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I I. g - . l- a >( #3.. ’. ."O‘h'.- -” _ .. .8....I. -I-. n C_’.‘ r‘ l" V. ; . V . . , ‘_ ,’ . ' y ' ' ' ’ . ' ' H 5": _‘ ' ... . ".\_‘. - ‘.. . I*'€L:I _ f, 3-2-”; .3,. r....'-ll ..u..~lgoas ‘WJDDO‘AJ A.— ‘L‘ Q - Q< - ' ' -"O ‘ _ J. .- -.___p". A -‘.:-‘ ”A. - O '- LIBRARY Michigan State University COURT SOCIAL SERVICES IN GRAND RAPIDS AND KENT COUNTY by S. Jerome Roach A PROJECT REPORT Submitted to the School of Social Work, Michigan State University of Agriculture and Applied Science in partial fu1fillnent of the requirements for the degree or IMBTER OF SOCIAL WORK November 1956 ,7 /K, /~m€&4¢49«a(/z /€2:¢’;__ Approved Chainman, Research Committee I o :c 00 29‘ Pao‘l’o r ”$2.9" 84/; AIL/l "f3... Ir/l ACI’CNOWLEDCMEN T3 Hany'individuals in the field of corrections have given valuable advice and information in the conduct of this study, I an.indebted especially to the Judges in.Kent County for their excellent assistance in preparing schedules and for their encouragement of court start participation and cooperation. Special appreciation is extended to the Honor- able Raymond W. Starr, Judge of the Federal District Court, and the Honorable Thaddeus B. Taylor, Judge of the Grand Rapids Superior Court, whose personal interest and support was invaluable. I wish also to express my gratitude to Hugh P. Reefs“ flidweetern Director of the National Probation and Parole Association, and Dr. Lawrence K. Northwood, Director or the Grand Rapids and Kent County Agency Self-Evaluation PrOJect, for their help in solving methodological problems or data collection and interpretation. Professor'Bernard Ross ot’lichigan State university has been of great assistance in directing the course of the study and in advising the writer in the presentation of materials. To Ir. Hani‘red Lilliefors and to Professor Frances Hetznecker for their thoughtful criticism.and encour- agement I an most grateful. 11 TABLE OF CONTENTS ACKNOWLEDGMENTS. . . . . . . . . . . . . LIST 0? CHAPTER I.’ II. III. V. TABLES O O O O O C O 0 O O I O 0 INTRODUCTION . . . . o . . . . . . Purpose of the Study. . . . . . Procedures of the Study. . . . . Criteria for NPPA Standards Criteria for Educational Preparation Background of the Study. . . . . methodology. . . . . . . . . FEDERAL SOCIAL SERVICES . Supervision Objectives . Geographical‘Boundaries. Conclusions. . . . . KENT COUNTY CIRCUIT COURT. . . . . . . 0.0... .00... C O O O O O O I O O O O O O O O O I O O O O O O Constitutional Provisions . . . . . . Misdlction . O Q Q O O O O O O GRAND RAPIDS SUPERIOR COURT . . . . . 0 Statutory Provisions. . . . . . JurIBGICtion of Court I e 0 Use of Probation in Superior Court. Probation Services . . Qualifications and Duties of Court Works Needs. 0 O I O O O C l C C Q SERVICES TO JUVENILES . . . . . . O. O O e H. 01.. O 0 Juvenile Court. Parole Service. . . . Interpretation of the New Foster Care La County Welfare Department . . . . . PrObate COde e e e o e e e e o 0 Personnel 0 e e e e o e e e e o VOIUMQ or Work. 0 o e e e e o e 0 Salary Schedule . '. . . . . . Additional Professional Workers. . . . Statistical Data Q o e e o e e e e W 111 0.0.0..... 0... 0.0.0.0... 25 CHAPTER VI. HUNICIPAL COURT OF GRAND RAPIDS. Structure and Function VII. GRAND RAPIDS POLICE COURT. 0 Statutory Provisions. JurISdiction e o e Structure . . . Possible Change . . VIII. II. CASE RECORDING . . . . . x 0 FINDINGS Q I O O O O O Caseloads . . Educational Preparation. . Supervision. . . . . . Additional Findings . . . Records . o o C C O O Statistics 0 e e e o 0 Psychiatric Service . . . Pamily—Centered-Problmnn . C... COOOCCIO XI. RECOMMENDATIONS AND DIPLICATIONS Concluding Statement. APPENDICES . . . . . . . BIBLIOGRAPHY. . . . . . . iv C... Q .0003... .00. 0.0.0... 0 C... PROBATION AND PAROLE (STATE or MICHIGAN) 00...... 00...... Page ODD-I... \fi .4 0.. SSS LIST OF TABLES Table I. People With Problems Requiring Court Social SGTVICG. o o o o o o o o o o o o c 65 11. Adult and JUvenile Offenders from.Arrest to DISPOBItIOH o e o o o O a o o O o o 66 C HAP T33 I INTRODUCTION Purpose 0; Study This study is concerned with the social services which are available to clients within the Jurisdiction of the courts in Kent County and Grand Rapids, Michigan. Specifi- cally, it undertakes to determine the actual caseloads of court workers, and the educational qualifications these court workers bring to their positions. A comparison is then made fron.the findings with recommended “ideal standards" established by the National Probation and Parole Association.1 Although no attempt to evaluate specific services has been Jade, of necessity, the adequacy and inadequacy of some of the services were reviewed in terms of ideal-type standards. This study was conceived as a part of the larger Agency Self-Evaluation Project sponsored by the Grand Rapids and Kent County Council of Social Agencies which had as one of its goals the determination of community needs and resources to not those needs. The material comprising this study was utilized by the Evaluation Committee as part of the date upon which some of the specific recommendations were based. In lNational Probation and Parole Association shall be referred to as NPPA in all subsequent material. 1 2 the portion of the project with which this study is concerned, with the exception of Circuit Court in Kent County, the various court staffs took an active part in supplying data herein considered. Procedures of the Studz' In order to accomplish the purposes of this study, the following procedures were employed: 1. A questionnaire was submdtted to all workers which elicited factual information such a length of service, salary, workloads, and general identifying data. 2. A schedule which served as the basis of interviews conducted by the writer with all agency heads. These inter~ views sought to collect information about such factors as program,‘budget, facilities, and statistics. 3. A review of published reports and professional literature in order to collect information of services and standards which might be compared with the services and standards in Kent County and Grand Rapids. 4. Conferences with resource-persons such as Hugh P. Reed, Will Turnbladh, and $01 Rubin of the National Probation and Parole Association for the purpose of interpretation of the NPPA standards. Criteria for.NPPA Standards The NPPA standards accepted as measures in this study were used in a study made in 1954 under the direction of Hugh 3 P. Resd,m d‘w stern director of the LFPA. In a section entitled 'Cace Loads and Staff needs" refs m: can are made to the use of these standards. 3k. estimate the staff needed to serve eacx of the above courts in Mich: 51a a .siontinb of £1 sort units afi3 given for eaon pro-s entcnce investi~ Bdtiflz. made oar muff, $1.151 fife Lit-“riser of convictimm was used to determine tsis £15m s as the probation statute rcoui*ra a Pac*ubuwaubw in c“tlf'tiofl in every felony conviction. A nei5ftin5 of one cork Mllt 158.43 art’sfi"? 63‘s.; HubbJ-V-uwdblac habua «EECti'u'fl On Feb” runny l, lj,4.i A difference of opinion among leaders in the correctional field as to t} 1s amount o1 more: one ofi iccr can handle success~ fully in one sees.m"dc the LOuJNhau5 so lection of fifty work’ units as a basis necessa ary. Experience in both adult and Juvenile fields in such stilts as hie:onain and Qalifornis Bugwssted t.ne possibility tg.t sith caseloads of over fifty units tn sort accomplished was not fully effective. In some a5-ncics etc; as tr e Caiifo rnia Adult utml xi y workers who do intensified sipervision function at tEe fiftcs n case level with {n1roless duzi n5 2e first three months following release. 3taff needs have been osti ad until recently through a considerztion of t :s vol ans littor. The tend c3 crrsntly is toward decreased caseload if the isotor s of area covered, travel cor ditior a, number‘ of courts Etl”‘d and into“- ty of sutervision indicates such redaction. 3 Mr. Sol Rubin, Counsel for the NPPA, believes that the standard of fifty cases was mentioned as early as 1923 in a paper describing the stemdardc need for juvenile courta.l "The key words are [not more than 50 cases should be under the supervision of one probation officer at any one time‘.“2 "In other words this is not a statement that 50 cases nay generally be carried successfully by a probation officer, but rather that a probation officer can 923 carry more than 50 cases succeeefully."3 Kr. Hill C. Tumbladh, Director of NPPA states, “On the basic of the experience of the staff ”labors of NPPA and its Professional Council. consisting of leading practitioners in corrections, we have adopted certain standards in the conduct of scores of ourveya of courts and departments throughout the country."4 Mr. Turnbladh looks upon the fifty unit basis of Operation as maxim. A study made at the suggestion of the governor of California. in 1948 by a Special Crime Study Commission approved tho use of the fifty unit workload standard by a subcomittee composed of local leaders who worked in conJunction with NPPA staff numbers.5 Staff needs were defined in toms of the A u AAA. 1.; w m TNT—v 18cc Appendix D . 21mg. 31b 9. “Ibid. 511314. 4 amount of work to be done and staff'members of the NPPA were convinced that the presentation of needs to administrators ed appropriating bodies could be more easily accomplished through the use of the unit norm. Since the completion of the California study in June, 1949, the Professional Council of the NPPA, composed of about 100 members who are probation and parole administrators throughout the country, has accepted the metxods used by the Special Crime Study Commission in weighting units of work and computing staff needs. The NPPA does not consider the standard it has used in a number of surveys infallible. Further study is under- nay which will attempt to refine methods and validate con- clusions. There is strong evidence from application, however, that the standard is probably what it should be. It must be remembered that in measuring human effort toward the estab- lishment of acceptable and reliable standards, such factors as educational background, ability, experience, time limita- tion,_areal of travel, and Job interest must be given full consideration. Effort on the part of individuals differs greatly and the standards used to evaluate such effort must be someahat flexible. griteria for Educational Preparation The ninimun.educational qualifications suggested by the NPPA are as follows: A Bachelor‘s Degree from a college or university of recognized standing with a major in the social sciences. In addition, applicants should have one 5 year of paid full time experience under competent supervision in an approved social agency either probation, parole, or a related field. A probation or parole officer must be a person of sound health, good character, and balanced personality and, above all, must be intelligent and industrious. Any ad- ministrative or supervisory personnel should have, in addition to the above minimum qualifications, demonstrated leadership ability by an outstanding record of growth in a related social agency with high professional standards, preferably a probation depart- ment. Once collected, the data concerning the court social services in Kent County and Grand Rapids, were compared with the ideal—type standards developed by the NPPA. The applice~ tion of this method of co parison provided observations and generalizations which were utilized by the Evaluation Cour mittee. Background of the Study In January, 1953 the Board of Directors of the Cone munity Chest of Grand Rapids and Kent County nquested that the Council of Social agencies consider the value of under- taking a survey of services offered by the Chest-affiliated agencies. The Council appointed a study committee composed of five members of its board to consider the feasibility of such a survey, to determine the best methods of procedure, ad to make its recommendations to the Chest Board. As a result of its investigation of studies made in other colnuni- ties, the study committee advised that a self-survey would have several advantages over a study by experts and that all V—,_V 1lush I. Reed and C. Boyd.HcDivitt, "Re crt of Brief Survey of Kent County Juvenile Court,“ Part I New York: National Probation and Parole Association, July 1955), p. 3. 6 community agencies, public and private, Chest and nonGCheet, should be included if the survey were to have any value as a planning instrument. . The nest Board then delegated he responsibility for organizing and conducting the study to the Council of Social Agencies. The Agency Evaluation Study Committee was renamed the Project Administrative Committee and was charged with setting up the appropriate machinery for the survey. The first procedural step was to appoint the Evaluation Committee, a kind of citizen's grand Jury, to coordinate and evaluate all data and preliminary recommendations made by'tho five service survey committees. This committee was composed of fifteen members, five selected by the Project Administrative Committee, rive elected by the delegate body of the Council, and five elected by a combined vote of the first two groups. A questionnaire Committee was appointed by the Evalua- tion Committee to formulate the principal data collection tool. A twenty-four page questionnaire was sent to all parti- cipating agencies covering the following areas: history and purpose of the organization, current and projected program, personnel qualifications and practices, budgetary and finan~ cial practices, record keeping and statistics, board composi- tion and policy, and deficiencies in the agency's and/or the community's resources.' Five Survey Committees were established to evaluate the reports of the individual agencies by field of service. 7 Prior to the consideration of the various survey committee reports, 1.3.; Services to Children, Services to Families and Adults, Health Services, and Recreation Services, the Evaluation Committee called in nationally known consultants to advise them on next steps, tentative goals, standards, and methods of evaluating the community's resources and defici- encies in terms of their data. Among these experts were Hugh P. Reed, National Probation and Parole Association; Virginia Speirs, Child Welfare League of America; Harry Serotkin, Director, Regional Social Welfare Planning, Council or Social Agencies, Kansas City, Missouri; Solomon J. Axolrod, I.D., Bureau of Public Health Economics, University'of'lichia gen, and John R. haurf, Family Service Lsoociation of Maoricq. The survey of Court Social Services was classified with services to families and adults. Other agencies in this category included five homes for the aged, one agency for the blind, five sectarian agencies, seven general service agencies, and two agencies concerned with veteran's affairs. At the start or the evaluation of court social services, a special subcommittee agreed that no inquiry would be made concerning board of administrat ve body or finances and budgeting. There are several court systems with Jurisdiction in Grand Rapids and Kent County. These include the Federal District Court, Circuit Court, Superior Court, Juvenile Division of Probate Court, Municipal Court, and Police Court. There are also various Justice courts in outlying parts of the county. Those courts deal with a variety of problems 8 such as: criminal action, divorce, separate maintenance, non-support, bastardy, cruelty to children, and Juvenile delinquency. It was the object of the survey to have each court make an evaluation of its services and to make sugges- tions Concerning a possible improvement in services or a change in the type of service offered. It was a general purpose of the study to make a quantitative evaluation or adult and Juvenile services and to review the court social services as they relate to domestic relations matters. Several other surveys within the past three years have dealt at least in part with the social services to the court. A survey in January, 1955, £933.11: Probation; rmd__?_arole i_n fiichigan, by the NPPA had as its purpose to: 2 evaluate both local and state adult propetion and parole field services, including selected aspects of the pro-parole planning phase of the correctional institution programs; and (3) make an administrative study of the Bureaus of Probation and Parole in the State Department of Corrections. {1 determine the extent oftse of probation in.Michigan3 The strengths and weaknesses of the probation and parole ser- vices were reviewed thoroughly and a summary of the review showed quite clearly excessive caseloads and the lack of ad- ucational qualifications of some personnel. The economics of incarceration and treatment revealed the cost of innate care and the comparative costs of treatment ‘4‘. ~.+ _ .4. + J'Hugh P. Reed, et a1, Adult Probation and Parole in denim. .2...___o ‘ mu mwl. 9 processes outside or the prisons. The study outlines the need for additional staff, methods or improving probation and parole services, and a description of the initial activities or parole and probation before the service is used by the offender. Throughout the entire study the standards set by NPPA were used as name. Two studies coupleted in July or 1955 gave detailed intonation about the Kent Comty Junnile Court. The first, reviewed the organization and amnistration or the court and stuff needs. This report outlined the «abuses of inter.- sgency relationships. The authors suggested the iflediste separation in detention of delinquents tron dependent and neglected children, and the introduction or protective case- 1 The second study“? investigated the needs of children in detention end shelter situations. It is concerned, chiefly, with the proper use or institutional facilities end W0“ “M“ I e in the institutional population problen which has been a major problem in Kent County for a period or several years. The lumber or exploratory studies concerning social services to the courts in Kent County and elsewhere is limited by its newness as a considered problem Various studies have reviewed parts of the problel and some have taken into con- eidsretion the full problem or service but with the single lime and IcDivitt,"Report or Brier Survey of Kent County Juvenile Court," op: cit. , passin. asherwood Norman, The De ntion and Shel r o _ ren 35 Kent 90mg: (New York: HPPI, $55}, passin. 10 aspect of court work (such as the Juvenile Division) as the focal point. Early in 1955, a Citizens Advisory Council was appointed by the Judge of Juvenile Court. This council, soon after its organization, made an macheduled visit to the Children's Home and verified what had long been suspected by several commity groups. They discovered the use of antiquated uthods of detention and e disregard for the segregation of delinquents from the dependent and neglected groups. Led by the League of bio-en Voters, the Council invited the partici- pation of about fifty amenity groups and were encouraged by the interest show: by thirty of the invited groups. The omit}; was told of the conditions at the home and the in- adequacy of the services offered. the Council was direct in its approach to the County supervisors and the City Conic- sion, and in a few short months, backed by public opinion, positive changes brought about better service, separation of types of clients handled. increased use of foster-house care. inauguration of casework methods. more discreet for! of pub- lic relations, and establishment of policies which invited cmity opinion. This study attuspts a description of the Jurisdiction of Courts serving Grand Rapids and the social services avail- able to these courts in the for: of adult and Juvenile proba- tion and parole. s'l'his investigation has been directed toward obtaining information on the extent and use of probation in the adult courts, and the quantity of services provided in ll criminal, quasi-criminal, domestic relations, and Juvenile cases. there is a correlative examdnaticn cf the quality of staff providing these services. With community interest in services to Juveniles came a related interest in services to adults. The Council of Social Agencies planned a county-wide Self-Evaluation project and, with the Citizen's Advisory Council's achievement as a guide, the Council invited all of the agencies which served the courts to participate. The general objectivo was the evaluation of services .in effect. The court agencies were given an opportunity to evaluate their goals and to express, through staff and admin- istration, fact and opinion concerning.lethods of improving services to the courts. Specifically, it was believed that a true evaluation would portray overlapping activity and gaps in court services. It was further believed that all staff Islbers would gain insight concerning the job to be done and the best methods of achieving their goals. Evaluation brought with it an evidence of insecurity on the part of some workers. Resistance, chiefly in the area of disclosures of educational qualifications, became s major hurdle, but, as the project advanced, most of the workers took part honestly and with sons enthusiasm. the worth of this investigation into court services cannot be exactly esthmated. In Kent County, the value of community opinion has been demonstrated in the improvement 12 already seen in Children's Services. The wider goals are not yet realized, but the movement toward better treatment of children is well under way. Further, the Self-Evaluation Project has brought to the attention of the community a need for improvement in adult services to the court. Several major agencies have moved toward the acceptance of adequate service standard, while in most court agencies, a new self- anareness has helped to remove apathy. Hopefully, the pattern of transition will lead to a wider interest in other counties throughout the State in matters having to do with acceptable social service to the courts. Community-wise, Kent County and Grand Rapids have become aware of a need for increased service. This experi- ence may lead other com-unities to review their needs and move toward a more enlightened treatment of violators. To facilitate the best use of schedules, questionnaires, and available statistics, the Courts in Kent County have been approached separately. members of the staffs participated individually in the discu sions. From.this material certain general ideas have been drawn which seem to indicate a need for change and improvement. A consideration of statements made, which had only a related implication to the framework or the evaluation project, suggest in some instances a need for tangent studies. 13 Methodologz Information has been obtained through a review of con- stitutional and statutory provisions establishing the courts and their services. 80 that there might be an inclusion or opinion and experience, interviews were arranged with Judges, probation and parole staffs, uvenile authorities, and police workers. The workers in departments and bureaus were asked to fill in questionnaires which give background data.1 Each worker discussed a schedule which was arranged to disclose specifics about his qualifications.2 This technique was used to bring the correctional Job into clearer focus for the evaluation committee. The questionnaire used for the evaluation of workload and Job qualifications sought identifying data with a ditional questions concerning the method and date of appointment, pr0~ vious experience in related fields, salary, education, case- load for the period between July 1, 195% end JUne 30, 1955, numbers and tyzes of investigations, and total numbers of transfers. In addition to the written questionnaire, a schedule was employed which included six of the eight major points requested in the outline by the evaluation committee. Point 1See Appendix A. *se. Appondis B. its number four in the outline was concerned with the board or administrative body, and point number six pointed out the uthodn of financing and budgeting. Because the correctional agencies are Operated under Itatutc and because they are rin- anced by taxes, these points were not considered in the schedule. The general sin of discovering the Itandcrdo under which courts operate, the size or workloads, the enount of training, ulcriu, the volm or work beyond the criminal category, the particular types or service: offend, and the opinions or start concerning deletion of or change in service: could be established, hopefully, through the Iodiu or discus- lion. . Modiod in the general content of the inquiry was a uric: or direct and indirect questions alluding to the need for additional social services. Opinions word offOrOd nor. or loss freely, and on they were expressed, they boom port of the material later used in {emulating nomndations. It was the din of the writer to gain from fro. discussion and direct quottions, tho Opinions, attitudes, and personal goals or the court worker in his Job and in his relation to the other workers engaged in related endeavor. The discussion was not limited to the program outline by the Self-Evaluation ProJOct omitted and individual members of the Judicature were encouraged to express personal preferences, reactions to relationships with other workers, views on the use of case- work principles in corrections, add plans for change in the tutu". 15 Studies used in the preparation of background material were limited to investigations of social service practices in communities which had faced similar or related problems. The chief basis of comparison for this study, Adult Probation and Parole in.nichigan, was made by the NPPA in 1954. The same bases for the definition of workloads and qualifications used in that study were employed in this project. For addi~ tional background, the worker reviewed the constitutional and statutory provisions creating the courts. He considered the types of cases handled, the geographic boundaries of the court, the concurrency of Jurisdiction, the number of Judges, the services offered, the number and qualifications of per- sonnel, the duties of the staff, and the needs and problems as seen by the staff. The field worker, in his search for information from all.msmbers of the staff, sought to estimate the unmet needs of the court insofar as social services are concerned. CHAPTER I]; EdDERAL SOCIAL SERVICgs The Federal probation officer performs a social ser- vice at the Federal level which is in reality a combination of service to several Federal departments. Federal probation officers, by statute, serve the United States District Courts. They serve as supervisors of probation cases and prepare pre- sentence investigations. These officers are also agents of the Department of Justice and as such are parole officers. They serve the Federal Parole Board of the united States and are required to make pro-parole investigations and supervise parolees from Federal institutions. In 1946, a third duty was added in the supervision of those who are released from military disciplinary barracks. This duty also calls for the preparation of progress reports and evaluations which might change the sour“ of future treatment of such cases. When.narcotio offenders arc released tron.tho united State: Public Health Service at Lexington, Kentucky, they report to the Fedenal probation officer who than hood-no responsible for their suporvisiono The Federal rarolo Board has also a Youth correction Division.‘ Release. arsimndo by this authority afterrproper investigation by the probation officer and youths releases are supervised on parolo in their home communities. 16 17 gaggrvision Objectiveg No dlo tinctlon is made between Federal probation and parole services. The Fed era 1 philosophy embrma the belief that both involve the some deiC investlgltlve and treatment skills. The objectives include the follOglng essantials: l. Full appr31331:; U11 uhltlstladlz¢ of soon 0 fe.‘1der and the behavioral circumstances from which his 0 i‘ f 3:133 are m . a. Scleotlvo process in permitting some offenders to remain in the co munity with the resultant economy and the pros rving of family ani work patterns. 3. fiso conflnomout of thooe who need to be protected and tw r:Lt ed 93; too lolly'or for those who need to be removed to that toolety might be prote acted. A. A supervisory relationship which helps the proba- tionor and poroleo back to the best possible citizen- 252 1‘9 adj 113L111?) Lit . ggographlcal goundariea At the present time, the Western Michigan Fedorol Dis- trict prob ltion officers serve forty—nine counties which cover the entire Western half of the Lower Peninsula and all of tho UpperAPIninsula. The distance from the Ohio border to the lunnosbta border approximates 600 miles. Because of the large territory covered, it has been nocessary for the officers to plan the use of time fully'and to avoid "backtracking” when- ever possiblu. Aside from.tha routine duties in this territory 18 it is frequently necessary to make special trips when ener- gencies arise. It is essential that full consideration be given the size or this territory inevaluating the caseload. The use of travel time in the Federal service is s. prime factor. The Annual Heart 0; the groceedings or the Micial gomgncg in the United States for the year 3253: shows that the Western lichigan District or the Sixth circuit had a total or 135 probationers, parolees, conditional release cases, end unitary parolees under supervision on June 30, 1954. There are two men employed in this Federal office: therefore, the caseload at that time was officially sixty- eight clients per worker.1 On the seas date, the average caseload per worker throughout the nation was ninety-tour. The caseload per worker in the Detroit area which is the Eastern District or the Sixth Circuit showed that the worker's 2 caseload was nine-two; however, there were nine workers involved in this service which penitted adequate planning and reduced the problem or travel. It is interesting to note that in the State of Arizona worlcers carried ceseloads as high as 151 per man. The workers in the tar West are also faced with the problem of covering a. large geographical terri- tory while servicing large caseloads. AA“ 4‘ A... ___ 1Annual Report or the Proceedin s or the Judicial Conference of the united States 1 4 4sashingtnn, 5. 5.: EovommentTrfitmg Woe, , a 1e 32, p. 202. 21bid., p. 201. 19 The Grand.Rapids Federal office in the year 1954 supervised 1A2 cases making the average per worker seventy- one. This is an increase in the course of one year of four supervision cases per Ian. In addition to the cases super- vised, esch.lhn.was expected to do his part of the 131 pre- sentence investigations and the forty~five pre~parole investigations. There is no exact statistical interaction showing distribution or this work between the individual officers. In considering the caseloads carried in the Western Hichigan District, it is estimated that there is e need for four men. Currently, the services are being per-roused by two men. The formula used in estimating the number of men needed is based on the values established in the NPPA report or 1953. Eachtnse under supervision is given a value of one unit and each pre-sentence completed a value of five units.1 It the mdards set by the EPPA are followdd there is, therefore, a need for an additional 2.3 men to perform the services adequately and this does not include any adjust- ment which should be made for the geographic factor.2 In the fiscal year of 1955, there were ninety convictions and of this number thirty-nine were given probation. The NPPA M A—A‘ A A- 1This work load of 50 units has been equaled in a nuns ber of Juvenile courts and in the adult field, at Least, the Wisconsin Stateswstem and the probation department for the Court of General Sessions, New ank City. 2cheral workers travel greater dittance in the super- vision of cases than workers in the local and state courts. 20 report of 1954 shows the use of probation in Circuit Courts in‘Michigan to be fifty per cent. The federal average is lower at forty—three per cent. If additional men are added in the Federal probation area in Grand Rapids, facilities should be increased. It is difficult to obtain space in the Federal.Building but if con- fidentiality and privacy of interview are to be maintained, a plan should be made for the rearrangement of office space. Two additional workers would bring the staff to four_wormers and two stenographers. It is believed that the entire staff should be housed in adJOining offices which is not the case at the present time. One officer is located across the hall fron.his'stenographer. The present staff meets the NPPA minim personnel standards. Both workers in the service in the Federal Court at Grand Rapids are college graduates. One also has obtained the Easter of Social Work degree. Conclusions The Federal workers do a thorough Job considering the territory covered, the number of cases handled, the investi- gations made, and the physical handicaps under which they work. Currently, the United States Government has made staff additions in various parts of the country and it is hoped that in the near future, the Western.fiichigan district will have a staff increase sufficient to meet its needs. participate. cmpm III KENT com cmcun' consul anstitutionul Provisions The Sttte shell be divided into Judicial circuits in each of which there shall be elected one circuit Judge. The legislature may provide by lav for the election of'more than one circuit Judge in any Judi- cial circuit. A circuit court shall be held at least four times in each year in every county organized for Judicial purposes. Each circuit Judge shall hold court in the county or counties within the circuit in which he is elected, and in other circuits as may be provided by law. The legislature may by law arrange the various circuits into Judicial districts, and provide for the manner or holding courts therein. Circuits and districts may be created, altered or discontinued by law, but no such alteration or dis- continuance shall have the effect to remove the Judge front office . a Juric iction Circuit Court shall have original Jurisdiction in all matters, civil and criminal, not excepted in this constitution and not prohibited by law and appellate Jurisdiction fron.all inferior courts and tribunals and a supervisory control of the same. They shall also have power to issue writs of habeas corpus. mandamus, injunction, quo war ranto and certiorari and to hear and detenmine the same; and to issue such other write as may be necessary to carry into effect their orders, Judgments and decrees and give than __ L ..l..__ 11n the agency Self-Evaluation Project the Courts in Kent County and Grand Rapids were invited and encouraged to Circuit Court elected not to take part and it was, therefore, necessary to make a brief evaluation of staff needs based on published statistical materials obtained from the State Department of Corrections. gulchigan, Constitution (1908), Art. VII. sec. 8. 21 22 general control over inferior courts and tribunals within their respective Jurisdictions and in all such other cases and mat era as the Supreme Court shall by rule prescribe. The NPPA Report of 1954 shows that there were ninety- two convictions in Circuit Court in Kent County in 1953. The probation caseload, as of February 1, 1954, was sixty-seven and it was estimated that the staff needed 2.2 persons. With the time of the equivalent of one-half Ian being given to probation work, it was estinated that 1.7 additional pro- fessional workers are needed‘ Statistics of the Michigan State Department of Garb rections show that in 195% there were 112 convictions and the probation caseload, as of February 1, 1955, was seventyb three. During this year 1.1 persons acted as full time pro- bation officers. The final «unto, therefore, man that this court needs at least 1.4 additional staff. Circuit Court use probation on forty~one per cent or its ease- in 1953. In 1954 this amount is shown as forty-six per cent which is slightly less than the average for other circuits in Michigan. A. 4‘ » La lnichigan, Qonstitution (1908), Ant. VII, sec. 10. CHAPTER IV GfiiflD RAPIDS SUPERIOR COURT Statutory Provision The People of the State of Michigan enact: That there shall be a Municipal Court in and for the City of Grand Rapids which shall be called the Superior Court of Grand Rapids, which shall be a court of record and have a seal to be provided by said city and whose first term shall commence the first Tues- day of June in the year of our Eord one thousand eight hundred and seventy—five. _gurisdiction of Court The said Superior Court shall have original Juris- diction, concurrent with the Circuit Court for the County of Kent, in all civil actions of a transitory nature, when the debt or damage claimed is over one hundred dollars ($100.00) in which both parties reside in the City of Grand Rapids or in which eitherthe plaintiff or defendant resides in the City of Grand Rapids, and the service of a copy of the declarations or processnby which suit is begun shall be had within said city.“ Use cfi;§robation in Superior Court The HPPA report of 1954, Table I, shows that Superior Court had 321 convictions in 1953. Of that number 155 wort granted probation or forty-eight per cent of the total number. This use of‘probttion comes very close to the state average 2.3611. 27.3623. IMichigan,Statutes Annotated, Compiled Laws, (1948), 2Mihigan, Statutes Annotated, Compiled Lass (19h3), 23 24 of fifty per cent for the year 1953. In 1953 there were 316 convictions of which 137 were given probation. Once again, Superior Court has equaled the state level of forty-two per cent use or probation. The foregoing figures have to do with criminal cases only. Superior Court also handled during the year 1955. 111 civil cases and 591 ohancery cases. There is one Judge. There are many reasons why probation has not been used to a greater extent in the past in Superior Court. Number one is the lack of professional staff to properly supervise such cases. The caseloads in Superior Court are now too large to meet the standards suggested by NPPA so that supervision in the full sense of that tern.has been impossible. The proba~ tion officer's time is used meeting the needs of emergency cases and in giving assistance in that area wherever such is possible. The second reason for the curtailment of probation in the lack of suenographic help. One of the probation officers in Superior Court uses most of her time doing clar- ical work. Currently, state help is used in the pro-sentence work and in February of 1956, an additional state man is to be used in Superior Court to assist in supervision and to take over part of the pre~sentence investigations. This addi- tional help will permit a wider use of probation and a more complete supervision of the present caseload. The judge of Superior Court believes that the commun- ity is well aware of the service of this Court and the heavy load it carries in civil and criminal matters. He sees a very 25 definite need for a better psychiatric service and expressed the hope in the near future psychiatric service rould be available to the court anytime it is needed. Currently, it is necessary to hire a private psychiatrist or to ask the psychiatrists tho are employed by the county to observe the patient in the Receiving Hospital. Occasionally, the court has used the services of the State Department of Corrections by sending the individual in need of psychiatric service to the Ionia Reformatory for observation. The Court expressed dissatisfaction with the short reports that are returned tram some or the psychiatrists. In speaking of wayward minors, the Court holds the belief that there is a serious need for some type of voca- tional training for those who are in difficulty between the ages of fifteen and nineteen. while he favors the probation camp which is planned for the near future for the Department of Corrections, he said that he does not believe that this will offer adequate service unless it incorporates the use of trade training as a definite preparation for work. Sta~ tistiashave'been kept in a cursor fashion in Superior Court and there seems to be little interest at the present time in a change of this policy. Probation Services Currently there are two workers in Superior Court with the title of probation officer. The chief probation officer spends his entire time in supervision of probation cases and 26 administration of his office and the office of Friend of the Court. His deputy officer does clerical work at least once helf the time. In addition, there is one full-time State man wno compiles all pro-sentence investigations. An additional State men is to be added in February of 1956 and when he Joins the staff, the two State men will share the pro-sentencc and supervision activities of the Superior Court probation office. One men is assigned full time to Friend of the Court work no Superior Court carrying a file of 1200 alimony cases which he considers active. However, he spends his entire time working on only that pert of the caseload which demands nmncdiato at- tention. This is more than a full-time Job. This worker claims to sverege about #00 calls per month. There were no statistics available showing whether the cells were invasti~ gstions, employment calls, or violation investigation:. In addition he is called at times to fill in as probetion officer when the probetion work is excessively'heavy or when one of the officers is off duty. .guolifications and Duties of Court workers or tne five oorkers involved in Superior Court, two State officers have college degrees. One has a graduate due gree end is currently engnged in a graduate program.whioh will lead to the Master of Social Work degree. The other offioorl have no college training. They have had lengthy experienco in probation work or police dork. There are no civil servioo qualifications set up for the Job of probation officer in 27 Superior Court. The personnel an nominated by the Judge and are appointed by the Department of Corrections Co-ieeion. - Recently the Omission established a ninim educational requirement or a Bachelor's degree for all future appomt- .13”. Workers in Superior Court are called upon to do an in- vestigative and supervisory Job in handling of the large probation loads. Investigations are completed by the State Department and are need in probation work or sent on to the prison if that diepoeition is made. The workere‘ are aware of the neceeeity for frequent contacte with the probationere. All ei’ the workers involved etated that they cannot poeeibly do e proper supervisory Job and keep up the proper client contacte because of the heavy load and became of the tre- mdoue backlog in clerical work. Records at the preeent ti. are kept in a somewhat chronological fashion-unit!) little more than the date or contact noted. There in no proceee dictation as euch. It is necessary for the chief probation officer to turn in reports to the State of nichigan concern- hie caseload, transfers, and discharges. While the workers believe they are making a fair attemt to meet the neede of their clients, they readily adlit that there my be none ehortco-inge in the present service and until there are proper physical facilities and a large enough staff, service will have to continue on a "critical" and “emergency" basis. The um report o: 1951; shows that the load carried, when measured against NPPA standards, called for an additional 28 staff of 5.7 persons. If one were to assume that the officers in Superior Court could spend full time in the supervision of probation cases (with no time consumption in Friend of the Court matters), the court would still face e serious understaffing. In 1955, the chief probation officer and his assistant averaged a load of 100 each per month. his land under ordinary circumstances would call for an additional two man. the state worker averaged twentyotuo pro-sentences eachmnth which according to NRA standards of five units per pre~sentence totals to no work units. This Job would sell for 2.2 workers. With the addition of one state worker who is to spend his entire time in Superior Court, the staff is still faced with the shortage of three workers. In Feb- wary of 1956, the service will add an additional stenographer. This should relieve the deputy probation officer of sons of her clerical duties. sees- Ieubers of the Superior Court Probation Staff offered some very pertinent suggestions concealing the possible changes which would bring about better service and which could eventually lead to a fuller use of probation in the court. Without sacrificing cooperation in any way, it is evident that the separate positions in this court are in need of definition. There is a tendency " to help the other fellow” which results in a Juggling of work patterns which could in the ultimte prove to be detrimental to court 29 service. The workers are anxious to offer better supervision but are aware that the ”emergency" type of service lust pres vail in the Court until proper clerical and professional staff in sufficient quantity are available. The chief pro- bation officer expressed an interest in a wider social ser- vice so that the court night properly handle all family relation.problems. The only consultant service available at the present time which is used by the court infrequently is the L gal Aid. In the latter of records, it is admitted that a.more adequate picture of case process might be achieved if and when loads are made smaller and in-service training has brought the workers a better insight into the use of casework techniques. The Superior Court probation office keeps only the statistics sent to the state, but the workers there be- lieve that additional statistics could be very useful and are hopeful that some plan will be inaugurated soon to that figures will be available for an analysis of all court work. One of the greatest needs in the Court at the present time is a full psychiatric service which could be available for use by all of the workers whenever needed. The present sys- tem of ”taming out” psychiatric cases has proven time- consuming and only mildly helpful. It may'be realistically concluded that Superior Court is faced with a weighty task of serving caseloads, civil and criminal, which would tax the capacity of a court staff of two Judges and more than double the number of workers. The 3O court has shown an interest in recent years in the as of casework tcchinqucs and in 'he services of professional workers. here seems to be a definite desire on the part of all who are connected a th the court to improve the services and to bring about a better correlation of work through plan- ning. There is, however, little interest shown in in-service or academic trait-.313 programs. Improvement will be seen in Superior Court services when the caseloads are reduced to at lanab the EPPA standards and when caseloads are such that they can be h .dlad without pressure. The quality of record making should be improved in this court. It is recognised that there is a great need for improved counseling and guidance services in domestic relations cases. CHAPTER V SERVICES TO JUVENILES Juvenile Court In each county orginized for Judicial purposes, there shall be a probate court. The Jurisdiction, powers and duties of such courts and of the Judges thereof shall be proscribed by law, and they shall also have original Jurisdiction in all cases of Juvenile delinquents and dependents.1 Erobete,Code Section 712A. (1), of the Juvenile code, states that the Probate Court shill have a Juvenile division and that the proceedings of such a division shall not be deemed to be criminal. The Juvenile division is interested in securing for each child coming within the Jurisdiction of the court the proper cars, guidance and control, pro- ‘ferably in his own hone, as will be conducive to the child's welfare and the best interest of the state and that when such child is removed from tho control of his parents the court shall secure for him.care as nearly as possible equivalent to the , care which should have been given to him.by them.a Chapter 712A (2) states "Juvenile division of probate court; Jurisdiction, prior order of another court, notice, service upon prosecuting attorney; transfer to county of residence."3 In this section the law states that this tulchigan, Constitution (1908), Art. VII, nos. 13. anichigan, eggpiiag Laws (19u8) 712A, Probate Code, p.1. 3;b g. 31 32 division of the court shall have original Jurisdiction super- ior to and regardless of the Jurisdiction of any other court in proceedings concerning any child under seventeen years or age found within the county who have: deserted their homes, repeatedly truanted, associated with immoral persons, re- mained habitually idle or patronized taverns or places where alcohol is cold. The court is further concerned with any child found within the county: (1) Whose parent or other person legally respone sible for the care and maintenance of such child, when able to do so, neglects or refused to provide proper or necessary support, education as required by law, medical, surgical, or other care necessary for his health, morals or well-being, or who is abandoned by his parents, guardian or other custo- dian, or who is otherwise without proper custody or guardianship ; or (2) Whose hone or environment, by reason of neg- lect, cruelty, drunkenness, criminality or depravity on the part of a parent, guardian or other custodian, is an unfit place for such child to live in, or whose :nother is unmarried and without adequate provision for care and support. Personnel It has been suggested in several reports that personnel in the probation office and detention home should be selected from.an eligible list based on competitive examinations. The NPPA standards require a bachelor's degree from.a.college or *Michigan, Compiled Laws (1948) 712A., Probate Code p. 2. 33 university of recognized standing, with a major in the social sciences.1 Applice.ts would have one year of training in a graduate school of social ter"ice or one ye: r or paid full- time exper ce under competent supervision in a field related to corrections. These conditions are considered a minimal. Until recently, Juvenile workers in Kent County have been appointed with no definite inquiry concerning educ- ational re'uircments. Low sale ries sevorly limited the court in recruiting qualified personnel. Trai. ed personnel in the Kent County Juvenile Court has become a recognize necessity. The new fulletime director of social services holds ?i Masters of Social Work degree and his wide experience in the children's field. Two supervisory positions, one scene {and one intolce, have been created requiring professionally t;a3 -ned so here. In the future four qullified probation officers are to be added which will nec- essitateadditionc.l steno3rap his help. Adequate star will decrease caseloads and it is expected a more effective chills ren's program will be realized. Velume of Work In 1954, Kent County Juvenile Court and Children's Services handled a total of 1,815 cases. Probation was granted to 305 persons; 105 were committed to private agencies, 1 , Reed and McDivitt, ‘Report of Brief Survey of Kent County Juvenile Court,“ op. cit., p. 3. 34 one wont to.licnigan Children's Institute for observation and six were committed thorn. Boys Vocational School received seventeen and Girls Training School twenty. Altogether it in estimated that there were 1170 active cases on probation (delinquency) and under supervision (neg- looted and dependent) during the course of the year. There were eight workers with varying caseloads. However, this nulbcr averaged 146 cacao for each person. Bocauncstatictioa wore few it was impossible to learn how many cases wort handled by each worker or how many visits were lad: on a single on. during the year. Records concerning intake. supervision, client contact, and progrccl were incomplete and were calpilcd differently‘by each worker. The ltatictico for 1954 chow that there were 736 dolin- qucnt and non~dclinqucnt complaints received and reported (loss than total intake). or those, 367 were delinquency cases and 369 were nonodclinquency complaints. or the 367 delinquency cases, 305 were given probation. Probation is used, therefore, in approximately eighty-three per cent of re— ported delinquency cases. fialary Schedule. The salaries budgeted for the Juvenile Court workers arc $4,000 and $h,500. At $4,000 the court is attempting to hir! personnel with some graduate training in social work and fully trained workers at $h,500. At the present time, an attendant with no professional training receives $3,200. 35 Plans have been made to raise the salary for this Job classi— ioation to $3,700. while it is necessary for attendants to have some skill in handicruftsto be physically fit and have ability to relate to disturbed children, the eoucation re- quired of applicants does not nearly approximate that re- quired of a caseworker. The belery diilerential varies flnmn $300 to $300 thlch seems rather email then the years needed for professional preparation are considered. Supervisors in the probation department ore to receive $5,000 and $5,500. They'muet hold the Master of Social Work degree and must be experienced one mature enough to provide professional leadership to the staff. No arrangement has been miae it the preheat time concerning salary'increments 1‘01? .3le 01' Lilo: btuff. Additional Professional Workere The Judicial duties of the Juvenile and Probate Court take the entire time of the Judge. It is impossible for'hin to perform.the multiple administrative duties and at the same time consider the details of the many cases which pass before hnl. The new director of court social services by direction of the Judge will absorb the admfinistretive function of the court. The intake supervisor under the director will be in charge of the types of cases handled and will decide on acceptance, referral, or rejection. This responsible task will determine, to some degree, the quality and quantity of services performed. , 3': The supervisor of the field service division will direct the study and cese«ork t ea tme: 1t photo of the proba- tion department's wo ork. To the supervisor of thou etention home will be Rg3tei authority and reapcnsibility for the dey-to-duy administration of the detention home. With the creation of tktc new children's service in the co1m‘y we1 are depurtment, a Lmost c111 of the probition department's former work Lith dependent and neglected child- ren, ‘v'lu :33 protective case ork a11d foster care, will be transferred to the new diviciOn.l Thus the treutmcnt nine of the Juvenile Court hone L91”: eiirectci. The goal of a“ ‘ ,9. cu - v 1'. ' a r '1'- ‘ - v‘ F. -. v- - ' -r- 1‘ -9 ‘ 1- r" I‘ ~. correction 1 {mu010rk own no. he lyriiei oiimuri15 to the ’5 .10 I 1 .0 . 1, “1411'.‘L"'...1‘.t1 CA S "|-‘.~ " "L . I: o - "‘U‘ 71': ~-’ "l " - .I ‘\ o""'.r‘ H: H for grezeet :t1 and the edditlcn of professional gerscnnel, chilaren will receive more inter.sive in; effective Ltuiy and treatme- Court 1orkexs polit out the need for more peachiatric service. So.ne uce is made of tie Grund Rapids Chili Guiaance Clinic where psychological and psychiatric services are avail- able. The cott, hoaevcr, of that service is very high. §_t:«.tif:tical o.-..;-.:1 Durin311e course of the study, each worker on the Juvenile staff wus asked to fill in a schedule which would give full factual information concerning position, experience, See section on County welfare Department. 37 aork in related fields, salary, education, minimal qualifica- tions for the Job and information concerning caseloade. Since there is no centralized case accounting and control system.in operation, the records kept by each officer of his can caes- load varied and were not comparable. There was, therefore, no way of knowing the exact amount of work done by each of- ficer. Future plans call for the keeping of a master record of cases active and closed. All of the data from referral to clocure are to be kept in perpetual inventory form, gargle Service Boys who are eventually admitted to the Boys' vecational School are commdtted to the Department of Social Welfare prior to institutionalization. Inmates of Girls' Training School and Michigan Children's Institute are committed directly to the superintendents of those institutions and are subject to the rules and regulations thereof. When the institution considers the child ready for placement,1 parole letters are written to the Juvenile Court stating that fact. Tho institution then asks an investiga- tion of the home situation to see whether or not it is acceptable and satisfactory. If not, the institution asks any county agent in any part of the state to investigate for home placement. There are instances in which relatives living at a distance are contacted in this manner. While on parole he child is under the supervision of a single Juvenile court worker. At first he reports weekly lMichlgan Children's Inotitute is excepted since it is not a correctional institution. 38 and later>monthly, if he has made some adjustment. Many of the children released from.the institution are seventeen. Both.Boys"VOcational School and Girls' Training School re~ tain children under nineteen years of age. However, if violation of parole takes place in the last part of this span, the ease is usually tried under the criminal code and the child ceases to be a Juvenile charge. Lgtegpretation o; the New Foster Care Law ".22£;22__. This amendatory act shall bacon. effective April , 1956 in respect to liability by the state for any part of the cost or care of children admdtted to foster care subsequent to June 30, 1955.“1 Basically, the law has been amended so that children who are in need may be given foster home care and protection through the