the dynamics of social welfare policy sep 2003

THE DYNAMICS of Social Welfare Policy THE DYNAMICS of JOEL BLAU with Mimi Abramovitz Social Welfare Policy 1 2003 1 Oxford New York Auckland Bangkok Buenos Aires Cape Town Chennai Dar es Salaam Delhi Hong Kong Istanbul Karachi Kolkata Kuala Lumpur Madrid Melbourne Mexico City Mumbai Nairobi Sa˜o Paulo Shanghai Taipei Tokyo Toronto Copyright ᭧ 2003 by Joel Blau Published by Oxford University Press, Inc. 198 Madison Avenue, New York, New York 10016 www.oup.com Oxford is a registered trademark of Oxford University Press All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted, in any form or by any means, electronic, mechanical, photocopying, recording, or otherwise, without the prior permission of Oxford University Press. Library of Congress Cataloging-in-Publication Data Blau, Joel. The dynamics of social welfare policy / Joel Blau; with Mimi Abramovitz. p. cm. Includes bibliographical references and index. ISBN 0-19-510968-6 1. Public welfare—United States. 2. United States—Social policy. 3. Social service—United States. I. Abramovitz, Mimi. II. Title. HV95 .B595 2003 361.6'1'0973—dc21 2002156303 987654321 Printed in the United States of America on acid-free paper Preface This social welfare policy text is written for students of social work and related human services. It has four underlying premises. The first premise is that social welfare policy pervades every aspect of social welfare. This point is obviously valid for work that is plainly policy-related— lobbying, organizing, and administration—but it is also true when we counsel people. In effect, social policy pays us to have conversations with clients. Once we recognize this fact, we will have more helpful conversations and talk less angrily to ourselves. The second premise is that knowledge about social welfare policy demands familiarity with the factors that shape it. We have woven these factors into a model of policy analysis, which is simply a tool for analyzing social welfare policy. The prospect may seem intimidating now, but when you learn how to use this tool, you will be able to analyze any social welfare policy. The third premise is that knowledge about social welfare policy demands familiarity with some of its most prominent substantive areas. Because these subjects—income security, employment, housing, health, and food—perme- ate the entire field of social welfare policy, we have devoted a chapter to each of them. The fourth and final premise of this book assumes the permanence of change in social welfare policy. What are the triggers of change in social welfare policy? What makes it evolve? And what might we do to make it vi Preface evolve in a way that treats our clients better and makes our own jobs easier? We explore the answers to these questions throughout this book. This textbook is comprehensive. Social welfare policy is a big subject, and there is much to digest. Your knowledge and confidence, however, will grow as you read. By the end, your knowledge of social welfare policy will become another essential instrument in your repertoire of helping skills. Ultimately, regardless of what particular kind of social work you do, this knowledge will empower you to function as a more effective social worker. Acknowledgments I want to begin by recognizing the substantial contribution of Mimi Abra- movitz, who wrote three key chapters, helped to conceptualize the text’s basic framework, and shared jointly in the development of an innovative policy model. Because I appreciate her time and effort, I included her name on the chapters she wrote. I am pleased that her skillful analysis of complex policy issues could be part of this book. In the process of writing this text, I regularly sought two kinds of feedback: one from students and another from colleagues in the field. These test runs were enormously helpful. Feedback from students ensured that the text was accessible; comments from colleagues kept me on the right substantive track. Among the students at the School of Social Welfare, State University of New York at Stony Brook, I want to thank Shiela Esten, Cheryl Gabrielli, Janine Eng, Michelle Zoldak, Linda Himberger, Gail Smith, and Katie Holmes. I also want to highlight the special contribution of two other students: Allegra Baider, currently an M.S.W. student at the University of Michigan, who read several chapters and rightly demanded clarification when clarification was truly needed, and Jaimie Page, a doctoral candidate at SUNY, Stony Brook, whose comments on several chapters pointed the way to some significant revisions. I am also indebted to a number of colleagues who gave freely of their time in their area of expertise. Among the Stony Brook faculty, I want to thank Candyce Berger for her help with chapter 11; Ruth Brandwein for her careful reading of chapter 7; Michael Lewis for his assistance with chapter 3; and Carolyn Peabody for her comments on chapter 1. In addition, Jan Poppen- dieck of the Hunter College Department of Sociology, whose own work on food policy has been so vital, kept me from making a number of errors of fact and emphasis in chapter 12. Diane Johnson, a doctoral student at the School of Social Welfare, con- tributed significantly to the preparation of the instructor’s manual. I am enor- mously grateful to her for all her hard work. Likewise, Amy Aronson handled the book’s illustrations with her usual skill and dispatch, and my sister, Deb- orah Blau, provided invaluable assistance in the creation of some key graphs. A special note of thanks goes to Christopher Dykema, who not only left his imprint on how this material should be explained to social work students but also once again, made a significant editorial contribution. At Oxford University Press, Maura Roessner was very helpful in shepherding the text through editing and production. And, last, for her unmatched savvy in pub- lishing matters, I want to express my deep appreciation to Sydelle Kramer. Beth Baron brought her intelligence and editorial skills to the reading of the manuscript. And, as always, my wife, Sandra Baron, has been essential for her editing, her support, and her steadfastness. Preface vii This page intentionally left blank Contents Part I Introducing Social Welfare Policy 1 Introduction: Social Problems, Social Policy, Social Change 3 2 Definition and Functions of Social Welfare Policy: Setting the Stage for Social Change 19 Mimi Abramovitz Part II The Policy Model 3 The Economy and Social Welfare 57 4 The Politics of Social Welfare Policy 90 5 Ideological Perspectives and Conflicts 119 Mimi Abramovitz 6 Social Movements and Social Change 174 Mimi Abramovitz 7 Social Welfare History in the United States 220 Part III Policy Analyses: Applying the Policy Model 8 Income Support: Programs and Policies 279 9 Jobs and Job Training: Programs and Policies 312 x Contents 10 Housing: Programs and Policies 337 11 Health Care: Programs and Policies 373 12 Food and Hunger: Programs and Policies 403 Part IV Conclusions 13 If You Want to Analyze a Policy 433 Notes 437 Figure Credits 479 Index 481 [...]... both social welfare policy and social work practice We have briefly outlined these dynamics in this chapter After the next chapter defines our terms and discusses the various and often conflicting functions of social welfare policy, each of these factors and the dynamics within them will be treated at greater length 18 The Dynamics of Social Welfare Policy 2 Mimi Abramovitz Definition and Functions of Social. .. integrity as a social worker Theories of Social Change We have established that social welfare practice comes from social welfare policy We have also argued that by itself, this fact makes knowledge of social welfare policy an essential part of any social worker’s repertoire At the outset, however, there is at least one other fact about social welfare policy you should know: no social policy is written... guides government intervention in the area of social welfare provision Though not all people employed by the social welfare system are trained social workers, social work represents the largest single profession working within the social welfare system.8 Broadening the Definition of Social Welfare Policy This definition of social welfare is accurate but too narrow Ignoring the relationship between public... cope with a flawed social policy Social Policy and Social Work Social workers see clients They counsel, advocate, organize, and administer, and they are likely to do these things even if the analysis of the social problem is misguided and the social policy badly designed Some definitions of the problem lead to social policies that make it easier for social workers to do their jobs, while others make it harder... distinct factors: the economy, politics and the structure of government, ideology, social movements, and history Because each, in its own unique way, shapes the evolution of social policy, they are the components of the model of policy analysis that we employ throughout this book A model of policy analysis is a rigorous and systematic method of analyzing social policy Some methods of policy analysis... modifications of social policy 16 The Dynamics of Social Welfare Policy Mostly, however, when the changes have significantly expanded benefits and services, broad social movements have been the trigger Yet social movements are themselves full of their own tensions and conflicts They may fight about the movement’s militancy (should it lobby through existing channels or should it take to the streets?); the breadth of. .. properly socialized, and productive workers they need Social welfare provision also helps to mute social unrest by cushioning inequality in the wider social order By forestalling or co-opting social movements and other political disruptions, the welfare state contributes to the social peace on which profitable economic activity also depends The Social Welfare Impact of Non Social Welfare Policies The standard... live, the nature of their relationships to each other, the overall quality of life, and the nation’s commitment to social justice It sets a tone for the way individuals in the wider society think of their obligation to people in need—either encouraging or discouraging social responsibility for others Although many students entering a social work program have never heard the term social welfare policy. .. our way toward social welfare policy itself The chapter ends with a description of the major social welfare programs that constitute the U.S welfare state What Is Social Welfare Policy? Let’s begin with the question, What is policy? Webster’s dictionary defines policy as any governing principle, plan, or course of action that guides and governs the choices and activities of a wide variety of societal institutions... business, the economy, the labor market, transportation systems, and taxation, to name only some of the major domestic policy arenas Also called social policy, it has been defined as “a collective strategy that addresses social problems”;1 the organized response or lack of response to a social issue or problem”;2 and the social purposes and consequences of agri20 The Dynamics of Social Welfare Policy . THE DYNAMICS of Social Welfare Policy THE DYNAMICS of JOEL BLAU with Mimi Abramovitz Social Welfare Policy 1 2003 1 Oxford New York Auckland Bangkok Buenos. social welfare policy, we have devoted a chapter to each of them. The fourth and final premise of this book assumes the permanence of change in social welfare policy. What are the triggers of change. Contents Part I Introducing Social Welfare Policy 1 Introduction: Social Problems, Social Policy, Social Change 3 2 Definition and Functions of Social Welfare Policy: Setting the Stage for Social Change 19 Mimi