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L I B E"? (‘1 1“. Y
Michigan State
University

i:

A STUDY OF ADMINISTRATIVE AND CASEWORK CONSIDERATIONS
OF THE RESPONSIBLE RELATIVES PROVISION
IN OLD AGE ASSISTANCE

by

Doris 'Woolner

A PROJECT REPORT
Submitted to the School of Social Work

MICHIGAN STATE UNIVERSITY

In Partial Fulfillment of the
Requirements for the Degree of

Master of Social Work

Hay 1960

Approved: W W W
,. airman, Reseerofi o 1; ea
génetor ? fSoéooI {7

 

To, Sidney H. Woolner

ACKNOWLEDGMENTS

My sincere appreciation goes to the.membere or the
start of the School of Social Work; especially Mice Frances
Betznecher, Dr. Lucille Berber, Hr. Arnold Gurin, Hr. Barrett
Lyons, end'Mr. Morris Gluckin. ‘Without their help thiepro-
Ject would never have been completed. I also wish to acknow-
ledge the splendid cooperation I received trom.Mr. Daryl
Minnie; Director or the Inghem.00unty Bureau of Social Aid,
Hrs. Vere Lerice end her staff, end the eupervieore and en-
tire socisl work staff for their kind cooperation in per-

mitting me to study the 1&0 case records.

ill

TABLE OF CONTENTS

ACKN 0 m DGWIJTS O O O O O O 0 Q 0 O 0 O O I. O O

LISTOFTABLESe'eeeeeeeeeeeeeeee

Chapter
I.-mmonucrlou..............
II. HISTORICAL BACKGROUND AND CURRENT OPINION
III. METHODS AND PROCEDURES EMPLOYED IN THIS
STUDY . . . . . . . . . . . . . . . . .
IV. THE DATA . . . . o . . . . . . . . . . .
V. CONCLUSION.o.............

BIBLIOGRAPHYOeeeeeeeeeeeeeeeee
APPENDneeeeeeeeeeeeeeeeeeee

iv

Page
iii

18
20
30
35
39

Table

l.

2.

3.

5.

6.

9.

10;

LIST OF TABLES

Effort'nade by Agency to Obtain Support from
Responsible Relatives . . . . . . . . . . . .

Percentage of Agency Effort Comparing'Volun-‘
tary Support with Expected and No Support .

Reaction to Responsible Relatives Clause,
AllROinient'eeeeeeeeeeeeeee

Reaction to Responsible Relatives Clause,
Support Expected . . . . . . . . . . . . . .

Reaction to Responsible Relatives Clause,,
No Support Obtained . . . . . . . . . . . . .

Relationship Between Recipients and Responsible
Relatives Resulting from Agency Efforts to
ObtainSuppOl‘t............o..

Living Arrangements, All Recipients . . . . . .

Living Arrangements for Recipients Having Re-
‘Bponsiblo Ilelatives e e e e e o e e e e e 0

Sex of Recipients in Sample . . . . . . . . . .

Age of Recipients in Sample . . . . . . . . . .

Page

22

2h

25

25

26

27
28

29
59
59

CHAPTER I
INTRODUCTION

One of the largest groups in our population is our
sixty-five and over age group. Despite the advances of our
modern industrial economy. many of these persons find that
they have not been able to provide funds for their own support
in their later years. '

, In a democracy. government is concerned with the well-
being of the individual. The Social Security Act, passed in
1935, made it possible for states to provide for certain of
those in need, including the aged, in the public assistance
provisions. The categorical assistance programs of states
are supported through that provision. In Michigan, Public
Act 280. 1939, provides the legal basis for the operation of
the federal program.

Assistance to the aged represents the largest expen-
diture made by the State of flichigan in the field of categor-
ical aid. In‘November, 1959, when this data was compiled,
Old Age Assistance grants totaled $h.lOO,7BO or some 50% of
all moneys granted in the four areas of categorical assist-
ance (Aid to Dependent Children, Aid to the Blind, Aid to
the Disabled and Old Age Assistance).1

1State of Michigan Department of Social Welfare,
monthly Administrative Report (December, 1959),

l

2

This study deals with certain administrative and case-
work considerations relatedto the responsible relatives pro-
vision of the laws as they relate to Old Age Assistance._
This is required by the Michigan Department of Social Welfare
in accordance with Act 280, P.A., 1939. as amended, and by
Act 146 P.A., 1925, as amended.2 By law, workers.must ascer-
tain the ability of certain relatives to support applicants
for Old Age Assistance beforethey are found eligible to
receive an assistance grant. The purpose of this project
was to determine: (l) whether the current administration of
the responsible relatives provision is productive in relation
to staff time invested; (2) whether most of the children pro-
viding support for parents do so voluntarily, rather than as
a result of demands by the state; (3) whether enforcement of
the provision affects the satisfactory adjustment between Old
Age Assistance recipients and their families; and (A) whether
the attempt to enforce family responsibility represents a
cultural lag, related to past scale-economic conditions, as
compared with present day conditions.

The writer became interested in the problem when she
was employed as a worker in the Michigan Department of Social
Welfare, Inghem County Bureau of Social Aid for two years
(1955-1957). She found that a very considerable part of the

time spent on Old Age Assistance cases was used to meet the re-

 

2State of MichigenState Department of Social Welfare,
ghe Social Welfare Laws (Lansing: Michigan State Department
of Social Welfare, I§§§ , pp. 15-23. 52.

 

3

quirements of the responsible relatives provision of the law.

The data for this study was obtained by examining a
sample of one-hundred-forty Old Age Assistance case records
at the Ingham.County Bureau of Social Aid. This agency was
selected because of the writer's detailed familiarity with
its operation and because it seemed to serve a representative
cross section of Michigan's population. Ingham County con-
tains a highly industrialized city, Lansing, the state capi-
tol. Here live more than half (115,510) of the county's
total population of 216,860., The balance live in East ‘
Lansing (population 25,350) and in small rural communities
3

and on farms.

Public Act 280‘

defines eligibility for Old Age
Assistance as any person who

1. Is 65 years or older.

2. {Has been a resident_oprichigan continuously for
one year prior to application, and a resident for five out
of the preceding nine years..

3. Is not an inmate of any institution (except as a
patient for other than tuberculosis or mental disease).

1.. . Has no legally responsible relatives (husband,
wife, children, parents, or other person or organization)

able to support him.in part or in whole.

3Bureau of Business and Economic Research, College of
Business and Public Service, Economic and Po ulation Base
Stugi of the Lansing Tri-Qountg Area (East LEHeIng, fiIcEIgan:
0 gen Sta e n vere ty, . ‘
“State Department of Social Welfare, State of Michigan

Social Welfare Legs, (Lansing, Michigan: State Department a!“
Social weIfare, Section 26 and Section 38, 1959), pp. 15-20.

k

5. Has not transferred real or personal property or-
income for five years prior to date of application in order
to secure assistance or a larger grant, or to prevent re-
covery from his estate. . I

6. Has not sufficient income to provide for his living
expenses, as defined by the State Department of Social Welfare.

7. Does not own land contracts or mortgages arising
from the sale of his homestead, or if married combined with
such property of the spouse, which together exceed a market
value of $6,000.

8. Does not own real or personal property worth more
than $500 if single, or $750 if married (this includes spouse's
property) except for such exemptions as market value of home-
stead--¢l0,000; cash value of life insurance-~first $500, if
single, $1,000 if married; household goods and clothing-t500;
farm.stocx and implements~~¢750.

9. Does not receive Aid to the Blind, Aid to Dependent
Children, Aid to the Disabled.

The term "responsible relative" has been defined by
Mdchigan law (Act 1A6,P.A. 1925 as amended) as ". . . husband,
wife, father, mother and children of . . .” Children are not
required to provide support for parents if the child is under
21, or if the parent in question wilfully failed to support
the child when he was less than sixteen years of age.5

Procedures for determining the ability of responsible
relatives to provide support for Old Age Assistance applicants

 

5;bid., p. 16

5

are spelled out in detail by the Social Welfare Department.
Its manual of Policies and Procedure; requires that a form
letter (SB 25) be sent to all known responsible relatives
requesting such data as income, size of family, and certain
expenses such as shelter, education and health. A personal
interview is also offered.6 _

By applying this information obtained to the "Respon-
sible Relative Schedule"? a scale of living costs based on
U. S. Department of Labor statistics-~the worker determines
how much support, if any, should come from.the relative. If
a contribution is expected a second letter, stating the amount
of support expected, is then sent and the relative is advised
that the grant to the recipient will be reduced by the amount
of the expected contribution.

. Failure of relatives to respond to the request for in-
formation results in the client being asked to cooperate in
obtaining Judicial interpretation of ability to support. This
is done through the signing of a form, a "Request for Judicial
Review“ (Form SB 25H). The worker then sends a form to the
Probate court requesting review.' Refusal to sign such a re-
quest cen result in reduction or cancellation of the grant.

Once a person has been granted Old Age Assistance, his

needs are redetermined once a year. This is required by the

6State of Michigan Department of Social Welfare, ESE“
ual of Policiesgsnd Procedures, Items 320.1-320.l (12). See
also appendix. ‘

71bid.

6

8 and by the Department of Social Welfare:

Federal‘Government
"Reinvestigations shall be made each year, or.mors frequent-
ly as probability of change in situation indicates, to deter-
mine continuing eligibility and changes in amount of assist-
ance needed."9 ' l 2

Thus, the responsibility for supportby relatives is '
found to be established under Michigan law and regulations
of the Department of Social Welfare based upon Federal re;
quirements. This study attempts to answer four questions:
(1) is this a productiveinvestment of staff time? (2) is
support obtained for parentsvoluntarily or on demand?
(3) does it affect the relationship between Old Age Assist-
ance recipients and their families?' and (A) does this pro-

cedure represent a cultural leg?

4

——r

8Bearings before a Subcommittee of the Committee on
Ways and means, House of Representatives, 83rd Congress,
First Session, Economic.Statue of the Aged and Public Assist-
ance, Analysis of the Social Security System.(Washington,
D.C.:- U. S. Gov't. Printing Office, l95h). ,

9Manualfiof Policies and Procedures, Op.cit., Items

335 and 335(2).

CHAPTER II
HISTORICAL BACKGROUND AND CURRENT OPINION

The origin of the study problem, the responsibility
of children to provide support for aged relatives goes back
at least as far as Biblical times. Then people lived in
tribes, and children cared for their aged parents. If there
were no children, other.mambers of the tribe took responsi-
bility.

The loyalty of the younger generation to the older
generation is well expressed in the Old Testament story of
Ruth and‘Naomd. Ruth said to her motherbin-law, "Whither
thou goest, I will go; and where thou lodgest, I will lodge:
thy people shall be my people and thy God my GOO."10

Dr. Joseph T.‘Drake in Caldwell and Foster's book,
Analysis _o__f_ m Problem__g,n states that the number and
percentage of the aged in primitive society was not great.

In agrarian and artisan societies, there was often a
patriarch who made decisions. In the orient the patriarch
was also the family priest. The aged were honored especially
in the lsndowning classes. In the laboring classes the aged

were not cared for so well. Dr. Drake states that, ". . .

 

loRuth 1: 16b

11Morris G. Caldwell and Laurence Foster, Analysis_g£
Social Problems (Harrisburg, Pennsylvania: The Stecxpole Co...
I953, Dr. Joseph T. Drake, "The Aging," Chapter 16.

7

8
treatment of the aged varies both within and between socie-
ties and that this treatment ranges all the way from worship
to aversion."

Customs of poor relief in the Uhited States were in-
fluenced greatly by what was done in England, since the En-
glish colonists brought along their customs when they settled
in this country. The church cared for the poor in medieval
England, Relief was given by parish priests and religious
orders. "In the fifteenth century, their number (the Poor)
had grown so that more than a thousand monasteries, convents,

hospitals, and abbeys provided shelter, aims, food and clothes

for the poor of neighboring villages or for wandering beggars."

When the serfs were freed more people moved from place
to place. The "Black Death" killed two-thirds of the British
population in two years. There was then a labor shortage,
so an attempt was made to solve the problem by legislation.
‘King Edward III issued the "Statute of Laborers” in 13A9.
This was designed to keep workers in their own parishes, and
citizens were not supposed to give aims to anyone who was
able bodied, Other restrictive laws were passed between 1349
end 1597. Some of them required three years residence to get
relief. A statute of 1597 stated that parents and children
were legally responsible for one another. I

The Poor Law of 1601, or L3 Elizabeth, attempted to

 

lzlbid.

13Walter Friedlander, Introduction to Social Welfare
(Englewood Cliffs, N.J.: PrentIce-fiaII, Inc., 1955), Chap-
ter 2.

 

13

9

codify preceding legislation and added grandchildren as be-
ing responsible for the support of needy grandparents.1h
The wording is quoted by Daniel Mandelker.15 "And be it
further enacted, that the father and grandfather, the mother
and grandmother, and the children of every poor, old, blind,
lame and impotent person, or other poor person not able to
work, being of a sufficient ability shall, at their own
charges, relieve and maintain every such poor person . . ."
t3 Eliz.l, c.2, 7 (1601). ‘

This law set the pace for public assistance for hun-
dreds of years-up to the twentieth century. Some of its
principles are still in effect: residence, relative respon-
sibility, and the principle that the local community is re-
.sponsible for the poor.16
As long ago as 1936, Edith nbbott in the Introduction

17 states,

to margaret Creeoh's book on poor law admunistration
"It is hoped that a study of this kind, which shows the

miseries of that neglected group in our social order over a
period of three hundred years, and sets out all the abuses

and inefficiencies of these old, deterrent poor law_methods

 

1"'Ibm.

lSDaniel Mandelker, "Family Responsibility Uhder the
Amegican Poor Laws," Michigan law Review (February and March,
195 .

16Walter Friedlander, 92, gig.

17Margaret D. Creech, Three Centuries of Poor Law Ad-
ministration A Stu of Le is a on n Rho e s an
h oago ress,

      
   

  

10

still on the statute books on most of our American states,
may be of assistance to those who share a new interest in
a better form of social security for all those who are unemp
ployed or unemployable and are still victims of an antiquated
system of local support and care. The Elizabethan poor law,
from which our poor law descended, was a national statute in
the sixteenth century; the "great poor law" of 1601 was a
national law; the English ”poor law amendment act" of 183h,
a very important statute, established a national poor relief
administrative authority for England more than a century ago.
But our American poor law systems were of necessity placed
on an intensely local basis in the days of colonial organiza-
tion, and our Middle Western and Western states have copied
this entirely local system cf‘New England, which England has
really never had."

margaret Creeoh18 gives interesting examples of the
problem of enforcing relative responsibility in Rhode Island
in the eighteenth century. The care of one John Dalia is
described at length. At first his son, and son-in-law were
required to pay 12 s.'6 d. each to another son-in-law for
John Dalie's care for six weeks. Some time later it was pro-
vided that the clothing from a deceased man be renovated for
the use of John Dalia. later the son promised to pay 1. 3 10 s
and "to give his . .'. father a new shirt.”19 Mhrgaret

Creech concluded, ". . . and so for five years the council

 

1811115., PD. 17’ 18s
19Ib1a.. p. 18.

11

had struggled with the problem of responsibility of relaf
tives with about as much success as is obtained two hundred
years later."20

The problem of income for the aged is stated suc-
cinctly in the Social Security Board's publication, Social.
Security igAmerioa.21 "The conditions of modern society,
especially in highly urbanized and industrial areas, do not
permit the wage earner, unaided, to provide for his old age.-
Unless wages are increased, thrift encouraged, and savings,
safeguarded by the government, the community as a whole will
inevitably have to meet an increasing problem in the care of
the dependent aged. A man's productive wage earning period
is rarely more than #5 Years. Under present conditions he
must earn enough in this period to contribute toward the
support of aged parents, rear and educate children, maintain
his family at a standard of living more or less consistent
with American ideals and save enough in the form of insurance
or absolutely safe investment to provide a modest income till
death, if he survives the working period. This last item is
the one least urgent, least stressed by advertising propagan-
da, and most easily disregarded among the many financial de-
mands. . .

"It is . . . possible and practicable through social

 

2°Ibid.
21Social Security Board, Social Securit in America
(Washington, 0.0.: U. 8. Government FEIEEIng gffice, I937),

pp. 138-154.

 

12
insurance to provide a safe, adequate income for the period
when the individual will be no longer able to earn a living

"When he has the assurance that each day's work builds
up an investment for his old age, permitting independence of
the charity of the community or financial aid from sons and
daughters already overburdened by the cost of maintaining
their own families, much of the wage earner's haunting fear
of insecurity is removed..

"The increase in the proportion of older persons in
the population of the United States, the mounting ratio of
dependency in old age, and the difficulties which an older.
worker meets in his attempt to find and hold employment make
it imperative that legislative and collective action be taken
in this country to avoid everbmounting costs of relief to the
aged and the humiliation of subsistence upon charity."

Four years later in the Social Work Year Book of 19i1
we find this statement:22 "The problem of the responsibility
of relatives or family is another major issue in determining
need. Some requirements relating to family obligation are
based upon general state statutes applicable to all forms of
public aid; others are a part of the state's specific old
age assistance legislation. The most comes requirement is
that in order to be eligible an applicant must have no
legally liable relative able to support hum. The persistence

_m_

2 ' . .
. 2 Russell H.‘Kurtz, Social Work‘fear Book (New York:
Russell Sage Foundation, 19 , pp. - .

13
of such provisions in laws that were intended to raise old
age assistance above the legalistic philosophy of the poor
laws is generally regarded as unfortunate.”

A study of 1006 college and 378 high schoolstudents
was made in 1939 and 1940 and is reported in Caldwell and.
Foster's book.23 Hora students felt that children should
support aged parents (h9% urban and 53% rural Protestants;
7t% urban and 71% rural Catholics) but there was a substantial
number who felt parents should not expect help from children
(20%,urban and 13% rural Protestants; and 9% urban and l%
rural Catholics). This would point to a conclusion that the
mores seem.to be changing, and children no longer seam to
accept responsibility for supporting aged parents in all in-
stances. When states assume automatically that children'will
assist needy parents willingly, the assumption does not al-
ways hold true. The aged sometimes feel at a loss because
they are not certain that they will get help from their-chil-
dren and they are not sure they can get public assistance.

‘Miss Elizabeth Epler>did an interesting study, 913.553,
Assistance £135 Provisions on Children's Responsibilitz.£2§
Parents.2h Miss Epler stated that, "Most states--but by no
means all-~hold that adult children are legally responsible
for the support of certain needy parents as defined by law.

 

23Caldwell and Foster, 92, gig.

2“Elisabeth Epler, "Old Age Assistance Plan Provisions
on Children's Responsibility for Parents,” reprinted from the

Social Securit Bulletin (U. S. Department of Health, Educa-
tIon and Welfare; Social Security Administration, April, l95t).

13
of such provisions in laws that were intended to raise old
age assistance above the legalistic philosophy of the poor
laws is generally regarded as unfortunate."

A study of 1006 college and 378 high school students
was made in 1939 and 19A0 and is reported in Caldwell and
Foster’s book.23 Hora students felt that children should
support aged parents (h9% urban and 53% rural Protestants:
7A% urban and 71% rural Catholics) but there was a substantial
number who felt parents should not expect help from children
(20% urban and 13% rural Protestants; and 9% urban and L%
rural Catholics). This would point to a conclusion that the
mores seem.to be changing, and children no longer seen.to
accept responsibility for supporting aged parents in all in-
stances. When states assume automatically that children'will
assist needy parents willingly, the assumption does not al-
ways hold true. The aged sometimes feel at a loss because
they are.nct certain that they will get help from their chil-
dren and they are not sure they can get public assistance.

Miss Elizabeth Rpler did an interesting study, 913. Ag:
.Assistance Plan Provisions gg'Children's Responsibility_£g£
Parents.2h Kiss Epler stated that, "Most stetes—-but by no
means all-~hold that adult children are legally responsible
for the support of certain needy parents as defined by law.

 

23Caldwell and Foster, 93. gig.

zhzlizabeth Epler, "Old Age Assistance Plan Provisions
on Children's Responsibility for Parents,” reprinted from the

Social Securit Bulletin (U. S. Department of Health, Educa-
tion and Welfare; SchEI Security Admdnistration, April, 195A).

1k
In some states, chiefly those in which children are not
legally obligated to support their parents, the assistance
agencies encourage but do not take any steps to require con-
tributions."

Kiss Epler found that, "Since, under the common law,
children have no responsibility for the support of their
parents, legal responsibility is established by statute or
not at all." In October, 1952 there were twelve states which
had no legislation. Six states had general support legisla-
tion, though not specifically applied to Old Age Assistance.
Thirty-three states including Alaska, Hawaii, and the Dis-

. trict of Columbia had legislation establishing responsibil-
ity.25 Miss Epler's opinion of court orders was, "In any
event, court procedures are time consuming and costly, and even
when support orders are issued the support may not be forthcoms
ing."

One of the questions raised by this study is whether the
attempt to enforce family responsibilities represents a cul-
tural lag related to past socio-soonomic conditions, as com-
pared with present day conditions.

What is a cultural leg? The idea of a cultural lag is
in itself an hypothesis. Samuel'Koenig, in Egg,ggg Society
gives a clear definition: "William r. 0gburn, in his influen-
tial work, Sggigl Chan , formulated the hypothesis of cul-
tural lag . . . 0gburn asserted that, owing to the multipli-

city of invention, made possible by the accumulation of ma-

 

25Ibid.

 

 

15
terial culture, social change has been occurring with great
rapidity. This rapid change has taken place more quickly in
the material aspects of culture, such as dwellings, tools,
utensils, machines, the manufacture of goods, and transporta-

tion, than in the non-material aspects such as religion,

government, the family, and education. In material culture,

discoveries and inventions are readily made.
"Since the different parts of a culture do not change

at the same rate, a lag occurs between one part and another,

calling for adjustment .26

There have been few studies in the field of responsi-

ble relatives. Two previous studies were done in Michigan,

unpublished Master's theses. The first was done by Vern

Hayes at the University of Michigan.” Miss Hayes studied

cases in the Bureau of Social Aid in St. Clair County. Bar
sample of 322 cases was twenty-percent of the case load as
She found that 97 clients had no chil-
Of the

of June, 1950 (1580).
dren and that the 322 recipients had 783 children.

783, only 19 were considered by the state as responsible ran

latives who should make a contribution. "In this study, the

state requested a financial contribution from twenty reopen-

sible relatives, nineteen children and one spouse. There

were eighteen old age assistance cases involved in this finan-

cial request for support from responsible relatives.

26Samuel Koeni , Man and Society (New York: Barnes
and Noble, Inc., 1957?.
27Vern Hayes, "The Application of the Responsible Re-

latives Law" (unpublished Master's Thesis, University of
Michigan School of Social Work, 1951)

 

 

 

16

"The amount of the total financial contribution re-
quested by the state from these twenty responsible relatives
toward the support of the eighteen old age assistance cases
involved was $27t.06 per.month. The total amount of finan-
cial support actually given by these twenty responsible rela-
tives toward the eighteen old age assistance cases involved '
was $1L1.90 per month, which is less than the amount requested
by the state. However, nine of these twenty responsible rela—
tives (eight children and one spouse) gave the exact amount
requested by the state. The total amount requested from
these nine responsible relatives was $103.L0 per month.

"There were nine of the twenty responsible relatives
who did not give any financial contribution toward the old
age assistance recipients' support. These nine had been
asked to contribute a total of $126.66 per month.

"One responsible relative gave less than the amount
requested: he had been requested to give a total of eighteen
dollars a month; he gave a total of $12.50 per month. One
responsible relative gave more than the amount requested by
the state. He had been requested to give twenty-six dollars
a month toward his parent's support; however, he gave fifty
dollars a month toward the support of this parent.”28

Another study was done by Donald Bachmsn at Michigan
State University in 1953.29 The State Department of Social

 

.1

281pxa., pp. 20, 21.

29Donald Bachman, "A Study of the New Responsible Re-
lative Ruling of the Public Assistance law on Old Age Assist-
ance cases active with the Ingham County Bureau of Social Aid
and reviewed in October, 1952," (unpublished Master's thesis,
Michigan State University School of Social Work, 1953).

17
Welfare tightened its regulations on relative responsibility
in 1952. The new regulations were referred to in the thesis
as the "new ruling." Mr. Bachman found that the number of
responsible relatives who were making a contribution (either
voluntarily or expected) before the new ruling was 16. After
the cases were reviewed, using the new regulation, the number
expected to contribute was 26, with it making voluntary con-
tribution. Mr. Bachman's conclusion*was that: ”The new
Ruling was created in order that the Bureau of Social Aid
would be able to obtain more specific data regarding the
ability of responsible relatives to contribute towards the
support of recipients of Old Age Assistance. From the data
collected and analyzed it appears that the New Ruling has
accomplished the purpose for which it was designed."

CHAPTER III
METHODS AND PROCEDURES EMPLOYED IN THIS STUDY

Two experts in the field were interviewed before the
study was started. The first, Mr. Daryl Minnie, Director of
the Ingham County Bureau of Social Aid and Department of
Social Welfare, gave generous permission for the writer to
study agency case records. He said he and his staff would
be interested in the results.

The writer also interviewed Mr. Barrett Lyons, Admin-
istrative Assistant to the Director, State Department of So-
cial Welfare. Mr. Lyons felt that the study would probably
show that the contributions from responsible relatives were
substantial.

The present study is concerned with the 139h Old Age
Assistance cases which were active on November 1, 1959 and
‘listed on the payroll of the Ingham County Bureau of Social
Aid of the Michigan State Department of Social Welfare. The
payroll was arranged according to the date on which the client
had applied for Old Age Assistance. Thus, the first names
were those who had applied early in the program. The last
names were those who had made application late in 1959.

.A sample of 140 cases was obtained by reading every
tenth case listed on the payroll, beginning with the first

18

19
one. This sampling by regular interval was certain to con-
30

tain all age groups, since the sample was evenly distribu-
ted cver the period during which the program had been opera-
ting. It accounted for individuals who had been receiving
assistance for 20 years, as well as those who had recently
applied.

It was presumed that this procedure would include
cases having urban, rural and semi-rural residence. It was
also expected that the sample would show a variety of support--
relatives making voluntary contributions, relatives expected
to support, relatives ordered by a Court to support, and cases
where there were no responsible relatives.

A copy of the schedule used to obtain the data compiled
for this study may be found in the appendix.

In tabulating the reactions to the efforts to obtain
support, the writer used her own Judgment in the following
manner: if the case definitely indicated to the writer a
therapeutic or hostile reaction, it was so noted in the sched-
ule. If the information in the record did not appear to be
definitely therapeutic or damaging it was noted as "not much
reaction or "reaction unknown." Ho Judgment factor was in-

volved in obtaining the data on "voluntary contribution at

intake," "amount of money being received," or "court order."

 

3°Tab1es 9 and 10, Appendix.

CHAPTER IV
. THE DATA

The data showed that, of the 1L0 cases studied, A0 had
no relatives. In the group of 100 recipients who had respon-
sible relatives there were 36 cases in which relatives either
were providing, or were expected to provide support.

Records of the 36 cases revealed: I

1. There were 2A in which relatives were considered
to be supporting voluntarily, since they had been providing
voluntary support to the recipients before application for
assistance was made. Only 6 of the relatives would have been
required to make a contribution, under the rules of the Mich-
igan Department of Social Welfare. These received $Alh.lt
monthly. The balance of 18 were provided shelter.

2. There were 12 in which support was expected after
application of the Department's rules, as follows:

Qgg case was a Court Order, ($35.), obtained after
the relatives had protested the Department's deci-
sion;

giggg cases indicated support was expected and re-
cs ved ($201.95) after contacts by the Department

and application of the rules; and

three cases showed support was subtracted from.the
EEEEHly budgets of the recipients ($2t.50), but

the records did not indicate whether the support
was actually received.

The amount of monthly contributions received from rela-

20

21
tives in these 36 cases is as follows:
Where support was voluntary

Six cases, in which relatives would have been

required to provide support, contributed . . $41A.lh

Eighteen cases, in which relatives would not

have been required to support, contributed

shelter which the Bureau estimated to be

worth 0 O O O O O O O O O O O O O O O I O O O 0 619.20‘
Where support was expected

One case, a Court Order, contributed . . . . . 35.00

Eight cases, in which relatives were ex-

pected to contribute, recipients did re-

061'. O I I 0 O O O I O O O O O O O O I O O O 0 201.95

Three cases, in which records did not

show receipt but in which relatives were

expected to contribute . . . . . . . . . . . . 2h.50

Thus, where the support was voluntary, relatives of 2A
recipients contributed the equivalent of $1,033.3h in cash or
shelter. The 12 cases in which support was credited after the
Department sought it show a total of $261.h5.

It is not possible, of course, to determine the extent
of support provided simply by having the responsible relative
law an the books. Elizabeth Epler discusses this in the arti-

l
ole previously mentioned.3 There may be some persons who
never applied because they knew their applications would be
rejected.

What was the amount of effort required on the part of

 

w—v

tAccording to the regulations of the State Department, the
Ingham County Bureau figures the cost of a heated sleeping
room to be $3A.h0 monthly.

31Epler, 92. 933.

 

 

 

3 on «u a 3 e an
on a on a I: In N
so u mm a u: u- n
44 on oa ha 04 an spa
mm «mm ma on an mun can
do nan ma pod on mum saw
ems» men one» Hen ems» Hen
sueenem can: nueeuem alum tueohem clan Heels:
concenwm unsunuaob eepausaem
auonnam on usauonnsm stuueansm eanaanoneem and:

end-«Adena 4o

 

soaoqnuoem «A

 

nudedndoom 4N

 

wadedndoom 00d

 

add-c auonneae» no sense:
unease assoc no means.—

ansoc cu

ease same on commas mam
asuom moaned-Hem no sense:

aesuaeden sandeuoaeen
5H.- eweupheaau no sense.—

eebausaeu eanqndomeeu
cu vase unsaved no henna:

sensuouoen node
veauseeac eepdaeaen can
aaesoneeu needs no means:

 

.mmbHaegmm_mumumzommmmvzomu amommmm zHaymo oa_~ozmu< nm.nmax smegma
a numsa

23

the agency to obtain these results? The rules of the Depart-
ment require that contacts be made annually with all respond
sible relatives, except in certain cases where the relatives‘
income is considered stabilized, when letters are sent in
alternate years. In order to determine the effort expanded,
the case records were checked for the following data:

discussions-- the number of times responsible re-

latives were discussed with the
recipients

 

correspondenceo-the number of times letters were
sent to relatives

interviews-- the number of interviews with re-
sponsible relatives

court orders-- the number of Permission Forms
(258) signed to take case to court,
and number of court orders obtained

telephone-- the number of telephone calls made
to responsible relatives.

These actions are listed in Table 1. A study of the
agency activities in these cases where relatives already were
providing help (voluntary) compared with those cases in which
agency contacts resulted in help (expected) plus those in
which no help was obtained (no support) is shown in Table 2.

In this tabulation, the percentage of interviews with
responsible relatives is high in the case of those getting
voluntary support since this group includes the 18 cases in
which the relatives provided shelter. Where the recipient was
living with the relative, it was convenient for the worker to
interview the relative as well as the recipient at the time of

the home cell. As would be expected, court procedures were

2h

not followed where support was voluntary.

TABLE 2

PERCENTAGE OF AGENCY EFFORT COMPARING VOLUNTARY
SUPPORT WITH EXPECTED AND NO SUPPORT

W

 

 

Percentage of Activity Devoted to
Support- Support Expected
Agencygnctivity Voluntary plus No Support
Discussed with Reci-
pients 26 7h
‘Letter to Responsible
Relatives 31 69
Interviews with.Rea
sponsible Relatives #6 5h
Permission Forms for
Court Action -- 100
Court Orders. -- 100
Telephone Cells 18 82

 

 

 

The data in Table 1 indicate that agency effort is de-
voted generally to the three categories of cases (Support-
Voluntary, Support-Expected, No Support) in proportion to
their size. When the two categories of Support-Expected and
We Support are combined, as shown in Table 2, it is evident
that a large share of the agency effort, ranging from St to
100 percent of the activities, is producing only $261.t5 in
recipient support, as noted on page 21.

The effects of the enforcement of the responsible re-
lative provisions on the relationships between the Old Age

Assistance recipients and their relatives were tabulated

25
according to whether the reaction was therapeutic, minimal,
unknown or damaging. The results for the entire group of
100 are shown in Table 3.

TABLE 3

REACTION T0 RESPONSIBLE RELATIVES
CLAUSE, ALL RECIPIENTS

 

Reaction Recipients
Therapeutic . . . . . . . 17
Minimal . . . . . . . . . #7
unknown . . . . . . . . . 8
Damaging . . . . . . . . 28

 

Although more relationships appeared to have been
damaged than helped, by a 3 to 2 ratio, in almost half of
the cases the effect was slight.

The reaction in those cases where the support was

expected (involuntary) is noted in Table L.

TABLE h

REACTION T0 RESPONSIBLE RELATIVES
CLAUSE, SUPPORT EXPECTED

 

mam m ‘-

Reaction Recipients

 

 

Therapeutic . . . . . . . 3
Minimal . . . . . . . . 3
Unknown . . . . . . . . l
Damaging . . . . . . . . 5

 

26
These findings show that in this group more relation-
ships were damaged (five) than were improved (three) but
this cannot be considered conclusive because there were so
few cases.
Table 5 indicates the reaction in the 6A cases in

which no support was expected.

TABLE 5

REACTION TO RESPONSIBLE RELATIVES
CLAUSE, NO SUPPORT OBTAINED

 

Reaction Recipients
Therapeutic . . . . . . . . 2
Munimal . . . . . . . . . . 37
Unknown . . . . . . . . . . 6
Damaging . . . . . . . . . 19

 

This group indicated considerably more damaged rela-
tionships than therapeutic relationships, with no results in
terms of support obtained.

Table 6 summarizes the relationships found among the
three groups of clients. The findings showed that enforce-
ment of the responsible relative provisions affected the re-
lationships between Old Age Assistance recipients and their
families adversely in 28%.of the cases; therapeutically in
17%, minimally in 1.7%. unknown in 856.

Data on the question of cultural lag is limited. How-

ever, information cn the living arrangements of the Old Age

 

no ma cu m 4H 4 an . naaauasom
_ tauaawessn souuoeem

as o A «an a «an a . a sausage sequence
as an o m an a . ha . nausea: sodas-om

«a a L on n as an H _ an onus-nausea senses-m

 

omen . hen seen wen ewe» Hen . . .
unsouem Leon naeonem _Llsn, raeohsm has: . neeafln

 

fl veuoeAHu hueaosdob , _ sepaosaem
«seamen on upononnom utouoqnom euaaeooqeem moan.
euaeqmqoem 40 euueuauoem «a euoeumaeem 4N somednuoem con ,

 

 

 

 

I! ulr E

 

lrr‘ a

Bfibgmbw ZH§Bmo OB MEMOMhM Hummud IONH GEHBHDmflG
MMbHfiddfimflnHmHmZOmmflm 9:4 mBzMHmHOHm ZNHBBHmCmHmmmbuadflnfl

o Manda

 

28
Assistance recipients provides some indication of changing
customs. In Table 7 are listed the various types of housing
situations found and the numbers of clients in each type.

TABLE 7

LIVING ARRANGEMENTS,
ALL RECIPIENTS

WW

 

Arrangements Number of Recipients Percentage
In Own Home 32 22.;w
In Trailer 1 .7
In Own Home or on

Relative's Land 3 2.1
In Rented Home 5 I 3.6
In Rented Apartment 17 12.1
In Room 32 22.9
In County Hospital 10 7.1
In Convalescent Home 16 ll.A
With Son or Daughter 2A 17.2

 

 

 

This tabulation indicates that in only 17%.cf the sample
studied did the recipients live with responsible relatives in
‘what in past generations would have been a typical family
living arrangement. More than four out of five (83%) did not
live with relatives: 6t% lived in their own home or in rented
quarters, while almost 19%*were in county hospitals or con-
valescent homes.

Living arrangements for those with responsible rela-

tives are shown in Table 8, according to type of support.

29

TABLE 8

LIVING ARRANGEMENTS FOR RECIPIENTS
HAVING RESPONSIBLE RELATIVES

 

 

 

Numbers of Recipients Receiving

 

 

Arrangements Support Support No
Voluntary Expected Support

In Own Home A 18
In Trailer 1
In Own Home or on

Relative's Land 1
_In Rented Home 1 l 3
In Rented Apartment 1 it.
In Room. 1 lh‘
In County Hospital 1 6
In Convalescent Home 2 3 5'

 

 

 

With Son or Daughter 19 2 v I

 

These figures indicate that where the elderly person
was living with relatives, as has been the custom in the
past, support was generally available on a voluntary basis.
But this group represents only 2h%.of those having relatives.
Thus, 76% did not live with responsible relatives. These
figures, while not conclusive, would seem to support the
belief that the majority of those over 65 in need of public
assistance do not live with relatives. Those who do live with
their children have the best chance to receive help from.such

relatives.

CHAPTER V
CONCLUSION

The effectiveness of responsible relative laws has
been debated by social welfare workers, administrators, and
legislators for years. The question is largely unanswered,
since no one has yet determined how much help would be forth-
coming if there were no legal requirements for support. The
purpose of this study was to review within the limits of a
single public assistance agency the administrative practices
and results from.the application of the responsible relative
policy in the Old Age Assistance program. The project was
limited to a study of 1L0 cases active on‘November l, 1959 in
the Ingham County Bureau of Social Aid.

Is the current administration of the re-
sponsIble relative‘ElausaAproductive in rela-
tion to staff tIme invested?

Here the data provided a positive answer in terms of
money; the 12 cases in which support was expected after appli-
cation of the responsible relative rules produced monthly
support totaling $26l.t5, or approximately $3,100. on an
annual basis. If projected to the total of all Old Age Assist-
ance cases in the county bureau (granted the validity of the
sample) this could mean a fairly sizeable amount, some 331,000.

per YCQr e
30

31

But after considering the total of support obtained,

a consideration of equal importance is whether the staff time
so invested was used effectively. Table 1 would seem to in-
dicate clearly that all cases received almost equal attention
in terms of effort expended, even though 6h% produced no
support. In fact, the 12% of the cases in which the agency's
activities were credited with obtaining support not being
given at time of application, received very little more than
their arithmetically proportionate percentage of the total
agency effort. This would seem to mean that the practice of
following practically the same procedures, irrespective of
whether support had been obtained previously, might well be
questioned. If the rules providing for review of responsi-
bility of relatives were liberalized, so that cases showing
no support were checked less often, perhaps at intervals of
three or four years, a very considerable amount of staff time
might be saved. Likewise, a saving might be made in the case
of recipients getting voluntary help, since this help was
going to the clients prior to their application.

This, of course, would require certain changes both in
Michigan statues and the State Department of Social Welfare
rules, and should be considered only after obtaining more
evidence than this study provides. It seems fair to conclude,
however, that while the responsible relative provision does
produce support, further study might well develop rule changes
that would reduce the amount of effort spent on non-productive

.0 Li'j. ty e

32

Do most of the children.providingwsupport
for parents do so v61untarily,grather than as
s resuIt ofrdemands by the state?

Yes. This project shows that in the sample cases stud-
ied, twice as many recipients (2h) received help from relatives
who gave voluntarily as from relatives (12) who were expected
to give by the Bureau of Social Aid. There was a difference,
too, in the amount of.money contributed, with six cases in
which voluntary monetary support was given providing consi-
derably more help then the twelve in.which the Bureau expect-
ed help to be forthcoming.

Does enforcement of the responsible rela~
tives clause EIIect the satisfactory adjustment
between OldA eAssIstance recipients and their
Timilfes?

Yes. In one case in every four (28%) there was evi-
dence in the case record of hostility as a result of the
application of responsible relative rules. The largest number
of such situations was found in the group that was not expect-
ed to support and did not. Here the relationship between
parent and child definitely was damaged, and with no support
obtained. In a smaller number of cases (17%) the reaction
was therapeutic. The beneficial results were obtained largely
among the group that provided support voluntarily.

The reaction noted appeared to be definite in almost
half the cases reviewed-28% damaging, 17% therapeutic. In
the rest, there was either minimal reaction (A7%) or the re-

cord failed to give any clear indication. Thus, in less than

20%.of the cases was the effect of the responsible relatives

33
beneficial.

Does enforcement of family responsibil-
ityrepresent a cultural lag; related to ‘ast
socio-economIo conditions as compared with
present day conditions?

 

This is an area in which proof is difficult to estab-
lish. If we assume that the growing tendency for elderly
persons to live away from their children, contrary to former
customs, is an indicator of cultural lag, than the data on
living arrangements shed some light. Table 7 shows that 65%
of the entire sample lived by themselves in their own or
rented property. Another 18% were in institutions, leaving
only 17% living with children, in the manner of their fore-
fathers.

Although our whole socio-eccncmic-political structure
has changed since the time of the Elizabethan poor laws, the
responsibility of children for parents continues in the carry-
ing out of the responsible relative requirements even when
children are reluctant or hostile. With all the advances in
our understanding of personal relationships this would seem
to be a serious lag, indeed, in our handling of elderly
persons in need.

This study reveals some evidence that present respon-
sible relative practices, while productive in a limited way,
might well be reviewed and re-criented, to the end that the I
same monetary results might be achieved with less effort on
the part of the public agency. And a change might well lessen

the hostility the present procedures induce, as the new

3h

approach recognizes the human dignity and worth of every
individual.

BIBLIOGRAPHY
Books

Asch, Sidney H. Social Security Federal and State laws.
Legal Almanac Series, No. 26. New Tork, New York:
Oceans Publications, 1952.

Atwater, Pierce. Problems of Administration in Social Work.
Minneapolis,'Hinnesota: *Uhiversity oIIHinnesota‘Press,

l9k0.

Bald, F. Clever. Michi an in Four Centuries. 'New'York:
Harper and BrotEers,_I95§.
Bibl.e Ruth 1316be

Biestek, Felix P, S. I. The Casework Relationw i . Chicago,
Illinois: Loyola University Press, I 5 .

, The Principle of Client Self-Determination in Social
CasewcrE. Washington D. C.: The CatthIc UnIversIty
o? AmerIca Press, l95l.

Burns, Evelyn. Social Securit and Public Polio . New Ybrk:
_ MoGraw-HiII BooE Company, IEc., I535.
Caldwell, Harris G. and Foster, Laurence. Anal sis of Social
Problems. Harrisburg, Pennsylvania: The StackpcIe
1 company s 195‘!» 0

Clarke, Helen I. Social Legislation. New York: Appleton-
Crofts, Inc., I937.

Creech, ‘largaret. Three Centuries of Poor Law Administration,
A Stud of Le isIation in Rhode Island. Chifiago,
IIIIEcIs: UnIversIty of Chicago Press, 1936 .

DeSchweinitz, Karl. England‘s Road to Social Security.

U. of Pennsylvania Press, I9A3.

 

Dcrnbusch, Sanfordlfl. and Schmid, Calvin F. A Primer of
Social Statist cs. New York: McCraw HIII BooE Co.,

Inc., 1955.

Durkheim, Emile. Suicide. Glencoe, Illinois: The Free
Press, 1951.

35

36

English, 0. Spurgeon and Finch, Stuart M. Introduction to
Psgchiatry. New York: N. w. Norton and Company,
9

reldman, Frances Lomas. The Family in a Money World. ‘New
York: Family Service Association of America, 1957.

Friedlander, Walter A. Introduction to Public Welfare. En-
glewcod Cliffs, NBw Jersey: PrenticeJHall, Inc., 1955.

Hall, Fred 8. (ed.). Social Work Year Bookppl935, New York:
Russell Sage Foundation, 1935.

Jahoda, Marie, Deutsch, Morton and Cook, Stuart W. Research

Methods in Social Relations. N. Y.: Dryden Press,
I951.

Koenig, Samuel. Han and Societ . New York: Barnes and
Noble, Inc., I957.

Kurtz, Russell H. (ed.). §gcial Work Year Bookp_l9tl. New
York: Russell Sage Foundation,‘l9tl.

. Social Work Year Book 1 . New York: National
Association of SocIaI WcrEers, 1957.

. Social Work Year Book, 1960. New York: National
Association 5?;Sccial Workers, 1960.

Lepewsky, Albert. Administration. New York: Alfred A.
Knopf. 1955.

Leyendecker, Hilary M. Problems and Policy in Public Assist-
ance. New York: ‘Harper and—Brothers, 1955.

 

Niles, Arthur P. An Introduction to Public Welfare. D. C.

Nordskog, John Eric. Contemporarp Social Reform Movements.
Scribner's, 1955}

Official Proceedings 79th Annual meeting, National Confer-
ence of S. w., Chicago, 1952. The Social Welfare
Forum1 1952. Columbia university Press, 1952.

Patton, Price and Patton Martha. Freedom From Money Worries.
New York: Citadel Press, 1956.

Perlman, Belen‘Harris. Social Casework a Problem.Sclvin

Process. Chicago, Iilinois: IThetUniversity o
CEIcagc Press, 1957.

Pinner, Frank A. Old Age and Political Behavior. Berkeley
and Los Ange es, Ca orn a: n vers y of California

Press, 1959.

 

37

Russell, James E. National Policies for Education, Health,
and Social Services. Doubieday, I955.

Smith, A. Delafield. The'Right to Life. U. of N. Carolina
Press, 1955.

Smith, Ethel Sabin. The Dynamics of Aging. New'York: W. W.
Norton, 1956.' ' «

Towle, Charlotte. Common Human Needs. New‘York: National
Association of Sociaivlorkers, 19L5. ‘ "

White, R. Clyde. Administrative of Public Welfare. New York:
American Book Company, 19i0. .

Woods, Frances Jerome, C.D.P. Cultural Values of American
Ethnic Groupg. ‘New‘York: “Harper and Brothers, 1956.

Young, Pauline V. Scientific Social Surve s and Research.
Englewood Cliffs, New 7ersey: Prentice-HaII, 130.,

1956.

Articles

Aldridge, Gordon J. "Issues in American Social Work, " (book
review), Social Work, IV, No. A (October, 1959).

Cohen, Wilbur I. "Needed Changes in Social Welfare Programs
and Objectives," The Social Service Review, XXXIII
(March,1959) e

Epler, Elizabeth. "Old Age Assistance Plan Provisions on
Children's Responsibility for Parents," reprinted from
the Social Security Bulletin, U.S. Department of Health,
Education, and welfare, Social Security Administration

(April, 195h).

Linden, Maurice F. "Cultural and Socio-Psychological Consi-
derations in Work with the Aged, " Social Casework
(November, 1959)

Nandelker, Daniel. "Family Responsibility under the American
Poor Laws,” Michigan Law Review (February and March,

 

 

1956)-
Nationsl Conference on Social Work,.The Social Welfare Forum,
‘ 1222,.(New York: Columbia U. ress, .. A
‘National Conference on Social Welfare, The Social Welfare
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95

‘Tailer, William P. "Public Velfare and the Aging -- Adminis-
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XVIII, No. 1 (Jan., 1960).

38
Public Documents

State of.Michigan State Department of Social Welfare, The
Social Welfare Laws, Lansing,.Michigan State Department
BT’Social Welfare, 1959. -

Reports

Bureau of Business and Economic Research, College of Business
' and Public Service. Economic and_Population Base Stag:
of the Lansing_Tri-Count Area. East Lansing, Michi-
gan, Richigan State n vers .y, 1960.

Hearings before a Subcommittee of the Committee on Ways and
Means, House of Representatives, 83rd Congress, First
Session. Economic Status of the Aged and Public Assist-

ancegkAnal 513 of the Social Security S stem. Wash-

ington, D.C.: U.S. Govit. Printing“0?ffce, 195A.
Social Security Board. Social Security in America. Wash-

ington, D.C.: U.S. Government Printing Office, 1937.

 

 

State Department of Social Welfare. State of Michigan Social
golfers Laws. Lansing,lflichigan: State Department"of
Social welfare, 1959.

State of Nichigan Department of Social Welfare. Manual of
Policies and Procedures. Items 320.1-320. .

- State of Michigan Department of Social Welfare. Monthly
Administrative Report. December, 1959.

Unpublished Haterial

Hayes, Vern. "The Application of the Responsible Relatives
Law," unpublished Master's thesis, University of
Michigan School of Social Work, 1951.

Bachman, Donald. "A Study of the New Responsible Relative
Ruling of the Public Assistance Law on Old Age Assist-
ance Cases Active with the Ingham.County Bureau of
Social Aid and reviewed in October, 1952." Unpub-
lished Master's thesis, Michigan State University School
of Social Work, 1953.

APPENDIX

STATEMENT OF RESPONSIBLE RELATIVE

State of Michigan
Department of Social Welfare

Case Name:
Case No.:

Ca seworker:

determining current eligibility for assistance of your relative named above. The state law under which this program is ad-
ered provides that persons who have legally responsible relatives able to sUpport them are not eligible to receive assistance.
iclosed folder gives as much information as possible on the general question, ”What is Expected of Relatives?"

:er from our office will be glad to discuss this matter with you at your convenience if you will write or telephone for an op.
ent. If you live too far away or it is otherwise inconvenient for you to see the worker personally, please fill out the other
fthis form and return it to us as soon as possible. The information will be held confidential and will be used only to deter-

our ability to provide support.

ate law requires the county bureau of social aid to determine each responsible relative's ability to help before granting
once. If a grant is approved, this determination must be reviewed at least once a year as long as assistance is continued.

st that you will be able to send the requested information by return mail. However, if we do not hear from you within IS days
be necessary to withhold assistance from your relative, or to initiate court action to determine the amount you are able to

tote.
Signed , Supervisor
County Bureau of Social Aid

 

Address

 

RELATIVE - PLEASE COMPLETE OTHER SIDE - DO NOT WRITE BELOW THIS DOUBLE LINE

Bureau's Computation (All figures monthly)

 

 

 

 

 

 

W 3. Combined Incomes
Income: Relative $__ Relative .......... -- - -- S
Spouse _—
iments: 4 Total ................................................................ $
usual medical or dental S l. S
Spitclization or funeral expense 2.
:Iter costs 3.
:cial education 4.
tra retirement deduction 5.
ndatory payments 6. _—
*7. 100.00
Adjustments $___ Total Adiustments S
or! Gross _ __ __ Adjusted Gross .......... - -
:3 income minus total adjustments) (Cross income minus total adjustments)
ted Contribution (from Item 33, Tables 7- I7, 331 “Expected Contribution (from Tables 7- I7,
iding employed spouse) including employed spouse)
ber persons in fomuly____ $__ Number in family___ 3

 

se's expenses of earning an income. Applies only to combined income computation. If gross income of spouse is below $100, disregard
l compute Column A only, including spouse in family group.

making combined computation in Column 8, Column A is also to be computed; then use expected contribution from A 31 B, whichever
cller.

39

58-25 Rev. 2-58

I TO BE COMPLETED BY RELATIVE - AND RETURNED 'ro BUREAU

 

 

 

 

 

      

 

CHECK ONE
I. I am not employed and have no income of my own. ( )
2. l have employment or income as described below. ( )
I am employed by Address
Social Security Number Badge Number
CHECK ONE
My gross pay (before payroll deductions) is $_____ ( ) per week ( ) each two weeks
(Do not enter take-home pay) ( ) per month ( ) each half-month
My total gross earnings for the last twelve months were $
My age is My Social Security or retirement expenses are___% or $_____per pay.
I have other income, or operate my own business as follows: Gross Income Net

Source A

Source

 

 

The members of my immediate family living in the home with me are:
Check whether person c

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Mg _Agg_ We Monthly Income as income tax ezizempi

3 Yes ( ) No (

Yes ( ) No (

Yes ( ) NO I

Yes ( ) No I

Yes ( ) No (

Living elsewhere but dependent on me: Monthly Contribution

$ Yes ( ) No I

 

 

 

Yes ( ) Ncl

I am listing below the amounts which I pay monthly for certain types of expenses, which I understand the Bureau may take in-
consideration in determining my ability to assist.

 

Description of EXpense For whom or what purpose Monthly Expenfl

 

 

 

I. Medical and dental expenses, including 5 I
health insurance. '

 

 

2. HOSPIIOI or funeral expenses not covered

 

 

 

 

by insurance. _.___..l

3. Shelter costs; only rent, mortgage pay-
ments, taxes, repairs. a ____.4
4. Special education, as for children in I
private school or college. _.._———l
5. Court orders such as alimony or garnish- I
ments. , —————-i
:4

 

 

REMARKS: (Please state in what way you are now helping your relatives and what yoa believe you can
continue to contribute. Make any other comment or explanation of circumstances you wish.)

Date Signature

Address

 

 

(R.9§1Rnrb\ Dav 9-KR

We!“

F‘C-fif

\\

ltem 320.l

Item 320.] SUPPORT FROM RELATIVES

Act 146, Public Acts of 1925, as amended:

l

“Sec. 1. The words ‘poor person’ as used in this act shall be construed to mean one whohas
no property, exempt or otherwise, and who is unable, because of physical or mental disabilities
or age, to earn a livelihood, or a person who has some means but is eligible to receive relief

or assistance granted under the provisions of the social welfare act . . . . The words ‘dependent
parent' as used in this act shall be construed to mean a poor person whose estate is insufficient

to maintain him and who has an adult child. . . .

“Sec. 2. The husband, wife, father, mother and children of any poor person, being of sufficient
ability, shall jointly or severally relieve, maintain and support the poor person . I. . . in such
manner as shall be approved by the county department of social welfare of the county in which

the poor person is settled or is living.

“Sec. 19. No person shall be required to furnish a parent with maintenance and support if it
is proven that such parent abandoned, deserted, or wilfully refused or neglected to support
and maintain him while an infant under 16 years of age.”

Section 76¥Act 280:

“This act shall not be construed to relieve the liability for support by relatives under the
provisions of chapter 1 ofAct No. 146 of the Public Acts of1925 . . . . The terms of chapter I
with respect to liability for support by relatives may be invoked in connection with any form
of public aid or reliefadministered under this act.” I

Section 26, Act 280:

“Old age assistance shall be given to any person who . . . . (d) Has no spouse, child, other
person, association, society or corporation legally or contractually responsible under the laws
of this state for his support and found by the county bureau to be able to support him:
Provided, That if such spouse, child, other person, association, society or corporation is
partially able to support the applicant, such partial support shall be taken into consider-
ation in fixing the amount of the assistance.”

In determining eligibility for any category of assistance, the county bureau must consider the ability

'of legally responsible relatives to support, fully or in part, persons applying for or receiving such

assistance. This determination must be made whether the relative lives in Michigan or elsewhere.
All pertinent information regarding the Circumstances of responsible relatives and the conclusions
reached as to their ability to provide support are to be included in the case record according to the

,requirements of Item 360.

The definition of who is a legally responsible relative may be found in the citations from Act 146
above. With respect to a dependent parent, a child is not a legally responsible relative until he is

an adult, in other words 21 years of age.

Neither is a son or daughter to be considered legally responsible if it can be established that the
parent in question wilfully failed to support the child while under 16 years, of age, as provided in
Section 19 quoted above from Act 146. In order to apply this provision, the county bureau must:

1. Secure as much information as possible as to whether the parent did actually abandon, desert, or
wilfully refuse or neglect to support (when able) the child while still under 16 (See Item 264 for
discussion of what constitutes abandonment or desertion); 22.91 2. Secure an evaluation of this infor-
mation by the prosecuting attorney or the probate judge and a ruling that the son or daughter is not
legally responsible.

Revised 11-8-59 ,
LO

Item 320.1(2)

A. Basic Procedures. Under the provisions of the law cited above, the county bureau is required to
make a positive determination with respect to the ability of each responsible relative to contribute

to the client’s support. The client and his relatives are expected to participate in this determination,
and their responsibility to do so must be discussed at the earliest opportunity. It is important that
the client be fully informed of the various courses of action which may be taken and of the decisions
which he must make or share with the bureau as the investigation proceeds.

The following procedures are basic to the determination of eligibility and the amount of the grant in
all categories in connection with the possibility of partial or full support by responsible relatives. It
will not be possible or necessary to use all these procedures in any given case. Each numbered item
begins with the description of a certain set of circumstances, and when these are found to exist in a

. particular case, the procedures given in that item are to be applied.

1. When the relative has been determined able to contribute a certain amount, the “expected
contribution” is to be considered as income, except when the contribution is not forthcoming
ing a judicial review has been requested. -

2. When there is reason to believe the relative has some ability, but the bureau is unable to
secure sufficient information to make a specific determination, 93; in the case of the self-
employed relative, when the bureau is convinced that the information presented does not
reveal his actual ability to contribute, the application is to be denied, or the grant cancel-
led, except when a judicial review has been requested.

3. When the client wishes to have the probate court determine the ability of relatives to help,
he is to sign Form SB-25H, Request for Judicial Review. This form may also be used by
the responsible relative who wishes to request a judicial review although any statement in
writing to that effect will be acceptable. In case the client is seriously ill or senile, his
spouse may sign the request; if there is no Spouse, or if the spouse is also ill or senile,
the bureau may initiate legal action on behalf of the client.

4. When a judicial review has been requested, whether by the client, the relative, or the
bureau, the bureau action otherwise indicated, i.e., denial, cancellation or reduction of
grant is 92!, to be put into effect pending the outcome of legal action. (Contributions
actually forthcoming must, of course, be budgeted.) In the case of an application, assist-
ance is to be granted if the client is otherwise eligible. Reinvestigation of an active case
is to be considered completed with reSpect to the ability of relatives to provide support.

5. When the decision made in 1 or 2 will result in reduction or cancellation of a grant and
judicial review is not requested, the client is to receive one more check before the action
is put into effect, in order to allow an adjustment period in case the help from relatives is
not forthcoming.

More detailed discussion of the various steps in the investigation or reinvestigation of relatives’
ability to provide support is given below under the headings: B. Information from the Client,

C. Information from the Relative, D. Information from Other Sources, E. Determination of Contri-
bution, F. Legal Action, G. Support from Spouse, » H. Support from Parents, '1. Support from
Relatives Living in Other States, and J. Relatives in Military Service.

B. Information from the Client. The bureau is expected to obtain from the client himself as much
information as possible regarding the financial resources and obligations of relatives, and regarding
any contributions which are being received. If this information conclusively shows the relative is
unable to contribute, it may be unnecessary to contact the relative at the current determination of
eligibility. However, the bureau must contact relatives to determine their circumstances according
to the following instructions:

1. All relatives must be contacted at original application.

Revised 11-3-59

 

Item 320.l(3)

2. No further contact is required with any relative for whom current information furnished
by the client shows conclusively that the relative has no ability to contribute, and the
bureau has no evidence to the contrary. Examples: a daughter who is receiving ADC;
relative is an inmate of a mental or penal institution; relative is unemployable because
of a disabling illness or injury. Basis for the decision is to be clearly set forth in the
case record.

3. At reapplication or request for reinstatement, no contact is required (until the next regular
reinvestigation) with any relative from whom a statement has been received within six
months prior to the date of reapplication or request, nor with any relative coming under s 2.

4. Relatives currently making a regular voluntary contribution or expected to contribute an
bureau standards must be contacted at each reinvestigation.

5. Relatives who have income but are found unable to contribute, and who are making no
regular voluntary contribution, are to be contacted only at alternate reinvestigations.

Form SB-25, Statement of Responsible Relative, is furnished to enable the bureau to correspond

~ with relatives, and to provide a convenient method for the relative to return the necessary infor-
mation to the bureau. A copy of the folder, “What is Expected of Relatives?” (Form SB-2SG),

is to be enclosed when this form is sent to a responsible relative. It should be made clear to the
client that this contact with relatives, including the possibility of legal action, is an essential
part of the determination of eligibility to receive or continuete receive assistance. Such contact
is not to be made against the client’s wishes, however, and if he is unwilling for the bureau to
investigate the relative’s circumstances, it is not possible to determine eligibility as to need for
assistance. In the case of an applicant, the application must be withdrawn or denied. In an
active case, the grant must be cancelled.

It is important that the whole question of relative responsibility be thoroughly discussed with the

. applicant at the intake interview, and that necessary clearance with relatives be made promptly
thereafter, so the client may be advised at the earliest date of the bureau’s findings. On reinvesti-
gation of active cases, it may be possible to complete correspondence with relatives prior to the
home call, so that the determination of each relative’s ability may be discussed fully at that time.

When the bureau finds that the current whereabouts of a relative is unknown; i.e. , neither his
address or place of employment can be determined, the determination of eligibility may be considered
complete, provided the bureau recording on the 83-25 shows the following information:

1. The bureau is satisfied the client has furnished all the information he has concerning
his last contact with the relative, all}!

2. The client has attempted to locate the relative through other relatives and other possible
sources, but without success.

At each reinvestigation the bureau must carry out and record efforts to determine from the client the
current whereabouts of such relatives.

C. Information from the Relative. Whenever it is possible to do so, it is usually more satisfactory
to discuss the relative’s circumstances in a personal interview. If a relative comes to the office,
or is present in the home during an interview, this opportunity for interviewing him should be
utilized. Such interviews should stress that availability of support from relatives depends not only
upon legal obligation but upon the responsibility which one member of a family feels for another.
Every effort should be made to appeal to this sense of responsibility.

 

Form 88-25 is to be used for recording the basic data regarding the relative’s circumstances and
also the bureau’s computation of his ability to contribute. This form is to be completed

Revised 11-3-59

Item 320.l(4)

and returned by the relative who does not wish to or is unable to arrange for a personal interview.
When he requests an interview, the caseworker is to go over the 33-25 with the relative and be sure
that sufficient information is recorded so that the relative’s ability to contribute can be determined.
In the case of an out-county relative who requests an interview in his own county, he is to be pro-
vided with the address of the bureau there. The out-county bureau is expected to secure and forward
the same information as it would require for its own cases, and yet make it clear to the relative that
the bureau in the county where the client lives has the responsibility for making the final deter-

mination. The out-county bureau is not to complete any part of the “Bureau’s Computation” on the
83-25. I

 

If the necessary information is not forthcoming from the relative within 15 days after sending Form
813-25, assistance must be denied or cancelled on the basis that need cannot be determined, unless

a judicial review is requested. The bureau need not wait the full 15 days to make this decision if

at any point the relative advises he does not intend to furnish the requested information, and suffi-
cient information cannot be secured from other sources. On the other hand, when the relative fails to
furnish requested information, the bureau’s findings may be based upon information from other sources
as described in D below, when such sources are available to the bureau. When the 15-day period has
passed without response, and other factors of the reinvestigation are not yet completed, the use of
other sources should be explored to avoid the necessity of court action if possible.

On the other hand, at any time that sufficient information is obtained from any source, the amount of
the expected contribution is to be computed according to instructions under “E. Determination of
Contribution.”

In determining the relative’s gross income in order to measure his ability to contribute, his own state-
ment is to be accepted unless the bureau has reason to question its accuracy. When the relative’s
statement shows a difference between annual earnings and earnings in recent weeks or months, the
bureau is to use the lower figure. When the bureau has reason to question the accuracy of the rela-
tive’s statement, such sources as pay stubs, income tax statements, or statements of employers may
be examined if available. When there is a difference in verified earnings between annual and current
income, the lower figure is to be used. However, when the relative’s statement and the verified in-
formation do not agree, the verified information is to be used.

There may be some situations in which, although the relative may give information willingly, the
bureau may be unable to determine his ability to contribute. Examples of these types of situations
include:

1. The relative who operates what appears to be a thriving business but who pleads little
or no ability to contribute,

2. The self-employed relative who contends that his net income is small because it is
necessary to reinvest business earnings in maintenance or expansion of the business,

3. The relative who reports wages much smaller than the known wage rate paid by his
employer, or by others for similar positions,

4. The relative whose apparent living standard is much higher than would be possible
with his reported income,

5. The “retired” relative living at a high standard on income from investments which are
difficult to determine or evaluate.

If the bureau has made all possible efforts to determine the ability of such relative, such as by com-
parison of known incomes from similar business or positions, and is satisfied the relative is able to
make a contribution although he is unwilling to do so, the application must be denied or the grant
cancelled on the basis that eligibility as to need for assistance cannot be determined, unless a
judicial review is requested.

 

Revised 11-3-59

 

Item 320.l (5)

D- Information from Other sources- If it is impossible to obtain the necessary information from the
relative himself,.or there is reason to question his statement, the bureau’s findings may be based on
information secured from other sources, such as verification of wages from his employer (Form SB-38,
Verification of Employment, may be used for this purpose) or information on average earnings for a
comparable job. When a determination is made on the basis of information from other sources, the
relative should be advised of it so that he may present more adequate data if he wishes.

E. Determination of Contribution. The amount a responsible relative is considered able to contrib-
ute to the support of the client depends on the relative’s income, the size of his own family, and
any unusual financial circumstances peculiar to his situation. In recognition of these factors, the
Department has developed the Relatives’ Contribution Schedule given in Item 333, Tables 7 to 17
inclusive, as the basis for determining the ability of relatives to provide support. There is a sepa-
rate table for the employed married woman and for each size family from the single relative to the
family of ten persons. Each table is set up in five columns: Gross Income, Living Cost, Reserve,
Income Balance, and Contribution. All figures are monthly.

The “Gross Income” column is, of course, the key to each schedule and must be determined for the
relative whose ability is under consideration before the table for his size family can be used. As
will be seen below, when “adjustments” are made for certain types of unusual expenses which the
relative may have, then the “Adjusted Gross” is the amount used to find the proper line in the
gross income column. (See also Form SB-25, under “Bureau’s Computation.”) It is to be noted that
each. amount in the gross income column is followed by a hyphen which indicates an interval of $5.
For example, $450- represents the income interval $450-454.99.

The “Living Cost” column represents the basic expense to the relative of providing for his own
family, and the amount varies, of course, from table to table according to the size of the family.
Within each table, this cost varies also at the different income levels as the income tax and social
security tax figures increase. The living cost scale is based on studies by the U.S. Department of
Labor, Bureau of Labor Statistics, and takes into consideration all the normal living costs common
to most families in which there is one wage earner: food, clothing, ordinary shelter, household ex-
penses (including replacements), ordinary medical care, transportation (permits ownership and oper-
ation. of an automobile), and school expenses (through high school), personal necessities, income
tax, life insurance, recreation, and employment expenses such as social security, shop insurance,
union dues, etc. I

The “Reserve” column figures constitute 10% of the respective gross income amounts (computed on
the mid-point of the income interval), up to a maximum of $50. It is recognized that each relative
has certain obligations on behalf of his own family in terms of payments on indebtedness (other than
those contemplated under “unusual expenses” below), savings, additional insurance, or other pro-
visions for the future. The reserve amount is intended to allow for this type of obligation before
expecting a contribution from the relative toward the support of a client.

“Income Balance,” as given in the fourth column of the schedule, is the margin of income left after

‘ deducting living cost and reserve amounts from gross income (again using the mid-point). This is
the amount which the relative presumably has available after providing for the basic needs of his
own family. '

The ”ContributiOn” figure giVen in the last column of the schedule is the amount which the relative
is considered able to contribute monthly to the support of the client. This amount is arrived at by
dividing the income balance by the number in the relative’s family plus one; uneven amounts have
been adjusted to the next lower 50 cents. The theory of this is that the amount of “free income” is
not §._l_l_ considered as a potential resource to the client but that it might be shared equally among the
members of the relative’s family 211;! the client. In actual practice, it will be seen that the client’s
“portion” may be shared with other legal dependents of the relative not living in his household.
This method of computing the expected contribution gives additional assurance that the needs of the
' relative’s own family are recognized and “protected” in determining the responsibility of the rela-
tive tode the client.

 

nutrient] 1 1-Q-KQ

Item 320. l (6)

As indicated by the construction of the schedule, the amount of the relative’s expected contribution
is determined according to his gross income, or according to the adjusted gross if there are unusual
expenses, and according to the number of persons in his own family (includes the relative and those'
persons legally dependent upon him for support, except the client, if living together as a family
group.) Stepchildren living in the home may also be considered in the family group even though the
relative is not legally responsible for their support. The relative’s spouse is always to be included
in the family group unless self-supporting, i.e.,.has gross income in excess of $100 per month.
(See discussion below regarding combined income computation.)

‘

 

 

 

 

Unusual expenses are those recognized as not included in “normal living costs.” “Adjustments”
from gross income are to be made for the following types of expenses incurred by the relative for him-
self or for members of his own family as defined above. The amount paid monthly by the relative is

to be considered, whether the expenditure is to meet current bills or to retire obligations incurred for
this type of expense.

1. Medical or dental expenses in excess of the following monthly schedule. These expenses
are not to be evaluated on assistance standards, and may include cost of hospital and
medical insurance, practitioner fees such as for Christian Science practitioners, house-
keeping and nursing care due to illness, and other emergency or chronic medical costs.

 

 

 

 

Size of family Ordinary medical Size of family Ordinary medical
1 $ 7.50 8 $25.00
2 11.00 7 28.50
3 14.50 8 32.00
4 18.00 9 35.50
5 21.50 10 39.00

2. Hos pital or funeral expenses not covered by insurance. Note: the dependent for whom
such expenditures are made need not have been living in the relative’s home; this is an
exception to the general rule.

3. That part of shelter costs which is in excess of $65 per month. This expense must re-
late te the home in which the relative lives, and may include: rent; taxes; insurance;
payments on mortgages or contracts; repairs, replacements, or remodeling (including
plumbing and heating equipment).

4. Special educational expenses, for items over and above the usual public school costs,
incurred on behalf of any member of the family group including the relative himself.
Example: child in college or in a private school such as a parochial school. When the
person in school is living away from home, he is still to be counted as a member of the
relative’s family in selecting the appropriate table of the Contribution Schedule even
though the educational eXpenses may include board and room.

5. Retirement deductions in excess of the current Social Security figure for an employee
(as opposed to a self-employed person).

6. Mandatory payments, other than for support of legal dependents, such as garnishments
ordered by a court.

7. Expenses for child care when the employed relative has no spouse in the home, as for a
baby-sitter, housekeeper, or cost at a day care center.

8. Extra living expenses incurred by the relative in the‘performance of job duties for .which
he is not reimbursed. Example: railway train employee who has a layover at the end of
his run, away from home. If he ,isreimbursed, no unusual ammo is allowable, but the

Revised 11-3-59

 

Item 320.1(7)

reimbursement amount is not to be included as part of his gross income in determining the
expected contribution. However, if this reimbursement is not paid separately from regular
wages, reduction in gross income cannot be recognized unless the relative presents a state
ment from his employer indicating the amount of such special compensation.

Adjustments for expenses other than those listed above may be made by the county bureau only by
permission in writing from the state office. Requests for consideration of such expenses are to be
submitted to the area representative in duplicate.

 

After adjustments have been made for unusual expenses, if any, the adjusted gross income is the
figure to be used in turning to the proper line on the contribution schedule.

If the responsible relative’s monthly income is $1200 or more, and the client’s needs are not met by
expecting the contribution indicated on the last line of the schedule, necessary data on gross income,
size of family, unusual expenses, etc. is to be submitted for computation in the state office. These
requests are to be sent to the area representative in duplicate. Similar requests are to be submitted
for relatives with families larger than 10.

 

When the wife of a responsible relative is self-supporting, she is 1521. to be included as a member of
his family group in applying the relatives’ contribution schedule. When a married daughter is the
responsible relative and both she and her husband are employed, the husband is considered as having
responsibility for the support of the children, if any, and for the maintenance of the household.
Therefore the daughter is considered able to contribute more than a single person with comparable
income. .For this reason a special table No. 7, “Married woman,” is included in Item 333 to deter-
mine her expected contribution. Adjustments from her gross income are to be limited to unusual ex-
penses incurred on behalf of the married woman herself. In either of these situations, however, if
the income of the non—responsible spouse is made available, the county bureau is to compute the
expected contribution on the basis of the combined incomes (See 88-25). The additional adjustment
of $100 from gross income in this computation is to provide for the expenses of earning the second
income. However, if the spouse’s gross income does not exceed $100 per month, it is to be dis-
regarded and only the single income computation used. When the combined computation is used, the
single income column is also to be completed, and whichever resulting contribution is smaller is the
one to be expected. This avoids any possibility of expecting a larger contribution from the relative
than his own income, excluding the spouse as a dependent as well as the spouse’s income, would
justify.

An employed married woman who has living with her a dependent parent, or a child by a previous mar-
riage, is entitled to consider such person a member of her family. Her expected contribution is to be
based on the schedule for that size family, even though her husband is considered responsible for
maintenance of the household expenses. A combined computation in such instances is to include
legal dependents of both husband and wife if living in the home. i

If the responsible relative, or his spouse in case of a combined computation, is over 60 years of age,
the expected contribution is to be reduced $10 below the amount shown in the schedule. If the result-
ing amount is less than $5, no contribution is to be expected or budgeted except as voluntarily made.

When the relative contributes support to another 'legal dependent or stepchild outside his home, the
expected contribution to the client is to be reduced by the actual amount of the contribution to the
'other person, Eovided that one of the following circumstances is found to exist:

1. 'Such support is in compliance with a court order, 9;

2. The relative furnishes sufficient information to show the person would be in need on
assistance standards if the contribution were not made.

I ’3 pnefinnr‘ 11-9-‘0

Item 320.](8)

If the relative’s spouse is expected to contribute to her dependent parent who is also on assistance,
the total of the expected contributions is not to be greater than the computation of their ability based
upon combined income.

If the relative is found able to make a contribution, and there are two or more persons applying for

or receiving public assistance for whose support he is legally responsible, the expected contribution
may be allocated according to his wishes, provided that the amount allocated to any one such depend-
ent may not exceed that person’s needs, according to assistance standards, after other income has
been deducted.

When a contribution is expected from a relative through use of schedules in Item 333, and the relative
contributes to the client in kind, the expected contribution is to be reduced according to the following
instructions:

1. When the relative contributes in kind an item, other than shelter, which is allowable on
assistance standards, the expected contribution is to be reduced by the actual cost of the
item to the relative or the amount the bureau would have budgeted, whichever is smaller.

 

2. When the relative furnishes shelter in kind to the client outside the relative’s home, in
property owned or being purchased by the relative, the expected contribution is to be
reduced by 50% of the county shelter maximum for the type of shelter involved.

3. When the client and the relative live together in the relative’s home, and the client is
furnished shelter there without cost, the expected contribution is to be reduced as follows:
for the individual 0AA, AB, or AD client, 50% of the county shelter maximum for a heated
sleeping room; for a married couple or ADC eligible group, 50% of the county shelter maximum
for a heated, furnished apartment.

When the bureau has determined that a responsible relative is able to make a contribution to the sup-
port of the client, the amount of the expected contribution is to be budgeted as income, unless a
judicial review is requested. Provided, of course, that when the relative is making a contribution in
excess of the amount expected, the amount actually available to the client is to be budgeted as
income. Both the client and the relative are to be informed of the amount of the expected contribution
and of its effect on the application or the grant. If the findings will result in denial of an application,
this decision is to be explained to the applicant in a personal interview so that full opportunity is
offered for discussion and understanding of the judicial review procedure. When a grant must be re-
duced or cancelled, the bureau’s decision is to be explained personally to the recipient unless the

‘ caseworker and the supervisor agree that the judicial review procedure has already been adequately
discussed during the current reinvestigation.

 

In all instances, the reduction of grant or the denial or cancellation of assistance is to be confirmed
in writing to the client. (See also Item 300.) In case of the recipient, he is to be advised that he
will receive one more check before the reduction or cancellation becomes effective. Copies of
Form SB-25Il, Request for Judicial Review, are to be enclosed with such letters, or made available
at other apprOpriate occasions, so the client may request legal action if he so desires. It must be
made clear to the client that the bureau’s action will be held in abeyance if he requests a judicial
review, except for budgeting of contributions which are actually forthcoming.

Notice to the relative is to be given by use of form letter SB-25E. In addition to the amount of the
expected contribution, the county bureau must insert in the letter an explanation of how the appli-
cation or the grant will be affected by the contribution(s) from the relative(s). An alternate form
letter SB-25D is provided to notify the relative of denial or cancellation of assistance when he fails
to answer the bureau’s letters requesting information. Individualized letters will be necessary in
some instances, such as when the relative does reply but does not furnish sufficient information for
the bureau to make a determination.

Revised 1 1-3-5 9

 

Item 320.](9)

F. Legal Action
Chapter I, Section 3, Act 146, P.A. 1925:

“Upon the failure of any relative to relieve and maintain any such poor person, it shall. be
the duty of the county department of social welfare where such poor person may be settled,
by the social welfare board or by the director or by the supervisor ofsocial aid, to apply
with the advice and assistance of the prosecuting attorney to the probate court of the
county where such poor person or relative may dwell or such poor person has his or her
legal settlement, for an order to compel such relief; of which application notice shall be
given as provided by law. A dependent parent with the approval of the prosecuting
attorney may also apply to the probate court where such dependent parent dwells or has
his legal settlement for such an order.”

Section 77b, Act 280:

"Any relative determined by the county department of social welfare legally reSponsible
under the laws of this state for the support of an applicant for or recipient of old age as-
sistance, within 30 days of receipt of notice of such determination, may appeal to the
probate court of the county in which the applicant for or recipient of old age assistance
is a resident for a determination by the court of legal responsibility under the laws of
this state for support. The probate court shall have jurisdiction to affirm, modify or
reverse the determination of the county department of social welfare, and shall have
power to enforce its orders, which shall be final and binding upon the county depart-
ment ofsocial welfare ..... Any order entered under the provisions of this section
may be amended, suspended, revoked or confirmed by the court when the financial
circumstances of the respective parties so require, upon application made in such

form and manner as the court shall prescribe . . . .”

When a person applies for assistance in any category, the county bureau is required, under Section
76 of Act 280, to determine whether responsible relatives of such person are able to provide support,
and is authorized to give assistance only when, and to the extent, such relatives are unable to do so.
However, the bureau has no enforcement powers, and the legal authority which has jurisdiction
(under Act 146, P.A. 1925 as amended) is the county probate court. In certain cases, support from

a husband may be enforced in circuit court as described below under G.

Section 3 of Act 146 cited above indicates two types of applications for probate court action in con-
nection with failure of relatives to provide support to bureau clients for whom they are legally re-
sponsible: 1. application by the bureau on behalf of the client; 2. application by a dependent
parent to secure support from his adult children. However, in order to relieve aged clients of legal
details which would be burdensome and difficult, as well as to simplify procedure, the bureau is to
make such application on behalf of any client who requests a judicial review of his relatives’
ability to contribute.

Section 77b, Act 280, also cited above, provides further that the relative who has been found able to
make a contribution may appeal to the probate court for a review of the bureau’s findings. This pro-
vision is limited, however, to the relatives of old age assistance clients. Here again, in order to
simplify procedure and also to offer a similar opportunity to the relatives of clients in other cats-
gories, the bureau is to apply for a probate court determination at the written request of any responsi-
ble relative who is not satisfied with the agency’s decision with regard to his ability to contribute.

As indicated in previous sections of this Item, the bureau is to hold in abeyance the denial of an

application, or the reduction or cancellation of a grant, due to expected support from relatives, pro-
vided it has been decided to request a judicial determination of the re'latives’ ability. This permits

Revised 11-3-59

. Item 320.100)

the bureau to ignore expected contributions which are not in fact available to meet the client’s needs,
pending the outcome of legal action. However, since the client may not wish to have legal action
taken, even though he might benefit financially, the bureau will ordinarily initiate such action on the
client’s behalf only when he signs the Request for Judicial Review,‘Form SB-25H. (See Section A,
Basic Procedures, above for discussim of situations in which the bureau might make this decision
independently.) It should be made clear to the client in any discussion of the judicial review pro—
cedure, however, that any responsible relative may request a judicial determination even though the
client may not desire such action.

When a judicial review is requested by the client or relative, or when the bureau considers such
action necessary on behalf of an ill or senile client, the proceedings are to be initiated in the county
where the client resides. The application or petition form should be available at the court; if it is
not, the bureau is to consult the prosecuting attorney who is expected to approve the petition and to
rule on any other points of law which may be involved. The county supervisor or his authorized
representative is to sign the petition. The petition form usually contains some general allegations
as to the ability of the responsible relatives to provide Support. The bureau must be prepared to '
present more specific information concerning each relative’ s ability at the request of the prosecutor
or the court. Although detailed information as to the relative’s circumstances may not be available,
the bureau will probably be expected to show, at least, that he is employed, and if possible to give
his place of employment, type of employment, estimated earnings, etc.

When a court order for support has been issued, the amount set by the court is to be considered
available income to the client, and the order is to be binding upon the bureau until it is altered or
revoked by the court. However, the bureau is not relieved of its responsibility to review the circum-
stances of the recipient’s relatives at each reinvestigation or when information comes to its attention
that a relative’s circumstances have improved. When the relative’s circumstances have improved to.
the extent that the expected contribution computed on the current information exceeds by $10 or more
the prior amount expected on bureau standards at the time the judicial determination was made, the
bureau is to petition the court (under Section 7 of Act 146) for revision of the order. When the rela-
tive believes that his circumstances have changed so that he is less able to contribute, it is his
.reSponsibilityte petition the court for revision of the order.

If the prosecutor or the probate judge declines to consider a petition for support, there may be no
.further legal recourse. In general, it is hoped that courts and prosecutors will act within 90 days
of a referral. If the prosecutor consistently fails to assist the bureau or the dependent person in
petitioning for support, or the judge consistently fails to make a determination despite the avail-
ability of information showing that the relative has some ability, the county bureau is to report the
situation to the area representative for possible referral to the Attorney General.

When there is no issue insofar as the bureau is concerned with regard to support from relatives, as
for example when the client would be eligible for the maximum grant even after budgeting expected
Contributions, there is no need to consider legal action to satisfy bureau requirements. However:
,1. If the client wishes assistance in taking legal action, the bureau is to provide such service upon
request. 2. The bureau is expected to have a working agreement with the county department as to

who will take the initiative when the department 18 supplementing and the client requests legal
action.

G. Support from Spouse. If an 0AA client is living with a spouse (not living apart due to estrange-
ment), any income of the spouse in excess of that required to meet his expenses on assistance stand-
ards is to be considered available for the sup port of the client. No Other legal dependents of either

husband or wife can be considered in 0AA budgeting.

 

In AB or AD, if the client is living with a spouse (not living apart due to an estrangement), any income
of the spouse in excess of that necessary to meet his personal requirements on assistance standards
may be applied, to his legal dependents provided they are in need as defined in Item 325. If a spouse

Revised 11-3-59

i

 

Item 320.1(11)

has legal dependents outside the home for whom a court has ordered the spouse to pay support, the
spouse’s income in excess of that necessary to meet his personal requirements may be applied also
to those legal dependents.

Estranged Spouse. In any category, if the client and spouse are separated (living apart because of
an estranged relationship), the procedures given above in sections A through F are to be used in
determining the spouse’s ability to contribute. However, the prosecutor may advise that other legal
procedures than the Poor Law may be invoked with regard to support from a spouse, and his decision
regarding the type of legal action which should be used is considered final. (If ADC for children is
involved, see Items 263, 264, 265.)

 

H. Support from Parents.

 

AB, AD, and 0AA. Ability of the client’s parents to contribute is always to be determined according
to responsible relative standards as outlined in sections A through F above.

 

ADC. In ADC the ability of the client’s parents to contribute is to be determined as indicated below:
._ 1. Use assistance standards:
a. In the case of an unmarried mother under 18 only if she is living with the parent.

b. In the case of any other unmarried minor under 18, regardless of living arrangement.

 

2. Use responsible relative standards:
a. In the case of an unmarried mother under 18 living elsewhere than with the parent.

 

b. When the client has been married, regardless of age or living arrangement.

c. When the client is 18 years of age or over, regardless of living arrangement.

In respect to support for the child of the unmarried mother fromitgabsent father, policies in Item 265
are to be applied.

1. Support from Relatives Living in Other States. The enforcement of obligations for support may be
extended to other states through Act 8, Public Acts of 1952 as amended, known as the Uniform
Reciprocal Enforcement of Support Act (URESA). Such reciprocal legislation has now been adopted
in all of the 50 states and in the other “jurisdictions” of Guam, Puerto Rico, Virgin Islands, and
the District of Columbia.

 

The ability of responsible relatives living in other states is to be determined by the county bureau
in essentially the same manner as for relatives living in Michigan. The chief difference is that
legal action may not be possible under the laws of some states, and that initial action under URESA
is begun in circuit court rather than in probate court.

The regular form letter 88-25 is to be used for corresponding with relatives living in other states.
However, if the necessary information is not received from the relative or from other sources by the
end of 30 days (even though the form stipulates 15 days), or when sufficient information is available
from other sources, regular procedures described in sections A through F are to be followed. Inter-
state inquiries through the state office,Correspondence Division, are to be limited to requests to
ascertain the address and/or the place of employment of the relative. Interstate correspondence
services are on a reciprocal basis, and therefore we can request of other state agencies only such
services as we are willing and able to provide for them. In order to conserve time for the most
essential processes such as client interviews and reinvestigations of eligibility, the states have
mutually agreed 1121. to request interviews with relatives in other states for the purpose of seeking
financial assistance. If the necessary information cannot be secured by direct correspondence with
the relative, the county bureau is to use information from other sources or move on to legal action
if possible.

. .. aninnrl 11-2-59

Item 320.](12)

Even when the other state has reciprocal legislation it may not be possible to enforce support unless
the specific duty of support involved is required by law in the other state. The possibility of taking
such action is much greater in case the relative formerly resided in Michigan and a court order for
support was obtained before he left the state. For information as to the basic duties of support im-
posed by law in other states, the bureau should refer to the latest edition of “Reciprocal State
Legislation to Enforce the Support of Dependents” published by the Council of State Governments.
If there is no copy of this booklet in the bureau office, the bureau should inquire of the area repre-
sentative.

Under Act 8 it is one of the duties of the county prosecuting‘attorney to handle URESA proceedings
“In all instances in which a public support burden has been incurred or is threatened . . . .” The
bureau is to consult him on any questions involving a petition for support under URESA and to pro-
vide information on the relative’s circumstances as in Section F, Legal Action, above. The client’s
request for a judicial review is to be considered effective when he signs the SB-25H, although it
will also be necessary for him to sign the support petition if URESA action is determined to be
feasible.

In the case of an applicant for assistance, an 58-25 is to be sent to the responsible relative even
though he lives in a state where legal action is not possible and his ability to contribute therefore
must be determined on a voluntary basis. (See Section B above.)

J. Relatives in Military Service. Since responsible relatives who are in military service are not
under the jurisdiction of civil authorities, consideration of their ability to provide support must be
handled on a voluntary basis. However, the client is to be encouraged to make every possible effort
to secure a “family allowance” or allotment from the relative in service. Local veterans’ service
officers or Red Cross chapters are to be consulted for assistance in making contact with the rela-
tive or with his commanding officer in this connection.

 

Revised 1 1-3-5 9

 

 

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27.

.APPENDIX-
SCHEDUEE

Case Number
Age
Sex
Marital Statue
Place of Birth
Living Arrangements
Number of Children
Age of Childrena-Youngeet and Oldeet
Addresses of Children unknown
NO EFFORT
Voluntary Support at Point of Intake
EFFORT MADE TO OBTAIN SUPPORT
Approximate Times Discussed with Client
Lettere -- Times sent out

.Approximate number of Interviews with Children

Signed 253 -- Permission to take case to Court

* Court Order

Approximate Number of telephone Call.
, RESULTS IN TERMS OF RELATIONSHIP
Reaction Therapeutic
Not much Reaction
Reaction Unknown

Reaction Damaging .- Hostility

RESULTS IN TERMS OF SUPPORT
Support expected, don't know if received

Voluntary Support

Support expected, not received
Shelter in Kind

No Support

‘Suppcrt expected and received

Remarks

58

 

59

 

TABLE 9
SE1 OF RECIPIENTS IN 3mm
Sex Number ~ Percentage
Male #9 35
Female 21 . 65
Total 1&0 lOO

 

 

 

TABLE 10
AGE OF RECIPIENTS IN SAMPLE

 
 

 

 

 

Age ‘Numher Percentage
65-69 11 *- ‘ I 7.9
7o-7k 28' ' 20.0
75—79 36 . 25.7

leo-au 3b . ‘ 2a.3
85-89 22 ‘ 15.7
90—9h 7 5.0
95-100 .3. ...UI.
Total ito' 100.

 

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