President Clinton

President Clinton's budget proposal for new funding for child welfare services targeted for family support and preservation services : hearing before the Subcommittee on Human Resources of the Committee on Ways and Means, House of Representatives, One Hundred Third Congress, first session, April 21, 1993

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PRESIDENT CLINTON'S BUDGET PROPOSAL FOR NEW FUNDING CHILD WELFARE SERVICES TARGETED FOR FAMILYFOR SUP- PORT AND PRESERVATION SERVICES Y 4. W 36: 103-10 PresUent Clinton's Dodget Proposil xxi^ARING BEFORE THE SUBCOMMITTEE ON HUMAN RESOURCES OF THE MEANSCOMMITTEE ON WAYS AND REPRESENTATIVESHOUSE OF HUNDRED THIRD CONGRESSONE FIRST SESSION APRIL 21, 1993 103-10Serial Committee on Ways and MeansPrinted for the use of the 'r^r'a-^-^-'A!-^, . OCT 1 3 W23 U.S. GOVERNMENT PRINTING OFFICE 70-097 WASHINGTON : 1993 For sale by the U.S. Govemmeni Printing OH ice Superintendeni of Documents, Congressional Sales Office. Washington. DC 20402 ISBN 0-16-041256-0 CLINTON'S NEWPRESIDENT BUDGET PROPOSAL FOR FUNDING FOR CHILD WELFARE SERVICES TARGETED FOR FAMILY SUP- PORT AND PRESERVATION SERVICES Y 4. W 36; 103-10 President Clinton's Budget Proposal iii^ARING BEFORE THE SUBCOMMITTEE ON HUMAN RESOURCES OF THE COMMITTEE ON WAYS AND MEANS HOUSE OP REPRESENTATIVES CONGRESSONE HUNDRED THIRD SESSIONFIRST APRIL 199321, Serial 103-10 Printed for the use of the Committee on Ways and Means OCT 13 I'^'B U.S. GOVERNMENT PRINTING OFFICE 70-097 WASHINGTON : 1993 For sale by the U.S. Government Printing Office Superintendent of Documents. Congressional Sales Oflice. Wasiiingion. DC 20402 ISBN 0-16-041256-0 COMMITTEE ON WAYS AND MEANS DAN ROSTENKOWSKI, Illinois, Chairman SAM M. GIBBONS, Florida BILL ARCHER, Texas J.J. PICKLE, Texas PHILIP M. CRANE, Illinois CHARLES B.

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PRESIDENT CLINTON'S BUDGET PROPOSAL FOR NEW FUNDING
CHILD WELFARE SERVICES TARGETED FOR FAMILYFOR SUP-
PORT AND PRESERVATION SERVICES
Y 4. W 36: 103-10
PresUent Clinton's Dodget Proposil
xxi^ARING
BEFORE THE
SUBCOMMITTEE ON HUMAN RESOURCES
OF THE
MEANSCOMMITTEE ON WAYS AND
REPRESENTATIVESHOUSE OF
HUNDRED THIRD CONGRESSONE
FIRST SESSION
APRIL 21, 1993
103-10Serial
Committee on Ways and MeansPrinted for the use of the
'r^r'a-^-^-'A!-^, .
OCT 1 3 W23
U.S. GOVERNMENT PRINTING OFFICE
70-097 WASHINGTON : 1993
For sale by the U.S. Govemmeni Printing OH ice
Superintendeni of Documents, Congressional Sales Office. Washington. DC 20402
ISBN 0-16-041256-0CLINTON'S NEWPRESIDENT BUDGET PROPOSAL FOR FUNDING
FOR CHILD WELFARE SERVICES TARGETED FOR FAMILY SUP-
PORT AND PRESERVATION SERVICES
Y 4. W 36; 103-10
President Clinton's Budget Proposal
iii^ARING
BEFORE THE
SUBCOMMITTEE ON HUMAN RESOURCES
OF THE
COMMITTEE ON WAYS AND MEANS
HOUSE OP REPRESENTATIVES
CONGRESSONE HUNDRED THIRD
SESSIONFIRST
APRIL 199321,
Serial 103-10
Printed for the use of the Committee on Ways and Means
OCT 13 I'^'B
U.S. GOVERNMENT PRINTING OFFICE
70-097 WASHINGTON
: 1993
For sale by the U.S. Government Printing Office
Superintendent of Documents. Congressional Sales Oflice. Wasiiingion. DC 20402
ISBN 0-16-041256-0COMMITTEE ON WAYS AND MEANS
DAN ROSTENKOWSKI, Illinois, Chairman
SAM M. GIBBONS, Florida BILL ARCHER, Texas
J.J. PICKLE, Texas PHILIP M. CRANE, Illinois
CHARLES B. RANGEL, New York BILL THOMAS, CaUfomia
FORTNEY PETE STARK, California E. CLAY SHAW, Jr., Florida
ANDY JACOBS, Jr., Indiana DON SUNDQUIST, Tennessee
HAROLD E. FORD, Tennessee NANCY L. JOHNSON, Connecticut
ROBERT T. MATSUI, California JIM BUNNING, Kentucky
BARBARA B. KENNELLY, Connecticut FRED GRANDY, Iowa
WILLIAM J. COYNE, Pennsylvania AMO HOUGHTON, New York
MICHAEL A. ANDREWS, Texas WALLY HERGER, CaUfomia
SANDER M. LEVIN, Michigan JIM McCRERY, Louisiana
BENJAMIN L. CARDIN, Maryland MEL HANCOCK, Missouri
JIM McDERMOTT, Washington RICK SANTORUM, Pennsylvania
GERALD D. KLECZKA, Wisconsin DAVE CAMP, Michigan
JOHN LEWIS, Georgia
L.F. PAYNE, Virginia
RICHARD E. NEAL, Massachusetts
PETER HOAGLAND, Nebraska
MICHAEL R. McNULTY, New York
MIKE KOPETSKI, Oregon
WILLIAM J. JEFFERSON, Louisiana
BILL K. BREWSTER, Oklahoma
MEL REYNOLDS, Illinois
Janice Mays, Chief Counsel and Staff Director
Charles M. Brain, Assistant Staff
Phillip D. Moseley, Minority Chief of Staff
Subcommittee on Human Resources
HAROLD E. FORD, Tennessee, Chairman
ROBERT T. MATSUI, California RICK SANTORUM, Pennsylvania
JIM McDERMOTT, Washington E. CLAY SHAW, Jr., Florida
SANDER M. LEVIN, Michigan FRED GRANDY, Iowa
MIKE KOPETSKI, Oregon DAVE CAMP, Michigan
MEL REYNOLDS, Illinois
BENJAMIN L. CARDIN, Maryland
(II)CONTENTS
Page
Press release ofTuesday, April 13, 1993, announcing the hearing 2
WITNESSES
U.S. Department of Health and Human Services, Wendell E. Primus, Deputy
30Assistant Secretary for Human Services Policy
Gray 194American Bar Association, Hon. Ernestine S.
Humane Adele Douglass 166
Public Welfare Association:
Christina M. Tchen 45
Peter Digre 101
Barnard, Kathryn E., Zero to Three/National Center for Clinical Infant Pro-
grams 148
215Bourdette, Mary, Child Welfare League ofAmerica, Inc
172Caplin, Michael A., Childhelp USA
Supreme Court, on be-Cavanagh, Hon. Michael F., Chief Justice, Michigan
87half of Conference of ChiefJustices
Research, Deborah Daro 153Center on Child Abuse Prevention
215Child Welfare League ofAmerica, Inc., Mary Bourdette
Caplin 172Childhelp USA, Michael A.
Weill 56Childrens Defense Fund, James D.
Hon. Michael F. Cavanagh, ChiefJustice 87Conference of Chief Justices,
on Child Abuse Prevention Research, and NationalDaro, Deborah, Center
Committee for Prevention of Child Abuse 153
Department of Children's Services, on be-Digre, Peter, Los Angeles County
ofAmerican Public Welfare Association 101half
Foster Parents Association 182Dondiego, Sue, New Jersey
American Humane 166Douglass, Adele,
Gray, Hon. Ernestine S., Judge, Juvenile Court, New Orleans, LA, on behalf
ofthe American Bar Association 194
Harris, Dorothy V., National Association of Social Workers 206
Illinois Department of Children and Family Services, Christina M. Tchen 45
Kelly, Susan A., Michigan Department of Social Services, Division of Family
Preservation Initiatives 133
Los Angeles County Department of Children's Services, Peter Digre 101
Maloney, Hon. Carolyn B., a Representative in Congress from the State
ofNew York 24
PreservationMichigan Department of Social Services, Division of Family
133Initiatives, Susan A. Kelly
State of Califor-Miller, Hon. George, a Representative in Congress from the
9nia
National Association of Social Workers, Dorothy V. Harris 206 Committee for Prevention of Child Abuse, Deborah Daro 153 Conference of State Legislatures, Christina M. Tchen 45
National Governors' Association, Christina M. Tchen 45
New Jersey Foster Parents Association, Sue Dondiego 182 York City Human Resources Administration, Barbara J. Sabol 123
Parents as Teachers National Center, Inc., Joy M. Rouse 143
Sabol, Barbara J., New York City Human Resources Administration 123
Tchen, Christina M., Illinois Department of Children and Family Services,
on behalf of American Public Welfare Association; National Conference
of State Legislatures; and National Governors' Association 45
(III)Page
Weill, James D., Children's Defense Fund 56
Wheat, Hon. Alan, a Representative in Congress from the State of Missouri ... 139
Zero to Three/National Center for Clinical Infant Programs, Kathryn E. Bar-
nard 148
SUBMISSIONS FOR THE RECORD
Foster Reviewers,National Association of Care Corinne F. Driver, letter
attachmentsand 221 Conference of State Legislatures, Hon. Bill Purcell, Chairman, Select
Committee on Children and Youth, State ofTennessee, letter 226
National Council of Community Mental Health Centers, Mary Aleese
Schreiber, statement 228 Organization of State Associations for Children, statement 230
National Welfare Rights & Reform Union and Coalition of California Welfare
Rights Organizations, Inc., statement 233
Parent Action, Baltimore, MD, Rosalie Streett, statement 236
Rockefeller, Hon. Jay, a U.S. Senator from the State of West Virginia, state-
ment 238PRESroENT CLINTON'S BUDGET PROPOSAL
FOR NEW FUNDING FOR CHILD WELFARE
SERVICES TARGETED FOR FAMILY SUP-
PORT AND PRESERVATION SERVICES
WEDNESDAY, APRIL 199321,
House of Representatives,
Committee on Ways and Means,
Subcommittee on Human Resources,
Washington, DC.
The subcommittee met, pursuant to notice, at 10:07 a.m., in room
B-318, Rayburn House Office Building, Hon. Harold E. Ford,
presiding.(chairman of the subcommittee)
[The press release announcing the hearing follows:]
(1)FOR IMMEDIATE RELEASE PRESS RELEASE #4
APRILTUESDAY, 13, 1993 SUBCOMMITTEE ON HUMAN RESOURCES
COMMITTEE ON WAYS AND MEANS
U.S. HOUSE OP REPRESENTATIVES
1102 LONGWORTH HOUSE OFFICE BLDG.
WASHINGTON, D.C. 20515
TELEPHONE: (202) 225-1721
THE HONORABLE HAROLD E. FORD (D., TENN. , CHAIRMAN,)
SUBCOMMITTEE ON HUMAN RESOURCES, COMMITTEE ON WAYS AND MEANS,
U.S. HOUSE OF REPRESENTATIVES, ANNOUNCES A HEARING
ON PRESIDENT CLINTON'S BUDGET PROPOSAL FOR
NEW FUNDING FOR CHILD WELFARE SERVICES
TARGETED FOR FAMILY SUPPORT AND PRESERVATION SERVICES
The Honorable Harold E. Ford (D., Tenn.), Chairman,
Subcommittee on Human Resources, Committee on Ways and Means,
U.S. House of Representatives, today announced that the will hold a hearing on President Clinton's budget
proposal to provide new funding for child welfare services
targeted for family support and preservation services. The
hearing will be held on Wednesday, April 21, 1993, beginning at
10:00 a.m. in room B-318 of the Rayburn House Office Building.
Testimony will be received from a representative of the
Administration and from public witnesses.
In announcing the hearing, Mr. Ford said: "The President's
budget recognizes the crisis in our Nation's social support
systems for children and their families. Children need permanent
and loving families, homes in which they can grow and thrive.
Early intervention to support and strengthen at-risk families,
and prevent child neglect and abuse, is an essential element of
reform. So, too, are services that will help children avoid a
long journey through temporary foster care placements, by
enabling them to stay with their families, or, when that's not
possible, providing them other permanent homes."
President Clinton has proposed new entitlement spending for
family support and preservation services of billion over$1.7
five years, to be used for: family support and parenting(1)
programs, and innovative child welfare services(2) such as
family preservation, reunification, respite care and other
follow-up services.
At the hearing. Members of the Subcommittee are interested
in hearing testimony on the status of State and local child
welfare systems, and on the President's budget proposal to
provide new entitlement funding for family support and
preservation services.
In addition. Members are interested in hearing testimony on
section 1401 of the conference agreement on H.R. 11, a provision
responding to the March 1992 Supreme Court decision in Suter v.
Artist M. As noted in the conference agreement, the intent of
the provision is "...to assure that individuals who have been
injured by a State's failure to comply with the Federal mandates
of the State plan titles of the Social Security Act are able to
seek redress in the federal courts to the extent they were able
"to prior to the decision in Suter v. Artist M
DETAILS FOR SUBMISSION OF REQUESTS TO BE HEARD :
Individuals presenting oraland organizations interested in
testimony before requests bythe Subcommittee must submit their
telephone to Harriett Lawler, Diane Kirkland, or Karen Ponzurick
[(202) 225-1721] no later than noon, Monday, April 19, 1993, to
followedbe by a formal written request to Janice Mays, Chief
Counsel and Staff Director, Committee on Ways and Means, U.S.
House of Representatives, 1102 Longworth House Office Building,
Washington, D.C. 20515. The Subcommittee staff will notify by
telephone those scheduled to soon as possible after theappear as
filing deadline. Any questions scheduled appearanceconcerning a
should be directed 225-1025].to the Subcommittee staff [(202)
(MORE)that persons and organizationsIt is urged having a common
make every effort to designate one spokespersonposition to
represent them in order for the Subcommittee to hear as many
points of view as possible. Time for oral presentations will be
strictly limited with the understanding that a more detailed
statement may be included in the printed record of the hearing.
(Sea formatting requirements below.) This process will afford
to question witnesses.more time for Members In addition,
may be grouped as panelists with strict timewitnesses
limitations for each panelist.
In order to assure the most productive use of the limited
amount of time available to question witnesses, all witnesses
scheduled to appear are required to submit 200 copies of their
prepared statements to the Subcommittee office, B-317 Rayburn
advanceHouse Office Building, at least 24 hours in of their
comply with this requirementscheduled appearance. Failure to
witness being denied the opportunity to testifymay result in the
person .in
WRITTEN STATEMENTS IN LIEO OF PERSONAL APPEARAMCE :
Any persons or organizations wishing to submit a written
statement for the printed record of the hearing should submit at
least six (6) copies of their statements by close of business,
Wednesday, May 5, 1993, to Janice Mays, Chief Counsel and Staff
Ways Means, U.S. House ofDirector, Committee on and
Representatives, 1102 Longworth House Office Building,
Washington, D.C. 20515. If those filing written statements wish
to have their statements distributed to the press and interested
public, they may deliver 100 additional copies for this purpose
to the Subcommittee office, room B-317 Rayburn House Office
Building, on or before the day of the hearing.
FORMATTING REQDIREMENTS !
Each statement presented for printinf to the Committee by a witness, any written statement or
writtenexhibit submitted for the printed record or any written comments in response to a request for
compliance withcomments must conform to the guidelines listed below. Any statement or exhibit not in
these will not printed, but will be maintained in the Committee files for review and use byfuidelines be
the Committee.
1. All statements and any accompanying exhibits for printinf must be typed in single space
pages.on legal-size paper and may not exceed a total of 10
Copies of whole documents submitted as exhibit material will not be accepted for printing.2.
Instead, exhibit material should be referenced and quoted or paraphrased. All exhibit
material not meeting these specifications will be maintained in the Committee files for
review and use by the Committee.
appear or, for3. Statements must contain the name and capacity in which the witness will
person submitting the statement, as wellwritten comments, the name and capacity of the
any clients or persons, or any organization for whom the witness appears or for whomas
the statement is submitted.
full address, a4. A supplemental sheet must accompany each statement listing the name,
representative may be reached andtelephone number where the witness or the designated
summary of comments and recommendations in the full statement.a topical outline or the
This ;upp!c;nentsl shcst wil! net ka inc jdsd ir< the p<:ntad record.
The above restrictions and limitations apply only to material being submitted for printing.
Statements and exhibits or supplementary material submitted solely for distribution to the Members, the
press and the public during the course of a public hearing may be submitted in other forms.Chairman Ford. The Human Resources Subcommittee will come
to order.
delightedI am very to be back as chairperson of this subcommit-
tee and to join my colleagues. I want tnankto the acting chairman
for the past months, Mr. Matsui, also3 and his predecessor, Mr.
Downey, who for over 5 years chaired this subcommittee.
And I say to the minority side of this subcommittee, I look for-
ward to working with each and every one of you, as well as the
Democratic side of this subcommittee, and all of the advocates
throughout this country who are concerned about family preserva-
tion, as well as welfare reform, the title XX social services grant,
unemployment compensation, and the many other issues that fall
within the jurisdiction of this subcommittee.
I am, again, delighted to be back. We are going to get right into
the schedule, with a few statements made by the members, because
the calendar is very long today. I know that there are many ofyou
who would like to see this subcommittee move swiftly on the legis-
lation that is pending today.
At this time, I would like to recognize the former acting chair-
man of the subcommittee, Bob Matsui. Let me personally thank
you, Mr. Matsui, for your leadership in chairing this subcommittee
and moving this subcommittee to the point where we are today. I
opportunity with onhave had an to work with you and serve you
this subcommittee for many, many years, and are true advo-you a
for children in this country and for the downtrodden. As chair-cate
man, I want to personally thank you.
[Chairman Ford's opening statement follows:]