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 t h i r d e d i t i o n

BLAKEMORE • GRIGGS
“ This is something of a best seller and it is easy to understand why. It will
serve the needs of both Level 1 and other students of social policy well

SOCIAL POLICY
[and] it carries off the exploration of specific theoretical issues within
discrete policy areas particularly well.
” SOCIAL POLICY & ADMINISTRATION

SOCIAL POLICY
a n i n t r o d u c t i o n
t h i r d e d i t i o n a n i n t r o d u c t i o n
This third edition of the bestselling Social Policy builds on the strengths of the highly

SOCIAL POLICY
respected first and second editions to offer a broad introduction to current
developments in social policy and welfare. Comprehensive, readable and
thought-provoking, this is the standard introductory book on social policy in the UK.
It provides a framework for exploring key questions such as:
• What are social policies?
• How are social policies created and implemented?
• Why do certain policies exist?
This revised edition has been expanded and thoroughly updated to reflect the latest
developments in the fields of social policy and welfare. It includes:
• A new chapter on criminal justice
• Revised chapters on education, community and social care, and health
• An updated and expanded glossary of key terms and annotated further
reading including websites
Social Policy is essential reading for students beginning or building on their study of

e d i t i o n
social policy or welfare. The book is also suitable as a reference resource for

t h i r d
practitioners and professional policy makers in fields including health, medicine and
nursing, housing, social work and counselling, education, law and criminology.
Ken Blakemore is a senior research fellow in Social Policy at the University of
Wales, Swansea, UK.
Edwin Griggs is a part time senior lecturer at Birmingham University and
Wolverhampton University, UK.

KEN BLAKEMORE
Cover design Kate Prentice
www.openup.co.uk EDWIN GRIGGS
SOCIAL POLICY

Third Edition
SOCIAL POLICY
AN INTRODUCTION
Third Edition

Ken Blakemore and Edwin Griggs

Open University Press

Open University Press
McGraw-Hill Education
McGraw-Hill House
Shoppenhangers Road
Maidenhead
Berkshire
England
SL6 2QL

email: [email protected]
world wide web: www.openup.co.uk

and Two Penn Plaza, New York, NY 10121–2289, USA

First published 2007

Copyright # Ken Blakemore and Edwin Griggs 2007

All rights reserved. Except for the quotation of short passages for the purposes of criticism and
review, no part of this publication may be reproduced, stored in a retrieval system, or
transmitted, in any form or by any means, electronic, mechanical, photocopying, recording or
otherwise, without the prior permission of the publisher or a licence from the Copyright
Licensing Agency Limited. Details of such licences (for reprographic reproduction) may be
obtained from the Copyright Licensing Agency Ltd of 90 Tottenham Court Road, London, W1T
4LP.

A catalogue record of this book is available from the British Library

ISBN 10: 0335 218 741

ISBN 13: 978 0335 218 745

Library of Congress Cataloguing-in-Publication Data

CIP data applied for

Typeset by YHT Ltd, London

Printed in Poland by OZ Graf. S.A.
www.polskabook.pl
To the Coventry Lanchester Polytechnic – one of the best of its kind
 Contents

The authors xiii

Preface xv
Acknowledgements xvii

1 THE SUBJECT OF SOCIAL POLICY 1

Social policy: an identity problem? 1
Social policy and other subjects 2
The story of social policy 5
Early roots: social work, sociology and social administration 5
Coming of age: the welfare state and social administration 8
Crisis and change: the development of social policy as a subject 9
Conclusions: the subject today 10
Plan of the book 12
Key terms and concepts 14
Suggestions for further reading 14

2 IDEAS AND CONCEPTS IN SOCIAL POLICY 15

Introduction 15
Equality, equity and justice 18
Equality and politics 18
Justifying policies for equality 20
Egalitarianism 20
Equity 23
Equality of opportunity 24
Need 26
Needs, wants and satisfaction 29
Sen’s theory: ‘commodities’,‘capabilities’ and ‘functionings’ 31
Freedom and rights 32
Citizenship 35
Conclusions 37
Key terms and concepts 38
Suggestions for further reading 39

3 THE DEVELOPMENT OF SOCIAL POLICY IN BRITAIN 40

Introduction 40
Example 1: from workhouse to workfare? 41
viii CONTENTS

Example 2: public health reform 41

Example 3: education, the roles of central and local government and the
concept of the ‘contract state’ 46
The development of a ‘contract state’ in education 47
The development of a welfare state 49
Beveridge: the man and the plan 49
Conclusions: Britain’s welfare history in comparative context 53
Key terms and concepts 56
Suggestions for further reading 57

4 THE CONTESTED BOUNDARIES OF SOCIAL POLICY: THE CASE OF

CRIMINAL JUSTICE 59
Introduction: what is criminal justice policy? 59
Criminal justice, social control and social policy: a ‘penal–welfare state’? 60
Comparing crime and criminal justice 63
Criminal justice policy in the Netherlands 65
Measuring crime 67
The criminal justice process 69
Equality and discrimination 71
The contemporary politics of law and order 72
New Labour and criminal justice 73
An assessment 75
Conclusion 76
Key terms and concepts 77
Suggestions for further reading 77

5 WHO GETS WHAT? SLICING THE WELFARE CAKE 78

Introduction: what are the benefits of the welfare system? 78
Should benefits and services be selective or universal? 80
Gainers and losers: individuals and groups 82
Contributions: taxation 83
Contributions: care 86
Keeping a perspective on the individual 86
How large is the welfare cake? 87
Social security: who benefits? 89
Non-contributory benefits 90
Tax credits 90
Contributory benefits 91
Who benefits? 91
Poverty and social exclusion 95
Poverty and inequality 96
Relative and absolute poverty 98
Social exclusion 102
Conclusions 104
Perception of necessities 107
 CONTENTS ix

Key terms and concepts 108

Suggestions for further reading 108

6 SOCIAL POLICY, POLITICS AND SOCIAL CONTROL 110

Introduction: social control and the rise of welfare 110
Social policy and regulation 113
Too much control – or not enough? 114
Social policy and the political order 115
Social welfare and political control in historical perspective 115
Twentieth-century Britain: social welfare in the political order 116
Britain and other examples 118
Social control and individual freedom 119
Social welfare and coercion 120
Social policies and indirect control: the examples of age and other social
divisions 122
Conclusions: can social policies bring benign control? 127
Key terms and concepts 130
Suggestions for further reading 130

7 WHO MAKES POLICY? THE EXAMPLE OF EDUCATION 132

Introduction: power and democracy 132
Government and state 134
Models of power – understanding how decisions are made 135
The democratic pluralist model 135
The elite control model 137
The political economy model 137
The background: education and Conservative policies of the 1980s
and 1990s 138
The 1988 Education Act 140
The lessons of the 1988 education reforms: how policy was made 141
Implementing the Conservative reforms 144
Centralizing control: Labour and education policy 145
City academies 147
Restructuring secondary education: radical reform or piecemeal change? 149
Policies for the future? 153
Conclusions 154
Key terms and concepts 158
Suggestions for further reading 159

8 WORK AND WELFARE 160

Introduction 160
Work: an object of social and economic policy 161
Does work equal welfare? 162
Employment policy options 164
x CONTENTS

The context: work and unemployment in the UK 165

The story of unemployment 168
Current employment policy 170
The New Deal 171
Other policies – the welfare of people in work 173
Employment relations 173
Tax credits 173
Minimum wage 174
Part-time workers 174
Conclusions – in whose interests is employment policy? 175
Key terms and concepts 178
Suggestions for further reading 178

9 ARE PROFESSIONALS GOOD FOR YOU? THE EXAMPLE OF

HEALTH POLICY AND HEALTH PROFESSIONALS 180
Introduction 180
Health, illness, modern medicine and health policy 181
The health professions: too much power? 183
A crisis of confidence in the medical profession 185
Flaws in service delivery 187
Medical and nursing professions in the development of the NHS 189
The advantages and limitations of the NHS 189
The health professions and health service reform 191
The NHS and the medical profession in a new era of uncertainty 193
Conclusions 195
Key terms and concepts 198
Suggestions for further reading 198

10 UTOPIAS AND IDEALS: HOUSING POLICY AND THE ENVIRONMENT 200

Introduction 200
Housing policy: definitions and significance 202
Housing utopias and ideals 203
From philanthropy and self-help to social engineering 204
The triumph of market ideals: housing policy in the 1980s and 1990s 207
Housing under New Labour – a forgotten dream? 212
Conclusions: housing and the environment in a postmodern society 218
Key terms and concepts 220
Suggestions for further reading 221

11 COMMUNITY AND SOCIAL CARE 222

Introduction 222
The development of community and social care 223
The Victorian legacy: care in institutions 223
The 1950s and 1960s: deinstitutionalization gains momentum 224
The 1980s: ‘community’ and ‘care’ redefined 225
 CONTENTS xi

The community care reforms: implementation and outcomes 228

Outcomes of the community care reforms: the early years 230
Social care and social services after 1997 232
Modernizing social services 233
Social services expenditure 234
Regulation, monitoring and inspection 235
Funding of long-term care 236
The health and social care divide 239
Labour and the future of social care 239
Conclusions 240
Key terms and concepts 242
Suggestions for further reading 243

12 DEVOLUTION AND SOCIAL POLICY 244

Introduction: devolution and its significance 244
What is devolution? 245
What type of devolution does the UK have? 246
Devolution and education policy 249
Devolution – health and social care 254
The end of British social policy? The impact of devolution and
of the EU 258
The significance of the EU 259
The EU and social policy 260
Conclusions 262
Key terms and concepts 263
Suggestions for further reading 263

13 CONCLUSION: THE FUTURE OF SOCIAL POLICY 265

Social policy and rapid social change 265
‘Not so New’ Labour and social policy: a loss of direction? 266
The changing context of social policy: a ‘postmodern’ era? 268
Endnote: a postmodern government and postmodern social policies? 271
Key terms and concepts 274
Suggestions for further reading 275
Glossary 276
Bibliography 299
Index 313
 The Authors

Ken Blakemore is a senior research fellow in social policy in the School of Human
Sciences at Swansea University. He has previously taught in Africa, in the USA (UCLA)
and at universities in Coventry, Warwick and Birmingham, as well as Swansea. He has
researched and written widely in several fields of social policy, including comparative
education, diversity and equal opportunities, and policies on care of older people.

Edwin Griggs has taught social policy and politics at a number of higher education
institutions over the years, including Coventry, Teesside, Leeds and City of London
Polytechnics, Keele University and Coventry University, and continues to teach at uni-
versities in the West Midlands.
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