Regulating the Poor

Regulating the Poor: The Functions of Public Welfare
by Frances Fox Piven and Richard Cloward

The main premise of this book is that government provides aid for the poor to control political unrest and to control labor. The book starts off by tracing the history and development of welfare in western civilization. Prior to the early 16th century, caring for the poor was considered to be primarily the responsibility of the church or of those of the more prosperous who tried to purchase their salvation through almsgiving. Leaving charity to the church meant that few received aid and those not necessarily according to their need.

This increased social unrest so governments began to be involved in providing for the poor. This was done for two primary reasons: 1.) To control social order and 2.) To extol the virtue of labor even at the lowest wages by making the treatment of the destitute so punitive and degrading that the no one wants to descend into beggary and pauperism. The book details such early government programs as workhouses, labor yards, and poor law subsidies whereby parish churches were required to care for the poor in their area.

 In the united States, welfare was addressed somewhat differently. Poverty in the U.S. was regarded as the obvious consequence of sloth and sinfulness. Relief was scattered and fragmentary-each township or county provided for its hungry in whatever manner it saw fit-giving of food, incarceration in almshouses, or indentured service. Poor relief was a local, not a state or national responsibility.

 During the great Depression, unemployment became so widespread that the government was forced to develop programs to assist the poor and the unemployed. At first the government focused on direct relief, but as imm4ediate needs were satisfied, the government moved on to work relief which, interestingly, was opposed by business leaders because it was felt that government was encroaching on areas that had been primarily reserved for private enterprise. As conditions stabilized, US policies changed to conform with the earlier view of poverty as being the rsult of sloth and sinfulness.

Relief programs excluded able-bodied men. Man-in-the-house rules excluded aid to a mother who was in any way associated with a man, particularly if the man lived in her house. Women and/or children were given aid but at the same time assigned to private entrepreneurs who were told to use them in any way possible. With the growing mechanization of southern agriculture, blacks migrated into the cities, particularly the northern cities where relief rules were not as restrictive.

Four million blacks came to cities in less than three decades-congregated in largest cities in the north-New York, Chicago, Philadelphia, Detroit, Los Angeles, Washington. Industry required an increasingly skilled labor force just as unskilled blacks reached cities in large numbers from the fields of the south, consequently, unemployment rose. Unrest mounted among poor blacks, culminating in the Civil Rights demonstrations of the early 60's. Then was born the Great society as Democrats realized that blacks were located in states of the most strategic importance in presidential contests.

Democrats were losing traditional support in the South, so they needed the support of the northern cities. Service programs were developed for inner city as part of LBJ's "War on Poverty". According to the book, the true objective of the "War on Poverty" was to reach blacks and integrate them into urban political system. Method was to offer federal funds for the ghettoes and to use federal funds to create pressure for reallocation of municipal services.