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preserved food stamps (but capped spending, reduced benefits, added a work rule for able-
bodied adults without dependents, and allowed more state control and state-option block
grants), added to child support enforcement efforts, and barred most aid to the majority
of aliens.
The Senate. In mid-1995, the welfare reform debate entered a new phase. During
June, the three Senate committees with welfare reform roles reported their contributions
to reform legislation, and the President endorsed a major Senate Democratic leadership
alternative (the Work First Act). However, with serious disputes over the reported
measures (e.g., distribution of block grant funds), floor consideration was delayed while
the Republican Leader developed a revised package and further discussions were held with
Governors and other interested parties.
By a large majority, the Senate approved its version of H.R. 4 (the Work Opportunity
Act) on September 19, 1995. In doing so, it accepted significant bipartisan and other
amendments to the Leader’s bill, but voted down the Democratic alternative (which time
limited adults’ benefits, mandated more work/training, and added money for work
programs, but did not block grant federal support). The Senate adopted much of the basic
House structure: TANF block grants ending individual entitlements, 2- and 5-year time
limits, increased work program participation, major revisions to food stamps and child
support enforcement, and eligibility bars for most noncitizens. But it also differed. It
changed the funding structure for the grants (e.g., by adding a state “maintenance of
effort” spending requirement and money for high-unemployment contingencies and states
with low pre-TANF welfare spending). It also set aside block grant funds for child care,
allowed aid for unwed minor mothers living under adult supervision and recipients’
additional children, and added “charitable choice” provisions to permit increased
participation by faith-based organizations in the provision of welfare-related services.
House-Senate Agreement and Presidential Vetoes. While negotiations on
H.R. 4 differences continued, a preliminary House-Senate agreement was added to the
1995 Balanced Budget Act (H.R. 2491, a budget reconciliation measure) in late November
1995. Excepting some small but controversial items (e.g., limits on aid for additional
children), it contained the gist of the final accord on H.R. 4. President Clinton vetoed it
on December 6, 1995 – objecting to Medicaid reform provisions in the larger measure.
Then, on December 21-22, 1995, Congress approved the final House-Senate H.R. 4
agreement (the Personal Responsibility and Work Opportunity Act). The President also
vetoed this free-standing H.R. 4 accord on January 9, 1996, citing insufficient child care
and work support provisions. Reports at the time also warned of an increase in poor
children from the bill, 1 million by some accounts.
The vetoed H.R. 4 included TANF block grants based on past federal matching
spending (with a compromise state maintenance-of-effort requirement). State adjustments
or special funding were provided for population growth, low pre-TANF state welfare
spending and high-unemployment contingencies (Senate), grants to reduce out-of-wedlock
births, a rainy day loan fund, and performance bonuses. Support for child care (viewed by
some as integral to reform) was increased above levels in the House and Senate bills with
mandatory child care block grant money. The accord incorporated time limits (with
compromise “hardship” exemptions), a mandate to increase work program participation,
permission to aid unwed minor mothers (subject to adult supervision and other
requirements), and a state option to limit benefits for additional children. Finally, the