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* The research reported here is part of a larger study of Aid to Families with Dependent Children (AFDC) financed by funds granted to the Institute for Research on Poverty, University of Wisconsin, by the Office of Economic Opportunity, pursuant to the Economic Opportunity Act of 1964. The opinions expressed in this Article are those of the authors only. t Professor of Law and Member of the Institute for Research on Poverty, University of Wisconsin. A.B. 1954, Princeton University; J.D. 1957, Harvard University. Member, Illinois and New Jersey Bars. : Project Specialist, Institute for Research on Poverty, University of Wisconsin. M.S. 1957, University of Wisconsin. 142 U.S.C. ?? 601-10 (1964), as amended, (Supp. IV, 1969). 2 At present, more than 6.5 million persons receive AFDC benefits, or more than 60 out of every 1000 children. In 1955, the comparable proportion was only 30 out of every 1000 children. Costs have also increased dramatically. Total expenditures for the 15 years between 1935 and 1950 did not exceed one half billion dollars. The total doubled between 1950 and 1960. From 1960 to 1967, another one billion in expenditures was added. Four billion dollars has been estimated as the cost of the program for fiscal 1970. Hearings on Social Security and Welfare Proposals Before the House Comm. on Ways and Means, 91st Cong., 1st Sess., pt. 1, at 120 (1969) [hereinafter cited as Hearings]. 3 Legislative output has been meagre. In Wisconsin, the program took on its basic characteristics in the 1920's and remains essentially unchanged. For an analysis of the Wisconsin history, see Handler & Goodstein, The Legislative Development of Public Assistance, 1968 Wis. L. REV. 414, 445-50, 456-60. The development of the federal program is described in G. STEINER, SOCIAL INSECURITY: THE POLITICS OF WELFARE (1966) [hereinafter cited as STEINER]. 442 U.S.C. ?602(a)(11) (Supp. IV, 1969). "NOLEO," or "Notice to Law Enforcement Officials," was an amendment passed by Congress in 1950 in reaction to the rising number of desertion cases on the then Aid to Dependent Children rolls. It requires welfare agencies to notify local law enforcement officials whenever aid is furnished to an abandoned or deserted child. Presumably, notification will trigger efforts to locate the absent parent. The purpose of the amendment was to induce a willingness on the part of the deserted mother to cooperate in the attempt to reestablish the father's responsibility for the family. The NOLEO qualification had no relationship to need, citizenship, or residence. It increased the number of officials involved in the administration of the program, and in some instances induced the mother to deprive her child of welfare benefits rather than to acquiesce in legal harrassment of the father. See STEINER 114-18.

Reforming Welfare: The Constraints of the Bureaucracy and the Clients