LECTURE 1: OVERVIEW OF
SOCIAL WELFARE
CONCEPTS & IDEOLOGIES:
ROLE OF MARKET & CIVIL
SOCIETY
SWBC104 Social Welfare Systems &
Social Policy
Social Welfare & Social Policy
1. What is Social Policy?
(社會政策/ 社會福利政策??)
2. Social Policy is NOT = the study of social
services ??? (Why?)
3. Why do social workers need to study
social policies?
4. How useful is the study of social policy?
Terminologies – social ….
• Welfare: a positive state of being cared, loved,
concerned, supported…. and/or a set of policy
/ service delivering such positive state
• Social: related to the society and collective
(state), values close to the socialist (???)
• Social welfare policy: systematic &
collective response to social problems (HK:
CSSA & Low-income Family Supplement or
renamed as ???)(WFA)
• Social welfare programmes / services:
products / specific services of social welfare
policies [e.g., social assistance – CSSA 綜援 &
personal social services]緩援不是失業援助金
Definitions of Social Policy (LSE)
• Professor Lucinda Platt, 2019:
• Social Policy is concerned with the ways societies
across the world meet human needs for security,
education, work, health and wellbeing.
• Social policy analyses the different roles of national
governments, the family, civil society, the market and
international organizations in providing services and
support across the life course from childhood to old age.
• Social policy aims to identify and find ways of reducing
inequalities in access to services and support between
social groups.
Usefulness in studying social policy
• 1. To bring about positive social change: e.g. income
redistribution, alleviation (消弥)of poverty especially on
the vulnerable in the society (Richard Titmuss, 1970);
• 2. an instrument of governments to regulate and
manipulate控制people’s social conditions (Catherine
Jones, 1990): “government’s systematic attempts to
regulate and manipulate social conditions and life
chances for sections of a giver population.
• Comment:
• “the welfare of the “vulnerable” is indeed damaged by the
residual nature and the inaction of social policy by the HK
government (Wong Hung, 2012). Why?
Inaction of Social Policy in HK (Why?)
• 1. The “Big market, small government” principle;
• 2. Positive non-intervention economic policy
• 3. Since 1997, not a totally independent governance
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body (The Central people’s Government CPG);
4. Too pragmatic: the “productivist welfare capitalism”:
social policy is strictly subordinate to the overriding policy
objective of economic growth (Ian Holiliday, 2000);
5. and the need to keep a surplus budget (except now)
6. The old-wine: Laissez-faire
The new bottles: influence of CCP after 1997
Comment: Why is there the legislation of minimum wage
in HK in July 2010 at HK$28 per hour?
Comment on the Inaction
Why is there the legislation of minimum wage in HK in July
2010 at HK$28 per hour?
Open Discussion
Development of Social Policy as an
academic discipline
• The subject has become more international in scope too,
recognizing that different countries adopt very different
solutions to common problems...
• the subject now recognises that the global nature of key
social problems – and the role of globalisation in
shaping the modern world – demands a global
perspective
• e.g. Hong Kong’s Housing Policies and MPF (Mandatory
Provident Fund is very different from Singapore’s HomeOwnership Scheme and Central Provident Fund).
Social Policy goes Global
• International Social Work (James Midgley, UC-Berkeley)
• Social Development: integrate social and economic
policies, e.g. Singapore CPF and Home Ownership)
• Social Capital (CIIF: Community Investment and
Inclusion Fund) in Hong Kong
• Social Enterprises: How good, and how to maintain the
Sustainability
What is Social Policy (Richard Titmuss,
1974)
1. Policy implies CHANGE: changing
situations/situations/social problems; SP to
affect change;
2. Action-oriented & problem-oriented: e.g.
(Poverty line in HK);
3. Social: (we) =the actions of government in
expressing the ‘general will ‘of the people**;
4. SP = 1. Beneficient /welfare-oriented;
2. Redistributive (e.g. social
insurance/income redistribution)
3.Include economic + non-economic
objectives, e.g. minimum wage)
Video on Action-oriented Social Policy:
Poverty in HK (HKCSS, 23.8.2013)
• HKCSS Poverty Supplement video
Video on Low income Working Family
Supplement
• https://hk.news.appledaily.com/local/realtime/article/20171
011/57318270
Basis of welfare provision
• Some people has problem and cannot solve it by
themselves (Needs) (Social Needs) (Industrial
Revolution & SW)
• External provisions: a) charitable concerns – out of
pity; b) instrumental reasons such as to soothe
social resistance, and to achieve legitimacy, social
stability;
• Hence, satisfying the needs (arise from the
problems)
• Plus, realizing the notion of social rights (social
citizenship)
Taxonomy 分類 of needs
Felt needs
• ‘I want a place that I can live in.’
Expressed needs
• Someone ask for public rental housing, some ask for home ownership flat, some
ask for mortgage subsidy to purchase private flat
Normative needs
• Professionals and policy maker step in to decide the needs for rental housing,
assisted homeownership, etc.
• Some experts step in to decide who are eligible, the size of the flat (allocation
standard), the supply per year, etc.
Comparative needs
• Compared with the Singapore HDB and home ownership policy, we should …
provide larger flat, at cheaper cost, for more people, and for the young newly
wedding couple;
• Shall we adopt their CPF model as a way of paying the mortgage
Taxonomy of need
• Felt needs – what people
Individual
Professional
want
• Expressed needs – with an
explicit demand for this
(with action)
• Normative needs (as
defined by the societal
norms / cultural conception)
• Comparative needs
(defined by comparing with
already existing relevant
example)
Welfare States or Big Market, Small government??
lfare iginsWeosocial welfare
• Refers to the increasing investment from the
public sector -- the state, in social services /
welfare services … echoing which basis of
welfare provision
• The choices of the basis, and the definition of
needs will have implication on selection of:
o Objective / desired end state
o Welfare benefit level: Minimum/optimal levels?
o Delivery: Universal or selective (with mean-tested)
provisions
o Values: Individual or Collective Respondibility
But, welfare, in a broader sense, can be
from multiple sources
Family /
kinship
Familial responsibility
Legitimacy seeking
Social citizenship
government
social
welfare
market
Market competition
– fringe benefit
Legal requirements
Charity
Mutual-help
NGOs
3 Models of Social
Policy
• by R M Titmuss in 1955
 Residual welfare
 Institutional welfare
 Industrial-achievement /
performance model
Ramesh Mishra’s
Typology
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Coined in mid-1970s
Residual welfare
Institutional welfare
Structural welfare
Social Policy Models (Titmuss, 1974)
• 1. The Residual Welfare Model of Social Policy:
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i) individual needs met first by the family & market, and
lastly & temporarily by the state welfare;
•
ii)English Poor Law (Workhouse rule for able body
unemployed), Free Market liberalists; Liberalism.
•
iii) use of means-test; welfare is for the most needy;
• 2. The Industrial Achievement-Performance Model
•
i)SW as adjuncts of the economy;
•
ii) social needs met on the basis of merit, work
performance & productivity;
•
iii)Company welfare & loyalities, economic growth first
then SW; e.g. Japan
•
Social Policy Models (Titmuss, 1974)
• 3. Institutional Model
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i) SW as a major integrated institution in society;
ii) providing universalist services outside the market
iii) on the basis of needs
iv) with redistributive social policies
v) typical of welfare states
Mishra’s typologies
Mishra, R. (1981). Society & Social Policy
Segal, M A (2010). Social Welfare Policy & Programs.
Items
Residual
Institutional
State responsibility
Minimal
Optimal
Need-based distribution as a value
Marginal
Secondary
Range of social services
Limited
Extensive
Population covered by social services
Minority
Majority
Level of benefits
Low
Medium
Government spending on social services
Low
Medium
Primary
Secondary
Low / poor
Medium / citizen
Role of NGOs in welfare
Primary
Secondary
Focus
Remedial
Plus prevention
Responsibility
Individual
Collective
Nature of provision
Selective
Universal
Use of means test
Status of clients
ThResiduaeoretical perspective
Left
Right
Against capitalism
Marxism
Pro-capitalism [tradition]
Fabian
socialism
SS social
democracy
(the third
way)
Move to the central,
Less radical, lesser blind
believe in socialism
Liberalism
[Neoliberalism]
Conservatism
[Neoconservatism]
Move to the central,
Less liberal, lesser blind belief in
capitalism
The Right:
Liberalists & Neo-conservatives
Liberalists & Neo-conservatives llberal
• Value of individual liberty and a free market as
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paramount
Free market – hidden hand, the best (Adam Smith)
Reward in proportion to the person’s merit as fair
measure of one’s worth to the society
Limited role of state – do not obstruct the hidden
hand and rational individual to exercise their choices
Hence, individual responsibility as fundamental,
and state support as secondary
Limited welfare provision: Family, Market and lastly
the state
Ideology: Liberalism & Free Trade
• From late 20th Century – downfall of socialism / socialist
projects of a big government and society; triumph of free
market in fostering economic development
• Market can be wrong but still the best, if with better and
correct forms of regulation (or de-regulating those
unnecessary rules established in previous decades).
• A more positive perception of welfare (and state
responsibilities); and a reformed welfare state –
‘productive’ orientation (Workfare & welfare-to-work
programs)
Neo-Conservatives: The Market
• Market to be protected & regulated
• Supplementing the Market with:
• Vouchers
• Expansion of Free Trade Zones (e.g. the European Union)
• Market operated with a minimal state
• Big Market, Small government
• Privatization: rolling back the state
• Consider more market solutions to social problems
THE LEFTIST
Marxists & Neo-marxists
Marxism … condemning capitalism
• Problems originated from unequal possession of
resources
• The most radical revolutionary Marxists … in Russia
• Advocate an alternative structural arrangement and
values to ‘capitalism’
• Militant attitude towards capitalism – revolt, because
market is essentially exploitative
• Means of production (and power) is owned by the state or
community
• State as strong vehicle to promote changes and provider
of welfare to promote equality and justice
• Welfare in a capitalist society can only be ‘sedative’ and
‘manipulative without these fundamental changes (neomarxists)
Democratic socialism – the
Fabian in UK
• In London, 1883, when a group
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of go-slow socialists founded it
Gradual evolution of society to
democracy and establish a
democratic socialist state
Economic democracy +
evolutionary socialism + gradual
education
Equality + Justice + Fraternity
+ Regulated market
Welfare states + universal
services (e.g. NHS in UK) and
Citizens social rights (universal
services)
Beatrice Webb, 1858-1943; Sidney Webb, 18591947; and Bernard Shaw, 1856-1950, founding
members of the Fabian Society. (Daily Herald,
London)
Evolution of Welfare States
• UK: the Beveridge Report 1942
• Comprehensive, Universal Social Insurance &
• The National Health Services
• Covering main social needs: Health, Education
Social Democracy
Democracy
th century
• Social
From early-20
• Similar to Fabianism / democratic socialism in UK but
more prevailing in European countries
• Advocate for reform capitalism democratically (reject
class struggle) through state regulation; creation of state
sponsored programs and organizations which work to
ameliorate or remove injustices inflicted by the capitalist
market system
• Democracy: respecting liberty
• Market -- a regulated market
• State – positive roles in enhancing welfare and liberty
• Individual liberty – natural rights to make choice and
must be ensured through government intervention
• Positive equality – cannot be in absolute sense, but can
be secured through active state intervention.
Items
Marxism
(orthodox Socialism)
Socialism
(Social Democracy)
Liberalism
(Neo-Liberalism)
State
State as instrument of
domination (total control)
[positive state]
State as democratically
elected [positive state]
State as democratically
elected [negative state]
Values
Justice, equality
Justice, equality, fraternity
(with these, real liberty)
Individual freedom & liberty
(free from state control)
Welfare
‘Total’ welfare state – state
cover everything
Essential tools to promote
those values
Necessary but limited to
those who really
‘deserve’ it (so meanstested)
Market
Abolish the market
Social market (has to be
regulated or else it will
engender lots of problem)
Redistribution - welfare
Primary (as minimally
regulated as possible)
Institutional Welfare State
Residual Welfare State /
Welfare State
Model
(R. Mishra)
Total welfare state
Limited redistribution
Productivism - workfare
The Third Way (Anthony Giddens, 1994)
• Advocating synthesis of right-wing economic + left-wing
social policies as promoted by some social democratic &
social liberal movements;
• Tony Blair: The New Labour Government (UK)
• Supports greater eqalitarianism in society through action
to increase the distribution of skills, capacities &
productive endowments, while rejecting income
redistribution to achieve this;
• Emphasize commitment to: balanced budgets, equal
opportunity + personal responsibility, public-private
partnerships, investment in human development,
improving labour supply, protection of social capital.
The Third Way: Comment
• A betrayal of left-wing values (Socialism)! (Left)
• Accepting capitalism (betrayal) & run by Wall Street Free Trade
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Globalization
Acid Test: Do the following really work well to solve social
problems?
1. Vouchers (Community Home Care Vouchers for the Elderly
in Hong Kong);
2. Social Enterprises (self-sufficient?)
3. Productive Welfare State (S. Korea)
4. Financial Tsunami ??
“Third Way…. It’s run by Wall Street for Wall Street with this
false flag operation as if it were a center-left group.” (William
Black, 2013).
Development of HK social welfare services:
i) Not a welfare state…..how about universal free
education for 11 years?
Ii) laissez-faire economic policy
iii) positive non-interventionism
iv) Basic law: low taxation, maintaining a financial
surplus
v) Big Market, small government
vi) how about the case of universal free education
& transport concession scheme of $2 per trip for
the elderly (60+)??? And the legislation of
minimum wage in 2009 in HK???
Question for though/ discussion
Does Hong Kong
have a social
policy?
Any major change
before and after
1997?
Possible Answer?
1. Residual Welfare Model?
2. Liberalism: Big Market, Small government
3. maintains its piecemeal, pragmatic and
problem-solving as in the colonial past (Wong
Hong, 2012)
4. Problems: the discontent of the poor, young
people and the middle-class increased.
5. Reason: without a mission and vision of future
development in HK;
without a rational and systematic planning process.
Stage
Period
Major Focus
Service priorities
Non-intervention
before
1945
Maintain minimal public welfare
provision
Chinese philanthropy organizations
Public hygiene
Minimalintervention
19451970
Foreign aids
Churches and other religious
organizations relief work
Clans association
Limited secondary health care
Limited subsidised education
Resettlement housing
Rapid expansion
19711982
Murray MacLehose’s
golden years
Rapid expansion of education / housing
Public assistance scheme
Youth and children services
Family services
Community Development services
Expansion cum
privatisation
1983 1997
Expansion of welfare services
But gradual permeation of
privatization in welfare
Elderly services
Rehabilitation services
Welfare in ‘crisis’
[when economy
was in crisis]
1998 -
Re-rationing of welfare
Attacks on welfare (CSSA)
Productive welfare / workfare
Welfare rights movement
CSSA reforms
Funding reforms
Workfare / training / employment services
Services for minority groups (New Arrivals,
ethnic minority)
Social enterprises / social investment
Social capital – tripartite relationship
Major questions
• Why do they get services? (Program goals)
• Who gets services? (Eligibility)
• What do they receive? (Benefits)
• What does it cost? (Cost analysis) & who pays for it?
(Financing)
• How do they receive services? (Service delivery system)
• How effective in solving the social problem?
Analysing social welfare
Who pay?
How to do it?
Who provide?
To whom?
Funding
Policy
components
Providers
Clients
taxation
In kind (services)
Government
specific individuals
contribution
In cash (money)
NGOs
social units
others (donation)
Legislation /
regulation
private sector
whole society
local/ overseas
41
No.1: Hong Kong
Poverty Pop.
Brazil 26%,
India 25%,
Hong Kong 18%,
(1.26 million people)
Russia 16%,
Japan 15.7%
USA 15.1%
U.K. 14% (2004)
Hong Kong under pressure as poverty levels rise
Hong Kong is one of the richest cities in the world,
with US$285.4 billion in its Reserve Account in December 2011,
with average property prices some 40 per cent higher than
42
Gini Coefficient
Figures are based on 1981, 1986, 1991 and 1996 Population Census (By-Census).
Year
Hong Kong
Singapore
1981
0.45
1986
0.45
1991
0.48
1996
0.52
2001
0.525
0.456
2006
0.533
0.476
2011
0.537
0.482
43
Extent of Poverty in HK: 1996-2005
(as 50% of the median household income) (www.poverty.org.hk)
verty rates in Hong Kong
Remark: Low-income households refer to those domestic households with monthly household income less than or
equal to half of the median monthly domestic household income of the corresponding household size.
Source: General Household Survey
The Market & Civil Society
• The Market: Big Market, Small Government (Hong Kong)
• How about the Mainland? (Socialism社會主義)
• The Market: User Choices and user pay?? (錢跟人走),
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Fee-charging at what levels?
Civil Society:
1. Definition of recognized social needs and at
2. what levels of provisions (amount and benefit level)
3. social rights: citizens and nationals, HK: new-arrivals
& residence requirements for OAA & CSSA?
4. Universal or selective services.
Revision
• 1. Definition of Social Policy
• 2. Taxonomy of Social Needs: 4 needs.
• 3. The Liberalists &
• 4. The Neo-Conservatives
• 5. What is the Third Way?
• 6. How can you describe Hong Kong’s Social Welfare
System? (What is the relevant Social Policy Model?)
• Next Lecture: Welfare Models
Class Discussion
• The 2020 Budget has proposed a big change on Hong
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Kong’s social policy measures (refer to the PDF file on
Budget proposal in Chinese)
Do you agree that these measure are good and helpful to
citizens in HK?
So is HK moving from selective welfare services to
universal welfare services?
In what ways do you like the Budget 2020 measures or
Not / (Why?) (any better suggestion?)
Class tutorial Discussion #1
• Q.1: CSSA applicants in the age group of 60-64 who is
able bodied from Feb. 2019 onwards are to be classified
as Adult applicants. They are required to report jobhunting results in order to be entitled to a monthly
supplement of $1,060. Do you agree with this new policy
measure and why?
• Q.2: The Public Transport Fare Concessions Scheme for
the Elderly of $2 per trip will be extended to people aged
60 to 64. Do you think that Hong Kong is moving beyond
the residual welfare model to the Institutional Welfare
Model?
• Do you agree with this new policy measure and
• Why?