I would try to use the isChanged() formula on the project state. See if that works for you.
Comment actions
I am writing several workflow rules to notify the Resource via Email when a project that they are assigned to is updated from 'draft' to 'active' state. I understand the actions to send the email. However the evaluation criteria has me stumped in order to link back to a resource. I have tried several criteria that have failed.
1. Set criteria at the $Project.State when was changed to active
2. which is the attached screen shot when a resource in an active project is greater than 0.
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I would try to use the isChanged() formula on the project state. See if that works for you.
The runtime should also be "every time a record is created or edited" in addition to Guy's comment