TANF on the Brink of Change: Reflections of Mothers Receiving Cash Assistance in the District of Columbia

R E S E A R C H R E P O R T TANF on the Brink of Change Reflections of Mothers Receiving Cash Assistance in the District of Columbia Heather Hahn Amelia Coffey Eleanor Pratt May 2018 F R O M S A F E T Y N E T T O SO L I D G R O U N D A B O U T T H E U R B A N I N S TI T U T E The nonprofit Urban Institute is a leading research organization dedicated to developing evidence-based insights that improve people’s lives and strengthen communities. For 50 years, Urban has been the trusted source for rigorous analysis of complex social and economic issues; strategic advice to policymakers, philanthropists, and practitioners; and new, promising ideas that expand opportunities for all. Our work inspires effective decisions that advance fairness and enhance the well-being of people and places. Copyright © May 2018. Urban Institute. Permission is granted for reproduction of this file, with attribution to the Urban Institute. Cover image by Tim Meko. Contents Acknowledgments iv Executive Summary v TANF on the Brink of Change 1 Study Participant Profiles 1 Community Context 1 Basic Demographics 1 Time on TANF 2 Health Challenges 2 Raising Children in Poverty 3 Managing Material Hardship and the Benefits “Puzzle” 5 Why Families Need TANF 8 Employment Challenges: Why It’s Hard to Get and Keep a Job 8 Emotional Costs of Not Working 9 Where They Would Be without TANF 10 Experiences on TANF 11 Experiences at DC DHS Service Centers 11 Experiences with Employment Service Providers and Vendors 14 Impact of Reduced TANF Assistance 19 Expectations for Impact of DC Policy Change 19 Conclusion 20 Notes 21 References 22 About the Authors 23 Statement of Independence 24 IV A C K N O W L E D G M E N T S Acknowledgments This report was funded by the Robert Wood Johnson Foundation. We are grateful to them and to all our funders, who make it possible for Urban to advance its mission. The views expressed are those of the authors and should not be attributed to the Robert Wood Johnson Foundation or the Urban Institute, its trustees, or its funders. Funders do not determine research findings or the insights and recommendations of Urban experts. Further information on the Urban Institute’s funding principles is available at urban.org/fundingprinciples. We would like to thank the women who participated in focus groups and interviews as part of this study as well as those who provided feedback on our findings. We also thank the staff of the District of Columbia Department of Human Services, who helped us identify and recruit people for the interviews and focus groups and who provided information on DC TANF. Finally, we appreciate the helpful comments and suggestions of Genevieve Kenney and Elaine Waxman. This work is part of the Urban Institute’s 50-year history of forecasting and analyzing major shifts in federal policies, including remaking the safety net. As policymakers consider profound changes in the safety net, our researchers remain committed to producing important evidence-based resources for policymakers and the American public to understand the implications of changing federal policy. E X E C U T I V E S U M M A R Y V Executive Summary As the federal government and state governments throughout the country consider changes to safety net programs, the District of Columbia (DC) has been changing its Temporary Assistance for Needy Families (TANF) cash assistance program in ways it believes will promote better long-term outcomes for families and children. The most recent and dramatic change, implemented April 1, 2018, is an end to the five-year limit for full benefits. Before April 2018, families who had received assistance for more than 60 months would receive reduced cash assistance of amounts that gradually diminished to about $150 a month on average. They will now receive the full amount, which for a family of three is up to $575 a month. In this report, we share the voices and experiences of 19 women who have received cash assistance in DC for more than five years and were receiving reduced cash assistance amounts at the time of our interviews. This report is not an evaluation of the DC TANF program. Rather, it is a snapshot of personal reflections that help develop a clearer picture of why people turn to TANF, how they experience the program, and how the program can help them support their families and their children’s futures. Here’s what we heard:  Children are the top priority for mothers who receive TANF. Mothers did not want their children to worry about not having enough money, but some said it did affect their children.  Most of the women were at least sometimes worried about not having enough food, half were worried about losing their housing, and about one-third experienced health challenges.  Moms who receive TANF want to work and have careers, but getting and keeping a job is tough.  Mothers on TANF have difficulty making ends meet, but they are skilled at making do and finding