"As you know, as a result of sweeping changes made to federal welfare policy in 1996... welfare changed from a program entitling eligible families to monthly cash payments... to a capped block grant that emphasized employment and work supports for most adult participants who receive such assistance....  According to our research, the decline in participation reflected, among other things, families' responses to changes in state welfare programs, including mandatory work activities, declining cash benefit levels, and time limits as well as state diversion strategies and sanctions for non-compliance with work and other program requirements."