HOUSE OF REPRESENTATIVES STAFF ANALYSIS
BILL #: HB 631 Aftercare Services Under Road-To-Independence Program
SPONSOR(S): Children, Families & Seniors Subcommittee, Tramont
TIED BILLS: IDEN./SIM. BILLS: SB 564
REFERENCE ACTION ANALYST STAFF DIRECTOR or
BUDGET/POLICY CHIEF
1) Children, Families & Seniors Subcommittee 14 Y, 0 N DesRochers Brazzell
2) Health Care Appropriations Subcommittee 14 Y, 0 N Fontaine Clark
3) Health & Human Services Committee 18 Y, 0 N DesRochers Calamas
SUMMARY ANALYSIS
The Florida Department of Children and Families (DCF) contracts with Community-Based Care Lead Agencies
(CBCs) to provide child protection and child welfare services to children and families in Florida. While the
appropriate care of children is ultimately the responsibility of the state, DCF protects the best interests of
children by achieving certain outcomes in conjunction with the CBCs. These outcomes include helping children
receive appropriate services to meet their educational needs and to develop the capacity for independent living
and competence as an adult.
Young adults who age out of the foster care system more frequently have challenges achieving self-sufficiency
compared to young adults who never came to the attention of the foster care system.
Federal and state programs currently offer financial assistance to eligible young adults who desire the
acquisition of skills, education, and necessary support to become self-sufficient and exit foster care. Aftercare
services are intended to bridge gaps in an eligible young adult’s progress towards self-sufficiency; eligibility is
focused on individuals who have aged out of foster care at 18 and are younger than age 23. DCF or a CBC
determines the specific Aftercare services provided to eligible young adults after an assessment.
HB 631 expands access to Aftercare services for young adults formerly in the child welfare system. Under the
bill, any young adult who, having been placed by a court pursuant to dependency statutes, has lived in out-of-
home care for at least 6 months after he or she turned 14 years of age will be eligible as long as the young
adult is at least 18 years of age but not 23 years of age. Services may not duplicate certain other DCF
independent living services the young adult receives.
The bill also authorizes DCF to distribute federal funds to all young adults deemed eligible by the federal
funding source in the event of a state of emergency declared by the Governor or the President of the United
States.
The bill has a significant, indeterminate, negative fiscal impact on DCF and no fiscal impact on local
governments. See Fiscal Analysis.
The bill provides an effective date of July 1, 2024.
This docum ent does not reflect the intent or official position of the bill sponsor or House of Representatives .
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FULL ANALYSIS
I. SUBSTANTIVE ANALYSIS
A. EFFECT OF PROPOSED CHANGES:
Background
The Florida Department of Children and Families
The Florida Department of Children and Families (DCF) contracts with Community-Based Care Lead
Agencies (CBCs) to provide child protection and child welfare services to children and families in
Florida.1 There are 18 lead agencies that each cover specific geographic areas within the 20 Judicial
Circuits in Florida. Several lead agencies cover more than one geographic area, and areas may
include one or more counties. DCF contracts with community-based care lead agencies (CBCs) for
case management, out-of-home services, and related services. The outsourced provision of child
welfare services is intended to increase local community ownership of service delivery and design.
CBCs in turn contract with a number of subcontractors for case management and direct care services
to children and their families.
While the appropriate care of children is ultimately the responsibility of the state, DCF protects the best
interests of children by achieving certain outcomes in conjunction with the CBCs. These outcomes
include helping children receive appropriate services to meet their educational needs and to develop
the capacity for independent living and competence as an adult. 2
Out-of-Home Care
When children cannot safely remain at home with parents, Florida’s child welfare system finds safe out-
of-home placements for children. Through December 2023, there were 19,334 children and young
adults in out-of-home care in Florida.3 After a placement assessment to determine the most appropriate
out-of-home placement, a child may be placed in licensed care or with a relative or a non-related
individual known to the child, termed “fictive kin”. Licensed care includes licensed foster parents and
group homes or other licensed residential setting.4
Transition to Adulthood
Young adults who age out of the foster care system more frequently have challenges achieving self-
sufficiency compared to young adults who never came to the attention of the foster care system. Young
adults who age out of the foster care system are less likely to earn a high school diploma or GED and
more likely to have lower rates of college attendance.5 They have more mental health problems, have a
higher rate of involvement with the criminal justice system, and are more likely to have difficulty
achieving financial independence.6 These young adults also have a higher need for public assistance
and are more likely to experience housing instability and homelessness. 7
In federal fiscal year 2021, the federal Children’s Bureau within the U.S. Department of Health &
Human Services reported 46,694 teens and young adults entered foster care in the United States,8 with
1 S. 409.986(1)(a), F.S.
2 S. 409.986(2), F.S.
3 Office of Child and Family Well-Being, Monthly Trends, Florida Department of Children and Families, (last updated Jan. 10, 2024)
https://www.myflfamilies.com/ocfw-dashboard (last visited Jan. 27, 2024).
4 Ss. 39.4022(6), 39.523(2), F.S.
5 Gypen, L., Vanderfaeillie, J., et al., “Outcomes of Children Who Grew Up in Foster Care: Systematic -Review”, Children and Youth
Services Review, vol. 76, pp. 74-83, http://dx.doi.org/10.1016/j.childyouth.2017.02.035 (last visited November 30, 2023).
6
Id.
7 Id.
8 Children’s Bureau, The Adoption and Foster Care Analysis and Reporting System (AFCARS) FY 2021 data , U.S. Department of
Health and Human Services, p. 2, June 28, 2022, https://www.acf.hhs.gov/sites/default/files/documents/cb/afcars-report-29.pdf (last
accessed Dec. 3, 2023).
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2,167 teens and young adults entering Florida’s foster care system. 9 The Children’s Bureau also
collects information and outcomes on youth and young adults currently or formerly in foster care who
received independent living services supported by federal funds. 10 To this end, the Children’s Bureau’s
National Youth in Transition Database (NYTD) representation tracks the independent living services
each state provides to foster youth in care and assesses each state’s performance in providing
independent living and transition services.
DCF will establish its fifth NYTD report (Oct. 2022 – Sept. 2023) that surveys youth in Florida’s foster
care system beginning on their 17th birthday.11 In the interim, the most recent Florida NYTD available
on DCF’s website is the 2018 report.12 In the chart below, the 2018 Florida NYTD documented
outcomes related to education, employment, housing, finances and transportation, health and well-
being, and connections:13
Outcomes of Young Adults who Aged Out of Care
Area Outcome
74% were enrolled in and attending high school, GED classes, post-high
school vocational training, or college.
Education 12% experienced barriers that prevented them from continuing education.
The top three reported barriers included the need to work full-time, not
having transportation, and having academic difficulties.
15% were employed full-time (35 hours per week or more).
26% were employed part-time.
Employment 78% had a paid job over the last year.
22% completed an apprenticeship, internship, or other on-the-job training,
either paid or unpaid.
The top three current living situations included living in their own
apartment, house, or trailer; living with friends or a roommate; and living in
a group care setting (including a group home or residential care facility).
Housing
41% had to couch surf or move from house to house because they did not
have a permanent place to stay.
27% experienced some type of homelessness in the past year. 14
46% received public food assistance.
10% received social security payments (Supplemental Security Income,
Financial & Social Security Disability Insurance, or dependents’ payments).
Transportation
83% had a reliable means of transportation to school/work.
76% had an open bank account.
9 Children’s Bureau, The Adoption and Foster Care Analysis and Reporting System (AFCARS) FY 2021 data: Florida , U.S.
Department of Health and Human Services, p. 1, June 28, 2022, https://www.acf.hhs.gov/sites/default/files/documents/cb/afcars-tar-fl-
2021.pdf (last accessed Dec. 3, 2023).
10
Children’s Bureau, Data and Statistics: National Youth in Transition Datab ase, U.S. Department of Health & Human Services,
https://www.acf.hhs.gov/cb/data-research/data-and-statistics-nytd#FL_26606 (last visited Dec. 3, 2023).
11 Florida Department of Children and Families, Independent Living Services Annual Report, Office of Child Welfare, Feb. 2023, p. 15
https://www.myflfamilies.com/sites/default/files/2023-07/Independent_Living_Services_Report_2022.pdf (last visited Dec. 4, 2023).
12 Florida Department of Children and Families, Annual Reports for Independent Living, Child and Family Services,
https://www.myflfamilies.com/services/child-family/independent-living/annual-reports-for-independent-living (last visited Dec. 4, 2023).
13 Florida Department of Children and Families, Florida National Youth in Transition Datab ase, 2018 Survey Data Report,
https://www.myflfamilies.com/sites/default/files/2023-06/2018%20Florida%20NYTD%20Statewide%20Report%20Final.p df (last visited
Dec. 4, 2023).
14 Id.
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85% were on Medicaid.
18% had children.
34% had not received medical care for a physical health problem, treatment
Health & for a mental health problem, or dental care in the past two years for some
Well-Being
health problem needing to be addressed.
24% were confined in a jail, prison, correctional facility, or juvenile detention
facility within the past two years.
85% had at least one adult in their life, other than their case manager, to go
Connections to for advice or emotional support.
67% had a close relationship with biological family members.
The Federal John H. Chafee Foster Care Program for Successful Transition to Adulthood
The John H. Chafee Foster Care Program for Successful Transition to Adulthood (the Chafee program)
provides funding to support young adults in or formerly in foster care in their transition to adulthood.
The program is funded through formula grants awarded to child welfare agencies in States (including
the District of Columbia, Puerto Rico and the U.S. Virgin Islands) and participating Tribes. The program
is funded at $143 million a year.15
Chafee funds are used to assist young adults in a wide variety of areas designed to support a
successful transition to adulthood. Activities and programs include, but are not limited to, help with
education, employment, financial management, housing, emotional support and assured connections to
caring adults. Specific services and supports are determined by the child welfare agency, vary by State,
locality and agency, and are often based on the individual needs of the young person. Many State or
local agencies contract with private organizations to deliver services to young people. 16
Eligibility for the program, as outlined in federal law, includes:
Youth in foster care, ages 14 and older
Young people in or formerly in foster care, ages 18 to 21, or 23 in some jurisdiction
Youth who left foster care through adoption or guardianship at age 16 or older
Youth “likely to age out of foster care” to receive assistance to participate in age appropriate
and normative activities
States and Tribes may have additional requirements for eligibility. 17
In 2022, the federal government allotted $7,175,951 in federal Chafee dollars to Florida for the purpose
of independent living services.18
15 Administration for Children and Families, John H. Chafee Foster Care Program for Successful Transition to Adulthood , U.S.
Department of Health and Human Services, (last updated July 3, 2024) https://www.acf.hhs.gov/cb/grant-funding/john-h-chafee-foster-
care-independence-program (last visited Jan. 26, 2024).
16 Id.
17 Id.
18 Administration for Children and Families, FY 2022 Allotment for Chafee Foster Care Program for Successful Transition to Adulthood
Grants, U.S. Department of Health and Human Services , Attachment A, p. 8 (Feb. 9, 2023)
https://www.acf.hhs.gov/sites/default/files/documents/cb/pi2301.pdf (last visited Jan. 26, 2024).
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Florida Programs for Older Youth and Young Adults
Florida uses the federal Chafee funding, along with other funding such as Title IV-E and state General
Revenue, for programs and services for older youth in foster care and young adults formerly in foster
care. Such programs include:
Extended foster care.
Road-to-Independence programs:
o Postsecondary Supports and Services, and
o Aftercare.
DCF’s Office of Continuing Care.
Extended foster care and the Road-to-Independence programs have different eligibility requirements
and benefits.
Extended Foster Care
A young adult who is living in licensed care on his or her 18th birthday and who has not achieved
permanency may choose to remain under court supervision and the care of DCF through extended
foster care.19 If the young adult chooses to remain in care beyond his or her 18th birthday, then the
young adult’s permanency goal becomes transitioning to independence. 20 To this end, a young adult
who chooses extended foster care must participate in one of four self-sufficiency activities. These four
self-sufficiency activities include:
1. Completing secondary education or a program leading to an equivalent credential;
2. Being enrolled in an institution that provides postsecondary or vocational education;
3. Participating in a program or activity designed to promote or eliminate barriers to employment;
or
4. Being employed for at least 80 hours per month.
However, the child may be excused from the self-sufficiency activities if the child has a documented
physical, intellectual, emotional, or a psychiatric condition that limits the child’s full-time participation.21
In addition to one or more self-sufficiency activities, the young adult in extended foster care must
independently reside in a supervised living environment that DCF or a CBC approved. In other words,
the young adult must continue to receive supervision, case management, and supportive services from
DCF or a CBC but live independently in an environment that offers developmentally appropriate
freedom and responsibility to prepare the young adult for adulthood.22 Meanwhile, the court maintains
jurisdiction to ensure that DCF and CBCs provide services and coordinate with, and maintain oversight
of, other agencies involved in implementing the young adult’s case plan, individual education plan, and
transition plan.23
A supervised living arrangement may include a licensed foster home, licensed group home, college
dormito