Opinion ID: 2977242
Heading Depth: 2
Heading Rank: 1

Heading: Michigan’s Advocacy Program

Text: The State of Michigan Department of Labor & Economic Growth’s Unemployment Insurance Agency (“UIA”) determines whether an unemployed worker is (1) eligible for unemployment benefits, and, if so (2) the amount of such benefits. If a worker or employer disagrees with the agency’s initial determination, the worker or employer can appeal. As part of the appeals process, the UIA runs the Advocacy Program (the “Program”) to provide no-cost information, consultation, and representation to unemployed workers and employers (collectively, the UIA’s “customers”). Advocates assist customers by advising them on the merits of the appeal and determining the likely outcome of the hearing. During an appeal hearing an advocate will typically engage in direct examination of witnesses and present arguments to an administrative law judge based upon the advocate’s theory of the case, the applicable statutes and regulations, and case law. Advocates are independent contractors, not state employees, and may or may not be licensed attorneys. The advocates sign a “Personal Service Contract” in which they agree to submit biographical information, attend an orientation, complete periodic education, and register as vendor/contractors for Michigan. Advocates submit their biographical information on an “Advocate Profile Information” (“API”) form. The contract limits the information to be included to relevant personal information, which includes, among other things, the advocate’s education, experience, and any special qualifications. The contract specifically states that APIs may be edited by program staff. A customer who seeks UIA services is sent a cover letter, brochure, and list of the APIs for advocates in their geographic area. The customer may choose to contact any advocate from the list. -2- Nos. 07-2052/07-2102 Grosjean v. Bommarito The UIA informs anyone using an advocate’s service that the advocate is an independent contractor and not an employee of the State. Prior to December 2006, advocates could include in their profiles short narrative statements about themselves that would encourage an unemployed worker or an employer to use their services. (The pre-December 2006 API form that permitted these narratives is referred to herein as the “Old API Template.”) Narvie Twyman, previously an advocacy manager with the UIA and now the Program’s administrator, testified that an advocate’s narrative was essentially an ad. Following is an example API based on the Old API Template: KOKKO KURT N Mon – Fri 8:00am – 6:00pm 555-555-5555 Sat – Sun 10:00am – 6:00pm 555-555-5555  I LOVE A GOOD FIGHT!!  When the going gets tough, call Kokko! I’m an attorney experienced in getting people what they deserve. I’ll stand by you, even when no one else will. You need a WINNER when the chips are down. Call (555) 555-555 or E-mail: kokko@aaa.com. LET’S GET IT ON!! (Phone numbers and email altered.) Although the UIA had editorial control over the API listings pursuant to the advocates’ contracts, the UIA did not approve or make substantive changes to the advocates’ proposed narrative statement. An analyst would input the narrative, checking for grammar, but would not usually pass it by a manager for approval. Twyman had final authority over the content of the APIs during the relevant time period. She testified that while she had the authority, she did not review the APIs and -3- Nos. 07-2052/07-2102 Grosjean v. Bommarito did not know their contents. While she could not remember ever rejecting a narrative proposed by an advocate, if a complaint was made about a particular API, someone would investigate the complaint and make a change if necessary. In her opinion, the narratives reflected the advocate’s speech, not the UIA’s. In December 2006, the UIA implemented a new system for advocate profiles. The biographical parameters set forth in the contract remained the same, but the template for the APIs changed. (This template is referred to herein as the “New API Template.”) Most significantly, the New API Template no longer provides for any personal narratives in the API listing. Following is a published API based on the New API Template: KOKKO, KURT N Mon – Fri9:00am – 5:00pmPH: 555-555-5555 Sat – Sun 9:00am – 4:00pm PH: 555-555-5555 Relevant Experience/UI Training: Attorney representing unemployed workers at unemployment hearings Employment: Self-employed attorney, eight years Education: Graduate, Western Michigan University, honors. Graduate, Wayne State University Law School, 1998. (Phone numbers altered.)