Minn. Guardian ad Litem Board seeks $16.4 million to raise pay, expand volunteers and cover operating costs

The Minnesota Legislature's Judiciary, Finance and Civil Law Committee heard from Tammy Baker Olsen, state program administrator for the Guardian ad Litem Board, about the board's statewide work, staffing shortages and a budget request totaling $16,365,000 intended primarily to raise compensation and cover unavoidable health insurance premium increases.

The request comes as the program, which serves children in both child protection and family court proceedings, reported 243 staff statewide, limited volunteers in parts of the state and service to more than 12,000 Minnesota children in 2024. "Each year, thousands of children depend on the expertise and dedication of Minnesota guardians ad litem to provide the court with objective child-focused recommendations," Baker Olsen told the committee.

The budget and why it matters

The board described a current biennial base budget of $45,630,000, of which payroll makes up roughly 84 percent and operating expenses 16 percent. The board asked for $16,365,000 to increase compensation and cover health insurance premium increases, an additional $1,000,000 per year in operating funds for rising transportation and inflation costs, and $476,000 to expand and strengthen the volunteer program. "We do a lot of driving, a lot," Baker Olsen said when explaining the operating request.

Program scope and workloads

Baker Olsen told the committee the Guardian ad Litem program operates in all 87 counties, attended more than 30,000 court proceedings in 2024, and filed court reports in over 16,000 hearings. The board said guardians advocated for more than 12,000 children last year, including about 1,500 Native American children in Indian Child Welfare Act cases and roughly 1,600 children in family court matters. The board reported 243 staff statewide and, in the 4th Judicial District (Hennepin County), currently about 15 volunteers.

On caseloads, the board provided a statewide average of about 24 cases per guardian, acknowledging that new staff have lower loads while some experienced guardians carry higher counts. "When we've recently run the numbers... an average of 24," Baker Olsen said, clarifying that a single case can include multiple children (for example, siblings are typically counted as one case).

Staffing, pay and recruitment

Baker Olsen emphasized recruitment and retention challenges tied to compensation. She said wage studies showed pay inequities compared with similar roles and noted a reported starting wage figure of $23.12 per hour for guardians — a level the board said is not competitive with comparable entry-level postings, including private-sector listings discussed during the hearing. "Our inability to provide a competitive salary has created significant challenges with recruitment and retention of professional experienced advocates," she said.

Mileage, fleet vehicles and volunteer reinstatement

Committee members asked about travel. Baker Olsen said the majority of guardians drive personal vehicles and submit mileage for reimbursement; fleet vehicles have been deployed in some large geographic areas. On volunteers, the board described a recent policy shift to rebuild a modest volunteer pool and strengthen supervision and training before increasing volunteer assignments. "Supervision is key... we have a plan in order to do that and strengthen that program so that we can move forward with volunteers," she said.

ICWA, MIFPA, AFPA and training

Baker Olsen described a regionalized Indian Child Welfare Act (ICWA) division and a completed ICWA/MIFPA policy manual accessible via the board's materials. She said the program has provided foundational training for the African American Family Preservation Act (AFPA) pilots in the 4th and 2nd districts and will continue training as the agency and partners learn how the law changes practice. "The program fully supports ICWA, MIFPA, what now AFPA," she said.

Measuring outcomes and reentry

Legislators asked whether the board can show that guardian involvement reduces reentry (return to the child welfare system). Baker Olsen said reentry is difficult to attribute to any single actor because many agencies and services are involved. The board reported qualitative evidence and youth testimonials indicating impact but said it is working to develop quantitative outcome measures to better demonstrate long-term effects.

Conflict-of-interest and complaint process

When asked about conflicts of interest, Baker Olsen said that personal relationships that could affect a guardian's work should be raised immediately to a manager or supervisor rather than waiting for a formal complaint. She noted a formal complaint process is posted on the board's website and said managers are expected to respond promptly to conflict concerns.

Committee questions and follow-ups

Representatives pressed for clarifications on mileage, average caseloads, wage ranges and whether caseloads have increased. Baker Olsen said case counts are "pretty stable" statewide but that vacancy-driven demand varies by region. She offered to provide additional documentation, including wage-range information and a list of legislation the board has supported.

What happens next

Baker Olsen presented the budget request and program overview; the board will await legislative action on funding. She said the board will supply follow-up materials requested by committee members, including wage-range comparisons and a list of recent policy positions. The committee did not take a formal vote at the hearing.

Quotes from the record

"Each year, thousands of children depend on the expertise and dedication of Minnesota guardians ad litem to provide the court with objective child-focused recommendations," Tammy Baker Olsen, state program administrator, said.

"The majority of guardians do claim mileage," Representative Steer said while clarifying travel practices; Baker Olsen confirmed most guardians use personal vehicles and file for mileage reimbursement.

"When we've recently run the numbers... an average of 24," Baker Olsen said describing the program's average caseload per guardian.

Ending

The committee hearing concluded without a vote; legislators asked the board for supplemental documents to support the board's budget and comparative-wage assertions. The board's budget request and the requested follow-up materials will inform eventual appropriations discussions in the Legislature.