93 Pa. Commw. 190 | Pa. Commw. Ct. | 1985
Lead Opinion
Opinion by
Ronald M. Ream petitions for review ¡of ,an order of the Department of Public Welfare (DPW) which upheld a determination that he had- received an .overpayment of General Assistance (GA) cash benefits in the amount of $332.10 subject to recovery under 55 Pa. Code §255.4(a). We reverse.
The folio,wing facts are pertinent. Ream had been receiving GA cash benefits for himself since June 30, 1980. On February 24, 1983, the Centre County Assistance Office (.CAO) notified Mm of its determination that he -was classified as a -transitionally needy person under .Section 43-2( 3) (id) of -the Public Welfare
iSubiSequent to bis first appeal, Beam submitted verification of a work history .which qualified him as chronically needy under Section 432,(,3)'(i) (H) of the Public Welfare Code, 62 P.S. §432(3)'(i)(H), as of August 22, 1983. That provision classifies as chronically needy those persons who have been previously employed full time for at least forty-eight months out of the previous eight years and have exhausted their unemployment compensation benefits prior to applying for assistance. As a result of this classification, Beam was qualified to receive GA cash benefits for twelve months out of the year. Section 432(3) (ii) of the Public Welfare Code, 62 P.S. §432(3) (ii). On October 8, 1983, the Bureau of Claim Settlement (BCS), based upon information received from the CAO, forwarded to Beam a notice of overpayment and demand for repayment for GA cash benefits he had received from April 5, 1983 through August 1, 1983 amounting to $688.00. Beam filed a timely appeal of the BCS notice and a hearing was held on May 17, 1984. On
In this appeal, Beam contends that DPW is precluded from seeking restitution of GA cash benefits paid to a claimant initially found only transitionally needy but who is later determined to be chronically needy under a different category than that under which he initially sought chronically needy status. We are aware, of course, that a public assistance applicant bears the burden of demonstrating that he or she is eligible for the benefits sought. McCartney v. Department of Public Welfare, 71 Pa. Commonwealth Ct. 116, 455 A.2d 222 (1983). Our scope of review of a DPW adjudication is limited to a determination of whether necessary findings are supported by substantial evidence, an error of law committed, or whether any constitutional rights of the applicant were violated. Section 704 of the Administrative Agency Law, 2 Pa. C. S. §704; Holloway v. Department of Public Welfare, 67 Pa. Commonwealth Ct. 6, 445 A.2d 1329 (1982).
For collateral estoppel to apply, four elements ■ must be present. Those four elements are: (1) the issue decided in the prior adjudication is identical with the one presented in the later action; (2) there was a final judgment on the merits; (3) the party who is to be estopped was a party or in privity with a.party to the prior adjudication; and (4) the party who is to be estopped had a full and fair opportunity to litigate the issue in question in the prior action. Safeguard Mutual Insurance Co. v. Williams, 463 Pa. 567, 345 A.2d 664 (1975). While Ream concedes that the second and third elements are present, he contends that the first and fourth elements are missing and that collateral estoppel does not apply. As to the first element, identity of issues, he argues that the ■issue.in the prior adjudication was whether he qualified for chronically needy assistance due to a physical disability under subsection (C) while the issue in
Beam also argues that he did not have a full and fair opportunity to litigate the issue of his qualification for chronically needy assistance under subsection (C) in his prior appeal. Specifically, he contends that DPW deprived him of a fair hearing by not actively assisting him in presenting his evidence and advising him of alternative grounds under which he could qualify for chronically needy assistance. We must again disagree. The- record before us indicates that he was provided every opportunity to prove his eligibility under subsection (C) due to his physical inability to work. We are reminded that it is the claimant who must bear the burden of proof to show his or her eligibility for the benefits sought. McCartney. It is the claimant who is the primary source of information to establish eligibility for benefits and to provide verification of all eligibility factors. '55 Pa. Code §§125.21(a) and 125.24(c)(2). While DP^ regulations require that caseworkers assist claimants in establishing eligibility for benefits, see 55 Pa. Code §§201.1(2) and 201.4(a) (1) (i), we decline to interpret those regulations as requiring DPW caseworkers to assume the role of claimant advocates mandating that they attempt to ferret out all possible avenue's of establishing a claimant’s eligibility for benefits sought. The primary responsibility for establishing eligibility for benefits must rest with the claimant and it is upon the claimant to request assistance from a caseworker if such assistance is neédéd- to establish eligibility. If no such assistance is requested by a claim
We must now determine whether Ream’s subsequent proof of eligibility for chronically needy status under subsection (H) can relate back to his initial application so as to satisfy the eligibility requirements for assistance and eliminate the overpayment. DPW concedes that had he initially applied for chronically needy assistance under subsection (H) and provided the CAO with the information he provided in August, Ream would have been found chronically needy- and eligible for the benefits in question. DPW further concedes that during the pendency of his appeal of his subsection (C) claim, Ream met the requirements for chronically needy status under subsection (H) but argues that the subsequent determination of that status should not relate back to his initial appeal in that he failed to present to the CAO information as to his eligibility under that category until his-appeal under subsection (C) was finalized.
It is DPW’s position that Ream’s subsequent qualification as chronically needy under subsection
We are of the opinion that DPW’s interpretation of 55 Pa. Code §255.2 is clearly erroneous and in conflict with the intent and purpose of the Public. Welfare Code. “Eligible” as used in 55 Pa. Code §255.2 is not a technical term of art and is. to be construed according to its common' and approved usage.-- Section 1903(a) of the Statutory Construction Act of
. . . all too often in the administration of the Commonwealth’s programs designed to benefit it's citizens, the needs of these beneficiaries give way to the strict adherence to agency policies and guidelines. The very people engaged to aid the disadvantaged are hindered in the best performance of their duties by the unnecessary rigidity of the decision making apparatus inherent in the American bureaucracy. . . . This seems especially true in the area of public assistance.
The implementation of public welfare systenis in this country, including that in Penn'-'sylvania, seem premised on the philosophy that each applicant should be channeled through to receive any ‘handout’ to which he or she can prove entitlement. This loses sight of the fact that welfare is not a ‘hand-out’ system but a program designed to rehabilitate or maintain*199 those persons not able to rehabilitate or maintain themselves. By doing this, we hope to enhance the public welfare of the entire nation. .
But rehabilitation and economic and social stability cannot be channeled through rigid programs. It must be the purpose of every welfare agency in this country to attack and solve the problems of every disadvantaged individual. (Emphasis in original.)
Id. at 118-119, 277 A.2d at 175. See also Section 401 of the Public Welfare Code, 62 P.S. §401; Felker v. Department of Public Welfare, 50 Pa. Commonwealth Ct. 90, 411 A.2d 1297 (1980).
Accordingly, on the basis of the facts presented here, we conclude that DPW erred as a matter of law when it determined that Beam received an overpayment of benefits for GA benefits which he received from April 5, 1983 through May 31, 1983. Since DPW has conceded that Beam met the qualifications for chronically needy benefits under subsection (H) and he had an application for such benefits pending, albeit under the wrong category, DPW’s determination that he was ineligible for those benefits is based upon its unduly restrictive interpretation of the definition of ‘ ‘ overpayment ” contained in 55 Pa. Code §255.2. Therefore, DPW’s adjudication that Beam received an overpayment of GA benefits must be reversed.
Order
Now, November 26, 1985, the Order of the Department of Public Welfare at Case No. 41694, dated July 18, 1984, is hereby reversed.
Dissenting Opinion
Dissenting Opinion by
• I respectfully dissent. As the- majority correctly observes, an applicant for public assistance has thé
The petitioner appealed this determination to DPW, claiming that he was eligible to receive benefits as a chronically needy person under Section 432 (3) (i) (C) of the Public Welfare Code because he was physically unable to work. DPW continued to pay him benefits.
. On June 21, 1983, DPW, entered an adjudication upholding the CAO’s determination that the claimant was not eligible for benefits. The petitioner did not appeal this adjudication and, as the majority holds, the DPW’s order of June 21, 1983 became final.
•The petitioner later filed a verification of his work history based upon which, pursuant to Section' 432 (3)(i)(H) of the Code, it was decided that he was qualified to receive benefits as of August 22, 1983.
The question here is that of whether the petitioner’s submission sometime after June 21, 1983 of proof of his qualification to receive benefits as- of August 22, 1983 requires a decision that he was entitled to benefits paid to him for the period April 5, 1983 through May 31, 1983, during which time he was pursuing his unfounded claim under Section 432 (3) (i) (C).
DPW’s regulation at 55 Pa. Code §255.2 defines the word “restitution” as the “Recovery of assistance from a recipient who has been overpaid. Overpayment will exist when a person receives assistance for which he was not eligible.” Restitution is sought in this case; since the petitioner received assistance to which he was not entitled, he was properly asked to make restitution.
I do not agree with the majority’s conclusion, based only on consideration of the remedial nature