HOUSE OF REPRESENTATIVES STAFF FINAL BILL ANALYSIS
BILL #: HB 7065 PCB CFS 22-01 Child Welfare
SPONSOR(S): Children, Families & Seniors Subcommittee, Altman and others
TIED BILLS: IDEN./SIM. BILLS:
FINAL HOUSE FLOOR ACTION: 117 Y’s 0 N’s GOVERNOR’S ACTION: Approved
SUMMARY ANALYSIS
HB 7065 passed the House on February 16, 2022, and subsequently passed the Senate on March 4, 2022. Part of
the bill also passed the House and Senate in CS/CS/HB 1577 on March 4, 2022.
In the United States, one out of four children grow up in a household without a father. Research has found that
fathers play a unique role in producing positive outcomes for children. Children raised in father-absent homes are
more likely, on average, to abuse drugs and alcohol, show signs of antisocial and delinquent behavior, and drop out
of high school. Such children are also more likely to experience poverty, teen pre gnancy, child abuse and neglect,
behavioral problems, and death in infancy. Florida has several state agencies and systems to support children and
families which protect children from abuse or neglect, promote healthy families through the provision of home
visiting services, and strengthen families by improving the lives of children at -risk of engaging in or involved in
delinquent behavior.
The bill addresses the needs of families by:
Creating grants for services to address the needs of fathers and to increase mentorship for at-risk boys.
Requiring Florida’s child welfare system and home visiting programs to increase engagement with and
provision of services to fathers.
Directing the Department of Children and Families (DCF) to contract for a Respo nsible Fatherhood Initiative
to provide all fathers resources and inspiration to enhance their positive involvement with their children.
Requiring DCF and the Department of Juvenile Justice to identify children involved with both systems of
care and report to the Legislature specific data, information, and actions taken to better serve them.
Requiring the Department of Revenue to provide information to those having difficulty paying child support.
Requiring the Department of Economic Opportunity (DEO) to expand programs serving noncustodial
parents who are having difficulty paying child support.
Young adults who age out of the foster care system have trouble achieving self -sufficiency. To assist such young
adults, Florida provides independent living services, including services through the Postsecondary Education
Services and Support (PESS) program. Young adults eligible for the program receive a stipend to assist them in
meeting their financial needs while attending a postsecondary education institution.
The bill addresses the needs of young adults who aged out of foster care by:
Requiring DCF and community-based care lead agencies (CBC’s) to provide information about all
independent living services and programs during the transition plan process before the child ages out of
care.
Increasing the stipend for youth participating in PESS and requires DCF and CBC’s to assist such youth in
developing financial and transition plans on how the young adult will meet financial needs while in
postsecondary education and after leaving PESS.
Requiring institutions where students are exempt from the payment of tuition and fees to have a staff
member who can help students in resolving problems related to the use of the exemption and
to maintain original documentation submitted that confers eligibility for the tuition and fee exemption.
The bill has a significant, negative, recurring fiscal impact on DCF and DEO, for which the FY 2022-23 General
Appropriations Act provides funding. There is no fiscal impact on local governments.
The bill was approved by the Governor on April 11, 2022, ch. 2022-67, L.O.F., and will become effective on July 1,
2022.
I. SUBSTANTIVE INFORMATION
This document does not reflect the intent or official position of the bill sponsor or House of Representatives.
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A. EFFECT OF CHANGES:
Background
Children encounter negative experiences when growing up in households with substance misuse,
mental health problems, and instability due to parental separation. Exposure to adverse childhood
experiences can disrupt healthy brain development, affect social development, compromise immune
systems, and can lead to unhealthy coping behaviors. Creating and sustaining safe, stable, nurturing
relationships and environments for children and families can allow children to grow up to their full
potential. When parents and families are equipped with proper support and skills, they can meet the
needs of their children and protect them from experiencing adverse childhood experiences.
Florida has several systems to support children and families who may face difficulties, some of which
protect children from abuse or neglect, promote healthy families through the provision of in-home
services, and strengthen families by improving the lives of children at-risk of engaging in or involved in
delinquent behavior.
Child Welfare System
The Department of Children and Families is responsible for providing child welfare and support services
in accordance with federal and state law.1 DCF contracts with community-based care lead agencies
(CBC’s) to deliver, administer, and manage child welfare services. Using CBC’s to provide child welfare
services is designed to increase local community ownership of service delivery. 2 DCF, through CBCs,
administers a system of care for children with the goals of:
Prevention of separation of children from their families.
Intervention to allow children to remain safely in their own homes.
Reunification of families who have had children removed from their care.
Safety for children who are separated from their families.
Well-being of children through emphasis on educational stability and timely health care.
Achievement of permanency.
Effective transition to independence and self-sufficiency.
CBC’s provide foster care and related services, including, but not limited to, counseling, domestic
violence services, substance abuse services, family preservation, emergency shelter, and adoption. 3
CBC’s contract with a number of subcontractors for case management and direct care services to
children and their families.4 There are 18 CBC’s statewide, which together serve the state’s 20 judicial
circuits.5
Juvenile Justice System
Section 20.316, F.S., establishes the Department of Juvenile Justice (DJJ), and directs the Governor to
appoint a Secretary who is responsible for planning, coordinating, and managing all juvenile justice
services and programs in Florida, including:
Children-in-Need of Services,
Families-in-Need of Services,
Other prevention, early intervention, and diversion programs,
1 S. 409.996, F.S.
2 Florida Department of Children and Families, Community-Based Care, https://www.myflfamilies.com/service-programs/community-
based-care/ (last visited Jan. 28, 2022).
3 S. 409.145(1), F.S.
4 Id.
5 Florida Department of Children and Families, Community-Based Care Lead Agency Map, http://www.myflfamilies.com/service-
programs/community-based-care/cbc-map (last visited Jan. 28, 2022).
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Detention centers and related programs and facilities,
Community-based residential commitment and nonresidential programs, and
Delinquency institutions provided or funded by DJJ.
Children involved in the child welfare system are more likely to become involved with the juvenile
justice system. Overall, maltreated children are estimated to be at a 47 percent greater risk of
becoming involved in delinquency than children from the greater population. 6
Maternal and Child Health Services
The Department of Health (DOH) is the designated agency for administering maternal and child health
services, including enhanced services for medically and socially high-risk clients, delivered through
county health departments or subcontractors.7 Pursuant to s. 383.011(1)(e), F.S., the care coordination
process must include, at a minimum, family outreach workers and health paraprofessionals who assist
in providing enhanced services to pregnant women, infants, and their families that are determined to be
at potential risk by DOH’s screening instrument. These enhanced services include, but are not limited
to, home visiting to support the delivery of and participation in prenatal and infant primary care services .
Home Visiting Programs
DOH administers the maternal and child health program, in part, by contracting for Healthy Start
services. Florida Healthy Start provides education, support, and proven interventions to families pre-
and post-birth who are at-risk of poor birth outcomes or developmental delays.8 The program focuses
on common issues or conditions that occur during pregnancy or in infancy and is available in all 67
counties.9 Risk screenings, offered by prenatal care providers and birthing hospitals, identifies families
that could benefit from a home visiting program.10 Families can participate in Healthy Start beginning in
pregnancy or in the first year after birth, and can continue until the infant turns three. 11 The 32 local
Healthy Start Coalitions coordinate these services, under contract with DOH.12 Each coalition uses data
and research to design a service delivery plan unique to its community.
6 Ryan, J. P., & Testa, M. F. (2005). Child Maltreatment and Juvenile Delinquency: Investigating the Role of Placement and Placement
Instability. Children and Youth Services Review, 27(3), 227-249. https://doi.org/10.1016/j.childyouth.2004.05.007.
7 S. 383.011(1), F.S.
8 Florida Department of Health, Healthy Start, https://www.floridahealth.gov/programs-and-services/childrens-health/healthy-
start/index.html (last visited Jan. 28, 2022).
9
Id.
10 Id.
11 Id.
12 Department of Health, Healthy Start, http://www.floridahealth.gov/programs-and-services/childrens-health/healthy-start/index.html
(last visited March 14, 2022).
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Healthy Start uses a home visiting model, which matches parents with trained professionals to provide
information and support during pregnancy and throughout the child’s first three years of life. 13 The
program offers a participant face-to-face home visits with a trained professional who facilitates access
to needed services based on an individualized family support plan.14 Participation in Healthy Start
services is voluntary for the families.
The Florida Association of Healthy Start Coalitions, Inc., (FAHSC) develops and supports local systems
of care to optimize the health of moms, babies and families. 15 FAHSC is made up of the 32 individual
coalitions from across the state.16 In July 2018, Florida implemented a statewide, coordinated intake
and referral system (Connect) that is housed within FAHSC. 17 Connect is an entry point for services,
including Florida’s Healthy Start program. Staff receive information from prenatal providers or from
parents who self-refer or are referred by community partners. The Connect staff contacts parents to
determine their needs and desires for services, then offers an array of services available in their
community. Assuming home visiting is accepted, a referral to a program is made and the program
contacts the parent to schedule an appointment.
Because Healthy Start is generally focused on improving health outcomes for pregnant women, new
mothers, and infants, there is little emphasis on engaging expectant or new fathers during service
13 Id.
14 Id.
15
Florida Healthy Start Coalition, Ab out Us, https://www.healthystartflorida.com/about-us/ (last visited Jan. 28, 2022).
16 Florida Association of Healthy Start Coalitions, Inc. Every Bab y Deserves a Healthy Start (on file with the House Children, Families, &
Seniors Subcommittee).
17 Florida Association of Healthy Start Coalitions, Florida Home Visiting Statewide Needs Assessm ent Update (2020)
https://usf.app.box.com/s/lgof5m5kewur9seaj872333j5tsna3bm.
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provision. This may limit the effectiveness of the program, because data indicates that active
engagement by fathers strengthens family and child well-being.
Fatherhood and Child Well-Being
Current Situation
There are an estimated 75 million fathers in the United States 18; however, 18.4 million children, or one
out of four, live without a biological, step-, or adoptive father in the home.19 Children in mother-only
households are the second most common living arrangement in the United States. 20 About 7.6 million
(11%) children lived in mother-only households in 1968, compared to 15.3 million (21%) in 2020.21
Children raised in father-absent households, compared to two-parent households, are more likely, on
average, to abuse drugs and alcohol, show signs of antisocial and delinquent behavior, and drop out of
high school.22 Such children are also more likely to experience poverty,23 teen pregnancy,24 child abuse
and neglect,25 behavioral problems,26 and death in infancy.27
Research has found that fathers play a unique role in producing positive outcomes for children.
Although mothers tend to be more nurturing and emotionally supportive than fathers, fathers tend to
focus more on preparing children for their lives as adults. 28 There is growing research on the link
between father involvement and children’s well-being.29 Father involvement and positive interactions
with their children are important for children’s health, self-esteem, social skills, and educational
attainment. Multiple studies have found positive links between father involvement and a child’s
graduation from high school, social-emotional adjustment, and mental health into adulthood.30
Additionally, men experience benefits from being fathers, including improving mental and emotional
health and being more community involved. Being a father is linked to positive employment outcomes
including an increase in wages and work effort.31 Fathers are more likely than childless men to be
involved in community service and to provide support to friends and extended family. 32 Additionally,
18 U.S. Census Bureau, Fatherly figures: a snapshot of dads today, (2018),
https://www.census.gov/library/visualizations/2018/comm/fathers-day.html (last visited Jan. 28, 2022).
19 U.S. Census Bureau, Living arrangements of children under 18 years old: 1960 to present, (Nov. 2021),
https://www.census.gov/data/tables/time-series/demo/families/children.html (last visited Jan. 28, 2022).
20 The first most common living arrangement is two-parent households. See U.S. Census Bureau, Percentage and Number of Children
Living with Two Parents Has Dropped since 1968, (Apr. 2021), https://www.census.gov/library/stories/2021/04/number-of-children-
living-only-with-their-mothers-has-doubled-in-past-50-years.html (last visited Jan. 28, 2022).
21 Id.
22
See McLanahan, S., Tach, L., & Chneider, D. (2013). The causal effects of father absence. Annual Review of Sociology, 39(1), 399-
427; Salas-Wright, C.P, Vaugh, M.G., Uglade J., & Todic, J. (2015). Substance abuse and teen pregnancy in the United States:
Evidence from the NSDUH 2002-2012. Addictive Behavior, 45(1), 218-225.
23 See U.S. Department of Health and Human Services, Information on Poverty and Income Statistics: A Summary of 2012 Current
Population Survey Data, (Sept. 2012), https://aspe.hhs.gov/reports/information-poverty-income-statistics-summary-2012-current-
population-survey-data-0 (last visited Jan. 28, 2022).
24 Ellis, B.J., Bates, J. E., Dodge, K. A., Fergusson, D. M., et. al. (2003). Does father absence place daughters at special risk of early
sexual activity and teenage pregnancy? Child Development, 74(3), 801-821.
25 Stapp, John, The Effects of Fatherlessness on Children, (Jan. 13, 2020), The Effects of Fatherlessness on Children - Joe Stapp, LPC
(blueridgecounseling.org) (last visited Feb. 1, 2022).
26 See Osborne, C., & McLanahan, S. (2007). Partnership instability and child well -being. Journal of Marriage and Family, 69(4), 1065-
1083.
27 See Mathews, T. J., MacDorman, M. F., & Thoma, M. E. (2015). Infant mortality statistics from the 2013 period linked birth/ infan t
death data set. National Vital Statistics Reports, 64(9), 1-30.
28 Jeynes, Wiliams (2016) Meta-Analysis on the Roles of Fathers in Parenting: Are They Unique? , Marriage & Family Review, 52:7,
665-688, DOI: 10,1080/01494929,2016,1157121.
29 Karberg, E., Finochario, J., & Vann, N. (2019). Father and child well-b eing: A scan of current research. National Responsible
Fatherhood Clearinghouse. https://fatherhood.gov. (last visited Jan. 30, 2022).
30
McLanahan, S., Tach, L., & Schneider, D. (2013). The causal effects of father absence. Ann ual Review of Sociology, 39, 399-427.
31 Astone, N.M., & Peters, H.E. (2014). Longitudinal influences on men’s lives: Research from the transition to fatherhood proje ct and
beyond. Fathering: A Journal of Theory, Research, and Practice ab out Men as Fathers, 12(2), 161-