Herman Levin

Book Review: Regulating the Poor: The Functions of Public WelfareRegulating the Poor: The Functions of Public Welfare. By PivenFrances Fox and ClowardRichard A.. New York: Random House, 1971. 389 pp.

the background of scientific thinking pertinent to this endeavor. Major contributions of this volume are the evidence that social casework has a theoretical basis that can be explicated; that there are areas of substantial agreement (with some difference in emphases) between the functional, problemsolving, and psychosocial approaches; and that systematic thinking has been, and is being, formulated, tested in various ways, and revised. The necessary brevity of the papers precluded detailed descriptions of research or of treatment principles or techniques. Two broad approaches or schools of thought appear to emerge, based upon different sources from social and behavioral science. One, which includes the problemsolving, psychosocial, and functional approaches as pointed out by Bernece Simon, draws from a broad range of theory in the social, behavioral, and natural sciences, related to a dynamic psychology with a theory of personality development. The other approach-behavioral modification-specifically relates to one behavioral science theory that does not include a theory of personality development. The question of the interrelationship, or lack of it, between these two broad approaches is left open. In the final chapter, Bernece Simon presents a general framework for evaluating the consistency and coherence of casework theory and a more specific framework for examination of the social and behavioral science base-possible next steps in theory building. To consistency and coherence she adds the criterion of usability in practice, thus clearly maintaining the goal of enhal?ced practice. Important and stimulating qU~StlO~S f?r research are raised explicitly and ?y l~plIcatlOn by each of the authors. The imaglll.atIVe and comparatively objective analysis stimulates the reader to look at the researchability of broad issues for which new methods of study may have to be developed. This is a book to be read by students, practitioners, and others for its well-organized comparative description; much of this material is not new to those familiar with the field but it is still useful. The books significance, however, lies in the initiation of broadly conceived, systematic, nondefensive examination of social work practice theory and its bases. Every chapter in the book raises questions that make one think. Along with the recognition of the necessity for rigorous thinking and study, this volume conveys a sense of accomplishment, evidence of communication, beginning work on Bookreviews

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FRANCIS H. McLEAN, who died in June 1945-only a little more than twenty years ago-is probably best remembered as the first executive director of what is now the Family Service Association of America. His long career spanned the years during which the charity organization movement gradually evolved into the family service movement and councils of social welfare agencies came into being. The historical review of the development of social welfare planning and of the council movement presented here highlights McLeans contribution to its birth and his astuteness in foreseeing the problems councils would one day be called on to face. During 1907 and 1908 McLean conducted the first major study ever undertaken of a citys charitable services-one part of the notable Pittsburgh survey. He had previously conducted surveys and agency studies in his position of director of the field department of Charities and the Commons. Later he did many more as director of the field department and as general secretary of the National Association of Societies for Organizing Charity. Indeed, it was he who demonstrated to the social welfare field the value of the survey as a means of improving the effectiveness of agency program and of determining when new agencies should be established. But it was his experience in conducting the survey in Pittsburgh that led him to realize that the charity organization movement had failed in its aim to co-ordinate social welfare services. He saw that a new approach was needed, and the findings and recommendations of the Pittsburgh survey led directly to the birth of the movement to establish councils of social agencies.