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Forming Nation, Framing Welfare Social Policy: Welfare, Power and Diversity Series Editor: John Clarke

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Forming Nation, Framing Welfare Social Policy: Welfare, Power and Diversity Series Editor: John Clarke forming nation, framing welfare social policy: welfare, power and diversity series editor: john clarke This book is part of a series produced in association with The Open University. The complete list of books in the series is as follows: Embodying the Social: Constructions of Difference, edited by Esther Saraga Forming Nation, Framing Welfare, edited by Gail Lewis Welfare: Needs, Rights and Risks, edited by Mary Langan Unsettling Welfare: The Reconstruction of Social Policy, edited by Gordon Hughes and Gail Lewis Imagining Welfare Futures, edited by Gordon Hughes The books form part of the Open University course D218 Social Policy: Welfare, Power and Diversity. If you would like to study this or any other Open University course, details can be obtained from the Central Enquiries Data Service, PO Box 625, Dane Road, Milton Keynes MK1 1TY. For availability of other course components, contact Open University Worldwide, The Berrill Building, Walton Hall, Milton Keynes MK7 6AA. forming nation, framing welfare Routledge Taylor & Francis Group edited LONDON AND NEW YORK in association with by gail u lewis Theopen University - First published 1998 by Routledge Publ~shed2017 by Routledge 2 Park Square, hlllton Park, Ablngdon, Oxon OX14 4RI\ 71 1 Th~rdA\ enue. he\\ York, hY 10017, LSA Roztrledge is tr17 i171prinrqf'rhe 7tn.lor K- Francis Group, an ii?fou71trbusi17ess Copyr~ght0 The Open Unnrerslty 1998 The opinions expressed are not necessarily those of the Course Teain or of The Open University Edited, designed and typeset by The Open LTniversity The Open Access I ersion of this book, a\ ailable at \\\\\\.tandfebooks.com, has been made a\ailable under a Creati! e Commons Attribution-Yon Commercial-ho Deri\ati\es 4.0 license. British Library Cataloguing in Publication Data A catalogue record for this book is available froin The British Library Library of Congress Cataloguing in Publication Data A catalogue record for this book has been requested ISBN 978-0-415-18129-7 (hbk) ISBN 978-0-415-18130-3 (pbk) Contents Preface vii Introduction 1 Gail Lewis Chapter 1 A Family for Nation and Empire 9 Catherine Hall Chapter 2 ‘Remoralizing’ the Poor?: Gender, Class and Philanthropy in 55 Victorian Britain Gerry Mooney Chapter 3 Education for Labour: Social Problems of Nationhood 105 Lilian McCoy Chapter 4 Education for ‘Minorities’: Irish Catholics in Britain 155 Mary J.Hickman Chapter 5 Patterns of Visibility: Unemployment in Britain during the 201 Nineteenth and Twentieth Centuries Ian Gazeley and Pat Thane Chapter 6 Families of Meaning: Contemporary Discourses of the Family 253 Helen Lentell Chapter 7 Review 295 Gail Lewis Acknowledgements 317 Index 319 Preface Forming Nation, Framing Welfare is the second of five books in a new series of introductory social policy texts published by Routledge in association with The Open University. The series, called Social Policy: Welfare, Power and Diversity, examines central issues in the study of how social welfare is organized in the UK today. The series is designed to provide a social scientific understanding of the complex and fascinating issues of social welfare in contemporary society. It specifically examines the key issues arising from questions concerning the changing nature of the welfare state and social policy in the UK, giving particular emphasis to the processes of social differentiation and their implications for social welfare. The series also emphasizes the ways in which social problems and solutions to them have been socially constructed and are subject to historical change. More generally, the books use social scientific theories and research studies together with, and in contrast to, other forms of ‘knowing’ about social welfare and social issues (such as common sense). This is done in order to raise key questions about how society ‘works’, how social change occurs, and how social order is maintained. The five books form the core components of an Open University course which shares the title of this series. The first book, Embodying the Social, examines the central issue of how patterns of social difference are socially constructed. It traces the implications of such constructions for social policy—for example, the effects of shifting conceptions of disability—and examines their contested character. In exploring these concerns, this first book begins to establish the central focus of the course and series on diversity, the formations of social difference, and power, in particular the power to define our understanding of such differences. This second book, Forming Nation, Framing Welfare, addresses the relationships between nation, state and social welfare by tracing the historical conflicts and constructions that have shaped our modern conceptions of national belonging and welfare rights and duties. The book explores the making of the nation—the inclusions and exclusions of different social groups—and the role of social policy in that process. The third book, Welfare: Needs, Rights and Risks, focuses on a rather different issue, namely the questions of who gets welfare and under what conditions. This book examines how categories of need, desert, risk and rights play a central role in constructing access to welfare, particularly in circumstances where arguments over rationing, priority setting and limited resources are central to the forming of social policies. The fourth book, Unsettling Welfare, deals with the rise and fall of the welfare state in the UK, and traces the ways in which the relationship between social welfare and the state has been reconstructed at the turn of the twentieth century. In particular, it focuses on the consequences of the break-up of the political, economic and social settlements that had sustained the ‘old’ welfare state in the thirty years after the Second World War. The fifth and final book, Imagining Welfare Futures, looks at the prospects for the further remaking of social welfare around the focal points of citizenship, community and consumerism. Because these books are integral elements of an Open University course, they are designed in distinctive ways in order to contribute to the process of student learning. Each book is constructed as an interactive teaching text, and this has implications for how the book can be read. The chapters form a planned sequence, so that each chapter builds on its predecessors and each concludes with a set of suggestions for further reading in relation to its core topics. The books are also organized around a series of learning processes: ■ Activities: highlighted in colour, these are exercises which invite you to take an active part in working on the text and are intended to test your understanding and develop reflective analysis. ■ Comments: these provide feedback from the chapter’s author(s) on the activities and enable you to compare your responses with the thoughts of the author(s). ■ Shorter questions: again highlighted in colour, these are designed to encourage you to pause and reflect on what you have just read. ■ Key words: these are concepts or terms that play a central role in each chapter and in the course’s approach to studying social policy; they are highlighted in colour in the text and in the margins. While each book in the series is self-contained, there are also references backwards and forwards to the other books. Readers who wish to use the series as the basis for a systematic introduction to studying social policy should note that the references to chapters in other books of the series appear in bold type. The objective of this approach to presenting the material is to enable readers to grasp and reflect on the central themes, issues and arguments not only of each chapter, but also of each book and the series as a whole. The production of this book and the others that make up the series draws on the expertise of a whole range of people beyond its editors and authors. Each book reflects the combined efforts of an Open University course team: the ‘collective teacher’ at the heart of the Open University’s educational system. Each chapter in these books has been through a process of drafts and comments to refine both its content and its approach to teaching. This process of development leaves us indebted to our consultant authors, our panel of tutor advisers and our course assessor. It also brings together and benefits from a range of other skills—of our secretarial staff, editors, designers, librarians—to translate the ideas into the finished product. All of these activities are held together by the course manager, who ensures that all these component parts and people fit together successfully. Our thanks to them all. John Clarke Introduction by Gail Lewis In the last decade of the twentieth century the issues of education; family forms and relationships; the place of groups defined as ‘ethnic’ or ‘cultural minorities’ in the national formation; unemployment; and the appropriate role of private and voluntary sector organizations in the provision of welfare services, became part of a cluster of issues at the forefront of official and popular debates about state-organized welfare. In one way or another, these issues were identified as central to a range of social problems which had to be faced if the UK was to stake out and maintain a central place in global economic and political relations. More specifically, these issues were at the centre of three overlapping debates: 1 They were linked to the struggle to shift the boundaries of the relationship between the state and the individual citizen which lay at the heart of critiques of the welfare state emerging from both the left and the New Right. 2 They provided the discursive terrain upon which state-organized and regulated welfare was restructured. 3 They were identified as the sites where the erosion of traditional roles and relationships manifested itself most forcefully, thus making them social problems.
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