Building Opportunities, Enforcing Obligations
Implementation and Interim Impacts of Parents' Fair Share
Over the past 25 years, policymakers have come to acknowledge the link between lack of child support and the pressing problem of child poverty for a broad range of American families. With over 20 million children under age 18 now living with only one parent or neither parent, there is an urgency to develop more effective methods for obtaining support from noncustodial parents. Much of the public concern about child support has focused on the noncustodial parents (usually fathers) of children receiving welfare, a group for whom earnings and support payments tend to be low. Interest in these families has also been heightened by recent changes in federally funded public assistance, which are gradually leading states to impose various time limits on aid. Since poor families will have to rely even more on nongovernment sources of income in the future, their stake in successful child support enforcement (CSE) has dramatically increased.
The noncustodial parents of children receiving welfare have largely been left out of the reform debate and programmatic initiatives, except as targets of increasing CSE efforts. Unfortunately for poor families, most of the recent CSE reforms have been more effective in increasing collections from noncustodial parents with relatively stable jobs and residence; many of the fathers of children receiving welfare do not fall within this group.
The Parents’ Fair Share (PFS) Demonstration tests a new approach: in exchange for current and future cooperation with the child support system, a partnership of local organizations offered fathers services designed to help them (1) find more stable and better-paying jobs, (2) pay child support on a consistent basis, and (3) assume a fuller and more responsible parental role. Among the key services were peer support (focused on issues of responsible parenting), employment and training services, and an offer of voluntary mediation between the custodial and noncustodial parents. During the period in which parents participated in PFS services, the child support system gave them some “breathing room” and an incentive to invest in themselves by temporarily lowering their current obligation to pay support. CSE staff also closely monitored the status of PFS cases. When a parent found employment, CSE staff were to act quickly to raise the support order to an appropriate level (based on the state’s child support payment guidelines), and if a parent ceased to cooperate with PFS program requirements, CSE staff were to act quickly to enforce the pre-PFS child support obligation. The demonstration is a test of the feasibility of implementing this new “bargain” and its effects on parents, children, and the child support system.
PFS rests on an unusual partnership of funders and program operators, including federal agencies, private foundations, states, localities, and nonprofit community-based organizations. Organized by MDRC, it began in 1992 with a pilot phase to refine the program model and test the feasibility of implementing it at the local level and, despite a variety of implementation challenges, moved into a seven-site demonstration phase in 1994.
This report presents findings from the demonstration-phase implementation of the program, characteristics of the parents in the sample, and early impacts on two outcomes of interest (fathers’ earnings and child support payments).