Higher Ground: New Hope for the Working Poor and Their Children
by Greg J. Duncan, Aletha C. Huston and Thomas S. Weisner
Russell Sage Foundation, 2007 Paper: 978-0-87154-167-3 | Cloth: 978-0-87154-325-7 | eISBN: 978-1-61044-172-8 Library of Congress Classification HD8072.5.D85 2007
ABOUT THIS BOOK | AUTHOR BIOGRAPHY | TOC | AWARDS
ABOUT THIS BOOK
During the 1990s, growing demands to end chronic welfare dependency culminated in the 1996 federal "welfare-to-work" reforms. But regardless of welfare reform, the United States has always been home to a large population of working poor—people who remain poor even when they work and do not receive welfare. In a concentrated effort to address the problems of the working poor, a coalition of community activists and business leaders in Milwaukee, Wisconsin, launched New Hope, an experimental program that boosted employment among the city's poor while reducing poverty and improving children's lives. In Higher Ground, Greg Duncan, Aletha Huston, and Thomas Weisner provide a compelling look at how New Hope can serve as a model for national anti-poverty policies. New Hope was a social contract—not a welfare program—in which participants were required to work a minimum of thirty hours a week in order to be eligible for earnings supplements and health and child care subsidies. All participants had access to career counseling and temporary community service jobs. Drawing on evidence from surveys, public records of employment and earnings, in-depth interviews, and ethnographic observation, Higher Ground tells the story of this ambitious three-year social experiment and evaluates how participants fared relative to a control group. The results were highly encouraging. Poverty rates declined among families that participated in the program. Employment and earnings increased among participants who were not initially working full-time, relative to their counterparts in a control group. For those who had faced just one significant barrier to employment (such as a lack of access to child care or a spotty employment history), these gains lasted years after the program ended. Increased income, combined with New Hope's subsidies for child care and health care, brought marked improvements to the well-being and development of participants' children. Enrollment in child care centers increased, and fewer medical needs went unmet. Children performed better in school and exhibited fewer behavioral problems, and gains were particularly dramatic for boys, who are at the greatest risk for poor academic performance and behavioral disorders. As America takes stock of the successes and shortcomings of the Clinton-era welfare reforms, the authors convincingly demonstrate why New Hope could be a model for state and national policies to assist the working poor. Evidence based and insightfully written, Higher Ground illuminates how policymakers can make work pay for families struggling to escape poverty.
AUTHOR BIOGRAPHY
GREG J. DUNCAN is the Edwina S. Tarry Professor of Education and Social Policy at Northwestern University and a faculty fellow at the Institute for Policy Research. ALETHA C. HUSTON is the Priscilla Pond Flawn Regents Professor of Child Development in the department of human ecology at the University of Texas, Austin and associate director of the Population Research Center. THOMAS S. WEISNER is professor of anthropology at the University of California, Los Angeles.
TABLE OF CONTENTS
Table of Contents Acknowledgmentsii Chapter 1Introduction1 Chapter 2Creating New Hope24 Chapter 3Participants49 Chapter 4The Evaluation64 Chapter 5Work and Poverty77 Chapter 6Children106 Chapter 7Families128 Chapter 8New Hope's Lessons156 Chapter 9New Hope and National Policy178 Bibliography193 Appendix208 Acknowledgments Most books are long in the making, and this one is no exception. It began for the three of us in 1995 while we were members of the MacArthur Foundation's Research Network on Successful Pathways through Middle Childhood. Few foundations have been as willing as MacArthur to make open-ended investments in such a diverse group of researchers and provide the time and seed funding for innovative research. Our collaborations and the design and new directions of this work would not have happened without the Network. The Network's success owes much to its visionary leader, Jacquelynne Eccles. Robert Granger, then at MDRC and now president of the W. T. Grant Foundation, offered the Network the opportunity to extend the MDRC evaluation of New Hope to include its effects on children and families. He would have been a fourth author had he had the time. Many other Network members contributed at various stages to the New Hope project, including James Johnson, Cynthia Garcia Coll, and, especially, Vonnie McLoyd. The core New Hope evaluation, focused on income and employment, was supported by a diverse group of funders and skillfully conducted by MDRC. In addition to Robert Granger, Tom Brock, Fred Doolittle, Johannes Bos, Cynthia Miller, and Carolyn Eldred were particularly instrumental in MDRC's evaluation of the program. The Child and Family Study was supported by the MacArthur Foundation, the W. T. Grant Foundation, and the National Institute for Child Health and Human Development (R01 HD 36038) and used the core services of the Population Research Center at the University of Texas at Austin (5 R24 HD042849). The ethnographic fieldwork data management and analyses used core services of the UCLA Qualitative Fieldwork Core, funded by the National Institute for Child Health and Human Development (5 P30 HD004612, Eli Lieber, codirector). Duncan's efforts in writing the book were generously supported by the Russell Sage Foundation, which hosts a visiting scholars program in its New York office. Duncan's year there provided an ideal setting for working on the book. Huston is grateful for the Dean's Fellow research leave granted to her by the University of Texas at Austin. Weisner thanks the Center for Culture and Health at the UCLA Semel Institute for Neuroscience and Human Behavior for research support. Many of the remarkable individuals involved in developing and running New Hope were generous and patient in providing their accounts of its history and correcting our initial attempts to put the story of New Hope on paper. We relied most heavily on Julie Kerksick, David Riemer, and Tom Schrader, but we are also thankful for the time that Sharon Schulz, Don Sykes, and Robert Haveman gave to us. Tom Brock of MDRC provided valuable insights into the implementation of New Hope and the links between the evaluation team and the New Hope program. Weisner led our effort to understand how New Hope affected its participating families by collecting qualitative and ethnographic data from New Hope and control-group families. The terrific fieldwork team that visited the New Hope ethnographic-sample families between 1998 and 2004 included Conerly Casey, Amy Claessens, Mimi Engel, Victor Espinosa, Christina Gibson-Davis, Eboni Howard, Katherine Magnuson, Andrea Robles, Jennifer Romich, and Devarati Syam. Lucinda Bernheimer supervised their efforts and participated in data analysis. Edward Lowe provided outstanding supervision f
AWARDS
Winner of the 2007 Richard A. Lester Prize for Outstanding Book in Labor Economics and Industrial Relations
Higher Ground: New Hope for the Working Poor and Their Children
by Greg J. Duncan, Aletha C. Huston and Thomas S. Weisner
Russell Sage Foundation, 2007 Paper: 978-0-87154-167-3 Cloth: 978-0-87154-325-7 eISBN: 978-1-61044-172-8
During the 1990s, growing demands to end chronic welfare dependency culminated in the 1996 federal "welfare-to-work" reforms. But regardless of welfare reform, the United States has always been home to a large population of working poor—people who remain poor even when they work and do not receive welfare. In a concentrated effort to address the problems of the working poor, a coalition of community activists and business leaders in Milwaukee, Wisconsin, launched New Hope, an experimental program that boosted employment among the city's poor while reducing poverty and improving children's lives. In Higher Ground, Greg Duncan, Aletha Huston, and Thomas Weisner provide a compelling look at how New Hope can serve as a model for national anti-poverty policies. New Hope was a social contract—not a welfare program—in which participants were required to work a minimum of thirty hours a week in order to be eligible for earnings supplements and health and child care subsidies. All participants had access to career counseling and temporary community service jobs. Drawing on evidence from surveys, public records of employment and earnings, in-depth interviews, and ethnographic observation, Higher Ground tells the story of this ambitious three-year social experiment and evaluates how participants fared relative to a control group. The results were highly encouraging. Poverty rates declined among families that participated in the program. Employment and earnings increased among participants who were not initially working full-time, relative to their counterparts in a control group. For those who had faced just one significant barrier to employment (such as a lack of access to child care or a spotty employment history), these gains lasted years after the program ended. Increased income, combined with New Hope's subsidies for child care and health care, brought marked improvements to the well-being and development of participants' children. Enrollment in child care centers increased, and fewer medical needs went unmet. Children performed better in school and exhibited fewer behavioral problems, and gains were particularly dramatic for boys, who are at the greatest risk for poor academic performance and behavioral disorders. As America takes stock of the successes and shortcomings of the Clinton-era welfare reforms, the authors convincingly demonstrate why New Hope could be a model for state and national policies to assist the working poor. Evidence based and insightfully written, Higher Ground illuminates how policymakers can make work pay for families struggling to escape poverty.
AUTHOR BIOGRAPHY
GREG J. DUNCAN is the Edwina S. Tarry Professor of Education and Social Policy at Northwestern University and a faculty fellow at the Institute for Policy Research. ALETHA C. HUSTON is the Priscilla Pond Flawn Regents Professor of Child Development in the department of human ecology at the University of Texas, Austin and associate director of the Population Research Center. THOMAS S. WEISNER is professor of anthropology at the University of California, Los Angeles.
TABLE OF CONTENTS
Table of Contents Acknowledgmentsii Chapter 1Introduction1 Chapter 2Creating New Hope24 Chapter 3Participants49 Chapter 4The Evaluation64 Chapter 5Work and Poverty77 Chapter 6Children106 Chapter 7Families128 Chapter 8New Hope's Lessons156 Chapter 9New Hope and National Policy178 Bibliography193 Appendix208 Acknowledgments Most books are long in the making, and this one is no exception. It began for the three of us in 1995 while we were members of the MacArthur Foundation's Research Network on Successful Pathways through Middle Childhood. Few foundations have been as willing as MacArthur to make open-ended investments in such a diverse group of researchers and provide the time and seed funding for innovative research. Our collaborations and the design and new directions of this work would not have happened without the Network. The Network's success owes much to its visionary leader, Jacquelynne Eccles. Robert Granger, then at MDRC and now president of the W. T. Grant Foundation, offered the Network the opportunity to extend the MDRC evaluation of New Hope to include its effects on children and families. He would have been a fourth author had he had the time. Many other Network members contributed at various stages to the New Hope project, including James Johnson, Cynthia Garcia Coll, and, especially, Vonnie McLoyd. The core New Hope evaluation, focused on income and employment, was supported by a diverse group of funders and skillfully conducted by MDRC. In addition to Robert Granger, Tom Brock, Fred Doolittle, Johannes Bos, Cynthia Miller, and Carolyn Eldred were particularly instrumental in MDRC's evaluation of the program. The Child and Family Study was supported by the MacArthur Foundation, the W. T. Grant Foundation, and the National Institute for Child Health and Human Development (R01 HD 36038) and used the core services of the Population Research Center at the University of Texas at Austin (5 R24 HD042849). The ethnographic fieldwork data management and analyses used core services of the UCLA Qualitative Fieldwork Core, funded by the National Institute for Child Health and Human Development (5 P30 HD004612, Eli Lieber, codirector). Duncan's efforts in writing the book were generously supported by the Russell Sage Foundation, which hosts a visiting scholars program in its New York office. Duncan's year there provided an ideal setting for working on the book. Huston is grateful for the Dean's Fellow research leave granted to her by the University of Texas at Austin. Weisner thanks the Center for Culture and Health at the UCLA Semel Institute for Neuroscience and Human Behavior for research support. Many of the remarkable individuals involved in developing and running New Hope were generous and patient in providing their accounts of its history and correcting our initial attempts to put the story of New Hope on paper. We relied most heavily on Julie Kerksick, David Riemer, and Tom Schrader, but we are also thankful for the time that Sharon Schulz, Don Sykes, and Robert Haveman gave to us. Tom Brock of MDRC provided valuable insights into the implementation of New Hope and the links between the evaluation team and the New Hope program. Weisner led our effort to understand how New Hope affected its participating families by collecting qualitative and ethnographic data from New Hope and control-group families. The terrific fieldwork team that visited the New Hope ethnographic-sample families between 1998 and 2004 included Conerly Casey, Amy Claessens, Mimi Engel, Victor Espinosa, Christina Gibson-Davis, Eboni Howard, Katherine Magnuson, Andrea Robles, Jennifer Romich, and Devarati Syam. Lucinda Bernheimer supervised their efforts and participated in data analysis. Edward Lowe provided outstanding supervision f
AWARDS
Winner of the 2007 Richard A. Lester Prize for Outstanding Book in Labor Economics and Industrial Relations