Child Support Enforcement: Program Basics

^Pr^ep^ar^{ed f}^o^r^M^e^m^b^ers^an^d^Com^mⁱ^t^t^ees^of^C^ong^r^e^ss

The Child Support Enforcement (CSE) program was enacted in 1975 as a federal-state program
(Title IV-D of the Social Security Act) to help strengthen families by securing financial support
for children from their noncustodial parent on a consistent and continuing basis and by helping
some families to remain self-sufficient and off public assistance by providing the requisite CSE
services. Over the years, CSE has evolved into a multifaceted program. While cost-recovery still
remains an important function of the program, its other aspects include service delivery and
promotion of self-sufficiency and parental responsibility. In FY2007, the CSE program collected
$24.9 billion in child support payments and served nearly 15.8 million child support cases.
However, the program still collects only 19% of child support obligations for which it has
responsibility and collects payments for only 55% of its caseload. This report will be updated to
reflect new data or program developments.

The CSE program, Part D of Title IV of the Social Security Act, was enacted in January 1975
(P.L. 93-647). The CSE program is administered by the Office of Child Support Enforcement
(OCSE) in the Department of Health and Human Services (HHS), and funded by general
revenues. All 50 states, the District of Columbia, Guam, Puerto Rico, and the Virgin Islands ¹
operate CSE programs and are entitled to federal matching funds. Families receiving Temporary
Assistance to Needy Families (TANF) benefits (Title IV-A), foster care payments, or Medicaid
coverage automatically qualify for CSE services free of charge. Collections on behalf of families
receiving cash TANF block grant benefits are used to reimburse state and federal governments for
TANF payments made to the family. Other families must apply for CSE services, and states must ²
charge an application fee that cannot exceed $25. Child support collected on behalf of
nonwelfare families goes to the family, usually through the state disbursement unit.
Between FY1978 and FY2007, child support payments collected by CSE agencies increased from
$1 billion in FY1978 to $24.9 billion in FY2007, and the number of children whose paternity was
established or acknowledged increased from 111,000 to 1.729 million. However, the program still ³
collects only 19% of child support obligations for which it has responsibility and collects
payments for only 55% of its caseload. OCSE data indicate that in FY2007, paternity had been
established or acknowledged for 87% of the 10.5 million children on the CSE caseload without
legally identified fathers. The CSE program is estimated to handle at least 50% of all child
support cases; the remaining cases are handled by private attorneys, collection agencies, or
through mutual agreements between the parents.
Table 1. Child Support Data—FY2007 (Preliminary)
^{Total CSE caseload}^Total^{, 15.8 million;}^TANF^{, 2.1 mil}^li^on;^former-TANF^{, 7.2 milli}^on;^never-TANF^{, 6.4 mill}^ion
^{Total CSE col}^lections^Total^{, $24.85}⁵^billi^on;^TANF^famili^{es, $0.94}^{6 billion;}^former-TANF^{, $9.47}^{0 billion;}^never-
^TANF^{, $11.32}²^billi^{on (plus $}^3.11^{6 billion on behalf of Medicaid-only families)}
^{Payments to families}^Total^{, $22.8}^billi^on;^TANF^{, $133}^m^ill^ion;^former-TANF^{, $8.3 billi}^on;ⁿ^ever^-^TANF^{, $11.3}
^billi^{on (plus $3.1}^{billion on behalf}^{of Medicaid-only famil}^ies)
^{Federal share of TANF}^$1.05^{4 billi}^on
^collecti^ons
^{State share of TANF}^$85^{2 million}
^collecti^ons
^{Medical support}^$15^{4 million}
^payment^s

¹^Sta^t^e^s^w^e^r^e^his^t^or^ic^a^l^l^y^r^e^quir^e^d^{to pr}^ov^ide^C^S^E^s^e^r^v^ic^e^s^{to I}^ndiaⁿ^tr^ibe^s^aⁿ^{d tr}ⁱ^b^a^l^or^g^a^niz^a^tio^ns^a^s^pa^r^t^of^the^C^S^E
^c^a^s^e^l^oa^ds^{. T}^h^e¹⁹⁹^{6 w}^e^lf^a^r^e^r^e^f^o^r^m^law⁽^P^.L^{. 10}^4-¹⁹³⁾^a^l^l^o^w^e^{d dir}^e^c^t^f^e^de^r^a^{l f}^unding^of^tr^iba^l^C^S^E^pr^og^r^a^m^s^a^t^a^90%
^f^e^de^r^a^l^m^a^tc^hing^r^a^te^{. C}^u^r^r^e^ntly^{, t}^w^e^l^v^e^I^ndiaⁿ^T^r^ibe^s^or^tr^iba^l^or^g^a^niz^a^tions^ope^r^a^te^C^S^E^pr^og^r^a^m^s^{. T}^h^ey^a^r^e^the
^Ch^ero^k^{ee Nat}ⁱ^oⁿ^,^C^hⁱ^c^kasa^w^Natⁱ^oⁿ^,^F^o^rest^C^o^un^t^y^P^o^t^a^w^a^t^o^mⁱ^,^L^{ac d}^u^F^l^am^b^eau^T^rⁱ^b^e,^L^u^mmⁱ^N^a^tⁱ^o^n,^M^e^no^mⁱⁿ^ee
^T^r^ibe^,^Na^v^a^{jo Na}^{tion, Osa}^g^e^Na^tion,^Port^G^a^m^b^le^S’Kla^lla^m^,^Puy^a^llup^T^r^ibe^,^Sisse^to^n-W^a^hpe^ton^Si^oux^T^r^ibe^,^aⁿ^{d the}
^T^ling^{it a}^{nd Ha}^ida^T^r^ibe^.
²^P^.^L^.¹⁰^9-1⁷¹^,^e^f^fe^c^tiv^e^O^c^tobe^r^{1, 2}⁰⁰⁶^,^re^quire^s^f^a^m^ilie^s^tha^t^ha^ve^ne^v^e^{r be}^eⁿ^on^T^A^N^F^{to pa}^y^a^{$25 a}ⁿ^nua^l^us^e^r^f^e^e
^w^h^en^chⁱ^l^d^sup^p^o^r^t^en^f^o^rcem^en^t^e^f^f^o^rt^{s o}ⁿ^t^h^ei^{r b}^e^h^a^l^f^{are su}^cces^s^f^u^l⁽ⁱ^.^e^.^,^at^l^east^$5⁰⁰^ann^u^a^l^l^yⁱ^s^co^l^l^ect^ed^on^t^h^ei^r
^be^ha^lf⁾^.
³^{In FY}²⁰^07,^$¹³⁸^.0^bil^lio^{n i}ⁿ^c^h^il^{d su}^pp^{ort o}^b^lig^a^tio^{ns ($}³⁰^.8^bill^io^{n in}^c^u^rre^nt^sup^por^{t a}ⁿ^d^$¹⁰⁷^.2^bi^llionⁱⁿ^pa^st-d^ue
^supp^{ort) w}^a^{s ow}^e^d^{to f}^a^m^ilie^{s re}^c^e^iv^ing^{CSE se}^rv^ic^e^s^{, but o}ⁿ^ly^$26^{.1 b}^illi^{on w}^a^{s pa}^{id (}^$¹⁸^.8^bil^lioⁿ^c^u^rre^nt,^$7.³
^billi^{on pa}^st-d^ue^).

^{Total CSE expenditures}^$5.59⁴^billi^on;^{federal share}^{, $3.69}^{2 billion,}^{state share}^{, $1.902}^billi^oⁿ
^{Incentive payme}^nts^to^{Maximum statutory}^a^{mount $4}⁷¹^milli^on
^states
^{Paternities established and}^1,72^9,14¹
^acknowledged
^{Support orders}^established^1,17^7,58^{9 (includes only new}^{orders; excludes}^{modifications)}
^Collect^{ions made}^{For 8,684,7}⁸⁸^total^families;^TANF^{families, 709,95}^0;^former-TANF^fa^{milies, 3,996,678;}
^never-TANF^{families, 3,978,160}
^Source:^{Table pr}^epared^{by t}^he^{Congressional Research Service,}^{based on data from t}^{he O}^{ffice of}^{Child Support}
^Enforce^{ment, Depart}^{ment of}^He^{alth and Hu}^{man Services.}
^Note:^S^{ome totals are imprecise becau}^{se of rou}^nding.
The CSE program provides seven major services on behalf of children: (1) parent location, (2)
paternity establishment, (3) establishment of child support orders, (4) review and modification of
support orders, (5) collection of support payments, (6) distribution of support payments, and (7) ⁴
establishment and enforcement of medical support.
To improve the CSE agency’s ability to locate absent parents, states are required to have
automated registries of child support orders that contain records of each case in which CSE
services are being provided and all new or modified child support orders. The state registry
includes a record of the support owed under the order, arrearages, interest or late penalty charges,
amounts collected, amounts distributed, the child’s date of birth, and any liens imposed; and also
includes standardized information on both parents, such as name, Social Security number, date of
birth, and case identification number. States also must establish an automated directory of new
hires containing information from employers, including federal, state, and local governments and
labor organizations, for each newly hired employee, that includes the name, address, and Social
Security number of the employee and the employer’s name, address, and tax identification
number. This information generally is supplied to the state new hires directory within 20 days
after the employee is hired. Moreover, federal law required the establishment of a federal case ⁵
registry of child support orders and a national directory of new hires. The federal directories
consist of information from the state directories and federal agencies (located in the Federal
Parent Locator Service, or FPLS).

⁴^A^nonc^us^to^dia^l^pa^r^e^{nt m}^a^y^be^or^de^r^e^{d to}^pr^ov^ide^he^a^lth^ins^u^r^a^nc^e^if^a^v^a^ila^ble^thr^o^ug^{h h}ⁱ^s^or^he^r^e^m^ploy^e^r^{, pa}^y^f^o^r
^pr^iv^a^t^e^he^a^{lth i}ⁿ^s^u^r^a^nc^e^pr^e^m^ium^s^{, or}^r^e^im^bur^s^e^the^c^u^s^t^odia^l^pa^r^e^{nt f}^o^r^a^{ll or}^a^p^o^r^tⁱ^on^of^the^c^o^s^t^s^of^he^a^{lth ins}^u^r^a^nc^e
^obtaⁱ^ne^{d by}^the^c^u^s^t^odia^l^pa^r^e^nt.^Fe^de^r^a^{l la}^w^r^e^quir^e^s^e^v^e^r^y^c^h^{ild s}^upp^or^t^or^de^r^{to i}ⁿ^c^l^u^d^e^a^pr^ov^is^io^{n f}^o^r^he^a^lth^c^a^r^e
^co^verag^e^.^T^h^{e CS}^E^p^r^o^g^ramⁱ^s^re^q^uⁱ^{red t}^o^pu^rsu^e^p^rⁱ^v^at^{e h}^eal^t^h^{care co}^verag^e^w^h^en^su^ch^co^{verage i}^s^avai^l^a^b^l^{e t}^h^ro^u^gh
^a^nonc^us^to^dia^l^pa^r^e^nt^’^s^e^m^ploy^e^r^a^t^a^r^e^a^s^ona^ble^c^o^s^t^.^P.L^.¹^09-¹⁷¹^r^e^quir^e^d^tha^t^m^e^dic^a^l^s^u^p^por^{t f}^o^r^a^c^h^ild^be
^p^r^o^vⁱ^d^{ed b}^y^ei^t^h^{er o}^r^b^o^t^h^p^a^ren^t^{s an}^d^t^h^atⁱ^t^m^u^st^b^e^en^f^o^rced^.^It^a^u^t^h^o^rⁱ^{zes t}^h^{e st}^at^{e CS}^E^agen^cy^t^o^en^f^o^rce^m^e^dⁱ^cal
^su^p^p^o^r^t^agaiⁿ^s^t^{a cu}^st^o^dⁱ^al^p^a^ren^t^w^h^en^ev^{er h}^eal^t^h^{care co}^verag^eⁱ^s^avai^l^a^b^l^{e t}^o^t^h^{e cu}^st^o^dⁱ^al^p^a^ren^t^a^t^reasoⁿ^a^b^l^{e co}^st^.
^Mor^e^ov^e^r^{, it s}^tⁱ^p^u^l^a^t^e^s^tha^t^m^e^dic^a^l^s^upp^or^{t m}^a^y^inc^l^ude^he^a^l^t^h^c^a^r^e^c^o^v^e^r^a^ge⁽ⁱ^nc^ludi^ng^pa^y^m^eⁿ^{t of}^c^o^s^t^s^of
^pr^e^m^iu^m^s^{, c}^o^-^p^ay^m^e^nts^,^a^{nd de}^d^u^c^tible^s⁾^aⁿ^{d pa}^y^m^eⁿ^{t of}^m^e^dic^a^l^e^x^pe^ns^e^s^f^o^r^a^c^h^ild.
⁵^Wⁱ^t^hⁱⁿ^t^h^{ree bu}^siⁿ^e^{ss d}^a^y^s^a^f^t^e^r^recei^p^t^o^fⁿ^e^w^hⁱ^{re i}ⁿ^f^o^rmatⁱ^oⁿ^f^r^o^m^t^h^{e e}^m^p^l^o^y^er,^t^h^{e st}^at^{e d}ⁱ^rect^o^r^y^o^fⁿ^e^w^hⁱ^{res i}^s
^r^e^quir^e^d^{to f}^u^rⁿ^is^{h t}^h^e^inf^o^r^m^a^{tion to}^the^na^tio^na^{l d}ⁱ^r^e^c^t^or^y^of^new^hir^e^s^.

Federal law allows all states to link up to an array of databases, and permits the FPLS to be used
for the purpose of establishing parentage; establishing, setting the amount of, modifying, or ⁶
enforcing child support obligations; and enforcing child custody or visitation orders. Federal law
requires that a designated state agency, directly or by contract, conduct automated comparisons of
the Social Security numbers reported by employers to the state directory of new hires and the
Social Security numbers of CSE cases that appear in the records of the state registry of child
support orders. Federal law requires the HHS Secretary to conduct similar comparisons of the ⁷⁸
federal directories. Automation is critical to the operation and success of the CSE program.
Legally identifying the father is a prerequisite for obtaining a child support order. Federal law
requires TANF applicants and recipients to cooperate in establishing paternity or obtaining
support payments. Moreover, a penalty for noncooperation exists. If it is determined that an
individual is not cooperating and the individual does not qualify for any good cause or other
exception, then the state must reduce the family’s TANF benefit by at least 25% and may
eliminate it entirely. Federal law also (1) requires that paternity be established for 90% of the
CSE cases needing such a determination, (2) requires a simple civil process for establishing
paternity, (3) requires an affidavit to be completed by men voluntarily acknowledging paternity
and entitles the affidavit to full faith and credit in any state, (4) stipulates that a signed
acknowledgment of paternity be considered a legal finding of paternity unless it is rescinded
within 60 days, and thereafter may be challenged in court only on the basis of fraud, duress, or
material mistake of fact, (5) provides that no judicial or administrative action is needed to ratify
an acknowledgment that is not challenged, and (6) requires all parties to submit to genetic testing
in contested paternity cases. (See CRS Report RL31467, Paternity Establishment: Child Support
and Beyond, by Carmen Solomon-Fears.)
A child support order legally obligates noncustodial parents to provide financial support for their
children and stipulates the amount of the obligation and how it is to be paid. It is usually
established at the time of divorce or when a welfare case is initiated. P.L. 100-485 required states
to use their state-established guidelines in establishing child support orders. States decide child
support amounts based on the noncustodial parent’s income or based on both parents’ income;

⁶^P^.^L^.¹⁰^4-1⁹³^pe^rm^itte^{d b}^o^{th c}^u^st^odia^l^aⁿ^{d c}^e^r^taⁱⁿ^no^nc^ust^odia^l^pa^r^e^{nts to}^obtaⁱ^{n i}ⁿ^f^o^rm^a^{tion f}^r^o^m^the^F^P^L^S^.^P^.^L^.
¹⁰⁵^-³^3,^how^e^v^e^r^{, pr}^ohib^ite^{d F}^P^L^S^inf^o^r^m^a^{tion f}^r^om^be^ing^dis^c^los^e^{d to}^no^nc^us^t^odia^l^pa^r^e^ntsⁱⁿ^c^a^s^e^s^w^h^e^r^e^the^r^e^is
^evi^d^en^{ce o}^f^d^o^m^estⁱ^c^vi^o^l^en^{ce o}^r^chⁱ^l^d^abu^s^e,^and^t^h^{e l}^o^cal^cou^r^t^d^e^t^e^rmⁱⁿ^{es t}^h^at^dⁱ^scl^o^su^{re m}^a^y^resu^l^tⁱⁿ^h^a^rm^t^o^t^h^e
^c^u^s^t^odia^l^pa^r^e^{nt or}^c^hⁱ^l^d.
⁷^W^h^en^{a m}^a^t^c^h^o^ccu^rs,^t^h^{e st}^at^{e di}^rect^o^r^y^o^fⁿ^e^w^hⁱ^{res i}^s^req^uⁱ^red^t^o^rep^o^r^t^t^o^t^h^{e st}^at^{e CS}^E^agen^cy^t^h^{e n}^a^m^e^,^ad^d^r^ess,
^a^{nd S}^o^cⁱ^a^l^Se^c^u^r^ity^num^be^r^of^the^e^m^plo^y^e^e^,^a^{nd the}^e^m^ploy^e^r^’^s^na^m^e^{, a}^ddr^e^s^s^,^a^nd^ideⁿ^tⁱ^fⁱ^c^a^{tion n}^u^m^be^r^.^W^{ithin tw}^o
^b^u^sⁱⁿ^ess^d^a^y^s^,^t^h^{e CS}^E^agen^c^y^t^h^enⁱⁿ^st^r^u^ct^{s ap}^p^r^o^p^rⁱ^a^t^e^em^ploy^e^r^{s to w}^ithh^o^ld^c^h^il^{d su}^pp^ort^oblig^a^{tions f}^r^om^the
^em^ploy^ee^’^s^pay^c^he^ck^{, unle}^s^s^the^em^ploy^ee^’^sⁱⁿ^c^o^m^e^is^{not s}^u^b^j^e^c^t^{to i}ⁿ^c^o^m^e^w^ithhol^ding^.
⁸^Fe^de^r^a^{l la}^w^r^e^quir^e^s^s^u^s^p^eⁿ^sⁱ^on^of^a^{ll f}^e^de^r^a^{l C}^S^{E f}^unding^to^the^s^t^a^t^e^w^h^eⁿ^its^C^S^{E pla}ⁿ^{, a}^f^te^r^a^p^p^e^a^l^{, is}
^dis^a^ppr^ov^e^d^{. M}^o^r^e^ov^e^r^{, s}^t^a^t^e^s^wⁱ^t^hou^{t a}^p^pr^ov^e^d^C^S^{E pla}ⁿ^s^c^o^u^l^{d l}^o^s^e^f^unding^f^o^r^t^h^e^T^A^N^F^bloc^k^g^r^aⁿ^t.^P^.^L^.¹^05-²⁰⁰
^im^pose^d^substa^ntia^lly^sm^a^lle^{r f}ⁱⁿ^a^nc^ia^{l pe}^na^ltie^{s o}ⁿ^sta^t^e^s^tha^t^f^a^il^e^d^{to m}^e^e^t^the^a^u^tom^a^te^{d da}^ta^sy^s^t^e^m^{s re}^quire^m^e^nts.
^T^h^e^H^H^S^Se^c^r^e^t^a^r^y^is^r^e^quir^e^{d to}^r^e^duc^e^the^a^m^{ount t}^h^e^s^t^a^t^e^w^oul^{d ot}^he^r^w^is^e^ha^v^e^r^e^c^eⁱ^v^e^{d in f}^e^der^a^{l C}^S^{E f}^und^ing^by
^the^pe^na^lty^am^{ount f}^o^r^t^h^e^fⁱ^s^c^a^l^y^e^a^r^{in que}^s^tio^{n. T}^h^e^pe^na^lty^am^o^unt^pe^r^c^eⁿ^ta^g^e^is^4%^{in t}^h^e^c^a^s^e^o^f^the^fⁱ^r^s^t^y^e^a^r^of
^nonc^om^plia^nc^e⁽^F^Y¹⁹⁹⁸⁾^;^8%ⁱⁿ^the^s^e^c^ond^y^e^a^r⁽^F^Y¹⁹⁹⁹⁾^;^16%ⁱⁿ^the^thir^{d y}^e^a^r⁽^F^Y²⁰⁰⁰⁾^;²⁵^%ⁱⁿ^the^f^our^{th y}^e^a^r
⁽^F^Y²⁰⁰¹⁾^;^aⁿ^d³⁰^%^{in t}^h^e^fⁱ^f^t^{h or}^aⁿ^y^s^ubs^e^que^{nt y}^e^a^r^.

other factors include the age of child, whether a stepparent is in the home, whether the child is
disabled, and the number of siblings.
Without periodic modifications, child support obligations can become inadequate or inequitable.
Under current law, states generally must review child support orders every three years to ⁹
determine if the order should be adjusted to reflect the parent’s financial circumstances.
Collection methods used by state CSE agencies include income withholding,¹⁰ intercept of federal
and state income tax refunds, intercept of unemployment compensation, liens against property,
reporting child support obligations to credit bureaus, intercept of lottery winnings, sending
insurance settlement information to CSE agencies, authority to withhold or suspend driver’s
licenses, professional licenses, and recreational and sporting licenses of persons who owe past-
due support, and authority to seize assets of debtor parents held by public or private retirement
funds and financial institutions. Moreover, federal law authorizes the Secretary of State to deny,
revoke, or restrict passports of debtor parents. All jurisdictions also have civil or criminal
contempt-of-court procedures and criminal nonsupport laws. In addition, federal criminal
penalties may be imposed in certain cases. Federal law also requires states to enact and
implement the Uniform Interstate Family Support Act (UIFSA), and expand full faith and credit ¹¹
procedures. Federal law also provides for international enforcement of child support.
The federal government reimburses each state 66% of the cost of operating its CSE program.¹² In
addition, the federal government pays states an incentive payment to encourage them to operate ¹³
effective programs. Federal law requires states to reinvest CSE incentive payments back into the ¹⁴
CSE program or related activities.

⁹^I^f^a^nonc^us^t^odia^l^pa^r^e^{nt c}^aⁿ^not^p^a^y^his^or^he^r^c^h^ild^s^u^p^p^o^r^{t pa}^y^m^ents^b^ecau^{se o}^f^uⁿ^e^m^p^l^o^ym^en^t^,ⁱ^m^p^rⁱ^s^oⁿ^m^en^t^,^et^c.^,
^theⁿ^t^h^eⁿ^onc^us^t^o^dⁱ^a^l^pa^r^e^nt^s^h^o^u^l^{d im}^m^e^dia^t^e^l^y^c^onta^c^t^the^c^our^tⁱⁿ^or^de^r^to^ha^v^e^the^c^h^il^{d s}^upp^or^t^or^de^r^m^odifⁱ^e^d^.
^Pursua^nt^to^f^e^de^ra^{l la}^w^,^the^c^ourt^w^{ill not be}^a^b^le^to^re^tr^oa^c^tiv^e^l^y^re^duc^e^the^ba^c^k^pa^y^m^eⁿ^{ts (i.e}^{., a}^rre^a^r^a^g^e^s^{) tha}^t^the
^nonc^us^to^dia^l^pa^r^eⁿ^t^ow^e^s^.
¹⁰^T^h^e^r^e^a^r^e^thr^e^e^e^x^ce^ptions^t^o^t^h^e^im^m^e^dia^t^e^inc^o^m^e^w^ithholdⁱ^ng^r^u^le^{: (}¹⁾^if^one^of^the^pa^r^tie^s^de^m^ons^tr^a^t^e^s^{, a}^{nd the}
^c^our^{t (}^o^r^a^d^mⁱ^nis^t^r^a^tiv^e^pr^oc^e^s^s⁾^fⁱ^nds^t^h^a^t^t^h^e^r^e^is^g^o^o^d^c^a^u^s^e^no^{t t}^o^r^e^qu^ir^e^im^m^e^dia^t^e^w^ithhol^ding^,⁽²⁾^if^bot^h^pa^r^tie^s
^a^g^re^e^{in w}^r^iting^{to a}ⁿ^a^lte^rna^tiv^e^a^rra^ng^e^m^eⁿ^{t, or (3) a}^t^th^e^{HHS S}^e^c^r^e^t^a^r^y^’^{s disc}^re^tion,^if^a^sta^t^e^c^a^{n de}^m^onstra^t^e^tha^t
^the^rule^w^{ill n}^o^{t i}ⁿ^c^r^e^a^s^e^the^e^f^f^e^c^tiv^eⁿ^e^{ss or e}^f^fⁱ^cⁱ^eⁿ^c^y^o^f^the^sta^t^e^’^{s CSE pr}^og^ra^m^.
¹¹^T^h^e^C^S^{E pr}^og^r^a^m^ha^s^r^e^cⁱ^pr^oc^a^ting^a^g^r^e^em^eⁿ^ts^r^e^g^a^r^d^ing^the^eⁿ^f^o^r^c^em^eⁿ^{t of}^c^h^{ild s}^u^pp^or^{t w}^{ith 1}⁵^c^ountrⁱ^e^s^:
^A^u^st^ralⁱ^a^,^Can^a^d^a^,^Czech^Re^publi^c^{, El Sa}^lv^a^dor^,^Fi^nlaⁿ^d^,^H^u^ng^a^r^y^,^I^r^e^la^{nd, N}^e^t^h^e^r^la^nds^{, N}^o^r^w^ay^{, Pola}^nd^,^Por^t^ug^a^l^,
^Slov^a^k^R^e^public^,^Sw^itz^e^r^la^{nd, the}^Uⁿ^ite^{d K}ⁱ^ng^dom^of^G^r^ea^{t B}^r^ita^{in, a}^{nd N}^o^r^t^he^rⁿ^I^r^e^laⁿ^d^.
¹²^P^.^L^.¹⁰^9-1⁷¹^stip^ula^t^e^d^t^h^a^t^t^h^e⁹⁰^%^f^e^de^ra^l^m^a^tc^hing^ra^te^f^o^{r la}^bo^ra^tory^c^o^{sts a}^ssocⁱ^a^t^e^d^w^{ith pa}^te^rnity
^e^s^ta^blis^hm^eⁿ^{t w}^{ould be}^r^e^d^u^c^e^d^t^o⁶⁶^%^be^gⁱⁿⁿ^ing^O^c^tobe^r^1,²⁰⁰⁶^.
¹³^T^h^e^C^S^{E inc}^eⁿ^tiv^e^pa^y^m^eⁿ^t—^w^h^ic^{h is}^ba^s^e^{d in}^pa^r^t^on^fⁱ^v^e^pe^r^f^or^m^a^nc^e^m^e^as^ur^e^s^r^e^la^te^{d to e}^s^ta^bl^is^hm^eⁿ^{t of}
^pa^te^rⁿ^ity^a^{nd c}^h^il^{d s}^u^pp^or^t^or^de^r^s^{, c}^o^lle^c^tioⁿ^of^c^u^r^r^e^{nt a}ⁿ^d^pa^s^t^-^d^u^e^c^h^{ild s}^u^p^por^t^pa^y^m^eⁿ^ts^{, a}^{nd c}^o^s^t^-^e^f^f^ec^tiv^eⁿ^e^s^s^—
^w^a^{s sta}^t^utorily^se^{t by}^P^.^L^.¹⁰^5-2⁰⁰^{. I}ⁿ^the^a^g^g^r^e^g^a^t^e^,^inc^eⁿ^tiv^e^pa^y^m^eⁿ^{ts to sta}^t^e^s^m^a^y^{not e}^x^c^e^e^d^$⁴⁵⁸^m^{illion f}^o^r
^FY20^06,^$⁴⁷¹^m^{illion f}^o^{r FY}²⁰⁰⁷^{, a}ⁿ^{d $}⁴⁸³^m^illion^f^o^{r FY2}⁰⁰⁸^(t^{o be}ⁱⁿ^c^r^e^a^s^e^d^f^o^{r inf}^l^a^{tion i}ⁿ^y^e^a^r^{s the}^r^e^a^f^te^r).
¹⁴^P^.^L^.¹⁰^9-¹⁷¹^,^e^f^f^e^c^tiv^e^Oc^tobe^r^{1, 2}⁰⁰⁷^,^pr^o^hⁱ^b^its^f^e^de^r^a^{l m}^a^tc^hin^g^of^s^t^a^t^e^e^x^pe^nditur^e^of^f^e^de^r^a^l^C^S^{E inc}^eⁿ^tⁱ^v^e
⁽^c^onti^nue^d.^..)

All states are required to have a centralized automated state collection and disbursement unit to
which child support payments are paid and from which they are distributed. Federal law generally
requires employers to remit to the state disbursement unit (SDU) income withheld within seven
business days after the employee’s payday. Further, the SDU is required to send child support
payments to custodial parents within two business days of receipt of such payments.
Distribution rules determine which claim is paid first when a child support collection occurs. The
order of payment of the child support collection is important because in many cases arrearages
are never fully paid. While the family receives TANF cash benefits, the states and federal ¹⁵
government retain any current support and any assigned arrearages collected up to the
cumulative amount of TANF benefits paid to the family. While states may pay their share of
collections to the family, they must pay the federal government the federal government’s share of
child support collections collected on behalf of TANF families. This means that the state, and not
the federal government, bears the entire cost of any child support passed through to families (and ¹⁶
disregarded by the state in determining the family’s TANF cash benefit).
States must distribute to former TANF families the following child support collections first before
the state and the federal government are reimbursed (the “family-first” policy): (1) all current
child support, (2) any child support arrearages that accrue after the family leaves TANF (these
arrearages are called never-assigned arrearages), plus (3) any arrearages that accrued before the
family began receiving TANF benefits. An exception to this rule occurs when child support
arrearages are collected via the federal income tax refund offset program—those collections are ¹⁷
divided between the state and federal government. (Any child support arrearages that accrue
during the time the family is on TANF belong to the state and federal government.)
Historically, Congress has agreed that visitation and child support should be legally separate
issues, and that only child support should be under the purview of the CSE program. Both federal
and state policymakers have maintained that denial of visitation rights should be treated

^(...c^on^tin^ue^d)
^p^a^ymen^t^s^.^T^hⁱ^s^mean^{s t}^h^at^CS^Eⁱⁿ^cen^tⁱ^v^{e p}^a^ymen^t^s^t^h^at^{are recei}^v^e^d^b^y^st^at^{es an}^d^reiⁿ^vest^edⁱⁿ^t^h^e^CS^E^p^r^o^g^ram^ar^e
^{not e}^ligⁱ^b^le^f^o^r^f^e^de^r^a^{l r}^eⁱ^m^bur^s^e^m^e^nt.
¹⁵^T^h^{e ch}ⁱ^l^d^sup^p^o^r^t^assi^gn^m^eⁿ^t^co^{vers an}^y^chⁱ^l^d^su^pp^o^r^t^t^h^at^accru^e^{s w}^hⁱ^l^e^t^h^{e f}^a^mⁱ^l^y^r^ecei^v^e^{s cash}^T^A^NF^b^eⁿ^e^fⁱ^t^s^,^as
^w^e^l^l^{as an}^y^chⁱ^l^d^su^p^p^o^r^t^t^h^at^accru^e^d^b^e^f^o^{re t}^h^{e f}^a^mⁱ^l^y^st^art^e^d^recei^viⁿ^g^T^A^NF^b^eⁿ^e^fⁱ^t^s^.^P^u^rsu^aⁿ^t^t^o^P^.^L^.¹⁰⁹^-
¹⁷¹^(e^ff^e^c^tive^Oc^tobe^{r 1,}²⁰^09,^or^a^t^sta^t^e^opti^on,^Oc^tobe^r^1,²⁰⁰⁸⁾^,^the^a^ssigⁿ^m^e^{nt w}^{ill only}^c^o^v^e^{r c}^h^{ild su}^pp^{ort t}^h^a^t
^accru^e^s^w^hⁱ^l^e^t^h^{e f}^a^mⁱ^l^y^rec^eⁱ^v^e^s^T^A^NF^.
¹⁶^P^.^L^.¹⁰^9-¹⁷¹^he^l^p^s^s^t^a^t^e^s^pa^y^f^o^r^the^c^o^s^t^of^theⁱ^r^C^S^E^pa^s^s^-^thr^oug^{h a}ⁿ^d^dis^r^e^g^a^r^{d p}^o^lic^ie^s^by^r^e^quirⁱ^ng^the^f^e^de^r^a^l
^g^o^v^e^rⁿ^m^e^{nt to s}^h^a^r^eⁱⁿ^the^c^o^s^t^s^of^the^eⁿ^tir^e^a^m^{ount (}^up^to^$1⁰⁰^pe^r^m^{onth f}^o^r^oⁿ^e^c^h^il^d;^up^to^$2⁰⁰^pe^r^m^{onth f}^o^r
^tw^{o or}^m^o^r^e^c^h^ildr^eⁿ⁾^of^c^h^{ild s}^u^ppo^r^t^c^o^lle^c^tⁱ^ons^pa^s^s^e^{d thr}^oug^h^a^{nd d}ⁱ^s^r^e^g^a^r^de^{d by}^s^t^a^t^e^s⁽^e^f^f^ec^tiv^e^O^c^tobe^r^1,²⁰⁰⁸⁾^.
¹⁷^P^.^L^.¹⁰^9-1⁷¹^gⁱ^v^e^s^s^t^a^t^e^s^the^opti^on^of^dis^t^rib^u^ti^ng^{to f}^o^rm^e^r^TA^N^F^f^a^m^ilie^s^the^f^u^{ll am}^ount^of^c^h^{ild s}^u^pp^ort
^co^l^l^ect^ed^on^t^h^ei^r^b^e^h^a^l^f⁽ⁱ^.^e^.^,^b^o^t^h^cu^rren^t^su^pp^o^r^t^and^al^l^chⁱ^l^d^s^u^p^p^o^rt^{arrearages—i}ⁿ^c^l^u^dⁱⁿ^g^{arrearages co}^l^l^ect^ed
^thr^o^ug^{h t}^h^e^f^e^de^r^a^{l inc}^o^m^e^tax^r^e^f^und^of^f^s^e^t^pr^og^r^a^m⁾^{. T}^h^is^pr^ov^is^{ion ta}^k^e^s^e^f^f^e^c^t^{on O}^c^tobe^r¹^,²⁰⁰⁹^{, o}^r^O^c^tobe^r^1,
²⁰⁰^{8 a}^t^s^t^a^t^e^opti^oⁿ^.

separately, and should not be considered a reason for stopping child support payments. However,
in recognition of the negative long-term consequences for children associated with the absence of
their father, P.L. 104-193 provided $10 million per year for grants to states for access and
visitation programs, including mediation, counseling, education, and supervised visitation. P.L.
109-171 provides $50 million per year for five years (FY2006-FY2010) in competitive grants for
responsible fatherhood initiatives to states, territories, Indian tribes and tribal organizations, and
public and nonprofit organizations, including religious organizations.
^Car^m^eⁿ^So^lo^m^o^n-^Fear^s
^Specialis^{t i}ⁿ^{Social P}^o^lic^y
^cs^ol^o^m^onf^ears@^crs^.^l^o^c.g^o^v^,⁷^-⁷³⁰⁶