1"; r: at}: " at? .- :_ at? a myuwlywulwmmnzulnnummumrm , 9 7126 ABSTRACT FUNCTIONAL ANALYSIS OF THE UTILIZATION OF THE PUBLIC WELFARE WORKER IN THE MICHIGAN DEPARTMENT OF SOCIAL SERVICES By Regina Ann King It is apparent that the present system for service delivery within the Michigan Department of Social Services is ineffective and inefficient. Large numbers of highly paid professional persons are performing at a level far below their capacities because of system demands that are unrealistic in light of their skills. However, although everyone within the system 'feels' this, there is no objective data available to give direction or impetus for change. Therefore, a survey form was devised for a review of all casework positions. This form used a functional delineation approach and assigns a level of difficulty to the tasks inherent in a function. Analysis of the returned forms then allowed an objective evaluation of the utilization of workers in various program areas. Regina Ann King The results of this study indicate that workers spend well over half of their time in financial services, a relatively low skill level function, while social services are afforded only slightly over twenty percent of their time. The ramifications of these findings on the current system are discussed, and a proposal is made for restructuring the system to allow more efficient use of staff and provide better service delivery to clients. FUNCTIONAL ANALYSIS OF THE UTILIZATION OF THE PUBLIC WELFARE WORKER IN THE MICHIGAN DEPARTMENT OF SOCIAL SERVICES BY Regina Ann King A THESIS Submitted to Michigan State University in partial fulfillment of the requirements for the degree of MASTER OF ARTS College of Social Science 1971 Copyright by REGINA ANN KING 1971 TABLE OF CONTENTS Introduction ................................ Objectives .................................. Method ..................................... Analysis ....... - ............................ Summary and Conclusions .................... Recommendations ............................ Appendix A - Staff Survey Data by County Size Appendix B - Education by Job Class and Level Table Table Table Table Table Table Table Table Table Table Table Table Table Table Table Table 10 11 12 13 14 16 LIST OF TABLES Compilation of Staff Survey Data ................ Eligibility Examiners ........................... Intake .......................................... Adult ........................................... ADC ............................................. Combination workers ............................. Child Welfare ................................... Case Supervisors ................................ Unit Supervisors ................................ Bureau Heads .................................... Directors ....................................... Education by Job Class and Level - Small Counties . Education by Job Class and Level -Medium Counties . Education by Job Class and Level - Large Counties . Education by Job Class and Level - Wayne County ... iv 15 29 3O 31 32 33 34 36 37 38 39 41 42 43 45 Figure 1 LIST OF FIGURES Staff Survey Form INTRODUCTION The Michigan Department of Social Services is the largest employer of social workers in the state. With over two thousand professionals having direct contact with clients, these workers have a tremendous potential for helping the disadvantaged. While there has been much criticism, historically and at present, leveled at the welfare system, little is actually known in an objec- tive sense about what actually is being accomplished or, indeed, about the obstacles to the full realization of the potential for social work in this system. Obviously, where we are going must be predicated upon where we are and awareness of these issues is manda- tory for forward progress to occur. In recent years several significant events and social changes have occurred that have had great impact on the Department, on its func- tions, and on the functions and development of its staff. Federal legislation and changes in the Social Security Act have greatly ex- panded existing public assistance programs and now require that addi- tional socio-economic and environmental services be available to families and children, to adults who are in need of financial and health services, and to the medically needy. 1 Constitutional changes in state government have materially changed the department and its organizational needs, its organizational structure and its administrative goals to meet federal and state legal mandates. County departments of social welfare and bureaus of social aid have merged into a single State Department of Social Services. The thrust of all the social and environmental changes occurring today operates to shift more responsibility onto the Department of Social Services to develop programs that meet changing human needs, that will be more effective in helping clients become fully productive members of the community again, able to cope with and meet their needs, and that provide the most effective delivery system for client services. An occupational structure that meets these goals and that also can provide rewarding career opportunities is essential. Development of the "single organization" concept for program develop- ment, planning and implementation of family and childrens' services, a major program, will significantly change the organizational structure and, within the organization, the role structure in virtually all classes of positions now used. Expanding program demands require clearer definition of organizational functions to expedite and make more visible organizational objectives. Expanding program demands coupled with increased community demands for social, economic and environmental services require more effective link- ages within the Department so that its various bureaus and component parts can deliver a coordinated system of services that makes coopera- tive use of common resources and recognizes, at the same time, unique responsibilities. A method of study is imperative to develop an effec- tive and rewarding occupational structure and to meet these goals most effectively. OBJECTIVES A method of job analysis and career development would permit the identi- fication of levels of desired expertise and make more effective utiliza- tion of staff throughout the hierarchy of identified tasks. At the same time, such a system should make possible more effective and immediate rewards to all staff by making career lines more visible, by allowing career mobility both vertically and horizontally, by recognizing exper- tise through improved job classification and pay ranges, and by giving administrators opportunity to creatively structure services to utilize staff more effectively. Since casework staff comprise almost half of the total employees in the department it is logical that such an analysis should begin with this group. Moreover, even cursory inspection of the functions of this group reveal that the tasks inherent in the presently defined job descriptions incorporate many activities at a low level of performance and skill re- quirements. Although a bachelor's degree is required for this position, the skills and knowledge of the worker are obviously underutilited to a large extent. With the present structure and combination of tasks this educational level is necessary, since a position must be staffed for the highest level of tasks. However, actual performance has evolved into an entirely different breakout of job expectations than what was originally conceived for this constellation of job functions. Workers have many low skill level tasks which comprise, because of time constraints, the primary emphasis of their responsibilities at present. It is therefore imperative to find out specifically what functions are performed by workers in order to evaluate the present system and redefine role expectations and job functions in order to efficiently utilize the potential of the public welfare worker. It is hoped that this study will point up the pressing need for a reevaluation of the present system and encourage continued analysis that will lead to an efficient restructuring based upon the preliminary data analyzed here. With these goals in mind, a survey form was developed for a total review of county staff. This form contains information on the functional analy- sis of various job classifications, and relates this information to the programs administered through the county departments of social service. While admittedly this form is not Specific enough to allow immediate redefinition of classifications without follow up by a more detailed study, it was felt that a broad approach for this study would indicate areas most critically in need of redefinition as well as providing immediate and relevant information on the current state of service delivery in the state. METHOD A survey form was developed that differentiates functional areas of the casework position. It also includes other areas of administration so that it could be used across all classes of county positions. However, for purposes of this analysis, only the casework responses will be uti- lized. Figure 1, the survey form used, is presented at the end of this section on page 10. The main areas of casework resoonsibility are eligibility determinations, redeterminations, and the delivery of social services. These areas were broken down on the form to include the more discrete functions that make up these activities. This would allow a compilation not only of the main activities, but also indicate the type and amount of discrete functions performed. While the more discrete functional areas are not analyzed,here, they were broken out on the form so that the information would be available to program managers within the depart- ment with other interests and they could utilize the data gathered for their own benefit. Other functional areas, not necessarily intrinsic to the casework position, are also included in order that a comprehen- sive analysis of actual performance can be measured. All county casework personnel were sampled and asked to indicate the oer- cent of their time over the past three months spent in each program area. They were then asked to break down the percent indicated for each program 7 area into the functional areas for each program. Out of a total casework staff of 1982 persons, 1841 forms were returned or 93%. The returned forms were sorted by type of caseload - intake, adult, ADC, general assistance, child welfare, and combination workers who carry caseloads in several program areas. The functional areas on the form were grouped to provide broader, more inclusive categories. The discrete areas, while interesting to analyze for specific purposes, offer too comprehensive an analysis to be relevant for our purposes here. These broad areas were then compiled by caseload type for comparison across program areas. It should be noted that the "other" grouping is a compilation of various items that are not especially significant to the welfare worker and are not statistically large enough to include as separate items. They were included, as mentioned previously, so that the form would be generic to all county positions. Therefore, while they are included for statistical cohesiveness, they are not in- cluded in the analysis. The functional areas represented have also been ranked according to the complexity of the inherent discrete tasks for that function. While this ranking must of necessity be general, it does offer and can be used for a general description of skill level inherent in a particular function and can also be used for a general indicator of the level of difficulty for these functions. This ranking, in coordination with the results of the survey, will allow a description of: Percentage of time spent in each functional area. The level of skill required by a function. A ranking of functions from low to high in complexity. Present utilization of staff with respect to skill level and functional time requirements of various job classifications and program areas. Projected differential utilization of staff based upon skill level and functional time requirements. \‘u a . .\. 10 PROGRAM AREAS EDUCATIONAL LEVEL (circle) l. Doctorate 2. MSW 3. l yr. toward MSW 4. MA other than MSW 5. [3A or BS 6. Some college 7. ll 5 Grad or equivalent 8. Less than H S Grad l Caseworkers - show number of cases in each am All personnel - show 93 of time spent on each program FUNCTlONS oral clerical eral stcno clerical ision 6 oncill services 7 iniormation services 8 liomelinder 9 homemaker 10 eligibility determinations ll load 12 client 13 other financial services ram certilications t services 14 problem analysis & diagnosis liome studies 16 word 17 group services 8 ision t services services lami medical services housin Services education services other social services in-service train eli ibili i l tiscol management svcs. supervision ervices vision oiiice mono t buildin man t administrative conferences 31 communi conferences ic relations am one sis Signature Date it Figure 1 ' ANALYSIS The results of the survey are shown on the following table. The func- tional areas shown are a composite of the discrete items of the staff survey form. The functions were combined as follows: FUNCTIONS General clerical General steno Clerical supervision Eligibility supervision Food program certifications Client budget services Other financial services Employment services Family planning services Medical services Housing services Education services Home studies Ward supervision Group services Other social services Information services Problem analysis and diagnosis Ancillary services Homemaker Homefinder Eligibility services supervision In-service training Social services supervision Building management Office management Program analysis Administrative conferences Community conferences Fiscal management Public relations Other 11 GROUPED FUNCTIONS Financial Services Social Services Information Services Problem Analysis and Diagnosis Other Functions (Included but not analyzed - see page 7) The discrete areas have been assigned a skill level independently of the grouped areas. However, the skill level indicated for the grouped areas will reflect the highest level inherent in that block of functions. The use of the skill levels will indicate in general the utilization of social workers. Obviously, a more comprehensive analysis will be needed to redefine the functions of the social worker, and to incorporate the services of the paraprofessional. These functions must be broken down even more discretely and a skill level assigned that will encompass all of the tasks inherent in a particular function. However, the same gen- eral approach would be valid in that analysis that is being used here. It is our purpose here only to indicate the general functional areas so that a more detailed analysis can utilize the results of this study for direction and a rough indication of time and skill requirements. It is therefore possible to make the following observations on the level of difficulty of the functional areas. Financial services are a composite of discrete and circumscribed duties. They are clearly defined and offer little room for discretion or inde- pendent judgement. Almost everything the worker needs to know is laid out in established policy. Examples of some of the tasks in this func- tional area are computation of budgets, evaluation of requests for special need items, determination of eligibility for food stamps, budget reviews, and the completion of forms for various administrative purposes. These tasks require a relatively low level of functioning. 13 Social services are likewise a composite of services other than finan- cial available to the client. These range from the more clearly defined and circumscribed services, such as employment and medical (basic ser- vices) to the more general and diffuse social work practices, such as Child welfare services. The level of difficulty here encompasses a wide range and the Specific level depends upon the specific service being provided. However, all these services require a level of skill above that required for financial services. Problem analysis and diagnosis is listed as a separate functional area. As such, it presents a difficulty in analysis because it is also an in- herent part of both financial services and social services as well as being a separate functional area. Because it was broken out separately on the form, it is not possible to state how much of this time require- ment belongs to which functional area although we would assume that the greatest part should be included in social services. Even though it is analyzed separately here, the reader Should keep in mind that it is not entirely separate conceptually. Its skill level would have to be evaluated in relation to the larger functional area with which it correSponds. It would, therefore, follow the skill level required for the service being offered. In other words, problem analysis and diag- nosis would require a lower level of difficulty for financial services than it would for social services. As a separate functional area the skill level would depend upon the degree of difficulty of the problem analyzed. 14 Information services also cover a wide range of areas and the skill level would depend upon the specific service being rendered. In general, how- ever, tney would be at a lower level of difficulty than social services. It would seem that the last two functions mentioned, that is, information services and problem analysis and diagnosis, would follow as a functional area the specific assignment of any individual worker. That is, adult eligibility workers would be expected to be knowledgeable in their specific area but would not necessarily be so, for instance, in the child welfare area. Tnese functions, and the levels of difficulty inherent thereto would vary with the functional assignment and cannot be consid- ered independently of the main function of the worker. Therefore, the main or crucial areas for consideration of this analysis are the financial and social services areas. These two areas are the basis of the functional delineation of tasks upon which any reorganiza- tion must be predicated. With these elements in mind, we can proceed to the analysis of the results of the survey and the implications thereof. 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P? 8 APPENDIX B APPENDIX B The educational level of all professional county staff was compiled seperately for an overview of the distribution and use of education as it related to the functions being performed. Again this information is presented for the information of the reader. 40 41 Table 13 SMALL COUNTIES EDUCATION BY JOB CLASS AND LEVEL ‘Job Class Job Level Total Non-BA BA MA MSW Ph.D PWA 11 32 16 16 Directors PWA 12 31 19 8 1 M 13 .2. .2 .1. .. TOTAL: 67 38 25 1 Case FHA 10 70 6 59 u 1 Supervisors WSWA 11 ___2_ _ __ __ 2 __ TOTAL: 72 6 59 u 2 1 Child Welfare PWW 07/09 40 5 35 Combination PWW 0'7/ 09 110 37 72 1 Adult EB 06 10 8 2 PWW 07/09 1114 33 3'33 3 _1_ TOTAL: 12H 67 51+ 2 +1 Intake BE 06 11 10 1 PWW 07/09 _2__'_I_ _J_._2_ 12 TOTAL: 38 22 16 .ADC PWW 07/09 106 35 69 2 Homefinders PW 09 6 3 3 42 Table 14 EDUCATION BY JOB CLASS AND LEVEL MEDIUM COUNTIES Job Class Job Level Total Non-BA BA MA MSW Ph.D Directors PWA 13 2 2 PWA 1H 2_ l 1 TOTAL: 5 '1‘ 33’ Deputy Directors PWA 13 2 1 1 Supervisors of WSWA 12 l 1 Social Services WSWA 13 _1 ‘ 1 TOTAL: 2 '5‘ Unit Supervisors PWA 11 l 1 WSWA ll _2 2 TOTAL : 3 ‘1‘ ‘5 PWA 10 22 5 17 Case Supervisors WSW 09 l 1 WSW 10 1 1 PWA 11 __1 _ 1 TOTAL: 25 5 '17 '3‘ Intake BE 06 4 3 1 PWW 07/09 11 6 u 1 TOTAL : 13' §' 3' '1- Adult BE 06 l 1 PWW 07/09 .23 _lg 13 2 TOTAL : 30 1 5 1‘5 '5 ADC PWW 07/09 58 ll ”6 1 WSW 09 __1 , 1 TOTAL : 59 11‘ ‘EE ‘1’ '1’ WSW 08 1 1 Child Welfare WSW 09 1 1 WSW 10 u u PWW 07/09 .32 l 21 TOTAL: 28 1' “2‘1" '6’ 43 Table 15 EDUCATION BY JOB CLASS AND LEVEL LARGE COUNTIES Job Class Job Level Total Non—BA BA NA MSW Ph.D PWA 1W 1 1 Directors FHA 15 2 1 l FHA 16 u 2 1 l PWI: 17 Mg g: __1. __ __ TOTAL: 10 2 N 1 2 PWA 13 2 1 1 Deputy Directors PWA 1N u 1 l 2 - PWA 15 .1 __ _l __ TOTAL: 7 2 3 2 Supervisors of WSWA 12 2 Social Services WSWA 13 if _g TOTAL: 6 6 Bureau Heads WSW 09 l 1 Including (WIN) FHA 10 5 5 Program PWA ll 3 _ 2 - 1 Supervisors WSWS 11 l ‘1 WSWA l2 “1. __ __ _1_ TOTAL: 11 2 6 .3 PWA 10 15 2 12 1 WSW 10 1 " 1 Unit Supervisors PWA 11 10 6 u ' WSWS 11 6 6 PWA 12 1 1 WSWA 12 ____J: _ __ __ _I_l._ TOTAL: 314 8 16 1 9 PWA 10 86 13 . 71 2 Case Supervisors WSW 10 3 3 WSWS 11 __§ .... __ __ ___§ TOTAL: 97 13 71 2 11 (Seneral Assistance PWW 07/09 2n 5 19 f Intake PWW 07/09 88 26' 59 3 Adult ' mm 07/09 92 37. . 53 2 Inn: 077nq' 61 44 Table 15 con't EDUCATION BY JOB CLASS AND LEVEL LARGE COUNTIES (continued) Job Class Job Level Total Non~BA BA MA MSW Ph.D Child Welfare PWW 07/09 108 . 6, 101 1 WSW lO 5 ’ 5 TOTAL: 113" '6' 1;." '6‘ Womefinders PWW 09 2 2 Eligibility BE 06 #7 H6 1 Examiners_ fir C V 45 Table 15 EDUCTTION BY JOB CL:SS AND LEVEL WAYNE COUNTY Job Class Job Level Total Non~BA _BA MA MSW Ph.D Directors PW]: 19 1 1 Deputy Directors PWA l7 1 l PWA .18 1 3; __ TOTAL: 2 1 1 WSWA l2 1 l PWA 13 1 1 Bureau Heads ' WSWA 13 1 1 - MSA 13 1 1 WSWA 1H 3 3 PWA 1” .ii “_. §_ .~ TOTAL: 10 1 u 5 # PWW 09 1 (forms) 1 PWA 10 13 5 8 PWA 11 9 l 8 Unit Supervisors PWA 12 7 6 1 ' PWA 13 1 1 “-4.- Data Supv 13 1 l WSWA 11 2 2 WSWA 12 16 16 wsxm 13 __1_ _____ __1_. TOTAL: 51 15 17 19 Case Supervisors PWA 10 11:5 23 111 9 1 1 WSWS 11 18 ___ - .. 12. _J_._ TOTAL: 163 23 ll 9 18 2 District Supervisors ISWA 13 1 ' 1 DSB . MSWC 12 1 1 Fiscal Acct Exec 11 1 , 1 Miscellaneous ' Inacluding Training PWA 10 2 . l LL.B. Consultants, Court PWA ll 2 1 1 Ekzrvices Supervisors, PWA 12 l -' l Etc. MWAll 2 2 2 2 WSWA 12 46 Table 16 con'tJ EDUCATION BY JOB CLASS AND LLVLL WAYNE COUNTY (continued) J._. 4 Job Class Job Level Total Non~BA BA MA MSW ' Ph.D Intake PWW 07/09 74 16 57 1 General Assistance PWW 07/09 127 14 108 5 Adult PWW 07/09 219 55 152 11 LL.B. PWW 07/09 58 3 51 W Child SWT 08 1 1 Welfare WSW 09 1 1 1:514 10 ___s_2_ __ __ _ __<.3_ TOTAL: 69 3 5 u 11 ADC PWW 07/09 371 H1 321 9 new 10 3 - _ _ :_3_ ' TOTAL: 37W ”1 21}- 9 3 win PWA 11 1 ' wa 07/09 9_ 5. 2_ TOTAL: 7 4 2 Special Service Bureau: , Investigations - PWA 11 1 l PWW 09 7 3 u Collections - PWW 09 ”2. &_ 3. LL.B. ° TOTAL: 16 8 7 ' 1 Miscellaneous Including PWW 07/09 7 3 u Burial, Court Service WEC 09 1 __ _ .1; ‘ TOTAL: 8 3 W 1 Sick or Maternity PWW 07/09 10 u 6 Separation ' Eligibility EB 06 ' 6 6 Examiner II III IIIIII III IIII III IIIII IIII IIII III IIII III IIIIII III III III 7126