On or before October 1, 2016, the department of children, youth and families shall begin to implement a strategy to transition from reliance on congregate-care placements to greater use of foster homes with community-based services for children and families. Said strategy shall ensure quality outcomes, performance measures, and incentives that promote service excellence and improve the system’s overall stability by reinvesting the benefits that accrue from the more efficient and effective utilization of congregate care, foster homes, and community-based services. Attaining systemwide reform of the magnitude set forth herein shall require rebalancing the system by making significant changes in the organization, financing, and delivery of services that must be implemented incrementally.