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NUMBERS CROSS-CHECK FROM THE HHS BOOK AND NYT ARTICLE (6/30)
I pulled out all the statements from the NYT and typed them below in regular font. Cross
checked information from the HHS book is written in italics below each NYT statement.
GENERAL
Wisconsin is essentially abolishing cash aid, substitution a giant work program.
Couldn't confirm the abolishing of cash aid state-wide from the HHS book.
Wisconsin has been approved for a Work Not Welfare Demonstration (11/93) which
combines AFDC and cashed-out food stamp benefits into one Work Not Welfare
payment.
Oregon is putting its hopes in intensified casework
Couldn't confirm.
Texas is putting its hopes in contractors.
Yes.
Illinois has put up $100 million of state money to offer child care to all low-income workers.
Couldn't confirm. '97 funding was $128 million. Change in '96-'97 funding is about
$10 million.
New Jersey has created a $3.7 million transportation fund.
Couldn't confirm. NJ allows up to $6.00 per day for transportation expenses for
TANF activity. NJ also allows $500 in auto-related expenses.
Bureaucratic errors in Milwaukee have withheld benefits from thousands of need people, even
though they complied with the work program as instructed.
Couldn't confirm.
Mississippi punishes those who break the rules by withholding food stamps as well as cash.
Yes. There are other states who also withhold benefits (Florida, Louisiana, etc.).
Michigan has invested in caseworkers to remove "barriers" to work but has been reluctant to
create community service jobs.
Yes.
Wisconsin has created thousands of workfare positions but has been slower to emphasize
casework that Michigan is employing.
Yes.
Mississippi pays private companies to place recipients in jobs.
Couldn't confirm.
Two dozen states have "diversion" programs.
I counted only 18.
Oregon and Mississippi have pioneered the effort to pay businesses to hire welfare recipients,
converting welfare and food stamps into subsidies for the employer.
Yes.
states total
Tulsa Okla. Has created an intermediary corporation to give recipients entry-level work.
Couldn't confirm.
Wisconsin will require all state's 42,000 welfare families to work 30 hrs./week to receive
benefits.
Couldn't confirm. HHS book says Wisconsin has 123, 758 recipients but it doesn't
give number of. families.
Wisconsin, Illinois and Rhode Island are pledging subsidized child care on a sliding scale to
any low-income working family that needs it.
Couldn't confirm.
Illinois has expanded its aid suddenly.
No. HHS book says '96 funding was $601 million and '97 funding is 585 million.
Illinois can now offer a child-care subsidy to any family earning less than $22,000 per year.
Couldn't confirm.
# ofstates giving child Care tran
SANCTIONS
6
1 cinorithis
14
33 states now strip noncompliant families of all case assistance. Some like Michigan and
Wisconsin, allow recipients to immediately re-enroll and cooperate. Iowa makes recipients
wait 6 mo before they can reapply.
Couldn't confirm.
Mississippi eliminates all cash and food stamps for those who don't comply.
Yes.
44% of penalties imposed in the first 4 mo in Milwaukee's program were later overturned
when officials discovered they had made errors.
Couldn't confirm.
No city has cut off as many families as Milwaukee.
Couldn't confirm.
TIME LIMITS
NGA found that at least 20 states impose shorter limits on their caseloads.
I counted 22 states. In addition, Nevada will submit to change their limit from 60
months to 24 months.
Texas has the shortest limit of 12 mo for those deemed most able to work.
Yes.
Tennessee has a limit of 18 consecutive mo.
Yes.
10 states have 2-yr limits.
No.
6 states have a time limit of 24 months.
1 state (NV) is changing theirs from 60 to 24.
6 states have a time limit of 24 months out of 60 months.
1 has a time limit of 24 months out of 84 months.
1 has a time limit of 24 months out of 48 months.
TOTAL= 15
Michigan is only state pledging to ignore limits.
Yes.
Utah's rolls have fallen by 35% over the last 4 yrs.
Yes. Utah's change in caseload has been -33% from '93-'97.
together child
has been reluctant to create community
family that needs it.
Those
who
fear
that
the
new
service jobs for those who do not find work
Perhaps no state has expanded its aid as
harm poor families have typically focused on
What happens to poor?
on their own. In Wisconsin, Governor Tom-
denly lose aid? No city has cut off as mai
my G. Thompson has created thousands of
families as Milwaukee, where the penalize
workfare positions. But he has been quicker
seem to fall into several rough groups. Son
to assume that welfare recipients will find a
AT A GLANCE
have ignored the work rules because the
way to hold them, and slower to emphasize
had other options - a secret job, a boyfrier
the kind of home visits and casework that
The Welfare Rolls
to support them, a child receiving a disabili
Michigan employs.
check. They have been able to replace, (
What virtually all states now share is a
Number of recipients of Aid to Families with Dependent Children.
even surpass, their lost welfare income. Ot
new philosophy, summarized in the phrase,
ers, befogged by drugs or depression, hav
"work-first." Though Federal law requires
crowded the shelters where the numbers
15 million
recipients to work within two years, few
women and children are at record high
states are letting them wait that long. Educa-
Though small as a percentage of the declir
12
tion and training come later, if at all.
ing caseloads there, these newly homeles
"It's no more, 'What am I going to be when
families may well number in the hundreds
9
I grow up?' said Larry Temple, deputy
The one quantitative study availabl
director of the Mississippi Department of
points toward a similar pattern, of punishe
Human Services, which is paying private
6
families falling into two broad categorie:
companies to place recipients in jobs. "If
Mathematica Policy Research, a Princetor
we've got a job that someone with a 10th-
3
N.J., consulting firm, recently tracked dow
grade education can fill, and you've got a
137 Iowa families that had lost their benefits
10th-grade education - you're working."
1960
1965
1970
1975
1980
1985
1990
1995
Of them, 40 percent saw their income
To place people quickly, almost every wel-
rise, by an average of $496 a month. But 4
fare office runs some sort of job-search
Source: U.S. Department of Health and Human Services
percent lost an average of $384 a month, in
program, in which welfare recipients write
incomes already low enough to put children
Glinten Will Offer Tax OqM Americans
10
les
new
B
rules
Maurice Payne, 40, a patient of Dr.
Keay, provides.
21
that some dying people need.
p
St
THE NEW YORK TIMES NATIONAL MONDAY, JUNE 30, 1997
U.S. Welfare System Dies
What virtually all states now share is a
As State Programs Emerge
new philosophy, summarized in the phrase,
"work-first." Though Federal law requires
recipients to work within two years, few
states are letting them wait that long. Educa-
Emphasis on Work Is the Common Thread
tion and training come later, if at all.
"It's no more, 'What am I going to be when
in a Patchwork of Decentralization
I grow up?' said Larry Temple, deputy
director of the Mississippi Department of
Ai
Human Services, which is paying private
companies to place recipients in jobs. "If
By JASON DePARLE
we've got a job that someone with a 10th-
WASHINGTON, June 29 - The
nation's 62-year-old welfare system,
Continued From Page Al
grade education can fill, and you've got a
10th-grade education - you working."
condemned last year by Federal law,
To place people quickly, almost every-wel-
will formally die on Tuesday, and a
states an additional $600 million this year
fare office runs some sort of job-search
season of state legislative debate has
for child care. Added together, the new
program, in which welfare recipients write
brought new clarity to the decentral-
Federal money represents an increase of
resumes, practice interviews and get leads
ized system rising in its place.
about 16 percent, or an additional $650 for
on possible openings. Almost two dozen
If the emerging programs share a
every family in the program.
states also have "diversion" programs, re-
unifying theme, It can be summa-
The program, which used to be called Aid
quiring needy people to put in as many as 20
rized in a word work States are
to Families with Dependent Children,
or 30 job applications before they can receive
demanding that recipients find it
serves about four million adults, most of
benefits.
faster, keep it longer and perform it
them single mothers, and more than seven
The tougher question is what comes next?
as a condition of aid. Most states
million children. As of Tuesday, it takes on a
What to do for those recipients - with little
regard even a low-paying, dead-end
new name to stress a new ethos of time
education or experience, and in some cases,
job as preferable to the education
limits and work rules: Temporary Assist-
bad attitudes and work habits - whom em-:
and training programs they offered
ance for Needy Families.
ployers continuously turn away?
in the past. And recipients who break
The combination of freedom, money and
Some states will now pay businesses to
the rules are facing penalties of un-
new expectations has produced a moment of
hire them, converting welfare and food
precedented severity.
dizzying change. Wisconsin is essentially
stamps into a subsidy for an employer. Ore-
But the hard edge also has a softer
abolishing cash aid, substituting a giant
gon and Mississippi have pioneered the ef-
side. Operating the assumption
work program that will stretch from the
fort, but without great success. Most busi-
"that" work? requires "support, many
sprawling ghettos of Milwaukee to the Min-
nesses, there and elsewhere, seem less inter-
states are investing in work-related
nesota border. Oregon is putting its hopes in
ested in the temporary payments than in
services. Near-record increases for
intensified casework; Texas in private con-
finding reliable help. In Tulsa, Okla, the
child care head the list; but states
tractors. Illinois has put up $100 million of
Chamber of Commerce has gotten more
are also spending more on transpor-
state money to offer child care to all low-
directly involved in polishing work skills. It
tation, job placement and programs
income workers, whether they have been on
has helped create an intermediary corpora-
that let working recipients keep
welfare or not. New Jersey has created a
tion to give recipients entry-level work, like
more of their benefits even while
$3.7 million transportation fund, to get poor
assembling fishing tackle for a local manu-
earning paychecks.
people to far-away jobs.
facturer. Those who perform well get recom-
The result is a system evolving
And there are more modest innovations.
mended to area employers.
from a national safety net into a
An. Episcopal diocese in Warren County,
So far, only a few places seem willing to
series of state trampolines: they are
Tenn., has placed $10,000 in a revolving loan
take the next step: creating large numbers
better equipped to lift the needy into
fund, to help a few welfare families buy used
of community service jobs. Though such
the job market, but much less cer-
cars. A social worker in Manassas Park,
efforts can be expensive, they may be what is
tain to catch them during the inev-
Va., is collecting donated clothes, to help
needed to make work universally available,
itable slips and falls. Wide-ranging in
clients look better in job interviews.
especially in areas where the economy sags.
JUNE 30, 1997
quality, some state programs can
But along with new opportunities, the poor
Efforts are under way in Massachusetts
already boast of impressive achieve-
face new perils. Bureaucratic errors in Mil-
and New York City, but the leader is Wiscon-
ments, while others are still being
waukee have withheld benefits from thou-
sin. Beginning Sept. 1, virtually all of the 1
cobbled together in an atmosphere of
sands of needy people, even though they
state's 42,000 welfare families will have to
conflict and doubt.
complied with the work program as in-
work 30 hours a week to receive benefits.
The Times
In at least one preliminary way,
structed. Mississippi punishes those who
Though the emphasis is on placing them in
the interesting development is what
break the rules by withholding food stamps
private jobs, the state has vowed to create
has not taken place. Critics of a
as well as cash, placing families at risk of
community service positions for those left
state-driven system have worried
complete destitution.
behind.
about a "race to the bottom," in
In many places, the passage of the Fed-
That caps a remarkable reversal from the
which strapped state governments
eral legislation last August did less to inau-
late 1980's, when investments in education
cut eligibility and benefits to drive
gurate a new era than to accelerate changes
and training were in vogue. Studies found
the poor away. Although that re-
that had already begun. That is because 46
that those programs had little effect while
mains a concern when the economy
states were already running
others that emphasized immediate job place-
falters, it has not happened yet.
programs under Federal waivers. From
ment worked better. But some advocates
"Some people predicted it'd be a
Oregon to Virginia, from Michigan to Mis-
worry that the pendulum has swung too far
disaster, obviously," said Donna E.
sissippi the move toward an employment-
in a world of diminishing returns for un-
Shalala, the Secretary of Health and
focused system was well under way
skilled workers. "You have lots of women in
But the states with the three largest wel-
the welfare system who've had one crummy
Human Services. But see gover-
nors taking the extra money they
fare populations California, New York
job after another," said Sharon Parks of the
and Texas - have mostly been absent from
Michigan League for Human Services. "A lot
the trend. By themselves, California and
of them are not going to be in a position to
THE WELFARE EVOLUTION
New York contain nearly a third of the
support themselves and their families."
country's recipients. In these two states,
A special report.
restrictive proposals from Republican gov-
ernors are being contested by Democratic
New Services
legislators. Until those disputes end, much
been given and using at least some of
of the welfare canvas remains unpainted.
hit to provide resources to help people
Removing the Barriers
And everywhere it is a work in progress.
work Over all, think there are
That Prevented Work
more resources going into programs,
not less.
New Work Rules
In part the new investments may
For many women on welfare, finding a job
indicate that legislatures are quicker
States Sharing
is the easy part. Keeping it comes harder
to spend money on needy people
Reliable child care and transportation are
when they work. But there is also an
old-fashioned fiscal lubricant in-
A Work Philosophy
part of the solution, and many states are
making new efforts to increase the supply of
both, though formidable challenges remain.
volved Federal dollars.
Work - it is an order to recipients, a
"States are doing more than expected,"
Though the new system has often
philosophy for administrators and a man-
said Helen Blank, a child-care expert at the
been described as a Fcut, t will pro-
date under Federal law. But the ways in
Children's Defense Fund. "The question is
vide states with about $2 billion more
which it is an actual program vary widely
will it continue?"
this year than they otherwise would
from state to state. Consider the differing
survey by the American Public Welfare
have had, according to rough esti-
emphases in Wisconsin and Michigan, whose
Association found that 11 states had expand-
mate by the House Ways and Means
Republican governors are typically consid-*
ed the eligibility for child-care programs and
Committee That is because Wash-
ered leaders of stern reform.
20 are putting in more state money than
ington now sends the states fixed
In Michigan, Governor John Engler has
required. "The heat is on, people are watch-
payments based on the welfare popu-
invested in caseworkers to remove the "bar-
ing," said Elaine Ryan, the organization's
lation of earlier years, even though
riers" to work, like an inability to patch
lobbyist. "It's becoming a kind of political
the rolls are plummeting
together child care or transportation. But he
imperative."
The Government is also giving
has been reluctant to create community
Though most have expanded child care for
service jobs for those who do not find work
welfare families, a few have gone substan-
Continued on Page All
on their own. In Wisconsin, Governor Tom-
tially farther. Wisconsin, Illinois and Rhode
my G. Thompson has created thousands of
Island are pledging subsidized child care on
workfare positions. But he has been quicker
a sliding scale to any low-income working
to assume that welfare recipients will find a
family that needs it.
way to hold them, and slower to emphasize
Perhaps no state
expanded its aid
the kind of home visits and casework that
Michigan employs.
Lloyd DeGrane
As part of its plan to eliminate welfare, Illinois has pledged to subsidize child care for any family earning less than $22,000 a year. A
group of 6-year-olds played on Friday in the learning center of the Christopher House day-care program in Chicago.
suddenly as Illinois, which has the nation's
time limits. But most families are still years
at risk. "It's really hard to know what's the
fourth-largest welfare population. A Republi-
away from exhausting their eligibility.
right thing to do," Ms. Pavetti said.
can governor, Jim Edgar, proposed adding
Meanwhile, about 20,000 have already lost
$70 million in state money to the Federal pot,
their benefits under a different circum-
and a legislature split between a Republican-
stance, for failing to comply with the work
Time Limits
controlled Senate and a Democratic House
rules.
added $30 million more.
'Sanctions are a much bigger issue than
Illinois said it can now offer a child-care
time limits
much, much bigger
said
Many States
subsidy to any family earning less than about
LaDonna Pavetti of the Urban Institute,
a
$22,000 a year "It doesn't matter if you're on
Washington research group
Set Tighter Rules
welfare, used to be on welfare, almost on
States have now made their penalties
welfare," said Michele Piel, who runs the
tougher than ever. In the past, welfare recipi-
As of Tuesday, states must start limiting
system for the Illinois Department of Public
ents who failed to report for work or training
most recipients to no more than five years of
Aid. "We tried to wipe the slate clean, and
typically lost a third of their cash grant -
benefits in a lifetime. But a survey: by the
envision a system as it ought to be."
about $125 a month in an average state. But
National Governors, Association found at
But Ms. Piel warns that the increased
as their income went down, their food stamps
least 20 states imposing shorter limits on all
financing has solved only part of the prob-
rose, compensating for two-thirds of the loss.
or part of their caseload.
lem. Shift workers, mothers with infants, and
If that system was essentially toothless,
Texas has the shortest limit, of 12 months
parents in rural parts of the state - all may
the new one takes a painful bite. recent
for those deemed most able to work. Tennes
still find child care in short supply. Those
survey by the General Accounting Office, an
see has a limit of 18 consecutive months, and
shortages could grow even more intense as
arm of Congress, found that 33 states now
in Connecticut the limit is 21 months. Ten
the new system puts more mothers to work.
strip noncompliant families of all cash as
states, from Massachusetts to Oregon, have
And the quality of care remains a concern.
sistance. Some, like Michigan and Wisconsin,
two-year limits, but the details vary widely
States are also expanding transportation
allow recipients to immediately re-enroll and
Some states promise extensions to those
programs but here the problem may be even
cooperate. Iowa makes recipients wait six
trying to work. Others let recipients back on
more vexing. Many states offer public tran-
months before they can reapply.
the rolls after an intervening period. So far,
sit vouchers, but new jobs are often beyond
In addition, all states bar food. stamps
Michigan is the only state pledging to ignore
the reach of bus and rail lines. Cars are often
from rising, and Mississippi goes even fur-
the limits altogether. While states can use
unaffordable, and van pools can be difficult
ther eliminating all cash and food stamps
Federal money to provide extensions to 20
to coordinate,
to those who do not comply with the work
percent of the caseload, Michigan officials
'I'm surprised at how much attention
program. Of the 7,200 families in an experi-
have said they will help any recipient who
S are paying to the issue,' said Mark
mental program there, as many as 19 per-
complies with the work rules.
Alan Hughes, a researcher at Public/Private
cent temporarily lost all their aid. "We're
Some states have considered letting indi-
Ventures in Philadelphia and a leading ex-
talking about people who are refusing to go to
vidual counties set time limits of their own
pert the transportation problems of the
work to feed their children," said Mr. Tem-
Republicans in Colorado pushed such a plan,
poor But the next step's the harder part:
ple, the Mississippi official:
but they were thwarted by the state's Demo-
How do you solve it?"
But in a time of sweeping bureaucratic
cratic Governor, Roy Romer. Critics of such
While welcoming this early expansion of
change, mistakes are easily made. The
local autonomy worry that localities will
services, skeptics worry that it will prove
G.A.O. report found that 44 percent of the
abuse it to drive poor families away. In
ephemeral. Even in these flush times, most
penalties imposed in the first five months of
Colorado, skeptics issued a warning Wel-
states are not reinvesting their full Federal
Milwaukee's program were later overturned
fare reform is not a bus ticket to Denver.
windfall, using part of instead to offset
when officials discovered they had made
In at least one important, but little-noticed
other state spending. When the economy
errors. "That's outrageous," Ms. Shalala
way, welfare policy is now at odds with itself.
falters, the skeptics worry, the new services
said. "The minimum we should expect is that
While time limits are in, so are state plans
will disappear. The time when a race to the
we're not making mistakes with people's
that let recipients keep benefits while they
bottom will happen is when a recession hits,
lives."
work - extending their stay on the rolls and
said Wendell Primus, a former Federal wel-
Avoiding mistakes may be harder than it
further eating into the clock. "It may be that
fare official who resigned to protest the new
seems. After starting a strict work program
working families become some of the first
law and who now works as an analysta the
a few years ago, Utah officials began a study
casualties of time limits," said Mark Green-
Center on Budget and Policy Priorities, a
of about 100 families punished for failing to
berg, a lawyer at the Center on Law and
Washington advocacy group.
cooperate. In about half of those cases, the
Social Policy who is critical of the limits.
officials discovered factors that the social
As states succeed in winnowing their rolls,
workers had not understood.
they may also find that those left behind have
ew Penaltles
One woman who lost her benefits was
especially difficult problems problems that
already enrolled in a training program. An-
a time limit alone will not solve. That has
Toothless Rules,
other had a phobia about leaving her home.
been the case in Utah, where the rolls have
"We found we were sanctioning people we
fallen by 35 percent over the last four years.
Then Painful Ones
shouldn't be sanctioning." said Bill Biggs, the
"We weren't prepared for the group left
Utah official who supervised the program
behind," said Mr. Biggs, the former Utah
before his recent retirement.
official. "Over time they can move off the
Those who fear that the new system will
harm poor families have typically focused on
What happens to poor families that sud-
rolls, but It's a much more gradual process."
denly lose aid? No city has cut off as many
What percentage of the caseload will re-
families as Milwaukee, where the penalized
main behind is anyone's guess. While the law
seem to fall into several rough groups. Some
exempts 20 percent, Mr. Primus has estimat-
have ignored the work rules because they
ed that as many as half of the families on the
had other options - a secret job, a boyfriend
rolls may hit a five-year limit: So far, limits
to support them, a child receiving a disability
have elapsed only in one experimental pro-
check. They have been able to replace, or
gram, in Pensacola, Fla., where about 130
Dependent Children.
even surpass, their lost welfare income. Oth-
families have been dropped from the rolls
ers, befogged by drugs or depression, have
To the surprise of local officials, recipients
crowded the shelters where the numbers of
there largely ignored the two-year limit
women and children are at record highs.
regarding the deadline as a long way off
Though small as a percentage of the declin-
Among them was Theresa Sledge, 22, who
ing caseloads there, these newly homeless
has a 7-year-old son, a toddler, and another
families may well number in the hundreds.
baby on the way. At first her social worker
The one quantitative study available
urged her to join a training program, pledg-
points toward a similar pattern, of punished
ing the necessary child care and transporta-
families falling into two broad categories.
tion. Then, as the clock ran down, the worker
Mathematica Policy Research, Princeton,
urged Ms. Sledge to find a job. Failing to do
consulting firm, recently tracked down
either, Ms. Sledge now lives in a rickety
-137-Iowa families that had lost their benefits
trailer, feeding her children on food stamps
1980
1985
1990
1995
Of them, 40 percent saw their incomes
and scrounging underwear and tollet paper
rise, by an average of $496 a month. But 49
from friends. "Hardship is not the word for
percent lost an average of $384 a month, in
it," she said. "They had told me it was going
incomes already low enough to put children
to happen, but it just didn't sink in."
together child care or transport But
fiding
has been reluctant to create community
family that needs it.
Those who fear that the new system
service jobs for those who do not find work
Perhaps no state has expanded its aid as
harm poor families have typically focused on
What happens to poor
on their own. In Wisconsin, Governor Tom-
denly lose aid? No city has cut off as many
What percentage of the caseload will re-
my G. Thompson has created thousands of
families as Milwaukee, where the penalized
main behind is anyone's guess. While the law
workfare positions. But he has been quicker
sèem to fall into several rough groups. Some
exempts 20 percent, Mr. Primus has estir
to assume that welfare recipients will find a
AT A GLANCE
have ignored the work rules because they
ed that as many as half of the families on the
way to hold them, and slower to emphasize
had other options - a secret job, a boyfriend
rolls may hit a five-year limit. So far, limits
the kind of home visits and casework that
The Welfare Rolls
to support them, a child receiving a disability
have elapsed only in one experimental pro-
Michigan employs.
check. They have been able to replace, or
gram, in Pensacola, Fla., where about 1
What virtually all states now share is a
Number of recipients of Aid to Families with Dependent Children.
even surpass, their lost welfare income. Oth-
families have been dropped from the rolls.
new philosophy, summarized in the phrase,
ers, befogged by drugs or depression, have
To the surprise of local officials, recipients
"work-first." Though Federal law requires
crowded the shelters where the numbers of
15 million
there largely ignored the two-year limit,
recipients to work within two years, few
women and children are at record highs.
regarding the deadline as a long way off.
states are letting them wait that long. Educa-
Though small as a percentage of the declin-
Among them was Theresa Sledge, 22, who
12
tion and training come later, if at all.
ing caseloads there, these newly homeless
has a 7-year-old son, a toddler, and another
"It's no more, 'What am I going to be when
families may well number in the hundreds.
baby on the way. At first her social worker
I grow up?' said Larry Temple, deputy
9
The one quantitative study available
urged her to join a training program, pledg-
director of the Mississippi Department of
points toward a similar pattern, of punished
ing the necessary child care and transporta-
Human Services, which is paying private
6
families falling into two broad categories.
tion. Then, as the clock ran down, the worker
companies to place recipients in jobs. "If
Mathematica Policy Research, a Princeton,
urged Ms. Sledge to find a job. Failing to do
we've got a job that someone with a 10th-
3
N.J., consulting firm, recently tracked down
either, Ms. Sledge now lives in a rickety
grade education can fill, and you've got a
137 Iowa families that had lost their benefits.
trailer, feeding her children on food stamps
10th-grade education - you're working."
1960
1965
1970
1975
1980
1985
1990
1995
Of them, 40 percent saw their incomes
and scrounging underwear and toilet paper
To place people quickly, almost every wel-
rise, by an average of $496 a month. But 49
from friends. "Hardship is not the word for
fare office runs some sort of job-search
Source: U.S. Department of Health and Human Services
percent lost an average of $384 a month, in
it," she said. "They had told me it was going
program, in which welfare recipients write
incomes already low enough to put children
to happen, but it just didn't sink in."
Clinten Will Americans
Nowb
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Keay, Maurice provides Payne, 40, a patient of
эм.,
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teaching
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THE NEW YORK TIMES NATIONAL MONDAY, JUNE 30, 1997
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The Washington Post
FINAL
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MONDAY. It NE30. 1997
May
the
25c
Tyson's Conduct Under Review
Nevada Athletic Commission, Las Vegas Police Investigate light, Aftermath
By William Gildea
lie likely will deed reconstructive surgery
haps for six months or a year. Most state
to restore the car's normal appearance
athletic commissions honor decisions
according to the plastic surgeon who treat
made in other states, so a suspension in
LAS VEGAS, June 29-After igniting one
ed Holyfield on Saturday night.
Nevada would virtually guarantee yet an-
of the aglicat and most bizarre nights in the
A ring melee among members of both
other interruption in the career of fighter
history of professional championship box-
fighters camps ensued after'referee Mills
who has gone from giving heavyweight
ing: Mike Tyson today found himself facing
Lane halted the light. Videotape of the
boxing the frightening romance of a seem-
a Las Vegas police investigation and sanc
brawl shows that Tyson. trying to make his
ingly invincible predator to further soiling
tions from the Nevada State Athletic Com-
way across the crowded ring, struck Las
sport that already appeared indelibly
mission.
Vegas police officer on the chest. The
stained.
Tyson. once the most feared man in the
district attorney's office and police detec-
"It's over. know it's over. My career is
sport. enabled Evander Holyfield to retain
tives will investigate the incident this week.
over. Tyson said in his dressing
the World Boxing Association heavyweight
Lt. Dennis Cobb. a police spokesman. said.
Saturday night, according to the Associated
title Saturday night by billing Holyfield oh
Cobb added that Tyson could be charged
Press.
each ear during the final minute of the third
with misdemeanor battery if he was found
But the biting and postflight brawl were
round of their scheduled 12-round bout at
to have had the "intent" to strike the officer
only part of the chaotic night at the MGM
MGM Grand Garden.
Mare Ratner, executive director of the
Grand Hotel which has been the site of
Tyson's shockingly graphic-and seem
Nevada State Athietic Commission. an
numerous title fights.
ingly premeditated- retaliation for a sec-
nounced Saturday night that Tyson is tem-
Minutes after the fight ended. panic
ond-round head butt from Helyfield result-
perarily suspended and his 830 million
erupted in the lobby and casino areas of the
REL
MAIL
ed in his disqualification after the third
purse is being withheld. The athletic com-
jam-packed hotel as people took cover
Mike Tveon is restrained as he tries to force his way across boxing ring after his heavyweight title bout with
round. It also left Holyfield without a one-
mission could fine Tysen up to 10 percent of
fearing that gunshots had been fired.
Holyfield ended in Tyson's disqualification for biting Holyfield on both ears. More stories on Page D1
inch by chunk of his right ear.
his purse and extend his suspension. per-
See BOXING.A6,
Backlash
Clinton Backs
Builds Over
No New Taxes
Managed Care
On Internet
Frustrated Consumers
Push for Tougher Laws
Market-Oriented Approach
To Shape Online Commerce
By David S. Hilzenrath
Washington
By Rajiv Chandrasekaran
A political backlash is building against
managed care across the country as doctors
and patients protest what they see as poten-
After a two-year study Into the growing world
tially dangerous penny-pinching by the
of Internet commerce. the Clinton administra-
health-care industry. Consider:
tion has decided not to call for new taxes or
in Missouri, the governor last week signed
regulations on business conducted over the
a bill requiring managed-c companies to
global computer network and instead will large
Day for emergency room visits whenever a
by allow the private sector to determine how it
layperson" would have reason to
will operate in cyberspace.
believe that immediate care is needed. even if
The administration's stance. detailed in a
a managed-care administrator might dis-
MOURNING A MOTHER, TEACHER, LEADER
report scheduled to be released tomorrow by
agree.
President Clinton, is a marked departure from
In Hardlord, Conn. center of the nation's
Surrounded by her sisters, Attailsh Shabarz speaks to thousands
service for her mother, Botty Shabarz. Her sisters, from left. are
the federal government's practice of closely
inc
industry, the state legislature last
who jammed into Riverside Charch in New York at a memorial
Malask, Malkah, Qubliah, Gamilah and llyasah. Story, Page AS.
regulating other electronic networks. such as
monus approved a bill that would allow
telephones, television and radio.
patients to appeal to the state Insurance
Administration officials and technology in
commissioner when health plans decide not
dustry leaders contend that new laws and taxes
to pay for their medical treatment.
'Megan's Law,' Others Languish in D.C.
could stymie development of electronic com-
And Texas last month made h possible for
merce If left loosely regulated. Internet trade is
to sue health maintenance orga-
expected to reach $200 billion in the United
arranons for medical malpractice, removing
States by 2000, Industry analysts said.
a barrier that had shielded them from liabili-
Council Members Complain That Barry Administration Ignores Their Wishes
"Commerce on the Internet could total tens of
by
billions of dollars by the turn of the century. the
The legislation reflects consumer frustra-
report's final draft said. "For this potential to be
tion with managed care, the cost-conscious
form of health insurance that has grown over
By Vernon Loeb and Hamil R Harris
"As soon as the law takes effect, they
The council passed a law requiring that
realized fully. governments must adopt a non-
Washington
should have provisions in place to regis-
all children entering school be screened
regulatory, market-oriented approach
the past decade from obscurity to cover an
ter these people," council member Jack
for lead poisoning and mandated that
Industry leaders who have seen draft versions
estimated three-quarters of the nation's pri-
Prompted by the 1994 rape and murder
Evans (D-Ward 2), chairman of the Judi-
doctors report the test results. But the
of the report commended the administration's
vate-sector workers. Doctors and patients
of 8 7-yearold New Jersey girl, the D.C.
clary Committee. said last week in an
1993 law bas been ignored: Children
approach, saying that businesses need the in-
been calling for curbs on the managed-
Council approved a version of "Megan's
interview. "But there's no preparation. no
aren't being screened.
centive of regulatory freedom to embrace elec
care industry's powers. arguing that some
Law" that requires city officials to create a
process in place-no nothing. It is outra-
a The council made headlines in 1995 by
tronic commerce, a step many corporations
companies are profiteering at the expense of
registry of convicted sex offenders and
geous. But not surprising."
passing conservative welfare reform leg-
recently have been taking with trepidation.
patient care, making It difficult for people to
tell communities in which they live of
Evans and many of his council col-
islation well ahead of the federal govern-
Consumers, too, have been cautious about
get quality medical attention.
their presence.
leagues say the failure to follow through
ment. The D.C. Department of Human
making purchases online.
Officials in dozens of states have respond-
But almost four weeks after it was
on the sex offender registry is sadly
Services, concerned about lack of fund-
The report also highlights a stark shift in the
ed by stitching together a patchwork quilt of
supposed to take effect. nothing has
typical of a system in which ordinances
ing. waited 10 months before seeking
administration's policy toward adult material on
new regulations. Some of the measures have
happened: There is no registry of people
they approve often are neither imple-
required federal approval. The approval
the Internet following last week's Supreme
by overwhelming. even unanimous.
convicted of sexual violence or crimes
mented nor enforced in timely fashion by
was denied.
Court decision striking down as unconstitution
margins.
against children-end police officials said
the Barry administration.
. The council cracked down on unrego-
al a federal law that would have criminalized
See MANAGED CARE. A6, Col. 1
they have never even heard of the law.
Examples abound:
See COUNCIL.A9, Col.
See INTERNET,A7,Col.1
D.C. Boy,
INSIDE
In Welfare Decisions, One Size No Longer Fits All
7, Is Killed
By Barbara Vobejda
discretion to offer different kinds of
fare. began to take root before pas-
must states treat all needy people
and Judith Havemann
assistance to different welfare fami-
sage of the federal law last summer.
exactly the same.
In Shooting
Washington First
lies. in number of states, for exam-
but It has accelerated enormously
The most obvious sign that the
ple. welfare offices and caseworkers
since-as states devise their plans to
world of welfare is changing 19.8
As states propose their plans for
are free to determine which welfare
administer the welfare law in time to
sharp decline in caseloads-9 per
implementing the welfare overhaul
mothers must go to work, and how
meet the July 1 deadline set by
cent since last July and 20 percent
By Allan Lengel
approved by Congress last year. it is
soon; which will be offered a one-
Congress.
over four years-which experts be
clear that many of them have re-
time payment and which will be
The law required states to move
lieve is the result of healthy econo
thought a key principle of social
given ongoing benefits. In some
half their caseloads into jobs within
my and these policy changes.
A 7-year-nid boy riding in a car
policy: A welfare program that dis
states, caseworkers can decide how
five years and set time limit on how
Lens apparent to the outside world
with his father was shot and killed
penses checks without reference to 2
long a family can receive benefits:
long any individual can receive bene-
are changes in welfare offices across
last night in an apparent drive
recipient's personal circumstances is
This departure from a standard
fits. And by ending the six decade
the country. where workers are now
<hooting outside a fast fond restau
Last Rites,
no longer suitable
ized system. like a flurry of other
old guarantee of benefits to cligible
being told they can make their our
rant in Southeast Washington
Caseworkers are being given the
Police skid the gunman appear
Lost Rights
state activity in restructuring wel-
families. it signated that no longer
See WELFARE.AN.Col.2
to be firing directly at the car that
In Hong Kong. Sinion
carried Dennis Ashton although
Vallance and Jeanette
" was unclear who the intended
Hegerly were the last couple
victim was
to be married under British
Seizure of 1979 Art Film Draws Fire
don't this would happen
rule making their marriage
if it were random act. said DC
certificate with its royal seal
police u Scott P. Dignan
an instant collectible Also,
No one had been arrested early
Britain's Prince harles
Oklahoma Police Raids to Confiscate "In Drum' Raise Privacy Issues
this morning
bestowed knighthoods on
Dennis who hved in the 200 blen
Two promitent residents of
By Lois Romano
Children and Families, "and that's all needed
of 17th Street NE. was pronound
Hong Kongjust before
to hear.
dead about 8:30 p.m at Children
Britain lurns control of the
Within 72 hours. Anderson. 67. managed to
Hospital No one else injured
territory over to China at
TUISA. June 29-Fur Bob Anderson. it was
get Oklahoma City law enforcement authorities
The buy was riding in the rear seat
midnight tonight
nothing short of diving providence that he was
and judge to agree that the 1979 anti-Nazi film
of # Ford Probe with his father
WORLD. Page land 11.
listening to a Christian radio station when the
considered high an for nearly two decades
Dennis Ashton. 26, at the wheel and
David Bennent as Oshar in The Tin Drum."
talk show herst began lengthy diatribe against
violated state observity laws and was in fact
another than in the truel passengs
The Post on the Internet
seal They had stopp about li III
the Oscar winning German him The Tin
contraband
www.washingtenpost.com
The result was a hizarre police raid on video
besieged Oklahoma County District Judge
pm to pack пр lovel al a don't
Drum
stores and private honux last week. which has
Richard Freeman. who knid the police asked
through window of the Popeves
"11. said it could In judged pernographic
created a run on the critically acclaimed film
him to confirm that a scene of a young boy
int
Fohrmans
10
and
...
all
"
.............
......
and
media
fre
engaging in oral with : termare pit) did
WELFARE, From A1
decisions about what is best for an individual family.
Freedman, from the Welfare Law Center, questions
. Twenty- states are instituting "diversion" programs,
the wisdom of all that discretion. recalling anecdotes
one-time payments meant to keep families from ever
from earlier this century about East European immi-
coming onto the welfare rolls. In some states, the
grants who received lower benefits because casewo
A1
By Barbara Vobejda
payments are uniform, but in others, caseworkers can
believed they were used to-getting-by on less than West
and Judith Havemann
determine for each family that comes before them how
Europeans.
Washington Post Staff Writers
much cash to hand out and whether families should also
"The big fear in my mind is that you could get
receive child-care subsidies and other assistance. In
personal decisions based upon a personal dislike of the
As states propose their plans for
some states, including Virginia, families who accept a
individual," he said. Caseworkers may be poorly trained,
implementing the welfare overhaul
lump sum for staying off the rolls are barred from
mean-spirited or simply overwhelmed from "dealing day
approved by Congress last year, it is
receiving welfare for a certain period of time.
after day with desperately needy, sometimes hostile
clear that many of them have re-
. Numerous states are requiring individualized "person-
people, he said.
thought a key principle of social
al responsibility" contracts, written by recipients and
Whether caseworkers have the training and
e to
policy: A welfare program that dis-
caseworkers, that tailor the treatment of families by
handle the new demands has come up in Utah, which
penses checks without reference to a
spelling out when adults must go to work and the length
began experimenting four years ago with individualized
recipient's personal circumstances is
and type of training they will receive.
plans to get every welfare recipient moving 1
d
In Welfare Decisions, One Size No Longer Fits All
no longer suitable.
. Thirteen states plan to pay lower benefits to welfare
self-sufficiency.
Caseworkers are being given the
families moving in from states that offer less assistance,
"It is not even in the same universe what is expected of
discretion to offer different kinds of
according to the National Governors' Association. While
caseworkers" under the new individualized system, said
assistance to different welfare fami-
these "two-tiered" systems were considered illegal under
Robin Arnold-Williams, director of the Utah Department
lies. In a number of states, for exam-
the previous federal law, Congress attempted to change
of Human Services. "Some of our staff have not been able
ple, welfare offices and caseworkers
that in the new measure. This approach too could make
to make that transition."
are free to determine which welfare
for situations in which welfare families of identical size
She said the state has invested in extensive training for
mothers must go to work, and how
living next door to each other could receive different
those caseworkers who are struggling with the new
soon; which will be offered a one-
benefits.
system, and it is now more likely to hire trained social
time payment and which will be
All of this essentially rejects recent decades of welfare
workers than it was in the past.
given ongoing benefits. In some
practice, which was built on a philosophy that standard-
Prim Burgle, a clinical social worker employed by the
states, caseworkers can decide how
ized treatment was the best way to ensure equity.
state of Utah, said she frequently sees caseworkers "from
long a family can receive benefits.
"Our zeal not to be unfair had driven judgment out of
the old school
Some people get into this kind of work
This departure from a standard-
the process, and you ended up with a cookie-cutter
mentality," said Don Winstead, Florida's welfare reform
because it's a power trip for them. They get these poor
ized system, like a flurry of other
administrator. But the change has also drawn critics who
people in their office and put them down."
state activity in restructuring wel-
worry that caseworkers may not receive enough training
And the system allows inconsistency, said Gina Cornia,
fare, began to take root before pas-
before wielding such power over people's lives. They
a welfare specialist at a Salt Lake City advocacy group
sage of the federal law last summer,
argue that the new discretion could bring a return to days
known as Utah Issues. She said some caseworkers are
but it has accelerated enormously
when some poor families were turned away because of
telling recipients they must quit school and find a job,
since-as states devise their plans to
race or other prejudices among caseworkers.
while others are allowing recipients to stay in school
administer the welfare law in time to
"My concern is not over different approaches for
without losing benefits.
meet the July 1 deadline set by
different people, but whether it's done in a system where
"They'r telling them anything they want to tell them,"
Congress.
there are standards, or where, willy-nilly, caseworkers
Cornia said.
The law required states to move
can do what they like," said Henry-Freedman, an attorney
That new power rankles Sara Wethall, a 44-year-old
half their caseloads into jobs within
with the Welfare Law Center in New York.
mother who has been on welfare since 1993, when she
five years and set a time limit on how
The goal may be individualized treatment, Freedman
and her husband divorced. Wethall, who has physical
long any individual can receive bene-
said, but "the reports we get are that, in fact, caseworkers
disabilities that limit her movement, just earned a
fits. And by ending the decade-
are overloaded, undertrained and pushing participants
two-year degree and wants to finish college and become a
old guarantee of benefits to eligible
through in a hasty, arbitrary manner once again."
teacher. She said her caseworker initially told her she
families, it signaled that no longer
This debate over the proper balance of equity and
might be able to continue, but since has indicated she
must states treat all needy people
flexibility is being played out in the lives of individuals
must find a job.
exactly the same.
across the country as states embrace this new approach
"To rip it away and say you take a minimum wage job
The most obvious sign that the
to delivering social services.
seems absurd," she said. "You can't go any further,
world of welfare is changing is a
For Theresa Brown in rural West Virginia, this new
without a bachelor's."
sharp decline in caseloads-9. per-
latitude made it possible for her to receive a one-time
Also, her caseworker has said the state would continue
cent since last July and 20 percent
state payment of $603 for car repairs, allowing her to take
to subsidize her child care and medical coverage for
over four years-which experts be
a job as a cook and keeping her off the welfare rolls.
three years while she is working. But if she could
lieve is the result of a healthy econo-
For welfare recipient Lori Charboneau, who lives in the
complete college, she argued, "I could be completely off
my and these policy changes.
Salt Lake City area, it meant she could receive a year and
the system in two years."
Less apparent to the outside world
a half of state-financed counseling for depression before
But that same kind of broad discretion allowed Lori
are changes in welfare offices across
she was expected to look for a job.
Charboneau the time she needed to pull together
the country, where workers are now
But for Sara Wethall, another Utah resident, it brought
psychologically and find a job.
being told they can make their own
confusion and anger: She has been told she can no longer
Charboneau, a 34-year-old single mother, said she
See WELFARE, A8, Col. 2
attend college and receive benefits, while some others in
went through a period of "bad, deep depression," when.
the state are being allowed to finish school.
"all I could do was to get out of bed." Her caseworker told
Under the previous system, caseworkers simply calcu-
her she could stay on welfare and postpone work while
lated how much a family could receive each month, rarely
focusing on the specific problems that kept adults from
she received therapy.
and
working.
So she began taking a drug to ease her depression and
But now, workers must immediately look for individual
for about 18 months, she saw her counselor once a weeks
circumstances that could entitle applicants to special
Eventually, she found an accounting job with the state
services or exemptions: Are they victims of domestic
and now is off welfare, but still receives a housing subsidy
abuse? Or drug users? Are they disabled? Are their skills
and help with child care.
so low they could never support themselves?
"I wouldn't be where I am today" without the time
"That is a big change from the past," said Jason Turner,
counseling, she said.
executive director of the Center for Self-Sufficiency in
She figures even if she had been able to find work
Wisconsin. Caseworkers, he said, "were told to shut up
during that time, she would still be suffering from
and be quiet and issue the checks." The new authority
depression. "I would be worse off.".
invested in workers, he predicted, will transform the
culture of welfare offices.
Robert A. "Buz" Cox III, director of social services for
the city of Charlottesville, said some of the efforts afoot
do require that caseworkers be allowed wide latitude.
"Some agencies may be reluctant. But you have to feel
you hire good professional staff, train them well, then
trust them." he said.
The Washington Post
MONDAY, JUNE 30, 1997
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"ocrText": "NUMBERS CROSS-CHECK FROM THE HHS BOOK AND NYT ARTICLE (6/30)\nI pulled out all the statements from the NYT and typed them below in regular font. Cross\nchecked information from the HHS book is written in italics below each NYT statement.\nGENERAL\nWisconsin is essentially abolishing cash aid, substitution a giant work program.\nCouldn't confirm the abolishing of cash aid state-wide from the HHS book.\nWisconsin has been approved for a Work Not Welfare Demonstration (11/93) which\ncombines AFDC and cashed-out food stamp benefits into one Work Not Welfare\npayment.\nOregon is putting its hopes in intensified casework\nCouldn't confirm.\nTexas is putting its hopes in contractors.\nYes.\nIllinois has put up $100 million of state money to offer child care to all low-income workers.\nCouldn't confirm. '97 funding was $128 million. Change in '96-'97 funding is about\n$10 million.\nNew Jersey has created a $3.7 million transportation fund.\nCouldn't confirm. NJ allows up to $6.00 per day for transportation expenses for\nTANF activity. NJ also allows $500 in auto-related expenses.\nBureaucratic errors in Milwaukee have withheld benefits from thousands of need people, even\nthough they complied with the work program as instructed.\nCouldn't confirm.\nMississippi punishes those who break the rules by withholding food stamps as well as cash.\nYes. There are other states who also withhold benefits (Florida, Louisiana, etc.).\nMichigan has invested in caseworkers to remove \"barriers\" to work but has been reluctant to\ncreate community service jobs.\nYes.\nWisconsin has created thousands of workfare positions but has been slower to emphasize\ncasework that Michigan is employing.\nYes.\nMississippi pays private companies to place recipients in jobs.\nCouldn't confirm.\nTwo dozen states have \"diversion\" programs.\nI counted only 18.\nOregon and Mississippi have pioneered the effort to pay businesses to hire welfare recipients,\nconverting welfare and food stamps into subsidies for the employer.\nYes.\nstates total\nTulsa Okla. Has created an intermediary corporation to give recipients entry-level work.\nCouldn't confirm.\nWisconsin will require all state's 42,000 welfare families to work 30 hrs./week to receive\nbenefits.\nCouldn't confirm. HHS book says Wisconsin has 123, 758 recipients but it doesn't\ngive number of. families.\nWisconsin, Illinois and Rhode Island are pledging subsidized child care on a sliding scale to\nany low-income working family that needs it.\nCouldn't confirm.\nIllinois has expanded its aid suddenly.\nNo. HHS book says '96 funding was $601 million and '97 funding is 585 million.\nIllinois can now offer a child-care subsidy to any family earning less than $22,000 per year.\nCouldn't confirm.\n# ofstates giving child Care tran\nSANCTIONS\n6\n1 cinorithis\n14\n33 states now strip noncompliant families of all case assistance. Some like Michigan and\nWisconsin, allow recipients to immediately re-enroll and cooperate. Iowa makes recipients\nwait 6 mo before they can reapply.\nCouldn't confirm.\nMississippi eliminates all cash and food stamps for those who don't comply.\nYes.\n44% of penalties imposed in the first 4 mo in Milwaukee's program were later overturned\nwhen officials discovered they had made errors.\nCouldn't confirm.\nNo city has cut off as many families as Milwaukee.\nCouldn't confirm.\nTIME LIMITS\nNGA found that at least 20 states impose shorter limits on their caseloads.\nI counted 22 states. In addition, Nevada will submit to change their limit from 60\nmonths to 24 months.\nTexas has the shortest limit of 12 mo for those deemed most able to work.\nYes.\nTennessee has a limit of 18 consecutive mo.\nYes.\n10 states have 2-yr limits.\nNo.\n6 states have a time limit of 24 months.\n1 state (NV) is changing theirs from 60 to 24.\n6 states have a time limit of 24 months out of 60 months.\n1 has a time limit of 24 months out of 84 months.\n1 has a time limit of 24 months out of 48 months.\nTOTAL= 15\nMichigan is only state pledging to ignore limits.\nYes.\nUtah's rolls have fallen by 35% over the last 4 yrs.\nYes. Utah's change in caseload has been -33% from '93-'97.\ntogether child\nhas been reluctant to create community\nfamily that needs it.\nThose\nwho\nfear\nthat\nthe\nnew\nservice jobs for those who do not find work\nPerhaps no state has expanded its aid as\nharm poor families have typically focused on\nWhat happens to poor?\non their own. In Wisconsin, Governor Tom-\ndenly lose aid? No city has cut off as mai\nmy G. Thompson has created thousands of\nfamilies as Milwaukee, where the penalize\nworkfare positions. But he has been quicker\nseem to fall into several rough groups. Son\nto assume that welfare recipients will find a\nAT A GLANCE\nhave ignored the work rules because the\nway to hold them, and slower to emphasize\nhad other options - a secret job, a boyfrier\nthe kind of home visits and casework that\nThe Welfare Rolls\nto support them, a child receiving a disabili\nMichigan employs.\ncheck. They have been able to replace, (\nWhat virtually all states now share is a\nNumber of recipients of Aid to Families with Dependent Children.\neven surpass, their lost welfare income. Ot\nnew philosophy, summarized in the phrase,\ners, befogged by drugs or depression, hav\n\"work-first.\" Though Federal law requires\ncrowded the shelters where the numbers\n15 million\nrecipients to work within two years, few\nwomen and children are at record high\nstates are letting them wait that long. Educa-\nThough small as a percentage of the declir\n12\ntion and training come later, if at all.\ning caseloads there, these newly homeles\n\"It's no more, 'What am I going to be when\nfamilies may well number in the hundreds\n9\nI grow up?' said Larry Temple, deputy\nThe one quantitative study availabl\ndirector of the Mississippi Department of\npoints toward a similar pattern, of punishe\nHuman Services, which is paying private\n6\nfamilies falling into two broad categorie:\ncompanies to place recipients in jobs. \"If\nMathematica Policy Research, a Princetor\nwe've got a job that someone with a 10th-\n3\nN.J., consulting firm, recently tracked dow\ngrade education can fill, and you've got a\n137 Iowa families that had lost their benefits\n10th-grade education - you're working.\"\n1960\n1965\n1970\n1975\n1980\n1985\n1990\n1995\nOf them, 40 percent saw their income\nTo place people quickly, almost every wel-\nrise, by an average of $496 a month. But 4\nfare office runs some sort of job-search\nSource: U.S. Department of Health and Human Services\npercent lost an average of $384 a month, in\nprogram, in which welfare recipients write\nincomes already low enough to put children\nGlinten Will Offer Tax OqM Americans\n10\nles\nnew\nB\nrules\nMaurice Payne, 40, a patient of Dr.\nKeay, provides.\n21\nthat some dying people need.\np\nSt\nTHE NEW YORK TIMES NATIONAL MONDAY, JUNE 30, 1997\nU.S. Welfare System Dies\nWhat virtually all states now share is a\nAs State Programs Emerge\nnew philosophy, summarized in the phrase,\n\"work-first.\" Though Federal law requires\nrecipients to work within two years, few\nstates are letting them wait that long. Educa-\nEmphasis on Work Is the Common Thread\ntion and training come later, if at all.\n\"It's no more, 'What am I going to be when\nin a Patchwork of Decentralization\nI grow up?' said Larry Temple, deputy\ndirector of the Mississippi Department of\nAi\nHuman Services, which is paying private\ncompanies to place recipients in jobs. \"If\nBy JASON DePARLE\nwe've got a job that someone with a 10th-\nWASHINGTON, June 29 - The\nnation's 62-year-old welfare system,\nContinued From Page Al\ngrade education can fill, and you've got a\n10th-grade education - you working.\"\ncondemned last year by Federal law,\nTo place people quickly, almost every-wel-\nwill formally die on Tuesday, and a\nstates an additional $600 million this year\nfare office runs some sort of job-search\nseason of state legislative debate has\nfor child care. Added together, the new\nprogram, in which welfare recipients write\nbrought new clarity to the decentral-\nFederal money represents an increase of\nresumes, practice interviews and get leads\nized system rising in its place.\nabout 16 percent, or an additional $650 for\non possible openings. Almost two dozen\nIf the emerging programs share a\nevery family in the program.\nstates also have \"diversion\" programs, re-\nunifying theme, It can be summa-\nThe program, which used to be called Aid\nquiring needy people to put in as many as 20\nrized in a word work States are\nto Families with Dependent Children,\nor 30 job applications before they can receive\ndemanding that recipients find it\nserves about four million adults, most of\nbenefits.\nfaster, keep it longer and perform it\nthem single mothers, and more than seven\nThe tougher question is what comes next?\nas a condition of aid. Most states\nmillion children. As of Tuesday, it takes on a\nWhat to do for those recipients - with little\nregard even a low-paying, dead-end\nnew name to stress a new ethos of time\neducation or experience, and in some cases,\njob as preferable to the education\nlimits and work rules: Temporary Assist-\nbad attitudes and work habits - whom em-:\nand training programs they offered\nance for Needy Families.\nployers continuously turn away?\nin the past. And recipients who break\nThe combination of freedom, money and\nSome states will now pay businesses to\nthe rules are facing penalties of un-\nnew expectations has produced a moment of\nhire them, converting welfare and food\nprecedented severity.\ndizzying change. Wisconsin is essentially\nstamps into a subsidy for an employer. Ore-\nBut the hard edge also has a softer\nabolishing cash aid, substituting a giant\ngon and Mississippi have pioneered the ef-\nside. Operating the assumption\nwork program that will stretch from the\nfort, but without great success. Most busi-\n\"that\" work? requires \"support, many\nsprawling ghettos of Milwaukee to the Min-\nnesses, there and elsewhere, seem less inter-\nstates are investing in work-related\nnesota border. Oregon is putting its hopes in\nested in the temporary payments than in\nservices. Near-record increases for\nintensified casework; Texas in private con-\nfinding reliable help. In Tulsa, Okla, the\nchild care head the list; but states\ntractors. Illinois has put up $100 million of\nChamber of Commerce has gotten more\nare also spending more on transpor-\nstate money to offer child care to all low-\ndirectly involved in polishing work skills. It\ntation, job placement and programs\nincome workers, whether they have been on\nhas helped create an intermediary corpora-\nthat let working recipients keep\nwelfare or not. New Jersey has created a\ntion to give recipients entry-level work, like\nmore of their benefits even while\n$3.7 million transportation fund, to get poor\nassembling fishing tackle for a local manu-\nearning paychecks.\npeople to far-away jobs.\nfacturer. Those who perform well get recom-\nThe result is a system evolving\nAnd there are more modest innovations.\nmended to area employers.\nfrom a national safety net into a\nAn. Episcopal diocese in Warren County,\nSo far, only a few places seem willing to\nseries of state trampolines: they are\nTenn., has placed $10,000 in a revolving loan\ntake the next step: creating large numbers\nbetter equipped to lift the needy into\nfund, to help a few welfare families buy used\nof community service jobs. Though such\nthe job market, but much less cer-\ncars. A social worker in Manassas Park,\nefforts can be expensive, they may be what is\ntain to catch them during the inev-\nVa., is collecting donated clothes, to help\nneeded to make work universally available,\nitable slips and falls. Wide-ranging in\nclients look better in job interviews.\nespecially in areas where the economy sags.\nJUNE 30, 1997\nquality, some state programs can\nBut along with new opportunities, the poor\nEfforts are under way in Massachusetts\nalready boast of impressive achieve-\nface new perils. Bureaucratic errors in Mil-\nand New York City, but the leader is Wiscon-\nments, while others are still being\nwaukee have withheld benefits from thou-\nsin. Beginning Sept. 1, virtually all of the 1\ncobbled together in an atmosphere of\nsands of needy people, even though they\nstate's 42,000 welfare families will have to\nconflict and doubt.\ncomplied with the work program as in-\nwork 30 hours a week to receive benefits.\nThe Times\nIn at least one preliminary way,\nstructed. Mississippi punishes those who\nThough the emphasis is on placing them in\nthe interesting development is what\nbreak the rules by withholding food stamps\nprivate jobs, the state has vowed to create\nhas not taken place. Critics of a\nas well as cash, placing families at risk of\ncommunity service positions for those left\nstate-driven system have worried\ncomplete destitution.\nbehind.\nabout a \"race to the bottom,\" in\nIn many places, the passage of the Fed-\nThat caps a remarkable reversal from the\nwhich strapped state governments\neral legislation last August did less to inau-\nlate 1980's, when investments in education\ncut eligibility and benefits to drive\ngurate a new era than to accelerate changes\nand training were in vogue. Studies found\nthe poor away. Although that re-\nthat had already begun. That is because 46\nthat those programs had little effect while\nmains a concern when the economy\nstates were already running\nothers that emphasized immediate job place-\nfalters, it has not happened yet.\nprograms under Federal waivers. From\nment worked better. But some advocates\n\"Some people predicted it'd be a\nOregon to Virginia, from Michigan to Mis-\nworry that the pendulum has swung too far\ndisaster, obviously,\" said Donna E.\nsissippi the move toward an employment-\nin a world of diminishing returns for un-\nShalala, the Secretary of Health and\nfocused system was well under way\nskilled workers. \"You have lots of women in\nBut the states with the three largest wel-\nthe welfare system who've had one crummy\nHuman Services. But see gover-\nnors taking the extra money they\nfare populations California, New York\njob after another,\" said Sharon Parks of the\nand Texas - have mostly been absent from\nMichigan League for Human Services. \"A lot\nthe trend. By themselves, California and\nof them are not going to be in a position to\nTHE WELFARE EVOLUTION\nNew York contain nearly a third of the\nsupport themselves and their families.\"\ncountry's recipients. In these two states,\nA special report.\nrestrictive proposals from Republican gov-\nernors are being contested by Democratic\nNew Services\nlegislators. Until those disputes end, much\nbeen given and using at least some of\nof the welfare canvas remains unpainted.\nhit to provide resources to help people\nRemoving the Barriers\nAnd everywhere it is a work in progress.\nwork Over all, think there are\nThat Prevented Work\nmore resources going into programs,\nnot less.\nNew Work Rules\nIn part the new investments may\nFor many women on welfare, finding a job\nindicate that legislatures are quicker\nStates Sharing\nis the easy part. Keeping it comes harder\nto spend money on needy people\nReliable child care and transportation are\nwhen they work. But there is also an\nold-fashioned fiscal lubricant in-\nA Work Philosophy\npart of the solution, and many states are\nmaking new efforts to increase the supply of\nboth, though formidable challenges remain.\nvolved Federal dollars.\nWork - it is an order to recipients, a\n\"States are doing more than expected,\"\nThough the new system has often\nphilosophy for administrators and a man-\nsaid Helen Blank, a child-care expert at the\nbeen described as a Fcut, t will pro-\ndate under Federal law. But the ways in\nChildren's Defense Fund. \"The question is\nvide states with about $2 billion more\nwhich it is an actual program vary widely\nwill it continue?\"\nthis year than they otherwise would\nfrom state to state. Consider the differing\nsurvey by the American Public Welfare\nhave had, according to rough esti-\nemphases in Wisconsin and Michigan, whose\nAssociation found that 11 states had expand-\nmate by the House Ways and Means\nRepublican governors are typically consid-*\ned the eligibility for child-care programs and\nCommittee That is because Wash-\nered leaders of stern reform.\n20 are putting in more state money than\nington now sends the states fixed\nIn Michigan, Governor John Engler has\nrequired. \"The heat is on, people are watch-\npayments based on the welfare popu-\ninvested in caseworkers to remove the \"bar-\ning,\" said Elaine Ryan, the organization's\nlation of earlier years, even though\nriers\" to work, like an inability to patch\nlobbyist. \"It's becoming a kind of political\nthe rolls are plummeting\ntogether child care or transportation. But he\nimperative.\"\nThe Government is also giving\nhas been reluctant to create community\nThough most have expanded child care for\nservice jobs for those who do not find work\nwelfare families, a few have gone substan-\nContinued on Page All\non their own. In Wisconsin, Governor Tom-\ntially farther. Wisconsin, Illinois and Rhode\nmy G. Thompson has created thousands of\nIsland are pledging subsidized child care on\nworkfare positions. But he has been quicker\na sliding scale to any low-income working\nto assume that welfare recipients will find a\nfamily that needs it.\nway to hold them, and slower to emphasize\nPerhaps no state\nexpanded its aid\nthe kind of home visits and casework that\nMichigan employs.\nLloyd DeGrane\nAs part of its plan to eliminate welfare, Illinois has pledged to subsidize child care for any family earning less than $22,000 a year. A\ngroup of 6-year-olds played on Friday in the learning center of the Christopher House day-care program in Chicago.\nsuddenly as Illinois, which has the nation's\ntime limits. But most families are still years\nat risk. \"It's really hard to know what's the\nfourth-largest welfare population. A Republi-\naway from exhausting their eligibility.\nright thing to do,\" Ms. Pavetti said.\ncan governor, Jim Edgar, proposed adding\nMeanwhile, about 20,000 have already lost\n$70 million in state money to the Federal pot,\ntheir benefits under a different circum-\nand a legislature split between a Republican-\nstance, for failing to comply with the work\nTime Limits\ncontrolled Senate and a Democratic House\nrules.\nadded $30 million more.\n'Sanctions are a much bigger issue than\nIllinois said it can now offer a child-care\ntime limits\nmuch, much bigger\nsaid\nMany States\nsubsidy to any family earning less than about\nLaDonna Pavetti of the Urban Institute,\na\n$22,000 a year \"It doesn't matter if you're on\nWashington research group\nSet Tighter Rules\nwelfare, used to be on welfare, almost on\nStates have now made their penalties\nwelfare,\" said Michele Piel, who runs the\ntougher than ever. In the past, welfare recipi-\nAs of Tuesday, states must start limiting\nsystem for the Illinois Department of Public\nents who failed to report for work or training\nmost recipients to no more than five years of\nAid. \"We tried to wipe the slate clean, and\ntypically lost a third of their cash grant -\nbenefits in a lifetime. But a survey: by the\nenvision a system as it ought to be.\"\nabout $125 a month in an average state. But\nNational Governors, Association found at\nBut Ms. Piel warns that the increased\nas their income went down, their food stamps\nleast 20 states imposing shorter limits on all\nfinancing has solved only part of the prob-\nrose, compensating for two-thirds of the loss.\nor part of their caseload.\nlem. Shift workers, mothers with infants, and\nIf that system was essentially toothless,\nTexas has the shortest limit, of 12 months\nparents in rural parts of the state - all may\nthe new one takes a painful bite. recent\nfor those deemed most able to work. Tennes\nstill find child care in short supply. Those\nsurvey by the General Accounting Office, an\nsee has a limit of 18 consecutive months, and\nshortages could grow even more intense as\narm of Congress, found that 33 states now\nin Connecticut the limit is 21 months. Ten\nthe new system puts more mothers to work.\nstrip noncompliant families of all cash as\nstates, from Massachusetts to Oregon, have\nAnd the quality of care remains a concern.\nsistance. Some, like Michigan and Wisconsin,\ntwo-year limits, but the details vary widely\nStates are also expanding transportation\nallow recipients to immediately re-enroll and\nSome states promise extensions to those\nprograms but here the problem may be even\ncooperate. Iowa makes recipients wait six\ntrying to work. Others let recipients back on\nmore vexing. Many states offer public tran-\nmonths before they can reapply.\nthe rolls after an intervening period. So far,\nsit vouchers, but new jobs are often beyond\nIn addition, all states bar food. stamps\nMichigan is the only state pledging to ignore\nthe reach of bus and rail lines. Cars are often\nfrom rising, and Mississippi goes even fur-\nthe limits altogether. While states can use\nunaffordable, and van pools can be difficult\nther eliminating all cash and food stamps\nFederal money to provide extensions to 20\nto coordinate,\nto those who do not comply with the work\npercent of the caseload, Michigan officials\n'I'm surprised at how much attention\nprogram. Of the 7,200 families in an experi-\nhave said they will help any recipient who\nS are paying to the issue,' said Mark\nmental program there, as many as 19 per-\ncomplies with the work rules.\nAlan Hughes, a researcher at Public/Private\ncent temporarily lost all their aid. \"We're\nSome states have considered letting indi-\nVentures in Philadelphia and a leading ex-\ntalking about people who are refusing to go to\nvidual counties set time limits of their own\npert the transportation problems of the\nwork to feed their children,\" said Mr. Tem-\nRepublicans in Colorado pushed such a plan,\npoor But the next step's the harder part:\nple, the Mississippi official:\nbut they were thwarted by the state's Demo-\nHow do you solve it?\"\nBut in a time of sweeping bureaucratic\ncratic Governor, Roy Romer. Critics of such\nWhile welcoming this early expansion of\nchange, mistakes are easily made. The\nlocal autonomy worry that localities will\nservices, skeptics worry that it will prove\nG.A.O. report found that 44 percent of the\nabuse it to drive poor families away. In\nephemeral. Even in these flush times, most\npenalties imposed in the first five months of\nColorado, skeptics issued a warning Wel-\nstates are not reinvesting their full Federal\nMilwaukee's program were later overturned\nfare reform is not a bus ticket to Denver.\nwindfall, using part of instead to offset\nwhen officials discovered they had made\nIn at least one important, but little-noticed\nother state spending. When the economy\nerrors. \"That's outrageous,\" Ms. Shalala\nway, welfare policy is now at odds with itself.\nfalters, the skeptics worry, the new services\nsaid. \"The minimum we should expect is that\nWhile time limits are in, so are state plans\nwill disappear. The time when a race to the\nwe're not making mistakes with people's\nthat let recipients keep benefits while they\nbottom will happen is when a recession hits,\nlives.\"\nwork - extending their stay on the rolls and\nsaid Wendell Primus, a former Federal wel-\nAvoiding mistakes may be harder than it\nfurther eating into the clock. \"It may be that\nfare official who resigned to protest the new\nseems. After starting a strict work program\nworking families become some of the first\nlaw and who now works as an analysta the\na few years ago, Utah officials began a study\ncasualties of time limits,\" said Mark Green-\nCenter on Budget and Policy Priorities, a\nof about 100 families punished for failing to\nberg, a lawyer at the Center on Law and\nWashington advocacy group.\ncooperate. In about half of those cases, the\nSocial Policy who is critical of the limits.\nofficials discovered factors that the social\nAs states succeed in winnowing their rolls,\nworkers had not understood.\nthey may also find that those left behind have\new Penaltles\nOne woman who lost her benefits was\nespecially difficult problems problems that\nalready enrolled in a training program. An-\na time limit alone will not solve. That has\nToothless Rules,\nother had a phobia about leaving her home.\nbeen the case in Utah, where the rolls have\n\"We found we were sanctioning people we\nfallen by 35 percent over the last four years.\nThen Painful Ones\nshouldn't be sanctioning.\" said Bill Biggs, the\n\"We weren't prepared for the group left\nUtah official who supervised the program\nbehind,\" said Mr. Biggs, the former Utah\nbefore his recent retirement.\nofficial. \"Over time they can move off the\nThose who fear that the new system will\nharm poor families have typically focused on\nWhat happens to poor families that sud-\nrolls, but It's a much more gradual process.\"\ndenly lose aid? No city has cut off as many\nWhat percentage of the caseload will re-\nfamilies as Milwaukee, where the penalized\nmain behind is anyone's guess. While the law\nseem to fall into several rough groups. Some\nexempts 20 percent, Mr. Primus has estimat-\nhave ignored the work rules because they\ned that as many as half of the families on the\nhad other options - a secret job, a boyfriend\nrolls may hit a five-year limit: So far, limits\nto support them, a child receiving a disability\nhave elapsed only in one experimental pro-\ncheck. They have been able to replace, or\ngram, in Pensacola, Fla., where about 130\nDependent Children.\neven surpass, their lost welfare income. Oth-\nfamilies have been dropped from the rolls\ners, befogged by drugs or depression, have\nTo the surprise of local officials, recipients\ncrowded the shelters where the numbers of\nthere largely ignored the two-year limit\nwomen and children are at record highs.\nregarding the deadline as a long way off\nThough small as a percentage of the declin-\nAmong them was Theresa Sledge, 22, who\ning caseloads there, these newly homeless\nhas a 7-year-old son, a toddler, and another\nfamilies may well number in the hundreds.\nbaby on the way. At first her social worker\nThe one quantitative study available\nurged her to join a training program, pledg-\npoints toward a similar pattern, of punished\ning the necessary child care and transporta-\nfamilies falling into two broad categories.\ntion. Then, as the clock ran down, the worker\nMathematica Policy Research, Princeton,\nurged Ms. Sledge to find a job. Failing to do\nconsulting firm, recently tracked down\neither, Ms. Sledge now lives in a rickety\n-137-Iowa families that had lost their benefits\ntrailer, feeding her children on food stamps\n1980\n1985\n1990\n1995\nOf them, 40 percent saw their incomes\nand scrounging underwear and tollet paper\nrise, by an average of $496 a month. But 49\nfrom friends. \"Hardship is not the word for\npercent lost an average of $384 a month, in\nit,\" she said. \"They had told me it was going\nincomes already low enough to put children\nto happen, but it just didn't sink in.\"\ntogether child care or transport But\nfiding\nhas been reluctant to create community\nfamily that needs it.\nThose who fear that the new system\nservice jobs for those who do not find work\nPerhaps no state has expanded its aid as\nharm poor families have typically focused on\nWhat happens to poor\non their own. In Wisconsin, Governor Tom-\ndenly lose aid? No city has cut off as many\nWhat percentage of the caseload will re-\nmy G. Thompson has created thousands of\nfamilies as Milwaukee, where the penalized\nmain behind is anyone's guess. While the law\nworkfare positions. But he has been quicker\nsèem to fall into several rough groups. Some\nexempts 20 percent, Mr. Primus has estir\nto assume that welfare recipients will find a\nAT A GLANCE\nhave ignored the work rules because they\ned that as many as half of the families on the\nway to hold them, and slower to emphasize\nhad other options - a secret job, a boyfriend\nrolls may hit a five-year limit. So far, limits\nthe kind of home visits and casework that\nThe Welfare Rolls\nto support them, a child receiving a disability\nhave elapsed only in one experimental pro-\nMichigan employs.\ncheck. They have been able to replace, or\ngram, in Pensacola, Fla., where about 1\nWhat virtually all states now share is a\nNumber of recipients of Aid to Families with Dependent Children.\neven surpass, their lost welfare income. Oth-\nfamilies have been dropped from the rolls.\nnew philosophy, summarized in the phrase,\ners, befogged by drugs or depression, have\nTo the surprise of local officials, recipients\n\"work-first.\" Though Federal law requires\ncrowded the shelters where the numbers of\n15 million\nthere largely ignored the two-year limit,\nrecipients to work within two years, few\nwomen and children are at record highs.\nregarding the deadline as a long way off.\nstates are letting them wait that long. Educa-\nThough small as a percentage of the declin-\nAmong them was Theresa Sledge, 22, who\n12\ntion and training come later, if at all.\ning caseloads there, these newly homeless\nhas a 7-year-old son, a toddler, and another\n\"It's no more, 'What am I going to be when\nfamilies may well number in the hundreds.\nbaby on the way. At first her social worker\nI grow up?' said Larry Temple, deputy\n9\nThe one quantitative study available\nurged her to join a training program, pledg-\ndirector of the Mississippi Department of\npoints toward a similar pattern, of punished\ning the necessary child care and transporta-\nHuman Services, which is paying private\n6\nfamilies falling into two broad categories.\ntion. Then, as the clock ran down, the worker\ncompanies to place recipients in jobs. \"If\nMathematica Policy Research, a Princeton,\nurged Ms. Sledge to find a job. Failing to do\nwe've got a job that someone with a 10th-\n3\nN.J., consulting firm, recently tracked down\neither, Ms. Sledge now lives in a rickety\ngrade education can fill, and you've got a\n137 Iowa families that had lost their benefits.\ntrailer, feeding her children on food stamps\n10th-grade education - you're working.\"\n1960\n1965\n1970\n1975\n1980\n1985\n1990\n1995\nOf them, 40 percent saw their incomes\nand scrounging underwear and toilet paper\nTo place people quickly, almost every wel-\nrise, by an average of $496 a month. But 49\nfrom friends. \"Hardship is not the word for\nfare office runs some sort of job-search\nSource: U.S. Department of Health and Human Services\npercent lost an average of $384 a month, in\nit,\" she said. \"They had told me it was going\nprogram, in which welfare recipients write\nincomes already low enough to put children\nto happen, but it just didn't sink in.\"\nClinten Will Americans\nNowb\nles\nKeay, Maurice provides Payne, 40, a patient of\nэм.,\n10\nrules\nand\nat medical\nIcs that some dying people need.\nteaching\ntheir techniqu\nTHE NEW YORK TIMES NATIONAL MONDAY, JUNE 30, 1997\n+\n3N\nAIO\nhark\nThe Washington Post\nFINAL\nlavid Washington Business\n1-mp\nN/A\nsubjects Page 12\n120m\n207\nMONDAY. It NE30. 1997\nMay\nthe\n25c\nTyson's Conduct Under Review\nNevada Athletic Commission, Las Vegas Police Investigate light, Aftermath\nBy William Gildea\nlie likely will deed reconstructive surgery\nhaps for six months or a year. Most state\nto restore the car's normal appearance\nathletic commissions honor decisions\naccording to the plastic surgeon who treat\nmade in other states, so a suspension in\nLAS VEGAS, June 29-After igniting one\ned Holyfield on Saturday night.\nNevada would virtually guarantee yet an-\nof the aglicat and most bizarre nights in the\nA ring melee among members of both\nother interruption in the career of fighter\nhistory of professional championship box-\nfighters camps ensued after'referee Mills\nwho has gone from giving heavyweight\ning: Mike Tyson today found himself facing\nLane halted the light. Videotape of the\nboxing the frightening romance of a seem-\na Las Vegas police investigation and sanc\nbrawl shows that Tyson. trying to make his\ningly invincible predator to further soiling\ntions from the Nevada State Athletic Com-\nway across the crowded ring, struck Las\nsport that already appeared indelibly\nmission.\nVegas police officer on the chest. The\nstained.\nTyson. once the most feared man in the\ndistrict attorney's office and police detec-\n\"It's over. know it's over. My career is\nsport. enabled Evander Holyfield to retain\ntives will investigate the incident this week.\nover. Tyson said in his dressing\nthe World Boxing Association heavyweight\nLt. Dennis Cobb. a police spokesman. said.\nSaturday night, according to the Associated\ntitle Saturday night by billing Holyfield oh\nCobb added that Tyson could be charged\nPress.\neach ear during the final minute of the third\nwith misdemeanor battery if he was found\nBut the biting and postflight brawl were\nround of their scheduled 12-round bout at\nto have had the \"intent\" to strike the officer\nonly part of the chaotic night at the MGM\nMGM Grand Garden.\nMare Ratner, executive director of the\nGrand Hotel which has been the site of\nTyson's shockingly graphic-and seem\nNevada State Athietic Commission. an\nnumerous title fights.\ningly premeditated- retaliation for a sec-\nnounced Saturday night that Tyson is tem-\nMinutes after the fight ended. panic\nond-round head butt from Helyfield result-\nperarily suspended and his 830 million\nerupted in the lobby and casino areas of the\nREL\nMAIL\ned in his disqualification after the third\npurse is being withheld. The athletic com-\njam-packed hotel as people took cover\nMike Tveon is restrained as he tries to force his way across boxing ring after his heavyweight title bout with\nround. It also left Holyfield without a one-\nmission could fine Tysen up to 10 percent of\nfearing that gunshots had been fired.\nHolyfield ended in Tyson's disqualification for biting Holyfield on both ears. More stories on Page D1\ninch by chunk of his right ear.\nhis purse and extend his suspension. per-\nSee BOXING.A6,\nBacklash\nClinton Backs\nBuilds Over\nNo New Taxes\nManaged Care\nOn Internet\nFrustrated Consumers\nPush for Tougher Laws\nMarket-Oriented Approach\nTo Shape Online Commerce\nBy David S. Hilzenrath\nWashington\nBy Rajiv Chandrasekaran\nA political backlash is building against\nmanaged care across the country as doctors\nand patients protest what they see as poten-\nAfter a two-year study Into the growing world\ntially dangerous penny-pinching by the\nof Internet commerce. the Clinton administra-\nhealth-care industry. Consider:\ntion has decided not to call for new taxes or\nin Missouri, the governor last week signed\nregulations on business conducted over the\na bill requiring managed-c companies to\nglobal computer network and instead will large\nDay for emergency room visits whenever a\nby allow the private sector to determine how it\nlayperson\" would have reason to\nwill operate in cyberspace.\nbelieve that immediate care is needed. even if\nThe administration's stance. detailed in a\na managed-care administrator might dis-\nMOURNING A MOTHER, TEACHER, LEADER\nreport scheduled to be released tomorrow by\nagree.\nPresident Clinton, is a marked departure from\nIn Hardlord, Conn. center of the nation's\nSurrounded by her sisters, Attailsh Shabarz speaks to thousands\nservice for her mother, Botty Shabarz. Her sisters, from left. are\nthe federal government's practice of closely\ninc\nindustry, the state legislature last\nwho jammed into Riverside Charch in New York at a memorial\nMalask, Malkah, Qubliah, Gamilah and llyasah. Story, Page AS.\nregulating other electronic networks. such as\nmonus approved a bill that would allow\ntelephones, television and radio.\npatients to appeal to the state Insurance\nAdministration officials and technology in\ncommissioner when health plans decide not\ndustry leaders contend that new laws and taxes\nto pay for their medical treatment.\n'Megan's Law,' Others Languish in D.C.\ncould stymie development of electronic com-\nAnd Texas last month made h possible for\nmerce If left loosely regulated. Internet trade is\nto sue health maintenance orga-\nexpected to reach $200 billion in the United\narranons for medical malpractice, removing\nStates by 2000, Industry analysts said.\na barrier that had shielded them from liabili-\nCouncil Members Complain That Barry Administration Ignores Their Wishes\n\"Commerce on the Internet could total tens of\nby\nbillions of dollars by the turn of the century. the\nThe legislation reflects consumer frustra-\nreport's final draft said. \"For this potential to be\ntion with managed care, the cost-conscious\nform of health insurance that has grown over\nBy Vernon Loeb and Hamil R Harris\n\"As soon as the law takes effect, they\nThe council passed a law requiring that\nrealized fully. governments must adopt a non-\nWashington\nshould have provisions in place to regis-\nall children entering school be screened\nregulatory, market-oriented approach\nthe past decade from obscurity to cover an\nter these people,\" council member Jack\nfor lead poisoning and mandated that\nIndustry leaders who have seen draft versions\nestimated three-quarters of the nation's pri-\nPrompted by the 1994 rape and murder\nEvans (D-Ward 2), chairman of the Judi-\ndoctors report the test results. But the\nof the report commended the administration's\nvate-sector workers. Doctors and patients\nof 8 7-yearold New Jersey girl, the D.C.\nclary Committee. said last week in an\n1993 law bas been ignored: Children\napproach, saying that businesses need the in-\nbeen calling for curbs on the managed-\nCouncil approved a version of \"Megan's\ninterview. \"But there's no preparation. no\naren't being screened.\ncentive of regulatory freedom to embrace elec\ncare industry's powers. arguing that some\nLaw\" that requires city officials to create a\nprocess in place-no nothing. It is outra-\na The council made headlines in 1995 by\ntronic commerce, a step many corporations\ncompanies are profiteering at the expense of\nregistry of convicted sex offenders and\ngeous. But not surprising.\"\npassing conservative welfare reform leg-\nrecently have been taking with trepidation.\npatient care, making It difficult for people to\ntell communities in which they live of\nEvans and many of his council col-\nislation well ahead of the federal govern-\nConsumers, too, have been cautious about\nget quality medical attention.\ntheir presence.\nleagues say the failure to follow through\nment. The D.C. Department of Human\nmaking purchases online.\nOfficials in dozens of states have respond-\nBut almost four weeks after it was\non the sex offender registry is sadly\nServices, concerned about lack of fund-\nThe report also highlights a stark shift in the\ned by stitching together a patchwork quilt of\nsupposed to take effect. nothing has\ntypical of a system in which ordinances\ning. waited 10 months before seeking\nadministration's policy toward adult material on\nnew regulations. Some of the measures have\nhappened: There is no registry of people\nthey approve often are neither imple-\nrequired federal approval. The approval\nthe Internet following last week's Supreme\nby overwhelming. even unanimous.\nconvicted of sexual violence or crimes\nmented nor enforced in timely fashion by\nwas denied.\nCourt decision striking down as unconstitution\nmargins.\nagainst children-end police officials said\nthe Barry administration.\n. The council cracked down on unrego-\nal a federal law that would have criminalized\nSee MANAGED CARE. A6, Col. 1\nthey have never even heard of the law.\nExamples abound:\nSee COUNCIL.A9, Col.\nSee INTERNET,A7,Col.1\nD.C. Boy,\nINSIDE\nIn Welfare Decisions, One Size No Longer Fits All\n7, Is Killed\nBy Barbara Vobejda\ndiscretion to offer different kinds of\nfare. began to take root before pas-\nmust states treat all needy people\nand Judith Havemann\nassistance to different welfare fami-\nsage of the federal law last summer.\nexactly the same.\nIn Shooting\nWashington First\nlies. in number of states, for exam-\nbut It has accelerated enormously\nThe most obvious sign that the\nple. welfare offices and caseworkers\nsince-as states devise their plans to\nworld of welfare is changing 19.8\nAs states propose their plans for\nare free to determine which welfare\nadminister the welfare law in time to\nsharp decline in caseloads-9 per\nimplementing the welfare overhaul\nmothers must go to work, and how\nmeet the July 1 deadline set by\ncent since last July and 20 percent\nBy Allan Lengel\napproved by Congress last year. it is\nsoon; which will be offered a one-\nCongress.\nover four years-which experts be\nclear that many of them have re-\ntime payment and which will be\nThe law required states to move\nlieve is the result of healthy econo\nthought a key principle of social\ngiven ongoing benefits. In some\nhalf their caseloads into jobs within\nmy and these policy changes.\nA 7-year-nid boy riding in a car\npolicy: A welfare program that dis\nstates, caseworkers can decide how\nfive years and set time limit on how\nLens apparent to the outside world\nwith his father was shot and killed\npenses checks without reference to 2\nlong a family can receive benefits:\nlong any individual can receive bene-\nare changes in welfare offices across\nlast night in an apparent drive\nrecipient's personal circumstances is\nThis departure from a standard\nfits. And by ending the six decade\nthe country. where workers are now\n<hooting outside a fast fond restau\nLast Rites,\nno longer suitable\nized system. like a flurry of other\nold guarantee of benefits to cligible\nbeing told they can make their our\nrant in Southeast Washington\nCaseworkers are being given the\nPolice skid the gunman appear\nLost Rights\nstate activity in restructuring wel-\nfamilies. it signated that no longer\nSee WELFARE.AN.Col.2\nto be firing directly at the car that\nIn Hong Kong. Sinion\ncarried Dennis Ashton although\nVallance and Jeanette\n\" was unclear who the intended\nHegerly were the last couple\nvictim was\nto be married under British\nSeizure of 1979 Art Film Draws Fire\ndon't this would happen\nrule making their marriage\nif it were random act. said DC\ncertificate with its royal seal\npolice u Scott P. Dignan\nan instant collectible Also,\nNo one had been arrested early\nBritain's Prince harles\nOklahoma Police Raids to Confiscate \"In Drum' Raise Privacy Issues\nthis morning\nbestowed knighthoods on\nDennis who hved in the 200 blen\nTwo promitent residents of\nBy Lois Romano\nChildren and Families, \"and that's all needed\nof 17th Street NE. was pronound\nHong Kongjust before\nto hear.\ndead about 8:30 p.m at Children\nBritain lurns control of the\nWithin 72 hours. Anderson. 67. managed to\nHospital No one else injured\nterritory over to China at\nTUISA. June 29-Fur Bob Anderson. it was\nget Oklahoma City law enforcement authorities\nThe buy was riding in the rear seat\nmidnight tonight\nnothing short of diving providence that he was\nand judge to agree that the 1979 anti-Nazi film\nof # Ford Probe with his father\nWORLD. Page land 11.\nlistening to a Christian radio station when the\nconsidered high an for nearly two decades\nDennis Ashton. 26, at the wheel and\nDavid Bennent as Oshar in The Tin Drum.\"\ntalk show herst began lengthy diatribe against\nviolated state observity laws and was in fact\nanother than in the truel passengs\nThe Post on the Internet\nseal They had stopp about li III\nthe Oscar winning German him The Tin\ncontraband\nwww.washingtenpost.com\nThe result was a hizarre police raid on video\nbesieged Oklahoma County District Judge\npm to pack пр lovel al a don't\nDrum\nstores and private honux last week. which has\nRichard Freeman. who knid the police asked\nthrough window of the Popeves\n\"11. said it could In judged pernographic\ncreated a run on the critically acclaimed film\nhim to confirm that a scene of a young boy\nint\nFohrmans\n10\nand\n...\nall\n\"\n.............\n......\nand\nmedia\nfre\nengaging in oral with : termare pit) did\nWELFARE, From A1\ndecisions about what is best for an individual family.\nFreedman, from the Welfare Law Center, questions\n. Twenty- states are instituting \"diversion\" programs,\nthe wisdom of all that discretion. recalling anecdotes\none-time payments meant to keep families from ever\nfrom earlier this century about East European immi-\ncoming onto the welfare rolls. In some states, the\ngrants who received lower benefits because casewo\nA1\nBy Barbara Vobejda\npayments are uniform, but in others, caseworkers can\nbelieved they were used to-getting-by on less than West\nand Judith Havemann\ndetermine for each family that comes before them how\nEuropeans.\nWashington Post Staff Writers\nmuch cash to hand out and whether families should also\n\"The big fear in my mind is that you could get\nreceive child-care subsidies and other assistance. In\npersonal decisions based upon a personal dislike of the\nAs states propose their plans for\nsome states, including Virginia, families who accept a\nindividual,\" he said. Caseworkers may be poorly trained,\nimplementing the welfare overhaul\nlump sum for staying off the rolls are barred from\nmean-spirited or simply overwhelmed from \"dealing day\napproved by Congress last year, it is\nreceiving welfare for a certain period of time.\nafter day with desperately needy, sometimes hostile\nclear that many of them have re-\n. Numerous states are requiring individualized \"person-\npeople, he said.\nthought a key principle of social\nal responsibility\" contracts, written by recipients and\nWhether caseworkers have the training and\ne to\npolicy: A welfare program that dis-\ncaseworkers, that tailor the treatment of families by\nhandle the new demands has come up in Utah, which\npenses checks without reference to a\nspelling out when adults must go to work and the length\nbegan experimenting four years ago with individualized\nrecipient's personal circumstances is\nand type of training they will receive.\nplans to get every welfare recipient moving 1\nd\nIn Welfare Decisions, One Size No Longer Fits All\nno longer suitable.\n. Thirteen states plan to pay lower benefits to welfare\nself-sufficiency.\nCaseworkers are being given the\nfamilies moving in from states that offer less assistance,\n\"It is not even in the same universe what is expected of\ndiscretion to offer different kinds of\naccording to the National Governors' Association. While\ncaseworkers\" under the new individualized system, said\nassistance to different welfare fami-\nthese \"two-tiered\" systems were considered illegal under\nRobin Arnold-Williams, director of the Utah Department\nlies. In a number of states, for exam-\nthe previous federal law, Congress attempted to change\nof Human Services. \"Some of our staff have not been able\nple, welfare offices and caseworkers\nthat in the new measure. This approach too could make\nto make that transition.\"\nare free to determine which welfare\nfor situations in which welfare families of identical size\nShe said the state has invested in extensive training for\nmothers must go to work, and how\nliving next door to each other could receive different\nthose caseworkers who are struggling with the new\nsoon; which will be offered a one-\nbenefits.\nsystem, and it is now more likely to hire trained social\ntime payment and which will be\nAll of this essentially rejects recent decades of welfare\nworkers than it was in the past.\ngiven ongoing benefits. In some\npractice, which was built on a philosophy that standard-\nPrim Burgle, a clinical social worker employed by the\nstates, caseworkers can decide how\nized treatment was the best way to ensure equity.\nstate of Utah, said she frequently sees caseworkers \"from\nlong a family can receive benefits.\n\"Our zeal not to be unfair had driven judgment out of\nthe old school\nSome people get into this kind of work\nThis departure from a standard-\nthe process, and you ended up with a cookie-cutter\nmentality,\" said Don Winstead, Florida's welfare reform\nbecause it's a power trip for them. They get these poor\nized system, like a flurry of other\nadministrator. But the change has also drawn critics who\npeople in their office and put them down.\"\nstate activity in restructuring wel-\nworry that caseworkers may not receive enough training\nAnd the system allows inconsistency, said Gina Cornia,\nfare, began to take root before pas-\nbefore wielding such power over people's lives. They\na welfare specialist at a Salt Lake City advocacy group\nsage of the federal law last summer,\nargue that the new discretion could bring a return to days\nknown as Utah Issues. She said some caseworkers are\nbut it has accelerated enormously\nwhen some poor families were turned away because of\ntelling recipients they must quit school and find a job,\nsince-as states devise their plans to\nrace or other prejudices among caseworkers.\nwhile others are allowing recipients to stay in school\nadminister the welfare law in time to\n\"My concern is not over different approaches for\nwithout losing benefits.\nmeet the July 1 deadline set by\ndifferent people, but whether it's done in a system where\n\"They'r telling them anything they want to tell them,\"\nCongress.\nthere are standards, or where, willy-nilly, caseworkers\nCornia said.\nThe law required states to move\ncan do what they like,\" said Henry-Freedman, an attorney\nThat new power rankles Sara Wethall, a 44-year-old\nhalf their caseloads into jobs within\nwith the Welfare Law Center in New York.\nmother who has been on welfare since 1993, when she\nfive years and set a time limit on how\nThe goal may be individualized treatment, Freedman\nand her husband divorced. Wethall, who has physical\nlong any individual can receive bene-\nsaid, but \"the reports we get are that, in fact, caseworkers\ndisabilities that limit her movement, just earned a\nfits. And by ending the decade-\nare overloaded, undertrained and pushing participants\ntwo-year degree and wants to finish college and become a\nold guarantee of benefits to eligible\nthrough in a hasty, arbitrary manner once again.\"\nteacher. She said her caseworker initially told her she\nfamilies, it signaled that no longer\nThis debate over the proper balance of equity and\nmight be able to continue, but since has indicated she\nmust states treat all needy people\nflexibility is being played out in the lives of individuals\nmust find a job.\nexactly the same.\nacross the country as states embrace this new approach\n\"To rip it away and say you take a minimum wage job\nThe most obvious sign that the\nto delivering social services.\nseems absurd,\" she said. \"You can't go any further,\nworld of welfare is changing is a\nFor Theresa Brown in rural West Virginia, this new\nwithout a bachelor's.\"\nsharp decline in caseloads-9. per-\nlatitude made it possible for her to receive a one-time\nAlso, her caseworker has said the state would continue\ncent since last July and 20 percent\nstate payment of $603 for car repairs, allowing her to take\nto subsidize her child care and medical coverage for\nover four years-which experts be\na job as a cook and keeping her off the welfare rolls.\nthree years while she is working. But if she could\nlieve is the result of a healthy econo-\nFor welfare recipient Lori Charboneau, who lives in the\ncomplete college, she argued, \"I could be completely off\nmy and these policy changes.\nSalt Lake City area, it meant she could receive a year and\nthe system in two years.\"\nLess apparent to the outside world\na half of state-financed counseling for depression before\nBut that same kind of broad discretion allowed Lori\nare changes in welfare offices across\nshe was expected to look for a job.\nCharboneau the time she needed to pull together\nthe country, where workers are now\nBut for Sara Wethall, another Utah resident, it brought\npsychologically and find a job.\nbeing told they can make their own\nconfusion and anger: She has been told she can no longer\nCharboneau, a 34-year-old single mother, said she\nSee WELFARE, A8, Col. 2\nattend college and receive benefits, while some others in\nwent through a period of \"bad, deep depression,\" when.\nthe state are being allowed to finish school.\n\"all I could do was to get out of bed.\" Her caseworker told\nUnder the previous system, caseworkers simply calcu-\nher she could stay on welfare and postpone work while\nlated how much a family could receive each month, rarely\nfocusing on the specific problems that kept adults from\nshe received therapy.\nand\nworking.\nSo she began taking a drug to ease her depression and\nBut now, workers must immediately look for individual\nfor about 18 months, she saw her counselor once a weeks\ncircumstances that could entitle applicants to special\nEventually, she found an accounting job with the state\nservices or exemptions: Are they victims of domestic\nand now is off welfare, but still receives a housing subsidy\nabuse? Or drug users? Are they disabled? Are their skills\nand help with child care.\nso low they could never support themselves?\n\"I wouldn't be where I am today\" without the time\n\"That is a big change from the past,\" said Jason Turner,\ncounseling, she said.\nexecutive director of the Center for Self-Sufficiency in\nShe figures even if she had been able to find work\nWisconsin. Caseworkers, he said, \"were told to shut up\nduring that time, she would still be suffering from\nand be quiet and issue the checks.\" The new authority\ndepression. \"I would be worse off.\".\ninvested in workers, he predicted, will transform the\nculture of welfare offices.\nRobert A. \"Buz\" Cox III, director of social services for\nthe city of Charlottesville, said some of the efforts afoot\ndo require that caseworkers be allowed wide latitude.\n\"Some agencies may be reluctant. But you have to feel\nyou hire good professional staff, train them well, then\ntrust them.\" he said.\nThe Washington Post\nMONDAY, JUNE 30, 1997"
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