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additional addressed administration AFDC agency and/or approach appropriate assistance benefit reduction rates CDCs client conceptual cost decrease demand for labor direct Earned Income Tax earnings subsidy economic development effect EITC eligible employer subsidies equity existing factors federal government financing firms groups impact improve incentives income effect Income Tax Credit increase individuals issue job seekers Jobs Tax Credit KDCC labor demand labor force labor market labor supply lack leveraging loans low income persons manpower activities manpower efforts manpower programs manpower services marginal marginal tax rate Massachusetts medicaid minimum wage motivation pension funds planning poor potential private sector problems productivity proposals prospective employers public policy public sector job reducing welfare sector job creation skills social stimulating Structural unemployment structure substantial supply and demand target efficiency tax rate theoretical transfer payments unemployed unemployment rate Wage Rate Subsidy welfare reform study Wisconsin workers