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What Is the Role of Social Work in China? a Multi-Dimensional Analysis

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What Is the Role of Social Work in China? a Multi-Dimensional Analysis What is the Role of Social Work in China? A Multi-Dimensional Analysis Jieru Bai Abstract: This article analyzes the role of social work in the context of the special political, economic, cultural, and historical background in China. A historical perspective is used to understand the evolution of the Chinese welfare system and explain the timing of reintroducing the social work profession. A pluralistic perspective is adopted to define social work relating to different stakeholders in social welfare and services. The government starts to diminish its role as a direct service provider. The traditional family and community have less capacity to take care of people. Yet, the social work profession is not ready to take over. Finally, a social development perspective is used to illustrate why economic growth is prioritized by the Chinese government and social work as profession is supposed to work to promote social stability and prosperity. Implications for social work research and practice are discussed. Keywords: China, pluralistic, social development, policy Through the past few decades, China has experienced fundamental economic, political, and social changes. On the one side, China has achieved significant improvements in poverty alleviation and social development (Chi, 2005). On the other hand, China is facing numerous new challenges due to rapid social change, including poverty, income disparities, family breakdown, rural-urban migration, unemployment, underemployment, criminality, housing, an aging population, child labor, public health, and environmental pollution (Leung, 2007; Tsang & Yan, 2001). In order to maintain the economic success and achieve wealth and prosperity, the Chinese government has implemented corresponding welfare reform to remedy social problems, avoid social unrest (Guan, 2003), and maintain social stability (Chi, 2005). Development and professionalization of social work was strongly advocated by top Chinese leaders and perceived as the most important theme in the welfare reform (Xiong & Wang, 2007). In 1986, social work was officially recognized as a university discipline and four universities started to provide social work programs. Within the following twenty years, the number of social work programs increased from 20 in 1994 to more than 300 in 2011 (personal communication, Sibin Wang, the current president of the China Association of Social Work Education, December, 2011). After the new millennium, the government has selected large, metropolitan cities as experiments, such as Shanghai, Shenzhen, and Beijing, to develop local social service delivery systems and social work teams (Hung, Ng, & Fung, 2010; Leung, 2007). In 2003, the government of Shanghai issued Temporary Measures of Qualifications for Social Workers Registration and tried some experimental projects of employing professional social workers in hospitals, community centers, and schools. By 2010, there were more than 1,500 people registered as social workers (Shanghai Civil Affairs Bureau, 2010). Those social workers have played an important role in providing services for juvenile delinquents, the elderly, and people with ______________ Jieru Bai, Ph.D., is an Assistant Professor in the Grace Abbot School of Social Work at the University of Nebraska at Omaha. Copyright © 2014 Advances in Social Work Vol. 15 No. 2 (Fall 2014), 495-506 ADVANCES IN SOCIAL WORK, Fall 2014, 15(2) 496 substance abuse problems (Xiong & Wang, 2007). Following the steps of Shanghai, the government of Shenzhen developed an integrated system in which the government purchased services from independent social service agencies (Hung et al., 2010). The Shenzhen Bureau of Civil Affairs provides funding and helps to develop non- governmental social work organizations which hire social workers and provide direct services. The experiences of experimental cities strengthened the government’s determination to promote social work as a profession for the whole country. In recent years, the government made great efforts in legislation and provided legal support in the professionalization of social work. In 2004, the Ministry of Labor and Social Security issued Regulations on the Occupationalization of Social Workers. In 2006, the Ministry of Civil Affairs and the Ministry of Personnel issued Temporary Regulations on the Social Workers Occupational Standard System, by which the government officially recognized social work as a profession. Right after that, the Ministry of Civil Affairs and the Ministry of Personnel published Regulations on the Professional Certification for Assistant Social Workers and Social Workers, which defined different positions and corresponding requirements of the new profession. The experiences also demonstrated the importance of the government’s support in the successful, experimental cities. As a socialist country, the Chinese government plays a strong and directive role in the development of social welfare as well as the social work profession (Tsang & Yan, 2001). Many Chinese scholars appreciate that it is a golden chance for the development of professional social work in China. However, others criticize that although the term “social work profession” has suddenly become popular and frequently appears in various government reports, “a widely agreed definition of what social work is and what social workers do is missing” (Xiong & Wang, 2007, p. 568). This article analyzes the role of social work in the context of the special political, economic, cultural, and historical background in China. A multi-dimensional model is used to analyze why the Chinese government is determined to develop social work contemporarily, and how to define social work as a profession in the Chinese welfare system. Implications for social work research and practice are discussed. A Multi-Dimensional Model In order to explain the timing of the professionalization of social work, a historical perspective is used to understand the evolution of the Chinese welfare system and social work profession. In consideration of the vastness and complexity of the social problems in China, a pluralistic perspective is adopted to define social work relating to different stakeholders in social welfare and services, including the state sector, the voluntary sector, the informal sector, and the commercial sector. Moreover, China is still a developing country and economic growth is its highest priority. There is a consensus that the current policy is directed to maintain social stability in order to achieve wealth and prosperity for the country. The major assignment for the social work profession is to remedy social problems caused by economic reform (Xiong & Wang, 2007), which reflects the political-economic perspective in social policy. This article combines these three Bai/ROLE OF SOCIAL WORK IN CHINA 497 perspectives and proposes a multi-dimensional model (see Figure 1) to explain the role of social work in China. Figure 1. Multi-Dimensional Model of Social Work in China The Historical Perspective Old China: Before 1949 Before the People’s Republic of China (New China) was founded in 1949, China had been a feudal society for nearly three thousand years. Confucianism was, and still is, the dominant belief system in China. It provided a foundation for social welfare ideology in Chinese culture (Hutchings & Taylor, 2007). Core values of Confucianism include reciprocity, filial piety, loyalty to one’s family, and consensus and harmony (Chung, 1992). Confucianism encourages mutual help because of the individual’s responsibility for the collective good (Chan & Tsui, 1997). Individuals and families were the primary caregivers. Social provisions from the state were limited to famine relief on an ad hoc basis (Chan & Tsui, 1997). In addition, Buddhist temples were the major charitable entities. This is similar to the role of churches in western societies before social work was developed. Social work was absent from Chinese history until the 1920s, when it was first introduced to China by western missionaries. However, at that time, China was invaded by western countries and Japan and then trapped in civil war. Although there were approximately 20 social work-related education programs before the People’s Republic of China was established in 1949 (Yan & Tsang, 2005), social work was not able to develop in the society. Communist China: 1949-1978 After the Communist Party took over in 1949, a centrally-planned economy was established. The central government took the responsibility of providing social welfare to ADVANCES IN SOCIAL WORK, Fall 2014, 15(2) 498 the whole Chinese society (Tsang & Yan, 2001). In urban areas, citizens enjoyed employment-based social welfare. “Danwei”, or work units, provided comprehensive social services for their employees, including housing, food, education, child care, health care, income protection, and old age pensions (Leung & Nann, 1995). In rural areas, social welfare was delivered by production teams (Mok, 1983). However, there was a huge gap between welfare in urban areas and rural areas. Rural welfare services were relatively undeveloped due to limited resources. Within this period, all social sciences, including sociology and social work courses, were eliminated from the universities during the “restructuring of institutions of higher learning” (Yuen-Tsang & Wang, 2002, p. 376). The underlying rationale was that social welfare was a by-product of capitalism to remedy social ills, while the socialist state itself was a social welfare agency (Mok, 1983). Social
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