Seventh Edition POLITICS AND PUBLIC POLICY Diana BVL DiNBtto The University of Texas at Austin Allyn & Bacon Boston Columbus Indianapolis New York San Francisco Upper Saddle River Amsterdam Cape Town Dubai London Madrid Milan Munich Paris Montreal Toronto Delhi Mexico City Sao Paulo Sydney Hong Kong Seoul Singapore Taipei Tokyo
COGWEWTH Preface xxi Introduction: Politics, Rationalism, and Social Welfare Policy 1 What Is Social Welfare Policy? 2 Social Welfare Policy: A Rational Approach 4 Steps in the Rational Process 5 The Limits of Rationality 5~ Social Welfare Policy: A Political Approach 6 Incrementalism 9 Policy Punctuations 10 Summary 11 Discussion Questions and Class Activities 11 Websites 12 Notes 12 Chapter 1 Politics and the Policymaking Process 13 The Policymaking Process 13 Identifying,Policy Problems 14 Formulating Policy Proposals 24 Legitimizing Public Policy 24 Implementing Public Policy 25 Evaluating Social Welfare Policy 25 Financing the Welfare State 25 Federal Taxes 26 State Taxes 27 Local Taxes 27 Other Revenue Streams 27 Who Pays? Who Benefits? 27 The Budget: A Government's Most Important Policy Statement 29 Summary 31 Discussion Questions and Class Activities 32 Websites 32 Notes 33 VII
viii Contents Chapter 2 Analyzing, Implementing, and Evaluating Social Welfare Policy 35 The Politics of Policy Analysis 36 The Politics of Policy Implementation 39 Communications 40 Resources 41 Attitudes 42 Bureaucracy 43 Evaluating Social Policy 46 Does Policy Evaluation Matter? 47 Policy Evaluation as a Rational Activity 48 Policy Evaluation as a Political Activity 52 Why Hasn't Head Start "Cured" Poverty? 54 Some Faces of Program Evaluation 56 Formal Research Designs 57 An Affinity for D.A.R.E. 62 Summary 64 Discussion Questions and Class Activities 64 Websites 65 Notes 65
Contents ix Chapter 3 Politics and the History of Social Welfare Policy 68 Diana M. DiNitto and David H. Johnson/Millersville University of Pennsylvania The Early History of Social Welfare Policy in America 69 The Elizabethan Poor Laws 69 Early Relief in the United States 70 The Rural-to-Urban Migration 71 The Progressive Era 71 The Great Depression and FDR's New Deal 72 LBJ and the War on Poverty 73 The Welfare Rights Movement 73 Economic Opportunity Act 74 The Great Society 75 Politics Overtakes the War on Poverty 76 More Expansion of Social Welfare 79 Residency Requirements Eliminated 79 Cost-of-Living Adjustments 80 The Graying of America 80 Increase in Single-Parent Families 81 Social Services 81 The Reagan and Bush Years 81 The Supply Side 82 \ The New Federalism 83 The States as Laboratories 86 Privatizing Public Services 86 The Reagan-Bush Finale 87 The Presidential Years of Bill Clinton 87 Managing the Federal Debt 87 Ending Welfare as We Knew It 89 Assessing the Clinton Years 89 The George W. Bush Presidency 90 The United States at War 90 Economic Troubles at Home 93 Compassionate Conservatism 95 The Great Recession The Housing Bubble Bursts 95 Barack Obama's Presidency: Year One 97 Improving America's Image Abroad 99 Improving the Economy 99 A Nation Still at War 99 Healthcare 100 Issues Ahead 100 Summary 101 Discussion Questions and Class Activities 101 Websites 102 Notes 102
Contents Ending Poverty: Is It an Issue Anymore? 107 What Is Poverty? 108 Poverty as Deprivation 109 The U.S. Government's Official Poverty Definition 109 What's Wrong with the Government's Definition? 110 Measuring Poverty: Let Me Count the Ways 112 Who Is Poor? 115 How Persistent Is Poverty? 117 Poverty as Inequality (of Who Shrank the Middle Class?) 118 Why Are the Poor, Poor? 120 Poverty as Lack of Human Capital 120 Poverty as Culture 123 Poverty as Exploitation 124 Poverty as Structure 126 The Politics of Hunger 127 From Food Stamps to SNAP 128 Discovering and Rediscovering Hunger 128 The Politics of Affordable Housing 132 Government and Rental Housing 132 Home Ownership: Chasing the American Dream 135 Poor and Homeless: Not Invisible Any More 136 Who Is Homeless? 137 Governments' Response to Homelessness 138 A Fundamental Shift 140 Doesn't Welfare Cause Poverty?. 140 Whither Public Assistance? 141 Summary 145 Discussion Questions and Class Activities 145 Websites 146 Notes 146
Contents xi Chapter 5 Preventing Poverty: Social Insurance and Personal Responsibility 153 Preventing Poverty Through Compulsory Savings 154 Social Security: The World's Largest Social Welfare Program 156 Even the Best-Laid Plans 158 The 1983 Reforms and Beyond 159 State of the Trust Funds 162 Is Social Security in Crisis? 162 Social Security's Goals: Adequacy, Equity, and Efficiency 163 Intergenerational Adequacy and Equity 163 Adequacy and Equity Across Racial and Ethnic Groups 166 Adequacy, Equity, and Gender 167 Efficiency of the Social Security System 169 Saving Social Security 169 Fix the Current System 169 Create a New System 173 Avoiding Exhaustion 174 Public Policy and Private Pensions 175 \ Unemployment Insurance 176 Gaps in Unemployment Insurance Programs 177 Modernizing Unemployment Insurance 178 Three Types of Unemployment 179 Who Gets Counted as Unemployed? 180 Workers'Compensation 181 Issues in Workers' Compensation 182 Modernizing Workers' Compensation 184 Summary 185 Discussion Questions and Class Activities 185 Websites 186 Notes 186
xii Contents Chapter 6 Disability Policy: From Public Assistance to Civil Rights 192 A Fair Definition, A Fair Policy 193 Public Assistance for the "Deserving Poor" 193 The Federal Government Steps In 194 Supplemental Security Income in Figures 196 Determining Who Is Disabled 197 Appealing SSI Decisions 198 SSI Hot Spots 199 Veterans Administration Disability System 203 Disability and Work 204 Vocational Rehabilitation and Employment Services 204 Eliminating Work Disincentives, Supporting Work 205 Keeping More Cash Benefits and Health Benefits 206 Plan to Achieve Self-Support (PASS) 207 Ticket to Work 209 The Era of Civil Rights for Individuals with Disabilities 211 From Deinstitutionalization to Normalization and Inclusion 212 The Independent Living Movement 213 A New Bill of Rights for Individuals with Disabilities 213 Disability Policy for Children 219 Developmental Disabilities Assistance and Bill of Rights Act 219 Education Policy for Children with Disabilities 220 Disability Policy for the Future 222 Summary 224 Discussion Questions and Class Activities 224 Websites 225 Notes 225
Contents xiii Chapter? Helping Needy Families: An End to Welfare as We Knew It 233 Melissa Radey/Florida State University and Diana M. DiNitto From Mothers' Aid to AFDC 234 Man-in-the-House Rules 234 Trying to Keep Families Together 235 Making Parents Pay: A History of Child Support Enforcement 236 Benefits of Child Support 237 Child Support Enforcement Agency's Services 237 Establishing Paternity 238 Establishing Child Support Orders 238 Collecting and Distributing Child Support Payments 239 Enforcing Child Support Across Jurisdictions 240 Establishing and Enforcing Medical Support Orders 240 Locating Parents 241 Reviewing and Modifying Support Orders 241 Effectiveness of Child Support Enforcement 241 Reaching CSE Program Goals 241 CSE's Cost-Effectiveness 242 Satisfaction with CSE 242 State Compliance and CSE Privatization 243 The Reincarnations of Welfare and Work 244 Rehabilitation for Work 244 \ Job Training and WIN 245 Workfare 245 The JOBS Program 246 Why the Fuss About Welfare? 247 Recipients and Costs 249 Rethinking AFDC 250 Has Welfare as We Knew It Ended? 252 TANF Goals 252 TANF Block Grants 253 Federal Funding for TANF 253 TANF's Federalism 254 TANF Work Requirements 254 Additional TANF Funding 257 TANF Benefit Levels 257 TANF Spending Levels 258 Additional Services for TANF and Working Poor Families 260 Spending Forecast 263 How Effective Has TANF Been? 263 The Future of TANF 265 Summary 266 Discussion Questions and Class Activities 267 Websites 267 Notes 268
xiv Contents Chapter 8 Financing Healthcare: Can All Americans Be Insured? 276 David H. Johnson/Millersville University of Pennsylvania and Diana M. DiNitto Healthcare: Crossroads of Politics and Social Welfare Policy 277 Good Health or Medical Attention? 277 How Americans Pay for Healthcare 279 Medicare: Healthcare for Virtually All Older Americans 280 Medicaid: Healthcare for Some of the Poor 285 Who Gets Medicaid? 286 What Services Can Medicaid Beneficiaries Receive? 289 How Are Medicaid Services Delivered? 289 Other Routes to Healthcare for the Poor 290 Employer-Sponsored and Private Health Insurance 291 Types of Employer-Based Plans 291 How Do People Choose a Plan? 293 Individual Private Insurance Plans 293 The Uninsured: Pay As You Go 294 What Ails Healthcare? 296 Healthcare in International Perspective 297 The Nation's Healthcare Bill 298 Trying to Control Healthcare Costs 300 Why Americans Do Not Have Universal Healthcare 301 Incrementalism and the 2009-2010 Effort for Universal Healthcare 303 Elements of the Healthcare Reform Debate 304 The Politics of Healthcare Reform 2009-2010 307 Meanwhile, Back at the States 312 Healthcare: More Ethical Dilemmas 312 Portability and Privacy 313 Healthcare Rationing 313 Futile Care 314 Euthanasia and Assisted Suicide 314 Stem Cell Research and Cloning 316 Summary 316 Discussion Questions and Class Activities 317 Websites 317 Notes 318
Contents xv Chapter 9 Preventing Poverty: Education and Employment Policy 324 Peter A. Kindle/University of South Dakota and Diana M. DiNitto Education for the Few or the Many? 325 Public Education: The Progressive Era to World War II 326 The Post World War II Era: Increased Federal Involvement in Education 327 National Defense Education Act (1958): The Cold War Influences Education 328 Elementary and Secondary. Education Act (1965): Access and Diversity 328 ESEA Reauthorizations: From Access to Achievement 330 From Achievement to Accountability: Leave No Child Behind 333 Early Childhood Education 336 Higher Education 337 Was Thirty Years of Educational Reform Necessary? 341 -Education and the Obama Administration 342 Federal Reluctance in Employment Policy 343 Reluctance Overcome: The New Deal 344 \ The War on Poverty: The Search for a Cure 344 Area Poverty: Addressing Economic Deficiencies of Place 345 Case Poverty: Addressing Economic Deficiencies of Persons 346 Minimum Wages and Living Wages 352 Economic Crisis and the Obama Stimulus Plan 354 Summary 355 Discussion Questions and Class Activities 356 Websites 357 Notes 357
xvi Contents :er 10 Providing Social Services: Help for Children, Older Americans, and Individuals with Mental and Substance Use Disorders 364 Jessica A. Ritter/Pacific University Oregon, Mary Margaret Just/Morehead State University, and Diana M. DiNitto Social Services in the United States 365 Social Service Providers 365 Social Service Development 366 Child Welfare Policy and Services 367 Discovering Child Abuse 368 Child Maltreatment 370 A Brief History of Child Protection Legislation 372 Foster Care and Adoption 375 Controversial Issues in Child Welfare 377 The Future of Child Welfare Policy 385 Social Services for Older Americans 386 The Older Americans Act 387 White House Conferences on Aging 390 Protective Services for Older Americans 390 Guardianship 391 Nursing Home Care 392 Social Services for Individuals with Mental and Substance Use Disorders 392 A Brief History of the Response to Mental Illness 393 Prevalence and Treatment of Mental and Substance Use Disorders 394 Paying for and Providing Care 395 Treatment and Civil Rights 398 The Public Mental Health System 399 The War on Drug Addicts 401 Summary 405 Discussion Questions and Class Activities 406 Websites 407 Notes 407
Contents xvii Chapter 11 The Challenges of a Diverse Society: Gender and Sexual Orientation 415 The Feminization of Poverty 416 The Wage Gap and Comparable Worth 416 Women in Political Office 421 Resuscitating the Equal Rights Amendment 423 Family Care 425 No Middle Ground on Abortion Rights 426 The Supreme Court and Roe v. Wade 426 Prochoice and Antiabortion Forces 427 Medicaid and Abortion 427 Changing Tenor of the Supreme Court 428 Protests and Violence 429 Congress, the Presidents, and Abortion 430 Contraceptive Drugs 431 Will Abortion Rights Survive? 432 Confronting Violence Against Women 433 Sexual Assault 433 Intimate Partner Violence 434 Violence Against Women Act 435 Sexual Harassment 438 A New Era for Gay Rights 439 An End to Sodomy Laws 440 Expanding the Gay Rights Agenda 440 Domestic Partnerships and Same-Sex Marriage 441 Child Custody and Adoption 444 Gays in the Military: Don't Ask, Don't Tell 444 Gay, Lesbian, Bisexual, and Transgendered Youth 447 Summary 448 Discussion Questions and Class Activities 448 Websites 449 Notes 449
xviii Contents Chapter 12 The Challenges of a Diverse Society: Race, Ethnicity, and Immigration 455 Racial Equality: How Far Have We Come? 456 The Civil Rights Acts 457 School Desegregation 458 From Resistance to Accommodation 458 Busing and Mandatory Desegregation 459 Voluntary Desegregation and Educational Adequacy 459 School "Resegregation"_461 Educational Quality a Matter of Equity or Adequacy? 461 School Desegregation Policy for the Future 462 Housing and Racial Discrimination 462 Housing Segregation 463 Redlining and Steering Past and Present 463 Enforcing Fair Housing Practices 465 Encouraging Neighborhood Integration 465 Affirmative Action 466 Reverse Discrimination 466 The Reagan Years 467 The George H. W. Bush Years 468 University Admissions 468 Affirmative Action in the Twenty-First Century 469 Voting Rights 470 Voter Discrimination Past and Present 471 Redistricting and Gerrymandering 472 Preclearance 473 Troubles in Indian Country 474 The Bureau of Indian Affairs and the Indian Health Service 475 Cobell v. Salazar 475 Racial and Ethnic Targeting 477 Racial Profiling 477 The War on Terror 479 Hate Crimes 480 Immigration and Social Welfare 480 A Brief History of U.S. Immigration Policy 481 Immigration Post-September 11th 483 Legal Immigration and Its Effects 485
Contents xix Name Index 507 Subject Index 509 Illegal Immigration and Its Effects 487 Anti-Immigration Rhetoric and the Culture Wars 487 Amnesty 490 Employer Sanctions 490 Immigrants and the Decennial Census 491 Summary 492 Discussion Questions and Class Activities 493 Websites 493 Notes 494 Conclusion: Politics, Rationalism, and the Future of Social Welfare Policy 503 Discussion Questions and Class Activities 506 Notes 506