In this Aug. 22, 1996, file photo President Bill Clinton prepares to sign legislation in the Rose Garden of the White House overhauling America's welfare system. Visible, from left, are former welfare recipients Lillie Harden, of Little Rock, Ark., and Janet Ferrel, of W.Va., Vice President Gore, West Virginia Gov. Gaston Caperton, Sen. John Breaux, D-La., and former welfare recipient Penelope Howard, of Delaware. (AP Photo/J. Scott Applewhite, File) **FILE**
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