With much fanfare and by an overwhelming margin, Congress enacted the Family Support Act (hereinafter FSA or the Act) in 1988 to recognize that moving from welfare to work depends to a significant degree on the provision of child care along with a number of other benefits, including job training and health care. Although the Act has achieved progress in moving persons from welfare to work, its implementation has been problematic. To understand the Act's implementation problems, one must understand the need for child care in general as well as the complexities of the system created by the FSA.

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