Association for Public Policy Analysis & Management

Changes in family demographic patterns and the erosion of the social safety net have contributed to the centrality of child support as a source of income for economically-disadvantaged families. However, many noncustodial parents, including a disproportionate share of those whose children live in poverty, have limited earnings and ability to pay child support. Children in single-parent households could therefore benefit from a child support system that enables, as well as enforces, noncustodial parents’ contributions to their support. Though child support agency struggles to facilitate compliance are well-established, specific mechanisms impeding noncustodial parent engagement, and means for addressing them, are less clear. This analysis focuses on two questions to help fill this gap: (1) What factors create barriers to noncustodial parent compliance with child support programs? (2) What strategies and services can help agencies overcome these barriers?

The data for this analysis come from the evaluation of the Child Support Noncustodial Parent Employment Demonstration (CSPED). The goal of CSPED was to facilitate regular payment of child support through the provision of enhanced child support, employment, parenting, and case management services. The analysis draws from focus groups with low-income noncustodial parents (n=34), and interviews (n=54) and web surveys (n=131) of program staff. Interviews were coded in NVivo Pro11 and analyzed using thematic analysis.

This analysis finds that barriers to engagement with the child support system include an array of practical limitations making it difficult for low-income noncustodial parents to engage in work and make consistent child support payments, including lack of stable work history; criminal background; substance abuse and mental health service needs; and transportation-related barriers. However, previous negative interactions with child support agencies also render many noncustodial parents reluctant to engage with the system. Noncustodial parents’ perceptions that the child support system viewed them as “deadbeat dads,” as well as fear of incarceration and loss of limited financial resources resulting from interactions with the child support program, can alienate noncustodial parents. Programmatic strategies for overcoming these barriers should include services intended specifically to address improved employment prospects; child support services that remove system-imposed barriers to compliance; and connections to other services that could help address unmet needs that interfere with work and child support compliance. However, services should also be coupled with efforts to facilitate organizational change through agency leadership, strategic staffing, and collaboration with community partners.

Results demonstrate that services strategically designed to meet noncustodial parent needs and help overcome barriers to employment and compliance are important to compliance and service engagement. However, historical stigmatization, negative past experiences, and unmet service needs beyond the realm of child support also play a crucial role. The results also provide insights into successful engagement strategies for other service providers that interact with reluctant clients.