Sandra K. Danziger Jessica Wiederspan Jena Siegel University of Michigan

1. Sandra K. Danziger Jessica Wiederspan Jena Siegel University of Michigan One Size Fits 20%? Client Perspectives on Welfare Reform

2. Presented at the University of Washington West Coast Poverty Center seminar on Poverty and Public Policy, January 26, 2009. We are grateful for the research assistance of Jessica Allen and Julie Ma and the cooperation of our survey respondents. The research was supported by a grant to The Corporation for a Skilled Workforce and the Michigan Program on Poverty and Social Welfare Policy from the Joyce Foundation. The Michigan Department of Human Services provided administrative data for our sample recruitment.

3. Abstract Many studies measure the effects of the 1996 welfare reform law that transformed public cash assistance for families, but relatively few have assessed changes from the client perspective. This paper reports qualitative analysis of welfare system experiences in a state that hoped to move beyond a "work first" approach. The sample represents a wide range of cases targeted in welfare to work programs and we find that respondents' experiences of the program differ by their combination of needs and circumstances. Only a minority of the sample perceive the program to be beneficial. We develop policy recommendations that may better address the diverse conditions of the current caseload.

4. Introduction • Michigan unveiled a new welfare to work plan in 2006 called “Jobs, Education, and Training,” or JET, designed to reform the state’s work first and welfare programs, operated by two different agencies. • JET was rolled out four pilot counties in Michigan and then expanded statewide in Spring 2007.

5. What is JET? • New up front assessment tools • Increased focus on training and basic education • Increased effort to serve clients with disabilities • Stricter sanctions • Triage meetings between clients and caseworkers

6. Project Goals • The UM study was funded by the Joyce Foundation to conduct an implementation evaluation of the new program. • This paper is based on Phase II of the evaluation. • Our research team conducted telephone interviews with JET participants in order to document how clients understand and experience the program changes.

7. Previous Research on Recipient Perspectives • Clients have complex, difficult and often multiple barriers that go unmet • They report dissatisfaction/frustration with caseworkers • Given that JET hoped to expand services, we explore these topics • And extend prior work by exploring how one’s program experiences are linked to her particular set of needs

8. Sample / Methods • A sample of 193 individuals was drawn from the June 2007 population of 5,649 grantees in the four pilot counties • All 193 individuals were sent letters and multiple attempts were made to contact them by phone. • We reached 78 recipients and completed interviews with 52 respondents. • Interviews were semi-structured and lasted between ½ - 2 hours, averaging 1 hr.

9. The Survey Instrument • Education and work experience • Interaction with state agencies and workers • Experience with JET program components • Barriers to work • Plans and hopes for the future • Receipt of other types of state aid

10. Participant Characteristics

11. Category 1: Education First Characteristics • Young, single mothers; many had children when they were teenagers • Generally lack a high school diploma Needs • In need of education, training, and financial support • Face obstacles to obtaining childcare or transportation Experience with JET • Too much emphasis on job search • Not enough opportunities for education and training • GED training not a core activity

12. “If you’re going to get your degree or something of that nature then you should be eligible for cash assistance without having to work as well.” • “It just seemed like I was getting pushed wherever. Wherever there was room, you got thrown into the class.” (Respondent has a HS degree and wants to take business classes but JET is not making them available). • “The GED program is like 40 of us in one class, everybody talking, the teacher’s in and out of the classroom, so you’re not being able to really do your GED because it’s too much noise and it’s too many people in one classroom. I don’t really think it’s helpful at all.”

13. Category 2: High Barriers Characteristics • Generally older (30s and 40s) • Multiple personal and family barriers (frequently health) Needs • Disability or medical care needed before addressing work issues • For others, SSI or long term assistance Experience with JET • Michigan Rehabilitation Services unable to meet needs of most clients in this category • Need greater assistance/advocacy in completing successful SSI applications

14. “And I’m scared, you know? And that’s why…I’m going through Michigan Rehabs services because I’m trying to get disability. I need to have some medical and my [caseworker] keeps telling me, ‘oh well.’ My worker at MRS says,‘you need to keep applying for it.’ My worker at DHS says,‘you can, but you’ll not get anything.’ … I’m being told I’m being cut off because I haven’t filled the paperwork out. Every…week because of my circumstances he keeps coming up with, ‘you did this, oh now we need this, now this has changed and this is different.’ I’m at my wits end with this guy… He says the state doesn’t have enough money [for Medicaid].”

15. Category 3: New Poor Characteristics • Strong record of prior work experience, some training & skills • Recent unemployment due to the declining economy Needs • Assistance in finding a family-supporting job • Financial counseling • Do not need assistance with resumes, interviewing, or soft skill development Experience with JET • Unable to address labor market conditions • Unprepared to work with clients who fit this profile

16. “I’ve always had a job two or three years, you know, I’ve never had a problem getting one. And then the past couple years is the most times I’ve ever lost a job.” • “They gotta quit making you feel useless. I guess that’s it. You know, you gotta quit feeling like you’re down on your last leg before they will help you. A single parent who are working and need a little boost, I mean, won’t they give it to us…?” • “They shouldn’t expect someone to take a minimum wage job in this economy. It’s not going to get them off assistance, especially if they have children. If the goal is to get them independent of the system, this won’t work – they will be right back.”

17. Category 4: Chronic Working Poor Characteristics • A good deal of work experience • Low job stability (sporadic, part time, or minimum wage) Needs • Problems with childcare, work environment, or transportation • Most have a high school degree but could use additional education or training to move out of the low wage labor market Experience with JET • JET is unable to provide consistent support that enables clients to sustain employment • Not enough opportunities for additional education and training

18. “They just act like we’re deadbeat parents and all we want is free money. When, you know, we’re working our butts off – most of us – and we’re trying, and we just need a little bit of push. We’re not trying to take advantage of the system.” She added, “don’t take so long and don’t treat us like we’re all criminals. Help us out!” • “I think it’s a waste of time that they have us in the classes because by the time we get out of the classes we can’t go look for jobs, because by the time we get out it’s like 3 o’clock in the afternoon. Who wants to hire someone at 3 o’clock in the afternoon? I mean, and that’s Monday through Friday. So, really, how are you supposed to get a job? Although a lot of people just think it’s worthless so a lot of people just let their cases collapse. But when you’ve got a family to provide for, you can’t let that collapse. You have to do it. You have to do it in order to pay your bills.”

19. Category 5: Satisfied with JET Characteristics • Ready to “make a change.” • Have varied levels of work experience and education. Needs • Job preparation and assistance with job search • Require additional types of state assistance in order to make ends meet • Need encouragement and support from staff Experience with JET • Although they still face a number of barriers, they expected improvements & were happy with JET

20. “At first, I’m not going to lie, I felt like it was a waste of time…but after I attended it – and everything they changed about it – it’s for the best because…the model that they have set up…it’s good ‘cause it keeps people intact. It’s helped me out a lot.” • “It’s helped me out a lot through everything… they have a lot of resources to help people if you apply yourself and take advantage of it.”

21. Categories of Need

22. Discussion • JET does not meet the needs of 4/5 of our respondents • More educational opportunities • Faster route to SSI • More job creation networks • Clients felt their interactions with program staff were unsatisfactory • Clients expressed a need for increased money and benefits, but not for those who might be “cheating the system.”

23. Implications • More research is needed to determine how these categories represent the welfare caseload & further test the hypothesis of link between needs and program assessments • For the majority in this study, the programs are not delivering on the promise of expanded services • The complex & varying needs of recipients & the economic spiral could further strain system capacity

24. Looking Forward… President Obama plans to improve conditions of low income families via: • Improved access to higher education • Improved access to high quality child care • Increase in minimum wage & EITC But we may continue to need a responsive public assistance program