SECTION 11. CHILD PROTECTION, FOSTER CARE, AND ADOPTION ASSISTANCE
CONTENTS
Background
Federal Child Welfare Programs Today
The Title IV-B Child Welfare Services Program
The Title IV-E Foster Care Program
The Title IV-E Adoption Assistance Program
The Title IV-E Independent Living Program
Protections for Children in Foster Care
Protections Linked to Title IV-B Child Welfare Services
Funding
Mandatory Protections for Foster Children Funded Under Title
IV-E
Reasonable Efforts Requirement
State Compliance With Section 427 Child Protections
Federal Financial Review Procedures Under Title IV-E
New Conformity Review System Under Public Law 103-432
Recent Trends Affecting Child Welfare Populations and Programs
Child Abuse and Neglect
Child Abuse Fatalities
Substance Abuse
Trends in Foster Care Caseloads
Increase in ``Kinship'' Care
Family Preservation Programs
National Data on Foster Care and Adoption Assistance
Characteristics of Children in Substitute Care
Reasons for Placement in Substitute Care
Permanency Goals
Living Arrangements of Children in Substitute Care
Number and Duration of Placements While in Foster Care
Outcomes for Children Leaving Care
Characteristics of Children in Adoptive Care
Trends in Child Welfare and Foster Care Costs
Foster Care and Adoption Information System
Lack of Adequate Data
OBRA 1993 and Final Rules for AFCARS and SACWIS
Legislative History
Adoption Legislation in the 105th Congress
References
BACKGROUND
Child welfare services aim to improve the conditions of
children and their families and to improve or provide
substitutes for functions that parents have difficulty
performing. Child welfare services encompass a broad range of
activities, including protection of abused or neglected
children, support and preservation of families, care of the
homeless and neglected, support for family development, and
provision of out-of-home care. Services may help the family
cope with problems or they may protect children while the
family learns to perform appropriate parenting roles.
It is generally agreed that it is in the best interests of
children to live with their families. To this end, experts
emphasize both the value of preventive and rehabilitative
services and the need to limit the duration of foster care
placements. However, if children must be removed, a major
principle of professional social work is the provision of
permanent living arrangements, either by returning children to
their homes in a timely fashion or by moving children into
adoption or other permanent arrangements.
Many private, nonprofit and government entities work to
provide child welfare services to families in need. The primary
responsibility for child welfare services in the government,
however, rests with the States. Each State has its own legal
and administrative structures and programs that address the
needs of children. The Federal Government has also been
involved in efforts to improve the welfare of children in
specific areas of national concern since the early 1900s.
Almost 40 Federal programs were authorized to provide support
for such services as of 1994, administered by four different
Cabinet agencies and overseen by five House Committees
(Robinson & Forman, 1994). The largest of these programs are
authorized under titles IV-B and IV-E of the Social Security
Act. Additional programs include grants to States, local
governments and nongovernmental agencies for prevention and
treatment of child abuse and neglect, advocacy centers for
victims of sexual abuse, services for abandoned infants and
children with AIDS, promotion of adoption, child abuse-related
training for judicial personnel, federally administered
research and demonstration, Indian child welfare programs,
family violence programs, and a number of small programs. Of
these programs, a third had funding of less than $25 million in
1997. In addition, services related to child welfare may be
provided at State discretion under the Social Services Block
Grant (title XX of the Social Security Act), described in
section 10.
This section will focus specifically on Child Welfare,
Foster Care and Adoption Assistance Programs authorized under
titles IV-B and IV-E of the Social Security Act. Title IV-B
authorizes funds to States for a broad range of child welfare
services, including family preservation and family support
services; title IV-E authorizes the Foster Care, Independent
Living, and Adoption Assistance Programs. The IV-B and IV-E
programs are intended to operate in consort to help prevent the
need for out-of-home placement of children, and in cases where
such placement is necessary, to provide protections and
permanent placement for the children involved. Funding is
provided under the Foster Care Program to assist States with
the maintenance costs of low-income (AFDC-eligible) children in
foster care. The Independent Living Program is intended to help
States facilitate the transition of older children from foster
care to independent living; the Adoption Assistance Program
helps States support the adoption of AFDC- or SSI-eligible
children with ``special needs,'' such as minority status, age,
membership in a sibling group, or a mental or physical
handicap.\1\
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\1\ Note: Since this chapter was substantially prepared,
legislation was enacted that significantly amended child welfare
programs under titles IV-B and IV-E of the Social Security Act.
References to major changes are included throughout the chapter;
however, a more detailed description of the Adoption and Safe Families
Act (Public Law 105-89) is included at the end of the chapter.)
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FEDERAL CHILD WELFARE PROGRAMS TODAY
The Social Security Act contains the primary sources of
Federal funds available to States for child welfare, foster
care, and adoption activities. These funds include both
nonentitlement authorizations (for which the amount of funding
available is determined through the annual appropriations
process) and authorized entitlements (under which the Federal
Government has a binding obligation to make payments to any
person or unit of government that meets the eligibility
criteria established by law). The programs include the Title
IV-B Child Welfare Services and Promoting Safe and Stable
Families (formerly known as Family Preservation) Programs, the
Title IV-E Foster Care Program, the Title IV-E Adoption
Assistance Program, the Title IV-E Independent Living Program,
and the Title XX Social Services Block Grant Program. Table 11-
1 lists these programs, and describes their funding.
Table 11-2 provides data on the level of Federal funds
provided to States under titles IV-B and IV-E for fiscal years
1986-96, and HHS projections for fiscal years 1997-2002. Under
the Title XX Social Services Block Grant Program, States have
discretion over what portion of their allocation they spend on
child welfare activities, as well as a range of other
activities not directly focused on children.
In addition to the funds allocated to the States or
available on an entitlement basis, title IV-B authorizes funds
for research and demonstration activities and for direct
Federal grants to public and private entities for child welfare
staff training. These activities are authorized under section
426 of title IV-B. For fiscal year 1997, $4 million is
appropriated for training and no funding is appropriated for
research under section 426.
Welfare reform legislation enacted in 1996 (Public Law 104-
193) further authorized and appropriated funds for a national
longitudinal study of children at risk for abuse or neglect,
and of children who have been identified as victims of abuse or
neglect, established under a new section 429A of the Social
Security Act. For this study, the welfare reform legislation
provided $6 million for each of fiscal years 1996-2002.
Congress subsequently rescinded the appropriation for fiscal
years 1996 and 1997, with the understanding that adequate
funding was available for the study in the broader
appropriation for social services and income maintenance
research (Public Law 104-208).
Funds available to States from the Title IV-B Child Welfare
Program may be used for services to families and children
without regard to family income. Federal matching funds for
foster care maintenance payments under title IV-E are provided
only in those cases in which the child would have been eligible
for AFDC if still in the home. All children determined to have
``special needs'' related to their being adopted, as defined
under title IV-E, are eligible for reimbursement of certain
nonrecurring costs of adoption under the Title IV-E Adoption
Assistance Program. However, only AFDC- or SSI-eligible
``special needs'' children qualify for federally matched
adoption assistance payments available under title IV-E. Funds
available to States for the Title IV-E Independent Living
Program may be used for services which facilitate the
transition of children from foster care to independent living,
regardless of whether they are eligible for AFDC foster care
assistance.
TABLE 11-1.--FUNDING ENVIRONMENT OF THE FEDERAL PROGRAMS WHICH SUPPORT FOSTER CARE, CHILD WELFARE, AND ADOPTION
SERVICES
----------------------------------------------------------------------------------------------------------------
Program Budgetary classification Federal support of total
----------------------------------------------------------------------------------------------------------------
Title IV-E Foster Care Program:
Foster care assistance payments...... Authorized entitlement................. Open-ended Federal match at
Medicaid rate.
Placement services and administrative Authorized entitlement................. Open-ended Federal match of
costs. 50 percent. \1\
Training expenses.................... Authorized entitlement................. Open-ended Federal match of
75 percent.
Title IV-E Adoption Assistance Program:
Adoption assistance payments......... Authorized entitlement................. Open-ended Federal match at
Medicaid rate.
Nonrecurring adoption expenses....... Authorized entitlement................. Open-ended Federal match of
50 percent. \2\
Placement services and administrative Authorized entitlement................. Open-ended Federal match of
costs. 50 percent.
Training expenses.................... Authorized entitlement................. Open-ended Federal match of
75 percent.
Title IV-E Independent Living Program.... Authorized entitlement................. 100 percent Federal funding,
with a funding ceiling. \3\
Title IV-B Child Welfare Services
Program:
Child welfare services (subpart 1)... Nonentitlement authorization........... Federal match of 75 percent,
total capped at State
allotment.
Promoting Safe and Stable Families Authorized entitlement................. Federal match of 75 percent,
\5\ (subpart 2). with a funding ceiling. \4\
Title XX Social Services Block Grant Authorized entitlement................. 100 percent Federal funding,
Program. with a funding ceiling.
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\1\ Seventy-five percent matching is available from fiscal year 1994 through fiscal year 1997 for certain costs
related to data collection.
\2\ The Federal Government reimburses 50 percent of up to $2,000 of expenditures for any one placement.
\3\ Beginning for fiscal year 1991, States are required to provide 50 percent matching for any Federal funding
claimed that exceeds $45 million.
\4\ Program authorized through fiscal year 1998.
\5\ The name of this program was changed from Family Preservation and Family Support in 1997, by Public Law 105-
89.
Source: Compiled by House Committee on Ways and Means staff.
TABLE 11-2.--FEDERAL FUNDING FOR CHILD WELFARE, FOSTER CARE, AND ADOPTION ACTIVITIES UNDER TITLES IV-B AND IV-E OF THE SOCIAL SECURITY ACT, 1986-2002, UNDER CURRENT LAW
[In millions of dollars]
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Title IV- Title IV-E foster care State claims Title IV-E adoption assistance State
B-1 child Title IV-B-2 ----------------------------------------- Title IV-E claims
Fiscal year welfare Promoting Safe Independent ----------------------------------------- Total
services and Stable Total \2\ Maintenance Administration/ Living Assistance Administration/
Families \1\ payments training \3\ Program Total \4\ payments training
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1986...................................................... $198 ............... $605 $392 $214 ........... $55 $41 $14 $859
1987...................................................... 223 ............... 793 480 313 $45 74 54 20 1,134
1988...................................................... 239 ............... 891 548 343 45 97 74 23 1,273
1989...................................................... 247 ............... 1,153 646 507 45 111 86 24 1,555
1990...................................................... 253 ............... 1,473 835 638 50 136 105 31 1,912
1991...................................................... 274 ............... 1,819 1,030 789 60 175 130 45 2,328
1992...................................................... 274 ............... 2,233 1,204 1,029 70 220 161 58 2,796
1993...................................................... 295 ............... 2,547 1,365 1,182 70 272 197 75 3,184
1994...................................................... 295 $60 2,607 1,412 1,190 70 325 235 90 3,356
1995...................................................... 292 150 3,050 1,594 1,456 70 411 306 105 3,974
1996...................................................... 277 225 3,114 1,533 1,581 70 485 361 124 4,171
1997 (estimate)........................................... 292 240 3,243 1,548 1,695 70 571 427 144 4,416
1998 (estimate)........................................... 292 255 3,360 1,660 1,700 70 661 495 166 4,638
1999 (estimate)........................................... 292 (\5\) 3,551 1,781 1,770 70 772 578 194 4,685
2000 (estimate)........................................... 292 (\5\) 3,790 1,912 1,878 70 893 668 225 5,045
2001 (estimate)........................................... 292 (\5\) 4,047 2,043 2,004 70 1,022 765 257 5,431
2002 (estimate).......................................... 292 (\5\) 4,318 2,182 2,136 70 1,162 870 292 5,842
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\1\ The name of this program was changed from Family Preservation and Family Support in 1997, by Public Law 105-89.
\2\ Total includes administration, SACWIS (State Automated Child Welfare Information System), and training expenditures, as well as maintenace payments, but does not include transfers to the
Title IV-B Child Welfare Services Program. Differences in total due to rounding.
\3\ Includes regular administration, SACWIS costs, and training.
\4\ Total includes administration and training expenditures, and maintenance payments. Differences in total due to rounding.
\5\ Not authorized.
Note.--Totals may differ from sum of State amounts because of rounding.
Source: U.S. Department of Health and Human Services.
Table 11-3 provides data on participation under the title
IV-B and IV-E programs. Table 11-4 shows the Congressional
Budget Office projections for Federal foster care and adoption
assistance for 1997-2002. Between 1997 and 2002, the federally
funded foster care caseload is projected to increase from
282,000 to 341,000 (21 percent). Total IV-E foster care outlays
are expected to increase 45 percent, from $3,272,000 in 1997 to
$4,742,000 in 2002. Over the same time period, the adoption
assistance caseload is projected to increase from 141,000 to
229,000 (62 percent), while total adoption assistance outlays
are estimated to increase from $562 million to $1,094 million
(95 percent).
TABLE 11-3.--PARTICIPATION IN CHILD WELFARE, FOSTER CARE, AND ADOPTION ACTIVITIES UNDER TITLES IV-B AND IV-E OF
THE SOCIAL SECURITY ACT, 1983-2001
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Title IV-B- Title IV-B-2
1 child Promoting Title IV-E Title IV-E Title IV-E
Fiscal year welfare Safe and foster care Independent adoption
services Stable assistance Living assistance
Families \1\ payments \2\ Program \3\ payments \2\
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1983......................................... NA ............ 97,370 ........... 5,309
1984......................................... NA ............ 102,051 ........... 11,581
1985......................................... NA ............ 109,122 ........... 16,009
1986......................................... NA ............ 110,586 ........... 21,989
1987......................................... NA ............ 118,549 20,182 27,588
1988......................................... NA ............ 132,757 18,931 34,698
1989......................................... NA ............ 156,871 44,191 40,666
1990......................................... NA ............ 167,981 44,365 44,024
1991......................................... NA ............ 202,687 45,284 54,818
1992......................................... NA ............ 222,315 57,360 68,197
1993......................................... NA ............ 232,668 57,918 78,044
1994......................................... NA NA 244,473 71,081 91,872
1995......................................... NA NA 260,737 73,137 106,880
1996......................................... NA NA 266,977 85,261 122,657
1997 (estimated)............................. NA NA 285,000 NA 131,200
1998 (estimated)............................. NA NA 296,400 NA 140,400
1999 (estimated)............................. NA ............ 308,300 NA 150,200
2000 (estimated)............................. NA ............ 320,600 NA 160,700
2001 (estimated)............................. NA ............ 333,400 NA 170,300
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\1\ The name of this program was changed from Family Preservation and Family Support in 1997, by Public Law 105-
89.
\2\ Average monthly number of recipients.
\3\ Estimated.
NA--Not available.
Source: U.S. Department of Health and Human Services.
TABLE 11-4.--CBO BASELINE PROJECTIONS FOR THE FEDERAL FOSTER CARE AND ADOPTION ASSISTANCE PROGRAMS, 1997-2002
[By fiscal year, In millions of dollars]
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Program 1997 1998 1999 2000 2001 2002
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Foster care:
Title IV-E caseload
(thousands).................. 282 298 311 323 332 341
Average monthly maint. payment
(Federal share).............. $490 $509 $529 $551 $573 $596
Federal outlays (millions):
Maintenance payments........ 1,632 1,789 1,955 2,121 2,285 2,447
Administrative and child
placement services......... 1,490 1,545 1,662 1,805 1,944 2,075
Training.................... 149 161 174 188 203 220
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Total outlays............. 3,272 3,495 3,791 4,114 4,432 4,742
=============================================================================
Adoption assistance:
Title IV-E caseload
(thousands).................. 141 159 177 196 213 229
Average monthly payment....... $255 $265 $275 $286 $298 $310
Federal outlays (millions):
Maintenance payments........ 421 494 574 660 747 837
Administrative and child
placement services......... 125 143 163 184 204 224
Training.................... 17 20 23 26 29 32
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Total outlays............. 562 657 759 869 981 1,094
=============================================================================
Independent living: Federal
outlays.......................... 70 70 70 70 70 70
=============================================================================
Total outlays......... 3,904 4,222 4,621 5,054 5,482 5,905
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Note.--Numbers may not add to totals due to rounding.
Source: Congressional Budget Office, March 1997 baseline.
The Title IV-B Child Welfare Services Program
Grants to States for child welfare services
The Child Welfare Services Program under subpart 1 of title
IV-B permanently authorizes 75 percent Federal matching grants
to States for services that protect the welfare of children.
These services: address problems that may result in neglect,
abuse, exploitation or delinquency of children; prevent the
unnecessary separation of children from their families and
restore children to their families, when possible; place
children in adoptive families when appropriate; and assure
adequate foster care when children cannot return home or be
placed for adoption. There are no Federal income eligibility
requirements for the receipt of child welfare services.
Under legislation originally enacted in 1980 (Public Law
96-272), States are limited in the amount of their title IV-B
allotments that may be used for child day care, foster care
maintenance payments, and adoption assistance payments.
Specifically, States may use no more than their portion of the
first $56.6 million in Federal IV-B appropriations for these
three activities. The intent of this restriction is to devote
as much title IV-B funding as possible to supportive services
that could prevent the need for out-of-home placement. In
addition, the 1980 legislation required States to implement
certain foster care protections for all children in foster care
to be eligible to receive their full allotment of Federal title
IV-B appropriations. (The foster care protections are described
later in this section.)
Between 1977 and 1990, the annual authorization level for
the Child Welfare Services Program remained flat at $266
million. The authorization level was increased to $325 million
under Public Law 101-239 beginning for fiscal year 1990.
Appropriations for the program--the amount of money Congress
actually made available for spending each year--increased from
$163.6 million in fiscal year 1981 to $294.6 million in fiscal
year 1994. Appropriations have since decreased, to $292 million
in fiscal year 1995, $277.4 million in fiscal year 1996, and
$292 million in fiscal year 1997 (see table 11-2).
Child welfare services funds are distributed to States on
the basis of their under 21 population and per capita income.
Because of minimal reporting requirements under the program,
there are no reliable National or State-by-State data on the
exact number of children served, their characteristics, or the
services provided. Table 11-5 details the State-by-State
distribution of child welfare services funds for selected
fiscal years.
TABLE 11-5.--STATE-BY-STATE ALLOCATIONS FOR TITLE IV-B CHILD WELFARE SERVICES, SELECTED YEARS 1987-97
[In thousands of dollars]
----------------------------------------------------------------------------------------------------------------
Fiscal year
-----------------------------------------------------------------------------
State 1987 1989 1992 1994 1995 1996 1997
actual actual actual actual actual actual allotments
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Alabama........................... $4,783 $5,136 $5,432 $5,623 $5,512 $5,106 $5,327
Alaska............................ 417 294 614 754 756 725 749
Arizona........................... 3,344 3,797 4,418 5,034 5,036 5,015 5,466
Arkansas.......................... 2,838 3,095 3,273 3,424 3,387 3,178 3,359
California........................ 20,445 23,100 27,289 31,732 31,575 31,049 32,760
Colorado.......................... 2,772 3,091 3,558 3,866 3,904 3,719 3,935
Connecticut....................... 2,081 2,143 1,942 2,120 2,077 2,052 2,154
Delaware.......................... 570 654 717 726 720 713 756
District of Columbia.............. 386 432 431 447 427 345 346
Florida........................... 9,105 10,361 11,773 13,146 13,096 12,781 13,708
Georgia........................... 6,622 7,301 7,737 8,426 8,418 8,032 8,502
Hawaii............................ 656 1,119 1,180 1,204 1,205 1,117 1,179
Idaho............................. 1,304 1,388 1,581 1,703 1,719 1,622 1,736
Illinois.......................... 9,932 10,773 11,338 11,773 11,634 11,067 11,684
Indiana........................... 5,572 6,064 6,709 6,952 6,832 6,367 6,697
Iowa.............................. 2,861 3,074 3,364 3,475 3,402 3,223 3,358
Kansas............................ 2,150 2,461 2,885 3,068 3,034 2,873 3,011
Kentucky.......................... 4,154 4,556 4,883 5,030 4,961 4,624 4,842
Louisiana......................... 5,106 5,657 6,350 6,527 6,412 5,910 6,195
Maine............................. 1,313 1,391 1,443 1,482 1,455 1,378 1,432
Maryland.......................... 3,440 3,798 3,924 4,343 4,291 4,156 4,358
Massachusetts..................... 2,714 4,418 4,336 4,708 4,597 4,579 4,792
Michigan.......................... 8,888 9,551 10,196 10,885 10,634 10,075 10,487
Minnesota......................... 3,937 4,206 4,753 5,092 5,070 4,785 5,022
Mississippi....................... 3,519 3,923 4,177 4,293 4,245 3,949 4,146
Missouri.......................... 4,958 5,235 5,798 6,146 6,072 5,727 5,998
Montana........................... 978 1,049 1,136 1,207 1,220 1,158 1,203
Nebraska.......................... 1,641 1,744 1,996 2,071 2,032 1,879 1,968
Nevada............................ 775 964 1,170 1,401 1,430 1,379 1,516
New Hampshire..................... 950 1,024 1,028 1,087 1,074 1,096 1,152
New Jersey........................ 5,424 5,465 4,936 5,224 5,193 5,368 5,669
New Mexico........................ 1,642 2,072 2,291 2,510 2,526 2,418 2,541
New York.......................... 13,529 14,373 14,490 15,452 15,231 14,148 14,808
North Carolina.................... 6,432 7,189 7,771 8,112 8,086 7,728 8,229
North Dakota...................... 750 849 942 945 929 858 891
Ohio.............................. 10,402 10,429 12,283 12,878 12,748 11,853 12,386
Oklahoma.......................... 3,332 3,735 4,144 4,406 4,374 4,133 4,310
Oregon............................ 2,586 2,850 3,283 3,556 3,555 3,321 3,531
Pennsylvania...................... 10,038 11,236 11,905 12,148 11,949 11,076 11,583
Rhode Island...................... 888 953 1,025 1,054 1,032 984 1,012
South Carolina.................... 4,015 4,468 4,747 4,948 4,867 4,544 4,696
South Dakota...................... 853 938 1,038 1,075 1,077 991 1,029
Tennessee......................... 5,001 5,598 5,933 6,210 6,166 5,792 6,100
Texas............................. 16,243 18,958 21,845 23,795 23,796 22,401 23,783
Utah.............................. 2,555 2,891 3,196 3,474 3,481 3,284 3,469
Vermont........................... 632 583 713 715 699 674 703
Virginia.......................... 4,907 5,463 5,891 6,373 6,323 6,114 6,408
Washington........................ 3,774 4,382 5,169 5,699 5,741 5,231 5,512
West Virginia..................... 2,226 2,397 2,454 2,486 2,417 2,189 2,251
Wisconsin......................... 4,672 5,077 5,639 6,022 5,950 5,574 5,854
Wyoming........................... 101 382 703 724 719 638 661
American Samoa.................... NA 163 175 193 190 183 188
Guam.............................. 304 342 376 351 346 329 340
Northern Marianas................. 110 118 124 142 140 136 139
Puerto Rico....................... 3,671 3,674 7,094 8,105 7,951 7,480 7,787
Virgin Islands.................... 202 295 311 280 276 263 271
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Total....................... 222,500 246,679 273,911 294,624 291,989 277,389 291,989
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NA--Not applicable; jurisdiction not eligible under statute.
Note: Totals may differ from sum of State amounts due to rounding.
Source: U.S. Department of Health and Human Services.
Grants to States for promoting safe and stable families
Grants to States for family preservation and family support
services were originally authorized as a capped entitlement
under subpart 2 of title IV-B, beginning in fiscal year 1994.
States already had the flexibility to expend their child
welfare services funds available under subpart 1 of title IV-B
for family support and preservation activities, but few States
used a significant share of such funds for these two categories
of services. Entitlement funding was authorized for 5 years at
the following ceiling levels: $60 million in fiscal year 1994;
$150 million in fiscal year 1995; $225 million in fiscal year
1996; $240 million in fiscal year 1997; and either $255 million
in fiscal year 1998 or the fiscal year 1997 level adjusted for
inflation, whichever is greater. The Adoption and Safe Families
Act (Public Law 105-89), enacted in November 1997, reauthorized
and changed the name of this program to Promoting Safe and
Stable Families. Entitlement ceilings are now set at the
following levels: $275 million for fiscal year 1999, $295
million for fiscal year 2000, and $305 million for fiscal year
2001.
From these ceiling amounts, $2 million in fiscal year 1994
and $6 million in each subsequent fiscal year are reserved for
use by the Secretary of HHS to fund research, training,
technical assistance and evaluation of family preservation and
support activities. In addition, $5 million in fiscal year 1995
and $10 million in each subsequent fiscal year are reserved for
a grant program for State courts (described below). Finally, 1
percent of the family preservation and family support
entitlement is reserved for allotment to Indian tribes. Table
11-6 shows State allotments of family preservation and family
support entitlement funds in fiscal years 1995-97, and
estimated State allotments for fiscal year 1998.
After these set-asides are made, remaining entitlement
funds are allocated among States according to their relative
shares of children receiving food stamps, subject to a 25-
percent non-Federal match. States must submit a plan to HHS
that provides a detailed account of how the money will be used.
Prior to the enactment of Public Law 105-89, at least 90
percent of the funds had to be used for two categories of
services: family preservation services and community-based
family support services. Public Law 105-89 added two additional
categories: time-limited family reunification services, and
adoption promotion and support services. No more than 10
percent of funds can be used for administration.
The Federal statute does not specify a percentage or
minimum amount of funds that must be used for any single
category of service. However, in program guidance to States
issued on January 18, 1994, HHS stated that allocations of less
than 25 percent to either type of service will require a strong
rationale. HHS subsequently restated this position in proposed
regulations issued on October 4, 1994, and final regulations,
issued on November 18, 1996. However, these regulations were
developed before the Adoption and Safe Families Act established
two additional categories of service for this program.
Family preservation services are intended for children and
families, including extended and adoptive families, that are at
risk or in crisis. Services include: programs to help reunite
children with their biological families, if appropriate, or to
place them for adoption or another permanent arrangement;
programs to prevent placement of children in foster care,
including intensive family preservation services; programs to
provide follow-up services to families after a child has been
returned from foster care; respite care to provide temporary
relief for parents and other care givers (including foster
parents); and services to improve parenting skills.
TABLE 11-6.--TITLE IV-B PROMOTING SAFE AND STABLE FAMILIES: \1\ STATE-BY-STATE ALLOCATIONS
----------------------------------------------------------------------------------------------------------------
Estimated
Fiscal year Fiscal year Fiscal year fiscal year
State 1995 grant 1996 grant 1997 1998
awards awards allotments allotments
----------------------------------------------------------------------------------------------------------------
Alabama............................................... $2,880,911 $4,167,863 $4,298,428 $4,586,793
Alaska................................................ 186,726 300,567 343,874 366,943
Arizona............................................... 2,414,096 3,767,107 4,126,491 4,403,321
Arkansas.............................................. 1,387,105 2,023,818 2,106,230 2,247,529
California............................................ 16,631,924 25,989,033 29,852,578 31,855,278
Colorado.............................................. 1,480,468 2,184,121 2,256,675 2,408,066
Connecticut........................................... 1,067,004 1,643,100 1,805,340 1,926,453
Delaware.............................................. 253,413 400,756 451,335 481,613
District of Columbia.................................. 466,814 701,323 752,225 802,689
Florida............................................... 6,281,986 10,479,771 11,691,723 12,476,077
Georgia............................................... 3,734,514 5,891,114 6,297,197 6,719,652
Hawaii................................................ 349,853 681,285 773,717 825,623
Idaho................................................. 373,451 581,096 623,272 665,085
Illinois.............................................. 6,015,235 8,716,445 8,682,824 9,265,322
Indiana............................................... 2,254,046 3,566,729 3,890,077 4,151,048
Iowa.................................................. 1,026,991 1,462,760 1,504,450 1,605,378
Kansas................................................ 893,616 1,342,533 1,396,989 1,490,708
Kentucky.............................................. 2,600,822 3,706,994 3,696,648 3,944,642
Louisiana............................................. 4,534,767 6,392,059 6,447,642 6,880,190
Maine................................................. 586,852 901,701 924,162 986,160
Maryland.............................................. 1,827,244 2,765,217 3,030,392 3,233,689
Massachusetts......................................... 2,307,396 3,426,464 3,632,171 3,875,840
Michigan.............................................. 5,535,083 7,694,517 7,995,076 8,531,435
Minnesota............................................. 1,573,831 2,384,499 2,600,549 2,775,010
Mississippi........................................... 2,774,210 3,947,447 4,019,030 4,288,651
Missouri.............................................. 2,760,873 4,187,901 4,470,365 4,770,265
Montana............................................... 320,101 480,907 515,811 550,415
Nebraska.............................................. 560,177 841,588 924,162 986,160
Nevada................................................ 386,789 681,285 752,225 802,689
New Hampshire......................................... 226,738 380,718 429,843 458,679
New Jersey............................................ 2,720,860 3,927,410 4,212,459 4,495,057
New Mexico............................................ 1,093,679 1,723,251 1,934,292 2,064,057
New York.............................................. 9,709,736 14,046,501 15,237,926 16,260,181
North Carolina........................................ 2,787,548 4,408,317 4,814,239 5,137,208
North Dakota.......................................... 240,076 340,643 343,874 366,943
Ohio.................................................. 6,682,112 9,437,806 9,499,525 10,136,813
Oklahoma.............................................. 1,667,194 2,524,763 2,750,994 2,935,548
Oregon................................................ 1,227,055 1,903,591 2,041,753 2,178,727
Pennsylvania.......................................... 5,668,459 8,175,424 8,489,395 9,058,916
Rhode Island.......................................... 453,477 701,323 752,225 802,689
South Carolina........................................ 1,933,945 2,905,482 3,116,360 3,325,425
South Dakota.......................................... 306,764 440,832 429,843 458,679
Tennessee............................................. 3,187,674 4,929,300 5,287,066 5,641,755
Texas................................................. 12,910,748 19,617,010 21,169,757 22,589,956
Utah.................................................. 706,890 1,062,004 1,096,099 1,169,632
Vermont............................................... 253,413 380,718 429,843 458,679
Virginia.............................................. 2,227,371 3,486,578 3,933,061 4,196,916
Washington............................................ 2,254,046 3,306,238 3,481,726 3,715,302
West Virginia......................................... 1,373,768 2,364,461 2,493,088 2,660,340
Wisconsin............................................. 1,973,957 2,745,179 2,836,962 3,027,283
Wyoming............................................... 186,726 260,491 279,398 298,142
American Samoa........................................ 122,095 154,717 159,031 165,105
Guam.................................................. 219,181 264,143 274,029 287,948
Northern Mariana...................................... 96,047 119,418 121,935 125,478
Puerto Rico........................................... 3,498,785 5,618,957 5,901,525 6,299,348
Virgin Islands........................................ 188,397 214,725 222,094 232,470
---------------------------------------------------------
Subtotal........................................ 137,383,039 206,750,000 221,600,000 236,450,000
=========================================================
Set-asides:
Indians (1 percent)............................... 1,498,773 2,250,000 2,400,000 2,550,000
Research & Eval................................... 6,000,000 6,000,000 6,000,000 6,000,000
Courts............................................ 5,000,000 10,000,000 10,000,000 10,000,000
---------------------------------------------------------
Subtotal........................................ 12,498,773 18,250,000 18,400,000 18,550,000
=========================================================
Total......................................... \2\ 150,000,00
0 225,000,000 240,000,000 255,000,000
----------------------------------------------------------------------------------------------------------------
\1\ The name of this program was changed from Family Preservation and Family Support in 1997, by Public Law 105-
89.
\2\ Includes $118,188 in lapsed funds.
Source: U.S. Department of Health and Human Services.
Family support services are intended to reach families
which are not yet in crisis and to prevent child abuse or
neglect from occurring. Family support services are generally
community-based activities designed to promote the well-being
of children and families, to increase the strength and
stability of families (including adoptive, foster and extended
families), to increase parents' confidence and competence, to
provide children with a stable and supportive family
environment, and to enhance child development. Examples include
parenting skills training, respite care to relieve parents and
other care givers, structured activities involving parents and
children to strengthen their relationships, drop-in centers for
families, information and referral services, and early
developmental screening for children.
In regulations proposed on October 4, 1994, and made final
on November 18, 1996, HHS set forth a series of child and
family services ``principles'' that are intended to guide State
implementation of the program. According to HHS, these
principles emphasize the paramount importance of safety for all
family members, including victims of child abuse and neglect
and victims of domestic violence and their dependents. In the
preamble to its proposed regulations, HHS states that family
preservation ``does NOT mean that the family must stay together
or `be preserved' under all circumstances.'' The principles
also are intended to support a family-focused approach while
allowing for individual needs, and a service delivery approach
that stresses flexibility, accessibility, coordination, and
respect for cultural and community strengths.
The Secretary of HHS is required to evaluate Family
Preservation and Family Support Programs. Evaluations are
currently underway. Interim reports were expected in 1997, and
final reports in 1999. In the meantime, the General Accounting
Office (GAO) has released two reports on implementation of the
Family Preservation and Family Support Program. In June 1995,
GAO reported that States were on schedule in their
implementation of the program, and that HHS was an active
partner with the States, providing ongoing consultation and
technical assistance during the initial comprehensive planning
process (U.S. General Accounting Office, 1995). GAO identified
two related areas in which States anticipated difficulty: (1)
development of appropriate baseline information to guide them
in setting goals, making decisions, and tracking progress; and
(2) conducting comprehensive evaluations to measure program
success. GAO recommended that HHS provide additional assistance
to States in these areas. In February 1997, GAO reported that
States were using the new funds to increase the availability of
services for families, by establishing new programs and
expanding existing services (U.S. General Accounting Office,
1997). Over a 2-year period, States used 56 percent of their
Federal funds for family support activities, and 44 percent for
family preservation services. States were tracking program
participants and monitoring progress, and at least 11 States
were planning formal evaluations. GAO reported that early
results from 10 States indicated some success in preventing
child removals and continued maltreatment, and that the
collaborative planning process required by the law was having a
positive impact on the service delivery system.
As stated above, a portion of the entitlement funds is
reserved for a grant program to the highest State courts to
assess and improve certain child welfare proceedings. The court
set-aside equals $5 million in fiscal year 1995 and $10 million
in each of fiscal years 1996-98. A 25 percent non-Federal match
is required in each of the last 3 fiscal years.
Courts use their grant funds to assess their procedures and
effectiveness in determinations regarding foster care
placement, termination of parental rights, and recognition of
adoptions. Courts also can use these grant funds to implement
changes found necessary as a result of the assessments.
According to HHS, 48 States and the District of Columbia chose
to implement this program, beginning in fiscal year 1995.
Idaho, Pennsylvania, and Wyoming are not participating in the
program.
The Title IV-E Foster Care Program
The Foster Care Program under title IV-E is a permanently
authorized entitlement program. The program provides open-ended
matching funds to States for the maintenance payments made for
AFDC-eligible children in foster care family homes, private
for-profit or nonprofit child care facilities, or public child
care institutions housing up to 25 people. Welfare reform
legislation enacted in the 104th Congress (Public Law 104-193)
repealed the AFDC Program and replaced it with a block grant to
States called Temporary Assistance For Needy Families (TANF).
All States participating in TANF must certify that they will
operate a Foster Care and Adoption Assistance Program under
title IV-E. Under Public Law 104-193, foster children will be
eligible for title IV-E subsidies if their families would have
been eligible for AFDC, as in effect on June 1, 1995. Technical
corrections enacted in 1997 changed this date to July 16, 1996
(Public Law 105-33).
The Federal matching rate for foster care maintenance
payments for a given State is that State's Medicaid matching
rate, which averages about 57 percent nationally and can range
from 50 to 83 percent. States may claim open-ended Federal
matching at a rate of 50 percent for their child placement
services and administrative costs. States also may claim open-
ended Federal matching at a rate of 75 percent to train
personnel employed by the State or by local agencies
administering the program and to train foster and adoptive
parents. During fiscal years 1994-97, States also were able to
receive Federal matching at the 75 percent rate for eligible
costs related to automated child welfare information systems.
States are required to provide foster care maintenance
payments to AFDC-eligible children removed from the home of a
relative if the child received or would have been eligible for
AFDC prior to removal from the home and if the following apply:
(1) the removal and foster care placement were based on a
voluntary placement agreement signed by the child's parents or
guardians or a judicial determination that remaining in the
home would be contrary to the child's welfare; (2) reasonable
efforts were made to eliminate the need for removal or to
return the child to his home (some exceptions to this
requirement were enacted in 1997, described later in this
chapter); and (3) care and placement of the child are the
responsibility of specified public agencies. Children in the
Title IV-E Foster Care Program are also eligible for Medicaid.
Maintenance payments under the Title IV-E Foster Care
Program are intended to cover the costs of food, shelter,
clothing, daily supervision, school supplies, general
incidentals, liability insurance for the child, and reasonable
travel to the child's home for visits.
Foster care expenditures and participation rates
The average estimated monthly number of children in title
IV-E foster care almost tripled between 1983 and 1996, from
97,370 in fiscal year 1983 to 266,977 in fiscal year 1996 (see
table 11-3). More detailed data on foster children and their
characteristics are described later in this section.
State claims for child placement services and
administrative costs for the Title IV-E Foster Care Program
have increased considerably since 1981. Current HHS regulations
give the following examples of allowable child placement
services and administrative costs for the Foster Care Program:
referral to services, preparation for and participation in
judicial determinations, placement of the child, development of
the case plan, case reviews, case management and supervision,
recruitment and licensing of foster homes and institutions,
rate setting, and a proportionate share of agency overhead. As
discussed later, many of these activities are required by the
Federal Government as foster care ``protections.''
Table 11-7 provides a State breakdown of foster care
expenditures in fiscal year 1996 for maintenance payments,
child placement and administration, data collection, and
training expenditures. Note that California, New York and
Illinois account for 48 percent of the estimated fiscal year
1996 expenditures. A more detailed discussion of growth in
child placement services and administrative costs is presented
below.
Foster care payment rates
Table 11-8 shows each State's ``basic'' monthly foster
care payment rates for children ages 2, 9, and 16, as reported
in an annual survey conducted by the American Public Welfare
Association (APWA). States are allowed to set the payments at
any level; thus, the rates vary widely. The basic monthly
foster care rates shown in the table are those paid for family
foster care, and differ from rates paid to institutions or for
group or congregate care.
APWA cautions that the family foster care rates shown in
the table are only generally comparable due to variations among
States regarding the items that are covered under the basic
rate, additional services that are provided by supplements, and
the States' administrative structures. Table 11-8 indicates
whether the basic rate includes each of the following three
items: room and board (r); supervision (s); and clothing (c).
APWA notes that 32 States include other items in their basic
rates, such as child care, respite care, transportation,
personal allowance, school supplies, recreational and community
activities, and incidentals. Forty-three States and counties in
10 States supplement their basic rates, for items such as
education, child care, respite care, level of need, clothing,
transportation, health and medical care (other than Medicaid or
State-funded medical assistance), and special emotional,
behavioral, medical, or psychological needs. According to the
APWA survey, the national average ``basic'' monthly foster care
maintenance payment in 1996 was $356 for 2-year-olds, $373 for
9-year-olds, and $431 for 16-year-olds.
TABLE 11-7.--FEDERAL FOSTER CARE EXPENDITURES UNDER TITLE IV-E, FISCAL YEAR 1996
[Estimate, dollars in millions]
--------------------------------------------------------------------------------------------------------------------------------------------------------
Child State Automated Child placement
Maintenance placement Child Welfare services and
State payments services and Information Training Total administration as
administration System (SACWIS) percent of total
--------------------------------------------------------------------------------------------------------------------------------------------------------
Alabama....................................................... $1.44 $2.93 $0.10 $0.76 $5.23 56.02
Alaska........................................................ 2.11 4.43 1.40 0.05 7.99 55.44
Arizona....................................................... 18.15 15.19 8.01 1.62 42.97 35.35
Arkansas...................................................... 6.93 7.53 3.92 6.92 25.30 29.76
California.................................................... 326.31 296.06 36.73 34.21 693.31 42.70
Colorado...................................................... 7.31 14.20 0.35 (1.51) 20.35 69.78
Connecticut................................................... 20.81 35.38 6.52 3.43 66.14 53.49
Delaware...................................................... 1.12 3.16 2.68 0.44 7.40 42.70
District of Columbia.......................................... 8.51 11.77 1.72 0.07 22.07 53.33
Florida....................................................... 23.98 46.53 6.83 1.16 78.50 59.27
Georgia....................................................... 14.20 7.75 0.73 1.85 24.53 31.59
Hawaii........................................................ 3.95 6.72 0.00 1.10 11.77 57.09
Idaho......................................................... 0.81 3.02 2.64 0.24 6.71 45.01
Illinois...................................................... 136.09 97.51 1.25 3.48 238.33 40.91
Indiana....................................................... 33.54 10.51 6.35 0.44 50.84 20.67
Iowa.......................................................... 10.08 4.57 1.62 0.69 16.96 26.95
Kansas........................................................ 9.14 10.14 1.19 3.43 23.90 42.43
Kentucky...................................................... 21.86 17.72 6.13 5.87 51.58 34.35
Louisiana..................................................... 21.56 13.03 0.00 2.09 36.68 35.52
Maine......................................................... 15.11 1.56 0.57 1.54 18.78 8.31
Maryland...................................................... 31.10 34.49 0.04 5.41 71.04 48.55
Massachusetts................................................. 42.07 37.58 15.83 0.93 96.41 38.98
Michigan...................................................... 53.00 37.46 5.91 (0.82) 95.55 39.20
Minnesota..................................................... 23.30 10.60 5.56 5.09 44.55 23.79
Mississippi................................................... 2.98 4.85 0.92 0.31 9.06 53.53
Missouri...................................................... 22.39 15.72 1.74 6.12 45.97 34.20
Montana....................................................... 3.85 1.20 1.27 0.98 7.30 16.44
Nebraska...................................................... 7.17 6.81 2.68 3.34 20.00 34.05
Nevada........................................................ 1.82 1.10 2.10 0.13 5.15 21.36
New Hampshire................................................. 3.14 4.36 2.26 0.48 10.24 42.58
New Jersey.................................................... 18.57 11.43 7.20 0.13 37.33 30.62
New Mexico.................................................... 3.75 2.33 2.87 3.27 12.22 19.07
New York...................................................... 276.41 264.27 13.11 12.48 566.27 46.67
North Carolina................................................ 27.61 7.71 0.00 2.11 37.43 20.60
North Dakota.................................................. 2.98 4.19 0.40 0.55 8.12 51.60
Ohio.......................................................... 74.59 53.35 0.00 7.62 135.56 39.36
Oklahoma...................................................... 8.72 5.64 7.09 2.70 24.15 23.35
Oregon........................................................ 10.70 12.16 1.19 0.75 24.80 49.03
Pennsylvania.................................................. 108.53 34.11 0.01 6.96 149.61 22.80
Rhode Island.................................................. 3.95 3.63 1.56 0.34 9.48 38.29
South Carolina................................................ 7.06 4.63 5.02 2.07 18.78 24.65
South Dakota.................................................. 0.92 1.16 0.84 0.12 3.04 38.16
Tennessee..................................................... 11.72 6.66 0.01 1.15 19.54 34.08
Texas......................................................... 49.44 12.29 12.46 3.02 77.21 15.92
Utah.......................................................... 4.42 5.69 1.99 1.11 13.21 43.07
Vermont....................................................... 6.19 1.54 0.01 0.50 8.24 18.69
Virginia...................................................... 9.60 21.91 0.00 3.12 34.63 63.27
Washington.................................................... 7.88 7.33 7.90 0.48 23.59 31.07
West Virginia................................................. 4.73 1.52 1.75 0.47 8.47 17.95
Wisconsin..................................................... 20.26 24.19 0.18 1.34 45.97 52.62
Wyoming....................................................... 0.75 0.33 0.83 0.01 1.92 17.19
-----------------------------------------------------------------------------------------
Total................................................... 1,532.62 1,249.94 191.48 140.16 3,114.21 40.14
--------------------------------------------------------------------------------------------------------------------------------------------------------
Note.--Totals may differ from sum of State amounts due to rounding.
Source: U.S. Department of Health and Human Services.
TABLE 11-8.--FOSTER CARE BASIC MONTHLY MAINTENANCE RATES FOR CHILDREN AGES 2, 9, AND 16, SELECTED YEARS 1987-96
--------------------------------------------------------------------------------------------------------------------------------------------------------
Age 2 Age 9 Age 16
State -----------------------------------------------------------------------------------------------------------
1987 1991 1994 1996 1987 1991 1994 1996 1987 1991 1994 1996
--------------------------------------------------------------------------------------------------------------------------------------------------------
Alabama..................................... 168 181 205 205rc 188 202 229 229rc 198 213 241 241rc
Alaska \1\.................................. 428 561 588 588rsc 478 499 523 523rsc 565 592 621 621rsc
Arizona..................................... 223 247 297 403rsc 223 247 286 392rsc 282 305 365 471rsc
Arkansas.................................... 175 195 300 400rsc 190 210 325 425rsc 220 240 375 475rsc
California.................................. 294 345 345 345rsc 340 400 400 400rsc 412 484 484 484rsc
Colorado.................................... 235 296 319 361rc 266 296 319 361rc 318 352 379 430rc
Connecticut................................. 268 386 567 567rsc 302 424 586 586rsc 350 478 637 637rsc
Delaware.................................... 264 301 342 350rsc 266 304 342 350rsc 342 391 440 450rsc
District of Columbia \1\.................... 304 304 431 437rsc 304 304 431 437rsc 317 317 519 526rsc
Florida..................................... 233 296 296 296rc 233 296 296 296rc 293 372 372 372rc
Georgia \1\................................. 300 300 300 325r 300 300 300 325r 300 300 300 325r
Hawaii...................................... 194 529 529 529rs 233 529 529 529rs 301 529 529 529rs
Idaho....................................... 138 198 228 228r 165 205 250 250r 204 278 338 358r
Illinois.................................... 233 268 322 343rc 259 299 358 382rc 282 325 390 415rc
Indiana..................................... 226 281 405 405rsc 245 330 462 462rsc 280 398 518 518rsc
Iowa \1\.................................... 159 198 328 375rsc 201 243 342 397rsc 285 300 405 460rsc
Kansas \1\.................................. 187 304 205 305rsc 245 304 277 305rsc 280 386 351 386rsc
Kentucky.................................... 248 265 263 300rsc 263 288 285 323rsc 300 333 330 368rsc
Louisiana................................... 199 283 298 348rc 232 316 331 331rc 265 349 364 364rc
Maine \1\................................... 244 296 296 325r 250 304 304 334r 291 353 353 389r
Maryland.................................... 285 535 535 535rsc 285 535 535 535rsc 303 550 550 550rsc
Massachusetts............................... 362 410 410 415rs 362 410 410 415rs 433 486 486 493rs
Michigan \1\................................ 315 332 383 365rsc 315 332 383 365rsc 395 416 454 433rsc
Minnesota \1\............................... 285 341 377 419rsc 285 341 377 419rsc 375 442 487 531rsc
Mississippi................................. 130 145 175 225rc 150 165 205 255rc 160 175 250 300rc
Missouri.................................... 174 209 212 216rs 212 255 259 264rs 232 281 286 292rs
Montana \1\................................. 283 307 330 345rs 283 307 330 345rs 354 384 416 435rs
Nebraska.................................... 210 222 326 326rsc 210 291 394 393rsc 210 351 461 463rsc
Nevada...................................... 275 281 281 304rs 275 281 281 304rs 330 337 337 365rs
New Hampshire............................... 200 200 314 314rs 251 251 342 342rs 354 354 404 404rs
New Jersey.................................. 203 244 272 288rs 215 259 288 339rs 253 305 340 361rs
New Mexico.................................. 236 258 308 308rsc 247 270 341 341rsc 259 281 367 367rsc
New York.................................... 312 353 367 367rs 375 424 441 441rs 434 490 510 510rs
New York City............................... 342 386 401 401rs 403 455 473 473rs 465 526 547 547rs
North Carolina.............................. 215 265 315 315rsc 215 265 365 365rsc 215 265 415 415rsc
North Dakota................................ 240 260 265 308rsc 287 312 318 349rsc 345 416 424 456rsc
Ohio........................................ 240 289 413 544rsc 270 328 413 544rsc 300 366 413 544rsc
Oklahoma.................................... 300 300 300 300rsc 360 360 360 360rsc 420 420 420 420rsc
Oregon...................................... 200 285 315 315rsc 234 295 327 327rsc 316 363 404 404rsc
Pennsylvania................................ 558 303 315 312rc 558 319 368 375rc 558 377 473 482rc
Rhode Island................................ 223 274 279 NA 223 274 279 NA 275 335 341 NA
South Carolina.............................. 138 182 212 212rsc 158 209 239 239rsc 208 275 305 305rsc
South Dakota................................ 188 237 259 353rsc 230 291 317 353rsc 276 349 382 424rsc
Tennessee................................... 139 255 336 336rsc 190 226 262 262rs 224 267 385 385rs
Texas \1\................................... 243 420 476 482rsc 243 420 476 482rsc 274 420 476 482rsc
Utah \1\.................................... 198 300 300 319rsc 198 300 300 319rsc 225 300 300 319rsc
Vermont..................................... 210 371 416 416rsc 249 371 416 416rsc 268 447 504 504rsc
Virginia.................................... 193 246 256 262rc 244 288 300 307rc 309 365 379 388rc
Washington.................................. 184 270 292 304rsc 227 332 359 374rsc 268 392 425 442rsc
West Virginia............................... 161 161 161 400rsc 202 202 202 400rsc 242 242 242 400rsc
Wisconsin................................... 163 231 276 282rsc 224 257 301 307rsc 284 324 361 365rsc
Wyoming..................................... 300 400 400 400rsc 300 400 400 400rsc 330 400 400 400rsc
-----------------------------------------------------------------------------------------------------------
Average monthly rates................... 239 294 329 356 263 314 350 373 307 365 407 431
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ Indicates States that provided daily rates for 1996, which were converted to monthly rates using the following formula: [daily rate] 365
12. Monthly rates for States providing daily rates for 1994 were computed using the following formula: [daily rate] 30. Due to the
formula change, 1996 rates for these States cannot be compared with previous years. Figures are rounded to the nearest dollar.
NA--Not available.
Note.--Most States and/or counties supplement these basic rates with additional payments. To facilitate data comparability across States, 1996 figures
are coded for major items covered in the basic rate. Key: r = room and board, s = supervision, c = clothing.
Source: American Public Welfare Association.
The 1980 reform legislation stipulated that title IV-E
foster care payments could be made for children in public
institutions, whereas previously under title IV-A payments were
limited to children in private nonprofit institutions or foster
family homes. To qualify for Federal payments, these public
institutions may not accommodate more than 25 children.
Facilities operated primarily for the detention of delinquents,
including forestry camps and training schools, are ineligible
for Federal funds. Legislation enacted in 1996 (Public Law 104-
193) also allows participation of for-profit institutions. It
is generally agreed that the costs associated with
institutional care are substantially higher than the cost of
family foster care. For example, the Child Welfare League of
America in 1994 estimated that the annual cost of supporting a
child in family foster care was $4,800, compared to an
estimated annual cost of $36,500 for a child in group care
(Time, 1994).
Exclusion of foster children from AFDC assistance units
The Deficit Reduction Act of 1984 (Public Law 98-369)
required that certain blood-related, adoptive parents or
siblings be included in the family unit if the family applied
for income assistance under the AFDC Program. Because there was
no statutory exclusion for foster care recipients, AFDC
operating policy required that their income be included with
the family's when the family's eligibility was determined.
However, Public Law 99-514, enacted in 1986, stated that a
foster child who was receiving IV-E maintenance payments would
not be considered a family member during the time the family
received AFDC, and that the child's income in the form of
maintenance payments, and other income and resources, would be
excluded from the family's as well.
The Omnibus Budget Reconciliation Act of 1990 (Public Law
101-508) repealed the 1986 provision and added a new section
409 to title IV-A stipulating that foster children receiving
maintenance payments under title IV-E or under State or local
programs would not be considered family members for purposes of
AFDC. Similarly, the law specified that children receiving
adoption assistance payments under either title IV-E or State
or local law were not considered family members for AFDC
purposes, unless the family would lose AFDC benefits as a
result.
Welfare reform legislation enacted in 1996 (Public Law 104-
193) repealed the AFDC Program, including the provision
described above. The law establishes a block grant to States
for Temporary Assistance for Needy Families, and allows States
to determine for themselves how to define assistance units,
eligibility, and treatment of income for welfare purposes.
The Title IV-E Adoption Assistance Program
The Title IV-E Adoption Assistance Program is an open-ended
entitlement program required of States that participate in
TANF. Like the IV-E Foster Care Program, the IV-E Adoption
Assistance Program funds three distinct types of activities:
maintenance payments for qualified children who are adopted,
administrative payments for expenses associated with placing
children in adoption, and training of professional staff and
parents involved in adoptions.
Under the Adoption Assistance Program, which is permanently
authorized, States develop adoption assistance agreements with
parents who adopt eligible children with special needs. Federal
matching funds are provided to States that, under these
agreements, provide adoption assistance payments to parents who
adopt AFDC- or SSI-eligible children with special needs.
Although AFDC was repealed by welfare reform legislation in
1996 (Public Law 104-193), that law also established that
special needs adoptive children will be eligible for title IV-E
subsidies if their original families would have been eligible
for AFDC, as it was in effect on June 1, 1995. Technical
corrections enacted in 1997 subsequently changed this date to
July 16, 1996 (Public Law 105-33). In addition, the program
authorizes Federal matching funds for States that reimburse the
nonrecurring adoption expenses of adoptive parents of special
needs children (regardless of AFDC or SSI eligibility).
Definition of special needs
A special needs child is defined in the statute as a child
with respect to whom the State determines there is a specific
condition or situation, such as age, membership in a minority
or sibling group, or a mental, emotional, or physical handicap,
which prevents placement without special assistance. Before a
child can be considered to be a child with special needs, the
State must determine that the child cannot or should not be
returned to the biological family, and that reasonable efforts
have been made to place the child without providing adoption
assistance. States have discretion in defining special needs
eligibility criteria and individually determining whether a
child is eligible. For example, some States add religion or not
being able to place the child without subsidy to the definition
of special needs.
Adoption assistance agreements and payments
An adoption assistance agreement is a written agreement
between the adoptive parents, the State IV-E agency, and other
relevant agencies (such as a private adoption agency)
specifying the nature and amount of assistance to be given.
Under the adoption assistance agreement, States may make
monthly adoption assistance payments for AFDC- and SSI-eligible
children with special needs who are adopted.
The amount of adoption assistance payments to be made is
based on the circumstances of the adopting parents and the
needs of the child. No means test can be used to determine
eligibility of parents for the program; however, States do
consider the adoptive parents' income in determining the amount
of the payment. Payments may be adjusted periodically if
circumstances change, with the concurrence of the adopting
parents. However, the payments may not exceed the amount the
family would have received on behalf of the child under foster
care. Adoption assistance payments may continue until the child
is age 18, or, at State option, age 21 if the child is mentally
or physically handicapped. Payments are discontinued if the
State determines that the parents are no longer legally
responsible for the support of the child. Federally subsidized
payments may start as soon as an agreement is signed and the
child has been placed in an adoptive home. Parents who have
been receiving adoption assistance payments must keep the State
or local agency informed of circumstances that would make them
ineligible for payments, or eligible for payments in a
different amount.
The Federal matching rate for the adoption assistance
payments is based on each State's Medicaid matching rate.
States may also claim open-ended Federal matching at the rate
of 50 percent for the costs of administering the program, and
for training both staff and adoptive parents at the rate of 75
percent.
Not all families of adopted IV-E eligible children with
special needs actually receive adoption assistance payments.
The adoptive parents' circumstances may be such that an
adoption subsidy is not needed or wanted. Adopted AFDC- or SSI-
eligible children with special needs are also eligible for
Medicaid if an adoption assistance agreement is in effect,
regardless of whether adoption assistance payments are being
made.
States also have the option under the Medicaid Program to
provide Medicaid coverage for other special needs children
(those not eligible for AFDC or SSI) who are adopted under a
State-funded adoption subsidy program. All States but six
currently take this option. Pursuant to the 1985 budget
reconciliation legislation, a child for whom an adoption
assistance agreement is in effect is eligible for Medicaid from
the State in which the child resides regardless of whether the
State is the one with which the adoptive parents have an
adoption assistance agreement. (The Adoption and Safe Families
Act, enacted in November 1997, contains additional requirements
regarding health insurance coverage for special needs adopted
children who are not eligible for title IV-E adoption
assistance. See discussion at the end of this chapter about
legislation in the 105th Congress for details.)
The structure of adoption subsidy programs varies across
States. Some States offer basic maintenance payments and also
allow additional payments for certain activities (such as
family counseling) or for certain groups of children (such as
children with severe handicaps). Other States offer one level
of payment to everyone with no special allowances. Some States
allow parents to request changes in payment levels on a regular
basis if circumstances change for a child; others allow very
little change once the adoption agreement is signed. Some
States start payments as soon as placement is made; others not
until the adoption is finalized.
Table 11-9 indicates, by State, the minimum and maximum
basic monthly payment rates for adoption assistance, and the
minimum and maximum special payment rates. The ``criteria''
columns highlight the main criteria used by States for
determining when a family would receive a higher payment rate,
such as the child's level (or severity) of special needs or
age.
Not all children who receive adoption subsidies from States
are eligible for Federal IV-E funds. Data from the American
Public Welfare Association (APWA) for 1994 indicate that almost
two-thirds of children receiving adoption assistance nationwide
were eligible for title IV-E (Oppenheim, 1995). The non-IV-E
children's adoption subsidies are paid solely by the State in
which their adoption agreement was signed.
TABLE 11-9.--ADOPTION ASSISTANCE MONTHLY PAYMENT RATES, BY STATE, AS OF SEPTEMBER 1996
----------------------------------------------------------------------------------------------------------------
Basic rate Special rate
State Basic rate criteria Special rate criteria
----------------------------------------------------------------------------------------------------------------
Alabama......................... $205-$241......... age/foster rates.. negotiable........ ..................
.................
.............
Alaska \1\..................... $587.94-$831.57... .................. case-by-case...... ..................
.................
.............
Arizona......................... $350-$406......... age............... $458-$710......... level of special
needs
Arkansas....................... $300-$375......... age............... maximum foster ..................
care rate. .................
.............
California...................... $345-$484......... age............... $1,500 maximum.... county by county
Colorado....................... $293-$352......... age............... $371-$509......... level of special
needs/age
Connecticut..................... $567-$637......... age............... $1,000-$1,200..... medically fragile
Delaware....................... $342-$440......... age............... $464-$562......... foster rates
District of Columbia \1\........ $437.08-$526.20... age............... $512.21-$874.46... level of special
needs/age
Florida......................... $296-$372......... age............... $314-$407......... level of special
needs/age
Georgia........................ $239.68........... 75 percent of $15-$40........... 75 percent of
foster rate. foster rate
Hawaii.......................... $529.............. .................. .................. .................
.................
..............
Idaho.......................... $228-$358......... age............... $464-$598......... level of special
needs/age
Illinois........................ $290-$365......... age............... $453-$529......... special foster
rates
Indiana........................ by county......... 75 percent of by county......... 75 percent of
foster rate. foster rate
Iowa............................ $375.33-$459.89... age............... $525.59-$910.05... level of special
needs/age
Kansas......................... $386.............. .................. $786 maximum...... level of special
needs
Kentucky........................ $304-$373......... age............... $395-$464......... age
Louisiana...................... $281.04-$294.73... age............... $521-$552.70...... foster rate/age
Maine.......................... $371-$429......... age............... $1,130-$1,140..... level of special
needs/age
Maryland........................ $650.............. .................. none.............. ..................
.................
.............
Massachusetts.................. $410-$486......... age............... negotiable........ ..................
.................
.............
Michigan........................ $383-$454......... age............... $535.08-$1,001.49. foster rates/age
Minnesota...................... $247-$337......... age............... $397-$837......... level of special
needs/age
Mississippi..................... $225-$300......... age............... none.............. ..................
.................
.............
Missouri \2\................... $212-$286......... age............... $614-$1,368.72.... level of special
needs/age
Montana \3\..................... .................. foster rate minus .................. foster rate minus
$10. $10
Nebraska....................... $222-$351......... age............... $326-$576......... level of special
needs/age
Nevada \3\...................... .................. .................. .................. .................
.................
..............
New Hampshire.................. $472-$606......... age............... none.............. ..................
.................
.............
New Jersey...................... $280-$350......... age............... $320-$1,280....... level of special
needs/age
New Mexico..................... $308-$367......... age............... $487-$545......... level of special
needs/age
New York....................... $457-$600......... age/city v. $984-$1,455....... level of special
upstate. needs/age
North Carolina................. $315-$415......... age............... $800-$1,600....... HIV status
North Dakota................... $295-$437......... age............... $345-$587 and level of special
above. needs
Ohio \4\....................... $250 minimum; .................. county determined. .................
maximum is county .................
determined. ..............
Oklahoma....................... $300-$420......... age............... $350-$645......... level of special
needs/age
Oregon......................... $315-$404......... age............... negotiated........ ..................
.................
.............
Pennsylvania................... county determined. .................. county determined. ..................
.................
.............
Rhode Island................... $252-$308......... age............... case-by-case...... ..................
.................
.............
South Carolina................. $266-$393......... age............... none.............. ..................
.................
.............
South Dakota................... $266-$393......... age............... none.............. ..................
.................
.............
Tennessee...................... $335-$417......... age............... $512-$683......... level of special
needs/age
Texas.......................... $475.............. .................. none.............. ..................
.................
.............
Utah........................... $310.............. .................. $465-$775......... level of special
needs
Vermont \5\.................... $494-$600......... age............... $704-$810-$1,300.. level of special
needs/age
Virginia....................... $262-$388......... age............... none.............. ..................
.................
.............
Washington..................... $289.67-$422.89... .................. .................. ..................
.................
.............
West Virginia.................. $400.............. foster rate....... $730 maximum...... level of special
needs
Wisconsin...................... $282-$365......... .................. $2,000 maximum.... level of special
needs
Wyoming........................ $399.............. .................. negotiated, county ..................
determined. .................
.............
----------------------------------------------------------------------------------------------------------------
\1\ Alaska and the District of Columbia have daily rates. Monthly rates were calculated by multiplying the daily
rate by 30.416.
\2\ Missouri has a ``career parent'' rate of $45 per day.
\3\ Nevada and Montana's are for 1995.
\4\ The State rate for adoption assistance is $250 per month. Some of the larger county agencies pay higher
rates by providing the non-Federal portion of the monthly payment.
\5\ Vermont has three maximum rates: two ``extraordinary care'' maximums based on age and a maximum
``therapeutic'' rate of $1,300.
Source: North American Council on Adoptable Children.
Nonrecurring adoption costs
The Adoption Assistance Program also authorizes Federal
matching funds for States to pay the one-time adoption expenses
of parents of special needs children (regardless of AFDC or SSI
eligibility). In order to be eligible, the child must be a
child with special needs, as defined in section 473(c) of the
Social Security Act and described above.
Through the program, parents may receive reimbursement of
up to $2,000 per child for these nonrecurring adoption
expenses, and States may claim 50 percent Federal matching for
these reimbursements. Qualified adoption expenses are defined
as reasonable and necessary adoption fees, court costs,
attorney fees, and other expenses that are directly related to
the adoption of a child with special needs. States may vary in
the maximum amount they allow parents to receive under this
provision (see table 11-10 for State-by-State data on maximum
reimbursement rates).
All 50 States have implemented the program; the District of
Columbia has not. However, the average reimbursements have not
equaled the $2,000 Federal cap, with the average payment being
$966 in 1996. According to the Association of Administrators of
the Interstate Compact on Adoption and Medical Assistance
(AAICAMA), for which the American Public Welfare Association
serves as the secretariat, in a number of States the larger
amounts of nonrecurring adoption costs are being paid for costs
incurred in the adoption of special needs children from foreign
countries and private agencies. Parents adopting children from
the public child welfare agencies are not claiming as many
expenses because many costs incurred in the adoption of these
children are already covered under the States' adoption
programs.
Adoption assistance expenditures
The number of children receiving adoption assistance
payments and the Federal expenditures for these payments have
increased significantly since the program began. In fiscal year
1981, only six States participated in the program, with
payments being made for an average of 165 children per month.
In fiscal year 1996, 50 States plus the District of Columbia
participated, and 122,657 children (see table 11-11) were
served.
Federal expenditures for adoption assistance payments have
increased from less than $400,000 in fiscal year 1981 to $427
million in fiscal year 1996, and are expected to reach $495
million in fiscal year 1997.
HHS data indicate that expenditures for child placement
services and administration for the Adoption Assistance Program
have also increased significantly in recent years. In fiscal
year 1981, claims totaled $100,000; in fiscal year 1996 they
totaled $124 million and are expected to be $144 million in
fiscal year 1997.
TABLE 11-10.--STATE REIMBURSEMENT OF NONRECURRING ADOPTION COSTS, 1991, 1992, AND 1996
--------------------------------------------------------------------------------------------------------------------------------------------------------
Has your Estimated
State Estimated average
implemented Maximum average payment Estimated average
State the payment payment as of payment as of April Major reimbursement cost(s)
reimbursement as of May April 1996
program? 1991 1992
--------------------------------------------------------------------------------------------------------------------------------------------------------
Alabama................................ Yes $1,000 $350 $412 $1,000 Legal fees, travel, preplacement visits.
Alaska................................. Yes 2,000 1,200 829 \1\ NA Legal fees, travel, home studies.
Arizona................................ Yes 2,000 2,000 1,596 2,000 Legal fees, agency fees, travel, home
studies.
Arkansas............................... Yes 1,500 100 500 200 Court filing, fingerprint checks.
California............................. Yes 500 400 400 500 Agency fees.
Colorado............................... Yes 800 250 250 800 Legal fees.
Connecticut............................ Yes 750 90 90 424 Legal fee.
Delaware............................... Yes 2,000 300 300 NA Agency fees.
District of Columbia................... No
Florida................................ Yes 1,000 400 400 1,000 Attorney fees.
Georgia................................ Yes 700 400 400 400 Legal fees.
Hawaii................................. Yes 2,000 NA NA NA
Idaho.................................. Yes 2,000 NA 350 \2\ 550 Agency fees, attorney fees, travel.
2,000
average = 1,275
Illinois............................... Yes 1,500 NA NA NA Legal fees, home studies.
Indiana................................ Yes 1,500 635 NA 700 Legal fees, agency fees.
Iowa................................... Yes 1,000 700 700 300 Legal fees.
Kansas................................. Yes 2,000 NA NA 700 Legal fees, home studies, travel.
Kentucky............................... Yes 1,000 378 378 476 Legal fees, agency fees.
Louisiana.............................. Yes 1,000 400 600 600 Legal fees.
Maine.................................. Yes \3\ 2,00 NA ......... NA Legal fees, travel.
0
Maryland............................... Yes 2,000 NA 2,000 2,000 Legal fees, travel, home studies by
private agencies. \4\
Massachusetts.......................... Yes 400 400 ......... 400 Legal fees, home studies.
Michigan............................... Yes 2,000 ......... ......... 170 Court fees, birth certificate cost.
Minnesota.............................. Yes 2,000 2,000 2,000 1,750 Legal fees, agency fees.
Mississippi............................ Yes 1,000 500 500 550 Legal fees.
Missouri............................... Yes 2,000 NA \5\ 45 625--legal Legal fees, agency fees.
910--other
average = 1,535
Montana................................ Yes 2,000 1,000 1,000 200 Legal fees, home studies, private agency
fees.
Nebraska............................... Yes 1,500 NA NA 1,500 Legal fees, private agency fees, travel.
Nevada................................. Yes 250 250 250 NA Legal fees, travel, home studies.
New Hampshire.......................... Yes 2,000 2,000 2,000 1,556 Legal costs, agency fees, travel.
New Jersey............................. Yes 2,000 NA 850 NA Home studies, legal fees.
New Mexico............................. Yes 2,000 500 500 NA Legal fees, travel.
New York............................... Yes 2,000 500 500 600 Legal fees.
North Carolina......................... Yes 2,000 NA 176 NA Legal fees.
North Dakota........................... Yes 2,000 350 540 NA Legal fees.
Ohio................................... Yes 2,000 761 672 2,000 Legal fees, travel.
Oklahoma............................... Yes 2,000 2,000 350 \6\ domestic--275 Legal fees, agency fees.
tribal, foreign--
2,000
private
average = 1,138
Oregon................................. Yes 2,000 300 450 NA Legal fees.
Pennsylvania........................... Yes 2,000 NA 700 811 Legal fees, agency fees.
Rhode Island........................... Yes 1,000 NA 902 1,000 Legal fees, home studies, preadoption
supervision.
South Carolina......................... Yes 1,500 750 750 1,500 Legal fees.
South Dakota........................... Yes 1,500 650 650 440 Legal fees.
Texas.................................. Yes 1,500 NA NA 875 Legal fees, agency fees.
Utah................................... Yes 2,000 327 327 650 Legal fees, home studies, travel.
Vermont................................ Yes 2,000 1,500 1,500 \7\ 2,000 Legal fees, home studies, agency
placement fees.
Virginia............................... Yes 2,000 280 396 884 Legal fees.
Washington............................. Yes 1,500 655 780 636 Legal fees.
West Virginia.......................... Yes 2,000 ......... ......... 1,400 Legal fees, private agency home studies.
Wisconsin.............................. Yes 2,000 655 780 468 Legal fees home studies.
Wyoming................................ Yes 2,000 350 350 NA Legal fees.
-------------------------------------------------------
Average.......................... 1,651 682 664 \8\ 966
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ Alaska: Indicated that the maximum amount was being paid primarily for the adoption of special needs children from foreign countries.
\2\ Idaho: For domestic adoptions, the average payment is $500; For foreign (China & Haiti) adoptions, the average payment is $2,000. This differential
is due to the fact that most expenses are paid for by the public agency when a child is adopted from the public agency.
\3\ Maine: The program was not implemented until 1996.
\4\ Maryland: Bills submitted are often over $5,000, many of which are for children adopted from foreign countries.
\5\ Missouri: The low cost of this number is due to the fact that at the time the State was able to secure a lot of pro bono legal representation.
\6\ Oklahoma: The average payment for children adopted from the Department of Human Services is $275; For special needs children adopted from foreign
countries, private agencies, and tribal adoptions, the average payment is $2,000.
\7\ Vermont: Most payments made for nonrecurring adoption costs are for children adopted from foreign countries; nonrecurring adoption costs are paid
for the adoption of special needs children being adopted from foreign countries. There are few, if any, costs for adopting children from the public
agency.
\8\ This number accounts for the total average payment of nonrecurring adoption costs in 36 States.
NA--Not available.
Source: Special survey conducted in spring 1996 by the American Public Welfare Association.
TABLE 11-11.--ADOPTION ASSISTANCE STATE CLAIMS, FISCAL YEARS 1991-96, AND AVERAGE NUMBER OF CHILDREN RECEIVING
ADOPTION ASSISTANCE, FISCAL YEAR 1996
[In thousands of dollars]
----------------------------------------------------------------------------------------------------------------
Fiscal year
-----------------------------------------------------------------------------------
1996
State Average
1991 1992 1993 1994 1995 1996 monthly
Claims Claims Claims Claims Claims Claims number of
children
----------------------------------------------------------------------------------------------------------------
Alabama..................... $1,054 $1,070 $1,195 $1,830 $1,866 1,786 282
Alaska...................... 360 590 839 1,070 1,286 1,562 448
Arizona..................... 1,338 1,660 3,117 3,960 5,522 6,856 1,403
Arkansas.................... 582 670 1,241 1,960 1,541 2,387 458
California.................. 27,747 30,230 36,623 43,590 48,235 52,281 15,087
Colorado.................... 1,177 1,120 1,961 3,230 3,315 4,361 1,551
Connecticut................. 1,529 2,640 3,652 6,310 7,028 6,661 1,163
Delaware.................... 330 380 413 430 536 556 198
District of Columbia........ (191) 820 1,269 1,970 1,846 1,987 342
Florida..................... 5,357 7,980 8,257 10,580 16,824 19,612 5,233
Georgia..................... 1,341 2,070 3,146 3,320 4,365 4,864 1,653
Hawaii...................... 47 160 243 480 606 980 108
Idaho....................... 330 360 570 580 753 982 269
Illinois.................... 4,376 6,300 7,558 13,060 16,802 19,362 6,697
Indiana..................... 2,540 4,020 5,711 6,710 7,338 8,692 2,302
Iowa........................ 2,878 2,750 2,923 3,870 4,976 6,591 1,207
Kansas...................... 725 880 1,576 2,240 2,740 3,180 1,609
Kentucky.................... 2,692 2,930 3,052 3,320 3,539 3,835 902
Louisiana................... 2,746 5,830 7,656 9,320 11,043 12,180 1,551
Maine....................... 1,229 2,300 2,646 2,960 2,794 3,669 598
Maryland.................... 1,219 1,680 2,385 2,880 3,633 4,491 1,322
Massachusetts............... 5,010 6,230 7,134 8,380 9,604 11,147 3,395
Michigan \1\................ 14,202 17,540 21,868 26,840 31,917 36,550 9,469
Minnesota................... 1,462 1,710 4,003 4,620 5,224 5,861 1,326
Mississippi................. 398 410 410 390 667 795 267
Missouri.................... 2,470 5,450 4,674 5,190 6,743 6,270 2,480
Montana..................... 603 530 631 760 905 1,330 274
Nebraska.................... 767 1,000 1,179 1,560 1,771 2,062 696
Nevada...................... 204 250 333 460 669 870 240
New Hampshire............... 438 620 600 740 842 834 336
New Jersey \1\.............. 4,157 5,000 6,009 6,700 8,869 8,074 2,286
New Mexico.................. 1,609 1,810 1,798 1,890 2,438 2,722 804
New York \1\................ 39,200 44,400 57,520 72,590 89,816 101,975 24,508
North Carolina.............. 836 1,090 1,748 2,550 4,228 5,257 1,765
North Dakota................ 250 350 466 500 461 554 132
Ohio........................ 14,167 18,860 22,964 30,300 35,007 56,331 9,056
Oklahoma.................... 1,161 1,630 1,960 2,240 2,950 4,030 770
Oregon...................... 1,547 2,370 2,804 3,300 4,020 4,936 2,529
Pennsylvania................ 4,263 5,440 6,820 8,090 10,273 12,385 2,760
Rhode Island................ 3,353 3,610 4,399 4,610 4,194 3,101 737
South Carolina.............. 1,766 2,070 2,235 2,910 3,915 4,454 925
South Dakota................ 492 540 555 630 649 666 270
Tennessee................... 2,010 2,100 3,573 3,240 3,620 5,771 1,262
Texas....................... 5,233 6,750 9,142 14.520 17,160 17,308 4,682
Utah........................ 447 660 748 1,240 1,158 2,021 465
Vermont..................... 1,248 1,740 2,009 1,860 1,947 2,080 458
Virginia.................... 1,655 1,970 2,291 2,590 2,997 4,568 1,341
Washington.................. 2,055 4,000 1,987 3,940 3,013 4,441 2,880
West Virginia............... 230 260 285 440 492 542 115
Wisconsin................... 4,565 5,290 6,171 7,730 9,056 10,339 2,030
Wyoming..................... 79 110 60 60 23 51 16
-----------------------------------------------------------------------------------
Total................. 175,283 220,230 272,409 344,540 411,216 484,196 122,657
----------------------------------------------------------------------------------------------------------------
\1\ Fourth quarter data is estimated.
Note.--Totals may differ from sum of State amounts because of rounding.
Source: U.S. Department of Health and Human Services.
The Title IV-E Independent Living Program
In 1986, title IV-E was amended by Public Law 99-272
(Consolidated Omnibus Budget Reconciliation Act of 1985) to
include section 477, which established the Independent Living
Program to assist youth who would eventually be emancipated
from the foster care system. Several surveys conducted during
the mid-1980s showed that a significant number of homeless
shelter users had been recently discharged from foster care,
prompting Congress to establish a program to help youngsters in
foster care establish their independence.
An annual entitlement amount of $45 million was established
for 1987 and 1988 to provide States with the resources to
create and implement independent living services. These
services are designed to assist IV-E-eligible children age 16
and over make a successful transition from foster care to
independent adult living when they become ineligible for foster
care maintenance payments at age 18. In 1988, the program was
expanded under Public Law 100-647, which permitted States to
provide independent living services to all youth in foster care
aged 16 to 18 (not just title IV-E-eligible youth); States
could also provide follow-up services to youth up to 6 months
after their emancipation from substitute care. Under Public Law
101-508, States have the option of serving individuals up to
age 21 in the Independent Living Program. Funds are allocated
on the basis of each State's share of children receiving IV-E
foster care in 1984.
Public Law 101-239 increased the amount of Federal
entitlement funds available to the States for the Independent
Living Program to $50 million for fiscal year 1990, $60 million
for fiscal year 1991, and $70 million for fiscal year 1992.
Beginning in fiscal year 1991, States are required to provide
50 percent matching for any Federal funding claimed that
exceeds the original $45 million funding level. In 1993,
Congress permanently extended the authority for independent
living under Public Law 103-66. Table 11-12 shows State
allotments under the Independent Living Program in fiscal year
1996.
TABLE 11-12.--TITLE IV-E INDEPENDENT LIVING FEDERAL AWARDS, FISCAL YEAR
1996
[In thousands of dollars]
------------------------------------------------------------------------
Total
State awards
------------------------------------------------------------------------
Alabama.................................................... $1,044
Alaska..................................................... 13
Arizona.................................................... 272
Arkansas................................................... 350
California................................................. 12,551
Colorado................................................... 830
Connecticut................................................ 759
Delaware................................................... 204
District of Columbia....................................... 927
Florida.................................................... 993
Georgia.................................................... 1,105
Hawaii..................................................... 18
Idaho...................................................... 108
Illinois................................................... 2,833
Indiana.................................................... 1,020
Iowa....................................................... 452
Kansas..................................................... 721
Kentucky................................................... 792
Louisiana.................................................. 1,358
Maine...................................................... 569
Maryland................................................... 1,245
Massachusetts.............................................. 639
Michigan................................................... 4,195
Minnesota.................................................. 1,148
Mississippi................................................ 517
Missouri................................................... 1,302
Montana.................................................... 244
Nebraska................................................... 438
Nevada..................................................... 154
New Hampshire..................................