[Federal Register Volume 60, Number 66 (Thursday, April 6, 1995)]
[Notices]
[Pages 17578-17585]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-8477]



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DEPARTMENT OF LABOR

Employment and Training Administration


Job Training Partnership Act: Dropout Prevention

AGENCY: Employment and Training Administration, Labor.

ACTION: Notice of availability of funds and solicitation for grant 
application (SGA).

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SUMMARY: All the information required to submit a proposal is contained 
in the announcement. The U.S. Department of Labor (DOL), Employment and 
Training Administration (ETA), announces the availability of funds for 
demonstration projects to replicate and formally evaluate a successful 
model by the Ford Foundation, known as the Quantum Opportunities 
Project (QOP). The U.S. Department of Education may also provide funds 
for this demonstration. The project is directed specifically toward at-
risk youth entering the ninth grade. The objectives of the project are 
to enable participants to complete high school, and to improve their 
rate of entering and succeeding in post-secondary education.
    Initial grants of $200,000 will be made to five local areas. 
Pending availability of funds, these grants will be renewed at the same 
level for three additional years to cover the four years of high school 
of participating students. To receive these funds, local sites will 
need to agree to participate in an evaluation in which eligible youth 
will be randomly assigned to receive or not to receive QOP services.
    These grants will be limited to service delivery areas (SDAs) under 
the Job Training Partnership Act (JTPA). To apply for these grants, 
SDAs will need to have the local public school district as a co-
applicant, and identify a community-based organization (CBO) to operate 
the demonstration. Matching funds in the amount of $200,000 a year will 
be required to operate a Quantum Opportunity Project. Additionally, 
local sites will need to commit to provide summer jobs for QOP 
participants for the three summers in which the participants are in the 
program. This demonstration is aimed at schools with high dropout 
rates. Target schools will need to have at least 40 percent fewer 
graduating seniors in June of 1994 than entering ninth graders in 
September of 1990 (For example, if a school had 300 entering ninth 
graders in September 1990, the graduating class in June of 1994 must 
have been 180 or fewer).

DATES: The closing date for receipt of applications will be May 15, 
1995 at 2:00 p.m. (Eastern Time) at the address below.

ADDRESSES: Applications shall be mailed to the U.S. Department of 
Labor, Employment and Training Administration, Division of Acquisition 
and Assistance, Attention: Brenda M. Banks, Reference: SGA/DAA 95-005, 
[[Page 17579]] Room S-4203, 200 Constitution Avenue N.W., Washington 
D.C. 20210.

FOR FURTHER INFORMATION CONTACT:
Brenda Banks (202-219-7300) in the Division of Acquisition and 
Assistance. This is not a toll-free number.

SUPPLEMENTARY INFORMATION: This announcement consists of four parts and 
appendices. Part I describes the authority and purpose of this 
demonstration. Part II is the Statement of Work (responsibilities of 
grantees). Part III describes the application process and guidelines 
for applying for these grants. Part IV identifies and defines the 
selection criteria which will be used in reviewing and evaluating 
applications. Appendix No. 1 provides a more detailed description of 
the QOP program. There is no separate application package.

Part I. Background

A. Authority

    Section 452 of the Job Training Partnership Act authorizes the 
Secretary of Labor to establish pilot and demonstration programs.

B. Purpose of this Demonstration

    There is a large and growing gap in this country between the 
employment and earnings of these individuals who have dropped out of 
high school, those that have graduated from high school but have not 
gone on to college, and those that have graduated from college. In many 
inner-city high schools today, over 50 percent of entering ninth 
graders drop out of school prior to graduation. Further, the proportion 
of students from inner-city high schools who go on to post-secondary 
education remains very low.
    The Ford Foundation has recently announced the results of its 
Quantum Opportunities Project (QOP) demonstration. In this 
demonstration, 100 entering ninth graders in inner-city high schools 
were joined together in groups of 25 at four sites and assigned to the 
same adult coordinator. The students stayed with the same group and 
adult counselor throughout their four years of high school, receiving 
basic skills remediation, participating in group community service 
activities and cultural enrichment and youth development activities, 
visiting college campuses, and ``job shadowing'' professionals. The 
students earned two sets of stipends--one in cash and the second 
reserved in an ``opportunity account'' to be used for post-secondary 
education.
    Entering ninth graders were randomly assigned to the QOP program, 
and a control group was also followed. The Ford Foundation evaluation 
of the program showed that QOP had been able to cut dropout rates in 
half and double the college entrance rate of participants.
    Ideally, the development of new approaches to serving youth occurs 
in several stages--(1) an idea or model is developed; (2) the idea is 
put into practice at one site, and then perhaps at a second site with 
some modifications; (3) the model program is then pilot-tested at 
several sites; (4) the model program then enters a demonstration stage 
in which it is formally evaluated using random assignment of program 
applicants at several sites; and (5) if the random-assignment 
evaluation results come out positive, the model program is replicated 
widely across the country. This grant is part of stage (4) of this 
process.

C. Demonstration Policy

    1. Eligible Applicants. Eligible applicants under this solicitation 
are Service Delivery Areas (SDAs) under the Job Training Partnership 
Act.
    2. Funding. DOL expects to make approximately five awards. It is 
anticipated that individual grant awards will be $200,000 for the first 
year of the project.
    3. Matching Requirements. In order to receive a grant award, an 
applicant must include a 100% match. These matching funds can come from 
JTPA Title II-C, Education for the Disadvantaged School-Wide Programs 
(ESEA Title I), general school district funds, local foundations and 
private corporations, or other sources.
    4. Period of Performance/Options. The period of performance for 
these Grants will be twelve months from the date of execution by the 
Government. Pending satisfactory performance and availability of funds, 
these awards will be extended for an additional three years (three one-
year options). The idea is to cover the entire four years of high 
school of students served.
    5. Eligible Participants. All entering ninth graders who rank in 
the bottom half of their class according to the previous year's grades 
will be eligible for the QOP program, and then will be randomly 
assigned to receive or not receive QOP services.
    6. Allowable activities. Grantees will conduct activities 
consistent with the QOP program described below.
    7. Cost limitations. Demonstration grants are not subject to the 
cost limitations in JTPA Title II. However, $50,000 to be used for the 
overall program coordinator at each site should be considered the 
administrative costs for this demonstration.

Part II. Statement of Work (Responsibilities of Grantees)

    Applicants should take into account the responsibilities listed 
below. The local school system will be responsible for identifying the 
target high schools and students; the CBO will be responsible for 
hiring the adult coordinators; and the SDA will be responsible for 
administering the Grant and providing summer jobs for the youth.
    A. Identification of target high schools. Target high schools 
should have a rate of at least 40 percent of entering ninth graders 
dropping out before graduation to qualify for this grant--that is, if 
the graduating class in June of 1994 was 180 then the entering 9th 
grade class in September 1990 must have been 300 or more. The target 
high schools can be small or large, but they should have a combined 
expected enrollment of at least 560 entering ninth graders this coming 
fall in order to divide the class in half by grades from the previous 
year, and then to provide for two groups of 140 from the bottom half 
for non-treatment and QOP participation. The school district will need 
to identify during the summer the bottom half of the entering ninth 
graders at these schools, as ranked by grades.
    B. Develop and implement the QOP model. The local QOP project shall 
be comprised of the following features:

--Groups of 20 entering ninth graders will be assigned to two half-time 
adult counselors. Students will stay with the same group and the same 
counselors throughout their time in high school.
--The QOP counselors will have office space at the high schools.
--Each site will hire an overall coordinator overseeing each of the QOP 
counselors.
--QOP activities will include each year 250 hours educational 
enrichment; 250 hours of cultural and development activities, including 
visits to college campuses; and 250 hours of community service 
activities. The educational enrichment activities can occur either at 
the school or at a separate CBO site.
--QOP students will be able to receive up to $500 a year in stipends 
based on attendance at program activities. Counselors are responsible 
for tracking and recording stipend-related activities for those 
individuals in their charge. The stipends for QOP participants are to 
be put into a bank account to used only for post-secondary educational 
expenses once the individual completes (or leaves) the QOP 
program. [[Page 17580]] 
--QOP students will receive summer jobs during their three summers in 
high schools. Offerors should be able to identify the person within the 
SDA who will be in charge of linking school to summer work activities 
and ensuring that each participant is employed during the summer. The 
jobs can be provided through JTPA Title II-B if the students are 
eligible for JTPA and if Congress continues the Title II-B program; 
otherwise summer jobs will need to be found for the students. 
Preferably, jobs provided to QOP participants should be at the same 
worksite each summer, with increasing levels of responsibility each new 
year.
--The salaries of QOP counselors and the overall site coordinator will 
include incentives for keeping students in the QOP program.
--Group cohesion will be emphasized throughout the program. Students 
cannot be dropped from the program, even for non-attendance. An 
inactive student can return to the group at any time. Replacement 
students will not be added.

    C. Coordination of evaluation activities. In conjunction with the 
Department's evaluation contractor, the eligible entering ninth graders 
will be randomly assigned during the first week of school in September 
to one of two groups, those who ``enter'' or ``do not enter'' the QOP 
program. For example, City A selects two high schools as its target 
schools for this demonstration. Each target high school has had a 
recent dropout rate of over 40 percent, and each is expecting an 
entering enrollment of 300 ninth graders--a combined total of 600 
entering ninth graders. The school district will identify the bottom 
half of these entering ninth graders, or 300 youth. In turn, the school 
district will work with the Department's evaluation contractor to 
randomly select 140 of the eligible youth who report the first week of 
school to be part of the QOP program. There will be no eligibility 
requirement for the QOP program other than being ranked in the bottom 
half of the entering ninth grade class.
    D. Use of funds and matching commitments. Grantees are required to 
provide a $200,000 local match for each year of the project. The 
$200,000 grant and $200,000 matching funds are expected to be 
sufficient to serve 140 youth at each site. These funds will allow for 
hiring fourteen half-time adult coordinators at $17,500 (salaries plus 
fringe benefits included); stipends of $500 a year to each youth; an 
overall coordinator at $50,000 (salary plus fringe benefits); with some 
funds left over for other project activities. Matching funds cannot be 
in-kind to simply use existing school counselors. JTPA Title II-C 
funds, Education for the Disadvantaged School-Wide Programs (ESEA, 
Title I) funds, local foundations, and local corporations are all 
appropriate sources for matching funds. Compensatory education funds 
outside of school-wide projects may not be an appropriate source of 
matching funds, because of possible conflict between random assignment 
and statutory requirements in these compensatory education funds.
    Applicants will note that there are some differences between the 
QOP model that will be implemented in this demonstration and the 
original QOP pilot project described in the Appendix No. 1. The model 
that will be implemented under this demonstration will have 20 rather 
than 25 youth in each group; it will not be restricted to minority 
youth or youth in families receiving welfare; and it does not include 
cash stipends. Additional funds may be made available to grantees at a 
later time to provide cash.
    E. Project Description. 1. Describe the need for the QOP project in 
the target high school or schools. What percentage of youth who entered 
the 9th grade in September of 1990 in these schools have dropped out 
prior to graduation? (You can simply show the number of entering 9th 
graders in September of 1990 and the number of students graduating in 
June of 1994). How many students are expected to enter the 9th grade at 
these schools this coming September? What is the poverty rate of the 
neighborhoods served by the schools? You may also discuss other factors 
that may reflect need, for example, teen pregnancy rates and crime 
rates in the neighborhoods served by the schools.
    2. Describe your plan for implementing the QOP program this coming 
September. How will the 140 QOP slots be apportioned among the target 
high schools that have been identified? When during the summer will you 
be able to provide a list of entering ninth graders who rank in the 
bottom half of their class? Who in the school system will be 
responsible for providing this list, and what is their telephone number 
during the summer? What community-based organization (CBO) will carry 
out the QOP program? How was this CBO selected? What is the hiring plan 
of the CBO to make sure that the overall coordinator and 14 half-time 
counselors will be hired by September? Can you provide examples of 
likely candidates for these positions? What physical space will be 
provided to the counselors at the target high schools? Who in the 
school system will be responsible for overseeing the QOP program? How 
will the school system and the CBO coordinate services provided under 
QOP? Describe the SDA's plans for providing summer jobs for the youth.
    3. Describe the matching funds that will be provided.

Part III. Application Process

A. Submission of Proposals

    An original and three (3) copies of the proposal shall be 
submitted. The proposal shall consist of two (2) separate and distinct 
parts.
    1. Cost Proposal. Part I shall contain the cost proposal, 
consisting of the following items: Standard Form SF 424, ``Application 
for Federal Assistance'' (Appendix No. 2) and the ``Budget 
Information'' sheet (Appendix No. 3). Also, the budget shall include on 
separate page(s) a detailed breakout of each line item on the budget 
sheet. The Budget should provide for $200,000 in grant funds and 
$200,000 in matching funds.
    2. Technical Proposal. The technical proposal shall be limited to 
ten pages (single-sided, single spaced). It should include the 
``assurance'' provided below signed by the SDA director and the 
superintendent of schools, and answers to the three sets of questions 
and requirements included under Part II, Section E.
    The following ``assurance'' should be signed by the local SDA 
director and superintendent of schools and included in the technical 
proposal: ``The service delivery area (SDA) and school district of 
__________ are applying for a $200,000 a year grant under the 
Department of Labor's Quantum Opportunities Project (QOP) demonstration 
for entering ninth graders. We understand that pending availability of 
funds the demonstration will continue throughout the 4 years of high 
school of participating students. We also understand that $200,000 a 
year in matching funds are required for the project, and QOP students 
will be provided summer jobs for their three summers in high school. We 
also understand that participating in a random assignment evaluation of 
the program is a condition of award, and that eligible entering ninth 
graders will be randomly assigned to participate or not participate in 
QOP.''
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SDA Director
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School District Superintendent--------------------------------------
[[Page 17581]]

B. Hand-Delivered Proposals

    Proposals should be mailed at least five (5) days prior to the 
closing date for the receipt of applications. However, if proposals are 
hand-delivered, they shall be received at the designated place by 2 
p.m., Eastern Time on the closing date for receipt of applications. All 
overnight mail will be considered to be hand-delivered and must be 
received at the designated place by the specified time and closing 
date. Telegraphed and/or faxed proposals will not be honored. Failure 
to adhere to the above instructions will be a basis for a determination 
of non-responsiveness.

C. Late Proposals

    Any proposal received at the office designated in the solicitation 
after the exact time specified for receipt will not be considered 
unless it:
    (1) was sent by the U.S. Postal Service registered or certified 
mail not later than the fifth calendar day before the date specified 
for receipt of the application (e.g., an offer submitted in response to 
a solicitation requiring receipt of applications by the 5th of May must 
have been mailed by the 1st of May); or
    (2) was sent by U.S. Postal Service Express Mail Next Day Service--
Post Office to Addressee, not later than 5 p.m. at the place of mailing 
two working days prior to the date specified for receipt of proposals. 
The term ``working days'' excludes weekends and U.S. Federal holidays.
    The only acceptable evidence to establish the date of mailing of a 
late proposal sent either by the U.S. Postal Service registered or 
certified mail is the U.S. postmark both on the envelope or wrapper and 
on the original receipt from the U.S. Postal Service. Both postmarks 
must show a legible date or the proposal shall be processed as if 
mailed late. ``Postmark'' means a printed, stamped, or otherwise placed 
impression (exclusive of a postage meter machine impression) that is 
readily identifiable without further action as having been supplied and 
affixed by employees of the U.S. Postal Service on the date of mailing. 
Therefore, applicants should request the postal clerk to place a 
legible hand cancellation ``bull's eye'' postmark on both the receipt 
and the envelope or wrapper.
    The only acceptable evidence to establish the date of mailing of a 
late proposal sent by ``Express Mail Next Day Service--Post Office to 
Addressee'' is the date entered by the post office receiving clerk on 
the ``Express Mail Next Day Service--Post Office to Addressee'' label 
and the postmark on both the envelope and wrapper and on the original 
receipt from the U.S. Postal Service. ``Postmark'' has the same meaning 
as defined above. Therefore, applicants should request the postal clerk 
to place a legible hand cancellation ``bull's eye'' postmark on both 
the receipt and the envelope or wrapper.

F. Withdrawal of Proposals

    Proposals may be withdrawn by written notice or telegram (including 
mailgram) received at any time before award. Proposals may be withdrawn 
in person or by an applicant or an authorized representative thereof, 
if the representative's identity is made known and the representative 
signs a receipt for the proposal before a grant award is executed.

Part IV. Rating Criteria for Award

    Applicants are advised that the selection of grantees for awards is 
to be made after careful review by a panel. Applicants are advised that 
discussions may be necessary in order to clarify and inconsistencies in 
their application. The panel results are advisory in nature to the 
Grant Officer. The Grant Officer will make final awards based on what 
is in the best interests of the Government as determined by the Grant 
Officer. The rating criteria for award are the following:
    1. Need in Target High Schools. This corresponds to questions and 
requirements raised in Part II, Section E.1. The proposal should 
provide information on the high schools, including the overall 
enrollment at the schools and the proportion of entering ninth graders 
who graduate from the school. The neighborhoods served by the schools 
should be described. (30 points).
    2. Development and Implementation Plan. This corresponds to 
questions and requirements raised in Section E.2 and 3. This criteria 
covers plans for recruiting and hiring of the QOP counselors and 
overall coordinator; the availability of office space in the target 
high schools for QOP coordinators; the summer jobs that will be made 
available to QOP students through JTPA Title II-B; how jobs will be 
provided to QOP students not income-eligible for JTPA; the experience 
of the CBO in operating programs for at-risk youth; and the 
availability of matching funds. (70 points).

    Signed at Washington, D.C., this 31st day of March, 1995.
Janice E. Perry,
ETA Grant Officer.

Appendix 1 Description of Original QOP Program

(Note: This Appendix is provided as background information on the 
original QOP program which the Ford Foundation funded. As discussed 
above, the QOP model that sites will be implementing under this 
grant announcement differs in slight ways from the original QOP 
program. Where differences occur, applicants should follow the model 
described in the main text of the grant announcement rather than in 
this Appendix).

Quantum Opportunities Program: An Overview

Background

    The Quantum Opportunities Program (QOP) was initiated as an 
experiment to test whether impoverished young people could make a 
``quantum leap'' up the ladder of opportunity if an intensive array 
of coordinated services, coupled with a sustained relationship with 
a peer group and a caring adult, were offered to them over their 
four years of high school.
    The program also tested a system of incentive payments for 
participants, staff and delivery organizations to encourage 
participation and retention in the program and to provide some money 
for college, technical training or other education upon completion.
    The program designer recognized that a variety of education, 
training, employment, development and service opportunities were 
already available to poor teenage youth through programs of 
government agencies and nonprofit organizations. These, however, 
were neither coordinated nor sequenced in a continuum that 
recognized the developmental needs of maturing youth. Lacking 
coordination and continuity, their cumulative impact was diluted.
    The Quantum Opportunities Program adopted an investment 
mentality. It tested whether comprehensive services could be 
sequenced effectively, whether a single coordinator could broker 
services efficiently, whether eligible youth would participate if 
such opportunities were offered, and whether this approach and these 
investments would have a positive effect on the youth's life 
chances.

Purpose

    The program's aim was to assist minority youth from solo-parent, 
welfare families in poverty neighborhoods graduate from high school 
and attend college. The Quantum Opportunities Programs sought to 
rewrite the future for these-at-risk teens.

Sites

    The multi-faceted QOP model was successfully implemented in four 
of the five demonstration sites: Oklahoma City, Philadelphia, 
Saginaw and San Antonio. The delivery organizations were OIC 
affiliates--community organizations offering a variety of education, 
training and self-sufficiency programs. Each also operated a 
``Learning [[Page 17582]] Opportunity Center'' equipped with 
computers, books and audiovisual equipment and materials for self-
paced and competency-based learning in academic, employability and 
life skills.
    There was variation among the four sites as to how each operated 
the program. Two negotiated with their local high schools to 
schedule time in the school day. In one case, a daily class period 
for participating students was set up in each of the four school 
years. This school time was used for group meetings, discussions and 
development activities; other program activities took place outside 
of the school day in the community organization. In the second site, 
the local school provided a space for the program and released 
students for daily meetings. Two sites conducted the program 
entirely outside of school hours and facilities.

Youth Eligibility

    Participating students, the ``Opportunity Associates'' were 
each:
     entering the 9th grade;
     attending a public high school in a poverty 
neighborhood;
     a member of a racial minority; and
     from a solo-parent family receiving welfare payments.

Recruitment

    Each site enrolled 25 participants at the start of the 1989-1990 
school year:
    1. The participating public high school produced a list of all 
entering freshman meeting the eligibility criteria.
    2. From the list, 25 students were selected at random for 
invitation to participate in the program. Another 25 students were 
selected, also at random, as a control group.
    3. Selected students were contacted through mailings, school 
counselors and teachers, orientation meetings with parents and 
students, home visits and peers.
    4. All contacted students were automatically enrolled. There was 
no screening out or special selection.

Program Design

    A youth developmental model was tested in the Quantum 
Opportunities Program. The program was organized in four cycles 
spanning the four high school years, including summers.
    In each yearly cycle, the Opportunity Associates attended high 
school and participated in three activity components of up to 250 
hours each for a maximum of 750 hours per yearly cycle.
    These activity components were organized by an Opportunity 
Coordinator at each site. The Coordinator both brokered and directly 
delivered services in the three activity components, which were:
    Learning Opportunities--250 hours per year of self-paced and 
competency based basic skills and enrichment study outside of 
regular school hours. Reading, writing, math, science, and social 
studies were covered. Opportunity Associates completed these extra 
hours of learning in the existing OIC Learning Opportunity Center in 
their community.
    Development Opportunities--250 hours per year of cultural 
enrichment and personal development. Students attended plays and 
concerts, explored the visual arts, visited museums and new 
locations, read and discussed current affairs and the Great Books, 
learned about their own rich history and culture, dined in 
restaurants, and ``job shadowed'' with professionals. Each 
Opportunity Associate received a personal subscription to Time 
Magazine. They learned how to set goals, manage their time, and 
choose behavior appropriate for varying situations. They developed 
life skills needed in the home, at work and in the marketplace. They 
learned about themselves and how to get along with others.
    Service Opportunities--250 hours per year of community service 
connected Opportunity Associates to their communities and provided 
opportunities to develop many of the skills needed for work--
reliability, following through on tasks, and working cooperatively. 
Service projects ranged from tutoring elementary students, to 
neighborhood cleanup, to volunteer work in hospitals, nursing homes, 
libraries and human service agencies.

Key Features

    The critical elements of Quantum Opportunities Program design 
were:
     Group cohesion--By design, each group of 25 Opportunity 
Associates remained constant through the four high school years. 
Students could not be dropped from the group, even for non-
attendance. An inactive student could return to the group at any 
time over the four years; the promise of opportunity was never 
withdrawn. New students were not admitted to the group.
     Continuity with a caring adult--at each site, the same 
Opportunity Coordinator was to stay with the group for the four 
years. (There was turnover in some test sites.)
     ``Front line'' accountability--Each Opportunity 
Coordinator was responsible for recruiting students, encouraging 
active participation, brokering all service activities, counseling 
students, communicating with families, assisting with college 
financial aid applications, and tracking activities.

Incentives

    Financial incentives were structured to encourage participation, 
completion and long range planning. Opportunity Associates received:
     an hourly stipend of $1.33 for each hour of 
participation in the education, development and service activities;
     a completion bonus of $100 for each activity component 
completed during each of the four yearly cycles, for a possible 
total of $300 in bonuses, and;
     an Opportunity Account, created by matching, on a 
dollar basis, all hourly stipend and bonuses earned by the Associate 
over the four years of the program. At the end of the four years, 
the funds accrued in Opportunity Accounts, including interest 
earned, were available to Associates for approved college, job and 
technical training, or continuing education.
    The Coordinator's incentive payments, as well as those to the 
OIC affiliate, were also tied directly to participation hours and 
completion rates. QOP Coordinators received the same amount, and the 
delivery organization received double the amount, of the stipends 
and bonuses of their Opportunity Associates.

Research

    Brandeis University is evaluating the program using a random 
assignment, control group methodology. Progress during the school 
years and post-program outcomes are being compared for Opportunity 
Associates and a matched group of people who did not participate.
    Early results are quite positive. The year after expected high 
school graduation, Opportunity Associates were more likely to have 
graduated from high school, to have enrolled in four-year colleges, 
to have enrolled in any post-secondary education, and to still plan 
college completion. They were less likely to have dropped out, to 
have become a solo parent or to have been arrested.

Cost

    The average cost per participant--covering all costs--was 
$11,250 for the four years (half the annual costs of prison). Two-
fifths of this cost was in direct payments to participants in the 
form of stipends, bonuses and the Opportunity Account.

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