Hold on. It is the way it is because most of those programs don't provide services directly, they provide funding for state/local agencies and nonprofits to provide services. Congress controls what social services are provided by being very specific about what services they will fund. Now, I'll be the first to argue that that's counterproductive, given that half the country prefers drooling idiots who think all poor people are lazy and welfare queens are a thing to represent them in the House, and we would be better off letting HUD/the Department of Education/whoever decide what they should be funding, thereby having the decisions made by people with a clue about what they're making decisions about rather than by drooling idiots, but that's another thing. So long as Congress has that role, this is the way it has to fill it.