Section 10. Aid to Families With Dependent Children and Related Programs (Title IV-A) BACKGROUND AND ELIGIBILITY Aid to dependent children was established by the Social Security Act of 1935 as a cash grant program to enable States to aid needy children without fathers. Renamed Aid to Families with Dependent Children (AFDC), the program provides cash welfare payments for (1) needy children who have been deprived of parental support or care because their father or mother is absent from the home continuously, is incapacitated, is deceased or is unemployed, and (2) certain others in the household of such child. Currently all 50 States, the District of Columbia, Guam, Puerto Rico, and the Virgin Islands operate an AFDC program. Although 1988 legislation provided that American Samoa could participate in the AFDC program, as of April 1994 it had not chosen to do so. States define ``need,'' set their own benefit levels, establish (within Federal limitations) income and resource limits, and administer the program or supervise its administration. Federal funds currently pay from 50 to about 80 percent of the AFDC benefit costs in a State (55 percent on average) and 50 percent of administrative costs. Table 10-1 summarizes the trends of several key elements in the AFDC program from 1970 to 1993. Between 1970 and 1993, the number of recipients has increased 91 percent, from 7.4 million in 1970 to 14.1 million in 1993. The number of families has increased over the same time period 163 percent, from 1.9 million to 5.0 million. AFDC benefit expenditures have increased 44 percent, after adjusting for inflation, from $15.5 billion in 1970 to $22.3 billion in 1993. Administrative costs remained almost the same in both 1970 and 1993, after adjusting for inflation, at nearly $3.0 billion. AFDC administrative costs were 19 percent of AFDC benefit payments in 1970 and 13 percent in 1993. After accounting for inflation, the average monthly AFDC benefit per family was $676 in 1970 and $373 in 1993, a 45 percent reduction. TABLE 10-1.--SUMMARY OF KEY AFDC PROGRAM ELEMENTS [In dollars, except for caseload numbers] -------------------------------------------------------------------------------------------------------------------------------------------------------- 1970 1975 1980 1985 1988 1990 1991 1992 1993 -------------------------------------------------------------------------------------------------------------------------------------------------------- Total AFDC Benefit expenditures (millions)...................... 4,082 8,153 11,540 14,580 16,663 18,539 20,356 22,240 22,286 1993\1\.......................................... 15,496 22,586 20,700 19,627 20,437 20,671 21,606 22,911 22,286 Federal share (millions)............................. 2,187 4,625 6,448 7,817 9,125 10,149 11,165 12,252 12,270 1993\1\.......................................... 8,303 12,813 11,566 10,523 11,192 11,316 11,850 12,621 12,270 Administrative cost (millions)....................... 758 1,082 1,479 1,779 2,353 2,661 2,673 2,764 2,956 1993\1\.......................................... 2,878 2,997 2,653 2,395 2,886 2,967 2,837 2,847 2,956 Federal share (millions)............................. 572 552 750 890 1,194 1,358 1,373 1,422 1,518 1993\1\.......................................... 2,171 1,529 1,345 1,198 1,464 1,514 1,457 1,465 1,518 Average monthly numbers (thousands): Families......................................... 1,909 3,269 3,574 3,692 3,748 3,974 4,375 4,769 4,981 Recipients....................................... 7,429 11,067 10,597 10,813 10,920 11,460 12,595 13,625 14,144 Children......................................... 5,494 7,821 7,220 7,165 7,326 7,755 8,515 9,225 9,539 Average family size.................................. 4.0 3.2 3.0 3.0 3.0 2.9 2.9 2.9 2.9 Average montly benefit per family.................... 178 208 269 329 370 389 388 389 373 1993\1\.......................................... 676 576 483 443 454 434 412 401 373 AFDC-Basic and AFDC-UP Benefit expenditures (millions), 1993:\1\ Total AFDC....................................... 15,496 22,586 20,700 19,627 20,437 20,671 21,606 22,911 22,286 AFDC-Basic....................................... 14,620 21,583 19,457 17,532 18,695 19,021 19,667 20,728 19,990 AFDC-UP.......................................... 877 1,003 1,243 2,095 1,742 1,650 1,939 2,183 2,298 Average monthly families (thousands): Total AFDC....................................... 1,909 3,269 3,574 3,692 3,748 3,974 4,375 4,769 4,981 AFDC-Basic....................................... 1,831 3,168 3,433 3,431 3,538 3,770 4,107 4,447 4,622 AFDC-UP.......................................... 78 101 141 261 210 204 268 322 359 Average monthly benefit per family--1993:\1\ Total AFDC....................................... 676 576 483 443 454 434 412 401 373 AFDC-Basic....................................... 665 568 472 426 440 420 399 388 360 AFDC-UP.......................................... 937 827 735 669 691 674 603 565 533 -------------------------------------------------------------------------------------------------------------------------------------------------------- \1\Adjusted for inflation using CPI-U (fiscal year). Note: AFDC benefit expenditures have not been reduced by child support enforcement collections and do not include foster care payments; AFDC enrollment figures do not include foster care children. Source: Department of Health and Human Services, Administration for Children and Families and Congressional Research Service. Regardless of the method used to express the need standard, the Social Security Act requires that the standard be uniformly applied within the State or locality to all families in similar circumstances. While participating States must comply with the terms of the Federal legislation, the AFDC program is voluntary, and States traditionally have been at liberty to pay as little or as much in benefits as they choose. In addition to State variations in AFDC eligibility and benefit levels, the benefit levels vary primarily by family size and sometimes by shelter costs. Eligibility for AFDC ends on a child's 18th birthday, or at State option upon a child's 19th birthday if the child is a full-time student in a secondary or technical school and may reasonably be expected to complete the program before he or she reaches age 19. While optional prior to October 1, 1990, States that operate AFDC programs are now required to offer AFDC to children in two-parent families who are needy because of the unemployment of one of their parents (AFDC-UP). Eligibility for AFDC-UP is limited to those families in which the principal wage earner is unemployed but has a history of work. States that did not have an unemployed parent program as of September 26, 1988 may limit benefits under the AFDC-UP program to as few as 6 months in any 13-month period. The Family Support Act of 1988 (Public Law 100-485) substantially revised the education and training requirements of the AFDC program. As of October 1, 1990, States are required to have a job opportunities and basic skills training (JOBS) program. The new program is designed to help needy families with children avoid long-term welfare receipt. The JOBS program replaces the work incentive (WIN) and WIN demonstration programs, and incorporates other work requirements of previous law. In addition, the JOBS program must include an educational component. States are required to enroll virtually all able- bodied persons whose youngest child is at least age 3, provided State resources are available. Families receiving AFDC are automatically eligible for Medicaid. The Family Support Act also requires that States provide transitional Medicaid benefits for those who lose AFDC eligibility as a result of increased hours of, or increased income from, employment or as a result of the loss of earnings disregards. The Family Support Act requires that States guarantee child care if it is decided that child care is necessary for an individual's employment or participation in education or training activities (including participation in the JOBS program) approved by the State, and requires that transitional child care be provided for families who lose AFDC eligibility as a result of increased hours of, or increased income from, employment or as a result of the loss of earnings disregards. The AFDC statute also includes entitlement funds to the States to provide child care to families who are not receiving AFDC who need such care in order to work and would otherwise be at risk of becoming eligible for AFDC. Finally, Federal law requires AFDC mothers to assign their child support rights to the State and to cooperate with welfare officials in establishing the paternity of a child and in obtaining support payments from the father. TREATMENT OF INCOME AND RESOURCES Federal AFDC law requires that all income received by an AFDC recipient or applicant be counted against the AFDC grant except that income explicitly excluded by definition or deduction. Moreover, AFDC law requires that certain persons be considered part of the AFDC assistance unit and that part of the income of certain other persons be counted in determining the AFDC eligibility status and benefit amount. In 1981, Congress required that a portion of the income of a stepparent be counted in determining AFDC eligibility and benefit amounts. However, in a few States (7 as of October 1, 1990), State law requires that all stepparents assume the legal responsibility of a natural or adoptive parent. In those States all of the stepparent's income must be counted in determining the AFDC eligibility status and/or benefit amount of the children and spouse. In 1984, a standard definition of the AFDC assistance unit was established for the first time. Under this requirement, the parent(s) of a dependent child and any dependent brothers or sisters who are in the home are to be included in the AFDC unit, with eligibility and benefits based on the income and circumstances of this family unit. SSI recipients, stepsiblings, and children receiving foster care maintenance payments or adoption assistance are excluded from this requirement. In addition, if a minor who is living in the same home as her parents applies for aid as the parent of a needy child, a portion of the income of the minor's parents is to be counted as available to the filing unit. The law also requires that income from a nonrecurring earned or unearned lump sum payment that exceeds the monthly AFDC need standard must be taken into account in determining AFDC eligibility and/or benefit amount. Lump sum payments in excess of the State's need standard--for the given family size--renders a family ineligible for AFDC for a period of time equal to the lump sum payment divided by the State's monthly need standard. Unearned income States are required by Federal law and/or regulations to disregard certain income in determining the eligibility and benefits of families applying for or receiving AFDC. Unearned income not counted by the AFDC program includes the following: the first $50 of current monthly child support payments received by the family, certain Department of Education grants and loans to undergraduate students for educational purposes, loans and grants, such as scholarships, obtained and used under conditions that preclude their use for current living costs, the value of Department of Agriculture donated foods, benefits received from Child Nutrition programs or nutrition programs for the elderly, payments to VISTA workers, some payments to certain Indian tribes, any amounts paid by a State welfare agency from State-only funds to meet the needs of AFDC children, if the payments are made under a statutorily- established State program that has been continuously in effect since before January 1, 1979, payments for supporting services or reimbursement of out-of-pocket expenses made to volunteers serving as foster grandparents, senior health aides, or senior companions, and Agent Orange settlement payments. Earned income States are required by Federal law to disregard certain earned income when determining the amount of benefits to which a recipient family is entitled. States must disregard all the earned income of each dependent child receiving AFDC who is a full-time student or a part-time student who is not a full-time employee and is attending a school, college, university, or vocational training course. States may, for a period of 6 months, disregard all or part of the earned income of a dependent child who is a full-time student and who is applying for AFDC, if and only if the earnings of such child are excluded for such month in determining the family's total income pursuant to the 185 percent gross income eligibility test. States also have the option of disregarding all or any part of income derived from Job Training Partnership Act (JTPA) programs by a dependent child applying for or receiving AFDC (there is a 6-month limit on the disregard of earned income, and no limit on unearned income). With respect to self-employment, ``earned income'' is defined by Federal regulations as the ``total profit from a business enterprise, farming, etc., resulting from a comparison of the gross receipts with the ``business expenses,'' i.e., expenses directly related to producing the goods or services and without which the goods or services could not be produced. However, under AFDC regulations, items such as depreciation, personal business and entertainment expenses, personal transportation, purchase of capital equipment and payments on the principal of loans for capital assets or durable goods are not considered business expenses. Before OBRA of 1981, in order to provide a financial incentive for recipients to seek and maintain employment, Federal law required the deduction of an initial $30 in monthly earnings plus one-third of remaining earnings, plus work expenses (any expenses, including child care costs, reasonably attributable to the earning of income). When making an initial determination of eligibility, however, only work expenses were disregarded. Amendments in OBRA of 1981 changed the order in which the disregards were applied, limited the disregard for work expenses to $75 per month, capped the child care disregard at $160 per month per child, and specified that the HHS Secretary could lower these sums for part-time work. The $30 plus one- third disregard was limited to a period of 4 consecutive months; recipients who left AFDC and then returned could not again qualify for this disregard for 12 months. States were prohibited from paying AFDC to any family with a gross income above 150 percent of the State's standard of need and were required to assume that working AFDC recipients received a monthly earned income tax credit (EITC), if they appeared eligible for it and regardless of when or if the credit was actually available. Under prior law, the EITC was counted only when received; most AFDC recipients did not receive the EITC on a monthly basis. These changes substantially reduced the amount of earnings a recipient could have and remain eligible for an AFDC payment. In 1984, Congress further revised these disregards. The gross income limit was increased to 185 percent of the State standard of need, the work expense disregard of $75 per month was applied to both full- and part-time workers, and the $30 disregard--originally a part of $30 and one-third--was extended for an additional 8 months beyond the 4-month limit on the one- third deduction. The 1984 legislation also returned to prior law policy with respect to the earned income tax credit: it was to be counted only when actually received. The Family Support Act of 1988 revised the treatment of earned income effective October 1, 1989. The work expense disregard is $90 per month, the maximum child care expense allowance is $175 per month per child ($200 for children under age 2), and the child care disregard is now calculated after other disregard provisions have been applied. Furthermore, States are now required to disregard the earned income tax credit in determining eligibility for and benefits under the AFDC program. Table 10-2 illustrates the impact of the 1981, 1984 and 1988 changes on a mother with two children working full-time at a low wage. Two AFDC benefit standards are illustrated: $680 represents the AFDC payment standard for a family of three in a high benefit State and $366 is the payment standard for a three-person family in the median State (January 1994 data). Several States use a method of paying AFDC that allows working families to retain a greater portion of their AFDC grant as earnings increase. This method of payment, commonly referred to as ``fill-the-gap,'' provides greater financial incentives for families to work than the standard payment method. Under the standard payment method, the AFDC grant is determined by subtracting countable income (e.g., earnings less disregards) from the State's payment standard. (States' AFDC payment standard may be less than the State's AFDC ``need standard''--the amount a State recognizes as essential for a family to meet basic and special needs.) Some States having AFDC payment standards below their need standard allow families to fill part or all of the gap between the payment and need standard with earnings, before reducing the AFDC grant. Other States set a maximum payment below the payment standard, allowing families to only ``fill-the-gap'' up to the payment standard. Many States having AFDC payment standards below their need standard do not use a fill-the-gap policy--they begin to reduce the AFDC grant dollar for dollar, for earnings in excess of the standard earnings disregards. In January 1994, ten States were using some form of ``fill-the-gap'': Mississippi, Tennessee, Kentucky, North Carolina, Georgia, Utah, South Dakota, Colorado, Wyoming, and Maine. Working mothers in these States have higher net income at equivalent earnings than mothers living in States with similar AFDC payment levels that do not use a ``fill-the-gap'' payment method.\1\ --------------------------------------------------------------------------- \1\This information on ``fill-the-gap'' payment was taken from an upcoming report: Library of Congress, Congressional Research Service, Work Incentives and Disincentives in the Welfare System. Gabe, Tom and Gene Falk. --------------------------------------------------------------------------- TABLE 10-2.--CALCULATION OF MONTHLY AFDC BENEFITS FOR A WORKER WITH LOW EARNINGS UNDER PRE-OBRA, OBRA, AND CURRENT LAW -------------------------------------------------------------------------------------------------------------------------------------------------------- OBRA (1981) DEFRA (1984) Current law (FSA) (1988) Pre-OBRA --------------------------------------------------------------------------------------- (1979) First 4 After 4 First 4 After 4 After 12 First 4 After 4 After 12 months months months months months months months months -------------------------------------------------------------------------------------------------------------------------------------------------------- Income: Gross earnings..................................... 581 581 581 581 581 581 581 581 581 EITC............................................... ......... +32 +32 ......... ......... ......... ......... ......... ......... -------------------------------------------------------------------------------------------------- Gross income................................... 581 613 613 581 581 581 581 581 581 ================================================================================================== Disregards: Initial disregards\1\.............................. -30 -105 -75 -105 -105 -75 -120 -120 -90 One-third of rest.................................. -184 (\2\) (\2\) (\2\) (\2\) (\2\) -154 (\2\) (\2\) Child care......................................... -100 -100 -100 -100 -100 -100 -100 -100 -100 One-third of rest.................................. (\2\) -136 (\2\) -125 (\2\) (\2\) (\2\) (\2\) (\2\) Other expenses..................................... \3\-70 (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) -------------------------------------------------------------------------------------------------- Total disregards............................... 384 341 175 330 205 175 374 220 190 ================================================================================================== Net countable income........................... 197 272 438 251 376 406 207 361 391 AFDC benefits: $680 payment standard.............................. 483 408 242 429 304 274 473 319 289 $366 payment standard.............................. 169 94 0 115 0 0 159 \4\5 0 -------------------------------------------------------------------------------------------------------------------------------------------------------- \1\Pre-OBRA: $30 disregard. OBRA: Standard work expense deduction of $75 plus $30 in first 4 months. DEFRA: Standard work expense deduction of $75 plus $30 disregard in first 12 months. FSA: Standard work expense deduction of $90 plus $30 disregard in first 12 months. \2\Not applicable. \3\Itemized work expenses including payroll deductions and transportation. \4\To receive an AFDC check, the benefit amount must equal at least $10. Note.--EITC is only counted in the years that it is shown. Resources Allowable resources are limited, by Public Law 97-35, to $1,000 (or such lower amount as the State may determine) equity value (i.e., market value minus any encumbrances) per family, excluding the home and one automobile if the family member's ownership interest does not exceed a limit chosen by the Secretary of Health and Human Services. In addition, States must disregard from countable resources burial plots and funeral agreements for members of the assistance unit. Also, for a limited time, States must exclude real property the family is making a ``good faith'' effort to sell, but only if the family agrees to repay benefits. HHS regulations set $1,500 or a lower level set by the State as the equity value limit for the automobile and permit States to exclude from countable resources ``basic items essential to day to day living,'' such as clothing and furniture. Previous regulations permitted States to adopt a counted resource limit as high as $2,000 per family member, but allowed States to consider the home and auto as counted resources. Neither law nor Federal regulations mention capital equipment as being exempt from the resource requirement. Notwithstanding this, families with a self-employed caretaker relative are potentially eligible for AFDC benefits. The Characteristics of State Plans indicates that about half of the States specifically exclude from the resource limitation farm machinery, livestock, and tools and equipment essential to employment, livelihood, or income. MONTHLY REPORTING AND RETROSPECTIVE BUDGETING AFDC eligibility and benefits are determined monthly. Public Law 97-35 required States to determine eligibility on the basis of the family's circumstances in the current month. Payment amounts were to be determined ``retrospectively''--on the basis of the family's countable income and resources in the preceding month (or, at the discretion of the Secretary of Health and Human Services, the second preceding month). In addition, States were to require recipients to provide monthly reports on income, family composition, and resources. However, the Secretary could waive this requirement if the State demonstrated that it would be cost-beneficial to do so. The only categories of recipients that could not be exempted were those with earned income or a recent work history. In 1984, Public Law 98-369 revised these monthly reporting and retrospective budgeting requirements. Retrospective budgeting was mandatory only for cases which file a monthly report. Monthly reporting was required for cases with earned income or a recent work history and whenever cost effective. The Omnibus Budget Reconciliation Act of 1990 gave States the option of specifying which categories of AFDC families, if any, have to file monthly reports. Further, States now have the option to choose to apply retrospective budgeting to any one or more of the categories to whom the reporting requirement applies. AFDC BENEFITS UNDER THE UNEMPLOYED PARENTS PROGRAM The original Social Security Act permitted States to give AFDC only to needy children in one-parent homes, unless the second parent was incapacitated. Then, as now, most AFDC children lived in fatherless homes. For the first 25 years of the program, if a father lost his job and his family became needy, State AFDC programs were forbidden to help the family so long as the father lived at home. In 1961, in an antirecession measure, the law was changed so that families with jobless fathers at home could qualify for AFDC. Since May of that year States were permitted to give AFDC to needy children of unemployed parents. Effective October 1, 1990, all States that operate AFDC programs are required to provide AFDC to two-parent families who are needy because of the unemployment of the principal wage earner. (The requirement did not take effect until October 1, 1992, for American Samoa, Puerto Rico, Guam, and the Virgin Islands.) The requirement is repealed September 30, 1998. States that had an AFDC-UP program as of September 26, 1988, are required to continue operating the program without any time limit on eligibility. Other States have the option to impose such a time limit. In exercising this option, a State may not deny AFDC to a family unless the family has received AFDC under the unemployed parents program in at least 6 of the preceding 12 months. As of July 1992, the following States have time limits on eligibility: Arizona, Arkansas, Colorado, Florida, Georgia, Idaho, Louisiana, Nevada, South Dakota, Texas, Utah, Virginia, and Wyoming. Like other AFDC families, families receiving AFDC cash assistance in the unemployed parents program are automatically eligible for Medicaid. The Family Support Act of 1988 requires States electing time-limited benefits to provide Medicaid to all members of the family without any time limitation. At the inception of the AFDC-UP program, States defined ``unemployment,'' and some included in the program families in which the principal wage earner worked as much as 35 hours a week. Since 1971, Federal regulations have specified that an AFDC parent must work fewer than 100 hours in a month to be classified as unemployed, unless hours are of a temporary nature for intermittent work and the individual met the 100- hour rule in the two preceding months and is expected to meet it the following month. The Family Support Act of 1988 authorizes eight State or local demonstrations to test a definition of unemployment that is easier to meet than the present 100-hour rule, including (if any State or locality so requests) at least one demonstration that tests the elimination of the 100-hour rule or any other Federal durational standard. Projects are currently underway in California, Wisconsin, and Utah to demonstrate and evaluate alternative definitions of unemployment. Attachment to the labor force is one condition of eligibility for AFDC-UP. The principal earner must: (1) have 6 or more quarters of work in any 13-calendar-quarter period ending within 1 year prior to application for assistance; or (2) have received or been eligible to receive unemployment compensation within 1 year prior to application for assistance. A quarter of work is a quarter in which an individual earns at least $50 or in which the individual participated in the JOBS program. At State option, attendance in elementary or secondary school, vocational or technical training, or participation in JTPA, may be substituted for up to 4 of the 6 required quarters of work. Participation in the WIN program and CWEP prior to October 1990 also count toward the quarter of work requirement. INTERACTION BETWEEN AFDC AND OTHER PROGRAMS Medicaid States must provide Medicaid to families receiving cash assistance under AFDC. Several recent acts require that States extend this categorically needy Medicaid coverage, at regular Federal matching rates, to other groups. The most important of these groups include (1) pregnant women, and children up to age 6, with family incomes up to 133 percent of the poverty level; (2) children born on or after October 1, 1983, with family incomes below the Federal poverty level (this provision is phased in to cover all children up to age 19 by the year 2002); and (3) certain persons whose family income and resources are below the AFDC standards but who fail to qualify for AFDC for other reasons, such as family structure (these include first- time pregnant women). At their option, States may provide coverage to pregnant women and infants with incomes at or below 185 percent of the Federal poverty level. When families lose AFDC eligibility, categorical Medicaid eligibility also frequently ends, except under those circumstances outlined above, or if the family qualifies for transitional Medicaid benefits established under Public Law 100-485, the Family Support Act of 1988, which took effect April 1, 1990. As a result of this act, States are required to extend Medicaid coverage for 12 months to families who leave cash assistance due to earnings. During the first 6 months of coverage, the States must provide each family the same Medicaid coverage that the family had while receiving AFDC. States are not permitted to impose premiums for this coverage. States do have a ``Medicaid wrap-around'' option, under which they may use Medicaid funds to pay a family's expenses for premiums, deductibles and coinsurance for any health care coverage offered by the employer of the caretaker relative. The employer coverage would then be treated by the Medicaid program as a third party liability. During the second 6 months of coverage, the States have a number of options. First, they may limit the scope of the Medicaid coverage to acute care benefits, dropping nursing home coverage and other nonacute benefits. Second, States may impose a monthly premium on families with incomes, less necessary child care expenses, in excess of 100 percent of the Federal poverty level. The monthly premium on these families could not exceed 3 percent of gross income. Premiums would be determined on the basis of quarterly reports from families on earnings and child care costs. Third, States have the option of offering families the choice of (1) basic Medicaid coverage (either the same as offered to cash assistance beneficiaries or the more limited acute care package) or (2) one or more types of alternative coverage. These alternative coverages could include enrollment in an employer group health plan, a State employee plan, a State health plan for the uninsured, or a health maintenance organization. Families would always have a choice of staying with their basic Medicaid coverage, although they could not elect both the basic Medicaid and one of the alternative coverages. With respect to the basic Medicaid coverage, States would have the same ``Medicaid wrap-around'' option as during the first 6-month period. In general, transitional coverage would terminate if a family no longer had a child, failed to report earnings on a quarterly basis, failed to pay any required premium, or fradulently obtained cash assistance benefits. Effective October 1, 1990, States are required to extend cash assistance benefits to two-parent families where the principal earner is unemployed (AFDC-UP). States that have an AFDC-UP program as of September 26, 1988, are required to continue operating such programs without any time limit on eligibility. Other States will have the option to limit cash assistance benefits to as few as 6 months in any 13-month period. States are required to provide full Medicaid coverage to all members of these families even in months when cash assistance benefits are not paid because of a State-established time limit. In the mid-1980s, States sought to cover pregnant women and children under the Medicaid program. However, they did not want to raise AFDC benefit levels in order to cover them. Congress thus passed legislation giving States the option of covering pregnant women and children and linking their eligibility to the poverty guidelines rather than receipt of AFDC. To prevent States from reducing AFDC benefits (because the targeted populations could be covered irrespective of the AFDC program), Public Law 100-360 prohibited the Secretary of Health and Human Services from approving a State's Medicaid plan if the State reduced its AFDC payment levels below those that were in effect on May 1, 1988. Food stamps Most AFDC families are also eligible for and participate in the food stamp program, which provides an important in-kind supplement to the cash assistance paid under AFDC. Although food stamp benefits are not counted in determining AFDC eligibility, the food stamp program does consider AFDC payments to be countable income and reduces the food stamp benefit by $0.30 for each dollar of countable cash income. This interaction between AFDC and the food stamp program has important financial implications for a State which desires to increase the income of its AFDC recipients. Because food stamps are reduced by $0.30 for each additional $1 of AFDC income, the State must expend $1.43 to obtain an effective $1 increase in AFDC recipients' total income. For a State with a 50 percent matching rate, the State must expend $0.72 of State-only funds to actually obtain a $1 increase in recipient income. This would be the typical situation for an AFDC recipient with no earnings. Table 10-3 illustrates the interaction of various programs for a mother with two children at various earning levels. The example assumes the family lives in Pennsylvania. Calculations are made after the mother has been working for 4 months and lost the disregard of one-third of ``residual'' earnings (those remaining after subtraction of a $120 standard allowance). TABLE 10-3.--EARNINGS AND BENEFITS FOR A MOTHER WITH TWO CHILDREN WITH DAYCARE EXPENSES--AFTER 4 MONTHS ON JOB (JANUARY 1994)--(PENNSYLVANIA) -------------------------------------------------------------------------------------------------------------------------------------------------------- Taxes Food ------------------------------ Work ``Disposable'' Earnings EITC AFDC\1\ stamps\2\ Medicaid Social Federal State expenses\4\ income Security income\3\ income -------------------------------------------------------------------------------------------------------------------------------------------------------- 0................................................. 0 $5,052 $2,496 Yes....... 0 0 0 0 \5\$7,548 $2,000............................................ $600 4,892 2,184 Yes....... $153 0 0 $600 \5\8,923 $4,000............................................ 1,200 3,292 2,304 Yes....... 306 0 0 1,200 \5\9,290 $5,000............................................ 1,500 2,492 2,364 Yes....... 383 0 0 1,500 \5\9,473 $6,000............................................ 1,800 1,692 2,424 Yes....... 459 0 0 1,800 \5\9,657 $7,000............................................ 2,100 892 2,484 Yes....... 536 0 0 2,100 \5\9,840 $8,000............................................ 2,400 0 2,568 Yes\6\.... 612 0 0 2,400 \5\9,956 $9,000............................................ 2,528 0 2,388 Yes\7\.... 689 0 $4 2,700 \5\10,523 $10,000........................................... 2,528 0 2,208 No\7\..... 765 0 34 3,000 10,937 $15,000........................................... 1,820 0 1,308 No\8\..... 1,148 0 174 4,200 12,606 $20,000........................................... 936 0 0 No........ 1,530 $58 314 5,200 13,834 $30,000........................................... 0 0 0 No........ 2,295 1,718 594 5,400 19,993 $50,000........................................... 0 0 0 No........ 3,825 5,569 1,154 5,400 34,052 -------------------------------------------------------------------------------------------------------------------------------------------------------- \1\Assumes these deductions: $120 monthly standard allowance (which would drop to $90 after 1 year on the job) and child care costs equal to 20 percent of earnings, up to maximum of $350 for 2 children. \2\Assumes these deductions: 20 percent of earnings, $131 monthly standard deduction and child care costs equal to 20 percent of wages, up to maximum of $320 for 2 children. \3\Head of household rates in effect for 1994. The dependent care tax credit reduces tax liability at earnings of $15,000 and above. \4\Assumed to equal 10 percent of earnings up to maximum of $100 monthly, plus child care costs equal to 20 percent of earnings up to a maximum of $350 for 2 children. \5\In addition, the benefits from Medicaid could be added, but are not, since the extent to which they increase disposable income is uncertain. \6\Family would qualify for Medicaid because the mother, by law, would be deemed still an AFDC recipient, even though no AFDC would be paid; her calculated benefit would be below the minimum amount ($10 monthly) payable. \7\Family would qualify for Medicaid for 12 months after leaving AFDC under the 1988 Family Support Act. State must offer Medicaid to all children up to age 6 whose family income is not above 133 percent of the Federal poverty guideline (ceiling of $16,385 for a family of 3 in 1994) and to children over age 6 born after September 1, 1983 (up to age 10\1/3\ in January 1994), whose family income is below the poverty guideline ($12,320 for a family of 3). \8\After losing her Medicaid transitional benefits, to regain eligibility, mother must spend down on medical expenses to State's medically needy income limit ($5,604 in January 1994). Source: Congressional Research Service. CHART 10-1. DISPOSABLE INCOME AT VARIOUS WAGE LEVELS FOR A FAMILY OF THREE WITH CHILD CARE EXPENSES, PENNSYLVANIA, JANUARY 1994 \1\Net wages equal earnings plus EITC minus taxes and work expenses. Source: Committee on Ways and Means. Child support enforcement Federal law requires AFDC families (and applicants), as a condition of eligibility for aid, to assign their support rights to the State, to cooperate with the State in establishing the paternity of a child born outside of marriage, and to cooperate with the State in obtaining support payments. Families receiving AFDC benefits automatically qualify (free of charge) for CSE services. Their cases are referred to the CSE agency. The provision requiring the AFDC applicant or recipient to assign to the State her rights to support covers both current support and any arrears which have accrued, and lasts as long as the family receives AFDC. When the family no longer receives AFDC, the mother or caretaker relative regains her right to collect support, but if there are arrears, the State may claim those arrears up to the amount paid out as AFDC benefits. Child support payments made on behalf of a child receiving AFDC are supposed to be paid to the CSE agency rather than directly to the family. If the child support collection is insufficient to disqualify the family from receiving AFDC payments, the family receives its full monthly AFDC grant plus (pursuant to the 1984 Deficit Reduction Act) the first $50 of the child support payment made in the child's behalf for that month. In several States where the need standard exceeds the maximum payment, additional amounts of child support are disregarded. The remainder of that monthly child support payment is distributed to reimburse the State and Federal Governments in proportion to their assistance to the family. If the family's income, including the child support payment, is sufficient to make the family ineligible for AFDC payments, the family's AFDC benefits are ended, and future child support payments are paid directly from the noncustodial parent to the family. (The Federal share of child support collections paid on behalf of AFDC children is used first to pay incentives to States on their AFDC and non-AFDC collections. The remainder is used to offset Federal AFDC benefit costs. Neither Federal law nor regulations stipulate the use of the States share of AFDC child support collections.) As noted above, some States are required to provide monthly supplemental payments to AFDC recipients who have less disposable income now than they would have had in July 1975 because child support is paid to the CSE agency instead of directly to the family. States required to pay supplemental payment are often referred to as ``fill-the-gap'' States. These States pay less assistance than their full AFDC need standard, and allow recipients to use child support income to make up all or part of the difference between the payment made by the State and the State's need standard. Section 402(a)(28) of the Social Security Act requires States that had a fill-the-gap policy in 1975 and currently have such a policy, to add to the AFDC benefit all or part of the child support collection (the amount which would have caused no reduction in the AFDC benefit if it had been paid directly to the family). Information obtained from the Office of Child Support Enforcement (June 1990) indicates that seven States that had fill-the-gap policies in July 1975 also have them now and thus must follow the benefit calculation rules of section 402(a)(28) when taking account of child support collections for AFDC families. They are: Georgia, Maine, Mississippi, South Carolina, Tennessee, Virginia, and Wyoming. Another 13 jurisdictions which had fill-the-gap policies in July 1975, no longer have them. SSI and Social Security In AFDC, Social Security benefits are treated as unearned income and thus AFDC benefits are reduced by $1 for each $1 of OASDI benefits. SSI benefits received by a potential member of an AFDC family are treated differently. This member (both a child or an adult receiving SSI benefits) is not regarded as a part of the AFDC unit. Thus his needs are not taken into account in determining the AFDC benefit level. At the same time, the income and resources of the SSI recipient are also ignored in determining the AFDC benefit. Job Opportunities and Basic Skills (JOBS) Training Program and Supportive Services The Family Support Act of 1988 established a new employment, education and training program for recipients of AFDC. This new program, called the Job Opportunities and Basic Skills (JOBS) training program, replaces the work incentive (WIN) program and other provisions of prior law. Purpose and administration The purpose of the JOBS program is to assure that needy families with children obtain the education, training and employment that will help them avoid long-term welfare dependence. Each State is required to have a JOBS program, under a State plan approved by the Secretary of the Department of Health and Human Services (HHS). States were required to implement the program no later than October 1, 1990. No later than October 1, 1992, the program must be available in every subdivision of the State where it is feasible to operate the program. Table 10-4 provides information on JOBS programs in the States, based on JOBS State plans as of January 1994. As the first column of the table shows, all 50 States, the District of Columbia, and the territories (Guam, Puerto Rico and the Virgin Islands) met the implementation date requirement for JOBS, and many implemented the program early. The table also shows that, as of January 1994, all of the jurisdictions were implementing the program statewide. The JOBS program is administered at the Federal level by the Assistant Secretary for Children and Families in HHS, and at the State level by the State welfare agency. The State welfare agency may offer services and activities directly, or through arrangements or contracts with Job Training Partnership Act (JTPA) administrative entities, State and local educational agencies and with other public agencies or private organizations (including community-based organizations). Assessment, employability plan, case management, and orientation The State must make an initial assessment of the education, child care and other supportive service needs as well as the skills, prior work experience, and employability of each JOBS participant, and, on the basis of the assessment, develop an employability plan for the participant. The State agency may require the participant to enter into an agreement with the State that specifies the participant's obligations under the program, and the activities and services to be provided by the State. Table 10-4 shows that 8 States chose to require such an agreement (January 1994 data). The State agency may assign a case manager to each participant and the participant's family. The case manager must be responsible for assisting the family to obtain needed services to ensure effective participation in the JOBS program. Table 10-4 shows that only 2 States--Iowa and Oklahoma--chose not to assign a case manager. The State agency is required to provide certain information about the JOBS program and supportive services to applicants and recipients. For example, the agency must inform applicants and recipients of AFDC of the opportunities for which they are eligible under the JOBS program, the obligation of the State agency, and the rights, responsibilities and obligations of participants. The agency must provide detailed information about day care services and must inform applicants and recipients of all other supportive services, including transitional health care benefits (see separate section on supportive services). Services and activities A range of services and activities must be offered by each State under the JOBS program; however, States are not required to operate the JOBS program uniformly in all parts of the State. The services and activities a State must offer include: (1) education activities, including high school or equivalent education, basic and remedial education to achieve a basic literacy level, and education for individuals with limited English proficiency; (2) job skills training; (3) job readiness activities; (4) job development and job placement; and (5) supportive services (see separate section on supportive services). States are required to offer two of the following four activities: (1) group and individual job search; (2) on-the-job training; (3) work supplementation programs; and (4) community work experience (CWEP) programs or any other work experience program approved by the Secretary. In addition to these activities, States may also offer postsecondary education to JOBS participants. Table 10-4 shows which of these activities the individual States are offering, as of January 1994. When an individual age 20 or over who does not have a high school diploma (or equivalent) is required to participate in the JOBS program, the State agency must include education services as a component unless (1) the individual demonstrates a basic literacy level, or (2) the employability plan identifies a long-term employment goal that does not require a high school diploma. Following is a more detailed discussion of the Federal requirements for job search, CWEP, and work supplementation programs. Job search.--States may require AFDC applicants and recipients to participate in a job search program beginning at the time of application. States may require up to 8 weeks of job search for applicants, and may, in addition, require up to 8 weeks of job search for AFDC recipients each year. This means that in the first year, up to 16 weeks of job search may be required, with 8 weeks per year thereafter. Additional job search activities may not be required by the State of an individual unless they are in combination with some other education, training or employment activity which is designed to improve the individual's prospects for employment. In no event may a State require an individual to participate in more than 3 weeks of job search before the State conducts an employability assessment for that individual. Finally, job search cannot be treated for any purpose as an activity under the JOBS program if an individual has participated in job search for 4 out of the preceding 12 months. Community work experience.--The purpose of a CWEP program is to provide experience and training for individuals not otherwise able to obtain employment. CWEP programs must be designed to improve the employability of participants through actual work experience and training and to enable individuals employed under CWEP programs to move into regular employment. CWEP programs must be limited to projects which serve a useful, public purpose in fields such as health, social service, environmental protection, education, urban and rural development and redevelopment, welfare, recreation, public facilities, public safety and day care. A State electing to operate a CWEP program must ensure that the maximum number of hours that any individual may be required to work under the CWEP program is no greater than the number of hours derived by dividing the total AFDC benefit by the Federal minimum wage (or, if greater, the State minimum wage). Any AFDC benefit amount for which the State receives reimbursement through child support collection cannot be taken into account in determining the maximum number of hours that individuals may be required to work. After an individual has been assigned to a CWEP position for 9 months, the individual cannot be required to continue in that assignment unless the maximum number of hours of work is no greater than the cash benefit (excluding child support) divided by the rate of pay for individuals employed in the same or similar occupations by the same employer at the same site. At the conclusion of each CWEP assignment, but, in any event, after each 6 months of participation in CWEP, the State agency must provide a reassessment, and revision, as appropriate, of the individual's employability plan. Work supplementation.--Under a work supplementation program, a State reserves the amount that would have been payable to an AFDC family and uses the amount instead to provide and subsidize a job for the family. Recipients may be placed in jobs offered by private as well as nonprofit employers. The work supplementation is an alternative to an AFDC payment. Under JOBS, States may make work supplementation either mandatory or voluntary, and States are required to provide Medicaid to work supplementation participants. States operating a work supplementation program may adjust the level of their AFDC standard of need in order to carry out the program, and need standards may vary from one area of the State to another. Need standards may also vary among recipient categories, to the extent that the State determines the variation to be appropriate on the basis of the ability of the recipient to participate in the work supplementation program. States are able to make further adjustments to amounts paid to different categories of AFDC recipients participating in work supplementation in order to offset increases in benefits from non-AFDC means-tested programs. States are permitted to reduce or eliminate the amount of earned income disregards for families participating in a work supplementation program, and are permitted to offer the $30 plus one-third earned income disregard for up to 9 months for participants. Federal funding under the program is limited for each participant to the aggregate of 9 months worth of the maximum AFDC grant (unreduced by earned income disregards or changes to the need standard) the participant family otherwise would have received were it not participating in the work supplementation program and had no income (or less if the person participates for fewer than 9 months). Participation requirements To the extent resources are available, a State must require non-exempt AFDC recipients to participate in the JOBS program. Exempt applicants and recipients may participate on a voluntary basis. Exempt recipients would be those who are: (1) ill, incapacitated, or of advanced age; (2) needed in the home because of the illness or incapacity of another family member (who need not be a member of the AFDC unit); (3) the parent or other relative of a child under age 3 who is personally providing care for the child (or, if provided in the State plan, any age that is less than 3 but not less than 1); (4) employed 30 or more hours a week; (5) a child under age 16 or attending, full time, an elementary, secondary or vocational school; (6) a woman who is in at least the second trimester of pregnancy; or (7) residing in an area where the program is not available. Table 10-3 shows that most States exempt recipients with a child under age 3 who are providing care for the child. The 1988 law includes certain limitations on participation. The parent of a child under age 6 (but older than the age for an exemption) who is personally providing care for the child may be required to participate only if child care is guaranteed and required participation is limited to no more than 20 hours per week. In the case of an AFDC-UP family, the exemption relating to age of child may apply to only one parent, except that the State may require both parents to participate if child care is guaranteed. There are certain special requirements under JOBS related to education. To the extent the JOBS program is available and State resources permit, a State must require a custodial parent under age 20 who has not completed high school (or the equivalent), including a parent who is not otherwise required to participate in JOBS solely because of the exclusion relating to providing care for a young child, to participate in an educational activity. Even though such a parent is providing care for a child under 6 years of age, the State agency may require the parent to participate in the educational activity on a full-time basis. Alternative work or training activities may be provided if the parent fails to make progress in an educational activity, or if an educational assessment determines that participation in an educational activity is inappropriate. Participation in alternative activities is limited to 20 hours per week. If an individual is attending school or a course of vocational training, not less than half time, at the time he or she would otherwise begin to participate in the JOBS program, and making satisfactory progress, the attendance may meet the participation requirement for the individual, but the costs of the school or training are not eligible for Federal reimbursement. Certain minimum participation standards are established for fiscal years 1990 through 1995 for the AFDC caseload. States face a reduced Federal match if those participation standards are not met. In fiscal year 1990, at least 7 percent of the nonexempt caseload in each State must participate in the JOBS program in any month. The minimum participation rates in subsequent years are 7 percent in fiscal year 1991, 11 percent in fiscal years 1992-1993, 15 percent in fiscal year 1994, and 20 percent in fiscal year 1995. At least one parent in each AFDC-UP family must participate at least 16 hours a week in a work activity, but, with respect to CWEP, not more hours than the minimum wage equivalent based on the welfare payment less the portion of the payment reimbursed to the State by child support. Participation must be in work supplementation, community work experience or other work experience program, on-the-job training, or a State- designed work program approved by the Secretary. The percentage of AFDC-UP families required to meet this work requirement is 40 percent in fiscal year 1994, 50 percent in fiscal year 1995, 60 percent in fiscal year 1996, and 75 percent in fiscal year 1997 and fiscal year 1998 (calculated so that, on average, these percentages of the caseload would be participating in each month of the year). A State may substitute participation in an educational program in the case of a parent under age 25 who has not completed high school. Targeting of JOBS funds As described in detail later, Federal matching for JOBS program costs is available as a capped entitlement. The JOBS program includes incentives for States to target funds toward certain populations. States face a reduced Federal match unless 55 percent of JOBS funds is spent on the following populations: (1) families in which the custodial parent is under age 24 and has not completed high school or has little or no work experience in the preceding year; (2) families in which the youngest child is within 2 years of being ineligible for assistance because of age; (3) families who have received assistance for 36 or more months during the preceding 60-month period; and (4) applicants who have received AFDC for any 36 of the 60 months immediately preceding application. Volunteers must be given first consideration within target groups. Funding of JOBS and supportive services Federal matching for JOBS program costs is available as a capped entitlement limited to $600 million in fiscal year 1989, $800 million in fiscal year 1990, $1 billion in fiscal year 1991, 1992 and 1993, $1.1 billion in fiscal year 1994, $1.3 billion in fiscal year 1995, and $1.0 billion a year thereafter. The Federal match is 90 percent for expenditures up to the amount allotted to the States for the WIN program in fiscal year 1987. Of additional amounts, the Federal match is at the Medicaid rate, with a minimum Federal match of 60 percent, for nonadministrative costs and for personnel costs for full-time staff working on the JOBS program. The match for other administrative costs is 50 percent. The Federal match for JOBS is reduced to 50 percent unless (1) 55 percent of funds are spent on certain target populations, and (2) the States meet participation rate requirements. The entitlement cap for JOBS is allocated as follows: States receive an amount equal to their WIN allotment for fiscal year 1987 ($126 million for all States) and the remainder is allocated on the basis of each State's relative number of adult recipients of AFDC. Federal program funds may not be used to supplant non-Federal funds for existing services and activities. Child care during participation in JOBS and for employment is reimbursed as a separate, open-ended entitlement at the Medicaid matching rate. Transportation and other work-related expenses are reimbursed at a rate of 50 percent and are included among those expenditures subject to the JOBS entitlement cap. Table 10-5 provides information on Federal allocations to the States for the JOBS program for fiscal years 1991 through 1993, along with information on the amount of these funds States have expended and obligated. The table also includes information on federally reimbursed expenditures for child care. According to HHS, total Federal and State expenditures for the JOBS program (not including child care) equaled $1.006 billion for fiscal year 1992. Supportive and transitional services State agencies must guarantee child care for a recipient if the care is necessary for the individual to work. In addition, the State must guarantee child care for education and training activities, including participation in the JOBS program, if the State approves the activity and determines that the individual is participating satisfactorily. The State agency must also guarantee child care to the extent the care is necessary for an individual's employment in any case where a family has ceased to receive AFDC assistance as a result of increased hours of, or increased income from, employment or as a result of the loss of earnings disregards. Transitional child care is limited to a period of 12 months after the last month for which the family actually received AFDC assistance. (AFDC child care assistance programs are described in more detail in section 12.) The State must provide payment or reimbursement for necessary transportation and other work-related expenses, including other work-related supportive services, that the State determines are necessary to enable an individual to participate in JOBS. Federal matching is 50 percent subject to the overall JOBS funding cap (see section on Federal and State expenditures for JOBS). There is no Federal limit on the amount of reimbursement with respect to an individual. TABLE 10-4.--SUMMARY OF JOBS PROGRAMS FROM STATE PLANS: JANUARY 1994\1\ -------------------------------------------------------------------------------------------------------------------------------------------------------- Exemption from Optional participation if Allow postsecondary Require agency State Name of program components\2\ child under education? Any Assign case participant age--\3\ limits? manager? contract? -------------------------------------------------------------------------------------------------------------------------------------------------------- Alabama............. JOBS................ OJT, alt. work exp., JS. ................ Yes; 2 year limit... Yes............. No Alaska.............. JOBS................ OJT, alt. work exp., ................ Yes; 30 consecutive Yes............. No JS, other ed. & months limit. training. Arizona............. JOBS................ OJT, CWEP, JS....... 2............... Yes; 2 year limit... Yes............. No Arkansas............ Project Success..... Alt. work exp., JS.. 1............... Yes; 4 year limit... Yes............. No California.......... GAIN................ OJT, work supp., ................ Yes; 2 year limit... Yes............. Yes CWEP, JS. Colorado............ New Directions...... OJT, work supp., 1............... Yes; 24 month limit. Yes............. No CWEP, JS. Connecticut......... JOBS................ OJT, JS............. 2............... Yes; 2 years; 3 Yes............. No years for certified programs. Delaware............ First Step.......... OJT, CWEP, JS....... ................ Yes................. Yes............. No District of Columbia ARC................. OJT, alt. work exp., ................ Yes; 2 year limit... Yes............. No JS. Florida............. Project Independence OJT, work supp., ................ Yes; 4 year limit... Yes............. No CWEP, alt. work exp., JS. Georgia............. PEACH............... OJT, CWEP, alt. work ................ Yes; 28 month limit. Yes............. No exp., JS. Guam................ JOBS................ OJT, CWEP, JS....... ................ Yes................. Yes............. No Hawaii.............. JOBS................ OJT, CWEP, alt. work ................ Yes................. Yes............. No exp., alt. education, JS, other ed. & training. Idaho............... JOBS................ OJT, alt. work exp., ................ Yes; 4 year limit... Yes............. No JS, other ed. & training. Illinois............ Project Chance...... OJT, work supp., ................ Yes; no limits...... Yes............. No CWEP, alt. work exp., JS, other ed. & training. Indiana............. IMPACT: JOBS........ OJT, CWEP, JS....... ................ Yes................. Yes............. No Iowa................ Promise JOBS........ OJT, CWEP, alt. work ................ Yes; 30 month limit No.............. No exp., JS, other for 2 year degree training. program; 40 month limit for 3 or 4 year programs. Kansas.............. Kan Work in 23 OJT, CWEP, JS, other ................ Yes; up to BA/BS.... Yes............. No counties; minimal training. JOBS in balance of State. Kentucky............ JOBS................ OJT, CWEP, alt. work ................ Yes; limited to 6 Yes............. No exp., JS. semesters for 2 and 3 year programs; 8 semesters for 4 year programs. Louisiana........... Project Independence OJT, CWEP, JS....... 1............... Yes; 4 year limit... Yes............. Yes Maine............... ASPIRE/JOBS......... OJT, JS, other ed. & ................ Yes; limited to 6 Yes............. Yes training. semesters for AA degree, 12 semesters for BA degree. Maryland............ Project Independence OJT, alt. work exp., ................ Yes................. Yes............. No JS, work supp., other ed. & training. Massachusetts....... Mass JOBS........... OJT, work supp., JS. ................ Yes; limited to 3 Yes............. No years for 2-year degree, voc-tech programs; 6 years for 4-year programs. Michigan............ MOST................ OJT, work supp, 1............... No.................. Yes............. No CWEP, JS. Minnesota........... Project STRIDE...... OJT, work supp, CWEP ................ Yes................. Yes............. No alt. work exp., JS. Mississippi......... JOBS................ OJT, alt. work exp., ................ Yes; 4 year limit, 3 Yes............. No JS, other training. year vocational. Missouri............ FUTURES............. OJT, CWEP, JS, other ................ Yes................. Yes............. No ed. & training. Montana............. JOBS................ OJT, work supp., JS, ................ Yes................. Yes............. Yes CWEP, alt. work exp. Nebraska............ JOBS................ OJT, CWEP, alt. work 1............... Yes................. Yes............. No exp., JS. Nevada.............. JOBS................ OJT, CWEP, JS....... ................ No.................. Yes............. No New Hampshire....... JOBS................ OJT, CWEP, JS....... ................ Yes................. Yes............. No New Jersey.......... REACH............... OJT, work supp, 2............... Yes................. Yes............. No CWEP, JS, other ed. & training. New Mexico.......... Project Forward..... OJT, CWEP, alt. work ................ Yes................. Yes............. No exp., JS, other ed. & training. New York............ JOBS................ OJT, work supp., ................ Yes, 2 year limit... Yes............. No CWEP, JS, other ed. & training. North Carolina...... JOBS................ OJT, CWEP, JS....... ................ Yes................. Yes............. No North Dakota........ JOBS................ OJT, CWEP, JS....... ................ Yes................. Yes............. No Ohio................ JOBS................ OJT, work supp., ................ Yes; 2 year limit... Yes............. No CWEP, alt. work exp., JS. Oklahoma............ Education, Training OJT, work supp., 1............... Yes; 5 year limit... No.............. No and Employment. alt. work exp., JS, other ed. & training. Oregon.............. JOBS................ OJT, work supp., 1............... No.................. Yes............. No CWEP, alt. work exp., JS, other training. Pennsylvania........ New Directions...... OJT, CWEP, alt. work ................ Yes................. Yes............. No exp., JS, other ed. & training. Puerto Rico......... PASOS............... OJT, alt. work exp., ................ Yes................. Yes............. No work supp., JS, other ed. & training. Rhode Island........ Pathways to Work supp., OJT, JS. ................ Yes; 24 month limit. Yes............. No Independence. South Carolina...... Work Support Program OJT, alt. work exp., ................ Yes; 4 year limit... Yes............. No JS, other ed. & training. South Dakota........ FIND................ OJT CWEP, JS........ 1............... Yes................. Yes............. No Tennessee........... JOBS/WORK........... OJT, alt. work exp., ................ Yes; 4 year limit... Yes............. No JS. Texas............... JOBS................ OJT, alt. work exp., ................ Yes; 2 year limit... Yes............. No JS. Utah................ JOBS................ OJT, alt. work exp. ................ Yes; with limits.... Yes............. Yes (WEAT), JS. Vermont............. Reach Up............ OJT, work supp., ................ Yes; 3 year limit Yes............. No CWEP, JS. for AA certificate, 5 years for BA degree. Virgin Islands...... JOBS/HOPE........... OJT, CWEP, work 2............... Yes; with limits.... Yes............. Yes supp., JS. Virginia............ JOBS................ OJT, work supp., ................ Yes................. Yes............. No alt. work exp., JS, other ed. & training. Washington.......... JOBS/FIP............ OJT, alt. work exp., ................ Yes; with limits.... Yes............. No CWEP, work supp., JS. West Virginia....... JOBS................ CWEP, OJT, JS....... ................ Yes; 2 year limit... Yes............. No Wisconsin........... JOBS................ CWEP, OJT, work 2............... Yes; 2 year limit... Yes............. Yes supp., JS, alt. work exp., other training. Wyoming............. Wyoming OJT, alt. work exp, ................ Yes; 4 year limit Yes............. Yes Opportunities for JS. for AA & Work (WOW) Program. vocational; 6 year limit for BA. -------------------------------------------------------------------------------------------------------------------------------------------------------- \1\Information based on State JOBS Plan, filed for the biennium beginning October 1, 1992. \2\All States include a Job Search component. \3\Unless otherwise noted, State follows basic statutory approach and exempts the parent of a child under age 3. Note.--Optional components can include Job Search, Alternative Work Experience, On the Job Training (OJT), Community Work Experience Program (CWEP), Work Supplementation, Other Education, and other activities. Source: ACF/OFA/Division of JOBS Program of Department of Health and Human Services. TABLE 10-5.--FEDERAL ALLOCATIONS AND EXPENDITURES FOR THE JOBS PROGRAM [By fiscal year; in millions of dollars] -------------------------------------------------------------------------------------------------------------------------------------------------------- Indians Awarded Total obligated Title IV-A-- Jobs--total set- to ------------------------------ Total child care States authorization aside States expended ----------------- 1993\1\ 1993\2\ 1993\3\ 1993\5\ 1992\5\ 1991\5\ 1993\4\ 1993 1992 -------------------------------------------------------------------------------------------------------------------------------------------------------- Alabama.................................................... 9.4 ........ 8.8 9.3 6.2 4.3 9.0 9.9 5.4 Alaska..................................................... 2.8 0.9 1.8 1.8 1.7 1.4 1.8 1.6 1.4 American Samoa............................................. 0.1 ........ ........ ........ ........ ........ ........ ....... ....... Arizona.................................................... 11.7 1.2 5.7 5.8 4.0 3.0 5.6 8.6 6.1 Arkansas................................................... 5.0 ........ 5.0 5.0 5.3 5.5 4.3 1.8 1.6 California................................................. 157.2 0.4 96.8 96.8 94.0 108.3 85.2 19.4 18.0 Colorado................................................... 10.5 (\6\) 6.7 6.7 5.9 5.3 6.7 5.3 4.0 Connecticut................................................ 12.1 ........ 6.1 6.1 7.4 9.2 6.1 7.4 6.4 Delaware................................................... 2.1 ........ 2.0 2.1 1.7 1.4 1.6 2.7 2.0 District of Columbia....................................... 4.7 ........ 4.7 4.7 3.6 3.2 4.7 3.1 3.1 Florida.................................................... 38.5 ........ 15.9 15.9 14.4 13.4 15.4 19.9 16.6 Georgia.................................................... 25.9 ........ 15.8 10.3 10.3 8.0 10.3 25.2 16.8 Guam....................................................... 0.4 ........ 0.2 0.2 0.2 0.2 0.2 ....... ....... Hawaii..................................................... 4.1 ........ 4.1 4.1 5.0 1.7 4.1 0.2 0.2 Idaho...................................................... 2.4 (\6\) 2.3 2.3 2.3 2.3 2.3 1.1 1.0 Illinois................................................... 49.1 ........ 25.9 25.9 20.5 19.2 20.8 12.3 7.2 Indiana.................................................... 14.8 ........ 8.1 8.1 5.7 3.9 8.1 6.3 3.4 Iowa....................................................... 8.4 ........ 5.8 5.9 5.8 5.5 5.9 2.5 1.8 Kansas..................................................... 6.5 (\6\) 6.4 6.4 5.7 4.5 6.4 6.9 5.2 Kentucky................................................... 17.6 ........ 14.8 13.7 11.5 8.3 13.2 11.0 8.7 Louisiana.................................................. 16.5 ........ 16.5 16.5 15.4 7.9 16.5 9.0 6.6 Maine...................................................... 5.8 (\6\) 3.7 3.7 3.4 3.6 3.7 0.9 0.7 Maryland................................................... 16.7 ........ 14.1 14.1 16.8 14.1 11.4 15.0 10.9 Massachusetts.............................................. 24.4 ........ 20.5 20.5 20.6 21.5 19.5 27.0 22.1 Michigan................................................... 55.4 0.1 35.2 35.2 28.7 21.1 35.2 22.1 15.5 Minnesota.................................................. 15.8 0.9 11.7 11.7 11.5 9.5 11.5 13.9 11.3 Mississippi................................................ 10.8 (\6\) 10.8 10.8 9.4 1.5 3.2 3.4 2.4 Missouri................................................... 18.9 ........ 9.8 9.8 6.3 3.1 9.8 13.3 7.8 Montana.................................................... 2.9 0.4 2.5 2.5 2.5 1.8 2.5 1.8 2.1 Nebraska................................................... 3.5 (\6\) 2.7 2.7 3.1 2.2 2.7 8.1 6.5 Nevada..................................................... 2.3 (\6\) 1.2 1.2 1.0 0.7 1.2 1.0 0.8 New Hampshire.............................................. 2.3 ........ 2.3 2.3 2.0 1.6 2.9 2.4 2.2 New Jersey................................................. 27.0 ........ 27.0 21.0 24.9 25.7 21.0 9.0 8.0 New Mexico................................................. 6.7 0.7 1.6 1.6 1.2 1.2 1.6 3.9 2.1 New York................................................... 85.3 (\6\) 85.2 85.2 85.8 52.4 58.6 56.1 46.7 North Carolina............................................. 22.4 (\6\) 17.7 17.7 14.9 8.0 17.7 38.0 23.6 North Dakota............................................... 1.7 0.4 1.2 1.3 1.2 1.2 0.9 1.7 1.9 Ohio....................................................... 58.7 ........ 44.6 58.6 49.0 44.2 50.8 36.1 19.3 Oklahoma................................................... 9.3 0.1 6.9 6.7 6.3 5.6 6.7 16.5 13.7 Oregon..................................................... 11.4 (\6\) 11.4 11.4 11.2 10.3 11.4 8.9 7.8 Pennsylvania............................................... 44.9 ........ 34.5 34.7 31.2 29.1 22.7 25.0 15.8 Puerto Rico................................................ 13.1 ........ 9.5 9.6 7.1 1.7 9.4 ....... ....... Rhode Island............................................... 4.8 ........ 4.2 4.8 4.2 3.6 4.4 3.6 3.2 South Carolina............................................. 8.8 ........ 5.0 5.4 4.6 3.8 4.7 3.9 2.2 South Dakota............................................... 1.7 0.5 1.2 1.3 1.3 1.0 0.9 1.2 1.1 Tennessee.................................................. 18.4 ........ 5.0 7.8 7.2 2.6 5.6 20.0 13.2 Texas...................................................... 48.2 ........ 37.2 37.2 33.6 23.2 33.9 33.5 31.2 Utah....................................................... 4.5 (\6\) 4.5 4.5 4.0 3.7 4.1 8.8 7.7 Vermont.................................................... 3.2 ........ 2.9 2.9 2.6 2.0 2.9 2.0 1.7 Virgin Islands............................................. 0.3 ........ 0.3 0.3 0.3 0.3 0.3 ....... ....... Virginia................................................... 13.6 ........ 9.1 9.1 7.2 6.0 9.1 10.5 8.4 Washington................................................. 24.4 0.5 19.9 23.9 20.1 12.0 16.7 23.2 17.0 West Virginia.............................................. 10.7 ........ 9.8 9.8 8.6 4.8 9.8 4.7 3.2 Wisconsin.................................................. 20.7 0.3 20.4 20.4 21.6 23.4 20.4 10.7 10.2 Wyoming.................................................... 1.6 (\6\) 1.5 1.5 1.4 1.0 1.2 2.1 2.1 -------------------------------------------------------------------------------------------- Totals............................................... 1,000.0 7.1 728.5 738.8 681.4 564.0 646.6 582.5 437.9 -------------------------------------------------------------------------------------------------------------------------------------------------------- \1\JOBS--total authorization: Total federal funds available for the JOBS program for fiscal year 1993. \2\Indian set-aside: Ratio of adult recipients in a tribal service area to the State's total of adult recipients multiplied by the State's total allocation. \3\Excludes the Indian set-aside. \4\Total expended: The amount of funds that left the State's treasury through September 30, 1993, for the program. \5\Total obligated: The amount of funds obligated by the State by September 30, 1993. For example, if a contract is signed by the State to provide services based on a set fee, the amount owed for those services is an obligation. That obligation becomes an expenditure only when the invoice for the services is actually paid. \6\Denotes allocations and expenditures of less than $50,000. Note.--Data are up to date as of February 23, 1994. Table is based on best available data reported by States. Source: Administration for Children and Families. Table 10-6 shows the average monthly percent of JOBS participants in various components by State in fiscal year 1991. The numbers reveal a great deal of variation in the emphasis States place on different JOBS program components. Table 10-7 examines the average monthly expenditures in various components of the JOBS program by State. This table shows a considerable degree of variation among States in the amount of money spent on individual JOBS components. TABLE 10-6.--AVERAGE MONTHLY PERCENTAGE OF JOBS PARTICIPANTS BY STATE AND COMPONENT--FISCAL YEAR 1992 ------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------ Self Total Job High Assigned init. Vocational Job Job Job Assess Job Work State participants entry school higher higher training skills readiness develop emp. search OJT supp. CWEP Other ed. ed. training plan ------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------ Alabama............................................... 5,472 7.1 29.0 1.6 10.4 5.4 5.9 2.3 0.2 27.4 9.7 0.3 0.0 0.0 0.9 Alaska................................................ 596 1.8 18.6 11.7 7.9 0.0 3.2 39.6 0.0 9.2 6.9 0.7 0.0 0.0 0.3 Arizona............................................... 2,336 9.1 19.1 3.7 4.6 7.1 8.6 0.6 1.3 11.6 30.7 0.7 0.0 2.8 0.0 Arkansas.............................................. 3,660 0.0 22.2 8.8 0.0 10.9 7.8 6.4 0.0 10.8 4.8 0.5 0.0 0.0 27.9 California............................................ 60,567 6.5 43.3 1.3 7.3 6.4 11.3 5.1 0.9 14.5 2.7 1.1 0.0 3.2 0.0 Colorado.............................................. 5,183 6.8 18.4 16.1 5.9 2.0 8.4 3.6 0.0 16.0 8.8 0.4 0.8 12.8 0.0 Connecticut........................................... 5,714 7.0 36.1 8.7 11.1 9.7 5.2 5.3 1.8 6.0 5.4 1.8 0.0 0.0 0.1 Delaware.............................................. 722 3.2 7.5 0.8 11.8 3.6 2.2 0.0 0.3 51.4 5.5 0.1 0.0 0.0 13.6 District of Col....................................... 2,424 1.2 11.9 0.0 0.0 8.6 10.2 1.0 15.4 36.1 4.5 0.1 0.0 1.9 8.8 Florida............................................... 13,750 14.4 20.9 7.0 0.6 2.0 0.3 1.3 0.0 14.7 37.1 0.2 0.0 0.4 1.0 Georgia............................................... 9,077 6.5 29.0 20.7 8.4 2.0 3.0 6.0 0.1 12.8 9.0 0.4 0.0 2.0 0.3 Guam\1\............................................... ............ ...... ...... ........ ...... .......... ........ ......... ....... ...... ...... ...... ...... ...... ...... Hawaii................................................ 252 2.0 32.9 27.0 1.6 0.0 4.4 18.3 0.4 6.7 0.0 0.0 0.0 5.6 1.2 Idaho................................................. 726 9.1 16.3 3.2 9.9 12.5 11.6 10.3 0.4 14.9 4.8 0.4 0.0 0.0 6.6 Illinois.............................................. 19,180 2.8 25.5 16.2 1.7 1.6 9.7 7.4 0.0 5.7 20.3 0.0 0.0 1.5 7.6 Indiana............................................... 4,428 7.0 31.9 10.3 8.3 14.4 2.9 8.3 1.2 9.9 3.1 0.1 0.0 2.7 0.0 Iowa.................................................. 5,667 1.6 15.0 10.9 3.6 1.4 9.1 6.2 0.0 40.3 8.4 0.1 0.0 0.2 3.2 Kansas................................................ 3,520 8.9 29.5 14.2 13.0 6.5 3.3 2.2 1.1 8.3 4.4 0.4 0.1 4.3 2.9 Kentucky.............................................. 2,761 0.0 26.7 8.1 37.2 5.7 8.0 3.8 0.0 3.9 3.5 0.3 0.0 0.7 0.0 Louisiana............................................. 5,624 3.6 41.9 2.2 2.3 8.7 17.8 4.1 0.0 13.6 5.1 0.5 0.0 0.4 0.0 Maine................................................. 2,261 3.8 18.1 22.9 0.1 0.2 1.5 12.4 0.5 32.2 6.9 0.0 0.0 0.0 1.5 Maryland.............................................. 6,219 6.6 16.1 3.4 1.7 1.4 11.1 15.5 17.4 17.2 4.7 0.3 0.0 0.0 4.5 Massachusetts......................................... 16,910 25.9 14.7 10.3 0.0 0.0 17.2 3.4 0.6 7.4 20.4 0.0 0.1 0.0 0.0 Michigan.............................................. 41,941 7.1 20.5 0.1 24.2 15.4 3.3 3.1 2.4 15.3 4.6 0.2 0.0 3.9 0.0 Minnesota............................................. 9,785 6.6 16.1 14.9 0.0 0.0 29.5 3.1 6.8 4.6 17.9 0.5 0.0 0.0 0.0 Mississippi........................................... 1,852 5.2 39.1 5.5 5.4 1.9 11.1 4.6 0.9 12.1 8.0 1.0 0.3 3.7 1.2 Missouri.............................................. 3,914 3.6 19.6 7.0 12.1 10.0 11.7 3.0 0.0 17.0 11.9 0.3 0.0 0.1 3.6 Montana............................................... 2,124 24.1 9.1 6.6 2.7 1.4 4.4 6.7 1.6 10.5 17.9 1.3 0.0 8.1 3.6 Nebraska\1\........................................... ............ ...... ...... ........ ...... .......... ........ ......... ....... ...... ...... ...... ...... ...... ...... Nevada................................................ 921 6.4 23.1 0.0 2.7 11.3 5.4 1.1 0.0 21.6 9.1 0.1 0.0 19.1 0.0 New Hampshire......................................... 1,414 0.8 22.2 40.8 1.4 0.0 3.7 2.8 0.0 0.8 20.4 0.1 0.0 0.0 7.0 New Jersey............................................ 13,609 5.6 29.0 6.6 0.2 0.0 18.0 6.3 0.0 24.2 7.7 0.1 0.2 1.9 0.3 New Mexico............................................ 4,970 6.9 22.9 17.3 1.8 2.9 14.1 0.0 0.0 16.9 12.5 0.1 0.0 4.2 0.5 New York.............................................. 32,796 2.6 22.3 5.7 7.6 35.2 5.0 4.5 4.5 2.4 0.3 0.3 0.7 4.4 0.0 North Carolina........................................ 6,895 5.3 25.3 17.9 7.4 2.0 7.0 12.0 0.0 18.0 1.6 0.2 0.0 3.3 0.0 North Dakota.......................................... 2,494 17.2 8.1 23.3 2.4 0.6 12.9 20.6 0.0 9.5 3.3 0.5 0.0 2.3 0.0 Ohio.................................................. 46,620 2.8 28.0 16,5 1.2 0.2 3.8 1.9 1.2 21.4 7.2 0.0 0.1 15.6 0.0 Oklahoma.............................................. 9,478 8.1 18.8 4.4 34.4 6.1 8.9 1.9 0.1 3.2 4.3 0.0 0.0 8.6 1.2 Oregon................................................ 7,408 11.9 17.0 0.0 0.0 5.8 9.2 9.5 0.0 17.3 25.6 0.0 0.0 0.0 3.8 Pennsylvania.......................................... 21,435 3.7 17.3 4.6 2.2 0.0 44.6 10.4 0.0 9.8 4.2 0.1 0.0 2.7 0.4 Puerto Rico........................................... 3,532 5.3 6.7 9.4 7.0 13.3 13.3 2.2 1.6 36.8 1.5 0.7 0.1 0.0 2.5 Rhode Island.......................................... 2,978 2.7 20.1 22.6 29.3 1.7 16.9 1.2 0.3 3.0 1.5 0.0 0.2 0.0 0.5 South Carolina........................................ 8,533 6.7 28.8 4.9 1.3 0.8 6.8 1.8 0.0 10.8 34.9 0.3 0.0 0.0 3.2 South Dakota.......................................... 880 18.0 8.3 13.0 24.0 10.0 0.9 0.8 0.0 3.0 12.4 1.0 0.0 8.7 0.0 Tennessee............................................. 4,810 4.8 36.3 19.3 6.5 0.5 9.1 5.4 0.0 13.8 2.1 0.8 0.0 0.2 1.1 Texas................................................. 20,641 7.5 18.6 2.8 3.1 4.5 3.3 3.2 0.0 46.7 9.9 0.4 0.0 0.0 0.0 Utah.................................................. 6,394 32.3 12.0 11.8 2.4 2.1 10.4 3.6 0.0 14.7 7.0 0.0 0.0 3.0 0.0 Vermont............................................... 2,012 0.0 11.6 24.7 0.8 0.0 4.7 4.0 0.0 7.7 38.6 0.3 0.0 7.6 0.0 Virgin Islands........................................ 547 3.7 29.3 0.0 0.7 0.7 1.1 0.0 1.8 13.7 40.8 0.0 0.0 5.5 2.7 Virginia.............................................. 8,118 6.0 23.7 14.8 4.2 2.3 7.7 3.4 8.0 9.5 10.5 0.2 0l8 0.0 9.3 Washington............................................ 17,054 6.1 17.5 15.2 7.0 2.6 7.6 1.4 0.1 29.4 10.9 0.4 0.3 0.3 1.1 West Virginia......................................... 6,763 7.3 6.4 2.6 2.9 0.5 0.0 0.9 0.1 69.2 2.1 0.3 0.0 4.5 3.1 Wisconsin............................................. 18,578 15.1 15.9 7.9 16.5 0.0 3.2 4.2 0.0 10.2 14.8 0.5 1.0 3.3 7.2 Wyoming............................................... 422 5.7 5.0 7.3 12.3 0.2 3.8 4.7 0.0 11.4 18.2 0.9 0.0 0.0 30.3 ----------------------------------------------------------------------------------------------------------------------------------------- U.S. total...................................... 483,417 7.2 24.5 8.2 6.7 6.3 9.5 4.5 1.4 16.5 9.4 0.4 0.1 3.7 1.5 ------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------ \1\Data not reported. TABLE 10-7.--PERCENTAGE DISTRIBUTION OF JOBS IV-F COMPONENT/ACTIVITY EXPENDITURES (STATE AND FEDERAL)\1\ [Fiscal year 1992; in percent] ------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------ Assess./ Job Self- Self- Total State employ. Education Job Job Post Job OJT Work CWEP Other dvpmnt/ initiated initiated component plan skills readiness secondary search supp. placemnt education training expenditures ------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------ Alabama.............................................. 38 27 10 5 3 7 (\4\) 0 0 4 1 3 2 $7,427,743 Alaska............................................... 26 14 6 8 6 6 1 0 0 17 2 2 1 1,443,703 Arizona.............................................. 17 69 9 0 0 5 0 0 0 0 0 0 0 1,726,660 Arkansas............................................. 38 20 2 8 3 5 0 0 0 14 0 6 4 6,063,886 California........................................... 27 30 13 7 0 3 1 0 4 0 5 0 0 114,205,782 Colorado............................................. 0 3 0 0 62 0 23 0 11 0 0 0 0 1,100,054 Connecticut.......................................... (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) Delaware............................................. 37 16 12 1 11 6 (\4\) 0 1 0 0 16 0 1,978,916 District of Columbia................................. 21 12 11 1 0 11 (\4\) 0 1 24 14 1 5 3,798,960 Florida.............................................. 30 22 6 7 1 17 1 (\4\) (\4\) 5 10 1 (\4\) 20,877,410 Georgia.............................................. 2 36 4 5 47 3 (\4\) 0 2 0 1 0 0 4,497,555 Hawaii............................................... 16 24 4 11 42 (\4\) 1 0 2 0 0 0 0 142,879 Idaho................................................ 36 18 1 21 0 10 0 0 0 11 3 1 0 3,015,168 Illinois............................................. 14 38 10 4 16 10 (\4\) 0 2 3 0 2 0 23,887,515 Indiana.............................................. 30 17 24 11 5 5 1 0 (\4\) 4 4 0 0 3,550,914 Iowa................................................. 28 12 18 7 20 8 0 0 1 5 1 0 0 7,839,488 Kansas\3\............................................ 20 80 0 0 0 0 0 0 0 0 0 0 0 1,402,625 Kentucky............................................. 29 33 15 7 6 6 1 (\4\) 1 0 0 1 0 6,207,953 Louisiana............................................ 16 48 12 8 1 4 (\4\) 0 (\4\) 6 4 0 0 11,281,195 Maine................................................ 7 27 2 9 37 8 1 0 0 2 5 (\4\) (\4\) 4,361,927 Maryland............................................. 35 18 16 16 3 3 (\4\) 0 0 2 4 0 0 15,717,482 Massachusetts........................................ 17 27 29 5 3 19 0 (\4\) 0 0 0 0 0 28,250,889 Michigan............................................. 14 3 28 23 0 16 2 0 0 0 14 0 0 2,634,092 Minnesota............................................ 16 22 28 4 13 16 1 0 (\4\) 0 0 0 0 13,022,486 Mississippi.......................................... 52 23 6 3 3 6 4 0 0 2 0 2 0 2,702,526 Missouri............................................. 46 6 5 10 4 11 (\4\) 0 (\4\) 2 2 8 7 7,391,960 Montana.............................................. 16 12 14 17 4 19 2 0 12 0 0 2 1 2,280,659 Nebraska............................................. 4 16 3 52 6 18 0 0 0 1 0 1 0 3,642,160 Nevada............................................... 20 22 19 2 0 8 2 0 20 0 0 1 6 1,301,326 New Hampshire........................................ 4 21 1 25 20 11 6 0 0 9 3 0 0 1,307,100 New Jersey........................................... 13 27 23 11 0 22 (\4\) 1 1 2 1 0 0 15,047,965 New Mexico........................................... 6 28 19 6 17 4 (\4\) 0 (\4\) 4 0 4 3 1,168,240 New York............................................. 38 26 5 7 4 2 1 1 6 0 8 1 2 76,922,828 North Carolina....................................... 7 34 10 12 21 1 1 0 3 0 0 12 0 24,659,100 North Dakota......................................... 40 6 12 11 10 5 6 0 (\4\) 0 0 (\4\) 0 986,193 Ohio................................................. 27 14 4 4 8 11 (\4\) (\4\) 8 6 5 2 0 68,673,814 Oklahoma............................................. 16 26 10 5 2 11 (\4\) 1 0 14 13 (\4\) 1 3,348,017 Oregon............................................... 8 25 8 27 0 26 1 0 0 4 0 0 (\4\) 10,819,307 Pennsylvania......................................... 6 22 40 10 6 6 1 0 3 1 6 0 0 39,922,098 Rhode Island......................................... 7 26 15 4 28 5 (\4\) 12 0 0 2 1 (\4\) 5,226,935 South Carolina....................................... 25 26 3 10 4 11 0 0 0 13 8 1 (\4\) 5,016,687 South Dakota......................................... 69 2 2 1 8 11 2 0 4 0 0 2 0 794,221 Tennessee............................................ 15 45 9 7 16 2 1 1 (\4\) 0 0 1 5 5,644,179 Texas................................................ 27 30 3 11 4 9 (\4\) 0 0 0 5 5 6 41,745,481 Utah................................................. 25 14 12 8 8 24 (\4\) 0 0 6 3 0 0 3,129,151 Vermont.............................................. 0 100 0 0 0 0 0 0 0 0 0 0 0 87,681 Virginia............................................. 21 30 12 6 10 10 (\4\) 1 0 9 0 1 0 9,648,182 Washington........................................... 37 16 9 3 12 8 1 1 (\4\) 3 3 4 2 18,750,258 West Virginia........................................ 20 29 1 26 0 14 4 0 5 0 0 1 0 9,975,705 Wisconsin............................................ 34 14 5 10 9 16 2 2 6 (\4\) 2 1 (\4\) 25,805,311 Wyoming.............................................. 2 12 8 2 18 16 (\4\) 0 0 21 0 18 2 2,212,815 Guam................................................. 87 2 (\4\) 6 3 (\4\) 2 0 0 0 0 0 0 265,161 Puerto Rico.......................................... (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) (\2\) Virgin Islands....................................... 59 15 26 0 0 0 0 0 0 0 0 0 0 187,472 ------------------------------------------------------------------------------------------------------------------------------------------ United States.................................. 25 25 12 10 6 8 1 (\4\) 3 3 4 2 1 673,097,814 ------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------ \1\These expenditures include: (1) actual IV-F administrative expenditures associated with program components/activities and supportive services (excluding child care) and (2) actual program costs (excluding supportive services program costs). \2\State did not report data for any quarter. \3\State did not report any data for the fourth quarter. \4\Less than .5 percent. Source: DHHS/Administration for Children and Families/Office of Family Assistance. Table 10-8 examines State level of effort with respect to participation in the JOBS program. The first four columns present data that the States reported to DHHS. Column 5 shows the percentage of the AFDC caseload that is not exempt from JOBS participation requirements. As with many of the previous tables there is a lot of variation among States. In Mississippi only 20 percent of AFDC families were subject to JOBS participation requirements (7 percent in Hawaii and 20 percent in Tennessee), whereas in Montana 90 percent of AFDC families were required to participate in the JOBS program. Column 6 displays countable JOBS participants (i.e., those who met the 20-hour rule requirement) as a percentage of persons required to participate in the JOBS program. Although column 6 closely approximates the JOBS participation rate for each State, Federal law specifies the exact methodology States must use to derive their participation rates. This methodology is more complex than simply dividing the number of countable JOBS participants by the number of non-exempt AFDC adult recipients (which is how column 6 was calculated). The reader should use the data presented in table 10-8 with caution. These data have not been reviewed for accuracy and appear to overstate participation in the JOBS program, given that States have testified that they may have trouble meeting the 15 percent participation rate in fiscal year 1994 and the 20 percent rate in fiscal year 1995. According to a May 1993 report by the General Accounting Office (GAO), ``JOBS participation rates data are not accurate nor comparably derived across States.'' The GAO report asserts that DHHS officials have been aware of the participation rate data problems in the four States surveyed by GAO and in at least 20 other States as well. The report says that DHHS officials responded that inadequate resources have prevented them from validating the processes States use to ensure the accuracy and completeness of the State's data. JOBS: A Status Report Federal law requires that States enroll at least 11 percent of non-exempt AFDC families in their JOBS program during fiscal year 1992 and fiscal year 1993 (up from 7 percent in fiscal year 1991). In addition, effective October 1, 1992, States were required to implement the JOBS program statewide. Approximately 16 percent of adult non-exempt AFDC recipients were counted as participants of the JOBS program during fiscal year 1992 (see table 10-8). As of May 1993, information from DHHS indicates that all jurisdictions have implemented the JOBS program statewide. To meet these new requirements, most States had to expand their JOBS program for fiscal year 1993. Some 34 States increased funding for their JOBS program; 6 States reduced funding (Arkansas, Connecticut, Maryland, Massachusetts, Nebraska, and Wyoming); and 4 States froze funding (Delaware, Guam, Idaho, and Minnesota). To ``draw down'' the $1 billion available in Federal funding for the JOBS program, States must provide matching funds. Due to tight State budgets, only about 70 percent of the eligible Federal funds were claimed by States in fiscal year 1993. Only 16 States claimed their full allocation of Federal JOBS funds. TABLE 10-8.--JOBS PARTICIPATION: STATE LEVEL OF EFFORT, FISCAL YEAR 1992 [Data based on monthly averages from October 1991-September 1992] Total adult recipients Total JOBS participants Countable JOBS ---------------------------------------------------------------------------- Percent of AFDC participants, as State adults mandatory a percent of AFDC JOBS Mandatories Active Countable for JOBS mandatories (1) (2) (3) (4) (5) (6) -------------------------------------------------------------------------------------------------------------------------------------------------------- Alabama\1\............................ 41,219 10,721 5,472 3,188 26 30 Alaska................................ 11,676 2,577 596 452 22 18 Arizona\1\............................ 54,593 13,524 2,336 1,491 25 11 Arkansas.............................. 21,690 7,933 3,680 1,928 37 24 California\2\......................... 704,723 276,199 60,687 33,991 39 12 Colorado\1\........................... 40,875 28,531 5,193 4,765 70 17 Connecticut........................... 51,902 31,729 5,714 7,512 61 24 Delaware.............................. 8,525 3,496 722 638 41 18 District of Columbia.................. 17,827 9,032 2,424 1,054 51 12 Florida\1\............................ 184,262 48,315 13,750 7,488 26 15 Georgia\1\............................ 119,752 46,438 9,077 5,751 39 12 Guam.................................. 1,325 375 NR 13 28 3 Hawaii\1\............................. 16,738 1,124 252 113 7 10 Idaho\1\.............................. 6,450 1,346 726 522 21 39 Illinois.............................. 215,774 122,492 19,180 13,780 57 11 Indiana\1\............................ 66,222 26,031 4,426 1,578 39 6 Iowa.................................. 35,559 11,374 5,687 1,309 32 12 Kansas................................ 27,962 15,542 3,520 3,117 56 20 Kentucky\1\........................... 82,362 19,502 2,761 3,962 24 20 Louisiana\1\.......................... 78,261 25,727 5,624 3,314 33 13 Maine................................. 25,764 14,269 2,261 1,296 55 9 Maryland.............................. 71,996 36,285 6,219 3,670 50 10 Massachusetts......................... 101,762 50,525 16,910 16,323 50 32 Michigan.............................. 233,293 130,704 41,941 22,009 56 17 Minnesota............................. 66,722 19,520 9,785 3,181 29 16 Mississippi\1\........................ 49,608 9,711 1,852 1,289 20 13 Missouri\1\........................... 86,353 24,623 3,914 3,441 29 14 Montana\1\............................ 11,495 10,339 2,124 1,772 90 17 Nebraska.............................. 15,564 6,338 NR 4,891 41 77 Nevada\1\............................. 9,851 2,732 921 398 28 15 New Hampshire......................... 10,358 4,145 1,414 1,027 40 25 New Jersey............................ 111,740 62,316 13,609 8,890 56 14 New Mexico\1\......................... 30,844 8,673 4,970 2,254 28 26 New York.............................. 374,431 169,721 32,798 24,549 45 14 North Carolina........................ 103,944 39,980 6,895 5,543 38 14 North Dakota.......................... 6,404 2,369 2,494 725 37 31 Ohio.................................. 260,048 139,504 46,620 26,280 54 19 Oklahoma.............................. 42,866 30,057 8,478 9,634 70 32 Oregon................................ 39,823 19,215 7,408 4,123 48 21 Pennsylvania.......................... 197,360 91,265 21,435 12,101 46 13 Puerto Rico\1\........................ 62,068 18,450 3,532 3,484 30 19 Rhode Island.......................... 20,477 12,879 2,978 1,784 63 14 South Carolina........................ 39,979 13,922 8,533 2,289 35 16 South Dakota.......................... 6,017 2,067 860 519 34 25 Tennessee............................. 86,605 17,750 4,910 3,485 20 20 Texas\1\.............................. 229,610 104,537 20,841 12,026 46 12 Utah.................................. 17,346 14,601 6,394 5,074 84 35 Vermont............................... 11,290 5,766 2,012 820 51 14 Virginia.............................. 59,443 21,612 8,118 3,855 36 18 Virgin Islands........................ 966 380 547 99 39 26 Washington............................ 97,557 34,876 17,054 10,889 36 31 West Virginia......................... 45,256 23,327 6,763 3,017 52 13 Wisconsin............................. 79,301 41,811 16,578 13,380 53 32 Wyoming............................... 6,332 2,174 422 675 34 31 ----------------------------------------------------------------------------------------------------------------- Total........................... 4,400,166 1,888,450 483,417 310,754 43 16 \1\JOBS Program is not statewide as of June 3, 1992. \2\State approved to use a sample to estimate the number of AFDC recipients required to participate in JOBS for fiscal year 1992. NR--Data not reported. Note.--These data should be used with caution. The first four columns from which the other columns are derived, represent State data that were not reviewed or audited for accuracy. Source: Administration for Children and Families, DHHS. TITLE IV-A EMERGENCY ASSISTANCE The Social Security Act permits States, at their option, to operate an Emergency Assistance program for needy families with children (whether or not eligible for AFDC) if the assistance is necessary to avoid the destitution of the child or to provide living arrangements in a home for the child. The statute authorizes 50 percent Federal matching for emergency assistance furnished for a period not in excess of 30 days in any 12-month period. Regulations state that Federal matching is available for emergency assistance authorized by the State during one period of 30 consecutive days in any 12 consecutive months, including payments which are to meet needs which arose before the 30-day period or are for such needs as rent which extend beyond the 30-day period. In fiscal year 1993, 40 jurisdictions operated an Emergency Assistance program. Table 10-9 presents the average monthly caseload and total fiscal year payments for jurisdictions participating in the program. Table 10-10 pro