A study collected information on the participation of Temporary Assistance for Needy Families (TANF) recipients in work and work activities and their characteristics and how they have changed over time. Data were gathered on strategies states use to help hard-to-employ (HTE) TANF recipients get and keep jobs and on challenges states face in planning and implementing strategies for them. Information on TANF recipients' participation and characteristics came from 2 national and 15 non-national surveys. Administrative data on TANF recipients' characteristics and work activities were collected from nine states. Findings indicated that the majority of TANF recipients are not employed and many have characteristics that make it difficult for them to work; states have adjusted their Work First approach to serve HTE recipients; some states use the job market to identify HTE recipients; other strategies targeted to HTE recipients are soft-skills training, expanded case management, specialized training, and work experience programs; few states collect the data they need for planning and monitoring programs for HTE recipients; and states are unclear how to use the flexibility permitted under the Personal Responsibility and Work Opportunity Reconciliation Act of 1996 to prepare HTE recipients for employment. (Appendixes include objectives, scope, and methodology; list of 15 studies providing data on TANF recipients' characteristics; comments from the Department of Health and Human Services; and a 29-item bibliography.) (YLB)