if?

 

A STUDY OF
LICENSING PROCEDURES
OF
INDEPENDENT BOARDING HOMES
IN

MICHIGAN

by
.m Rachel Faude Wood
A PROJECT REPORT

Submitted to the Department of Social Work
Michigan State University
in Partial Fullfillment of the
Requirements for the Degree
of
MASTER OF SOCIAL WORK

June 1955

Approved: , A 743é1 fl
, B/OL43415LC/1/%{ ,c, /Z/<4L2

(J
( ,

‘ Chairman, Research Committee

\:7
(In, Head of Department '

THESIS

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TABLE OF CONTENTS

CHAPTER Page
I INTRODUCTION -------------------------- 1
II HISTORICAL BACKGROUND ................. 5
III METHODS AND PROCEDURES EMPLOYED
IN THIS STUDY .................... 9
IV ANALYSIS OF DATA ---------------------- 1h
V SUMMARY AND CONCLUSIONS --------------- 38
APPENDIX ------------------------------------------------- A2
BIBLIOGRAPHY --------------------------------------------- 62

iii

LIST OF TABLES

Table Page
1 Main Omissions on Boarding Home Applications ------------ IS
2 Lapse of Time Between Application and License Issued---- 16
3 Location of the Initial Interview ----------------------- 17
h Type of Clearance made on Applicants -------------------- l9
5 Home Visits during the Study------------------.' ......... 21
6 Method of Interviewing Foster Parents ------------------- 22
7 Coverage of Social History in Boarding Home Study ------- 27
8 Relation of the Study to type of Child Care ............. 33

iv

CMMRI
INTRODUCTION

Boarding care is the provision of an environment for a child outside
his own home which meets his physical needs and provides for his mental
and emotional growth. Uhder Act #7, Public Acts lth (first extra session)
the responsibility for providing supervision of boarding care in Michigan
is given to the State Department of Social Welfare. This responsibility
is discharged by the Children's Division of the department through its
licensing program.

In order to protect the physical, mental and emotional growth needs
of children in foster homes, certain standards for boarding homes and
methods of ascertaining whether these have been upheld have been out-
lined. The purpose of this study is to determine whether, under this
licensing program, these standards and methods are being adhered to and
thus the physical, mental and emotional growth of the children in board-
ing care is being safeguarded. A further purpose of the study is to
explore methods for increasing the protection of children in boarding
homes by improving the quality of boarding home studies through improved
administrative procedures in the licensing program.

There are three types of boarding homes in Michigan: those used by
the various child placing agencies, those used by the probate courts and
the independent homes. The latter, for children placed by their own
parents, and investigated, licensed and supervised by representatives
of the department of social welfare in each county, are the ones from

which the sampling was taken for this study.

-2-

The responsibility for actual licensing of the 6,000 boarding homes
within the state of Michigan lies within the state boarding home unit of
the Department of Social Welfare. As supervisor of this unit, the writer
became increasingly aware of the problems as shown in the case studies
which were forwarded by courts and agencies and their deviations from
the state office procedure and policy. Although some questions were
forwarded from time to time on the approximately 2200 boarding homes
licensed by the independent workers, little was known about the actual
procedure prior to the recommending of a license. From questions asked
by the field workers and those raised at various children's workers'
institutes, it was believed there was variation in the methods of pro~
cedure and deviation from the present policies in the licensing of
independent homes. Thus a study of present procedures was made.

The representatives of the department of social welfare doing the
licensing of independent homes are divided into two groups; children‘s
workers and bureau workers. The former, in the lower part of the state,
are placed where there are the heaviest concentrations of foster homes.
In the upper part of the lower peninsula and the upper peninsula, they
may, however, cover a territory of several counties. Thus, in 31 of the
83 counties of Michigan, licensing is done by the children's workers;
and in the other 52 by employees of the Bureau of Social Aid, another
division of the department. These workers are all supervised by the
supervisory field staff, the district consultants.

All except four of the present children's workers have at least one
year of graduate training in social work. These workers also carry a

caseload of children's cases. The bureau worker has less boarding homes

-3-
to service but will carry, also, a caseload in the categorical reliefs.
One of the bureau workers had graduate training in social work. A

number had years of in-service training in the Bureau of Social Aid.

Assumptions and Working Hypothesis

It is assumed that there is a need for more specific outline of the
procedures to be used by children's workers and bureau workers in the
licensing of independent homes. It is believed that in many counties
minimal records may be kept while in some counties homes may be licensed
without any home study or prOper forms on file. It is further believed
that policies and rules may be disregarded either in total or in part,
and licensing may be done in direct violation of rules and regulations
or policies.

It is further assumed that untrained social workers would tend to
direct their study to the physical needs of the client, while the
trained workers would tend to secure facts pertaining to physical needs,
but in addition, would show greater understanding of mental and emotion-
al factors which might influence the growth processes of the child in
foster care.

Because the training in the Bureau of Social Aid is directed to-
wards emphasis on the use of a policy manual, it is assumed that the
bureau workers would tend to follow the outlines and policies more
completely than would the children's workers. It is also assumed the
emphasis for the latter is awareness of relationships.

If it is determined that trained workers are less held to proced-
ural requirements and untrained workers more controlled by procedural

requirements, and if the quality of work as done by these two groups

-4-
varies, it is assumed that evidence indicates that present procedures of
licensing may not be as effective as they should be.

It is assumed that if the relationship between quality of work and
adherence to procedural requirements does not indicate effectiveness of
procedure, the implications could be (1) change in procedures, (2) meas-
ures to help the workers use the present procedures more effectively,

(3) different procedures for Bureau of Social Aid and Children's Workers,

(A) different procedures for trained or untrained workers.

CHAPTER II
HISTORICAL BACKGROUND

Licensing of boarding homes is based on the premise that children
are the responsibility of the state as well as the parent. Since the
parent is not always aware of the problems which may arise from place-
ment, this public service helps in preventing placement of children in
homes which may be injurious to their normal development.

The first state law requiring the licensing of boarding homes was
passed in Massachusetts in 1892. Since then, most states have passed
laws granting a state department the authority to license foster homes
in which minor children are placed.

While licensing of boarding homes has been a law only during the
20th century in most states, foster home care goes back to the old pat-
tern of indenture which was first recorded in Michigan in 1817.1 In
1871, a report of special commissioners showed an awareness of the
strengths and hazards of foster placement.

Institutional life should be avoided as much as possible as

we consider the rearing and training in families as more

natural and far superior in all respects, while we would

also strongly urge the necessity of supervision of indentured

or adopted children by some competent officer, who shall fre-

quently visit them and ascertain if the child is well cared
for and the conditions of the indenture are being fullfilled.

 

1 Laws of the Territory of Michigan II, 115-116
2 Report of Special Commissioners to Examine Penal, Reformatory and
Charitable Institutions of the State of Michigan 1871, p.77

-6-
It was at this time that a law3 was passed to establish a state school
for dependent and neglected children. The eligible children included
only those over four and under 16 years who were sound in mind and body
as well as neglected. The object of the lawn was to provide a temporary
home only until the children could be placed in family homes.

In 1913, the first law in Michigan5 requiring licensing of board-
ing homes for children, with responsibility directed to the Board of
Corrections and Charities, was passed. The board was authorized to
investigate child caring facilities and prescribe rules and regulations
to protect the best interests of children. An attorney general's deci-
sion6 in 19lh ruled that the Board of Corrections and Charities also had
the authority to inspect boarding homes and to make rules and regulat-
ions for them.

In 1919, the legislature passed Act 136, providing for the licens-
ing and regulation of boarding homes for children. Many of the provis-
ions were substantially the same as those under Act 300 in 1913. The
boarding parents were, as provided under Act 300, required to keep a
record of each child received, boarding homes could be inspected at any
time; and violators could be fined not less than $25 or more than $100,
given imprisonment in the county jail for not less than 30 days or more
than 90 days, or both, at the discretion of the court. Any person con-
victed under the authority of the act could not be granted a license or

be permitted to be connected directly or indirectly with any agency or

 

3 Public Acts of Michigan 1871, Act 172

A Ibid. section 13

5 Public Acts of Michigan 1913, Act 300

6 Report of Attorney General of Michigan 1914, p.h04

-7-
person caring for children for a period of 10 years. An important
addition under the 1919 law was that the license should state the name
of the licensee, particular premises to which applied and the maximum
number of children to be maintained or boarded at any one time. The
license applied only to the premises occupied by the licensee at the
time of issuance and a change of residence automatically terminated
the same.

The State Welfare Department was created in 19217 and the State
Welfare Commission was made the legal successor to the State Board of
Corrections and Charities.

In 1931, Act 136 was amended8 and the age limit of children
covered under licensing of foster homes was raised from 15 to 17 years.

The State Department of Social Welfare was created in 1939, and the
Social Welfare Commission was made a legal successor to the State Welfare
Commission.

In 19h3 a bill relating to the licensing of boarding homes was
introduced into the legislature but was not reported out of committee.
However, Governor Kelley inaugurated a youth guidance program including
a state wide youth guidance committee. Following the development of this

lay organization, many laws relating to juveniles were passed including
the law under which the Department of Social Welfare operates today.9
This law requires all boarding homes and child welfare agencies, as

well as child caring institutions, child placing agencies, boarding

 

7 Public Acts of Michigan 1921, Act 163
8 Public Acts of Michigan 1931 amending Act 136, P.A. 1919, Act 262
9 Public Acts of Michigan l9hh (first extra session) Act A7

-8-
schools, summer camps, day care centers and nursery schools to have a
license issued by the State Department of Social Welfare.

Revisions to Act #7 in 1951 provided for licensing of homes whether
the child was working in it or not and whether or not he was receiving
consideration for such work. Also, boarding parents were required to
notify the Department of Social Welfare of the coming and/or leaving of
any foster child under 17 who was not placed by a probate court or an
agency. In 1952 provision was made so that any reasonable order for
standards of care and supervision could be enforced through injunction
in circuit court.

The writer found the literature in this field extremely limited.
The only similar study found was an investigation made in 1950 in Kent
County, Michigan by a representative of the State Department of Social
Welfare.10 This was very limited, however, as only 20% or eight of the
independent homes in that county were studied and in a much less complete
manner than this study. Those homes were all serviced by children's

workers with some graduate training.

 

 

10 Administrative Review of Kent County, State Department of Social
Welfare 1950

CHAPTER III
METHODS AND PROCEDURES EMPLOYED IN THIS STUDY

In order to develop adequate standards of child care as provided
under Act #7, #6 rules and regulations have been worked out, covering the
boarding home, the boarding family and the boarding child. There is also
a policy manual covering general policies to be applied in the licensing
of such homes and referring to the above-mentioned rules and regulations.
Certain forms, including an outline for boarding home studies, have been
adopted and are to be used in accordance with the minimum instructions in
the policy manual.

While it is probably true that all workers (court, agency and in-
dependent) may need clarification of rules and policies, it was decided
to review only independent homes because they are (l) the direct respon-
sibility of the department and (2) definite instructions as to procedure
may be outlined to the workers servicing them and specific procedures
required.

All material relative to the licensing of boarding homes in Michigan
goes through the state boarding home unit. In licensing independent
homes, only a certification slip showing name, address of foster parents
and Specifications as to number of children; their ages, sex, whether they
are there full time or for day care, the type of license recommended and
the agency recommending the license is received. All material pertaining
to independent boarding homes - application, home study, correSpondence
and reports - are kept in the county office. It was, therefore, only by
review of the county records that information as to the actual practice,

awareness of rules and adherence to instructions, could be established.

-9-

 

Ill‘lllI'IIlll

-10-

Because of the impossibility of visiting each county within a reason-
able period of time, the cooperation of the district consultant was se-
cured in reading records. It was also assumed, since the consultant
supervised such workers, that he would be more aware of the manner in
which his workers operated.

In checking the location of independent boarding homes, it was decid-
ed to omit two areas in the state from this study. One was Wayne County
(because of the large number of homes and the multiplicity of problems)
and the other, seven counties in the upper part of the lower peninsula
(where there was no consultant and only seven independent boarding homes
in the entire district). There were seven counties in which there were
no independent boarding homes on January 1, 1955, the date that independ-
ent boarding homes in Michigan were surveyed prior to this study. This
made a total of 68 of the 83 counties in which records were reviewed. Of
these, lh3 were cases in 30 counties serviced by children's workers and
133 cases in 38 counties serviced by bureau workers.

The total study of which this study is a part was undertaken for the
department of social welfare. In studying all licensing procedures for
independent boarding homes four points were covered; (1) inquiries about
licensing, (2) disposal of original applications, (3) originally licensed
boarding homes and (A) renewals.

As indicated above, this study on the original licensing of boarding
homes is part of the larger study, the questionaires used were modifica-
tions and expansions of ones which had been made up in 1950 and used in
a review made by a department representative of eight boarding homes in

Kent County. They followed the general outline and breakdown of the

-11-
outline for ”Study of a Foster Home" which is given to each worker and
which is referred to earlier in this report as part of the procedure for
licensing boarding homes.
For three months before these questionaires were made up, a record
was kept of the field worker's questions relative to procedure and to
deviations from the norm, as set up in "Rules and Regulations", the

ll and the policy manual. The areas in which there

department outline
were the most questions were then incorporated under the appropriate
headings in the questionaire. In revising the questionaires, the author
read cases in Ingham County and later did the studies in three of the
larger bureau counties.

These questionaires were then divided into four main parts: Appli-
cation, Investigation, Impressions and Recommendations. The largest area
came under the investigation or home study and the sub-headings under
this item were taken directly from the department outline for study of a
foster home.

The questionaires were then sent to each consultant with the request
that they be used on five cases in each county, or, if there were less than
five boarding homes cases in a particular county, on all of the active
cases. In the four largest counties included in this study - Kent, Ingham,
Genesee and Oakland - ten cases were read. This made a total of 276 cases.

133 of these were serviced by workers from the Bureau of Social Aid and

1h3 by Children's Division workers from the Department of Social Welfare.

 

11 See Appendix 2-3

-12-

The policy manual, Rules and Regulations and the department outline
for study of a boarding home each include instructions for licensing pro-
cedure. Inasmuch as there is an overlapping of instructions for licensing
and use of boarding homes, it was felt that the data obtained must be re-
lated to all three. Thus in the following chapter, we have included the
policy, rule and/or instructions under which the field worker should be
operating in accordance with the boarding home law.

The total number of cases read varied in number from district to
district according to the concentration of boarding homes.

In evaluating the above methods, we were aware that there would
probably be some difference in the manner in which the consultant would
evaluate the cases in his territory principally because the emphasis on
boarding care varied somewhat in proportion to the number of cases and
prOblems in each district. With ten different people reviewing cases,
we would have ten different interpretations of each question, each in
accordance with the individual attitude toward licensing of boarding
homes, the quality of work and perhaps even toward the worker doing the
actual study. There was no attempt at this time to evaluate the actual
quality of work done under each section but only as to whether or not
the worker was meeting minimum standards. Although space was left for
comments in several areas, few were made that would be of particular
value to this study. Thus, a worker might have mentioned family re-
lationships but not recorded or even been aware of the details or impli-

cations involved.

It was also thought that because procedures were not outlined in

detail in most areas a majority of negative answers might indicate the

-13-
need for more complete instructions.
In filling out the questionaires, one consultant might base his

answers on his knowledge of how the caseworker operated rather than on

the material included in the record. However, it was assumed (and as it

happened correctly) that comments would be included or the question

marked "unknown" if this were true.

We were also aware that this method would review a larger proportion
of the total Bureau of Social Aid cases than Children's Worker's cases,

however it did not seem that this would invalidate the results.

CHAPTER IV

Analysis of Data

 

In analyzing the data this study endeavors to show the total per-
centage of workers who followed present licensing procedures. These were
broken down into two groups, bureau workers and children's workers. As
stated earlier, the bureau workers were considered untrained, the child-

ren's workers trained in social work.

Applications

 

In the boarding home manual, Section u23.1 states "Section 3 of Act
#7 requires that applications shall be made on forms provided by the de-
partment and in the manner prescribed." Section 656 states, “The board-

12 must be on file in the county unit

ing parents signed applications
before a recommendation can be made to the state office to issue the
license."

In this study, there was little difference between the bureau work-
ers' cases and the children's workers' cases. In the former, 99 percent
and in the latter 97 percent included signed applications. Thus, in
98 percent of the cases, a signed application was on file. It was felt,
however, that two percent was too large a figure as there should be no
deviation to the above rule.

A number of questions on the application were unanswered in each of

the two groups of cases. Although the percentages were not as high as it

 

12 See Appendix 4

-1h-

 

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-15-
had been expected, 32 percent of the cases by bureau workers and Al per
cent of the cases by children's workers had partially completed applica-
tions. The areas which were unanswered were substantially the same for

each group. The main omissions are shown in Table 1.

TABLE I

OMISSIONS ON BOARDING HOME APPLICATIONS

 

 

 

Omissions Bureau of Social Aid Children's Worker Total
Community 12% lb% 1A%
Religion 8 13 10
Recreation 8 9 8
Motive for boarding 6 7 6
Sleeping arrangements 5 5 5

 

Other questions which were unanswered on a number of applications were;
age of children desired, boarding source, details regarding child in home,
directions for reaching, education, health, marriage, military service,
number and type of children wanted, previous boarding experience, ref-
erences and type of care to be given.

The lapse of time between date of application and the date the license
was issued is shown in Table 2, as shown on page 16.

In the consultant's opinions, the applications were acted upon prompt-
ly in relation to the problems presented in 76 percent of the bureau cases.
They did not feel that the children's workers were as prompt. In only
61 percent of their cases did the consultant state the study had been

processed promptly.

-16-
TABIE 2

LAPSE OF TIME BETWEEN APPLICATION AND LICENSE ISSUED

 

 

 

 

Time Lapse Bureau Social Aid Children's Worker Total
Within month 11% 11% 11%
1 month less than 2 21 l2 l7
2 months less than 3 16 21 18
3 months less than A 8 15 12
h months less than 5 2 3 3
5 months less than 6 2 7 h
6 months less than 12 h 12 8
Over year A 2 3
Unknown 32 16 2h
Total 100 100 100

 

In the 2% percent cases under ”unknown”, the application was not dated
and the records did not indicate the date of first contact.

This is one area in which there may have been much variation; the
inclusion of the phrase"in relation to the problems presented" indi-
cated that the consultant could use his own judgement as to whether or
not the case was processed promptly. Thus one consultant might feel that
a case was acted upon promptly when six months had elapsed since the first
inquiry while another would think it should be done within a month. The
comments, however, indicated that in many of the districts the consult-
ant felt the local office was understaffed and that the children's
workers were putting more emphasis on supervision of children's cases

than on the licensing of boarding homes.

-17-

Investigations

 

There is no indication in the manual as to a preferred manner of
handling the initial interview. The department outline states, "These
contacts usually will include an office interview for application (there
may be several office interviews, of course) a visit to the home where
other members of the family can be met and the physical facilities
examined and a second home visit for further clarification and strength-
ening of relationships........."

In addition to the above suggestion regarding an office interview, it
was believed that asking the client to come into the office for the initial
interview might be a time-saving, efficient manner of screening those who
obviously would not meet licensing standards and might also eliminate
those who were interested in agency placement or adoption. It was also
hoped that this might place responsibility on the client for the initial
interview. It was not known whether this was general practice at present.

In this sampling, there was little difference between the work of the
bureau and children's workers. Both were making home calls on the major-
ity of clients for the initial interview. The interviews were held as
shown in Table 3.

TABLE 3

LOCATION OF INITIAL INTERVIEW

 

 

 

Location Bureau Social Aid Children‘s Worker Total
Held in office 26% 30% 28%
Held in home 61 60 60
Not recorded 13 - 10 12

 

Total 100 100 100

-18-
Thus, in the initial interview, it appeared to be general practice with
both bureau and children's workers to make home calls. In checking those
cases where the greatest period of time elapsed between application and
issuance of the license against the place where the first interview was
held, there was no particular pattern shown.

Section 657.1 of the manual states, "The outline for study of a
foster home, which may be found in appendix II is offered as a guide
for the county unit's recording of the initial study of a home. Vhether
or not the outline is to be followed without deviation is a matter to be
decided by the district consultant and the county unit. However, all sub-
jects discussed in the outline mug: be covered in the home study report."

It was not known in how many cases there was any outline used. It
was found that in 92 percent of the Bureau of Social Aid cases and in
81 percent of the children's workers cases, an outline was used, a total of
86 percent of the cases. Of these, the department outline was used in
88 percent of the bureau cases and in 77 percent of the children's work-
ers' cases. No one particular outline was used in the others. Thus the
bureau workers used an outline more than the children's workers.

The outlines were used in many ways, however, and the consultant's
comments ranged from "used in a limited manner", ”very brief”, "fair”
to used in a very effective manner”, ”good coverage". One consultant
commented on cases recorded by one children's worker, "process record-
ing used and all subjects covered though not in outline form". These
five cases were included under "other" as it Was in accordance with

section 657.1 as quoted above even though an actual outline was not

-19-
used. Several consultants also commented that the records were read more
easily and coverage was more apt to be complete if an outline was fol-
lowed.

Section 655 of the manual states, "The names of all persons wishing
to apply for a boarding home license should be cleared with the local soc-
ial service exchange. If there is not a local exchange, the name should
be cleared with the bureau, the county welfare department and the probate
court.”

Section h33.2, "A record of persons known to the department is kept
by means of a central index. Agencies, probate courts, children's workers
and bureaus may make a clearance through the state office of the depart-
ment. This should not be done automatically on each inquiry but only
after it has been determined that a home study is to be made.”

Clearance was made on these 276 cases as shown in Table A.

TABLE A

TYPE OF CLEARANCE MADE ON APPLICANTS

 

 

 

 

Clearance Bureau Social Aid Children's Worker Total
Central index 2h% 16% 20%
Local exchange 10 52 32
ther agencies 5O 16 . 32 11‘
Total 8h 81+ 84 ‘

 

In the counties studied there was no local social service exchange where 78
percent of the bureau cases and 31 percent of the children’s workers' cases
were located. Some of the above cases were cleared both locally and through
the state office but in only four of the bureau cases and 13 of the children's

workers' cases was no clearance made.

 

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-21-
TABLE 5

HOME VISITS DURING STUDY

 

 

 

Number of Visits Bureau Social Aid Children's Worker Total
1 29% 203:. 21a
2 2O 28 23
3 1h 18 16
1+ 7 1+ 6
5 2 l
6 3 2
More 1 2 2
Unknown* 2h 28 26

 

*Where the material was not recorded it was shown in this table as un-
known.

In the majority of bureau cases, particularly those located in rural
areas, where only one home call was noted before the recommendation to
license the home, the consultant included such comments as "worker has
known this family personally", "family old friends of the worker”, or
"This family has been on worker‘s ADC caseload". In only three cases
rere there similar notations about the children's worker. It was also
apparent that a less complete home study was made on those cases on which
the above comments were included.

While it is definitely stated in the outline that it is necessary to
talk with the foster parents and other members of the family in order to
know them, to understand family relationships and the attitudes of all

members of the family towards taking a child into the home, it is also

-22-
implied in the following rules regarding acceptance of children by all
members of the family that this should be done.
Rule 25 states, "All members of the boarding family shall be willing
to accept the boarding child into the home as a member of the family group.
Rule 26, ”The persons in charge of the boarding home shall be of suit-
able age and temperament to care for children, shall understand the needs
of children; shall be capable of handling an emergency situation promptly
and intelligently and shall be willing to c00perate fully with the child-
ren's own parents and/or the supervising agency."
TABLE 6

METHOD OF INTERVIEWING FOSTER PARENTS

 

 

Method of Interview Bureau Social Aid Children's Worker Total

 

Both parents interviewed 59% 63% 61%
Individually h3 6 25
Together M3 22 32
Both Ways 25 32 29
Unknown 2 3 2

 

Other members of the family were seen in #5 percent of the Bureau of
Social Aid cases and in 60 percent of the children's workers' cases. In
23 of the bureau cases and 15 of the children's workers' cases, there were
no other members of the family than the boarding mother. In 20 bureau cases
and 13 children's workers' cases this was not recorded.

Thus, in this area, a larger percentage of the children‘s workers
adhered to the rules by interviewing members of the family, in recording

the material and in the type of home selected for study inasmuch as slight-

-23-
1y more of the children's workers cases were composed of complete
families.

The first general area in the outline for foster home study is
Community which includes type of neighborhood and resources of the
community. The latter is broken down into health services, education,
religion and recreation. A general description of the community was
given in 89 percent of the bureau workers' cases and in 82 percent of
the children's workers' cases.

There was little variation between the coverage as shown by the
bureau workers and that shown by the children's workers in this section,
other than medical services which was included by more bureau workers.

There was more variation in the area of the boarding home. The
general description of the home was covered in 89 percent of the total
number of cases. The bureau workers included the description in 98 per
cent of their cases, while the children's workers in only 81 percent.
The total number of rooms was given in almost all of the cases, 95 per
cent,and there was little variation between groups.

Rule #0 states, "Each child shall sleep alone or with only one
other child of the same sex. Boys and girls over 5 years of age shall
not sleep in the same room. Children, shall under no circumstances,
occupy beds with adults. Sleeping rooms should provide adequate oppor-
tunities for rest and privacy."

An awareness of this rule was shown in 80 percent of the total cases
reviewed. However, the children's workers covered it in more of their
cases than did the bureau workers.

Rule 9 states, "The home shall be clean, sanitary, free from vermin

-2h-
and in good repair.”

Housekeeping standards were recorded positively in 86 percent of
the total number of cases. The percentage of BSA workers was slightly
higher, 91 percent than the children's workers, 83 percent, recording on
this.

Rule 11 specifies, "The heating equipment shall have a proper capa-
city, be so located and operated to maintain a temperature of approxi-
mately 70 degrees under average winter weather conditions."

Rule 12, "Ventilation shall be provided in all rooms where children
eat, sleep and play by windows which can be opened."

Rule 13, ”window space and artificial lighting shall be sufficient
to prevent eyestrain."

Ruly 22, "Play space shall be available and free from hazards which
might be dangerous to life and health of the child. Play area shall be
kept free from litter, rubbish and inflamable material at all times."

The above rules were all included in one section, as it was felt
that they all cover similar areas. The total number of studies in-
cluding these was lower than hertofore as only 6h percent showed that
light, heat, ventilation and play space were included. There was slight
variation between the two groups of workers on this question.

Rule 10 states, "The home shall be so constructed, arranged and
maintained as to provide adequate protection for the health and safety
of the occupants........Representatives of the health department or fire
marshall's office shall be admitted to the home at any time for the pur-
pose of inspection."

The outline, mentioned hertofore, states, "Note condition of grounds,

repair of house,........possible fire hazards."

3

Ill" '1
Ila.

-25-

Both groups were very low in adhering to this rule as only hl percent
of the total number of cases mentioned fire hazards or lack of them. The
bureau workers, however, appeared much more aware of this as they recorded
fire hazards in 55 percent of their cases while the children's workers re-
corded it in only 27 percent of theirs.

Rule 15 states, "The home shall be provided with an ample supply of
safe water. If the water is Obtained from a well, the supply shall con-
form to the regulations for semi-public ground water supplies issued by
the Michigan Department of Health."

Rule 16, "The sewage disposal system shall meet state or local health
department requirements as provided by Act 273, P.A. 1939.”

Rule 17, "Garbage shall be placed in covered containers and disposed
of at regular intervals.”

Rule 18, "All milk shall come from cows that have been tested for
tuberculosis and Bangs disease and found to be free of these diseases.

When purchased, milk, etc. shall come from sources approved by the De-
partment of Agriculture and shall be pasturized when such products are
reasonable available."

Rule 19, ”Refrigeration or cold storage space shall be available
for the care of perishable foods."

Information was not covered adequately in this area as in only
#8 percent of the bureau cases and 30 percent of the children's workers
cases was an awareness of health hazards shown. Of the total number of
cases, in only 39 percent was it mentioned either that a hazard was pre-
sent or that there appeared to be none.

There is no comment as to procedure in obtaining the social history

-26-
in the policy manual. In the department outline, it is discussed briefly
under Purpose of Study when it states, ”The suggested content presupposes
that the foster home study is based on case work method and that there is
a process in which the applicants and the case worker participate, from
which should result:

(1) an understanding on the part of the worker as to the

kind of family that is applying.

(2) an understanding on the part of each of what the

family can give to a foster child to further his
physical, emotional and social growth.

(3) an appreciation of whether the family can share

responsibility for the well being of the child
with the worker and the child's own parents.

(h) a knowledge of the financial status, the physical set-up

and facilities for caring for a child."

As one of the subjects discussed in the outline, according to Item
657.1 of the manual it "must be covered in the home study report." In
the majority of the cases the social history was included.

TABLE 7

COVERAGE OF SOCIAL HISTORY IN BOARDING HOME STUDY

 

 

 

Social History Bureau Social Aid Children's Worker Total
foster father 83% 71% 76%
foster mother 85 93 89

own children 73 77 76

 

 

-27-

Of the total number of homes, 8 percent had no other members of the
family. Thus, in only 18 percent of the total number of cases was the

social history omitted. In this area, the bureau workers and the child-
ren's workers both averaged 80 percent compliance with instructions as

cited above.

Although it is not indicated in any instruction that all items in

.J

the outline must be included, a question was asked as to whether or not
the social history included identifying information for each member of
the family (family relationships, education, and special training of
members of the family, significant physical or mental characteristics,
etc.). These are mentioned in the outline, and it was felt that this
question would give some indication as to whether or not the social
history included what might be termed, "main points” without asking
for too much detail.

It was found these varied from the previous figures in that only
59 percent of the bureau cases, 8h percent of the children's workers'
cases and 69 percent of the total included such information. Thus,
while the figures were very close in both instances in the bureau workers'
cases this detailed information was not included.

Marital status is included only as a sub-heading in the outline. It
has been assumed by the state office that Rule 2h, "Relationships with-
in the family shall be such that a wholesome atmosphere for the child
will be assured." has not been met in cases where the applicant has a
common-law marriage or cannot prove marriage. Thus, the question of

the marital status of the boarding parents was included in this study.

r1.

‘6

'\

-25-

This was recorded in 92 percent of each, the bureau cases and the
children's worker's cases. Thus in this area there was no difference
in the inclusion of this information.

In applying the above Rule 2A to the material as included in the
records by the caseworkers, it was found that again relationships were
covered in the majority of cases. The children's workers, however,
appeared more aware of this issue as in 82 percent bureau cases and
in 9h percent children's workers cases, a total of 88 percent family
relationships were shown.

Rule 32 states, “The financial status of the boarding family must
be secure". There has been some discussion about whether or not a
statement that the family is financially secure meets the requirements
of the above rule. However while ”financial information” is a sub-
heading in the outline, specific information regarding occupation,
income, resources, employment, etc. also are included in that out-
line, they were included in this study. As many workers feel it is

an invasion of the privacy of the boarding family to obtain more than

broken

U)

minimum information about the above-mentioned finances, this wa
into two parts. First, as to whether or not the study mentioned the
financial status of the boarding family and second, as to the specific
information. In the latter, eight items were mentioned as they are
in the outline. If less than four of these items were circled or
underlined, the question was shown as No.

In the first question 111 of the bureau cases and 119 children's
workers' cases, a total of 230, the answer was yes. This is 83 per-

cent in each group. The second, showed that only 59 percent bureau

.0

-29-
cases and 50 percent children's workers cases, a total of 5h percent of
the cases read included th specific information as shown in the outline.
In this instance, the bureau workers followed the outline a little more
closely than the children's workers although there was not a great dif—
ference.

Rule 30 states, "The foster mother or another adult of the family
must be able to demonstrate that they have adequate time for the care
of the foster children." The outline states; ”It is assumed the board-
ing mother will ngt'be employed outside the home.”

In only 2 percent of the bureau homes was the mother employed out-
side the home. In 8 percent of the children's workers' homes the board-
ing mother was employed. However in 10 percent of the latter cases this
was not recorded. In 98 percent bureau cases and in 82 percent child-
ren's workers' cases the boarding mother was known to be in the home
full time. Thus in 90 percent of the total cases, the boarding mother
was not employed.

There might not have been as much variation had the children's
workers' recorded the information as suggested in the outline, however,
at this time more accurate information was available in the bureau
worker's cases.

Rule 23, ”All members of the household must be in such physical
and mental health as will not affect adversely either the health of
the child or the quality and manner of his care."

An item shown in the outline under ”Members of the Family as
Individuals” states, "Physical condition and general health history.
Note any serious illness or operations." ”Personality and attitudes,

.....Note any evidence of sensitiveness, seclusiveness, violent temper,

3'3:

‘

-30-
swings of moods, exaggerated attitude on any subject."

In 8h percent bureau cases and 88 percent children's workers' cas s,
a total of 86 percent of the cases read included some mention of the
physical and mental health of the foster family.

Rule 23 also states, ”A statement from a qualified physician shall
be required indicating there are no health problems in the household det-
rimental to the foster children”.

12

The department supplies two forms, one CD-BH-16 J a physical examin-
ation blank for boarding home applicants and CD-BH-léalh letter authoriz-
ing the physician to release information regarding the health of the
family.

Manual item 658 explains the purpose of the physical examination,
relates it to Rule 23 and specifies that ”each family will be asked to
sign form CD-BH-l6a, permitting release of medical information”. It
further outlines the procedure for the worker to follow in filing form
CD-BH-l6 in the county file. This area of procedure is outlineiin more
detail than any other in the manual.

In asking whether either of the above mentioned forms were on file,
included under "ves" was any in which the consultant stated there was a
written report from a physician on the premise that if that were in file,
permission to release information would probably have been sent to the
doctor with the physical examination blank at an earlier date.

In #5 percent of the bureau cases and in 70 percent of the child-

ren's workers' cases, a total of 58 percent of the cases reviewed, was

 

13 See Appendix 5
1h See Appendix 6

L3

’3‘

*‘no “7" A} we pm 8 v.7 ~ "‘ “"‘ V‘ ‘

the p oc euiic -cllo In this a-ea the bureau i.or<er s were much more
19V . o N W. '4' w . $. r‘ -.

la“ in following instructions than the children's worker.

H .

Ru_e #5 states, Each person in charge of a ooardin

..

keep a record of the child's name and a.

/' 7 yo 0* o W in H .
Rule 40, ”If tne child is placed directly by parents or relatives

(3.

’._J
D
O
'1
'd
'1
p.)
«.1
{n
c f
(D
0
{3‘
Fl

an‘ is not known to a publ'c
lowing information shall also be recorded:

Eames of parents and/or relati"es.
Address and telephone nuyber
Places an e: :
Instruct for reach:i Ing the pare-ts or r
‘ s and telephone number of the family
Name address and telephone number of another person who
might ber eac bed in case of emergency.
The boarding agreement with the pare ts or relat'
cluding the rate 0: pay for care.

H
d
(n
‘0
Ho
I.
I

Manual Item 670, Section A of Act #7 and Section AS and A6 of the

Rules and Regulations require boardi;g parcn

for this purpose. It is the res noncibiilty of the worker to ascertain

U)
*1
(D

.Q
{S
p.
'1
(D
D.
O

that each licensee has the form and that it is being ‘sed a
It was not known whether the use of the BE-E .as explained. Some
consultants felt it was so routine tha it would be done without its
inclusion in the record. The state office belie"es tnat this might be
a tool to 08 used in o bening new areas for discus ion in asking the

boarding home study and, if so, the manner in which it was used s ould

be recorded as well as the feelings of the boarding garents.

 

15 Se Appendix 7,8

"

‘I'n'1llllsl‘ll
Iii" III. III ill 'II
II .IIIII- I|||ll

-32-

In only 30 percent of the Bureau of Social Aid cases and 16 percent
of the children's workers' cases, a total of 23 percent of all cases was
the use of this form explained. It was not felt, however, that these are
valid figures as in over 80 percent of the total cases, there was a copy
of one or more BH-3 forms in the file. As the form is sent out from the
state office, with complete instructions for its use, at the time the
license is issued, it could have been explained or not. Its use as

other than a routine form to be forwarded by the client was not indicated.

The Foster Child

 

The department outline has one section, which included detailed
information requested under ”The Foster Child". Jhether there were
children under care at the time of the study and whether the study re-
lated to them, to other particular children or to child care in general
was part of the study.

In 66 percent of the bureau cases, 60 percent of the children's

workers' cases and 63 percent of the total cases, children were found

in the home at the time of the study.

TABLE 8

RELATION OF THE STUDY TO TYPE OF CHILD CARE

 

 

 

Study Related to Bureau Social Aid Children's Horker Total
child in home 50% h2% h6%
other particular child 15 18 16
child care in general 63 6h 63

 

-‘ V\
-. 519w 11911311110 ‘aeaso 13.108 an.

.‘(bud’a :

 

L3

-33-
It will be noted there is an overlapping in some of these cases; it

was indicated there was an interest in both

9:.

particular child or child-
ren and in child care in general. In this particular area the bureau and
the children's workers show the same resu ts, in total. The study also
indicates that if a foster family is interested in boarding particular
children, they are apt to take them into the home first and apply for
the license afterwards.

The majority of homes had only one child in them, if any, and in
only two - one a home serviced by the bureau and one serviced by the
children's worker - were there more than the four children allowed
under a boarding home license. The children in the homes at the time
of the study had been there for a period of a few days to over a year.
In a total of 37 percent of the cases, it was not known how long they
had been in the home. This may have been failure to record what the
worker knew.

The interest in child care in general would be an indication that
the home study should be as complete as possible as the boarding parents
might take in any child rather than one of particular sex, age or type
even though the worker might place limitations on the license.

ection on the foster child in-

(D

In the department outline, the
eludes the type of child wanted and specifications as to age, sex,
number of children, type of care, as well as attitudes and relation-
ships of the entire family. In order to provide a "minimum of infor-
mation" these should be included.

In the majority of case“, 86 percent, the workers had discussed

the type of children wanted. In this area there was little difference

V5

-3h-
between the bureau workers and the children's workers. This was als
true in the discussion as to the kind of care they wished to give; full
time or day care, a combination of the two and/or adoption. A total of
90 percent of the cases included this. While attitudes of menbers of
the family towards boarding children and the motives for taking children
were discussed in the majority of the total number of cases, it was
found that more of the children's workers' cases mentioned the first
two than did those of the bureau workers.

The motive of the boarding family for taking foster children was
discussed by a much larger percentage of the children's workers (90 per-
cent) than by the bureau workers (68 percent).

Boarding arrangements between the family and parents were discussed
in only 67 percent of the total number of cases, however, there was

little variation between the number of bureau workers and children's
workers who included this item.
This was also true as to which workers ad discussed this area with

the clients and actually recorded the conversations as 82 percent bureau

workers and 85 percent children's workers, a total of 83 percent com-

mented that they had discussed motives, children and type of care with

the clients.

References

The department outline includes the heading "Estimate of the family

by references".

References were secured in 93 percent of the total number of cases.
There was almost no variation between the two groups; each appeared to be

aware of the necessity for further checking on the family. The manner in

‘

w?

-35-
which they were secured, however, was slightly different.

The department outline states, ”Local references are to be inter-
viewed; written statements should be obtained from those who live in
another county”. "Interviewed” for the purposes of this study is con-
sidered as a personal interview. From this it appeared that the major-
ity of references secured by the bureau were by personal interview. The
largest number secured by the children's workers were obtained by tele-
phone. Approximately h3 percent of the total number of cases showed
that references were secured by mail. There was some overlapping,
however, as in almost every case, it was noted that more than one of
the above methods were used.

The children's workers, however, evaluated many more of the refer-
ences than did the bureau workers. In only 73 percent of the total

number of cases were they evaluated although in a number of cases the L

consultant commented, "It is impossible to evaluate a written refer-

ence".

impressions

One of the department outline headings, "Impressions” indicated
that the workers feelings regarding the strengths and weaknesses of
the home and family should be included as well as the family‘s abil-
ity to work with boarding children.

In the majority of the total number of cases, 82 percent, the
boarding home study included a brief paragraph giving the impressions
of the worker. It was noted, however, that the proportion of bureau

workers including this item was slightly higher than the proportion

of children‘s workers. It was interesting to note, also, that the

L)

A

c5

-36-
consultant reading the case was more apt to comment, "very brief”, ”should
include more”, "not detailed enough" on the bureau cases while the child-
ren's workers cases indicated "good coverage", "appears to be aware of
the situation".

The picture was reversed as far as the details included as the streng-
ths and weaknesses listed. While a total number -76 percent- of the cases
showed that this was included, it was in only 6h percent of the bureau
workers as against 88 percent of the children's workers' cases. This was
one area in which those intangibles were apparently more important to the
worker with some social work training.

Certification

 

tem 659, "All recommendations to issue a license will be made on
. l6
BG-Transmittal Card (CD-BH-8).

Under recommendations, which is a main heading in the department out—
line it specifies "State specifically the number, age and sex of children
for which you are recommending a license and whether for full time or day
care only".

This was one section which was difficult to relate to the policy as
quoted above as it apparently is not general policy to keep a copy of the
transmittal card in the county file. It is assumed that the card mus
have been forwarded to the state office or the home would not have been
licensed. If the form had been incorrectly completed there would have
been a memo from the state office in the county file.

In only 7 percent of the cases was it shown that this form was not
used correctly. In 33 percent of the bureau and 60 percent of the child-

ren's workers’ cases, there was no copy of the form and no comment regard-

 

16 bee Appendix 9

lr‘j

-37-

ing it. As in these files there was no indication that an incorrect form
had been used and the home was licensed at the time the review was made,

this group was combined with those in which it was known that the correct

form was used. This made a total of 92 percent of the cases in which the

CD-BH-8 was correctly used. However, in approximately 13 percent more
children's workers' cases were correct forms used than in the bureau

workers'.

CHAPTER V
SUMMARY

The conclusions drawn from the previous material indicate that the
Bureau of Social Aid workers tend to be more prompt in following up re-
quests for licensing. They were more controlled by procedural require-
ments. They followed the outline more closely but were less apt to in-
clude details; their studies were much more brief. The fact that they
made fewer home calls and interviewed fewer members of the family might
indicate their work was not as thorough. They were more aware of the
physical properties as shown by the fact that more of them gave a des-
cription of the house, were more aware of housekeeping standards. They
also used the specified state office forms more completely and more often.

The children's workers, according to this study, were less held to
procedural requirements yet showed a greater awareness of relationships.
They included more detail under attitudes, strengths and weaknesses of
foster homes. Their social histories, while not included in a signifi-
cantly larger number of cases, tended to be more detailed and showed an
awareness of intangibles. They did not use the department forms as often
as the bureau worker; however the same material was apt to be included in
process recording. They made better use of the forms relating to physical
health conditions and to the family itself, not to the licensing process.

In both cases, it appeared there was a failure to record their
material adequately. There was little difference in the manner in which
the applications were completed. Both groups were aware of health con-
ditions in the home, in marital status and finances, although in the
latter, the children's worker included more detail. Both appeared aware
of the importance of physical and mental health in the family and the

-38-

 

0'!

-39-
growth of the foster child. Both included the type of care and type of
child wanted, although it was wondered as to the understanding of the
implications that child caring in general might make to the type of study
necessary. Both contacted references although the children's workers
evaluated the references in more cases while the bureau workers made
more personal interviews. Both groups were aware that their impressions
should be included in the home study. In this area, however, bureau
workers' impressions were given while the children's workers' impres-
sions were implied. Thus it appean5that the bureau worker was more
aware of the tangibles while the children's workers included the in-
tangibles also.

Conclusions

 

While the general coverage indicated that through the licensing
program the physical, mental and emptional growth of children in foster
homes in Michigan is being safeguarded, it is also indicated that present
procedures may not be as effective as they could be.

Information gathered in this study indicated:

1. The present procedure is effective in the majority of cases.

2. Measures should be worked out to help the workers use present
procedures more effectively.

a) Coordination and clarification of policies and procedures.

b) Emphasis on and instructions as to use of policies and
procedures.

3. More complete recording of material should be encouraged.

h. Differential procedures for bureau workers and children's work-
ers are not indicated.

5. Differential procedures for trained and untrained workers are
not indicated.

 

0‘!

-uo-

With reference to the Kent County study mentioned earlier, the re-
sults of the two studies were similar. In the earlier one it was found
that "licensing procedures seemed to have been followed carefully and
without any particular difficulty”.18 In this study licensing procedures
were followed although perhaps not as carefully as they could have been.
In both studies, there was factual information with emphasis on relation-
ships, the financial information was inadequate as were the descriptions
of fire and health hazards. The main differences were that the refer-
ences were seen in person and the cases processed within a shorter period
of time in the earlier study. The increase in the boarding home program
over the past five years could well account for the latter. In the Kent
County study also it was found that the general coverage was satisfactory

but ”it is strongly urged that institutes be held on recording."19 Other

than these points the earlier study was too brief for comparison.

Implications of the Conclusions

The conclusions drawn from this study indicate that routine in-
vestigation and licensing may well be done by untrained workers, provid—
ing specific instructions are worked out for them and there is an
emphasis on their use. While the quality of work will probably not be
as high as that done by trained workers, minimum standards will be met.

With the shortage of trained workers and in many cases the un-
availability of funds for them, there need by no fear of using untrained

workers.

 

’18 Administrative Review of Kent County - Michigan State Department of
Social Welfare - 1950.
19 Ibid.

‘11’

-hl-

The inadvisability of different procedures for the two groups also
means that two sets of standards for clients, depending on where the case
happened to be assigned, would not be used. All should operate under the
same rules.

For the Department of Social Welfare, this study verifies the as-
sumption that the present licensing requirements, while adequate, could
be more effective if coordinated and clarified. Standardization of pro-
cedures would assure routine, diapel confusion over manner in which work
should be done, eliminate loss of time and unnecessary correspondence.
Organizational relationships might also be improved when all workers had

a mutual understanding of duties and responsibilities.

Some areas which should be emphasized were brought out in this study
and could be used as a basis for in-service training. Written material,
well organized and coordinated and used as a guide for action, would aid
in clarification of problems which arise in training. In-service train-
ing meetings have been held for children's workers but usually not for
bureau workers. Thus such training might be helpful in creating a better
awareness of relationships within the foster home and between the board-

ing family and the foster child.

In closing, a statement by Grace Abbott, while made a number of

years ago, would still hold true today. "The task is never completed.

Standards change as new methods of organization and treatment are devel-

Oped. The state department of public welfare should assume that the task

is a progressive one. Annual licensing makes this possible with a min-
imum of friction if it is skillfully and, as necessity requires, courageous-

O
ly used."2

 

20 Grace Abbott, The Child and the State (Chicago; University of Chicago
Press, 1938) II, 19.

 

 

 

I|||| Il‘l‘ ||l||ll all I

II II. In" I III! II! III

10

-42..

APPENDIX

Map showing areas reviewed

Rules and Regulations for Inspection and Licensing of
Boarding Homes, The Michigan Boarding Home Law

Michigan Department of Social Welfare, Children's Divi-
sion, Outline for the Study of a Foster Home

Application for License to Conduct a Boarding Home for
Children (BH-l)

Form letter, CD-BH-l6a

Physical Examination Blank for Boarding Home Applicants,
CD-BH-l6

Instructions for completing Boarding Home Record (EH-3)
Boarding Home Record Form (EH-3)
Boarding Home License Transmittal Card, (EH-8)

Schedule III - Initially licensed boarding homes

 

 

 

 

Distribution Of total Number of Independent Boarding Homes in Areas studied

 

 

 

 

 

 

 

 

 

 

 

 

  
 
 
  
  

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

,//’\
/. ‘3
P / //Jz’
.* , /
w / - cmNr/
//
,/ 4 //\
//:‘:;—l
/ r
K /
ONTONACON .
3 60‘5““: BARAGA .2
‘HARQUETTE
.2 DICKINSO
1“ /
1' .
CHARLEVOIX cassava . .5 ISLE
o '1
-’~ 3 ’ . s
‘ ,ANTRIM OTSEGO NA
,{ i; u! _:
i : ’ s.
I ‘01] - ‘l ‘ t ‘ .
BENZIE TnAveitsc KALKASKA RAVIPOR 'O C 0A ‘L NA
"_ f V? i t . ,1 -
‘ 4 A” .7“?
I Y ROS- ’ .1 i”
ANISTCE wexrono MISSAUKEE COMMO OCEMAw ro‘sco
’ w ’ AR?AC
.1 -— l / - -
MASON LAKE OSCEOLA CLARE CLAomN 4
HURON
lo /:r I, ""
ELL MIDLAND, “Y
ID...
1 V TUSCOLA
Legend ”I
T In“, SANILAC
C: Bureau Workers GRATIO ‘ 7 7 I7 ‘ r
‘2! 4/7 1 7 36 an ST CLAIR
m Children's Workers ? ”uh cents“. LAPE -
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STATE OF MI CH I GAH

 

THE MICHIGAN BOARDING HOME LAW

Rules and Regulations for Inspection
and Licensing of Boarding Homes

STATE DEPARTMENT OF SOCIAL HELFARE
Lansing Michigan

 

 

 

 

 

II

 

MICHIGAN SOCIAL WELFARE COMMISSION

L. G. Christian, M. D., Chairman
C. H. Runciman, Vice Chairman
Mrs. A. A. Banks, Jr.

George S. Fitzgerald

Harry J. Trainor

# I t I i I

W. J. Maxey, Director
State Department of Social Welfare

##tiii

May 1953
Contents

The Michigan Social Welfare Commission ...................... Page 1
The Perpose Of the Boarding Heme Law ........................ Page 2
The Michigan Boarding Home Law (Act 47. P.A. 1944.

lst. Ex. Ses.. as amended by P.A. 97. 1951 and

Act 185. P.A. 1952) ....................................... Page 3
Rules and Regulations for the Inspection and

Licensing of Boarding Home. .... .......................... Page 7

l
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THE PURPOSE OF THE BOARDING HOME LAW

The following law. as well as the rules and regulations
by which the law is administered. is Michigan’s way Of
protecting all children who are not living with par-
ents. relatives or guardians. The law and the licens-
ing process. as described herein. are not intended to
make it difficult for individuals to Offer boarding
care to children. but is the State's way of seeing that
only those that are able to give good boarding care may
take children into their home.

The boarding home is any private home in which minor
children are given care for specified periods described
in the law. This applies to children who are under the
age of 17 years.

The term boarding home in the law applies to all types
Of foster homes. This includes the so-cclled free
home. work or wage home. as well as the home in which
money payments are made for board. It does not include
adoptive homes. There is no fee charged for a boarding
home license.

This boarding law which has as its purpose protecting
children. carries a penalty if children are boarded
without a license. By law. this is a misdemeanor and
the penalty is $25 to $100. or imprisonment in the
county jail. not less than 30 days or more than 90
days. or both fine and imprisonment.

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THE MICHIGAN BOARDING HOME LAW

P.A. 1944. First Extra Session

Act 47.
1948

Being Sections No. 722.101 - 722.108. C. L..
As Amended by Act 97. P.A. 1951. and Act 185. P.A.1952

AN ACT to provide for the licensing of child welfare agencies and
for the regulation and supervision of the care and placement of
minor children: Unprovide penalties for the violations of provisions
of this act: and to repeal certain acts and parts of acts.

722.101 CHILD WELFARE AGENCY. BOARDING HOME DEFINED; MINOR CHILDREN.

Sec. 1. Any agency or institution not a governmental unit having
as l of its functions:

(I) to receive minor children for care.
supervision. and notwithstanding the fact that the care includes

maintenance. training or

educational instruction: or
(2) to receive minor children for placement in a family home with

a view toward adoption or for boarding home care: or
to care for unmarried mothers and their children shall be

(3)
deemed to be a child welfare agency.
Any private home in which 1 or more minor children are given care.

including food or lodging. and supervision. including a home where

the child or children work whether or not such child or children
for periods of 4 or more

receive a consideration for such work.
hairs per day for 2 or more consecutive weeks. unattended by a

parent or legal guardian. except children related to an adult member
of the household by blood or marriage shall be deemed to be a board-
ing home.

"Minor children' for the purposes of this act shall mean children

under the age of 17 years.

ACT 97. Err. SEPT. 28.

HISTORY: AM. I95I.

722.102 DEVELOPMENT OF STANDARDS OF CHILD CARE; ENFORCEMENT OF
ORDERS; COOPERATION WITH OTHER AGENCIES.

The department of social welfare shall be responsible for

Sec. 2.
the development<3fadequate standards of child care and after consul-

tation with the department of health and the department of public
instruction shall make. prescribe and publish such rules and regu-
lations governing child welfare agencies and boarding homes. not
inconsistent with the provisions of this act. as shall be deemed
necessary or advisable to effect such standards. to protect the best
interests of minor children. and to carry out the purpose of this
act. Any reasonable order of the department fixing minimum stand-

3

 

 

-——-—'”1‘IIIlIIllIlIIlllIIIIIIII-ll-l-ll------—— «—r

ards of care and supervision. personnel. food. sanitation and fire
rnotection. maybe enforced through injunction in the circuit court
of the county where such a home or agency. as the case may be. is
located. through proper proceedings instituted by the attorney
general on behalf of the department.

Such rules and regulations shall. as to child welfare agencies or
boarding homes providing educational programs. include requirements
as prescribed by the superintendent of public instruction with
regard to the educational program. qualifications of teachers. con-
ditions under which teachers are employed. and necessary equipment
and special services.

In order to improve standards of child care the department of
social welfare shall also cooperate with the governing bodies of
child welfare agencies and assist the staffs thereof through advice
on progressive methods and procedures and suggestions for the im-

provement of services.

HISTORY: AM. 1952. ACT 185. EFF. SEPT. 18.

722.103 LICENSE FOR MAINTAINING CHILD WELFARE AGENCY OR BOARDING
HOME.

Sec. 3. License for maintaining a child welfare agency or board-
ing home. No person. firm. corporation. association or organization
may establish or maintain a child welfare agency or boarding home
unless licensed to do so by the department of social welfare.
Applications for such license shall be made on forms provided by the
department and in the manner prescribed. Before issuing such
license the department shall investigate the activities and stand-
ards of care of the applicant and if satisfied as to the need for
the agency or boarding home. its financial stability. the good
character and intent of the applicant. and that the equipment of the
agency or boarding home and its services are conducive hathe welfare
of children. a license shall be issued. A provisional license may
be issued to any agency or boarding home whose services are needed
but which is temporarily unable to conform to all the rules and
regulations of said department as provided in section 2 hereof. All
licenses shall be in force for 1 year from the date of issuance
unless revoked as authorized by section 5 of this act and shall be
reissued annually on application. except that a provisional issuance
may be in force for not more than 3 years. Each license shall speciv
fy in general terms the kind of child welfare work the licensee is
authorized to undertake. the number of children that can be received
or maintained and their ages and sex. and whether authorized to
place and supervise children in family boarding or adOptive homeS-

722.10! SUPERVISION; INSPECTION; RECORDS AND REPORTS; REPORT OF
CHILD NOT PLACED BY PROBATE COURT OR AGENCY; RECORDS CONFIDENTIAL.

Sec. 4. The department of social welfare shall have authority at

4

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any time to investigate and examine into the conditions of any home

or other place in which a licensee hereunder receives and maintains
and shall have authority at any time to

or places out children.
examine and investigate the books and records of any licensee here-

under: and it shall be the duty of such licensee to admit the

members of said department and to furnish all reasonable facilities
for thorough examination of its books. records and reports. The
department of health may visit any licensee to advise on matters
affecting the health of children and to inspect the sanitation of
the buildings used for their care. Each licensee shall keep records
regarding each child in its control and care as the department of
social welfare may prescribe and shall report to said department.

whenever called for. such facts as it may require with reference to
Licensed

sich children upon blanks furnished by the department.
boarding parents shall inform the department of social welfare when«

ever they receive a child not placed by the probate court or a

licensed child-placing agency and give its name. sex. age. the names
and addresses of the parents and the name and address of the person
They shall also notify the department

who placed the child in care.
whenever they terminate care of the child and give the name and
All records regarding

address of the person who received the child.
children and all facts learned about children and their parents or
relatives shall be deemed confidential and disclosure of this infor-
mation shall be properly safeguarded by the agency and the depart-

ment.

HISTORY} AM. 1951. ACT 97. EFF. SEPT. 28.

722.105 REVOCATION OF LICENSE: NOTICE OF HEARING.
The department of

Sec. 5. Revocation of license: violation.

social welfare may revoke any license of a child welfare agency or
boarding home in case the licensee shall have wilfully and sub-
stantially violated any provision of this act or the rules and regu-

No

lations of said department as provided in section 2 hereof.
unless the holders of

license shall be revoked or renewal refused.

such license shall have been given notice in writing of the grounds
If such revocation or

of such proposed revocation or refusal.
refusal is protested within 30 days of receipt of said notice by a

writing addressed to the social welfare commission. said commission
or someone designated by it shall conduct a hearing at which an

cpportunity is given to said licensee to present testimony and con-
front witnesses. Notice of such hearing shall be given to said

licensee by personal service or by delivery to the proper address by
registered mail. at least two weeks prior to the date thereof. If
notice of the proposed reVOCation or refusal is not so protested the

license may thereupon be revoked or renewal thereof refused.

S

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722.106 APPEAL; TRANSCRIPT OF PROCEEDINGS; ACTION STAYED.

Sec. 6. Any person aggrieved by the decision of the department
Lmder sections 3 or 5 of this act may. within 10 days after the
revocation or refusal to issue or renew his license. take an appeal
or certiorari to the circuit court of the county in which he resides
by filing with the clerk of the court an affidavit. setting forth
the substance of the proceedings had before the department and the
errors of law or questions of fact upon which he relies. and serving
any member of the department with a copy thereof.

The department shall. within 10 days of the service of such a
copy. file with the clerk of said court a transcript of the proceed-
ings had before it. The circuit court shall thereupon be vested
with jurisdiction to hear and determine the questions of law and
fact involved. as in certiorari or appeal from justices of the
peace: Provided. That. if the department prevails the judgment of
the circuit court shall be that the decision of the department be
affirmed. and if the licensee prevails. the judgment of the court
shall be that the revocation be set aside or the license issued or
renewed. as the case may be. Pending the hearing of the certiorari
or appeal. the action of the department revoking or refusing renewal
of the license shall he stayed.

722.107 PLACEMENT OF CHILDREN IN FAMILY HOHES.

Sec. 7. Placement of children in family homes. No person other
than the parent or guardian of the person of a child or one related
by blood or marriage. and no firm. corporation. association or
organization. or agency thereof. other than a licensed child welfare
agency or a governmental unit may place any child in the control and
care of any person or place such child for adoption.

722,108 MISDEMEANOR; PENALTY.

Sec. 8. Penalty. Any person. or agent. representative or officer
of any firm. corporation. association. or organization. who violates
cny of the provisions of this act shall upon conviction. be deemed
guilty of a misdemeanor; and shall be fined not less than $25.00 nor
more than $100.00 or imprisoned in the county jail not less than 30
days nor more than 90 days. or both such fine and imprisonment in
the discretion of the court. Whenever any agent. representative. or
officer of any firm. corporation. association. or organization shall
be convicted under authority of this act. such conviction shall be
sufficient ground for the rev0cation of the license of any such
firm. corporation. association. or organization. and the person so
convicted shall not be granted a license or be permitted to be con-
nected directly or indirectly with any licensee for a period of 10
years thereafter.

 

 

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ACt 47. first extra session 1944.
Commission has established

 

RULES AND REGULATIONS FOR THE INSPECTION
AND LICENSING OF BOARDING HOMES FOR

CHILDREN IN MICHIGAN

(As adopted by the Michigan Social Velfare Commission
October 1, 1946, after approval by the AttOrney General,

avuifiled with the Secretary of State as required by
Act 88, P..4. 1.9113.)

In accordance with the authorities and reSponsibilities statmiby

the Michigan Social Welfare
the following rules and regulations

governing standards and requirements for the inspection and licens-

ing of boarding homes for children.

INS PECTION AND LICENSING

l.

The boarding home shall be inspected and approved by a duly
authorized representative of the Michigan Social Welfare Com-

mission prior to the issuance of a license.

The license shall be renewed annually. providing a written
approval from a duly authorized representative of the Michigan
Social Welfare Commission and the renewal application completed

and signed by the family are received by the Social Welfare

Commission.
No home shall be licensed for more than four children. except
that. when it is desirable for brothers and sisters of one

family to be kept together. or when some other special need
exists. exception to this limitation may be made only by the

Michigan Social Welfare Commission.
No home shall be licensed to provide care at any time for more
than two infants under one year of age. including children of

boarding parents. except by special permission in writing from

the Michigan Social Welfare Commission.
For special licenses granted under rules 3 and 4. approval by
the Welfare Commission is contingent upon the written reports of

the health and fire departments.
The license applies only to the residence at the time appli-

cation for license is made and a change of residence auto-
matically terminates the license. The licensee shall notify the
Michigan Social Welfare Commission or the agency or person for

whom the children are being boarded of change of residence prior

to such change.

The licensee shall not accept more children than the maximum
specified in the license. If additional room is available or
the licensee

other changes warrant an increase in the license.

7

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THE

10.

ll.

12.

13.

14.

15.

16.

17.

18.

 

or the supervising agency shall request the Michigan Social
Welfare Commission to increase the authorized number of children
which may be boarded in the home.

. Any change in the condition of the boarding home which might in

any way affect the best interests of the children boarding
therein shall be reported immediately to the State Department of
Social Welfare and to the agency or person for whom the child-
ren are being boarded.‘

BOARDING HOME

. The home shall be clean. sanitary. free from vermin (insects and

rodents). and in good repair. The home shall provide for

reasonable comfort and well being of the household and shall not
be overcrowded.

The home shall be so constructed. arranged and maintained as to
provide adequate protection for the health and safety of the
occupants. No room in a basement shall be occupied for living
purposes where more than one-half of the room height is below
grade on the wall or walls where windows are located. Repre-
sentatives of the health department or fire marshal's office

shall be admitted to the home at any time for purpose of in-
spection.

The heating equipment shall have a proper capacity. be so lo-
cated and operated as to maintain a temperature of approximately
70 degrees under average winter weather conditions

Ventilation shall be provided in all rooms where children eat.
sleep and play. by windows which can be opened.

Window space and artificial lighting shall be sufficient to
prevent eyestrain.

All outside doors and windows in rooms where food is prepared.

served or eaten. sleeping rooms and bathrooms shall be screened
in the fly and mosquito season.

The home shall be provided with an ample supply of safe water.
If the water is obtained from a well. the supply shall conform
to the regulations for semi-public ground water supplies issued
by the Michigan Department of Health.

The sewage disposal system shall meet state or local health de-

partment requirements as provided by Act 273. Public Acts of
1939.

Garbage shall be placed in covered containers and disposed of at
regular intervals.

All milk used shall come from cows that have been tested for
tuberculosis and Bangs disease and found to be free of these

 

 

 

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19.

20.

21.

22.

THE
23.

24.

25.

26.

27.

28.

Jim

When purchased. milk. cream and milk products shall

diseases.
come from sources approved by the department of agriculture and

shall be pasteuriZed when pasteurized products are reasonably

available.
Refrigeration or cold storage space shall be available for the

care of perishable foods.
Comfortable beds shall be provided and shall be kept in a clean
and sanitary condition at all times: the bedding shall be ade-

quate and suitable to the season.
Each child shall be provided with a clean towel, washcloth.

comb and toothbrush.

Play space shall be available free from hazards which might be
dangerous to the life and health of the children. The play area
shall be kept free from litter. rubbish and inflammable material

at all times.

BOARDING FAMILY
All members of the household must be in such physical and mental

health as will not affect adversely either the health of the
The family shall

child or the quality and manner of his care.
be willing to have this fact verified to the satisfaction of the

supervising agency and/ortfiuastate department of social welfare.
Kahn test.

and to arrange for any required medical examination.
chest X-ray, stool examination for typhoid. or other laboratory
tests shall be required if the history indicates the need. A
statement from a qualified physician shall be required indi-
cating there are no health problems in the household detrimental
to the foster children.

Members of the boarding family shall be of good character.
relationship within the family shall be

habits and reputation;

such that a wholesome atmosphere for the child will be assured.
All members of the boarding family shall be willing to accept
the boarding child into the home as a member of the family

group.
The persons in charge of the boarding home shall be of suitable

age and temperament to care for children: shall understand the
needs of children: shall be capable of handling an emergency
situation promptly and intelligently: and shall be willing to
cooperate fully with the children's own parents and/or the

supervising agency.
The boarding family should be composed of a father and mother
about the same age as parents bringing up their own children.

Ex-

The applicant shall not be over sixty—five years of age.
the discretion of the Social Welfare

ception may be made at

Department.
The number of persons in the home at the time of application

shall be taken into consideration and be a basis for fixing the
maximum number of children to be maintained in the home.

9

 

*1!" ‘1

29.

30.

31.

32.

33.

34.

35.

THE

36.

37.

38.

39.

40.

A home accepting adult roomers and boarders shall not be li-
censmi for boarding children except in cases in which the
roomers or boarders are relatives or friends who have resided
with the family over a period of years and are considered
members of the family.

The foster mother or another adult of the family must be able to

demonstrate that they have adequate time for the care of the
foster children.

No boarding. convalescent or nursing home which provides care
for chronic patients or the aged shall be licensed as a boarding

home for children; except that in unusual circumstances a

license may be issued to meet the necessity of a specific child.

The financial status of the boarding family must be secure;

there must be some definite income which is adequate to care for
the family needs.

Infants and young children shall never be left alone without
competent adult supervision.

A home shall not be licensed in which any member of the house-

hold is mentally ill or on convalescent status from a mental
hospital.

A home shall not be licensed in which any member of the house-
hold is an inmate of a penal or correctional institution or on

parole or probation. without consultation with the state depart-
ment of corrections.

BOARDING CHILD

The daily routine shall be such as to promote good health. rest
and play habits.

The responsibility for the child's health care shall rest with
the boarding parents. who shall cooperate with the parents or

the child placing agency. public or private. and the physician
and health authorities in the community.

Any child showing signs of illness such as a running nose.
watery eyes. flushed cheeks. rash. cough. apparent rise in
temperature or vomiting shall be isolated promptly from other
children in the home. Any child suspected of having a communi-
cable disease shall be reported to the local health officer.

In case of sickness or accident to a child. immediate notice

shall be given to the person or agency who placed the child:
adequate medical care shall be given meanwhile.

Each child shall sleep alone or with only one other child of the

same sex. Hews and girls over 5 years of age shall not sleep in

the same room. Children shall. under no circumstances. occupy

beds with adults. Sleeping rooms should provide adequate oppor-
tunities for rest and privacy.

10

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41.

42.

43.

44.

l'fif37,r'.r}_- ' W’ t—

The daily diet shall be varied. adequate and wholesome. It
shall include sufficient quantities of milk.eggs.meats. fruits.
vegetables. whole grain cereals. and bread. Food for infants
shall be subject to the direction of a competent physician.
clinic or health department.

The children boarded shall be given opportunity to attend school
until 16 years of age: household or farm tasks shall not be
allowed to interfere with schooling.

The boarding parents shall be responsible for providing oppor-
tunity for the religious education and attendance at religious
services of the children in accordance with the religious af-
filiation or expressed wishes of their parents. or agency
responsible for their care.

Problems of child training shall be handled with sympathy and
understanding. Severe corporal punishment shall be a basis for

revocation of license.

RECORDS REQUIRED

45.

46.

Each person in charge of a boarding home shall keep a record of
the child's name and age. and the date of his entry and dis-

charge.

If the child is placed directly by parents or relatives. and is
not known to a public or private child-placing agency. the fol-
lowing information shall also be recorded.

Names of parents or relatives.

Address and telephone number of the parents or relatives.
Places and hours of employment of parents or relatives.
Instructions for reaching the parents or relatives.

Name. address and telephone number of another person who might
be reached in case of emergency.

Name. address and telephone number of the family physician.

The boarding agreement with the parents or relatives. including

the rate of pay for care.

11

 

 

 

 

 

Appendix 2

6:.‘1,

 

Appendix 3

moment barium (r scam. mm
csnmm's DIVISION - .
OUTLINEFOR msmmarosmgsgm.

This outline is intended as a guide to what should be discussed and undo:
during the procedure of studying a has and what should be recorded as 5.
mary of the home study, on the basis of which the home is evaluated and z
decision made as to whether it is suitable for use.

Pin-pgss of Stugy

The suggested content presupposes that the foster home study is based on
work method and that there is a process in which the applicants and tho I
worker participate, from which should result:

(1) an understanding on the part of the worker as to the kind of 1’:
that is applying.

(2) (an understanding on the part of each of what the family can gi‘
a foster child tofurthor his plwsical, emotional, and social I

(3) an appreciation of whether the family can share responsibility
the well-being of the child with the worker and the child's om
ants. ,

(h) a knowledge of the financial status, the physical set-up and f:
ties for caring for a child.

(5) some preparation of the family for going on to care for a part
child or for recognizing their inability to do so.

Participants in Study

The major part of the study is through the foster mother and the case wo:
It is necessary, however, to talk with the foster father and other mambo:
the family in order to know thm and to understand family relationships t
the attitude of all members of the family towards taking a child into the

2951109; of Study

It is presumed that the study will be made in a series of case work into:
which are used for an exchange of information and discussion that will at
the family in deciding whether they wish to become foster parents and the
or in deciding whether they are capable of becoming foster parents. The
views will also serve to establish a relationship by means of which the 1
will lswnhcw to continue to use the help of the worker, if they wish to
in giving care to a child. These contacts usually will include an office
interview for application (there may be several office interviews, of cm
a visit to the home where other members of the family can be met and the
1cal facilities examined, a second home visit for further clarification a
strengthening of relationship and a selective use of references.

Such a study would require not only the exchange of factual informati on”,
sensitivity to attitudes, foellngs:and emotional tone that are observed 1
interviews or revealed by the way in which past experiences and the prom
one have been dealt with.

It is intended that most, if not all, of the factual information asde f<
the outline be obtained in general conversation with the prospective fos-
parsnts rather than by direct questions following the outline. However,
material snowed should be recorded in narrative form and generally orga:
according to the following outline:

Revised 6-16-1

 

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0171111!!! .
Name of Foster my: Surname: Husband's First N
Wife's First Name
Address:
Telephone:
Name of Agency:

Review made by:

Dates of visits with names of persons interviewed.

Source of Referral:

Social Service hchange:

Clear names of applicants to find out if known to other agencies. If
registrations, note in record.

Directions for reachian homo:

Community:

Type of neighborhood: city, town, rural, racial and nationality char
teristics.

Give detailed directions for other workers who my need to call at th
home at a future date.

Resources of community:

Health services - child health center, hospital, public health n
ing service. '

Education - State type of school and distance from home. Is tre
portation available if too far to walk? Are there special provi
for handicapped children? What is the attitude of the teacher,
principal, or the school board toward receiving boarding childre
Are there visiting teacher or guidance services available?

Religion - Describe family's church activities and facilities, an
attitude toward religious training for children. Will they enco
religious training and church activities?

Recreation - State recreation facilities in the neighborhood, fa
ily'e social and group activities, and give applicant's attitude

toward recreation in child training. Are there parks, playgroun
winning pools, libraries, activities, comercialized recreation

Describe type and construction of home. mmber of rooms, sleeping er
ments for {03113, including proposed arrangements for prospective foe
child, light, heating, ventilation, refrigeration, play space. In fa
hanes give source of rater supply and sewage disposal. Pamphlets are

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available from the State Health Department on proper construction 0:
wells and sewage disposal systems. Note condition of grounds, repa:
house 3 furnishings, comfortableness; possible fire hazards. Indica‘
whether heme is owned or rented and standards of housekeeping.

 

flamers of the FamiLas Individuals:

Husband:

Circumstances of personal interview, where held, alone or with
others. Reaction to being interviewed. '

Physical condition and general health history. Noteaany series
illnesses or operations.

Personality and attitudes, appearance, temperament, special int
sets, types of recreation chosen for himself, hobbies, particip
in comunity activities. Note any evidence of sensitiveness, s
clusiveness, violent temper, swings of moods, exaggerated attit
on any subJect. Note attitude toward early life experiences, a
members of the family group, religion and religious training,
recreation, training and discipline and behavior difficulties c
children, sex education, receptivity to new ideas regarding soc
problems and to child training and study.

Social history; year and place of birth, racial origin, citizen
time in United States, church connections, family background, a:
childhood and youth. General information about attitude past a:
present towards parents and brothers and sisters. Relationship
them in early life and at present time. Type of training he re
and his reaction to it. Give any significant physical or manta?
characteristics of family youp. Formal schooling and special '
ing. Attitude toward educational opportunities and work achievc
ment.

'Wife:
Same as for husband and including history of past employment if
Children:

In order of birth, give full name, birth date, sex, health hist‘
description of appearance, personality, conduct, school grade 0:
occupation, intelligence rating if known, evidences of good or 1
training. Include information on any children who have married
left the home or who have died.

Other Members of the Household:

Give name, age, sex, occupation, health and place in the househ<
If they form a real part of the family group give description 0:
appearance , personality, attitudes .

Revised 6-16-14»

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The Family as a Group:

Marital Status: Present marriage, date and place. Were there any 1:
. circumstances? If childless, why? Previous marriages of eiths
band or wife. How terminated?

Finances: Occupation, income, and other resources: Give man's empl
history, his present occupation, place of employment, length of
ice with present firm and weekly salary. Information about lifc
ance, savings, and other assets indicating stability of family.
Amount of debts outstanding may be significant. List any emplo:
of other members of the family. It is assumed the boarding not!
will not be employed outside of the home. Note any work accept:
be done in the home. Are families receiving any form of public
aistance? If so ,‘ explain fully.

Congeniality: Evidence of affection and harmony of interests, consid
tion for each other and for all members of the family. Sources
disagreement. Which is dominant personality? Atmosphere in the

Standing in the community and participation in comunity life.
Foster Child

e of child wanted - age, sex, number, appearance, nationality, fem
achground, personality, day care or full-time overnight care. What '
the attitude of each member of the household toward receiving boardim
children? Is the foster father willing to accept boarding children a:
help them? How do own children feel about sharing things with boardi:
children? Indicate reasons why foster parents are interested in bear»
children, and relate these where possible to their attitudes regardim
their own childhood, and their experiences as parents. Are they inte:
ested in children of a particular age? Sex? Will they be able and a:
they interested in caring for children with behavior problems? What 1
of board do they expect to receive? Is money to be received for care
their primary reason for boarding children? Discuss with them their
ideas regarding discipline and care. Will they receive visits from 1:]
children's own parents with understanding? And understand that only 1
the children work out their feelings about their own families will th:
be able to adjust in the boarding home? Will child be a member of th«
family group and participate in coumunity activities.

Children now in thehcme - give name, age, school grade, legal status

ISngtH 3f "Eli's mn'é'm and any other pertinent information about '

chi 1d .

Give nuns, address, employment of natural parents; whether there is a
vcrce and where it was obtained ; what responsibility and contacts the
ral parents have with the children and any other important informatiow
cerning them and their relationships with the children and boarding hu

What activity, if any is indicated, does the county plan in working w
the boarding family, the boarding children and the natural parents?

48- Revised l/lh/

 

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Estimate of FamiWafuences:

Local references are to be interviewed; written statements should be
tained from those who live in another county. Give name and addresl
of those interviewed, length of time they have known the foster par:
whether they spoke freely or reluctantly, and had specific informati
not. Give your evaluation of references interviewed. It is advised
contact other reliable individuals who know the foster parents. The
county health deputment and county school commissioner can give 136:
information in many counties. Clearance with physicians should be u
accordance with procedures given in item 658 - Children's Division I«

Mession:

State your impression at this home and the foster parents' ability i
work with boarding children. What are their strong points. Their x.
nesses? Does the home offer the affection and understanding which e
child needs? Indicate what kind of child would best fit into this I:
and why? Do you think the family would benefit by frequent supervie
from you?

Rgcmsndatiin:

State specifically the number, age and sex of children for which you
recomending a license, and whether for full time or day care only.
you suggest a provisional license, give precise reasons for doing sc
relation to the rules and regulations.

so
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\ddress of Appl icant

Appendix 4
a“ APPLICATICN FOR LICENSE TO CONDUCT A wARDING HOE FOR CHILDREN

Rev. 10-51 (Under Act U7, PUblic Acts of Michigan, first extra session of 1944, as amended)

State Department of Social Welfare

Lansing 4,

Michigan

Date

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

(Number. Street or RFD) (City or Village) (Zone)
‘AMILY COMPOSITION: (Give information for all members of family living in the home)
BIRTH OCCUPATIOE
LAST IAN! FIRST IAHE DATE RACE RELIGIOI OR SCHO
kn
life
Ihlld xxxx xxxx g
M xxxx xxxx
:hlld xxxx xxxx
:hlld xxxx xxxx
:IIlld xxxx xxxx
Ihlld xxxx xxxx
MEI! MEMBERS OF HOUSEHOLD: (Relatives, Boarding Children, Boarders, Roomers, Hired help, etc.
RELATI ones I P CONTR I l
LAST IAHE FIRST NAME AGE RACE T0 FAMILY RECEIVE;

 

 

 

¥

 

 

 

 

 

 

Telephone Nunber

Directions for reaching your home

g;

 

(If none. give name and number of nearest telephone and distance)

 

—l

(Include Section and Township. if in rural area)

 

 

—l

 

 

 

 

. . Branch of
Military service of either boarding parent: lane Dates k Service._
0flCHILDREN l2! LIVING IN THE HOME: (If deceased, give date and age at time of death)

LAST IAHE FIRST IAFE ADDRESS
3“ t-

 

 

If any niefibers of the household are ill or handicapped, give particulars

¥

'DATE AND PLACE OF MARRIAGE:

"If a; at husband or wife were married previously, give dates and names

¥

HOME: Ntmber of rooms

 

 

 

Nunber of bedrooms

length of time you have lived in present home

Do you own, or are

Maiden name of wife

 

 

__—‘I

you buying or renting your

III-1 (Back)

Describe sleeping arrangements for children and adults living in the home.

Include plan for prospective boarding
:hildren.

 

fl

 

 

Will you have a separate bed for each boarding child?

 

_.L ._J_ JL—e

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

IlHY DO YOU WISH TO BOARD CHILDREN? :1
l
How many children do you wish to board? Full time or day-care only? #4,
Do you wish to board boys or girls?____,_______Between what ages? Religious preference_—________fi
For whom do you plan to board children? Agency'(Name)..
Court (County) Directly from parent or relative (Check)_,.%
Have you ever kept boarding children befme? If yes, give particulars (how many. dates, by when placed
COMMUNITY: (707’ 80'0" 0f the J’OHWWE’ {WE'LCOW 1'23?” faCilities are available, their distance from the home, and means of
transportation.)
Grade School ’ -———’-l
________._.—d
High School _____,.._———4
__ fl...—»-J|
Religious education .. ___..—-—r‘.
-_,__—————'/
Play and entertainment activities ________,,.
REFERENCES: (Give at least 5 P3730“ not related to 3’0“; including your family physician and pastor)
NAME A DDRE§§ OCCU pf“ g
_—.- 1...- /
-~ ‘_‘—--'-/
__.———/
_/
___/
I

 

If granted a boarding home license we hereby agree to c0mply with the following requirements: 1

. - r
1. We agree to notify the State Department of Seoul Welfare, within 48 hours, of each unrelated child received Initially
home ‘0' C9” who has not been placed by a ”mans“! Ch‘id”P18‘?inz agency or Probate court. We also sine to'no

the department. within 48 hours. after eflCh unrelated child is removed from our home.

. . ‘ h-
2_ We agree to notify the State Department of Sacral Welfare irmnediately of any change in our address or changes sit
in our household.

. ha!
3. If the child becomes ill we agree to notify the Person or organization that p13¢ed the child with us ‘nd to see t

medical attention is provided.

306W
.6. c
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III A
I!!! T

4. we agree to comply with the "RULES AIID REGULATIONS FOR BOARDING Hours For CHILDREN" as printed and issued by 1" A

Michigan Social 'elfare Comission.

 

 

 

 

 

b9"d
(Signed) _______.....H"’
'fc
Agency: {Signed ) JV:
Worker:
Date: 7 .. 7“]

_ H.

 

 

.Appendix 5

sun: OF MICHIGAN
DEPARTMENT OF SOCIAL WELFARE

LIWII CM. BUILDING
LANSING 13

 

IOCIAI. WELFARE GOMM IIIION

I... C. CHIMIAN. “.0" CHAIRIIAN

c. II. ”MIRA". VIC! CHAIRHAN

m J. MINOR DATE:
I”. A. A. IAN". JR.

HID. new A. PM

RE:

Dear Dr.

The family of the applicant whose signature appears below is
interested in accepting children for boarding care and is apply-
ing for a boarding home license. In order for us to approve

.he home for a license we would like to know about the present
health of the family and whether or not additional responsibility
can be assumed without being detrimental to the physical or
mental health of the family and whether the child will receive
adequate health care. If you think that a license should be
denied, a provisional license only be granted, or that there
should be limitation as to the number, age or sex of boarding
children, please indicate under ”recommendations”.

Very truly yours,

Signature
Title
Address

We hereby authorize Dr. to release to the State

Department of Social Welfare information concerning each member
of our family which will assist the Department in considering
our application to board children in our home.

Signed:

Signed:

Date:
a

("h DU 1 v/fifi {D.nvr-T (“n/q ‘1 _1)l_’l0\

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iIOI

31m

 

 

 

 

Appendix 6

(BBB-16
atober l. 194 7

PHYSICAL EXAMINATION BLANK FOR BOARDING HOME APPLICANTS

Name: Address:

 

History of communicable disease in household:

 

 

 

 

 

 

Tuberculosis venereal disease_____typhoid____recent diarrhea other a

Remarks: #
Snellpox vaccination. Date: Schick test: Date: a
:hest X-ray: Date:

 

9hys ical examinat ion:

Special physical findings noted, indicating presence of disabling defects of communicable disea

 

 

 

Laboratory findings if indicated:

Kahn
Nose and throat cultures
Stool culture

____.
I

Other

 

—_—,

 

—I

 

 

‘_4

This is to certify that I have made a physical examination of this applicant sufficient to determine
or absence of the diseases mentioned above. In my opinion the physical or mental health of this app]
that it will not adversely affect the care of foster children, except as my be herein indicated.

Recon'mendat ions:

 

l __

F—

Signed:

 

, ' Date:

 

(Please return this form in the enclosed envelope.)

”If yam Wm a typewritten copy for your files. check here Danni one will be nailed to you.

1‘ ’

 

:Appendixz7'

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Appendix 9

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

BOARDING HOME LICENSE TRAISHITTAL CARD 8H H0.
Surname Man's Name Woman’s Name *
Col. Code‘ Address: it
1-41 been
42-43 a
44-45 County of Residence:
Type of Home: (check one) 3. Combination 7. Prov. Day Car
- 4. Special .
50 1. Boarding Home -—_—-5. Other (specify)“ 8. Prov. SpeCial
_____2. Day Care _____6. Prov. Boarding ,____9. Prov. Comb.
51-52 Certifying Agency: 4__
53 Religion:(check one) 1.Cath. 2.Prot. 3.]ewish___4.0ther(specify)*‘___
Number Licensed for and Specifications p__
54-55
56 *License StatUs:(check) 1. Original_______. 2. Renewal_________ 4_fi
57-58 ‘Year First Licensed: __q
SQ-64 RH No. - see Upper right hand corner Afi
64-69 *Date License Issued I I I I I I
i) tType of License:(check) 1. Agency 2. Court 3.Independent
BH-8 ‘To be entered by State Office Unit "Use reverse side of Card
REV. I-53 Send to: State Department of Social Welfare, Lansinr , Michigan

———.__ . .

 

?3-1

Appendix 10

State of Michigan
Department of Social.Welfare

Review of Boarding Homes

Schedule III - INITIALLY LICENSED BOARDING HOMES

 

 

 

 

 

Name of Boarding Parents BH-#
Address_. County
Reviewerl. Date

Type of Care: Full time Day Care Only Combinatima______.

 

 

Type of License: Standard.__Provisional____Special____;Provisional Special

I. APPLICATION

 

1. Is there a signed BH-l on file? Date Completed

2. Have all of the questions been answered? (List Main Omissions) C

3. Was application acted on promptly and in relation to prdblems
presented? (Show lapses of time and comment on reasons given)
Date of initial request for license

Date licensed
Initial interview made in office?

Initial interview made in home?
Comments:

 

 

(DD-vOU‘CD

II. INVESTIGATION

1- Outline
a. Does the study indicate that an outline, either Department

or agency) was used in making the study?
b. Comment on form of study, type of outline and general

coverage.

Schedule III

: 2. Social Service Exchange
a. Were the applicant's names cleared with:
I1; the state office central index?
2 the local exchange?
(3) If no exchange, were other agencies used?
b. Comment on whether the clearance information was used
properly. If other agency records were reviewed,
were important facts included in study?

3. Home Visits
a. List dates of home visits during period of study.

 

b. Were both foster parents interviewed?

Were they seen individually, together, or both ways?

Were other members of the family seen? (Specify rela-
tionship)

0:0

e. Comment on details of these facts.

h. Community
a. Does the study include a general description of the
community?

b. Are the following resources or lack of them described?
(1) Schools?
(2) Religion and religious facilities?
(3) Recreation?
(h) Medical services?

Schedule III

S. The Boarding Home
a. Are the following points covered in the study:
(I) General description of home? (Condition of house
and grounds)
(2) NUmber of rooms?
(3; Sleeping arrangements for family and foster child?
(h Housekeeping standards?
(5) Light, heat, ventilation, and play Space?
(circle if omitted)
(6) Fire hazards?
(7) Health hazards?

6. Ihe Boarding Family
a. Is the social history of family included for following
(1) Father?
(2) Mbther?
(3) Own children?

b. Does social history include identifying information
for each member of the family; family relationships,
education and special training of members of family;
significant physical or mental characteristics; etc.

c. Does the study include the marital status of the
boarding parents? (Specify whether previous mar—
riages; separated, divorced, widowed.)

d. Is relationship of foster family covered?

e. Does study include information about the financial
status of the boarding family?
f. Does information include the occupation, total
“ income, other resources, type of employment, length
of service with present firm, salary, information
regarding life insurance, savings, and other assets.
g. Is boarding mother employed outside the home?

I-73-3

 

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a.

Schedule III

Does the study include facts concerning the physical
and mental health of the boarding family?

Is a CD-l6 (Physical Examination Blank) and CD-loa
(letter of authorization to secure physician's
statement) on file?

Comments

Was use of the BH—3 explained

Foster Child
Were children being boarded at the time of initial study?

(1) If so, was home study related to the particular
children in the home?

(2) was study related to other particular children?

(3) Was study related to child care generally?

How many children.were under care at time of initial

studyl ?
(1) How long had they been under care?

Were the following included in the home study:

(1) Type of child wanted, age, sex and number of children

(2) Day care, full time, combination or adoption?

(3) Attitude of each member of foster family toward
receiving foster children?

(A) MOtive for taking children for foster care?

(5) Boarding arrangements between foster family and
own parents?

(6) Does the study indicate that the above were discussed
with the foster family?

Estimate of Family References

Were references secured? If so, in what manner?
(1) by personal interview

(2) by mail?

(3) by telephone?

“I

 

g

Schedule III

 

 

 

i
b. Were the references evaluated?
c. Was mechanical approval or disapproval given and
received without any discussion?
d. Comment on above facts.
III. IMPRESSIONS

1. Does the home study include a brief summary giving the
worker's impression regarding the suitability of the
foster home, the ability of the foster parents to care
for children, etc.?

2. If it does, are the strengths and weaknesses of the foster
home and family listed - with some indication as to
whether the positive factors outweigh the negative ones?

3. Comment on the above points:

IV . RECONMEEIDATIONS

1. Are the recommendations in keeping with the rest of the
information in the study?

2. Do they include Specific facts covering number of children,
age, sex, and any special or limiting factors which should
be given consideration in view of the facts of the study?

3. Comment on the above. (Show whether recommendation was
justified.)

V~ EBQVISIONAL LICENSE
1. Was special need for' home established? Comment.
33-5

Schedule III

2. Was reason for recommendation discussed with boarding parents?
3. IS there a clear basis for not recommending a standard
license?

'VI. SPECIAL LICENSE

 

1. Was need for special license established? Give reasons.

2. Does study include written reports from following:
a. Health Department?
b. Fire Department?
c. Comment on approval or disapproval.

VII. PROVISIONAL SPECIAL LICENSE

1. Is this a provisional Special license? If so, complete
Sections V and VI.

VIII. CERTIFICATION FORMS

1. If certification form (CD—BH-B) was used, was it completed
correctly? If not, explain:

DU '15 K

BIBLIOGRAPHY

Abbott, Grace. The Child and the State. Vol. II. Chicago:
The University of Chicago Press, 1938.

 

Administrative Review of Kent County, Michigan State Depart-
ment of Social Welfare, 1950.

Becker, Donna. "The Licensing of Boarding Homes in Michigan".
Unpublished MSW Thesis, University of Chicago, l9h7.

Cooper, Joseph D. "Procedural Coordination - Principles and
Practices" U.S. Dept. of Health, Education & Welfare,

Office of Administration. l9h8.

 

Foatz, Anita J. "The Nature of Policy in the Administration of
Public Assistance“} Pennsylvania School of Social Work.

Publications Div. Philadelphia, l9h3.

 

Hutchison, Dorothy. In Quest of Foster Parents. New York,-
Columbia University Press, l9h3.

Laws of the Territory of Michigan. Vol. II.

Manual of the Children's Division, State Department of Social
Welfare, Michigan.

Michigan Juvenile Laws & Services - A Report to Governor Harry F.
Kelly. Lansing, Michigan. January l9hh.

Proceedings of the Governor's Youth Guidance Conference. Lansing,
January 17, l9hh.

Public Acts of Michigan. 1871, 1913, 191A, 1919, 1921, 1931,
l9fih, 19h7, 1951, 1952.

 

Report of the Attorney General. l9lh.

Report of Special Commissioners to Examine Penal, Reformatory
and Charitable Institutions of the State of Michigan.

1871.

Street, Elwood. A Handbook for Social Agency Administration.
Chpt. XVIII Harper Bros. New York. l9h8.

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