This report describes how Title IV-A of the Social Security Act is being used to aid homeless families with children. The report reviews the history of the Emergency Assistance program (EA) and the special needs component of the Aid to Families with Dependent Children program (AFDC-Special Needs), discusses current policy and practice, examines the efforts of some welfare agencies to aid the homeless, describes relevant legislation, and presents data related to EA. Section 1 is an introduction. Section 2, "History," covers the following topics: (1) the emergence of EA; (2) the concept of special needs; (3) individualized service to consolidated grants; (4) EA time limit; and (5) case law regarding EA. Section 3, "Current Rules and Practice," covers the following topics with regard to EA and AFDC-Special Needs: (1) the law; (2) regulations; (3) State use of each program for shelter; and (4) a comparison of EA and AFDC-Special Needs. Section 4, "Proposed Federal Regulations to Curb Use of Welfare Hotels," covers the following topics: (1) EA regulations; (2) AFDC-Special Needs regulations; and (3) Congressional response. Section 5, "New State Initiatives to Help Homeless Families with Children," covers the following states: (1) California; (2) New York; and (3) Massachusetts. Section 6 covers the proposed legislation dealing with the use of EA or AFDC funds to help homeless families with children. Information about coverage, participation, and expenditures under EA is appended. Six tables are included. (JS)