The Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA) of 1996 changed cash welfare from a system of income maintenance as an entitlement to low-income families to one in which assistance to families is both limited and temporary, and in which work and economic self-sufficiency are emphasized. The emerging emphasis on work has led many states to significantly narrow the exemptions from welfare-related work requirements. Under prior Federal law, states could opt to adjust the young-child work exemption from its Federally-mandated level, which exempted parents with a child under three years old, to exempt only parents with a child under one year old. In 1998, 22 states used the new flexibility granted under PRWORA to require parents to work if their youngest child was less than one year old. This report examines the state and local policies and practices that encourage and support the activities of welfare-reliant parents of infants who are required to engage in work and school activities.

Juggling work and family responsibilities is a formidable challenge for two-parent families with young children, but it is even harder for single parents, who make up the majority of the welfare caseload. Even more challenging for single parents who work is the task of caring for an infant because infant care is generally less available, more expensive, and harder to assess in terms of quality. As states seek ways to support families with infants in their transition from welfare to work, many questions emerge for researchers and policymakers alike. How successful is the welfare-to-work transition for parents of infants? What special challenges do these parents face in balancing their parenting activities with required work or school activities? What supportive services are critical to continued participation in work and school activities, and ultimately, to a successful transition from welfare to work? Is continuous, reliable, affordable, and good-quality infant care available to these parents? Have states taken the opportunity to link these families with child care that can promote the health and development of infants?

In an effort to answer these questions and, ultimately, to address the issue of providing infant care for single, working, low-income parents, the Administration for Children and Families (ACF) of the U. S. Department of Health and Human Services contracted with Mathematica Policy Research (MPR) to conduct the Study of Infant Care Under Welfare Reform. The study was designed to provide information about the strategies states and communities are using to help parents of infants make the transition to school or work while promoting the health and development of their infants, and about the policy and program challenges states and communities are facing in this effort. The information is intended both to inform policymakers about the experience of several communities and to build a foundation for future research on the effectiveness of particular programs, policies, and strategies in supporting the transition to work or school while promoting infant health and development.

The study has three phases:

A general information-gathering phase, focusing on the work-, school-, and child care-related policies and programs in 22 states that required parents of infants to work in 1998, when the study was launched.

An in-depth study phase, focusing on welfare and child care program policy and practice in eight communities, and on the experiences of welfare-reliant parents of infants in these sites.

A research design phase, focusing on the evaluation of programs, policies, and strategies designed to support parents’ transitions to work and their infants’ health and development.

This report presents the findings from the first two phases of the study, with an emphasis on the second phase. We end with a summary of research directions, which will be expanded upon in a forthcoming report. (author abstract)

Helping low-income families in rural areas find gainful employment and achieve economic self-sufficiency is an ongoing policy concern. The Rural Welfare-to-Work Strategies demonstration is using rigorous experimental designs to build knowledge about how to help low-income families in rural areas strive toward sustained employment and self-sufficiency. This report examines an employment-focused case management initiative deployed in southern Illinois. Despite a lack of impacts on employment, earnings, and self-sufficiency, the findings imply a need for stronger interventions in rural areas and demonstrate the challenges inherent in designing, implementing, and evaluating programs in these types of settings.(author abstract)

Almost half of TANF cases are "child-only" in which no adult is included in the benefit calculation. In about 4 out of 10 these cases, the children live with relatives or nonrelatives instead of their parents. The other 6 in 10 cases include parents not eligible for benefits because they receive federal disability payments, are sanctioned for failure to comply with some TANF regulation, exceeded their time limit, or they are undocumented immigrants. This brief reviews the available research on child-only cases, including how cases arise, their characteristics, the children's well-being, and implications for policy and research. (author abstract)

TANF potentially serves as a portal for a wide array of programs that provide cash income support, in-kind nutrition and housing assistance, tax credits, and other services to families with low-incomes. This research brief summarizes what we know about the connections between TANF and other important safety net programs. It reviews the size and scope of the various programs, the receipt of other safety net benefits by TANF families, and the implications for policy and research. (author abstract)

This report summarizes the final impact results for the national Employment Retention and Advancement (ERA) project. This project tested, using a random assignment design, the effectiveness of numerous programs intended to promote steady work and career advancement. All the programs targeted current and former welfare recipients and other low-wage workers, most of whom were single mothers. Given that earlier retention and advancement initiatives studied for these groups were largely not effective, ERA sought to examine a variety of programs that states and localities had developed for different populations, to determine whether effective strategies could be identified. In short, nine of the twelve programs examined in this report do not appear to be effective, but three programs increased employment levels, employment stability, and/or earnings, relative to control group levels, after three to four years of follow-up.

Key Findings:

 - Out of the twelve programs included in the report, three ERA programs produced positive economic impacts; nine did not. All three programs increased employment retention and advancement. Increases in employment retention and earnings were largest and most consistent over time in the Texas ERA program in Corpus Christi (one of three sites that operated this program); the Chicago ERA program; and the Riverside County, California, Post-Assistance Self-Sufficiency (PASS) ERA program. These programs increased annual earnings by between 7 percent and 15 percent relative to control group levels. Each of them served a different target group, which suggests that employment retention and advancement programs can work for a range of populations. However, three-fourths of the ERA programs included in this report did not produce gains in targeted outcomes beyond what control group members were able to attain on their own with the existing services and supports available in the ERA sites.

 - Increases in participation beyond control group levels were not consistent or large, which may have made it difficult for the programs to achieve impacts on employment retention and advancement. Engaging individuals in employment and retention services at levels above what they would have done in the absence of the programs was a consistent challenge. In addition, staff had to spend a lot of time and resources on placing unemployed individuals back into jobs, which made it difficult for them to focus on helping those who were already working to keep their jobs or move up.

Before the ERA project began, there was not much evidence about the types of programs that could improve employment retention and advancement outcomes for current or former welfare recipients. The ERA evaluation provides valuable insights about the nature of retention and advancement problems and it underscores a number of key implementation challenges that a program would have to address. In addition, it reveals shortcomings in a range of common approaches now in use, while identifying three distinct approaches that seem promising and worthy of further exploration. (author abstract)

From the Lumina Foundation, this video clip provides information on a public-private partnership in Louisville, Kentucky. The partnership has set a goal of adding 55,000 bachelors and associate degrees by the year 2020. The partnership is a collaborative effort of Louisville employers, educators, and civic leaders, who are focused on building a well-educated, innovative, and productive workforce. This video is the first in a series that will be released by the Lumina Foundation.

The Personal Responsibility and Work Opportunity Reconciliation Act of 1996 (PRWORA) created a new work-oriented framework for providing assistance to low-income families. Within this framework, states were given a block grant and considerable flexibility to create new support systems for families that encouraged work and discouraged long-term reliance on government-provided cash assistance. Responding to concerns that families that turn to the welfare system for support may find it hard to leave, states began implementing “diversion” programs to keep families whose needs could be met through other means from ever coming on to the welfare rolls. In response to higher effective work participation rates that followed the reauthorization of the Temporary Assistance for Needy Families (TANF) program in 2005, states have added new policies and programs that divert TANF-eligible families from the TANF system.

This report describes states’ policies on and experiences with diversion programs. To document the states’ diversion strategies, Mathematica Policy Research, Inc. (MPR) conducted the Identifying Promising TANF Diversion Practices Study for the U.S. Department of Health and Human Services (HHS), Administration for Children and Families (ACF). Data for the study were collected through a state survey, a telephone interview with designated representatives in each state, and visits to two states to learn more about their diversion strategies. Data collection began in December 2007 and ended in March 2008. (author abstract)

Many State TANF (Temporary Assistance to Needy Families) programs identify literacy services as a critical program component to provide participants. However, as most States experience budget shortfalls and are pressured to focus on job placement more often than remediation, literacy services are often underfunded. In general, those States that have been proactive in their approach to integrating adult literacy into their programs encourage personal responsibility and provide the needed foundation to engage in activities aimed at securing and maintaining employment. They have developed blended approaches that include, but are not limited to, remedial and secondary education programs, job-readiness training, employment/self-employment counseling, field training, and referral to services to improve life management skills. In these instances, the decisions were based on formal assessments and each State has amended the participant’s individual responsibility plan reflecting their training needs and including the necessary and available support services to ensure their success. The attached report provides an environmental scan of literacy resources, sample State programs and an overview of assessment tools.