"It is fortunate that a major feature of American social policy is a series of programs, often referred to as the safety net, that are designed to provide people with cash and other benefits when they fall on hard times—which they are more likely to do during a recession," write the authors of a new report on the response of the Temporary Assistance for Needy Families (TANF) program—the major federal welfare program that replaced Aid to Families with Dependent Children (AFDC) in 1996—to the Great Recession that lasted from December 2007 to June 2009.

In their report, "The Responsiveness of the Temporary Assistance for Needy Families Program during the Great Recession," Ron Haskins, Vicky Albert, and Kimberly Howard write that "All in all, we conclude that the American system of balancing work requirements and welfare benefits worked fairly well, even during the most severe recession since the Depression of the 1930s."

Their report is based on three studies: (1) an examination of the changes in the TANF rolls compared to changes in AFDC rolls during previous recessions, plus changes in TANF rolls in relation to rising unemployment state-by-state; (2) a review of data on single mothers' likelihood to receive TANF benefits during the 2001 and 2007 recessions, their receipt of other program benefits, and what actions single mothers took to deal with the recession; and (3) interviews with 44 directors of state TANF programs to determine their state's response.

"An important question" noted by the authors at the outset "is whether the response of the nation's safety net program in general and the TANF program in particular was commensurate with the challenge posed by the huge level of unemployment during and following the Great Recession."

Some Results of the TANF Study

Haskins, Albert, and Howard arrived at a number of conclusions from the TANF/AFDC study, including:

• TANF rolls increased more in the 2001 recession and the 2007 Great Recession than did AFDC during previous, pre-welfare reform (1996) recessions.
• The increase in TANF rolls was greater during the period of rising unemployment in each state, which did not coincide exactly with the dates of the Great Recession, than during the official recession period nationally.
• The "nation's safety net as a whole performed well during the Great Recession and prevented millions of people from falling into poverty."

"The nation experienced 51 different recessions and 51 different responses by the TANF program to the recession,” they write. "But the key point is that measuring the rise of the TANF caseload in response to the unique increase in unemployment in each state reveals TANF to have been more responsive to the recession."

Some Results of the Single Mothers Study

• Compared with the 1990 recession before welfare reform, "single mothers were less likely to receive benefits from the TANF program during the 2001 and 2007 recessions."
• Single mothers were more likely to receive other "safety net" help such as Unemployment Compensation, Supplemental Nutrition Assistance Program (formerly food stamps), Supplemental Security Income, the Earned Income Tax Credit, and child care, school lunch and breakfast, and other benefits for their children.
• In all the 1990, 2001, and 2007 recessions, "single mothers took action on their own" by finding jobs, living with family, and other ways to "weather the recession."
• Based on income, "poverty among single mothers and their children was lower during the Great Recession than during the recession of 1990."

Given the array of available benefits, the authors conclude that:

a mother with two children earning even as little as $11,000 per year could and still can escape poverty, as measured by income that includes non-cash benefits and tax credits, because of the generosity of these benefits. In our view, the combination of strong work requirements and generous work support benefits is a reasonable policy, despite the fact that fewer mothers receive TANF now than in the past.

Some Results of the TANF Directors Study

"Arguably the people who know the most about the goals and operation of state TANF programs and how the programs responded to the recession are the state TANF directors," write Haskins, Albert, and Howard. "They were, after all, the point persons for state TANF programs before and during the Great Recession. Interviews with TANF directors can provide an insider's view of the TANF issues that we have so far analyzed from the outside." Some of their conclusions from these interviews include:

• Most states did not struggle to pay for growing TANF rolls during the Great Recession.
• Most state directors considered their state's response to the recession "as adequate or better."
• The directors had suggestions for improving the TANF program, including having more flexibility in work participation rates, gaining access to the Contingency Fund, and placing greater emphasis on job training.

Some Policy Recommendations

Although the authors believe that the TANF program worked well, especially in conjunction with other safety net programs, they suggest some potential reforms:

• TANF allows vocational training to count toward states fulfilling their work requirement, but only a maximum of 30 percent of the work requirement can be fulfilled by TANF recipients in education or training. In times of high unemployment, Congress could raise the percentage limit from 30 to 40 or even 50 percent when unemployment reaches some specified level in the state, given that most experts believe the unemployed should expand their skills through job training during recessions.
• Congress should consider changing the 12-week limit on job search during periods of high unemployment to as much as six months, given that the average period of search before finding a job increases sharply during periods of high unemployment.

Download and read the full report for complete methodology, analysis, and data.

In his state of the union and his budget, the President spoke of the stagnation of middle class incomes. Whatever growth we have had has not been broadly shared.  More than 78% of the growth in GDP between 1979 and 2013 has gone to the top one percent. Even Republicans are beginning to worry about this issue although they have yet to develop concrete proposals to address it.

Slow Growth in Incomes

Middle class incomes were growing slowly before the recession and have actually declined over the past decade.   In addition, according to the New York Times, the proportion of the population with incomes between $35,000 and $100,000 in inflation-adjusted terms fell from 53% in 1967 to 43% in 2013.  During the first four decades this was primarily because more people were moving into higher income groups, but more recently it was because they have moved down the ladder, not up.  One can define the middle class in many different ways or torture the data in various ways, but there is plenty of evidence that we have a problem.

What to Do

The most promising approach is what I call “the second earner solution.”  For many decades now, the labor force participation rate of prime age men has been falling while that of women has been rising.  The entry of so many women into the labor force was the major force propelling whatever growth in middle class incomes occurred up until about 2000. That growth in women’s work has now levelled off.  Getting it back on an upward track would do more than any policy I can think of to help the middle class.

Imagine a household with one earner making the average wage of today’s worker and spending full-time in the job market.  That household will have an income of around $34,000. But if he (or she) has a spouse making a similar amount, the household’s income will double to $68,000. That is why the President’s focus on a second-earner credit of $500, a tripling of the child care tax credit, expanding the Earned Income Tax Credit, and providing paid leave are so important. These policies are all pro-work and research shows they would increase employment.

No Marriage = No Second Earner

One problem, of course, is that fewer and fewer households contain two potential workers.  So it would also help to bring back marriage or at least its first cousin, a stable cohabiting relationship.  My ideas on this front are spelled out in my new book, Generation Unbound. In a nutshell, we need to empower women to not have children before they have found a committed partner with whom to raise children in a stable, two-parent family. Whatever the other benefits of two parents, they have twice as much time and potentially twice as much income.    

Other Needed Responses

Shouldn’t we also worry about the wages or the employment of men?  Of course.  But an increase in, say, the minimum wage or a better collective bargaining environment or more job training will have far smaller effects than “the second earner solution.”  In addition, the decline in male employment is related to still more difficult problems such as high rates of incarceration and the failure of men to take advantage of postsecondary education as much as women have. 

Still the two-earner solution should not be pursued in isolation. In the short-term, a stronger recovery from the recession is needed and in the longer-term, more effective investments in education, research, infrastructure, and in labor market institutions that produce more widely-shared growth, as argued by the Commission on Inclusive Prosperity. But do we really expect families to wait for these long-term policies to pay off?  It could be decades. 

In the meantime, the President’s proposals to make work more appealing to existing or potential second earners deserves more attention.  

Improving data in the field of workforce development is a necessary step to evaluating programs and replicating success. What does current data tell us about the populations served? What outcomes should we measure to ensure programs are meeting America’s workforce development needs?

Earlier this month, we convened an expert group of policy makers, practitioners and scholars to address this problem, along with other challenges in workforce development. Previously, we interviewed Kate Blosveren Kreamer on the need to strengthen bridges from school to work. Next up in our Q&A series is Beth Weigensberg, a researcher at Mathematica Policy Research.

A: Although there is increasingly more rigorous research to assess effectiveness of programs, I feel a missing piece is understanding how to replicate and scale-up effective strategies. Often times workforce development programs that are deemed effective in one place do not always succeed when implemented in another. Research that evaluates effectiveness of programs should assess the role of contextual factors (including organizational, leadership, community, and political factors) to identify what is needed to successfully implement, replicate, and scale successful programs.

A: The workforce development field has an unfortunate history of “creaming”—programs selectively work with individuals most likely to succeed at finding employment, leaving those “harder-to-serve” individuals struggling to find assistance. Individuals that are often considered “hard-to-serve” include those who are homeless, disabled, formerly incarcerated, older workers, non-English speakers, low-income, and youth who are disconnected from school and employment. Increasing efforts to focus on these “harder-to-serve” populations include specialized targeted programs and strategies to help address the complex needs of these individuals, which often extend beyond skill development and finding a job. These specialized programs often provide additional support services to help address their complex needs, which can serve as additional barriers to obtaining and retaining employment.

A: Intermediate measures of engagement and skill development would provide interim measures of progress, while the ultimate objectives are obviously employment and educational attainment. Ongoing evaluation on interim measures allows for earlier acknowledgment of achievement and identification of those struggling to progress. Assessing outcomes in ways that control for different populations or barriers to employment, such as using risk-adjusted methodologies, can help us evaluate workforce development programs in an equitable manner.

One of the biggest challenges in the field is ensuring we have valid and reliable data to accurately estimate outcomes. The data available to assess outcomes are usually limited by what is collected in management information systems, which are often developed to be responsive to reporting requirements of publically-funded programs. But these siloed data do not allow for comprehensive assessment of workforce development outcomes within a state, locality, or even within a community-based employment and training organization that relies on numerous funding sources. Efforts are needed to integrate data and assess standardized outcome measures across program and funding silos to allow for more comprehensive assessment of outcomes within the field.

Americans often think of our country as being one of great opportunity – where anyone can rise from very modest circumstances, if they work hard and make good choices. We believe that often remains true.

But, for children and youth growing up in poverty, such upward mobility in America is too rare. Indeed, just 30 percent of those growing up in poverty make it to middle class or higher as adults. Though we’ve made progress in reducing poverty over the past several decades, our poverty rates are still too high and our rate of economic advancement for poor children has been stuck for decades. That is an embarrassment for a nation that prides itself on everyone having a shot at the American Dream.

What can we do to reduce poverty and increase economic mobility? In our polarized and poisoned political atmosphere, it is hard to reach consensus on policy efforts. Both progressives and conservatives want lower poverty; but progressives want more public spending programs to improve opportunity and security for the poor, while conservatives generally argue for more responsibility from them before providing more help.

Even so, progressives and conservatives might not be as far apart as these stereotypes suggest. The two of us—one a conservative Republican and the other a progressive Democrat—were recently part of an ideologically balanced group of 15 scholars brought together by the American Enterprise Institute and the Brookings Institution. Our charge was to generate a report with policy proposals to reduce poverty and increase upward mobility. An additional goal was simply to see whether we could arrive at consensus among ourselves, and bridge the ideological divide that has so paralyzed our political leaders.

Together we decided that the most important issues facing poor Americans and their children are family, education and work. We had to listen to each other’s perspectives on these issues, and be open to others’ truths. We also agreed to be mindful of the research evidence on these topics. In the end, we managed to generate a set of policy proposals we all find compelling.

To begin with, the progressives among us had to acknowledge that marriage is a positive family outcome that reduces poverty and raises upward mobility in America. The evidence is clear: stable two-parent families have positive impacts on children’s success, and in America marriage is the strongest predictor of such stability. Therefore marriage should be promoted as the norm in America, along with responsible and delayed child-bearing.

At the same time, the conservatives among us had to acknowledge that investing more resources in the skills and employability of poor adults and children is crucial if we want them to have higher incomes over time. Indeed, stable families are hard to maintain when the parents – including both the custodial mothers and the (often) non-custodial fathers – struggle to maintain employment and earn enough to support their families. Investing in proven, cost-effective, education and training programs such as high-quality preschool and training for jobs in high-growth economic sectors can improve the skills and employability of kids from poor families and lift them out of poverty through work.

Another important compromise was that progressives acknowledged that expecting and even requiring adults on public assistance to work can reduce poverty, as we learned in the 1990s from welfare reform; programs today like Disability Insurance, among others, need reforms to encourage more work. And reforms that encourage innovation and accountability would make our public education programs for the poor more effective at all levels. We need more choice in public K-12 education (through charter schools) and a stronger emphasis on developing and retaining effective teachers, while basing our state subsidies to higher education institutions more heavily on graduation rates, employment, and earnings of their graduates.

Conservatives also had to acknowledge that requiring the poor to work only makes sense when work is available to them. In periods or places with weak labor markets, we might need to create jobs for some by subsidizing their employment in either the private or public sector (as we did during the Great Recession). We agreed that no one should be dropped from the benefit rolls unless they have been offered a suitable work activity and rejected it. And we also need to “make work pay” for those who remain unskilled or can find only low-wage jobs – by expanding the Earned Income Tax Credit (especially for adults without custody of children) and modestly raising the minimum wage.

We also all agreed on other topics. For instance, work-based learning—in the form of paid apprenticeships and other models of high-quality career and technical education—can play an important role in raising both skills and work experience among poor youth and adults.  And, if we raise public spending for the poor, we need to pay for it—and not increase federal deficits. We all agree that reducing certain tax deductions for high-income families and making our retirement programs more progressive are good ways to finance our proposals.

As our report demonstrates, it is possible for progressives and conservatives to bridge their differences and reach compromises to generate a set of policies that will reduce poverty and improve upward mobility. Can Congress and the President do the same?

Editor's Note: this piece first appeared in Inside Sources.

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