Origins of the German Welfare State: Social Policy in Germany to 1945 PDF
Preview Origins of the German Welfare State: Social Policy in Germany to 1945
German Social Policy 2 Edited and introduced by Lutz Leisering German Social Policy Edited and introduced by Lutz Leisering The 5-volume series “German Social Policy” presents a unique multidisciplinary approachtothehistoryofGermansocialpolicyandiswrittenbythedoyensoftheir respective disciplines. The volumes expound the contribution of the German tradition to the rise of social policy in the Western world in the 19th and 20th centuries. Germany pioneered modern social policy in the 19th century when Bismarck introduced social insurance. After the Second World War, Germany’s SocialMarketEconomybecameamodelofsocialintegration.Thevolumescover thehistoryofideas(volume1),thelegalandpoliticalhistorybeforeandafter1945 (volumes2and3),theGermanDemocraticRepublic(1949–1990)andtheimpact ofGermanreunification(1990)(volume4).Volume5embedstheGermancaseina majorcomparativestudyofEuropean welfarestates,complementedbyastudyof the USA and the Soviet Union. The volumes also yield insights into general theoretical issues of social policy beyond the empirical case of Germany. Each volumehasanintroductionbytheeditorwhosummarizesthecontributionmadeby thevolumesandlooksintothefutureofGermansocialpolicy. Volume1: F.-X.Kaufmann:ThinkingAboutSocial Policy–TheGermanTradition 2013.ISBN978-3-642-19500-6 Volume2: M.Stolleis:OriginsoftheGermanWelfare State–SocialPolicyinGermanyto1945 2013.ISBN978-3-642-22521-5 Volume3: H.F.Zacher:SocialPolicyintheFederal RepublicofGermany–TheConstitution oftheSocial 2013.ISBN978-3-642-22524-6 Volume4: M.G.SchmidtandG.A.Ritter:TheRiseand FallofaSocialistWelfareState-The GermanDemocraticRepublic(1949–1990) andGermanUnification(1989–1994) 2013.ISBN978-3-642-22527-7 Volume5: F.-X.Kaufmann:VariationsoftheWelfare State–GreatBritain,Sweden,Franceand GermanyBetweenCapitalismandSocialism 2013.ISBN978-3-642-22548-2 Michael Stolleis Origins of the German Welfare State Social Policy in Germany to 1945 Translated from the German by Thomas Dunlap Prof.Dr.MichaelStolleis Max-Planck-Institutfu¨r europa¨ischeRechtsgeschichte HausenerWeg120 60489FrankfurtamMain Germany [email protected] Operativeeditors:Gu¨nterH.Ast,LutzLeisering Publishedwiththefinancialsupportof: PartsofthisvolumehavebeenpreviouslypublishedinGermaninthefollowingpublication: Bundesministerium fu¨r Arbeit und Sozialordnung [Federal Ministry of Labour and Social Order]andBundesarchiv[FederalArchive](eds.):GeschichtederSozialpolitikinDeutschland seit 1945, vol. 1 (of 11 volumes published 2001- 2008): Grundlagen der Sozialpolitik, Baden-Baden,Nomos,2001,ISBN3-7890-7314-8 ISBN978-3-642-22521-5 ISBN978-3-642-22522-2(eBook) DOI10.1007/978-3-642-22522-2 SpringerHeidelbergNewYorkDordrechtLondon LibraryofCongressControlNumber:2012945412 #Springer-VerlagBerlinHeidelberg2013 Thisworkissubjecttocopyright.AllrightsarereservedbythePublisher,whetherthewholeorpartof the material is concerned, specifically the rights of translation, reprinting, reuse of illustrations, recitation,broadcasting,reproductiononmicrofilmsorinanyotherphysicalway,andtransmissionor informationstorageandretrieval,electronicadaptation,computersoftware,orbysimilarordissimilar methodologynowknownorhereafterdeveloped.Exemptedfromthislegalreservationarebriefexcerpts inconnectionwithreviewsorscholarlyanalysisormaterialsuppliedspecificallyforthepurposeofbeing enteredandexecutedonacomputersystem,forexclusiveusebythepurchaserofthework.Duplication ofthispublicationorpartsthereofispermittedonlyundertheprovisionsoftheCopyrightLawofthe Publisher’s location, in its current version, and permission for use must always be obtained from Springer.PermissionsforusemaybeobtainedthroughRightsLinkattheCopyrightClearanceCenter. ViolationsareliabletoprosecutionundertherespectiveCopyrightLaw. Theuseofgeneraldescriptivenames,registerednames,trademarks,servicemarks,etc.inthispublication doesnotimply,evenintheabsenceofaspecificstatement,thatsuchnamesareexemptfromtherelevant protectivelawsandregulationsandthereforefreeforgeneraluse. Whiletheadviceandinformationinthisbookarebelievedtobetrueandaccurateatthedateofpublication, neithertheauthorsnortheeditorsnorthepublishercanacceptanylegalresponsibilityforanyerrorsor omissionsthatmaybemade.Thepublishermakesnowarranty,expressorimplied,withrespecttothe materialcontainedherein. Printedonacid-freepaper SpringerispartofSpringerScience+BusinessMedia(www.springer.com) Preface to the Book Series “German Social Policy” Thewelfarestateoriginatedasaprojectofnationstates,withrootsinthenineteenth century. This book is part of a book series about the German tradition of social policy,whichisoneofthethreeparadigmaticalEuropeantraditionsofsocialpolicy besides the British and the Swedish traditions. The book series covers modern social policy in Germany from its beginnings under the early modern state to its breakthroughinthenineteenthcenturytothepresentday,rangingfrompoorrelief toBismarckiansocialinsurancetothepostWorldWarII“socialmarketeconomy” andthecurrentcrisis.Theseriesprovidesevenmore:italsolocatesGermanyinthe wider context of a comparative study of European welfare traditions, comple- mented by a study of the USA and the Soviet Union proposed to be non-welfare states(volume5).Furthermore,volume4contrastsademocraticwelfarestatewith a communist “welfare state”, namely the Federal Republic of Germany with the GermanDemocraticRepublicwhichresidedsidebyside1949–1990,followedby ananalysisofthetransitiontothenewunifiedGermanyin1990. Beyond the empirical case of Germany, the work yields insights into general issues of social policy which have been addressed in German discourses in-depth and at an early stage. This includes the distinction “state versus society” which is essential for a theoretical understanding of the welfare state; the meaning of “the social” and the “social question”; the identification of what a “welfare state” is compared tonon-welfare states;and social policy issues arising during the transi- tionfromcommunismtodemocraticcapitalism. The unique quality of the book series derives from its authors. The grand old menofGermanscholarshiponsocialpolicy,comingfromdiversedisciplines,have rendered their legacy to the scientific community and to politics: Franz-Xaver Kaufmann(sociology)writesonthehistoryoftheideaof“socialpolicy”inGerman politics since the nineteenth century (volume 1); Michael Stolleis (legal history) presentsanoverviewofsocialpolicyinGermanyfromthemiddleagesto1945,with anemphasisontheyearsafter1871(volume2);HansF.Zacher(constitutionallaw) investigates the history of the German post-war welfare state and its normative v vi PrefacetotheBookSeries“GermanSocialPolicy” foundations(volume3);ManfredG.Schmidt(politicalscience)analysescommunist East Germany, the German Democratic Republic (GDR, 1949–1990), followed by GerhardA.Ritter’sstudyofGermanunification(1989–1994)(volume4);andFranz- Xaver Kaufmann provides an international comparison of welfare states (and some non-welfare states) (volume 5). All authors take a distinctly historical approach to theirsubject,elaboratingtheformativeforcesofsocialpolicyinGermany. Thebookseriesisatranslated,revisedandup-datedversionofthefirstofthe11 largevolumesofthe“HistoryofSocialPolicyinGermanySince1945”.1Whiletwo contributionsofthefirstvolumehavebeenleftout,astudyofGermanunification byRitter(basedonhisaward-winningstudyofthesubject)hasbeenaddedtothe Englishversion.The11volumesoftheGermanworkadduptothemostambitious and comprehensive study of the history of German social policy ever published. The work not just displays the state of the art but includes original studies which drawonhistoricalsourcesthathavenotbeenaccessiblebefore.Especiallyforthis workthegovernmentliftedconfidentialityfrommanydocuments.Volume1,which underliesthisbookseries,providesageneralframeworkforthemorespecificVols. 2–11 that cover 17 fields of West and East German social policy chronologically. TheworkwasinitiatedbyChancellorKohlin1994.Theideawastotakestockof theGermansocialpolicytraditionatahistoricalmoment:theIronCurtainoverEast Europe had fallen, the Treaty of Maastricht had created the “European Union” (1992/1993)andGermanpoliticshadeventuallyrealizedthatthe“goldenyears”of thepost-warwelfarestatehadcometoaclose.Atthesametime,thenewchallenges ofglobalizationanddemographicchangehadbecomeapparent.Intheearly1990s, German politics was only just beginning to face up to these challenges while the authorsofVol.1oftheGermanworkwerealreadysensibleoftheinherenttensions anduncertaintiesoftheadvancedpost-warwelfarestate. Translating, revising and extending the original German “History of Social Policy in Germany Since 1945” was not an easy task. It required a joint and protracted endeavour of a number of persons and a considerable sum of money. I am indebted to Richard Hauser for bringing up the idea of a translation (and joining,withWernerAbelshauser,myapplicationforfundingwiththeVolkswagen Foundation);toFranz-XaverKaufmannforcontinuouslysupportingtheprojectin manywaysandwithverve;toThomasDunlap,DavidAntalandBenVeghtewho translated the demanding texts with admirable skill and care; to Gu¨nter H. Ast, formerly Federal Ministry of Labour and Social Affairs, who acted as operative editorofthetextswithunceasingcommitmentandpatience;toWernerA.Mu¨ller, Katharina Wetzel-Vandai, Irene Barrios-Kezic and Kay Stoll from Springer pub- lishers who supported the project with diligence; and, last but not least, to the authorsfortheirsupportandpatience. 1GeschichtederSozialpolitikinDeutschlandseit1945.EditedbytheFederalMinistryofLabour and Social Affairs (Bundesministerium fu¨r Arbeit und Soziales) and the Federal Archive (Bun- desarchiv).11volumes,Nomospublishers,Baden-Baden.2001–2008.Thebookseriesisbasedon atranslationofthefirstvolume,GrundlagenderSozialpolitik.(Seefootnoteonp.158) PrefacetotheBookSeries“GermanSocialPolicy” vii IthanktheVolkswagenFoundation,Hannover/(Germany),forgenerously fun- dingthetranslationundertheirscheme“‘Deutschplus’–AProgramforMultilin- gualism in Teaching and Research” (Az. II/83 610). I equally am indebted to the Federal Ministry of Labour and Social Affairs, Berlin/Bonn which co-funded the project,approvedbytheminister,UrsulavonderLeyen,andprocessedbyThomas Biewer. I also thank the Ministry and the Federal Archive, Nomos publishers, Suhrkamp, C.H. Beck and VS publishers for granting permission to translate the Germanwork.Sagegavepermissiontoadoptpassagesfortheintroductionfroman earlierarticleIwrote.2Finally,IammostindebtedtomywifeMariawhogaveme timetofinishthisundertaking. LutzLeisering 2LeiseringL(2003)Nationstateandwelfarestate.Anintellectualandpoliticalhistory.Journalof EuropeanSocialPolicy13:175–185. . Contents NationStateandSocialPolicy:AnIdeationalandPoliticalHistory IntroductiontotheBookSeries“GermanSocialPolicy” ................... 1 LutzLeisering 1 TheDistinction“StateVersusSociety” ...................................... 2 2 TheSocial ..................................................................... 3 3 VariationsofModernSociety:Distinguishing WelfareStatesandNon-WelfareStates ...................................... 6 4 VariationsoftheWelfareState:TheIdiosyncrasy ofNational“StateTraditions” ................................................ 9 5 Post-WarGermanSocialPolicyinRetrospect: TheGenesisofaWelfareState ............................................. 12 6 WhatFuturefortheSocial? ................................................. 14 References ................................................................... 20 OriginsoftheGermanWelfareState:SocialPolicy inGermanyto1945 ........................................................... 23 MichaelStolleis 1 Introduction .................................................................. 23 1.1 TheCulturalConditioningandChangeability ofSocialProtection ..................................................... 23 1.2 ChronologicalParameters .............................................. 24 1.3 TheFormationofSocietyandSocialProtection ....................... 27 2 SocialProtectionintheMiddleAgesandintheEarly ModernState:Alms,PoorRelief,Care,SocialHelp ....................... 30 2.1 ChristianPoorRelief ................................................... 30 2.2 TheEarlyModernStateandtheChurch ............................... 32 2.3 TheTransitiontotheNineteenthCentury .............................. 36 ix
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