Monday, September 09, 2013
Tweet[IWS] CRS: Temporary Assistance for Needy Families (TANF): Characteristics of the Cash Assistance Caseload [21 August 2013]
IWS Documented News Service
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Institute for Workplace Studies----------------- Professor Samuel B. Bacharach
School of Industrial & Labor Relations-------- Director, Institute for Workplace Studies
Cornell University
16 East 34th Street, 4th floor---------------------- Stuart Basefsky
New York, NY 10016 -------------------------------Director, IWS News Bureau
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Congressional Research Service (CRS)
Temporary Assistance for Needy Families (TANF): Characteristics of the Cash Assistance Caseload
Gene Falk, Specialist in Social Policy
August 21, 2013
http://www.fas.org/sgp/crs/misc/R43187.pdf
[full-text, 25 pages]
Summary
The Temporary Assistance for Needy Families (TANF) block grant provides states, territories,
and Indian tribes with federal grants for benefits and services to ameliorate the effects, and
address the root causes, of child poverty. It was created in the 1996 welfare reform law, and is
most associated with policies such as time limits and work requirements that sought to address
concerns about “welfare dependency” of single mothers who received cash assistance. This report
examines the characteristics of the TANF cash assistance caseload in FY2010, and compares it
with selected post-welfare reform years (FY2001 and FY2006) and pre-welfare reform years
(FY1988 and FY1994). The size of the caseload first increased, from 3.7 million families per
month in FY1988 to 5.0 million families per month in FY1994, and then declined dramatically to
2.2 million families in FY2001 and 1.9 million families in FY2010. Over this period, some of the
characteristics of the TANF cash assistance caseload have remained fairly stable, and other
characteristics have changed.
Most cash assistance families are small; 51.7% of all TANF cash assistance families in FY2010
had one child. Cash assistance families also frequently have young children; 57.9% in FY2010
had a pre-school-aged child. The majority of the cash assistance caseload has also been composed
of racial and ethnic minorities. By FY2010, the largest racial/ethnic group of TANF cash
assistance children was Hispanic. In that year, of all TANF assistance child recipients, 34.1%
were Hispanic, 31.7% were African-American, and 27.1% were non-Hispanic white. The growth
in Hispanic children as a percent of all TANF assistance children is due entirely to their
population growth—not an increase in the rate at which Hispanic children receive TANF.
Additionally, the majority of adult recipients today, as in the past, are women—specifically, single
mothers. However, the share of the caseload comprised of families with an adult recipient has
declined substantially in the post-welfare reform period. Almost 4 out of 10 families receiving
TANF cash assistance in FY2010 represented “child-only” families, in which benefits are paid on
behalf of the child in the family but the adult caretaker is ineligible for TANF. The three main
components of the “child-only” caseload are (1) families with a disabled parent receiving federal
Supplemental Security Income (SSI); (2) families with an ineligible, immigrant parent but with
eligible citizen children; and (3) families with children being cared for by a nonparent relative,
such as a grandparent, aunt, or uncle. Each of the three categories of families differs in their
characteristics from TANF cash assistance families with an adult recipient; there are also
differences in characteristics among families in the three major “child-only” categories.
TANF policies generally date back to the 1996 welfare law and the welfare reform debates of the
1980s and 1990s, and do not necessarily address the current composition of the cash assistance
caseload. The major performance measure used to evaluate TANF is the work participation rate, a
measure not relevant to TANF “child-only” families. Many of TANF’s child-only families are
affected by social policies other than TANF (i.e., federal disability, immigration, and child
protection policies). However, these families are also affected by TANF, and there are currently
no federal rules for assessing how TANF funds are used to improve their well-being. Options that
have been raised include requiring states to provide more information to the federal government
and public on benefits and services afforded to “child-only” families. Congress could also either
establish performance goals and measures, or, alternatively, require states to establish such goals
and measures for “child-only” families.
Contents
Introduction ...................................................................................................................................... 1
Brief History of Cash Assistance ............................................................................................... 2
Trends in the Number of Families Receiving Cash Assistance ................................................. 3
Trends in Caseload Characteristics: FY1988 to FY2010 ................................................................. 4
TANF Families by Category ...................................................................................................... 7
Characteristics of TANF Families, By Family Category: FY2010.......................................... 10
Number of Children .......................................................................................................... 11
Age of Children ................................................................................................................. 12
Race and Ethnicity of Child Recipients ............................................................................ 12
Considerations ............................................................................................................................... 13
Non-TANF Policies Affecting “Non-Traditional” Cash Assistance Families ......................... 14
TANF Families with Employed Adults ............................................................................. 14
TANF “Child-Only“ Families ........................................................................................... 15
Coordination Between TANF and Other Programs Affecting TANF Cash
Assistance Families ........................................................................................................ 15
TANF Policies for “Nontraditional” Welfare Families? .......................................................... 16
Figures
Figure 1. Number of Families Receiving Cash Assistance: 1959-2012 .......................................... 4
Figure 2. Families Receiving Cash Assistance, by Category: Selected Years, FY1988 to FY2010 ..........9
Figure 3. Families Receiving Cash Assistance by Family Category: FY2010 .............................. 10
Tables
Table 1. Summary Characteristics of Cash Assistance Families: Selected Years FY1988 to FY2010 .................................. 5
Table 2. Families Receiving TANF Cash Assistance by Family Category and Number of Child Recipients: FY2010 .......................... 11
Table 3. Families Receiving TANF Cash Assistance by Family Category and Age of Youngest Child: FY2010 .......................... 12
Table 4. TANF Child Recipients: by Family Category and Race/Ethnicity: FY2010 ................... 13
Table A-1. Families Receiving Cash Assistance by Family Category: Selected Years, FY1988 to FY2010 ................................... 17
Table A-2. TANF Cash Assistance Caseload By Family Category and State: FY2010 ................ 18
Table A-3. Ratio of TANF Child Recipients to All Children and Poor Children by Race/Ethnicity, Selected Years ........................... 21
Appendixes
Appendix. ....................................................................................................................................... 17
Contacts
Author Contact Information........................................................................................................... 21
Acknowledgments ......................................................................................................................... 21
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