Addressing the disparity in test scores between black and white children remains one of the greatest social challenges of our time. Between the 1960s and 1980s, tremendous strides were made in closing the achievement gap, but that remarkable progress halted abruptly in the mid 1980s, and stagnated throughout the 1990s. How can we understand these shifting trends and their relation to escalating economic inequality? In Steady Gains and Stalled Progress, interdisciplinary experts present a groundbreaking analysis of the multifaceted reasons behind the test score gap—and the policies that hold the greatest promise for renewed progress in the future.

Steady Gains and Stalled Progress shows that while income inequality does not directly lead to racial differences in test scores, it creates and exacerbates disparities in schools, families, and communities—which do affect test scores. Jens Ludwig and Jacob Vigdor demonstrate that the period of greatest progress in closing the gap coincided with the historic push for school desegregation in the 1960s and 1970s. Stagnation came after efforts to integrate schools slowed down. Today, the test score gap is nearly 50 percent larger in states with the highest levels of school segregation.  Katherine Magnuson, Dan Rosenbaum, and Jane Waldfogel show how parents’ level of education affects children’s academic performance: as educational attainment for black parents increased in the 1970s and 1980s, the gap in children’s test scores narrowed. Sean Corcoran and William Evans present evidence that teachers of black students have less experience and are less satisfied in their careers than teachers of white students. David Grissmer and Elizabeth Eiseman find that the effects of economic deprivation on cognitive and emotional development in early childhood lead to a racial divide in school readiness on the very first day of kindergarten. Looking ahead, Helen Ladd stresses that the task of narrowing the divide is not one that can or should be left to schools alone. Progress will resume only when policymakers address the larger social and economic forces behind the problem. Ronald Ferguson masterfully interweaves the volume’s chief findings to highlight the fact that the achievement gap is the cumulative effect of many different processes operating in different contexts.

The gap in black and white test scores is one of the most salient features of racial inequality today. Steady Gains and Stalled Progress provides the detailed information and powerful insight we need to understand a complicated past and design a better future.

KATHERINE MAGNUSON is assistant professor of social work and a faculty affiliate at the Institute for Research on Poverty at the University of Wisconsin, Madison.

JANE WALDFOGEL is professor of social work and public affairs at Columbia University.

CONTRIBUTORS: Mark Berends, Mary E. Campbell, Sean P. Corcoran, Elizabeth Eiseman, William N. Evans, Ronald F. Ferguson,  David Grissmer,  Robert Haveman,  Helen F. Ladd,  Jens Ludwig, Roberto V. Penaloza,  Meredith Phillips,  Dan T. Rosenbaum,  Jacob L. Vigdor, Tina Wildhagen, Barbara L. Wolfe.

An Institute for Research on Poverty Affiliated Book on Poverty and Public Policy

The reach of the social and behavioral sciences is currently so broad and interdisciplinary that staying abreast of developments has become a daunting task. The thirty papers that constitute Leading Edges in Social and Behavioral Science provide a unique composite picture of recent findings and promising new research opportunities within most areas of social and behavioral research. Prepared by expert scholars under the auspices of the National Academy of Sciences, these timely and well-documented reports define research priorities for an impressive range of topics:

Part I: Mind and Brain

Part II: Behavior in Social Context

Part III: Choice and Allocation

Part IV: Evolving Institutions

Part V: Societies and International Orders

Part VI: Data and Analysis

R. DUNCAN LUCE is Distinguished Professor of Cognitive Science and director of the Irvine Research Center in Mathematic Behavioral Science at the University of California, Irvine.

NEIL J. SMELSER is University Professor of Sociology at the University of California, Berkeley.

DEAN R. GERSTEIN is study director at the National Research Council, National Academy of Sciences.

CONTRIBUTORS: Norma Graham, Linda Bartosik, Albert S. Bregman, Julian Hichberg, Azriel Rosenfeld, Michael Studdert-Kennedy, R. Duncan Luce, Richard Thompson, Carol Barnes, Thomas Carew, Lon Cooper, Michela Gallagher, Michael Posner, Robert Rescola, Daniel Schachter, Larry Squire, Alan Wagner, Saul Steinebers, Fergus I.M. Clark, John Jonedes, Walter Kinsch, Stephen M. Kosslyn, James L. McClelland, Raymond S. Nickerson, James Greeno, Frederick J. Newmeyer, Antonio R. Damasio, Merrill Garrett, Mark Lieberman, David Lightfoot, Howard Poizner, Thomas Roeper, Eleanor Saffran, Ivan Sag, Victoria Fromkin, Herbert Pick, Ann L. Brown, Carol Dweck, Robert Emde, Frank Keil, David Klahr, Ross S. Parke, Steven Pinker, Rochel Gelman, David S. Krantz, Leonard Epstein, Norman Garmezy, Marcha Ory, Leonard Perlin, Judith Rodin, Marvin Stein, John F. Kihlstrom, Ellen Berscheid, John Darley, Reid Hastie, Harold Kelley, Sheldon Stryker, Edward E. Jones, Nancy M,. Henley, Rose Laub Cosner, Jane Flax, Naomi Quinn, Kathryn Rish Sklar, Sherry B. Ortner, Alfred Blumstein, Richard Berk, Philip Cook, David Farrington, Samuel Krislov, Albert J. Reiss Jr., Franklin Zimring, William Riker, James S. Coleman, Bernard Grofman, Michael Hechter, John Ledyard, Charles Plott, Kenneth Shepsle, John Ferejohn,  Mark Machina, Robin Hogarth, Kenneth MacCrimmon, John Roberts, Alvin Roth, Paul Slovic, Rihard Thaler, Oliver Williamson, Jerry Hausman, Paul Joskow, Roger Noll, Vernon Smith, David Wise, Stanley Reiter, Kenneth Arrow, Lance Davis, Paul Dimaggio, Mark Granovetter, Jerry Green, Theodore Groves, Michael Hannan, Andrew Postlewaite, Roy Radner, Karl Shell, Leonid Hurwicz, Frank Stafford, Jamoes Baron, Danier Hamermesh, Christopher Jencks, Ross Stolzenberg, Donald J. Treiman, Stanley Fischer, William Beeman, Rudiger Dornbusch, Thomas Sargent, Robert Schiller, Lawrence Summers, Glynn Isaac, Robert Blumenschine, Margaret Conkey, Terry Deacon, Irven Devore, Peter Ellison, Richard Milton, David Pilbeam, Richard Potts, Kathy Schick, Margaret Schoeninger, Andrew Sillen, John Speth, Nicholas Toth, Sherwood Washburn, Douglas C. North, Robert Bates, Robert Brenner, Elizabeth Colson, Kent Flannery, Vernon Smith, Neil Smelser, Samuel Preson, Ansley Coale, Kingsley Davis, Geoffrey McNicoll, Jane Menken, T. Paul Schultz, Daniel Vining, John Modell, Margaret Clark, William Goode, William Kessen, Robert Willis, John Quigley, Alex Anas, Geoffrey Hewings, Risa Palm, James Fernandez, Keith Basso, Karen Blu, Kenneth Boulding, Stepher Gudeman, Michael Kearney, Goerge Marcus, Dennis McGilvary, Emiko Ohnuki-Tierney, William Sewell, Daniel H. Levine, Leonard Binder, Thomas Bruneau, Jean Comaroff, Susan Harding, Charles Keyes, Robert Wuthnow, Dorothy Nelkin, Charles Rosenberg, Theda Skocpol, Martin Bulmer, Thomas Joster, Donald McCloskey, Arnold Thackeray, Carol Weiss, Peter Evans, Bruce Cumings, Albert Fishlow, Peter Gourevitch, John Meyer, Alejandro Portes, Barbara Stallings, Robert Jervis, Josh Lederberg, Robert North, Steven Rosen, Dina Zinnes, Warren Miller, Martin David, James Davis, Bruce Russett, Kimball Romney, Norman Bradburn, J. Douglas Carol. Roy D'Andrade, Jean Claude Falmagne, Paul Holland, Lawrence Hubert, Edward E. Leamer, John W. Pratt, Cliffors C. Clogg, Bert F. Green, Michael Hannan, Jerry A. Hausman, William H. Kruskal, Donald B. Rubin, I. Richard Savaga, John W. Turkey, Kenneth W. Wachter, Leo A. Goodman.

Winner of the 1980 C. Wright Mills Award from the Society for the Study of Social Problems

Winner of the 1981 Gladys M. Kammerer Award from the American Political Science Association

Winner of the 1999 Aaron Wildavsky Enduring Contribution Award from the Policy Studies Organization

First published in 1980, Street-Level Bureaucracy received critical acclaim for its insightful study of how public service workers, in effect, function as policy decision makers, as they wield their considerable discretion in the day-to-day implementation of public programs. Three decades later, the need to bolster the availability and effectiveness of healthcare, social services, education, and law enforcement is as urgent as ever. In this thirtieth anniversary expanded edition, Michael Lipsky revisits the territory he mapped out in the first edition to reflect on significant policy developments over the last several decades. Despite the difficulties of managing these front-line workers, he shows how street-level bureaucracies can be and regularly are brought into line with public purposes.

Street-level bureaucrats—from teachers and police officers to social workers and legal-aid lawyers—interact directly with the public and so represent the frontlines of government policy. In Street-Level Bureaucracy, Lipsky argues that these relatively low-level public service employees labor under huge caseloads, ambiguous agency goals, and inadequate resources. When combined with substantial discretionary authority and the requirement to interpret policy on a case-by-case basis, the difference between government policy in theory and policy in practice can be substantial and troubling.

The core dilemma of street-level bureaucrats is that they are supposed to help people or make decisions about them on the basis of individual cases, yet the structure of their jobs makes this impossible. Instead, they are forced to adopt practices such as rationing resources, screening applicants for qualities their organizations favor, “rubberstamping” applications, and routinizing client interactions by imposing the uniformities of mass processing on situations requiring human responsiveness. Occasionally, such strategies work out in favor of the client. But the cumulative effect of street-level decisions made on the basis of routines and simplifications about clients can reroute the intended direction of policy, undermining citizens’ expectations of evenhanded treatment.

This seminal, award-winning study tells a cautionary tale of how decisions made by overburdened workers translate into ad-hoc policy adaptations that impact peoples’ lives and life opportunities. Lipsky maintains, however, that these problems are not insurmountable. Over the years, public managers have developed ways to bring street-level performance more in line with agency goals. This expanded edition of Street-Level Bureaucracy underscores that, despite its challenging nature, street-level work can be made to conform to higher expectations of public service.

MICHAEL LIPSKY is senior program director of Demos, a non-partisan public policy research and advocacy organization, and an affiliate professor at Georgetown University.

Reaffirms the importance of the larger kinship network through analysis of extensive data on the clients of one social agency. The authors show that the less kinship-oriented caseworkers often attempt to change clients' kin relationships in the direction of less involvement, raising questions about value differences in therapeutic practice. The book also points to the importance of concepts, such as those dealing with family kinship, that will enable the caseworker to appraise the client's social relationships more fully. The authors emphasize the benefits to be derived from a closer liaison between social work and social science.

HOPE JENSEN LEICHTER is associate professor at Columbia University's Teacher's College.

WILLIAM E. MITCHELL is research associate in anthropology in the Department of Psychiatry at the Vermont College of Medicine.

Class differences permeate the neighborhoods, classrooms, and workplaces where we lead our daily lives. But little is known about how class really works, and its importance is often downplayed or denied. In this important new volume, leading sociologists systematically examine how social class operates in the United States today. Social Class argues against the view that we are becoming a classless society. The authors show instead the decisive ways social class matters—from how long people live, to how they raise their children, to how they vote.

The distinguished contributors to Social Class examine how class works in a variety of domains including politics, health, education, gender, and the family. Michael Hout shows that class membership remains an integral part of identity in the U.S.—in two large national surveys, over 97 percent of Americans, when prompted, identify themselves with a particular class. Dalton Conley identifies an intangible but crucial source of class difference that he calls the “opportunity horizon”—children form aspirations based on what they have seen is possible. The best predictor of earning a college degree isn’t race, income, or even parental occupation—it is, rather, the level of education that one’s parents achieved. Annette Lareau and Elliot Weininger find that parental involvement in the college application process, which significantly contributes to student success, is overwhelmingly a middle-class phenomenon. David Grusky and Kim Weeden introduce a new model for measuring inequality that allows researchers to assess not just the extent of inequality, but also whether it is taking on a more polarized, class-based form. John Goldthorpe and Michelle Jackson examine the academic careers of students in three social classes and find that poorly performing students from high-status families do much better in many instances than talented students from less-advantaged families. Erik Olin Wright critically assesses the emphasis on individual life chances in many studies of class and calls for a more structural conception of class. In an epilogue, journalists Ray Suarez, Janny Scott, and Roger Hodge reflect on the media’s failure to report hardening class lines in the United States, even when images on the nightly news—such as those involving health, crime, or immigration—are profoundly shaped by issues of class.

Until now, class scholarship has been highly specialized, with researchers working on only one part of a larger puzzle. Social Class gathers the most current research in one volume, and persuasively illustrates that class remains a powerful force in American society.

ANNETTE LAREAU is professor of sociology at University of Maryland, College Park.

DALTON CONLEY is University Professor at New York University.

CONTRIBUTORS:  Clem Brooks, Richard M. Carpiano, John Goldthorpe, David B. Grusky,  Angel L. Harris, Roger D. Hodge,  Michael Hout,  Michelle Jackson,  Kathryn Lacy, Bruce G. Link,  Jeff Manza,  Leslie McCall,  Mary Pattillo,  Jo C. Phelan,  Janny Scott,  Ray Suarez,  Kim A. Weeden, Elliot B. Weininger, Erik Olin Wright.

Deals in comprehensive fashion with a diverse array of objective and subjective social indicators and shows how these indicators can be used, potentially, to inform and perhaps guide social policy. Written with clarity and authority, it will be of paramount interest to those concerned with the interpretation and analysis of social indicators and to those interested in their use. For the former, it serves as an illuminating introduction to some of the analytical tasks that lie ahead in the study of social indicators. For the latter, it provides a solid foundation upon which future policy analysis may be based.

KENNETH C. LAND is associate professor of sociology at the University of Illinois, Urbana.

SEYMOUR SPILERMAN is professor of sociology at the University of Wisconsin, Madison.

CONTRIBUTORS:  James S. Coleman,  James A. Davis, Beverly Duncan,  Otis Dudley Duncan,  Mark Evers,  David L. Featherman,  Robert M. Hauser,  Kenneth C. Land,  Judah Matras,  David D. McFarland,  Aage B. Sorenson,  Seymour Spilerman,  Arthur L. Stinchcombe,  Richard Stone,  Kermit Terrell,  Donald J. Treiman, James C. Wendt, H.H. Winsborough.  

One of the most challenging goals for welfare reformers has been improving the collection of child support payments from noncustodial parents, usually fathers. Often vilified as deadbeats who have dropped out of their children's lives, these fathers have been the target of largely punitive enforcement policies that give little consideration to the complex circumstances of these men's lives.

Fathers' Fair Share presents an alternative to these measures with an in-depth study of the Parents Fair Share Program. A multi-state intervention run by the Manpower Demonstration Research Corporation, the program was designed to better the life skills of nonpaying fathers with children on public assistance, in the belief that this would encourage them to improve their level of child support. The men chosen for the program frequently lived on the margins of society. Chronically unemployed or underemployed, undereducated, and often earning their money on the streets, they bore the scars of drug or alcohol abuse, troubled family lives, and arrest records. Among those of African American and Hispanic descent, many felt a deep-rooted distrust of the mainstream economy. The Parents Fair Share Program offered these men the chance not only to learn the social skills needed for stable employment but to participate in discussions about personal difficulties, racism, and problems in their relationships with their children and families.

Fathers' Fair Share details the program's mix of employment training services, peer support groups, and formal mediation of disputes between custodial and noncustodial parents. Equally important, the authors explore the effect of the participating fathers' expectations and doubts about the program, which were colored by their often negative views about the child support and family law system. The voices heard in Fathers' Fair Share provides a rare look into the lives of low-income fathers and how they think about their struggles and prospects, their experiences in the workplace, and their responsibilities toward their families. Parents Fair Share demonstrated that, in spite of their limited resources, these men are more likely to make stronger efforts to improve support payments and to become greater participants in their children's lives if they encounter a less adversarial and arbitrary enforcement system.

Fathers' Fair Share offers a valuable resource to the design of social welfare programs seeking to reach out to this little-understood population, and addresses issues of tremendous importance for those concerned about welfare reform, child support enforcement, family law, and employment policy.

EARL S. JOHNSON is research associate at the Manpower Demonstration Research Corporation, New York and San Francisco.

ANN LEVINE is a freelance writer and editor.

FRED C. DOOLITTLE is vice president and associate director of research at the Manpower Demonstration Research Corporation, New York and San Francisco.

Justice and Reform is the first study of the origins, philosophy, creation, management, and impact of the Office of Economic Opportunity Legal Services Program. As such, it clearly and concisely describes the Program’s role both as an instrument of equal justice and as a strategy for overcoming poverty. Timely, important, and unique, it tells the story behind the OEO Legal Services Program—an endeavor that has been called both the most successful element of the war on poverty and the most stimulating development to occur in the American legal profession during the Twentieth Century.

The early chapters in the book reveal the nature and motivations of the two groups which joined to create the Program: the conservative, American Bar Association sponsored 89-year-old legal aid movement and the Ford Foundation-financed neighborhood lawyer experiments that started in 1962 under the direction of young activist lawyers. Why they merged and how they merged forms the background for a description of how the partners persuaded the OEO bureaucracy to start a legal services program and convinced over 200 communities (including most large cities) to set up a federally funded legal assistance agency.

Legal Services Program established policy, how it settled upon “law reform” as the priority function of the Program, how it preserved the integrity of its policies within OEO, and how it caused its grantees to engage in law reform. Chapter 8 evaluates, for the first time, the economic, political, and social impact of the Program as of 1972. The final chapter speculates on the future of government-subsidized legal assistance in the United States from the perspective of the OEO program’s twin goals of equal justice and social reform.

EARL JOHNSON, JR. is professor of law at the University of Southern California Law Center and senior research associate at the Social Science Institute, University of Southern California.

Awarded Best Book in Urban Affairs Published in 1997 / 1998 by the Urban Affairs Association.

One of Choice magazine's Outstanding Academic Books of 1997

"[An] alarming report, a rigorous study packed with charts, tables, 1990 census data and [Jargowsky's] own extensive field work.... His careful analysis of enterprise zones, job-creation strategies, local economic development schemes and housing and tax policies rounds out an essential handbook for policy makers, a major contribution to public debate over ways to reverse indigence." —Publishers Weekly

"A data-rich description and a conceptually innovative explanation of the spread of neighborhood poverty in the United States between 1970 and 1990. Urban scholars and policymakers alike should find Jargowsky's compelling arguments thought-provoking."—Library Journal

"A powerful book that allows us to really understand how ghettos have been changing over time and the forces behind these changes. It should be required reading of anyone who cares about urban poverty." —David Ellwood, Malcolm Wiener Professor of Public Policy, John F. Kennedy School of Government, Harvard University

Poverty and Place documents the geographic spread of the nation's ghettos and shows how economic shifts have had a particularly devastating impact on certain regions, particularly in the rust-belt states of the Midwest. Author Paul Jargowsky's thoughtful analysis of the causes of ghetto formation clarifies the importance of widespread urban trends, particularly those changes in the labor and housing markets that have fostered income inequality and segregated the rich from the poor. Jargowsky also examines the sources of employment that do exist for ghetto dwellers, and describes how education and family structure further limit their prospects. Poverty and Place shows how the spread of high poverty neighborhoods has particularly trapped members of poor minorities, who account for nearly four out of five ghetto residents. Poverty and Place sets forth the facts necessary to inform the public understanding of the growth of concentrated poverty, and confronts essential questions about how the spiral of urban decay in our nation's cities can be reversed.

PAUL A. JARGOWSKY is associate professor of political economy in the School of Social Sciences at the University of Texas, Dallas.

A very important contribution to the field of labor economics, and in particular to the understanding of the labor market forworkers with relatively low skill levels. I think we have the sense that the market looks bad, but haven't been clear on how bad it is, or how it got that way. What Employers Want provides some of the answers and identifies the important questions. It is essential reading. —Jeffrey S. Zax, University of Colorado at Boulder

The substantial deterioration in employment and earnings among the nation's less-educated workers, especially minorities and younger males in the nation's big cities, has been tentatively ascribed to a variety of causes: an increase in required job skills, the movement of companies from the cities to the suburbs, and a rising unwillingness to hire minority job seekers. What Employers Want is the first book to replace conjecture about today's job market with first-hand information gleaned from employers about who gets hired. Drawn from asurvey of over 3,000 employers in four major metropolitan areas—Los Angeles, Boston, Atlanta, and Detroit—this volume provides a wealth of data on what jobs are available to the less-educated, in what industries, what skills they require, where they are located, what they pay, and how they are filled.

The evidence points to a dramatic surge in suburban, white-collar jobs. The manufacturing industry—once a steady employer of blue-collar workers—has been eclipsed by the expanding retail trade and service industries, where the vast majority of jobs are in clerical, managerial, or sales positions. Since manufacturing establishments have been the most likely employers to move from the central cities to the suburbs, the shortage of jobs for low-skill urban workers is particularly acute. In the central cities, the problem is compounded and available jobs remain vacant because employers increasingly require greater cognitive and social skills as well as specific job-related experience. Holzer reveals the extent to which minorities are routinely excluded by employer recruitment and screening practices that rely heavily on testing, informal referrals, and stable work histories. The inaccessible location and discriminatory hiring patterns of suburban employers further limit the hiring of black males in particular, while earnings, especially for minority females, remain low.

Proponents of welfare reform often assume that stricter work requirements and shorter eligibility periods will effectively channel welfare recipients toward steady employment and off federal subsidies. What Employers Want directly challenges this premise and demonstrates that only concerted efforts to close the gap between urban employers and inner city residents can produce healthy levels of employment in the nation's cities. Professor Holzer outlines the measures that will benecessary—targeted education and training programs, improved transportation and job placement, heightened enforcement of antidiscrimination laws, and aggressive job creation strategies. Repairing urban labor markets will not be easy. This book shows why.

HARRY J. HOLZER is currently Chief Economist at the U.S. Department of Labor and professor of economics at Michigan State University.

A Volume in the Multi-City Study of Urban Inequality