A State Framework with Flexibility and Rigor:
Washington State’s Theory of Change
The members of the Washington State Community Action Partnership (WSCAP) wanted to understand
their business better than they ever had in the past – what the local agencies do, how they do this work,
and what impact they are having in their communities and collectively at the state level. They knew that
the spotlight was on Community Action and that the status quo in performance management was not
enough. They wanted to serve their customers in the best possible way. They wanted to explain to
community members what Community Action Agencies are doing and the value that these Agencies
bring. Finally, they wanted to attract outside funders who do not traditionally support Community
Action Agencies. They began two years of work to develop a Theory of Change that has since been
endorsed by all the local agencies in Washington, Oregon, and Idaho. While this project is still in
process, there is much to learn from what has been accomplished and from how they plan to validate
the assumptions, infuse the Theory of Change with rigorous outcomes, and analyze the impact they are
having.
Community Action is challenging to describe. It is both multi-faceted and unique in each community.
This makes it hard to demonstrate effectiveness and collective impact. To begin to tackle this dilemma,
the Washington State Community Action Partnership (WSCAP) Futures Committee listed the over 100
programs the 30 agencies in the state implement. Then they sliced up the work program by program
and attempted to roll up NPI and other outcome measures to create a picture of the collective impact
community action was having across the state, but found that this approach was insufficient. So they
switched their focus to the long term aims of Community Action and engaged the assistance of Tim
Johnstone, Chief Strategy Officer at the Community Action Agency, Hopelink, who had done extensive
work in this area. While they knew the focus for local agencies was helping people make lasting change
that would lead to communities free of poverty and self-sufficiency for all members of the community,
they needed a better way to define, describe and measure the positive work being done.
Hopelink had approached this problem with a focus on self-sufficiency and directed their research
toward finding a definition of self-sufficiency and models of how to measure client progress and success.
They sponsored a Global Literature Review and conducted an internal client study to learn from the
voice of the customer. Through
“Our process was not just to look at what we have done, but a
this work, they did not find one
look at what we could do. WSCAP wanted to clearly demonstrate
universal tool or one definition
the value of Community Action’s approach to helping people
of self-sufficiency. Rather, they
permanently exit poverty through measurable outcomes, proven
learned about the many tools
that are being used and that the
programs and validated research (at the agency level and
definition of self-sufficiency is
collectively), and provide a common platform for working
unique to each person.
collaboratively within local communities. ”
A Theory of Change process was
Merritt Mount, Executive Director, Washington State Community
now considered, but a Theory of
Action Partnership (WSCAP)
Change at the state level needed
to focus on a common language
and indicators around success without prescribing standardized programs, interventions, or actions.
This would provide both rigor and flexibility, leaving the individual agencies to determine how they
would get to the outcomes in local communities.
Prepared with Tim Johnstone, Chief Strategy Officer, Hopelink
and Merritt Mount, Executive Director, WSCAP
July 18, 2014
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A State Framework with Flexibility and Rigor:
Washington State’s Theory of Change
Through planning discussions they clarified the work of Community Action. Self-sufficiency is not what
the agency does, rather that is what families and communities do. The work of Community Action is to
first stabilize people so they can then focus longer-term, and then equip them with the tools, skills, and
knowledge they need to exit poverty. A core assumption is that people and families who are equipped
to exit poverty most often do. The Theory of Change process clarified the thinking around what
Community Action’s work was and why it succeeds. A future step is to validate these assumptions
through field testing, success studies and research.
The Theory of Change process first focused on individuals and families. All theories begin with a set of
assumptions and beliefs that are based on experience, expertise and observations of client success, and
WASCAP’s assumptions and beliefs about People are:
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Poverty is stressful and harmful to families and communities (and it sucks).
Every person has the ability to progress toward self-sufficiency and thrive. We help them build
on those abilities—but it’s them.
Self-sufficiency looks different to each person.
People must first be stable to then be able to focus on making progress toward self-sufficiency.
People are highly complex and unique – all facets of their lives must be addressed holistically for
them to be successful and make lasting change in their lives.
Interventions must be client-driven and client-focused, not prescriptive.
All people deserve to be treated with compassion and respect.
People and families who are equipped to exit poverty most often do.
Equipping people with the tools, skills, and knowledge to exit poverty is the best way to make
lasting change for them and the community.
Out of these assumptions and beliefs, the Futures committee adopted and refined Hopelink’s Healthy
Individuals and Families Theory of Change. The committee was supported by sub-committees and
workgroups that asked deeper questions about what basic needs must be secured for families and
individuals to be stable and what is needed for people to become equipped to exit poverty. The
strategies at the local level include direct services as well as connections to resources.
The committee recognized that individuals and families could not successfully and permanently exit
poverty without the support of healthy communities, and therefore the need for a community Theory of
Change. To begin that work, the Futures committee developed its list of assumptions and beliefs related
to the community.
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All Communities have “Resources” and the ability to thrive—we help them build on those
resources and abilities—but it’s them.
All members of a Community benefit from the community’s growth, infrastructure, & capital
investment.
Stable Communities create the needed environment (options) to foster self-sufficiency.
Family & community success are interconnected.
Community members (stakeholders) best know their community needs and can best respond to
local situations.
Prepared with Tim Johnstone, Chief Strategy Officer, Hopelink
and Merritt Mount, Executive Director, WSCAP
July 18, 2014
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A State Framework with Flexibility and Rigor:
Washington State’s Theory of Change
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Communities are highly complex & unique—all facets of their health must be addressed
holistically.
People & families who are equipped to exit poverty are more often successful in healthy
communities.
Community isn’t a place, but a group of individuals with a common interest, all of whom share
the responsibility to their collective health and wellbeing.
Community members best know their community’s needs and are best able to respond to the
local situation.
Interventions, initiatives, and investments must be both client and community driven & client
focused, not prescriptive.
Again, the committee was supported by sub-committees and workgroups to allow experts within the
local agencies to determine the components of a safety net that supports stability and the factors
needed to create strong local pathways to exit poverty. Local agencies combine community
collaborations and capacity building in their strategies and interventions at the community level. The
Healthy Communities TOC is aligned with the Healthy Individuals and Families Theory of Change, but
they are not mirror images of each other since there are broader forces at work at the community level.
Once both Theories of Change
Kelli Graham, Director of Hopelink’s ESL program, looked at the
were completed, all 30
Theory of Change and realized that her program did not fit. She
Washington agencies
endorsed it and began using it
redesigned the program to focus on the elements of English
with staff, boards and local
needed for employment. Since she made this change the dropout
communities to make their
rate in the program has dropped from 50% to 10%. Participants see
work more effective.
the link between the program learning objectives and their ability
Subsequently, Oregon and
to get and keep a good paying job. In addition, employers
Idaho, who had been doing
recognize the value of the program. Hopelink is earning revenue by
similar work agreed to join
tailoring its English language programs to the needs of a specific
forces with Washington and
all 54 agencies are now using
employer.
the same theories of change
to drive their work. With this framework in hand, the three states can move forward to develop
common indicators of success; build agency capacity for better data management and reporting; and,
develop a consistent brand and marketing.
Currently these agencies are working together to develop more rigor through a pilot project that
examines the ROMA logic model and NPIs, and funded research to develop common outcomes. In
addition, the three states recognize that better data management and reporting capacity are necessary
to collect, analyze, and report on results from the common outcomes. The three states have a
consultant-led project to explore the capacities that are needed and there is an examination of data
systems to support data collection, integrity and analysis. Finally, a consultant is working on consistent
marketing and branding to build from the common language in the Theory of Change and better tell the
story of Community Action’s knowledge and success in addressing poverty.
Prepared with Tim Johnstone, Chief Strategy Officer, Hopelink
and Merritt Mount, Executive Director, WSCAP
July 18, 2014
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A State Framework with Flexibility and Rigor:
Washington State’s Theory of Change
Next steps include a deeper dive into the community impact and indicators of success in the community
Theory of Change across the three states. Indicators and assumptions will be validated and data
integrity will be gained by building agency capacity across the network. Building agency capacity will
also include more rigor in program validation and alignment with common outcomes.
This Theory of Change provides a clear strategic focus and testable assumptions. Now that it has been
endorsed by all three states’ agencies, the Theory of Change can be brought to life through common
outcomes, consistent data integrity across all agencies, and analyses of outcomes that lead to more
effective programs and clearer communications with stakeholders.
Prepared with Tim Johnstone, Chief Strategy Officer, Hopelink
and Merritt Mount, Executive Director, WSCAP
July 18, 2014
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