Office of Child Support Enforcement • www.acf.hhs.gov/css May 2020

Millennials in the Child Support Program

By Elaine Sorensen 

This brief examines various characteristics of 

millennial custodial and noncustodial parents 

in the child support program. It shows that 

millennials are the largest generation of 

custodial parents in the program, but that 

Generation X noncustodial parents owe 

most of the child support debt. It also shows 

that about two-thirds of millennial custodial 

parents are living in or near poverty, which is 

not significantly different than Generation X 

custodial parents when they were the same 

age. Millennial noncustodial fathers, on the 

other hand, are less likely to be working and 

more likely to be living in or near poverty than 

Generation X noncustodial fathers when they 

were the same age.

Through a deeper 

understanding of the 

trends in child support 

program data and other 

data that affects the 

program, the Story 

Behind the Numbers

series aims to inform 

policy and practice and 

strengthen program 

outcomes.

story behind

the numbers
1.4

29.1 Custodial Parents

(10.6 million)

Noncustodial Parents

(10.4 million)

0 2 4 6 8 10 12

Millions

Boomers 

and Older 

(>= 55 years old)

Generation X 

(39-54)

Millennials 

(23-38)

Gen Z 

and Younger

(<= 22)

1.21 4.60 4.49 0.14

1.24 4.31 4.89 0.18

12% 44% 43% 2%

12% 41% 46% 2%

Office of Child Support Enforcement • www.acf.hhs.gov/css 1

Millennials in the Child Support Program

Each new generation in the United States shifts cultural and societal norms. The millennials, the 

most recent generation to reach adulthood, are no different. They are leading the way in adopting 

the latest technologies that are transforming our lives, but they are also delaying marriage, having 

fewer children, spending longer periods living with their parents, and accumulating large amounts 

of debt.1

 The Great Recession contributed to some of these trends, but most have lasted beyond 

that time. 

Now that the millennials (those born between 1981 and 1996) are on the cusp of surpassing Baby 

Boomers as the nation’s largest adult generation, it is time to examine their impact on the child 

support program. To address this issue, this brief uses several data sources, including data from 

the national child support program’s Federal Case Registry and Debtor File, and survey data from 

the U.S. Census Bureau and the National Center for Health Statistics.

Millennials are the largest generation of custodial parents in the 

child support program

There were 10.6 million custodial parents in the child support program’s Federal Case Registry 

in December 2019 (Figure 1). Approximately 46% of them, or 4.89 million, were millennials, 

which represented the largest generation among custodial parents.2 Generation X was the next 

largest generation of custodial parents with 4.31 million, representing 41% of custodial parents. 

In contrast, there were only 1.24 million custodial parents who were Baby Boomers or in older 

generations, representing an estimated 12% of custodial parents and less than 200,000 who were 

Generation Z and in younger generations, representing 2% of custodial parents. 

Figure 1. Number and Percent of Custodial and Noncustodial Parents 

in the Child Support Program by Generation

Source: OCSE’s Federal Case Registry, December 2019

Note: Each generation has its age range in 2019 in parentheses. Column percentages may not sum to 100% due to 

rounding. 
Debtors

Amount of Certified

Arrears

0% 20% 40% 60% 80% 100%

Boomers 

and Older 

(>= 55 years old)

Generation X 

(39-54)

Millennials 

(23-38)

Gen Z 

and Younger

(<= 22)

22% 56% 22% 0.1%

14% 47% 38% 0.4%

Office of Child Support Enforcement • www.acf.hhs.gov/css 2

Millennials in the Child Support Program

Turning to noncustodial parents, there were nearly 10.4 million noncustodial parents in the Federal 

Case Registry in December 2019. Generation X was the largest generation with 4.6 million, 

representing 44% of noncustodial parents. Another 43% of noncustodial parents, or 4.49 million, 

were millennials.3

 Although millennials have not yet surpassed Generation X among noncustodial 

parents in the child support program, we expect this to change in the next year or two. 

Generation X is the largest generation of debtors in the child 

support program

We also examined noncustodial parents who owed arrears that had been certified by OCSE’s 

Federal Offset program and the amount of certified arrears that they owed by generation. Using 

data from OCSE’s Debtor File, Figure 2 shows that, as of January 2020, Generation X was the 

largest generation of noncustodial parents who owed certified arrears, referred to as debtors, 

representing 47% of all debtors and owing 56% of total certified arrears. Millennials represented 

38% of debtors and owed 22% of total certified arrears. Baby Boomers and older debtors 

represented only 14% of debtors, but they also owed 22% of total certified arrears, the same as 

millennials. The average amount of certified arrears owed by Baby Boomers and older debtors 

was $33,911 compared to $12,526 among millennials.

Figure 2. Percent of Noncustodial Parents Who Owe Certified Arrears (Debtors) and the Amount of 

Certified Arrears Owed by Generation

Source: OCSE’s Debtor File, January 2020

Note: Column percentages may not sum to 100% due to rounding. 
0% 20% 40% 60% 80% 100%

Boomers and Older

Gen X 

Gen X 

Millennials 

Gen Z and Younger

2018 Census Survey

2002 Census Survey

Married Widowed Divorced Separated Never married

5% 7% 89%

16%

0.3%

17% 11% 56%

18%

2%

42% 13% 25%

23%

0.5%

26% 11% 40%

11% 7% 47% 13% 23%

Office of Child Support Enforcement • www.acf.hhs.gov/css 3

Millennials in the Child Support Program

Millennial custodial parents are more likely to be never married 

than Generation X at the same age

Using Census data on custodial parents collected in April 2018, we find that the marital 

status of millennial custodial parents in the child support program is very different than that 

of earlier or later generations. In 2018, 56% of millennials were never married compared to 

25% of Generation X and 89% of Generation Z and younger parents (Figure 3). Similarly, 17% 

of millennial custodial parents were divorced compared to 42% of Generation X and 5% of 

Generation Z and younger parents.

Another way to examine the marital status of custodial parents by generation is to ask the 

question: Is the marital status of millennial custodial parents different than that of Generation X 

custodial parents when they were the same age? We find that the answer is yes – the marital 

status of millennials is significantly different than that of Generation X when they were the same 

age as millennials. As noted above, 56% of millennial custodial parents were never married in 

2018, but far fewer Generation X custodial parents (40%) were never married when they were 

the same age as millennials (in 2002).4

 Also, 17% of millennial custodial parents were divorced 

in 2018, but 26% of Generation X custodial parents were divorced when they were the same 

age as millennials (in 2002).

Figure 3. Marital Status of Custodial Parents in the Child Support Program by Generation

Source: U.S. Census Bureau, 2002 and 2018 Current Population Survey Child Support Supplement

Note: Column percentages may not sum to 100% due to rounding. 
0% 20% 40% 60% 80% 100%

Boomers and Older

Gen X 

Gen X 

Millennials 

Gen Z and Younger

2018 Census Survey

2002 Census Survey

Worked full-time

full-year

Worked part-time

and/or part-year

Did not work

during the year

19% 43% 38%

45% 34% 21%

53% 22% 25%

48% 20% 32%

46% 36% 19%

Office of Child Support Enforcement • www.acf.hhs.gov/css 4

Millennials in the Child Support Program

A third way to examine the marital status composition of custodial parents by generation is to ask: 

How does the marital status of one generation of custodial parents change over time? Figure 3 

shows the marital status of Generation X custodial parents in 2002 when they are between the 

ages of 22 and 37, and then again in 2018 when they are between the ages of 38 and 53. In 2002, 

40% of Generation X custodial parents were never married and 26% were divorced, but in 2018, 

these figures had reversed. In 2018, 25% were never married and 42% were divorced. During 

this period, an increasing number of married families ended in divorce, adding to the number 

of Generation X custodial parents and altering their marital status composition. These findings 

suggest that millennial custodial parents will also experience a decline in the proportion who are 

never married. But because millennial custodial parents started out with a higher percent of never 

marrieds than earlier generations, it is likely that the proportion of never marrieds will remain at 

much higher levels than among earlier generations going forward. 

The work force status of millennial custodial parents is not 

significantly different than that of Generation X at the same age

The Census data on custodial parents collected in April 2018 asked respondents about their 

work experience in the prior year (i.e. 2017). Using these responses, we find that nearly 80% 

of millennial custodial parents in the child support program worked in 2017 (Figure 4). Earlier 

generations were slightly less likely to work in 2017 – 75% of Generation X and 68% of Baby 

Boomers and older custodial parents worked that year. Generation Z custodial parents were the 

least likely generation to work in 2017 at 62%. 

Millennial custodial parents in the child support program were also more likely to work part-time 

or part-year than earlier generations, but less likely to work part-time or part-year than Generation 

Z and younger parents. These differences are due, in large part, to the stage in life that each 

generation of custodial parents is experiencing. Millennials were between the ages of 22 and 37 

in 2017, prime years for having young children in the home. Generation Z and younger custodial 

parents were between the ages of 15 and 21 in 2017, prime years to be in school. 

Figure 4. Workforce Status of Custodial Parents in the Child Support Program by Generation

Source: U.S. Census Bureau, 2002 and 2018 Current Population Survey Child Support Supplement. 

Note: This survey asks respondents about their work experience during the prior year (i.e. 2001 and 2017). Column 

percentages may not sum to 100% due to rounding. 
0% 20% 40% 60% 80% 100%

Boomers and Older

Gen X 

Gen X 

Millennials 

Gen Z and Younger

2018 Census Survey

2002 Census Survey

Ill or disabled Retired Taking Care Other

of family

Going to

school

Couldn’t

find work

19% 23% 39% 20%

2%

17% 64% 12%

47% 5% 39% 5%

3% 1%

2% 3%

3%

4% 2%

68% 18% 6% 6%

23% 59% 12%

Office of Child Support Enforcement • www.acf.hhs.gov/css 5

Millennials in the Child Support Program

Figure 4 also shows that when Generation X custodial parents were the same age as millennial 

custodial parents (in 2001), their work force status was similar to that of millennials when they 

were the same age (in 2017). Specifically, 45% of millennial parents and 46% of Generation X 

parents worked full-time, full-year when they were between the ages of 22 and 37 years old. 

Another 34% and 36% worked part-time or part-year, respectively.

Reasons for not working among millennial custodial parents are 

not significantly different than those among Generation X at the 

same age

Examining the reasons why custodial parents are not working reinforces the importance of 

where generations are within their life cycle. About 64% of millennial custodial parents, who 

were between the ages of 22 and 37, were not working because they were taking care of their 

family, but only 39% of Generation X custodial parents, who were between 38 and 53 years 

old, gave this reason for not working in 2017. In contrast, 17% of millennial custodial parents 

were not working in 2017 because they were ill or disabled, but 47% of Generation X custodial 

parents gave this reason for not working. On the other hand, 12% of millennial custodial parents 

were not working in 2017 because they were going to school, but 39% of Generation Z custodial 

parents gave this reason for not working (they were between the ages of 15 and 21).

When Generation X custodial parents in the child support program were the same age as 

millennials (in 2001), the reasons they gave for not working were similar to those given by 

millennial custodial parents in 2017. Just under 60% of Generation X parents said they did not 

work because they were taking care of their family compared to 64% among millennial parents. 

Another 23% of Generation X parents said they were not working in 2001 because they were ill 

or disabled compared to 17% among millennial parents in 2017. 

Figure 5. Reason Not Working Among Custodial Parents in the Child Support Program 

by Generation

Source: U.S. Census Bureau, 2002 and 2018 Current Population Survey Child Support Supplement. 

Note: This survey asks respondents why they were not working during the prior year (i.e. 2001 and 2017). 

Column percentages may not sum to 100% due to rounding. 
0% 20% 40% 60% 80% 100%

Boomers and Older

Gen X 

Gen X 

Millennials 

Gen Z and Younger

2018 Census Survey

2002 Census Survey

Poor Between 100% and 

200% of poverty 

threshold

Between 200% and 

300% of poverty 

threshold

More than 300% 

of poverty 

threshold

31% 35% 22% 17%

36% 32% 15% 17%

34% 28% 19% 19%

25% 25% 19% 32%

18% 40% 14% 27%

Office of Child Support Enforcement • www.acf.hhs.gov/css 6

Millennials in the Child Support Program

The poverty status of millennial custodial parents is not 

significantly different than that of Generation X at the same age 

Figure 6 shows that 36% of millennial custodial parents in the child support program were poor 

in 2017. Another 32% had family incomes that fell between 100% and 200% of the poverty 

threshold, referred to as living near poverty. Thus, 68% of millennial custodial parents in the 

child support program lived in poverty or near poverty in 2017. Generation X was the only 

generation of custodial parents who had a significantly lower rate of living in poverty or near 

poverty than the millennials in 2017. That year, 50% of Generation X custodial parents lived in 

poverty (25%) or near poverty (25%). 

Are millennial custodial parents poorer than Generation X custodial parents were at the same 

age? Other research has examined whether millennials are poorer than earlier generations, and 

it generally concludes that they are.5

 Figure 6 shows that when Generation X custodial parents 

were the same age as millennial custodial parents (between the ages of 22 and 37 in 2001), 

34% of them were poor and 28% lived near poverty. Although these figures are somewhat lower 

than the figures for millennials (36% and 32%), their differences are not statistically significant. 

Thus, we cannot conclude from this analysis that millennial custodial parents in the child support 

program are more likely to live in poverty or near poverty than Generation X custodial parents 

when they were the same age.

Figure 6. Poverty Status of Custodial Parents by Generation

Source: U.S. Census Bureau, 2002 and 2018 Current Population Survey-Child Support Supplement 

Note: This survey asks respondents about their poverty status during the prior year (i.e. 2001 and 2017). Column 

percentages may not sum to 100% due to rounding. 
0% 20% 40% 60% 80% 100%

Millennials surveyed 

in 2015-2017 

(ages 20-36)

Gen X surveyed 

in 2002

(ages 22-37)

Worked

full-time

Worked

part-time

Worked 

some of 

each

Did not work

in the past

12 months

69% 7% 14% 10%

75% 4% 16% 4%

Office of Child Support Enforcement • www.acf.hhs.gov/css 7

Millennials in the Child Support Program

Millennial noncustodial fathers are less likely to work and more 

likely to live in near poverty than Generation X at about the same 

age

Using data from the National Survey of Family Growth (NSFG), conducted by the National 

Center for Health Statistics, we can compare the employment and poverty status of millennial 

noncustodial fathers during 2015 to 2017 to Generation X noncustodial fathers in 2002 when 

they were about the same age as millennials during 2015 to 2017.6

Figure 7 shows that millennial noncustodial fathers were significantly less likely to have worked 

during the 12 months prior to participating in the survey than Generation X noncustodial fathers 

when they were about the same age (in 2002). Ten percent of millennial noncustodial fathers 

did not work during the 12 months prior to participating in the 2015-2017 survey. In contrast, 

when Generation X noncustodial fathers were about the same age, 4% of them had not worked 

during the 12 months prior to participating in the survey. Figure 7 also shows that the percent 

of millennial noncustodial fathers who worked full-time was 69% during 2015 to 2017, but 75% 

among Generation X noncustodial fathers in 2002 when they were about the same age.

Figure 7. Workforce Status of Noncustodial Fathers by Generation

Source: National Survey of Family Growth, Male File, 2002 and 2015-2017

Note: Column percentages may not sum to 100% due to rounding. 
0% 20% 40% 60% 80% 100%

Poor Between 100% and 

200% of poverty 

threshold

Between 200% and 

300% of poverty 

threshold

More than 300% 

of poverty 

threshold

Millennials surveyed 

in 2015-2017 

(ages 20-36)

Gen X surveyed 

in 2002

(ages 22-37)

28% 43% 19% 11%

22% 28% 14% 36%

Office of Child Support Enforcement • www.acf.hhs.gov/css 8

Millennials in the Child Support Program

Figure 8 shows that 28% of millennial noncustodial fathers lived in poverty in 2015-2017. In 

2002, when Generation X noncustodial fathers were about the same age, 22% of them lived 

in poverty. This difference (28% vs. 22%) is not statistically significant. Thus, the poverty rate 

among millennial noncustodial fathers was not significantly different than that experienced 

by Generation X noncustodial fathers when they were the same age. However, Figure 8 also 

shows that 43% of millennial noncustodial fathers lived in near poverty (i.e. between 100% 

and 200% of the poverty threshold) in 2015-2017, but only 28% of Generation X noncustodial 

fathers lived in near poverty at about the same age in 2002. This difference (43% vs. 28%) is 

statistically significant. Thus, millennial noncustodial fathers were significantly more likely to be 

living in near poverty than Generation X noncustodial fathers when they were the same age.

Figure 8. Poverty Status of Noncustodial Fathers by Generation

Source: National Survey of Family Growth, Male File, 2002 and 2015-2017

Note: Column percentages may not sum to 100% due to rounding. 

Conclusion 

This brief takes a closer look at millennial custodial and noncustodial parents. It shows that 

millennial custodial parents are less likely to marry than earlier generations, but their work 

force and poverty status are not significantly different than that of Generation X custodial 

parents when they were the same age. Nonetheless, 68% of millennial custodial parents 

in the child support program lived in poverty or near poverty in 2017, suggesting that this 

population could benefit from increased child support. On the other hand, it also shows that 

millennial noncustodial fathers are less likely to work and more likely to live in near poverty 

than Generation X noncustodial fathers when they were about the same age. Thus, the child 

support program is in the difficult position of facing a strong need to receive child support among 

millennial custodial parents while also facing what appears to be a weakening ability to pay child 

support among millennial noncustodial fathers. 
Office of Child Support Enforcement • www.acf.hhs.gov/css 9

Millennials in the Child Support Program

Endnotes

1 Pew Research Center has a comprehensive set of articles on millennials. 

https://www.pewresearch.org/topics/millennials/

2 The total number of custodial parents in December 2019 is from OCSE’s Federal Case Registry (FCR) report 

number FP002. That month there were 10,638,598 living custodial parents with known age in the FCR. The 

numbers of custodial parents by generation are estimated using these data and a sample of custodial parents 

from OCSE’s Federal Case Registry. 

3 The total number of noncustodial parents in December 2019 is from OCSE’s FCR report number FP002. That 

month there were 10,374,841 noncustodial parents and putative fathers who were living and had a known age. 

The numbers of noncustodial parents by generation are estimated using these data and a sample of noncustodial 

parents and putative fathers from OCSE’s Federal Case Registry.

4 The 2002 CPS-CSS had a sample size of 4,934 custodial parents and 1,679 were Generation X custodial parents 

in the child support program.

5 Christopher Kurz, Geng Li, and Daniel J. Vine. (2018). Are Millennials Different? Finance and Economics 

Discussion Series 2018-080. Washington, DC: Board of Governors of the Federal Reserve System, 

https://doi.org/10.17016/FEDS.2018.080.

6 The National Survey of Family Growth (NSFG) is conducted by the Centers for Disease Control and Prevention’s 

(CDC) National Center for Health Statistics (NCHS). The most recent data available were collected between

September 2015 and September 2017. The survey interviewed 4,540 men between the ages of 15 and 49.

Because of this age limitation, we can only examine one generation – the millennials - using these data. The

survey was also conducted in 2002. At that time 4,928 men between the ages of 15 and 44 were interviewed.

For more information about the NSFG, go to: https://www.cdc.gov/nchs/nsfg/index.htm. The NSFG uses a series

of questions to identify noncustodial fathers. First, it collects a detailed fertility history. Then it asks, for each

child who is still alive, the child’s current age and usual place of residence. Based on these questions, the NSFG

provides a recoded variable that identifies which men have nonresident children aged 18 or younger. We use this

recoded variable to identify noncustodial fathers. In the 2015-2017 survey there are 237 millennial noncustodial

fathers; in the 2002 survey there are 344 Generation X noncustodial fathers. Researchers have shown that the

NSFG provides the most reliable estimates of noncustodial fathers when compared to other surveys (J. Bart

Stykes, Wendy D. Manning, & Susan L. Brown. (2013). Nonresident fathers and formal child support: Evidence

from the CPS, the NSFG, and the SIPP, Demographic Research 29(46): 1299-1330

http://www.demographic-research.org/Volumes/Vol29/46/ DOI: 10.4054/DemRes.2013.29.46).