“It’s Great When People Don’t Even Have Their Welfare Cases Opened”: TANF Diversion as Process and Lesson

The 1996 Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA) encouraged states to reduce welfare caseloads. Caseload reduction can be accomplished by promoting exit for work, marriage, or other private means of support and by diverting new applicants. Most research on caseload decline has focused on welfare‐to‐work outcomes; less is known about processes of diversion. This study employs administrative records and ethnographic data to examine diversion in West County, New York, from 1999 to 2003. Findings demonstrate a high level of diversion and suggest that application is an ongoing and at times remedial process rather than an event. Diversion occurs at all points of the expanded TANF (Temporary Assistance to Needy Families) intake process and is associated with one‐time lump sum payments as well as the hassle factor engendered by new eligibility requirements. The encumbered lives of applicants and TANF staff discretion are also implicated as factors contributing to diversion. We conclude with an analysis of the implications of TANF diversion for access to benefits.     

Marriage patterns among unwed mothers: Before and after PRWORA

The promotion of marriage and two‐parent families became an explicit public policy goal with the passage of the 1996 welfare reform bill. Marriage has the putative effect of reducing welfare dependency among single mothers, but only if they marry men with earnings sufficient to lift them and their children out of poverty. Newly released data from the 2002 cycle of the National Survey of Family Growth (NSFG), along with data from the 1995 cycle, allow us to compare pre‐ and post‐PRWORA differences in (1) cumulative marriage rates among unwed mothers, and (2) patterns of marital choice (that is, differences in characteristics of the men these mothers marry, such as their education and employment status). Overall, our results show that unwed childbearing is associated with lower marriage rates and marital quality. Difference‐in‐difference models show that welfare reform was not strongly associated with pre‐ and post‐welfare reform changes in marriage among nonmarital birth mothers, even among the most disadvantaged mothers. Compared with other women, nonmarital birth mothers also were less likely than other women to marry “economically attractive” men in the post‐welfare reform period. The success of marriage promotion initiatives may depend heavily on whether women themselves are “marriageable” and whether potential spouses have the ability to support a stable family life. © 2008 by the Association for Public Policy Analysis and Management.     

Has welfare reform changed teenage behaviors?

Data from the National Longitudinal Surveys of Youth 1979 and 1997 cohorts were used to compare welfare use, fertility, educational attainment, and marriage among teenage women in the years before and immediately following welfare reform. The first objective was to document differences between these cohorts in welfare use and outcomes and behavior correlated with entry into welfare and with future economic and social well‐being. The second objective was to investigate the causal role of welfare reform in behavioral change. Significant differences were found between cohorts in welfare use and in outcomes related to welfare use. Furthermore, difference‐in‐differences estimates suggest that welfare reform has been associated with reduced welfare receipt, reduced fertility, and reduced marriage among young women who, because of a disadvantaged family background, are at high risk of welfare receipt. Finally, in the post‐welfare reform era, teenage mothers are less likely to receive welfare and are more likely to live with at least one parent than in the pre‐reform era. Establishing more definitively that welfare reform is responsible for these changes will require further investigation. © 2003 by the Association for Public Policy Analysis and Management.     

Federal constraints and state innovation: Lessons from Florida's family transition program

Prevailing wisdom holds that limiting the federal role in welfare will free the states to be more innovative in welfare‐to‐work programs. Findings from Florida's Family Transition Program (FTP), a pilot welfare reform initiative, however, suggest that the relationship between federal “strings” and state innovation is more complex. A central feature of the welfare‐to‐work program in the FTP was the direct result of federal requirements imposed by the Department of Health and Human Services during waiver negotiations. Federal regulation, in this case, promoted innovation. Outcome‐orientation, media and political attention, and fiscal structure are argued to be potentially important factors structuring the impact of federal regulation on state innovation. ©1999 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.     

Beating Social Democracy on Its Own Turf: Issue Convergence as Winning Formula for the Centre‐Right in Universal Welfare States

Recent elections yielded sweeping majorities for the centre‐right in Scandinavia with a decade of pure centre‐right majorities in Denmark and the longest sitting centre‐right coalition in Sweden for decades. This is a blind spot in the issue voting literature, which would not expect centre‐right parties to flourish in contexts where welfare issues have a natural salience as in the case of universal welfare states. In contrast, Scandinavian universal welfare states ought to benefit social democracy when it comes to issue voting on welfare issues. It is argued in this article that centre‐right parties can beat social democrats by credibly converging to its social democratic opponent on issues of universal welfare. Issue ownership voting to the benefit of centre‐right parties will then be strongest among voters perceiving the centre‐right to have converged to social democracy and perceiving the centre‐right as issue‐owner. Using Danish National Election Studies, 1998–2007, the article shows that the Danish Liberal Party outperformed the Social Democrats on traditional welfare issues among those voters perceiving the Liberals to be ideologically close to the social democrats. The findings help us to understand why centre‐right parties have recently turned into serious competitors on social democracy's turf: the universal welfare state.     

Financial incentives and welfare reform in the United States

This paper uses a microsimulation model to ask whether welfare recipients in the United States would work full‐time if offered an earnings supplement that was conditioned on full‐time employment. The simulations suggest that the earnings supplement would increase full‐time employment, with little additional cash transfer cost to the government. In contrast, financial incentives currently being used by many of the states are increasing employment and income, but are encouraging primarily part‐time employment. Encouraging full‐time employment is particularly important in light of new time limits on welfare receipt. Faced with a loss of welfare benefits, many recipients may find that part‐time earnings do not allow them to be economically self‐sufficient. © 2001 by the Association of Public Policy Analysis and Management.     

The Politicization of Marriage in Contemporary American Public Policy: The Defense of Marriage Act and the Personal Responsibility Act

The sexuality politics terrain in the United States is currently marked by a complex and contradictory set of developments‐non-traditional family structures are becoming more common, popular opinion is moving in a more tolerant direction, and the lesbian and gay rights movement has enjoyed some victories, but conservative family values and patriarchal heterosexual marriage have been vigorously promoted by influential right-wing social movements and more deeply institutionalized through important public policy initiatives and court decisions. This article considers the theoretical implications of these developments with respect to the conceptual approaches to citizenship and sexuality. It then analyses two major pieces of federal legislation in depth: the Defense of Marriage Act (DOMA) and the Personal Responsibility Act (PRA). DOMA effectively encourages the states to ban same-sex marriages. The PRA is generally considered as a welfare 'reform' law that imposes compulsory 'workfare' schemes and time limits for benefit recipients. It nevertheless has a significant sexual regulation dimension. Both the religious right's campaign against same-sex marriage and the welfare reformers' attack on the rights of single mothers contribute to a reactionary politicization of marriage. In conclusion, the article contends that it is only insofar as lesbian and gay rights issues are understood more broadly as but one aspect of sexual regulation and citizenship rights struggles that we can develop more effective ways of advancing the sexual liberation movement as a whole.     

Subsidized housing,housing prices,and the living arrangements of unmarried mothers

Abstract

Although many studies estimate the effects of welfare benefits on mothers’ living arrangements, housing subsidies and prices are rarely the focus. This article uses a new longitudinal birth cohort study, the Fragile Families and Child Wellbeing Study, to examine the relationship between subsidized housing, housing prices, and the living arrangements of unmarried mothers three years after a nonmarital birth.

Results suggest that the availability of subsidized housing is negatively associated with marriage relative to living alone. Eligibility criteria and means testing in subsidized housing may make marriage a costly choice. Housing prices are positively associated with marriage, cohabitation, and living with family members relative to living alone. Economies of scale may be particularly important for single‐earner households when housing prices increase. Failure to control for housing costs and subsidies leads to underestimates of the effects of welfare and unemployment rates on the living arrangements of unmarried mothers.     

Buttery Guns and Welfare Hawks: The Politics of Defense Spending in Advanced Industrial Democracies

In this article, we present a new theory that, given the economic consequences of military spending, some governments may use military spending as a means of advancing their domestic non‐military objectives. Based on evidence that governments can use military spending as welfare policy in disguise, we argue that the role of ideology in shaping military spending is more complicated than simple left‐right politics. We also present a theory that strategic elites take advantage of opportunities presented by international events, leading us to expect governments that favor more hawkish foreign policy policies to use low‐level international conflicts as opportunities for increasing military spending. Using pooled time‐series data from 19 advanced democracies in the post–World War II period, we find that government ideology, measured as welfare and international positions, interacts with the international security environment to affect defense spending.     

Americanising Brexit Britain's Welfare State?

Will the British welfare state revert to an Americanisation trajectory or retain features of the European model after April 2019? After a period of historically prolonged austerity and substantial working age welfare reform, with the UK facing yet another renegotiation of the social contract in a post‐Brexit world, the question of whether there remains space for an alternative to the ‘American’ model is of crucial importance. We argue that there has been a blurring of differences across the American and European welfare states in terms of working age benefits, as most countries have adopted aspects of work‐based conditionality reforms, which attach the receipt of benefits to the active pursuit of work and, to varying extents, the underlying politics of US welfare reform, where there are large coalitions supportive of more punitive policies towards low‐income adults and minorities. These trends are taking place against the backdrop of a second major shift: increasing restrictions on benefits for immigrants. This double narrowing of the welfare state, making benefits conditional for citizens and excluding those who are not citizens, seemingly sets the agenda for a more restrictive post‐Brexit welfare state. The experience of the last two decades suggests, however, that the adoption of the American model has not been wholesale; steering a middle path between punitive conditional American benefits and more traditionally generous universal benefits is on the agenda across advanced welfare states.     

Partisan politics,welfare states,and environmental policy outputs in the OECD countries, 1975–2005

Building on the burgeoning literature on the association between the welfare state and the environmental state, this study empirically examines how the politics of the former has affected the development of the latter. We suggest that the size of the welfare state shapes the calculus of environmental policy costs by partisan governments. A generous welfare state lowers the costs perceived by the left‐wing government, as large redistributive spending allows the government to mitigate the adverse impact of the new environmental policy on its core supporters, industrial workers. A generous welfare state also implies diminished marginal political returns from additional welfare commitment by the left‐wing government, which lowers the opportunity costs of environmental policy expansion. To the contrary, because of lower overall regulatory and taxation pressure, a small welfare state reduces the costs of environmental policy expansion as perceived by a right‐wing government. Our theoretical narrative is supported in a dynamic panel data analysis of environmental policy outputs in 25 Organisation for Economic Co‐operation and Development member states during the period 1975–2005.     

The importance of discretion for welfare services to minorities: Examining workload and anti-immigration attitudes

Migration influx in Western countries resulting in increasingly diverse societies results in more complex situations for bureaucrats in their client interactions in welfare organizations. The role of discretion for services to clients has received much attention in the public administration research and therefore this study explores the relation among perceived workload, anti-immigration attitudes, perceived discretion, and perceived difficulty in working with migrants. The paper examines the function of perceived discretion as moderator or mediator variable in this constellation. The relations are examined by using structural equation modelling based on a survey among Swedish welfare bureaucrats (N = 1,319). The results show that heavier perceived workload increased the likelihood of experiencing work with migrants as difficult and that greater perceived discretion decreased the likelihood of experiencing work with migrants as difficult. The results suggest that perceived discretion functions as a mediator for the relation between perceived workload and difficulty in work with migrants: potentially functioning as a ‘buffer’ for organizational pressure. We also found that bureaucrats who hold negative attitudes towards migrants were more likely to express their work with migrants as more difficult. This paper contributes to the public administration literature by increasing our knowledge on how discretion has significance in relation to when bureaucrat's behaviour is determined by specific organizational and personal factors.     

Bureaucratic expertise,overconfidence, and policy choice

Classic theory on bureaucracy suggests that one primary source of bureaucratic power in public administration and the policy‐making process derives from bureaucratic issue‐specific expertise. Studies in psychology and behavioral economics suggest that experienced experts tend to be overconfident in estimating their expertise, but few researchers have examined whether experienced bureaucrats are prone to overconfidence and, if so, how overconfidence may correlate with their policy choice. Drawing on past theoretical and empirical literature, this study is the first to investigate these questions by using survey data collected from 579 officials in various agencies related to climate change mitigation and adaptation. Our analyses demonstrate that (a) the level of issue‐specific expertise perceived by individual bureaucrats is positively associated with their work experience/job relevance to climate change, (b) more experienced bureaucrats tend to be more overconfident in assessing their expertise, and (c) overconfidence, independently of sociodemographic characteristics, attitudinal factors and political ideology, correlates positively with bureaucrats’ risk‐taking policy choices.     

Welfare-Ideological Change in Scandinavia: A Comparative Analysis of Partisan Welfare State Positions in Four Nordic Countries, 1970–2003

During the 1990s, the Nordic welfare states, notably Finland and Sweden, faced serious challenges that triggered a number of welfare restructuring processes. This article focuses on the political determinants of these processes, or, more exactly, it analyses changes in partisan welfare policy positions in Denmark, Finland, Norway and Sweden between 1970 and 2003. The main goal of the article is to chart possible changes in party positions on social policy. Has there been a decline in pro‐welfare attitudes during the period 1970–2003, and if so, how are these changes related to ideological and institutional factors? The data analysed in the article consists of election programmes, and more specifically, textual utterances concerning the welfare state. The results indicate a relatively high degree of stability in partisan support for welfare state expansion and investments in social justice, while market‐type solutions to social problems, on the other hand, have become more salient among parties, especially in the Right. The findings suggest that parties still differ from each other as to welfare‐political positions, indicating that Social Democratic and left‐wing parties remain the foremost defenders of the ‘Nordic Welfare Model’, whereas the Right has become more hesitant towards welfare state expansion.     

Residential location,transportation, and welfare‐to‐work in the United States: A case study of Milwaukee

Abstract

This article addresses two questions about spatial barriers to welfare‐to‐work transition in the United States. First, what residential and transportation adjustments do welfare recipients tend to make as they try to become economically self‐sufficient? Second, do these adjustments actually increase the probability that they will become employed?

Analysis of 1997–2000 panel data on housing location and automobile ownership for Milwaukee welfare recipients reveals two tendencies: (1) to relocate to neighborhoods with less poverty and more racial integration and (2) to obtain a car. Results from binary logit models indicate that residential relocation and car ownership both increase the likelihood that welfare recipients will become employed. These findings suggest that policies should aim to facilitate residential mobility for low‐income families and improve their neighborhoods, rather than simply move them closer to job opportunities. The findings also suggest a critical role for transportation policy in reducing unemployment.     

The Cost‐Effectiveness of Welfare‐to‐Work Programs: A Meta‐Analysis

This article uses the tools of meta‐analysis to assess cost–benefit studies of 50 mandatory welfare‐to‐work programs that were targeted at Aid for Families with Dependent Children recipients and evaluated by random assignment. The findings suggest that the costs of a typical evaluated welfare‐to‐work program probably exceeded its benefits from the perspective of the government, but those assigned to the program, and possibly society as a whole, may reap small positive net benefits. However, there are individual programs that are very cost‐beneficial. Further analyses of the determinants of the cost‐benefits of welfare‐to‐work programs to government and society as a whole show that some services are cost‐neutral, but others entail net costs, which are sometimes substantial. The findings suggest that less successful programs might be made more cost‐beneficial by dropping vocational training and basic education as program components, leaving mainly lower cost components, such as mandated job search and sanctions, but also possibly the more costly financial incentives.     

State Welfare Options: Why Are Some States Tough?

In implementing PRWORA, why have some states chosen the most stringent or toughest policy options allowed by the new law? A considerable literature on state policy decisions addresses this topic. The most consistent finding is that “tough states” are those with a conservative ideology and historically high rates of welfare use by minority populations. These conservative policies impact all welfare recipients in the state, regardless of race or sex.     

Issue compensation and right‐wing government social spending

It is well‐established that prolonged left‐wing incumbency has a positive long‐term effect on welfare effort in terms of high levels of social spending and reduced levels of economic inequality and poverty. Prolonged left‐wing incumbency also influences the institutional set‐up of welfare states, in particular generating strong support for existing arrangements in countries with large welfare states. The issue ownership literature furthermore shows that the public comes to distrust right‐wing parties as defenders of the welfare state. In countries that have a tradition of left‐wing incumbency it is particularly important for right‐wing governments to compensate for the distrust of the public because of the popularity of the welfare state and strong vested interests. While right‐wing governments on average are negatively associated with social spending, there is a strong positive association between right‐wing government and social spending in traditionally left‐wing countries. It is even the case that right‐wing governments in these countries spend more on social welfare than left‐wing governments. This indicates that right‐wing governments are forced to compensate for the lack of public trust by being even more generous than the left.     

Age‐based self‐interest,intergenerational solidarity and the welfare state: A comparative analysis of older people's attitudes towards public childcare in 12 OECD countries

When faced with the necessity of reforming welfare states in ageing societies, politicians tend to demand more solidarity between generations because they assume that reforms require sacrifices from older people. Political economy models, however, do not investigate such a mechanism of intergenerational solidarity, suggesting that only age‐based self‐interest motivates welfare preferences. Against this backdrop, this article asks: Does the experience of intergenerational solidarity within the family matter for older people's attitudes towards public childcare – a policy area of no personal interest to them? The statistical analysis of a sample with individuals aged 55+ from twelve OECD countries indicates that: intergenerational solidarity matters; its effect on policy preferences is context‐dependent; and influential contexts must – according to the evidence from twelve countries – be sought in all societal spheres, including the political (family spending by the state), the economic (female labour market integration) and the cultural (public opinion towards working mothers). Overall, the findings imply that policy makers need to deal with a far more complex picture of preference formation toward the welfare state than popular stereotypes of ‘greedy geezers’ suggest.