Inquiry is made concerning whether or not an attorney-client relationship
exists between district attorneys, who provide child support enforcement
services, and the recipient of a public assistance grant; and, the propriety
of the district attorney prosecuting a recipient for welfare fraud after
having provided child support enforcement services.
Title IV-D of the Federal Social Security Act, 42 U.S.C. 601 et seq. requires each state to
establish and maintain a child support enforcement program. The Tennessee Department
of Human Services (D.H.S.) is the state agency responsible for adopting and
implementing a plan to conform to the requirements of the Social Security Act. D.H.S.
has contracted with the District Attorney to provide certain services including location of
absent parents, filing petitions to establish paternity, proceeding in juvenile court under
the criminal non-support statutes, filing interstate or inter-county reciprocal enforcement
of support petitions and enforcing support orders in existing divorce cases.
In addition to the above, D.H.S. also contracts with the District Attorney to provide
support collection services for individuals who are not public assistance recipients. These
individuals assign to D.H.S. the right to collect and disburse such support payments.
The recipient of Title IV-D public financial AFDC assistance assigns the right to receive
and collect all support payments to D.H.S. pursuant to T.C.A. 14-8-124. The assignment
is for such terms as public assistance is paid to the recipient and for the amount up to the
total public assistance paid to the recipient. Actions to collect such support may be
brought either in the name of D.H.S. or in the name of the recipient to recover support
There are instances where support payments are erroneously made to and retained by the
recipient which should belong to D.H.S. There are also instances where the recipient has
accepted payments from the responsible parent and unlawfully receives public assistance.
Inquiry is, therefore, made as to the propriety of the District Attorneys bringing actions
against the recipient to recover the funds and/or prosecuting the recipient for welfare
There is no attorney-client relationship between District Attorneys who provide child
support enforcement services and the recipient of a public assistance grant. The District
Attorneys are advocates of the state and never, at any time, have an attorney-client
relationship with any
83-F-55 Page 2
individual. Prosecutors are not mere civil litigants but represent the state and they cannot
assume the standard of an attorney appearing on behalf of an individual client as a guide
for their conduct.
There is no impropriety in the District Attorney prosecuting a recipient for welfare fraud
after having provided child support enforcement services, just as there is no impropriety
in prosecuting the victim of a crime for perjury after having prosecuted the original case.
This 24th day of August , 1983.
Edwin C. Townsend
W. J. Flippin
Henry H. Hancock
APPROVED AND ADOPTED BY THE BOARD