Chapter 6. Summary: Coordinating Child Support and Public Assistance Agencies
in Their Response to Domestic Violence
Among its major policy provisions, recent
federal welfare reform legislation sought to strengthen enforcement
of child support for TANF recipients while concurrently helping to
protect women who are victims of domestic violence. The Personal
Responsibility and Work Opportunity Reconciliation Act (PRWORA) of
1996 expands penalties for noncustodial parents who fail to pay
support and for custodial parents who, without good cause, do not cooperate with the
child support enforcement process. In addition, recognizing that
domestic violence victims may not be able to comply with the new
legislation’s cooperation requirements, PRWORA includes two
provisions that, under certain circumstances, exempt victims of
domestic violence from requirements for cooperating with
enforcement: the IV-D good cause policy and the Family Violence
Option (FVO).
But for the population of women who are both
victims of domestic violence and interested in pursuing
child support, gaps in current policy continue to neglect important
safety considerations. Many of the safety considerations rest in
procedures that cross agency boundaries, particularly in the
sharing of information and in the understanding of partner
agencies’ policies and procedures. In the absence of
effective interagency coordination, these gaps—in knowledge,
in communication, in concern for safety—present dangers for
victims of domestic violence. Our focus, therefore, has been on
what these sites have done to improve this interagency coordination
while maintaining the dual objectives of child support enforcement
and protection of victims of domestic violence.
The experiences of the four sites in our study
can offer guidance for policymakers and state and local agencies as
they design and implement coordinated responses to domestic
violence victims’ dual needs for child support and safety. We
summarize these efforts to reach across traditional agency
boundaries in implementing PRWORA’s IV-D good cause policy
and the FVO in five broad areas. These ideas can help states
encourage coordination among public assistance, child support, and
domestic violence service providers to serve victims better.
Tapping the expertise of specialized staff can help
address domestic violence concerns. In response to the
expanded roles and responsibilities for staff under PRWORA, IV-A
and IV-D agencies can use three types of specialized staff to
assist domestic violence victims. Specialized public assistance
caseworkers can develop some expertise on domestic violence and
devote the time needed to coordinating service delivery for
victims. Child support staff stationed at welfare agencies can
assist all public assistance recipients and provide special
assistance to recipients with domestic violence issues by helping
them pursue child support safely. External domestic violence
experts located at public assistance agencies can offer caseworkers
and clients access to people with extensive training and expertise
in domestic violence issues.
Supporting local cross-training efforts can deepen
understanding among agencies. Multiple local agencies may
be interested in reciprocal staff training on their respective
procedures and culture. Cross-training can be a powerful vehicle
for alleviating the mistrust and knowledge gaps that exist among
agencies and service providers, and for increasing staff knowledge
of community services available to help clients. Agency
administrators should foster this type of interaction by giving it
appropriate priority. In addition, state funding for cross-training
would support this effort. It would also demonstrate that
interagency coordination is a priority of senior-level staff.
Tying information systems together can help protect
client safety. To serve clients effectively, caseworkers
from public assistance and child support agencies must be aware of
each other’s actions. This is especially true when the client
is a victim of domestic violence, because interagency
miscommunication could cause clients’ personal information to
be sent to their batterers. Coordinated electronic information
systems can help to alleviate problems of miscommunication. The
systems should (1) allow information entered into one
agency’s management information system to be viewed by
workers at other agencies, and (2) enable the information to be
viewed by other parties soon after it is entered. The use of
computer codes that are common to both agencies would increase
understanding of the information. In addition, using a system in
which messages immediately appear on the computer screen of the
recipient helps to alert workers of cases that require special
handling. Allowing for the manual disabling of certain automatic
collection procedures also helps to protect further domestic
violence victims’ safety.
State sponsorship of domestic violence providers’
participation in policy planning adds expertise to the
process. Domestic violence service providers can make
important contributions to policy discussions because of their vast
knowledge of domestic violence issues and of the local communities
in which they are located. However, these agencies may lack the
funding to do so. Offering the modest funding needed to enable
providers to participate promotes fuller collaboration by these
agencies.
Local staff participation in planning or reviewing
policies and procedures helps address operational concerns.
The preceding approaches to encouraging interagency coordination
are enhanced when policies and procedures are developed jointly by
state and local staff, or reviewed by local staff once drafted.
Committees that plan state policy usually include representatives
of state-level agencies but may not include local-level staff. It
is important to include the perspective of local-level staff
because they can offer practical suggestions on how procedures can
be implemented more smoothly. For instance, staff can make sure
procedural language will be intelligible to other local staff and
alert policymakers to potential implementation challenges.