Welfare reform's ineligible immigrant parents: Program reach and enrollment barriers

Since the implementation of the 1996 welfare reform act, the child-only Temporary Assistance for Needy Families (TANF) caseload has increased dramatically. Perhaps the least understood child-only population is that of ineligible immigrant parents (IIPs), who are ineligible for TANF because of their citizenship or immigration status. Using data collected through in-depth interviews and focus groups in Stanislaus County, California, this study examines how well California's TANF program serves this at-risk group. We analyze the factors that lead IIPs to seek aid for their children, the enrollment obstacles they face, and TANF's ability to meet their needs. Our results demonstrate that immigration-related fears as well as concerns about caseworkers, stigma, and future government sanctions heighten these parents' reluctance to seek aid. They also create multiple and often population-specific barriers to TANF enrollment. We close with research and policy recommendations for serving this vulnerable population.     

TANF child-only cases: Identifying the characteristics and needs of children living in low-income families

In a ‘child-only’ case the adult is not included in the welfare benefit calculation and aid is provided only for the child(ren). The proportion of child-only cases within the caseloads of the Temporary Assistance for Needy Families (TANF) welfare program continues to increase while overall TANF cases decrease. Given relatively limited information about the children and adults in child-only cases, this analysis presents the major findings from a review of studies on characteristics of children and caregivers in child-only cases with implications for child welfare and welfare-to-work services.     

Do employment and type of exit influence child maltreatment among families leaving Temporary Assistance for Needy Families?

Research has documented that the transition from Temporary Assistance for Needy Families (TANF) can be a critical period that results in elevated stress for families. The present study utilizes administrative data to examine the experiences of families exiting TANF and factors that influence subsequent child maltreatment, with particular focus on type of exit from TANF and earned income from employment. Families in the study are 18,023 female-headed households from an urban Ohio county who exited TANF between January 1, 1999 and December 31, 2002. Of these families, 894 (4.96%) experienced an indicated or substantiated finding of maltreatment within two years of their initial exit from TANF. Cox proportional hazard models identified several significant predictors of child maltreatment. Findings indicate that families with an involuntary exit from TANF were at increased risk of a substantiated or indicated finding of maltreatment while families with higher earnings from employment were at a reduced risk of maltreatment. These findings suggest that policy makers and program staff may need to reconsider their approach with these families to ensure the well-being of children. Strategies to improve employment opportunities and limit involuntary exits are discussed.     

Low Income Families' Utilization of the Federal "Safety Net": Individual and State-Level Predictors of TANF and Food Stamp Receipt

Two of the primary programs through which the federal government provides benefits to low income families are the Temporary Assistance for Needy Families (TANF) program and the Food Stamp program. However, many eligible low income families do not actually receive these benefits. We combined state-level policy data with rich data on a national sample of low income families to investigate family and state-level predictors of TANF and Food Stamp receipt. Our findings indicate: 1) families experiencing more economic hardship and health challenges are more likely to receive benefits, and 2) states' coverage is associated with families' receipt of TANF, but not Food Stamps. Implications for policy and research are discussed.     

Does income support increase abortions?

Currently, Temporary Assistance for Needy Families (TANF) programs in 32 American states allow low-income childless pregnant single women (CPSW) to receive monthly cash assistance, while 28 states and the District of Columbia use lump-sum payments to divert low-income families from TANF. Past research has not investigated the possible consequences on abortions of these two welfare policies. We construct a theoretical model of low-income CPSW to investigate them. The results of the theory yields the following hypotheses: (1) diversion payments to low-income mothers lower abortion incidence; and (2) diversion payments and CPSW eligibility together raise abortion incidence. We use data from the US Centers for Disease Control and Prevention’s Abortion Surveillance, and a system GMM dynamic panel, two-way fixed-effects empirical model to test our hypotheses. Our empirical results provide statistically significant evidence for the first hypothesis, but not the second.     

The welfare/self-sufficiency gap among single mothers through theoretical lenses

ABSTRACT

Poverty has been a recurring issue in America since time immemorial and become the target of a panoply of corrective measures from the federal government. One of these measures is, of course, the Temporary Assistance to Needy Families (TANF), the key welfare policy under the Personal Responsibility and Work Opportunity Reconciliation Act of 1996. Since its inception, TANF has constantly been the subject of vehement controversies among politicians, lawmakers, community advocates, social researchers, and government officials. Indeed, there has been a growing concern about the effectiveness of the program in galvanizing economically disadvantaged families toward economic self-sufficiency. This paper presents a historical overview of the political context that led to the passage of the TANF policy, identifies barriers associated with TANF implementation, explains the concept of self-sufficiency, and critically analyzes the gap between welfare receipt and economic self-sufficiency through the lenses of four theoretical benchmarks: policy design and social construction, culture of poverty, racial classification, and social control. Implications for research are discussed.     

Welfare and Welfare to Work in the United States

Summary

Despite social work's historic ambivalence toward income support programs, the policy changes introduced by the TANF welfare to work program demand the profession's attention. Although social workers are not directly responsible for the administration or implementation of the program, many serve TANF clients whose lives have been affected by these changes. Tracing social work's historic but reluctant involvement with income support, this paper urges the profession to respond to the challenges posed by the TANF program in a more systematic way and to contribute more effectively to the wider task of poverty eradication.     

How do economic downturns affect welfare leavers? A comparison of two cohorts

Early welfare reform research showed high rates of employment for TANF leavers. However, work-focused welfare may not be effective during an economic downturn. We investigate the employment of Wisconsin TANF leavers, contrasting outcomes among early leavers (1998) with those who left during the 2001 recession. We use data from administrative records on about 6000 welfare leavers, tracking quarterly employment for 3 years after they left benefits. Separate panel data analyses of those exiting in two different time periods show that individual leavers are less likely to be employed when their local unemployment rate is high in the later cohort; no relationship is found for the early cohort. In a panel analysis in which the cohorts are combined, we find that leavers in the later cohort, who experienced the recession early in their post-welfare career, are less likely to be employed, a result that holds controlling for observed and unobserved characteristics. These findings raise questions about how well single-parent families and their children will fare during difficult economic times now that welfare reform has such a strong emphasis on work.     

The impact of state TANF policy decisions on kinship care providers

Based on a survey of public assistance and child welfare agency staff, this article examines how state Temporary Assistance for Needy Families (TANF) policy decisions have affected kinship care providers. Findings indicate that most states have continued using TANF to provide income support to kinship caregivers, and some have used TANF to find related support services. These payments, however, are much lower than rates for licensed providers, and many kinship caregivers are subject to work, training requirements, and time limits.     

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.     

Non-income effects of welfare receipt on early childhood cognitive scores

Child poverty in America has become an enduring part of the social landscape that many families must navigate. As prior research has established that income transfers can affect child outcomes, we focus our attention on the conditions under which these transfers occur. Using panel data from the Fragile Families and Child Wellbeing Study, we examine the non-income effects of TANF participation on children's early cognitive development using methods to address statistical concerns about endogeneity and selection. Our results indicate that participating in TANF is negatively associated with cognitive development. Furthermore, we are able to identify maternal stress as a viable causal pathway between TANF receipt and cognitive development, a result that we are unable to replicate with a falsification test involving the Earned Income Tax Credit (EITC). Our results suggest that the structure of cash transfers may have effects on early childhood outcomes.     

From service to social control: Implications of welfare reform for professional practice in the United States

In response to the explosive growth and the changing demographic composition of public welfare recipients, this program has undergone four major reforms over the last three decades: the 1962 'Service' amendments, the 1967 Work Incentive program (WIN), the Family Support Act of 1988, and the 1996 program of Temporary Assistance to Needy Families (TANF). These reforms have had a profound impact not only on the scope and purpose of public assistance to needy families, but also on the nature of professional social work practice in this area of public social service. An analysis of the major welfare reforms over the last 35 years reveals how the national entitlement to income maintenance and social services has receded, local responsibility and private delivery of service have increased, and emphases on service functions have shifted from rehabilitative social casework/counselling to work-oriented training, job search activities, and local employment. The provision of public assistance has been transformed from a federal entitlement based on needs to a budget-driven-time-limited benefit enveloped by incentives and sanctions, with welfare clients increasingly subject to mandatory participation in work-related activities. This movement from welfare to workfare has infused the professional role of social workers with a steadily expanding function of social control, which is unlikely to encourage professional participation in the public social services.     

Ineligible to Save? Asset Limits and the Saving Behavior of Welfare Recipients

ABSTRACT

This article explores how asset limits used to determine eligibility for the Temporary Assistance for Needy Families (TANF) program influence the saving behavior of program participants. The qualitative evidence presented in this study serves to explain how asset limit policy may contribute to the low rate of savings and bank account ownership among the welfare population. From these conversations, it is clear that the existence of asset limits—or, just as importantly, the perception that these limits exist—negatively impacts the saving behavior of TANF recipients.     

State Welfare Rules,TANF Exits,and Geographic Context: Does Place Matter?*

Abstract This research compares the likelihood of exiting TANF with and without employment and the effects of important state TANF rules on welfare exits in more disadvantaged (large Rustbelt cities and poor southern nonmetro) and less disadvantaged (other metro and other nonmetro) areas during the 1996–2003 post‐welfare reform period. Hierarchical competing risk models using individual‐level data from the 1996–99 and 2001–03 Panels of the Survey of Income and Program Participation merged with state‐level data from various sources show that female TANF participants in poor southern nonmetro areas are the least likely to exit TANF with work, and participants in large Rustbelt cities are less likely to exit TANF with work than those in other metro areas. Non‐work TANF exits are more likely to occur in other nonmetro areas than in other metro areas. Importantly, the effects of state welfare rules on TANF exits differ across places of residence. For example, stringent time limit policies promote work exits in large Rustbelt cities but promote non‐work exits in poor southern nonmetro areas. More lenient earned income disregards are significantly related to remaining on TANF in poor southern nonmetro areas but promote work exits in all other places. Findings from this paper imply that states should not take a “one‐size‐fits‐all approach” to reduce welfare caseloads.     

Using administrative data to evaluate the effectiveness of the Healthy Families Oregon home visiting program: 2-year impacts on child maltreatment & service utilization

The present study used state administrative databases to examine the 2-year outcomes of a large-scale randomized study of the impact of the Healthy Families Oregon (HFO) home visiting program. 2727 eligible first-time mothers were randomly assigned to either the HFO program or to a community services-as-usual control group. Outcomes for the current study were tracked for 2 years post-random assignment for all study participants through administrative data linkages to Oregon's statewide child welfare system, self-sufficiency services, and substance abuse treatment programs. Results indicated that families assigned to HFO program were no more or less likely to have a substantiated child abuse report than were controls (6.3% vs. 6.0%), but were significantly more likely to have an unsubstantiated report (9.7% vs. 7.9%). Among HFO families who were reported to the child welfare system, 86.2% (94 children) were reported after they had exited the program, while 13.8% (15 children) had a report while enrolled. However, 50.5% of children with unsubstantiated reports were reported while families were receiving HFO services, suggesting a surveillance effect for unsubstantiated reports. HFO families, compared to controls, were also significantly more likely to have been enrolled in Temporary Assistance for Needy Families (TANF) services for the first time, to have received more days of Supplemental Nutrition Assistance Program (SNAP), and to be enrolled in publically-funded substance abuse treatment services. Results suggest that early effects of home visitation on outcomes that can be measured through administrative data are small to modest, and that findings related to documented child welfare systems involvement may require more nuanced data than are typically used and/or available from state agency systems.     

A cost–benefit analysis of transitional services for emancipating foster youth

Over 24,000 youth “aged out” of the nation's foster care system in FY 2005. While independent living programs and other services are available to foster youth, and almost all states allow dependency courts to retain jurisdiction of foster youth beyond age 18, outcomes for former foster youth are disturbing. This paper describes a program to address these challenges by providing extended foster care benefits and support to former foster youth from their 18th to 23rd birthdays. A detailed cost–benefit methodology documents expected costs and key benefits of the program. According to this cost–benefit analysis, a program providing funding and guardian support for former foster youth is projected to result in net benefits to the State of California over the 40-year careers of participating former foster youth. The program, if successful for all youth, would increase lifetime earnings and taxes paid due to increased education and would lower use of TANF and prison, resulting in a benefit–cost ratio of 1.5 to 1, using discounted present value dollars. Even at 75% success, the ratio is 1.2 to 1, showing a net benefit to society. This methodology can also be used to assess the costs and benefits of similar programs.     

TANF Recipients' Barriers to Employability: Substance Abuse and Domestic Violence

Recipients of temporary assistance for needy families (TANF) encounter a variety of expectations and sanctions. Recipients face work requirements, limited resources, and barriers to employability, including the barrier of substance use. This article addresses the sanctions that are applied to clients who do not meet expectations of the policy, barriers to employability, disparities in resources, and factors influencing referrals for substance abuse treatment for TANF clients.     

Artist-run galleries—A contemporary institutional change in the visual arts

This paper focuses on the contemporary phenomenon of artists who, because of institutional changes in the social organization of the visual arts, become their own gatekeepers by running their own galleries, managing their own exposure and re-establishing direct contact with their audiences and communities. The author contends that the ways in which artists have pursued and organized their own galleries shed light on both the functioning of the established social organization of art and the circumstances that bring about its change. The paper explores the organization, operations and viability of visual artist-managed galleries in the San Francisco and Santa Cruz areas of California as an alternative to the established organization of the art market. An earlier version of this paper was presented at the Pacific Sociological Association Meetings in Sacramento, California (April, 1977). This study was made possible by a grant from the Research Committee of the University of California, Santa Cruz. My warmest thanks to Judith Balfe and Gerald Platt for their substantive and editorial assistance and to Jenny Debouzek for her assistance throughout this research.     

TANF Participation Rates: Do Community Conditions Matter?*

Abstract A general criticism of the 1996 Welfare Reform Act is that it is primarily the result of an urban political agenda, and it may hurt rather than help the rural poor. Under the new welfare system, the rural poor that are most likely to be affected are those who live in socially, economically, and spatially disadvantaged communities. More residents in these communities are likely to need TANF, clients in these communities are least likely to leave TANF by finding employment, and community organizations are likely to have more limited resources to help TANF recipients. The objective of this study is to examine the extent to which variations in community conditions account for differences in TANF participation rates. Using 1997 TANF data from the Mississippi Department of Human Services, we estimated OLS regression models of local TANF participation rates across 100 communities in nonmetro counties. The results indicate that TANF participation rates tend to be higher in communities with high concentrations of African Americans, less faith‐based activeness, more employment in retail trade, spatial concentration of the poor, and located in the Delta.     

Resource use of rural low-income families caring for children with disabilities

The Personal Responsibility Work Opportunity Reconciliation Act, Pub.L. 104-193 (PRWORA) was passed creating the Temporary Assistance to Needy Families (TANF) program. Since the passage of PRWORA, many families were able to leave the welfare rolls while those remaining on welfare were likely composed of families facing barriers to leaving, such as caring for children with disabilities. This project addresses the gaps in knowledge regarding low-income families caring for children with disabilities by conducting qualitative research investigating the resources used by these families to find and keep employment and child care. The study used a sample from a research project entitled ‘Rural Families Speak’ and examined the data of 26 families caring for children with disabilities. Analysis resulted in policy recommendations for increasing the efficacy of the programs designed to help these families.