Child Welfare and TANF Implementation: Recent Findings (CRS Report for Congress)
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| Release Date |
July 8, 2002 |
| Report Number |
RL31508 |
| Report Type |
Report |
| Authors |
Emilie Stoltzfus, Domestic Social Policy Division |
| Source Agency |
Congressional Research Service |
Summary:
This report examines recent research findings about Temporary Assistance for Needy Families
(TANF) implementation as it has affected the nation's child welfare system. The nation's program
of cash aid for needy families with children (TANF) and its program to protect and care for children
who are abused or neglected (child welfare services) are linked by history and share some of the
same clients who have similar service needs. Assessing the full significance of the 1996 welfare
reform law ( P.L. 104-193 ) to the child welfare system is complicated by the 1997 enactment of the
Adoption and Safe Families Act ( P.L. 105-89 ), which made direct and major changes to the child
welfare system, and by the fact that TANF implementation generally occurred during a strong
economy.
Some child advocates were concerned that 1996 welfare reform initiatives -- including time
limits, family cap policies, and work requirements -- might harm children and/or place new strains
on the child welfare system. Research on the effect of TANF implementation has not produced
conclusive findings. Changes in the size of the child welfare caseload have not been attributed to
welfare reform, although certain work requirements may increase the incidence of child neglect.
Welfare reform also changed specific child welfare funding streams and renewed calls for
stronger collaboration between child welfare and cash aid programs. Here too the evidence of an
effect on the child welfare system is inconclusive. Greater collaboration has occurred in some
locations and the flexible funding of TANF, combined with a strong economy and rapidly declining
cash assistance caseload, meant new resources became available for child welfare services in some
states. Child welfare administrators are concerned, however, that because this money is not
dedicated to their agencies it may not always be available. Further, the 1996 welfare reform
continues to base eligibility for federal foster care and adoption assistance on whether the family a
child is removed from was (or would be) eligible for cash aid as it existed in prior law (Aid to
Families with Dependent Children, AFDC). This increased the complexity of determining eligible
federal foster care and adoption assistance costs and, as the 1996 income and resource standards
become dated, might diminish federal child welfare funds by establishing a diminishing pool of
children eligible for federally reimbursable assistance.
Finally, some child welfare advocates have also been concerned that children in families where
no adult is receiving a TANF cash benefit ("child-only" cases) receive the necessary support,
services and protection they require. The percentage of child-only cases has grown since enactment
of welfare reform, although the actual number of these families being served has declined. Some
states have used TANF funds to enact programs specific to the needs of child-only families, and
many require involvement of child welfare agencies to access these new supports.
