Improving social welfare standards to protect the vulnerable
Winston discusses her goals of improving standards of social welfare in order to protect vulnerable people, notably children and the elderly, when she became the North Carolina Commissioner of Public Welfare in 1944. Winston describes the condition of the public welfare department when she assumed control over it and explains how she worked within its established parameters and through legislation to make important changes.
Citing this Excerpt
Oral History Interview with Ellen Black Winston, December 2, 1974. Interview G-0064. Southern Oral History Program Collection (#4007) in the Southern Oral History Program Collection, Southern Historical Collection, Wilson Library, University of North Carolina at Chapel Hill.
Full Text of the Excerpt
- ANNETTE SMITH:
-
You became Commissioner of Public Welfare in 1944, in North Carolina.
What was the situation like then? What was the welfare program like
then, in North Carolina?
- ELLEN WINSTON:
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I was sworn in on June 1, in Governor Broughton's office. My parents
came, my husband was there and Mrs. Bost was there, my brother and niece
came from Charlotte. And we had several members from the State Board of
Public Welfare and some of the staff from the Department. I even
remember what I wore. It was very nice, with a hat, and I'm sure that I
carried gloves.
(laughter)
- ANNETTE SMITH:
-
You were a proper Southern lady.
- ELLEN WINSTON:
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Indeed I was a proper Southern lady. And I still remember the shock when
I came back from Washington one time to make a speech at a public
welfare meeting and the county people saw me for the first time making a
speech without a hat. When I went into the Welfare Department, I was
really very fortunate in terms of the fact that the program had been
soundly organized and developed. In other words, I had a good structure
on which to build. We had good state legislation because it made it
possible to take advantages of any changes in the Social Security Act
that would be helpful to the state. I learned a great deal from the
people that were in the office. Mr. Stewart was the auditor, I think
that was the title. Now, we would call him the business manager or
something of that sort. He was very sound in handling the already quite
large finances of the department. Miss Lilly Mitchell was still active
at the time and Miss Mitchell was a stickler for doing things in the
right way. And she taught me many lessons about the details of
administration. Mrs. W.B. Aycock, whom I had known before as a great
leader in PTA work and in educational advancement, was our director of
personnel and a joy to work with. There were many members of the staff
who were sound and good and helpful, so that it made a fine base on
which to start. Of course the grants were disgracefully low. We did not
have a great variety of programs which were administered by the
Department. In other words, the stand-bys were the public assistance
programs and the child welfare programs. We did have legislation in
regard to the licensing of charitable solicitations in the state. We had
responsibility for the inspection of jails and setting various kinds of
standards there. We had licensing authority with regard to child caring
institutions except that church related institutions of a certain size
were exempt. So, there was quite a lot of legislation, very good
legislation, on the books. It was the kind of legislation that I liked
because it was broad and provided an
opportunity for flexibility, for imaginative program planning. There
were not too many details written into the law. One of the things that
people have to learn is that you don't write specifics into legislation
in terms of program operations, but rather that you try to get general
enabling legislation. The way that you operate the program will change
from time to time and you don't want to have to go back and get your
basic law changed. Well, we began to move out in a great many
directions. We were concerned about improving qualifications for
personnel, and we were able to do a great deal about that, to write in
more qualifications for people in our county Departments of Public
Welfare and, indeed, on the state staff. This meant improving the
compensation plan and as I look back over those years, we were always
trying to improve the compensation and classification plans so that we
would have better staff, better renumerated staff. We began very early
to develop a program in services for the aging. This was new in those
days because in the last half of the 1940's, people had not yet waked up
generally to the fact that we were going to have a large number and
percentage of people in the older age brackets. That got under way.
There were many parallels in the kinds of services that we were
beginning to develop for older people and for children. We began to
experiment with foster homes for older people. We developed a program of
homes for the aged, some of which gradually became nursing homes. We
developed a marvelous program, and people came from all over the country
to look at it, of helping people leave state hospitals. At that time,
people were committed to state hopsitals and stayed there the rest of
their lives. We had a fine program going. Mrs. Annie Mae Pemberton
headed up these various activities for the aged, in helping people
return to their own families or at least to their
own communities. That has been written up in various places. We were
moving as fast and as well as we could, and I soon brought in Myrtle
Wolff to head up our child welfare program, to expand child welfare
services. We were vitally concerned, even at that early stage, in
helping children remain in their own homes, or if they did go out into
foster care, at least to see that the homes met standards. We had some
state money that we could use for foster care. We had very good
standards for foster homes. We had some counties that wanted to use the
state money to pay for the care of children in homes that met standards
and operate some other homes that didn't meet standards, paying for the
care of children out of county funds. We just made a little policy that
if they used any homes that didn't meet standards, they weren't eligible
for state funds. This had a great effect on improving the standards of
care.
- ANNETTE SMITH:
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In Doblestein's dissertation on your years as Welfare Commissioner, it
seems to be one of the major thrusts of your years, is raising standards
. . .
- ELLEN WINSTON:
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Right, and assisting . . .
- ANNETTE SMITH:
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And particularly on the county level.
- ELLEN WINSTON:
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And it is still one of my great concerns, because we have been so
derelict in terms of standards for the various types of services for
vulnerable people.