This article aims to explore the story of the front-line implementation of US welfare reform through analyzing the experiences of front-line workers with a grounded theory approach. There were deep concerns about the working poor and unelaborated programs for economic independence, which were attributable to the legislation’s thrust to work-first and a skill mismatch, without taking the quality of jobs into account. Welfare roll reduction resulted in taking a generous approach to welfare clients on the front lines. Although discretion resulted in the operation of more local initiatives on the front lines, it was not a substantial response to the demands of the real lives of clients. This article argues that the quality and sustainability of work is critical, prior to an emphasis on work-first. Front-line implementation must shift to increasing employers’ willingness to create incentives for skill-building and to giving clients some motivation to work.

Points for practitioners

A gap between policymaking and nonlinear policy implementation on the front lines is inevitable as local demands vary. Particularly, perspectives of front-line implementers are useful in reflecting various local demands and adjusting the different interests of clients in the process of refining welfare reform in lieu of federal policymakers. Although the discretion of front-line implementers is critical, less attention has been paid to how they put welfare reform into practice and what they learned. Qualitative exploration of such issues thus provides field-based evidence to improve its implementation to help the clients, which has rarely been examined in the literature.