The administrative problems in the licensing of foster homes for children in California
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THE ADMINISTRATIVE PROBLEMS IN THE LICENSING OP POSTER HOMES FOR CHILDREN IN CALIFORNIA
A T h e s is P r e s e n te d to th e F a c u l t y o f t h e G ra d u a te S c h o o l o f S o c i a l Work The U n i v e r s i t y o f S o u th e r n C a l i f o r n i a
In P a r t ia l F u lfillm e n t o f th e R e q u ir e m e n ts f o r th e D e g r e e M a ste r o f S o c i a l Work
by K a th a r in e N ew k irk H a n d le y F e b r u a r y 1942
UMl Number: EP66174
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Thesis o
f
. . T.%.5
H:and 1 e j
T h is thesis, w r it t e n u n d e r the d ir e c t io n of the c a n d id a t e ’s F a c u l t y C o m m i t t e e a n d a p p r o v e d by al l its m e m b e r s , has been p r e s e n t e d to a n d a c c e p t e d by the F a c u l t y of the G r a d u a t e S c h o o l of S o c i a l W o r k in p a r t i a l f u l f i l m e n t of the r e q u ir e m e n t s f o r the d e g r e e of
M ASTER O F SOCIAL WORK
D ean
..*.ZXK
Date.
fa c u lty C om m ittee
hairman
P. 4 2 .
31 B oard o f S o c i a l W e l f a r e . ^
The S t a t e D e p a r tm e n t o f S o c i a l
W e lf a r e h a s g r a d u a l l y b e e n r e o r g a n i z e d a d m i n i s t r a t i v e l y . p r e s e n t o r g a n i z a t i o n o f t h e d e p a r tm e n t i s n o t a v a i l a b l e c h a r t fo r m .
The in
From a n a n a l y s i s , h o w e v e r , o f t h e 1 9 4 0 b i e n n i a l
r e p o r t i t w o u ld a p p e a r t h a t t h e r e l a t i o n b e tw e e n t h e D i v i s i o n o f B o a r d in g Homes and I n s t i t u t i o n s and t h e v a r i o u s o t h e r o p e r a tin g d iv is io n s i s a v a ila b le
n ot c le a r ly d e fin e d .
in th e r e p o r t i t
is
From t h e m a t e r i a l
apparent th a t th e D iv is io n o f
B o a r d in g Homes a n d I n s t i t u t i o n s d o e s n o t h a v e a s t a f f o f its
pw n.
The w ork o f t h e D e p a r tm en t o f S o c i a l W e l f a r e ; i s i
o r g a n iz e d and p la n n e d on an " i n t e g r a t e d b a s i s , " an d s t a t e w e lfa r e a g e n ts s u p e r v is e th e o p e r a tio n o f a l l th e f u n c t io n s o f th e d e p a r t m e n t ,^ in i t s w e lfa r e d e p a r tm e n ts.
r e l a t i o n s a n d w ork w it h c o u n ty
The w ork i n c l u d e s a i d t o n e e d y c h i l d r e n ,
a id t o n eed y ag ed , a id to th e n eed y b lin d ,
th e th e lic e n s in g
o f home f o r t h e a g e d a s w e l l a s f o r c h i l d r e n .
In 1 9 40,
th e
b i e n n i a l r e p o r t o f t h e W e lfa r e D ep a rtm en t s t a t e s t h a t t h e r e w e r e some s i x t y - f i v e w e l f a r e a g e n t s on t h e s t a f f , a n d s e v e n s u p e r v is in g s t a t e w e lfa r e a g e n ts .
^
G a l. S t a t s . 1 9 3 7 ,
c h a p te r 397,
sec. 105.
B i e n n i a l R e p o r t S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e 1 9 3 8 -1 9 4 0 . 49 I b i d . .
pp. 91-97-
T h ere i s n o s e p a r a t e b u d g e t f o r t h e D i v i s i o n o f B o a r d in g Homes and I n s t i t u t i o n s * c a r r i e d i n th e
The e x p e n s e f o r i t s
o p e r a tio n i s
s t a t e w e l f a r e g e n e r a l f u n d , and i s n o t d i s t i n
g u is h e d a s a s e p a r a t e i t e m .
It is
o f c o u r s e s e p a r a t e d fro m
t h e c a t e g o r i c a l a i d s w h ic h a r e s e t up a s d i s t i n c t it e m s i n a c co r d a n ce w ith f e d e r a l r e g u la t io n . ance f o r
The t o t a l b u d g e t a l l o w
t h e s t a t e w e l f a r e g e n e r a l fu n d it e m from J u l y 1 ,
1 9 3 9 t o Ju n e 3 0 , 1 9 4 0 , w as $ 2 4 0 ,9 0 7 # 6 2 .
An e s t i m a t e d b r e a k
down o f t h e s e a d m i n i s t r a t i v e - e x p e n s e s , l i s t s
th e e x p e n d itu r e s
f o r b o a r d in g hom es and i n s t i t u t i o n s f o r c h i l d r e n a s $ 3 8 , 6 1 6 .6 1 I n 1 9 4 0 , t h e r e w ere a p p r o x im a t e ly 5*5 8 7 b o a r d in g hom es f o r c h i l d r e n w h ic h w ere l i c e n s e d i n t h e ta b le
sta te .
The f o l l o w i n g
g i v e s a n i n d i c a t i o n o f th e g r o w th i n th e num ber o f b o a rd
in g hom es fro m 1 9 3 4 t o 1 9 4 0 .5 1
1234 1236 1238 1240 L i c e n s e d b y t h e S .D .S .W . on t h e b a s i s o f i t s own i n v e s t ig a t io n or rep o rt o f in s p e c t io n a g e n c ie s
2 ,3 0 2
2 ,3 0 7 1 ,7 1 6
1 ,6 6 2
L ic e n s e d by a c c r e d it e d a g e n c i e s and some c h i l d p la c in g a g e n c ie s T o ta ls
2 .3 6 2
3 . 1 2 9 3 .3 0 3
3 .9 2 5
4 ,6 6 4
5*436 5*019
5* 5 8 7
^ ^
I b i d . . p p . 83 and 8 4 . P* 4 6 .
The p r i n c i p l e
t h a t t h e f o s t e r home p r o b le m i s e s s e n t i a l l y
a l o c a l one w h ic h c a n be b e s t a d m i n is t e r e d on t h a t l e v e l i s s till
s t r i c t l y a d h e r e d t o b y t h e S t a t e D e p a r tm e n t o f S o c i a l
W e lf a r e i n t h e o r y .
T h ere h a s -been s e t up h o w e v e r tw o d i s t i n c t
c l a s s i f i c a t i o n s w ith r e s p e c t t o th e d e le g a t io n o f a u t h o r it y i n th e ' l i c e n s i n g and s u p e r v i s i n g o f h o m e s, t h e s o - c a l l e d s p e c t i o n a g e n c i e s , and a c c r e d i t e d
a g e n c i e s .
52
in
&.n i n s p e c t i o n
a g e n c y m akes i n s p e c t i o n s and i n v e s t i g a t i o n s o f b o a r d in g hom es and s u b m it s r e p o r t s t o t h e S a c r a m e n to o f f i c e
o f t h e S t a t e D e
p a r tm e n t o f S o c i a l W e lf a r e f o r r e v i e w , d e c i s i o n , an d i s s u a n c e o f lic e n s e s .
A g e n ts o f t h e s t a t e w e l f a r e d e p a r tm e n t g i v e
su c h a p p r o v e d i n s p e c t i o n a g e n c i e s , g u i d a n c e , and c o u n s e l , a s may be n e e d e d i n c o m p le x c a s e s .
The i n s p e c t i o n a g e n c y d e v e lo p s
a p rogram w h ic h c a n be a p p r o v e d by t h e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e , and w hen i t
i s a b l e and w i l l i n g
t o c a r r y th e
a d d itio n a l r e s p o n s ib i li t i e s
s u c h a n a g e n c y may be ’’a c c r e d i t e d . 11
An a c c r e d i t e d a g e n c y d i f f e r s fro m t h e i n s p e c t i o n a g e n c y in t h a t ,
i n a d d i t i o n t o m a k in g i n s p e c t i o n s o f b o a r d in g h o m e s,
i t a l s o m akes d e c i s i o n s on c a s e s and i s s u e s l i c e n s e s .
In a s
much a s a g r e a t e r r e s p o n s i b i l i t y r e s t s w i t h t h e a c c r e d i t e d agency,
su ch a g e n c ie s a r e r e q u ir e d t o
s ig n an a g reem en t e x
p r e s s i n g w i l l i n g n e s s t o c o m p ly w i t h t h e p r o v i s i o n s o f t h e la w
52 I b i d . . p . 4 5 .
and t o a d h e r e t o th e minimum r e q u ir e m e n t s a s e s t a b l i s h e d b y th e d e p a r tm e n t*
A g r e e m e n ts c o v e r a t w e lv e m onth p e r io d and
a r e r e n e w a b le a n n u a l l y .
The a c c r e d i t e d a g e n c i e s s u b m it a
m o n th ly n u m e r ic a l c o u n t o f w ork a c c o m p l i s h e d .
P r o b le m s a s
t o p o l i c i e s and i n d i v i d u a l c a s e s a r e s u b m it t e d t o th e d e p a r t m ent f o r d e c i s i o n from tim e t o t i m e . are v i s i t e d
The a c c r e d i t e d a g e n c i e s
f o r c o n f e r e n c e s and d i s c u s s i o n w h e n e v e r p o s s i b l e . 53
T h er e a r e some a r e a s o f t h e s t a t e
i n w h ic h n e i t h e r i n
s p e c tio n n or a c c r e d it e d a g e n c ie s o p e r a te .
In th e s e a r e a s th e
S t a t e D e p a r tm e n t o f S o c i a l W e lfa r e h a s t h e d i r e c t r e s p o n s i b ility
f o r t h e i n v e s t i g a t i o n and i s s u i n g
a ta b le
o f l i c e n s e s . 54
From
i n th e 194-0 b i e n n i a l r e p o r t o f t h e S t a t e D e p a r tm e n t
o f S o c i a l W e lf a r e , r e p r o d u c e d a s t a b l e be n o t e d t h a t t h e r e a r e l i s t e d
"A" on p a g e 37* i t may
some s i x t e e n i n s p e c t i o n a g e n c i e s
c o v e r in g t h i r t e e n c o u n t i e s , f i f t e e n a c c r e d it e d a g e n c ie s c o v e r in g t w e lv e c o u n t i e s , and t h e r e m a in d e r o f t h i r t y - f i v e is
c o u n tie s
c o v e r e d b y th e a g e n t s o f th e D e p a r tm e n t i t s e l f . I n c lu d e d i n t h e l i s t
L os A n g e le s C it y p r o p e r .
53 i b i d . . p . 4 5 . 54 i b i d .
o f th e t h i r t y - f i v e The l i c e n s i n g
" c o u n tie s ” i s
o f b o a r d in g hom es f o r
35 DIVISION OF THE RESPONSIBILITY FOR THE LICENSING OF BOARDING HOMES FOR CHILDREN BY COUNTIES TABLE A I n s p e c t io n A g e n c ie s A lam ed a
A c c r e d ite d A g e n c ie s A lam eda
I n s p e c te d by th e S t a t e D e p t. o f S o c i a l W e lfa r e A lp in e
Napa
A lb a n y
O ak lan d
B u tte
N evad a
P ie d m o n t
A lam ed a
C o lu s a
P la c e s
C o n tr a C o s ta
P lu m as
D e l N o r te
S a c r a m e n to
E l D o ra d o
(o u ts id e c it y lim its )
S . A lam ed a C o. F re sn o H um bolt
L o s A n g e le s (o u ts id e c i t y lim its )
I m p e r ia l
M erced
G le n n
K ern
O range
In yo
S a n t a C ruz
K in g s
S a c r a m e n to
Lake
S h a sta
L a ssen
S is k iy o u
L o s A n g e le s
Sonoma
Made r a M o n te r e y
(in s id e
c ity
lim its )
R iv e r s id e
S a n B e r n a r d in o
(in s id e
S u tte r
S an B e n i t o
S an D ie g o
c it y lim its )
Tehama
S a n ta B a r b a r a
San F r a n c is c o
M a rin
T r in ity
S o la n o
S a n J o a q u in
M a r ip o s a
T u la r e
S ta n lis la u s
S a n L o u is O b isp o M endinano
Tuolum ne
S a n M ateo
Modoc
V e n tu r a
S a n ta C la r a
Mono
Y o lo Yuba
a B i e n n i a l R e p o r t o f t h e S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e , 1 9 3 8 - 4 0 , p . 5 1 .
c h i l d r e n w h ic h l i e
o u ts id e
o f th e c i t y l i m i t s i s
a d m in is te r e d
and s u p e r v i s e d by a n a c c r e d i t e d a g e n c y , th e L os A n g e l e s C o u n ty S o c i a l W e lfa r e C o m m is s io n .5 5
The S t a t e d e p a r tm e n t o f S o c i a l
W e lf a r e , D i v i s i o n o f B o a r d in g Homes and I n s t i t u t i o n s m a i n t a i n s a s p e c i a l s t a f f f o r th e
s o l e p u r p o se o f l i c e n s i n g
hom es w i t h i n t h e c i t y l i m i t s .
I t is
b o a r d in g
t h e o n l y p e r s o n n e l w h ic h
c a r r i e s o u t t h e f u n c t i o n o f l i c e n s i n g hom es d i r e c t l y a s t h e s t a t e d e p a r tm e n t i t s e l f
is
so fa r
concerned.
T h ere i s a v a r i a t i o n w i t h r e s p e c t t o t h e l i c e n s i n g v i c e w h ic h e x i s t s s o -c a lle d
ser
i n San F r a n c i s c o C o u n ty and C i t y and i n t h e
"bay" a r e a .
In t h i s in s ta n c e p r iv a te a g e n c ie s in
s p e c t an d i s s u e p e r m i s s i o n s l i p s t o hom es f o r c h i l d r e n w h ic h t h e y t h e m s e lv e s u s e .
The D i v i s i o n o f B o a r d in g Homes and I n
s t i t u t i o n s e x p l a i n s t h i s p r o c e d u r e i n t h e f o l l o w i n g te r m s : I n o r d e r t o m e e t com m u n ity n e e d s , a p l a n w as w ork ed o u t w h ereb y c e r t a i n a g e n c ie s , in a d d it io n t o t h e i r c h i ld p la c in g a c t i v i t i e s , have been g iv e n a u th o r ity to is s u e a fo rm o f w r i t t e n p e r m i s s i o n ( n o t a l i c e n s e ) f o r t h e i r own p l a c e m e n t s . The fo r m s a r e s u p p l i e d by t h e S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e , and c o p i e s o f t h e p e r m i s s i o n s a r e fo r w a r d e d m o n th ly t o t h e S t a t e O f f i c e . T h is p r o c e d u r e w as e s t a b l i s h e d i n e a r l y < |g y s, and i s n o t b e in g c o n s i d e r e d f o r a n y o t h e r a g e n c i e s .
5 5 D i v i s i o n o f B o a r d in g Homes an d I n s t i t u t i o n s , O u t lin e o f P ro g ra m , p . 4 . (M im eograp h ed p a m p h le t ) . See A p p e n d ix . ^
I b i d . . p.
6
-37R u ra l a r e a s i n th e p e c u lia r to t h e ir
s t a t e h a v e a l s o d e v e lo p e d p r o b le m s
s itu a tio n .
In e f f e c t ,
tw o p u b l i c a g e n c i e s
a d m i n i s t e r t h e f o s t e r home la w , n a m e ly , c o u n t y w e l f a r e d e p a r t m e n ts a s a g e n t s o f t h e S t a t e D e p a r tm e n t o f S o c i a l W e lfa r e and p r o b a t i o n o f f i c e r s a s a g e n t s o f t h e J u v e n i l e C o u r t.
T h ere
w o u ld seem t o be n o common d e n o m in a to r f o r d i v i s i o n o f w ork b e tw e e n t h e tw o a g e n c i e s . d e p a r tm e n t c a r r i e s a l l
I n some o f t h e c o u n t i e s t h e w e l f a r e
o f th e c a s e s ,
i n c l u d i n g t h o s e w h ic h
h a v e b e e n made w a rd s o f th e c o u r t , w h i l e is
th e p r a c t ic e
in a n o th e r c o u n ty i t
t o make a l l c h i l d r e n r e q u i r i n g c a r e aw ay from
t h e i r own h o m e s, C o u r t W a rd s, w i t h t h e p r o b a t i o n o f f i c e r a ss u m in g r e s p o n s i b i l i t y f o r t h e i r s u p e r v i s i o n . m e n ts e x i s t i n s t i l l
O th e r a r r a n g e
o th e r c o u n t ie s w ith th e w e lfa r e d e p a r t
m en t c a r r y i n g th e c a s e s o f C o u rt W ards who r e c e i v e
sta te
a i d . 57
T h ese v a r i a t i o n s i n t h e d e l e g a t i o n o f a u t h o r i t y w i t h r e s p e c t t o th e s t a t e
l ic e n s in g f u n c t io n , have c r e a te d a d m in is tr a tiv e
p r o b le m s w h ic h a r e im p o r t a n t . The f o r e g o i n g a c c o u n t o f th e h i s t o r y o f t h e d e v e lo p m e n t o f th e s t a t e ' s a u t h o r it y w it h r e s p e c t t o th e l i c e n s i n g
of
f o s t e r hom es f o r c h i l d r e n i n d i c a t e s t h a t fro m th e d a t e
o f th e
f o r m a t io n o f t h e S t a t e ,
r e s p o n s i b i l i t y f o r th e p r o t e c t i o n o f
C a lif o r n ia C h ild r e n , V. 2 . Some P r a c t i c a l A s p e c t s o f t h e F o s t e r Home P ro g ra m . A p r i l 1 5 , 1 9 3 9 , P . 3 .
c h i l d r e n h a s b e e n a ssu m e d b y i t . w as s o f i x e d
The r e s p o n s i b i l i t y o r i g i n a l l y
i n . t h e m in d s o f th e c i t i z e n s
a p r o v is io n p e r m ittin g
sta te
o f th e s t a t e
th a t
a i d t o be e x t e n d e d t o c h i l d r e n
w as i n c o r p o r a t e d i n th e C a l i f o r n i a C o n s t i t u t i o n o f 1 8 7 9 * c o n s t it u t io n a l p r o v is io n e s ta b lis h e d
t h e b a s i s u p on w h ic h th e
c h i l d w e l f a r e p rogram i n C a l i f o r n i a h a s b e e n b u i l t * o f c o u r se d e e p ly a f f e c t e d fie ld .
The
I t has
th e p r iv a te a s w e ll a s th e p u b lic
B u t th e g r o w th o f t h e c h i l d w e l f a r e program w as s lo w .
T h is f a c t w as p a r t i c u l a r l y t r u e w i t h r e s p e c t t o t h e s t a t e c o n t r o l o f th e l i c e n s i n g
o f f o s t e r hom es f o r c h i l d r e n .
I n t h e f i r s t tw o d e c a d e s a f t e r t h e a d o p t i o n o f t h e c o n s t i t u t i o n we h a v e s e e n t h a t v e r y l i t t l e t r i b u t e d t o t h e g r o w th o f s t a t e
o c c u r r e d w h ic h c o n
s u p e r v is io n .
Then i n 1 9 0 3
t h e f i r s t e x p r e s s i o n o f t h e r e c o g n i t i o n o f t h e p r o b le m o f lic e n s in g
o f b o a r d in g hom es came w i t h th e e n a c tm e n t o f a
lic e n s in g
la w p e r m i t t i n g l o c a l l i c e n s i n g
fo r c h ild r e n .
o f b o a r d in g hom es
The l i c e n s e s w ere t o be i s s u e d b y t h e
c o u n ty
o r c i t y h e a l t h d e p a r t m e n t s , b u t th e la w w as p e r m i s s i v e and very l i t t l e
w as a c c o m p lis h e d a s a r e s u l t o f i t s e n a c t m e n t .
The S t a t e B o a rd o f C h a r i t i e s and C o r r e c t i o n s w as fo rm ed i n 1 9 0 3 an d i t s w ork h e l p e d t o f o c u s a t t e n t i o n u p o n t h e c h i l d p l a c i n g a g e n c i e s and h e n c e u p on t h e f o s t e r home p r o b le m s . T h rou gh t h e e f f o r t s
o f t h e B oard a s t a t e
a r e a lity
I n 1 9 2 5 when t h e S t a t e B oard o f C h a r i t i e s
in 1911.
l i c e n s i n g la w becam e
and C o r r e c t i o n s w as m erg ed w i t h th e C h i l d r e n ’ s A g e n t s o f t h e S t a t e B o a rd o f C o n t r o l t o fo rm th e S t a t e D e p a r tm e n t o f P u b l i c W e lf a r e ,
th e l i c e n s i n g
The la w w h ic h i s
la w h ad b e e n i n e f f e c t f o u r t e e n y e a r s .
in e f f e c t i n 1941 i s
d ir e c t ly r e la te d
t o th e
w ork o f th e S t a t e B oard o f C h a r i t i e s and C o r r e c t i o n s , f o r i t w as p a s s e d i n 1925? t h e
same y e a r o f th e m er g er o f t h e tw o
b o a r d s , and i t h a s n o t b e e n am ended s i n c e
th a t d a te .
A f t e r 1927? when t h e S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e w as e s t a b l i s h e d ,
t h e p r o b le m s o f l i c e n s i n g
c h i l d r e n t o o k a n a d m i n i s t r a t i v e e m p h a s is .
o f f o s t e r hom es f o r T h is e m p h a s is w as
i n c o n t r a s t t o th e a p p r o a c h , th r o u g h l e g i s l a t i o n and com m u nity e d u c a t i o n , w h ic h t h e S t a t e B oard o f C h a r i t i e s an d C o r r e c t i o n s str e sse d . I t h a s b e e n i n d i c a t e d how in g Homes and
F in a lly
D i v i s i o n o fB oard
I n s t i t u t i o n s came i n t o e x i s t e n c e , and
a c c r e d i t e d and i n s p e c t i o n a d m in is te r in g
th e p r e s e n t
how
s e r v i c e s d e v e lo p e d a s a m eth od o f
th e l i c e n s i n g
la w o f 1 9 2 5 .
i t h a s b e e n show n t h a t a t t h e
t h e r e a r e tw o f o r c e s a t w ork w i t h i n t h e r e g a r d t o t h e a d m i n i s t r a t i o n o f th e la w .
sta te
p resen t
tim e ( 1 9 4 1 )
i t s e l f v / it h
T h ere i s
one t r e n d
i n th e d i r e c t i o n o f th e u se
o f l o c a l a g e n c ie s f o r lic e n s in g
p u r p o s e s , w h ic h h a s e x i s t e d
s i n c e t h e S t a t e B oard o f C h a r i t i e s
and C o r r e c t i o n s i s o l a t e d c h i l d r e n , and t h e r e i s
t h e p r o b le m o f f o s t e r hom es f o r
a n o t h e r t r e n d i n th e d i r e c t i o n o f .t h e
c e n t r a l i z a t i o n o f a u t h o r i t y i n th e D i v i s i o n o f B o a r d in g Homes and I n s t i t u t i o n s o f t h e S t a t e D e p a r tm e n t o f S o c i a l f f e l f a r e B e f o r e a n a l y z i n g t h e p r o b le m s o f s t a t e a d m i n i s t r a t i o n o f th e l i c e n s i n g
o f f o s t e r hom es f o r c h i l d r e n i n C a l i f o r n i a
f u r t h e r , i t i s p e r h a p s i n o r d e r t o e x a m in e more c l o s e l y t h e s t a t u t e u n d e r w h ic h t h e S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e r e c e iv e s i t s
a u th o r ity w ith r e s p e c t to i t s
l i c e n s i n g pow er.
Some c o m p a r is o n s i n g e n e r a l w i t h o t h e r s t a t e s i n t h e U n it e d S ta te s,
and w i t h New Y ork S t a t e i n p a r t i c u l a r , may h e l p t o
sh e d m ore l i g h t on t h o s e p r o b le m s i n p u b l i c w e l f a r e a d m in is t r a t i o n t o w h ic h th e f u n c t i o n o f t h e l i c e n s i n g hom es f o r c h i l d r e n p e r t a i n s .
of fo ste r
CHAPTER I I I
AN ANALYSIS OF THE CALIFORNIA AND NEW YORK STATUTES REGULATING THE LICENSING OF FOSTER HOMES FOR CHILDREN IN 1 9 4 1 The C a l i f o r n i a la w p r o v i d e s t h e S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e w i t h th e pow er t o make " th e r u l e s and r e g u l a tio n s
it
deem s b e s t f o r
r e s p e c t t o th e l i c e n s i n g It
sta te s
th e p e r fo r m a n c e o f a n y s e r v i c e w i t h o f b o a r d in g hom es f o r c h i l d r e n . "1
t h a t “n o p e r s o n s h a l l , w i t h o u t f i r s t h a v in g o b t a in e d
a w r itte n lic e n s e
o r p e r m it t h e r e f o r e fr o m t h e S t a t e D e p a r t
m en t o f S o c i a l W e l f a r e , o r fro m i n s p e c t i o n s e r v i c e a p p r o v e d o r a c c r e d i t e d by t h e d e p a r tm e n t, m a i n t a i n o r c o n d u c t a n y i n s t i t u t i o n , b o a r d in g home o r d a y n u r s e r y , n o r r e c e i v e n o r c a r e f o r an y su ch c h ild
in th e a b sen ce o f i t s
p a r e n t s o r g u a r d ia n s
w i t h o r w i t h o u t c o m p e n s a t i o n .“2 The la w p e r m it s t h e S t a t e D e p a r tm e n t t o d e l e g a t e a u t h o r it y w ith r e s p e c t t o l i c e n s i n g , c r e d ite d
in s p e c tio n
s e r v ic e .
its
t o an app roved or a c
I t s t i p u l a t e s th a t “t h i s
s e r v ic e
s h a l l be e i t h e r t h e h e a l t h d e p a r tm e n t o f a c o u n ty o r o t h e r
1 C a l i f o r n i a S t a t e W e lfa r e and I n s t i t u t i o n s Code 1 9 3 9 , S e c tio n 1 6 2 1 , paragraph a . p . 79* 2 Ib id .
p o l i t i c a l s u b d i v i s i o n w h ic h m a in t a in s a r e g u l a r l y l i c e n s e d p h y s ic ia n or a q u a lif ie d
s o c ia l s e r v ic e
d e p a r tm e n t e i t h e r
of
w h ic h h a s b e e n a p p r o v e d i n w r i t i n g b y th e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e . ,f3 The C a l i f o r n i a la w i s b a s is .
p o s t u l a t e d u p on a v e r y b r o a d
I t s fu n d a m e n ta l p u r p o se i s
are n o t liv in g
t o p r o t e c t c h i l d r e n who
i n t h e hom es o f t h e i r p a r e n t s and i t
does th is
b y m eans o f a b l a n k e t c l a u s e c o v e r i n g a l l c h i l d r e n u n d e r s i x te e n .
I t is
t h e o b j e c t o f t h e la w t o r e g u l a t e a l l t h e hom es
w h ere c h i l d r e n h a v e b e e n o r may be p l a c e d and t h i s c o n t r o l i s a c c o m p lis h e d b y p r o h i b i t i n g an yon e fro m a c c e p t i n g c h i l d r e n i n t o hom es u n l e s s a l i c e n s e h a s b e e n o b t a i n e d from t h e w e l f a r e d e p a r tm e n t o r i t s
a g e n t , and b y s u p e r v i s i n g t h e hom es
th r o u g h p e r i o d i c i n s p e c t i o n . a u th o r ity to lic e n s e o f lic e n s in g s e r ie s .
sta te
A dded t o t h e d e p a r t m e n t s
a l l b o a r d in g hom es f o r c h i l d r e n i s
th a t
c h i l d r e n * s a g e n c i e s , i n s t i t u t i o n s and d a y n u r
The la v / c o v e r s a l l
c h ild r e n , a l l a g e n c ie s , and a l l
b o a r d in g hom es and m akes t h e s t a t e d e p a r tm e n t o f S o c i a l W el fa re
th e c e n t r a l a u t h o r it y r e s p o n s ib le
f o r th e s u p e r v is io n o f
f u n c t i o n s , . and f o r t h e a d m i n i s t r a t i o n o f p o l i c i e s n e c e s s a r y t o c a r r y o u t th e p r o v i s i o n s o f t h e l a w .
3 I b i d . . s e c t i o n 1622, p. 79.
45 I n common w i t h some t h i r t y - s e v e n g iv e s th e r e s p o n s i b i l i t y f o r
o t h e r s t a t e s t h e la w
th e l i c e n s i n g
o f b o a r d in g hom es
fo r c h ild r e n in C a lif o r n ia to a c e n t r a l a u t h o r it y .4 same tim e
th e r e i s a p r o v is io n in i t
a u th o r ity to d e le g a te
some o f i t s
a g e n c ie s ,
th a t i s ,
lim its
th e
p e r m i t t i n g th e c e n t r a l
pow er.
The s t i p u l a t i o n r e
g a r d in g d e l e g a t e d a u t h o r i t y w h ic h t h e la w p r o v i d e s , w hat p e c u l i a r , b eca u se i t
^
is
som e
th e d e l e g a t i o n t o s p e c i f i c
a h e a l t h d e p a r tm e n t h a v in g a t l e a s t one
q u a lif ie d p h y s ic ia n or a q u a lif ie d a p p r o v e d b y t h e d e p a r tm e n t i t s e l f .
s o c i a l w e l f a r e d e p a r tm e n t The i n t e n t o f t h e la w
a p p e a r s t o be s u c h a s t o l i m i t th e d e l e g a t i o n o f a u t h o r i t y t o p u b l i c a g e n c i e s i n a c o u n t y , b u t th e a c t u a l w o r d in g l e a v e s t h e p o i n t a s t o w h e th e r a p r i v a t e a s q u a lifie d
in d o u b t.
s o c i a l a g e n c y may be c o n s i d e r e d
The S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e
h a s c h o s e n t o i n t e r p r e t th e s t a t u t e T h is i n t e r p r e t a t i o n i s
t o mean a p u b l i c a g e n c y .
i n c o n t r a s t t o th e p r a c t ic e
nd e s i g n a l e d a g e n t s 11 i n u s e i n c e r t a i n lic e n s in g or p r iv a te
f o s t e r h o m e s.
o f u s in g
s t a t e s fo r p u rp o ses o f
D e s i g n a t e d a g e n t s may be e i t h e r p u b l i c
c h ild w e lfa r e a g e n c ie s .
When t h e y a r e s e t up t h e y
4 F r a z e r , G la d y s G e n e v r a , The L i c e n s i n g o f B o a r d in g Homes M a t e r n i t y Homes and C h ild W e lfa r e A g e n c i e s , p . 1 1 . S ta te s w h ic h l i c e n s e b o a r d in g hom es a r e A la b a m a , C a l i f o r n i a ? C o lo r a d o , C o n n e c t i c u t , D e la w a r e , F l o r i d a , I d a h o , I l l i n o i s , I n d i a n a , Io w a , K a n s a s , M a in e , M a r y la n d , M a s s a c h u s e t t s , M ic h ig a n , M in n e s o t a , M i s s o u r i , N e b r a s k a , New H a m p sh ir e , New J e r s e y , N o r th C a r o l i n a , N o r th D a k o ta , O h io , O r e g o n , P e n n s y l v a n i a , Rhode I s l a n d , S o u th C a r o l i n a , S o u th D a k o t a , T e n n e s s e e , T e x a s , U t a h , V e r m o n t, V i r g i n i a , W a s h in g to n , W est V i r g i n i a , W i s c o n s i n , W yom ing.
a r e g e n e r a l l y i n c o r p o r a t e d u n d e r th e s t a t e
la w , l i c e n s e d b y
t h e w e l f a r e d i v i s i o n and g i v e n a u t h o r i t y t o i n v e s t i g a t e hom es and recom m end c e r t i f i c a t i o n
to th e c e n t r a l a u t h o r it y .
The i n c l u s i o n o f t h e h e a l t h d e p a r tm e n t i n c o n n e c t i o n w ith th e l i c e n s i n g
o f s u c h hom es i s
i n l i n e w i t h th e
o ld e r
s t a t u t e s w h ic h a t t e m p t e d t o r e g u l a t e hom es f o r c h i l d r e n , and i t may be r e c a l l e d
t h a t a t t h e tim e t h e l i c e n s i n g
la w o f 1 9 2 5
w as e n a c t e d , t h e c i t y h e a l t h d e p a r tm e n ts o f L o s A n g e l e s , and S an F r a n c i s c o w ere a l r e a d y p e r fo r m in g t h e f u n c t i o n o f l i c e n s in g hom es u n d e r c i t y
o r d in a n c e s .
F u r th e r m o r e m a t e r n i t y hom es
and h o s p i t a l s a r e t o be l i c e n s e d b y t h e S t a t e B o a r d o f H e a lt h in C a lif o r n ia .?
11I n t h e n e w e r more s p a r s e l y s e t t l e d
o f t h e c o u n t r y w h ere s p e c i a l i z e d
s e r v ic e s have n o t b een d e
m anded o r w a r r a n te d b y s o c i a l c o n d i t i o n s , m en t o f h e a l t h i s
s e c tio n s
th e board or d e p a r t
o f t e n g iv e n d u t ie s u s u a lly a s s ig n e d to a
c e n tr a l a u th o r ity f o r p u b lic w e lfa r e .
And e v e n i n some o f
th e o th e r s t a t e s c e r t a i n d u t ie s o f in s p e c t i o n , p a r t i c u l a r l y a s t h e y a f f e c t m a t e r n i t y h o s p i t a l s and b o a r d in g hom es f o r c h i l d r e n a r e g i v e n t o t h e h e a l t h a u t h o r i t y . ”6
? C a l i f o r n i a H e a lt h and S a f e t y Code 1 9 3 9 . S e c tio n s 1 4 0 0 -1 4 1 1 . A
C hap. 6 0 ,
A r l i e n J o h n s o n , P u b l i c P o l i c y and P r i v a t e C h a r i t i e s . pp. 2 3 -2 4 .
L i c e n s e s t o b o a r d in g hom es f o r c h i l d r e n i n C a l i f o r n i a a r e g r a n t e d f o r a p e r i o d o f one y e a r . 7
The r e g u l a t i o n i s
l i n e w i t h th e p r o v i s i o n s o f th e m a j o r i t y o f s t a t e s . o f lic e n s e s
is
by a p p l i c a t i o n , f i l e d
d a te o f e x p ir a t io n . r e v o k e s th e l i c e n s e .
F a ilu r e
in
R enew al
t e n d a y s p r i o r t o th e
t o a p p ly f o r ren ew a l a u t o m a t ic a lly
No l i c e n s e may be
An a p p l i c a t i o n f o r a l i c e n s e
is
transferred.^
made9
to th e S t a t e D e
p a r tm e n t o f S o c i a l W e l f a r e , o r t o a n i n s p e c t i o n s e r v i c e a p p r o v e d o r a c c r e d i t e d b y t h e d e p a r t m e n t .1^
The la w s a y s t h a t
11t h e d e p a r tm e n t m ay, b y a member o r a n y d u l y a u t h o r i z e d r e p r e s e n ta tiv e ,
i n s p e c t o r e x a m in e a n y h om e, p l a c e ,
fo rm a n ce o f s e r v i c e . " H not sta te d
The num ber o f i n s p e c t i o n v i s i t s
i n th e la w h o w e v e r , e i t h e r w i t h r e f e r e n c e
i n i t i a l c o n t a c t w i t h t h e home o r a s t o up v i s i t s .
or th e p e r is
t o th e
th e num ber o f f o l l o w -
The D i v i s i o n o f B o a r d in g Homes and I n s t i t u t i o n s
o f t h e S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e h a s u n d e r t a k e n t o
7 C a l i f o r n i a W e lf a r e and I n s t i t u t i o n s Code 1 9 3 9 , S e c . 1623, p. 79. 8 C a l i f o r n i a W e lfa r e and I n s t i t u t i o n s Code 1 9 3 9 , S e c . 1624, p. 79. 9 S e e a p p e n d ix . 10
1624, p.
A p p l i c a t i o n fo r m .
C a l i f o r n i a W e lfa r e and I n s t i t u t i o n s 79. I b id . . S ec. 1621.
( i t a l i c s m in e )
Code 1 9 3 9 , S e c .
r e q u i r e a n i n s p e c t i o n v i s i t up on a p p l i c a t i o n a s a n a d m i n i s t r a tiv e
r u lin g how ever. The pow er t o w i t h h o l d l i c e n s e s
is
i m p l ie d i n t h e pow er
t o g r a n t them and t h e m anner i n w h ic h t h e l i c e n s e d
is
re
f u s e d i s v e r y im p o r t a n t t o t h e a d m i n i s t r a t i o n o f t h e la w i t s e lf.
The m eth od o f r e f u s a l v a r i e s w i t h e a c h i n s p e c t i o n
s e r v i c e d e p e n d in g u p o n t h e l o c a l s i t u a t i o n .
In th e m a jo r ity
o f i n s t a n c e s th e p e r s o n s r e f u s e d a r e n o t i f i e d i n t e r v i e w and t h i s
in te r v ie w
by p e r so n a l
i s fo llo w e d by a l e t t e r
c o n f ir m
in g t h e d e c i s i o n fro m t h e i n s p e c t i o n a g e n c y , o r t h e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e .
In in s t a n c e s o f r e f u s a l th e r e
i s a n a t t e m p t t o i n t e r p r e t t o th e p e r s o n s w h ose a p p l i c a t i o n s have b een r e j e c t e d , in r e la t io n
t h e r e g u l a t i o n s o f t h e s t a t e d e p a r tm e n t
t o t h e i r own s i t u a t i o n s .
The e f f e c t i v e n e s s in g l i c e n s e s , o f h o m e s.
o f th e pow er o f g r a n t i n g and w i t h h o l d
i s d e p e n d e n t u p on a c a r e f u l i n i t i a l i n s p e c t i o n
C are i n t h e i s s u a n c e
o f lic e n s e s
o b v i o u s l y m eans
l e s s w ork i n th e l o n g r u n , f o r t h e d i f f i c u l t i e s
in v o lv e d in
e n f o r c e m e n t w i l l be r e d u c e d t o a m inim um , and f e w e r l i c e n s e s w i l l n e e d t o be r e v o k e d . : The s t a n d a r d s o r minimum r e q u ir e m e n t s f o r b o a r d in g hom es f o r c h i l d r e n i n C a l i f o r n i a a r e n o t s e t up b y s t a t u t e . pow er t o make them i s
The
g i v e n t o th e S t a t e D e p a r tm e n t o f S o c i a l
W e lfa r e th r o u g h t h e g e n e r a l p r o v i s i o n i n t h e la w w h ic h s t a t e s
t h a t " th e d e p a r tm e n t s h a l l make a n y r u l e th e g o v e r n m e n t o f a n y i n s t i t u t i o n any s e r v ic e
s p e c ifie d
in
i t deem s b e s t f o r
o r f o r t h e p e r fo r m a n c e o f
th e c o d e , p e r t a i n i n g t o t h e w e l f a r e
o f c h i l d r e n i n b o a r d in g h o m e s ." I 2
I n l i n e w i t h th e p r o v i s i o n *
th e d e p a r tm e n t h a s f o r m u la t e d c e r t a i n minimum r e g u l a t i o n s o r sta n d a r d s.
T h ese r e g u l a t i o n s i n c l u d e
p e r m i t t e d i n a hom e.
The num ber i s
t h e num ber o f c h i l d r e n
lim ite d to s ix e x c e p t
w h ere t h e r e a r e i n f a n t s u n d e r tw o w hen t h e l i m i t i s
tw o .
T h ere a r e r e c o m m e n d a tio n s f o r t h e s i m i l a r r e l i g i o u s a f f i l i a t i o n s o f f o s t e r p a r e n t s and c h i l d r e n . 13 home i t s e l f
W ith r e s p e c t t o th e
th e s t a t e m e n t s s e t f o r t h a r e v e r y g e n e r a l .
do n o t s t i p u l a t e
T h ey
t h a t t h e r e be in com e i n t h e home o t h e r th a n
th e b o a r d o f c h i l d r e n , e x c e p t i n a n i n d i r e c t f a s h i o n . " C h ild r e n s h a l l be b o a r d e d o n l y i n hom es i n w h ic h a s u i t a b l e s t a n d a r d o f c a r e an d c o m f o r t i s m a in t a in e d w i t h o u t t h e in co m e d e r i v e d fro m t h e b o a r d o f t h e c h i l d r e n i n t h e d e c is io n le ft
o f w hat c o n s t i t u t e s a s u it a b le
t o th e
term i s
homes.
"1^
The
s ta n d a r d o f c a r e i s
ju d g m en t o f t h e i n d i v i d u a l i n s p e c t i o n a g e n t .
The
u s e d a g a i n i n a g e n e r a l s e n s e w h ere th e r e g u l a t i o n s
1 2 I b id . . S e c tio n 1 6 2 1 , paragraph a . ,
p. 79.
13 S t a t e o f C a l i f o r n i a , D e p a r tm e n t o f S o c i a l W e l f a r e , Minimum R e q u ir e m e n ts f o r B o a r d in g Homes f o r C h i l d r e n . Form BHC ( r e v i s e d ) , F e b r u a r y 194-1. s e e a p p e n d ix . 14 I b id .
s p e c i f y t h a t t h e m o th e r be " o f s u i t a b l e tem p era m en t t o c a r e f o r c h i l d r e n " . 1 5
a g e , e d u c a t i o n , and
The m e n ta l an d p h y s i c a l
h e a l t h o f th e m em bers o f t h e f o s t e r f a m i l y m u st be g o o d . T h ere m u st be no a d u l t b o a r d e r s i n th e home and t h e a p p l i c a n t f o r t h e l i c e n s e m u st n o t be e m p lo y ed o u t s i d e
o f t h e hom e.
She m u st f u r n i s h r e f e r e n c e s a s t o h e r c h a r a c t e r an d h e r home m ak in g a b i l i t y . 1 6
No m e n t io n i s made o f t h e f o s t e r f a t h e r .
The r e g u l a t i o n s o f th e S t a t e D e p a r tm e n t o f S o c i a l W el fa re
s ta te a ls o
t h a t th e home m u st be i n a r e s i d e n t i a l d i s
t r i c t w h ere t h e r e i s s p e c if y th e
s iz e
e a s y a c c e s s t o s c h o o l and c h u r c h .
o f t h e b ed room s i n c u b i c f e e t ,
in d iv id u a l beds fo r ea ch c h ild .
T hey
and c a l l f o r
A s e p a r a tio n o f th e
sexes is
recom m ended w hen th e c h i l d r e n a r e o v e r t h r e e y e a r s o f a g e . T h er e i s a n a t t e m p t t o s a f e g u a r d t h e h e a l t h o f t h e c h i l d r e n and b e f o r e
c h i l d r e n a r e p l a c e d i n hom es t h e y m u st
have p h y s ic a l e x a m in a tio n s .
S u g g e s t i o n s a s t o f u r t h e r m e d ic a l
a t t e n t i o n , b a t h s , i n d i v i d u a l co m b s, b r u s h e s , t o w e l s , and s o on are lis t e d .
T h ere i s
a w a r n in g t h a t c h i l d r e n u n d e r s i x t e e n
a r e n o t t o be r e q u i r e d t o do w o r k - o t h e r t h a n s c h o o l t a s k s and s im p le home d u t i e s .
15
Ib id -,
16 I b id .
N or a r e t h e y t o r e c e i v e
c o r p o r a l p u n is h -
m e n t.
D ie t i s
g i v e n a t t e n t i o n i n t h e s e r e q u ir e m e n t s a l s o ,
and s p e c i f i c m e n t io n i s made o f t h e am ount o f m i lk a c h i l d s h o u ld h a v e , t h e n e c e s s i t y
o f f r u i t and v e g e t a b l e s , b u t t e r
and s o o n .^ ? The r e g u l a t i o n s o f t h e S ta € e D e p a r tm e n t o f S o c i a l W el f a r e a r e on t h e w h o le g e n e r a l e n o u g h t o a l l o w a c e r t a i n am ount o f l a t i t u d e
in
t h e i r a p p l i c a t i o n and s p e c i f i c
enough
t o be p r a c t i c a l s o f a r a s th e r e q u ir e m e n t s o f th e l a w , t h e k n o w le d g e o f h e a l t h cerned,
s t a n d a r d s , and o f g e n e r a l c a r e , a r e c o n
H o w ev er, b e y o n d l i m i t i n g
o f t h e num ber o f c h i l d r e n
i n a g i v e n home and r e g u l a t i n g t h e i r a g e s and s e x , t h e d e t e r m in in g o f t h e s u i t a b i l i t y
o f th e home from th e
sta n d
p o i n t o f t h e n e ig h b o r h o o d , t h e g e n e r a l h e a l t h o f th e f a m i l y , th e a d e q u a c y a s t o t h e
s iz e
o f th e l i v i n g
q u a r t e r s and s o o n ,
a l l o f w h ic h s p e c i f i c a t i o n s a r e r e a s o n a b l y c o n c r e t e ,
i t w o u ld
seem t h a t many o f t h e r e g u l a t i o n s a r e g o a l s t o be a c h i e v e d r a t h e r th a n s t a n d a r d s t o be m e t.
T hey w o u ld
be v e r y d i f f i
c u l t t o e n f o r c e and t h e p r o c e s s o f d o in g s o m ig h t c r e a t e more p r o b le m s th a n i t w o u ld s o l v e .
From t h e i r m ea n in g and c o n t e n t
many o f t h e r e g u l a t i o n s w o u ld s u g g e s t g o a l s t o be r e a c h e d th r o u g h t h e u n d e r t a k in g o f a n e d u c a t i o n a l p rogram r a t h e r t h a n s t a n d a r d s s e t up a s minimum r e q u i r e m e n t s .
17 I b i d .
I n th e C a l i f o r n i a s p e c ifie d .
s t a t u t e no f e e It is
f o r b o a r d in g home
lic e n s e s
is
th e r e fo r e
t o be a ssu m ed t h a t
th e r e i s
n on e s o f a r a s th e
cerned.
H o w ev er, some o f t h e l o c a l c o m m u n itie s h a v e s e t up
s t a t e d e p a r tm e n t i t s e l f
n o m in a l c h a r g e s f o r a d d i t i o n a l l i c e n s e s u n d e r c i t y
is
con
o r d in a n c e s .
L o c a l f e e s v a r y i n am ount from one t o t w e lv e d o l l a r s p e r annum. T h ese f e e s a r e c o n s i d e r e d a s a b u s i n e s s t a x , w hen f o r e x a m p le , p e r s o n s w i s h i n g t o c o n d u c t hom es f o r c h i l d r e n p a y f e e s i n th e same m anner a s a n y o t h e r b u s i n e s s r e q u i r i n g a l i c e n s e .
The
S t a t e D e p a r tm e n t o f S o c i a l W e lfa r e m akes n o e f f o r t t o c ir c u m v e n t l o c a l r e g u la tio n s o f t h is p e a l, b u t th e r e i s
s o r t o r t o w ork f o r t h e i r r e
a n a t t e m p t t o e d u c a t e t h e com m u n ity s o t h a t
t h e r e w i l l be a m ore th o r o u g h u n d e r s t a n d in g o f t h e g e n e r a l i n t e n t o f th e s t a t e
la w .
T h er e i s a s t a t u t o r y r e q u ir e m e n t w i t h r e s p e c t t o r e p o r t s c o v e r in g i d e n t i f y i n g sta te s
in fo r m a tio n in C a l i f o r n i a . T h e
la w
t h a t r e c o r d s m u st be k e p t b y th e h o l d e r s o f l i c e n s e s
t h e m s e lv e s . s e ttin g
I t s p e c ifie s
t h a t t h e y m u st " m a in ta in a r e g i s t e r
f o r t h th e f o l l o w i n g f a c t s : a• b. c. d.
name l a s t p r e v io u s a d d r e s s age n e a r e s t o f k in
1o
1 6 2 7 .,
P .
C a l i f o r n i a W e lf a r e and I n s t i t u t i o n s C o d e, S e c t i o n 80.
e. f. g.
m o t h e r 1 s m a id en name p e r s o n r e s p o n s i b l e f o r c a r e and m a in te n a n c e s u c h o t h e r d a t a a s th e S t a t e D e p a r tm e n t o f S o c i a l W e lfa r e may r e q u i r e . ”1 9
And t h e la w f u r t h e r s t a t e s t h a t "upon t h e o c c u r r e n c e o f a n y d e a t h s o f c h i l d r e n o r c h a n g e o f p e r s o n n e l th e h o l d e r o f t h e lic e n s e n o tic e
o r p e r m it s h a l l w i t h i n f o r t y - e i g h t h o u r s g i v e w r i t t e n t h e r e o f t o t h e S t a t e D e p a r tm e n t o f S o c i a l f f e l f a r e
t o t h e i n s p e c t i o n s e r v i c e w h ic h i s s u e d t h e p e r m it o r
or
l i c e n s e .
I t may b e p o i n t e d o u t t h a t t h i s pow er w h ic h th e la w p r o v i d e s f o r t h e S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e t o c a l l f o r r e p o r t s , e s p e c i a l l y " s u c h o t h e r d a t a a s may be r e q u i r e d " , i s
a
v e r y e f f e c t i v e m eans o f s u p e r v i s o r y c o n t r o l . A ny p e r s o n who f a i l s c h ild r e n ,
is
to secu re a lic e n s e
to care fo r
g u i l t y o f a m isd e m ea n o r an d f u r t h e r m o r e , a n y
p e r s o n who r e f u s e s t io n a u th o r iz e d ,
is
t o p e r m i t , o r i n t e r f e r e s w i t h th e g u i l t y o f a m is d e m e a n o r .21
t h e p u n is h m e n t f o r t h i s
o ffe n se
is
n ot s e t fo r th
in s p e c
The e x t e n t o f in th e c o d e .
The e n f o r c e m e n t o f th e p r o v i s i o n s o f t h e la w r e s t s w i t h t h e d i s t r i c t a t t o r n e y s o f t h e r e s p e c t i v e c o u n t i e s w h o, " s h a l l u p o n a p p l i c a t i o n b y t h e S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e o r
I b id . ^
I b i d . , s e c t i o n 1628, p.
80.
I b i d . . s e c t i o n 1 6 2 9 , P. 8 0 .
20
its
a u th o r iz e d in s p e c t io n s e r v ic e ,
in s titu te
and c o n d u c t t h e
p r o s e c u tio n o f any a c t io n brough t fo r th e v i o la t i o n w ith in h i s c o u n ty o f any p r o v is io n o f t h i s
c h a p t e r . ”22
The la w c o n t a i n s a p r o v i s i o n f o r e n f o r c e m e n t .
H o w ev er,
a s M is s F r a z e r h a s s u g g e s t e d , th e p r o b le m o f e n f o r c e m e n t i s one o f t h e m a jo r p r o b le m s i n c o n n e c t i o n w i t h th e l i c e n s i n g f o s t e r hom es f o r c h i l d r e n .
of
She c i t e s C a l i f o r n i a a s a s k i n g
f o r ’’some m eth od by w h ic h t h o s e who t r a n s g r e s s th e r u l e s and r e g u l a t i o n s c o u ld be b r o u g h t w i t h i n t h e r e a c h o f t h e la w m ore p r o m p t l y .”2 3 The p u b l i c i s n o t e d u c a t e d t o t h e a c c e p t a n c e o f t h e n e c e s s ity
o f l i c e n s i n g a l l b o a r d in g hom es f o r a l l c h i l d r e n
and t h e r e
i s a c o n s i d e r a b l e am ount o f i n e r t i a an d i n d i f f e r e n c e
m a n i f e s t e d b y l o c a l a u t h o r i t i e s w i t h r e s p e c t t o t h e p r o b le m . F u r th e r m o r e i t v io la tio n T h ere i s
i s m o st d i f f i c u l t t o o b t a i n e v id e n c e
o f th e
o f th e la w f o r t h e p e r s o n s i n v o l v e d m oved f r e q u e n t l y . n o t a lw a y s a s t r i c t a p p l i c a t i o n o f th e la w i t s e l f b y
th e a g e n c ie s r e s p o n s ib le
fo r is s u in g
th e l i c e n s e , a s f o r e x
a m ple , t h e e x a c t num ber o f c h i l d r e n i n a home may e x c e e d a t t im e s t h e num ber p e r m i t t e d a t th e tim e th e l i c e n s e w as i s s u e d .
22 I b i d . , s e c t i o n 1 6 3 0 . , p . 80 23 F ra z er , 0£. C i t . , p . 93.
C o n f u s io n a s t o t h e i s s u e s and l a c k o f e v i d e n c e e x i s t s many t im e s w hen p r o s e c u t i o n s a r e a t t e m p t e d an d add t o t h e d i f f i c u ltie s
of in s is tin g
on a s t r i c t a p p l i c a t i o n o f t h e la w .
E r n e s t F reu n d i n h i s a r t i c l e
i n t h e E n c y c lo p e d ia o f t h e
S o c i a l S c i e n c e s on l i c e n s i n g h a s some l i g h t t o th r o w on t h i s d ilem m a w hen he d e s c r i b e s l i c e n s i n g a s a r e g u l a t o r y f u n c t i o n r a th e r th a n a p r o h ib it iv e
one.
"The te r m i s v a r i o u s l y u s e d
i n la w and g o v e r n m e n t w i t h c o r r e s p o n d i n g l y v a r i e d c o n n o t a t i o n . . . . .T h e p r im a r y l e g i s l a t i v e
sh ad es o f
th o u g h t i n l i c e n s i n g
i s n o t p r o h i b i t i o n b u t r e g u l a t i o n t o be made e f f e c t i v e fo r m a l d e n i a l o f a r i g h t w h ic h i s
t h e n made i n d i v i d u a l l y
a v a ila b le by an a d m in is tr a tiv e a c t o f se n se th e l i c e n s i n g
by th e
a
p
p
r o
v
a
l .
"24
j n th is
o f b o a r d in g hom es b eco m es e f f e c t i v e
a s a p u b l i c i t y and c h e c k in g p r o v i s i o n and i t s
here
e n fo rc em e n t d e
p end s upon p u b lic o p in io n r a th e r th a n c o u r t p r o c e d u r e . The s t a t e m e n t h a s b e e n made t h a t t h e a d m i n i s t r a t i v e p o w e r , r e s p e c t i n g th e g r a n t i n g and r e v o k in g o f l i c e n s e s ,
is
more e f f e c t i v e a s a m ean s o f e n f o r c e m e n t th a n t h e p r o t r a c t e d j u d i c i a l p ro ced u re o f t r y in g a c a s e .? ^
In C a lif o r n ia
th is
pow er h a s b e e n g i v e n t o t h e c e n t r a l a d m i n i s t r a t i v e a u t h o r i t y .
24 F reund, E r n e s t ., L ic e n s in g . E n c y c lo p e d ia o f t h e S o c i a l S c i e n c e s , V. 9 , P P. 4 4 7 - 5 1 . (1 9 3 3 ). 2 ? Frazer,
Op. G i t . , p . 3 3 .
" P e r m it s o r l i c e n s e s may be r e v o k e d f o r c a u s e a f t e r a h e a r i n g b efore
th e S t a t e D ep artm en t o f S o c i a l ? /e lf a r e
and a c c r e d i t e d i n s p e c t i o n s e r v i c e .
or a n a p p r o v e d
W r itte n n o t ic e
o f th e
tim e and p l a c e o f s u c h h e a r i n g and o f t h e c h a r g e s made a g a i n s t th e h o ld e r o f th e p e r m it or l i c e n s e him n o t l e s s
s h a l l be d u l y s e r v e d on
t h a n t e n d a y s p r i o r t o t h e t im e f i x e d f o r
su ch
h e a r in g . T h i s p r o v i s i o n o f t h e C a l i f o r n i a la ? / i n common w i t h t h e r e g u l a t i o n s o f th e m a j o r it y o f th e s t a t e s ^ ? tr a tiv e
a u t h o r i t y t h e p o w er t o e n f o r c e
its
The s t a t u t e p r o v i d e s f o r a w r i t t e n n o t i c e is
g i v e s th e a d m in is own r e g u l a t i o n s .
o f r e v o c a t i o n w h ic h
t o be g i v e n t o t h e l i c e n s e e and t h e c a u s e s o f t h e r e v o c a
t i o n a r e t o be s t a t e d i n t h e n o t i c e . ^8
T h ere i s
a te n day
p e r io d f i x e d f o r th e pu rp ose o f p e r m it t in g th e h o ld e r o f th e lic e n se
t o a n s w e r , and t h e p r o c e d u r e a l s o p r o v i d e s a n o p p o r -
2 6 C a l i f o r n i a W e lf a r e and I n s t i t u t i o n s Code 1 9 3 9 * S e c tio n 1 6 2 ? . 2 ? F r a s e r , G. G ., 0 £ . C i t . « p . 8 9 . " i n t h i r t y - f i v e s t a t e s t h e l i c e n s i n g a u t h o r i t y o r a d m i n i s t r a t i v e b u r e a u had t h e pow er o f r e v o c a t i o n . - - A la b a m a , C a l i f o r n i a , C o lo r a d o , C o n n e c t i c u t , D e la w a r e , F l o r i d a , I d a h o , I l l i n o i s , I n d i a n a , Io w a , K a n s a s , M a r y la n d , M a s s a c h u s e t t s , M ic h ig a n , M in n e s o t a , M i s s o u r i , N e b r a s k a , New H a m p sh ir e , New. J e r s e y , N o r th C a r o l i n a , N o r th D a k o t a . O h io , O re g o n , P e n n s y l v a n i a , Rhode I s l a n d , S o u th C a r o l i n a , S o u th D a k o t a , T e n n e s s e e , T e x a s , U t a h , V i r g i n i a , W a s h in g to n , W e st V i r g i n i a , W i s c o n s i n , W yom ing." 2 8 C a l i f o r n i a W e lfa r e and I n s t i t u t i o n s Code 1 9 3 9 . S e c tio n 1 6 2 5 .
t u n i t y t o p r e s e n t e v i d e n c e and c o n f r o n t w i t n e s s e s *
A q u es
t i o n m ig h t be r a i s e d h e r e a s t o t h e e f f i c a c y o f a m eth o d w h ic h c a l l s , f o r th e
same d e p a r tm e n t r e v o k in g t h e l i c e n s e
and
h e a r in g t h e a p p e a l i n t h e c a s e . From th e f o r e g o i n g d i s c u s s i o n
it
is
e v id e n t th a t C a li
f o r n i a h a s a la w w h ic h w o u ld seem t o be f a i r l y a d e q u a t e w i t h r e s p e c t to th e l i c e n s i n g is
to sa y ,
o f f o s t e r hom es f o r c h i l d r e n ;
th a t
th e s t a t u t e p r o v i d e s p r o t e c t i o n f o r a l l c h i l d r e n
w i t h r e g a r d t o t h e i r c a r e i n hom es o t h e r th a n t h o s e own p a r e n t s ;
it
o f th e ir
c r e a t e s a c e n t r a l a u t h o r it y to a d m in is t e r th e
a c t and p r o v i d e s t h e m eans f o r i t s
e n fo r c e m e n t*
A t th e same
tim e t h e la w m akes p r o v i s i o n f o r t h e d e l e g a t i o n o f a u t h o r i t y s o t h a t t h e d e p a r tm e n t may s h a r e t h e r e s p o n s i b i l i t y f o r c a r r y in g i t
o u t , and h e n c e i t
f u r n i s h e s b o t h t h e m eans f o r u n ifo r m
r e g u la t io n s th r o u g h o u t th e its
a p p lic a t io n t o th e
The s t a t u t e
s t a t e , an d t h e o p p o r t u n i t y t o a d a p t
s i t u a t i o n i n a g i v e n l o c a l co m m u n ity .
g i v e s t h e c e n t r a l a u t h o r i t y t h e pow er t o
set
s t a n d a r d s f o r f o s t e r h o m e s, t o i n s p e c t th e m , and t o r e q u i r e r e p o rts.
F in a lly ,
w ith o u t a l i c e n s e
i t m akes th e o p e r a t i o n o f a b o a r d in g home a m isd e m ea n o r an d p u n i s h a b l e on t h a t b a s i s .
New Y ork S t a t e t o th e s i t u a t i o n
o f f e r s an i n t e r e s t i n g
stu d y in r e l a t i o n
in C a lifo r n ia b ecau se o f i t s
lo n g h i s t o r y o f
l o c a l or d e c e n tr a liz e d a d m in is tr a tio n o f poor r e l i e f . e a r l y a s 1 8 5 7 New Y ork a u t h o r i z e d t h e c a r e o f d e s t i t u t e
"As
c h ild r e n a t p u b lic e x p e n se o u ts id e Y ork g a v e up i n 1 8 7 4 t h e p r a c t i c e
a lm s h o u s e s .
**29
o f g r a n tin g s t a t e
B u t , New s u b s id ie s
t o c h i l d r e n i n i n s t i t u t i o n s and " in 1 8 7 5 i t p r o h i b i t e d th e c a r e o f c h i l d r e n i n a lm s h o u s e s t h u s l e a v i n g t o t h e l o c a l c o m m u n itie s t h e p r o b le m o f w h a t t o do w i t h th e a lm s h o u s e c h i l d r e n . . . . .W ith t h e s e c t a r i a n and n o n - s e c t a r i a n a g e n c i e s p r e s s in g f o r a s s is t a n c e ,
t h e la w p r o v i d i n g t h a t t h e c h i l d r e n
m u st be p l a c e d i n i n s t i t u t i o n s o f th e r e l i g i o u s f a i t h p a r e n ts,
o f th e ir
t h e s u b s i d y s y s t e m s w i t h p e r c a p i t a paym en t f o r t h e
c h i l d r e n becam e th e g e n e r a l m eth od o f c a r e a d o p te d b y t h e l o c a l c o m m u n i t i e s .**3^
T h is l o c a l e m p h a s is h a s r e m a in e d i n
New Y ork t o th e p r e s e n t t i m e .3 1 I n 1 9 3 4 th e l e g i s l a t u r e f o r th e l i c e n s i n g
o f New Y ork p l a c e d a l l a u t h o r i t y
o f f o s t e r hom es w i t h t h e D e p a r tm e n t o f S o c i a l
W e lf a r e a n d th e p r o v i s i o n w as p u t i n t o e f f e c t O c to b e r 1 , 1 9 3 6 .3 2 H e r e to fo r e
th e s t a t e
lic e n s e
had b e e n i s s u e d b y th e S t a t e B oard
o f H e a l t h . 33
^ 9 Id a H. C u r r y , U . S . B u rea u o f C e n s u s . P u b l i c C h ild C a r in g Work i n D u t c h e s s C o u n ty , New Y ork - C h ild C are P r i o r t o 1 9 1 7 . D e p a r tm e n t o f L ab or C h ild r e n * s B u re a u P u b l i c a t i o n N o. 1 7 3 . pp . 5 1 -5 2 . 3 ^ G race A b b o t t , ^
Op. C i t . , V . I I ,
I b i d * ? P* 1 2 2 . New Y ork L a w s, 1 9 3 4 , c .
^
Ib id . . Sec.
8.
802.
p. 10.
U n d er t h i s la w w h ic h i s
i n e f f e c t a t t h e p r e s e n t tim e
no p e r s o n i s p e r m i t t e d ,
**to r e c e i v e b o a r d o r k e e p a n y c h i l d
under s i x t e e n y e a r s o f ag e u n le s s c e r t i f i e d do s o , tio n
or l ic e n s e d
P r o v id e d h o w e v e r t h a t th e r e q u ir e m e n t s o f t h i s
to sec
s h a l l n o t e x t e n d t o r e l a t i v e s w i t h i n th e s e c o n d d e g r e e
o f th e p a r e n ts o f su ch c h i ld ed
(194-1)
g u a r d i a n s 1* ,34-
or c h ild r e n ,
an£ o t h e r s .
to l e g a l l y a p p o in t
An a u t h o r i z e d a g e n c y i s
per
m i t t e d t o p l a c e o u t c h i l d r e n t o hom es w h ic h t h e y t h e m s e l v e s have c e r t i f i e d . p er so n s r e c e iv in g
**An a u t h o r i z e d a g e n c y s h a l l i s s u e su ch c h ild
to th e
fo r board, a c e r t if ic a t e
p r e s c r i b e d and p r o v id e d b y th e
i n form
d e p a r t m e n t . **35
An a u t h o r i z e d a g e n c y m eans a n y a g e n c y , a s s o c i a t i o n , c o r p o r a tio n ,
in s titu tio n ,
s o c i e t y , and s o o n , w h ic h i s
” (1 )
in
c o r p o r a t e d o r o r g a n iz e d u n d e r th e la w s o f th e s t a t e w i t h c o r p o r a t e p o w e r , o r em p ow ered b y la w t o c a r e f o r ,
to p la c e
o r t o b o a r d o u t , c h i l d r e n ,* w h i c h a c t u a l l y h a s i t s b u s in e s s or p la n t in t h i s
p la c e
o u t, of
s t a t e and w h ic h i s a p p r o v e d , v i s i t e d
i n s p e c t e d , and s u p e r v i s e d b y t h e b o a r d o r w h ic h s h a l l su b m it and c o n s e n t t o th e a p p r o v a l , v i s i t a t i o n , v is io n
i n s p e c t i o n and s u p e r
o f t h e b o a r d a s t o a n y and a l l a c t s i n r e l a t i o n
^
I b id . . S e c tio n 3 0 4 , paragraph 1 .
^
I b id . . paragraph 2 .
t o th e
w e l f a r e o f c h i l d r e n p erfo rm ed under t h i s a r t i c l e , co u rt,
p u b lic board c o m m issio n i n s t i t u t i o n
(2 ) any
or o f f i c e r a u th o
r iz e d b y -la w to p la c e or board o u t c h i l d r e n . ” 3^
The a r t i c l e s
o f i n c o r p o r a t i o n o f c h i l d p l a c i n g a g e n c i e s m u s t be a p p r o v e d i n . t h e f i r s t p la c e by th e d ep artm en t o f w e lfa r e b e fo r e th e c h a r t e r of* i n c o r p o r a t i o n i s
issu e d .S '7
In a d d it io n to c e r t i f i c a t e s
is s u e d by a u th o r iz e d a g e n c ie s
l i c e n s e s a re i s s u e d to p e r so n s n o t c o n n e c te d w ith any c h ild p l a c i n g a g e n c i e s who w i s h t o b o a r d c h i l d r e n . so c e r t i f i e d
lfNo p e r s o n n o t
s h a l l r e c e i v e board or k eep any c h i l d
u n l e s s l i c e n s e d t o d o s o . w38
or c h i l d r e n
B e fo r e any su ch l i c e n s e
sh a ll
b e i s s u e d !,a n a u t h o r i z e d a g e n t o r e m p lo y e e o f t h e d e p a r t m e n t s h a l l v i s i t a n d I n s p e c t t h e p r e m i s e s f o r w h ic h s u c h l i c e n s e is
r e q u e s t e d , make s u c h f u r t h e r i n q u i r y and i n v e s t i g a t i o n a s
t h e d e p a r t m e n t may d i r e c t , w r itt e n r e p o r t .”3^
If
and f i l e
w it h th e d ep artm en t a
t h e i n q u i r y r e g a r d i n g t h e home i s
s a t i s f a c t o r y " th e co m m issio n er o f p u b lic w e l f a r e s h a l l c a u se su ch l i c e n s e
t o b e I s s u e d i n s u c h manner a s t h e b o a r d may
p r o v i d e ."40
The New Y ork s t a t u t e
th en , p r o v id e s fo r e it h e r c e r t i f i
c a t e s or l i c e n s e s f o r f o s t e r hom es.
The c e r t i f i c a t e s a r e
I s s u e d t o hom es u s e d b y c h i l d p l a c i n g a g e n c i e s and t h e l i c e n s e s
36
c it ♦ F raser,
Op. c i t . , p p . 1 2 - 1 3 .
38 New'York Laws 1 9 3 4 , c . 8 0 2 , 39 i b i d . , p a ra g ra p h 4 . 40 I b i d . , paragraph 5 .
s e c .,
304, paragraph 3.
are is s u e d to a l l
o th e r f o s t e r p a r e n ts , by th e
m en t o f s o c i a l w e l f a r e a f t e r o r an a u t h o r i z e d a g e n t .
in s p e c t io n .b y i t s
s ta te d e p a r t r e p r e s e n ta tiv e
The w o r d in g o f t h e la w s u g g e s t s t h a t
i n d i v i d u a l s a r e l i c e n s e d i n Hew Y ork r a t h e r th a n t h e h o m e s. N o th in g i s
s a id in
t h e la w h o w e v e r a b o u t c a r i n g f o r
c h i l d r e n i n u n l i c e n s e d h o m e s.
U nder t h e s t a t u t e a s i t
r e l a t i v e s may p l a c e c h i l d r e n i n f o s t e r h o m e s. c e iv a b le
It
is
sta n d s
con
t h e n t h a t c h i l d r e n who a r e p l a c e d i n hom es w h ere
th e ir r e la t iv e s
assu m e r e s p o n s i b i l i t y f o r th em , w o u ld n o t b e
a f f p r d e d th e p r o t e c t i o n o f t h e l i c e n s i n g la w .
The New Y ork
la w o p e r a t e s t o l i m i t s u c h p r o t e c t i o n t o l i c e n s e d h om es o n l y , w hen i t
sta te s
t h a t tfa n y home or p l a c e w h ere a c h i l d
or
c h ild r e n a re r e c e i v e d , b oard ed or k e p t under su ch l i c e n s e s , o r k e p t u n d e r s u c h l i c e n s e s o r c e r t i f i c a t e s , w h th e r o r n o t s u c h c h i l d r e n a r e m a in t a in e d a s p u b l i c c h a r g e s may b e v i s i t e d a t a n y tim e b y a u t h o r i z e d a g e n t s o r e m p lo y e e s o f t h e d e p a r t m en t f o r th e p r e v e n t i o n o f c r u e l t y t o c h i l d r e n . ” 41
And
l i c e n s e d hom es i n t u r n a r e l i m i t e d t o t h o s e u s e d o r a p p r o v e d b y th e a u th o r iz e d a g e n t s , A lic e n s e on e y e a r a f t e r
41 I b i d . ,
a n d /o r ,
i n New Y ork s t a t e
th e
i s v a l i d f o r f,n o t m ore th a n
t h e d a t e o f i s s u e 9 42
paragraph 1 0 .
42 i b i d . , p a r a g r a p h 7 .
s t a t e d e p a r tm en t.
may b e r e n e w e d or e x -
ten d ed s u b j e c t t o r u l e s e s t a b l i s h e d by th e b o ard . r u l e s do n o t is
stip u la te
th e p ro ced u re to be f o llo w e d ,
n e c e s s a r y t o a ssu m e t h a t i t
and i n s p e c t i o n s i m i l a r
T hese and i t
i s r e - i s s u e d upon a p p l i c a t i o n
to th e o r i g i n a l p roced u re*
No f e e . i s
s p e c i f i e d i n t h e New Y o rk la w f o r t h e h o l d e r s o f l i c e n s e s o f b o a r d i n g hom es f o r c h i l d r e n .
It
is
t h e r e f o r e a ss u m e d t h a t
th ere i s none. The New Y ork la w s p e c i f i c a l l y r e q u i r e s t h a t no l i c e n s e s h a l l b e i s s u e d u n t i l t h e home h a s b e e n v i s i t e d
and i n s p e c t e d
b y an a u t h o r i z e d a g e n t o r e m p lo y e e o f t h e d e p a r t m e n t . 4 3 a d d itio n to th e i n i t i a l
jn
i n s p e c t i o n w h i c h m u st b e o b s e r v e d ,
" e v e r y l i c e n s e d home s h a l l ,
i f p r a c t i c a b l e , be v i s i t e d by th e
d ep artm en t a t l e a s t fo u r tim e s i n e a ch y ea r th r o u g h i t s a u t h o r i z e d a g e n t s o r m p l o y e e s ," 4 4
p r o v is io n s r e q u ir in g
i n s p e c t i o n a r e i n c o n t r a s t t o t h e C a l i f o r n i a l a w w h ic h m akes in sp e c tio n d is c r e tio n a r y . A l i c e n s e may be w i t h h e l d i f th e
a f o s t e r home d o e s n o t m e e t
s t a n d a r d s s e t up b y t h e la w an d t h e a d d i t i o n a l r e q u i r e m e n t s
draw n up b y t h e
S t a t e D ep artm en t.
H ere a g a i n t h e a c t u a l s p e
c i f i c a t i o n s f o r b o a r d i n g hom es f o r c h i l d r e n a r e d e p a r t m e n t a l
^
, paragraph 5 .
44 I b i d . ,
paragraph 10.
61 r u l i n g s a nd t h e y a r e
s i m i l a r i n c o n t e n t t o t h o s e draw n up b y
t h e C a l i f o r n i a S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e * c o v er fo rm s f o r l i c e n s e s ,
a p p lic a tio n ,
and i n v e s t i g a t i o n p r o
c e d u r e s , r e q u ir e m e n ts f o r and a s t a t e m e n t a s t o , to be k e p t,
The r u l e s
th e r e c o r d s
and g e n e r a l c o n d i t i o n s t o b e o b s e r v e d .
The r e -
t
q u i r e m e n t s s t a t e t h a t t h e p e r s o n s t o whom a l i c e n s e may b e i s s u e d m u st b e o f g o o d c h a r a c t e r , m o r a l f i t n e s s and o f g o o d h e a l t h m e n t a l and p h y s i c a l *45
«phe m a r i t a l r e l a t i o n s and p e r
s o n a l p r o b l e m s m u s t b e s u c h a s t o p r e s e n t no s i t u a t i o n o r i r r e g u l a r i t y l i k e l y t o b e h arm fu l t o and t h e r e m u s t b e a n e x p r e s s e d l i k i n g lic e n se or c e r tif ic a t e liv in g
th e i n t e r e s t s o f c h ild r e n for
c h i l d r e n * « u 0
s h a l l b e i s s u e d t o a n y p e r s o n who i s
i n h e r own o r o t h e r home w i t h a man who i s n o t r e l a t e d
t o h e r b y b l o o d o r m a r r i a g e . 114 7
An a p p l i c a t i o n f o r a l i c e n s e
t o b o a r d c h i l d r e n may be made o n l y b y women u n d e r s i x t y y e a r s o f a g e and an a p p l i c a t i o n b y a m a r r i e d woman l i v i n g w i t h h e r h u sb a n d m u st b e a p p r o v e d b y him i n w r i t i n g *48 The r u l e s and r e g u l a t i o n s h o o d m u st be a r e p u t a b l e
one.
sta te
a lso
t h a t th e n e ig h b o r
Ther,e m u s t b e e a s y a c c e s s t o
R u l e s g o v e r n i n g t h e i s s u a n c e o f l i c e n s e s and c e r t i f i c a t e s t o board c h ild r e n . New Y ork S t a t e B oard o f S o c i a l W e l f a r e , pp* 3 and 4 . 46 i b i d . , p . 4 . 47 I b i d . 48 i b i d . , p . 2 .
6-2 s c h o o l and c h u r c h a n d t h e r e l i g i o u s f a i t h
o f th e c h ild i s
h e p r e s e r v e d h y p l a c i n g him i n a f a m i l y w h ic h i s f a i t h a s t h a t o f h i s p a r e n t s . 49 in g fo o d c lo t h in g s a n i t a t i o n , heds,
se p a r a tio n o f sex es
to
o f t h e same
T here a re p r o v i s i o n s c o v e r
s le e p in g q u a rters,
(a t fo u r)
in d iv id u a l
and so on*®0
c a n t i s n o t t o b e e m p lo y e d o u t o f h e r home.®-*-
The a p p l i
She m u st f u r
n i s h r e f e r e n c e s and th e f a m i l y m ust be i n a r e a s o n a b ly s e c u r e e c o n o m ic p o s i t i o n and s e l f s u p p o r t i n g a s i d e fr o m p a y m e n ts t o b e made f o r t h e b o a r d o f c h i l d r e n . on p u b l i c r e l i e f * ® ^ lim ite d to o n l y tw o i s
The f a m i l y m u s t n o t b e
The number o f c h i l d r e n i n a home i s
s i x e x c e p t i n c a s e s o f b a b i e s u n d e r t w o , w h er e p e r m i t t e d .® ®
In a d d itio n to a l l o f th e se r e q u ir e
m e n ts w h i c h a r e v e r y s i m i l a r s t a t e m e n t t h a t no l i c e n s e
to th e C a l i f o r n i a o n e s ,
th e
s h a l l b e i s s u e d t o a n y p e r s o n who
d o e s n o t speak th e E n g li s h la n g u a g e .® 4 sta tes
is
th a t e x c e p tio n s to th e r u le s ,
a
f i n a l paragraph
o th e r th an s t a t u t o r y r e
q u i r e m e n t s , may b e made u p o n w r i t t e n a p p r o v a l o f t h e d e p a r t m en t.
T h is l a s t p r o v i s i o n p e r m i t s some d i s c r e t i o n i n a p p l y -
49 I b i d . , p . 4 . 50 i b i d . . p p . 51 I b i d . . p .
7 and 8 . 6.
52 i b i d . 53 New Y ork Laws 1 9 3 4 . ,
o. 802.
®4 R u l e s g o v e r n i n g t h e I s s u a n c e o f L i c e n s e s , Op. C i t . , p . 6 .
New Y o r k .
63
i n g w h a t o t h e r w i s e w o u ld a p p e a r t o h e r i g i d r u l e s .
L ik e
C a l i f o r n i a * s r e g u l a t i o n s h o w e v e r , many o f t h e r u l e s a r e a c t u a lly g o a ls
t o he a c h i e v e d i n h o a r d in g hom es r a t h e r t h a n
e x a c t sta n d a r d s or r u l e s
t o h e m et and e n f o r c e d *
R e c o r d s m u st he k e p t h y f o s t e r hom es i n New Y ork a s i n th e c a se o f C a lif o r n ia .
I n t h e fo r m e r s t a t e
t h a t ’’e v e r y p e r s o n who r e c e i v e s , c h i l d r e n u n d e r su c h l i c e n s e cord in
h oard s,
t h e la w r e q u i r e s
o r k e e p s a c h i l d or
or c e r t i f i c a t e
s h a ll keep a r e
a r e g i s t e r 1* t o h e p r o v id e d h y th e d e p a r t m e n t ,
t h e nam e, d a t e o f h i r t h , r e c e iv e d ,
and r e l i g i o u s f a i t h
sh o w in g
o f each c h ild
t h e nam es a n d a d d r e s s e s o f h i s p a r e n t s , h i s g u a r d ia n s
o r o f t h e a u t h o r i z e d a g e n c y fro m whom r e c e i v e d , p e r s o n h y whom p l a c e d and h y whom r e m o v e d ,
and o f t h e
th e d a t e s o f
r e c e p t i o n an d r e m o v a l and s u c h o t h e r i n f o r m a t i o n a s may h e r e q u i r e d h y r u l e s e s t a b l i s h e d h y t h e b oard .**55
The p r o b le m
o f k e e p in g a d e q u a te and u n if o r m r e c o r d s i n h o a r d in g hom es t h r o u g h o u t t h e s t a t e may h e s i m p l i f i e d h y t h i s p r o v i s i o n w h ic h m ak es t h e s t a t e : , d e p a r tm e n t r e s p o n s i b l e f o r p r o v i d i n g th e r e g is t e r
its e lf
t o th e l i c e n s e d h o m e s.
I n New Y ork a p e r s o n v i o l a t i n g
any p r o v is io n o f th e
s e c t i o n o f t h e c o d e r e g a r d i n g l i c e n s i n g o f h o a r d in g hom es f o r c h ild r e n ,
o r o f t h e r u l e s an d r e g u l a t i o n s e s t a b l i s h e d h y t h e
5 5 New Y ork L aw s, 1 9 3 4 . ,
c.
802.
S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e p u r s u a n t t o t h e a r t i c l e is
g u ilty o f a
m is d e m e a n o r .^
S in c e o p e r a t i n g a b o a r d in g
home f o r c h i l d r e n w i t h o u t a l i c e n s e t h e la w ,
is
n o t a v io la tio n g o f
t h i s p r o v i s i o n m u st r e f e r t o c h i l d r e n n o t p l a c e d b y
r e la tiv e s . S e c tio n 3 0 4 , paragraph e le v e n , sta te s
o f t h e New Y ork c o d e
t h a t ttAny c e r t i f i c a t e may b e r e v o k e d f o r c a u s e b y t h e
a u t h o r i z e d a g e n t b y w h ic h i t w as i s s u e d o r b y t h e c o m m is s io n e r o f s o c i a l w e l f a r e who a l s o h a s th e p ow er t o rem ove t h e c h ild r e n .
When a l i c e n s e h a s b e e n o r d e r e d r e v o k e d ,
su ch
o r d e r s h a l l b e a d d r e s s e d t o t h e p e r s o n or o r g a n i z a t i o n w h ic h p la c e d
su ch c h ild or c h ild r e n ,
fo u n d ,
to
th e o f f i c e r
care o f d e s t it u t e
or i f
su ch p e r so n ca n n o t be
o r b o a r d c h a r g e d b y t h e la w w i t h t h e
c h i l d r e n and b r i n g t h e i r c a s e s b e f o r e t h e
c h ild r e n * s c o u r t o f th e c o u n ty or c i t y f o r a d j u d ic a t io n . a g e n t r e v o k in g a n y s u c h c e r t i f i c a t e
s h a ll a t once n o t if y
An th e
d e p a r tm e n t o f s u c h r e v o c a t i o n . f,57 U nder t h i s p r o v i s i o n is
th e l o c a l u n it or a u th o r iz e d a g e n t
g i v e n a u t h o r i t y t o e n f o r c e t h e p r o v i s i o n s o f t h e la w
t h r o u g h t h e p ow er w h ic h i t cen ses.
^
T h er e i s
h as to revok e c e r t i f i c a t e s
no s p e c i f i c
I b id .,
paragraph 1 3 .
Ib id .,
paragraph 11.
o r li*»
p r o v i s i o n i n th e la w f o r e i t h e r
a h e a r i n g o r an a p p e a l h y t h e f o s t e r p a r e n t s t h e m s e l v e s . It
i s e v id e n t th a t th e r e i s
some s i m i l a r i t y w i t h r e s
p e c t t o t h e New Y ork and C a l i f o r n i a s t a t u t e s r e g a r d i n g t h e l i c e n s i n g o f b o a r d i n g h o m e s , r e c o r d s t o h e k e p t h y th em , l a c k o f fe e s fo r lic e n s e s , But th e r e are a ls o
and s i m i l a r a g e r a n g e s f o r c h i l d r e n .
a number o f d i f f e r e n c e s w o r t h n o t i n g .
I n t h e f i r s t p l a c e t h e C a l i f o r n i a la w a f f e c t s a l l f o s t e r hom es a c c e p t i n g c h i l d r e n f o r teen .
c a r e who a r e u n d e r s i x
The hom es m u s t h e l i c e n s e d h y t h e S t a t e D e p a r tm e n t o f
S o c i a l W e l f a r e r e g a r d l e s s o f who p l a c e s them t h e r e . p r o v i s i o n c o v e r s " c o m m e r c ia l h o m e s" .
The
I n New Y o rk o n l y t h o s e
hom es a r e a f f e c t e d w h er e c h i l d r e n h a v e b e e n p l a c e d h y a u t h o r iz e d a g e n t s or e m p lo y e e s o f th e
s t a t e d ep a rtm en t.
l a t i v e s , may p l a c e c h i l d r e n a n y w h e r e . New Y o rk la w se e m s t o he t h a t t h e s t a t e
R e
The i m p l i c a t i o n o f t h e is
c h i e f l y concerned
w ith the w e lf a r e o f d ep en d en t o r d e lin q u e n t c h ild r e n i n f o s t e r hom es, and i t
fa ils
c h i l d r e n w h o se p a r e n t s , a s s i s t a n c e fr o m a p u b l i c
to r e c o g n iz e a r e s p o n s i b i l i t y fo r
g u a r d ia n s,
o r r e l a t i v e s do n o t a s k
or p r i v a t e w e lfa r e
t e c t i o n o f a l i c e n s e d home i s
agency.
The p r o
n o t g iv e n to th o s e c h ild r e n
w h o se r e l a t i v e s a r e i n d i f f e r e n t t o t h e i r c a r e and w e l l b e i n g i n f o s t e r hom es.
The c h a n c e s o f n e g l e c t ,
a b a n d o n m en t,
or
a b u s e i n t h e s e c a s e s a r e v e r y r e a l b u t o n l y l i c e n s e d h om es i n th e s t a t e a re in s p e c t e d f o r c r u e l t y to c h ild r e n .
66 It
i s a l s o e v i d e n t t h a t t h e e m p h a s is o f t h e New Y ork
sta tu te,
p r o b a b ly b e c a u se o f th e lo n g h i s t o r y o f l o c a l ad
m in is t r a t io n i n poor r e l i e f ,
i s f o c u s e d upon th e a d m in is t r a
t i v e r e s p o n s i b i l i t y o f th e a u t h o r iz e d agen t* th e u n it o f o p e r a tio n i s
The l a t t e r
as
d e sig n a te d to c a rr y o u t th e r u le s
and r e g u l a t i o n s o f t h e d e p a r t m e n t , and t h e p r o v i s i o n s o f t h e l a w , an d t o e n f o r c e i t w h i l e
th e S t a t e D epartm en t o f S o c i a l
W e lfa r e s u p e r v i s e s t h e a g e n t* The s t a t u t e s i n C a l i f o r n i a and New Y o r k a r e c o m p a r a b l e , how ever, b eca u se in b o th s t a t e s r esp e c t to
th e l i c e n s i n g
th e u lt im a t e a u t h o r it y w ith
o f f o s t e r hom es f o r c h i l d r e n i s
v e s t e d i n t h e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e . I n b o t h s t a t e s e a ch d ep a rtm en t i s p e r m itte d t o d e l e g a t e a u th o r ity to lo c a l u n i t s . d iffe r e n t in each s t a t e ,
some o f i t s
The m eth o d o f t h i s d e l e g a t i o n i s h o w e v e r , f o r i n New Y ork l o c a l
a g e n c i e s b o t h p u b l i c an d p r i v a t e may c e r t i f y hom es w h ic h t h e y th e m se lv e s u s e d .
I n C a l i f o r n i a o n l y a c c r e d i t e d a g e n c i e s w h ic h
a r e p u b l i c , may i s s u e l i c e n s e s
to f o s t e r hom es.
In p r a c tic e
h o w e v e r , p r i v a t e a g e n c i e s i n and n e a r San F r a n c i s c o i s s u e ’’p e r m it s * 1 t o hom es w h i c h t h e y u s e and s i n c e la w s p e c i f i e s p e r m it s a s an a l t e r n a t e w ith , l i c e n s e s ,
it is
p o ssib le
to ,
th e C a lif o r n ia
o r a s syn onym ou s
th a t t h is p r o v isio n a lso
a p p r o x i m a t e s t h e New Y ork s i t u a t i o n .
CHAPTER IV
THE ADMINISTRATIVE PROBLEMS IN THE LICENSING OP POSTER HOMES FOR CHILDREN IN CALIFORNIA The d i s c u s s i o n o f t h e d e v e lo p m e n t o f t h e in C a lifo r n ia ,
and t h e c o m p a r a t iv e a n a l y s i s o f th e la w s o f
C a l i f o r n i a and New Y o r k ,
i n th e f o r e g o in g c h a p te r s in d ic a t e
t h a t t h e p r o b le m s f a l l i n t o
th r e e g rou p s*
made up o f p r o b le m s w h ic h r e l a t e t o
The f i r s t
t h e la w i t s e l f ;
g r o u p i n c l u d e s t h o s e p r o b le m s w h ic h a r e r e l a t e d is tr a tiv e
s t a t e a u th o r ity
o r g a n iz a tio n ;
group i s th e
seco n d
t o t h e ad m in
and t h e t h i r d g r o u p i n c l u d e s t h o s e
p r o b le m s w h ic h i n v o l v e t h e r e l a t i o n s h i p
o f t h i s p rogram t o
th e t o t a l c h i ld w e lf a r e program . T h er e a r e t h r e e p r o b le m s w i t h r e s p e c t t o
th e C a l i f o r n i a
l i c e n s i n g la w w h ic h may b e s a i d t o b e i n h e r e n t i n t h e la w i t s e lf. (2 )
T h ey a r e
(1 )
t h e c o m p r e h e n s iv e n e s s o f t h e s t a t u t e ,
th e q u e s t io n o f th e d e l e g a t i o n
l i c e n s i n g f o s t e r h o m e s, and ( 3 )
o f th e a u t h o r it y f o r
th e a b sen ce o f a l e g a l r e
q u ir e m e n t m ak in g i n s p e c t i o n o f hom es m a n d a to r y . Law p r o v i d e s t h e im m e d ia te fram ew ork w i t h i n w h ic h p u b lic a d m in is tr a tio n o p e r a te s . In th e f i r s t p la c e s t a t u t o r y e n a c tm e n t s d e f i n e t h e t a s k s t o b e u n d e r t a k e n , e s t a b l i s h t h e m a jo r a d m i n i s t r a t i v e s t r u c t u r e , p r o v id e th e fu n d s and s e t f o r t h g e n e r a l r u l e s o f p r o c e d u r e and m e th o d s o f e n f o r c i n g c o m p lia n c e . O b v io u s ly th e form and c o n t e n t o f t h e la w may b e an a d m i n i s t r a t i v e a s s e t or l i a b i l i t y . 1 ^ L e o n a r d W h it e , An I n t r o d u c t i o n t o t h e S tu d y o f P u b l i c A d m i n i s t r a t i o n , p.. 11#
‘68 The c o m p r e h e n s i v e n e s s o f t h e s c o p e o f t h e la w may h e an a d m i n i s t r a t i v e
lia b ility
in th is s itu a tio n .
I t has been
p o i n t e d o u t i n t h e c h a p t e r on t h e d e v e l o p m e n t o f s t a t e a u t h o r i t y t h a t t h e a p p l i c a t i o n o f t h e la w t o hom es w h e r e c h i l d r e n are p la c e d th r o u g h arran gem en ts o f t h e i r p a r e n ts or g u a r d ia n s has been d i f f i c u l t . a ttem p ts to e n fo r c e
The p u f c l i c e
i s in c lin e d
to c o n sid e r th e
t h e la w i n s u c h i n s t a n c e s a s I n f r i n g e
m en ts o f p e r s o n a l r i g h t s . An a l t e r n a t i v e t o t h e c o m p r e h e n s i v e n e s s o f t h e s t a t u t e w o u ld be t o l i m i t i t s
scope#
S u ch a l i m i t a t i o n m i g h t mean
t h a t o n l y c h i l d r e n who came u n d e r t h e
ju r isd ic tio n of a
s o c i a l a g e n c y w o u ld b e a f f e c t e d b y t h e p r o v i s i o n s o f t h e l a w . I t I s a fu n d am en tal q u e s t io n i n th e f i e l d o f p u b lic w e l f a r e w h e th e r t h e f u n c t i o n o f th e S t a t e D ep artm en t o f S o c i a l W e lf a r e s h a l l b e l i m i t e d t o quent gro u p s,
t h e d e p e n d e n t and d e l i n
o r w h e t h e r i t may b e a ssu m e d t h a t a l l c h i l d r e n
u n d e r s i x t e e n i n and o f t h e m s e l v e s ,
are d ep en d en t.
c h i l d r e n are s e p a r a t e d from t h e i r p a r e n t s , in te r e sts
is
When
I t fo r th e b e s t
o f' s o c i e t y t h a t t h e s t a t e u n d e r t a k e t o
safeg u a rd
t h e i r w e l f a r e and i n s u r e t h e i r p r o t e c t i o n a g a i n s t a n y p o s s i b ility
of e x p lo ita tio n ,
r e g a r d le s s o f c o n n e c tio n s w ith p u b lic
i
or p r i v a t e s o c i a l a g e n c i e s ? The p r o b le m o f t h e d e l e g a t i o n o f a u t h o r i t y f o r t h e lic e n sin g
o f f o s t e r hom es f o r c h i l d r e n i n C a l i f o r n i a i s
d i r e c t l y r e l a t e d t o t h e la w I t s e l f .
a lso
I t has been In d ic a te d
p r e v io u s l y t h a t th e i n t e n t o f th e d e le g a te a u th o r ity fo r to p u b lic a g e n c ie s .
lic e n sin g
sta tu te
is
to r e s t r ic t
o f f o s t e r hom es f o r
th e
c h ild r e n ,
The S t a t e D e p a r tm e n t o f S o c i a l W e lf a r e
h a s i n t e r p r e t e d t h e l a w t o mean t h a t o n l y p u b l i c a g e n c i e s may b e s e t up a s a c c r e d i t e d o r i n s p e c t i o n a g e n t s . t a t i o n o f th e s t a t u t e i s tic e s
T h is i n t e r p r e
i n l i n e w i t h t h e m ore r e c e n t p r a c
o f p u b l i c a d m i n i s t r a t i o n w h er e p u b l i c a u t h o r i t y i s d e
le g a t e d o n ly t o o th e r p u b lic a g e n c ie s or d ep artm en ts*2 A lth o u g h p r i v a t e c h i l d are in c o r p o r a te d under th e
c a r in g a g e n c ie s i n C a lif o r n ia
sta te
la w ,
and l i c e n s e d b y t h e
s t a t e D ep artm en t o f S o c i a l W e lfa r e , t h e y a r e n o t d e s ig n a t e d a s a c c r e d i t e d or i n s p e c t i o n a g e n c i e s o r a g e n t s b y t h e D e p a r t m en t o f S o e i a l W e l f a r e .
N e v e r t h e le s s c e r t a i n a g e n c ie s i n or
n e a r San F r a n c i s c o a c t u a l l y c a r r y t h e f u n c t i o n o f i n s p e c t i o n . It is
c o n c e iv a b le
th e n t h a t t h e s t a t u t e m ig h t be i n t e r p r e t e d
or m o d ifie d i n order t o r e c o g n iz e
th is p r a c tic e .
L e o n a r d W h ite o f f e r s a n i l l u m i n a t i n g comment u p o n t h i s a tte m p t t o d i f f e r e n t i a t e b e tw e e n p u b l i c and p r i v a t e tio n s.
o r g a n iz a
He s u g g e s t s t h a t t h e o l d c a t e g o r i e s o f p u b l i c and
p r i v a t e u n d e r t a k i n g s a r e ftf r a y i n g a t t h e e d g e s . * g e n e r a tio n s o f l a i s s e z
2 A r lie n Johnson,
wS e v e r a l
f a i r e p o l i c y and o f t h e o r e t i c a l
0£. C i t . ,
p.
4*
710 e m p h a s is u p o n s o v e r e i g n t y a s t h e d i s t i n g u i s h i n g m ark o f o f f i c i a l a c t i o n h a v e a c c u s t o m e d u s t o draw a s h a r p and c l e a r l i n e b e t w e e n p u b l i c a n d p r i v a t e u n d e r t a k i n g s .1^
p Gr e x a m p l e ,
th e e s t a b lis h m e n t o f an orphanage by a r e l i g i o u s o r g a n iz a t io n is
a p r iv a te a f f a ir ;
th e l i c e n s i n g o f th e
i n s t i t u t i o n by th e
s t a t e i s a branch o f p u b lic a d m in is tr a tio n . t i n c t i o n c a n s t i l l e a s i l y be made i t
is
f,W h ile t h i s d i s
s ig n ific a n t th a t in
t e r m e d i a t e f o r m s a r e d e v e l o p i n g w h ic h b l u r t h e l i n e b e t w e e n t h a t w h ic h i s G a e s e r f s a n d t h a t w h ic h i s
n o t . ”4
The a b s e n c e o f a r e q u i r e m e n t i n t h e s t a t u t e m a k in g t h e i n s p e c t i o n o f f o s t e r hom es m a n d a to r y i s blem *
On t h e f a c e
of it ,
th ose a lr e a d y d is c u s s e d , th e la w ,
an oth er l e g a l p ro
i t may n o t seem a s i m p o r t a n t a s th at i s ,
th e c o m p re h e n siv en ess o f
and t h e d e l e g a t i o n o f a u t h o r i t y .
But p r i n c i p l e s o f
good p u b lic a d m in is t r a t io n s u g g e s t th a t i n s p e c t i o n i s
th e
m o s t a p p r o p r i a t e m ean s o f e n f o r c i n g a l i c e n s i n g l a w .
T h is
s u g g e s t i o n i s p a r t i c u l a r l y p e r t i n e n t when Mt h e
in d iv id u a ls
d i r e c t l y concerned are n o t in a p o s it io n to have r ec o u r se to th e o r d in a r y m eth od s o f th e
l a w ,
”5 as i s
3 L eonard W h ite, 0 £ . C i t . 9 p . 7 . 4 Ib id * , p . 8 . 5 I b id .» p. 495.
th e c a se w ith
71
c h ild r e n .
M oreover, " i n s p e c t i o n a l m eth od s f i t
la w e n f o r c e m e n t i n w h ic h i t
is
n ecessa ry to g iv e p erson al
in s tr u c tio n o f a te c h n ic a l ch a r a cter , as to c o m p l i a n c e w i t h t h e la w ." ®
t h e m eth o d o f
I n s p e c t i o n o f f o s t e r hom es f o r
c h i l d r e n a s i t r e l a t e s t o th e l i c e n s i n g la w , v isio n .
th e ty p e o f
im p lie s su p er
The " p e r s o n a l i n s t r u c t i o n o f a t e c h n i c a l c h a r a c t e r "
th rou gh f i e l d
s u p e r v i s i o n o f t h e s t a t e d e p a r t m e n t b e c o m e s an
e d u c a tio n a l r a th e r th a n a l e g a l p r o c e ss* p r e v io u sly in d ic a te d i t
As i t h a s b e e n
i s d i f f i c u l t t o d i s t i n g u i s h b etw een
t h e te r m s s u p e r v i s i o n and a d m i n i s t r a t i o n , b u t c e r t a i n l y t h e i n s p e c t i o n o f f o s t e r hom es f o r c h i l d r e n i m p l i e s a n a p p r o a c h th rou gh c o u n s e l l in g ,
a d v i s i n g , p e r s u a d i n g and c o o p e r a t i n g
w i t h f o s t e r hom es a n d l o c a l a g e n c i e s . It is
t r u e t h a t I n th e C a l i f o r n i a
s i t u a t i o n th e S ta te
D e p a r tm e n t o f S o c i a l W e l f a r e h a s e n d e a v o r e d t o make up f o r th e o m is s io n i n th e s t a t u t e by i n s i s t i n g upon th e i n i t i a l i n s p e c t i o n o f hom es b e f o r e i s s u i n g l i c e n s e s . b e e n sh ow n ,
it
is
as i t has
a lm o st im p o s s ib le t o m a in ta in a fo lld w -u p
i n s p e c t i o n s e r v i c e w ith th e l im i t e d a b le a t th e p r e s e n t tim e on b o th th e
® Loc. c it*
B u t,
s t a f f s w h ic h are a v a i l sta te
and l o c a l l e v e l s .
72 The i n c l u s i o n o f a p r o v i s i o n i n t h e l a w r e q u i r i n g i n s p e c t i o n w o u ld be o f a s s i s t a n c e i n f o c u s i n g a t t e n t i o n o f th e s e r v ic e ,
on t h e i m p o r t a n c e
and l e g a l r e c o g n i t i o n w o u ld be a s t e p to w a r d
e s t a b l i s h i n g t h e m ean s t o c a r r y o u t t h e l a w i n an a c c e p t a b l e m anner. The s e c o n d g r o u p o f p r o b le m s c o n n e c t e d w i t h t h e s t a t e * s s u p e r v i s i o n o f t h e l i c e n s i n g o f f o s t e r hom es f o r c h i l d r e n , r e la te d in
to th e a d m in is tr a tiv e o r g a n iz a tio n .
tu rn be s u b d iv id e d in t o
(1 )
l a t i o n s h i p among m a j o r s t a t e and l a r g e r l o c a l u n i t s
is
T h e s e p r o b l e m s may
t h o s e h a v i n g t o do w i t h t h e r e
d e p a r t m e n t s and b e t w e e n s m a l l e r
su ch a s th e tow n , c i t y ,
p r i v a t e w e l f a r e a g e n c i e s , a n d (2 )
c o u n ty , and th e
t h o s e w h ic h r e l a t e t o a p p r o
p r i a t i o n s f o r t h e w ork a n d t h e s e c u r i n g o f
s u f f i c i e n t a nd
com p eten t p e r s o n n e l. The f i r s t
o f t h e s e p ro b le m s r e v o l v e s arou n d th e d i f f i
c u l t i e s e n c o u n te r e d i n i n t e g r a t i n g and c o r r e l a t i n g t h e l i c e n s i n g p rog ram w i t h t h e f u n c t i o n s o f o t h e r s t a t e d e p a r t m en ts.
F o r e x a m p le ,
on t h e s t a t e l e v e l i t
w ork w i t h t h e C o n t r o l l e r ' s o f f i c e , a n d s o m e t im e s t h e A t t o r n e y G e n e r a l . o f S o c i a l W e lfa r e i t s e l f
i s n e c e s s a r y to
th e D e p a r t m e n t o f H e a l t h , W i t h i n t h e D e p a r tm e n t
t h e work o f t h e s t a t e a i d d i v i s i o n s ,
th e c h i ld w e lfa r e s e r v i c e s , and th e D iv is io n
o f A d o p tio n s,
c l o s e l y a s s o c i a t e d w i t h t h e f o s t e r home p r o b l e m . in d ic a te d
is
I t has been
i n C h a p t e r I I t h a t t h e d i s t i n c t i o n s made b e t w e e n
t h e a c c r e d i t e d and i n s p e c t i o n a g e n c i e s ,
h a v e t e n d e d t o com
p l i c a t e t h e a d m i n i s t r a t i v e p r o b le m i n r e s p e c t u n d e r s ta n d in g o f t h e la w .
to th e p u b l i c ' s
The a d d i t i o n a l d i r e c t i n s p e c t i o n
73 o f hom es by t h e r e p r e s e n t a t i v e s o f t h e b o a r d i n g home d i v i s i o n h a s in c r e a s e d th e c o m p lic a tio n f a r t h e r .
G race A b b o tt i n
The G h i l d and t h e S t a t e h a s made a s u g g e s t i o n t h a t be p e r t i n e n t t o t h i s w h o l e q u e s t i o n . o l d e r c h i ld r e n w ere in c lu d e d
se e m s t o
"As b o a r d i n g hom es f o r
in th e l i c e n s i n g
system ,
th ere
h a s b e e n i n some s t a t e s a n u n n e c e s s a r y am ount o f i n s p e c t i o n and l i c e n s i n g .
I f an a g e n c y i s
l i c e n s e d and s u p e r v i s e d t h e r e
i s no r ea so n f o r l i c e n s i n g and in s p e c t i n g th e in d iv id u a l b o a r d i n g hom es i t v isit
uses.
The s t a t e s h o u l d h a v e t h e r i g h t t o
a n y f o s t e r home and o r d e r t h e r e m o v a l o f a c h i l d i f
f i n d s t h e home u n s u i t a b l e . cord s,
v isits
it
In a d d it io n t o r e a d in g c a s e r e
c a n b e made t o d e t e r m i n e t h e c h a r a c t e r o f t h e
w ork, a p r i v a t e a g e n c y or l o c a l governm ent i s d o u b le sy stem o f v i s i t a t i o n r o u t in e and c a s u a l ,
is
un n ecessary,
d o in g .
But a
t e n d s t o becom e
and h e n c e much l e s s
u s e f u l t h a n a m ore 7 c a r e f u l s t u d y o f random s a m p l e s o f a g e n c y w o r k . " ' A n o t h e r a s p e c t o f t h e p r o b le m o f r e l a t i o n s h i p s i s
o f th e r e l a t i o n s b etw een s t a t e and l o c a l u n i t s , say,
th at i s
th a t to
b e t w e e n t h e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e a n d t h e
s o c i a l a g e n c ie s i n l o c a l c o m m u n itie s.
To a c e r t a i n
ex ten t,
t h e q u e s t i o n s p e r t a i n t o t h e p r o b le m s o f d e l e g a t e d a u t h o r i t y w h ic h w e r e p r e v i o u s l y d i s c u s s e d tio n s
o f th e la w .
H ow ever,
in c o n n e c tio n w ith th e l i m i t a
in t h i s
in s ta n c e th e y in c lu d e
t h o s e r e l a t i o n s m a i n t a i n e d b e t w e e n t h e D e p a r tm e n t o f S o c i a l
7
A b b ott,
ojD. c i t . ,
p. 19.
W e l f a r e and l o c a l m a in te n a n c e o f
a g e n c ie s b oth p u b lic
th ese
and p r i v a t e .
The
in te r a g e n c y r e l a t i o n s h i p s on a b a s i s
o f m u tu a l u n d e r s t a n d i n g d e p e n d s u p o n t h e k n o w le d g e o f t h e D e p a r t m e n t o f S o c i a l W e l f a r e o f t h e s i t u a t i o n s i n l o c a l com m u n itie s r e g a r d in g
s o c i a l a g e n c i e s a n d com m u nity r e s o u r c e s ,
and a r e c o g n i t i o n o n i t s p a r t o f t h e v a r i a t i o n s i n p r o b le m s b e t w e e n u r b a n and r u r a l c o m m u n i t i e s w i t h r e g a r d t o t h e f o s t e r home p r o g r a m . The q u e s t i o n s o f i n a d e q u a t e f u n d s a n d l a c k o f s t a f f perm eate a l l o f th e d i f f i c u l t i e s w it h r e s p e c t to th e a d m in is t r a t i o n or o f s u p e r v is o r y c o n t r o l .
On t h e s t a t e
le v e l i t has
b e e n i n d i c a t e d t h a t t h e t o t a l number o f s o c i a l w e l f a r e a g e n t s a p p ro x im a te d th e
six ty -fiv e
b o a r d i n g hom es i n c o u n t i e s ,
i n 1 9 4 0 and t h a t t h e l i c e n s i n g o f or th e
s u p e r v is io n o f th e l i c e n s
in g f u n c t io n o f th e a c c r e d it e d a g e n c ie s i s
c a r r ie d a lo n g w ith
o t h e r d u t i e s r e l a t e d more s p e c i f i c a l l y t o t h e p u b l i c a s s i s ta n c e program s o f th e p r e s e n t d a y .
The o r g a n i z a t i o n o f s t a f f
on e i t h e r an i n t e g r a t e d b a s i s or a s p e c i a l i z e d o n e , p r e s e n t s a number o f p r o b l e m s i n o p e r a t i o n .
The q u e s t i o n o f how many
f u n c t i o n s s h o u l d b e b r o u g h t t o g e t h e r u n d e r an i n t e g r a t e d fie ld
s t a f f a n d how b e s t t o d i s t r i b u t e
th ese
fu n c tio n s w ith
r e s p e c t t o t h e w ork o f t h e d e p a r t m e n t i t s e l f and i t s
opera
t i o n on th e v a r io u s l e v e l s o f a d m in is t r a t io n ,
i s one f o r
w h ic h t h e r e i s n o a n s w e r i n t h e f i n a l
The p u r p o s e o f
in te g r a tio n i s
sen se.
to e lim in a te o v e r -m u ltip lic a tio n o f f i e l d
7$ a g en ts,
and t o s u b s t i t u t e
a w e ll b a la n c e d f i e l d
d u t i e s an d r e s p o n s i b i l i t i e s
are c o r r e l a t e d .
e lim in a t e w a ste i n p e r s o n n e l, and i t
s t a f f w h ose
I t p u rp orts to
e q u ip m e n t and o p e r a t i n g e x p e n s e s
a ls o e lim in a t e s c o n f l i c t w ith r e s p e c t to th e i n t e r p r e
t a t i o n o f p o l i c y r u l e s a n d r e g u l a t i o n s and t h e l a w . In th e f i e l d
o f c h ild w e lfa r e
b een a cco m p lish ed in a ll
o f th e s t a t e
w e lfa r e d iv is io n * p o s s ib ilitie s , fo r c h ild r e n ,
in te g r a tio n of s t a f f has
some s t a t e s t h r o u g h t h e o r g a n i z a t i o n o f
s e r v ic e s p e r ta in in g to c h ild r e n in to a c h ild S u ch a n a r r a n g e m e n t t e n d s t o e l i m i n a t e
th e
o f t h e f u n c t i o n o f l i c e n s i n g o f f o s t e r h om es f o r e x a m p l e , fro m b e i n g
su b m erged b y e m e r g e n
c i e s a n d p r e s s u r e o f w ork i n o t h e r d i v i s i o n s . ® The p r o b l e m s w i t h r e s p e c t t o m oney and s t a f f o n t h e s t a t e l e v e l r e s o l v e th e m s e lv e s i n t o an i n a b i l i t y t o c o v e r th e t e r r ito r y g e o g r a p h ic a lly ,
t o p l a n w o rk w i t h t h e l o c a l a g e n c i e s
t o h e l p w i t h t h e i r p ro b lem s o f i n t e g r a t i o n , h e a lt h d ep artm en ts, boards o f s u p e r v is o r s , l a y c o m m i t t e e s and s o o n .
The p r a c t i c e
to co o p era te w ith ju v e n ile c o u r ts,
o f a c tu a lly in s p e c t
i n g hom es b y t h e s t a f f o f t h e s t a t e d e p a r t m e n t f o r p u r p o s e s of lic e n sin g
th em , or f o r c h e c k i n g hom es l i c e n s e d b y a c c r e d i t
ed a g e n c i e s ,
becom es im p o s s ib le w it h a l i m i t e d
8
sta ff,
and t h e
The C h i l d W e l f a r e D i v i s i o n s o f t h e s t a t e s o f I n d i a n a and W a s h in g t o n a r e e x a m p l e s o f t h i s p l a n o f i n t e g r a t i o n .
76 w h o le q u e s t i o n o f t h e e d u c a t i o n o f t h e com m u n ity i n g e n e r a l and o f f o s t e r p a r e n t s i n p a r t i c u l a r b e c o m e s a h o p e f o r t h e fu tu re. On t h e l o c a l
l e v e l t h e p r o b le m s h a v e b e e n e x p r e s s e d i n
t h e r e f u s a l o r r e l u c t a n c e o f t h e h e a l t h and c o u n t y w e l f a r e d ep artm en ts to a c c e p t th e r e s p o n s i b i l i t i e s a c c r e d ite d a g e n c ie s . a n d /o r c o u n ty ,
as i n s p e c t i o n or
As t h e e x a m p le o f L o s A n g e l e s ,
in d ic a te d ,
c ity
t h e demand f o r f o s t e r h om es f o r
c h i l d r e n i n t h e c i t y l i m i t s was so g r e a t t h a t t h e c a r r y i n g o u t o f t h e p r o v i s i o n s o f t h e la w and t h e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e , m e a n t t h e a d d i t i o n o f more p e r s o n n e l , i n t u r n , m eant a g r e a t f i n a n c i a l burden f o r e i t h e r
w h ic h ,
th e c i t y
or c o u n ty . I n r u r a l a r e a s t h e p r o b le m t a k e s o n a d i f f e r e n t e m p h a s is f o r h e r e t h e c o u n t y may n o t c o n s i d e r t h a t i t i s n ecessary to f o r th e m ,
s e t a sid e
s p e c i a l w o r k e r s f o r a p r o b le m w h i c h ,
is r e la tiv e ly in s ig n ific a n t.
c o u n tie s are lo a th
fu n d am en tal to i t s
situ a tio n
t o a p p r o p r i a t e m on ey f o r a p r o g r a m w h i c h
i s b y la w e s s e n t i a l l y a s t a t e f u n c t i b n ; a u th o r itie s b e lie v e
In e it h e r
and b e c a u s e t h e
sta te
t h a t t h e lo c a l* a s p e c t o f t h e p r o b le m a r e . s u c c e s s f u l o p e r a tio n ,
th e f i n a n c i a l r e s
p o n s i b i l i t y i s n o t a ssu m e d on e i t h e r l e v e l o f o p e r a t i o n . ^
9
B i e n n i a l R e p o r t S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e , 1 9 4 0 , p . 49#
7? The l a s t g r o u p o f p r o b le m s c o n n e c t e d w i t h t h e l i c e n s i n g o f b o a r d i n g hom es f o r c h i l d r e n i s n o t p e c u l i a r t o a n y s t a t e or c o u n ty b u t i n c l u d e s t h o s e p r o b le m s w h ic h i n v o l v e t h e r e l a t i o n s h i p o f t h i s program t o t h e t o t a l c h i l d w e l f a r e p r o g r a m . The r e l a t i o n s
i n c l u d e t h o s e c o n n e c t e d w i t h t h e s e t t i n g up and
m a in t a in in g o f s t a n d a r d s f o r b o a r d in g hom es, o f baby fa rm s,
th e p r e v e n tio n
o r t h e r e g u l a t i o n o f c h i l d r e n ’ s hom es a s a
c o m m e r c ia l e n t e r p r i s e ,
th e c h a r a c te r o f th e f o s t e r p a r e n ts ,
and t h e p r o b l e m s o f c a s e w ork i n v o l v e d i n c h i l d p l a c e m e n t . T h ey a l s o i n c l u d e t h o s e p r o b le m s p e r t a i n i n g t o com m u n ity o r g a n i z a t i o n s u c h a s t h e c o o r d i n a t i o n and i n t e g r a t i o n o f t h e s e r v i c e s o f a g e n c ie s i n g iv e n c o m m u n itie s, th e ir
se r v ic e s,
th e e v a lu a t io n o f
th e p r e v e n tio n o f d u p l i c a t i o n o f work,
th e e d u c a t io n o f th e g e n e r a l p u b lic
to w a r d a b e t t e r u n d e r
s t a n d i n g o f t h e b o a r d i n g home p rog ram and i t s c o m m u n ity .
The l a t t e r i s
f u n c t io n i n th e
a p r o b le m i n t h e f i e l d
o f so c ia l
w ork w h i c h e x t e n d s b e y o n d i n t e r - a g e n c y r e l a t i o n s h i p s co m m u n ity a s a w h o l e .
The l e g a l r e s t r i c t i o n s
m e r c i a l hom es f o r c h i l d r e n , sta n d or f a l l what i s
in r e la t io n
to th e
a g a i n s t com
and a g a i n s t b a b y f a r m s , w i l l
to th e p u b l i c ’ s u n d e r sta n d in g o f
i n v o l v e d i n t h e s i t u a t i o n an d w h a t i t s m e a n in g i s t o
them s o f a r a s t h e w e l f a r e o f t h e i r cerned.
and
fu tu re c it iz e n s i s
con
V i o l a t i o n s o f t h e la w and d i f f i c u l t i e s w i t h i t s
forcem en t are d i r e c t l y r e la t e d to
en
t h e c o n c e p t s w h ic h a com
m u n i t y h a s t o w a r d t h e c a r e and p r o t e c t i o n o f m in o r c h i l d r e n .
C o n s e q u e n t l y many o f t h e p r o b l e m s w h ic h a r i s e i n c o n n e c t i o n w it h th e l i c e n s i n g a b le
to th e
sta te
o f b o a r d i n g hom es f o r c h i l d r e n a r e t r a c e o f e n lig h t m e n t o f the body p o l i t i c ,
t h e im p o r ta n c e o f t h i s
fu n c tio n in th e c h ild care f ie ld *
I t fo llo w s th en th a t i f W e lfa r e i s
aw are o f i t s
as to
th e S t a t e D ep artm en t o f S o c i a l
r e s p o n s i b i l i t y f o r e d u c a tin g th e
c o m m u n ity , f i n a n c i a l and s t a f f p r o b le m s a l s o b e c o m e l e s s d i f f i c u l t f o r w hen g r o u p s o f c i t i z e n s a r e c o n v i n c e d o f t h e n e c e s s i t y o f a program ,
and when i t h a s m e a n in g f o r th e m ,
g r o u p s t h e m s e l v e s a ssu m e r e s p o n s i b i l i t y f o r
it,
p o i n t o f p r o v i d i n g f u n d s w i t h w h ic h t o c a r r y i t To su m m a rize t h i s d i s c u s s i o n b r i e f l y : p r o b le m s o f t h e l i c e n s i n g in to th ree groups. i n t h e la w i t s e l f ,
the
o u t.*
th e a d m in is tr a tiv e
o f f o s t e r hom es f o r c h i l d r e n f a l l
There a r e (2 )
ev en to
th e
(1 )
t h o s e w h ic h a re i n h e r e n t
t h o s e w h ic h are r e l a t e d t o
th e ad
m i n i s t r a t i v e p la n o f o r g a n i z a t i o n t h a t i s d e v e lo p e d a s th e m ean s o f c a r r y i n g o u t t h e l a w , id e n tifie d
and ( 3 )
t h o s e w h ic h may b e
as b e in g r e l a t e d to th e t o t a l c h ild w e lfa r e pro
gram and i m p l i c i t i n t h e w ork i t s e l f .
A n sw e r s t o
b le m s c a n i n no s e n s e b e f i n a l o r c o n c l u s i v e , m u la te d o n ly i n
th e c o u r s e o f tim e .
b e in g done by th e b e s t s t a t e
and a r e f o r
"The s u p e r v i s i o n now
a g e n c ie s i s
a g r e a t im p r o v e m e n t
o v e r fo r m e r s t a n d a r d s a n d m e th o d s o f w o r k . c o m p lete d .
th ese pro
The t a s k i s n e v e r
S t a n d a r d s c h a n g e a s new m e t h o d s o f o r g a n i z a t i o n
and t r e a t m e n t a r e d e v e l o p e d ,
and a g e n c i e s and i n s t i t u t i o n s
v a ry g r e a t l y w ith ch an ges in a d m in is tr a tiv e s t a f f . s t a t e d ep artm en t o f p u b lic w e lf a r e task i s
a p r o g r e s s i v e one*
A b b ott,
s h o u l d assum e t h a t t h e
A n n u a l l i c e n s i n g m akes t h i s
p o s s i b l e w i t h a minimum o f f r i c t i o n as n e c e s s ity r e q u ir e s,
if
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c o u r a g e o u s l y u s e d . 1* ^
Op. C i t . ,
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p. 19.
sk illfu lly
and,
BIBLIOGRAPHY
BIBLIOGRAPHY A.
STATE STATUTES AND REPORTS
B i e n n i a l R e p o r t s o f t h e S t a t e B o a r d o f C h a r i t i e s and C o r r e c tio n s 1904-1924* Sacram en to, S t a t e P r i n t i n g O f f ic e B i e n n i a l R e p o r ts o f t h e S t a t e D ep artm en t o f P u b lic W e lf a r e , 1 9 2 4 - 1 9 2 6 , w i t h a d d i t i o n a l d a t a fr o m 1 9 2 2 - 1 9 2 4 , Sacram en to, S t a t e P r i n t i n g O f f i c e , B i e n n i a l R e p o r t s o f t h e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e 1928-1940* S acram en to, S t a t e P r i n t i n g O f f i c e , C a lif o r n ia R ep o rts 1 8 8 8 , O ffic e .
V. 7 7 .
Sacram en to,
S ta te P r in tin g
C a l i f o r n i a S t a t e B o a r d o f C o n t r o l , B u re a u o f C h i l d r e n * s A id Report 19 1 6 -1 9 1 8 , S acram en to, S t a t e P r i n t i n g O f f i c e . C a l i f o r n i a S t a t e D e p a r tm e n t o f F i n a n c e , B u re a u o f C h i l d r e n * s A id R e p o r t 1 9 2 0 - 1 9 2 2 . Sacram en to, S t a t e P r in t in g O ffic e • C a l i f o r n i a S t a t u t e s , 1 8 5 0 t o 1 8 7 9 , and 1 9 0 3 , Sacram en to, S t a t e P r i n t i n g O f f i c e ,
1925,
1939.
F o u r t h B i e n n i a l R e p o r t o f t h e S t a t e B oard o f H e a l t h , Sacram en to, S t a t e P r i n t i n g O f f i c e . S t a t e o f C a l i f o r n i a H e a l t h and S a f e t y C o d e , 1 9 3 9 . S ta te P r in tin g O ffic e .
1877.
Sacram en to
S t a t e o f C a l i f o r n i a W e l f a r e an d I n s t i t u t i o n s C o d e , 1 9 3 9 . S acram en to, S t a t e P r i n t i n g O f f i c e . New Y ork L a w s. 205.
S u p p lem en t,
B.
1 9 3 4 , C h ap ter 8 0 2 ;
1935,
ch a p ter
BOOKS AND ENCYCLOPEDIA
A b b o t t , G r a c e . , The C h i l d and t h e S t a t e , V. I I . C h icago:; The U n i v e r s i t y o f C h ic a g o P r e s s , 1 9 3 8 . 665 pp .
B r e c k e n r id g e , S o p h o n isb a P . , P u b lic W e lfa r e A d m in is t r a t io n i n t h e U n i t e d S t a t e s . 2d e d . C h ic a g o : The U n i v e r s i t y o f C h ic a g o P r e s s , 1 9 3 8 . 1228 pp. Cahn, P r a n c e s and V a l e s k a B a r y , W e l f a r e A c t i v i t i e s o f F e d e r a l S t a t e and L o c a l G o v e r n m e n ts i n C a l i f o r n i a 1 8 5 0 - 1 9 3 4 . B e rk eley : U n iv e r s it y o f C a lif o r n ia P r e s s , 1 9 3 6 . 442 p p . F r a s e r , G la d y s G e n e v r a , The L i c e n s i n g o f B o a r d i n g Homes ■ M a t e r n i t y Homes and Ch33d W e l f a r e A g e n c i e s . C h ic a g o : U n i v e r s i t y o f C h ic a g o P r e s s . 1937. 107 pp. H u s t o n , W e n d e l l , S o c i a l W e l f a r e Laws o f F o r t y - E i g h t S t a t e s . S e a ttle : W e n d e l l H u s to n Company, 1 9 3 7 . 2 v . in c lu d d s su p p lem en t 1939• J o h n s o n , A r l i e n , P u b l i c P o l i c y a n d P r i v a t e C h a r i t i e s , C h ic a g o U n i v e r s i t y o f C h ic a g o P r e s s , 1 9 3 1 . 239 pp. The J o u r n a l o f S o c i a l Work P r o c e ss V o l. I l l , e d it e d by J e s s i e T a f t , S o c i a l C a se Work w i t h C h i l d r e n , P h i l a d e l p h i a : U n iv e r s it y o f P e n n sy lv a n ia P r e s s , 1 9 3 9 . 237 pp. R o b i n s o n , V i r g i n i a , S u p e r v i s i o n i n S o c i a l C ase Work. H i l l , N orth C a r o lin a P r e s s . 1936. 199 pp.
C hapel
S c h n e i d e r , D a v i d M ., The H i s t o r y o f P u b l i c W e l f a r e i n New Y o rk S t a t e 1 6 0 9 - 1 8 6 6 . C h ic a g o : U n i v e r s i t y o f C h ic a g o P ress, 1938. 385 pp. S l i n g e r m a n , W i l l i a m , C h i l d W e l f a r e Work i n C a l i f o r n i a . New Y o rk : R u s s e l l Sage F o u n d a tio n , 1 9 1 5 . 247 pp. S o c i a l Work Y ea r Book 1 9 3 9 , R u s s e l l K u r t z , R u s s e l l Sage F o u n d a tio n . 730 pp.
e d ito r .
New Y o r k t
S t e i n e r , J e s s i e F r e d e r i c k , Com m unity O r g a n i z a t i o n : A S t u d y o f I t s T h e o r y and P r a c t i c e . New Y o rk : C e n t u r y Company, R e v ise d e d i t i o n , 1 9 3 9 . 6 11 p p . F r e u n d , E r n e s t , L i c e n s i n g , The E n c y c l o p e d i a o f t h e S o c i a l S c i e n c e s , V o lu m e 9 . New Y ork: M c M illa n Company, 1 9 3 3 . pp. 4 4 ^ -451.
C.
MAGAZINE ARTICLES AND PAMPHLETS
D u n c a n , S h i r l e y , tfSome P r a c t i c a l A s p e c t s o f t h e P o s t e r Home P r o g r a m ,” C a l i f o r n i a C h i l d r e n * D e p a r tm e n t o f S o c i a l W e l f a r e , V. 2 . , 1 9 3 9 . (M im e o g r a p h e d ). S t a t e o f C a l i f o r n i a , D epartm en t o f S o c i a l W e lf a r e , D i v i s i o n o f B o a r d i n g Homes a n d I n s t i t u t i o n s . wMinimum R e q u i r e m e n t s f o r B o a r d i n g Homes f o r C h i l d r e n , ” Form BHC, r e v is e d February 1941. O u t l i n e o f P r o g r a m , M arch 1 9 4 0 . (M im e o g ra p h e d ) S u g g e s t i o n s f o r I n s p e c t i o n P r o c e d u r e - B o a r d i n g Homes fo r C h ild r e n . J u ly 1939. ( MimeographecO S t a t e o f New Y o r k , The S t a t e D e p a r t m e n t o f S o c i a l W e l f a r e , The S t a t e B o a r d o f S o c i a l W e l f a r e . ” R u l e s G o v e r n in g t h e I s s u a n c e o f L i c e n s e s a n d C e r t i f i c a t e s t o B oard C h i l d r e n ” . May 7 , 1 9 4 1 . ”V o lu m e , D i s t r i b u t i o n and C o s t o f C h i l d D e p e n d e n c y I n New Y o r k , ” 1 9 3 3 . S u p e r v is io n as an A d m in is tr a tiv e P r o c e ss C o n tr ib u tin g to S t a f f D e v e lo p m e n t. P r e p a r e d by t h e B ureau o f T e c h n ic a l T r a in in g B ureau o f P u b lic A s s i s t a n c e , S o c i a l S e c u r it y B oard, F e d e r a l S e c u r i t y A g e n c y . W a s h i n g t o n , N ovem ber, 1 9 4 0 . U. S . B u r e a u o f C e n s u s . P u b l i c C h i l d C a r i n g Work i n D u t c h e s s C o u n t y , New Y o r k . - C h i l d C are P r i o r t o 191*7. U. S . D e p a r tm e n t o f L a b o r , C h i l d r e n ’ s B u r e a u P u b l i c a t i o n N o. 1 7 3 , b y H. I d a C u r r y . W a s h in g to n : G overn m en t P rin tin g O ffic e . 1925. pp. 5 1 -5 9 .
APPENDIX
LAWS RELATING TO THE DEPARTMENT OP SOCIAL WELFARE C h ap ter 3 6 9 — S t a t u t e s o f 1937 E f f e c t i v e May 2 5 ,
1937
( E x t r a c t f r o m W e l f a r e and I n s t i t u t i o n s C o d e) DIVISION I I . PART 3 .
CHILDREN
INSTITUTIONS FOR CHILD CARE, AND HOMEFINDING AGENCIES. C h a p te r 1 .
L i c e n s e s and I n s p e c t i o n s
1620. No p e r s o n , a s s o c i a t i o n , o r c o r p o r a t i o n s h a l l , w ith o u t f i r s t h a v in g o b ta in e d a w r i t t e n l i c e n s e or p e r m it t h e r e f o r fr o m t h e S t a t e D e p a r t m e n t o f S o c i a l W e l f a r e or fr o m an i n s p e c t i o n s e r v i c e a p p r o v e d o r a c c r e d i t e d b y t h e D e p a r t m ent : (a ) M a in ta in or c o n d u ct any i n s t i t u t i o n , b o a r d in g ho m e, d a y n u r s e r y , o r o t h e r p l a c e f o r t h e r e c e p t i o n or c a r e o f c h i l d r e n under s i x t e e n y e a r s o f a g e , nor engage i n th e b u s i n e s s o f r e c e i v i n g or c a r i n g f o r s u c h c h i l d r e n , n o r r e c e i v e n o r c a r e f o r a n y s u c h c h i l d i n t h e absencfe o f i t s p a r e n ts or g u a r d ia n , e i t h e r w ith or w ith o u t c o m p en sa tio n . (b) E n gag e i n t h e f i n d i n g o f h om es f o r c h i l d r e n u n d e r s i x t e e n y e a r s o f a g e o r p l a c e a n y s u c h c h i l d i n a n y home or o t h e r p l a c e , e i t h e r f o r t e m p o r a r y o r p e r m a n e n t c a r e or f o r a d o p tio n . 1621. The S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e s h a l l make s u c h r u l e s and r e g u l a t i o n s a s i t d eem s b e s t f o r t h e g overn m en t o f any i n s t i t u t i o n or f o r th e p erfo rm a n ce o f any s e r v i c e s p e c i f i e d i n s e c t i o n 1 6 2 0 o f t h i s c o d e and t h e d e p a r t m e n t may, b y a m em ber, o r a n y d u l y a u t h o r i z e d r e p r e s e n t a t i v e , i n s p e c t and e x a m in e a n y s u c h i n s t i t u t i o n , hom e, o r p l a c e , or t h e p e r f o r m a n c e o f a n y s u c h s e r v i c e . 1622. The S t a t e D e p a r t m e n t o f S o c i a l W e l f a r e may d e l e g a t e s u c h o f i t s a u t h o r i t y a s i t d e e m s b e s t t o an a p p r o v e d and a c c r e d i t e d i n s p e c t i o n s e r v i c e . T h i s s e r v i c e s h a l l be e i t h e r th e h e a l t h d e p a r tm en t o f a c o u n ty or o t h e r p o l i t i c a l s u b d i v i s i o n w h ic h m a i n t a i n s a t l e a s t o n e r e g u l a r l y l i c e n s e d
p h y s ic ia n or a q u a l if i e d s o c i a l s e r v ic e d ep a rtm en t, e it h e r o f w h ic h h a s b e e n a p p r o v e d i n w r i t i n g b y t h e S t a t e d e p a r t m e n t * 16 23* A p e r m it or l i c e n s e is s u e d by th e S t a t e D ep a rt m en t o f S o c i a l W e l f a r e o r b y an a p p r o v e d and a c c r e d i t e d i n s p e c t i o n s e r v i c e s h a l l e x p i r e t w e l v e m o n th s fro m i t s d a t e o f issu a n ce* 1624* A p p lic a t io n f o r r en ew a l o f a p e r m it or l i c e n s e s h a l l be f i l e d t e n d a y s p r io r t o i t s e x p i r a t i o n e a ch y e a r . I f the a p p l i c a t i o n i s n o t so f i l e d , th e l i c e n s e or p e r m it i s a u to m a tica lly can celed . 1625. P e r m i t s o r l i c e n s e s may b e r e v o k e d f o r c a u s e a f t e r a h e a r i n g b e f o r e t h e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e or a n a p p r o v e d and a c c r e d i t e d i n s p e c t i o n s e r v i c e . .W r i t t e n n o t i c e o f t h e t i m e a n d p l a c e o f s u c h h e a r i n g and o f t h e c h a r g e s made a g a i n s t t h e h o l d e r o f t h e p e r m i t o r l i c e n s e s h a l l b e d u l y s e r v e d on h im n o t l e s s t h a n t e n d a y s p r i o r t o t h e tim e f i x e d f o r such h e a r in g . 1626. No l i c e n s e s h a l l be t r a n s f e r r e d * N e ith e r th e l o c a t i o n o f a n y i n s t i t u t i o n , b o a r d i n g hom e, o r o t h e r p l a c e s p e c i f i e d i n s e c t i o n 1620 o f t h i s code nor th e p la c e o f p e r fo r m a n c e o f a n y s e r v i c e s p e c i f i e d t h e r e i n s h a l l b e c h a n g e d w i t h o u t t h e w r i t t e n c o n s e n t o f t h e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e , o r o f an a p p r o v e d o r a c c r e d i t e d i n s p e c t i o n s e r v i c e . 1627. E v e r y h o l d e r o f a p e r m i t o r l i c e n s e s h a l l m a in t a i n a r e g i s t e r s e t t i n g f o r t h th e f o llo w in g f a c t s c o n c er n in g e a c h c h i l d u n d e r t h e a g e o f s i x t e e n y e a r s r e c e i v e d or c a r e d f o r , o r p l a c e d i n a n y home b y s u c h l i c e n s e h o l d e r : (a) Name. (b ) L a st p r e v io u s a d d re ss. ( c ) A ge. (d ) N earest o f k in . (e) M o t h e r ’ s m a id e n nam e. (f) P e r so n r e s p o n s i b l e f o r h i s c a r e and m a in te n a n c e . (g ) S u ch o t h e r d a t a a s t h e S t a t e D e p a r t m e n t o f S o c i a l W e lfa r e r e q u i r e s . ^ 1628. Upon t h e o c c u r r e n c e o f a n y d e a t h s o f c h i l d r e n o r c h a n g e s i n t h e a d m i n i s t r a t i v e p e r s o n n e l o f a n y s u c h hom e, t h e h o ld e r o f th e l i c e n s e or p e r m it s h a l l , w i t h i n f o r t y - e i g h t h o u r s , g i v e w r i t t e n n o t i c e t h e r e o f t o t h e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e o r t o t h e a p p r o v e d and a c c r e d i t e d i n s p e c t i o n s e r v i c e b y w h ic h s u c h l i c e n s e o r p e r m i t w a s i s s u e d . 1629. Any p e r s o n , a s s o c i a t i o n , o r c o r p o r a t i o n t h a t m a i n t a i n s , c o n d u c t s , o r , a s m an ager o r o f f i c e r o r i n a n y o t h e r a d m i n i s t r a t i v e c a p a c i t y , a s s i s t s i n m a i n t a i n i n g or c o n d u c t i n g a n y i n s t i t u t i o n , b o a r d i n g hom e, o r o t h e r p l a c e o r th e p erfo rm a n ce o f a n y s e r v i c e s p e c i f i e d i n s e c t i o n 1620 o f t h i s cod e w ith o u t f i r s t h a v in g s e c u r e d a l i c e n s e or p e r m it t h e r e f o r i n w r i t i n g , or r e f u s e s t o p e r m i t o r i n t e r f e r e s w i t h th e i n s p e c t i o n a u t h o r iz e d i n s e c t i o n 1621 o f t h i s c o d e , i s
g u i l t y o f a m is d e m e a n o r • 1630. The d i s t r i c t a t t o r n e y o f e v e r y c o u n t y s h a l l , upon a p p l i c a t i o n b y t h e S t a t e D ep artm en t o f S o c i a l W e lfa r e o r i t s a u t h o r i z e d r e p r e s e n t a t i v e s , o r h y an a p p r o v e d and a c c r e d i t e d i n s p e c t i o n s e r v i c e , i n s t i t u t e and c o n d u c t t h e p r o s e c u tio n o f any a c t i o n brough t f o r th e v i o l a t i o n w it h in h i s c o u n ty o f any o f th e p r o v i s i o n s o f t h i s c h a p t e r .
S ta te o f C a lifo r n ia DEPARTMENT OF SOCIAL WELFARE S a c r a m e n to DIVISION OF BOARDING HOMES AND INSTITUTIONS
OUTLINE OF PROGRAM CHILD PLACING AGENCIES ( S e c t i o n 1 6 2 0 - b ) A c h i l d p la c in g a g e n c y i s a s o c i a l a g en cy h a v in g a q u a lifie d
s o c i a l s e r v i c e d ep artm en t engaged i n th e f i n d i n g
o f h om es f o r c h i l d r e n u n d e r t h e a g e o f s i x t e e n , m en t o f s u c h c h i l d r e n f o r f o s t e r home c a r e . a g e n c y l i c e n s e s are r en ew a b le a n n u a lly .
and t h e p l a c e
C h ild p l a c i n g
M o n t h ly r e p o r t s a r e
s u b m i t t e d t o t h e S t a t e D e p a r tm e n t o f S o c i a l W e l f a r e , F o llo w in g i s
a lis t
o f th e c h i l d p l a c in g a g e n c ie s o f
th e S ta te : 1.
* * A ffilia te d C a th o lic C h a r itie s 620 D a l z i e l B u ild in g 5 3 2 - 1 5 t h S t r e e t , O ak lan d
8.
C o u n c il o f J e w ish Women, 2 1 4 Loma D r i v e Los A n g e le s,
2,
^ A lam eda C o u n ty C h a r i t i e s C o m m is s io n , 4 2 0 Broadw ay O a k la n d ,
9,
J e w i s h O rp han s Home o f S ou th ern C a l i f o r n i a 10219 E x p o s i t i o n B lv d Los A n g e le s
3.
C a t h o l i c W e l f a r e B u re a u 3 3 3 W e st 2nd S t , L o s A n g e l e s
1 0 ,.
- ^ L i t t l e C h il d r e n * s A id 9 9 5 M a rk et S t r e e t San F r a n c i s c o
4,
C a t h o li c W e lfa r e B ureau 9 2 4 - l l t h S t r e e t , S a c r a m e n to
11.
Long B e a c h F a m i l y W e l fa re A s so c ia tio n 1 2 0 W. 4 t h S t . Long Beach
89 4.
^ C h i l d r e n 1s A g e n c y o f San 1 2 . F r a n c isc o 1 0 1 0 Gough S t r e e t San F r a n c is c o
^ P a c i f i c H ebrew Orphan A sy lu m & Home S o c i e t y 1 1 Homewood T e r r a c e , S an F r a n c i s c o .
6.
C h ild r e n 's P r o te c tiv e A s so c ia tio n 2 8 2 4 H yans S t r e e t Los A n g e le s .
S a c r a m e n to O rphanage & C h il d r e n * s Home 2 7 5 0 S u t t e r v i l l e R oad , S a c r a m e n to
7.
C h u r ch F e d e r a t i o n o f L o s A n g ele s 6 8 9 Chamber o f Commerce B u il d i n g , Los A n g e le s .
13.
I n o r d e r t o m e e t co m m u n ity n e e d s , w hereby t h e s e a c tiv itie s ,
a g e n c ie s,
in a d d itio n to t h e ir c h ild p la c in g
have been g iv e n a u th o r ity to is s u e
w r itte n p e r m is s io n .(n o t a lic e n s e ) The f o r m s a r e W e lfa r e , to
2 .9 .4 0
fo r t h e ir
a form o f
own p l a c e m e n t s .
s u p p lie d b y th e S t a t e D ep artm en t o f S o c i a l
and c o p i e s o f t h e p e r m i s s i o n s a r e f o r w a r d e d m o n t h l y
th e S t a t e o f f i c e .
days,
a p l a n w as w o rk ed o u t
T h i s p r o c e d u r e w as e s t a b l i s h e d
in e a r ly
and i s n o t b e i n g c o n s i d e r e d f o r a n y o t h e r a g e n c i e s .
F o rm
BHC
5
(re v ise d )
February, 1941
S ta te o f C a lif o r n ia D e p a r tm e n t o f S o c ia l W e lf a r e
M inim um R equ irem en ts fo r B oarding H om es fo r C hildren
STATE OF CALIFORNIA D E P A R T M E N T OF SOCIAL W ELFARE D IV IS IO N OF B O A R D IN G HOM ES A N D IN S T IT U T IO N S 540 V A N N E S S A V E N U E , S A N F R A N C IS C O 1101 W A S H IN G T O N B U IL D IN G , 311 S O U T H S P R IN G S T R E E T , LO S A N G E L E S 616 K
STR EET, SACRAM ENTO
M inimum Requirements For Boarding Homes For Children License "Requirements N o person, association, or corporation shall, w ithout first having obtained a w ritten license or perm it therefor from the State D epartm ent o f Social W elfare or from an inspection service approved or accredited by the department: (a) M aintain or conduct any institution, boarding home, day nursery, or other place for the reception or care o f children under sixteen years o f age, nor engage in the business o f receiving or caring for such children, nor receive nor care for any such child in the absence o f its parents or guardian, either w ith or w ithout compensation. ( b ) "Engage in the finding o f homes for children under sixteen years o f age, or place any such child in any home or other place, either for temporary or permanent care or for adoption.” (Sec. 1620 Wei. and Inst. Code.) "The State D epartm ent o f Social W elfare shall make such rules and regulations as it deems best for the proper administration o f this chapter and m ay delegate such o f its authority as it deems best to an approved and accredited inspection service.” (Secs. 1621 and 1622 W ei. and Inst. Code.) "A perm it or license shall expire tw elve months from its date o f issuance. A pplication for renewal o f a perm it or license shall be filed w ith the licensing agency ten days prior to its expiration each year. Permits or licenses m ay be revoked for cause after a hearing before the licensing agency. N o license shall be transferred nor the place o f perform ance o f any service specified therein changed w ithout the w ritten consent o f the licensing agency.” (Secs. 1623, 1624, 1625 and 1626 W ei. and Inst. Code.) Every holder o f a permit or license shall maintain a register setting forth the follow ing facts concerning each child under the age o f sixteen years received or cared for, or placed in any home by such license holder: (a) "N am e; ( b) last previous address; ( c ) age; ( d ) nearest o f kin; (e ) m other’s maiden name; ( / ) person responsible for his care and maintenance; ( g ) such other data as the State D epart m ent o f Social W elfare requires.” (Sec. 1627 W ei. and Inst. Code.) "U pon the occurrence o f any deaths o f children or changes in the administrative personnel o f any such home, the holder o f the license or permit shall, w ithin forty-eight hours, give w ritten notice thereof to the licensing agency.” (Sec. 1628 W ei. and Inst. Code.)
"The performance o f any service specified in section 1620 o f this code w ithout first having secured a license or permit therefor in w riting, or refusal to permit or interference w ith the inspection authorized in section 1621 o f this code, is a misdemeanor.” (Sec. 1629 W ei. and Inst. Code.) "The district attorney o f every county shall, upon application by the licensing agency institute and conduct the prosecution o f any action brought for the violation w ithin his county o f any o f the provisions o f this chapter.” (Sec. 1620 W ei. and Inst. Code.)
1 • D efin itio n A boarding home for children is a private fam ily home w hich accepts one or more children to board w ith or w ithout compensation, except that this does not apply to the boarding o f nieces, nephews, grandchildren, brothers, or sisters.
2.
N u m b e r a n d T y p e o f C h ild ren
The license w ill specify the number, sex, age, and other lim itations as to children w ho m ay be boarded. N o exception m ay be made w ithout the approval o f the State D epartm ent o f Social W elfare or o f the A ccredited A gency w hich licenses the home. (a) Since the boarding home is primarily a fam ily home, the number o f children in it shall not exceed the number w hich it is custom ary to think o f as constituting a normal fam ily group. The number o f children under 16 years o f age in the household o f a licensed home shall not exceed six, except w ith special approval o f the Departm ent o f Social W elfare. ( b ) A ge and sex w ill be determined by consideration o f the sleeping quarters and other environ mental factors affecting the safety and welfare o f the children. (c ) Licensed homes are expected to board children whose religious background is the same as that o f the foster parents, in order that all denominations m ay have the fair and just assurance o f the religious training w hich the parent o f the child w ould desire. ( d ) N o more than tw o infants under tw o years o f age shall be allowed in any boarding home under the supervision o f one adult. I f tw o such infants are cared for, no additional children m ay be boarded unless there is another adult to share supervision.
3.
F am ily C o n d itio n s
(a) The mother m ust be o f suitable age, education, and temperament to care for children. The mental and physical health o f each member o f the fam ily m ust be good. ( b ) A ll members o f the household m ust be o f good character, habits, and reputation. ( c ) The applicant m ay not be employed outside o f her home. (id ) There shall be no m entally defective person in the fam ily or household,; either child or adult. ( e ) N o adult roomers or boarders shall be permitted. ( / ) Hom es where parents and their children are being cared for, can not be perm itted to board other children w ith out their parents.
(g ) D uring the absence o f the foster mother, children must be left in charge o f a com pe adult. If absence is to exceed tw en ty-fo u r hours, the licensing agency and the child placing agency m ust be notified imm ediately, and, if possible, in advance. {h) Children shall be boarded only in homes in w hich a suitable standard o f care and com fort is maintained w ithout the incom e derived from the board o f children in the home. The m oney received for the care o f a child above the am ount required for such necessary food, clothing, and other supplies as the foster m other has agreed to provide, shall be regarded as legitim ate profit.
(/) Satisfactory references must be furnished from persons who know the applicant in her ow n home as a housekeeper and a homemaker, and who can vouch for her integrity and suitability as a foster mother.
A.
H ou sin g
( a) The home m ust conform in building and maintenance to the housing, sanitary, and fire safety ordinances o f the State, city, and county, and be endorsed by the local health officer or a repre sentative o f the State D epartm ent o f Social W elfare. ( b ) The home m ust be in a residence district (not commercial or factory) w ith sufficient room to accommodate the fam ily group and boarded children in a com fortable and sanitary w ay, and w ith yard space sufficient for a home playground for the children. ( c ) The home m ust be in a district where the children can attend a school w hich is w ithin convenient distance. Each child shall be given an opportunity to attend Sabbath school or a church o f the religious faith o f the parents. ( d ) Sleeping rooms m ust afford at least 500 cubic feet o f space for each occupant, and each bed room m ust have sufficient outside windows. N o child m ay sleep in a room opening onto an inner court. (e) Children shall sleep in bedrooms, have individual beds, and must be under close supervision and w ithin call o f an adult at night. N o boarding child shall sleep in a detached building, or in any unfinished attic, basement, stair hall, or room com m only used for other than bedroom purposes. ( / ) Boys and girls over three years o f age shall sleep in separate rooms. years o f age shall not sleep in the same room w ith an adult o f the opposite sex.
Children over three
(g ) Each bed shall have a good spring, a clean, com fortable mattress, adequate bedding, and rubber sheeting for infants and wetters. Each bed shall have but one occupant. ( h ) Fireplaces and open faced heaters m ust be protected by screens. vented and installed w ith permanent connections and protectors.
Gas heaters m ust be
(i) There m ust be adequate provision for the proper care o f foods. (;) Rooms m ust be com fortably furnished, and provision m ust be made for the proper care of clothing and personal belongings.
5.
H e a lth o f C h ild ren
( a) Before admission to the home each child should be taken to a physician or to a health center for a physical examination, results o f w hich shall be given to the foster mother. (b) Foster mothers are urged to take their children to health centers at regular intervals; infants no less than once a m onth. ( c) Proper medical attention shall be provided at all times. ( d ) Every child shall have a bath no less than tw ice a week, and infants up to tw o years shall be bathed every day. ( e ) Individual hair and tooth brushes, towels, and other necessary toilet articles m ust be pro vided, and each child shall be trained in their proper use. ( / ) Children under sixteen years shall not be required to do w ork other than school tasks and simple home duties, providing these do not interfere w ith schooling, necessary recreation and health. (g ) D uring the absence o f the foster mother, children must be left in charge o f a com pe tent adult.
6.
D ie t o f C h ild ren
(a) The dietary m ust be wholesome, nutritious, and suitable for the children o f various ages: meat, eggs, or fish; vegetables (including leafy green vegetables) ; fru it (including citrus fru it) ; cereals (including whole grain cereals) ; sugar, butter, and m ilk shall be served daily. N o butter substitute shall be served to children. ( b ) Formulae for infants should be prescribed by a physician. ( c ) Each child under six years o f age m ust have at least one quart o f milk per day. Each child over six years one pint o f m ilk per day. Milk m ust be either pasteurized or from tuberculosis free cows. (d ) W ith due consideration to age and special needs, children shall have their meals w ith members o f the household.
7.
D isciplin e
Corporal punishment must not be given boarding children. Foster mothers are urged to con sult w ith the licensing agency for advice and literature on problems o f behavior in children.
8.
R e p o rts
(a) T he law requires that a register shall be kept in w hich the name o f the child, the last previous address, age, nearest of kin, m other’s maiden name, person responsible for his care and m ainte nance, amount o f board paid, dates o f visits to clinics or physicians, date o f removal o f child from the home, the name and address of person m aking the removal, and reason for removal. The parents o f the child should be required by the foster mother to keep her inform ed o f their present address. A record o f children boarded during the past year is required before renewal o f license is granted. ( b ) D eath or any illness of a child must be reported at once to the licensing agency and to the parent or guardian o f the child. The law requires that the licensing agency must be notified in w riting w ithin 48 hours of any changes in the personnel o f the home. ( c ) Failure to make reports m ay constitute cause for revocation o f license. (d ) A n y change in the management or address o f the home nullifies the existing license, and a new application m ust be made at once for another license. (e) N ewspaper offices have been requested to ask to see the license before publishing an adver tisement for any home for children.
rm
BH C 1 (revised)— N ovem ber, 1940
STA TE OF C A LIFO R N IA
vm ™
D E P A R T M E N T O F SO C IA L W E L F A R E D IV IS IO N OF B O A R D IN G HOM ES A N D IN S T IT U T IO N S
A P P L IC A T IO N FO R LIC E N S E [C are of C h ild ren ] [.
N
ame
of
A
p p l i c a n t ______________________________________________________________________________________________________________________________ F I R S T N AME
N
ame of
H
M A I D E N N AM E
F A M I L Y N AM E
u s b a n d ___________________________________________________________ ______________________________________________________________________ FIRST NAME
M ID DLE NAME
Address: Street------------------------------------------------
L AST NA ME
T ow n____ _____________ County_____________________ Phone____________________
Directions for reaching H om e by street car and automobile_______________________________________________________________________
[. A p p lic a n t’s H o u se h o ld (Including applicant) Age
NAME
S
ex
FA M IL Y R E LA TI O N TO A pp l ic a n t
O c c u pa t io n
Monthly
E mployer
e a r n in g s
P
hysical
and
H
Mental ealth
$
B O A R D IN G C H IL D R E N Da te
Name
of
Birth
S
F
ex
rom
W
hom
R
eceiv ed
— Address
P
Date R eceiv ed
Ra t e
of
P ay
h ysical
Mental H ealth
and
$
O T H E R P E R SO N S I N H O U S E H O L D Name
Age
S
ex
R ela tio n
to
A ppl ic a n t
O cc u pa t io n
P hy sica l Men ta l H ealth
and
[. Place of birth —
A pplicant__________________________Year o f Birth______________Race___________________ Religion___________ Husband----------------------------------------- Year o f Birth--------------------- Race---------------------------- Religion___________ Grade last com pleted in school— A pplicant---------------------------------------------------------..Husband--------------------------------------------------------( Place________________________________ ) Married < > Single □ Divorced □ W idow □ Separated Q I D ate_________________________________ J Are you engaged in any other occupation than care o f your household and children?
I f so, what?----------------------------------
Length o f residence in State______________________________________________________In C ounty-------------- 1---------------W hat is total fam ily income per month? $------------------------------------------ Source------------------------------------------------------Hom e owned in full?___________________ Amount o f equity $_______________________ A m ount o f mortgage $_______ A m ount o f rent or m onthly paym ent $------------------------------- A m ount o f yearly taxes $--------------------------------------------
IV.
H ow m any children do you wish to board?__________________Ages___________________Sex_______________________________________
V . W ould each child have a room alone?_________________ If not, w ith whom?____________________________________________________ V I. W ould you be w illing to take a child to clinic?_______________________________________________________________________________ N am e and address o f fam ily physician_________________________________________________________________________________________ H ealth condition o f applicant_______________________________________________________________________________________________ Are you w illing to have this Department communicate w ith your physician for medical information about yourself and members o f your fam ily?_________________________________________________________________________________________________________ V II. Discuss fu lly if your home offers special care or advantages to any particular type o f child________________________________________
Provision for recreation_______________________________________________________________________________________________________
N am e o f and distance to elementary school. Junior H ig h ------------------------------------------------------------------------ Senior_H igh______________________________________________________ /III. H ousing— Type o f structure________________________ N o. o f rooms_______________________ N o . o f bedrooms___________________ IX. Sleeping Q uarters— List all sleeping quarters in the home including number, size and type o f bed (single, double, cot or crib)
Bedro o m s
U p s t a ir s C heck
Do w n sta ir s C heck
S
ize
N um ber of W in d o w s
NU M B E R AND TY PE OF B ED S
Name
of
Occupants
St________ d________ d________ th_______ th __ C.
From w hat agencies do you expect to receive children?_____________________________ W hat is the lowest rate at w hich you would board children?
$________________ per.
State reasons for wishing to take children into your h o m e_________________________
O.
R e fe r e n c e s (n ot relatives or business firms)
Name
Ad d ress
Town
W h at Is N a t u r e
of
A c q u a in t a n c e !
,
j
[S ig n a t u r e
of
W
if e
] _______________________ USE FULL GIVEN NAME
)ate o f application
[ S i g n a t u r e o f H u s b a n d ] _______________________ USE FULL GIVEN NAME
Length
of
A c q u a in ta n c e
F o rm
B.H.C. 2 (revised) — 'November, 194
S tate o f C a lif o r n ia D epa rtm en t o f S o c ia l W elfa re
'R eference f o r L icen se to C a re f o r C h ild re n
S T A T E O F C A L IF O R N IA
DEPARTMENT OF SOCIAL WELFARE 616 K S T R E E T , S A C R A M E N T O 5 40 V A N N ESS A V E N U E , S A N F R A N C IS C O 1101 W A S H IN G T O N B U I L D IN G , 311 S O U T H S P R IN G S T R E E T , LO S A N G E L E S
R EFER E N C E FO R LICEN SE T O C A R E FO R C H IL D R E N To________________________________________________
has applied to the D epartm ent o f Social W elfare for a license to board children in her home and has given your name as a reference. W e shall appreciate your giving us a confidential report on this home, answering the follow ing questions and giving any additional inform ation w hich w ould be helpful to us in determining whether or not a license should be granted. Are you related to the applicant by kinship, marriage, or business connections?___________________________________________ H ow long have you know n the applicant and her husband?________________________________________________________________ D o you consider them reliable and responsible persons to care for children?_________________________________________________ H ave they boarded children before?--------------------- W hen?------------------------------------------- Where?______________________________
Is the home com fortable and the housekeeping o f such a standard that you would be w illing to place your child in their home?
Are you confident that they w ill be kind to any child placed w ith them?.
W ill they give a child proper medical attention?-------------------------------------------------------------------------------D o you believe that the applicant and fam ily have good m ental and physical health?___________________ D o you know o f any reason w h y their home m ight not prove a suitable one for children?______________
C o m m e n t -------
Da te_________________________________
[ S i g n a t u r e J____________ ____________________ O ccupation__________________________________________
[I N F O R M A T I O N W IL L BE C O N S ID E R E D S T R IC T L Y C O N F ID E N T IA L ]
W ill yo u k in d ly rep ly b y retu rn m ail in order to expedite action on this application$ 1774
6 -4 1
BM
SPO
orm B.H.C. 3 (revised) A pril, 1940 TA T E O F C A L I F O R N I A EPARTM ENT O F SO C IA L W E L FA R E
p p lic a tio n f o r R e n e w a l of . S T A T E O F C A L IF O R N IA icense— C a re o f C h ild re n ______________________________________________ ___ „ _
_
DEPARTMENT OF SOCIAL WELFARE A pp lication For R en ew a l o f License— Care o f C hildren
[To be filled out in duplicate in applicant’s own handwriting and returned to State Department of Social W elfare] fame o f applicant------------------------------------------------- _____________ ...i._______________________ D a te o f application _____________________ (Given Name) (Maiden Name) (Family Name) :reet address----------------------------------------------------- T o w n ________________________ C o u n ty _________ _________ _______
T elephone_____
Erections for reaching your hom e________________________________________________________________________________________________ lace o f birth------------------------------------
_____________________ Year o f birth
elig io n : S elf----------------------------------H u sban d------ ----------------------------- Married
.
—_______________________ R ace___________ Single__________W id o w __________D ivorced .
rade last com pleted in school_________________________-...—.W here?____________________ _______________________ ___________________ low m an y children do yo u w ish to board?____________________A g es_____________________ „___________ Sex_________________________ low and b y w hom are children brou ght to you ?______ __________________________________________________________________ _________ t w h a t rate w ou ld y o u board children?_________ _________________________________________________________________________________
A P P L IC A N T ’S H O U SE H O L D FAMILY NAME
Sex
R e l a t io n t o A p p l ic a n t
O c c u p a t io n
M onthly E a r n in g s
P h y s ic a l a n d M e n t a l H ealth
R ate o f P ay
P h y s ic a l a n d M e n t a l H ealth
B O A R D IN G C H IL D R E N NAME
\
D ate o f B ir t h
S ex
F r o m W h o m R e c e iv e d N a m e a n d A dd ress
D ate R e c e iv e d
O T H E R PER SO N S IN H O U SE H O L D NAME
Sex '
R e l a t io n t o A p p l ic a n t
O c c u p a t io n
[REVERSE SIDE OF T H IS BLA N K M UST BE FILLED O U T ]
P h y s ic a l a n d M e n t a l H e a l t h
as each child a room alone?
If not, w ith whom?
as each child a bed alone?— rhat changes have occurred in your fam ily or house since issuance o f former license?.
visions for medical supervision and care______________________________________
I
1 name and address o f fam ily physician_______________________________________
re you engaged in any other occupation than care o f the household and children ?.
so, w hat?________ ______________________ ate reasons for wishing to board children rhat is your m onthly income?____________
...Source?.
/ 0 you own your home?------------------------------------------------------------- Equity?_______________________R ent paid if tenant________
C H IL D R E N W H O H A V E B O A R D E D IN Y O U R H O M E D U R IN G T H E LA ST Y E A R NAME OF CHILD
A ge
From W hom R e c e iv e d
Sex
A m t . P a id P er M o n t h
By W h om R em o v ed
P a id b y W h o m
Sc h o o l G rade
H ealth
-
—
■
.
■ j
V
f ■
[S ig n a t u r e
of
W
if e
•
.*
] USE FULL GIVEN NAME
[ S ig n a t u r e
of
H
u sba n d ]
USE FULL GIVEN NAME
Prem ises m ust be insp ected and endorsed b y an au th orized lo ca l ag en cy , or b y th e State D ep artm en t o f'S o c ia l W e lfa r e. Y ou w ill be sited at an e a rly d ate b y a rep resen tative w h o w ill discuss y o u r ren ew al w ith you. Y ou r in te re st in p rovid in g hom e life fo r ch ild ren d u rin g th e p ast year has helped to prom ote ch ild w e lfa r e and y o u r cooperation w ith the apartm ent o f Social W e lfa r e and w ith y o u r local h ealth and w e lfa r e agencies is appreciated. 86448
8 -4 0
5M
STATE P R IN T IN G O F F IC E
Form BHC M3, Re v i s e d S e p t e m b e r , S t a t e o f Ca l i f o r n i a Department of So c i a l We l f a r e
19U0
BOARDING HOME FOR CHILDREN OFFICE INTERVIEW
NEW APP.
DATE
APPLICANT F i r s t Name
Surname
M aiden Name PHONE
ADDRESS RACE
BIRTHDATE & PLACE MARITAL STATUS
NAME OF HUSBAND
RELIGION DATE A BIRTHPLACE
DATS AND PLAGE OF MARRIAGE PREV. MARRIAGE OF APPLICANT
PBEV. MARRIAGE OF SPOUSE
HOUSEHOLD:
R e la tio n s h ip
F a m ily
B o a r d in g C h ild r e n
From Whom R e c e iv e d
Age
............................
HOUSING:
HEALTH:
Age
A p p lic a n t and F a m ily
F I M C E S:
OBJECT OF BOARDING CHILDREN:
: BESULT OF INTERVIEW^ : ...........
APPLICATION GIVEN: 9/U0 1500
YES___ _ NO A gent t a k i n g I n t e r v i e w