NINTH EDITION Understanding Social Welfare A Search for Social Justice Ralph Dolgoff Professor Emeritus, University of Maryland, Baltimore Donald Feldstein PEARSON 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
Preface xv About the Authors xviii Chapter 1 Socioeconomic Structure, Human Needs, and Mutual Responsibility 1 Overview 1 The Impact of Social and Economic Structures 2 Cascading Effects 3 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 8 Beliefs about Social Justice 9 The Social Minimum: The Standard for Social Justice 9 \ TheNASW Standard: Equal Access and Rights 11 Toward the Social Minimum 12 Equality of Opportunity 12 Views of Social Welfare 13 The Authors' Perspective 13 SUMMARY 16 QUESTIONS FOR CONSIDERATION 16 MYSEARCHLAB CONNECTIONS 17 Chapter 2 Social Values and Social Welfare 18 Overview 18 Modern views of Humanity 19 Self-Actualization Versus Irritation Response Theories 20 Economics and Human Motivation 21 An Overview of History 22 Altruism and Mutual Aid 22 Ancient Cultures 23 Egypt 23 Hebrew and Judaic Societies 24 Greece and Rome 26 Early Christianity 27
vi Contents Holy Poverty and Expectations of the Wealthy 28 Eastern Cultures 29 China 29 India 31 Islam 31 SUMMARY 32 QUESTIONS FOR CONSIDERATION 32 MYSEARCHLAB CONNECTIONS 34 Chapter 3 Social Values-and Social Welfare: England from the Middle Ages Onward 35 Overview 35 The Early Middle Ages 35 The Middle Middle Ages 37 The Late Middle Ages to Elizabethan Poor Laws 38 Work and Religion 41 The Poor Laws 45 The Poor Law Compilation of 1601 45 Speenhamland 47 The Workhouse 49 The Poor Law of 1834 50 Principles of the Poor Laws 52 SUMMARY 53 : QUESTIONS FOR CONSIDERATION 53 MYSEARCHLAB CONNECTIONS 55 Chapter 4 Social Values and Social Welfare: The American '* Experience I 56 Overview 56 American Poor Law Mentality 56 Settlements, Labor, and Imported "Poor Laws" 57 The Early Spanish Influence, the Mexicans, and other Hispanics 59 Voluntary Mutual Aid Efforts 62 Mutual Aid among African Americans 62 Voluntary and Public Responsibilities 64 The American Frontier: The Myth and Values 65 Mutual Aid Among Immigrant Groups "" 65 Rugged Individualism and/or Cooperation? 66 American Indians and U.S. History 67
vii The Federal Role in Social Welfare 71 The Freedmens Bureau 71 Veterans and a Suspension of the Ethic 73 City, Town, and County: A Local Institution 75 Social Darwinism 75 The Coming of Social Insurance 76 Society, Social Values, and Modern Views of Human Nature 78 SUMMARY 78 QUESTIONS FOR CONSIDERATION 79 MYSEARCHLAB CONNECTIONS 80 Chapter 5 America and Poverty: Two Paths: The American Experience II 81 Overiew 81 Three Discoveries of Poverty 81 First Discovery 82 The Fading of the First Discovery 83 Second Discovery 83 Third Discovery 84 \ The War on Poverty 86 Eight Outcomes 87 The Skirmish against Poverty 89 Families, Children, and Poverty 89 Aid to Families with Dependent Children ("Welfare") 90 An Old-New Path 92 Social Security 94 Contrasting Values and Aims 94 The Paths Forward 95 Human Nature and the American Dream 96 SUMMARY 97 QUESTIONS FOR CONSIDERATION 97 MYSEARCHLAB CONNECTIONS 98 Chapter 6 Concepts for Social Welfare 99 Overview 99 What Is Social Welfare? 100 Social Policy, Social Services, and Social Work 102 Social Policy 102» Social Services 103 Social Work 103
viii Contents Ideology, Social Policy, and Government Intervention 103 Five Routes to Social Policy 107 The Federal and Pluralist System 109 The Economic Sphere 111 Fiscal Policy 112 Monetary Policy 113 The Importance of Fiscal and Monetary Policy 114 A Tarnished Business Sector? 115 A Second Welfare System Corporate and Individual Welfare 116 Globalization and Social Justice 117 The G. W. Bush Administration 120 Obama Administration: A Return to Federalization Ideology or Pragmatism? 120 The Debt Commission and Select Committee on Deficit Reduction 122 International and National Background Features and The Search for the Dream 123 International 123 The United States 123 SUMMARY 125 QUESTIONS FOR CONSIDERATION 126 MYSEARCHLAB CONNECTIONS 127 Chapter 7 1 Examining a Social Welfare Program within the Context of Social Justice: Structural Components, Alternative Program Characteristics, and Evaluation 128 Overview 128 Structural Components 129 What are the Needs and Goals to Be Met? 129 What Is the Form of Benefit that the Program Produces? 130 Who Is Eligible for the Program? 130 How Is the Program Financed? 131 What Is the Level of Administration? 132 ' Alternative Program Characteristics 133 Residual, Institutional, Developmental, or Socioeconomic Asset Development 133 Selective or Universal 136 Benefits in Money, Services, or Utilities 139 Public or Private 140 Central or Local 140 Lay or Professional 142
ix Evaluating the Program 143 Adequacy 143 Financing 143 Coherence 146 Latent Consequences 146 Testing for Social Justice 147 Whose Social Justice? 147 Views and Proponents 148 The Social Work Clinical Practice Sphere and Social Justice 150 Reader's Choice 150 SUMMARY 151 QUESTIONS FOR CONSIDERATION 151 MYSEARCHLAB CONNECTIONS 152 Chapter 8 The Welfare Society and Its Clients 153 Overview 153 Who is a Client of Social Welfare? 153 What is Poverty? 155 Understanding Poverty 155 - Absolute Poverty 156 Relative Comparison Poverty 159 " A Description of the Poor 160 Income and Wealth Inequality 163 Causes of Rising Inequality 164 Housing Wealth 167 Counterintuitive Statistics 167 Intergenerational Mobility 168 The Effect of Some Government Programs 169 The Near-Poor and Expectations 170 Other Views of Poverty 170 Relative Inequality 171 Lack of Power, Access, and Inclusion 172 The Underclass/Culture of Poverty Thesis 173 Strategies for Fighting Poverty 174 Social Utilities 174 Investment in Human Capital 174 Income Transfers 175 Rehabilitation 176 Aggregative and Selective Economic Measures 176 Participation and Organization 178 Ideology Revisited 178 The Second Bush Administration 179 x v -
Tax Cuts 180 Social Security 180 Medicare 180 Starve the Beast 180 The Obama Administration 181 Ideology Once Again 183 SUMMARY 184 QUESTIONS FOR CONSIDERATION 184 MYSEARCHLAB CONNECTIONS 185 Chapter 9 Current Social Welfare Programs Economic Security 186 Chapter 10 Overview 186 Social Insurance Programs 187 Social Security (OASDI) 187 Unemployment Insurance 198 Temporary Disability Insurance 202 Workers' Compensation 203 Income Support Programs 207 Temporary. Assistance for Needy Families \207 Supplemental Security Income 210 General Assistance 212 Earned Income Tax Credit 214 Socioeconomic Asset Development 216 SUMMARY 218 QUESTIONS FOR CONSIDERATION 219 MYSEARCHLAB CONNECTIONS 220 Social Welfare Programs: Sustaining the of Life 221 \ Q ualit y Overview 221 Managed Care 222 Strategies to Achieve Savings and Profits 223 Public Criticism, Courts, and Legislation 224 Halth Care Programs 225 Medicare 225 Medicaid 229 The Patient Protection and Affordable Care Act 234 Implementation Steps began in 2010 234 Effective (2012) 235 Effective (2013) 235 Effective (2014) 235
xi Effective (2015) 237 Effective (2018) 237 How Is the New System to Be Financed? 237 Issues 238 Legal Challenges 238 Payment Advisory Board 239 Abortion 239 What is Medical Care? 240 Universal Health Care: Public or Private Auspices? 240 Nutrition Programs 240 v The Supplemental Nutrition Assistance Program 240 Special Supplemental Nutrition Progran\for Women, Infants, and Children 242 School Lunch and Breakfast Programs 243 Housing 245 Veterans'Benefits 248 Employment Programs 251 Personal Social Services 252 Title XX (Social Services Block Grant) 254 Defense Department Social and Mental Health Services 255 -, Services to Families 255 Services to Children 256 Mental Health Services 262 Corrections 264 SUMMARY 266 QUESTIONS FOR CONSIDERATION 266 MYSEARCHLAB CONNECTIONS 267 Chapter 11 Nonprofit and Private Social Welfare 268 Overview 268 Early Patterns 269 The Nonprofit Sector 269 Types of Nonprofit Agencies 271 The Proprietary Private For-Profit Organization 272 Services of the Nonprofit and Private Sectors 272 Getting and Spending 273 Privatization 274 Private and Nonprofit Agencies as Social Welfare Programs 276 Finances, Recessions, Budgets, and Mergers 278 A Point of View 279
xii Contents Leadership, Class, and Gender 279 Trends in Volunteering 281 Private and Public Spheres 281 Uses of Public Funds and Power 281 Tax Laws and Policy 282 Accountability 283 National Policy: Church and State 283 The Marketplace and the Nonmarket Domain 285 Family and Freinds 286 Toward the Future 287 SUMMARY 289 QUESTIONS FOR CONSIDERATION 289 MYSEARCHLAB CONNECTIONS 290 Chapter 12 Social Work: The Emergence of a Profession 291 ; Overview 291 The Workers of "Good Works" 292 The Process of Professionalization 296 A Brief History of Practice and Methods 297 Development of the Professional Association 301 Social Work with Groups 302 Community Organization and Social Planning 304 Toward a Unified Profession 306 SUMMARY 307 QUESTIONS FOR CONSIDERATION 307 MYSEARCHLAB CONNECTIONS 308 Chapter 13 Social Work: Functions, Context, and Issues 309 Overview 309 The Purposes of Social Work 310 The Professional within Complex Organizations ' 310 Complex Organizations and Professional Culture 311 Complex Organizations and Authority 311 The Profession and Professional Autonomy 312 Alternative Roles and Settings 312 Society, the Functions of Social Work, and Services for People 313 The Bottom Line 313 The Two Tracks of Social Work: Cause and Function 313 Generic-Specific Social Work 317
xiii Professionals and Volunteers 318 Issues Confronting the Profession 319 Multiculturalism 319 Technologies 320 Managed Care 320 Religion and Spirituality 321 Leadership 321 Sufficiency of Qualified Social Workers and Other Resources 322 Accountability 322 2010 Social Work Congress 323 Proposed Imperatives 323 SUMMARY 324 QUESTIONS FOR CONSIDERATION 324 MYSEARCHLAB CONNECTIONS 325 Chapter 14 Social Trends Affecting Social Welfare 326 Overview 326 National Society 326 Individual and Shared Goals 327 The International Economy 328 Population Growth and Resources 329 Food Security 330 The Downside of the Upside 330 A Human/Nature Crisis and Worldwide Emergency 331 The United States: A Changing Population, a Selected Social Welfare Agenda, and Social Justice 332 Productivity and the Service Economy 335 Ethnicity and Pluralism 336 Gender 339 Gay Men and Lesbians 340 The Place of Social Welfare in a Changing Context 345 SUMMARY 346 QUESTIONS FOR CONSIDERATION 346 MYSEARCHLAB CONNECTIONS 347 Chapter 15 Toward the General Welfare and Social Justice 348 Overview 348 Children and Poverty 349 Adverse Effects of Poverty 350 Universal Services are Needed 352
xiv Contents Veterans of Iraq and Afghanistan 353 Health outcomes 353 Social outcomes 354 Resources 355 Education 356 Employment and Training 356 Criticisms 356 What Should Be Done? 357 What Will it Cost? 358 Social Workers, Services, and Policy Choices 359 Elder Abuse' "360 - What are the Major Types of Elder Abuse? 360 What Is Known About Interventions? 361 Social Policy 362 Implications for Social Wor/c 362 Globalization, Privatization, Socially Just Services, and the Future of Social Welfare 363 The State of the Welfare State 363 Privatization: The Strategy of Choice 364 Managed Care 367 Drug Abuse Services 367 The Roles of Social Work 368 Issues for Social Workers 368 The Choices Before US: Social Justice and the Baby-Boomer Generation 369 Retirement 370 Health Care 370 Technology and Social Action 371 Where We Are 373 ' Coda: Two Views of the Future 375 SUMMARY 376 QUESTIONS FOR CONSIDERATION 376 MYSEARCHLAB CONNECTIONS 377 Notes 378 Index 399