USA > Massachusetts > Middlesex County > Arlington > Town of Arlington annual report 1940 > Part 7
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Recommendation :- In order to assure thorough in- vestigation, and to conform with the State regulation, two additional visitors should be engaged, one for Old Age As- sistance cases, and one for Welfare Aid cases. An extra clerk may also be necessary, if the two visitors are addded.
The Committee is of the opinion that the present visitors and clerks are well qualified, most of them having
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ARLINGTON TOWN REPORT
been connected with the work during its growth in the past six years.
Recommendation :- The Committee recommends an in- crease in salary to $1300.00 a year for the two visitors now receiving $1040.00. More than anyone else in this work, the visitors come into direct contact with the welfare recipients. While we have no criticism to make of the work of these visitors, we feel that a salary of $20.00 a week is too low for the continued maintenance of the maximum interest and efficiency.
Recommendation :- The Committee recommends that Mr. Cook's salary be increased $130.00 a year, in return for his services as Supervisor of Old Age Assistance. When he was appointed to this position in 1936, he was given no ad- ditional remuneration; since then the number of these cases has about trebled. Furthermore, 5% of the Federal allot- ment is allocated to the State for administration, two-thirds of which is apportioned out to the cities and towns.
The Committee has compared administrative costs with total expenditures for welfare; in studying the percentages we had access to a complete survey of the welfare depart- ment in another town made by an expert in municipal gov- ernment. In the past, administrative costs in Arlington have never exceeded 51/2% of the total disbursements. If two visitors are added at $1300.00 each a year, and in- creases to $1300.00 a year granted to the two visitors now receiving $1040.00, total costs would still probably be less than 6% of the total expenditures. In our opinion, 6% is not excessive, since 8 to 10% is allowed in many cities and towns where welfare is handled efficiently. Many authorities believe that even a much larger percentage is justifiable. We should point out, however, that the percentage of adminis- tration expense cannot be considered an absolute guide. We have proved to our own satisfaction that the low ratio in Arlington is not due to extravagance in granting aid. An increase in the number of visitors would make the aggre-
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TOWN RECORDS
gate expenses of the department lower than they would otherwise be; and of course the greater the saving, the more the administrative percentage would rise. Therefore, if the visitors are added and administrative costs seem to rise unduly, these facts and a breakdown of present ex- penditures should be well considered before any criticism of the department is made.
We find that the Robbins House is a convenient location for the welfare offices. Almost every available space is used for some phase of the administrative work. The office equip- ment is adequate for present needs. If new visitors and an extra clerk are employed, desks and typewriters would have to be provided for them. It might be wise to install a sprinkler system, at least on the main floor, where the rec- ords and files are kept.
CHAPTER II
AID TO DEPENDENT CHILDREN
The Aid to Dependent Children Law (Massachusetts General Laws, Chapter 118, as amended by Chapter 413 of the Acts of 1936) became effective January 1, 1937. The forerunner of this law was passed in 1913. It was known as the Mother's Aid Law until the 1936 Act was passed, chang- ing its name and broadening its scope.
Application
This law is designed to enable indigent, dependent chil- dren, under the age of sixteen years, to be brought up in their own homes by their mothers or certain other relatives. A child to be eligible for Aid to Dependent Children must :
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ARLINGTON TOWN REPORT
(1) Be under the age of 16 years OR
Be under the age of 18 years and regularly attend- ing school;
(2) Be in need of public assistance ;
(3) Have been deprived of parental support and care by reason of the death, continued absence from home, or physical and mental incapacity of a "parent" ;
(4) Be residing with his father, mother, grandfather, grandmother, brother, sister, stepfather, stepmoth- er, stepsister, uncle, or aunt in a place of resid- dence maintained by one or more such relatives as his or their home;
(5) Be residing with a "parent" as defined above who is considered fit to bring up the child ;
(6) Have resided in the Commonwealth for one year immediately preceding the application for Aid to Dependent Children
OR
Have been born within this Commonwealth within one year immediately preceding the ap- plication for Aid to Dependent Children, pro- vided that his mother has resided within the Commonwealth for at least one year immediate- ly preceding the birth.
Investigation
Careful investigation of the suitability of the home, and of other means of support or of private aid are specified as follows :
(1) Documentary proof of birth must be filed;
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TOWN RECORDS
(2) Proof of residence must be established ;
(3) Relationship to dependent children must be proved ;
(4) Fitness of "parent" and need of aid must be shown;
(5) Loss of parental support or care must be estab- lished by one of the following ways:
Desertion or nonsupport,
Death of parent, Divorce or annulment,
Commitment of parent to penal institution,
Physical or mental incapacity.
Real Estate, Insurance, and Cash
A dependent child or his father or mother may re- tain title to or equity in real estate upon which the family actually resides, provided that the carrying charges (in- terest, taxes, water, fire insurance, and necessary up- keep) do not exceed the equivalent of a reasonable month- ly rental; and further provided that the equity does not exceed $3000.00 in present value.
Ownership of insurance is not a disqualification, but the applicant is assisted in making adjustments which re- duce the carrying charges to a reasonable amount.
Applicants may have funds in the form of cash, se- curities, or other property readily liquidated amounting in the aggregate to not more than $300.00 in current value.
Amount of Aid Allowed
"The amount of aid which should be granted should be determined by the local Board of Public Welfare with
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ARLINGTON TOWN REPORT
due regard to the resources and necessary expenditures of the family and the conditions existing in each case, and in accordance with the rules established by the de- partment, and should be sufficient, when added to all other income and support available, to provide reasonable subsistence compatible with decency and health."
"Cash or checks should be paid twice a month, on the first and fifteenth of each month."
Additional Aid
Recipients of Aid to Dependent Children are entitled to medical care and to Federal surplus commodities (see separate discussions of these). No deductions from the amount of aid to be given are made for these.
State Supervision of the Local Administration
"The department (State) shall supervise the work done and measures taken by the Boards of Public Wel- fare of the several towns in respect to families aided and service given under this chapter; and for this purpose may make such rules relating to the administration of this chapter as it deems necessary, and may visit and in- spect any or all families so aided, and shall have access to any records and other data kept by such boards or their representatives relating to such aid, and may re- quire the production of books and papers and the testi- mony of witnesses under oath."
How Aid to Dependent Children is Administered
in Arlington
Application and Investigation: An applicant's first step toward obtaining Aid to Dependent Children is a personal interview with Mr. Cook. An application blank is filled out and signed under the penalties of perjury. In this blank is set forth the following information: Name
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TOWN RECORDS
of applicant and relationship to children; parents' names and dates of birth; reason for parents' not supporting children; names and dates of birth of all children and school they attend; children over sixteen and where em- ployed; health problems; names and addresses of all liv- ing relatives of children; home where children are to be supported; amount of cash, securities, or other personal property on hand, real estate and all facts pertaining thereto, life insurance, including numbers and names of policies and cash surrender value; if any, existing debts, etc.
If, after hearing this story, the welfare agent is sat- isfied that the applicant is legally entitled to aid and is a worthy case, he turns the application over to Mr. Floyd, the intake and settlement clerk. It then becomes the duty of the applicant to furnish documentary proofs establishing the births of each child to be helped, and the place of resi- dence ; Bible records, family records, insurance papers, etc., showing relationship; and a death certificate, divorce de- cree, or copy of a commitment to an institution, to show the death or disability of the parent who would naturally provide. A slip is made out requesting the A. D. C. visitor to make an initial visit to the home where the children are living while the intake clerk is checking these documents. He writes to all banks in Arlington, and to banks in other communities if any suspicion is attached to the applicant's previous residence, to check any deposits, mortgages, or re- cent withdrawals. It must be remembered that the settle- ment law does not affect A. D. C. cases, the chief legal re- quirement being residence in the State for one year before the filing of the application.
Mrs. Wood has charge of all visits in A. D. C. cases. She has been with the Department of Public Welfare since 1932, and is well qualified for the work also by her educa- initial visit in an A. D. C. case, she is given the name and address of the applicant, but no further information. She tion and training. When Mrs. Wood is asked to make an
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ARLINGTON TOWN REPORT
makes a complete investigation, and her report is checked with the application blank. Her inquiry covers the entire family history, going back to the mother's work before her marriage, the father's work at the time of the marriage as well as later, and his pay. Every source of possible help is investigated : the children's relatives on both sides, organ- izations to which the parents have belonged, etc. (Women receiving this aid are not allowed to do any sort of outside work, as they are being aided to care for their children at home; for this reason only those mothers who are judged to be capable of making a proper home are eligible, and those who prove unworthy are transferred to Welfare Aid, which is less desirable from the recipients' point of view.)
After the initial visit, Mrs. Wood revisits the home every three months, as required by law, or oftener if it seems advisable.
When the investigations have been completed by the intake clerk and the visitor, a folder containing all the proofs and reports is submitted to the welfare agent. If there is documentary evidence that the children are eligible, and the visitor's report indicates that aid is necessary and that the applicant is a fit person, Mr. Cook sets up a month- ly budget.
Amount of Aid Furnished :- It will be remembered that there is no provision in the law, or in the State depart- ment regulations, fixing the maximum amount to be given in A. D. C. cases. The fixing of allowances-above the sub- sistence required by law-is left to the local Boards of Pub- lic Welfare, who usually, as in Arlington, delegate this duty to the welfare agent. The local rules are that not more than $104.00 a month shall be given any one family, regardless of the number of children. Not more than $30.00 a month is allowed for rent; $27.00 is the average. The welfare de- partment subscribes to the Community Health Service in Boston, which makes semi-annual surveys of living ex- penses, and draws up food budgets based on the current
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TOWN RECORDS
prices of the cheapest foods in each classification and on nutritional needs as determined by age, sex, and type of oc- cupation. All recipients of A. D. C. are entitled to Federal surplus commodities and medical and dental care (see sep- arate discussions). These and fuel, for which $6.00 a month is allowed during the cold weather, are not included in the budget. It is recommended that employed children contrib- ute 60% of their earnings toward the family expenses, and this is deducted from the allowance. It is thought that de- manding a larger share would tend to drive children away from home, thus increasing the burden on the public, or to deprive them of the incentive-or some of the means, such as better clothing, educational opportunities, etc .- toward increasing their earnings.
The following is a typical monthly budget for a mother and four children who are receiving A. D. C .:
Boy, 10 years of age
Food $8.45
Clothing $3.00
Girl, 8 years of age
6.93
3.00
Girl, 6 years of age
6.50
3.00
Girl, 3 years of age
5.42
3.00
Mother
7.37
3.00
$34.67
$15.00
To these amounts are added $27.00 for rent, and $9.73 for gas, light, and miscellaneous expenses, bringing the total to $86.40.
Case Loads and Expenditures
The following table shows the case loads and expendi- tures for Aid to Dependent Children during the past eight years.
Number
Year
of Cases
Gross Expenditures
Net Expenditures
1932
12
$11,061.41
$ 7,796.96
1933
13
9,836.83
1,900.35
1934
16
13,455.86
13,261.28
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ARLINGTON TOWN REPORT
1935
20
15,703.74
6,255.90
1936
21
19,269.95
6,471.55
1937
38 (150 children)
28,269.13
16,395.91
1938
44 (160 children)
34,225.95
13,495.00
1939
55 (188 children)
41,284.95
22,039.18
Several factors besides those contributing to the general rise in relief expenditures have been operative here: The amendment of the law in 1936, which increased the number of persons eligible; the Federal regulation, ef- fective January 1, 1939, which caused workers eligible for this aid to be dropped from the W. P. A. rolls; and the Board's policy of transferring from the Welfare Aid and Soldiers' Relief rolls all cases eligible for Aid to Dependent Children; this is done in order that the Town may receive the State and Federal reimbursements.
Reimbursements to the Town by the
State and Federal Governments
The cost of Aid to Dependent Children is borne jointly by the Town, State, and Federal governments. Until Janu- ary 1, 1940, the Commonwealth paid one-third of the full amount; the Federal government paid one-third of an amount up to $18.00 a week for the first child, and one-third of $12.00 for every other child in the same family; and the Town paid the balance. Now the Federal government pays 50% of $18.00 for the first child and of $12.00 for ad- ditional children.
For illustration, let us take the typical budget for a mother and four children already set up in this report. Of the $86.40 paid by the Town, a reimbursement of $9.00 for the first child and $6.00 each for the other three children, or a total of $27.00 is made by the Federal government. The State pays one-third of the total, that is, $28.80; and the Town pays the balance of $30.60.
The State reimbursements go back into free cash and not to the welfare appropriation. The Federal reimburse-
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TOWN RECORDS
ments come back to the welfare department, and can be used again for A. D. C. cases. The amount of the Federal re- imbursements for the year is taken into consideration in making up the budget, and therefore reduces the appropria- tion for this type of aid. The settlement law has been changed, and after the present outstanding bills against other cities and towns are collected, there will be no further reimbursements from them. Likewise, there will be no further payments to other cities and towns.
Expenditures and Reimbursements for A. D. C. 1
for 1937, 1938, and 1939
1937
Total expenditures
$28,269.13
Less reimbursements :
Federal government
$6,260.66
Cities and towns
1,723.94
State
3,888.62
11,873.22
Net expenditures $16,395.91
1938
Total expenditures
$34,225.95
Less reimbursements :
State government
$14,245.76
Federal grants
6,166.19
Cities and towns
319.00 20,730.95
Net expenditures
$13,495.00
1939
Total expenditures
$41,284.95
Less reimbursements :
State government
$11,499.79
Federal grants
7,156.65
Cities and towns
589.33
19,245.77
Net expenditures
$22,039.18
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ARLINGTON TOWN REPORT
Findings
In view of the liberality of the Aid to Dependent Chil- dren law, which states that "The amount of aid granted should be sufficient to provide reasonable subsistence com- patible with decency and health," but sets no maximum amounts, there is placed in the hands of the local Board of Public Welfare and the Agent to the Board of Public Wel -- fare a wide discretion as to the amount of Town money to be spent.
The Committee finds that the welfare agent complies with the law and with the regulations of the Massachusetts Department of Public Welfare. The forms used in A. D. C. are complete, the investigations are thorough, and the visits are searching. Everything practicable is done to detect con- cealment of assets, etc. In recent years there have been no prosecutions for fraudulently obtaining A. D. C.
Although A. D. C. costs are high, the Committee does not see how they can be substantially reduced. At $27.00 a month, only the cheapest apartments in Arlington are avail- able. We have studied the food budgets in the light of the best scientific information available, and found that with careful purchasing they are sufficient to supply all the elements known to be necessary to good health. However, they could not be cut without harm to the children, and a rise in medical costs. Possibly some saving could be made in the clothing allowances, especially where there are several children in a family, or where clothing could be ob- tained from private charities. We feel that such a cut should not be mandatory, but should be left to the discretion of the welfare agent for two reasons: In the first place, the saving would be small and might not equal the administra- tive cost; and in the second place, the amount allowed for miscellaneous expenses is so small that various household necessities such as soap must be bought from either the food or clothing allowance.
As stated before, both the State and Federal govern- ments reimburse the Town for certain percentages of the
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TOWN RECORDS
amount spent for this aid. In order to receive this money, bills must be rendered to the State annually on or before October first. We find that Arlington bills are rendered promptly. Bills not collected from other cities and towns are turned over to the Town Counsel for suit.
The State Aid to Dependent Children law was enacted to conform with Title IV of the Social Security Act, and therefore, far from being a purely municipal affair, the local administration is essentially a part of the Federal social program. In view of this fact, it is unlikely that there will be a noticeable decrease in the case load in the near future. However, because of the amendment to the law which became effective January 1, 1940, net expenditures will be less. '
The only recommendation we have with regard to Aid to Dependent Children is that the welfare agent continue to keep in mind at all times the fact that the taxpayer ultimately pays the entire cost, and consequently to con- duct his department as economically as possible.
Chapter III OLD AGE ASSISTANCE
The original law in Massachusetts providing assistance for certain aged persons as passed in 1930 (Massachusetts General Laws, Chapter 118A). This law was repealed in 1936, and succeeded by a new act, Chapter 436 of the Acts of 1936, which was amended by Chapters 165 and 440 of the Acts of 1937 and Chapters, 274, 285, 408, and 467 of the Acts of 1938.
The act now in force provides for the establishment of a bureau of old age assistance within the Board of Public
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ARLINGTON TOWN REPORT
Welfare in each city and town, and defines the course of action of this bureau. Following is a resume of the law and the regulations of the Massachusetts Department of Public Welfare concerning Old Age Assistance.
Application
Massachusetts General Laws, Chapter 118A, Section 1 provides in substance that "Adequate assistance shall be given to deserving citizens in need of relief and support sixty-five years of age or over who shall have resided in the Commonwealth not less than five years during the nine years immediately preceding the date of application for such assistance, ... "
To be eligible, therefore, a person must:
(1) Be in need of public assistance ;
(2) Be a deserving citizen, 65 years of age or over ;
(3) Have resided in the Commonwealth not less than five years during the nine years immediately preceding the date of application and must have resided in the Commonwealth continuously for one year immediately preceding the date of ap- plication ;
(4) Not be an inmate of a public institution which is supported in whole or in part by public funds ;
(5) Not be an inmate of an institution where he is being cared for under contract.
Section 1 further provides that, "Such assistance shall, wherever practicable, be given the aged person in his own home."
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TOWN RECORDS
Investigation
Rule 3 of the State department regulations provides that, "Bureaus of Old Age Assistance must verify bank accounts and all other assets of the applicant, including in- surance, pensions, annuities, fraternal benefits, etc." Docu- mentary evidence must be shown of the applicant's age, residence, and citizenship. Those with "first papers" are ineligible. Only native-born or fully naturalized citizens will be considered (aliens, however, are admitted to the Welfare Aid rolls).
Real Estate, Insurance, and Cash
The provisions of Section 4 of this chapter regarding ownership of real estate may be summarized as follows:
(1) The ownership of vacant land which produces no income shall not disqualify an applicant for Old Age Assistance.
(2) The ownership of property used as a home shall not disqualify an applicant for Old Age Assist- ance.
(3) Where the equity in property exceeds $3000.00 in each of the previous five years, the applicant must execute a bond and mortgage to the city or town treasurer for the sum which is at least equal to the amount of equity in excess of $3000.00.
(4) The ownership of property which is not used as a home precludes the granting of Old Age Assistance.
(5) Where the property is sold or the Old Age As- sistance recipient dies, the city or town should make proper claim against the estate for the repayment of assistance given.
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ARLINGTON TOWN REPORT
Section 5 of Chapter 118A pertains to insurance held by the applicant. Its provisions are in substance as follows :
(1) The ownership of group insurance, regardless of the amount, shall not preclude the granting of Old Age Assistance, provided the premium does not exceed 50c weekly.
(2) The ownership of life insurance in an amount not exceeding $1000.00 shall not preclude the granting of Old Age Assistance provided that such policy has been in effect not less than five years prior to the date of application for Old Age Assistance.
(3) The ownership of life insurance in an amount not exceeding $3000.00 and having a cash sur- render value not exceeding $300.00 shall not preclude the granting of Old Age Assistance provided such policy has been in effect not less than fifteen years prior to the date of applica- tion for Old Age Assistance.
Rule 6 of the State department regulations relative to Old Age Assistance states that :
The department will, in general, approve the grant- ing of assistance to an applicant who has funds either in the form of cash, securities, or other property read- ily liquidated, amounting to not more than $300.00.
Transfer of Property and Legally Liable Relatives
There are two additional matters to be investigated be- fore Old Age Assistance is granted. The first is covered by Section 6 of Chapter 118A, which states :
No assistance under this chapter shall be granted to an applicant who, at any time within five years imme-
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TOWN RECORDS
diately prior to the filing of an application for such as- sistance has made an assignment or transfer of prop- erty so as to render himself eligible to such assistance.
The recommendation of the State department concern- ing the investigation of legally liable relatives is as fol- lows :
Before an application may be approved for Old Age Assistance, the ability of sons and daughters to support must be thoroughly investigated in accordance with the law. If the applicant has been maintained in the past by his children, careful consideration should be given to the question whether or not the children are still able to support.
The sons' and daughters' opinions as to their ability to support is not conclusive. Facts relating to their in- come and expenditures should be obtained and verified. The judgment with respect to their ability to support should be based on a reasonable standard of living.
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