Safety Net Use

  • Karen Jusko
  • Mark Duggan
  • Hilary Hoynes

Leaders: Mark Duggan, Hilary Hoynes, Karen Jusko

The Safety Net RG is devoted to monitoring changes in government transfers and anti-poverty programs and assessing whether they are meeting the needs of the poor. The U.S. safety net is undergoing such changes as (a) an ongoing decline in TANF cash benefits, (b) rapid increases in spending on EITC, Medicaid, Disability Insurance, Unemployment Insurance, and SNAP, and (c) a dramatic shift toward spending that favors the “working poor” over the more destitute. The CPI affiliates working within this research group are monitoring these changes, examining their implications for poverty, assessing the effectiveness of key government and nongovernment programs in reducing poverty, and modeling the costs and benefits of possible changes in policy and programs. We’ve provided a sampling here of some of this ongoing research.

Poverty Relief Project: With Kate Weisshaar, Karen Jusko uses the poverty relief ratio to evaluate the effectiveness of anti-poverty programs over time, across states, and across countries. Which state is the least effective in fighting poverty? Has the U.S. become more or less effective over time? These and other questions are answered in our latest State of the Union reports.

Long-run effects of SNAP: Have we underestimated the returns to SNAP by ignoring the long-run effects on children exposed to it in their early childhood? It’s now possible to find out.

California Welfare LaboratoryThe poverty rate in California, when measured with the Supplemental Poverty Measure, is the highest in the country. What can be done to bring that rate down? The mission of the California Welfare Laboratory is to make research on California’s welfare programs accessible to all and thus facilitate an informed discussion of what is working and what needs to be improved.

Differential EITC effects: It is often argued that early interventions have especially high payoffs.  Are the returns to the EITC indeed larger when it goes to parents with young children?

Disability and poverty: Does the federal government’s disability program reduce labor supply? Although it’s long been difficult to identify a causal effect, Mark Duggan has now found a way.

The effects of TANF: The TANF program is very decentralized and thus takes on dramatically different forms. How can we exploit that variability to find out what’s working?

Safety Net - CPI Research

Title Author Media
Welfare Reform and the Families It Left Behind H. Luke Shaefer, Kathryn Edin

Welfare Reform and the Families It Left Behind

Author: H. Luke Shaefer, Kathryn Edin
Publisher: Stanford Center on Poverty and Inequality
Date: 01/2018

As early as the year 2000, randomized experiments with programs that were designed to closely resemble welfare reform showed that although the programs reduced poverty overall, they also increased deep poverty. Since that time, research utilizing numerous nationally representative household surveys and other data—using a variety of methods—has documented the stratification of the poor and the rise of disconnected families and $2-a-day poverty. Are these results driven by underreporting in survey data? No. When we control for underreporting, we find that the downward spiral since 1995 is even more dramatic than previously reported. The same is true of findings from SNAP administrative data. Findings from these more robust sources suggest that rather than roughly doubling since welfare reform, $2-a-day poverty tripled or quadrupled. For children in single-mother families, the change is especially dramatic.

Did Welfare Reform Increase Employment and Reduce Poverty? Robert A. Moffitt , Stephanie Garlow

Did Welfare Reform Increase Employment and Reduce Poverty?

Author: Robert A. Moffitt , Stephanie Garlow
Publisher: Stanford Center on Poverty and Inequality
Date: 01/2018

For 60 years, AFDC endured as the country’s best-known cash assistance program for the poor, until Congress replaced it in 1997 with the Temporary Assistance for Needy Families (TANF) program. In a dramatic departure, the new welfare law introduced time limits and work requirements with the goals of encouraging work and discouraging “dependency.” Were those goals realized? There is of course a swirl of opinions on this question. In this article, we review the high-quality research on the law’s effects on work and poverty, with the simple objective of examining whether welfare reform succeeded in reducing dependence on welfare and increasing self-sufficiency.

Scraping by: Income and Program Participation After the Loss of Extended Unemployment Benefits Jesse Rothstein, Robert G. Valletta

Scraping by: Income and Program Participation After the Loss of Extended Unemployment Benefits

Author: Jesse Rothstein, Robert G. Valletta
Publisher: Journal of Policy Analysis and Management
Date: 08/2017

Many Unemployment Insurance (UI) recipients do not find new jobs before exhausting their benefits, even when benefits are extended during recessions. Using Survey of Income and Program Participation (SIPP) panel data covering the 2001 and 2007 to 2009 recessions and their aftermaths, we identify individuals whose jobless spells outlasted their UI benefits (exhaustees) and examine household income, program participation, and health-related outcomes during the six months following UI exhaustion. For the average exhaustee, the loss of UI benefits is only slightly offset by increased participation in other safety net programs (e.g., food stamps), and family poverty rates rise substantially. Self-reported disability also rises following UI exhaustion. These patterns do not vary dramatically across household demographic groups, broad income level prior to job loss, or the two business cycles. The results highlight the unique, important role of UI in the U.S. social safety net.

A Qualitative Census of Rural and Urban Poverty J. Trent Alexander, Robert Andersen, Peter W. Cookson, Kathryn Edin, Jonathan Fisher, David B. Grusky, Marybeth Mattingly, Charles Varner

A Qualitative Census of Rural and Urban Poverty

Author: J. Trent Alexander, Robert Andersen, Peter W. Cookson, Kathryn Edin, Jonathan Fisher, David B. Grusky, Marybeth Mattingly, Charles Varner
Publisher: Annals of the American Academy of Political and Social Science
Date: 06/2017

If we want to build authentic evidence-based policy, we need a strong descriptive foundation of evidence on the everyday experience of poverty. The National Poverty Study (NPS), which is currently in development, provides this foundation with a new “qualitative census” of the everyday conditions of poverty in rural, suburban, and urban sites. The NPS will allow us to build new evidence-based theories of poverty, evaluate and improve existing place-based antipoverty policies, validate official poverty measures, and assist local communities in improving the safety net for vulnerable populations.

State of the Union 2017: Safety Net Mark Duggan, Valerie Scimeca

State of the Union 2017: Safety Net

Author: Mark Duggan, Valerie Scimeca
Publisher: Stanford Center on Poverty and Inequality
Date: 06/2017

Given that poverty rates are signicantly higher among blacks, Hispanics, and American Indians than in the general population, it is not surprising that their enrollment in federal safety net programs, such as Medicaid and food stamps, is also higher. However, poor blacks and American Indians are significantly less likely than other racial and ethnic groups to enroll in Medicaid, which is the largest federal safety net program. No similar gap exists for enrollment in the food stamp or Supplemental Security Income programs.

safety net - CPI Affiliates

Hilary Hoynes's picture Hilary Hoynes Safety Net and Incarceration Research Group Leader, Professor of Public Policy and Economics, Haas Distinguished Chair in Economic Disparities
University of California, Berkeley
Karen Jusko's picture Karen Jusko Safety Net Research Group Leader, Assistant Professor of Political Science
Stanford University
Mark Duggan's picture Mark Duggan Safety Net Research Group Leader, Trione Director, Stanford Institute for Economic Policy Research, Wayne and Jodi Cooperman Professor of Economics
Stanford University
Francisco Pedraza's picture Francisco Pedraza Assistant Professor of Public Policy & Political Science
University of California, Riverside
Gopi Shah Goda's picture Gopi Shah Goda Deputy Director and Senior Fellow, SIEPR
Stanford Institute for Economic Policy Research (SIEPR)

Pages

Safety Net - Other Research

Title Author Media
The Changing Safety Net for Low-Income Parents and Their Children: Structural or Cyclical Changes in Income Support Policy? Bradley Hardy, Timothy Smeeding, James P. Ziliak

The Changing Safety Net for Low-Income Parents and Their Children: Structural or Cyclical Changes in Income Support Policy?

Author: Bradley Hardy, Timothy Smeeding, James P. Ziliak
Publisher: Demography
Date: 01/2018

Refundable tax credits and food assistance are the largest transfer programs available to able-bodied working poor and near-poor families in the United States, and simultaneous participation in these programs has more than doubled since the early 2000s. To understand this growth, we construct a series of two-year panels from the 1981–2013 waves of the Current Population Survey Annual Social and Economic Supplement to estimate the effect of state labor-market conditions, federal and state transfer program policy choices, and household demographics governing joint participation in food and refundable tax credit programs. Overall, changing policy drives much of the increase in the simultaneous, biennial use of food assistance and refundable tax credits. This stands in stark contrast from the factors accounting for the growth in food assistance alone, where cyclical and structural labor market factors account for at least one-half of the growth, and demographics play a more prominent role. Moreover, since 2000, the business cycle factors as the leading determinant in biennial participation decisions in food programs and refundable tax credits, suggesting a recent strengthening in the relationship between economic conditions and transfer programs.

The Long-Run Effects of the Earned Income Tax Credit on Women’s Earnings David Neumark, Peter Shirley

The Long-Run Effects of the Earned Income Tax Credit on Women’s Earnings

Author: David Neumark, Peter Shirley
Publisher: NBER
Date: 12/2017

We use longitudinal data on marriage and children from the Panel Study of Income Dynamics to characterize women’s exposure to the federal and state Earned Income Tax Credit (EITC) during their first two decades of adulthood. We then use measures of this exposure to estimate the long-run effects of the EITC on women’s earnings as mature adults. We find some evidence indicating that exposure to a more generous EITC when women were unmarried and had young (pre-school) children leads to higher earnings and hours, and perhaps wages, in the longer run. We also find some evidence that exposure to a more generous EITC when women had young children but were married leads to lower earnings and hours in the longer run. These longer-run effects are to some extent consistent with what we would expect if the short-run effects of the EITC on employment that are documented in other work, and predicted by theory, are reflected in effects of the EITC on cumulative labor market experience (and other consequences of labor market attachment) that influence earnings.

 

Exploding Asthma and ADHD Caseloads: The Role of Medicaid Managed Care Anna Chorniy, Janet Currie, Lyudmyla Sonchak

Exploding Asthma and ADHD Caseloads: The Role of Medicaid Managed Care

Author: Anna Chorniy, Janet Currie, Lyudmyla Sonchak
Publisher: NBER
Date: 10/2017

In the U.S., nearly 11% of school-age children have been diagnosed with ADHD, and approximately 10% of children suffer from asthma. In the last decade, the number of children diagnosed with these conditions has inexplicably been on the rise. This paper proposes a novel explanation of this trend. First, the increase is concentrated in the Medicaid caseload nationwide. Second, nearly 80% of states transitioned their Medicaid programs from fee-for-service (FFS) reimbursement to managed care (MMC) by 2016. Using Medicaid claims from South Carolina, we show that this change contributed to the increase in asthma and ADHD caseloads. Empirically, we rely on exogenous variation in MMC enrollment due a change in the “default” Medicaid plan from FFS or MMC, and an increase in the availability of MMC. We find that the transition from FFS to MMC explains most of the rise in the number of Medicaid children being treated for ADHD and asthma. These results can be explained by the incentives created by the risk adjustment and quality control systems in MMC.

The Non-Market Benefits of Education and Ability James J. Heckman, John Eric Humphries, Gregory Veramendi

The Non-Market Benefits of Education and Ability

Author: James J. Heckman, John Eric Humphries, Gregory Veramendi
Publisher: NBER
Date: 10/2017

This paper analyzes the non-market benefits of education and ability. Using a dynamic model of educational choice we estimate returns to education that account for selection bias and sorting on gains. We investigate a range of non-market outcomes including incarceration, mental health, voter participation, trust, and participation in welfare. We find distinct patterns of returns that depend on the levels of schooling and ability. Unlike the monetary benefits of education, the benefits to education for many non-market outcomes are greater for low-ability persons. College graduation decreases welfare use, lowers depression, and raises self-esteem more for less-able individuals.

Multi-Generational Impacts of Childhood Access to the Safety Net: Early Life Exposure to Medicaid and the Next Generation's Health Chloe N. East, Sarah Miller, Marianne Page, Laura R. Wherry

Multi-Generational Impacts of Childhood Access to the Safety Net: Early Life Exposure to Medicaid and the Next Generation's Health

Author: Chloe N. East, Sarah Miller, Marianne Page, Laura R. Wherry
Publisher: NBER
Date: 09/2017

We examine multi-generational impacts of positive in utero and early life health interventions. We focus on the 1980s Medicaid expansions, which targeted low-income pregnant women, and were adopted differently across states and over time. We use Vital Statistics Natality files to create unique data linking individuals’ in utero Medicaid exposure to the next generation’s health outcomes at birth. We find strong evidence that the health benefits associated with treated generations’ in utero access to Medicaid extend to later offspring in the form of higher average birth weight and decreased incidence of very low birth weight. Later childhood exposure to Medicaid does not lead to persistent health effects across generations. The return on investment is substantially larger than suggested by evaluations of the program that focus only on treated cohorts.