Charity or Entitlement Conundrum: Welfare Policies and Safe Motherhood in Impoverished Buffalo,New York

ABSTRACT

In contrast to the most industrialized Western nations, the United States faces great social and economic disparities and a deep gap between the socioeconomic strata. The child poverty rate is almost three times higher than in any other industrialized Western country, and single mother families represent 60% of all poor families in the United States. Concentrating on the situation of single mothers in impoverished Buffalo, New York, the authors argue that similar to the underdeveloped world, the fate of single mothers in the United States is tied to the global economy. This project seeks to understand how systemic (social location) and idiosyncratic (individual) factors interactively affect the health and well-being of female-headed, single-parent families. The quantitative analyses are supported by an examination of a case study of a transitional housing program, called Gerard Place. We examine the impact of this comprehensive program offered to poor mothers, including housing, counseling, education, child care, and financial support. These support systems assist female-headed families to rebuild self-sufficiency, sustainable income, and economic independence. The call to approach welfare programs as a synthesis of systemic and idiosyncratic factors concludes the study.     

Making the Transition from Welfare to Work: Employment Experiences of CalWORKs Participants in the San Francisco Bay Area

ABSTRACT

This study describes welfare-to-work participants in the San Francisco Bay Area, support services, experiences with the CalWORKs program, and predictors of employment status in the wake of welfare reform. Findings indicate that many are working and more Stayers and Recidivists than Leavers are using food stamps and Medi-Cal. Multivariate analysis reveals that race and financial supports were the significant factors contributing to employability, defined as the ability to secure employment despite the need to supplement earned income with welfare payments. To help people stay off of welfare, case management services are needed to help participants maintain employment and increase job skills. In addition to expanding our understanding of human behavior within the social environment of poverty, implications for practice and policy are identified.     

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.     

Views from the Frontline

Abstract

Through in-depth interviews, Kentucky welfare case managers compare their experiences working under Temporary Assistance to Needy Families (TANF) with their experiences working under Aid to Families with Dependent Children (AFDC). Interviewees unanimously agreed that TANF is more ambiguous, complex, and stressful than AFDC, both for clients and managers. Although case managers embrace the self-sufficiency goals of TANF, the strict work requirements, overwhelming paperwork and limited education and training opportunities create conflicting goals and barriers that frustrate case managers, leading to suggestions of a return to some rules of AFDC while retaining the TANF goal of independence from the welfare system.     

Welfare to Work in the United Kingdom

Summary

Increasing employment and reducing child poverty are two central goals of current government welfare reform policy in the UK, and single parentswith their relatively low employment rates and relatively high poverty ratesare one of the key target groups for both. This article outlines welfare reform policies in the UK with particular reference to single parents, and discusses the impact of these. In doing so, it highlights some key differences compared with the US.     

Poverty and the American Family: A Decade in Review

Because of dramatic levels of economic volatility and massive changes in welfare policies, scholars in this decade worried anew about whether our official poverty measure, adopted in the 1960s, is adequate. Poverty's causes continued to be debated, with demographic factors often pitted against policy and maternal employment changes. Some scholars focused on events that trigger spirals into poverty or poverty exits. The literature on consequences of poverty featured new techniques for identifying underlying processes and mechanisms. Researchers also explored “neighborhood effects” and focused on poverty deconcentration efforts. Finally, scholars produced a voluminous literature on the efforts to reform welfare and their subsequent effects.     

Financial Penalties Under the Temporary Assistance for Needy Families Program: Policy Discourse and Strategies for Reform

Many families did not leave welfare of their own accord but instead were forced off, sanctioned, for failure to conform to new, strict requirements (Bloom & Winstead, 2002). Studies of leavers indicate that many of these leavers are among the families that do not receive needed health insurance, food stamps, and child care assistance for which they remain eligible (Loprest, 2001; Zedlewski & Gruber, 2001). Sanctioned families are less likely to do well after leaving welfare compared to other leavers (Goldberg & Schott, 2000). As part of TANF reauthorization, Congress should prohibit states from sanctioning if they have not met certain requirements: conducted an assessment, made accommodations for people with physical/mental impairments or other barriers, and instituted strong pre-sanction and post-sanction procedures.     

Single Mothers,Work(fare), and Managed Precariousness

Welfare-to-work initiatives represent a trenchant example of the expansion of the rules and norms of global capitalism and welfare residualism. A study of the everyday experiences of women who parent alone, this article is a case analysis of the residual welfare state as it functions according to the gendered and racialized logic of the market. I examine lone mothers' experiences of the design, delivery, and enforcement of workfare in Ontario, Canada. Specific attention is given to the operation of random and limiting employment-preparation programs; ambiguous and complex regulations; capricious and punitive service delivery; and managed precariousness. I conclude with a discussion of the ways in which women cope and resist, and a challenge to social service providers and policy makers.     

Assessing the Effect of Welfare Reforms on Public Assistance Caseloads in Four Ohio Counties

Abstract

The implementation of welfare reform at the local level is critical to assessing the effects of structural reforms initiated since the passage of the Personal Responsibility and Work Opportunities Reconciliation Act of 1996. Wide variations in the activities undertaken in response to national welfare reform have hindered efforts to understand the factors that have contributed to the success of welfare reform apparent in caseload reductions. This paper reviews Community Human Service Plans in four Ohio counties and examines their trends in caseloads. Two strategies emerge: “job attachment” and “human capital development.” These differences in local implementation can be related to caseload trends.     

Welfare Reform

The passage of the Welfare Reform Act, the Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA) of 1996, legislated the most sweeping changes to public assistance to poor people. The major focus of the act was to reduce caseloads and spending on public assistance. The most controversial component of the act, Temporary Assistance to Needy Families (TANF), replaced the older Aid to Families with Dependent Children (AFDC). TANF embodied the welfare to work principle with provisions that needy families could only receive assistance for 2 years at a time and a total of 5 years in a lifetime, and that the poor must take personal responsibility to become self-supporting through employment. Welfare reform included changes to Supplemental Security Income (SSI) which make it more difficult for disabled children to qualify for benefits. Reductions in the Food Stamp program were also included in welfare reform. This paper discusses the details of the Welfare Reform Act and calls attention to concerns that reforms may have negative effects on poor people.     

Income Inequality,Globalization, and the Welfare State: Evidence from 23 Industrial Countries, 1990–2009

The debate regarding the welfare state–weakening effect and the income inequality‐increasing effect of globalization remains a contentious issue among stratification scholars. For some, globalization increases income inequality, while for others, globalization has no, or a negligible, effect on income inequality. This study brings new evidence to bear on this debate by separately investigating effects of multiple indicators of globalization (international trade, foreign direct investment [FDI] and immigration), and of welfare state generosity (government social‐protection spending) on (1) income inequality before taxes and transfers and (2) income inequality after taxes and transfers, using data from 23 Organisation for Economic Co‐operation and Development (OECD) countries over 1990–2009. First, results show a positive effect of international trade, a negative effect of immigration, but no effect of FDI and government social‐protection spending on income inequality before taxes and transfers. Second, results show no effect of the globalization indicators but a negative effect of government social‐protection spending on income inequality after taxes and transfers. These findings suggest that (1) globalization has inequality‐increasing effects depending on measures of income inequality; (2) the welfare state, in many OECD countries, continues to shape income distribution; and (3) in contrast with the popular narrative, immigration may decrease income inequality.     

Meeting Family Housing Needs: Experiences of Rural Women in the Midst of Welfare Reform

Though sometimes overlooked, the availability, affordability, and quality of housing in rural communities are a potential barrier to transitioning from welfare to work. In this investigation we examine housing issues confronting 17 rural women and their families who were recipients of welfare benefits in 1997. Respondents' housing accounts illustrate the significance of reliance on both government housing subsidies and informal subsidies supplied by friends, family, and more distant relatives. The study focuses on concerns women have in meeting their families shelter needs and the complexities involved in doing so. The findings of the research suggest that additional housing policy initiatives, as well as a targeted research agenda are needed, especially for families whose welfare benefits are nearing termination.     

The crucial role played by social outrage in efforts to reform child protective services

In this paper, we question the widely, if tacitly, held perspective that exceptional and immensely publicized instances of child abuse and neglect offer little guidance or understanding in improving the efficacy of child protective services (CPS). Using insights from Carl Jung, Max Weber and Henry Mintzberg, we argue that not only do such archetypical cases and the attendant moral outrage serve as catalysts for legislative and judicial actions; they also motivate structural and procedural changes in CPS operations. We propose extending to CPS a risk model commonly considered in the fields of environmental science, food safety and chemical engineering, where risk is conceptualized as a function of both technical hazard and moral outrage. We point out, however, that unlike in these non-CPS fields where the typical response is to ‘manage’ outrage via public education or public relations campaigns and to allow outrage to influence only the more immediate and exceptional decisions following an outrageous event, in the CPS field where children are the focal point, exceptional decision processes also seep into routine decision making by necessity. We term our proposed enhanced risk model the Socially Outraged Risk Expression (SORE). We conclude with recommendations for an empirical test of SORE.     

Deniable Degradation: The Finger-Imaging of Welfare Recipients

Using finger-imaging of welfare recipients as an example, the concept of deniable degradation is delineated as a counterpoint to Garfinkel's notion of degradation ceremonies. Deniable degradation involves the use of procedures that can be legitimated in instrumental terms, but that also evoke cultural symbols of humiliation and degradation. Responses of welfare recipients to finger-imaging, drawn from interviews and other qualitative sources, reveal a mixture of themes, ranging from approval of finger-imaging because it enables them to distance themselves from welfare fraud to outrage at a procedure that is viewed as criminalizing welfare receipt.     

Post-Welfare Reform, Low-Income Families and the Dissolution of the Safety Net

There has been a great deal of discussion around the fact that lifting individuals and families out of poverty was not a goal of the 1996 welfare reform legislation. The implementation of welfare reform since 1996 has demonstrated the consequences of caseload reduction as a primary goal. This paper addresses the hardships that can result when lifting people out of poverty is not addressed.     

Unintended Consequences: The Impact of Welfare Reform in the United States on NGOs

The Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA) of 1996 dramatically transformed the structure and goals of the public welfare system in the United States. The vast body of research and evaluation generated by the 1996 welfare reforms largely overlooked nongovernmental organizations (NGOs) despite their substantial historical and contemporary involvement in the delivery of social services to low-income populations. Therefore, this paper presents a unique assessment of PRWORA's implications based on the perspective of 90 social service NGOs operating in the Detroit metropolitan area. Examination of their services, staffing, budgets, and clients reveals many changes experienced by NGOs between 1996 and 2000 related to the welfare reforms. Overall, the findings suggest an increased role for social service NGOs in the public welfare system as well as concerns regarding their capacity to adequately fulfill this growing responsibility in the future.     

Cracks in the Seams: Durability of Child Care in JOBS Welfare-to-Work Programs

The success of recent welfare reforms will depend, in part, on the ability of local welfare programs to meet the child care needs of low-income parents. A key challenge is the integration of targeted child care subsidies into a seamless system for parents who are making transitions between welfare, training, and employment. This article uses data from a one-year panel study to describe program activities and child care use and transitions for participants in a welfare-to-work program. The results suggest that welfare clients were receiving significant child care assistance but services remained fragmented and poorly integrated. Adult clients engaged in multiple, often short-term job preparation and employment activities, and transitions between activities frequently resulted in disruptions in child care arrangements and loss of child care subsidies. Implications for welfare and child care policy are discussed.     

Examining the Impact of Changes in Maternal Employment on High School Completion Among Low-Income Youth

The passage of the Personal Responsibility and Work Opportunity Reconciliation Act and decisions about its re-authorization have resurrected interest in the impact of maternal employment on child outcomes in poor families. The emerging evidence suggests that employment stability among former welfare recipients is a key factor in making successful transitions from welfare to work. This investigation explores how changes in maternal employment in poor families relate to high school completion among at risk youths. Our findings show that a substantial number of mothers experience unstable employment patterns. This instability is positively correlated with dropout among adolescents. The paper concludes with policy implications for the next phase of welfare reform.     

Does Wisconsin Works Work? Perspectives of Participating Women and their Employers

Using a qualitative approach, this study explored the experiences of African American women in Milwaukee, WI as they transitioned from welfare to work and the barriers and challenges that impeded their movement to a position of economic self-sufficiency. The study also sought the perspectives of employers on their experiences with post-welfare African American women in the workplace. The study found three systems of barriers to impede the women’s progress. These barriers were the work-first philosophy and case management practices at the local level, labor market conditions and employment practices, and personal history and responsibility. These findings suggest that any reform effort must address both the personal and structural barriers that inhibit movement towards economic self-sufficiency. The Institute for Excellence in Urban Education, School of Education, University of Wisconsin-Milwaukee provided the funding for this research project.     

Social services and deviation from the Bismarckian model in Italy: the absence of a nationwide trend of change

This article analyses the processes of deviation from the Bismarckian welfare model in Italy, with a focus on social assistance. The sector was reformed in 2000, with new service provision functions being assigned to local institutions and the affirmation of a universalistic principle of access. However, an analysis of social expenditure data and a review of the process of implementation of the reform demonstrate that many local governments have been unable to enact the innovation and that a homogeneous nationwide trend of deviation from the Bismarckian tradition is absent. This absence is explained by looking both at the local institutional arrangements that have historically characterized the different Italian territories and at the present relationships among national, regional, and local governments.