Temporary Assistance for Needy Families (TANF) and Pregnancy Centers

INSIGHTi

Temporary Assistance for Needy Families
(TANF) and Pregnancy Centers
Updated January 19, 2024
The House has passed legislation (H.R. 6918) seeking to forestall the Department of Health and Human
Services (HHS) from implementing a proposed regulation that might limit the use of Temporary
Assistance for Needy Families (TANF) block grant funds at “pregnancy centers.” The bill defines a
pregnancy center as an entity that “supports protecting the life of the mother and the unborn child” and
offers resources and services to the mothers, fathers, and families. These centers sometimes receive funds
through TANF subgrants from the states in Alternatives to Abortion programs.
States that are found using TANF funding improperly are penalized by HHS through a reduction in their
block grant. The bill would prohibit HHS from finalizing, implementing, or enforcing any modification to
existing regulations with respect to pregnancy centers regarding what is considered a proper or improper
use of TANF funds.
TANF Use of Funds and the Proposed Regulation
The TANF block grant and associated nonfederal dollars fund a wide range of benefits, services, and
activities related to both ameliorating the effects of, or stemming the root causes of, childhood economic
and social disadvantage. It is best known for funding ongoing cash assistance for low-income families
with children (sometimes called welfare). However, the overarching purpose of TANF is to “increase state
flexibility” to achieve four statutory goals:
1. assist needy families so they can live in their own homes or the homes of their relatives;
2. end the dependence of needy parents on government benefits through work, job
preparation, and marriage;
3. reduce the incidence of out-of-wedlock pregnancies; and
4. promote the formation and maintenance of two-parent families.
States have the authority to use TANF funds in any manner “reasonably calculated” to achieve the
overarching TANF purpose and the four goals. There are some prohibitions on the use of TANF funds.
For example, the statute prohibits states from using TANF funds for medical services other than pre-
pregnancy family planning. Aside from specific prohibitions, however, states have broad flexibility in the
Congressional Research Service
https://crsreports.congress.gov
IN12302
CRS INSIGHT
Prepared for Members and
Committees of Congress

---

Congressional Research Service
2
use of TANF funds. Thus, TANF is best described as a broad-purpose block grant. (A summary of how
states have, on average, used TANF funds in FY2021 can be found here.)
Aside from ongoing cash assistance, which is subject to certain federal rules (work standards, time limits),
most of the other activities funded out of TANF are subject to minimal statutory rules and oversight. This
includes TANF-funded activities such as employment services for those not receiving assistance, child
care, programs for youth, pre-kindergarten programs, and other activities that reflect spending to achieve
TANF’s goals. The range of allowable benefits that can be funded by TANF and the lack of rules for them
was highlighted in a 2023 hearing by a House Ways and Means subcommittee.
On October 2, 2023, HHS issued a Notice of Proposed Rulemaking (NPRM) that seeks to rein in TANF
spending for activities beyond those related to ongoing assistance and employment.
Proposed Regulatory Change that Would Affect Pregnancy Centers
The HHS-proposed change to the regulatory language is not specific to pregnancy centers. Rather, for an
activity that “does not appear to HHS to be reasonably calculated” to achieve TANF’s purpose, it puts the
burden of proof on the state to show that “a reasonable person” would consider that activity to meet a
statutory TANF goal.
The reference to pregnancy centers in the NPRM is in its preamble (or discussion) of the intent of the
regulatory change. In the preamble, referring to states funding pregnancy centers based on TANF’s goal
of reducing out-of-wedlock pregnancies, HHS states that
programs that only or primarily provide pregnancy counseling to women only after they become
pregnant likely do not meet the reasonable person standard because the connection to preventing
and reducing out-of-wedlock pregnancies is tenuous or non-existent, and therefore do not
accomplish purpose three. States that provide funding for these types of programs, including through
entities sometimes known as crisis pregnancy centers or pregnancy resource centers, must be able
to show that the expenditure actually accomplishes the TANF purpose, that prior expenditures by
the state or another entity for the same or a substantially similar program or activity actually
accomplished the TANF purpose, or that there is academic or other research indicating that the
expenditure could reasonably be expected to accomplish the TANF purpose.
(U.S. Department of Health and Human Services, “Strengthening Temporary Assistance for Needy
Families (TANF) as a Safety Net and Work Program,” 88 Federal Register 67705, October 3, 2023.)
HHS also noted in the preamble that it would require evidence from the state that certain activities
unrelated to pregnancy centers are tied to TANF’s purpose. Examples of such activities are college
scholarships for adults without children, after-school mentoring and academic tutoring, and other
education and training provided for childless individuals or parents without regard to income.
Available Information on TANF and Pregnancy Centers
The information that the statute requires states to provide to HHS on TANF is not at the level of detail to
show how many states and how much funding is provided out of TANF block grants to pregnancy
centers. A CRS search of the Lexis database using terms such as TANF, Temporary Assistance for Needy
Families, pregnancy resource center, abortion alternative, and alternatives to abortion for state laws that
may have provided appropriations to these initiatives within the past fiscal year or the upcoming fiscal
year yielded information for four states: Indiana, Louisiana, Missouri, and Ohio. Not all states produce
budgets on an annual fiscal year basis. The search may not be comprehensive; it is possible that relevant
laws may not have included the above search terms. (Lexis is a subscription legal research database to
which CRS researchers have access.)

---

Congressional Research Service
3
For more information on TANF, see CRS In Focus IF10036, The Temporary Assistance for Needy
Families (TANF) Block Grant.

Author Information

Gene Falk
Sarah K. Braun
Specialist in Social Policy
Research Librarian





Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff
to congressional committees and Members of Congress. It operates solely at the behest of and under the direction of
Congress. Information in a CRS Report should not be relied upon for purposes other than public understanding of
information that has been provided by CRS to Members of Congress in connection with CRS’s institutional role.
CRS Reports, as a work of the United States Government, are not subject to copyright protection in the United
States. Any CRS Report may be reproduced and distributed in its entirety without permission from CRS. However,
as a CRS Report may include copyrighted images or material from a third party, you may need to obtain the
permission of the copyright holder if you wish to copy or otherwise use copyrighted material.

IN12302 · VERSION 3 · UPDATED

---