The Social and Economic Impact of Sanctions and Time Limits on Recipients of Temporary Assistance to Needy Families

A central feature of the reforms enacted through the Personal Responsibility and Work Opportunity Reconciliation Act (welfare reform) has been the adoption of strategies to involuntarily remove Temporary Assistance to Needy Families (TANF) recipients from the welfare rolls, including increased use of sanctions and time limits on welfare receipt. Drawing on data from a three year panel study of women who had been receiving welfare in a state which adopted stringent sanctioning and time limit policies, we investigate predictors of recipients' TANF status after implementation of welfare reform, and identify differences in post-reform material resources, hardships and quality of life based on TANF status. Almost half of all welfare case closures during the first time period after reforms were implemented through involuntary strategies. Relatively few baseline characteristics predicted different outcomes once welfare time limits and sanctions were implemented. Those who were timed off welfare had substantially lower incomes in the year following their removal. One third of all respondents, regardless of reason for leaving TANF reported having insufficient food, housing problems and lack of access to needed medical care.     

SINGLE MOTHERS WORKING AT NIGHT: STANDARD WORK AND CHILD CARE SUBSIDIES

This article examines the effect of child care subsidies on the standard work decision of single mothers. Results suggest that child care subsidy receipt is associated with about a 7 percentage point increase in the probability of working at a standard job. When the effect of subsidy receipt is allowed to differ between welfare recipients and nonrecipients, results indicate that subsidy receipt has a large and positive effect among welfare recipients, whereas the effect on nonrecipients is much smaller. These findings underscore the importance of child care subsidies in helping low-income parents, especially welfare recipients, gain standard employment. ( JEL J13, I38)     

Patterns and correlates of involuntary unemployment and underemployment in single-mother families

Economic downturns, trends in the increased number of single-mother families and women entering the workforce, recent welfare reforms that make receipt of cash benefits contingent on employment, and changes in the economic environment that have increased employment problems, all highlight the importance of examining unemployment and underemployment particularly among single-mother families. The current study used the 2004 panel of the Survey of Income and Program Participation (SIPP) to examine patterns and correlates of unemployment and underemployment among single-mother families. The results indicate fairly substantial employment problems. Although approximately one-half (55.6%) of the single mothers had adequate employment, 30% experienced unemployment or involuntary job gaps, and approximately 15% experienced underemployment. Results further indicate that age, education level, past work experience, and homeownership are related to a reduced risk of employment problems. On the other hand, work disability, other family income, receipt of cash benefits, and state unemployment rates place single mothers at an increased risk of unemployment and underemployment. The findings suggest social policy implications and targeted assistance for those at-risk single mothers trying to secure adequate employment.     

The Relationship of Welfare Receipt to Child Outcomes

Welfare receipt often is correlated negatively with children's cognitive and behavioral outcomes. Yet, virtually all children in households that receive public assistance are poor, prompting the question of whether poor outcomes are an effect of welfare, a spurious relationship between welfare and child outcomes, or a result of welfare selection. Using the NLSY-CS, these possibilities are examined by controlling for poverty and for selection into welfare. Controlling for child and maternal characteristics accounts for the majority of bivariate associations between welfare and outcomes among Black children. Controlling for poverty does little to change the relationship between welfare and outcomes for Black or White children. Controlling for selection into welfare further reduces the relationship between welfare receipt and outcomes among White children and has little discernible effect among Black children.     

Shredding the Safety Net

Abstract

Recent federal legislation bans receipt of cash and food assistance to individuals convicted of a drug felony. This study examines the different definitions and methodologies used in estimating substance abuse among welfare recipients. It then analyzes a stratified sample of predominantly low-income young mothers on the basis of welfare receipt and consequences associated with alcohol and drug use. Results indicate that young mothers who received welfare for more than two years had lower reported drug use consequences than mothers who never used welfare or relied on it for a period of less than two years. Variables measuring consequences of drug use were not found to mediate length of time on welfare.     

Teen Mothers and Welfare Reform: Challenging the Boundaries of Risk

A major component of the Personal Responsibility and Work Opportunity Reconciliation Act of 1996 (PRWORA) included policies directed to encouraging marriage while discouraging nonmarital births. Teen mothers were of particular concern as policymakers argued that there is a link between teenage childbearing and welfare receipt. This paper seeks to reframe the concept of at-risk teen mothers by looking to the socially construction of boundaries—an imagery that brings to the forefront the complex relations between young mothers and welfare reform policy. From this standpoint, we discuss how welfare reform might address the multiple issues facing teen mothers including housing, education and training, child care, transportation, health, healthy relationships and parenting skills.     

Welfare and adolescent sex: The effects of family history,benefit levels,and community context

To examine whether welfare serves as an incentive to early childbearing, this article explores the first steps in the process of becoming a teenage parent: risk of first voluntary sexual intercourse at an early age and, among teens having sex, contraceptive use at first intercourse. Alternative operationalizations of welfare include the AFDC benefit level in the state of residence, the ratio of the benefit level to family income, community-level welfare receipt, and family history of welfare receipt. Results do not support the hypothesis that higher welfare benefits provide an incentive that hastens sex or reduces contraceptive use. Analyses provide moderate support for a culture of poverty perspective among girls. Intergenerational welfare receipt has a borderline significant effect on the timing of first sex, and maternal welfare receipt predicts nonuse of contraception at first sex for girls. Strong support is found for a stressful life experiences perspective, in which both parental marital disruption and nonvoluntary sex predict earlier voluntary sex. Analyses were supported by a grant from the Office of Population Affairs, Department of Health and Human Services, under Grant # APR 00000959. Her research interests include teenage childbearing, family processes, public policy, and survey methodology. She received her Ph.D. from the University of Michigan. Donna Ruane Morrison is a Senior Research Associate, and her research interests include the effects of family structure and processes on the well-being of children. She received her Ph.D. in sociology from Johns Hopkins University. Dana A. Glei is a Research Analyst, and her research interests include employment, gender, and teen pregnancy and childbearing. She received her M.A. from the University of Virginia.     

Are Migrants Overrepresented Among Individual Welfare Beneficiaries?

The level of immigrant welfare dependency is the subject of heated debate in the majority of developed countries, which have experienced a significant increase in immigration in recent years. In both Europe and the US, the problem of potential excessive use of social transfers is beginning to bring real policy consequences. This article addresses this issue by presenting a quantitative assessment of welfare receipt in 17 European countries, as well as Yun decomposition of its differences between natives and immigrants. It adds to existing literature by comparing the levels of welfare dependence among EU and non-EU migrants for individual benefits including and excluding pensions, using recent data from EU-SILC. Results suggest that immigrants rely on welfare less often than natives, and receive lower benefits when they do. Those conclusions are reversed, however, when old-age benefits are not considered – especially in the case of non-EU migrants.     

Maternal Functioning, Time, and Money: The World of Work and Welfare

Numerous studies have assessed families' employment and financial stability following welfare reform. Yet little research has addressed whether welfare and work transitions are linked with other changes in family functioning. Using a representative sample of approximately 2,000 low-income urban families from the Three-City Study, analyses assessed whether mothers' welfare and employment experiences over a two-year period following welfare reform were related to changes in family well-being. Lagged regression models controlling for family characteristics and earlier levels of functioning found that moving into employment and stable employment (of 30 hours or more per week) were linked to substantial increases in income and improvements in mothers' psychological well-being. Movements into employment also were associated with declines in financial strain and food insecurity. Sustained or initiated welfare receipt was related to relative declines in income, physical health, and psychological well-being, but also to improved access to medical care. In contrast, mothers' welfare and work experiences showed very limited relations to changes in the quality of parenting or of children's home environments. These patterns were similar for families with young children and those with adolescent children. Results suggest that parenting behaviors are more resistant to change than are maternal emotional and economic functioning.     

Welfare reform and the subject of the working mother: “Get a job,a better job,then a career”

Until 1996, poor single mothers in the United States could claim welfare benefits for themselves and their children under the Aid to Families with Dependent Children (AFDC) program if they had no other source of income. With the 1996 passage of the Personal Responsibility Work Opportunity Reconciliation Act (PRWORA), paid work and work-related activities became a mandatory condition for receiving aid. At the same time, the law promotes marriage as a route out of poverty. Using a feminist reinterpretation of Althussers concept of interpellation, I turn to Job Clubs, mandatory week-long workshops that teach job search skills, to analyze the citizen-subject generated by front-line representatives of the state in the context of this new legislation. Based on participant-observation, I conclude that while PRWORA ostensibly promotes both marriage and paid employment, Job Club trainers enforced a masculine worker-citizen subject through the deployment of three discursive strategies. These discursive strategies 1) promoted paid work over welfare-receipt as both a pragmatic and moral choice, 2) posited an individual-psychological account of womens welfare receipt, and 3) portrayed parenting skills as marketable skills. In the conclusion, I speculate that current welfare reform efforts require the generation of a self-reproducing worker-citizen and that workshops like Job Club become a site in which the existence of this autonomous citizen is affirmed.     

Women's Voices: Explaining Poverty and Plenty in a Rural Community*

Abstract This paper explores how a multiclass sample of white rural women in an economically depressed, overwhelmingly nonfarm community explain both their own families' economic circumstances and those of the most disadvantaged families in their community. All women in the sample—even those with a history of economic instability and welfare receipt—articulate an ethic of family self‐sufficiency. They uniformly believe that anyone who can work should work, although they vary in their definition of who “can work.” In general, the lower the social class, the greater the understanding of the social processes that precipitate and perpetuate poverty. Both working‐class and poor women clearly recognize the limitations of the local market for labor. Sample women are ambivalent about welfare receipt and welfare reform. Although they believe that families should be self‐supporting, many recognize the necessity of welfare for the survival of some families in the community.     

Effects of Welfare Participation on Marriage

We investigate the widely held premise that welfare participation causes women to refrain from marriage. Using data from the Fragile Families and Child Wellbeing study (N = 3,219), we employ an event history approach to study transitions to marriage among mothers who have had a non-marital birth. We find that welfare participation reduces the likelihood of transitioning to marriage (hazard ratio is .67, p < .01), but only while the mother is receiving benefits. Once the mother leaves welfare, past receipt has little effect on marriage. We infer that the negative association between welfare participation and subsequent marriage reflects temporary economic disincentives rather than an erosion of values.     

Effects of Welfare Reform on Education Acquisition of Adult Women

Education beyond traditional ages for schooling is an important source of human capital acquisition among adult women. Welfare reform, which began in the early 1990s and culminated in the passage of the Personal Responsibility and Work Opportunity Reconciliation Act in 1996, promoted work rather than education acquisition for this group. Exploiting variation in welfare reform across states and over time and using relevant comparison groups, we undertake a comprehensive study of the effects of welfare reform on adult women’s education acquisition. We first estimate effects of welfare reform on high school drop-out of teenage girls, both to improve upon past research on this issue and to explore compositional changes that may be relevant for our primary analyses of the effects of welfare reform on education acquisition among adult women. We find that welfare reform significantly reduced the probability that teens from disadvantaged families dropped out of high school, by about 15%. We then estimate the effects of welfare reform on adult women's school enrollment and conduct numerous specification checks, investigate compositional selection and policy endogeneity, explore lagged effects, stratify by TANF work incentives and education policies, consider alternative comparison groups, and explore the mediating role of work. We find robust and convincing evidence that welfare reform significantly decreased the probability of college enrollment among adult women at risk of welfare receipt, by at least 20%. It also appears to have decreased the probability of high school enrollment among this group, on the same order of magnitude. Future research is needed to determine the extent to which this behavioral change translates to future economic outcomes.     

Context matters: The state of racial disparities in mental health services among youth reported to child welfare in 1999 and 2009

Upwards of 50% of youth reported to the child welfare system (CWS) do not receive mental health services, despite need. While children of color are less likely to receive services than Caucasians, the mechanisms through which disparities are sustained remain largely unknown. Data come from two nationally representative cohorts of youth who were referred to the CWS in 1999 and 2009. Results showed that while need for mental health services decreased, significant differences in the number of children who received services was not detected between cohorts. African American youth were less likely to receive services compared to their Caucasian counterparts, even after controlling for age, gender, type of maltreatment, and placement instability. However, after taking into account urbanicity, poverty, and the organizational-social context, the disparity between African American and Caucasian youth dissipated. Service disparities between Latino and Caucasian youth were not detected. The odds of service receipt were lower among youth nested within stressful organizational climates and urban (versus rural) counties, and the organizational-social context did not moderate the relationship between race and service receipt. Findings underscore the need to develop and implement strategies to increase access to services in urban counties and to promote an organizational climate conducive to reducing racial disparities.     

Intergenerational and program-induced effects of welfare dependency: Evidence from the national longitudinal survey of youth

This study uses data from the National Longitudinal Survey of Youth to examine intergenerational and program-induced effects of welfare dependency. Three research questions are asked: (a) How do parental Aid to Families with Dependent Children (AFDC) receipt and other family background characteristics affect subsequent dependency on AFDC? (b) How do attitudes about welfare and state AFDC benefit levels affect AFDC dependency? and (c) How do the patterns and factors associated with AFDC dependency vary across racial and ethnic lines? The results suggest that women who grew up in households that received welfare during the woman's adolescence are approximately twice as likely to be dependent on AFDC in young adulthood as women whose families did not received welfare. Further, state AFDC benefit levels are associated with higher risks of AFDC dependency, but the association is significant only for Anglo women. These analyses provide little support for the hypothesis that attitudes toward welfare and low-wage work increase the likelihood of welfare dependency.     

"It Still Don't Make You Feel Like You're Doin' It": Welfare Reform and Perceived Economic Self-Efficacy

The massive federal welfare reform effort of 1996 contained an inherent assumption that welfare use negatively affected recipients' sense of self-efficacy. Little research attention has been given to examining this assumption. Using in-depth interviews, I explore economic self-efficacy perceptions of 31 young mothers who have experience receiving welfare. Financial choice, they said, was central to their perceptions of themselves as economic agents and therefore to their sense of self-efficacy. Findings presented here detail women's perceptions of their own economic abilities, as well as how welfare receipt, the character of work, and experiences related to parenting in poverty all affected women's opportunities for exercising agency.     

Supplemental Security Income Among Older Immigrants From Central and South America: The Impact of Welfare Reform

This article explores the impact of federal welfare policy changes on older immigrants born in Central and South America. Using data from the 1990 and 2000 U.S. Census 5% Public-Use Microdata Samples, the study examines (1) the change in Supplemental Security Income (SSI) uptake rate after welfare reform for noncitizens from Latin America, naturalized Latin Americans, and U.S.-born Hispanics and (2) how much of the change can be attributed to a change in behavior rather than to a change in eligibility rates. Findings show that the decline in SSI receipt after welfare reform was greater for Latin American noncitizens compared to naturalized citizens and Hispanic U.S.-born citizens. Decomposition analyses show that among eligible elderly noncitizens, the decline in recipiency rate was due mostly to a change in behavior rather than a change in eligibility. This pattern is not found for U.S.-born and naturalized citizens, where changes were mostly due to a decline in the proportion of persons eligible for SSI. This suggests that as a result of legislative changes, older immigrants may not be applying for benefits for which they may be legally entitled. Policy implications are discussed.     

Long-Term Implications of Welfare Reform for the Development of Adolescents and Young Adults

We draw upon the 3-wave longitudinal dataset called Welfare Children and Families: A Three-City Study to examine the long-term implications for adolescents and young adults (N = 783) of mothers' welfare receipt and labor force participation from 1999 to 2005. In general, changes in mothers' work and welfare patterns were not associated with deterioration or improvement in youth development (ages 16 to 20 years at Wave 3). The few significant associations suggested that youth whose mothers increased employment (net of welfare participation) were less likely to show increases in serious behavior problems and delinquency compared to youth whose mothers were unemployed or employed part-time during the study period. Welfare roll exits (controlling for employment experiences) were unrelated to adolescent and young adult outcomes. Mothers' employment transitions were linked to improvements in household income and mothers' self esteem in addition to reductions in financial strain and their own illegal activities. However, these associations did not explain the relation between maternal employment and youths' improved behavior. These results do not support the predictions of either the supporters or the opponents of welfare reform, an outcome we discuss.     

Welfare and women in poor urban neighborhoods: The effect of dependency on attitudinal indicators

This study examines the relationship between welfare dependency and the attitudes of female residents in poor urban neighborhoods. The analysis focuses on their attitudes about relationships, children, home ownership, and welfare, and how these attitudes are affected by race/ethnicity, neighborhood poverty, religion, close friendship ties with welfare recipients, and kin networks. Using the Urban Poverty & Family Life Survey and multiple and logistic regression analysis, the findings show that welfare dependency has a negative impact on attitudes but is diminished by a variety of cultural and social indicators. Results further illustrate that, for some residents in severely impoverished areas, consistent welfare receipt may counteract negative effects on attitudes experienced by their counterparts who do not receive welfare.     

The relationship between parent immigration status and concrete support service use among Latinos in child welfare: Findings using the National Survey of Child and Adolescent Well-being (NSCAWII)

The underutilization of concrete services by immigrants is widely documented across several service sectors, yet evidence is lacking on the use of such services among immigrants reported to child welfare for the purposes of reducing maltreatment. It has been suggested that Latino immigrants involved with the child welfare system may face steep challenges to receiving needed services due to issues surrounding legal status, language and cultural barriers. The purpose of this study was to determine whether referral to and receipt of concrete services by Latino families reported to child welfare agencies, was associated with legal immigration status. The sample included children of Latino parents who participated in the second National Survey of Child and Adolescent Well-being (NSCAWII), who remained in the home following a child welfare investigation (n = 561). Over a third (37%) of Latino families were referred for at least one concrete service, yet only 17% received any. Weighted logistic regression models showed that families in which the primary caregiver was undocumented had significantly lower odds (OR = .24) of receiving services once referred. Families who had trouble paying for basic necessities (OR = 7.52), those with active domestic violence in the home (OR = 4.98), and those receiving ongoing child welfare services (OR = 4.52) had increased odds of referral for services by the caseworker. The odds of receiving services increased when the primary caregiver was unemployed (OR = 5.24), when there was domestic violence in the home (OR = 4.59), and with the receipt of child welfare agency services (OR = 8.83). There appears to be an unmet need for concrete services among Latinos investigated by child welfare, as demonstrated in the gap between overall service referral and receipt. A parent's legal status may be one reason for that unmet need, implying that children of undocumented parents are less likely to have basic needs met to mitigate economic stress and reduce maltreatment risk upon contact with child welfare. Policy recommendations and implications for child welfare practice are discussed.