This report, produced jointly by the Century Fund, the Philadelphia Employment Law Project and Legal Aid, presents the results of an extensive study of state efforts to modernize unemployment insurance (UI) benefit systems. This is the first report detailing how UI modernization has changed the customer experience. It presents lessons learned from state modernization efforts and recommends user-friendly design and implementation methods to help states succeed in future projects.
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While the need for better systems was evident even before the outbreak of the COVID-19 pandemic, this crisis highlighted the problems with the existing UI infrastructure. The report includes specific recommendations that can inform federal and state responses to the unprecedented volume of unemployment claims during the pandemic, as well as ideas for long-term reforms.
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Benefits modernization is the process of moving unemployment benefits administration from legacy mainframe systems to modern software technology that supports Internet services. Many of these mainframe computer systems are programmed in COBOL, an ancient computer language. Several states began upgrading their systems in the early 2000s, accelerating after targeted federal funds to support modernization became available in 2009.
Unfortunately, many of the initial modernization projects ran into serious problems. Some were completely abandoned, while others were poorly implemented. Oftentimes, workers paid the price through inaccessible systems, delayed payments, and even fraudulent charges. The COVID-19 pandemic, which has led to an unprecedented surge in unemployment claims, has further exposed the weaknesses of these systems.
To date, less than half of states have updated their unemployment benefit systems. Some are planning to modernize or are already modernizing. The guidance in this report is intended for them as well as for modern states that want to improve their systems.
The findings and recommendations in this report are based on interviews with officials from more than a dozen states and in-depth modernization studies in Maine, Minnesota, and Washington, D.C., conducted between October 2018 and January 2020. personal interviews with managers and employees of agencies, focus groups with unemployed workers and interviews with legal service organizations, trade union officials and other interested parties.
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The report provides lessons for countries regardless of which path they choose to modernize. In fact, the three states featured in the case studies took significantly different approaches. Minnesota was one of the first to update in 2007, and while it used a private vendor, the code remains the property of a state agency. Washington directly awarded a contract for a private commercial off-the-shelf (COTS) system that went live in 2017. Maine also upgraded in 2017, but as part of a consortium, meaning it shares system and maintenance costs with two other states (Mississippi and Rhode Island).
To complement the interviews and case studies, this report presents new data analysis that suggests that while timeliness in processing claims and paying benefits has improved in many states since the reform, the denial rate for workers seeking benefits has increased and the quality of decisions decreased.
The report also discusses the growing use of artificial intelligence and predictive analytics in unemployment insurance. It concludes that while some of these tools may improve operations and potentially help workers understand the program’s requirements, major concerns about fairness, accuracy, and due process remain.
The single strongest recommendation in this report is that states put their customers at the center of a modernization project from start to finish. The biggest mistake of the states was that they did not involve their clients – workers and employers – in the modernization process at important stages. This resulted in systems that were considered convenient and accessible, but which plaintiffs often found cumbersome and unwieldy. Testing customer-centric design and user experience (UX) best practices are widely accepted in the private sector and should be a key component of any UI modernization effort.
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More specifically, the report provides recommendations for states in each of the three main phases of the modernization project.
The pandemic has shown how important unemployment insurance is to workers, their families, and the broader economy. By following the steps outlined in this report, states can build stronger unemployment systems that deliver services and benefits to their clients.
The release of this report coincides with the emergence of one of the biggest challenges the unemployment insurance system has ever faced: the COVID-19 pandemic. More than 10 percent of the workforce filed initial jobless claims in a three-week period in March and April, and job losses have increased since then.
Government systems are overwhelmed with the main task of receiving claims, and workers are frustrated. Fortunately, states are taking immediate steps to improve access even within legacy systems. Some states are already moving to implement these reforms, and others should follow their lead as soon as possible.
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Michigan is a good example of a state that has turned a poorly engineered system into one that serves workers well during the pandemic. While the original system was updated, the new system was designed with a flawed algorithm that incorrectly flagged workers for fraud and cut off benefits at every decision point. The new governor appointed a plaintiff representative to head the agency, and less than a year later, the system faced the massive challenges of the COVID-19 outbreak. The new management has identified places in the system where benefits remain unnecessary and will turn off these points. As a result, the agency became the second fastest in processing new benefits among the ten states with the highest number of claims, 1 and was one of the first states to approve new unemployment benefits and Pandemic Unemployment Compensation benefits. The CARES Act.
Our recommendations for what states can do now come from a study of best practices at the state level. While states are unlikely to completely replace their UI systems in this crisis, they can and should upgrade their technology. Here are six key areas for immediate improvement.
First, unemployed workers need 24/7 access to online and mobile services. We live in a country where you can shop online at any hour of the day. Unemployment claims should not be limited to nine-to-five workdays.
Second, unemployment websites and apps should be optimized for mobile. More people have mobile phones than desktop or laptop computers, and mass access to computers has disappeared in an era of social distancing. Low-wage workers and workers of color especially rely on their phones to access the Internet. While more than 80 percent of white adults report owning a desktop or laptop computer, less than 60 percent of black and Latino adults do. States must also allow workers and employers to send documents by email or download them from their phones.
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Third, states should update their password recovery protocols. In some states, employees must be sent a new password; in others, employees can’t process claims because they’re busy answering phone calls about password resets. The technology exists for states to use password reset protocols that do not require agency action, saving time for everyone.
Fourth, states can use callback and chat technology to deal with the unprecedented volume. These short-term fixes can become part of a permanent solution. Callback systems return an employee’s phone call instead of waiting. Chatbots, live chats, and thought bubbles can identify terms and answer simple questions for workers who submit online.
Fifth, countries should adopt the trilateral trade model. Many of the questions that come into call centers are related to passwords or claim status. Using the triage model, states can quickly train staff to handle this volume and leave the more difficult questions to experienced staff.
Finally, civil rights laws require states to translate their websites and applications into Spanish and other common languages. Currently, an unemployed worker with limited English skills may have no choice but to use an interpreter over the phone. With so many requests for help, workers may never be able to get through to the phone or may be on hold for hours. Translating materials online will not only ensure equal access, but will also be more efficient.
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Even if these measures take several weeks or months, the investment will be well worth it. The employment crisis caused by the pandemic has revealed gaps in access to unemployment, but it has also created opportunities. We can build twenty-first century disaster relief systems designed to meet the needs of clients who depend on access to unemployment insurance in these troubled times.
Unemployment Insurance (UI) is the nation’s primary social program for unemployed workers and their families. The federal UI program, created by the Social Security Act of 1935, provides essential income support for workers.
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