Sie sind auf Seite 1von 10

THE CHILD SUPPORT

IMPROVEMENT PROJECT:
PATERNITY ESTABLISHMENT

FINAL REPORT

SUBMITTED TO:

Division of Child Support Enforcement


Colorado Department of Social Services
1575 Sherman Street
Denver, Colorado 80203

and

Denver Division of Child Support


Denver Department of Social Services
2200 W. Alameda
Denver, CO 80223

SUBMITTED BY:

Center for Policy Research


1720 Emerson Street
Denver, CO 80218

Jessica Pearson, Ph.D.


Nancy Thoennes, Ph.D.

September 30, 1995


This document was developed under a grant from the Office of Child Support
Enforcement to the Colorado Department of Social Services-The Colorado Child
Support Improvement Grant (91-4-PI-CO-008). Points of view expressed herein
are those of the authors and do not necessarily represent the official position or
policies of the OCSE, the Colorado Department of Social Services or the Denver
Division of Child Support.
Acknowledgements

The Child Support Improvement Demonstration Project was awarded to the


Colorado Division of Child Support Enforcement which is directed by Kathryn A.
Stumm. The project was administered by the Denver Division of Child Support
under the direction of John Bernhart. Both Ms. Stumm and Mr. Bernhart were
extremely committed to the project and provided invaluable support and direction.

The project manager was Robert Conklin of the Denver Division of Child
Support. Mr. Conklin was instrumental to all phases of project operation and we
are indebted to him for his commitment, energy and tact. He was ably assisted by
Elaine Gonzales, Gretchen Cooper, M.S.W., and Tamara Martinez. Thanks also
to Andrea Baugher and Donna Crow of the Colorado Division of Child Support
Enforcement.

Many individuals at the Colorado Department of Health and Environment


assisted Mr. Conklin and us in implementing and evaluating the in-hospital
paternity program. Thanks are due to Mr. Joseph Carney, Ms. Linda Eisnach and
Dr. Carol Garrett of the Division of Health Statistics and Vital Records. We also
appreciate the work of Mr. Mike Morris and Ms. Jan Eccar of the Colorado
Department of Health and Environment.

We wish to recognize the contribution of certain individuals at the


hospitals participating in this demonstration project. They helped to expedite the
introduction of in-hospital paternity acknowledgement procedures, provided
guidance on project operations and assisted us with implementation issues and
problems. Thanks go to Dr. Paul Melinkovich, Rhonda Holloway, R.N., Tobi
Flippo, R.N. and Jane Labie-McGivney of Denver General Hospital; Sue Brown,
R.N., Kimberly Rimbert and Janice Reeves of St. Joseph Hospital; Gwen
Williams, Susan Thorp and Dr. Catherine Stevens-Simon of University Hospital;
and Ladora Patterson and Dr. Timothy E. Dudley of Mercy Hospital. Ms. Gloria
Montgomery interviewed unmarried mothers at Denver General Hospital.

Finally, we thank our project officer, Ms. Barbara C. Cleveland of the


Office of Child Support Enforcement, for her support, interest and patience.
TABLE OF CONTENTS

Acknowledgements
Executive Summary

Chapter Page

I. The Paternity Problem . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

II. Legal, Procedural and Administrative Considerations in


Implementing In-Hospital Paternity Acknowledgement Efforts . . . . . . . . . . . . . . 6
A. Administrative Authority and Procedure . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
B. Relationships With the Bureau of Vital Statistics . . . . . . . . . . . . . . . . . . . . . . 7
C. Access to Hospitals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
D. Personnel to Make the Paternity Overture . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
E. Other Obstacles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
F. Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

III. Baseline Research: Paternity Acknowledgement in Colorado in 1991 . . . . . . . . . 18


A. Highlights from the 1991 Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
B. Highlights from the 1991 Analyses of the Four Project Hospitals . . . . . . . . . 20
C. Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

IV. Impact of In-Hospital Paternity Outreach Efforts . . . . . . . . . . . . . . . . . . . . . . . . . 24


A. Evaluation Methodology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
B. The Populations Served . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
C. Other Possible Sources of Sample Bias . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
D. Changes in Rates of Paternity Acknowledgement . . . . . . . . . . . . . . . . . . . . . 28
E. Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

V. Demographic Characteristics of Parents Who Acknowledge Paternity . . . . . . . . 31


A. Characteristics of Mothers Who Acknowledge at Each Facility . . . . . . . . . . . 31
B. Characteristics of Mothers Who Acknowledge Across Facilities . . . . . . . . . . 32
C. Characteristics of Fathers Who Acknowledge Paternity . . . . . . . . . . . . . . . . . 36
D. Paternal Participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
E. Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42

VI. The Financial Correlates and Consequences of Paternity Acknowledgement . . . 44


A. Obtaining Medicaid, AFDC and Child Support Information for
Non-Marital Births . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44
B. History of AFDC, Medicaid and Child Support Involvement
for Project Families . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44
C. Benefit Status at the Time of Birth and Paternity Acknowledgement . . . . . . . 45
D. Paternity Acknowledgement and Benefit Status Following Birth . . . . . . . . . 47
E. Paternity Acknowledgement and Child Support . . . . . . . . . . . . . . . . . . . . . . . 48
F. Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51

VII. The Attitudes of Unmarried Parents Toward Paternity Acknowledgement . . . . . 53


A. Profile of the Mothers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53
B. Profile of the Fathers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54
C. Relationships Between Unmarried Mothers and Fathers . . . . . . . . . . . . . . . . 54
D. Reasons Given for Not Acknowledging Paternity . . . . . . . . . . . . . . . . . . . . . 56
E. Demographic and Attitudinal Characteristics of Signers
and Non-Signers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58
F. Relationship and Financial Characteristics of Signers
and Non-Signers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59
G. Paternal Participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 62
H. Reactions to Formal Child Support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63
I. Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65

VIII. Summary, Implications and Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67


A. Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67
B. Implications . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69
C. Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70
...............................................................
References

Appendix A: HB 93-1227
Appendix B: SB 94-141
Appendix C: Data collection Form: Parent Characteristics
Appendix D: Data Collection Form: Benefit and IV-D Data
Appendix E: Survey of Mothers
APPENDIX A:

HB 93-1227
APPENDIX B:

SB 94-141
APPENDIX C:

DATA COLLECTION FORM: PARENT CHARACTERISTICS


APPENDIX D:

DATA COLLECTION FORM: BENEFIT AND IV-D DATA


APPENDIX E:

SURVEY OF MOTHERS