Monroe County Legislator Rachel Barnhart today raised serious concerns about how the County developed and is allocating $25 million in state anti-poverty funds—after obtaining the County’s full proposal through a public records request to New York State.
Here are the documents:
- Budget Narrative Written
- Budget Narrative Speadsheet
- Budget Spreadsheet
- Cash Incentive Matrix
- Approval Letter
The County has not released the plan publicly. City Council members and County Legislators were not consulted, and when Barnhart asked the Bello administration to share the proposal, she was refused. She ultimately obtained the documents directly from the state. Legislators were only briefed—behind closed doors—yesterday, after it was too late to make changes.
The plan’s largest and most controversial component is a $16.8 million behavioral management program based on a model created by Boston-based nonprofit Empath. The ‘Upward Mobility” program ties small cash incentives to intensive coaching and rigid, predefined milestones like obtaining a GED or working more hours.
Barnhart blasted the program as “junk science,” rooted in controversial theories about how to address poverty-related stress.
“Empath developed a behavioral modification plan based on ‘brain science’—the idea that poverty impairs decision-making. But while research shows poverty can affect cognitive function, scientists caution against using neuroscience to justify policy interventions,” Barnhart said. “Empath ignored those warnings. They built a program that tries to manage poor people’s behavior instead of fighting poverty itself.”
Only one randomized controlled trial (RCT) has ever tested the model—right here in Rochester. The study found modest and statistically insignificant results, limited to employment gains. There was no meaningful impact on other key life outcomes, such as housing stability or family well-being.
“This program doesn’t have a strong evidence base,” Barnhart said. “Yet Monroe County is pouring $16.8 million into it, with a whopping $6.5 million going to salaries. There are serious ethical issues about forcing families who are experiencing crushing poverty to jump through hoops to get help.”
In contrast, Barnhart praised the County’s guaranteed income and rental assistance programs as important steps forward. The guaranteed income initiative will provide $1,000 per month to 200 expecting or new mothers, while the rental subsidy program will help 100 families pay no more than 30% of their income in rent.
“These two programs reflect what research and experience tell us: families know what they need. If we trust them and provide resources directly, they will stabilize, meet their goals, and thrive,” Barnhart said.
Barnhart called for greater transparency, oversight, and community input moving forward.
“Anti-poverty dollars should respect families’ dignity and focus on removing systemic barriers—not micromanaging people’s lives,” she said.