The Reluctant Welfare State: Engaging History To Advance Social Work Practice in Contemporary Society 9th Edition Bruce S. Jansson

The Reluctant Welfare State: Engaging
History to Advance Social Work

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Council on Social Work
Education’s Educational Policy and
Accreditation Standards by Chapter
The Council on Social Work Education’s Educational Policy and Accreditation Standards requires
all social work students to develop the nine competencies listed below. The Council also identifies
31 related component behaviors that help operationalize the nine competencies. The competen-
cies and component behaviors are listed below, along with the book chapters that address them in
whole or part. In addition to the information shown below, multicolor icons throughout chapters
and “Competency Notes” at the end of each chapter help identify these connections.
Competencies and Component Behaviors Chapter(s) Where

The 9 Competencies and 31 Component Behaviors (EPAS, 2015): Referenced:
Competency 1 Demonstrate Ethical and Professional Behavior:
a. Make ethical decisions by applying the standards of the NASW Code of Ethics, 1, 2, 3, 4, 5, 6, 7, 8, 9,
relevant laws and regulations, models for ethical decision making, ethical 11, 12, 13
conduct of research, and additional codes of ethics as appropriate to context
b. Use reflection and self-regulation to manage personal values and maintain 2, 4, 6, 10, 13
professionalism in practice situations
c. Demonstrate professional demeanor in behavior; appearance; and oral, written, 1, 3, 4, 5, 7, 8, 9, 10, 11,
and electronic communication 12, 13
d. Use technology ethically and appropriately to facilitate practice outcomes
e. Use supervision and consultation to guide professional judgment and behavior 1, 7
Competency 2 Engage Diversity and Difference in Practice:
a. Apply and communicate understanding of the importance of diversity and difference 1, 3, 4, 5, 6, 7, 8, 9, 10,
in shaping life experiences in practice at the micro, mezzo, and macro levels 12, 14
b. Present themselves as learners and engage clients and constituencies as experts
of their own experiences
c. Apply self-awareness and self-regulation to manage the influence of personal 2, 6, 8, 10, 11, 12
biases and values in working with diverse clients and constituencies
Competency 3 Advance Human Rights and Social, Economic, and Environmental Justice:
a. Apply their understanding of social, economic, and environmental justice to 1, 2, 3, 4, 5, 6, 7, 8, 9,

advocate for human rights at the individual and system levels 10, 12, 14
b. Engage in practices that advance social, economic, and environmental justice 1, 2, 5, 6, 9, 10, 12, 13,
14
Competency 4 Engage in Practice-informed Research and Research-informed Practice:
a. Use practice experience and theory to inform scientific inquiry and research 6, 8
b. Apply critical thinking to engage in analysis of quantitative and qualitative 2, 14
research methods and research findings
c. Use and translate research evidence to inform and improve practice, policy, and 5, 9, 14
service delivery
Competencies and Component Behaviors Chapter(s) Where
The 9 Competencies and 31 Component Behaviors (EPAS, 2015): Referenced:
Competency 5 Engage in Policy Practice:
a. Identify social policy at the local, state, and federal level that impacts well-being, 1, 2, 4, 5, 6, 8, 9, 10,
service delivery, and access to social services 11, 12, 14
b. Assess how social welfare and economic policies impact the delivery of and 1, 2, 4, 5, 6, 8, 9, 12
access to social services
c. Apply critical thinking to analyze, formulate, and advocate for policies that 2, 3, 5, 6, 9, 10, 11, 12,
advance human rights and social, economic, and environmental justice 13, 14
Competency 6 Engage with Individuals, Families, Groups, Organizations, and Communities:
a. Apply knowledge of human behavior and the social environment, person-in- 3, 6, 7

environment, and other multidisciplinary theoretical frameworks to engage with
clients and constituencies
b. Use empathy, reflection, and interpersonal skills to effectively engage diverse
clients and constituencies
Competency 7 Assess Individuals, Families, Groups, Organizations, and Communities:
a. Collect and organize data, and apply critical thinking to interpret information 4, 6, 10
from clients and constituencies
b. Apply knowledge of human behavior and the social environment, person-in- 4, 6
environment, and other multidisciplinary theoretical frameworks in the analysis
of assessment data from clients and constituencies
c. Develop mutually agreed-on intervention goals and objectives based on the 6
critical assessment of strengths, needs, and challenges within clients and
constituencies
d. Select appropriate intervention strategies based on the assessment, research 6
knowledge, and values and preferences of clients and constituencies
Competency 8 Intervene with Individuals, Families, Groups, Organizations, and Communities:
a. Critically choose and implement interventions to achieve practice goals and 2, 7

enhance capacities of clients and constituencies
b. Apply knowledge of human behavior and the social environment, person- 12
in-environment, and other multidisciplinary theoretical frameworks in
interventions with clients and constituencies
c. Use inter-professional collaboration as appropriate to achieve beneficial practice
outcomes
d. Negotiate, mediate, and advocate with and on behalf of diverse clients and 10, 11, 12, 14
constituencies
e. Facilitate effective transitions and endings that advance mutually agreed-on
goals
Competency 9 Evaluate Practice with Individuals, Families, Groups, Organizations, and Communities:
a. Select and use appropriate methods for evaluation of outcomes

b. Apply knowledge of human behavior and the social environment, person- 7, 8
in-environment, and other multidisciplinary theoretical frameworks in the
evaluation of outcomes
c. Critically analyze, monitor, and evaluate intervention and program processes
and outcomes
d. Apply evaluation findings to improve practice effectiveness at the micro, mezzo,
and macro levels
empowerment series
NINTH EDITION
The Reluctant
Welfare State
Engaging History to Advance Social Work
Practice in Contemporary Society
Bruce S. Jansson
University of Southern California
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Printed in the United States of America

Print Number: 01 Print Year: 2018
This book is dedicated to Betty Ann
Brief Contents
Preface xiii
An Invitation to Students Using This Text xv
Acknowledgments xvi
PART 1 Becoming a Policy Advocate for Vulnerable Populations

CHAPTER 1 The Symbiotic and Uneasy Relationship: Clients, Social Workers, and the Welfare State 2
CHAPTER 2 Making the American Welfare State More Humane—Past, Present, and Future 27
PART 2 Social Policy in a Developing Nation

CHAPTER 3 Fashioning a New Society in the Wilderness 64
PART 3 Social Policy during a Transition to an Industrial Nation

CHAPTER 4 Social Welfare Policy in the 19th Century: 1789–1902 98
CHAPTER 5 Social Reform in the Progressive Era 157
PART 4 Social Policy in a Relatively Liberal Era

CHAPTER 6 Social Policy to Address the Worst Economic Catastrophe in U.S. History 204
CHAPTER 7 The Era of Federal Social Services: The New Frontier and the Great Society 260
CHAPTER 8 The Paradoxical Era: 1968–1980 301
PART 5 Social Policy in a Period of Conservative Backlash

CHAPTER 9 The Conservative Counterrevolution in the Era of Reagan and G. H. W. Bush 334
PART 6 The Period of Gridlock and Extreme Inequality

CHAPTER 10 Reluctance Illustrated: Policy Uncertainty during the Presidency of Bill Clinton 378
CHAPTER 11 George W. Bush’s Quest for Realignment 418
CHAPTER 12 Would President Barack Obama Reverse The Cycle of History? 450
CHAPTER 13 President Donald Trump: Populist or Conservative? 507
CHAPTER 14 Why Has the American Welfare State Been Reluctant—And What Can We Do about It? 548
Name Index 590
Subject Index 594
iv
Contents
Preface xiii
An Invitation to Students Using This Text xv
Acknowledgments xvi
PART 1 Becoming a Policy Advocate for Vulnerable Populations
CHAPTER 1 The Symbiotic and Uneasy Relationship: Clients, Social Workers,

and the Welfare State 2
LO 1-1 Analyze the Evolution of the American LO 1-9 Enrich Professional Practice by Placing it in
Welfare State 3 a Policy Context 10
LO 1-2 Discuss the Need for an American LO 1-10 Understand Policy-Sensitive Practice 11
Welfare State 3 LO 1-11 Trace the Gradual Evolution of the
LO 1-3 Understand Why Vulnerable Populations American Welfare State 13
Especially Need a Welfare State 5 LO 1-12 Recognize Polarization and Gridlock in the
LO 1-4 Move from our Imaginary Society to a Last 35 Years 15
Welfare State 7 LO 1-13 Develop Personal and Professional Policy
LO 1-5 Learn the Varieties of Social Policies 7 Identities 21
LO 1-6 Explore the Purpose of Social Policies 8 LO 1-14 Seek Common Ground while Honoring
LO 1-7 Understand the Grouping or Clustering of the Ethical Code of the National Association of
Social Policies and Social Problems 9 Social Workers 23
LO 1-8 Identify Policies that Shape Implementation LO 1-15 Treat Each Other with Civility 24
and Funding Systems 10
CHAPTER 2 Making the American Welfare State More Humane—Past, Present,

and Future 27
LO 2-1 Think about the Two-Sided Context: LO 2-5 Use Ethical Reasoning to Decide What Is
Opportunities and Constraints 28 Wrong and What Is Right 40
The Context 28 LO 2-6 Determine the Ethical Merit of Specific
Diagnosing the Context in Legislative Settings and Policies with Reference to Outcomes 41
the Nation 28 Using SNAP to Illustrate Ethical Reasoning With Respect
Three Kinds of Policy Advocacy 32 to Outcomes 41
LO 2-2 Link Micro Policy Advocacy to the American LO 2-7 Determine the Ethical Merit of Specific
Welfare State 37 Policies by Using First Ethical Principles 43
LO 2-3 Link Micro Policy Advocacy to Macro Policy LO 2-8 Analyze How Culture, Self-Interest, and
Advocacy 37 Politics Shape Ethical Reasoning 44
LO 2-4 Examine Policy Practice and Policy LO 2-9 Explore Practical Considerations and
Advocacy 38 Ethical Choices 44
Who Engaged—and Engages—in Policy Practice and LO 2-10 Use an Eclectic Approach to Ethical
Policy Advocacy? 38 Reasoning 45
v
vi Contents
LO 2-11 Examine the Special Ethical Case of LO 2-12 Analyze the Clash Between Liberals and
“Social Justice” 47 Conservatives Over Social Justice 54
Social Injustice Through the Violation of Civil Rights of LO 2-13 Analyze a Relativist View of Social Justice 55
Vulnerable Populations 49 Some Complexities in Thinking About Social Justice 56
Social Injustice Through the Violation of Life Conditions
LO 2-14 Navigate the Social Welfare State to Seek
of Vulnerable Populations 49
Reforms 57
Social Injustice as Illustrated by Denial of Opportunities
Engaging in Policy Advocacy 57
to Vulnerable Populations 51
Looking to the Future 61
The Challenge of Reducing Social Injustice Over Time 52
PART 2 Social Policy in a Developing Nation
CHAPTER 3 Fashioning a New Society in the Wilderness 64

LO 3-1 Understand Feudal Inheritance 65 Discrimination Against White Poor People 84
LO 3-2 Analyze the Colonists 66 LO 3-7 Identify Ominous Signs 84
Patterns of Continuity 66 LO 3-8 Identify Precursors to a Reluctant
Patterns of Change 68 Welfare State 86
LO 3-3 Analyze the American Revolution LO 3-9 Link the Colonial Society to Contemporary
as a Catalyst 70 America 86
From Revolution to Limited Government 71 What We can Learn from Policy Practitioners and
Legitimating Limited Government 73 Advocates of the Colonial Era 86
LO 3-4 Analyze Positive Responses to Social Need 74 What We can Learn from the Persistence of Unmet Needs
and Policy Issues During the Colonial Era 87
LO 3-5 Examine Punitive Policies 75
What We can Learn from Failed Policy Strategies of the
LO 3-6 Examine the Oppression of Vulnerable
Colonial Era 87
Populations 76
What We can Learn from Promising Strategies of the
Oppression of Women 76 Colonial Era 89
Oppression of Native Americans 78 What We can Learn from the Colonial Era about the
Oppression of African Slaves 81 Structure of the American Welfare State 90
PART 3 Social Policy during a Transition to an Industrial Nation
CHAPTER 4 Social Welfare Policy in the 19th Century: 1789–1902 98

LO 4-1 Identify Social Realities in the New Nation 100 Oppression of Irish Immigrants 120
LO 4-2 Understand Immigration and LO 4-8 Examine Precursors of the Reluctant
Urbanization 101 Welfare State 121
LO 4-3 Discuss a Moral Crusade 103 Social Policy at the Frontier 122
LO 4-4 Analyze Social Reform Policies 105 Land Policy 122
Temperance 105 LO 4-9 Discuss the Conquest and Oppression of
Antipauperism Strategies 106 Native Americans and Spanish-Speaking Persons 123
LO 4-5 Identify Character-Building Institutions 109 Finding Laborers 126
LO 4-6 Identify Opportunity-Enhancing LO 4-10 Understand the Appraisal of Frontier
Policies 114 Policy 127
Radical Movements: Conspicuous by Their LO 4-11 Review the Civil War and the Oppression of
Absence 115 Freed Slaves 129
LO 4-7 Analyze the Oppression of Vulnerable Origins of the Civil War 129
Populations or Outgroups in the Early LO 4-12 Explore Social Policy during the War 132
Republic 116 Analyze the Plight of Freed Slaves 135
Oppression of Women 116
Contents vii
LO 4-13 Recognize the Betrayal of Women during LO 4-16 Link the Period of Lost Opportunities to
and after the Civil War 136 Contemporary Society 144
LO 4-14 Recognize the Oppression of What We Can Learn from Policy Practitioners and
Workers during the Early Stages of American Advocates of the 19th Century 145
Industrialization 137 What We Can Learn from the Persistence of Unmet Needs
Industrialization before the Civil War 137 and Policy Issues during the Early Republic* 146
Why Industrialization Took Off and Rapidly What We Can Learn from Failed Policy Strategies of the
Accelerated 138 Early Republic 148
The Victimization of Workers 139 What We Can Learn from Promising Policy Strategies of
the Early Republic 148
LO 4-15 Analyze the Inadequacy of a Primitive
What We Can Learn from the Early Republic about the
Welfare State 142
Structure of the American Welfare State 149
CHAPTER 5 Social Reform in the Progressive Era 157

LO 5-1 Understand Realities in the Early Stages of The Oppression of Women 181
Industrial Society 159 The Oppression of African Americans 183
LO 5-2 Discuss the Genesis of Reform 163 The Oppression of Asian Immigrants 184
Catalytic Events 164 The Oppression of Spanish-Speaking Persons 185
Intellectual Ferment and Aroused Public Opinion 165 LO 5-9 Understand the Alliance of Progressivism
The Specter of Social Unrest 167 and Racism 186
LO 5-3 Identify Regulatory Reforms in the LO 5-10 Analyze the Imposition of a Racist Policy of
Progressive Era 167 Immigration 187
LO 5-4 Assess the Limited Social Programs of the LO 5-11 Discuss the Resilience of Jane Addams and
Progressive Era 168 Her Allies 188
Limited Policy Reforms for Women and Children 168 LO 5-12 Understand the Emergence of Social
Private Philanthropy 170 Work 188
Limited Reforms for Workers and Persons with LO 5-13 Analyze the Evolution of the Reluctant
Mental Illness 171 Welfare State 192
LO 5-5 Analyze Health Reforms within a Flawed LO 5-14 Link the Progressive Era to Contemporary
Capitalistic Model 172 Society 193
LO 5-6 Critique the Limited Nature of Progressives’ What We Can Learn from Policy Advocates of the
Social Reforms 172 Progressive Era 193
Cultural and Policy Realities that Limited Reform 173 What We Can Learn from the Persistence of Unmet Needs
Political Realities that Limited Reform 175 and Policy Issues during the Progressive Era 193
Women and Children: Seizing the Opportunity 176 What We Can Learn from Failed Policy Strategies of the
Progressive Era 196
LO 5-7 Evaluate Social Reformers and the Bull
What We Can Learn from Promising Strategies of the
Moose Campaign of 1912 177
Progressive Era 196
LO 5-8 Recognize the Oppression of Vulnerable What We Can Learn from the Progressive Era about the
Populations or Outgroups in the Progressive Era 181 Structure of the American Welfare State 196
PART 4 Social Policy in a Relatively Liberal Era
CHAPTER 6 Social Policy to Address the Worst Economic Catastrophe

in U.S. History 204
LO 6-1 Understand the Turn toward Conservatism LO 6-5 Evaluate the Era of Emergency Reforms:
in the 1920s 206 1933–1936 211
LO 6-2 Analyze Why the Depression Began 207 The Conflicted Context: Forces that Promoted Major
LO 6-3 Assess the Period of Denial: 1929–1933 209 Reforms 211
LO 6-4 Trace the Emergence of Franklin Roosevelt The Conflicted Context: Forces that Limited Roosevelt’s
as a National Figure 210 Initial Policy Initiatives 213
Battling for Resources as a Prelude to Reform 215
viii Contents
Using the Funds to Finance Emergency Relief 215 Understand Why Roosevelt Prioritized Military
Moving from Cash Assistance to Creating Work Preparedness 235
Programs 216 Understand the Eclipse of Work Programs 235
Developing a Work Relief Program for Complex LO 6-9 Review the Oppression of Vulnerable
Projects 218 Populations in the New Deal 236
Trying to End the Great Depression Itself 219
The Oppression of Women 236
Identify Conservative Pressures on Roosevelt between
The Oppression of Latinos 237
1934 and 1936 221
The Oppression of African Americans 238
LO 6-6 Identify Pivotal New Deal Victories: The Oppression of Asian Americans 239
1934–1936 223
LO 6-10 Analyze the Broadened Role of Social
The Social Security Act 224 Work in the New Deal 243
Protecting Workers’ Right to Strike 227
LO 6-11 Place the New Deal in the Context of the
The Works Progress Administration and the National
Reluctant Welfare State 245
Youth Administration 230
LO 6-12 Link the New Deal to Contemporary
Backsliding in the Supreme Court? 231
Society 247
LO 6-7 Identify Roosevelt’s Landslide Victory Over
What We Can Learn from Policy Advocates of the
Republicans in 1936 231 New Deal 247
LO 6-8 Assess the Era of Stalemate: What We Can Llearn from the Persistence of Unmet
1937–1941 231 Needs and Policy Issues during the New Deal 252
The Disillusionment of the Middle Class 231 What We Can Learn from Failed Policy Strategies
Fears that Roosevelt Sought Too Much Power 232 of the New Deal 253
Reform Fatigue 232 What We Can Learn from Promising Strategies
Several Surprising Policy Successes in 1937 of the New Deal 253
and 1938 232 What We Can Learn from the New Deal about the
Analyze Conservatives’ Ascendance 233 Structure of the American Welfare State 253
CHAPTER 7 The Era of Federal Social Services: The New Frontier and the Great Society 260
The Turn toward Reform 261 LO 7-11 Analyze the Oppression of Vulnerable
LO 7-1 Discuss Domestic Policy during the Populations in the 1960s 282
Kennedy Administration 263 The Oppression of Women 282
LO 7-2 Analyze Poverty and Civil Rights 265 The Oppression of Gay Men and Lesbians 284
The Oppression of Latinos 286
LO 7-3 Identify Failures and Success during the
The Oppression of Native Americans 286
Course of Reform 267
The Oppression of Asian Americans 287
Kennedy and Johnson: A Study in Contrasts 269
The Oppression of People of Color in the Urban
LO 7-4 Evaluate Johnson’s Policy Gluttony 271 Ghettoes 288
Johnson’s Fateful First Choice 271 LO 7-12 Discuss Social Work in
Johnson’s Fateful Second Choice 271 the 1960s 288
Johnson’s Fateful Third Choice 272
LO 7-13 Understand the Evolution of the Reluctant
LO 7-5 Assess Civil Rights Legislation in 1964 Welfare State 289
and 1965 272 LO 7-14 Link the Great Society to Contemporary
Earl Warren and the Supreme Court Buttress Johnson’s Society 291
Domestic Agenda 273 What We Can Learn from Policy Advocates of the Great
LO 7-6 Analyze Medicare, Medicaid, and the Older Society 291
Americans Act in 1965 274 What We Can Learn from the Persistence of Unmet Needs
LO 7-7 Analyze Federal Aid to Education in 1965 276 and Policy Issues During the Great Society 292
LO 7-8 Review the War on Poverty in 1964 and What We Can Learn from Failed Policy Strategies of the
Succeeding Years 276 Great Society 294
LO 7-9 Discuss Welfare Reform in 1967 277
Great Society 294
LO 7-10 Discuss Food Stamps in 1964 278
What We Can Learn from the Great Society about the
The Beleaguered President in a Trap of his Own Making: Structure of the American Welfare State 294
1967–1968 279
Contents ix
CHAPTER 8 The Paradoxical Era: 1968–1980 301

LO 8-1 Analyze Richard Nixon, Political LO 8-10 Recognize the Oppression of Vulnerable
Opportunist 302 Populations in the 1970s 318
Nixon’s Strategy: Floating Coalitions and Oppression of Women: The Women’s Movement 318
Outbidding 303 The Mobilization of New Sets of Vulnerable
From Strategy to Policy 305 Populations 319
LO 8-2 Understand Welfare Policy 305 The 1970s as a Revolution in Rights 320
The Beginnings of Backlash 320
LO 8-3 Understand Social Security 306
LO 8-4 Understand Revenue Sharing and Social LO 8-11 Understand the Evolution of the Reluctant
Services 307 Welfare State 321
LO 8-5 Discuss Civil Rights 308 LO 8-12 Link the Paradoxical Era to Contemporary
Society 321
LO 8-6 Evaluate Health Policy and Other
Legislation 310 What We Can Learn from Policy Advocates of the
Paradoxical Era 321
Housing Legislation 310
What We Can Learn from the Persistence of Unmet Needs
LO 8-7 Critique Nixon’s Shift from Reform to and Policy Issues during the Paradoxical Era 323
Conservatism 310 What We Can Learn from Failed Policy Strategies of the
LO 8-8 Review the Brief Reign of Gerald Ford 315 Paradoxical Era 324
LO 8-9 Assess the Hidden Social Spending What We Can Learn from Promising Strategies of the
Revolution of the 1970s 315 Paradoxical Era 327
Why was the Spending Revolution Hidden? 317 What We Can Learn from the Paradoxical Era about the
Structure of the American Welfare State 327
PART 5 Social Policy in a Period of Conservative Backlash
CHAPTER 9
The Conservative Counterrevolution in the Era of Reagan and G. H. W. Bush 334
LO 9-1 Evaluate the Ascendancy of The Oppression of Poor People and Persons of Color 355
Conservatism 335 The Oppression of Immigrants 357
The Legitimization of Conservatism 337 The Oppression of Gay Men and Lesbians 358
Ronald Reagan as Catalyst 338 The Oppression of People with Disabilities 359
The Oppression of Poor Children 360
LO 9-2 Analyze Reagan’s Emergence as a
The Oppression of Aging Americans 361
National Hero 339
The Oppression of Homeless Persons 362
LO 9-3 Review Supply-Side Economics: A Positive
Way to Be Negative 339 LO 9-14 Discuss the Erosion of Legal Rights 364
LO 9-4 Discuss the Campaign of 1980 341 LO 9-15 Discuss the Social Work Profession 365
LO 9-5 Assess the Reagan Policy Blitzkrieg 342 LO 9-16 Understand the Evolution of the Reluctant
Welfare State 366
LO 9-6 Analyze the Triumph of Conservatism 344
LO 9-17 Link the Conservative Counterrevolution to
LO 9-7 Review OBRA, Tax Reductions, and
Contemporary Society 367
Deregulation 345
What We Can Learn from Policy Advocates of the
LO 9-8 Discuss Reagan’s Loss of Momentum 346
Conservative Counterrevolution 367
LO 9-9 Evaluate Social Security, Job Training, and
What We Can Learn from the Persistence of Unmet
Medicare 347
Needs and Policy Issues during the Conservative
LO 9-10 Assess Moral Reforms 350 Counterrevolution 367
LO 9-11 Review the Election of 1984 350 What We Can Learn from Failed Policy Strategies of the
LO 9-12 Analyze Reagan’s Second Term 351 Conservative Counterrevolution 368
LO 9-13 Recognize the Oppression of Vulnerable What We Can Learn from Promising Strategies of the
Populations in the Era of Reagan and G. H. W. Conservative Counterrevolution 369
Bush 353 What We Can Learn from the Conservative
Predictions Come True 353 Counterrevolution about the Structure of the American
The Oppression of Women 354 Welfare State 370
x Contents
PART 6 The Period of Gridlock and Extreme Inequality
CHAPTER 10 Reluctance Illustrated: Policy Uncertainty during the Presidency of Bill Clinton 378
LO 10-1 Discuss the Ascendancy of Bill Clinton 379 LO 10-9 Identify the Oppression of Vulnerable
The Search for the Real Bill Clinton 379 Populations 402
The Search for the New Democrat 380 The Oppression of Women 402
LO 10-2 Review the Presidential Campaign The Oppression of Persons of Color and the Attack
of 1992 382 on Affirmative Action 403
The Oppression of Immigrants 406
Clinton’s Grim Options 383
The Oppression of Children 407
From Social Investment to Deficit Reduction 384
The Oppression of Gay Men and Lesbians 408
Developing an Economic Package 384
LO 10-10 Recognize the Illustration of
LO 10-3 Analyze the Budget Process 385
Reluctance 409
LO 10-4 Assess the Demise of the Stimulus
LO 10-11 Link Uncertainty during the 1990s
Package 387
to Contemporary Society 411
The Gutting of Social Investments 388
What We Can Learn from Policy Advocates
LO 10-5 Discuss the Fight for Health Reform 388 of the 1990s 411
LO 10-6 Analyze Anticrime Legislation 391 What We Can Learn from the Persistence of Unmet Needs
Conservatives Regroup to Restore Republicans’ Power 392 and Policy Issues during the 1990s 411
LO 10-7 Understand How the House Republicans What We Can Learn from Failed Policy Strategies
Took Charge 394 of the 1990s 412
LO 10-8 Analyze the Budget Confrontation
of 1995 396 1990s 414
What We Can Learn from the 1990s about the Structure
Clinton’s Controversial Welfare Reform 397
of the American Welfare State 414
Clinton’s Second Term 398
CHAPTER 11 George W. Bush’s Quest for Realignment 418

LO 11-1 Discuss Bush’s Ambitious Goal 419 LO 11-7 Discuss the Return to Iraq 438
LO 11-2 Review the Presidential Campaign LO 11-8 Analyze Supreme Court Surprises and
of 2000 422 Uncertainties 438
Two Americas 424 LO 11-9 Understand the Botched Response to
Bush’s Domestic Policies 424 Hurricane Katrina 439
LO 11-3 Discuss September 11, 2001 428 LO 11-10 Review the High Stakes for the
Gridlock 429 Congressional Elections of 2006 440
Bush Shifts the Agenda Abroad 431 Securing Some Initial Social Reforms and Oversight 443
LO 11-4 Evaluate the War with Iraq 432 LO 11-11 Evaluate the Supreme Court’s Move to
American Social Welfare Policy Abroad 433 the Right 444
Moving toward the Pivotal 2008 Elections 445
LO 11-5 Critique Bush’s Domestic Agenda in 2003
and 2004 436 LO 11-12 Identify Reluctance Illustrated in the Bush
LO 11-6 Understand the Outcome of the 2004 Administration 446
Election 437 Vulnerable Populations from 2000 to 2018 446
CHAPTER 12 Would President Barack Obama Reverse the Cycle of History? 450
LO 12-1 Analyze the Historic Nature of Barack The Stimulus Plan: —A Social Welfare Program in
Obama’s Presidential Candidacy 451 Disguise 455
LO 12-2 Analyze the Causes of the Great Recession Saving Financial Institutions 458
of 2007 into 2009 452 Obama’s Personal and Political Style 459
LO 12-3 Analyze Obama’s Landslide Election in The Frustrating Battle Against Foreclosures 461
2008 454 Attacking Unemployment 462
Obama’s Foreign Policy 462
LO 12-4 Understand the First Year of Obama’s
Evaluating Obama’s First Year in Office 463
Presidency 455
Contents xi
LO 12-5 Identify Major Policy Enactments in The Runaway Victory of the Republicans in 2014 484
Obama’s Second Presidential Year 464 LO 12-10 Evaluate the Most Conservative Supreme
Pivot Point 464 Court in Four Decades 485
The Republicans’ Stroke of Luck 465 LO 12-11 Recognize the Oppression of Vulnerable
Rescuing Health Care Reforms 465 Groups 486
Enacting Bank Regulations and Consumer Protections 467 The Continuing Oppression of Poor People 486
The Great Recession Continues 468 The Continuing Oppression of Women 489
The Education Debate 469 The Continuing Oppression of Immigrants 491
Deferred Reforms 471 The Continuing Oppression of Racial and Ethnic
LO 12-6 Analyze Implications of the Republican Vulnerable Populations 494
Landslide in the Mid-Term Elections of 2010 471 The Continuing Oppression of Populations that are
Another Hidden Stimulus Plan 473 Physically or Mentally Challenged 495
LO 12-7 Understand How the Soaring National Debt The Continuing Oppression of Aging Americans 497
and Annual Budget Deficits Led to Budget Battles The Continuing Oppression of the LGBTQ
in 2011 and 2013 473 Population 498
The Continuing Oppression of Persons with Criminal
LO 12-8 Analyze Obama’s Landslide Reelection
Records 499
in 2012 476
Revisiting the Terms Outgroups and Vulnerable
Understanding Obama’s Use of Electoral Community Populations 500
Organization 477
More Budget Battles 480 LO 12-12 Evaluate Barack Obama’s Presidency 501
LO 12-13 Why Obama Couldn’t Sustain the Nation’s
LO 12-9 Describe Obama’s Policy Agenda
Liberal Direction 502
for 2013 482
CHAPTER 13 President Donald Trump: Populist or Conservative? 507

LO 13-1 Trump Controversy: What is True and What LO 13-9 Winning The Presidential Election 523
is False? 509 LO 13-10 Trump’s Hurdles to being a “Successful”
LO 13-2 Trump’s Early Life 510 President 524
LO 13-3 Early Preparation for a Run for Politics 512 Personal Hurdles 524
LO 13-4 From Fantasy to Reality 513 Hurdles Related to the Republican Party 525
LO 13-5 Tactics During the Presidential Campaign Hurdles Related to the Democratic Party 525
of 2016 513 Hurdles Related to His Base of Support 526
Selling his Brand 514 Governing Hurdles 526
Manipulating the Media 514 LO 13-11 Early Signs that Trump Would Govern
Intimidation and Bullying 514 from the Right 527
Hyperbole and Lying 515 LO 13-12 Analyzing Trump’s Early Policies 529
Diversion and Distraction 516 LO 13-13 Repealing and Replacing the ACA 529
Not Using Evidence-Based Findings 516 LO 13-14 Reforming Immigration Policies 532
Creating Divisions and Enemies 516
LO 13-15 Creating Jobs 535
Appealing to the Base 516
Shifting Blame 516 Revising Trade Treaties 535
Relentless Campaigning 517 Promoting Fossil Fuels and Cutting Environmental
Organizing Effective Campaigns 517 Protections 536
Doubling Down 517 Repairing America’s Infrastructure 537
Rousing Large Crowds of Supporters 517 LO 13-16 Trump’s Budget and Tax Priorities 537
Portraying Himself as Independent from Big Donors 517 LO 13-17 Race and Ideology Polarize the United
Getting Free Media Coverage 518 States 538
Race Baiting and Attacking Other Vulnerable LO 13-18 Hurricanes Harvey, Irma, and Maria 540
Populations 518 LO 13-19 Sexual Harassment and Mass Murders 541
Ending Obama’s Legacy 518
LO 13-20 Warning Signs for the Trump
Changing Positions and Policy Priorities 518
Movement 542
LO 13-6 Benefiting from the Context 519 LO 13-21 Social Workers as Policy Advocates 543
LO 13-7 Trump’s Remarkable Ascent 519 LO 13-22 Understand the Evolution of the Reluctant
LO 13-8 Defeating Hillary Clinton 521 Welfare State 543
xii Contents
LO 13-23 What We Can Learn from Policy Advocates LO 13-25 What We Can Learn from Failed Policy
in the Trump Presidency 543 Strategies of the Trump Presidency 544
LO 13-24 What We Can Learn from the Persistence LO 13-26 What We Can Learn from Promising
of Unmet Needs during the Trump Presidency 544 Strategies of the Trump Presidency 544
CHAPTER 14 Why Has the American Welfare State Been Reluctant—And What Can We
Do about It? 548
LO 14-1 Decide Whether the Contemporary Welfare Key Education Reforms 572
State Is Morally Flawed 549 Key Workplace Reforms 572
Manifestations of Reluctance 549 Key Block Grants 572
Key Economic Reforms 573
LO 14-2 Examine Other Moral Flaws of the American
Policies Germane To Globalization 573
Welfare State 553
Key Housing Reforms 573
Poverty 556
Key Organizational Changes 573
Homelessness 556
Key Policies for Specific Populations 573
Persons Lacking Medical Insurance 557
Key Immigration Policies 573
Youth Who “Graduate” From Foster Care 557
Key Job Training Reforms 573
Assistance to Persons Who Are in Jail or Who Have
Key Drug Policies 573
Returned to the Community 557
Key Tax Expenditures 573
Low Wages 557
Key Family Planning Reforms 573
Feminization of Poverty 557
Legal Status of Immigrants 557 LO 14-10 Critique Conservatives’ Case Against the
Contextual Causes of Reluctance 557 American Welfare State 573
Reducing Social Spending 574
LO 14-3 Analyze Cultural Factors 558
Delegating Policy Responsibilities to State and Local
Problems and Panaceas 558
Government 574
The Misleading Analogy of the Fair Footrace 558
Privatizing Social Services 575
Beliefs about Markets and Government 559
Seeking Nongovernment Substitutes for Publicly Funded
Beliefs about Equality 559
Programs 575
LO 14-4 Discuss Economic Factors 560 Using Deterrence 576
Low Levels of Taxation 560 Relying on Personal Responsibility 577
Military Spending 560 LO 14-11 Evaluate Contextual Factors That Have
LO 14-5 Discuss Institutional Factors 561 Promoted Enactment of Social Reforms 577
Jurisdictional Confusion 561 Where Do We Stand? 581
LO 14-6 Explore Social Factors 561 Standing on the Shoulders of Policy Advocates 581
Racism and Prejudice 561 LO 14-12 Recognize the Journey Toward Policy
LO 14-7 Understand the Sequence of Events 563 Practice and Policy Advocacy 584
The Late Development of the American Welfare State 563 Participating in Social Movements 584
The Military State Precedes the Welfare State 563 Establishing Advocacy Organizations 585
Legal Factors 563 Seeking Social Reforms From Within the
Political Factors 564 Government 585
Educating the Public as a Prelude to Social Reforms 585
LO 14-8 Understand Reluctance as the Outcome of Electing Reform-Oriented Candidates to Office 585
Numerous Factors 567 Influencing Policy From Organizational Settings 586
LO 14-9 Identify Redeeming Moral Features of the Whistleblowing 586
American Welfare State 568
LO 14-13 Understand How to Move Beyond History
Asserting the Ethical Case for the American Welfare to Policy Advocacy in Contemporary Society 586
State 569
Acquiring Policy Advocacy Skills 586
Not Blaming the Welfare State for Things It Cannot Do 570
Leaving A Better Welfare State for Future
Key Mental Health Reforms 571
Generations 587
Key Health Reforms 571
Key Safety Net Reforms 571
Key Civil Rights Reforms 572
Key Child and Family Reforms 572 Name Index 590
Key Regulatory Reforms 572 Subject Index 594
Preface
I
published the first edition of The Reluctant Welfare meritorious policies of prior eras while not repeating
State in 1988. It was the first analysis of the evolution errors of the past.
of the American welfare state that placed social welfare I’ve used a diversity perspective in this and prior
policy in the broader context of the nation’s politics, cul- editions. I discuss in this edition how members of many
ture, and economics. It discussed the pivotal role of pres- populations have been marginalized in specific histori-
idents. It brought history up to the present. I asked moral cal eras including women; African Americans; Asian
and ethical questions in each chapter, such as whether Americans; older persons; Native Americans; Latinos;
Americans were sufficiently attentive to the needs and children and adolescents; persons with physical and
aspirations of members of specific at-risk populations mental challenges; persons with substance abuse and
and whether the nation sufficiently protected the rights mental health issues; lesbian, gay, bisexual, and trans-
of at-risk populations. More recently, I’ve criticized the gender persons; persons accused of violating laws and
extreme income inequality in the United States that ex- residing in, or released from, correctional institutions;
ceeds levels of 20 other industrialized nations. immigrants; low-income persons; homeless people; and
Every social worker should be versed in social wel- white blue-collar people. I also discuss how members
fare history. It grounds us in the strengths and weak- of these groups have successfully advocated for them-
nesses of the American welfare state. It showcases the selves and with members of other at-risk populations.
work of policy advocates including many social work- I discuss political, economic, and cultural constraints
ers. It gives us insights into specific at-risk popula- that American policy advocates have confronted when
tions, not only how they have been marginalized, but they seek policy reforms. I also discuss political, eco-
how they have empowered themselves. Social welfare nomic, and cultural opportunities that policy advocates
history informs us of many programs and policies in encounter. The thousands of policy achievements in lo-
the American welfare state so that we can inform our cal, state, and federal jurisdictions in American history
clients about their benefits, opportunities, and rights. came from tens of thousands of committed policy advo-
It helps us apply ethical principles to guide profes- cates who helped build a more humane nation.
sional practice by applying standards from the National I present a multi-level advocacy model in Chapter 2
Association of Social Workers (NASW) Social Workers’ that includes micro policy advocacy at the level of indi-
Code of Ethics. viduals, mezzo policy advocacy at the level of commu-
This book contains many inserts that facilitate nities and agencies, and macro policy advocacy at the
these skills by posing specific issues drawn from level of local, state, and federal governments. I refer to
the history of specific eras. These include one titled advocacy at these three levels throughout the book. I’ve
Ethical Analysis of Key Issues and Policies and Crit- augmented my discussion of the presidency of Barack
ical Analysis. It provides a Policy Scoreboard at the Obama in his second term, such as discussing his role
ends of most chapters to summarize the major social in advancing the rights of LGBT people.
policies that constitute the American welfare state. It I discuss in considerable detail the life, candi-
discusses how contemporary Americans can draw on dacy, and presidency of Donald Trump in Chapter 13.
xiii
xiv Preface
I discuss the ethical challenges that his presidency poses ●●

Analysis of one or more policy failures in specific
for the social work profession. Many of his policies, as historical eras to review the need to be alert to ill-
well as his Tweets and speeches, must be viewed through considered policies in contemporary society.
the lens of the Ethical Code of the National Association ●●
Analysis of policy innovations in specific historical
of Social Workers (NASW) that guides the work of mem- eras that could be revived or expanded in the con-
bers of the social work profession. I discuss ethical issues temporary period.
that are posed by his presidency. I present a framework for ●●
A policy scoreboard that identifies specific poli-
engaging these issues in a civil way while not conceding cies enacted in specific historical eras that have
ground when flagrant violations of this Ethical Code take been transmitted to the contemporary era. A master
place. I discuss the adverse impact of his policy choices policy scoreboard in Chapter 14 contains an overall
on members of vulnerable populations. I ask whether he list of social policies that social workers often en-
betrayed the white blue-collar people who he championed gage in their work as they engage in micro, mezzo,
during his presidential campaign. and macro policy advocacy.
I place historical materials for many of the book’s
chapters on the MindTap, where students can delve
into specific topics that enrich their understanding of
specific eras. They can, for example, read about medi-
eval society to better understand the first colonists that
MindTap-Only Content
came to the United States. They can read in greater de- I have included additional readings for chapters 3,
tail about the plight of emancipated slaves in the wake 4, 7, 8, 9, 10, 11, and 14 in the MindTap for the
of the Civil War. They can better understand the bud- 9th edition. Content includes discussion of the Civil
get conflicts that took place during the presidency of War and Reconstruction, social policy developments in
Barack Obama. I’ve placed these materials in the Mind- the 1950’s, the Congressional budget battle during Bill
Tap for the 9th edition. Instructors can decide which of Clinton’s presidency, and President Bush’s response to
these materials to assign to students. Hurricane Katrina. Information and examples on how
I discuss how to write policy background papers, to write policy advocacy background documents, op-
letters to the editor, Op-Ed essays, and policy briefs in ed articles, and policy briefs is also in the MindTap
the 9th edition MindTap. These can be used to develop (see Chapter 11). Prompts to access these materials can
policies and points of view that can be transmitted to be found in each relevant chapter.
the mass media as assignments at the end of the course.
I provide samples of each of them.
To facilitate classroom and offsite learning, I’ve in-
cluded links to innovative, easily accessible Web ma-
terials throughout the book. This technology enables
Ancillaries
students to interact with history through an array of To help faculty teach social policy history that links to
visual, audio, and graphic materials. Students can see EPAS standards, I have enlarged and revised the In-
homeless people riding trains during the Great Depres- structor’s Manual Creative Ways to Teach Social Policy
sion, listen to audio interviews with former slaves, view History and Link It to Contemporary Society and the
maps and interactive diagrams, listen to presidential de- Profession. PowerPoint lecture slides and Test Bank
bates, and take a virtual tour of a tenement building of questions are provided free of charge to faculty who
the 1880s. They can use these online aids within their adopt the 9th edition.
classrooms or offsite to develop specific assignments. I hope that this edition enhances social workers’
End-of-chapter materials include: practice in contemporary society. I hope that it mo-
●●
Discussion of unmet, persistent needs and policy tivates many students not just to learn about how the
issues in specific historical periods and the contem- American welfare state has evolved, but to engage in
porary period as a means of alerting students to the micro, mezzo, and macro policy advocacy to make it
need for policy advocacy. more humane in the future.
An Invitation to Students Using This Text
Y
ou may enter this course with trepidation, be- throughout the national experience. You will need to ask
lieving that it will focus primarily on memoriz- yourself whether and how these contending views are
ing distant events and myriad policies with scant relevant to the ethics code of the NASW, which asks so-
relevance to contemporary social work practice. View cial workers to advance social justice and meet important
this course, instead, as an opportunity to interact with social needs with effective social policies.
events, issues, beliefs, and past policies to improve This course will help you understand the components
your practice in contemporary society. Realize that this of the American welfare state as specific programs, poli-
course takes you right up to the present at the time of cies, and rights were enacted in different eras—and how
the writing of the 9th edition, including the recent pres- this process continues today. This course provides you
idencies of George W. Bush, Barack Obama, and the with a Policy Scorecard of these policies and rights that
first 11 months of the presidency of Donald Trump. You will be indispensible to effective social work practice.
can better understand contemporary issues when you Indeed, some of you may consider running for office if
view them in the prism of prior periods of time. this book opens up this possibility for you.
This course allows you to hone your ethical skills This course will also help you augment your social
in many ways. You can evaluate whether we even need work practice with three kinds of advocacy: micro policy
a welfare state in the first place by examining how the advocacy (commonly called “patient advocacy” or case
United States fared when it had only a primitive one— advocacy), where you help consumers obtain services,
without the Supplemental Nutrition Assistance Program rights, and opportunities to which they are entitled; mezzo
(SNAP or Food Stamps), Social Security, Medicare, policy advocacy where you work with communities and
Medicaid, and the Affordable Care Act (ACA). You agencies to improve services and to address community
can ask how Americans fared during recessions and the issues; and macro policy advocacy, where you seek to
Great Depression without unemployment insurance. reform defective policies in local, state, and federal juris-
This course will give you insights, as well, about the dictions. You will learn about many social work leaders and
life experiences of many vulnerable populations as they practitioners who used these interventions in prior eras to
contended with various kinds of adversity in the United help their clients and to make our society a better place. You
States prior to the enactment of civil rights legislation and will develop skills to analyze and develop policies, such as
specific social programs. These groups include women; developing a policy advocacy background document that
African Americans, Asian Americans; older persons; Na- serves as a template for specific reforms in contemporary
tive Americans; Latinos; children and adolescents; persons society. You may also write letters to the editor, Op-Ed es-
with chronic physical challenges; persons with substance says, and policy briefs, discussed at length in the MindTap.
abuse and mental health issues; lesbian, gay, bisexual, and You will find websites that enable you to interact
transgender persons; persons accused of violating laws and with history through documentaries, interactive dia-
residing in, or released from, correctional institutions; im- grams and maps, audio materials, and debates. You will
migrants; low-income persons; and white blue-collar peo- encounter ethical and other questions that will help you
ple. The course will discuss how members of these groups grapple with key social issues in the United States.
used empowerment strategies to contend with adversity. Consider this text to have a policy faculty of thou-
This course allows you to grapple with controversial sands of people who helped establish policies and rights
issues that are rampant in contemporary society, as any to make our society a better place—whether in the past
viewing of FOX News and MSNBC suggests—or with or the present. You will join their ranks as you engage in
the responses of the Republican and Democratic Parties history to advance your practice in contemporary society.
to many current issues. The roots of these controversies I am the Driscoll/Clevenger Professor of Social Policy
lie deep in the national experience; you will not only and Administration at the Suzanne Dworak-Peck School
learn about their origins, but come to see their prevalence of Social Work at the University of Southern California.
xv
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The Reluctant Welfare State: Engaging History To Advance Social Work Practice in Contemporary Society 9th Edition Bruce S. Jansson

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The Reluctant Welfare State: Engaging

History to Advance Social Work

Empowerment Series: The Reluctant Welfare State 9th

Social Welfare: A History of the American Response to

Introduction to Social Work and Social Welfare Charles

Contemporary Human Behavior Theory: A Critical

The Social Work Experience: A Case-Based Introduction

A New History of Social Work; Values and Practice in

Incomplete State-Building in Central Asia: The State as

The Practice of Research in Social Work 4th Edition,

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Competencies and Component Behaviors Chapter(s) Where

Competency 1 Demonstrate Ethical and Professional Behavior:

a. Apply their understanding of social, economic, and environmental justice to 1, 2, 3, 4, 5, 6, 7, 8, 9,

Competency 5 Engage in Policy Practice:

a. Apply knowledge of human behavior and the social environment, person-in- 3, 6, 7

a. Critically choose and implement interventions to achieve practice goals and 2, 7

a. Select and use appropriate methods for evaluation of outcomes

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PART 1  Becoming a Policy Advocate for Vulnerable Populations

PART 2  Social Policy in a Developing Nation

PART 3  Social Policy during a Transition to an Industrial Nation

PART 4  Social Policy in a Relatively Liberal Era

PART 5  Social Policy in a Period of Conservative Backlash

PART 6  The Period of Gridlock and Extreme Inequality

PART 1 Becoming a Policy Advocate for Vulnerable Populations

CHAPTER 1 The Symbiotic and Uneasy Relationship: Clients, Social Workers,

CHAPTER 2 Making the American Welfare State More Humane—Past, Present,

PART 2 Social Policy in a Developing Nation

CHAPTER 3 Fashioning a New Society in the Wilderness 64

PART 3 Social Policy during a Transition to an Industrial Nation

CHAPTER 4 Social Welfare Policy in the 19th Century: 1789–1902 98

CHAPTER 5 Social Reform in the Progressive Era 157

PART 4 Social Policy in a Relatively Liberal Era

CHAPTER 6 Social Policy to Address the Worst Economic Catastrophe

CHAPTER 8 The Paradoxical Era: 1968–1980 301

PART 5 Social Policy in a Period of Conservative Backlash

PART 6 The Period of Gridlock and Extreme Inequality

CHAPTER 11 George W. Bush’s Quest for Realignment 418

CHAPTER 13 President Donald Trump: Populist or Conservative? 507

I discuss the ethical challenges that his presidency poses ●●

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Section 2. Information about the Mission of

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Section 3. Information about the Project

PART 1 Becoming a Policy Advocate for Vulnerable Populations

PART 2 Social Policy in a Developing Nation

PART 3 Social Policy during a Transition to an Industrial Nation

PART 4 Social Policy in a Relatively Liberal Era

PART 5 Social Policy in a Period of Conservative Backlash

PART 6 The Period of Gridlock and Extreme Inequality

CHAPTER 1 The Symbiotic and Uneasy Relationship: Clients, Social Workers,

CHAPTER 2 Making the American Welfare State More Humane—Past, Present,

CHAPTER 3 Fashioning a New Society in the Wilderness 64

CHAPTER 4 Social Welfare Policy in the 19th Century: 1789–1902 98

CHAPTER 5 Social Reform in the Progressive Era 157

CHAPTER 6 Social Policy to Address the Worst Economic Catastrophe

CHAPTER 8 The Paradoxical Era: 1968–1980 301

CHAPTER 11 George W. Bush’s Quest for Realignment 418

CHAPTER 13 President Donald Trump: Populist or Conservative? 507