direced
oward projec-based work ha can be compleed on a shor imerame, such as
projecs argeing conservaion and inrasrucure, as well as effors ha address
he human needs ha increase during recessions. Te ederal governmen would
parner wih naional service organizaions o consisenly mainain and updae
plans o creae new posiions on shor noice o rapidly respond o a uure rise
in long-erm unemploymen.
Under his plan, naional service would uncion as an auomaic sabilizer. Auomaic sabilizers, such as unemploymen insurance and nuriion assisance,
expand during recessions and conrac during imes o economic expansion. Te
need or assisance rom he nonprofi secor is greaes when he economy is
sruggling, meaning ha recessions are he perec ime o boos capaciy wih a
“Everybody can
be great, because
everybody can serve
— Martin Luther King
8/20/2019 Expanding National Service to Address Long-term Unemployment
6/27
3 Center for American Progress | Expanding National Service to Address Long-term Unemployment
surge o naional service. Specifically, he plan would esablish a ormula or an
auomaic unding source ha would suppor 25,000 new and emporary naional
service posiions or every enh o a percenage poin by which he long-erm
unemploymen rae exceeds 1 percen. Te long-erm unemploymen rae has
averaged abou 1 percen rom 1948 o he presen, and no emporary posiions
would be creaed whenever long-erm unemploymen is a or below his hisori-cal average.9 Te plan includes guardrails o ensure ha naional service is no
expanded more rapidly han he sysem can suppor, and also o preven eco-
nomic shocks rom wihdrawing emporary posiions oo rapidly.
In he afermah o he Grea ecession, his policy would have responded
decisively by supporing a peak o 475,000 emporary naional service posiions
a a ime when abou 4.6 million people were long-erm unemployed.10 I his
auomaic policy had been in place rom fiscal years 2000 o 2014, i would have
cos an average o $2.6 billion per yearenabling 1.87 million Americans o serve
heir counry or a year during ough economic imes and delivering a reurn oninvesmen o $3.93 in benefis o sociey or every dollar spen based on an eco-
nomic sudy o naional service.11
Expanding naional service during economic downurns is a win-win-win:
Naional service pus unemployed paricipans back o work, benefis he com-
muniies ha paricipans serve, and helps grow he overall economy. Tis repor
describes he problem o long-erm unemploymen, how naional service can pu
people back o work, and lays ou a plan o mobilize he engine o service when i
will deliver he mos economic benefi.
America needs a subsanial invesmen in naional service. Policymakers should
ge sared as soon as possible by seting and ollowing hrough on a course o
ully und he 250,000 posiions auhorized by he Serve America Ac, while
also building he necessary capaciy o implemen a uure emporary expan-
sion. By esablishing a sysem o auomaically and emporarily expand naional
service o decisively respond o spikes in long-erm unemploymen, lawmakers
can ensure ha oday’s service programs wil l alleviae uure economic hardship
and build a legacy or omorrow.
8/20/2019 Expanding National Service to Address Long-term Unemployment
7/27
4 Center for American Progress | Expanding National Service to Address Long-term Unemployment
The problem of long-term
unemployment
Long-erm unemploymen has been a paricularly vexing challenge or policymak-
ers wih a errible human cos. While he sock marke has ully recovered rom
he Grea ecession and corporae profis are near record highs, long-erm unem-
ploymen remains significanly above is hisorical average.12
Te long-erm unemploymen rae has allen consisenly rom is peak during he
Grea ecession, bu his recovery has been painully slow. Moreover, even he
slow decline o he long-erm unemploymen rae is no necessarily he resul ohese unemployed workers finding jobs. Princeon Universiy economiss Alan
Krueger, Judd Cramer, and David Cho ound ha many long-erm jobless workers
give up on ever finding a job, and once hese workers exi he labor orce hey are
no longer echnically couned as unemployed.13 Workers who are unemployed or
exended periods o ime find i harder o reurn o work as heir skills arophy and
businesses are relucan o hire applicans wih long gaps in heir resume.14
FIGURE 2
The long-term unemployment ratePercentage of civilian labor force unemployed for at least 27 weeks
Source: Authors' calculations are based on Federal Reserve Bank of St. Louis, “Number of Civilians Unemployed for 27 Weeks and Over,”available at https://research.stlouisfed.org/fred2/series/UEMP27OV (last accessed December 2015); Federal Reserve Bank of St. Louis,
“Civilian Labor Force,” available at https://research.stlouisfed.org/fred2/series/CLF16OV (last accessed December 2015).
1948
0%
1%
2%
3%
4%
5%
1953 1958 1963 1968 1973 1978 1983 1988 1993 1998 2003 2008 2013
Historical average
8/20/2019 Expanding National Service to Address Long-term Unemployment
8/27
5 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Long-erm unemploymen affecs people o al l demographic groups, bu is
impacs are paricularly devasaing or young people rying o ener he job
marke or he firs ime. Young workers who have heir whole career in ron
o hem can have heir lieime earnings reduced by long-erm unemploymen.
Such earnings reducions also increase fiscal pressure on public benefi pro-
grams.15
In January 2010, he unemploymen rae among Americans aged 16 o24 who were no in school peaked a a whopping 21.7 percen.16 I was no unil
2015 ha he unemploymen rae among his group reurned o approximaely
12 percenis hisorical average beore he Grea ecession.17 As a conse-
quence o his persisen lack o opporuniy, in November 2015, here were sill
approximaely 378,000 young Americans aged 16 o 24 ou o work who had
been looking or a job or a leas 27 weeks. Tese young Americans represened
abou 19 percen o all long-erm unemployed workers.18
Failing o address long-erm unemploymen does lasing damage o workers,
heir amilies, and he enire economy. Long-erm unemploymen is lierallydebiliaing19 percen o hose individuals unemployed or more han one
year repor having or being reaed or depression, compared o 5.6 percen
o hose wih ull-ime jobs.19 Longer duraions o unemploymen are associ-
aed wih lower wages when a worker is finally able o find a job; moreover
his pay cu coninues or 15 o 20 years afer he episode o unemploymen.20
Tis damage even exends o he nex generaion, wih longer spells o parenal
unemploymen conneced o lower emoional wellbeing or children.21 Te
nonparisan Congressional Budge Office, or CBO, reduced is esimae or
long-erm economic poenial in he Unied Saes, in par because o he effecs
o persisenly high levels o long-erm unemploymen.22 Clearly, hese unem-
ployed workers can and should be conribuing o sociey.
Ye, even a ull economic recovery migh no be enough o bring he long-erm
unemployed back ino he labor orce. Krueger, Cramer, and Cho find ha, “Even
a imes whenor in regions wherehe economy is relaively srong, he long-
erm unemployed ace long odds o reurning o seady, ull-ime employmen.”23
Long-erm unemploymen has more o do wih bad iming han age, occupa-
ion, educaion, or any oher measurable acor.24
Te bes predicor o wheher a worker will become long-erm unemployed afer losing heir job is he dae o he
job loss; workers who lose heir job during a recession have he wors prospecs.25
8/20/2019 Expanding National Service to Address Long-term Unemployment
9/27
6 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Since long-erm unemploymen makes i harder o ever find a job, hese workers
need a pah back ino he labor marke. A emporary recession should no cause
workers o be permanenly cas aside. As Marin Luher King, Jr. said in a 1961
speech o he Unied Auomobile Workers Union, “[W]hen human values are
subordinaed o blind economic orces, human beings can become human scrap.”26
Naional service can direcly address his problem o long-erm unemploymen
by immediaely puting he unemployed o work, while building skills o help
hem find permanen employmen. No only would naional service provide a
pahway back ino he labor marke or he long-erm unemployed, i would also
address communiy needs ha would oherwise go unme. Tis sor o public
invesmen promoes shor-erm economic recovery by bringing more resources
ino sruggling areas, and suppors long-erm economic growh by expanding
producive labor supply.
8/20/2019 Expanding National Service to Address Long-term Unemployment
10/27
7 Center for American Progress | Expanding National Service to Address Long-term Unemployment
How national service can respond
to long-term unemployment
Naional service presens a soluion o long-erm unemploymen by offering
individuals he opporuniy o gain work experiencesuppored by a modes
living allowancewhile developing skills and conacs ha could lead o a career
in a relaed field. Naional service engages Americans o all income and educaion
levels and in urban, suburban, rural, and wilderness areas across he counry.
I is imporan o noe ha naional service posiions are no inended o ake
he place o a saey ne or long-erm employmen. By definiion, naionalservice posiions are emporary and provide only minimal suppor o hose
who ser ve. Naional ser vice incorporaes elemens o radiional employmen,
voluneering, and workorce developmen and educaion. While he radiional
naional service paricipan is a young adul beween he ages o 18 o 28,
here is no age limi in many programs. Because o is educaion and workorce
benefis o he paricipan, naional service appeals o individuals who are in
ransiionofen rom school o college or work, bu also rom one educaion
experience o anoher or one career o he nex. Alhough litle research has
been produced on his opic, i is likely ha he opporuniy o learn and build
new skills, develop social conacs, and gain work-relaed experience all play a
role. Tis may explain why unemployed individuals who voluneer are 27 per-
cen more likely o find paid employmen han hose who do no.27
In a period o high unemploymen, individuals may ace long periods wihou paid
work. Despie he benefis o voluneering, he lack o compensaion may prove a
deerren. However, because naional service, unlike radiional voluneering, ypi-
cally involves paymen o a modes living allowance as a means o enable individuals
o all economic backgrounds o paricipae, hese experiences are more appropriae
o individuals who are ou o work. I unded by AmeriCorps, addiional benefismay be available, including an educaion award equal o a Pell gran as well as
suden loan orgiveness and deerral, healh insurance, and child care assisance. In
some cases, AmeriCorps benefis do no affec eligibiliy or oher public benefis,
which may be imporan or individuals wih limied savings and oher resources.28
8/20/2019 Expanding National Service to Address Long-term Unemployment
11/27
8 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Beyond he immediae compensaion and benefis provided, an individual serving
in a naional service program ypically benefis in a variey o addiional ways.
Depending on he program and is design, naional service programs may provide
he opporuniy o develop work-relaed skills as well as oher broadly useul skills
such as eamwork and communicaion.29 esearch shows ha people who par-
icipae in naional service are happier and boh physically and menally healhierhan heir peers.30 In addiion, service experiences o all ypes help o develop
social capial, which is direcly relaed o he abiliy o find work and navigae
available inormal and ormal suppor sysems.31
Specialized programs known as youh corps are argeed o youh and young
aduls, ages 16 o 24, who may have limied educaion or work experience. In mos
cases, hese programs provide ormal job raining and educaionincluding GED
preparaionalong wih eam-based service, ypically relaed o he job raining
provided. For example, youh corps o Te Corps Nework are direc descendans
o he depression-era Civilian Conservaion Corps and ocus on environmen-al and energy conservaion projecs along wih inrasrucure. YouhBuild is a
ederally unded youh corps ha iniially ocused on consrucion skills and now
incorporaes raining in oher fields, including healh care and inormaion ech-
nology, while enabling he enrollees o earn a GED or high school diploma while
providing communiy service and gaining leadership raining.32
Trough he experience o serving, individuals ypically develop skills ha
appeal o employers. Employers o Naional Servicea campaign suppored
by he Corporaion or Naional and Communiy Service, or CNCS, he
Peace Corps, he Franklin Projec, and oher parnersidenifies employers
who agree o recrui naional service alumni. Te more han 300 paricipaing
employers recognize he skills and qualiies developed hrough service and
include companies such as Comcas, Disney, and CSX; nonprofi organizaions
such as he Unied Way Worldwide, he American ed Cross, and Naional
Associaion o Communiy Healh Ceners, Inc.; and governmen agencies such
as he U.S. Office o Personnel Managemen, he Ciy o Philadelphia, and he
Miami-Dade Couny Public Schools.33
Increasingly, naional service programs have developed sraegies o enable servicecorps members o build heir skills and credenials, including he abiliy o earn
college credi. In recen years, programs have ormed parnerships wih colleges
and universiies, developed innovaive sraegies o enable paricipans o earn
possecondary credi or college-level learning hrough heir programs, and incor-
poraed opporuniies o earn micro-credenialswhich documen masery o
paricular skillsas well as radiional cerificaions.34
8/20/2019 Expanding National Service to Address Long-term Unemployment
12/27
9 Center for American Progress | Expanding National Service to Address Long-term Unemployment
For hese reasons, naional service has increasingly been recognized as boh a
workorce developmen sraegy and an experienial orm o possecondary educa-
ion. During periods o long-erm high unemploymen, expanding he availabiliy
o hese opporuniies would provide individuals a means o gaining experience,
skills, and connecions.
In addiion, an expansion o naional service would provide valuable resources
o organizaions ha are called upon o expand heir capaciy during ough
economic imes o provide services such as ani-hunger effors; programs or
individuals a risk o homelessness; job search, raining, and oher work-relaed
assisance; English language insrucion; civil legal aid; and benefis navigaion.
During he 2008 recession, nonprofis repored significan increased demand or
services bu decreased abiliy o mee he rise in demand.35
Te 2008 recession also illusraed he poenial or naional service by skilled
employees who lose heir jobs. Some o hese individuals are likely o akeposiions below heir skills levels, hereby displacing oher poenial workers.
However, ohers could insead be drawn o service opporuniies as a way o avoid
having a resume gap and o keep heir neworks and skills resh.
Given he diversiy o poenial opporuniies, naional service could play an
imporan role during periods o high unemploymen. For young aduls enering
he labor marke, naional service provides he opporuniy o ener a field, build
skills, and earn credenials ha can lead o long-erm employmen. For older
workers, including long-erm unemployed individuals, naional service experi-
ences may keep skills up-o-dae or aciliae a career change.
Te nex secion lays ou he policies ha mus be in place in order o make
naional service a sraegy o successully address long-erm unemploymen.
8/20/2019 Expanding National Service to Address Long-term Unemployment
13/27
10 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Implementing a temporary
expansion of national service
Experience from the American Recovery and Recovery Act of 2009
In 2009, naional service was included in ederal legislaion o address he Grea
ecession, he American ecovery and einvesmen Ac, or AR. Tis bill
provided $200 million o he Corporaion or Naional and Communiy Service
o engage 10,000 gran-unded AmeriCorps members and 3,000 AmeriCorps
VISA members, along wih maching und relie o granees and unds or ech-
nology inrasrucure.36 Tese numbers were exceeded in pracice, wih morehan 15,000 individuals able o serve as a resul o he emporary unds.37 AR
also provided an addiional $50 million or YouhBuild o engage approximaely
3,100 members.38
AR ook a ar differen approach o naional service as a sraegy o figh
unemploymen han he approach used during he Grea Depression. Te Civilian
Conservaion Corps was run by he ederal governmen, wih hundreds o hou-
sands o young men perorming physical service o preserve naural resources
supervised by governmen employees and living in camps on governmen lands.39
In conras, he 2009 program engaged a diverse populaion o approximaely
18,000 men and women in a variey o service aciviies wih no limiaion on age.
aher han running programs direcly, he ederal agencies responsible or he
2009 program relied on a nework o nonprofi organizaions and public agencies
ha were already running AmeriCorps, AmeriCorps VISA, or YouhBuild pro-
grams, wih he ederal role ocused on making grans or assigning AmeriCorps
VISA posiions, and ensuring legal compliance.
AR was successul in expanding naional service opporuniies or boh young
workers who were sruggling o land a firs job as well as experienced work-ersincluding veeranssruggling wih unemploymen. Examples o projecs
included he ollowing:
8/20/2019 Expanding National Service to Address Long-term Unemployment
14/27
11 Center for American Progress | Expanding National Service to Address Long-term Unemployment
• YouhBuild provided posiions or youh wihou high school degrees. Hal o
hese jobs were argeed o green consrucion, such as convering oreclosed
properies ino low-income housing, building energy-efficien homes or low-
income amilies, and conducing energy audis and rerofis.• VISA AmeriCorps members buil he capaciy o organizaions o engage vol-
uneers, raise unds, and expand service delivery a a ime o need.• Youh Corps o he Corps Nework provided energy efficiency and weaher-
izaion services o low-income residens along wih wildfire remediaion and
public lands repair and revializaion.• AmeriCorps members suppored wih grans offered job counseling and place-
men services, provided housing oreclosure prevenion and financial counsel-
ing, srenghened ood banks, provided lieracy uoring, and provided financial
planning services and oher assisance o people acing unemploymen, povery,
or oher economic challenges.
As a resul o his service, by December 2010:
• More han 121,000 Americans received uoring and lieracy services• More han 219,000 cliens received financial lieracy services• More han 113,000 people received services relaed o home oreclosure
and housing assisance• More han 181,000 individuals received employmen skills raining
and counseling• More han 15,000 cliens were placed in jobs40
While AR successully expanded naional service opporuniies, i also creaed
challenges or he naional service field in subsequen years. In 2011, due o budge
cus and expiraion o he emporary AR gran program, 121 YouhBuild pro-
grams los ederal unding.41 AmeriCorps programs ared beter, bu only because
passage o he Serve America Ac resuled in a small increase in annual unding.42
Principles
aking lessons rom boh he AR experience and he Presiden oosevel’sNew Deal, a muli-par sraegy is advisable or he use o naional service as an
auomaic sabilizer in uure recessions. Te Cener or American Progress pro-
poses he ollowing principles:
8/20/2019 Expanding National Service to Address Long-term Unemployment
15/27
12 Center for American Progress | Expanding National Service to Address Long-term Unemployment
1. Expand existing programs rather than create of new ones. Because o he
coss and ime associaed wih saring up a new service program and he goal
o supporing qualiy experiences, emporary expansions should be carried ou
hrough exising programs ha have srong rack records. Programs unded by
AmeriCorps grans, AmeriCorps VISA, and YouhBuild should receive prioriy
consideraion, since he overall scale o hese programs can be flexible over ime.
2. Prioritize programs—including youth corps and specialized service corps—
that build skills and education to improve long-term employment prospects.
o maximize he benefi o he service experience, programs ha offer educaion
or skill-building opporuniiessuch as he opporuniy o earn a GED, college
credi, or employer-recognized credenialshould be given prioriy or unding.
Specialized programs can also engage skilled workersas Jusice AmeriCorps
does wih lawyers and paralegals o improve legal represenaion or unaccompa-
nied immigran minorswhich helps hese workers mainain heir skills afer a
job loss while perorming service argeing imporan naional prioriies.43
3. Provide programs appropriate for both younger workers and experienced
workers facing long-term unemployment as a result of the economy. As
discussed earlier, service programs engage individuals wih a wide range o skills
and backgrounds. Some such as youh corps, are specialized and ocus on a par-
icular populaion, while ohers seek a mix o individuals or are open o aduls o
all ages. Te ype o service may vary rom physical labor o office work, and may
ake place in a wide range o setings, rom naional parks or urban los, o non-
profi offices or elemenary schools. Programs should be idenified o ensure ha
posiions are appropriae or everyone rom young aduls lacking work experi-
ence o older workers who need o change fields or develop new skills in order o
gain permanen employmen, including older workers wih physical limiaions
who need o move rom manual labor o less physically demanding work.
4. Support programs that prioritize service opportunities for long-term unem-
ployed workers. While i may be beyond he scope o he Corporaion or
Naional and Communiy Service o enorce a rigid quoa or programs o
make slos available o long-erm unemployed workers, programs ha receive
unding hrough a emporary expansion o naional service should submi aplan o CNCS or how hey will engage he long-erm unemployed populaion.
Tis plan may ocus on paricular ages, skills, or oher characerisics depending
on he naure o he program, and include coordinaion wih oher programs
ha assis workers dealing wih long-erm unemploymen.
8/20/2019 Expanding National Service to Address Long-term Unemployment
16/27
13 Center for American Progress | Expanding National Service to Address Long-term Unemployment
5. Direct service to needs that are temporary in nature or related to needs that
increase during an economic downturn. During a period o economic sress,
needs commonly addressed by public agencies and nonprofi organizaions
serving low-income populaions are likely o increase, such as ani-hunger
effors; programs or individuals a risk o homelessness; job search, raining
and oher work-relaed assisance; English language insrucion; civil legalaid; and benefis navigaion.44 Programs ha engage AmeriCorps members o
address hese needs, or build he capaciy o he organizaions ha do, should
receive prioriy. Similarly, projecs ha are emporary in naure, which are eas-
ily scaled up and back down again upon compleion, should also be argeed.
Ideally, hese projecs would address backlogs and high-prioriy needs such as
physical, ransporaion, and echnology inrasrucure; consrucion, renova-
ion, and preservaion projecs; disabiliy access; land conservaion; disaser
response; and energy conservaion projecs.
6. Utilize service to address public needs through contracting and procurementin addition to direct support of positions. Some naional service programs,
paricularly youh corps, are unded in par by earned income paid o he
program or is work. Tis earned income includes governmen unding rom
various agencies o carry ou public projecs. During a period o economic
downown, eliminaing mainenance backlogs and addressing oher public
inrasrucure needs should be a prioriy, as should addressing oher large-scale
public challenges, rom a shorage o English language learning opporuniies
o improving veerans aciliies. Tese could be addressed cos-effecively by
conracs or cooperaive agreemens wih naional service programs. Te 21s
Cenury Conservaion Service Corps, or example, is a public-privae service
parnership where ederal agencies ener ino cooperaive agreemens wih
youh corps and recreaion businesses o accomplish backlogged conservaion
and inrasrucure projecs or he public’s benefi while engaging youh and
veerans in naional service.
Implementation
Te Corporaion or Naional and Communiy Service, because o is serviceexperise, should serve as he lead agency o implemen a emporary expansion.
CNCS should prepare plans o scale up is saff capaciy by ideniying a dedi-
caed eam o prepare or a emporary expansion and raining individuals across
CNCS and oher agencies ha could be deailed o implemen his expansion.
Oher agencies should be required o designae an official responsible or ensuring
appropriae planning and overseeing implemenaion.
8/20/2019 Expanding National Service to Address Long-term Unemployment
17/27
14 Center for American Progress | Expanding National Service to Address Long-term Unemployment
CNCS should develop an execuive branch-wide plan or implemenaion, well in
advance o he riggering o he auomaic sabilizer. Tis plan should include he
ollowing elemens:
• A process o enable AmeriCorps and YouhBuild programs o apply o be
prequalified and prioriized based on he above principles• An online plaorm o connec paricipans wih high-qualiy naional service
opporuniies, and o connec naional service programs wih projecs idenified
by ederal agencies, sae, and local governmens, and nonprofi organizaions45 • A process o ideniy curren and ormer VISA sponsors working in fields likely
o experience increased demand during a period o high unemploymen• A requiremen ha sae service commissions develop plans wihin heir saes
o implemen in he even o a emporary naional service expansion• A markeing and recruimen plan o reach individuals experiencing long-erm
unemploymen o inorm hem o opporuniies o serve, which should include
workers o all ages and skill levels• A plan o proec agains negaive impacs on communiies and programs afer
he auomaic sabilizer expires
Finally, CNCS should ideniy legislaive and adminisraive barriers ha sand
in he way o rapid implemenaion and make recommendaions o waive hese
barriers in he even ha he auomaic sabilizer is riggered. Areas where such
waivers migh be appropriae include he ollowing:
• Te AmeriCorps requiremen or organizaions o provide maching unds
could be scaled back during a emporary expansion since hese organizaions
may sruggle o raise addiional unding during a recession.• Federal procuremen regulaions may need o be sreamlined o enable a rapid
emporary expansion o naional service programs.• esricions on using AmeriCorps unding o help people access public benefi
programs could be suspended during a emporary expansion when he need is
greaes or hese programs.46
Tese waivers mus balance he imporance o rapidly responding o changing
economic condiions wih reasonable rules o mainain high sandards or naionalservice programs.
8/20/2019 Expanding National Service to Address Long-term Unemployment
18/27
15 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Parameters for a temporary
expansion of national service
Policymakers will need o balance several goals o craf a policy or auomaic
and emporary naional service expansions. Firs, new service posiions should
be esablished rapidly o respond o long-erm unemploymen beore jobless
workers permanenly exi he labor orce. Second, he rae o his expansion
should no exceed he rae ha nonprofis can expand heir own capaciy o man-
age new naional service posiions, or he rae ha he Corporaion or Naional
and Communiy Service can expand is capaciy o oversee hese posiions. And
finally, he expansion should be designed o avoid an abrup cu in suppor ornaional service as hese emporary posiions expire. Tis secion offers a plan o
achieve hese goals, and esimaes he impac ha his plan would have or boh
naional service and he ederal budge.
CAP proposes he auomaic creaion o 25,000 posiions or every enh o a
percenage poin by which he long-erm unemploymen rae exceeds is hisori-
cal average o 1 percen. o preven scaling up more rapidly han CNCS and he
nonprofi communiy can manage, no more han 25,000 new posiions would be
esablished in any calendar quarer. o preven an abrup cliff in naional service
unding, hese emporary posiions would be suppored or a ull year even i
he long-erm unemploymen rae declines during ha period. I he long-erm
unemploymen rae remains elevaed a he end o he year, he posiions would be
renewed or anoher ull year, which would no preclude he esablishmen o up
o 25,000 new posiions i he long-erm unemploymen rae remains high. Tese
guard rails do no limi he overall size o a emporary expansion i long-erm
unemploymen remains high or an exended period, bu hey do regulae he rae
a which naional service posiions are creaed and eliminaed.
I is well wihin he capaciy o he ederal governmen o esablish 25,000naional service posiions per quarer, or 100,000 per year. In 1933, he oosevel
Adminisraion filled 274,375 posiions or he newly esablished Civilian
Conservaion Corps in jus hree monhs.47 Te AR creaed abou 15,000 new
8/20/2019 Expanding National Service to Address Long-term Unemployment
19/27
16 Center for American Progress | Expanding National Service to Address Long-term Unemployment
posiions hrough AmeriCorps grans and AmeriCorps VISAon shor noice
and as par o a much broader response o he Grea ecessionwhich increased
he size o hese programs abou 21 percen above heir fiscal year 2008 capaciy o
abou 72,000 posiions.48 CAP’s plan makes a rapid expansion possible by requiring
CNCS o mainain coningency plans or such an expansion, and by consisenly
unding 250,000 naional service posiions across a variey o secorsincreasinghe number o pahways or CNCS o implemen a emporary expansion.
Tis proposed policy would respond effecively o boh large and small recessions,
alhough i would no eliminae he need or Congress o ake urher decisive
acion or deep economic downurns. When long-erm unemploymen grew
above is hisorical average rom 2002 o 2004, his policy would have generaed
a seady and moderae response, wih a peak o 100,000 emporary posiions in
mid-2003.49 Tis would have had he poenial o reach 5 percen o he approxi-
maely 2 million workers who were unemployed or 27 weeks or more in mid-
2003.50 Te objecive o he program is no o creae a naional service posiion orevery long-erm unemployed worker, bu raher o provide more opions or some
workers o choose service while he privae-secor job marke recovers.
When long-erm unemploymen began o climb sharply in 2008 during he Grea
ecession, his policy would have seadily ramped up naional service. Naional
service would have coninued o expand even afer he Grea ecession echni-
cally ended, since long-erm unemploymen has remained elevaed or such a long
period o ime. A oal o 100,000 posiions would have been added each year
saring in mid-2008, and he number o emporary naional service posiions
would have peaked a 475,000 in 2013. Afer ha, he emporary expansion would
begin o wind down as long-erm unemploymen ell oward is hisorical average.
Under his policy, here would have been 125,000 emporary posiion in he hird
quarer o 2015, a a ime when here were abou 2.2 million long-erm unem-
ployed workers and he long-erm unemploymen rae was 1.4 percen.51 While
a long-erm unemploymen rae o 1.4 percen ypically corresponds o 100,000
emporary posiions under his policy, here would sill be an exra 25,000 posi-
ions ha were creaed previously and susained or a ull year despie he alling
long-erm unemploymen rae.
8/20/2019 Expanding National Service to Address Long-term Unemployment
20/27
17 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Expanding naional service is a highly cos effecive way o responding o unem-
ploymen. Funding 25,000 posiions or a ull year would cos abou $520 million,
based on he average cos or an AmeriCorps VISA posiion o slighly less han
$21,000.52 Federal coss or AmeriCorps VISA posiions are significanly higher
han ypical ederal coss or posiions unded hrough AmeriCorps sae and
naional grans, meaning ha his cos esimae provides room or CNCS o scale
back maching und requiremens or hose gran programs.53
For he sake o comparison, he average weekly unemploymen benefi in 2013
was $309.44, which ranslaes o an annualized benefi o $17,328.64 a a ime
when beneficiaries in high-unemploymen saes were eligible or more han a year
o paymens.54 I should be noed, however, ha he average duraion o unem-
ploymen benefis in 2013 was approximaely 17 weeks, so he ypical beneficiarydid no receive unemploymen compensaion or a ull year.55 AmeriCorps service
may reduce unemploymen compensaion claims, bu i does no necessarily
preclude coninued receip o unemploymen compensaion rom a previous los
jobhis is deermined by sae law.56
0
100K
200K
300K
400K
500K
FIGURE 3
Long-term unemployment rate and the numberof temporary national service positions
Simulation of CAP policy to increase national service in
times of high long-term unemployment, 2000 to 2015
Source: Authors' calculations are based on Federal Reserve Bank of St. Louis, “Number of Civilians Unemployed for 27 Weeks and Over,”available at https://research.stlouisfed.org/fred2/series/UEMP27OV (last accessed December 2015); Federal Reserve Bank of St. Louis,
“Civilian Labor Force,” available at https://research.stlouisfed.org/fred2/series/CLF16OV (last accessed December 2015).
0.0%
1.0%
2.0%
3.0%
4.0%
0.5%
1.5%
2.5%
3.5%
4.5%
600K
700K
800K
900K
2000 2002 2004 2006 2008 2010 2012 2014 2015
Long-term
unemployment rate
Temporary national
service positions
8/20/2019 Expanding National Service to Address Long-term Unemployment
21/27
18 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Since a emporary expansion would uncion as an auomaic fiscal sabilizer, he
cos o he program will peak during periods o persisen economic weakness,
and here will be no cos when he economy is working and long-erm unem-
ploymen remains a or below is hisorical average. Based on CAP’s calculaions,
during he milder recession in he early 2000s, he cos would have peaked a
around $1.4 billion in fiscal year 2003 o suppor beween 50,000 and 100,000emporary posiions. In he wake o he Grea ecession, spending on emporary
naional service would have peaked a abou $9.4 billion in fiscal year 2013 o sup-
por more han 400,000 emporary posiions. For he sake o comparison, ederal
spending on unemploymen compensaionanoher vially imporan auomaic
sabilizeroaled $69 billion in fiscal year 2013.57
During he 15-year period rom fiscal year 2000 o fiscal year 2014, emporary
naional service posiions would have cos a oal o $38.9 billion, or around $2.6
billion per year on average. Tis unding would have provided opporuniies or
abou 1.87 million Americans o complee a year o service and ge back ino he workorce during ough economic imes.
As ormerly unemployed naional service paricipans move ino permanen jobs
where hey are paying more axes and relying less on public benefis, he ederal
governmen may be able o deray he coss o he naional service program. A
2013 sudy by economis Clive Belfield calculaed ha $1 o public invesmen
in naional service yields $2.15 in fiscal benefis rom higher ax collecions and
lower spending on saey ne programs.58 Te same sudy also looked beyond
governmen o analyze he reurn on invesmen or he overall economy, and
calculaed a reurn on invesmen o $3.93 or every $1 spen on naional service,
which includes he value o he service provided and he long-erm benefis o a
more producive workorce.59 Tese esimaes are subjec o considerable uncer-
ainy, bu hey sugges ha an invesmen o $2.6 billion in naional service would
evenually yield a oal o $5.59 billion in higher ax receips and reduced spend-
ing, and $10.2 billion oal economic benefis.
8/20/2019 Expanding National Service to Address Long-term Unemployment
22/27
19 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Conclusion
Long-erm unemploymen remains a serious naional economic problem, espe-
cially since many workers who are no longer couned as unemployed may have
exied he labor orce having given up on ever finding a job. Te persisenly high
long-erm unemploymen rae in he wake o he Grea ecession indicaes a pol-
icy response ha was inadequae o address he scope o his paricular challenge.
Expanding naional service now by ully unding he Serve America Ac is a way
o help address he immediae problem o long-erm unemploymen, as well as
increase all o he oher benefis ha he naion accrues rom service. Esablishingan auomaic sabilizer o und emporary naional service posiions would apply
lessons learned rom he Grea ecession o address persisenly high long-erm
unemploymen in uure economic downurns.
Long-erm unemployed workers ace paricularly seep challenges o finding a job,
bu long-erm unemploymen is a solvable problem. During he Grea Depression,
he ederal governmen made a choice o dramaically reduce he unemploymen
rae wih work relie programs. In addiion o puting he unemployed back o work,
hose programs buil roads, bridges, parks, and airporsincluding many aciliies
ha sill exis oday, such as Camp David and New York’s LaGuardia Airpor.
I lawmakers plan in advance o respond decisively o spikes in long-erm unem-
ploymen by esablishing a sysem o auomaically and emporarily expand
naional service, hen oday’s service programs will alleviae uure economic
hardship and build a legacy or generaions o come.
8/20/2019 Expanding National Service to Address Long-term Unemployment
23/27
20 Center for American Progress | Expanding National Service to Address Long-term Unemployment
About the authors
Shirley Sagawa is a Visiing Senior Fellow a American Progress and is he
auhor o Te American Way to Change , which highlighs ways ha voluneer and
naional service is an imporan bu underuil ized sraegy o solve problems
in American communiies. She is he Presiden and CEO o he Service Year Alliance and he ounder o he Service Year Exchange, a echnology plaorm
or ull-ime, ull-year service.
Sagawa served as a presidenial appoinee in boh he George H.W. Bush and
Clinon adminisraions. As depuy chie o saff o ormer Firs Lady Hillary
Clinon, she advised he firs lady on domesic policy and organized hree Whie
House conerencesincluding he firs-ever Whie House Conerence on
Philanhropy. As special assisan o he presiden or domesic policy, Sagawa was
insrumenal o he drafing and passage o legislaion creaing he Corporaion
or Naional Service. Afer being confirmed by he Senae as he corporaion’s firsmanaging direcor, she led he developmen o new service programs or aduls
and sudens, including AmeriCorps. She also direced sraegic planning or his
new governmen corporaion.
Sagawa graduaed magna cum laude rom Smih College. She holds a maser’s
degree in public policy rom he London School o Economics and is a cum
laude graduae o Harvard Law School.
Harry Stein is he Direcor o Fiscal Policy a he Cener or American Progress.His work ocuses on he ax and spending choices wihin he ederal budge, and
he has writen exensively abou opics including appropriaions, ax expendiures,
and he budge oulook. Prior o joining he Cener, he worked as a legislaive
assisan o Sen. Herb Kohl (D-WI). His porolio included he ederal budge,
ax policy, and naional securiy, including Sen. Kohl’s work on he Deense
Appropriaions Subcommitee. In ha posiion, Sein spearheaded successul
effors o permanenly exend he ax credi or employer-provided child care and
o compensae roops who had been wrongully denied benefis ha hey earned
in connecion wih overseas deploymens.
8/20/2019 Expanding National Service to Address Long-term Unemployment
24/27
21 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Sein has appeared on radio and elevision saions including MSNBC, CNBC,
and BBC World Service, and he has published opinion pieces in oules such
as euers, Te Guardian , and Roll Call. His work has been cied by publica-
ions including Te Washington Post , Te Atlantic , and Te New Yorker , and he
has been quoed in Te Wall Street Journal , Bloomberg , Politico , and many oher
major news sources.
Sein is an experienced ax proessional and voluneers his ime o prepare ax
reurns or low-income cliens hrough he DC Earned Income ax Credi
Campaign. He received his bachelor’s degree in poliical science and psychology
rom he Universiy o Wisconsin–Madison.
8/20/2019 Expanding National Service to Address Long-term Unemployment
25/27
22 Center for American Progress | Expanding National Service to Address Long-term Unemployment
Endnotes
1 Data are seasonally adjusted. Federal Reserve Bank of St.Louis, “Number of Civilians Unemployed for 27 Weeksand Over,” available at https://research.stlouisfed.org/fred2/series/UEMP27OV (last accessed January 2016).
2 The National Bureau of Economic Research, “US Busi-ness Cycle Expansions and Contractions,” available athttp://www.nber.org/cycles.html (last accessed January2016).
3 National Park Service, “Franklin Delano RooseveltMemorial Quotations,” available at http://www.nps.gov/frde/photosmultimedia/quotations.htm (last accessedJanuary 2016).
4 Michael R. Darby, “Three-and-a-Half Million U.S.Employees Have Been Mislaid: Or, an Explanation of Un-employment, 1934-1941,” Journal of Political Economy 84 (1) ( 1976): 1–16, available at http://www.jstor.org/stable/1830168.
5 The Living New Deal, “Projects by Category,” availableat https://livingnewdeal.org/project-categories/ (lastaccessed January 2016).
6 Serve America Act, Public Law 111-13, 111th Cong.,1 sess. (2009), available at https://www.congress.gov/111/plaws/publ13/PLAW-111publ13.pdf.
7 Corporation for National and Community Service, Con-gressional Budget Justification, Fiscal Year 2016 (2015),p. 8, available at http://www.nationalservice.gov/sites/default/files/page/cncs_2016_CBJ_Final.pdf .
8 Martin Luther King, Jr., “The Drum Major Instinct,” Febru-ary 4, 1968. In Clayborne Carson and Peter Holloran, eds., A Knock at Midnight(New York: Warner Books, 2000).
9 Federal Reserve Bank of St. Louis, “Civilian Labor Force,”available at https://research.stlouisfed.org/fred2/series/CLF16OV (last accessed January 2016); Federal ReserveBank of St. Louis, “Number of Civilians Unemployed for27 Weeks and Over.”
10 Under the policy recommended in this report, tempo-
rary national service positions would have peaked inthe first quarter of 2013. Federal Reserve Bank of St.Louis, “Number of Civilians Unemployed for 27 Weeksand O ver.”
11 Clive Belfield, “The Economic Value of National Service”(New York: Columbia University Center for Benefit-CostStudies in Education, 2013), p. 16, available at http://voicesforservice.org/resources/Sep19_Econ_Value_Na-tional_Service.pdf .
12 Ben Steverman, “The Great Recession Put Us in a Hole.Are We Out Yet?,” Bloomberg, October 27, 2014, avail-able at http://www.bloomberg.com/news/2014-10-27/the-great-recession-put-us-in-a-hole-are-we-out-yet-.html; Bureau of Economic Analysis, “National Data,”
Table 1.12, available at http://www.bea.gov/iTable/index_nipa.cfm (last accessed January 2016 ); FederalReserve Bank of St. Louis, “Number of Civilians Unem-
ployed for 27 Weeks and Over.”
13 Alan B. Krueger, Judd Cramer, David Cho, “Are theLong-Term Unemployed on the Margins of the LaborMarket?” Brookings Papers on Economic Activity (Spring)(2014): 229-299, available at http://www.brookings.edu/~/media/Projects/BPEA/Spring%202014/2014a_Krueger.pdf .
14 Jeffry Bartash, “Why companies are wary to hirelong-term unemployed,” MarketWatch, April 3, 2014,available at http://www.marketwatch.com/story/why-companies-are-wary-to-hire-the-long-term-unem-ployed-2014-04-03.
15 Sarah Ayres, “The High Cost of Youth Unemployment”(Washington: Center for American Progress, 2013), avail-able at http://cdn.americanprogress.org/wp-content/uploads/2013/04/AyresYouthUnemployment1.pdf .
16 Data are not seasonally adjusted. Federal ReserveBank of St. Louis, “Unemployment Rate: Not Enrolledin School, 16-24 years,” available at https://research.stlouisfed.org/fred2/series/LNU04023016 (last accessedJanuary 2016).
17 Ibid.
18 Bureau of Labor Statistics, “A-36. Unemployed personsby age, sex, race, Hispanic or Latino ethnicity, maritalstatus, and duration of unemployment,” November2015, available at http://www.bls.gov/opub/ee/2015/cps/tablea36_201511.pdf .
19 Steve Crabtree, “In U.S., Depression Rates Higher forLong-Term Unemployed,” Gallup, June 9, 2014, availableat http://www.gallup.com/poll/171044/depression-rates-higher-among-long-term-unemployed.aspx.
20 Austin Nichols, Josh Mitchell, and Stephan Lindner,“Consequences of Long-Term Unemployment” (Washington: The Urban Institute, 2013), p. 5, availableat http://www.urban.org/uploadedpdf/412887-conse-quences-of-long-term-unemployment.pdf.
21 Ibid.
22 Congressional Budget Office, “The Budget and Eco-nomic Outlook: 2014 to 2024” (2014), p. 40, availableat http://www.cbo.gov/sites/default/files/45010-Out-look2014_Feb_0.pdf.
23 Krueger, Cramer, and Cho, “Are the Long-Term Unem-ployed on the Margins of the Labor Market?”
24 Ben Casselman, “The Biggest Predictor of How LongYou’ll Be Unemployed Is When You Lose Your Job,”FiveThirtyEight, April 17, 2014, available at http://fivethir-tyeight.com/features/the-biggest-predictor-of-how-long-youll-be-unemployed-is-when-you-lose-your-job/ .
25 Ibid.
26 Martin Luther King, Jr., “Speech to the United Automo-bile Workers Union in Detroit, Michigan,” April 27, 1961.In Michael K. Honey, ed., All Labor Has Dignity (Boston:Beacon Press, 2011).
27 Christopher Spera and others, “Volunteering as a Path-way to Employment: Does Volunteering Increase Oddsof Finding a Job for the Out of Work?” (Washington:Corporation for National and Community Service,2013), available at http://www.nationalservice.gov/
sites/default/files/upload/employment_research_re-port.pdf.
28 Corporation for National and Community Service,“AmeriCorps State and National Policy FrequentlyAsked Questions (FAQs),” p. 26, available at http://www.nationalservice.gov/sites/default/files/documents/AmeriCorps_State_National_Policy_FAQs.pdf (last ac-cessed January 2016).
https://research.stlouisfed.org/fred2/series/UEMP27OVhttps://research.stlouisfed.org/fred2/series/UEMP27OVhttp://www.nber.org/cycles.htmlhttp://www.nps.gov/frde/photosmultimedia/quotations.htmhttp://www.nps.gov/frde/photosmultimedia/quotations.htmhttps://livingnewdeal.org/project-categories/https://www.congress.gov/111/plaws/publ13/PLAW-111publ13.pdfhttps://www.congress.gov/111/plaws/publ13/PLAW-111publ13.pdfhttp://www.nationalservice.gov/sites/default/files/page/cncs_2016_CBJ_Final.pdfhttp://www.nationalservice.gov/sites/default/files/page/cncs_2016_CBJ_Final.pdfhttps://research.stlouisfed.org/fred2/series/CLF16OVhttps://research.stlouisfed.org/fred2/series/CLF16OVhttp://voicesforservice.org/resources/Sep19_Econ_Value_National_Service.pdfhttp://voicesforservice.org/resources/Sep19_Econ_Value_National_Service.pdfhttp://voicesforservice.org/resources/Sep19_Econ_Value_National_Service.pdfhttp://www.bloomberg.com/news/2014-10-27/the-great-recession-put-us-in-a-hole-are-we-out-yet-.htmlhttp://www.bloomberg.com/news/2014-10-27/the-great-recession-put-us-in-a-hole-are-we-out-yet-.htmlhttp://www.bloomberg.com/news/2014-10-27/the-great-recession-put-us-in-a-hole-are-we-out-yet-.htmlhttp://www.bea.gov/iTable/index_nipa.cfmhttp://www.bea.gov/iTable/index_nipa.cfmhttp://www.brookings.edu/~/media/Projects/BPEA/Spring%202014/2014a_Krueger.pdfhttp://www.brookings.edu/~/media/Projects/BPEA/Spring%202014/2014a_Krueger.pdfhttp://www.brookings.edu/~/media/Projects/BPEA/Spring%202014/2014a_Krueger.pdfhttp://www.brookings.edu/~/media/Projects/BPEA/Spring%202014/2014a_Krueger.pdfhttp://www.marketwatch.com/story/why-companies-are-wary-to-hire-the-long-term-unemployed-2014-04-03http://www.marketwatch.com/story/why-companies-are-wary-to-hire-the-long-term-unemployed-2014-04-03http://www.marketwatch.com/story/why-companies-are-wary-to-hire-the-long-term-unemployed-2014-04-03http://cdn.americanprogress.org/wp-content/uploads/2013/04/AyresYouthUnemployment1.pdfhttp://cdn.americanprogress.org/wp-content/uploads/2013/04/AyresYouthUnemployment1.pdfhttps://research.stlouisfed.org/fred2/series/LNU04023016https://research.stlouisfed.org/fred2/series/LNU04023016http://www.bls.gov/opub/ee/2015/cps/tablea36_201511.pdfhttp://www.bls.gov/opub/ee/2015/cps/tablea36_201511.pdfhttp://www.gallup.com/poll/171044/depression-rates-higher-among-long-term-unemployed.aspxhttp://www.gallup.com/poll/171044/depression-rates-higher-among-long-term-unemployed.aspxhttp://www.urban.org/uploadedpdf/412887-consequences-of-long-term-unemployment.pdfhttp://www.urban.org/uploadedpdf/412887-consequences-of-long-term-unemployment.pdfhttp://www.cbo.gov/sites/default/files/45010-Outlook2014_Feb_0.pdfhttp://www.cbo.gov/sites/default/files/45010-Outlook2014_Feb_0.pdfhttp://fivethirtyeight.com/features/the-biggest-predictor-of-how-long-youll-be-unemployed-is-when-you-lose-your-job/http://fivethirtyeight.com/features/the-biggest-predictor-of-how-long-youll-be-unemployed-is-when-you-lose-your-job/http://fivethirtyeight.com/features/the-biggest-predictor-of-how-long-youll-be-unemployed-is-when-you-lose-your-job/http://www.nationalservice.gov/sites/default/files/upload/employment_research_report.pdfhttp://www.nationalservice.gov/sites/default/files/upload/employment_research_report.pdfhttp://www.nationalservice.gov/sites/default/files/upload/employment_research_report.pdfhttp://www.nationalservice.gov/sites/default/files/documents/AmeriCorps_State_National_Policy_FAQs.pdfhttp://www.nationalservice.gov/sites/default/files/documents/AmeriCorps_State_National_Policy_FAQs.pdfhttp://www.nationalservice.gov/sites/default/files/documents/AmeriCorps_State_National_Policy_FAQs.pdfhttp://www.nationalservice.gov/sites/default/files/documents/AmeriCorps_State_National_Policy_FAQs.pdfhttp://www.nationalservice.gov/sites/default/files/documents/AmeriCorps_State_National_Policy_FAQs.pdfhttp://www.nationalservice.gov/sites/default/files/documents/AmeriCorps_State_National_Policy_FAQs.pdfhttp://www.nationalservice.gov/sites/default/files/upload/employment_research_report.pdfhttp://www.nationalservice.gov/sites/default/files/upload/employment_research_report.pdfhttp://www.nationalservice.gov/sites/default/files/upload/employment_research_report.pdfhttp://fivethirtyeight.com/features/the-biggest-predictor-of-how-long-youll-be-unemployed-is-when-you-lose-your-job/http://fivethirtyeight.com/features/the-biggest-predictor-of-how-long-youll-be-unemployed-is-when-you-lose-your-job/http://fivethirtyeight.com/features/the-biggest-predictor-of-how-long-youll-be-unemployed-is-when-you-lose-your-job/http://www.cbo.gov/sites/default/files/45010-Outlook2014_Feb_0.pdfhttp://www.cbo.gov/sites/default/files/45010-Outlook2014_Feb_0.pdfhttp://www.urban.org/uploadedpdf/412887-consequences-of-long-term-unemployment.pdfhttp://www.urban.org/uploadedpdf/412887-consequences-of-long-term-unemployment.pdfhttp://www.gallup.com/poll/171044/depression-rates-higher-among-long-term-unemployed.aspxhttp://www.gallup.com/poll/171044/depression-rates-higher-among-long-term-unemployed.aspxhttp://www.bls.gov/opub/ee/2015/cps/tablea36_201511.pdfhttp://www.bls.gov/opub/ee/2015/cps/tablea36_201511.pdfhttps://research.stlouisfed.org/fred2/series/LNU04023016https://research.stlouisfed.org/fred2/series/LNU04023016http://cdn.americanprogress.org/wp-content/uploads/2013/04/AyresYouthUnemployment1.pdfhttp://cdn.americanprogress.org/wp-content/uploads/2013/04/AyresYouthUnemployment1.pdfhttp://www.marketwatch.com/story/why-companies-are-wary-to-hire-the-long-term-unemployed-2014-04-03http://www.marketwatch.com/story/why-companies-are-wary-to-hire-the-long-term-unemployed-2014-04-03http://www.marketwatch.com/story/why-companies-are-wary-to-hire-the-long-term-unemployed-2014-04-03http://www.brookings.edu/~/media/Projects/BPEA/Spring%202014/2014a_Krueger.pdfhttp://www.brookings.edu/~/media/Projects/BPEA/Spring%202014/2014a_Krueger.pdfhttp://www.brookings.edu/~/media/Projects/BPEA/Spring%202014/2014a_Krueger.pdfhttp://www.bea.gov/iTable/index_nipa.cfmhttp://www.bea.gov/iTable/index_nipa.cfmhttp://www.bloomberg.com/news/2014-10-27/the-great-recession-put-us-in-a-hole-are-we-out-yet-.htmlhttp://www.bloomberg.com/news/2014-10-27/the-great-recession-put-us-in-a-hole-are-we-out-yet-.htmlhttp://www.bloomberg.com/news/2014-10-27/the-great-recession-put-us-in-a-hole-are-we-out-yet-.htmlhttp://voicesforservice.org/resources/Sep19_Econ_Value_National_Service.pdfhttp://voicesforservice.org/resources/Sep19_Econ_Value_National_Service.pdfhttp://voicesforservice.org/resources/Sep19_Econ_Value_National_Service.pdfhttps://research.stlouisfed.org/fred2/series/CLF16OVhttps://research.stlouisfed.org/fred2/series/CLF16OVhttp://www.nationalservice.gov/sites/default/files/page/cncs_2016_CBJ_Final.pdfhttp://www.nationalservice.gov/sites/default/files/page/cncs_2016_CBJ_Final.pdfhttps://www.congress.gov/111/plaws/publ13/PLAW-111publ13.pdfhttps://www.congress.gov/111/plaws/publ13/PLAW-111publ13.pdfhttps://livingnewdeal.org/project-categories/http://www.nps.gov/frde/photosmultimedia/quotations.htmhttp://www.nps.gov/frde/photosmultimedia/quotations.htmhttp://www.nber.org/cycles.htmlhttps://research.stlouisfed.org/fred2/series/UEMP27OVhttps://research.stlouisfed.org/fred2/series/UEMP27OV
8/20/2019 Expanding National Service to Address Long-term Unemployment
26/27
23 Center for American Progress | Expanding National Service to Address Long-term Unemployment
29 Gina Cardazone and others, “AmeriCorps AlumniOutcomes” (Washington: Corporation for Nationaland Community Service, 2015), available at http://www.nationalservice.gov/sites/default/files/evi-denceexchange/FR_CNCS_Alumni%20Outcomes%20Survey%20Report.pdf .
30 Corporation for National and Community Service, “TheHealth Benefits of Volunteering: A Review of Research”(2007), available at http://www.nationalservice.gov/pdf/07_0506_hbr.pdf .
31 Spera and others, “Volunteering as a Pathway to Em-ployment: Does Volunteering Increase Odds of Findinga Job for the Out of Work?”
32 YouthBuild, “About YouthBuild USA,” available at https://www.youthbuild.org/about-youthbuild-usa (last ac-cessed January 2016).
33 Corporation for National and Community Service,“Employers of National Service,” available at http://www.nationalservice.gov/special-initiatives/employers-national-service (last accessed January 2016).
34 Charles Tsai, “The Case for Social Innovation Micro-Credentials,” Stanford Social Innovation Review , July1, 2014, available at http://ssir.org/articles/entry/the_case_for_social_innovation_micro_credentials.
35 Nonprofit Finance Fund, “2011 State of the Sector Sur-
vey” (2011), available at http://www.nonprofitfinance-fund.org/sites/default/files/docs/2011/2011survey_brochure.pdf.
36 Corporation for National and Community Service, “Con-gressional Budget Justification, Fiscal Year 2012” (2011),p. 54, available at http://www.nationalservice.gov/sites/default/files/documents/11_0214_cbj_web_version.pdf.
37 Ibid, at pp. 17 and 21.
38 Office of Inspector General, Recovery Act: ETA Took Recom-mended Corrective Action to Ensure Congressional IntentCould Be Met in the YouthBuild Program (U.S. Departmentof Labor, 2010), p. 1, available at https://www.oig.dol.gov/public/reports/oa/2010/18-10-006-03-001.pdf .
39 John A. Salmond, “The Civilian Conservation Corps,1933-1942: A New Deal Case Study ” (Durham: Duke
University Press, 1967), available online at http://www.nps.gov/parkhistory/online_books/ccc/salmond/con-tents.htm.
40 Data include AmeriCorps State and National grantsand AmeriCorps VISTA. Corporation for National andCommunity Service, “Report on the American Recoveryand Reinvestment Act” (2010), available at http://www.nationalservice.gov/pdf/11_0224_arra_finalreport.pdf .
41 Allan Chernoff, “Funding cuts threaten U.S. youthprograms,” CNN, June 25, 2011, available at http://tran-scripts.cnn.com/TRANSCRIPTS/1106/25/ybl.01.html.
42 Serve America Act , Public Law 111-13.
43 Corporation for National and Community Service,“Justice Department and CNCS Announce New Part-nership to Enhance Immigration Courts and Provide
Critical Legal Assistance to Unaccompanied Minors,”Press release, June 6, 2014, available at http://www.nationalservice.gov/newsroom/press-releases/2014/
justice-department-and-cncs-announce-new-partner-ship-enhance.
44 Nonprofit Finance Fund, “2011 State of the SectorSurvey.”
45 Shirley Sagawa, “From Idea to Reality: A National-Ser-vice Platform,” Democracy (33) (2014): 28-33, availableat http://democracyjournal.org/magazine/33/from-idea-to-reality-a-national-service-platform/.
46 Corporation for National and Community Service,“AmeriCorps State and National Policy FrequentlyAsked Questions (FAQs),” p. 3.
47 Salmond, “The Civilian Conservation Corps, 1933-
1942:A New Deal Case Study.”
48 Corporation for National and Community Service,“Fiscal Year 2010: Congressional Budget Justification” (2009), available at http://www.nationalservice.gov/sites/default/files/documents/2010_budget_justifica-tion.pdf.
49 Long-term unemployment rate from Federal ReserveBank of St. Louis, “Civilian Labor Force;” Federal ReserveBank of St. Louis, “Number of Civilians Unemployed for27 Weeks and Over.”
50 Ibid.
51 Ibid.
52 This calculation is based on the average cost per mem-
ber service year for AmeriCorps VISTA over a three-yearperiod from FY 2012 to FY 2014. The calculation alsoincludes the estimated cost per member service yearfor offering the Segal AmeriCorps Education Award.Corporation for National and Community Service, “Con-gressional Budget Justification, Fiscal Year 2016” (2015),pp. 27 and 34, available at http://www.nationalservice.gov/sites/default/files/page/cncs_2016_CBJ_Final.pdf.
53 Ibid.
54 Twelve-month average weekly benefit amount reportedin December 2013. U.S. Department of Labor, “MonthlyProgram and Financial Data,” available at http://oui.doleta.gov/unemploy/claimssum.asp (last accessedJanuary 2016); Katelin P. Isaacs and Julie M. Whittaker,“Emergency Unemployment Compensation (EUC08):Status of Benefits Prior to Expiration” (Washington: Con-gressional Research Service, 2014), available at https://
www.fas.org/sgp/crs/misc/R42444.pdf .
55 Twelve-month average duration reported in December2013. United States Department of Labor, “MonthlyProgram and Financial Data.”
56 Corporation for National and Community Service,“AmeriCorps State and National Policy FrequentlyAsked Questions (FAQs),” p. 25.
57 Congressional Budget Office, “An Update to the Budgetand Economic Outlook: 2014 to 2024” (2014), availableat https://www.cbo.gov/sites/default/files/113th-con-gress-2013-2014/reports/45653-OutlookUpdate_2014_Aug.pdf .
58 Belfield, “The Economic Value of National Service,” p. 17.
59 Ibid, at p. 16.
http://www.nationalservice.gov/sites/default/files/evidenceexchange/FR_CNCS_Alumni%20Outcomes%20Survey%20Report.pdfhttp://www.nationalservice.gov/sites/default/files/evidenceexchange/FR_CNCS_Alumni%20Outcomes%20Survey%20Report.pdfhttp://www.nationalservice.gov/sites/default/files/evidenceexchange/FR_CNCS_Alumni%20Outcomes%20Survey%20Report.pdfhttp://www.nationalservice.gov/sites/default/files/evidenceexchange/FR_CNCS_Alumni%20Outcomes%20Survey%20Report.pdfhttp://www.nationalservice.gov/pdf/07_0506_hbr.pdfhttp://www.nationalservice.gov/pdf/07_0506_hbr.pdfhttps://www.youthbuild.org/about-youthbuild-usahttps://www.youthbuild.org/about-youthbuild-usahttp://www.nationalservice.gov/special-initiatives/employers-national-servicehttp://www.nationalservice.gov/special-initiatives/employers-national-servicehttp://www.nationalservice.gov/special-initiatives/employers-national-servicehttp://ssir.org/articles/entry/the_case_for_social_innovation_micro_credentialshttp://ssir.org/articles/entry/the_case_for_social_innovation_micro_credentialshttp://www.nonprofitfinancefund.org/sites/default/files/docs/2011/2011survey_brochure.pdfhttp://www.nonprofitfinancefund.org/sites/default/files/docs/2011/2011survey_brochure.pdfhttp://www.nonprofitfinancefund.org/sites/default/files/docs/2011/2011survey_brochure.pdfhttp://www.nationalservice.gov/sites/default/files/documents/11_0214_cbj_web_version.pdfhttp://www.nationalservice.gov/sites/default/files/documents/11_0214_cbj_web_version.pdfhttps://www.oig.dol.gov/public/reports/oa/2010/18-10-006-03-001.pdfhttps://www.oig.dol.gov/public/reports/oa/2010/18-10-006-03-001.pdfhttp://www.nps.gov/parkhistory/online_books/ccc/salmond/contents.htmhttp://www.nps.gov/parkhistory/online_books/ccc/salmond/contents.htmhttp://www.nps.gov/parkhistory/online_books/ccc/salmond/contents.htmhttp://www.nationalservice.gov/pdf/11_0224_arra_finalreport.pdfhttp://www.nationalservice.gov/pdf/11_0224_arra_finalreport.pdfhttp://transcripts.cnn.com/TRANSCRIPTS/1106/25/ybl.01.htmlhttp://transcripts.cnn.com/TRANSCRIPTS/1106/25/ybl.01.htmlhttp://www.nationalservice.gov/newsroom/press-releases/2014/justice-department-and-cncs-announce-new-partnership-enhancehttp://www.nationalservice.gov/newsroom/press-releases/2014/justice-department-and-cncs-announce-new-partnership-enhancehttp://www.nationalservice.gov/newsroom/press-releases/2014/justice-department-and-cncs-announce-new-partnership-enhancehttp://www.nationalservice.gov/newsroom/press-releases/2014/justice-department-and-cncs-announce-new-partnership-enhancehttp://democracyjournal.org/magazine/33/from-idea-to-reality-a-national-service-platform/http://democracyjournal.org/magazine/33/from-idea-to-reality-a-national-service-platform/http://www.nationalservice.gov/sites/default/files/documents/2010_budget_justification.pdfhttp://www.nationalservice.gov/sites/default/files/documents/2010_budget_justification.pdfhttp://www.nationalservice.gov/sites/default/files/documents/2010_budget_justification.pdfhttp://www.nationalservice.gov/sites/default/files/page/cncs_2016_CBJ_Final.pdfhttp://www.nationalservice.gov/sites/default/files/page/cncs_2016_CBJ_Final.pdfhttp://oui.doleta.gov/unemploy/claimssum.asphttp://oui.doleta.gov/unemploy/claimssum.asphttps://www.fas.org/sgp/crs/misc/R42444.pdfhttps://www.fas.org/sgp/crs/misc/R42444.pdfhttps://www.cbo.gov/sites/default/files/113th-congress-2013-2014/reports/45653-OutlookUpdate_2014_Aug.pdfhttps://www.cbo.gov/sites/default/files/113th-congress-2013-2014/reports/45653-OutlookUpdate_2014_Aug.pdfhttps://www.cbo.gov/sites/default/files/113th-congress-2013-2014/reports/45653-OutlookUpdate_2014_Aug.pdfhttps://www.cbo.gov/sites/default/files/113th-congress-2013-2014/reports/45653-OutlookUpdate_2014_Aug.pdfhttps://www.cbo.gov/sites/default/files/113th-congress-2013-2014/reports/45653-OutlookUpdate_2014_Aug.pdfhttps://www.cbo.gov/sites/default/files/113th-congress-2013-2014/reports/45653-OutlookUpdate_2014_Aug.pdfhttps://www.fas.org/sgp/crs/misc/R42444.pdfhttps://www.fas.org/sgp/crs/misc/R42444.pdfhttp://oui.doleta.gov/unemploy/claimssum.asphttp://oui.doleta.gov/unemploy/claimssum.asphttp://www.nationalservice.gov/sites/default/files/page/cncs_2016_CBJ_Final.pdfhttp://www.nationalservice.gov/sites/default/files/page/cncs_2016_CBJ_Final.pdfhttp://www.nationalservice.gov/sites/default/files/documents/2010_budget_justification.pdfhttp://www.nationalservice.gov/sites/default/files/documents/2010_budget_justification.pdfhttp://www.nationalservice.gov/sites/default/files/documents/2010_budget_justification.pdfhttp://democracyjournal.org/magazine/33/from-idea-to-reality-a-national-service-platform/http://democracyjournal.org/magazine/33/from-idea-to-reality-a-national-service-platform/http://www.nationalservice.gov/newsroom/press-releases/2014/justice-department-and-cncs-announce-new-partnership-enhancehttp://www.nationalservice.gov/newsroom/press-releases/2014/justice-department-and-cncs-announce-new-partnership-enhancehttp://www.nationalservice.gov/newsroom/press-releases/2014/justice-department-and-cncs-announce-new-partnership-enhancehttp://www.nationalservice.gov/newsroom/press-releases/2014/justice-department-and-cncs-announce-new-partnership-enhancehttp://transcripts.cnn.com/TRANSCRIPTS/1106/25/ybl.01.htmlhttp://transcripts.cnn.com/TRANSCRIPTS/1106/25/ybl.01.htmlhttp://www.nationalservice.gov/pdf/11_0224_arra_finalreport.pdfhttp://www.nationalservice.gov/pdf/11_0224_arra_finalreport.pdfhttp://www.nps.gov/parkhistory/online_books/ccc/salmond/contents.htmhttp://www.nps.gov/parkhistory/online_books/ccc/salmond/contents.htmhttp://www.nps.gov/parkhistory/online_books/ccc/salmond/contents.htmhttps://www.oig.dol.gov/public/reports/oa/2010/18-10-006-03-001.pdfhttps://www.oig.dol.gov/public/reports/oa/2010/18-10-006-03-001.pdfhttp://www.nationalservice.gov/sites/default/files/documents/11_0214_cbj_web_version.pdfhttp://www.nationalservice.gov/sites/default/files/documents/11_0214_cbj_web_version.pdfhttp://www.nonprofitfinancefund.org/sites/default/files/docs/2011/2011survey_brochure.pdfhttp://www.nonprofitfinancefund.org/sites/default/files/docs/2011/2011survey_brochure.pdfhttp://www.nonprofitfinancefund.org/sites/default/files/docs/2011/2011survey_brochure.pdfhttp://ssir.org/articles/entry/the_case_for_social_innovation_micro_credentialshttp://ssir.org/articles/entry/the_case_for_social_innovation_micro_credentialshttp://www.nationalservice.gov/special-initiatives/employers-national-servicehttp://www.nationalservice.gov/special-initiatives/employers-national-servicehttp://www.nationalservice.gov/special-initiatives/employers-national-servicehttps://www.youthbuild.org/about-youthbuild-usahttps://www.youthbuild.org/about-youthbuild-usahttp://www.nationalservice.gov/pdf/07_0506_hbr.pdfhttp://www.nationalservice.gov/pdf/07_0506_hbr.pdfhttp://www.nationalservice.gov/sites/default/files/evidenceexchange/FR_CNCS_Alumni%20Outcomes%20Survey%20Report.pdfhttp://www.nationalservice.gov/sites/default/files/evidenceexchange/FR_CNCS_Alumni%20Outcomes%20Survey%20Report.pdfhttp://www.nationalservice.gov/sites/default/files/evidenceexchange/FR_CNCS_Alumni%20Outcomes%20Survey%20Report.pdfhttp://www.nationalservice.gov/sites/default/files/evidenceexchange/FR_CNCS_Alumni%20Outcomes%20Survey%20Report.pdf
8/20/2019 Expanding National Service to Address Long-term Unemployment
27/27
Our Mission
The Center for American
Progress is an independent,
nonpartisan policy institute
that is dedicated to improving
the lives of all Americans,
through bold, progressive
ideas, as well as strongleadership and concerted
action. Our aim is not just to
change the conversation, but
to change the country.
Our Values
As progressives, we believe
America should be a land of
boundless opportunity, where
people can climb the ladder
of economic mobility. We
believe we owe it to future
generations to protect theplanet and promote peace
and shared global prosperity.
And we believe an effective
government can earn the
trust of the American people,
champion the common
good over narrow self-interest,
and harness the strength ofour diversity.
Our Approach
We develop new policy ideas
challenge the media to cover
the issues that truly matter,
and shape the national debat
With policy teams in major
issue areas, American Progres
can think creatively at thecross-section of traditional
boundaries to develop ideas
for policymakers that lead to
real change. By employing an
extensive communications
and outreach effort that we
adapt to a rapidly changing
media landscape, we move
our ideas aggressively in thenational policy debate.
Top Related