When its welfare rewrite became a political issue, HHS then invented a new standard that appears nowhere in its original memorandum and says that 20% more people need to move to work from welfare than before to get a waiver.

WSJ: Review & Outlook: Welfare Reform as We Knew It

They split the original ownership in some way, and then work to bring in the resources they need to build an enterprise.

FORBES: Who Is A Founder?