{ "id": 2866921, "name": "The People ex rel. Drexal Holland, Plaintiff-Appellant, v. Joel Edelman et al., Defendants-Appellees; The People ex rel. Sana Caruth et al., Plaintiffs-Appellants, v. Joel Edelman et al., Defendants-Appellees", "name_abbreviation": "People ex rel. Holland v. Edelman", "decision_date": "1975-04-11", "docket_number": "Nos. 60573, 60953 cons.", "first_page": "793", "last_page": "798", "citations": [ { "type": "official", "cite": "27 Ill. App. 3d 793" } ], "court": { "name_abbreviation": "Ill. App. Ct.", "id": 8837, "name": "Illinois Appellate Court" }, "jurisdiction": { "id": 29, "name_long": "Illinois", "name": "Ill." }, "cites_to": [ { "cite": "261 N.E.2d 420", "category": "reporters:state_regional", "reporter": "N.E.2d", "opinion_index": 0 }, { "cite": "126 Ill.App.2d 75", "category": "reporters:state", "reporter": "Ill. App. 2d", "case_ids": [ 1576576 ], "opinion_index": 0, "case_paths": [ "/ill-app-2d/126/0075-01" ] }, { "cite": "366 U.S. 420", "category": "reporters:federal", "reporter": "U.S.", "case_ids": [ 1285808 ], "pin_cites": [ { "page": "426" } ], "opinion_index": 0, "case_paths": [ "/us/366/0420-01" ] }, { "cite": "228 U.S. 61", "category": "reporters:federal", "reporter": "U.S.", "case_ids": [ 3667290 ], "pin_cites": [ { "page": "69-70" } ], "opinion_index": 0, "case_paths": [ "/us/228/0061-01" ] }, { "cite": "220 U.S. 61", "category": "reporters:federal", "reporter": "U.S.", "case_ids": [ 3657997 ], "pin_cites": [ { "page": "78" } ], "opinion_index": 0, "case_paths": [ "/us/220/0061-01" ] }, { "cite": "397 U.S. 471", "category": "reporters:federal", "reporter": "U.S.", "case_ids": [ 12055070 ], "opinion_index": 0, "case_paths": [ "/us/397/0471-01" ] }, { "cite": "274 N.E.2d 213", "category": "reporters:state_regional", "reporter": "N.E.2d", "opinion_index": 0 }, { "cite": "1 Ill.App.3d 298", "category": "reporters:state", "reporter": "Ill. App. 3d", "case_ids": [ 5313460 ], "opinion_index": 0, "case_paths": [ "/ill-app-3d/1/0298-01" ] }, { "cite": "218 N.E.2d 227", "category": "reporters:state_regional", "reporter": "N.E.2d", "opinion_index": 0 }, { "cite": "72 Ill.App.2d 480", "category": "reporters:state", "reporter": "Ill. App. 2d", "case_ids": [ 2585345 ], "opinion_index": 0, "case_paths": [ "/ill-app-2d/72/0480-01" ] }, { "cite": "205 N.E.2d 484", "category": "reporters:state_regional", "reporter": "N.E.2d", "opinion_index": 0 }, { "cite": "57 Ill.App.2d 271", "category": "reporters:state", "reporter": "Ill. App. 2d", "case_ids": [ 2597220 ], "opinion_index": 0, "case_paths": [ "/ill-app-2d/57/0271-01" ] }, { "cite": "273 N.E.2d 7", "category": "reporters:state_regional", "reporter": "N.E.2d", "opinion_index": 0 }, { "cite": "48 Ill.2d 540", "category": "reporters:state", "reporter": "Ill. 2d", "case_ids": [ 2906788 ], "opinion_index": 0, "case_paths": [ "/ill-2d/48/0540-01" ] } ], "analysis": { "cardinality": 680, "char_count": 12221, "ocr_confidence": 0.715, "pagerank": { "raw": 1.7806274771087916e-07, "percentile": 0.7134388916110553 }, "sha256": "d5df95c26bab8742eb669442a2279f820a8b35528bbbf3ffed3a2cd29ec546cd", "simhash": "1:bfa4f093a5c49d1f", "word_count": 1911 }, "last_updated": "2023-07-14T15:22:05.356803+00:00", "provenance": { "date_added": "2019-08-29", "source": "Harvard", "batch": "2018" }, "casebody": { "judges": [], "parties": [ "The People ex rel. Drexal Holland, Plaintiff-Appellant, v. Joel Edelman et al., Defendants-Appellees. The People ex rel. Sana Caruth et al., Plaintiffs-Appellants, v. Joel Edelman et al., Defendants-Appellees." ], "opinions": [ { "text": "Mr. JUSTICE DRUCKER\ndelivered the opinion of the court:\nThis consolidated appeal arises from the dismissal for failure to state a cause of- action of two suits brought by plaintiffs as individuals and as class representatives challenging the validity of a regulation of defendant, Illinois Department of Public Aid, which prohibits the granting of public assistance to pretrial detainees in the Cook County Jail. It is contended that this regulation is violative of article VI of the Public Aid Code (Ill. Rev. Stat. 1973, ch. 23, par. 6 \u2014 1 et seq.) and the equal protection clause of the fourteenth amendment of the United States Constitution and article I, section II, of the Illinois Constitution.\nIn Count I of their complaint in No. 60953 plaintiffs allege that they are pretrial detainees incarcerated in the Cook County Jail, i.e., they are \u201cunable to post bond and are awaiting trial.\u201d Plaintiff Lareux alleges he had been receiving general assistance from the Cook.County Department of Public Aid, but that this assistance was terminated solely because of his incarceration. Plaintiffs Caruth and Wallace allege that they met all the requirements of article VI of the Public Aid Code but have been unable to receive such assistance because of the policy embodied in regulation IV-10-8 of the Handbook of the Illinois Department of Public Aid which provides:\n\u201cPersons confined in local, State or federal penal and correctional institutions are not eligible for public assistance.\u201d\nPlaintiffs allege that due to the' denial of such assistance they lack \u201cadequate funds to purchase those necessities required for meeting basic maintenance requirements.\u201d Tire availability of general assistance funds would allow them to purchase clothing in addition to the uniforms supplied by \u201cprison officials\u201d and such \u201cpersonal essentials\u201d as toothpaste, toothbrush, stationery, stamps, shaving supplies, newspapers and magazines.\u201d In addition, funds could be provided to allow them to move and store their furniture or take adult education classes. Plaintiffs allege that persons who are denied these benefits are \u201cindistinguishable from those who do receive benefits except for their incarceration while awaiting trial.\u201d They further allege that \u201cno adequate state justification exists for this arbitrary classification\u201d and hence it is invalid under the equal protection clause of the fourteenth amendment of the United States Constitution and article I, section II, of the Illinois Constitution.\nPlaintiffs requested that the court order defendants to provide general assistance to those who are otherwise qualified but who are incarcerated because they are charged with a crime and are awaiting trial. In addition, they requested that the court Order defendants to make restitution of all monies wrongfully denied them.\nCount II of the complaint is a class action for a declaratory judgment which would find that section IV \u2014 10\u20148 of the Illinois Public Aid Handbook is violative of the Illinois Constitution, the United States Constitution and the Illinois Public Aid Code.\nThe allegations and prayers for relief found in the amended complaint filed in No. 60573 are almost identical to tir\u00f3se set forth above. In both cases upon motion of defendants the complaints were dismissed for failure to state a cause of action:\nOpinion\nPlaintiffs contend that regulation IV \u2014 10\u20148, which in effect makes them ineligible for public assistance, violates the provisions of the General Assistance Program of the Public Aid Code. (Ill. Rev. Stat. 1973, ch. 23, par. 6 \u2014 1 el seq.) Specifically, they argue that they are entitled to an allotment for certain amenities which the Cook County Department of Public Aid includes in its general assistance \u201cbasic needs\u201d allowance. Plaintiffs point to (1) the absence of an express prohibition on the granting of general assistance to individuals who are incarcerated and (2) the absence of any requirement that correctional authorities provide them with anything more than food, shelter and medical supplies. See Ill. Rev. Stat. 1973, ch. 38, par. 103 \u2014 2(c).\nOur determination of this issue is guided by several fundamental principles of statutory construction. First, a statute must be construed so as to ascertain and give effect to the intention of the General Assembly. (People ex rel. Kucharski v. Adams, 48 Ill.2d 540, 273 N.E.2d 7.) In determining this intent, consideration must be given to the entire statutory scheme, its object and purpose and the consequences resulting from various constructions. (Tidwell v. Smith, 57 Ill.App.2d 271, 205 N.E.2d 484.) Finally, although construction of statutes by the executive or administrative branch of government is not binding, such construction should be and is persuasive. Strat-O-Seal Manufacturing Co. v. Scott, 72 Ill.App.2d 480, 218 N.E.2d 227; Hardway v. Board of Education, 1 Ill.App.3d 298, 274 N.E.2d 213.\nArticle VI of the Public Aid Code was intended by the General Assembly as a means of providing financial assistance to persons whose income was \u201cinsufficient to meet basic maintenance needs.\u201d (Ill. Rev. Stat. 1973, ch. 23, par. 6 \u2014 1.2.) As indicated in our discussion below, we believe an individual\u2019s \u201cbasic maintenance heeds\u201d are a function of his social environment. Regulation IV \u2014 10\u20148 is an expression of the deter- . mination of the Illinois Department of Public Aid that, for a person in custody, these needs are adequately met by jail officials, and hence we hold that it does not transgress the requirements of article VI. In addition, we note that an important component of the General Assistance Program is the temporary provision of public aid to needy individuals until the recipient qualifies for assistance under one of the categorical programs, i.e.; aid to the aged, blind, disabled, etc. (See Ill. Rev. Stat. 1973, ch. 23, par. 3 \u2014 1 et seq.) It follows that the legislature did not intend the receipt of General Assistance funds by individuals who would automatically be disqualified for aid under the categorical programs. Article III of the Public Aid Code declares inmates of penal or correctional facilities ineligible for aid. (Ill. Rev. Stat. 1973, ch. 23, par. 3\u2014 1.4). Hence we believe that regulation IV \u2014 10\u20148 of the Illinois Department of Public Aid Handbook which, in effect, disqualifies pretrial detainees in the Cook County Jail from participation in the General Assistance Program is in accord with the intent of the legislature as expressed in article VI of the Public Aid Code. Moreover, subject to an applicant\u2019s capacities, article VI aid is limited to those individuals who register for and accept offers of suitable employment or participate in certain educational or training programs. (See Ill. Rev. Stat. 1973, ch. 23, pars. 3 \u2014 1.4\u20143\u20141.6.) Obviously these are activities in which pretrial detainees cannot participate. For this additional reason we find regulation IV \u2014 10\u20148 to be compatible with the principles underlying the General Assistance Program.\nPlaintiffs claim that they would be eligible for General Assistance benefits but for their pretrial detention. They contend that this denial of public aid is without any rational basis except to punish those who are merely charged with a crime and therefore is violative of equal protection. We disagree.\nIn Dandridge v. Williams, 397 U.S. 471, the Aid to Families with Dependent Children program of the State of Maryland was challenged as being violative of equal protection. The Supreme Court held at page 485:\n\u201cIn the area of economics and social welfare, a State does not violate the Equal Protection Clause merely because the classifications made by its laws are imperfect. If the classification has some reasonable basis,\u2019 it does not offend the Constitution simply because the classification \u2018is not made with mathematical nicety or because in practice it results in some inequality.\u2019 Lindsley v. Natural Carbonic Gas Co., 220 U.S. 61, 78. \u2018The problems of government are practical ones and may justify, if they do not require, rough accommodations \u2014 illogical, it may be, and unscientific.\u2019 Metropolis Theatre Co. v. City of Chicago, 228 U.S. 61, 69-70. \u2018A statutory discrimination will not be set aside if any state of facts reasonably may be conceived to justify it.\u2019 McGowan v. Maryland, 366 U.S. 420, 426.\u201d\nThe Court went on to say that \u201cthe Equal Protection Clause does not require that a State must choose between attacking every aspect of a problem or not attacking the problem at all. * * * [T]he Constitution does not empower this Court to second-guess state officials charged with the difficult responsibility of allocating limited public welfare funds among the myriad of potential recipients.\u201d (Williams at 486-487.) Thus the distinction between recipients of public assistance and those denied assistance because of their status as inmates of public institutions while awaiting trial will be deemed violative of plaintiffs\u2019 right to equal protection only if there is no rational relationship between a legitimate governmental interest and the classification involved. See James v. Cook County Department of Public Aid, 126 Ill.App.2d 75, 261 N.E.2d 420.\nIn the instant case plaintiffs have not contended that they are denied food, shelter or medical attention. It cannot be gainsaid that an allowance for these needs would constitute the bulk of a general assistance grant. Plaintiffs acknowledge the fact that they are supplied with clothes in the form of uniforms by jail officials and further concede that they have access to available recreational facilities such as the library. They argue, however, that those persons who are not incarcerated but are in financial straits similar to. theirs receive an additional general assistance allowance for expenditure on personal items while they, by, virtue of their detention, are. deprived of this allowance. We believe there exists a rational basis for this classification.\nThe stated purpose of the Public Aid Code is to assist in the alleviation and prevention of poverty. To that end the Illinois Department of Public Aid has received a mandate to establish standards which will encourage recipients, inter alia, to \u201cdevelop their self-reliance and realize their capacities for self-care, self-support, and responsible citizenship. (Ill. Rev. Stat. 1973, ch. 23, par. 1 \u2014 1.) In accord-with this goal of fostering self-reliance, a general assistance budget includes, ordinarily, a small allowance for personal items since it is assumed that the recipient, at-large in the community and perhaps maintaining his own household, is actively seeking employment or educational and training opportunities. In contrast .one who is incarcerated in, an institution where his basic needs are supplied for the relatively short period of time .before he is to be tried has a far diminished need for an allowance of this nature. We therefore find that a classification for purposes of eligibility for general assistance funds based on an individual\u2019s pretrial detention constitutes a sufficient rational basis to sustain the \u201cstatutory discrimination\u201d embodied in the Public Aid Code and regulation IV \u2014 10\u20148.\nFor.the foregoing reasons the judgments entered below are affirmed.\nAffirmed.\nLORENZ and SULLIVAN, JJ., concur.\n.We note, that it was represented at oral argument that the allegedly poor quality of social services available to inmates of the Cook County Jail is the subject of litigation currently pending in Federal court. ' \u2018 '\nAt oral argument counsel for plaintiffs represented that this allowance would amount at most to $5 per inmate per month. He conceded that the administrative costs alone of this program could amount to hundreds of thousands of dollars.", "type": "majority", "author": "Mr. JUSTICE DRUCKER" } ], "attorneys": [ "Thomas J. Grippando, of Legal Assistance Foundation, of Chicago, for appellants.", "William J. Scott, Attorney General, of Chicago (Patricia Rosen, Assistant Attorney General, of counsel), for appellees." ], "corrections": "", "head_matter": "The People ex rel. Drexal Holland, Plaintiff-Appellant, v. Joel Edelman et al., Defendants-Appellees. The People ex rel. Sana Caruth et al., Plaintiffs-Appellants, v. Joel Edelman et al., Defendants-Appellees.\n(Nos. 60573, 60953 cons.;\nFirst District (5th Division)\nApril 11, 1975.\nThomas J. Grippando, of Legal Assistance Foundation, of Chicago, for appellants.\nWilliam J. Scott, Attorney General, of Chicago (Patricia Rosen, Assistant Attorney General, of counsel), for appellees." }, "file_name": "0793-01", "first_page_order": 819, "last_page_order": 824 }