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A Brief History of Federal
Abstinence-Only-Until-Marriage Funding

Government funding of abstinence-only-until-marriage programs is not new. In fact, the federal government has poured tax-payer money into such programs for almost a quarter century.

Beginning in 1981 under the Reagan Administration, the federal government has consistently supported abstinence-only-until-marriage programs despite a lack of research proving that they are effective. Funding for these unproven programs has grown exponentially since 1996. Between 1996 and federal Fiscal Year 2006, Congress funneled over $1.5 billion dollars (through both federal and state matching funds) to abstinence-only-until-marriage programs. (See Funding Chart for more information.)

For the Fiscal Year 2007, the federal government has allocated $176 million through three separate funding streams for abstinence-only-until-marriage programs. The President has proposed increasing this funding level to $204 million for Fiscal Year 2008.

The Three Funding Streams for Abstinence-Only-Until-Marriage Programs

Adolescent Family Life Act
The Adolescent Family Life Act (AFLA) was quietly signed into law in 1981 as Title XX of the Public Health Service Act without hearings or floor votes in the U.S. Congress. In addition to providing support for pregnant and parenting teens, AFLA was established to promote “chastity” and “self-discipline.”

The program has always had a pregnancy-prevention component aimed at discouraging premarital sexual behavior among teens. Since Fiscal Year 1997, however, funds within AFLA were explicitly tied to the more stringent eight-point definition of “abstinence education” found in Title V and, therefore, to a stricter interpretation of what must be taught. Since its inception, AFLA has received more than $125 million. For Fiscal Year 2008, President Bush has proposed maintaining AFLA’s funding for abstinence-only-until-marriage programs at $13 million.

Title V—Welfare Reform Act
The Temporary Assistance for Needy Families Act (TANF), better known as “welfare reform,” was signed into law in 1996. The welfare reform law added Title V, Section 510(b) of the Social Security Act which established a new funding stream to provide grants to states for abstinence-only-until-marriage programs. Similar to AFLA, this program was enacted quietly, without public or legislative debate.

Under Title V, the U.S. Department of Health and Human Services allocates $50 million in federal funds each year to the states. States that choose to accept these funds must match every four federal dollars with three state-raised dollars and are then responsible for using the funds or distributing them to community-based organizations, schools, county and state health departments, media campaigns, or other entities. Every state, with the exception of California, has at one time accepted Title V funds. Currently, nine states do not take this money, including California, Maine, and New Jersey.

With the passage of Title V also came an eight-point federal definition of “abstinence education.” All programs that receive abstinence-only-until-marriage funds must adhere to this definition which specifies, in part, that “a mutually faithful monogamous relationship in the context of marriage is the expected standard of all human sexual activity” and that “sexual activity outside the context of marriage is likely to have harmful psychological and physical effects.” Because the first element requires that Title V-funded programs have as their “exclusive purpose” promoting abstinence outside of marriage, programs may not in any way advocate contraceptive use or discuss contraceptive methods except to emphasize their failure rates.   In addition, as of Fiscal Year 2007, states must now “meaningfully represent each” element of the definition.

Fiscal Year 2007 brought with it another worrisome change for Title V-funded programs; the program must now focus on individuals ages 12–29. Historically, the program announcement did not specify the age of intended participants, allowing many states to choose to focus on the importance of delaying sexual initiation among young people ages 9–14. This new focus on older youth and, indeed, those who no longer fall within the category of “youth” at all, goes against common sense. In fact, according to the National Center for Health Statistics, over 90% of people ages 20 to 29 have had sexual intercourse. Censoring information about how they can protect themselves is both bad public health practice and a violation of basic rights.

Title V was originally authorized for five years, 1998–2002. Although this program has not officially been reauthorized as of early 2007, it has remained in operation under agreements that continue the funding and it will, therefore, receive $50 million in federal funds in Fiscal Year 2007. Title V funding is set to expire in June 2007. President Bush has proposed maintaining this funding for Fiscal Year 2008.

Section 510(b) of Title V of the Social Security Act, P.L. 104–193

For the purposes of this section, the term “abstinence education” means an educational or motivational program which:

A

has as its exclusive purpose teaching the social, psychological, and health gains to be realized by abstaining from sexual activity;

B

teaches abstinence from sexual activity outside marriage as the expected standard for all school-age children;

C

teaches that abstinence from sexual activity is the only certain way to avoid out-of wedlock pregnancy, sexually transmitted diseases, and other associated health problems;

D

teaches that a mutually faithful monogamous relationship in the context of marriage is the expected standard of sexual activity;

E

teaches that sexual activity outside of the context of marriage is likely to have harmful psychological and physical effects;

F

teaches that bearing children out-of-wedlock is likely to have harmful consequences for the child, the child's parents, and society;

G

teaches young people how to reject sexual advances and how alcohol and drug use increase vulnerability to sexual advances, and

H

teaches the importance of attaining self-sufficiency before engaging in sexual activity.

Community-Based Abstinence Education
In October 2000, the federal government created yet another funding stream to support abstinence-only-until-marriage programs. Under this third funding stream, originally known as Special Projects of Regional and National Significance–Community-Based Abstinence Education (SPRANS–CBAE), the federal government awards grants directly to state and local organizations. Until recently, SPRANS–CBAE was administered within the U.S. Department of Health and Human Services (HHS) by the Maternal and Child Health Bureau. Beginning in Fiscal Year 2005, however, this funding stream was moved to HHS’ more conservative Administration for Children and Families (ACF) and is now referred to simply as Community-Based Abstinence Education (CBAE).

Whereas under Title V funding, states ultimately decide which programs receive funding, all decisions regarding CBAE funding bypass the state approval process entirely. Instead, HHS awards grants directly to community-based organizations. Programs funded under CBAE are required to teach all eight points in the federal government’s definition of “abstinence education.”

These more restrictive standards are clearly an attempt by conservative lawmakers to gain greater control of funding. In fact, certain lawmakers have sought to prevent money from supporting media campaigns, youth development, and after-school programs, arguing that such programs dilute the abstinence message, do not sufficiently focus on marriage, and violate the intent of Title V’s eight-point “abstinence education” definition.

In fact, in early 2006, ACF released a new funding announcement for CBAE programs. With this call for new proposals, ACF promulgated a series of new assaults on logic, science, and individual dignity, and CBAE programs have become that much more ideologically driven.

The new funding announcement views sexual abstinence prior to marriage as the magic elixir to a more perfect life. Sexual abstinence before marriage is credited with leading to a happier life, including having a healthier marriage, having more money, having healthier future children, being more “responsible” parents, being honorable and having integrity, attaining a better education, having fewer psychological disorders, avoiding drug, alcohol, and tobacco use, committing fewer crimes and staying out of prison, and having a longer life span. The problem with ACF’s proclamations, however, is that they have no basis in sound evidence and very little grasp on the reality endured by the vast majority of America’s youth.

Funding for CBAE began in Fiscal Year 2001 at $20 million. By Fiscal Year 2007, CBAE increased over 450% to a total of $113 million. The President has proposed increasing this funding stream to $141 million for Fiscal Year 2008.

Additional Federal Funding for Abstinence-Only-Until-Marriage Programs

These three specific funding streams, however, do not represent the total amount of money spent on abstinence-only-until-marriage programs. Additional funding for these programs has been allocated through a variety of federal funding vehicles. For example, in both Fiscal Years 2004 and 2005, Senator Arlen Specter (R-PA) earmarked over $3 million in federal funds for abstinence-only-until-marriage programs in his home state of Pennsylvania. Conservative organizations such as the Abstinence Clearinghouse and the Medical Institute (formerly known as the Medical Institute for Sexual Health), have also received funds specially earmarked by Congress. Increasingly, abstinence-only-until-marriage providers are also receiving funds through traditional HIV/AIDS and STD prevention accounts such as those administered by HHS and the Centers for Disease Control and Prevention (CDC).

Web Master: siecus@siecus.org

A Brief History of Federal Abstinence-Only-Until-Marriage Funding

A Brief History of Federal
Abstinence-Only-Until-Marriage Funding