Can child care assistance in welfare and employment programs support the employment of low‐income families?

Policymakers have long recognized child care as a key ingredient in low‐income parents' employability. We examine the effects of expansions in child care policies that were bundled with a mix of employment‐related policies and implemented as part of several random assignment studies on families' child care access and cost. Almost all of these welfare and employment programs increased employment and led to concomitant increases in the use of child care, especially paid child care. Only the programs that also expanded access or affordability of child care consistently increased the use of child care subsidies and reduced out‐of‐pocket costs to parents, allowing parents to purchase center‐based care. With one exception, such programs had small effects on employment‐related child care problems, suggesting that broader and more generous targeting of child care assistance may be important for achieving the goal of enhancing the stability of employment among low‐income families. © 2004 by the Association for Public Policy Analysis and Management.     

A re‐examination of welfare states and inequality in rich nations: How in‐kind transfers and indirect taxes change the story

Previous studies find large crossnational differences in inequality amongst rich Western nations, due in large part to differences in the generosity of welfare state transfers. The United States is the least generous nation and the one having the most aftertax and transfer inequality. But these analyses are limited to the effects of cash and nearcash transfers and direct taxes on incomes, while on average, half of welfare state transfers in rich nations are inkind benefits—health insurance, education, and other services. Counting inkind benefits at government cost and accounting for the indirect taxes used to finance transfers substantially reduces crossnational differences in inequality at the bottom of the income distribution. The findings have implications for how we think about tradeoffs across welfare state domains that all nations face and we illustrate this with reference to the current U.S. debate about health insurance. © 2006 by the Association for Public Policy Analysis and Management     

NGOs and the policy‐making process in Russia: The case of child welfare reform

This article explores the issue of the major reform of the child welfare sector that has been carried out in Russia in recent years. Focusing on deinstitutionalization and a child's right to a family, this reform moves Russia in the direction of international trends in this area and represents a break with previous state‐ and institution‐dominated approach to “problem families.” The article explores how and why this process has come about in a traditionally top‐down hybrid regime and applies the Multiple Streams Framework first developed by Kingdon to argue that Russian child welfare nongovernmental organizations have acted in concert with government officials to act as policy entrepreneurs in framing the policy problem and presenting solutions to it in a way that has influenced national priorities in this area. At the same time, the article acknowledges that major challenges remain in terms of implementing the reform at the regional level of government in Russia.     

The effect of disabilities on exits from AFDC.

The Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA) of 1996 replaces AFDC, the largest means-tested cast assistance program for low-income families, with the Temporary Assistance for Needy Families (TANF) block grant. Unlike AFDC, assistance under TANF is limited to five years in a lifetime, and states are required to move families from the assistance rolls into jobs. But not all adult welfare recipients can easily move to work because either they themselves are disabled or they have a child with disabilities requiring special care. This article examines the extent and impact of disability among families on AFDC to gain insight into the potential impact of changes under TANF. Using data from the 1990 Survey of Income and Program Participation (SIPP), we find that in nearly 30 percent of the families on AFDC either the mother or child has a disability. Furthermore, we find that having a disability significantly lowers the probability that a woman leaves AFDC for work but not for other reasons, such as a change in living arrangements. Finally, we find little evidence that having a child with a disability affects the probability of leaving AFDC for any reason.     

The long‐term effects of housing assistance on work and welfare

This paper examines the long‐term effect of project‐based housing assistance—public housing and private assisted housing—on work, earnings, and welfare receipt. We use the Panel Study of Income Dynamics–Assisted Housing Database to identify women ever living in project‐based assisted housing and to create comparison groups using propensity scores. Analyses show no evidence that moving into this type of assisted housing is associated with sustained reductions in employment rates, work hours, or earnings. Although welfare rates decline, they remain higher for assisted housing recipients compared with nonrecipients. Overall, these findings align with those of recent experimental and nonexperimental studies that include other forms of housing assistance and cover different time periods. © 2009 by the Association for Public Policy Analysis and Management.     

The effect of routine income withholding of child support collections

Recent federal legislation requires states to make substantial improvements in paternity establishment, enact numeric child support standards for determining child support awards, update those awards at least every three years, and adopt routine income withholding of all child support obligations. Data gathered for the purpose of evaluating the Wisconsin Child Support Assurance System make it possible to examine the effects of routine income withholding on the size and regularity of child support payments. The data consisted of court records of child support cases that entered the court system in 20 Wisconsin counties between 1980 and 1986. Our estimates suggest routine income withholding increases child support payments by between 11 and 30 percent.     

Declining employment among young black less‐educated men: The role of incarceration and child support

In this paper, we explore the continuing decline in employment and labor force participation of nonenrolled Black men between the ages of 16 and 34 who have a high school education or less in the 1980s and 1990s. We focus on two fairly new developments: (1) the dramatic growth in the number of young Black men who have been incarcerated and (2) strengthened enforcement of child support policies. We analyze micro‐level data from the Current Population Survey Outgoing Rotation Groups (CPS‐ORG), into which state‐level data over time on incarceration rates and child support enforcement have been merged. Our results indicate that previous incarceration and child support enforcement can account for half or more of the decline in employment activity among Black men aged 25–34. Previous incarceration also contributes to the decline among those aged 16–24. © 2005 by the Association for Public Policy Analysis and Management     

Effective child support policy for low‐income families: evidence from street level research

Since 1984, policymakers have increasingly turned their attention to reforming the child support system. Despite this attention, the child support system has often failed to increase the economic security of single‐parent families. This article analyzes findings from recent qualitative studies to explain why the child support system breaks down for so many low‐income families. This research suggests that parents often prefer informal arrangements of support and do not comply with child support regulations they perceive to be unfair, counterproductive, or punitive. It also suggests that there is a mismatch between the premises and goals of child support policy and what low‐income parents desire from the system. This mismatch impedes low‐income parents' willingness and ability to comply with existing policy, even when they wish to do so, and will make reform difficult. © 2001 by the Association for Public Policy Analysis and Management.     

Expenditures on children and child support guidelines

This article examines the literature that estimates parental expenditures on children; describes the types of child support guidelines that are being used by the states; and compares how the child support awards that emerge from each state's guidelines compare to the empirical estimates of expenditure patterns on children. The findings indicate that the states' guidelines appear to be more or less consistent with the estimates of expenditures on children. In a few cases, however, the guidelines require less in support from the noncustodial parent than the parent would have spent on the child(ren) in an average intact family. In many other cases, the guidelines require child support payments that are very close to the lower bound of the estimates of expenditures. This article concludes with a discussion of the difficult value judgments that ultimately must be made in setting child support awards.     

The effects of welfare reform on the academic performance of children in low‐income households

During the 1990s, U.S. welfare policy underwent dramatic reforms aimed at promoting employment and reducing dependence. Although the immediate effects on adult labor supply and family income have been studied extensively, this paper is the first to evaluate the long‐run effects on children's well‐being. Using a decade of national math achievement data and controlling for contemporaneous changes in education policy and environment, we associate welfare reform with relative test score improvements for low‐income students. Greater gains occur in states with larger initial welfare caseloads and larger caseload reductions.© 2009 by the Association for Public Policy Analysis and Management.     

The impact of child support enforcement policy on nonmarital childbearing

The interaction of welfare and child support regulations has created a situation in which child support policy's incentives that discourage unwed fatherhood tend to be stronger than its incentives that encourage unwed motherhood. This suggests that more stringent child support enforcement creates incentives that reduce the likelihood of nonmarital childbearing, particularly among women with a significant chance of needing public assistance in the event of a nonmarital birth and their male partners. We investigate this hypothesis with a sample of women from the Panel Study of Income Dynamics, to which we add information on state child support enforcement. We examine childbearing behavior between the ages of 15 and 44 before marriage and during periods of non‐marriage following divorce or widowhood. The estimates indicate that women living in states with more effective child support enforcement are less likely to bear children when unmarried, especially if they are young, never‐married, or black. The findings suggest that improved child support enforcement may be a potent intervention for reducing nonmarital childbearing. © 2006 by the Association for Public Policy Analysis and Management.     

Differential effects of high‐quality child care

In policy research a frequent aim is to estimate treatment effects separately by subgroups. This endeavor becomes a methodological challenge when the subgroups are defined by post‐treatment, rather than pre‐treatment, variables because if analyses are performed in the same way as with pre‐treatment variables, causal interpretations are no longer valid. The authors illustrate a new approach to this challenge within the context of the Infant Health and Development Program, a multisite randomized study that provided at‐risk children with intensive, center‐based child care. This strategy is used to examine the differential causal effects of access to high‐quality child care for children who would otherwise have participated in one of three child care options: no non‐maternal care, home‐based non‐maternal care, and center‐based care. Results of this study indicate that children participating in the first two types of care would have gained the most from high‐quality center‐based care and, moreover, would have more consistently retained the bulk of these positive benefits over time. These results may have implications for policy, particularly with regard to the debate about the potential implications of providing universal child care. © 2002 by the Association for Public Policy Analysis and Management.     

The road to economic self‐sufficiency: Job quality and job transition patterns after welfare reform

This paper analyzes the relationships of schooling, the skill content of work experience, and different types of employment patterns with less‐skilled women's job quality outcomes. Survey data from employers and longitudinal data from former and current welfare recipients are used for the period 1997 to early 2002. The analysis of job quality is broadened beyond employment rates and wages measured at a point in time by including non‐wage attributes of compensation and aspects of jobs that affect future earnings potential. This study shows the extent to which lack of employment stability, job skills, and occupation‐specific experience impedes welfare recipients' abilities to obtain a “good job” or to transition into one from a “bad job.” The business cycle downturn has significantly negatively affected the job quality and job transition patterns of former and current recipients. © 2003 by the Association for Public Policy Analysis and Management.     

The effect of employment and training programs on entry and exit from the welfare caseload

To policymakers, the major attraction of employment and training programs for welfare recipients is that they hold out the prospect that recipients can be moved off the rolls and to self-sufficiency in the private labor market, thereby decreasing welfare costs and caseloads. This article considers the possibility that such programs may also affect the attractiveness of welfare in the first place, either by making welfare less desirable because the work-training program is viewed by recipients as a burden, or by making it more desirable because the program is viewed favorably by potential applicants. Such responses are termed here “entry rate effects.” Some empirical estimates are presented which suggest that the magnitude of such entry rate effects on the caseload, where positive or negative, may be quite large.     

The effect of attending full‐day kindergarten on English learner students

A significant and growing English learner (EL) population attends public schools in the United States. Evidence suggests they are at a disadvantage when entering school and their achievement lags behind non‐EL students. Some educators have promoted full‐day kindergarten programs as especially helpful for EL students. We take advantage of the large EL population and variation in full‐day kindergarten implementation in the Los Angeles Unified School District to examine the impact of full‐day kindergarten on academic achievement, retention, and English language fluency using difference‐in‐differences models. We do not find signficant effects of full‐day kindergarten on most academic outcomes and English fluency through second grade. However, we find that EL students attending full‐day kindergarten were 5 percentage points less likely to be retained before second grade and there are differential effects for several outcomes by student and school characteristics. © 2011 by the Association for Public Policy Analysis and Management.