Section 12. Child Care INTRODUCTION Child care has been the focus of heightened attention in recent years. The most significant factor influencing this trend has been the dramatic increase in the labor force participation of mothers. Currently, in a majority of American families with children--even those with very young children-- the mother is in the labor force. Increased interest in child care also derives from concerns that some mothers are kept out of the labor force because of child care problems. Poor single mothers in pursuit of greater self-sufficiency for their families may be especially vulnerable. Though child care is viewed primarily as a support for families that enables mothers to work outside of the home, it is also often regarded as a potential source of enrichment services for children aimed at enhancing their development. The demand for preschool services with an early childhood development focus has increased among mothers working both within and outside of the home. Improving the availability of these services to poor children through programs such as Head Start is of particular concern since research has found that these children may especially benefit from early intervention. Concerns that child care may be in short supply, not of good enough quality, or too expensive for many families escalated during the late 1980s into a national debate over the nature and extent of the Nation's child care problems and what, if any, Federal interventions would be appropriate. The debate culminated in the enactment of legislation in 1990 that expanded Federal support for child care by establishing two new State child care grant programs. The programs--the Child Care and Development Block Grant and the At-Risk Child Care program--were enacted as part of the Omnibus Budget Reconciliation Act of 1990 (P.L. 101-508). These new programs were preceded by enactment of a major welfare reform initiative, the Family Support Act of 1988 (P.L. 100-485), which authorized expanded child care assistance for welfare families and families leaving welfare. These new Federal child care initiatives reflect a significant shift in the emphasis of the child care policy debate, from discussions about whether the Federal Government should have an expanded role in child care to questions about what that role should be. Issues currently receiving attention include questions about how the new programs are being implemented at the Federal and State levels, what effect the programs will have on improving the availability and quality of child care, and how Federal child care programs will be integrated and/or coordinated with each other and State and local programs. In addition, the emerging debate on welfare reform has focused interest on the child care needs of families transitioning off of welfare, and of other low-income working families. This chapter provides background information on the major indicators of the demand for and supply of child care, and the current Federal role in child care including a summary description of the major Federal programs that currently fund child care services. LABOR FORCE PARTICIPATION OF MOTHERS The dramatic increase in the labor force participation of mothers is commonly regarded as the most significant factor fueling the increased demand for child care services. A person is defined as participating in the labor force if he or she is working or seeking work. As shown in table 12-1, in 1947, just following World War II, slighty over one-fourth of all mothers with children between the ages of 6 and 17 were in the labor force. In 1993 three-quarters of such mothers were labor force participants. The increased labor force participation of mothers with younger children has also been dramatic. In 1947, it was unusual to find mothers with a preschool-age child in the labor force (only about 12 percent of all mothers with children under the age of 6 were in the labor force at that time). In 1993, nearly 60 percent of mothers with preschool-age children were in the labor force, a rate nearly 5 times higher than in 1947. Women with infant children have become increasingly engaged in the labor market as well. Today, over half of all mothers whose youngest child is under age 2 are in the labor market, while in 1975 less than one-third of all such mothers were labor force participants. The rise in the number of single parent families has also contributed to increased demand for child care services. Single mothers with children represent a greater share of all families with children today than in the past; they also represent a larger share of the labor force today than ever before. Compared to married mothers with children, the labor force participation of single mothers (especially divorced mothers) has always been high. In recent years, however, married mothers with young children have especially increased their labor involvement, with rates of labor force participation approaching, and in some cases exceeding, those of single mothers (see table 12-2). Mothers' attachment to the labor force differs depending upon the age of their youngest child and marital status, as tables 12-2 and 12-3 show. Table 12-3 provides a detailed breakdown of the labor force participation of women for March 1993, by marital status and the age of the youngest child. Among those with children under 18, divorced women have the highest labor force participation rates, followed by married and separated women. Widowed and never-married women have lower labor force participation rates. As this table illustrates, no matter what the marital status of the woman, labor force participation rates tend to increase as the age of the youngest child increases. This is most pronounced for never-married women, whose participation rates exceed those of all but divorced women when their youngest child is between 14 and 17 years of age. Among all women with children under 18, 54 percent of those with a child under 3 participate, 64 percent of those whose youngest child is between 3 and 5 participate, and 75 percent of those whose youngest child is between 6 and 17 participate. TABLE 12-1.--LABOR FORCE PARTICIPATION RATES OF WOMEN, BY PRESENCE AND AGE OF YOUNGEST CHILD, SELECTED YEARS, 1947-93 ---------------------------------------------------------------------------------------------------------------- With children under age 18 -------------------------------------------- No Under age 6 children Age 6 -------------------------- under 18 Total to 17 Under 3 Under 2 only Total ---------------------------------------------------------------------------------------------------------------- April 1947............................................... 29.8 18.6 27.3 12.0 N/A N/A April 1950............................................... 31.4 21.6 32.8 13.6 N/A N/A April 1955............................................... 33.9 27.0 38.4 18.2 N/A N/A March 1960............................................... 35.0 30.4 42.5 20.2 N/A N/A March 1965............................................... 36.5 35.0 45.7 25.3 21.4 N/A March 1970............................................... 42.8 42.4 51.6 32.2 27.3 N/A March 1975............................................... 45.1 47.3 54.8 38.8 34.1 31.5 March 1980............................................... 48.1 56.6 64.3 46.8 41.9 39.2 March 1981............................................... 48.7 58.1 65.5 48.9 44.3 42.0 March 1982............................................... 48.6 58.5 65.8 49.9 45.6 43.3 March 1983............................................... 48.7 58.9 66.3 50.5 46.0 44.5 March 1984............................................... 49.3 60.5 68.1 52.1 47.6 46.4 March 1985............................................... 50.4 62.1 69.9 53.5 49.5 48.0 March 1986............................................... 50.5 62.8 70.4 54.4 50.8 49.2 March 1987............................................... 50.5 64.7 72.0 56.7 52.9 51.9 March 1988............................................... 51.2 65.0 73.3 56.1 52.5 50.8 March 1989............................................... 51.9 65.7 74.2 56.7 52.4 51.7 March 1990............................................... 52.3 66.7 74.7 58.2 53.6 52.1 March 1991............................................... 52.0 66.6 74.4 58.4 54.5 53.8 March 1992............................................... 52.3 67.2 75.9 58.0 54.5 54.3 March 1993............................................... 52.1 66.9 75.4 57.9 53.9 54.2 ---------------------------------------------------------------------------------------------------------------- Source: Department of Labor, Bureau of Labor Statistics. TABLE 12-2.--LABOR FORCE PARTICIPATION RATES OF WOMEN WITH CHILDREN, BY MARITAL STATUS AND AGE OF YOUNGEST CHILD, MARCH OF SELECTED YEARS [In percent] -------------------------------------------------------------------------------------------------------------------------------------------------------- Percent 1960 1970 1980 1986 1987 1988 1989 1990 1991 1992 1993 increase, 1970-93 -------------------------------------------------------------------------------------------------------------------------------------------------------- All women with children.............................. \1\30. 4 \1\52. 9 56.6 62.8 64.7 65.0 65.7 66.7 66.6 67.2 66.9 26.5 Married women: Youngest under 6................................. 18.6 30.3 45.0 53.8 56.8 57.1 57.4 58.9 59.9 59.9 59.6 96.7 Youngest 6 or over............................... 39.0 49.2 61.8 68.4 70.6 72.5 73.4 73.6 73.6 75.4 74.9 52.2 Separated women: Youngest under 6................................. NA 45.4 52.2 57.4 55.1 53.0 54.9 59.3 52.2 55.7 52.1 14.8 Youngest 6 or over............................... NA 60.6 66.6 70.6 72.6 69.3 68.0 75.0 74.7 71.6 71.6 18.2 Divorced women: Youngest under 6................................. NA 63.3 68.3 73.8 70.5 70.1 66.3 69.8 68.5 65.9 68.1 7.6 Youngest 6 or over............................... NA 82.4 82.3 84.7 84.5 83.9 85.7 85.9 84.6 85.9 83.6 1.5 Never-married women: Youngest under 6................................. NA NA 44.1 47.5 49.9 44.7 48.9 48.7 48.8 45.8 47.4 NA Youngest 6 or over............................... NA NA 67.6 65.9 64.1 67.1 69.0 69.7 64.8 67.2 70.2 NA -------------------------------------------------------------------------------------------------------------------------------------------------------- \1\Excludes never-married women. Source: Department of Labor, Bureau of Labor Statistics. TABLE 12-3.--LABOR FORCE PARTICIPATION RATES OF WOMEN WITH CHILDREN UNDER 18, MARCH 1993, BY MARITAL STATUS AND AGE OF YOUNGEST CHILD ------------------------------------------------------------------------ Age of youngest child ------------------------------------------------ Under Under Under 3 to 6 to 6 to 14 to 3 6 18 5 13 17 17 ------------------------------------------------------------------------ All women with child under 18.............. 53.9 57.9 66.9 63.7 75.0 75.4 76.5 Married, spouse present 57.5 59.6 67.5 63.1 74.7 74.9 75.6 Divorced............... 62.9 62.1 79.1 71.7 83.7 83.6 83.2 Separated.............. 44.5 52.1 62.5 60.7 72.1 71.6 70.2 Widowed................ 47.2 50.4 58.4 50.4 49.4 60.5 71.6 Never-married.......... 39.2 47.4 54.4 64.2 68.0 70.2 79.8 ------------------------------------------------------------------------ Source: Department of Labor, Bureau of Labor Statistics. While there has been a substantial increase in the proportion of mothers in the labor force, the data can be misleading. Although 67 percent of mothers participated in the labor force in 1993, table 12-4 shows 46 percent worked full time and 16 percent worked part time. Another 4 percent were actively seeking a job. (Full time work is defined as 35 or more hours per week; part time work is defined as 34 hours or less.) Thirty-seven percent of mothers with children under age 6 worked full time, and 16 percent worked part time. As the table demonstrates, how much mothers work differs according to their marital status and the age of their children. Forty-six percent of married women with children worked full time; thus, over 50 percent either didn't work at all or worked part-time. Some 64 percent of all divorced mothers worked full time; 51 percent of divorced mothers with children under 6 worked full time. Only 33 percent of never-married mothers worked full time, and 11 percent worked part time. CHILD CARE ARRANGEMENTS USED BY WORKING MOTHERS Data are collected periodically by the Census Bureau on the types of child care arrangements used by families with working mothers. In using the data, note that they are derived from a survey in which mothers are asked about child care arrangements used by the family while the mother works. Because the survey asks about substitute maternal care (both paid and unpaid), it provides information on categories of care that generally are not considered child care (such as care provided by the father, even in cases where the father does not work at all, and school attendance). Further, the survey does not gather information on the child care arrangements used by the family while the father works. Though information is collected on the arrangements of families in which there is only a father present, it is considered too negligible to report. TABLE 12-4.--LABOR FORCE PARTICIPATION RATES OF MOTHERS BY FULL OR PART-TIME EMPLOYMENT STATUS, MARCH 1993\1\ [In percent] ------------------------------------------------------------------------ With children With children under 18 under 6 ------------------------------------------------------------------------ All mothers: Employed full time.................. 46 37 Employed part time.................. 16 16 Married, spouse present: Employed full time.................. 46 38 Employed part time.................. 18 17 Divorced: Employed full time.................. 64 51 Employed part time.................. 10 11 Never married: Employed full time.................. 33 26 Employed part time.................. 11 11 ------------------------------------------------------------------------ \1\Full-time workers work 35 hours or more per week, part-time workers work 1 to 34 hours a week. Source: U.S. Department of Labor, Bureau of Labor Statistics. The most recent Census Bureau statistics on child care arrangements in the United States are based on data collected for the period September to December 1991 (Fall 1991).\1\ These data indicate that the types of child care arrangements used by families while the mother works vary depending on the age of the child, as well as the mother's work schedule, marital status and family income level. Table 12-5 shows the distribution of primary child care arrangements provided for preschoolers (children under age 5) and school-age children (children ages 5 to 14 years), by marital status and mother's work schedule. ``Primary'' child care arrangement refers to the arrangement used most frequently during a typical work week. --------------------------------------------------------------------------- \1\``Who's Minding the Kids? Child Care Arrangements, Fall 1991'', U.S. Dept. of Commerce, Bureau of the Census, Series P 70-36, 1994. Data on child care arrangements of working mothers are based on the Survey of Income and Program Participation (SIPP). --------------------------------------------------------------------------- Families of preschoolers with working mothers rely more on care provided in an organized child care facility (25 percent), than on family day care (18 percent). Relative care is used for 24 percent of preschool children. Many families with young children do not rely on others for help with child care arrangements while the mother works, using parental care (29 percent), especially care by fathers (20 percent). Only 5 percent of families rely on care provided in the child's home by a nonrelative. Preschool children of part-time employed mothers are much less likely to be cared for at an organized child care facility or by a family day care provider, and more likely to be cared for by a parent, than children of full-time employed mothers. Children of employed single mothers are much more likely to be cared for by a relative than children of married mothers. TABLE 12-5.--PRIMARY CHILD CARE ARRANGEMENTS OF CHILDREN UNDER 15 WITH AN EMPLOYED MOTHER, BY MARITAL AND EMPLOYMENT STATUS OF THE MOTHER, FALL 1991 [In percent] ---------------------------------------------------------------------------------------------------------------- Mothers with children Mothers with children 5 to under 5 years 14 years -------------------------------------------------------- Age of child and type of arrangement Employed Employed Employed Employed Total full part Total full part time time time time ---------------------------------------------------------------------------------------------------------------- ALL MARITAL STATUSES -------------------------------------------------------- Children of employed mothers (in thousands)............ 9,854 6,188 3,666 21,220 14,646 6,574 Percent............................................ 100.0 100.0 100.0 100.0 100.0 100.0 Care in child's home................................... 15.7 15.2 16.6 4.0 4.4 3.1 By grandparent..................................... 7.2 6.5 8.3 1.2 1.7 0.3 By other relative.................................. 3.2 2.8 3.8 1.9 1.6 2.5 By nonrelative..................................... 5.3 5.9 4.5 0.9 1.2 0.3 Care in another home................................... 31.0 35.0 24.2 3.6 3.7 3.3 By grandparent..................................... 8.6 9.0 7.9 1.2 1.3 0.9 By other relative.................................. 4.5 5.4 2.9 1.0 0.9 1.1 By nonrelative\1\.................................. 17.9 20.6 13.3 1.4 1.5 1.3 Organized child care facilities........................ 24.6 29.9 15.7 81.1 83.9 75.1 Day/group care center.............................. 15.8 19.3 9.7 1.4 1.8 0.6 Nursery school/preschool........................... 7.3 8.5 5.2 0.5 0.5 0.5 Kindergarten/grade school.......................... 1.1 1.4 0.5 76.2 78.4 71.4 School-based activity.............................. 0.5 0.6 0.3 3.0 3.2 2.6 Parental care.......................................... 28.7 19.9 43.5 8.6 5.3 15.9 By father.......................................... 20.0 14.8 28.9 6.6 4.1 12.2 By mother at work\2\............................... 8.7 5.2 14.6 2.0 1.2 3.7 Child cares for self................................... ...... ........ ........ 2.7 2.7 2.5 -------------------------------------------------------- MARRIED, HUSBAND PRESENT -------------------------------------------------------- Children of employed mothers (in thousands)............ 8,048 4,917 3,131 16,625 10,975 5,650 Percent............................................ 100.0 100.0 100.0 100.0 100.0 100.0 Care in child's home................................... 13.7 12.6 15.4 2.9 3.3 3.5 By grandparent..................................... 5.6 5.2 6.4 0.9 1.4 ........ By other relative.................................. 2.5 1.5 4.1 1.4 1.2 1.9 By nonrelative..................................... 5.5 5.9 4.9 0.5 0.7 0.1 Care in another home................................... 29.5 34.7 21.4 2.5 2.7 2.0 By grandparent..................................... 8.1 9.1 6.6 0.9 1.1 0.5 By other relative.................................. 4.2 5.6 2.2 0.6 0.6 0.5 By nonrelative\1\.................................. 17.1 20.0 12.6 1.0 1.0 1.0 Organized child care facilities........................ 24.1 29.7 15.3 81.8 84.6 76.2 Day/group care center.............................. 15.6 19.8 9.1 1.5 2.1 0.3 Nursery school/preschool........................... 7.1 8.0 5.7 0.5 0.5 0.5 Kindergarten/grade school.......................... 0.8 1.1 0.4 76.5 78.4 72.9 School-based activity.............................. 0.6 0.8 0.2 3.3 3.7 2.4 Parental care.......................................... 32.8 23.1 48.0 10.9 7.1 18.3 By father.......................................... 22.9 17.0 32.4 8.4 5.5 14.0 By mother at work\2\............................... 9.8 6.1 15.6 2.5 1.6 4.3 Child cares for self................................... ...... ........ ........ 2.0 2.2 1.5 -------------------------------------------------------- ALL OTHER MARITAL STATUSES\3\ -------------------------------------------------------- Children of employed mothers (in thousands)............ 1,806 1,270 536 4,595 3,671 924 Percent............................................ 100.0 100.0 100.0 100.0 100.0 100.0 Care in child's home................................... 24.6 25.0 23.9 8.2 7.8 11.7 By grandparent..................................... 14.1 11.8 19.4 2.3 2.4 2.2 By other relative.................................. 6.0 7.7 2.2 3.5 2.8 6.3 By nonrelative..................................... 4.5 5.5 2.2 2.4 2.6 1.5 Care in another home................................... 37.6 36.4 40.5 7.4 6.5 11.3 By grandparent..................................... 10.7 8.6 15.7 2.1 1.8 3.6 By other relative.................................. 5.6 5.0 6.9 2.3 1.7 4.7 By nonrelative\1\.................................. 21.3 22.8 17.7 3.0 3.0 3.1 Organized child care facilities........................ 27.0 30.8 18.1 78.9 81.5 68.4 Day/group care center.............................. 16.3 17.6 13.4 1.2 0.9 2.3 Nursery school/preschool........................... 8.1 10.6 2.4 0.5 0.5 0.6 Kindergarten/grade school.......................... 2.2 2.6 1.1 75.1 78.5 61.8 School-based activity.............................. 0.3 ........ 1.1 2.0 1.6 3.7 Parental care.......................................... 10.7 7.9 17.5 0.3 ........ 1.6 By father.......................................... 7.0 6.3 9.0 0.3 ........ 1.6 By mother at work\2\............................... 3.7 1.6 8.6 ....... ........ ........ Child cares for self................................... ...... ........ ........ 5.1 4.2 8.7 ---------------------------------------------------------------------------------------------------------------- \1\Care in another's home by a nonrelative is known as ``family day care.'' \2\Includes women working at home or away from home. \3\Includes married, husband absent (including separated), widowed, divorced, and never married women. Source: Derived from ``Who's Minding the Kids? Child Care Arrangements: Fall 1991,'' U.S. Department of Commerce, Bureau of the Census, Series P 70-36, 1994. TABLE 12-6.--AFTER-SCHOOL CHILD CARE ARRANGEMENTS USED BY EMPLOYED MOTHERS FOR CHILDREN 5-14, FALL 1991 ------------------------------------------------------------------------ Number (in Type of arrangement thousands) Percent ------------------------------------------------------------------------ Total children............................. 21,220 100.0 ---------------------- Care in child's home............................. 2,359 11.2 By grandparent............................... 616 2.9 By other relative............................ 1,222 5.8 By nonrelative............................... 521 2.5 Care in another home............................. 2,647 12.5 By grandparent............................... 961 4.5 By other relative............................ 543 2.6 By nonrelative\1\................................ 1,143 5.4 Organized child care facilities.................. 2,105 9.9 Day/group care center........................ 906 4.3 Nursery school/preschool..................... 117 0.5 School-based activity........................ 1,082 5.1 Parental care.................................... 3,225 15.2 By father.................................... 2,607 12.3 By mother at work\2\......................... 618 2.9 Child cares for self......................... 1,562 7.4 No care mentioned................................ 9,322 43.9 ------------------------------------------------------------------------ \1\Care in another home by a nonrelative is known as a ``family day care.'' \2\Includes women working at home or away from home. Source: Derived from ``Who's Minding the Kids? Child Care Arrangements: Fall 1991,'' Bureau of the Census, 1994. Table 12-5 also illustrates that 76 percent of school-age children are in grade school or kindergarten during most of the hours their mothers work. Though not generally regarded as a form of child care, school is reflected in this table because it is the ``primary'' occupation of these children during their mothers' working hours. The Census Bureau notes that the remaining 24 percent of school-age children are in school, but not during the majority of hours their mothers work. Table 12-6 shows the types of after school arrangements used for school-age children by working mothers, as well as cases where there were no arrangements used at all. A total of 1.6 million school-age children (7.4 percent of children age 5- 14) were reported to be in ``self-care'' or to be unsupervised by an adult for some time while their mothers were working. The Census Bureau study found that 3.7 percent of 5-11 year olds and 16.8 percent of 12-14 year olds were ``latch-key'' children. It is not known if the children in the ``no care mentioned'' category were unsupervised, or if other factors may account for their not being reported in a child care arrangement, such as travel time from school. TABLE 12-7.--PRIMARY CHILD CARE ARRANGEMENTS USED BY EMPLOYED MOTHERS FOR CHILDREN UNDER 5, BY POVERTY STATUS OF THE MOTHERS, FALL 1991 ------------------------------------------------------------------------ All marital statuses Total Poor\1\ Not poor ------------------------------------------------------------------------ Total children of employed mothers (in thousands)............................ 9,854 977 8,811 Percent................................ 100.0 100.0 100.0 Care in child's home................... 15.7 19.0 15.4 By grandparent..................... 7.2 8.1 7.1 By other relative.................. 3.2 6.7 2.8 By nonrelative..................... 5.3 4.2 5.5 Care in another home................... 31.0 23.7 31.7 By grandparent..................... 8.6 8.2 8.5 By other relative.................. 4.5 4.7 4.5 By nonrelative\2\.................. 17.9 10.8 18.7 Organized child care facilities........ 24.6 21.0 25.1 Day/group care center.............. 15.8 14.8 16.0 Nursery school/preschool........... 7.3 3.6 7.6 Kindergarten/grade school.......... 1.1 0.6 1.0 School-based activity.............. 0.5 2.0 0.5 Parental care.......................... 28.7 36.2 27.9 By father.......................... 20.0 26.7 19.4 By mother at work\3\............... 8.7 9.5 8.5 Child cares for self............... ......... ......... ......... ------------------------------------------------------------------------ \1\Below the poverty threshold, which was $13,924 annually or $1,160 monthly during the 1991 interview period for a family of 4. \2\Care in another home by a nonrelative is known as ``family day care.'' \3\Includes women working at home or away from home. Source: Derived from ``Who's Minding the Kids? Child Care Arrangements: Fall 1991,'' Bureau of the Census, 1994. Table 12-7 shows that the type of child care arrangements used for children under 5 varies by the economic well-being of the family. Children in poor families are more likely to be cared for by relatives or their father while their mother works than children in nonpoor families. In addition, children in nonpoor families use organized child care facilities slightly more than children in poor families (25 percent versus 21 percent). Children in nonpoor families rely more on family day care than do children living in poverty (19 percent versus 11 percent). CHILD CARE COSTS Research studies have found that the majority of families with working mothers with preschool-age children purchase child care services. The tendency to purchase care and the amount spent on care, both in absolute terms and as a percent of family income, generally varies by the type of child care used, family type (married or single mothers), and the family's economic situation. The most recent survey of national parental child care expenditures\2\,\3\ found that 57 percent of families with employed mothers paid for child care for their youngest child under age 5 during November 1989 to May 1990. Families with mothers employed full-time were more likely to purchase care than those with mothers employed part-time. Among mothers working full-time, 66 percent paid for care for their young children. In addition, as illustrated in table 12-8, families with lower incomes were less likely to purchase care than families with higher incomes. Among families with employed mothers with a preschool-age child, the study found that 68 percent of those with annual incomes at or above $50,000 paid for child care, compared to only 42 percent of those with annual incomes below $15,000. --------------------------------------------------------------------------- \2\National Child Care Survey, 1990. Hofferth, Sandra L., Brayfield, Sharon Deich, and Holcomb, Pamela. Conducted by the Urban Institute. Sponsored by the Administration for Children and Families, U.S. DHHS and the National Association for the Education of Young Children. Washington, D.C. 1991. \3\Child care is defined as care provided while the mother is at work, and includes care provided by fathers, mothers, and children themselves. --------------------------------------------------------------------------- Of those purchasing care, the average weekly payment for the care of all children in a family with a youngest child under age 5 was $63 during the survey period. Families with employed mothers who paid for relatives to care for their children paid the least for care (average weekly cost of $44 for a relative). In-home care by a nonrelative cost the most, at $94 on average. Average weekly expenditures for center care and family child care were $76 and $64, respectively. TABLE 12-8.--MEAN WEEKLY CHILD CARE EXPENDITURES FOR ALL CHILDREN IN THE FAMILY AND PERCENTAGE OF INCOME SPENT ON CARE, BY POVERTY STATUS AND FAMILY INCOME, EMPLOYED MOTHERS WITH YOUNGEST CHILD UNDER 5 PAYING FOR CARE ------------------------------------------------------------------------ Average Percent Percent weekly of income paying cost of spent on for care care care ------------------------------------------------------------------------ Total............................ 57 $63.2 10.4 Poverty status: Below poverty...................... NA 37.3 23.2 Above poverty...................... NA 65.5 8.7 Annual family income: Under $15,000...................... 42 37.9 24.8 $15,000 to $24,999................. 48 50.7 13.2 $25,000 to $34,999................. 52 50.7 8.8 $35,000 to $48,999................. 54 64.5 10.2 $50,000 or above................... 68 85.1 6.2 ------------------------------------------------------------------------ Source: Published and unpublished data from the National Child Care Survey, 1991. Families with higher incomes tend to spend more on child care than families with lower incomes. However, lower income families that pay for care spend significantly higher proportions of their incomes on such services. The survey found that poor families spend 23 percent of their incomes on child care, compared to only 9 percent of incomes spent by nonpoor families. Families earning more than $50,000 spent 6 percent of their incomes on child care (table 12-8). SUPPLY OF CHILD CARE PROVIDERS The profile of child care settings (PCS) study, recently released by the U.S. Department of Education, is regarded as the most comprehensive national study of regulated child care/ early education services since the 1970s.\4\ It provides information on the supply and characteristics of State licensed child care centers and early education programs, center-based programs exempt from State or local licensing (such as programs sponsored by religious organizations or schools) and licensed family day care providers. --------------------------------------------------------------------------- \4\``A Profile of Child Care Settings: Early Education and Care in 1990.'' Kisker, Ellen Eliason, Hofferth, Sandra L., Phillips, Deborah A., and Farquhar, Elizabeth. Prepared under contract of the U.S. Department of Education by Mathematica Policy Research, Inc., 1991. --------------------------------------------------------------------------- According to the study's findings, approximately 80,000 center-based early education and care programs were providing services in the United States at the beginning of 1990. The study estimates that about 12 percent of centers on State licensing lists were not operating during the time of the survey. It is estimated that operating centers had about 5.3 million spaces (defined as the sum of enrollment and vacancies), of which approximately 4.2 million were for preschool-age children and 1.1 million were for school-age children. With regard to utilization, the study found that an average of 88 percent of the available spaces in centers were filled. It concluded that this high overall utilization rate indicates that ``the market seems to be working to increase supply as demand expands.'' As shown in table 12-9, centers are distributed across regions and urban/rural areas approximately in proportion to the population of children under age 5. The study found that there were approximately 118,000 licensed family day care providers with a capacity to care for 860,000 children (defined as the number of children for whom the provider is licensed to provide care) operating in the United States at the beginning of 1990. It is estimated that this number is significantly less than counts of family day care providers obtained directly from licensing lists--by some 30 percent--because such lists are not generally up to date. About 82 percent of all family day care spaces were filled at the beginning of 1990. In contrast to centers, the study found that the distribution of family day care homes across regions of the United States is not proportional to the number of young children in those regions (table 12-9). The authors of the study postulate that this may be due to regional differences in State family day care licensing requirements. When providers were asked how many vacancies were actually available, the study found that the average child care center has 4 full-time vacancies and that the average regulated family day care home has 1 full-time vacancy. For centers, the study reports that vacancies are concentrated in fewer than half of all centers and that two-thirds to three-fourths of all centers reported having no vacancies. Vacancies are also concentrated in less than half of all family day care homes. According to the study, more than half of all regulated homes reported being ``unable or unwilling'' to accept more children on a full-time basis. It is assumed by child care researchers that the number of unregulated family day care providers far exceeds the number of regulated family providers, though it is difficult to determine by how much. Based on an estimate that 4 million children are in family day care and that the average number of children per home ranges from 3 to 6, the PCS study estimates that there are from 550,000 to 1.1 million unlicensed providers. Based on this estimate, the estimated number of regulated family day care homes (118,000) represents 10 to 18 percent of the total number of family day care providers.\5\ --------------------------------------------------------------------------- \5\See methodology discussed in ``The Demand and Supply of Child Care in 1990, Joint Findings From the National Child Care Survey, 1990 and the Profile of Child Care Settings,'' National Association for the Education of Young Children, 1991. --------------------------------------------------------------------------- TABLE 12-9.--DISTRIBUTION OF PRESCHOOL CHILDREN, EARLY CHILDHOOD PROGRAMS, AND PROGRAM SPACES BY REGION AND URBANICITY [In percent] ------------------------------------------------------------------------ Children Regulated Spaces in younger Spaces home- regulated than Centers in based home-base 5\1\ centers programs programs ------------------------------------------------------------------------ Region: Northeast....... 19 18 16 14 11 South........... 35 41 42 21 20 Midwest......... 24 23 23 29 32 West............ 23 18 19 36 37 Urbanicity: Metropolitan.... 75 76 83 77 77 Nonmetropolitan. 25 24 17 23 23 ------------------------------------------------------------------------ \1\The distribution of children younger than age 5 by region is estimated from projections of 1980 census data to 1988 (U.S. Bureau of the Census, 1989). The distribution of children younger than age 5 by urbanicity is estimated as the distribution of the population by urbanicity in 1980 (U.S. Bureau of the Census, 1983). Source: Profile of Child Care Settings Study (Mathematica Policy Research, Inc., 1990). WORK DISRUPTIONS CAUSED BY FAILED CHILD CARE ARRANGEMENTS The Census Bureau also surveys working mothers about time they or their husbands lost from work because of a failed child care arrangement, such as could result from a provider being sick or having an emergency. Among all mothers of children under age 15, 14 percent reported they lost work time due to such a failure during December 1988. Interestingly, the incidence of time lost did not change by marital status. It is postulated that this may be because child care is the primary responsibility of mothers, even when both parents are present. Among married couple families, only .7 percent of fathers lost time from work because of a fallen-through child care arrangement. There is a higher incidence of work disruptions because of child care problems for mothers with children under 5. Nearly 8 percent of mothers with a youngest child 1 or 2 years of age lost work time from a failed child care arrangement during the one month survey period, and 6 percent of mothers of infants lost work time for this reason. THE FEDERAL ROLE This section focuses on Federal programs aimed specifically at providing child care services or related services to working families or programs that are generally used for this purpose. The late 1980s were marked by increased child care activity at the Federal level. New child care programs for AFDC families and families leaving AFDC were enacted in 1988 as part of a major welfare reform initiative. The newest Federal child care programs, the Child Care and Development Block Grant and the At-Risk Child Care program, were enacted in 1990 as part of the Omnibus Budget Reconciliation Act of 1990 (P.L. 101-508). The establishment of these latter programs was the culmination of a lengthy, and often politically and philosophically contentious debate about what role the Federal Government should play in the area of child care. Lasting nearly 4 years, the debate centered on questions about the type of Federal subsidies that should be made available and for whom, whether or not the Federal Government should set national child care standards, conditions under which religious child care providers could receive Federal funds, and how best to assure optimal choice for parents in selecting child care arrangements for their children, including options that allow a mother to stay home. Differences stemming from philosophical and partisan views, as well as jurisdictional concerns, were reflected throughout the debate. Though the new programs represent a significant expansion of Federal support for child care, the largest Federal source of child care assistance is still provided indirectly through the Tax Code, in the form of a nonrefundable tax credit for taxpayers who work or are seeking work. Other major sources of Federal child care assistance include the Social Services Block Grant, under title XX of the Social Security Act. The Child Care Food program, which subsidizes meals for children in child care, is the largest source of direct Federal assistance for child care. Head Start, the early childhood development program targeted to poor preschool children, is often characterized as a child care program. Head Start, which primarily operates on a part-day basis and does not operate during the summer, is not currently designed to meet the needs of parents working full- time. Numerous other Federal programs provide assistance for child care services, training for child care providers, and related activities. Most of these programs are not child care programs per se, but support child care as a component of programs supporting other activities, such as job training, housing assistance, education, food stamps, nutrition assistance, and other kinds of services. For example, under various Federal student financial aid programs, students can count a certain portion of child care expenses as part of the total cost of postsecondary education and thereby receive Federal student aid to cover these costs. Another example is the Job Training Partnership Act, under which funds are designated for supportive services that can include child care services for program participants. Reports cataloging so-called Federal child care programs include counts ranging from 28 to 46 programs, depending on how child care is defined.\6\ Again, most of these programs are not child care programs but include some type of child care or related assistance. Federal funding for child care services provided under many of these programs is unknown or estimated. The total number of children receiving federally supported child care assistance is also unknown. --------------------------------------------------------------------------- \6\See ``Child Care: Government Funding Sources, Coordination, and Service Availability.'' United States General Accounting Office, No. GAO/HRD-90-26BR. October 1989; Child Day Care: Funding Under Selected Programs. Congressional Research Service. U.S. Library of Congress. November 1, 1988. No. 88-686; Child Care: A Workforce Issue. U.S. Department of Labor. April 1988. --------------------------------------------------------------------------- During congressional consideration of child care legislation in the late 1980's, concerns were often raised that the Federal role in this area lacked coordination and focus. Some argue that the new child care programs--with their different eligibility rules, standards requirements, and different Federal and State administering agencies--have continued the trend, and that there is still need for a unified, comprehensive Federal policy in the area of child care. Though Congress requires the States and DHHS to collect and compile information on the child care services funded and families served by the major Federal child care programs, little information is actually available to make assessments about the impact of the recent expansions in Federal child care assistance. For example, there is virtually no information readily available on the types of child care providers serving subsidized families with respect to their level of quality or regulation. There is also little information about the total number of families served, the degree of choice they have in selecting care, and whether choice is inhibited by payment rates or other factors. For some programs, the lack of information can be attributed to reporting requirements that have never been implemented by DHHS (such as for title XX and the dependent care planning and development State grant program). In other cases, information collected is inadequate to make determinations about a program's impact (such as with the transitional child care program and the AFDC child care program). Below is a brief description of major Federal programs that support child care and related activities. Table 10 presents a summary of the funding environment and eligibility under these programs. TABLE 12-10.--SUMMARY OF FUNDING ENVIRONMENT AND ELIGIBILITY UNDER THE MAJOR FEDERAL PROGRAMS THAT SUPPORT CHILD CARE AND RELATED ACTIVITIES [In million of dollars] -------------------------------------------------------------------------------------------------------------------------------------------------------- Budgetary classification Federal funding support Fiscal year 1993 Program Statutory authority Federal administration outlays\1\ -------------------------------------------------------------------------------------------------------------------------------------------------------- Dependent care credit... Nonrefundable tax credit Internal Revenue Code... U.S. Department of NA..................... $2,450\2\ Treasury, Internal Revenue Service. Child care for AFDC Authorized entitlement.. Social Security Act..... DHHS, ACF\3\............ Open-ended, Federal (\4\) recipients. match at Medicaid rate. Transitional child care Authorized entitlement.. Social Security Act..... DHHS, ACF\3\............ Open-ended, Federal 588\4\ assistance (TCC). match at Medicaid rate. At-risk child care...... Authorized entitlement.. Social Security Act..... DHHS, ACF\3\............ Funding ceiling, 308 Federal match at Medicaid rate. Child care and Discretionary Omnibus Budget DHHS, ACF\3\............ Funding ceiling, 100 732 development block grant. authorization. Reconciliation Act of percent Federal 1990. funding. Child and adult care Authorized entitlement.. National School Lunch U.S. Department of Open-ended, 100 percent 1,200\5\ food program. Act of 1946. Agriculture, Food and Federal funding. Nutrition Service. Title XX social services Authorized entitlement.. Social Security Act..... HHS, ACF\3\............. Funding ceiling, 100 NA--some portion of block grant. percent Federal 2,800. funding. -------------------------------------------------------------------------------------------------------------------------------------------------------- ---------------------------------------------------------------------------------------------------------------- Reimbursement rates Program Target population Eligible children Provider requirements to providers ---------------------------------------------------------------------------------------------------------------- Dependent care credit Taxpayers who need Children under age 13 Centers only must NA dependent care in meet applicable order to accept or State and local maintain employment. standards. Child care for AFDC AFDC recipients who Children under age 13 Must meet applicable Cost up to $200 per recipients. need dependent care (unless incapable of State and local month (under age to accept or self-care or under standards. 2), and $175 per maintain employment, court supervision). month (2 or older). or to participate in Not more than the State-approved 75th percentile of education/training. the local market rate. Transitional child Families that lose Children under age 13 Must meet applicable Same as AFDC. care assistance AFDC eligibility due State and local (TCC). to employment standards. (increase in income or hours worked). At-risk child care... Low-income families Children under age 13 Must meet applicable Same as AFDC. not receiving AFDC State and local who need child care standards or, if not in order to work, regulated and with and are at risk of the exception of welfare eligibility relatives, be if care not provided. registered. Child care and Families with incomes Children under age 13 Must meet applicable No limit. development block at or below 75 (unless incapable of State and local grant. percent of State self-care or under standards or, if not median income, with court supervision). regulated, be parents engaged in registered work or education/ (including training. relatives). With the exception of relatives, must also meet certain health and safety standards. Child and adult care NA................... Children under age Must meet applicable Meal rates are food program. 13; migrant children State and local indexed to under age 16. standards. inflation, and some rates vary by family income. Title XX social State discretion..... State discretion..... Must meet applicable No limit. services block grant. State and local standards. ---------------------------------------------------------------------------------------------------------------- \1\Source: Congressional Budget Office for programs, Joint Committee on Taxation for tax expenditures. \2\Projection for 1993. \3\Department of Health and Human Services, Administration for Children and Families. \4\Fiscal year 1993 outlays for AFDC and transitional child care assistance combined. \5\Obligations. NA--Not applicable. DEPENDENT CARE TAX CREDIT Under section 21 of the Internal Revenue Code, a nonrefundable credit against income tax liability is available for up to 30 percent of a limited amount of employment-related dependent care expenses. Eligible employment-related expenses are limited to $2,400, if there is one qualifying individual, or $4,800, if there are two or more qualifying individuals. The credit may be claimed by an individual who maintains a household that includes one or more qualifying individuals. Generally, a qualifying individual is a dependent under the age of 13, a physically or mentally incapacitated dependent, or a physically or mentally incapacitated spouse. The costs of care must be incurred to enable a taxpayer (or taxpayer's spouse, if married) to work or look for work. Qualified expenses include the costs of household services. The percentage used to calculate the credit depends on a taxpayer's adjusted gross income (AGI). A taxpayer whose AGI is $10,000 or less is allowed a credit equal to 30 percent of qualified work-related expenses. The credit percentage is reduced by 1 percentage point for each additional $2,000 in AGI above $10,000. For taxpayers whose AGI is greater than $28,000, the credit is equal to 20 percent of qualified expenses. The maximum amount of the credit is $720 for one qualifying individual and $1,440 for two or more qualifying individuals. More detailed information on the dependent care tax credit is provided in section 16. CHILD CARE PROGRAMS UNDER TITLE IV-A OF THE SOCIAL SECURITY ACT Title IV-A of the Social Security Act, under which the Aid to Families with Dependent Children (AFDC) program is established, contains authorities for four different child care programs. Three of the programs fund child care services for low-income families, though each target a different low-income population. One program funds child care services for AFDC families who are working or participating in an approved work, education, or training program. A second program funds care for families for a limited period of time after they leave AFDC. A third program funds care for families who are ``at risk'' of becoming eligible for AFDC. The fourth program authorized under title IV-A is aimed at improving State child care licensing standards, enforcement of standards, and the training of child care providers. Each of the title IV-A child care programs is described briefly below. Child care for AFDC recipients Under the AFDC program, the Federal Government requires States to ``guarantee'' child care to recipients of AFDC if the care is needed for individuals to accept employment or remain employed. Child care also must be guaranteed to AFDC recipients who are participating in a State-approved education and training activity, including an AFDC job opportunities and basic skills (JOBS) training program.\7\ The AFDC child care program is funded by an open-ended entitlement. The Federal share of a State's child care payments is based on the Medicaid matching rate, which varies by State and is inversely related to a State's per capita income. The program is administered on the Federal level by the Administration for Children and Families (ACF) of the U.S. Department of Health and Human Services, as part of the AFDC program. --------------------------------------------------------------------------- \7\Under the Family Support Act of 1988 (P.L. 100-485), all States were required to have a JOBS program in place by October 1, 1990. The centerpiece of a major welfare reform initiative, JOBS is intended to prevent long-term welfare dependency by providing needy families with education, training, and employment. All AFDC recipients not otherwise exempt by law are required to participate in JOBS. The parent of a child under age 6 may be required to participate only if child care is guaranteed and if participation is limited to no more than 20 hours per week. A parent of a child under age 3 is exempt from participation, unless required to participate at State option. More detailed information on the AFDC JOBS program is provided in section 7. --------------------------------------------------------------------------- State welfare agencies are responsible for administering the program at the State level and must inform AFDC applicants and recipients of the availability of child care assistance and the types and locations of child care services. The State agencies can provide child care directly, arrange for care with providers through contracts or vouchers, provide cash or vouchers in advance to families, reimburse families, or use other arrangements. States can also choose to disregard certain child care expenses--up to $175 per month per child age 2 and over and up to $200 per month per child under age 2--from the earned income of a family in determining the family's eligibility for AFDC benefits. Reimbursement for child care costs must be at least equal to the lower of the actual cost of care or a statewide limit (which could be the child care disregard amount or a higher amount). Reimbursement cannot be more than the 75th percentile of the local market rate for the type of care being provided, as determined by each State.\8\ The child care must meet applicable standards of State and local law. In addition, the law authorizing the program requires States to ensure that center-based child care is subject to State and local health and safety requirements, including fire safety protections. States must also endeavor to develop guidelines for family day care services. --------------------------------------------------------------------------- \8\The 75th percentile does not mean 75 percent of the cost of care. To determine the 75th percentile, child care rates are ranked from lowest to highest. Starting from the bottom of the list, the amount separating the 75 percent of the providers with the lowest rates from the 25 percent with highest rates is the 75th percentile. --------------------------------------------------------------------------- Transitional child care (TCC) assistance Under the AFDC program, the Federal Government requires States to ``guarantee'' child care to a family who loses AFDC eligibility due to increased hours of, or increased income from employment or loss of the income disregard due to the time limitations, if the care is necessary for an individual to accept or retain employment. To be eligible for transitional child care (TCC), families must have received AFDC in at least 3 of the 6 months immediately before the month in which they became ineligible for AFDC. The child care assistance under this program is limited to a period of 12 months after the last month for which the family received AFDC benefits. The program is operated under the same rules as those that apply to the child care program for eligible AFDC recipients, except that families must contribute to the cost of the care in accordance with a State-established sliding fee scale. It is also administered by ACF at the Federal level. Concerns have been raised that families leaving AFDC because of increased earnings are not receiving transitional child care assistance, even though they may be eligible for assistance and need it. A General Accounting Office report addressing this issue concluded that data are not readily available to determine the extent to which eligible families receive and retain transitional child care benefits.\9\ GAO found that data are not available from the States or DHHS on the number of families that meet all the TCC eligibility criteria. And many States did not have data on the number of families receiving TCC each month. Based on limited data from 20 States, GAO reported that the percentage of eligible families receiving TCC assistance ranged from 2 to 66 percent. According to the GAO report, no clear relationships were identified between utilization rates and State administrative policies. --------------------------------------------------------------------------- \9\``Welfare to Work: Implementation and Evaluation of Transitional Benefits Need HHS Action,'' by the General Accounting Office GAO/HRD- 92-118 September 1992. --------------------------------------------------------------------------- At-Risk Child Care program The At-Risk Child Care program authorized by the Omnibus Budget Reconciliation Act of 1990 (P.L. 101-508) entitles States to Federal matching funds for child care services for low-income families who are not receiving AFDC, need child care in order to work, and are ``at risk'' of becoming eligible for welfare if child care were not provided. The program is permanently authorized as a ``capped entitlement'' at $300 million annually. It is administered by ACF. States are entitled to matching funds for child care expenditures up to State allocation limits determined by a formula in the law. State allocations are based on the number of children under age 13 in a State compared to the total number of such children in the United States. If a State's grant award is less than its full allocation limit in one year, the difference can be applied to the State's allocation limit in the next year. Like the AFDC child care programs, the Federal share of a State's child care payments is based on the Medicaid matching rate, which varies by State. The At-Risk program is similar to the AFDC child care programs with regard to the flexibility States are afforded in providing care. The requirements for reimbursement rates also are similar. Like the TCC program, families are required to make some contribution to the cost of care, based on a State- designed sliding fee scale. At-Risk child care must meet applicable standards of State and local law. In contrast to the other title IV-A child care programs, At-Risk child care providers not required to meet such standards (with the exception of those providing care solely to family members) must be registered by the State. The At-Risk program is administered on the State level by the State welfare agency. Beginning in fiscal year 1993, States were required to report annually to the Federal Government on how they used program funds. Reports are to include information on the number of children served, the average cost of care, eligibility rules, child care licensing and regulatory requirements, and enforcement policies. The Secretary of the Department of Health and Human Services is required to report to Congress annually on the State reports. As of fiscal year 1993, all States, except Louisiana, had been approved by HHS to operate At-Risk programs. One state-- Mississippi--did not operate a program in that year. Table 12-11 provides data on Federal payments to States for AFDC child care and TCC for fiscal years 1991 through 1995. Table 12-12 provides State-specific information on child care options under the AFDC and TCC programs, based on State ``supportive services'' plans for the fiscal year 1993-1994 biennium. Table 12-13 provides data on Federal payments to States for At-Risk child care for fiscal years 1991 through 1995. Table 12-14 provides State-specific information on child care options under the At-Risk child care program, based on State ``supportive services'' plans for the fiscal year 1993- 1994 biennium. The most current State-by-State data on the number of JOBS participants who receive title IV-A child care subsidies are shown in table 12-15. The types of child care arrangements used by the JOBS participants' children is provided in table 12-16. The number of families not in JOBS who receive title IV-A child care assistance is shown in table 12-17. The type of care used by AFDC families not in JOBS who receive title IV-A child care assistance is shown in table 12-18. Current data on the number of children receiving TCC subsidies and the type of care arrangements used by their families are found in tables 12-19 and 12-20. TABLE 12-11.--FEDERAL PAYMENTS TO STATES FOR AFDC CHILD CARE AND TRANSITIONAL CHILD CARE, FISCAL YEARS 1991- 95 [Fiscal year in thousands] ---------------------------------------------------------------------------------------------------------------- 1994 1995 States 1991 1992 1993\1\ (est.)\1\ (est.) ---------------------------------------------------------------------------------------------------------------- Alabama............................................. $2,820 $5,981 $9,050 $10,150 $10,804 Alaska.............................................. 445 1,329 1,262 1,416 1,507 Arizona............................................. 2,354 5,998 8,462 9,491 10,102 Arkansas............................................ 4,348 1,940 1,268 1,422 1,513 California.......................................... 11,331 16,655 34,401 38,585 41,069 Colorado............................................ 3,649 4,082 5,315 5,961 6,345 Connecticut......................................... 5,301 6,563 7,061 7,920 8,430 Delaware............................................ 1,300 1,787 3,016 3,383 3,600 District of Columbia................................ 2,799 4,284 1,855 2,081 2,215 Florida............................................. 20,678 17,506 20,136 22,585 24,039 Georgia............................................. 13,231 16,060 25,247 28,318 30,140 Guam................................................ 9 22 4 4 5 Hawaii.............................................. 249 70 273 306 325 Idaho............................................... 756 775 1,069 1,199 1,276 Illinois............................................ 8,468 4,455 11,949 13,403 14,265 Indiana............................................. 12,828 4,640 7,101 7,965 8,477 Iowa................................................ 2,204 1,730 2,409 2,702 2,876 Kansas.............................................. 3,233 5,388 6,677 7,489 7,972 Kentucky............................................ 5,027 9,188 10,450 11,721 12,475 Louisiana........................................... 12,741 10,955 15,512 17,399 18,519 Maine............................................... 1,354 361 1,083 1,215 1,293 Maryland............................................ 9,509 10,027 13,912 15,604 16,609 Massachusetts....................................... 24,889 24,933 23,991 26,909 28,641 Michigan............................................ 14,467 15,727 13,597 15,251 16,233 Minnesota........................................... 11,342 9,918 12,415 13,925 14,822 Mississippi......................................... 574 2,577 3,230 3,623 3,857 Missouri............................................ 1,196 8,624 14,348 16,093 17,129 Montana............................................. 1,144 2,943 1,988 2,230 2,373 Nebraska............................................ 5,152 5,630 7,455 8,362 8,900 Nevada.............................................. 1,057 435 1,032 1,158 1,232 New Hampshire....................................... 1,621 2,013 2,495 2,799 2,979 New Jersey.......................................... 2,195 6,653 9,309 10,442 11,114 New Mexico.......................................... 2,026 1,745 3,994 4,479 4,768 New York............................................ 29,289 36,303 57,988 65,041 69,227 North Carolina...................................... 7,306 24,423 35,163 39,439 41,978 North Dakota........................................ 1,554 1,725 1,709 1,917 2,040 Ohio................................................ 9,394 18,407 34,071 38,214 40,674 Oklahoma............................................ 7,983 18,925 22,950 25,742 27,399 Oregon.............................................. 6,260 5,392 8,768 9,835 10,468 Pennsylvania........................................ (100) 28,647 31,105 34,888 37,134 Puerto Rico......................................... 223 2,901 0 0 0 Rhode Island........................................ 1,821 2,154 4,310 4,834 5,145 South Carolina...................................... 541 1,040 4,294 4,816 5,126 South Dakota........................................ 983 13,457 1,759 1,973 2,100 Tennessee........................................... 4,492 25,090 18,675 20,946 22,294 Texas............................................... 20,803 6,544 33,737 37,840 40,275 Utah................................................ 6,275 1,605 9,236 10,360 11,027 Vermont............................................. 1,626 3 2,023 2,269 2,416 Virgin Islands...................................... 11 11,164 11 13 14 Virginia............................................ 4,320 15,439 8,328 9,341 9,942 Washington.......................................... 8,355 3,205 21,057 23,618 25,139 West Virginia....................................... 2,169 16,742 4,548 5,101 5,430 Wisconsin........................................... 8,242 2,300 12,390 13,897 14,791 Wyoming............................................. 957 .......... 2,076 2,329 2,479 ----------------------------------------------------------- Total......................................... 320,744 415,000 595,568 668,000 711,000 ---------------------------------------------------------------------------------------------------------------- \1\Preliminary data. Sources: DHHS, Administration for Children and Families; Office of Financial Management, Administration for Children and Families. TABLE 12-12.--AFDC CHILD CARE AND TRANSITIONAL CHILD CARE (TCC)--SUMMARY OF STATE CHILD CARE OPTIONS -------------------------------------------------------------------------------------------------------------------------------------------------------- Statewide limit; State Method of providing AFDC Supplements dependent Method of providing Special needs care (if Child care provided child care\1\ care disregard TCC\1\ different)\2\ during gaps\3\ -------------------------------------------------------------------------------------------------------------------------------------------------------- Alabama................. 2, 5, 6................. No...................... 5, 6.................... $303................... 1 month. Alaska.................. 2, 6.................... No...................... 5, 6.................... $812................... 1 month. Arizona................. 2, 6.................... No...................... 5, 6.................... $455.40/$391.00........ 2 weeks/1 month. Arkansas................ 2, 5, 6................. Yes..................... 5, 6.................... $300/$250.............. 1 month. California.............. 1, 2, 3, 4, 5, 6, 7..... No...................... 3, 4, 5, 6, 7........... $1,071.68/$876.83; 2 weeks/1 month. $1,404.87/$1,149.62. Colorado................ 2, 6, 7................. Yes..................... 5, 6, 7................. $525; $1,050........... 2 weeks/1 month. Connecticut............. 2, 3, 5, 7.............. No...................... 3, 7.................... $325; $435............. 2 weeks/1 month. Delaware................ 2, 4, 5, 6, 7........... No...................... 4, 5, 6, 7.............. $312.00/$297.60; Up to one month. $327.60/$312.48. District of Columbia.... 2, 3, 4, 5, 6........... No...................... 3, 4, 5, 6.............. $635.50/$558.00........ 1 month. Florida................. 2, 4, 5, 6.............. Yes..................... 4, 5, 6................. $364.50................ 2 weeks/ 1 month. Georgia................. 2, 5, 6................. No...................... 5, 6.................... $324.75/$281.45........ 2 weeks. Guam.................... 2, 5, 6................. Yes..................... 5....................... $250/$230.............. 1 month. Hawaii.................. 6....................... No...................... 5, 7.................... $325................... 2 weeks/1month. Idaho................... 2, 5, 6................. No...................... 5....................... $407/$330; $440........ 1 month. Illinois................ 1, 2, 3, 5.............. Yes..................... 6, 7.................... $900.55................ 2 weeks/1 month. Indiana................. 2, 5, 6................. No...................... 5, 6.................... $200/$175.............. 1 month. Iowa.................... 2, 7.................... No...................... 7....................... $1,635/$1,480; $1,790/ 1 month. $1,635. Kansas.................. 2, 5, 6................. NA...................... 5, 6.................... $609/$452; $984/863.... 2 weeks/1 month. Kentucky................ 2, 5, 6, 7.............. No...................... 5, 6, 7................. $496................... 2 weeks/1 month. Louisiana............... 2, 3, 5, 6.............. No...................... 3, 5.................... $238.30/$216.50........ 2 weeks/1 month. Maine................... 2, 5, 6................. No...................... 5, 6.................... $551................... 2 weeks/1 month. Maryland................ 2, 4, 5, 6.............. Yes..................... 4, 6.................... $662.42/$347.98; $387.. 2 weeks/1 month. Massachusetts........... 2, 4, 6, 7.............. No...................... 4, 6, 7................. $1,294.92.............. No. Michigan................ 2, 3, 4, 5.............. No...................... 3....................... $1,050................. 1 month. Minnesota............... 2, 5, 6................. Yes..................... 5, 6.................... $630/$464; $4,300...... No. Mississippi............. 4, 5, 6................. No...................... 4, 5, 6................. $253/$230; $253........ 2 weeks/1 month. Missouri................ 2, 5, 6................. No...................... 5, 6.................... $310.00/$271.25........ 2 weeks/1 month. Montana................. 2, 6.................... No...................... 6....................... $299.00/$258.75; 2 weeks. $279.45. Nebraska................ 2, 5, 6................. Yes..................... 5, 6.................... $1,150/$970; $3,000.... 1 month. Nevada.................. 2, 5.................... No...................... 5....................... $420/$398.............. No. New Hampshire........... 2, 3, 5, 6.............. No...................... 3, 5, 6................. $462................... 2 weeks. New Jersey.............. 2, 4.................... Yes..................... 4....................... $707/$583.............. 2 weeks/1 month. New Mexico.............. 5....................... No...................... 5....................... $330................... 2 weeks/1 month. New York................ 1, 2, 3, 4, 5, 6........ No...................... 1, 3, 5, 6.............. $883.32................ 2 weeks/1 month. North Carolina.......... 1, 2, 3, 5, 6........... No...................... 1, 3, 4, 5, 6........... $411; $1,754........... 2 weeks/1 month. North Dakota............ 1, 2, 3, 5, 6........... No...................... 1, 5, 6................. $200/$175.............. 2 weeks/1month. Ohio.................... 2, 6.................... No...................... 6....................... $894.40................ 2 weeks/1 month. Oklahoma................ 2, 4, 6................. No...................... 6....................... $372/$341; $775........ 2 weeks/1month. Oregon.................. 2, 4, 6................. No...................... 4....................... $450................... 1 month. Pennsylvania............ 2, 3, 5, 6, 7........... No...................... 5, 7.................... $813................... 2 weeks/1 month. Puerto Rico............. 1, 2, 3, 4, 5, 6........ Yes..................... 4, 6.................... $200/$175; $250........ 2 weeks/1 month. Rhode Island............ 2, 6.................... No...................... 6....................... $415.97/$285.98........ No. South Carolina.......... 2, 6.................... No...................... 6....................... $425................... 2 weeks/1 month. South Dakota............ 2, 3.................... No...................... 3, 5.................... $200/$175.............. No. Tennessee............... 2, 4.................... No...................... 4, 5.................... $358.80/$312.00........ 1 month. Texas................... 2, 5, 6................. No...................... 5, 6.................... $482; $916............. 2 weeks/1 month. Utah.................... 2, 6.................... No...................... 5, 6.................... $410.70/$296.70........ No. Vermont................. 2, 5, 6................. No...................... 5, 6.................... $603.75................ 2 weeks/1 month. Virgin Islands.......... 1, 2, 4................. Yes..................... 1, 5.................... $200; $300............. 1 month. Virginia................ 2, 5, 6................. No...................... 5, 6.................... $667/$628.............. No. Washington.............. 2, 7.................... No...................... 7....................... $516.35; $1,206.15..... 2 weeks/1 month. West Virginia........... 2, 7.................... No...................... 7....................... $300/$253; $300........ 2 weeks/1 month. Wisconsin............... 1, 2, 3, 4, 5, 6, 7..... Yes..................... 4....................... $600/$500.............. 2 weeks/1 month. Wyoming................. 2, 6.................... Yes..................... 6....................... $350................... Up to 1 week. -------------------------------------------------------------------------------------------------------------------------------------------------------- \1\Key to the code: 1=Direct; 2=Dependent care disregard; 3=Cash in advance; 4=Voucher in advance; 5=Cash reimbursement; 6=Purchase of service; 7=Other. \2\When 2 amounts are shown separated by a slash (/), the 1st amount is the statewide limit for children under 2. The 2nd amount is the statewide limit for children over 2. Statewide limits for handicapped/special needs children follow a semicolon (;) when different limits apply. \3\At State option, child care provided: for up to two (2) weeks while participant is waiting to enter either approved education, training, or JOBS; OR for up to one (1) month if JOBS component activity is scheduled to begin within that period or to reserve child care arrangements which would otherwise be lost. Source: Child Care Policy Branch, Division of JOBS Program. Based on biennial Supportive Services Plans filed in ACF Central Office as of 11/01/93. TABLE 12-13.--FEDERAL PAYMENTS TO STATES FOR AT-RISK CHILD CARE, FISCAL YEARS 1991-95 [In thousands] ---------------------------------------------------------------------------------------------------------------- 1993 1994 State 1991 1992 actual\1\ estimates\1\ 1995 actual actual estimates ---------------------------------------------------------------------------------------------------------------- Alabama............................................. $4,935 $4,934 $4,692 $4,625 $4,626 Alaska.............................................. 808 1,211 825 903 854 American Samoa...................................... 0 ......... 0 145 72 Arizona............................................. 1,151 9,210 4,624 4,709 4,709 Arkansas............................................ 0 4,519 2,657 3,627 2,701 California.......................................... 36,592 73,183 25,170 56,449 38,533 Colorado............................................ 0 8,103 4,320 4,062 4,062 Connecticut......................................... 3,455 3,455 3,485 4,574 4,574 Delaware............................................ 777 776 770 772 771 District of Columbia................................ 677 677 648 537 537 Florida............................................. 13,231 13,230 13,632 13,904 13,904 Georgia............................................. 8,110 8,110 7,986 10,960 7,941 Guam................................................ 0 ......... 0 399 198 Hawaii.............................................. 0 1,361 929 1,705 1,318 Idaho............................................... 1,392 2,088 879 1,439 1,383 Illinois............................................ 6,833 13,666 16,007 13,426 13,426 Indiana............................................. 6,538 6,537 6,538 9,800 6,332 Iowa................................................ 3,226 3,225 3,226 3,177 3,177 Kansas.............................................. 3,070 3,070 3,052 2,999 2,999 Kentucky............................................ 4,294 4,294 4,551 4,109 4,109 Louisiana........................................... 0 5,903 0 10,927 5,408 Maine............................................... 1,367 1,367 809 1,335 1,335 Maryland............................................ 5,363 5,363 5,539 5,562 5,562 Massachusetts....................................... 6,122 6,121 6,287 6,240 6,240 Michigan............................................ 0 ......... 7,500 14,728 11,037 Minnesota........................................... 5,245 5,245 5,427 5,359 5,359 Mississippi......................................... 0 ......... 0 6,504 3,209 Missouri............................................ 5,966 5,966 6,022 5,926 5,926 Montana............................................. 0 843 568 1,825 973 Nebraska............................................ 1,951 1,951 1,958 1,929 1,929 Nevada.............................................. 0 3,262 1,589 1,534 1,534 New Hampshire....................................... 1,280 1,280 1,290 1,261 1,261 New Jersey.......................................... 8,290 8,290 8,000 8,272 8,272 New Mexico.......................................... 0 3,401 2,580 2,072 2,072 New York............................................ 19,931 19,930 19,699 21,047 19,647 North Carolina...................................... 7,333 7,333 9,681 7,274 7,274 North Dakota........................................ 839 838 1,007 748 748 Ohio................................................ 12,734 12,733 12,598 12,334 12,334 Oklahoma............................................ 3,909 3,656 3,762 3,734 3,734 Oregon.............................................. 3,194 5,029 3,354 3,352 3,352 Pennsylvania........................................ 0 25,616 12,681 12,502 12,502 Puerto Rico......................................... 0 ......... 0 10,495 5,201 Rhode Island........................................ 1,057 1,056 1,046 1,041 1,041 South Carolina...................................... 4,294 4,294 4,174 4,797 4,124 South Dakota........................................ 914 913 431 1,419 891 Tennessee........................................... 0 ......... 575 10,786 5,401 Texas............................................... 8,923 37,103 26,480 22,556 22,556 Utah................................................ 2,995 2,995 2,732 2,826 2,826 Vermont............................................. 646 646 650 637 637 Virgin Islands...................................... 0 ......... 0 362 180 Virginia............................................ 6,768 6,767 6,963 7,128 6,950 Washington.......................................... 5,649 8,941 5,997 6,038 6,038 West Virginia....................................... 0 2,001 1,762 1,802 1,802 Wisconsin........................................... 5,755 5,754 5,892 5,829 5,829 Wyoming............................................. 634 1,267 770 719 593 ----------------------------------------------------------- Total......................................... 216,248 357,535 271,816 352,338 300,000 ---------------------------------------------------------------------------------------------------------------- \1\Preliminary data. Numbers for 1994 assume States receive payment for full entitlement amount (1994 entitlement plus carry-over from 1993 entitlement). Source: DHHS, Administration for Children and Families, Office of Financial Management. TABLE 12-14.--AT-RISK CHILD CARE--SUMMARY OF STATE CHILD CARE OPTIONS -------------------------------------------------------------------------------------------------------------------------------------------------------- Statewide limit; Special Rules for counting Registration required State Method of providing at- needs care (if income for sliding fee Child care provided for unlicensed risk child care\1\ different)\2\ scale during gaps\3\ providers -------------------------------------------------------------------------------------------------------------------------------------------------------- Alabama................. 1, 3, 4, 5.............. $303.................... TCC rules............... 2 weeks/1 month........ Yes. Alaska.................. 2, 4.................... $812.................... Different............... No..................... Yes. Arizona................. 5....................... $455.40/$391.00......... Different............... 2 weeks/1 month........ Yes. Arkansas................ 5....................... $300/$250............... Different............... 2 weeks/1 month........ Yes. California.............. 2, 3, 4, 5.............. $1,071.68/$876.83; TCC rules............... 2 weeks/1 month........ Yes. $1,404.87/$1,149.62. Colorado................ 4....................... $525; $1,050............ AFDC rules.............. 2 weeks/1 month........ Yes. Connecticut............. 5....................... $325; $435.............. Different............... No..................... Yes. Delaware................ 3, 4, 5................. $312.00/$297.60; $531/ AFDC rules.............. 1 month................ Yes. $483. District of Columbia.... 5....................... $635.50/$558.00; $50/day TCC rules............... 1 month................ Yes. Florida................. 3, 4, 5................. $364.50................. TCC rules............... 1 month................ Yes. Georgia................. 5....................... $324.75/$281.45; $350.73/ TCC rules............... No..................... Yes. $303.10. Hawaii.................. 2, 3, 5................. $325.................... Different............... 2 weeks/1 month........ Yes. Idaho................... 3....................... $407/$330; $440......... Different............... 2 weeks/1 month........ Yes. Illinois................ 4....................... $900.55................. TCC rules............... 2 weeks/1 month........ Yes. Indiana................. 2, 3, 5................. $625.................... Different............... 1 month................ Yes. Iowa.................... 5....................... $1,635/$1,480; $5/day TCC rules............... No..................... Yes. over LMR. Kansas.................. 3, 5.................... $609/$452; $690.90/ Different............... 2 weeks/1 month........ Yes. $664.65. Kentucky................ 5....................... $496.................... TCC rules............... 2 weeks/1 month........ AFDC-defined relatives are exempt. Louisiana............... No At-Risk Program...... Maine................... 3, 4, 5................. No statewide limit...... Different............... 2 weeks/1 month........ Yes. Maryland................ 4, 5.................... $662.42/$347.98; $387... TCC rules............... No..................... Yes. Massachusetts........... 4, 5.................... $1,294.92............... TCC rules............... 1 month................ Yes. Michigan................ 5....................... $1,050.................. TCC rules............... No..................... Yes. Minnesota............... 5....................... $630/$464; $4,300....... TCC rules............... No..................... Yes. Mississippi............. No At-Risk Program..... Missouri................ 3, 4, 5................. $542.50/$474.30......... TCC rules............... 2 weeks/1 month........ AFDC-defined relatives are exempt. Montana................. 3, 4.................... $299.00/$258.75; $279.45 AFDC rules.............. 2 weeks................ Yes. Nebraska................ 3, 4, 5, 6.............. $1,150/$970; $3,000..... Different............... 1 month................ Yes. Nevada.................. 3, 4, 5................. No statewide limit...... Different............... 2 weeks/1 month........ Yes. New Hampshire........... 2, 3, 4................. $462.................... TCC rules............... 1 month................ Yes. New Jersey.............. 1, 3, 4, 5.............. $707/$583............... TCC rules............... 2 weeks/1 month........ Yes. New Mexico.............. 5....................... $330.................... TCC rules............... 1 month................ Yes. New York................ 1, 2, 3, 4, 5, 6........ $883.32................. TCC rules............... 2 weeks/1 month........ Yes. North Carolina.......... 5....................... $411; $1,754............ TCC rules............... 2 weeks/1 month........ Yes. North Dakota............ 3, 4.................... $345/$240............... TCC rules............... 2 weeks/1 month........ Grandparents, aunts/ uncles are exempt. Ohio.................... 4, 5.................... $894.40................. TCC rules............... 2 weeks/1 month........ Yes. Oklahoma................ 5....................... $372/$341; $775......... TCC rules............... No..................... Yes. Oregon.................. 5....................... $450.................... TCC rules............... Up to 5 days in a one Yes. month period. Pennsylvania............ 4, 5.................... Nostatewidelimit........ Different............... 1 month................ Yes. Rhode Island............ 5....................... $415.97/$285.98......... TCC rules............... No..................... Yes. South Carolina.......... 4....................... $425.................... TCC rules............... 2 weeks/1 month........ Yes. South Dakota............ 5....................... $250; $400.............. Different............... No..................... Yes. Tennessee............... 2, 3, 4, 5.............. $358.80/$312.00......... TCC rules............... 1 month................ Yes. Texas................... 3, 4, 5, 6.............. $482; $916.............. TCC rules............... 2 weeks/1 month........ Yes. Utah.................... 2, 3, 4, 5.............. $410.70/$296.70......... TCC rules............... No..................... Yes. Vermont................. 5....................... $603.75................. TCC rules............... No..................... Yes. Virginia................ 3, 4, 5................. $667/$628............... TCC rules............... 2 weeks/1 month........ Yes. Washington.............. 5....................... $516.35/$342.93; Different............... No..................... Yes. $1,206.15. West Virginia........... 5....................... $300/$253; $300......... TCC rules............... 2 weeks/1 month........ Yes. Wisconsin............... 2, 3, 5................. $600/$500............... Different............... 2 weeks/1 month........ Yes. Wyoming................. 5....................... $350.................... TCC rules............... Up to one week......... Yes. -------------------------------------------------------------------------------------------------------------------------------------------------------- \1\Key to the code: 1=Direct; 2=Cash/voucher in advance; 3=Cash reimbursement; 4=Purchase of service; 5=Certificate; 6=Other. \2\When 2 amounts are shown separated by a slash (/), the first amount is the statewide limit for children under 2. The second amount is the statewide limit for children over 2. Statewide limits for handicapped/special needs children are followed by a semicolon (;) when different limits apply. \3\At State option, child care provided: for up to two (2) weeks while participant is waiting to enter either approved education, training, or JOBS; OR for up to one (1) month if JOBS component activity is scheduled to begin within that period or to reserve child care arrangements which would otherwise be lost. Source: Child Care Policy Branch, Division of JOBS Program. Based on biennial Supportive Services Plans filed in ACF Central Office as of 11/01/93. TABLE 12-15.--JOBS PARTICIPANTS RECEIVING TITLE IV-A PAID CHILD CARE, BY AFDC PROGRAM STATUS AND BY STATE-- FISCAL YEAR 1992 ---------------------------------------------------------------------------------------------------------------- JOBS participants by AFDC Program (case) status, average monthly number ------------------------------------------------------------------------------ State Not Total Receiving Receiving Eligible receiving AFDC participants AFDC-basic AFDC-UP for AFDC-UP AFDC applicant ---------------------------------------------------------------------------------------------------------------- Alabama.......................... 40 40 0 0 0 0 Alaska........................... 330 291 39 0 0 0 Arizona.......................... 676 268 404 2 2 0 Arkansas......................... (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) California....................... 11,287 10,679 441 0 0 167 Colorado......................... 1,110 1,033 6 1 69 1 Connecticut...................... 8 8 0 0 0 0 Delaware......................... 121 0 0 0 0 121 District of Columbia............. 486 483 3 0 0 0 Florida.......................... 3,670 3,317 8 7 237 101 Georgia.......................... 2,753 2,475 6 5 173 94 Guam............................. (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Hawaii........................... 84 81 3 0 0 0 Idaho............................ 316 311 3 0 2 0 Illinois......................... 2,837 2,761 1 75 0 0 Indiana.......................... 2,061 1,949 46 0 9 57 Iowa............................. (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Kansas........................... 1,126 886 57 0 128 55 Kentucky......................... 3,650 0 102 1 29 3,518 Louisiana........................ 1,491 1,483 1 0 7 0 Maine............................ 540 508 28 0 6 0 Maryland......................... 1,806 1,516 34 5 50 201 Massachusetts.................... 3,517 3,319 19 0 158 21 Michigan......................... 9,500 8,701 217 0 109 473 Minnesota........................ 884 0 0 0 884 0 Mississippi...................... 546 525 3 0 0 18 Missouri......................... 1,812 1,778 34 0 0 0 Montana.......................... (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Nebraska......................... (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Nevada........................... 343 332 0 0 11 0 New Hampshire.................... 117 112 5 0 0 0 New Jersey....................... 4,518 4,350 45 0 123 0 New Mexico....................... 1,142 1,090 31 0 21 0 New York......................... 13,594 13,316 278 0 0 0 North Carolina................... 3,515 3,400 77 0 38 0 North Dakota..................... 1,022 948 74 0 0 0 Ohio............................. (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Oklahoma......................... 4,088 4,075 13 0 0 0 Oregon........................... 1,822 1,704 103 0 0 15 Pennsylvania..................... 7,209 7,180 29 0 0 0 Puerto Rico...................... 573 566 0 0 7 0 Rhode Island..................... 1,810 1,778 0 0 7 25 South Carolina................... (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) South Dakota..................... 363 352 0 0 11 0 Tennessee........................ 1,639 1,503 47 0 89 0 Texas............................ 2,134 2,057 32 0 45 0 Utah............................. 2,467 2,442 8 0 0 17 Vermont.......................... 447 436 9 0 2 0 Virgin Islands................... 28 26 0 0 0 2 Virginia......................... (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Washington....................... 2,423 2,141 271 0 0 11 West Virginia.................... (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Wisconsin........................ 2,613 2,149 403 0 61 0 Wyoming.......................... 35 35 0 0 0 0 ------------------------------------------------------------------------------ U.S. total................... 102,513 92,362 2,880 96 2,278 4,897 ---------------------------------------------------------------------------------------------------------------- \1\Data not reported by the State. Source: DHHS, Administration for Children and Families. TABLE 12-16.--AFDC CHILDREN IN THE JOBS PROGRAM RECEIVING TITLE IV-A PAID CHILD CARE, BY PRIMARY TYPE OF CARE ARRANGEMENT AND STATE--FISCAL YEAR 1992 -------------------------------------------------------------------------------------------------------------------------------------------------------- Children by type of care arrangement (avg. monthly no.) ---------------------------------------------------------------------- Care provided by a nonrelative in Care provided by a relative Percent ---------------------------------------- in children Percent State Total ------------------------------ Unknown in provided children Group Family In Group center by a Center family day care child's family Family In care relative care day care home day care day care child's home -------------------------------------------------------------------------------------------------------------------------------------------------------- Alabama................................... 40 26 0 0 0 14 0 0 0 65.0 35.0 Alaska.................................... 543 341 44 51 30 6 60 10 1 62.8 14.0 Arizona................................... 1,159 814 8 66 2 0 194 75 0 70.2 23.2 Arkansas.................................. (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) California................................ 18,284 4,220 1,460 8,217 897 353 1,405 1,519 213 23.1 17.8 Colorado.................................. 1,761 1,126 239 54 41 0 190 111 0 63.9 17.1 Connecticut............................... 8 0 0 0 0 0 4 0 4 0.0 50.0 Delaware.................................. 194 131 1 61 1 0 0 0 0 67.5 0.0 District of Columbia...................... 687 483 0 29 0 0 113 62 0 70.3 25.5 Florida................................... 5,998 5,448 0 274 85 0 66 65 60 90.8 2.2 Georgia................................... 4,328 2,571 0 280 234 0 0 1,243 0 59.4 28.7 Guam...................................... (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Hawaii.................................... 109 33 0 22 0 3 49 2 0 30.3 49.5 Idaho..................................... 509 220 43 129 0 1 91 0 25 43.2 18.1 Illinois.................................. 4,565 949 28 1,085 964 0 1,021 518 0 20.8 33.7 Indiana................................... 3,508 860 197 739 188 11 992 494 27 24.5 42.7 Iowa...................................... (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Kansas.................................... 1,865 993 333 218 135 37 94 55 0 53.2 10.0 Kentucky.................................. 5,720 1,928 0 1,108 1,006 0 0 645 1,033 33.7 11.3 Louisiana................................. 2,386 1,672 0 34 117 0 45 423 95 70.1 19.6 Maine..................................... 831 149 151 230 93 4 126 64 14 17.9 23.3 Maryland.................................. 3,085 976 131 470 298 0 639 567 4 31.6 39.1 Massachusetts............................. 4,851 2,364 397 1,755 0 0 19 316 0 48.7 6.9 Michigan.................................. 15,029 2,476 919 5,042 2,800 575 1,868 1,077 272 16.5 23.4 Minnesota................................. 1,422 727 294 174 0 72 50 105 0 51.1 16.0 Mississippi............................... 969 470 38 59 17 32 223 128 2 48.5 39.5 Missouri.................................. 2,984 1,260 0 935 77 0 581 131 0 42.2 23.9 Montana................................... (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Nebraska.................................. (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Nevada.................................... 586 148 1 15 132 0 50 240 0 25.3 49.5 New Hampshire............................. 175 85 33 0 23 8 0 16 10 48.6 13.7 New Jersey................................ 7,034 2,836 29 3,657 489 12 11 0 0 40.3 0.3 New Mexico................................ 1,950 493 313 0 619 0 359 166 0 25.3 26.9 New York.................................. 20,777 4,314 476 10,380 1,647 0 2,857 1,036 67 20.8 18.7 North Carolina............................ 5,299 3,253 4 594 149 0 701 510 88 61.4 22.9 North Dakota.............................. 1,466 241 136 696 85 0 236 72 0 16.4 21.0 Ohio...................................... (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Oklahoma.................................. 7,079 6,337 0 710 15 0 17 0 0 89.5 0.2 Oregon.................................... 2,810 0 495 1,597 0 19 685 0 14 0.0 25.1 Pennsylvania.............................. 11,201 5,204 3,415 14 1,004 938 0 423 203 46.5 12.2 Puerto Rico............................... 831 22 223 95 6 259 119 101 6 2.6 57.6 Rhode Island.............................. 2,711 1,392 173 114 243 150 466 149 24 51.3 28.2 South Carolina............................ (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) South Dakota.............................. 535 213 0 236 33 0 28 22 3 39.8 9.3 Tennessee................................. 2,629 1,573 284 91 77 273 95 222 14 59.8 22.4 Texas..................................... 3,628 2,699 0 37 0 0 0 8 884 74.4 0.2 Utah...................................... 4,108 2,580 415 1,051 62 0 0 0 0 62.8 0.0 Vermont................................... 725 141 233 0 45 173 0 133 0 19.4 42.2 Virgin Islands............................ 62 2 0 19 0 0 5 36 0 3.2 66.1 Virginia.................................. (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Washington................................ 3,554 1,566 705 0 510 109 250 414 0 44.1 21.8 West Virginia............................. (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) (\1\) Wisconsin................................. 4,138 2,134 0 861 248 0 366 264 265 51.6 15.2 Wyoming................................... 35 13 0 0 0 0 0 0 22 37.1 0.0 ------------------------------------------------------------------------------------------------------------- U.S. total............................ 162,128 65,457 11,218 41,199 12,372 3,035 14,075 11,422 3,350 40.4 17.6 -------------------------------------------------------------------------------------------------------------------------------------------------------- \1\Data not reported by the State. Source: DHHS, Administration for Children and Families. TABLE 12-17.--NON-JOBS FAMILIES\5\ RECEIVING IV-A PAID CHILD CARE, WITH AND WITHOUT EARNED INCOME, BY AFDC PROGRAM STATUS AND BY STATE--FISCAL YEAR 1992 [Average monthly number] ---------------------------------------------------------------------------------------------------------------- Families with earnings and Families without earnings and ------------------------------------------------------------------------------ State Total\1\ Receiving Receiving families AFDC- Receiving Applying In AFDC- Receiving Applying basic AFDC-UP for AFDC transition basic AFDC-UP for AFDC ---------------------------------------------------------------------------------------------------------------- Alabama\2\.......... 1,072 0 0 (\3\) 1,072 0 0 (\3\) Alaska.............. 115 8 2 (\3\) 73 32 2 (\3\) Arizona............. 2,253 1,257 (\4\) (\4\) 940 56 (\4\) (\4\) Arkansas............ 2,519 1,945 3 (\3\) 345 227 (\3\) (\3\) California.......... 1,595 (\4\) (\4\) (\4\) 1,595 (\3\) (\3\) (\3\) Colorado............ 314 (\4\) (\4\) (\4\) 314 (\3\) (\3\) (\3\) Connecticut......... 1,167 (\4\) (\4\) (\3\) 680 (\4\) (\4\) (\3\) Delaware............ 375 250 0 (\3\) 126 (\3\) (\3\) (\3\) District of Columbia 147 71 0 0 76 0 0 0 Florida............. 4,391 1,932 12 (\3\) 2,447 0 0 (\3\) Georgia............. 4,794 2,235 2 (\3\) 801 1,745 13 (\3\) Guam................ 5 0 0 0 5 0 0 0 Hawaii.............. 232 187 3 0 42 0 0 0 Idaho............... 437 262 1 (\3\) 142 32 0 (\3\) Illinois............ 1,552 42 1 (\3\) 1,353 143 13 (\3\) Indiana............. 1,896 53 1 (\3\) 607 1,213 22 (\3\) Iowa................ 826 587 7 0 232 0 0 0 Kansas.............. (\4\) (\4\) (\4\) (\4\) (\4\) (\3\) (\3\) (\3\) Kentucky............ 680 10 0 (\3\) 623 45 2 (\3\) Louisiana........... 1,185 7 (\3\) (\3\) 1,175 3 (\3\) (\3\) Maine............... 130 (\4\) (\4\) (\4\) 130 (\4\) (\4\) (\4\) Maryland............ 3,193 924 (\4\) (\3\) 357 1,912 (\4\) (\3\) Massachusetts....... 2,620 901 46 65 1,608 (\4\) (\4\) (\4\) Michigan............ 8,070 (\4\) (\4\) (\4\) 632 7,060 378 (\4\) Minnesota........... 1,172 (\4\) (\4\) (\3\) 1,017 145 10 (\3\) Mississippi......... 134 0 0 (\3\) 133 1 0 (\3\) Missouri............ 2,191 132 2 (\3\) 1,078 972 6 (\3\) Montana............. 160 (\4\) (\4\) (\3\) 160 0 0 (\3\) Nebraska............ 2,825 710 42 1 522 1,492 57 1 Nevada.............. 161 (\4\) (\4\) (\3\) 161 0 0 (\3\) New Hampshire....... 780 122 33 (\3\) 215 395 14 (\3\) New Jersey.......... 4,396 (\4\) (\4\) (\4\) (\4\) (\4\) (\4\) (\4\) New Mexico.......... 555 (\4\) (\4\) (\3\) 261 290 4 (\3\) New York............ 4,669 3,355 29 (\3\) 1,285 (\3\) (\3\) (\3\) North Carolina...... 6,428 5,028 13 (\3\) 1,386 0 (\3\) 0 North Dakota........ 398 170 2 (\3\) 214 12 0 (\3\) Ohio................ 3,026 553 54 (\3\) 1,353 1,010 56 (\3\) Oklahoma............ 1,886 581 0 7 555 561 38 143 Oregon.............. 2,730 1,197 19 7 1,450 8 0 50 Pennsylvania........ 5,488 2,888 548 (\3\) 3,762 (\3\) (\3\) (\3\) Puerto Rico......... (\3\) (\3\) (\3\) (\3\) (\3\) (\3\) (\3\) (\3\) Rhode Island........ 346 233 0 0 113 0 0 0 South Carolina...... 1,009 853 2 (\3\) 154 0 0 (\3\) South Dakota........ 788 254 0 (\3\) 312 223 0 (\3\) Tennessee........... 3,574 1,369 4 (\3\) 1,608 591 2 (\3\) Texas............... 5,848 1,808 11 (\3\) 3,988 40 1 (\3\) Utah................ 1,056 116 24 11 906 (\4\) (\4\) (\4\) Vermont............. 990 349 6 0 65 539 24 6 Virgin Islands...... 23 18 0 0 6 0 0 0 Virginia............ 2,484 346 1 (\3\) 995 1,139 4 (\3\) Washington.......... 2,442 2,171 81 0 189 0 0 0 West Virginia....... 732 266 17 (\3\) 175 258 16 (\3\) Wisconsin........... 5,863 3,349 400 0 1,037 965 113 0 Wyoming............. 1,180 802 84 (\3\) 64 230 5 (\3\) ------------------------------------------------------------------------------------------- U.S. totals..... 102,908 37,341 1,450 91 38,539 21,339 780 200 ---------------------------------------------------------------------------------------------------------------- \1\``Total Families'' may not equal the sum of the categories due to incomplete, inconsistent, or duplicated State reporting. \2\Children-level data are used as a proxy for one or more categories or for ``Total Families.'' \3\The State indicates that the data are not applicable. \4\Data are applicable to the State, but not reported. \5\Data are reported for AFDC recipients who are employed or participating in a non-JOBS education and training program, Tribal JOBS participants, and families receiving transitional child care. Source: DHHS/Administration for Children and Families. TABLE 12-18.--NON-JOBS AFDC FAMILIES\5\ RECEIVING IV-A PAID CHILD CARE, BY TYPE OF CARE ARRANGEMENT AND BY STATE--FISCAL YEAR 1992 [Preliminary data] ---------------------------------------------------------------------------------------------------------------- Families by type of care arrangement (average monthly number) ---------------------------------------------- Care provided by Care provided by a State Total\1\ a relative nonrelative in families ---------------------------------------------- In Outside Family child's child's Child's day care Center home home home home care ---------------------------------------------------------------------------------------------------------------- Alabama............................................... (\4\) (\4\) (\4\) (\4\) (\4\) (\4\) Alaska................................................ 42 6 5 3 11 19 Arizona............................................... 1,301 14 85 4 134 1,063 Arkansas.............................................. 2,175 14 23 13 168 1,956 California............................................ (\4\) (\4\) (\4\) (\4\) (\4\) (\4\) Colorado.............................................. (\4\) (\4\) (\4\) (\4\) (\4\) (\4\) Connecticut........................................... 487 (\4\) (\4\) (\4\) (\4\) (\4\) Delaware.............................................. 250 1 1 1 72 186 District of Columbia.................................. 71 (\4\) (\4\) (\4\) (\4\) (\4\) Florida............................................... 1,944 10 16 16 76 1,826 Georgia............................................... 3,994 270 462 280 211 2,771 Guam.................................................. 0 0 0 0 0 0 Hawaii................................................ 190 (\4\) (\4\) (\4\) (\4\) (\4\) Idaho................................................. 295 9 37 16 106 134 Illinois.............................................. 199 7 14 21 50 107 Indiana............................................... 1,289 152 307 68 372 466 Iowa.................................................. 1,426 (\4\) (\4\) (\4\) (\4\) (\4\) Kansas................................................ (\4\) (\4\) (\4\) (\4\) (\4\) (\4\) Kentucky.............................................. 57 5 14 14 22 22 Louisiana............................................. 10 1 2 (\3\) 5 2 Maine................................................. (\4\) (\4\) (\4\) (\4\) (\4\) (\4\) Maryland.............................................. 2,836 0 0 0 1,370 1,467 Massachusetts......................................... 1,012 81 104 388 441 0 Michigan.............................................. 7,438 (\4\) (\4\) (\4\) (\4\) (\4\) Minnesota............................................. 164 10 22 16 77 39 Mississippi........................................... 1 0 1 0 0 0 Missouri.............................................. 1,113 26 85 55 405 603 Montana............................................... (\4\) (\4\) (\4\) (\4\) (\4\) (\4\) Nebraska.............................................. 2,303 85 41 101 1,094 1,089 Nevada................................................ (\4\) (\4\) (\4\) (\4\) (\4\) (\4\) New Hampshire......................................... 565 30 61 48 110 198 New Jersey............................................ 3,254 (\4\) (\4\) (\4\) (\4\) (\4\) New Mexico............................................ 306 15 65 78 43 106 New York.............................................. 3,384 72 282 168 2,155 708 North Carolina........................................ 5,041 322 734 175 627 3,184 North Dakota.......................................... 184 39 91 21 38 7 Ohio.................................................. 1,673 0 125 0 799 750 Oklahoma.............................................. 1,330 1 4 8 142 1,177 Oregon................................................ 1,280 213 251 156 636 333 Pennsylvania.......................................... 3,436 (\4\) (\4\) (\4\) (\4\) (\4\) Puerto Rico........................................... (\3\) (\3\) (\3\) (\3\) (\3\) (\3\) Rhode Island.......................................... 233 (\4\) (\4\) (\4\) (\4\) (\4\) South Carolina........................................ 933 (\4\) (\4\) (\4\) (\4\) (\4\) South Dakota.......................................... 476 39 67 39 222 132 Tennessee............................................. 1,966 50 120 32 241 1,522 Texas................................................. 44 1 5 (\3\) 1 38 Utah.................................................. 151 (\2\) (\2\) 1 45 103 Vermont............................................... 925 91 121 100 364 247 Virgin Islands........................................ 18 0 1 0 4 13 Virginia.............................................. 1,490 71 60 62 576 720 Washington............................................ 2,378 354 249 430 524 822 West Virginia......................................... 557 28 150 0 145 235 Wisconsin............................................. 4,827 196 533 150 1,973 1,975 Wyoming............................................... 1,121 43 151 27 423 476 --------------------------------------------------------- U.S. totals....................................... 64,169 2,256 4,289 2,491 13,682 24,496 ---------------------------------------------------------------------------------------------------------------- \1\``Total Families'' may not equal the sum of the categories due to incomplete, inconsistent, or duplicative State reporting. \2\The State does not define ``Type of Care Arrangements'' according to Federal reporting requirements. \3\The State indicates that the data are not applicable. \4\Data are applicable to the State, but not reported. \5\Data are reported for AFDC recipients who are employed or participating in a non-JOBS education and training program, and Tribal JOBS participants. Source: DHHS, Administration for Children and Families. TABLE 12-19.--CHILDREN RECEIVING TRANSITIONAL CHILD CARE, BY QUARTER AND BY STATE--FISCAL YEAR 1992, PRELIMINARY DATA [Average monthly number] ---------------------------------------------------------------------------------------------------------------- October January July 1992 1991 to 1992 to April to Fiscal State December March 1992 to September year 1992 1991 1992 June 1992 1992 ---------------------------------------------------------------------------------------------------------------- Alabama.................................................. 1,020 950 1,073 1,245 1,072 Alaska................................................... 115 107 104 82 102 Arizona.................................................. 1,427 1,505 1,743 1,887 1,641 Arkansas................................................. 329 342 610 471 438 California............................................... 2,053 2,130 2,204 2,442 2,207 Colorado................................................. 586 586 586 586 586 Connecticut.............................................. 792 772 803 900 817 Delaware................................................. 162 201 226 227 204 District of Columbia\1\.................................. 82 68 65 88 76 Florida.................................................. 4,367 3,930 3,626 3,884 3,952 Georgia.................................................. 1,160 1,283 1,346 1,606 1,349 Guam..................................................... 9 8 8 3 7 Hawaii................................................... 65 52 41 47 51 Idaho.................................................... 195 197 230 256 220 Illinois................................................. 1,771 2,172 2,504 2,785 2,308 Indiana.................................................. 673 884 1,194 1,235 997 Iowa..................................................... 344 339 364 362 352 Kansas................................................... 1,572 1,610 1,707 1,096 1,496 Kentucky................................................. 860 919 951 920 913 Louisiana................................................ 1,688 1,763 1,814 2,129 1,849 Maine.................................................... 145 173 221 273 203 Maryland................................................. \1\302 579 633 704 \2\656 Massachusetts............................................ 1,627 2,107 3,744 2,267 2,436 Michigan\1\.............................................. 654 711 748 415 632 Minnesota................................................ 1,488 1,477 1,567 1,815 1,587 Mississippi.............................................. 219 213 226 215 218 Missouri................................................. 1,429 1,581 1,876 2,215 1,776 Montana.................................................. 305 305 334 348 323 Nebraska\1\.............................................. 525 530 518 515 522 Nevada................................................... 316 414 335 303 342 New Hampshire............................................ 287 302 337 407 333 New Jersey............................................... 1,704 1,768 2,972 1,811 2,064 New Mexico............................................... \1\220 439 455 747 \2\547 New York................................................. 1,513 1,731 1,869 2,128 1,808 North Carolina........................................... 2,123 2,538 2,914 3,242 2,704 North Dakota............................................. 277 276 268 275 274 Ohio..................................................... 1,827 1,961 2,305 2,707 2,200 Oklahoma................................................. 840 872 978 998 922 Oregon................................................... 2,309 2,372 2,560 2,993 2,559 Pennsylvania............................................. (\4\) (\4\) 6,041 6,496 6,269 Puerto Rico.............................................. (\3\) (\3\) (\3\) (\3\) (\3\) Rhode Island............................................. 177 170 162 (\4\) 170 South Carolina........................................... 195 200 233 221 212 South Dakota............................................. 487 486 498 513 496 Tennessee................................................ 2,187 2,229 2,896 2,639 2,488 Texas.................................................... 5,617 6,258 6,568 7,212 6,414 Utah..................................................... 788 856 957 1,049 913 Vermont.................................................. 33 40 55 66 48 Virgin Islands........................................... 7 6 6 3 6 Virginia................................................. 1,445 1,486 1,486 1,883 1,575 Washington............................................... 94 199 409 528 307 West Virginia............................................ 296 293 341 342 318 Wisconsin................................................ 1,469 1,422 1,722 1,960 1,643 Wyoming\2\............................................... 53 65 71 69 65 ------------------------------------------------------ U.S. totals.......................................... 50,228 53,877 67,494 69,610 63,667 ---------------------------------------------------------------------------------------------------------------- \1\Family-level data are used as a proxy. \2\The fiscal year average consists of January 1992 through September 1992. \3\The State indicates that the data are not applicable. \4\Data are applicable, but not reported. Source: DHHS/Administration for Children and Families. TABLE 12-20.--FAMILIES RECEIVING TRANSITIONAL CHILD CARE BY TYPE OF CARE ARRANGEMENT AND BY STATE--FISCAL YEAR 1992 ---------------------------------------------------------------------------------------------------------------- Families by type of care arrangement (average monthly number) --------------------------------------------------------- Care provided by Care provided by a State a relative nonrelative in Total\1\ ---------------------------------------------- families In Outside Family child's child's Child's day care Center home home home home care ---------------------------------------------------------------------------------------------------------------- Alabama\2\............................................ 1,072 76 105 46 236 609 Alaska................................................ 73 1 2 0 21 49 Arizona............................................... 940 12 36 2 99 791 Arkansas.............................................. 345 43 14 3 23 262 California............................................ 1,589 128 190 147 701 446 Colorado.............................................. 314 (\4\) (\4\) (\4\) (\4\) (\4\) Connecticut........................................... 680 (\4\) (\4\) (\4\) (\4\) (\4\) Delaware.............................................. 126 0 1 0 34 97 District of Columbia.................................. 76 (\4\) (\4\) (\4\) (\4\) (\4\) Florida............................................... 2,447 29 25 40 159 2,195 Georgia............................................... 801 84 132 72 50 463 Guam.................................................. 5 2 3 0 0 1 Hawaii................................................ 42 0 5 0 31 6 Idaho................................................. 142 4 34 7 65 38 Illinois.............................................. 1,353 104 388 194 311 357 Indiana............................................... 607 81 182 40 212 118 Iowa.................................................. 232 0 0 0 34 199 Kansas................................................ (\4\) (\4\) (\4\) (\4\) (\4\) (\4\) Kentucky.............................................. 623 68 116 130 15 295 Louisiana............................................. 1,175 128 285 35 550 177 Maine................................................. 130 5 9 12 92 12 Maryland.............................................. 357 37 24 22 139 136 Massachusetts......................................... 1,608 0 0 120 133 1,356 Michigan.............................................. 632 (\4\) (\4\) (\4\) (\4\) (\4\) Minnesota............................................. 992 29 79 32 514 338 Mississippi........................................... 133 15 27 4 17 69 Missouri.............................................. 1,078 41 118 91 402 488 Montana............................................... 160 (\4\) 40 (\4\) 81 41 Nebraska.............................................. 522 27 15 31 291 192 Nevada................................................ 161 10 3 13 6 130 New Hampshire......................................... 215 11 23 22 43 83 New Jersey............................................ 1,352 (\4\) (\4\) (\4\) (\4\) (\4\) New Mexico............................................ 261 20 45 64 38 95 New York.............................................. 1,285 4 73 5 441 762 North Carolina........................................ 1,386 104 292 96 242 652 North Dakota.......................................... 212 15 54 19 119 27 Ohio.................................................. 1,353 0 62 0 703 588 Oklahoma.............................................. 555 1 5 1 64 484 Oregon................................................ 1,450 14 348 21 903 194 Pennsylvania.......................................... 3,762 (\4\) (\4\) (\4\) (\4\) (\4\) Puerto Rico........................................... (\3\) (\3\) (\3\) (\3\) (\3\) (\3\) Rhode Island.......................................... 113 5 7 1 16 85 South Carolina........................................ 154 (\4\) (\4\) (\4\) (\4\) (\4\) South Dakota.......................................... 312 29 37 34 163 63 Tennessee............................................. 1,608 110 203 52 273 970 Texas................................................. 3,988 46 197 9 105 3,658 Utah\5\............................................... 906 (\4\) (\4\) 8 298 600 Vermont............................................... 65 11 9 21 17 4 Virgin Islands........................................ 6 0 0 0 0 6 Virginia.............................................. 995 87 82 24 325 477 Washington............................................ 200 26 21 33 48 72 West Virginia......................................... 175 11 75 (\3\) 58 67 Wisconsin............................................. 1,037 42 115 32 424 424 Wyoming............................................... 65 2 9 1 32 21 --------------------------------------------------------- U.S. totals....................................... 39,870 1,462 3,490 1,484 8,528 18,197 ---------------------------------------------------------------------------------------------------------------- \1\``Total Families'' may not equal the sum of the categories due to incomplete, inconsistent, or duplicated State reporting. \2\Children-level data are used as a proxy for one or more categories or for ``Total Families.'' \3\The State indicates that the data are not applicable. \4\Data are applicable to the State, but not reported. \5\The State does not define ``Type of Care Arrangements'' according to Federal reporting requirements. Source: DHHS/Administration for Children and Families. CHILD CARE LICENSING AND IMPROVEMENT GRANTS The Family Support Act of 1988 (P.L. 100-485) amended title IV-A of the Social Security Act to authorize $13 million for each of fiscal years 1990 and 1991 for Federal matching grants to States for improvement of State licensing and registration requirements and to monitor child care for children receiving AFDC care. The Omnibus Budget Reconciliation Act of 1990 (P.L. 101-508) modified the purposes of the grant program so that, beginning with fiscal year 1991, grants are used for enforcing standards with respect to all title IV-A child care instead of for monitoring AFDC care. The law also required States to spend at least 50 percent of their grants for the training of child care providers. Public Law 101-508 authorized $50 million for the program for each of fiscal years 1992, 1993, and 1994. State allocations are based on the number of AFDC children in a State compared to the total in the United States. States must provide matching funds equal to not less than 10 percent of the amount of the grant. Congress did not appropriate funds for the program for fiscal years 1992 through 1994. CHILD CARE AND DEVELOPMENT BLOCK GRANT The Child Care and Development Block Grant program was authorized as an amendment to the Omnibus Budget Reconciliation Act of 1990, and is targeted to child care services for low- income families, as well as for activities to improve the overall quality and supply of child care for families in general. Appropriated funds are distributed to States, territories, and tribes (grantees) based on a formula in law, and no match is required. The formula reserves up to 0.5 percent for the territories and up to 3 percent for Indian tribes and tribal organizations. Remaining funds are allocated to the States based on the States' proportion of children under age 5 and the number of children receiving free or reduced- priced school lunches, as well as the States' per capita income. The program is authorized for 5 years, through fiscal year 1995, at the following levels: $750 million for fiscal year 1991, $825 million for fiscal year 1992, $925 million for fiscal year 1993, and ``such sums as necessary'' for fiscal years 1994 and 1995. For fiscal year 1991, $732 million was appropriated for the program and was available for obligation on September 7, 1991. For fiscal year 1993, $893 million was appropriated and is available for obligation on September 30, 1993. Table 12-21 provides State allocations for fiscal years 1992 and 1993. The law requires States to use 25 percent of their allotments for activities to improve the quality of child care and to increase the availability of early childhood development and before- and after-school child care services. The remaining 75 percent is for child care services and for activities to improve the quality and availability of child care. States must use at least 75 percent of the 25 percent share (18.5 percent of a State's total allotment) to establish, expand, or operate, through grants or contracts, early childhood development or before- and after-school child care programs or both. Twenty percent (5 percent of total funds) must be used for at least one or more of the following quality improvement activities: providing assistance to resource and referral programs; providing grants or loans to assist providers in meeting applicable State and local child care standards; monitoring the compliance and enforcement of State and local regulatory requirements; providing training and technical assistance in relevant child care areas, such as health and safety, nutrition, first aid, child abuse detection and prevention; and improving salaries of child care workers. States can use the remaining 5 percent (1.25 percent) for any of the activities allowed under the 25 percent share. With regard to the 75 percent of funds, regulations provide that 90 percent must be used for services, and up to 10 percent can be used for activities to improve child care quality and availability and administrative costs. Grantees can spend more on administrative costs associated with setting up voucher programs if granted permission of DHHS. Children under age 13 who come from families with incomes at or below 75 percent of the grantee median income and reside with parents (or a parent) who are working, attending school, or in a job training program are eligible for services. Children also are eligible if they are receiving or need to receive protective services. Priority is to be given to serving children in very low-income families and children with special needs. Child care providers receiving block grant assistance must meet all licensing or regulatory requirements, including registration requirements, applicable under State or local law. Providers who are 18 years of age or older who care only for grandchildren, nieces, or nephews must be registered and comply only with any State requirements that govern relative care. Providers that are not required by State or local law to be licensed or regulated must be registered with the State as a condition of funding. Registration procedures must be designed to facilitate payment and permit the State to inform providers of the availability of health and safety training, technical assistance, and other information. Providers (except grandparents, aunts, and uncles) must also meet certain health and safety standards if they are not already doing so. The standards must cover: prevention and control of infectious diseases (including immunization); building and physical premises safety; and minimum health and safety training appropriate to the provider setting (i.e., center, family home, etc.). States have the option of imposing more stringent standards and requirements on child care providers funded under the program than those imposed on other providers in the State. Any reductions that are made in child care standards must be reported and explained to DHHS in the State's annual report on the program. In addition, States are required to conduct a one- time review of their child care licensing and regulatory requirements and policies. The requirement is to be waived if such a review was conducted in the last 3 years. States are required to give eligible families the option of (1) enrolling their children with an eligible provider that has a grant from or contract with the State's block grant program or (2) receiving a child care certificate with which they can purchase child care. This option only applies to funding for child care services from the 75 percent portion of the State's allocation. Certificates are not an option in providing early childhood development and before- and after-school care under the 25 percent set-aside. Child care certificates can be used only to pay for child care services from eligible providers, including sectarian child care providers. Certificates must be issued directly to the parent and must be worth amounts that are commensurate with contract/grant values. States have until October 1, 1992, to have a certificate program in place. States are directed by the regulations to make the certificate option available to all families offered services under the program. Certificates can be checks or other disbursements at the discretion of the State. Payment rates for child care funded by the block grant must be sufficient to ensure equal access for eligible children to comparable child care in the State or substate area that is provided to children not eligible for Federal or State child care subsidies. In addition, the payment rates must take into account variations in the cost of child care due to setting, age of children, and special needs of children. The block grant program contains specific requirements with regard to the use of funds for religious activities. Under the program, a provider that receives operating assistance as a result of a direct grant from, or contract with, a Government agency may not use the assistance for any sectarian purpose or activity, including religious worship and instruction. However, a sectarian provider that receives a child care certificate from an eligible parent is not so restricted in the use of funds. States are required to report annually to the Secretary of DHHS on how they used their funds. Reports are to include information on the number of children served, types and number of providers assisted, child care staff salaries and compensation, improvements made in child care quality and availability, and descriptions of health and safety standards. States must also conduct program audits and submit reports to the State legislature and the Secretary of DHHS. The Secretary of DHHS must report to Congress annually on the State reports. At the Federal level, the program is administered by the Administration for Children and Families, DHHS. DHHS is required to coordinate all child care activities within the agency and with similar activities in other Federal agencies. DHHS is also required to publish a list of State child care standards at least once every 3 years, give technical assistance to the States in operating their block grant programs, and monitor State compliance with program requirements. TABLE 12-21.--STATE ALLOCATIONS UNDER THE CHILD CARE AND DEVELOPMENT BLOCK GRANT, 1991-94 [By fiscal years; in thousands of dollars] ------------------------------------------------------------------------ 1991 1992 1993 1994 State actual actual actual estimate ------------------------------------------------------------------------ Alabama................. $16,692 18,408 19,085 19,082 Alaska.................. 1,344 1,535 1,767 1,766 Arizona................. 12,195 14,064 15,790 15,788 Arkansas................ 9,043 9,966 10,550 10,548 California.............. 76,561 90,062 100,638 100,622 Colorado................ 8,074 8,981 9,731 9,730 Connecticut............. 5,252 5,994 6,475 6,474 Delaware................ 1,369 1,547 1,702 1,702 District of Columbia.... 1,420 1,644 1,698 1,697 Florida................. 32,788 38,408 43,179 43,172 Georgia................. 21,973 25,037 27,447 27,443 Hawaii.................. 2,642 2,902 3,025 3,025 Idaho................... 3,628 4,072 4,374 4,373 Illinois................ 27,217 30,716 33,117 33,112 Indiana................. 13,731 15,372 16,604 16,601 Iowa.................... 7,191 7,755 8,470 8,468 Kansas.................. 6,853 7,366 7,866 7,865 Kentucky................ 13,646 15,256 16,298 16,296 Louisiana............... 21,669 23,624 24,156 24,152 Maine................... 2,997 3,379 3,657 3,657 Maryland................ 9,185 10,339 11,444 11,442 Massachusetts........... 9,858 11,130 12,377 12,375 Michigan................ 22,120 24,658 26,717 26,712 Minnesota............... 10,465 11,581 12,366 12,364 Mississippi............. 14,631 15,845 16,376 16,373 Missouri................ 13,768 15,270 16,304 16,301 Montana................. 2,532 2,780 2,944 2,943 Nebraska................ 4,359 4,809 5,074 5,073 Nevada.................. 2,441 2,874 3,293 3,292 New Hampshire........... 1,832 2,058 2,241 2,240 New Jersey.............. 12,858 14,805 16,182 16,180 New Mexico.............. 6,994 7,597 8,260 8,258 New York................ 41,373 46,605 50,536 50,528 North Carolina.......... 20,624 23,390 24,883 24,879 North Dakota............ 2,092 2,236 2,289 2,288 Ohio.................... 26,424 29,531 32,042 32,037 Oklahoma................ 11,292 12,524 13,373 13,370 Oregon.................. 7,115 8,139 8,875 8,873 Pennsylvania............ 25,038 27,797 29,687 29,683 Puerto Rico............. 22,509 23,545 24,724 24,721 Rhode Island............ 1,984 2,252 2,478 2,477 South Carolina.......... 13,644 15,351 16,443 16,440 South Dakota............ 2,747 2,956 3,085 3,084 Tennessee............... 15,751 17,521 18,585 18,582 Texas................... 66,622 74,989 80,706 80,694 Utah.................... 6,625 7,137 8,340 8,339 Vermont................. 1,260 1,432 1,539 1,539 Virginia................ 13,151 14,844 16,426 16,423 Washington.............. 11,354 12,974 14,029 14,027 West Virginia........... 6,065 6,479 6,671 6,670 Wisconsin............... 11,914 13,080 13,937 13,935 Wyoming................. 1,386 1,517 1,593 1,593 ----------------------------------------------- Subtotal.......... 706,298 794,133 859,448 859,308 Territories............. 3,660 4,115 4,453 4,452 Indian tribe set aside.. 21,957 24,688 26,719 26,714 Discretionary funds..... .......... 2,062 2,092 2,232 ----------------------------------------------- Total budget authority........ 731,915 825,000 892,711 892,711 ------------------------------------------------------------------------ Totals may differ from sum of individual amounts because of rounding. Source: Administration for Children and Families, DHHS. TITLE XX--SOCIAL SERVICES BLOCK GRANT Title XX of the Social Security Act authorizes grants to States for providing social services that are determined appropriate by the State. The program operates as a ``capped entitlement'', under which States are allocated funds based on their relative population size up to a nationwide ceiling. No matching funds are required. In addition, there are no Federal eligibility requirements for participants. The program is administered at the Federal level by ACF, DHHS. The Omnibus Budget Reconciliation Act of 1989 (P.L. 101-239) permanently authorized $2.8 billion annually for the program, beginning in fiscal year 1990. Available information on use of title XX funds indicates that a majority of States typically spend some portion of their grants on child care services. According to State reports on the intended use of title XX funds (known as preexpenditure reports), 45 States funded child care services in fiscal year 1990. Another source of data on title XX is the Voluntary Cooperative Information System (VCIS) of the American Public Welfare Association funded by DHHS. VCIS is a national data base comprised of aggregate State program statistics. The VCIS found that, based on data from 23 States, child care services accounted for 16 percent of fiscal year 1990 title XX expenditures. In addition, expenditures for child care services accounted for 22 percent of expenditures for services for children among 14 States. VCIS data from 25 States provide information on eligibility rules States use for title XX services in fiscal year 1990. Twenty of those States determine eligibility for child care services based on income standards. AFDC recipients are eligible for title XX child care in 16 States. Individuals can be eligible for title XX child care in 15 States without regard to income. More information on title XX, including State allocations, is provided in section 13. STATE DEPENDENT CARE PLANNING AND DEVELOPMENT GRANTS The State dependent care grant program provides Federal matching funds to States to plan, develop, establish, expand, improve, or operate before- and after-school child care programs for school-age children and resource and referral systems that provide information on dependent care services. Funds are allotted to States based on State total population compared to the United States' total population, except that no State can receive less than $50,000 in each fiscal year. The program is administered at the Federal level by ACF, DHHS. The program is authorized through fiscal year 1994 by the Augustus F. Hawkins Human Services Reauthorization Act of 1990 (P.L. 101-501). The law authorized $20 million for each of fiscal years 1990 and 1991 and such sums as may be necessary for fiscal years 1992 through 1994. For fiscal year 1993, the dependent care program received $12.9 million in appropriations. States are required to use 40 percent of their grants on resource and referral systems for services for children and/or the elderly and 60 percent on school-age child care programs and services. These percentage requirements may be waived if States request it. Resource and referral information services funded by the program cannot include dependent care services that are out of compliance with State and local laws. Funds for school-age child care services must be targeted to low-income families. Such services must meet State and local child care licensing laws and regulations. States cannot use funds to make cash payments to intended program recipients of dependent care services, including child care services. Public Law 101-501 required States to collect information on the number of children who participate in program-funded school-age child care, characteristics of these children, salary levels of child care program employees, and the number of clients served by resource and referral programs funded by the program. DHHS has never compiled this information. CHILD AND ADULT CARE FOOD PROGRAM The Child and Adult Care Food program is permanently authorized under the National School Lunch Act of 1946. The program provides Federal financial assistance for breakfasts, lunches, suppers, and snacks as well as commodity assistance for lunches (and when commodities are available, breakfasts) served to children in licensed child care centers and family or group day care homes. Children under age 12, migrant children under age 15, and handicapped children (no age limit) are eligible to participate, although the vast majority of children served are between 3 and 5 years old. Funded at $1.3 billion in fiscal year 1993, the child care food program is the single largest source of direct financial assistance child care. The program is administered at the Federal level by the Food and Nutrition Service of the U.S. Department of Agriculture. Program sponsorship is restricted to public and private nonprofit sponsors, and generally, to for-profit sponsors if at least 25 percent of the children in their care receive support under the Social Services Block Grant (title XX of the Social Security Act). The child care food program has three components: a child day care center component, a family and group home care component, and an adult care component. Although all children participating in child care centers, as in the school lunch and breakfast programs, are eligible to receive subsidized meals or snacks regardless of their family income, the Federal reimbursement for each meal or snack varies according to need, and the same family income cut-off levels apply. Child care centers may receive subsidies for up to two meals and two snacks, or three meals and one snack for each child in care more than 8 hours a day. Otherwise, subsidies are provided for up to two meals and one snack, or one meal and two snacks per day. The reimbursement rates for meals served in child care centers are the same as those provided for school lunches and breakfasts; there also are snack reimbursement rates set for this program, and these are annually adjusted for inflation. The family and group home care components of the child care food program operates differently. There is no income test for meals or snacks served,\12\ and all breakfasts, lunches, suppers, and snacks are subsidized at the same rates, with variation only by the type of meal being served. Reimbursement is provided for no more than two meals and one snack, or one meal and two snacks per child per day, regardless of the length of time a child is in care, except in Minnesota where a pilot project allows one additional meal or snack reimbursement per child per day. Administrative payments also are provided for sponsors of family and group day care homes, at a set rate per month. --------------------------------------------------------------------------- \12\An exception exists for children of individuals operating family and group day care homes, who may not receive federally subsidized meals unless their family income is below 185 percent of poverty. --------------------------------------------------------------------------- The child care food program is also eligible to receive a guaranteed level of commodity support for each lunch served, and when appropriate commodities are available, for breakfasts. The guaranteed level of commodity assistance may be provided in the form of the actual commodities or in their cash equivalents. As noted above, for-profit child care centers generally may not participate in the child care food program unless they receive title XX block grant funds for 25 percent or more of the children in their care. Thus, for-profit facilities that serve low-income children without the benefit of title XX block grant funds are not able to participate in the child care food program regardless of how many low-income children are served.