text:  It turns out that that process is incredibly complicated. It's much worse, actually, than applying for SNAP or some of the other things we've talked about. There's many, many steps. You have to go to court and file a whole bunch of paperwork and fill out a lot of confusing forms. And so no one was really doing it. So we had this huge gap between the idea of the law and the actual real-world outcomes that the law had intended, and that is a gap of implementation.