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The Temporary Assistance for
Needy Families (TANF) Block Grant:
Responses to Frequently Asked Questions
Gene Falk
Specialist in Social Policy
July 26October 11, 2011
Congressional Research Service
7-5700
www.crs.gov
RL32760
CRS Report for Congress
Prepared for Members and Committees of Congress
c11173008
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The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Summary
The Temporary Assistance for Needy Families (TANF) block grant funds a wide range of benefits
and services for low-income families with children. TANF was created in the 1996 welfare
reform law (P.L. 104-193). This report responds to some frequently asked questions about TANF;
it does not describe TANF rules (see, instead, CRS Report RL32748, The Temporary Assistance
for Needy Families (TANF) Block Grant: A Primer on TANF Financing and Federal
Requirements, by Gene Falk).
TANF Funding. TANF provides fixed funding to states, the bulk of which is provided in a $16.5
billion-per-year basic block grant. States are required in total to contribute, from their own funds,
at least $10.4 billion under a maintenance-of-effort (MOE) requirement. The basic block grant is
not adjusted for inflation or changes in the cash welfare caseload (see “The Caseload,” below). It
has lost 26% of its value to inflation from FY1997 through FY2010. P.L. 111-291 funds TANF
through the end of FY2011. President Obama’s FY2012 budget proposal would continue TANF
funding, except contingency funds, at its FY2006 through FY2010 levels through FY2012112-35 funds TANF
through December 31, 2011.
State Spending. Though TANF is best known for funding cash welfare payments for needy
families with children, the block grant and MOE funds are used for a wide variety of benefits and
activities. In FY2009, expenditures on basic assistance (cash welfare) totaled $9.3 billion—28%
of total federal TANF and MOE dollars. TANF also contributes funds for child care and services
for children who have been, or are at risk of being, abused and neglected.
Cash Welfare Caseload. In December 2010, the number of families receiving TANF cash
welfare was 1.9 million families, consisting of 4.7 million recipients, of which 3.5 million were
children. The cash welfare caseload is very heterogeneous. The type of family historically thought
of as the “typical” cash welfare family—one with an unemployed adult recipient—accounted for
less than half of all families on the rolls in FY2008. Additionally, 15% of cash welfare families
had an employed adult, while almost half of all families had no adult recipient. Child-only
families include those with disabled adults receiving Supplemental Security Income (SSI), adults
who are nonparents (e.g., grandparents, aunts, uncles) caring for children, and families consisting
of citizen children and ineligible noncitizen parents.
Cash Welfare Benefits. TANF cash benefits are set by states. In July 2009, the maximum
monthly benefit for a family of three ranged from $923 in Alaska to $170 in Mississippi. Benefits
in all states represent a fraction of poverty-level income. In the median state (Kansas), the
maximum monthly benefit of $429 for a family of three represents 28% of poverty-level income.
Cash Welfare Work Requirements. TANF requires states to engage 50% of all families and
90% of two-parent families in work activities. However, these standards are reduced by caseload
reduction from FY2005. Further, states may get an extra credit against these standards by
spending more than required under the TANF MOE. In FY2009, states achieved an all-family
participation rate of 29.4% and a two-parent rate of 28.3%. That year, eight jurisdictions failed
the all-family standard, and seven jurisdictions failed the two-parent standard. States that fail to
meet work standards are at risk of being penalized by a reduction in their block grant.
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The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Contents
Introduction ...................................................................................................................................... 1
Current Topics .................................................................................................................................. 1
What is TANF’s Current Funding Level?...............................................................................1
Was TANF Funding Included in the Full-Year Continuing Resolution?..................................2
What Does the President’s FY2012 Budget Propose..... 1
Has the President Proposed Reauthorization Legislation for TANF? ............................................ 2
Is the Cash Welfare Caseload Rising Because of the Current Recession? ...............................3. 2
How Can States Pay for Any Caseload Increases Caused by the Recession? ........................... 34
May States Require Drug Testing of Welfare Recipients? ........................................................ 3
History .4
History........................................................................................................................................4.... 3
When was the Temporary Assistance for Needy Families (TANF) Block Grant
Created?.................................................................................................................................. 34
Has Legislation Modified TANF Since the 1996 Law? ............................................................ 45
Funding and Expenditures ..............................................................................................................5. 4
How Much Has the TANF Grant Declined in Value Because of Inflation? .............................. 45
How Have States Used TANF Funds? .......................................................................................6 5
How Much of the TANF Grant Has Gone Unspent? ...............................................................7.. 6
The Caseload ................................................................................................................................... 78
How Many Families Receive TANF- or MOE-Funded Benefits and Services? .......................8 7
How Many Families and People Currently Receive TANF- or MOE-Funded Cash
Welfare? .................................................................................................................................8. 7
How Does the Current Cash Welfare Caseload Level Compare With Historical
Levels? ..............................................................................................................................8..... 7
What Are the Characteristics of Cash Welfare Families?.......................................................... 89
TANF Cash Benefits: How Much Does a Family Receive in TANF Cash Per Month? .......... 1110
TANF Work Participation Standards ............................................................................................ 13. 12
What Is the TANF Work Participation Standard States Must Meet? ....................................... 1312
What Actual Work Participation Rates Have the States Achieved? ......................................... 1413
Figures
Figure 1. Federal TANF and State MOE Funds Used in FY2009, by Major Benefit and
Service Category......................................................................................................................7..... 6
Figure 2. Number of Families Receiving Cash Welfare .................................................................9. 8
Figure 3. Composition of the Cash Welfare Caseload: FY2008 ...................................................... 109
Tables
Table 1. TANF Funding: FY2006 through FY2011 ......................................................................1
Table 2. TANF Funding: FY2011 and FY2012 FY2012............................................................................3 1
Table 32. Basic TANF Block Grant in Constant 1997 Dollars ........................................................5.. 4
Table 43. TANF and MOE-Funded Cash Welfare Rolls, December 2010 .......................................8
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Table 54. Monthly TANF Cash Welfare Maximum Benefit Amount for a Family Sizes of
Two and Three, July 2009 ...................................................................................................... 11
..... 10
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The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Table A-1. Temporary Extensions of TANF, FY2003-FY2006 .................................................... 14 15
Table A-2. Temporary Extensions of TANF, FY2011 ........-FY2012 ......................................................... 15
Table A-3. Use of TANF and State Maintenance of Effort Funds: FY2009 ................................. 16. 15
Table A-4.Cash Welfare Families by Family Type: FY1988, FY1994, and FY2008 .................... 1615
Table B-1. Use of FY2009 TANF and MOE Funds by Category .................................................. 1817
Table B-2. Use of FY2009 TANF and MOE Funds by Category as a Percent of Total
Federal TANF and State MOE Funding ..................................................................................... 20
Table B-3. Unspent TANF Funds at the End of FY2009 ............................................................... 2321
Table B-4. Number of Families, Recipients, Children, and Adults Receiving TANF Cash
Welfare, December 2010 ........................................................................................................... 23 24
Table B-5. Number of Families Receiving Cash Assistance, December 1994, 2008, 2010 ......... 2725
Table B-6. Families Receiving Cash Assistance, By Number of Parents Receiving
Assistance on Their Own Behalf: December 2010 .................................................................... 2927
Table B-7. TANF Work Participation Rates: FY2009 ................................................................. 31.. 29
Appendixes
Appendix A. Supplementary Tables ............................................................................................. 15. 14
Appendix B. State Tables ............................................................................................................ 18... 17
Contacts
Author Contact Information .......................................................................................................... 32. 30
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The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Introduction
This report provides responses to frequently asked questions about the Temporary Assistance for
Needy Families (TANF) block grant. It is intended to serve as a quick reference to provide easy
access to information and data. This report does not provide information on TANF program rules.
For such information, see CRS Report RL32748, The Temporary Assistance for Needy Families
(TANF) Block Grant: A Primer on TANF Financing and Federal Requirements, by Gene Falk.
For a non-technical overview of TANF, see CRS Report R40946, The Temporary Assistance for
Needy Families Block Grant: An Introduction, by Gene Falk. For a discussion of current TANF
legislative issues, see CRS Report R41781, The Temporary Assistance for Needy Families Block
Grant: Issues for the 112th Congress, by Gene Falk.
Current Topics
What is TANF’s Current Funding Level?
The Claims Resolution Act of 2010 (P.L. 111-291) included a one-year extension of TANF
funding and program authority through the end of FY2011. It generally extended TANF funding
for FY2011 at its FY2010 levels. The bulk of TANF funding is in a basic block grant (state family
assistance grant) that totals $16.5 billion per year. This is the same level of funding as has existed
since the creation of TANF in the 1996 welfare reform law (P.L. 104-193).
Under current law, two TANF grants are not funded in FY2011 at last year’s levels. P.L. 111-291
limited contingency fund obligations to those that occurred before its date of enactment
(December 8, 2011). Thus, no new additional contingency funds are available for the remainder
of FY2011. P.L. 111-291 also funded supplemental grants only through June 30, 2011 (the end of
the third quarter of FY2011), and provided that they are subject to reduced funding.
Table 1 shows funding for TANF grants for FY2006 through FY2011. The expiration of the
TANF ECF, limiting the TANF regular contingency fund obligations to those that occurred before
the date of enactment of P.L. 111-291, and providing supplemental grant funding for only three
quarters of FY2011 would result in a reduction in overall TANF funding from the FY2008
through FY2010 levels.
Table 1.TANF Funding: FY2006 through FY2011
(Dollars in millions)
2006
2007
2008
2009
2010
2011
(enacted)
16,489
16,489
16,489
16,489
16,489
16,489
Supplemental grants
319
319
319
319
319
211a
Healthy
marriage/responsible
fatherhood grants
150
150
150
150
150
150
State family
assistance grant
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Grants to the
territories
Grants for tribal
work programs
Regular contingency
funds
2007
2008
2009
2010
78
78
78
78
78
78
8
8
8
8
8
8
93
59
428
1,107
212
617
4,383
18,768
21,639
Emergency
contingency funds
Totals
2011
(enacted)
2006
17,137
17,103
17,472
334b
17,270
Source: Congressional Research Service (CRS), based on data from HHS.
a.
Preliminary estimate based on data from the U.S. Department of Health and Human Services (HHS).
b.
Total obligations for the contingency fund before enactment of P.L. 111-291. Information from HHSTANF currently operates under a three-month extension of funding, through December 31, 2011.
P.L. 112-35 extended TANF basic block grants (the state family assistance grant), healthy
marriage and responsible fatherhood grants, and certain other funds at their FY2011 funding level
through the first quarter of FY2012. In addition, legislation enacted in 2010 (P.L. 111-242)
provided an FY2012 appropriation of $612 million for TANF contingency funds. P.L. 112-35
provided no funds for TANF supplemental grants.
Table 1 shows TANF funding for FY2006 through FY2012. The FY2012 figure represents
annualized funding for the first three months of FY2012 as provided under P.L. 112-35.
Table 1. TANF Funding: FY2006 through FY2012
(Dollars in millions)
2006
2007
2008
$16,489
$16,489
Supplemental grants
319
Healthy
marriage/responsible
fatherhood grants
State family assistance
grant
Grants to the
territories
2009
2010
$16,489
$16,489
$16,489
$16,489
$16,489
319
319
319
319
211
0
150
150
150
150
150
150
150
78
78
78
78
78
78
78
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2011
2012
(first
three
months
under
P.L. 11235, at
the fullyear
rate)
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The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
2006
Grants for tribal
work programs
Regular contingency
funds
2007
2008
2009
2010
2012
(first
three
months
under
P.L. 11235, at
the fullyear
rate)
2011
8
8
8
8
8
8
8
93
59
428
1,107
212
334
612a
617
4,383
18,768
21,639
17,270
17,337
Emergency
contingency funds
17,137
17,103
17,472
Source: Congressional Research Service (CRS), based on data from HHS.
a.
The FY2012 appropriation for the contingency fund was provided in P.L. 111-242.
In addition to federal TANF funds, states are required in total to contribute, from their own funds,
at least $10.4 billion per year for TANF-related activities for low-income families with children.
This level of state funding, known as maintenance-of-effort (MOE) funding, was also established
in the 1996 welfare law and has not been changed since then.
Was TANF Funding Included in the Full-Year Continuing
Resolution?
No. The FY2011 appropriation for TANF was provided in the Claims Resolution Act, as
discussed above.
What Does the President’s FY2012 Budget Propose for TANF?
Table 2 shows TANF grants for FY2011 as enacted under current law and under President
Obama’s budget. It also shows President Obama’s budget request for FY2012.
The budget proposes an increase in funding for FY2011 supplemental grants above the currently
enacted level, from $211 million to $319 million, or an increase of $108 million. The budget
would also fund FY2012 supplemental grants at $319 million.
The FY2012 TANF basic block grant would be funded at $16.5 billion, the same level it has been
funded at since TANF was created in the 1996 welfare reform law. Funding for healthy marriage
and responsible fatherhood programs would be funded at $150 million. The budget proposes no
additional contingency funds for FY2011 but would provide FY2012 funding for the contingency
fund at $612 million. The $612 million is based on an appropriation provided under P.L. 111-242.
Most TANF grants are entitlements to the states. TANF funding has traditionally been included in
authorizing legislation; funding has not been provided in annual appropriations. TANF funding
comes under the rules that apply to mandatory spending. Under budget rules, both the $108
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million funding increase for supplemental grants in FY2011 and the full $319 million for
supplemental grants in FY2012 would require offsets.1
Table 2.TANF Funding: FY2011 and FY2012
(Dollars in millions)
FY2011 (Enacted
Claims Resolution Act)
President Obama’s
Budget FY2011
President Obama’s
Budget FY2012
$16,489
$16,489
$16,489
Supplemental grants
211
319
319
Healthy
marriage/responsible
fatherhood
150
150
150
78
78
78
Tribal work grants
8
8
8
Contingency funds
334
334
612
Basic block grant
Grants to the territories
Source: Congressional Research Service (CRS), based on data from HHS.
Notes: The $334 million in contingency funds for FY2011 both under the Claims Resolution Act and under
President Obama’s budget proposal has already been obligated. Under current law and under the proposal, there
are no new contingency funds.
The budget itself doesHas the President Proposed Reauthorization Legislation for TANF?
No. The President’s FY2012 budget proposed funding for TANF in FY2012 at current law levels
plus funding for supplemental grants at the historical level ($319 million per year). While the
budget itself did not propose a long-term reauthorization of TANF. Rather, it provides some
“general , it provided some “general
principles” for reauthorization. The Department of Health and Human Services’ (HHS) FY2012
Budget in Brief says
When TANF reauthorization is considered, the Administration would be interested in
exploring with Congress a variety of strategies to strengthen the program’s ability to improve
outcomes for families and children, including helping more parents succeed as workers by
building on the recent successes with subsidized employment, using performance indicators
to drive program improvement; and preparing the program to respond more effectively in the
event of a future economic downturn.
Is the Cash Welfare Caseload Rising Because of the
Current Recession?
The TANF cash welfare caseload has been increasing since the summer of 2008. The caseload hit
its lowest level since 1969 in July 2008, but has increased since then. From July 2008 to
December 2010, the TANF cash welfare caseload increased by 16%, adding about 273,000
families to the benefit rolls.
1
Supplemental grants require offsets to maintain funding at prior year levels because of a provision in TANF law that
directs the Congressional Budget Office (CBO) and the Office of Management and Budget (OMB) to assume in their
budget baselines that no additional supplemental grants will be made beyond their current funding period. For example
under current law, these agencies are to assume no supplemental grants will be made after June 30, 2011.
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How Can States Pay for Any Caseload Increases Caused by
the Recession?
There is no additional, recession-related funding provided in the one-year TANF extension
included in P.L. 111-291 for the remainder of FY2011. Absent additional funding, states will have
to reallocate funds from other block grant activities to finance any cash welfare caseload
increases resulting from the lingering effects of 2007-2009 recession.
Over the period FY2007 to the first quarter of FY2011, states drew $7.1 billion in combined
funds from the TANF regular contingency fund created in the 1996 welfare reform law and the
TANF “Emergency Contingency Fund” (ECF) created in the American Recovery and
Reinvestment Act of 2009 (P.L. 111-5) to provide extra funding in FY2009 and FY2010. It
expired, as originally scheduled, on September 30, 2010.
Not all these contingency funds financed cash welfare caseload increases. Regular contingency
funds helped pay for increased costs in the wide range of benefits, services, and activities funded
through TANF. The ECF helped pay for increased costs of cash welfare, non-recurrent short-term
aid, and subsidized employment.
May States Require Drug Testing of Welfare Recipients?
Yes. The 1996 welfare reform law gave states the option of requiring drug tests for welfare
recipients and penalizing those who fail such tests. (See Section 902 of P.L. 104-193.)
In addition to this option, the 1996 welfare reform law contained two other provisions related to
drug abuse and TANF applicants or recipients. The law established a lifetime ban on eligibility
for TANF and food stamps for those convicted of a drug-related felony. However, states may
either opt out entirely or modify and limit this lifetime ban. (See Section 115 of P.L. 104-193.)
Further, TANF allows states to establish Individual Responsibility Plans (IRPs) for their TANF
families. The IRP may require participation in a substance abuse treatment program. A family
may be sanctioned for failure to comply with its IRP.
History
When was the Temporary Assistance for Needy Families (TANF)
Block Grant Created?
The TANF block grant was created by the 1996 welfare reform law, the Personal Responsibility
and Work Opportunity Reconciliation Act of 1996 (P.L. 104-193). TANF replaced the program of
Aid to Families with Dependent Children (AFDC), which dated back to the Social Security Act of
1935, and several other related programs.
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Has Legislation Modified TANF Since the 1996 Law?
The Balanced Budget Act of 1997 (P.L. 105-33) included provisions establishing “welfare-towork” grants for FY1998 and FY1999 and made several other policy and technical changes to
TANF. No new welfare-to-work grants were made after FY1999.
The original funding authority for TANF ended on September 30, 2002. Over the four-year period
from 2002 through 2005, Congress considered, but did not pass, legislation to modify and
reauthorize TANF (see CRS Report RL33418, Welfare Reauthorization in the 109th Congress: An
Overview, by Gene Falk, Melinda Gish, and Carmen Solomon-Fears). Over this four-year period,
Congress passed 12 “temporary extensions” of TANF and related programs as stop-gap measures
until it could reach agreement on a longer-term reauthorization. (See Appendix A, Table A-1 for
a listing of the temporary extensions.)
The Deficit Reduction Act of 2005 (DRA, P.L. 109-171) includes a long-term extension of
funding for TANF through FY2010. It also modified TANF work participation standards;
established $100 million per year in TANF research and technical assistance funds for “healthy
marriage promotion” initiatives; and provided $50 million per year for “responsible fatherhood
initiatives.” (For a discussion of TANF provisions in the DRA, see CRS Report RS22369, TANF,
Child Care, Marriage Promotion, and Responsible Fatherhood Provisions in the Deficit
Reduction Act of 2005 (P.L. 109-171), by Gene Falk.)
Funding and Expenditures
How Much Has the TANF Grant Declined in Value Because
of Inflation?
From FY1997 (the first full year of TANF funding) through FY2010 (ended September 30, 2010),
the real value of the TANF block grant declined by 26%. On the basis of the January 2011
inflation projections of the Congressional Budget Office (CBO), the block grant would decline in
value by 28% from FY1997 through FY2011.
Table 32. Basic TANF Block Grant in Constant 1997 Dollars
Fiscal Year
Value of the Block
Grant in Billions of
FY1997 Dollars
Cumulative Loss
of Value
in Percent
1997
16.5
0
1998
16.2
-2%
1999
15.9
-3%
2000
15.4
-6%
2001
14.9
-9%
2002
14.7
-11%
2003
14.4
-13%
2004
14.1
-15%
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Fiscal Year
Value of the Block
Grant in Billions of
FY1997 Dollars
Cumulative Loss
of Value
in Percent
2005
13.6
-17%
2006
13.1
-20%
2007
12.8
-22%
2008
12.3
-25%
2009
12.3
-25%
2010
12.1
-26%
2011
11.9
-28%
Source: Prepared by the Congressional Research Service (CRS). Constant dollars were computed using the
Consumer Price Index for all Urban Consumers (CPI-U). Actual inflation was used to compute constant dollars
for FY1997-FY2010 using data from the U.S. Bureau of Labor Statistics. Constant dollars for FY2011 are based
on the inflation assumptions of the Congressional Budget Office, published in January 2011.
How Have States Used TANF Funds?
TANF is best known as a funding source of cash welfare benefits for needy families with
children. However, states have considerable discretion in using TANF funds, and have used them
for a wide range of benefits and services.
Figure 1 shows the uses of federal TANF grants to states and state MOE funds in FY2009. In
FY2009, a total of $33.5 billion of both federal TANF and state MOE expenditures were either
expended or transferred to other block grant programs. Basic assistance, the category that most
closely reflects cash welfare, had expenditures of $9.3 billion in FY2009—28% of total TANF
and MOE dollars. All three expenditure categories commonly associated with “welfare” for needy
families with children—basic assistance, administrative costs, and work activities—accounted for
less than half ($14.2 billion or 42%) of all funds.
TANF is a major contributor of child care funding. In FY2009, 18% of all TANF funds used were
either expended on child care or transferred to the child care block grant (the Child Care and
Development Fund, or CCDF). TANF is also a major contributor to the child welfare system,
which provides foster care, adoption assistance, and services to families with children who either
have experienced or are at risk of experiencing child abuse or neglect. However, TANF’s
accounting system does a poor job of capturing expenditures associated with spending on the
child welfare system. 21 Most TANF funding for these programs is subsumed in the catch-all
“other” expenditure category.
21
For a discussion of the shortcomings of TANF financial data reporting, see the U.S. Government Accountability
Office, Better Information Needed to Understand Trends in States’ Uses of the TANF Block Grant, GAO-06-414,
March 2006. For an estimate of TANF’s contribution to child welfare agencies’ funding, see Scarcella et al, The Cost of
Protecting Vulnerable Children V, Urban Institute, May 2006.
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Figure 1. Federal TANF and State MOE Funds Used in FY2009,
by Major Benefit and Service Category
Total federal and state MOE funds used—$33.5 billion (dollars in billions)
Basic Assistance,
$9.3
Other, $10.9
Administration,
$2.5
Other Work
Supports, $2.6
Work Programs,
$2.4
Child Care, $5.9
Work Programs,
$2.4
Source: Congressional Research Service (CRS), based on data from the U.S. Department of Health and Human
Services (HHS).
See Appendix A, Table A-3 for percentages of total federal TANF and state MOE funds
associated with each of these categories. For state-specific information on the use of TANF funds,
see Appendix B, Table B-1, and Table B-2.
How Much of the TANF Grant Has Gone Unspent?
TANF law permits states to “reserve” unused funds without time limit. This permits flexibility in
timing of the use of TANF funds, including the ability to “save” funds for unexpected
occurrences that might increase costs (such as recessions or natural disasters).
At the end of FY2009 (the most recent data available), a total of $3.7 billion of federal TANF
funding had neither been transferred nor spent. However, some of that $3.7 billion represented
funds that states had already committed to spend later. At the end of FY2009, states had made
such commitments to spend—that is, had obligated—a total of $1.6 billion. Generally, obligations
are binding commitments to spend, and they come in the form of contracts and grants to provide
benefits and services. However, the definition of “obligation” varies from program to program,
and because TANF essentially consists of 54 different programs (one for each state, the District of
Columbia, and the territories), what constitutes an obligation may vary.
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The remaining $2.1 billion in unspent funds is called the “unobligated balance.” These funds are
available to states to make new spending commitments. Table B-3 in Appendix B shows unspent
TANF funds by state.
The Caseload
How Many Families Receive TANF- or MOE-Funded Benefits
and Services?
This number is not known. Federal TANF reporting requirements focus on families receiving
only ongoing assistance (generally cash welfare), with no complete reporting on families
receiving other TANF benefits and services. As discussed in a previous section of this report, a
little less than half of all TANF funds are used on activities not considered part of a traditional
“welfare” program. Therefore, the federal reporting requirements that pertain to families
receiving “assistance” are very likely to undercount the number of families receiving any TANFfunded benefit or service.
How Many Families and People Currently Receive TANF- or MOEFunded Cash Welfare?
Table 43 provides cash welfare caseload information. A total of 1.9 million families, composed of
4.7 million recipients, received TANF- or MOE-funded cash in December 2010. The bulk of the
“recipients” were children—3.5 million in that month. For state-by-state cash assistance
caseloads, see Table B-4 in Appendix B.
Table 4.3. TANF and MOE-Funded Cash Welfare Rolls, December 2010
Families
1,947,957
Total Recipients
4,682,609
Children
3,488,716
Adults
1,193,893
Source: Congressional Research Service on the basis of data from the U.S. Department of Health and
Human Services (HHS).
How Does the Current Cash Welfare Caseload Level Compare With
Historical Levels?
The number of families receiving cash welfare peaked in March 1994 at 5.1 million families. The
cash welfare caseload fell rapidly in the late 1990s (after the 1996 welfare reform law) before
leveling off in 2001. In 2004, the caseload began another decline, albeit at a slower pace than in
the late 1990s. Nationally, the caseload began to rise beginning in August 2008.
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Figure 2 provides a long-term historical perspective on the number of families receiving cash
welfare, from July 1959 to December 2010.
Table B-5 shows recent trends in the number of cash welfare families by state.
Figure 2. Number of Families Receiving Cash Welfare
July 1959 to December 2010
6
March 1994
5.1 million
5
4
3
Dec. 2010:
1.9 million
2
1
July 2008:
1.7 million
Ju
l-5
9
Ju
l-6
2
Ju
l-6
5
Ju
l-6
8
Ju
l-7
1
Ju
l-7
4
Ju
l-7
7
Ju
l-8
0
Ju
l-8
3
Ju
l-8
6
Ju
l-8
9
Ju
l-9
2
Ju
l-9
5
Ju
l-9
8
Ju
l-0
1
Ju
l-0
4
Ju
l-0
7
Ju
l-1
01
-1
0
-0
7
Ju
l
-0
4
Ju
l
-0
1
Ju
l
-9
8
Ju
l
-9
5
Ju
l
-9
2
Ju
l
-8
9
Ju
l
-8
6
Ju
l
-8
3
Ju
l
-8
0
Ju
l
-7
7
Ju
l
-7
4
Ju
l
-7
1
Ju
l
-6
8
Ju
l
-6
5
Ju
l
-6
2
Ju
l
Ju
l
Ju
l
-5
9
0
Source: Congressional Research Service (CRS), based on data from the U.S. Department of Health and Human
Services (HHS).
What Are the Characteristics of Cash Welfare Families?
Historically, the “typical” cash welfare family has been headed by a single parent (usually the
mother) with one or two children. The single parent has also typically been unemployed.
However, the cash welfare caseload decline has occurred together with a major shift in the
composition of the rolls. Today, less than half of all cash welfare families are headed by an
unemployed adult recipient. Almost half of all cash welfare families had no adult recipient at all,
with the adults in the family ineligible for aid and the benefits paid only on behalf of the child
(these are known as “child-only” families). This shift occurred because the caseload decline was
concentrated among the families thought of as the “typical” cash welfare families, and welfare-towork efforts have been concentrated on this population.
Figure 3 shows the composition of the cash welfare caseload in FY2008. Families with an
unemployed adult recipient represent 36% of all cash welfare families. Families with an
employed (in a regular job) adult recipient, who receive cash welfare as an earnings supplement,
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comprise an additional 15% of the cash welfare rolls. Within the “child-only” portion of the
caseload, families with a parent (usually a disabled parent) receiving SSI and the children
receiving TANF as a supplement to that benefit represent 11% of the cash welfare caseload.
Families that are made up of children living with a non-parent relative (grandparents, aunts,
uncles, etc.) represent 16% of the cash welfare caseload. Families with adults who were either
sanctioned or time-limited off the rolls (and thus had their family’s benefit reduced) represented
about 6% of all cash assistance families. Families of child citizens living with ineligible parents
who are noncitizens or who have not reported their citizenship status make up 9% of the total
cash welfare caseload. The remainder of the cash welfare caseload represents child recipients for
whom data on the adults they live with are not available.
Figure 3. Composition of the Cash Welfare Caseload: FY2008
Child-only/other ,
114,250
Child-only/noncitizen
or unknown
citizenship of parent,
159,447
Family with adult
recipients/ Not
employed, 616,240
Child-only/caretaker
relative, 267,486
Child-only/SSI parent,
183,392
Child-only/Adults(s)
time-limited, 55,843
Child-only/Adult(s)
sanctioned, 43,067
Families with adult
recipients/At least 1
Employed, 254,284
Source: Congressional Research Service (CRS) analysis of the FY2008 TANF National Data Files.
As previously discussed, the composition of the caseload has changed considerably over time.
Table A-4 shows the change in this categorization of families over time.
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TANF Cash Benefits: How Much Does a Family Receive in TANF
Cash Per Month?
There are no federal rules that help determine the amount of TANF cash benefits paid to a family.
(There are also no federal rules that require states to use TANF to pay cash benefits, though all
states do so.) Benefit amounts are determined solely by the states.
Table 54 shows the maximum monthly TANF cash benefit by state for a family of two and a
family of three in July 2009.32 The benefit amounts shown are those for a single-parent family
with children. Some states vary their benefit amounts for other family types such as two-parent
families or “child-only” cases. States also vary their benefits by other factors such as housing
costs and sub-state geography.
Most states base TANF cash benefit amounts on family size, paying larger cash benefits to larger
families on the presumption that they have greater financial needs. The maximum monthly cash
benefit is usually paid to a family that receives no other income (e.g., no earned or unearned
income) and complies with program rules. Families with income other than TANF often are paid
a reduced benefit. Moreover, some families are financially sanctioned for failure to meet a
program requirement (e.g., a work requirement), and are also paid a lower benefit.
The table also shows the benefit amounts relative to poverty-level income. TANF pays a family in
cash only a fraction of poverty level income (as officially determined and published by the
Department of Health and Human Services). For a family of two, the maximum TANF benefit
paid in July 2009 varied from $142 per month in Tennessee (12% of poverty-level income) to
$821 per month in Alaska (54% of poverty-level income). For a family of three, the maximum
TANF benefit paid in July 2009 varied from $170 per month in Mississippi (11% of poverty-level
income) to $923 per month in Alaska (48% of poverty-level income).
Table 54. Monthly TANF Cash Welfare Maximum Benefit Amount
for a Family Sizes of Two and Three, July 2009
Family Size of Two
State
Alabama
Family Size of Three
Dollars
Percent of
Poverty
Threshold
Dollars
Percent of Poverty
Threshold
$190
15.6%
$215
Percent of
Poverty
Threshold
14.1%
Alaska
821
54.1
923
48.4
Arizona
220
18.1
278
18.2
Arkansas
162
13.3
204
13.4
California
561
46.2
694
45.5
Colorado
364
30.0
462
30.3
32
States are not required to report to the federal government their cash welfare benefit amounts in either the TANF state
plan (under section 402 of the Social Security Act) or in annual program reports (under section 407 of the Social
Security Act). The benefit amounts shown are from the “Welfare Rules Database,” maintained by the Urban Institute
and funded by the Department of Health and Human Services (HHS).
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Family Size of Two
Family Size of Three
Dollars
Percent of
Poverty
Threshold
Dollars
Percent of
Poverty
Threshold
Connecticut
457
37.6
560
36.7
Delaware
270
22.2
338
22.2
District of
Columbia
336
27.7
428
28.1
Florida
241
19.8
303
19.9
Georgia
235
19.4
280
18.4
Hawaii
506
36.2
636
36.2
Idaho
309
25.4
309
20.3
Illinois
318
26.2
432
28.3
Indiana
230
18.9
288
18.9
Iowa
361
29.7
426
27.9
Kansas
352
29.0
429
28.1
Kentucky
225
18.5
262
17.2
Louisiana
188
15.5
240
15.7
Maine
363
29.9
485
31.8
Maryland
453
37.3
574
37.6
Massachusetts
531
43.7
633
41.5
Michigan
403
33.2
492
32.2
Minnesota
437
36.0
532
34.9
Mississippi
146
12.0
170
11.1
Missouri
234
19.3
292
19.1
Montana
401
33.0
504
33.0
Nebraska
293
24.1
364
23.9
Nevada
318
26.2
383
25.1
New Hampshire
606
49.9
675
44.2
New Jersey
322
26.5
424
27.8
New Mexico
357
29.4
447
29.3
New York
524
43.1
721
47.3
North Carolina
236
19.4
272
17.8
North Dakota
378
31.1
477
31.3
Ohio
355
29.2
434
28.4
Oklahoma
225
18.5
292
19.1
Oregon
436
35.9
514
33.7
Pennsylvania
316
26.0
403
26.4
Rhode Island
449
37.0
554
36.3
State
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Family Size of Two
Family Size of Three
Dollars
Percent of
Poverty
Threshold
Dollars
Percent of
Poverty
Threshold
South Carolina
215
17.7
271
17.7
South Dakota
482
39.7
539
35.3
Tennessee
142
11.7
185
12.1
Texas
211
17.4
244
16.0
Utah
380
31.3
474
31.1
Vermont
536
44.1
640
41.9
Virginia
254
20.9
320
21.0
Washington
453
37.3
562
36.8
West Virginia
301
24.8
340
22.3
Wisconsin
628
51.7
628
41.2
Wyoming
514
42.3
546
35.8
Maximum
821
54
923
48.0
Minimum
142
12
170
11.0
Median
352
29
429
28.0
State
Source: Urban Institute’s Welfare Rules Database, funded by the Department of Health and Human Services
(HHS).
TANF Work Participation Standards
What Is the TANF Work Participation Standard States Must Meet?
The TANF statute requires states to have 50% of their caseload meet standards of participation in
work or activities—that is, a family member must be in specified activities for a minimum
number of hours.43 There is a separate participation standard that applies to the two-parent portion
of a state’s caseload, requiring 90% of the state’s two-parent caseload to meet participation
standards. States that fail the TANF work participation standards are at risk of being penalized by
a reduction in their block grant amounts.
However, the statutory work participation standards are reduced by a “caseload reduction credit.”
The caseload reduction credit reduces the participation standard one percentage point for each
percentage point decline in the caseload. Through FY2006, states were given credit for caseload
declines that occurred since FY1995.
43
Some families are excluded from the participation rate calculation.
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Beginning in FY2007, states were only credited with caseload declines that have occurred since
FY2005. The FY2007 effective (after-credit) standard is based on caseload declines from FY2005
to FY2006. However, under a regulatory provision, states may get “extra” credit for caseload
reduction if they spend more than required under the TANF MOE. States can exclude those
families funded by state funds in excess of required state spending.
The ARRA temporarily modifies the caseload reduction credit states receive toward their TANF
work participation. The modification is effective for the FY2009 through FY2010 standards. The
ARRA provides that a state’s credit would not be reduced for any caseload increases that occurred
in FY2008 through FY2010.
What Actual Work Participation Rates Have the States Achieved?
In FY2009, the national average work participation rate achieved by states for all families was
29.4%. The participation rate within TANF achieved nationwide for the two-parent portion of the
caseload was 28.3%. These rates are well below the statutory target of 50% for all families and
90% for two-parent families. They are also well below the targets even when adjusting for actual
caseload reduction between FY2005 and FY2008. However, only eight jurisdictions failed the allfamily standard, and seven jurisdictions failed the two-parent standard. This is because (1) many
states obtained fairly large “extra” credits for spending above the required MOE level; (2) states
were “held harmless” for any caseload increases between FY2007 and FY2008 (based on the
temporary ARRA modification to the caseload reduction credit, noted above); and (3) many states
eliminated two-parent families from their TANF and MOE caseloads. Presumably, many states
aided two-parent families with their own funds.
The jurisdictions that failed to meet the all-family standard were California, the District of
Columbia, Guam, Maine, Missouri, Ohio, Oregon, and Puerto Rico. The jurisdictions that failed
to meet the two-parent standard were Alaska, Guam, Kentucky, Maine, Nevada, Oregon, and
Rhode Island. States that fail to meet work standards are at risk of being penalized by a reduction
in their block grant. States can avoid the penalty by entering into a corrective compliance plan
with the Department of Health and Human Services (HHS). They can also claim reasonable cause
for failing to meet the penalty. Further, penalties are reduced based on the degree of
noncompliance, and may be reduced by the Secretary of HHS for those states that were
economically needy during FY2009.
See Table B-7 for state-by-state FY2009 work participation rates.
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Appendix A. Supplementary Tables
Table A-1.Temporary Extensions of TANF,
FY2003-FY2006
Public Law
Time Period
Notes
P.L. 107-229
Oct. 1, 2002-Dec. 31, 2002
Extension as part of a continuing resolution.
P.L. 107-294
Jan. 1, 2003-Mar. 31, 2003
Extension as part of a continuing resolution.
P.L. 108-7
Apr. 1, 2003-June 30, 2003
Extension as part of the Consolidated
Appropriations Act.
P.L. 108-40
July 1, 2003-Sept. 30, 2003
Free-standing bill that amended the Social Security
Act to extend TANF and related programs.
P.L. 108-89
Oct. 1, 2003-Mar. 31, 2004
Multipurpose bill that extended programs through
the first half of FY2004.
P.L. 108-210
Apr. 1, 2004-June 30, 2004
Freestanding bill that extended funding authority
for the program through June 30, 2004.
P.L. 108-262
July 1, 2004-Sept. 30, 2004
Freestanding bill that extended funding authority
for the program through Sept. 30, 2004.
P.L. 108-308
Oct. 1, 2004- Mar. 31, 2005
Freestanding bill that extended funding authority
for the programs through Mar. 31, 2005.
P.L. 109-4
Apr. 1, 2005-June 30, 2005
Freestanding bill that extended funding authority
for the programs through June 30, 2005.
P.L. 109-19
July 1, 2005-Sept. 30, 2005
Freestanding bill that extended funding authority
for the programs through Sept. 30, 2005.
P.L. 109-68
Oct. 1, 2005-Dec. 31, 2005
Bill to provide extra funding to help states provide
benefits to families affected by Hurricane Katrina,
suspend certain requirements in states affected by
the hurricane, and extend the funding authority for
the programs through December 31, 2005.
P.L. 109-161
Jan. 1, 2006-Mar. 31, 2006
Freestanding bill that extended funding authority
for the programs through March 31, 2006. It
reduced the bonus for reducing out-of-wedlock
births for FY2006-FY2010 to offset the costs of the
temporary extension.
Source: Congressional Research Service (CRS).
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Table A-2.Temporary Extensions of TANF, FY2011-FY2012
Public Law
Time Period
Notes
P.L. 111-242
Oct. 1, 2010-Dec. 3, 2010
Extension as part of a continuing resolution.
P.L. 111-290
Dec. 4, 2010-Dec. 7, 2010
Extension as part of a continuing resolution.
P.L. 111-291
Dec. 8, 2010-Sept. 30, 2011
(except supplemental grants,
Dec. 8, 2010 – -June 30, 2011)
Extension as part of the Claims Resolution Act of
2010. It funded supplemental grants only through
the first three quarters of FY2011 and at a
reduced rate.
Source: Congressional Research Service (CRS).
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Oct. 1, 2011-Dec. 31, 2011
Free-standing bill to extend TANF for three
months. No funding for TANF supplemental grants.
Source: Congressional Research Service (CRS).
Table A-3. Use of TANF and State Maintenance of Effort Funds: FY2009
Dollars
(in billions)
Percent of
Total Dollars
Basic Assistance
$9.3
27.8%
Administration
2.5
7.4
Work Programs
2.4
7.0
Child Care
5.9
17.5
Other Work Supports
2.6
7.9
Other
10.9
32.4
Totals
33.5
100.0
Source: Congressional Research Service (CRS) based on data from the U.S. Department of Health and Human
Services (HHS).
Table A-4.Cash Welfare Families by Family Type: FY1988, FY1994, and FY2008
Family with adult recipients/ not employed
Families with adult recipients/at least one
employed
Child-only/adult(s) sanctioned
1988
1994
2008
3,136,566
3,798,997
616,240
243,573
378,621
254,284
—
—
43,067
Child-only/adults(s) time-limited
Child-only/SSI parent
55,843
59,988
171,391
183,392
188,598
328,290
267,486
Child-only/noncitizen or unknown
citizenship of parent
47,565
184,397
159,447
Child-only/other
71,660
184,567
114,250
Child-only/caretaker relative
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1988
1994
3,747,950
5,046,263
3,747,950
5,046,263
1,694,009
Family with adult recipients/ not employed
83.7
75.3
36.4
Families with adult recipients/at least one
employed
6.5
7.5
15.0
Child-only/adult(s) sanctioned
0.0
0.0
2.5
Child-only/adults(s) time-limited
0.0
0.0
3.3
Child-only/SSI parent
1.6
3.4
10.8
Child-only/caretaker relative
5.0
6.5
15.8
Child-only/noncitizen or unknown
citizenship of parent
1.3
3.7
9.4
Child-only/caretaker relative
Total
As a Percent of All Cash Welfare Families
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Child-only/other
Total
1988
1994
2008
1.9
3.7
6.7
100.0
100.0
100.0other
1.9
3.7
6.7
100.0
100.0
100.0
Total
2008
1,694,009
As a Percent of All Cash Welfare Families
Total
Sources: Congressional Research Service (CRS) tabulations of the 1988 AFDC Quality Control Public Use Data
File; the 1994 AFDC Quality Control Public Use Data File; and the 2008 TANF National Data File.
Note: For FY2008, the cash welfare caseload includes those whose benefits were funded from TANF dollars as
well as those whose benefits were funded with MOE dollars under SSPs. “Family with an adult, unemployed”
includes families reported as “child-only” who are under a sanction.
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Appendix B. State Tables
Table B-1. Use of FY2009 TANF and MOE Funds by Category
(Dollars in millions)
Basic
Assistance
Administrative
Expenditures
Work Program
Expenditures
Other Work
Supports
Other
Total
$42.3
$17.0
$21.5
$7.5
$6.4
$65.1
$159.7
Alaska
31.9
6.0
9.6
30.7
1.3
6.0
85.5
Arizona
138.0
43.6
12.6
57.2
0.7
157.3
409.5
Arkansas
16.5
13.5
25.8
15.5
4.4
65.1
140.9
California
3,509.5
611.6
485.4
1,020.2
205.6
1,051.1
6,883.5
Colorado
51.8
14.2
0.9
30.6
9.8
266.4
373.7
Connecticut
89.3
36.9
18.9
27.3
5.7
326.1
504.2
Delaware
18.2
7.3
0.6
30.9
0.3
5.3
62.5
District of Columbia
22.7
12.3
20.5
81.2
3.9
35.7
176.2
Florida
180.0
38.7
65.2
375.5
6.5
375.0
1,040.7
Georgia
55.0
22.1
17.9
22.2
15.7
388.6
521.5
Hawaii
70.1
19.4
142.4
33.4
2.8
97.1
365.2
Idaho
5.9
12.0
6.6
8.7
0.1
9.3
42.6
Illinois
61.1
28.2
68.7
490.7
18.7
463.0
1,130.4
Indiana
108.6
30.9
20.3
52.5
31.7
109.0
353.1
Iowa
61.9
10.8
18.5
45.4
18.4
63.8
218.8
Kansas
46.5
11.2
2.1
38.2
46.7
53.3
198.0
Kentucky
117.4
12.8
25.9
83.1
6.4
29.9
275.5
Louisiana
42.8
7.8
9.1
38.2
5.2
148.6
251.7
Maine
74.6
3.9
13.9
18.0
20.1
4.0
134.6
Maryland
107.1
55.5
36.9
31.5
132.9
180.9
544.9
Massachusetts
324.7
44.1
22.8
336.0
87.1
379.3
1,194.0
State
Alabama
CRS-1817
Child Care
.
Basic
Assistance
Administrative
Expenditures
Work Program
Expenditures
Child Care
Other Work
Supports
Other
Total
336.4
136.2
113.1
174.6
74.6
766.6
1,601.6
Minnesota
90.0
47.5
76.0
119.6
135.6
59.8
528.5
Mississippi
18.9
4.8
28.3
27.2
25.4
24.5
129.1
Missouri
104.5
14.6
23.4
77.6
0.0
139.1
359.2
Montana
16.4
5.9
11.6
9.5
0.0
8.3
51.7
Nebraska
26.4
5.5
21.5
22.5
29.4
0.6
105.7
Nevada
46.7
10.6
5.0
0.0
5.0
62.2
129.5
New Hampshire
33.9
11.7
9.6
8.0
1.7
23.3
88.1
New Jersey
181.8
73.3
102.2
107.1
227.0
516.6
1,207.9
New Mexico
60.1
15.2
15.1
39.0
45.1
26.4
200.8
1,458.0
456.6
181.7
516.0
1,234.4
1,860.2
5,706.9
North Carolina
89.3
45.0
59.6
237.2
36.0
268.8
735.9
North Dakota
8.5
4.9
3.2
1.0
1.9
16.7
36.3
432.0
158.0
46.7
327.2
22.9
385.1
1,372.0
22.0
20.2
0.2
124.1
22.3
73.2
262.0
Oregon
115.0
27.7
27.4
37.0
8.2
97.8
313.1
Pennsylvania
197.7
77.0
155.5
428.4
36.8
242.4
1,137.9
Rhode Island
45.2
12.7
7.0
19.8
9.5
31.4
125.7
South Carolina
40.5
15.7
26.2
4.1
9.9
93.5
189.7
South Dakota
13.6
3.3
3.8
0.8
0.0
6.2
27.9
127.8
33.1
64.1
95.0
0.0
85.9
405.9
Texas
84.2
92.1
78.3
26.8
1.3
548.3
831.1
Utah
32.8
12.4
32.6
14.0
4.2
39.6
135.5
Vermont
16.9
7.5
0.3
23.9
24.2
13.7
86.5
Virginia
73.8
25.5
54.7
40.2
9.3
78.3
281.8
318.5
52.0
130.2
216.5
4.0
843.8
1,564.9
State
Michigan
New York
Ohio
Oklahoma
Tennessee
Washington
CRS-1918
.
Basic
Assistance
Administrative
Expenditures
Work Program
Expenditures
31.8
25.7
1.5
Wisconsin
113.4
26.4
Wyoming
11.3
9,323.5
State
West Virginia
Totals
Other Work
Supports
Other
Total
28.2
16.9
54.3
158.4
33.5
254.9
24.6
192.1
644.9
1.7
0.5
5.8
0.4
11.8
31.5
2,482.7
2,358.8
5,860.6
2,641.0
10,850.2
33,516.8
Child Care
Source: Prepared by the Congressional Research Service (CRS) on the basis of data from the U.S. Department of Health and Human Services (HHS).
CRS-19
Total
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Table B-2. Use of FY2009 TANF and MOE Funds by Category as a Percent of Total
Federal TANF and State MOE Funding
State
Basic
Assistance
Administrative
Expenditures
Work Program
Expenditures
Alabama
26.5%
10.7%
13.413.4%
Child Care
Other
Work
Supports
4.7%
4.0%
Other
40.7%
Total
Alabama
26.5%
Alaska
37.3
7.1
11.2
35.9
1.5
7.1
100.0
Arizona
33.7
10.7
3.1
14.0
0.2
38.4
100.0
Arkansas
11.7
9.6
18.3
11.0
3.1
46.2
100.0
California
51.0
8.9
7.1
14.8
3.0
15.3
100.0
Colorado
13.9
3.8
0.3
8.2
2.6
71.3
100.0
Connecticut
17.7
7.3
3.8
5.4
1.1
64.7
100.0
Delaware
29.1
11.7
1.0
49.4
0.4
8.4
100.0
District of
Columbia
12.9
7.0
11.6
46.1
2.2
20.2
100.0
Florida
17.3
3.7
6.3
36.1
0.6
36.0
100.0
Georgia
10.5
4.2
3.4
4.3
3.0
74.5
100.0
Hawaii
19.2
5.3
39.0
9.2
0.8
26.6
100.0
Idaho
13.8
28.2
15.5
20.5
0.3
21.8
100.0
Illinois
5.4
2.5
6.1
43.4
1.7
41.0
100.0
State
CRS-20
Child Care
4.7%
Other Work
Supports
4.0%
Other
40.7%
Total
100.0%
.
Basic
Assistance
Administrative
Expenditures
Work Program
Expenditures
Child Care
Other Work
Supports
Other
Total
Indiana
30.8
8.8
5.7
14.9
9.0
30.9
100.0
Iowa
28.3
4.9
8.5
20.7
8.4
29.2
100.0
Kansas
23.5
5.7
1.1
19.3
23.6
26.9
100.0
Kentucky
42.6
4.6
9.4
30.2
2.3
10.9
100.0
Louisiana
17.0
3.1
3.6
15.2
2.1
59.0
100.0
Maine
55.5
2.9
10.3
13.4
15.0
3.0
100.0
Maryland
19.7
10.2
6.8
5.8
24.4
33.2
100.0
Massachusetts
27.2
3.7
1.9
28.1
7.3
31.8
100.0
Michigan
21.0
8.5
7.1
10.9
4.7
47.9
100.0
Minnesota
17.0
9.0
14.4
22.6
25.7
11.3
100.0
Mississippi
14.6
3.8
21.9
21.0
19.7
19.0
100.0
Missouri
29.1
4.1
6.5
21.6
0.0
38.7
100.0
Montana
31.8
11.4
22.4
18.3
0.0
16.1
100.0
Nebraska
25.0
5.2
20.3
21.3
27.8
0.5
100.0
Nevada
36.1
8.2
3.8
0.0
3.9
48.0
100.0
New
Hampshire
38.5
13.2
10.9
9.1
1.9
26.4
100.0
New Jersey
15.0
6.1
8.5
8.9
18.8
42.8
100.0
New Mexico
29.9
7.6
7.5
19.4
22.4
13.2
100.0
Congressional Research Service
10.7%
Work
Program
Expenditures
100.0%
20
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Basic
Assistance
State
Administrative
Expenditures
Work
Program
Expenditures
Child Care
Other
Work
Supports
Other
Total
New York
25.5
8.0
3.2
9.0
21.6
32.6
100.0
North
Carolina
12.1
6.1
8.1
32.2
4.9
36.5
100.0
North
Dakota
23.5
13.5
8.8
2.8
5.3
46.1
100.0
Ohio
31.5
11.5
3.4
23.8
1.7
28.1
100.0
8.4
7.7
0.1
47.4
8.5
28.0
100.0
Oregon
36.7
8.8
8.7
11.8
2.6
31.2
100.0
Pennsylvania
17.4
6.8
13.7
37.6
3.2
21.3
100.0
Rhode Island
36.0
10.1
5.6
15.8
7.6
25.0
100.0
State
Oklahoma
CRS-21
.
Basic
Assistance
Administrative
Expenditures
Other Work
Supports
Other
Total
South South
Carolina
21.3
8.3
13.8
2.2
5.2
49.3
100.0
South Dakota
48.9
11.9
13.8
2.9
0.1
22.3
100.0
Tennessee
31.5
8.2
15.8
23.4
0.0
21.2
100.0
Texas
10.1
11.1
9.4
3.2
0.2
66.0
100.0
Utah
24.2
9.2
24.0
10.3
3.1
29.2
100.0
Vermont
19.5
8.7
0.3
27.6
28.0
15.9
100.0
Virginia
26.2
9.1
19.4
14.3
3.3
27.8
100.0
Washington
20.3
3.3
8.3
13.8
0.3
53.9
100.0
West Virginia
20.1
16.2
0.9
17.8
10.7
34.3
100.0
Wisconsin
17.6
4.1
5.2
39.5
3.8
29.8
100.0
Wyoming
35.9
5.4
1.6
18.3
1.1
37.6
100.0
Totals
27.8
7.4
7.0
17.5
7.9
32.4
100.0
State
Work Program
Expenditures
Child CareOklahoma
Source: Prepared by the Congressional Research Service (CRS) on the basis of data from the U.S. Department
of Health and Human Services (HHS).
CRS-22
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Table B-3. Unspent TANF Funds at the End of FY2009
September 30, 2009; dollars in millions
State
Obligated but Unspent
Alabama
Unobligated and Unspent
Total Unspent
$4.8
$26.8
$31.7
Alaska
0.0
58.3
58.3
Arizona
21.5
0.0
21.5
Arkansas
2.6
56.8
59.3
California
370.7
0.0
370.7
Colorado
0.0
76.6
76.6
Connecticut
0.0
0.0
0.0
Congressional Research Service
21
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
State
Obligated but Unspent
Unobligated and Unspent
Total Unspent
Delaware
0.0
4.6
4.6
District of Columbia
3.3
35.4
38.8
Florida
26.3
6.9
33.2
Georgia
59.2
33.4
92.6
Hawaii
19.4
48.4
67.8
Idaho
12.3
0.0
12.3
Illinois
0.0
0.0
0.0
Indiana
53.4
0.0
53.4
Iowa
6.4
22.3
28.7
Kansas
0.0
44.7
44.7
Kentucky
0.0
48.8
48.8
Louisiana
23.6
0.0
23.6
0.0
-0.3
-0.3
11.6
79.1
90.8
Massachusetts
3.0
0.0
3.0
Michigan
0.0
244.7
244.7
Minnesota
0.0
103.4
103.4
Mississippi
9.9
18.6
28.5
Missouri
0.0
0.0
0.0
Montana
0.4
44.8
45.1
Nebraska
0.1
43.0
43.1
Nevada
0.0
11.3
11.3
New Hampshire
0.0
17.5
17.5
New Jersey
103.1
12.8
115.9
New Mexico
43.8
0.0
43.8
New York
317.4
311.2
628.7
North Carolina
196.2
3.5
199.7
Maine
Maryland
Congressional Research Service
23
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
State
Obligated but Unspent
Unobligated and Unspent
Total Unspent
0.0
16.3
16.3
Ohio
48.2
0.0
48.2
Oklahoma
41.7
0.0
41.7
0.0
0.0
0.0
Pennsylvania
61.0
119.9
180.9
Puerto Rico
2.1
20.8
22.9
Rhode Island
0.0
0.0
0.0
South Carolina
0.0
40.0
40.0
South Dakota
0.0
19.9
19.9
Tennessee
0.0
147.6
147.6
Maine
Maryland
North Dakota
Oregon
Congressional Research Service
22
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
State
Obligated but Unspent
Unobligated and Unspent
128.8
0.0
128.8
Utah
0.0
91.9
91.9
Vermont
0.0
0.0
0.0
Virginia
0.8
19.9
20.7
Washington
0.0
131.4
131.4
West Virginia
0.0
63.0
63.0
Wisconsin
11.4
0.0
11.4
Wyoming
2.7
41.8
44.5
1,585.6
2,065.1
3,650.7
North Dakota
Oregon
Texas
TotalsTexas
Totals
Total Unspent
Source: Congressional Research Service (CRS), based on data from the U.S. Department of Health and Human
Services (HHS).
Table B-4. Number of Families, Recipients, Children, and Adults Receiving
TANF Cash Welfare, December 2010
Families
Total
Recipients
Children
Adults
24,212
59,569
43,819
15,750
Alaska
3,572
9,767
6,648
3,119
Arizona
19,366
44,103
31,709
12,394
Arkansas
8,632
19,724
13,997
5,727
California
601,226
1,480,156
1,144,238
335,918
Colorado
8,064
21,364
16,319
5,045
16,750
33,360
23,446
9,914
Delaware
5,754
16,455
10,208
6,247
District of Columbia
6,122
14,437
11,417
3,020
State
Alabama
Connecticut
Congressional Research Service
24
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Families
Total
Recipients
Children
Adults
Florida
58,144
107,027
85,930
21,097
Georgia
20,686
39,122
35,006
4,116
Guam
1,260
2,994
2,233
761
Hawaii
10,136
30,147
20,256
9,891
Idaho
1,858
2,881
2,640
241
Illinois
27,177
78,766
66,424
12,342
Indiana
31,461
75,880
56,890
18,990
Iowa
21,100
54,462
36,968
17,494
Kansas
15,647
40,454
27,134
13,320
Kentucky
31,336
64,352
50,280
14,072
Louisiana
11,117
25,427
21,326
4,101
Maine
15,448
40,045
26,053
13,992
State
Alabama
Connecticut
Congressional Research Service
23
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Families
Total
Recipients
Children
Adults
Maryland
26,160
63,973
46,116
17,857
Massachusetts
51,179
100,509
67,009
33,500
Michigan
67,596
177,079
126,627
50,452
Minnesota
24,726
54,213
40,691
13,522
Mississippi
12,078
25,555
18,646
6,909
Missouri
39,606
95,727
65,407
30,320
Montana
3,694
9,354
6,547
2,807
Nebraska
8,445
20,869
16,309
4,560
11,066
28,559
21,058
7,501
6,168
13,300
9,458
3,842
New Jersey
35,330
84,509
58,934
25,575
New Mexico
21,664
57,085
40,610
16,475
158,133
396,204
286,712
109,492
North Carolina
23,639
45,323
38,176
7,147
North Dakota
1,931
4,944
3,731
1,213
103,513
238,143
171,630
66,513
9,471
21,614
17,415
4,199
Oregon
32,884
86,785
58,865
27,920
Pennsylvania
59,034
144,067
106,410
37,657
Puerto Rico
14,615
39,764
26,495
13,269
Rhode Island
6,778
15,950
11,003
4,947
South Carolina
19,038
45,275
33,776
11,499
South Dakota
3,290
6,876
5,756
1,120
Tennessee
63,149
162,182
117,038
45,144
63,149
162,182
117,038
45,144
State
Nevada
New Hampshire
New York
Ohio
Oklahoma
Tennessee
Congressional Research Service
25
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Families
Total
Recipients
Children
Adults
Texas
52,972
121,938
103,832
18,106
Utah
5,716
14,635
10,365
4,270
Vermont
3,335
7,767
5,357
2,410
511
1,489
1,070
419
Virginia
37,105
82,885
58,655
24,230
Washington
69,805
169,887
118,085
51,802
West Virginia
10,676
24,422
17,392
7,030
Wisconsin
25,270
60,611
46,079
14,532
Wyoming
312
624
521
103
1,947,957
4,682,609
3,488,716
1,193,893
State
Nevada
New Hampshire
New York
Ohio
Oklahoma
Virgin Islands
Wyoming
Totals
Source: Prepared by the Congressional Research Service (CRS) based on data from the U.S. Department of
Health and Human Services (HHS).
Congressional Research Service
2624
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Table B-5. Number of Families Receiving Cash Assistance,
December 1994, 2008, 2010
Percentage Change
Dec 1994
to Dec
2010
Dec 2007
to Dec
2010
Dec 2009
to Dec.
2010
Dec-94
Dec-07
Dec-09
Dec-10
Alabama
47,903
18,584
20,902
24,212
-49.5
30.3
15.8
Alaska
12,370
2,989
3,082
3,572
-71.1
19.5
15.9
Arizona
72,158
37,122
38,513
19,366
-73.2
-47.8
-49.7
Arkansas
25,047
8,741
9,062
8,632
-65.5
-1.2
-4.7
California
923,358
477,465
570,889
601,226
-34.9
25.9
5.3
Colorado
40,244
9,094
11,445
8,064
-80.0
-11.3
-29.5
Connecticut
60,965
19,424
17,409
16,750
-72.5
-13.8
-3.8
Delaware
11,227
3,997
4,915
5,754
-48.7
44.0
17.1
District of
Columbia
27,420
5,237
9,626
6,122
-77.7
16.9
-36.4
Florida
238,564
48,608
61,097
58,144
-75.6
19.6
-4.8
Georgia
141,154
22,740
21,444
20,686
-85.3
-9.0
-3.5
Guam
2,088
NR
2,522
1,260
-39.7
Hawaii
21,489
6,621
9,870
10,136
-52.8
53.1
2.7
Idaho
8,953
1,527
1,706
1,858
-79.2
21.7
8.9
Illinois
241,091
20,562
21,828
27,177
-88.7
32.2
24.5
Indiana
69,933
31,103
37,298
31,461
-55.0
1.2
-15.6
Iowa
38,022
19,762
21,427
21,100
-44.5
6.8
-1.5
Kansas
28,838
12,853
14,606
15,647
-45.7
21.7
7.1
Kentucky
76,824
29,323
30,243
31,336
-59.2
6.9
3.6
Louisiana
82,792
11,106
11,269
11,117
-86.6
0.1
-1.3
Maine
22,025
12,235
14,384
15,448
-29.9
26.3
7.4
Maryland
80,890
20,466
25,594
26,160
-67.7
27.8
2.2
Massachusetts
105,769
52,473
60,776
51,179
-51.6
-2.5
-15.8
Michigan
209,695
69,327
70,138
67,596
-67.8
-2.5
-3.6
Minnesota
61,343
26,387
22,887
24,726
-59.7
-6.3
8.0
Mississippi
53,221
11,631
12,624
12,078
-77.3
3.8
-4.3
Missouri
91,802
39,054
39,635
39,606
-56.9
1.4
-0.1
Montana
11,660
3,192
3,869
3,694
-68.3
15.7
-4.5
Nebraska
15,427
7,515
8,950
8,445
-45.3
12.4
-5.6
Nevada
15,559
7,410
10,070
11,066
-28.9
49.3
9.9
New
Hampshire
11,078
4,497
6,161
6,168
-44.3
37.2
0.1
Congressional Research Service
NR
-50.0
2725
.
The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Percentage Change
Dec 1994
to Dec
2010
Dec 2007
to Dec
2010
Dec 2009
to Dec.
2010
Dec-94
Dec-07
Dec-09
Dec-10
New Jersey
113,293
34,175
33,686
35,330
-68.8
3.4
4.9
New Mexico
34,854
12,195
19,747
21,664
-37.8
77.6
9.7
New York
463,692
155,798
156,735
158,133
-65.9
1.5
0.9
North
Carolina
128,848
24,544
25,676
23,639
-81.7
-3.7
-7.9
5,309
2,072
2,136
1,931
-63.6
-6.8
-9.6
236,298
80,629
103,690
103,513
-56.2
28.4
-0.2
Oklahoma
45,893
8,951
9,858
9,471
-79.4
5.8
-3.9
Oregon
39,967
19,299
29,373
32,884
-17.7
70.4
12.0
Pennsylvania
208,949
55,389
51,991
59,034
-71.7
6.6
13.5
Puerto Rico
56,132
12,356
13,577
14,615
-74.0
18.3
7.6
Rhode Island
22,599
8,349
7,785
6,778
-70.0
-18.8
-12.9
South
Carolina
50,251
14,428
18,847
19,038
-62.1
32.0
1.0
6,521
2,904
3,269
3,290
-49.5
13.3
0.6
Tennessee
105,616
55,161
62,760
63,149
-40.2
14.5
0.6
Texas
281,011
57,002
51,423
52,972
-81.1
-7.1
3.0
Utah
17,240
5,140
7,071
5,716
-66.8
11.2
-19.2
Vermont
9,707
4,242
3,268
3,335
-65.6
-21.4
2.1
Virgin Islands
1,264
399
530
511
-59.6
28.1
-3.6
74,203
31,041
37,236
37,105
-50.0
19.5
-0.4
102,603
52,013
68,819
69,805
-32.0
34.2
1.4
West Virginia
39,546
8,725
9,663
10,676
-73.0
22.4
10.5
Wisconsin
73,714
17,788
20,157
25,270
-65.7
42.1
25.4
Wyoming
5,400
265
327
312
-94.2
17.7
-4.6
4,971,819
1,703,910
1,931,865
1,947,957
-60.8
14.2
0.8
North
Dakota
Ohio
South Dakota
Virginia
Washington
Totals
Source: Prepared by the Congressional Research Service (CRS) with data from the U.S. Department of Health
and Human Services (HHS).
Notes: Caseload data includes those aided under TANF and under separate state programs (SSPs) funded by
TANF maintenance-of-effort (MOE) dollars. NR denotes that caseload data were not reported for the month.
Total percentage change for Dec. 2007 to Dec. 2009 exclude Guam, which did not report data for Dec. 2007.
Congressional Research Service
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The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Table B-6. Families Receiving Cash Assistance, By Number of Parents Receiving
Assistance on Their Own Behalf: December 2010
As a Percent of All Families Receiving
Assistance
No
Parent
Families
Single
Parent
Families
TwoParent
Families
No
Parent
Families
Single
Parent
Families
TwoParent
Families
Totals
8,690
15,371
151
24,212
35.9
63.5
0.6
100.0
988
2,115
469
3,572
27.7
59.2
13.1
100.0
Arizona
7,912
10,784
670
19,366
40.9
55.7
3.5
100.0
Arkansas
3,109
5,305
218
8,632
36.0
61.5
2.5
100.0
California
259,243
281,339
60,644
601,226
43.1
46.8
10.1
100.0
Colorado
3,427
4,195
442
8,064
42.5
52.0
5.5
100.0
Connecticut
6,962
9,788
0
16,750
41.6
58.4
0.0
100.0
Delaware
3,032
2,686
36
5,754
52.7
46.7
0.6
100.0
District of
Columbia
2,261
3,861
0
6,122
36.9
63.1
0.0
100.0
Florida
39,954
16,880
1,310
58,144
68.7
29.0
2.3
100.0
Georgia
16,676
4,010
0
20,686
80.6
19.4
0.0
100.0
Guam
683
418
159
1,260
54.2
33.2
12.6
100.0
Hawaii
1,897
6,007
2,232
10,136
18.7
59.3
22.0
100.0
Idaho
1,674
184
0
1,858
90.1
9.9
0.0
100.0
Illinois
14,869
12,308
0
27,177
54.7
45.3
0.0
100.0
Indiana
9,683
19,565
2,213
31,461
30.8
62.2
7.0
100.0
Iowa
5,382
14,650
1,068
21,100
25.5
69.4
5.1
100.0
Kansas
4,194
9,990
1,463
15,647
26.8
63.8
9.4
100.0
Kentucky
18,120
12,470
746
31,336
57.8
39.8
2.4
100.0
Louisiana
7,099
4,018
0
11,117
63.9
36.1
0.0
100.0
Maine
2,477
10,967
2,004
15,448
16.0
71.0
13.0
100.0
Maryland
8,223
17,937
0
26,160
31.4
68.6
0.0
100.0
Massachusetts
17,743
30,995
2,441
51,179
34.7
60.6
4.8
100.0
Michigan
17,214
50,382
0
67,596
25.5
74.5
0.0
100.0
Minnesota
10,937
13,789
0
24,726
44.2
55.8
0.0
100.0
Mississippi
5,227
6,851
0
12,078
43.3
56.7
0.0
100.0
Missouri
8,883
30,723
0
39,606
22.4
77.6
0.0
100.0
Montana
1,394
1,910
390
3,694
37.7
51.7
10.6
100.0
Nebraska
3,786
4,659
0
8,445
44.8
55.2
0.0
100.0
Nevada
4,791
5,117
1,158
11,066
43.3
46.2
10.5
100.0
New
Hampshire
2,502
3,520
146
6,168
40.6
57.1
2.4
100.0
State
Alabama
Alaska
Congressional Research Service
Totals
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The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
As a Percent of All Families Receiving
Assistance
No
Parent
Families
Single
Parent
Families
TwoParent
Families
No
Parent
Families
Single
Parent
Families
TwoParent
Families
Totals
New Jersey
9,526
25,804
0
35,330
27.0
73.0
0.0
100.0
New Mexico
7,265
12,791
1,608
21,664
33.5
59.0
7.4
100.0
New York
60,013
95,469
2,651
158,133
38.0
60.4
1.7
100.0
North
Carolina
16,771
6,590
278
23,639
70.9
27.9
1.2
100.0
721
1,210
0
1,931
37.3
62.7
0.0
100.0
46,405
48,854
8,254
103,513
44.8
47.2
8.0
100.0
5,272
4,199
0
9,471
55.7
44.3
0.0
100.0
Oregon
10,130
19,762
2,992
32,884
30.8
60.1
9.1
100.0
Pennsylvania
21,952
35,986
1,096
59,034
37.2
61.0
1.9
100.0
Puerto Rico
1,830
12,785
0
14,615
12.5
87.5
0.0
100.0
Rhode Island
2,255
4,005
518
6,778
33.3
59.1
7.6
100.0
South
Carolina
7,278
11,760
0
19,038
38.2
61.8
0.0
100.0
South Dakota
2,170
1,120
0
3,290
66.0
34.0
0.0
100.0
Tennessee
12,636
48,787
1,726
63,149
20.0
77.3
2.7
100.0
Texas
35,210
17,762
0
52,972
66.5
33.5
0.0
100.0
Utah
2,667
3,049
0
5,716
46.7
53.3
0.0
100.0
Vermont
1,314
1,636
385
3,335
39.4
49.1
11.5
100.0
22
489
0
511
4.3
95.7
0.0
100.0
Virginia
11,828
25,277
0
37,105
31.9
68.1
0.0
100.0
Washington
25,406
37,297
7,102
69,805
36.4
53.4
10.2
100.0
4,847
5,829
0
10,676
45.4
54.6
0.0
100.0
Wisconsin
12,163
12,500
607
25,270
48.1
49.5
2.4
100.0
Wyoming
215
90
7
312
68.9
28.8
2.2
100.0
796,928
1,045,845
105,184
1,947,957
40.9
53.7
5.4
100.0
State
North
Dakota
Ohio
Oklahoma
Virgin Islands
West Virginia
Wisconsin
Wyoming
Totals
Totals
Source: Prepared by the Congressional Research Service (CRS) with data from the U.S. Department of Health
and Human Services (HHS).
Notes: Caseload data includes those aided under TANF and under separate state programs (SSPs) funded by
TANF maintenance-of-effort (MOE) dollars.
Congressional Research Service
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The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
Table B-7. TANF Work Participation Rates: FY2009
All Family Standard
State
Participation
Rate
Met
Standard?
Two-Parent Standard
Participation
Rate
Met
Standard?
United States
29.4
Alabama
32.4
YES
24.7
YES
Alaska
37.2
YES
40.5
NO
Arizona
27.1
YES
62.6
YES
Arkansas
37.1
YES
21.7
YES
California
26.8
NO
28.6
YES
Colorado
37.8
YES
33.3
YES
Connecticut
34.4
YES
NA
NA
Delaware
37.5
YES
NA
NA
Dist. Of Col.
23.5
NO
NA
NA
Florida
46.1
YES
54.4
YES
Georgia
57.1
YES
NA
NA
Guam
0.0
NO
0.0
NO
Hawaii
40.3
YES
NA
NA
Idaho
52.0
YES
NA
NA
Illinois
49.3
YES
NA
NA
Indiana
17.5
YES
17.8
YES
Iowa
35.4
YES
27.0
YES
Kansas
23.9
YES
25.6
YES
Kentucky
37.3
YES
35.1
NO
Louisiana
34.4
YES
NA
NA
Maine
16.8
NO
16.6
NO
Maryland
44.0
YES
NA
NA
Massachusetts
47.5
YES
92.8
YES
Michigan
27.9
YES
NA
NA
Minnesota
29.8
YES
NA
NA
Mississippi
67.5
YES
NA
NA
Missouri
13.2
NO
NA
NA
Montana
44.2
YES
58.7
YES
Nebraska
50.3
YES
NA
NA
Nevada
39.4
YES
46.8
NO
New Hampshire
46.5
YES
NA
NA
Congressional Research Service
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The Temporary Assistance for Needy Families (TANF) Block Grant: FAQ
All Family Standard
Two-Parent Standard
Participation
Rate
Met
Standard?
New Jersey
20.1
YES
NA
NA
New Mexico
43.1
YES
63.0
YES
New York
33.4
YES
NA
NA
North Carolina
32.3
YES
46.6
YES
North Dakota
61.0
YES
NA
NA
Ohio
23.3
NO
23.1
YES
Oklahoma
23.0
YES
NA
NA
9.5
NO
5.9
NO
Pennsylvania
45.8
YES
84.2
YES
Puerto Rico
8.7
NO
NA
NA
Rhode Island
13.8
YES
13.6
NO
South Carolina
45.1
YES
NA
NA
South Dakota
59.4
YES
NA
NA
Tennessee
25.5
YES
0.0
YES
Texas
37.0
YES
NA
NA
Utah
32.6
YES
NA
NA
Vermont
29.0
YES
24.0
YES
7.1
YES
NA
NA
Virginia
44.3
YES
NA
NA
Washington
23.0
YES
18.6
YES
West Virginia
19.6
YES
NA
NA
Wisconsin
39.9
YES
33.0
YES
Wyoming
61.3
YES
75.7
YES
State
Oregon
Virgin Islands
Participation
Rate
Met
Standard?
Source: Prepared by the Congressional Research Service (CRS) on the basis of data from the U.S. Department
of Health and Human Services (HHS).
Note: NA denotes not applicable. State did not service two-parent families in its TANF or MOE-funded
programs. NR denotes not reported.
Author Contact Information
Gene Falk
Specialist in Social Policy
gfalk@crs.loc.gov, 7-7344
Congressional Research Service
3230