Measuring State Welfare Policy Changes: Why Don't They Explain Caseload and Employment Outcomes?*

Objectives. Since the implementation of the 1996 Personal Responsibility and Work Opportunity Reconciliation Act, many analysts have attempted to measure the effects of new state welfare policies, particularly work requirements, sanctions, and time limits, on the Act's key goals—reducing cash assistance caseloads and increasing employment among single mothers. De Jong et al. present new measures of state policy variations, but they do not attempt to evaluate the relationships between these measures and welfare reform outcomes. For their analysis to be meaningful, it should contribute to a better understanding of cross‐state variations in caseload declines and increased employment among single mothers. Methods. We first raise conceptual questions about the extent to which their measures are meaningful in a policy sense. We then present analyses of Current Population Survey data. Results. We find that differences in the De Jong et al. stringency measures (factor scores) are not significantly correlated with differences in welfare reform outcomes by state.     

The Impact of Welfare Reform Policies on Child Protective Services: A National Study

The 1996 welfare reform bill set forth major changes in social welfare policies. In addition to federal work requirements and time limits, new state policies impose behavioral mandates that may be accompanied by financial sanctions for noncompliance. Analysis of a survey of state Child Protection Services (CPS) directors focuses on four major areas: effect of Temporary Assistance to Needy Families (TANF) on CPS; interaction between the two agencies; role of TANF sanctions in referrals to CPS; and select special areas of concern. This research provides empirical insight into the interaction between these two agencies, specific TANF sanctions, and the potential conflicts between TANF policies and CPS concerns for the welfare of children and families under its charge.     

The Urban Geography of Welfare Reform: Spatial Patterns of Caseload Dynamics in Detroit

Objective . To assess how the characteristics of welfare recipients have varied geographically in the Detroit metropolitan area since the passage of welfare reform in 1996 and how spatial proximity to job opportunities is related to work rates among welfare recipients. Methods . Using administrative data on welfare receipt in the Detroit metropolitan area and data from two employer surveys in Detroit, I examine changes in the welfare caseload between 1992 and 2000 and estimate logit models of the probability that welfare recipients report work earnings in 1998. Results . Although the number of adult welfare recipients in the Detroit metropolitan area declined by over 75 percent between 1992 and 2000, nearly 25,000 households—most residing in the central city—continue to receive welfare. Rates of work among welfare recipients are positively related to the accessibility of employment opportunities. Conclusions . My results indicate that support services and programs in the coming years will have to fit a caseload that is changing both qualitatively and geographically. Further, consistent with the most current spatial mismatch research, my findings show that greater access to job opportunities leads to greater rates of reported work earnings among welfare recipients.     

Welfare Reform's Chilling Effects on Noncitizens: Changes in Noncitizen Welfare Recipiency or Shifts in Citizenship Status?*

Objective. In the mid‐1990s, welfare usage declined disproportionately among noncitizens, prompting some policy analysts to argue that the 1996 Welfare Reform Act (PRWORA) had a “chilling” effect on welfare receipt among eligible non‐citizens. However, naturalization among noncitizen welfare recipients could account for the disproportionate decline. This article evaluates the role of naturalizations in producing the so‐called chilling effect. Methods. The research uses longitudinal data (the Survey of Program Dynamics) to decompose changes in citizen and noncitizen welfare receipt into parts due to shifts in citizenship status and shifts in welfare receipt. Results. A substantial portion of the relative decline in welfare usage among noncitizens can be explained by shifts in naturalization. Conclusions. A more cautious interpretation of results about the effects of welfare reform on immigrants is called for, particularly results of analyses that use cross‐sectional data and disaggregate the change in welfare receipt by citizenship status.     

Redefining Welfare: Australian Social Policy and Practice

The present paper outlines and analyzes Australia's welfare reform policies as they have been implemented over the past decade. While there have been numerous social policy initiatives over this period, welfare reform provides an interesting site for analysis and review. This suite of policies and programs is of particular importance from several standpoints. First, its target groups – those needing income security assistance, including the unemployed, people with disabilities, and single parents – are historically and traditionally of concern to social work and social welfare. Second, welfare reform policies have had significant impact on social welfare agencies, and the social workers and welfare workers employed in them. Finally, welfare reform has had a wider impact on inequality in Australia and our attitudes to those in need. This paper first provides a brief overview of the context of Australian social policy and welfare, its origins and current situation. It then outlines the key operational elements of welfare reform and how it has been implemented. The third section of the paper offers a critical analysis of these policies and programs and finally poses some questions and issues requiring further discussion and research.     

Work and welfare‐state trajectories in Norway over two decades: Has the goal of getting more people into work been achieved?

In this study, we investigated the work and welfare‐state trajectories of three cohorts of middle‐aged Norwegian inhabitants over a period of two decades (1994–2014). The period of this study is particularly interesting because of an extensive welfare reform that was initiated in 2006 and completed in 2011. We addressed two questions: What were the most typical labour market and welfare‐state trajectories for middle‐aged people over the past two decades, and have they changed? Second, did the work and welfare‐state trajectories of a major target group of the NAV reform – adults with a high risk of health‐related exclusion – change during our observation period? Over the period, we witnessed a sharp drop in the number of people in stable employment. Furthermore, rather than solving the problem of permanent health‐related exclusion from the labour market, policy changes have created a new problem by steering people into temporary and less secure income sources from the welfare state.     

The Road Not Taken? Changes in Welfare Entry During the 1990s*

Objective. This article examines how welfare entry rates changed during the 1990s, and also assesses whether changes in entry rates are accompanied by improvements in the circumstances of families that choose not to receive welfare. Methods. This analysis uses data from the 1990 and 1996 panels of the Survey of Income and Program Participation to identify three cohorts of low‐income single mothers who are potentially eligible for welfare but are not receiving benefits. Multivariate (competing risk) regression models and decomposition techniques are used to identify the factors responsible for changes in welfare entry patterns over the 1990s. Results. We find that welfare entry rates declined during the 1990s with the largest declines coming toward the end of the decade. Neither changes in the characteristics of low‐income single mothers nor improvements in the economy directly account for this shift. Rather, the introduction of new policies like time limits, full‐family sanctions, and family caps under welfare reform, along with unmeasured factors such as changes in attitudes toward work and welfare, account for the drop in welfare entry rates. The analysis also shows that declining entry rates are not accompanied by substantial improvements in the circumstances of low‐income single mothers who are not on welfare. Conclusions. Welfare reform policies adopted during the 1990s reduced entry into welfare, but single mothers who stayed off welfare remained in precarious economic circumstances.     

Building state capacity for welfare governance: The pathway and development of child welfare system and social work in China

ABSTRACT

China’s dramatic socioeconomic transformation after the reform and opening up, coincided with changes in state-family relationship, has resulted in a large number of children at risk of care. In the past three decades, child welfare has been highly concerned by the government and society, and the child welfare system has substantially developed in the direction of establishing a moderately universal system. In this process, the development of child welfare and social work has shown a mutually reinforcing trend. This includes the professionalisation of child welfare services, the professional training of child welfare workers and the advancement of child welfare policies. The governance of child welfare is an essential component of national social governance. Its future development should be oriented towards a developmental and holistic approach of governance, and social work as an important institutional actor plays a critical role in promoting good governance of child welfare and beyond.     

Events that Trigger Poverty Entries and Exits*

Objective. This article examines how events—such as changes in household composition, employment status, disability status, and economic conditions—affect poverty entries and exits. We also examine whether the role these events play in poverty transitions differs in the pre‐ and post‐welfare‐reform periods. Methods. The analysis uses discrete‐time multivariate hazard models along with monthly, longitudinal data from the 1988, 1990, and 1996 panels of the Survey of Income and Program Participation (SIPP). Results. Analyses show that many events are related to the likelihood of entering and exiting poverty. Of the trigger events examined, individuals living in households that experience a loss or gain of employment are the most likely to enter and exit poverty. We also find that changes in employment are more important in the 1996 to 1999 time period—after welfare reform—than in the 1988 to 1992 time period—prior to welfare reform. Finally, changes in household composition, disability status, and educational attainment are found to play a role in throwing people into poverty and helping them exit from poverty in both time periods. Conclusions. There is no single path into or out of poverty, suggesting that multiple policies can be considered to help alleviate poverty.     

Increasing conflict in times of retrenchment? Attitudes towards healthcare provision in Europe between 1996 and 2002

Public opinion is considered a major obstacle to changing the status quo of welfare state policies. Yet some far‐reaching reforms and gradual changes of European welfare states prompt the reverse question: Have increased reform pressures and restructuring efforts led to changes in individual attitudes? In line with previous research, I found that the strong support for a public provision of healthcare remains unchanged. But what about the structure of attitudes? Testing core assumptions of the new politics theory and power resources theory, I looked at conflict lines within society and how they change in times of retrenchment. Analysing individual attitudes in 14 European countries between 1996 and 2002, I moved beyond static comparisons across countries to provide a dynamic account of trends over time. Observing stability, not change, I found no evidence that the relevance of old cleavages is in decline. Both old and new cleavages shape individual attitudes.     

Economic well‐being of low‐income single‐mother families following welfare reform in the USA

This study explored changes in net disposable income for low‐income single‐mother families before and after the 1996 welfare reform in the USA. Although many studies on welfare reform have focused on employment or total family income as a way to measure low‐income single‐mother families’ economic well‐being, little is known about their net income after expenses related to entering the workforce. This study analyzed net disposable income after tax deductions and childcare costs to provide a more accurate understanding of income changes using data from the Survey of Income and Program Participation conducted by the US Census Bureau. The results revealed that while low‐income single mothers were working more after welfare reform, their net disposable income decreased during this time because their earnings were low and offset by an increase in childcare costs and a decline in means‐tested benefits, including Temporary Assistance for Needy Families benefits. Key Practitioner Message: ● To understand effects of the 1996 welfare reform on low‐income families’ economic well‐being; ● To understand comprehensive income sources and work related expenses of low‐income families; ● To provide policy suggestions for comprehensive childcare subsidies to support low‐income single mothers’ employment.     

MYTHS OF WELFARE REFORM

In Australian welfare reform debate, a range of approaches and policies has been advocated. Regardless of their diversity, I argue that the debate has an unnecessarily narrow framework resulting from the widespread acceptance of at least three welfare reform myths. First, is the idea that the current system is anachronistic and in disrepair. Instead of this narrow focus on welfare policy, I argue that the welfare reform debate must be widened to include other domains of public policy to involve a ‘joined up’ approach to addressing poverty and disadvantage. The second myth is that welfare recipients need to be the focus of policy attention. Policy reforms focus on changing the behaviour of recipients and their communities. Because structural changes underlie increased benefit receipt, such reforms will only have minimal consequences. The third welfare reform myth is the false notion that the current welfare system lacks obligation.     

Benefit dependency: The pros and cons of using “caseload” data for national and international comparisons

Policy‐makers in advanced welfare states have increasingly expressed concerns over large numbers of working‐age people claiming social security support. Accordingly, policies aimed at reducing the level of “benefit dependency” have gained prominence. However, such policies rest on shaky empirical evidence. Systematic collections of national “caseload” data are rare, social security programmes overlap and administrative categories vary over time. The internationally inconsistent treatment of national transfer programmes provides a further challenge for cross‐national comparisons. This article first identifies and discusses several of these problems, and ways in which they may be addressed. It then employs administrative claimant data from six European countries as a way of illustrating trends over time and across countries. The underlying aim is to explore the scientific potential of benefit recipient numbers as an indicator for welfare state change over time and across countries.     

Effective workload management in child welfare: Understanding the relationship between caseload and workload

A common assumption in public social service organizations is that workload may be positively associated with caseload. However, few empirical studies have examined what specific characteristics of caseload affect caseworkers' workloads in the child welfare system. This study attempts to address this gap by identifying specific individual and regional factors that influence both subjective and objective dimensions of workloads. Survey data were collected from 1,244 caseworkers at one public child welfare agency in a Midwestern state in the United States. The data indicated that both perceptions of unmanageable workloads and self‐reported overtime work were significantly higher when caseworkers had a greater number of cases than the state caseload standard for the investigations units and worked with at least two different types of cases simultaneously (e.g., working with both investigation and ongoing service cases). Additionally, sufficient staffing numbers to meet caseload demands at the regional level significantly decreased the odds ratio of having to do overtime work. The major findings suggest that the objective and subjective dimensions of workload vary by individual‐ and regional‐level variables. Practice implications are discussed for effective and efficient workload management in the public child welfare system.     

Public response to welfare policy retrenchment: The importance of trust in implementing agencies. The case of early retirement in Sweden 1999–2010

There is a long-standing argument that citizensapos; trust in the state needs to be recurrently reproduced for policies to endure and that this also includes trust in its separate policy agencies. Such trust is likely to be more important for costlier policies, as, for example, social insurance schemes. The article explores whether short-term changes in welfare programme generosity affect peopleapos;s trust in the agency implementing the programme. Using the example of early retirement in the encompassing welfare state of Sweden, we study a decade of significant reform (1999–2010), during which the inflow to early retirement diminished greatly, as did citizensapos; trust in the implementing Swedish Social Insurance Agency (SSIA). We conclude that citizensapos; trust is higher when implementation is more generous. Indeed, a third of the drop in citizensapos; trust in the SSIA over the period can be explained by declining levels of generosity in early retirement, with people politically to the left responding with lower trust. Theoretically, we suggest, first, that trust in implementing institutions can function as feedback to policy and, second, that there is a basic relationship between more generous policy outcome and higher trust in encompassing welfare states such as Sweden.     

Performance Management,Caseloads and the Frontline Provision of Social Services

Caseloads and performance management are important working conditions of workers delivering public social services in street‐level organizations. The literature on these working conditions argues that high caseloads and performance management have considerable consequences for workers' performance in terms of the quality of services they provide and the results they realize. This article empirically investigates and compares these consequences, drawing on the results of a quantitative study of frontline workers in 14 local welfare agencies in the Netherlands. These workers are responsible for the delivery of welfare‐to‐work policies to social assistance recipients. The findings show that high caseloads do, indeed, have a detrimental effect on workers' performance, whereas the impact of performance management is more modest, though confirming some of the findings reported in other studies on performance management. The results also show that by focusing service provision on a proportion of their caseload, workers are able to reduce the negative impact of high caseloads somewhat. Overall, the article finds that the negative impact of high caseloads is more pervasive than that of performance management. The article concludes that the recent focus in the literature on performance management and its consequences for public services should not turn scholars' attention away from the ‘traditional’ public administration problem of high caseload sizes.     

The Role of Non‐profit Organizations in the Mixed Economy of Welfare‐to‐Work in the UK and Australia

This article charts the development of welfare‐to‐work policies and compares and contrasts the traditions of delivery in the UK and Australia. We find that in the UK, employment services and social security benefit administration have been dominated by the central state, traditionally affording a key role to civil servants as direct delivery agents. However, in federal Australia, mixed economies of welfare‐to‐work operate in the different states, there is a far greater role for social services and non‐profit organizations are firmly established as key providers of frontline employment services. Since the late 1990s, UK welfare reforms have been gradually following the Australian lead in contracting non‐state actors as delivery agents. As this trend seems set to continue and intensify, we examine the Australian experience in order to reflect on the role of non‐profits in policy reform.     

From Subsidiarity to 'Free Choice': Child- and Elder-care Policy Reforms in France, Belgium, Germany and the Netherlands

This article analyses the patterns of reform in care policies in Bismarckian welfare systems since the early 1980s. Based on a comparison of France, Germany, Belgium and the Netherlands, the article shows that these reforms share similar logics and trajectories, which can be explained by the shared conservative and corporatist traits of Bismarckian labour markets and welfare state institutions and their impact on labour market adjustment possibilities and preferences. Indeed, we argue that care policy reforms have been very closely linked to specific employment strategies, and the politics of welfare without work and subsequent attempts to shift away from such a labour-shedding strategy go a long way in explaining both the nature and the timing of child- and elder-care policy reforms in Bismarckian welfare systems. The article also shows how a focus on promoting ‘free choice’ in all four countries has justified the introduction of measures that have simultaneously reinforced social stratification in terms of access to the labour market – meaning that some women have much more ‘free choice’ than others – and weakened certain labour market rigidities. To conclude, we argue that care policy reforms have provided a backdoor for the introduction of labour-cheapening measures and for increasing employment flexibility in otherwise very rigid labour markets.     

‘Southern‐style’ National Health Services? Recent Reforms and Trends in Spain and Greece

This article analyses recent changes in the Greek and Spanish national health services. The aim is to assess how the period of austerity and further recovery during the 1990s and early 2000s impacted on them in terms of equity and efficiency. This is of interest because of the closeness in time between the universalizing reform laws and the arrival of the conditions for economic convergence established in the Maastricht Treaty. The analysis is also attractive because it deals with the transformation of already mature health insurance systems into national health services, a transformation that is novel in European welfare history. The article addresses the questions of whether austerity has hindered full implementation of the reform laws enacted in the early to mid‐1980s, examining reform trajectories and financing and expenditure trends. Furthermore, it considers the impact on access, understood in terms of population coverage, the array of services provided, waiting lists, and territorial inequalities. Finally, it discusses the introduction of new managerial formulas and attempts at enhancing efficiency. The concluding section states that divergent trajectories have occurred, thus rendering the definition of a ‘Southern model of health care’ difficult. It also provides explanations of the trajectories followed in both national cases and informs on prospects for the future.     

Motivating the unemployed: A full-range model of motivational strategies that caseworkers use to activate clients

Governments use activation policies to stimulate unemployed citizens in finding work. Caseworkers are, as front-line workers, responsible for concrete activation trajectories based on these activation policies. Little is known about how caseworkers try to get clients to participate in these activation trajectories. In a qualitative, inductive study (consisting of observations and reflective interviews) in two welfare agencies, we identified 10 motivational strategies that caseworkers employed. The full-range leadership model appeared to be an appropriate perspective to understand, systematize, and reflect on these strategies, in particular as our analyses show that these motivational strategies can be placed on a continuum ranging from laissez-faire to transactional and transformational strategies. We found that caseworkers matched their motivational strategy to the situation and client but preferred transformational strategies. Our findings implicate chances but also challenges for activation in practice and literature on front-line workers.