UNDERSTANDING SOCIAL WELFARE

Transcription

1 EIGHTH EDITION B Q D h-^-...-^, - 1 J"H»..'-«M.y..«m.>^-.i J....»...-,-,, UNDERSTANDING SOCIAL WELFARE A Search for Social Justice RALPH DOLGOFF University of Maryland, Baltimore DONALD FELDSTEIN C Boston New York San Francisco Mexico City Montreal Toronto London Madrid Munich Paris Hong Kong Singapore Tokyo Cape Town Sydney

2 CONTENTS Q D D D C Preface xvii About the Authors xxi CHAPTER ONE Socioeconomic Structure, Human Needs, and Mutual Responsibility 1 OVERVIEW 1 THE IMPACT OF SOCIAL AND ECONOMIC STRUCTURES 2 DEFINING SOCIAL WELFARE AND SOCIAL WORK 4 THE AMERICAN MYTH OF THE HERO 5 BALANCING INDIVIDUAL AND SOCIETAL RESPONSIBILITIES 7 HUMAN RIGHTS, SOCIAL JUSTICE, SOCIAL WORK, AND SOCIAL WELFARE Beliefs about Social Justice 9 The Social Minimum: The Standard for Social Justice 10 The NASW Standard: Equal Access and Rights 12 Toward the Social Minimum 12 Views of Social Welfare 12 THE AUTHORS' PERSPECTIVE 13 SUMMARY 16 QUESTIONS FOR CONSIDERATION 17 NOTES 17 CHAPTER TWO Social Values and Social Welfare 19 OVERVIEW 19 MODERN VIEWS OF HUMANITY 20 SELF-ACTUALIZATION VERSUS IRRITATION RESPONSE THEORIES 21

3 VI CONTENTS ECONOMICS AND HUMAN MOTIVATION 22 AN OVERVIEW OF HISTORY 23 Altruism and Mutual Aid 23 ANCIENT CULTURES 24 Egypt 24 Hebrew and Judaic Societies 25 Greece and Rome 28 EARLY CHRISTIANITY 29 HOLY POVERTY AND EXPECTATIONS OF THE WEALTHY 30 EASTERN CULTURES 31 China 31 India 32 Islam 33 SUMMARY 33 QUESTIONS FOR CONSIDERATION 34 NOTES 34 CHAPTER THREE Social Values and Social Welfare: England from the Middle Ages Onward 37 OVERVIEW 37 THE EARLY MIDDLE AGES 37 THE MIDDLE MIDDLE AGES 39 THE LATE MIDDLE AGES TO ELIZABETHAN POOR LAWS 40 WORK AND RELIGION 44 THE POOR LAWS 48 THE POOR LAW COMPILATION OF SPEENHAMLAND 50 THE WORKHOUSE 52 THE POOR LAW OF PRINCIPLES OF THE POOR LAWS 55 SUMMARY 56

4 CONTENTS QUESTIONS FOR CONSIDERATION 57 NOTES 57 CHAPTER FOUR Social Values and Social Welfare: The American Experience I 60 OVERVIEW 60 AMERICAN POOR LAW MENTALITY 60 SETTLEMENTS, LABOR, AND IMPORTED "POOR LAWS" 61 THE EARLY SPANISH INFLUENCE, THE MEXICANS, AND OTHER HISPANICS 64 VOLUNTARY MUTUAL AID EFFORTS 66 Mutual Aid among African Americans 66 VOLUNTARY AND PUBLIC RESPONSIBILITIES 69 THE AMERICAN FRONTIER: THE MYTH AND VALUES 70 MUTUAL AID AMONG IMMIGRANT GROUPS 71 RUGGED INDIVIDUALISM AND/OR COOPERATION? 72 AMERICAN INDIANS AND U.S. HISTORY 73 THE FEDERAL ROLE IN SOCIAL WELFARE 76 THE FREEDMEN'S BUREAU 77 VETERANS AND A SUSPENSION OF THE ETHIC 78 SOCIAL DARWINISM 80 THE COMING OF SOCIAL INSURANCE 81 SOCIETY, SOCIAL VALUES, AND MODERN VIEWS OF HUMAN NATURE 82 SUMMARY 83 QUESTIONS FOR CONSIDERATION 83 NOTES 83 CHAPTER FIVE America and Poverty: Two Paths: The American Experience II 87 OVERVIEW 87 THREE DISCOVERIES OF POVERTY 87

5 Vlll CONTENTS First Discovery 88 The Fading of the First Discovery 89 Second Discovery 89 Third Discovery 90 THE WAR ON POVERTY 92 Eight Outcomes 93 THE "SKIRMISH" AGAINST POVERTY 95 FAMILIES, CHILDREN, AND POVERTY 96 Aid to Families with Dependent Children ("Welfare") 96 An Old-New Path 99 Social Security 101 Contrasting Values and Aims 101 THE PATHS FORWARD 102 HUMAN NATURE AND THE AMERICAN DREAM 104 SUMMARY 105 QUESTIONS FOR CONSIDERATION 105 NOTES 105 CHAPTER SIX Concepts for Social Welfare 107 OVERVD2W 107 WHAT IS SOCIAL WELFARE? 107 SOCIAL POLICY, SOCIAL SERVICES, AND SOCIAL WORK 110 Social Policy 110 Social Services 110 Social Work 111 IDEOLOGY, SOCIAL POLICY, AND GOVERNMENT INTERVENTION 111 Five Routes to Social Policy 115 THE FEDERAL AND PLURALIST SYSTEM 118 THE ECONOMIC SPHERE 118 Fiscal Policy 119 Monetary Policy 121 THE IMPORTANCE OF FISCAL AND MONETARY POLICY 122 A TARNISHED BUSINESS SECTOR? 124

6 CONTENTS IX A SECOND WELFARE SYSTEM CORPORATE AND INDIVIDUAL WELFARE 124 GLOBALIZATION AND SOCIAL JUSTICE 125 THE BUSH ADMINISTRATION 128 SUMMARY 131 QUESTIONS FOR CONSIDERATION 131 NOTES 131 CHAPTER SEVEN Examining a Social Welfare Program within the Context of Social Justice: Structural Components, Alternative Program Characteristics, and Evaluation 133 OVERVIEW 133 STRUCTURAL COMPONENTS 134 What Are the Needs and Goals to Be Met? ' 134 What Is the Form of Benefit That the Program Produces? 135 Who Is Eligible for the Program? 135 How Is the Program Financed? 136 What Is the Level of Administration? 138 ALTERNATIVE PROGRAM CHARACTERISTICS 138 Residual, Institutional, Developmental, or Socioeconomic Asset Development 139 Selective or Universal 141 Benefits in Money, Services, or Utilities 145 Public or Private 146 Central or Local 146 Lay or Professional 148 EVALUATING THE PROGRAM 149 Adequacy 149 Financing 150 Coherence 152 Latent Consequences 152 TESTING FOR SOCIAL JUSTICE 153 Whose Social Justice? 153 Views and Proponents 154 The Social Work Practice Sphere and Social Justice 157 Reader's Choice 157 SUMMARY 158

7 X CONTENTS QUESTIONS FOR CONSIDERATION 158 NOTES 158 CHAPTER EIGHT The Welfare Society and Its Clients 160 OVERVIEW 160 WHO IS A CLIENT OF SOCIAL WELFARE? 160 WHAT IS POVERTY? 162 Understanding Poverty 162 Absolute Poverty 163 Relative Comparison Poverty 166 A DESCRIPTION OF THE POOR 167 Is There Poverty in Europe? 170 Income and Wealth Inequality 171 Housing Wealth 173 Counterintuitive Statistics 174 Intergenerational Mobility 175 The Effect of Some Government Programs 176 THE NEAR-POOR AND EXPECTATIONS 177 OTHER VDTWS OF POVERTY 178 Relative Inequality 179 Lack of Power, Access, and Inclusion 180 The Underclass/Culture of Poverty Thesis 181 STRATEGIES FOR FIGHTING POVERTY 182 Social Utilities 182 Investment in Human Capital 182 Income Transfers 183 Rehabilitation 184 Aggregative and Selective Economic Measures 184 Participation and Organization 186 IDEOLOGY REVISITED 186 THE SECOND BUSH ADMINISTRATION 187 Tax Cuts 188 Faith-Based Initiative 188 Social Security 189 Medicare 189 No Child Left Behind 189

8 CONTENTS XI The 2009 Budget 189 Starve the Beast 190 IDEOLOGY ONCE AGAIN 190 SUMMARY 191 QUESTIONS FOR CONSIDERATION 191 NOTES 192 CHAPTER NINE Current Social Welfare Programs Economic Security 194 OVERVIEW 194 SOCIAL INSURANCE PROGRAMS 195 Social.Security (OASDI) 195 Unemployment Insurance 207 Temporary Disability Insurance 211 Workers'Compensation 211 INCOME SUPPORT PROGRAMS 215 Temporary Assistance for Needy Families 215 Supplemental Security Income 219 General Assistance 222 Earned Income Tax Credit 224 SOCIOECONOMIC ASSET DEVELOPMENT 227 SUMMARY 230 QUESTIONS FOR CONSIDERATION 230 NOTES 231 CHAPTER TEN Social Welfare Programs: Sustaining the Quality of Life 233 OVERVIEW 233 MANAGED CARE: A RADICAL CHANGE 234 Major Organizational Types 234 Strategies to Achieve Savings and Profits 235 Public Criticism, Courts, and Legislation 235 HEALTH CARE PROGRAMS 236 Medicare 236

9 Xll CONTENTS Medicaid 241 NUTRITION PROGRAMS 245 The Food Stamp Program 246 Special Supplemental Nutrition Program for Women, Infants, and Children 248 School Lunch and Breakfast Programs 249 LOW-INCOME HOME ENERGY ASSISTANCE 250 HOUSING 251 VETERANS' BENEFITS 255 EMPLOYMENT PROGRAMS 258 PERSONAL SOCIAL SERVICES 259 Title XX 260 Defense Department Social and Mental Health Services 262 Services to Families 262 Services to Children 263 MENTAL HEALTH SERVICES 269 CORRECTIONS 271 SUMMARY 274 QUESTIONS FOR CONSIDERATION 274 NOTES 275 CHAPTER ELEVEN Nonprofit and Private Social Welfare 276 OVERVIEW 276 EARLY PATTERNS 276 THE NONPROFIT SECTOR 277 Types of Nonprofit Agencies 278 THE PROPRIETARY PRIVATE FOR-PROFIT ORGANIZATION 280 SERVICES OF THE NONPROFIT AND PRIVATE SECTORS 280 GETTING AND SPENDING 281 PRIVATIZATION 282 PRIVATE AND NONPROFIT AGENCIES AS SOCIAL WELFARE PROGRAMS 284 A POINT OF VIEW 286 LEADERSHIP, CLASS, AND GENDER 287

10 CONTENTS Xlll PRIVATE AND PUBLIC SPHERES 288 Uses of Public Funds and Power 288 Tax Laws and Policy 289 Programmatic Links 290 Accountability 290 National Policy: Church and State 290 Foster Care: A Long-Standing Religious Issue 293 THE MARKETPLACE AND THE NONMARKET DOMAIN 294 FAMILY AND FRIENDS 294 TOWARD THE FUTURE 295 SUMMARY 297 QUESTIONS FOR CONSIDERATION 297 NOTES 298 CHAPTER TWELVE Social Work: The Emergence of a Profession 300 OVERVIEW 300 THE WORKERS OF "GOOD WORKS" 300 THE PROCESS OF PROFESSIONALIZATION 306 A BRffiF HISTORY OF PRACTICE AND METHODS 306 DEVELOPMENT OF THE PROFESSIONAL ASSOCIATION 311 SOCIAL WORK WITH GROUPS 312 COMMUNITY ORGANIZATION AND SOCIAL PLANNING 314 TOWARD A UNIFD2D PROFESSION 317 SUMMARY 317 QUESTIONS FOR CONSIDERATION 318 NOTES 318 CHAPTER THIRTEEN Social Work: Functions, Context, and Issues 320 OVERVIEW 320 THE PURPOSES OF SOCIAL WORK 320

11 XIV CONTENTS THE PROFESSIONAL WITHIN COMPLEX ORGANIZATIONS 322 Complex Organizations and Professional Culture 322 Complex Organizations and Authority 322 The Profession and Professional Autonomy 323 Alternative Roles and Settings 324 SOCIETY, THE FUNCTIONS OF SOCIAL WORK, AND SERVICES FOR PEOPLE 324 The "Bottom Line" 325 THE TWO TRACKS OF SOCIAL WORK: CAUSE AND FUNCTION 325 GENERIC-SPECIFIC SOCIAL WORK 328 PROFESSIONALS AND VOLUNTEERS 330 The Number of Social Workers 331 ISSUES CONFRONTING THE PROFESSION 331 Multiculturalism 331 Technologies 332 Managed Care 333 Religion and Spirituality 333 Leadership 334 Sufficiency of Qualified Social Workers and Other Resources 334 Accountability 334 SUMMARY 335 QUESTIONS FOR CONSIDERATION 336 NOTES 336 CHAPTER FOURTEEN Social Trends Affecting Social Welfare 338 OVERVIEW 338 NATIONAL SOCIETY 338 INDIVD3UAL AND SHARED GOALS 339 THE INTERNATIONAL ECONOMY 340 POPULATION GROWTH AND RESOURCES 341 A HUMAN/NATURE CRISIS AND WORLDWIDE EMERGENCY 342 THE UNITED STATES: A CHANGING POPULATION, A SELECTED SOCIAL WELFARE AGENDA, AND SOCIAL JUSTICE 344 PRODUCTIVITY AND THE SERVICE ECONOMY 347

12 CONTENTS XV ETHNICITY AND PLURALISM 349 GENDER 351 GAY MEN AND LESBIANS 353 THE PLACE OF SOCIAL WELFARE IN A CHANGING CONTEXT 357 SUMMARY 358 QUESTIONS FOR CONSIDERATION 359 NOTES 359 CHAPTER FIFTEEN Toward the General Welfare and Social Justice 361 OVERVIEW 361 HEALTHY CHILDREN 362 SOME COMPARATIVE FACTS 362 ECONOMIC SECURITY 362 HEALTH DISPARITIES 363 Fetal and Neonatal Health 363 Child Health 363 Adolescent Health 363 HEALTH INSURANCE 364 BARRIERS TO HEALTH CARE 364 DIMINISHED HEALTH SERVICES FOR POOR WOMEN AND CHILDREN 365 WHO AND WHAT AFFECTS HEALTH SERVICES FOR CHILDREN? 365 Health Insurance, Affordability, and Access 366 Policy Issues 366 What Are the Options for Children's Health Services? 367 GLOBALIZATION, PRIVATIZATION, SOCIALLY JUST SERVICES, AND THE FUTURE OF SOCIAL WELFARE 368 The State of the Welfare State 368 Privatization: The Strategy of Choice 369 Managed Care 373 Drug Abuse Services 373 THE ROLES OF SOCIAL WORK 374 ISSUES FOR SOCIAL WORKERS 374

13 XVI CONTENTS A SECOND WELFARE SYSTEM: CORPORATE AND TAXPAYER WELFARE AND SOCIAL JUSTICE 375 Two Welfare Systems 376 Evaluation Criteria 376 THE CHOICES BEFORE US: SOCIAL JUSTICE AND THE BABY-BOOMER GENERATION 377 Retirement 378 Health Care 378 ALTERNATIVES FACING THE PRACTITIONER 379 TECHNOLOGY AND SOCIAL ACTION 381 WHERE WE ARE 383 CODA: TWO VIEWS OF THE FUTURE 385 SUMMARY 386 QUESTIONS FOR CONSIDERATION 386 NOTES 387 APPENDIX: Sources of Information and Timeline 391 Index 397