Gauging the Gap: Inequality of Time Use When Seeking Government Services

Andrea Briceno-Mosquera

Virginia Polytechnic Institute and State University

https://orcid.org/0000-0002-4155-1525

Sharon Mastracci

Center for Public Administration and Policy (CPAP) at Virginia Tech

https://orcid.org/0000-0003-1506-7585

DOI: https://doi.org/10.24926/jsepa.v3i2.6273

Keywords: Racialized burdens, administrative burdens, American Time Use Survey (ATUS), government services, waiting time


Abstract

Seeking government services and interacting with the administrative state require time and waiting. However, the use of time while interacting with the administrative state is unevenly distributed across racialized groups. Using data from the American Time Use Survey (ATUS) 2003–2022, we examine inequities when seeking and waiting for government services. Blacks wait 1.7 times longer, and Hispanics wait 1.6 times longer than Whites when seeking government services. Individuals without a partner, with more household children, and the unemployed also devote more time waiting for government services. This article contributes to the scholarship on administrative burdens by arguing that uneven wait time distribution may result from racialized administrative procedures. Those who spend more time seeking government services and waiting experience higher opportunity costs that interfere with their lives, reproducing and normalizing injustices. Uneven wait times may also engender animosity toward the administrative state among already marginalized individuals.


Author Biographies

Andrea Briceno-Mosquera, Virginia Polytechnic Institute and State University

Andrea Briceno Mosquera (she/her) (bandream@vt.edu) is a research scientist at the Virginia Tech Institute for Policy and Governance (IPG). Her research explores administrative burdens, the interaction between citizens/individuals and the administrative state, and the intersections of immigration, higher education, and labor market policies. She was a 2019–2020 fellow with the Association for Public Policy Analysis and Management.

Sharon Mastracci , Center for Public Administration and Policy (CPAP) at Virginia Tech

Sharon Mastracci (she/her) (smastracci@vt.edu) is a professor with the Center for Public Administration and Policy (CPAP) at Virginia Tech. She studies gender, emotional labor, and stigmatized work in public service. She was a 2014–2015 Fulbright Scholar in the United Kingdom and is a Fellow of the National Academy of Public Administration (NAPA).


References

Aberbach, Joel, and Tom Christensen. 2005. “Citizens and Consumers: An NPM Dilemma.” Public Management Review 7 (2): 225–246. https://doi.org/10.1080/14719030500091319

Abramovitz, Mimi. 2017. Regulating the Lives of Women: Social Welfare Policy from Colonial Times to the Present. Routledge.

Andaya, Elise. 2019. “Race-ing Time: Clinical Temporalities and Inequality in Public Prenatal Care.” Medical Anthropology 38 (8): 651–663. https://doi.org/10.1080/01459740.2019.1590826

Arnold, R. Douglas. 1990. The Logic of Congressional Action. Yale University Press.

Auyero, Javier. 2012. Patients of the State: The Politics of Waiting in Argentina. Duke University Press.

Avery, James M., and Mark Peffley. 2003. “Race Matters: The Impact of News Coverage of Welfare Reform on Public Opinion.” In Race and the Politics of Welfare Reform, edited by Sanford F. Schram, Joe Brian Soss, and Richard Carl Fording, 131–150. University of Michigan Press.

Baekgaard, Martin, Donald P. Moynihan, and Mette Kjargaard Thomsen. 2021. “Why Do Policymakers Support Administrative Burdens? The Roles of Deservingness, Political Ideology, and Personal Experience.” Journal of Public Administration Research and Theory 31 (1): 184–200. https://doi.org/10.1093/jopart/muaa033

Bailey, Catherine. 2019. “Waiting in Organisations.” Time & Society 28 (2): 587–612. https://doi.org/10.1177/0961463X18794587

Barnes, Carolyn Y. 2021. “It Takes a While to Get Used to: The Costs of Redeeming Public Benefits.” Journal of Public Administration Research and Theory 31 (2): 295–310. https://doi.org/10.1093/jopart/muaa042

Barnes, Carolyn Y., and Julia R. Henly. 2018. “‘They Are Underpaid and Understaffed’: How Clients Interpret Encounters with Street-Level Bureaucrats.” Journal of Public Administration Research and Theory 28 (2): 165–181. https://doi.org/10.1093/jopart/muy008

Batley, Richard. 2004. “The Politics of Service Delivery Reform.” Development and Change 35 (1): 31–56. https://doi.org/10.1111/j.1467-7660.2004.00341

Becker, Gary S. 1965. “A Theory of the Allocation of Time.” The Economic Journal 75: 493–517. https://doi.org/10.2307/2228949.

Bearfield, Domonic, Nicole Humphrey, Shannon Portillo, and Norma Riccucci. 2023. “Dismantling Institutional and Structural Racism: Implementation Strategies Across the United States.” Journal of Social Equity and Public Administration 1(1): 75–92. https://doi.org/10.24926/jsepa.v1i1.4837

Bell, Elizabeth, Ani Ter‐Mkrtchyan, Wesley Wehde, and Kylie Smith. 2021. “Just or Unjust? How Ideological Beliefs Shape Street‐Level Bureaucrats’ Perceptions of Administrative Burden.” Public Administration Review 81 (4): 610–624. https://doi.org/10.1111/puar.13311

Benton, Mark, and Michelangelo Landgrave. 2024. “How Can the Police Avoid Earning Our Distrust? Exploring the Associations of Police Distrust Among African Americans.” Journal of Social Equity and Public Administration 2 (1): 71–90. https://doi.org/10.24926/jsepa.v2i1.4987

Bier, David. 2019 (June 18). “Immigration Wait Times from Quotas Have Doubled: Green Card Backlogs Are Long, Growing, and Inequitable.” Cato Institute Policy Analysis, number 873. https://www.cato.org/sites/cato.org/files/pubs/pdf/pa-873-updated.pdf

Boltvinik, Julio. 2023. “Measuring Poverty.” In From Poverty to Well-Being and Human Flourishing, Vol. I, edited by Julio Boltvinik, 95–96. Policy Press.

Bourdieu, Pierre. 1989. “Social Space and Symbolic Power.” Sociological Theory 7 (1): 14–25. https://doi.org/10.2307/202060

Brewer, Gene A., and Richard M. Walker. 2010. “The Impact of Red Tape on Governmental Performance: An Empirical Analysis.” Journal of Public Administration Research and Theory 20 (1): 233–257. https://doi.org/10.1093/jopart/mun040

Briceno Mosquera, Andrea. 2023. “‛They Asked for More, More, and More Paperwork’: Administrative Burdens When Undocumented Youth Claim In-State Resident Tuition Policy Benefits.” Educational Evaluation and Policy Analysis 46 (4): 623–645. https://doi.org/10.3102/01623737231182672

Brinkerhoff, Derick W., and Jennifer M. Brinkerhoff. 2011. “Public–Private Partnerships: Perspectives on Purposes, Publicness, and Good Governance.” Public Administration and Development 31 (1): 2–14. https://doi.org/10.1002/pad.584

Bryson, John M., Barbara C. Crosby, and Laura Bloomberg. 2014. “Public Value Governance: Moving Beyond Traditional Public Administration and the New Public Management.” Public Administration Review 74 (4): 445–456. https://doi.org/10.1111/puar.12238

Bucholtz, Mary. 2009. “From Stance to Style: Gender, Interaction, and Indexicality in Mexican Immigrant Youth Slang.” escholarship.org. Material downloaded on March 18, 2024.

Cameron, Stephen V., and James J. Heckman. 2001. “The Dynamics of Educational Attainment for Black, Hispanic, and White Males.” Journal of Political Economy 109 (3): 455–499. https://doi.org/10.1086/321014

Cammett, Ann. 2016. “Welfare Queens Redux: Criminalizing Black Mothers in the Age of Neoliberalism.” Southern California Interdisciplinary Law Journal 25: 363–394.

Campbell, Andrea Louise. 2012. “Policy Makes Mass Politics.” Annual Review of Political Science 15 (1): 333–351. Annualreviews.org . https://doi.org/10.1146/annurev-polisci-012610-135202

Carswell, Grace, Thomas Chambers, and Geert De Neve. 2019. “Waiting for the State: Gender, Citizenship, and Everyday Encounters with Bureaucracy in India.” Environment and Planning C: Politics and Space 37 (4): 597–616. https://doi.org/10.1177/0263774X18802930

Carr, Deborah, Yoko Ibuka, and Louise B. Russell. 2010. “How Much Time Do Americans Spend Seeking Health Care? Racial and Ethnic Differences in Patient Experiences.” In The Impact of Demographics on Health and Health Care: Race, Ethnicity, and Other Social Factors, edited by Jennie Jacobs Kronenfeld, 71–98. Emerald Publishing Group.

Cohen, Elizabeth F. 2018. The Political Value of Time: Citizenship, Duration, and Democratic Justice. Cambridge University Press.

Christensen, Julian, Lene Aaroe, Martin Baekgaard, Pamela Herd, and Donald P. Moynihan. 2020. “Human Capital and Administrative Burden: The Role of Cognitive Resources in Citizen-State Interactions.” Public Administration Review 80 (1): 127–136. https://doi.org/10.1111/puar.13134

Chudnovsky, Mariana, and Rik Peeters. 2021. “The Unequal Distribution of Administrative Burden: A Framework and an Illustrative Case Study for Understanding Variation in People’s Experience of Burdens.” Social Policy & Administration 55(4): 527-542. https://doi.org/10.1111/spol.12639

Edwards, Frank, Kelley Fong, Victoria Copeland, Mical Raz, and Alan Dettlaff. 2023. “Administrative Burdens in Child Welfare Systems.” RSF: The Russell Sage Foundation Journal of the Social Sciences 9 (5): 214–231. https://doi.org/10.7758/RSF.2023.9.5.09

Engstrom, David, and Jong Won Min. 2004. “Perspectives of Bilingual Social Workers: ‘You Just Have to Do a Lot More for Them.’” Journal of Ethnic & Cultural Diversity in Social Work 13 (1): 59–82. https://doi.org/10.1300/J051v13n01_04

Evans, Gary W., Stephen J. Lepore, and Karen Mata Allen. 2000. “Cross-Cultural Differences in Tolerance for Crowding: Fact or Fiction?” Journal of Personality and Social Psychology 79 (2): 204–210. https://doi.org/10.1037/0022-3514.79.2.204

Foster, Rebecca. 2019. “Doing the Wait’: An Exploration into the Waiting Experiences of Prisoners’ Families.” Time & Society 28 (2): 459–477. https://doi.org/10.1177/0961463X16633235

Fountain, Jane E. 2001. “Paradoxes of Public Sector Customer Service.” Governance 14 (1): 55–73. https://doi.org/10.1111/0952-1895.00151

Friedman, Milton. 2018. Theory of the Consumption Function. Princeton University Press.

Gilens, Martin. 2009. Why Americans Hate Welfare. University of Chicago Press.

Goodman, Julia M., Dawn M. Richardson, and William H. Dow. 2022. “Racial and Ethnic Inequities in Paid Family and Medical Leave: United States, 2011 and 2017–2018.” American Journal of Public Health 112 (7): 1050–1058. https://doi.org/10.2105/AJPH.2022.306825

Gonzalez, Marcela F. 2022. “Precarity for the Global Talent: The Impact of Visa Policies on High-Skilled Immigrants’ Work in the United States.” International Migration 60 (2): 193–207. https://doi.org/10.1111/imig.12870

Gradin, Carlos. 2012. “Poverty Among Minorities in the United States: Explaining the Racial Poverty Gap for Blacks and Latinos.” Applied Economics 44 (2): 3793–3804. https://doi.org/10.1080/00036846.2011.581219

Halili, Ruzhdi. 2020. “Administrative Burdens from the Service Users’ Perspective.” Journal of Comparative Politics 13 (2): 65–85.

Hasenfeld, Yeheskel. 1972. “People Processing Organizations: An Exchange Approach.” American Sociological Review 37 (2): 256–263. https://doi.org/10.2307/2093466

Hasenfeld, Yeheskel, Jane A. Rafferty, and Mayer N. Zald. 1987. “The Welfare State, Citizenship, and Bureaucratic Encounters.” Annual Review of Sociology 13: 387–415. https://doi.org/10.1146/annurev.so.13.080187.002131

Heinrich, Carolyn J. 2016. “The Bite of Administrative Burden: A Theoretical and Empirical Investigation.” Journal of Public Administration Research and Theory 26 (3): 403–420. https://doi.org/10.1093/jopart/muv034

Herd, Pamela, and Donald P. Moynihan. 2019. Administrative Burden: Policymaking by Other Means. Russell Sage Foundation.

Hero, Rodney E., and Robert R. Preuhs. 2007. “Immigration and the Evolving American Welfare State: Examining Policies in the US States.” American Journal of Political Science 51 (3): 498–517. https://doi.org/10.1111/j.1540-5907.2007.00264.x

Holler, Roni, and Noam Tarshish. 2024. “Administrative Burden in Citizen-State Encounters: The Role of Waiting, Communication Breakdowns and Administrative Errors.” Social Policy and Society 23 (3): 593–610. https://doi.org/10.1017/S1474746422000355

Holt, Stephen B., and Katie Vinopal. 2023. “Examining Inequality in the Time Cost of Waiting.” Nature Human Behaviour 7 (4): 545–555. https://doi.org/10.1038/s41562-023-01524-w

Humphrey, Nicole M. 2023. “Racialized Organizations in the Public Sector: Exploring Race and White Normativity.” Public Integrity 25 (3): 316–325. https://doi.org/10.1080/10999922.2022.2076491

Kear, Mark. 2013. “Governing Homo Subprimicus: Beyond Financial Citizenship, Exclusion, and Rights.” Antipode 45 (4): 926–946. https://doi.org/10.1111j.1467-8330.2012.01045.x

Kennedy, Elizabeth J. 2015. “Wage Theft as Public Larceny.” Brooklyn Law Review 81 (2): 1–46. https://brooklynworks.brooklaw.edu/blr/vol81/iss2/2/

Krantz-Kent, Rachel. 2009. “Measuring Time Spent in Unpaid Household Work: Results from the American Time Use Survey.” Monthly Labor Review 132 (46): 1–14.

Lipsky, Michael. 1980. Street-Level Bureaucracy: Dilemmas of the Individual in Public Services. Russell Sage Foundation.

Logue, Larry M., and Peter Blanck. 2010. Race, Ethnicity, and Disability: Veterans and Benefits in Post-Civil War America. Cambridge University Press.

Lu, Frederick Q., Amresh D. Hanchate, and Michael K. Paasche-Orlow. 2021. “Racial/Ethnic Disparities in Emergency Department Wait Times in the United States, 2013–2017.” American Journal of Emergency Medicine 47: 138–144. https://doi.org/10.1016/j. ajem.2021.03.051

Martin, Lucie. 2024. “The Intra-Household Distribution of Administrative Burdens.” Economic and Social Review 55 (3): 387–456.

Masood, Ayesha, and Muhammad Azfar Nisar. 2021. “Administrative Capital and Citizens’ Responses to Administrative Burden.” Journal of Public Administration Research and Theory 31 (1): 56–72. https://doi.org/10.1093/jopart/muaa031

Mastracci, Sharon H. 2022. “Dirty Work and Emotional Labor in Public Service: Why Government Employers Should Adopt an Ethic of Care.” Review of Public Personnel Administration 42 (3): 537–552. https://doi.org/10.1177/0734371X21997548

Mastracci, Sharon H. 2013. “Time Use on Caregiving Activities: Comparing Federal Government and Private Sector Workers.” Review of Public Personnel Administration 33 (1): 3–27. https://doi.org/10.1177/0734371X1243698

Maynard-Moody, Steven, and Michael Musheno. 2000. “State Agent or Citizen Agent: Two Narratives of Discretion.” Journal of Public Administration Research and Theory 10 (2): 329–358. https://doi.org/10.1093/oxfordjournals.jpart.a024272

Meier, Kenneth J., Joseph Stewart, and Robert E. England. 1989. Race, Class, and Education: The Politics of Second-Generation Discrimination. University of Wisconsin Press.

Meyers, Marcia K., and Vibeke Lehmann Nielsen. 2012. “Street-Level Bureaucrats and the Implementation of Public Policy.” In The SAGE Handbook of Public Administration, edited by B. Guy Peters and Ion Pierre, 153–164. Sage.

Mikkelsen, Kim Sass, Jonas Krogh Madsen, and Martin Baekgaard. 2024. “Is Stress Among Street‐Level Bureaucrats Associated with Experiences of Administrative Burden Among Clients? A Multilevel Study of the Danish Unemployment Sector.” Public Administration Review 84 (2): 248–260. https://doi.org/10.1111/puar.13673

Moynihan, Donald P., and Joe Soss. 2014. “Policy Feedback and the Politics of Administration.” Public Administration Review 74(3): 320-332. https://doi.org/10.1111/puar.12200

Moynihan, Donald, Pamela Herd, and Hope Harvey. 2015. “Administrative Burden: Learning, Psychological, and Compliance Costs in Citizen-State Interactions.” Journal of Public Administration Research and Theory 25 (1): 43–69. https://doi.org/10.1093/jopart/muu009

Moynihan, Donald, Julie Gerzina, and Pamela Herd. 2022. “Kafka’s Bureaucracy: Immigration Administrative Burdens in the Trump Era.” Perspectives on Public Management and Governance 5 (1): 22–35. https://doi.org/10.1093/ppmgov/gvac007

Nadasen, Premilla. 2007. “From Widow to ‘Welfare Queen’: Welfare and the Politics of Race.” Black Women, Gender & Families 1 (2): 52–77. www.jstor.org/stable/10.5406/blacwomegendfami.1.2.0052

Nathenson, Robert A., Brendan Saloner, Michael R. Richards, and Karin V. Rhodes. 2016. “Spanish‐Speaking Immigrants’ Access to Safety Net Providers and Translation Services Across Traditional and Emerging US Destinations.” Milbank Quarterly 94 (4): 768–799. https://doi.org/10.1111/1468-0009.12231

Oberfield, Zachary W., and Matthew B. Incantalupo. 2021. “Racial Discrimination and Street‐Level Managers: Performance, Publicness, and Group Bias.” Public Administration Review 81 (6): 1055–1070. https://doi.org/10.1111/puar.13376

Obinna, Denise N. 2020. “Wait-Times, Visa Queues, and Uncertainty: The Barriers to American Legal Migration.” Migration and Development 9 (3): 390–410. https://doi.org/10.1080/21632324.2020.1797456

Ohlson, Madeline. 2020. “Effects of Socioeconomic Status and Race on Access to Healthcare in the United States.” Perspectives 12 (2) 1-13. https://scholars.unh.edu/perspectives/vol12/iss1/2

Ortiz, Stephen R. 2009. Beyond the Bonus March and GI Bill: How Veteran Politics Shaped the New Deal Era. New York University Press.

Pettigrew, Stephen. 2017. “The Racial Gap in Wait Times: Why Minority Precincts Are Underserved by Local Election Officials.” Political Science Quarterly 132 (3): 527–547. https://doi.org/10.1002/polq.12657

Portillo, Shannon, Nicole Humphrey, and Domonic A. Bearfield. 2022. “Representative Bureaucracy Theory and the Implicit Embrace of Whiteness and Masculinity.” Public Administration Review 82 (3): 594–597. https://doi.org/10.1111/puar.13477

Powell, Catherine, and Camille Gear Rich. 2020. “The ‘Welfare Queen’ Goes to the Polls: Race-Based Fractures in Gender Politics and Opportunities for Intersectional Coalitions.” Georgetown Law Journal 108(SE): 105–165. https://ir.lawnet.fordham.edu/faculty_scholarship/1194

Pratt, Eleanor, and Heather Hahn. 2021. “Most Adults Who Feel Treated or Judged Unfairly When Applying for Public Benefits Report Adverse Consequences.” Urban Institute. https://www.urban.org/research/publication/most-adults-who-feel-treated-or-judged-unfairly-when-applying-public-benefits-report-adverseconsequences

Ray, Victor. 2019. “A Theory of Racialized Organizations.” American Sociological Review 84 (1): 26–53. https://doi.org/10.1177/000312241882233

Ray, Victor, Pamela Herd, and Donald Moynihan. 2023. “Racialized Burdens: Applying Racialized Organization Theory to the Administrative State.” Journal of Public Administration Research and Theory 33 (1): 139–152. https://doi.org/10.1093/jopart/muac001

Rodriguez, Michael A., S. Szkupinski Quiroga, and H. M. Bauer. 1996. “Breaking the Silence.” Archives of Family Medicine 5: 153–158.

Rothstein, Richard. 2017. The Color of Law: A Forgotten History of How Our Government Segregated America. Liveright Publishing.

Schram, Sanford F. 2005. Putting a Black Face on Welfare: The Good and the Bad. State University of New York Press.

Schram, Sanford F., Joe Soss, Richard C. Fording, and Linda Houser. 2009. “Deciding to Discipline: Race, Choice, and Punishment at the Frontlines of Welfare Reform.” American Sociological Review 74 (3): 398–422. SSRN.org.

Schweitzer, Justin. 2022. “How to Address the Administrative Burdens of Accessing the Safety Net.” Accessed at https://www.americanprogress.org/article/how-toaddress-the-administrative-burdens-of-accessing-thesafety-net/

Seefeldt, Kristin S. 2017. “Waiting It Out: Time, Action, and the Process of Securing Benefits.” Qualitative Social Work 16 (3): 300–316. https://doi.org/10.1177/1473325015606188

Sen, Amartya. 1981. “Issues in the Measurement of Poverty.” In Measurement in Public Choice, edited by Steinar Strom, 144–166. Palgrave Macmillan.

Skocpol, Theda. 1992. Protecting Soldiers and Mothers: The Political Origins of Social Policy in the United States. Belknap Press.

Soss, Joe, Richard C. Fording, and Sanford F. Schram. 2008. “The Color of Devolution: Race, Federalism, and the Politics of Social Control.” American Journal of Political Science 52 (3): 536–553. https://doi.org/10.1111/j.1540-5907.2008.00328.x

Sturman, Michael C. 1999. “Multiple Approaches to Analyzing Count Data in Studies of Individual Differences: The Propensity for Type I Errors.” Educational and Psychological Measurement 59 (3): 414–430. https://doi.org/10.1177/00131649921969956

Sturman, Michael C., A.J. Sturman, and Caleb J. Sturman. 2022. “Uncontrolled Control Variables: The Extent That a Researcher’s Degrees of Freedom with Control Variables Increases Various Types of Statistical Errors.” Journal of Applied Psychology 107 (1): 9–22.

Tummers, Lars L.G., Victor Bekkers, Evelien Vink, and Michael Musheno. 2015. “Coping During Public Service Delivery: A Conceptualization and Systematic Review of the Literature.” Journal of Public Administration Research and Theory 25 (4): 1099–1126. https://doi.org/10.1093/jopart/muu056

Tyler, Tom R. 2010. “Legitimacy in Corrections: Policy Implications.” Criminology & Public Policy 9 (1): 127–134. https://doi.org/10.1111/j.1745-9133.2010.00615.x

Van Thiel, Sandra, and Frans L. Leeuw. 2002. “The Performance Paradox in the Public Sector.” Public Performance & Management Review 25 (3): 267–281. https://doi.org/10.1080/15309576.2002.11643661

Venkatesh, Viswanath, James Y. L. Thong, Frank K. Y. Chan, and Paul J. H. Hu. 2016. “Managing Citizens’ Uncertainty in E-Government Services: The Mediating and Moderating Roles of Transparency and Trust.” Information Systems Research 27 (1): 87–111. https://doi.org/10.1287/isre.2015.0612

Wichowsky, Amber, and Donald P. Moynihan. 2008. “Measuring How Administration Shapes Citizenship: A Policy Feedback Perspective on Performance Management.” Public Administration Review 68 (5): 908–920. https://doi.org/10.1111/j.1540-6210.2008.00931.x

Wight, Vanessa R., Suzanne M. Bianchi, and Bijou R. Hunt. 2013. “Explaining Racial/Ethnic Variation in Partnered Women’s and Men’s Housework: Does One Size Fit All?” Journal of Family Issues 34 (3): 394-427. https://doi.org/10.1177/0192513X12437705

Wisniewski, Mik. 1996. “Measuring Service Quality in the Public Sector: The Potential for SERVQUAL.” Total Quality Management 7 (4): 357–366. https://doi.org/10.1080/09544129650034710

Wolf Jr, Charles. 1993. Markets or Governments: Choosing Between Imperfect Alternatives. MIT Press.

Zeithaml, Valarie A., Ananthanarayanan Parasuraman, and Leonard L. Berry. 1990. Delivering Quality Service: Balancing Customer Perceptions and Expectations. Free Press.